Attachment 5 High Speed Transit Planning Study Prepared by: City of Edmonton Transportation Planning Branch Stantec Consulting Ltd. Transportation Management & Design, Inc. with Lea Consulting Ltd. [135-35130]
RS Report Summary Page RS RS.1 RS.1 INTRODUCTION RS.1 RS.2 HIGH SPEED TRANSIT (HST) MODES RS.3 RS.3 MOBILITY / POPULATION / EMPLOYMENT PATTERNS RS.4 RS.4 SECTOR HST CORRIDORS & STRATEGIC EVALUATION RS.5 RS.5 ANALYSIS OF SHORTLISTED CORRIDORS RS.5 RS.6 RECOMMENDED ULTIMATE NETWORK & PLAN INTEGRATION RS.6 RS.7 IMPLEMENTATION STRATEGY RS.7
RS Report Summary RS.1 INTRODUCTION The Transportation Master Plan (TMP) established the role of public transit in Edmonton as encompassing three core service objectives. 1. Meeting the basic mobility needs of people who have no other travel alternative: basic service at reasonable cost. 2. Offering a viable and competitive alternative to private automobile transportation during peak periods of travel, in high demand corridors. 3. Expanding the carrying-capacity of the transportation system. The TMP also established two key priorities for transit in the initial ten-year period of its implementation. Construction of South LRT from University Station to Heritage Station. Completion of necessary studies to define proposed technology, alignments, approximate costs and required right-of-way for high speed transit routes to serve the West, North and Southeast sections of the City. In October, 2002, City Council provided direction to proceed with the HST Planning Study according to the project scoping document. Rationale For High Speed Transit Conventional bus transit is subject to significant deterioration as congestion and automobile traffic volumes increase. Expansions or improvements of the existing bus system are limited by the available roadway space. Consideration of various high speed transit modes, and the corridors for which they would be suitable, is driven by the need to provide a degree of segregation of transit vehicles from general traffic, and the need for significant improvements to transit capacity and quality of service. High speed transit is directly and indirectly supportive of Plan Edmonton and Smart Choices objectives, which call for intensification of development around transportation corridors and employment areas, as well as planning for and protection of transportation corridors required to implement the Transportation Master Plan. Transit in general, and high speed transit in particular, is a key component of the Transportation Master Plan. It contributes to managing congestion, providing a wider range of travel options, mitigating community impacts of transportation supply, and addressing environmental impacts of transportation. RS.1
Without high speed transit, the competitiveness of public transit relative to the private automobile will suffer and the objectives established in the TMP will be more difficult to achieve. HST brings about not only a potential to provide better service to those who are dependent on transit, but also (and often as its main objective) to attract some of those trip-makers who regularly use automobiles. Project Life Cycle The study is positioned at the pre-project stage of the project life-cycle model, as illustrated in Figure 1.1. It is intended to provide a strategic link between the TMP and the conceptual planning of any given HST corridor. It is not intended to re-open any of the recommendations or directions established in the TMP. Figure 1.1 Project Life Cycle Diagram Study Purpose & Organization The purpose of this study is to undertake technical, strategic-level analysis to identify proposed technology, alignments, costs, and right-of-way for HST routes to serve West, North/Northwest, and Southeast Edmonton. RS.2
Major strategic tasks for the study included the following. Identification of alternative HST technologies Review & identification of potential corridors High level stakeholder involvement Comparison of HST technologies within corridors Shortlist priority corridors for further evaluation/assessment RS.2 HIGH SPEED TRANSIT (HST) MODES An extensive review and literature search was undertaken of potential HST modes that could be appropriate for metro-edmonton. Key Attributes of HST The key attributes of HST considered vital in the Edmonton context are: dedicated running ways; stations (not bus stops); distinctive, easy-to-board vehicles; multiple door boarding; off-vehicle fare collection; frequent & direct service; less stops; and real-time passenger information through use of ITS technologies. Shortlist of HST Modes Figure 2.1 illustrates the shortlist and summary of HST modes considered suitable for implementation on a corridor basis in the Edmonton context. Intelligent Transportation Systems (ITS) technologies can be applied in support of all of the shortlisted HST modes. Enhanced Bus Priority typically involves a combination of queue jumps and transit signal priority at intersections. BRT Mixed is a combination of busways, bus lanes, queue jumps, and transit signal priority. RS.3
Figure 2.1 - Edmonton High Speed Transit Planning Study: HST Mode Descriptions Characteristics Mode Enhanced Bus Priority Sample Cross Section(s) Pictures Exclusive Travel Signal Priority for Way HST Short queue bypass or busonly lanes HST Grade Separations Stations Vehicles Yes Rarely Stations approx. 800 m to 1600 m spacing; heated, sheltered, lit; may include park-and-ride; may include next-bus display, offvehicle fare payment Typically use conventional vehicles BRT Mixed (mix of bus lanes / enhanced bus priority / busways) Typically bus lanes, with sections of mixed traffic (with bus priority measures) and/or sections of busway or exclusive BRT lanes Yes Possibly Stations approx. 800 m to 1600 m spacing; heated, sheltered, lit; may include park-and-ride; may include next-bus display, offvehicle fare payment Can use conventional, branded-conventional, or specialized BRT vehicles BRT Exclusive (busway) Full length busway or exclusive BRT lanes Yes Where required based on intersection capacity and roadway classification Stations approx. 800 m to 1600 m spacing; heated, sheltered, lit; may include park-and-ride; may include next-bus display, offvehicle fare payment Can use conventional, branded-conventional, or specialized BRT vehicles LRT Full length rail travel way (possibly shared with buses in short sections) Yes Where required based on intersection capacity and roadway classification Stations approx. 800 m to 1600 m spacing; heated, sheltered, lit; may include park-and-ride; may include next-train display, offvehicle fare payment Requires specialized LRT vehicles 26-Mar-04
BRT Exclusive typically involves limited access busways on separate right-of-way with transit signal priority or grade-separation at intersections. LRT operates on exclusive right-of-way with full transit priority at intersections. Figure 2.2 presents a chart illustrating typical capacity ranges for the HST modes under consideration. Existing transit demand on most corridors would be in the range below 5,000 passengers per hour in the peak direction, such that Enhanced Bus Priority and BRT Mixed modes provide sufficient capacity. Future levels of demand will likely move above 5,000 passengers per hour in the peak direction, warranting consideration of more advanced BRT and LRT mode implementation. Figure 2.3 illustrates the concept that, over time, the various travel modes will be affected to different degrees by increases in congestion and delays. For example, Enhanced Bus Priority, which shares roads substantially with the general traffic stream, will typically experience increased travel time proportional to that experienced by the private automobile. In contrast, BRT Exclusive or LRT will typically experience essentially zero increase in travel time, even if the general road system is very congested, since those modes traverse exclusive rights-of-way and are separated from other vehicles. Figure 2.4 summarizes a potential implementation concept for staging of BRT. This staging concept relates quality-of-service characteristics of BRT to relative transit demand. Other HST Modes Eliminated Other HST modes were reviewed but were eliminated from consideration because speed, capacity, cost or technical issues render them inappropriate for implementation on a corridor basis in the Edmonton context. The eliminated modes included: Heavy Rail, Commuter Rail, MagLev Trains, Automated Guideway Transit, Monorail, Personal Rapid Transit, and Aerial Tramway. RS.3 MOBILITY / POPULATION / EMPLOYMENT PATTERNS The HST planning study reviewed patterns of existing and future mobility, population, and employment at a strategic level to assist in the development and evaluation of corridor alternatives. Mobility Patterns - the existing urban form establishes a base condition that strongly influences both existing and future mobility patterns. Transit Volumes - illustrate the dominance of two major attractors (downtown and University of Alberta) in generating focused transit demand. RS.4
HST Mode Capacity Ranges LRT HST Mode BRT Exclusive BRT Mixed Enhanced Bus Priority 0 5000 10000 15000 20000 Typical Peak Hour Capacity (passengers/hour) Figure 2.2 - HST Mode Capacity Ranges
DEMAND SERVICES STATIONS VEHICLES RUNNING WAY SYSTEMS Existing Local Simple bus stops & Standard or smaller Mixed traffic On-board fare Transit Centers bus collection, radios Existing Regular Simple bus stops & Standard or Mixed traffic, transit On-board fare Transit Centers articulated bus signal priority collection, radios < 3,000 (passengers/hour) Existing Express Limited bus stops, Transit Centers Standard or articulated bus Combination of mixed traffic, transit signal priority & bus lanes On-board fare collection, radios 1,000-5,000 (passengers/hour) Enhanced Bus Priority BRT - Mixed On-line stations, Transit Centers, Park & Ride facilities On-line & off-line stations, Transit Centers, Park & Ride facilities, pedestrian grade separations Standard or articulated bus Specialized bus, branded with video surveillance Combination of bus lanes, mixed traffic & transit signal priority Mainly bus lanes, transit signal priority, some mixed traffic Prepaid boarding or automated fair collection, radios GPS/ AVL system for schedule adherence; ITS passenger information; prepaid boarding or automatic fair collection 3,000-10,000 (passengers/hour) BRT - Exclusive On-line & off-line stations, Transit Centers, Park & Ride, pedestrian grade separations Specialized bus, branded with video surveillance Busways, transit signal priority, some grade separations & bus lanes GPS/ AVL system for schedule adherence; ITS passenger information; prepaid boarding Figure 2.4 - BRT Implementation and Staging Chart
Traffic Volumes - more grid-oriented, less axially focused than daily transit flow patterns. Population / Employment Patterns General Growth Patterns - population and employment growth over the next 25 years is in the order of 30% for Edmonton and nearly 50% in the region; growth in post-secondary education enrollment is forecast at over 60%1. Population and Employment Densities and Growth - plots of these data provide an indication of where transit ridership is most likely to be generated. Major Activity Centres - represent nodes that potentially support ridership on an HST corridor, and which in turn may be supported and enhanced by the potential development of HST. RS.4 SECTOR HST CORRIDORS & STRATEGIC EVALUATION There were nine initial corridors reviewed at the sector level: three corridors for each of three sectors of Edmonton (the north, west, and southeast sectors). Each corridor was depicted approximately 1.6 km (1 mile) wide, and conceptually aligned along general directional flows from suburban areas to the central area of Edmonton. Based on a strategic-level evaluation, a single corridor was short-listed in the North and Southeast sectors. Three corridors were carried-forward for further evaluation in the West sector. In addition, city-wide network connectivity and supporting amenities were envisioned in support of the sector mobility requirements. A corridor in the Northwest sector was added for further review by direction of the Transportation and Public Works Committee. RS.5 ANALYSIS OF SHORTLISTED CORRIDORS Alignments were assessed with specific consideration of the HST modes and how the impacts of each mode vary within a given alignment. Evaluation criteria were established in conjunction with stakeholder input and used to guide the evaluation of alignment options. The criteria represent critical success factors in the planning of high speed transit, and are grouped into three categories as shown in Table 5.1. 1 Travel demand patterns for the long term were also reviewed, and were consistent with patterns identified here. RS.5
Table 5.1 Evaluation Criteria Category Components Moving People Travel distance and travel times for each HST mode Proximity to major activity centres Population, employment and growth Regional connections Fitting It In Transit Oriented Development (TOD) opportunities River valley impacts Community impacts Availability of park-and-ride Building It Planning level costs (capital and operating) Stageability Right of way requirements Major infrastructure requirements RS.6 RECOMMENDED ULTIMATE NETWORK & PLAN INTEGRATION Figure 6.1 illustrates the recommended ultimate HST network for Edmonton. The network specifically addresses the North, Northwest, Southeast, and West sectors of Edmonton in the context of the city as a whole, and in the context of the Alberta Capital Region. The figure also illustrates existing LRT in Northeast Edmonton, and the planned extension of LRT south to Heritage Station. The LRT mode is recommended for alignments in the West and North sectors of the city, based on future growth in transit demand which is focused on a single alignment to serve both the Downtown and University areas. The BRT mode is recommended for the Northwest sector based on its lower level of transit demand. The BRT mode is also recommended for the Southeast sector where the corridor serves transit demand primarily to the Downtown; an LRT connection to South LRT at Heritage Station is proposed to create a potential transfer-free alternative to service demand to the University area. Based on this ultimate network, travel time savings in the range of up to 50% may be achievable relative to typical local bus service. RS.6
Taken together, the recommended HST network and its supporting elements are intended to form a cohesive system plan which will provide a competitive and attractive alternative to the private automobile. The system will thus support Transportation Master Plan objectives and help to serve the long-term transportation needs of Edmonton and area. The recommended HST network and plan are integrated within the Capital Region and relative to numerous other City of Edmonton initiatives. Smart Choices Smart Choices for Developing Our Community is being presented to City Council with Transit Oriented Development (TOD) as a supported recommendation. Smart Choices implementation is anticipated to support HST and system wide transit ridership, and Figure 6.2 illustrates potential locations for advancement of TOD in relation to the recommended HST network for Edmonton. Downtown North Edge Area Plan Transportation Master Plan (TMP) Multi-Use Trail Corridor Plan Regional Transportation Plans RS.7 IMPLEMENTATION STRATEGY The HST network is envisioned ultimately to be a cohesive system that addresses travel demands in the context of the Transportation Master Plan and the City s financial capabilities. It is envisioned as a system that is competitive as compared to the private automobile, that helps to accommodate growth in new neighborhoods in a sustainable manner, and that integrates high speed transit needs in the Capital Region. However, the ultimate HST network would be very expensive to implement in the order of $2.5 B (beyond the estimated $0.5 B cost of SLRT extension to Heritage Station). It is therefore necessary to examine staged solutions in terms of both geographic alignments and HST modes. RS.7
Staged Network Costs To provide context, Table 7.1 illustrates the approximate total cost of connecting the four sectors of Edmonton addressed in this study (North, Northwest, Southeast, West) to the central core using each HST mode. Table 7.1 HST Network Costs by Mode HST Mode (for all four sectors: North, Northwest, Southeast, West) Cost Range Enhanced Bus Priority Mixed BRT BRT Exclusive $100 M - $250 M $350 M - $450 M $1,300 M - $1,500 M LRT $2,900 M - $3,100 M These costs represent implementing all components of each mode throughout the full length of corridors in each sector. For example, it can be seen that implementing BRT Exclusive in all four sectors would cost in the order of $1.5 B, or implementing LRT in all four sectors would cost in the order of $3.1 B (beyond the estimated $0.5 B cost of SLRT extension to Heritage Station). HST Staged Network Figure 7.1 illustrates the recommended staged HST network for Edmonton. As compared to the Ultimate HST network, this network recommends: BRT Mixed as a stage toward LRT (along 87 Avenue) in the west sector; BRT Mixed (along 97 Street) as a stage toward LRT (along 113A Street) in the north sector; and defers the LRT connection from Millwoods to Heritage. RS.8
As shown in Table 7.2, the cost of the recommended staged network is in the order of $1.0 B (as compared to $3.0 B for the entire recommended ultimate network). Table 7.2 HST Staged Network Costs (including SLRT extension to Heritage) Network Implementation Stage Cost Range Recommended Staged Network Recommended Ultimate Network $850 M - $1,000 M $2,900 M - $3,000 M As pre-concept planning continues for implementation of the recommended HST networks, further customization of appropriate HST modes within corridors can be undertaken to confirm optimum implementation staging details. Implementation Priorities The guiding principle of the HST recommendations and implementation strategy is to protect corridors for the long term future while strategically meeting transit travel demand and addressing planning issues through staged and cost-effective network development. This section recommends such priorities on a city-wide basis and for each of the city sectors within the scope of this study. The priority sections are summarized in tabular format below. RS.9 dlcw:\active \13535130\report\rep_repsumm-new.doc
Priority CW1 City Sector: Description: Coordinate with: City wide Right -of-way studies and funding strategies to identify requirements for property acquisition or protection City of Edmonton Land Management Policy Current land use planning initiatives and land development proposals Rationale: Right -of-way studies are appropriate for all sections of the recommended HST network to ensure that physical space is sufficient for proper implementation of HST. Right -of-way studies need to review roadway capacity to determine whether existing traffic lanes can be reallocated to transit rather than acquiring additional right of way. Funding strategies need to enable proactive acquisition or protection of rights-of-way to mitigate risks posed by ongoing growth and development of adjacent lands. Priority CW2 City Sector: Description: Coordinate with: Rationale: City wide City-wide HST marketing / branding / communication strategy Edmonton Transit general marketing initiatives Branding and promotion are key elements of a successful HST system, and need to be planned and developed in a comprehensive and coordinated manner. RS.10
Priority N1 / NW1 City Sector: North / Northwest Description: Pre-concept planning for HST from Downtown north to the NAIT / Kingsway area, including tie-ins to 97 Street (North) and St. Albert Trail (Northwest). Include consideration of other linkages to North and West sectors. Include pre-concept planning of supportive ITS technologies. Coordinate with: Smart Choices Downtown North Edge Area Plan Northwest Edmonton Transportation Study ITS Strategic Plan Rationale: This section is a common connection that potentially links HST network elements from the North, Northwest, and West sectors. Redevelopment pressures are increasing in adjacent neighborhoods, creating opportunities to develop and support HST, as well as potential threats to the feasibility of HST in terms of land acquisition and required property access. Priority W1 City Sector: Description: Coordinate with: West Pre-concept planning for HST from Lewis Estates Transit Centre to SLRT. Include pre-concept planning of supportive ITS technologies. Capital project: Quesnell Bridge / Whitemud Drive widening (currently scheduled for 2008) Smart Choices ITS Strategic Plan Rationale: Opportunities to incorporate staged HST (specifically BRT) in conjunction with Quesnell Bridge / Whitemud Drive capital works, linking West sector to SLRT. Appropriate to review costs, benefits, and impacts of the 87 Avenue direct BRT connection to the University Main Campus relative to a connection via Quesnell Bridge / Fox Drive to Neil Crawford Centre together with a complementary BRT connection from West Edmonton Mall to the Downtown via a northerly alignment. RS.11
Priority SE1 City Sector: Description: Coordinate with: Southeast Pre-concept planning for HST from Mill Woods to Downtown via Connors Road. Include pre-concept planning of supportive ITS technologies. Other transit service and facilities in Southeast Edmonton. Smart Choices ITS Strategic Plan Rationale: This component of the recommended Southeast HST network can be an early stage to improve a corridor of concentrated transit demand with ITS, transit priority measures, and redesigned service (frequent / reliable / accessible). An early investment in HST in this corridor would provide tangible evidence of BRT in Edmonton, including a foundation for HST branding and promotion. RS.12