City of Ottawa. Transit Solutions. O c t o b e r

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1 City f Ottawa Prject N O c t b e r O p e r a t i n a l I m p a c t s a n d P l i c y I m p l i c a t i n s f B u s B a y s i n t h e C i t y f O t t a w a - E x e c u t i v e S u m m a r y Transit Slutins GENIVAR Inc., 2800 Furteenth Avenue, Suite 210, Markham, Ontari L3R 0E4 Telephne: Fax: Cntact: Dennis J. Fletcher, M.E.S. Dennis.Fletcher@genivar.cm

2 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, Executive Summary 1.1 Study Purpse The City f Ottawa and frmer Regin f Ottawa-Carletn have had transit-friendly plicies f generally nt prviding bus bays (except when warranted by specific circumstances) since the late 1990s. These practices were derived frm verall bjectives fr the transprtatin netwrk. The purpse f this study is t review bus bay peratins in the cntext f the current City f Ottawa envirnment. This review is intended t cmprise: a review f experiences in Ottawa and elsewhere an evaluatin f impacts f implementing r remving bus bays n all users f the transprtatin infrastructure (buses, bus passengers, ther mtrists, cyclists, pedestrians) analysis f advantages and disadvantages f bus bays versus curb-side stps recmmended changes t the 1998 bus bay guidelines, as required 1.2 Methdlgy This assessment cmprised bth primary data cllectin and assessment as well as backgrund research frm ther surces Backgrund Research Literature Review A literature review was cmpleted t identify ther practice, research and plicy develpment related t bus bays including issues f Bus bay and radway design Implementatin plicy Safety issues Delays t buses and mtrists Yield-T-Bus legislatin Details are prvided in varius sectins f the reprt dealing with these individual issues. Review f Industry Practice A number f Canadian and internatinal jurisdictins were identified fr a review f related bus bay plicy and implementatin guidelines. Additinal details are prvided in Sectin Quantitative Research The quantitative research element f this assessment cmprised cllecting and analyzing vide data at a variety f stp lcatins in key crridrs in the city. Tw types f stps were bserved fr the study. Bus bay stps were defined as ff-line bus stps, where buses pull ut f the main travel lanes t stp (the bay may als serve a dual functin as an acceleratin lane at an intersectin). Curb-side stps are n-line bus stps, lcated in mixed traffic n a rad with n cut-ut lane r bus bay area t separate buses frm ther vehicles. GENIVAR 1

3 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 Lcatin Type Data were cllected frm vide bservatins f tw types f bus stps: far-side at a signalized intersectin and lcatins distant frm a signalized intersectin. Far-side stps are bus stps lcated immediately after a signalized intersectin, while the distant lcatins are lcated a significant distance dwnstream frm the nearest signalized intersectin, and may be lcated at unsignalized intersectins r at mid-blck lcatins. Delay Cmpnents Each f the different cmpnents f delay fr transit vehicles and auts were measured frm the vide bservatins. Transit delay Vides were reviewed t recrd measurements f the fllwing elements f delay t transit vehicles and passengers: Deceleratin time (time required fr a bus t slw dwn and stp) Clearance time (time required fr a bus t depart a stp), which includes: Start-up time (t frnt f bay) Re-entry delay (at exit frm bay) Acceleratin time (frm curb r bay) Aut delay Vides were reviewed t recrd measurements f the fllwing elements f delay t aut drivers and passengers: Deceleratin time time required fr a mtrist t slw dwn when a bus decelerates t stp Dwell time (time required fr passengers t bard and alight) can be fr the full duratin r fr a prtin f the time a bus is stpped (if, fr example the mtrist changes lanes and passes the bus while it is at the stp) might include slwing nly (with n stp delay) if vehicle changes lanes r arrives as bus is departing slwing r stp delay as a result f yield-t-bus at bus bay stps Crridr Analysis T simulate the impacts f cumulative effects in a crridr served by transit, a spreadsheet simulatin mdel was develped based n the bserved results frm the vide analysis. In this mdel, bserved delays were randmized and accumulated fr the number and characteristics f stps n identified rutes (Rute 12 Westbund and Rute 118 Eastbund). 1.3 Research Results Transit Delay Summary Transit delay cmpnents fr the tw bus stp types and lcatins can be summarized as fllws. Details are included in Sectin n page 23 f the main reprt. GENIVAR 2

4 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 ttal stp delays (excluding dwell time) varied in range between 7.6 secnds (curb-side) and secnds (busbay) clearance (re-entry and acceleratin) delays were in a range between 4.8 and 10.5 secnds Cmparisns between bus bay and curb-side stp bservatins include: due t additinal distance and manuevring requirements, deceleratin delay at bus bays is apprximately ne t tw secnds lnger than at curb-side stps clearance time (re-entry and acceleratin) at bus bays is apprximately fur t five secnds lnger than at curb-side stps in ttal, bus delay is apprximately five t six secnds lnger per stp at bus bays than curbside stps there is large variability f re-entry times fr bus bay stps re-entry delay increases as traffic vlume increases Aut Delay Summary The aut delay cmpnents fr the tw bus stp types and tw lcatins can be summarized as fllws. Details f the summary can be fund in sectin n page 29 f the main reprt. Delays t auts frced t stp fr the entire time the bus was stpped average abut 14 secnds, with a maximum bservatin f 22.2 secnds. Delays t auts frced t stp fr a part f the time the bus was stpped average abut eight secnds, with a maximum bservatin f 11.0 secnds. Delays t auts frced t slw dwn prir t the bus departure r t maneuvre arund the bus average abut tw secnds. Delays t auts yielding t the bus r stpped r slwed behind a yielding vehicle average abut five secnds In ttal, delays t auts at curb-side stps amunted t abut 8.2 secnds per car (abut 6 cars per event) while delays t auts at bus bay stps amunted t abut 3.5 secnds per car (abut fur cars per event) Crridr Simulatin Results T simulate the impacts f cumulative effects in a crridr served by transit, a simulatin mdel was develped based n the bserved results frm the vide analysis. In this mdel, bserved delays were accumulated fr the number and characteristics f stps n identified rutes (Rute 12 Westbund and Rute 118 Eastbund). In the Rute 12 example, simulatin f the past remval f nine westbund bays indicates: bus delay decreased by an average f 42.0 secnds per bus trip ttal transit passenger delay decreased by abut 15.0 persn-minutes per bus trip ttal aut persn delay increased by almst 6.0 persn-minutes per bus trip These results indicate that ttal persn delay fr all rad users (transit and aut) was reduced by abut 9.0 persn-minutes per bus trip, r a ttal f abut 81.0 persn-minutes in the peak hur (nine scheduled bus trips per hur). If the remaining six bays were remved (westbund): GENIVAR 3

5 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 travel time savings wuld increase frm 42.0 secnds t apprximately 75.0 secnds per trip ttal transit passenger delays wuld be reduced by an additinal 8.0 persn-minutes per trip t almst 23.0 persn-minutes per bus trip ttal aut persn delay wuld increase by an additinal 2.0 minutes t abut 8.0 persnminutes per bus trip ttal persn delay fr all rad users (transit and aut) wuld be reduced by an additinal 6.0 persn-minutes per bus trip, fr a ttal reductin f 15.0 persn-minutes per bus trip r persn-minutes in the peak hur cmpared t the 2007 situatin f 15 bays alng the rute In the Rute 118 eastbund example, the simulatin examined the ptential impact f remving all 25 bays eastbund frm Mdie Drive t Billings Bridge Statin and cnverting them t curbside stps. In summary, the simulatin f the remval f 25 bays n Rute 118 eastbund shws: bus delay culd decrease by an average f tw minutes per trip ttal transit passenger delay culd decrease by apprximately 56 persn-minutes per bus trip ttal aut persn delay culd increase by almst 15 persn-minutes per bus trip These results indicate that ttal persn delay fr all rad users (transit and aut) wuld be reduced by abut 41 persn-minutes per bus trip, r abut 410 persn-minutes in the peak hur. Transit passengers are typically subject t greater cumulative delays than aut passengers. Transit passengers are subject t cumulative delays fr the entire length f their trip in the crridr while aut drivers are typically able t pass the transit vehicle after nly ne r tw delays Travel Time Variability In additin t the average delay calculatins, it is imprtant t cnsider the ptential variatin in travel times and their effect n reliability and scheduling variability. In tw crridr simulatins the ttal variability in travel time ver the curse f the rute culd be tw minutes r mre per directin n ne rute and at least six r seven minutes n the ther. In the first case, reducing scheduled trip times by tw r three minutes can translate int real savings and at a minimum defer the need fr running time increases t manage ther delay effects such as increasing traffic cngestin. In the secnd example, eliminating the ptential variatin f at least five r six minutes means the same service culd be perated with ne less bus in the peak perid, which culd reduce peak perating hurs by up t 1,500 hurs per year, plus the capital cst f purchasing a bus. Reliability is an imprtant factr in custmer satisfactin with the transit system. Reducing the variability f travel times increases the reliability f when buses arrive at stps further alng the rute. GENIVAR 4

6 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, Yield-t-Bus Legislatin This assessment included review f Yield-t-Bus (YTB) legislatin cmpliance and effectiveness at all bserved stp lcatins, and the fllwing summarizes results f this analysis. In bservatins f events where vehicles shuld have yielded t the bus exiting frm the bus bay, cars yielded abut 52 percent f the time. In cases where cars failed t yield, the number f cars passing (and delaying) the exiting bus averaged abut 1.5 cars per event, and the delay t the exiting bus was apprximately 2.0 secnds. In cases where cars did yield t the bus, the first car yielded apprximately 70 percent f the time (36 percent f all bservatins where the bus was delayed) and the secnd car yielded apprximately 15 percent f the time (8 percent f all bservatins where the bus was delayed). Average delay t the bus was 5.0 t 6.0 secnds. Auts delayed as a result f a car yielding averaged abut 1.7 cars per event. Average delay was apprximately 5.0 secnds per car. The literature review indicates that cmpliance with YTB legislatin is lw in many cities and enfrcement is rare Safety Research Safety is f paramunt imprtance fr all aspects f the transprtatin system and an imprtant factr in the decisin whether r nt t install r remve a bus bay. Safety is cnsistently identified acrss transit systems as a primary factr that can justify bus bay installatin. The assessment als relied n research int accident data and situatins in Ottawa, cnducted in 1994 and 2000, which shwed n cnclusive evidence f safety implicatins between the tw stp types. Similar cnclusins were reached in the research in ther cities. A review f ptential cllisin situatins shws that similar ptential (with different specific situatins) exists fr bth bus bay and curb-side cnfiguratins, and that mst cllisins wuld result frm driver errr and a specific failure t bey the rules f the rad. Cllisins invlving buses are rare (less than 0.5% f ttal cllisins) and cllisin rates are apprximately five times higher fr car passengers than fr bus passengers. Transprtatin systems that priritize and favur transit will reduce the number f cars n the rad and thereby imprve verall traffic safety. In reviewing the sight line cnsideratin included in the current Ottawa bus bay plicy, it was cncluded by this assessment as well as that f ther jurisdictins that substandard sight lines are an issue fr auts appraching a stpped bus at curb-side, as well as fr a bus trying t exit frm a bus bay, and that stps at lcatins with substandard sightlines shuld be avided altgether Impacts n Other Users An assessment f the impact f bus bays n ther users f the street right-f way suggests that there are negative impacts f bus bays beynd the quantitative delay measurements. These include: GENIVAR 5

7 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 Physical Space Restrictins The presence f a bus bay in the rad right-f-way typically restricts the amunt f space available fr ther users, including pedestrians and waiting passengers, and the space restrictin can create cnflicts between the tw grups f users. This space restrictin als limits the ptential fr ther amenities fr all users f the right-f-way such as streetscaping, shelters, benches, newspaper bxes and such, can add t the quality f the urban space and prmte its use by nn-mtrized mdes, cnsistent with the intent f a number f city plicies supprting walking, cycling and transit. Bus entry angle Buses must enter a bay n an angle, which makes it harder t psitin the bus crrectly t eliminate the gap between the curb and all f the bus drs and t deply the wheelchair ramp crrectly. Angled entry and exit als mean that cnflicts are mre likely between pedestrians and verhanging bumpers and mirrrs within the limited space available. The setback f the passenger waiting area frm the main curb line f the rad at a bus bay may impede visibility between waiting passengers and appraching bus peratrs. Radway Crss-sectin Implicatins The presence f a bus bay als affects the relatinship between pedestrians and the travelled prtin f the radway. Pedestrians crssing at bus bay lcatins may have a lnger distance t crss, and this affects the quality f the pedestrian envirnment and the perceptin f safety. The presence f a bus bay als cmplicates use f shared space in the radway when cyclists are present, whether r nt a bicycle lane is prvided. Accessibility Issues Many f the negative aspects f bus bays fr pedestrians and transit custmers are even mre prnunced fr peple with disabilities, including space fr adequate manuvering t and n a ramp, limited sidewalk space, bus entry angle, lnger radway crssing distances, visibility and thers Winter Maintenance A bus bay creates the necessity f clearing an extra lane f snw, while at the same time reducing the amunt f space available t stre the snw prir t remval. Lw traffic vlumes in the bus bay lane imply a larger build-up f snw and ice during a strm than regular traffic lanes. Cst impacts All f these effects have cst implicatins either in the shrt- r lnger-term, as well as additinal csts related t cnstructin and maintenance f the bay itself Other Cnsideratins Acceleratin Lanes During the cnsultatin fr this review a pint was raised abut the dual nature f sme bus bays at far-side intersectin lcatins where bth transit and aut functins are served. Fr GENIVAR 6

8 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 right-turning auts, the review was asked t cnsider that the empty bus bay can serve as an acceleratin lane and its remval will affect radway peratins. This assessment relied n a 2007 study f acceleratin lane use in Ottawa. Extensive bservatins f shrt acceleratin lanes (cmparable t the length f a far-side bus bay) revealed that in practice these lanes are rarely utilised. The bserved lanes were cnsiderably shrter than the design standards recmmended by the Transprtatin Assciatin f Canada (TAC), and there is anecdtal evidence t suggest that acceleratin lanes that are clser in length t TAC standards are typically used fr their intended functin. In practice, very few acceleratin lanes f any length have been prvided n majr rads that have been cnstructed r widened in the last decade. In recent years the City has als been mving away frm high speed right turn channels t the smart channel design which prmtes safety and cnvenience fr all users (including mtrists and pedestrians) and that des nt typically require acceleratin lanes. The cnclusin f this review in the cntext f bus bay peratins is that that the need fr acceleratin lanes at any specific intersectin shuld be examined, and if warranted, the acceleratin lane shuld be prvided and cnstructed t the apprpriate standards. The decisin t share this functin with transit vehicles fr a bus bay can then als be decided n a case-by-case basis. Tw-Lane Rads Fr the mst part, cnsideratin f transit peratins n tw-lane rads with nly ne travel lane in each directin will be limited t lcal and cllectr streets, where traffic vlumes are lighter, speeds are slwer, transit frequencies are lwer, and the absence f bus bays will nt present any peratinal r delay issues. Thrughut the city hwever, there are instances where buses perate n tw-lane rads where traffic vlumes are higher and an apparent cnflict between auts and buses might exist. A variety f different radway and streetscape envirnments have different design bjectives and deserve specific cnsideratin fr the prvisin f curb-side versus bus bay stps in the radway cntext. Each must be cnsidered individually t ensure that all elements f the radway are cntributing t the desired bjective. 1.4 Cnsultatin As part f this reprt preparatin, a wide variety f City f Ottawa stakehlders were cnsulted at tw meetings ne early in the study and ne t review the Draft Reprt. Written and verbal cmments were received and cnsidered frm varius branches and units within Planning and Grwth Management Department, Public Wrks Department, Transit Services Department, Ottawa Plice Services and Infrastructure Services Department. Transit Pririty staff als met with the Pedestrian and Transit Advisry Cmmittee, the Rads and Cycling Advisry Cmmittee, and the Accessibility Advisry Cmmittee t slicit input. GENIVAR 7

9 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, Findings and Cnclusins Findings The fllwing cnclusins summarize the results f the analysis in this study: reducing bus bays prvides net psitive benefits f persn-delay when cnsidering all users f the rad under cmmn traffic and ridership cnditins the impact f curb-side stps n mtrists is minimal, thugh perceptin can be different cumulative effects f bus bays can have a significant impact n transit peratins in terms f running time, reliability, scheduling impacts and ultimately, perating cst the cumulative impacts n transit riders are greater than n aut drivers and passengers there is n evidence f safety issues differentiating bus bays frm curb-side stps a variety f City transprtatin, envirnmental and urban design bjectives supprt favuring transit and remval f bus bays bus bays have external impacts unrelated t delay cmparisns (maintenance and cnstructin csts, urban envirnment) Ottawa is cnsistent with state-f-the-art practices and research in ther Canadian and internatinal cities in terms f plicies, delays, safety, and YTB experience (thugh delays t bth transit vehicles and auts are smewhat lwer than ther examples) Cnclusins These findings lead t the cnclusin that the current bus bay plicy is apprpriate fr the Ottawa cntext, with the fllwing cnsideratins: with respect t the safety criteria psted speed 70 km/h r greater: there is a lack f safety data clearly supprting either bus bay r curb-side case speed element still recgnized as imprtant factr with respect t the safety criteria inadequate hrizntal r vertical gemetry: there are cntradictry psitins n sight line issues bus stps with substandard gemetry shuld be avided with respect t the ttal persn delay criteria: actual delays are shrter than perceived delays fr bth buses and auts there are imprtant delays fr buses and transit passengers n a crridr basis with respect t the impacts n ther users including bus bays as part f the street prgramming, and therefre, the street right-fway crss-sectin, reduces the amunt f ROW fr peple bus bays d nt cntribute t, and may reduce, pedestrian safety, utility, attractiveness, cmfrt and ultimately the usefulness f the public street as a place fr peple; imprving the design f street rights-f-way t address these factrs is mre difficult when bus bays are present GENIVAR 8

10 Operatinal Impacts and Plicy Implicatins f Bus Bays in the City f Ottawa Octber 11, 2011 ther many f the negative aspects f bus bays fr pedestrians and transit custmers are even mre prnunced fr peple with disabilities while YTB legislatin is better fr transit peratins than nt having it, the legislatin has nt prven t be a slutin fr eliminating re-entry delay GENIVAR 9