Report No:

Meeting Date

17-256a

February 14, 2018Alameda-Contra Costa Transit District

STAFF RE PO RTTO:

FROM:

SUBJECT:

AC Transit Board of Directors

Michael A. Hursh, General Manager

Transbay Tomorrow Public Hearing - Phase Two Cost Neutral ImplementationPlan

ACTION ITEM

RECOMMENDED ACTION(S):

1. Receive report on the Transbay Tomorrow final cost neutral plan, pending public hearingapproval items.

2. Consider setting two Public Hearings on March 28, 2018 regarding Transbay TomorrowService Changes:

e 12:00PM in a San Francisco location TBC

e 6:00 p.m. at the AC Transit GeneralOffice in Oakland

e Increased peak frequency on Line F and elimination of Berkley campus loop with endof line alternatives.

e New service on Line L along EI Portal Drive between Church Lane and Glenlock Streetin Richmond.

Changes in Line LA routing.Changes in Line L routing.One new route to serve new Park & Rides in East Oakland and related service on the

following new streets:o Elmwood Ave between 1-880 Southbound Off Ramp and Fruitvale Avenueo East 9th Street between Fruitvale Avenue and 1-880 Northbound on-ramp.o San Leandro Street between 38th Street and High Street.o High Street between San Leandro Street and Oakport Streeto Coliseum Way between High street and 45th Avenueo Oakport Street between 1-880 southbound Off-ramp and 1-880 northbound On-

Ramp.e Elimination of Line LC.e Reduction in service on Line NXC.

e Elimination of reverse commute trips on Line E

e

BACKGROUND/RATIONALE

Staff initiated Phase One - existing conditions and public outreach -- of the Transbay Tomorrowproject in early 2017. Phase Two of Transbay Tomorrow -- developing and vetting specificservice proposals -- began in September 2017. These proposals were based on results fromPhase One as wellas discussions with internaland externalstakeholders, and a round of publicengagement in October and November. Taken together, these proposals are designed torealign service, address overcrowding, and use limited resources in the most efficient manner

possible with the goalof implementation in August 2018. This report presents the finalproposal

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Report No. 17-256a

Page 2 of 7

based on allthis feedback, and details those elements of the plan required for consideration ata public hearing. Staff is also working on a larger set of unconstrained proposals for Transbayservice expansion should additionalfunding become available. These proposals willgo throughtheir own planning and public engagement process before they are brought to the Board forconsideration.

Final Plan for Beard ApprovalAttachment loutlines allthe changes and improvements in the cost neutralplan, which willbeconsidered at the ApriIBoard meeting alongside the items for the public hearing. Attachment 2outlines those changes requiring a public hearing.

The plan uses various strategies to improve four major issues with Transbay service:1. overcrowding

Assign existing high capacity buses to specific high ridership routes and trips.Increase the span of service where data show the first and last trips on a route havehigh demand. This indicates riders may be commuting outside of normal"peak" traveltimes and provides AC Transit with a relatively low-cost option to add trips toaccommodate this emerging pattern.

2. ReliabilityAdjust routing from local to more major roads to optimize the routeMove into the Salesforce Transit Center. The new facility provides a dedicated right-of-way from the Bay Bridge. This will relieve some of the on-street traffic variability alllines currently face as buses negotiate through traffic on surface streets into theTemporary Terminalin San Francisco.

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Increase stop spacing. The majority of Transbay routes have an average stop spacingof less than %-mile, which does not meet the Board standard of 1/2 to 2/3-milespacing. The plan includes stop consolidations and removals that aim to increase theaverage stop spacing more in line with Board standards. Details of the individualstopsproposed for removalare in Attachment 7. They were also included in the last round

of public comment and staff worked with many of the cities and listened to the publicfeedback to hone the list. These stop changes do not warrant a public hearing norBoard approvalbut they willgo through the normal notification process in each City.

e Restrict local ridership. Three-quarters of Transbay lines allow local ridership thataccounts for between two and four percent on the peak-only lines. The togglingbetween fare typos on Clipper and the boarding and off-boarding add dwell time tothose passengers going Transbay.

4. ProductivityReallocate existing resources(buses and revenue hours) from underperforming routesto routes with unmet demand.

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e

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Outreach and Passenger Comments on ProposalsIn October and November, staff presented the draft plan at five public meetings in EI Cerrito,San Francisco, Alameda, Berkeley and Hayward. In addition, staff continued their presence atthe Transbay Temporary Terminal in the afternoon commute to inform riders of the proposalsand capture their feedback. An online and in-person comment form found 60 percent of the

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Report No. 17-256a

Page 3 of 7

152 respondents found the proposed service changes will improve their commute with 91percent of respondents describing themselves as regular riders of the Transbay line on whichthey commented. As the comments by line response were low, the results are not statisticallysignificant, but staff has used them as a guide.

There were general comments requesting better bike space capacity on buses and bettermarketing for the proposals. Respondents also generally liked the stop consolidation proposalsto speed up service. Key comments related to specific service proposals included:

e

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8

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Enthusiasm from Line F riders on the increased frequencies and agreement on theremoval of the Campus Loop.Requests for an alternative terminus for Line F to serve South Side instead ofDowntown

Concern over the elimination of one late night trip on Line LC.Concern on the Line OX afternoon frequency decrease.Enthusiasm from Line J riders on more capacity and stop consolidation.

Based on this round of public comment, staff made changes on two proposals

Line OX - Staff received concerns about the reduction in frequency from Alameda passengersand the Alameda Transportation Commission; however, due to the minimal passenger loadimpact as shown in the in the table below, and with assignment of high-capacity MClbuses onthe heaviest trips, staff upholds the recommended reduction. This proposalliberates two busesto use for relief on lines with worse overcrowding. As the changes account for only a four-percent reduction in revenue hours, this proposal does not require a public hearing and staffwill present it as part of the finalplan for approvalin April. However, due to the concern, staffwill assign high capacity buses to accommodate the increased loads per trip.

The table below shows the afternoon service has four more trips than the morning with a gainof only 20(three percent) more passengers than the morning service. Staff proposes reducingthe frequency in the afternoon to align the service with the demand and use the resources onroutes with greater demand.

Table 1: Line OX- Existing Service from Spring 201 7 and Proposed ChangeAM/PM Peak Number

frequency of TripsNumber ofPassengers

AveragePassengers Per Trip

AM

PM

ProposedPM

915 mins1310 mins

1115 mins

3228924309

309 projected 1 28 projected

Despite the reduction in frequency to align with demand on Line OX, Alameda as a whole willreceive an increase of 0.03 daily revenue hours with the increased span trips on Lines OX andW, as outlined in Attachment I.

3 of 33

Report No. 17-256aPage 4 of 7

Line F -- The proposed change is an increase of 14 percent in weekday revenue hours, whichdoes not meet the 25-percent requirement for a public hearing. However, staff thought itprudent to include this proposal in the public hearing process as the eliminated loop stopsaccount for 16 percent(330 boarding's) of the ridership on the route. In addition, based on theinitial rounds of public feedback, staff included an alternative end of line configuration for theBoard to consider.

Attachment 3 shows the proposed alternatives for Line F terminus. The initial proposal atHearst and Shattuck allows for easy transfer to Line 52 for those passengers wanting to travelaround the campus loop. In addition, more existing passengers would be served with theDowntown area being one of the larger destinations on the line, as seen in Table 2. Thealternative as proposed would serve the Southside area and not Downtown. The Southside is adense area of student housing and workplace generators; however, Table 2 shows fewerexisting riders would be accommodated with this routing and the transfer to Line 52 is notfeasible

Table 2: Line F Alternative Termini Ridership

Existing Ridership Ca pturedEastboundWestbound

(Alightings(Boardings)190 216

23% 23%

79135

7%15%

Alternative Termin

Downtown

%Southside

%

Line F Total Ridership

While the frequency improvements are only for the weekday, the truncated route will remainon the weekend. Weekend on time performance is below District set goals, averaging 61percent on Saturday, and 71 percent on Sunday during last fall. Staff proposes to use theadditionaltime to improve reliability, as the weekend freeway traffic can be more variable

Line 52 operates at 15-minute frequencies in the peak and 20 minutes in the off peak, and canaccommodate the extra load (up to 20 passengers per trip) from Hearst and Shattuck witharticulated buses. In addition, Bear Transit operates a perimeter loop every 30 minutes forstudents. Between these transfers, and mode shift to walking, staff is confident passengers willbe accommodated; based on an on-board survey in 2015, approximately a third of trips on theloop are to another stop walking distance on the loop.

Staff presented at the Associated Students of the University of California (ASUC) and met withUniversity staff in Parking and Transportation departments. Both were very positive about theincreased frequency proposed for the Line F. The loop removal created some discussion, andconcern there would be some passengers adversely affected. However, they considered thatwith the Line 52 and Bear Transit, alongside other sustainable transportation demand optionsthe University is considering, these options would meet the loop transportation demand.

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Report No. 17-256aPage 5 of 7

Items for the Public HearingUsing the requirements under Board Policy 110, staff developed the following list of planelements that are required for consideration in a public hearing.

Line L and LA Reconfiguration - See attachment 4 for the route reconfiguration. Some Line LApassengers voiced concern the reconfiguration will make for a longer commute; however, LineLA had low ridership and is under threat of losing its RegionaIMeasure 2 funding and thereforeelimination. This reconfiguration is an effort to boost ridership and save the line by coveringpart of the existing Line L. Given Line LA will operate for a longer period on San Pablo Avenueinstead of getting directly on the freeway once it leaves Richmond, staff has estimated thatroute times may increase approximately 8 minutes. Consequently, estimated runtime for Line L

will decrease 8 minutes. It is criticalto note Line L operates more trips with higher ridership sothe traveltime benefits willaccrue to a larger number of riders in this tradeoff.

New service on Line L along EI Portal Drive between Church Lane and Glenlock Street inRichmond - See attachment 4. Rerouting out of residential streets and onto a main road willspeed up service and allow the deployment of double-deckers on the route. Thirty-twopassenger trips are affected, eastbound and westbound. Those passengers will have to walkfurther, but less than 0.5 miles of the previous stop locations for Transbay service. This alsobrings the stop spacing closer to the Board standards for Transbay service

Elimination of Line LC -- Included with the reconfiguration of Lines L and LA is an increase ofservice span to 8:00pm on both lines. This negates the need for the sweeper Line LC; however,the proposalalso eliminates the 9:00pm trip due to low ridership(17 passengers).

Line F increased peak frequency, elimination of Berkley campus loop with end of linealternatives -- As discussed above.

New route to serve new Park and Rides in on Fruitvale Avenue and High Street in EastOakland -- The Metropolitan Transportation Commission has included funding for three Park &Ride lots in the Bay Bridge Forward program. One in Albany can be served with existing lineswhile the two in Oakland(at Fruitvale and High beneath Interstate 880) willbe served by a newline that can serve both. The following is the number of total parking stalls per Park and Ridelots as given by MTC:

e Location No. 1 - Buchanan in Albany-- 261 stallse Location No. 2 - Fruitvale in East Oakland -- 205 stalls

e Location No. 3-High St. in East Oakland -346 stalls

New Park and Ride Routes Related Service on New Streets - The new line serving the Fruitvaleand High Park & Rides will require some service on several streets where AC Transit has notoffered service in the past. Those segments are described below and the routing can be foundin Attachment 5.

e Elmwood Ave between 1-880 Southbound Off Ramp and Fruitvale Avenue8 East 9th Street between Fruitvale Avenue and 1-880 Northbound on-rampe San Leandro Street between 38th Street and High Streete High Street between San Leandro Street and Oakport Street

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Report No. 17-256aPage 6 of 7

e Coliseum Way between High street and 45th Avenuee Oakport Street between 1-880 southbound Off-ramp and 1-880 northbound On-Ramp

Reduction in service on Line NXC - Proposed elimination for low ridership - 12 passengersaffected.

Elimination of reverse commute trips on Line E -- There are nine reverse-commute trips on LineE that carry 16 passengers each day, well below the District's standard for productivity. Staffproposes to eliminate these given low ridership as well as some of the confusion they causepassengers.

CEQA AnalysisLegal staff evaluated the changes listed and determined they are not substantial enough torequire a full CEQA analysis. The changes would fall under a general exemption and staff willbring fulldetails to the Board for the public hearing.

Title VI

Staff will complete the Title VI analysis prior to the Public Hearing so the information will beavailable when the Board makes a decision. In addition and if necessary, staff will have theability to propose alternatives or mitigations for the Board's consideration in conjunction withfinalapprovalof the entire plan.

Schedule

e February 14, 2018 - Request Setting Public Hearings for March 28, 2018

e Early March -- Hold Outreache March 28 -- Hold Public Hearingse April 14--ConsiderApproving Cost Neutral Plan including Public Hearing Items

e August 2018- Implement Cost Neutral Plan

BUDGETARY/FISCAL IMPACT:

The plan as presented is the initial service plan to address some long-standing issues withovercrowding and an ageing service network within the confines of existing resources. If theBoard requests changes, the plan willrequire adjustments to ensure there is no additionalcost.The Metropolitan Transportation Commission's Bay Bridge Forward Program is funding sevenadditional buses and associated operating costs for Transbay service and this is incorporatedinto the plan. Staff is developing a longer-term unconstrained Transbay service plan that willprioritize where any new funding would be allocated should there be an infusion of newfunding at a later date

ADVANTAGES/DISADVANTAGES:

The current regional focus is on solving the capacity problem for Transbay transit. This planhelps to solve that problem by increasing capacity in the areas of highest need. However,ensuring this plan didn't add any operating costs requires cuts in unproductive areas to fundincreases on lines with unmet demand. The cuts were designed to impact the fewest number ofpassengers, while the increases in service are designed to improve service for the mostovercrowded routes with high demand and growth potential.

6 of 33

Report No. 17-256aPage 7 of 7

The main disadvantage of the plan will be the same as with any proposed service changes:change can be controversial. However, staff hopes that through thorough outreach efforts, anymajor issues will be addressed before the finalrecommendations.

ALTERNATIVES ANALYSIS:

An alternative to following this plan is to continue existing service with the existingovercrowding issues and areas of unproductive ineffective service. Without a plan to follow,Transbay expansion will occur as it has recently -- based on isolated analyses and responses topassenger complaints.

If there are concerns about specific unproductive service reductions, such as Line OX, there aretwo alternatives. The Board could opt to either make reductions on more productive serviceelsewhere, or reduce the amount of proposed improved service (such as the increasedfrequency on Line F) to ensure no additional cost to the District. However, staff based thisproposal on analysis that shows the least impact to existing riders; any alternative servicereduction would negatively affect more riders.

PRIOR RELEVANT BOARD ACTION/POLICIES

].7-256 Transbay Tomorrow Phase One Update on Existing Conditions and Outreach

ATTACHMENTS:

1. Transbay Tomorrow Cost Neutral Service Plan2. Public Hearing Proposals3. Line F Alternatives

4. Line L & LA Reconfiguration5. New Park and Ride Route with Service on New Streets

6. Draft Public Hearing Notice7. List of New, Consolidated and Eliminated Stops

Approved by:

Reviewed by:

Ramakrishna Pochiraju, Executive Director of Planning and Engineering

Michael Eshleman, Service Planning Manager

Robert del Rosario, Director of Service Development and Planning

Linda Morris, Senior Transportation Planner

Dylan Tonningsen, Service Development Intern

Shelby Goss, Service Development Intern

Prepared by:

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Line F Alternatives Attachment 3 SR 17-256a

Proposed Terminal in DowntownBerkeley at Hearst & Shattuck

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SR 17-256a Attach ment 4

Proposed Routes: L & LA

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13 of 33

Attachment 5, SR 17-256A

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14 of 33

DRAFT Attachment 6 SR 17-256a

Alameda-Corltia Costa Transit Dlstiict

PUBLIC HEARING NOTICEAlameda-Contra Costa Transit District

Transbay Tomorrow Service Changes

Notice is hereby given that the AC Transit Board of Directors will hold Public Hearings on Wednesday,March 28, 2018 at 12:00 p.m. (in San Francisco, Location T.B.C.) and again at 6:00 p.m. at the AC TransitGeneral Offices, Second Floor Board Room, 1600 Franklin Street, Oakland, California, to receive publiccomment on Transbay Service Proposals as more specifically described below under "PROJECTDESCRIPTION"

The proposed Transbay Service Proposals are detailed on AC Transit's website at www:gU[Qnsit:org, andavailable in printed format at the District's General Offices, located at 1600 Franklin Street, Oakland,California, and at a variety of other locations, including main county and city offices as wellas the mainlibraries located within the District's service area. For information on exact locations where thedocuments are available in your specific area, please telephone(510) 891-4764.

PROJECT DESCRIPTION

As part of the Transbay Tomorrow Service Changes, the following changes are recommended

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Line F increased peak frequency and eliminating the Berkeley campus loop with end of linealternatives

New service on Line L along EI Portal Drive between Church Lane and Glenlock Street inRichmond

Changes in Line LA routingChanges in Line L routingNew route to serve new Park and Rides in East Oakland and related service on new streets:

o Elmwood Ave between 1-880 Southbound Off Ramp and Fruitvale Avenueo East 9th Street between Fruitvale Avenue and 1-880 Northbound on-rampo San Leandro Street between 38th Street and High Streeto High Street between San Leandro Street and Oakport Streeto Coliseum Way between High street and 45th Avenueo Oakport Street between 1-880 southbound Off-ramp and 1-880 northbound On-Ramp

Elimination of Line LCReduction in service on Line NXC

Reduction in reverse commute trips on Line E

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If approved by the Board of Directors, Transbay Service Proposals willbe implemented in August 2018

Your Comments Are Invited

15 of 33

DRAFT Attachment 6 SR 17-256a

Public Comment on Transbay Service Proposals is invited either in writing or at the public hearingscheduled on Wednesday, March 28, 2018, at 12:00 p.m.(in San Francisco, Location T.B.C) and again at6:00 p.m. , at the AC Transit General Offices, Second Floor Board Room, 1600 Franklin Street, Oakland,

California. The public is urged to submit written comments by letter, facsimile, or email, which must bereceived no later than Monday, March 26, 2018, at 5:00 p.m. in order for comments to be copied andprovided to the Board of Directors for review prior to the hearing. However, any written commentsreceived up until the end of the final public hearing on Wednesday March 28 at 5:00 p.m. will beconsidered. Written comments will receive the same attention as verbal comments received at the

Public Hearing. Please address written comments to the AC Transit Board of Directors, 1600 FranklinStreet, Oakland, California, 94612; by facsimile at(510) 891-7157; or by emailto planning@actransit.org.Comments may also be submitted by voicemailat(510) 891-7201. For Spanish-language comments, callj510) 891-7291; and for Chinese-language comments, call(510) 891-7292

Meeting site is wheelchair accessible

Spanish and Chinese interpreters will be available at the meeting. Upon request, a sign languageinterpreter or a foreign language interpreter for languages other than those mentioned in this notice willbe present at the hearing. Foreign language interpreters can be provided if needed. Please contact theDistrict Secretary's Office at (510) 891-7201 no later than 72 hours in advance to make arrangements.

for TDD for hearing impaired, cal1711, California Relay Service, and specify(510) 891-4700.

Transit to the Hea ring Site

All AC Transit bus lines serving downtown Oakland stop within walking distance of the public hearingsite. For trip-planning, visit www.actransit.org or call 511 (and say, "AC Transit"). The site can also bereached via BART to the lgth St. Oakland station.

Please do not wear scented products to the meeting

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