US 19 Pedestrian and Bicycle Safe Access to Transit Corridor Study

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1 US 19 Pedestrian and Bicycle Safe Access to Transit Corridor Study DRAFT Technical Memorandum #6 Cost and Benefit Evaluation Methodology August 2016 Prepared for: FLORIDA DEPARTMENT OF TRANSPORTATION DISTRICT 7 Contract No: C 9B41, FAP No: A, FPN: N. McKinley Drive Tampa, FL PINELLAS COUNTY METROPOLITAN PLANNING ORGANIZATION Contract No: ARA87 FPN: Court Street Clearwater, FL 3375

2 Introduction As stated in previous technical memorandums, the purpose of the US 19 corridor study is to identify strategies and opportunities to improve safety and accessibility for pedestrians, bicyclists, and transit users along US 19. The heavy vehicle traffic along with the existing spacing between marked crossing opportunities make crossing US 19 as a pedestrian or bicyclist a challenge at many points along the corridor. Improving cross corridor connections for non motorized users requires additional safe crossing opportunities. This technical memorandum is designed to identify potential crossing alternatives that could be used along the US 19 corridor and establish a methodology to evaluate the potential benefits and costs associated with crossing alternatives. This methodology is intended for use as a tool to evaluate potential crossing alternatives at specific locations along the corridor. Potential Crossing Alternatives Many of the current crossing opportunities along US 19 are spaced between 0.5 and 1.5 miles apart. The distances between these crossing opportunities mean that individuals looking to cross US 19 often have to walk several hundred or thousands of feet to a crossing location. Because of these distances, many individuals choose to cross the travel lanes of US 19 away from the intersections and designated crossing locations, some even choosing to climb over the concrete barriers that are along portions of US 19. These distances also impact transit users who often have to make significant deviations in their travel patterns to get across the street to a stop, which can result in significant time delays. The physical design, traffic demand, and travel speeds along US 19 make providing additional at grade crossings across the mainline travel lanes of US 19 extremely challenging. Therefore, only grade separated crossings over or under the mainline travel lanes and transit circulator service were evaluated for this study. These crossing alternatives, along with a no build/status quo scenario, are described below. No Build/Status Quo This alternative assumes maintaining the current and planned/anticipated configuration of US 19 with no adjustments to the physical infrastructure or operating environment along the corridor (including transit) beyond what is currently planned. Roadway Overpass This non interchange bridge alternative would provide crossing opportunities for both motorized and non motorized travelers by means of a roadway connection that crosses over US 19. It could be implemented as part of a land use or larger (sub area) circulation plan. Roadway Underpass An underpass would provide crossing opportunities for both motorized and non motorized travelers by means of an at grade (non interchange) roadway that crosses under the mainline travel lanes of US 19. This alternative would provide additional cross access options in locations where the mainline/through travel lanes of US 19 are, or are expected to be, elevated above the surrounding grade. This alternative could also be implemented as part of a land use or larger circulation plan. Pedestrian Overpass A pedestrian overpass or bridge would provide pedestrians and bicyclists with a grade separated and safe crossing over the travel lanes of US 19. Since a pedestrian overpass generally requires less right of way than a vehicular overpass and does not require a roadway connection on either side, they often provide greater siting flexibility. However, 1

3 pedestrian overpass locations should be carefully considered and placed where there is, or is expected to be, a demand for crossings. A common criticism of pedestrian overpasses is that they are often underutilized it they are not properly sited and convenient to use. Pedestrian Underpass A pedestrian underpass, similar to an overpass, would provide gradeseparation between vehicular traffic and pedestrian and bicycle movements, but it would be placed below the travel lanes rather than over them. When properly sited and designed, pedestrian underpasses can be a more attractive alternative to pedestrians and bicyclists as they eliminate the need to travel up ramps, stairs, or use an elevator to access the roadway crossing. Due to cost considerations and the challenges that tunneling in this part of Florida presents, pedestrian underpasses would most likely be a consideration for locations where the mainline travel lanes of US 19 are or are planned to be elevated, such as on an approach to an interchange. Also, while it is not impossible to retrofit a pedestrian overpass into an existing roadway section, the feasibility and cost effectiveness of a pedestrian underpass is more advantageous if they can be constructed as part of a larger roadway construction/reconstruction project. Transit Circulator An alternative to constructing a foot crossing is using existing highway interchanges and underpasses to provide connectivity by means of a transit circulator bus operating on the US 19 frontage roads. A circulator service along US 19 could transport riders from one bus stop to another on opposite sides of US 19 via a U turn at an adjacent interchange or non interchange roadway connection. The planning and implementation of a transit circulator as a strategy for getting people across US 19 would require the evaluation of many considerations related to the operations and structure of the routes to ensure they would encourage use and would be cost effective. Defining Benefits and Costs Benefits Measuring the benefits of providing additional crossing opportunities can be complex due to the number of direct and indirect benefits that can result from a transportation investment and the difficulties of quantifying each of those benefits. For example, a pedestrian overpass could have a direct benefit of reducing the travel distance and time needed to get across a road and indirect benefits of increased transit ridership and stimulating a land development project(s). For purposes of this study, calculation of the benefits associated with the alternative crossing opportunities focus on the direct user benefits (travel time savings and reduction in other costs of travel). It should be noted that the assumptions shown below regarding travel speed and value of time were applied in the example cost/benefit analysis described later in this memorandum. Average Travel Speed Value of Time Pedestrian 3.5' per Second or 2.38 mile per hour Transit Circulator 12 miles per hour $15 per hour Costs 2

4 Costs for crossing options were assessed for capital and operating expenses. Capital costs include the funds needed to construct, repair (beyond typical maintenance), and replace infrastructure. Operating costs involve the ongoing expenses required to maintain the infrastructure. For example, when considering the inclusion of an elevator as part of a pedestrian overpass, the cost of the materials and labor to construct and install the elevator are the capital cost, and the expense of electricity and labor from periodic inspections and maintenance are the operating expenses. In calculating the operating costs it is important to define an evaluation timeframe. In the example described in the following section, an evaluation period of 50 years was used. This timeframe was selected because the typical life span assumed for many transportation facilities, including roadways and bridges, is approximately 50 years. Below is a list of capital cost assumptions for the previously identified crossing alternatives. It should be noted that these costs represent planning level cost estimates as stand alone projects and are for example purposes only. Actual costs can vary substantially, based on the specific situation, materials, and other factors, including right of way and the location of utilities. No Build Crossing Alternative No direct costs Initial Capital Cost Estimate (for planning purposes only) Roadway Overpass between $5,000,000 and $15,000,000 Roadway Underpass between $2,000,000 and $15,000,000 Pedestrian Overpass between $1,000,000 and $7,000,000 Pedestrian Underpass between $500,000 and $10,000,000 Transit Circulator¹ Passenger Van (12 passengers) costs vary depending upon vehicle type $78,000 (3 vehicles at $26,000 each) 23' Cutaway Bus $210,000 (3 vehicles at $70,000 each) 30' Motor Coach $540,000 (3 vehicles at $180,000 each) 40' Motor Coach $1,608,000 (3 vehicles at $536,000 each) ¹ Vehicles would need to be replaced every 8 10 years and cost does not include operating costs. With the exception of the transit circulator, the costs associated with maintaining the functionality of the crossing alternatives fall into one of the categories listed below. Annual Maintenance Includes costs associated with routine maintenance items such as signage, drainage, landscaping, painting, and litter removal that are conducted regularly or on an as needed basis. Annual Operations Includes costs associated with elements such as lighting, elevator operations, and inspections. Major Capital Maintenance Includes costs associated with major maintenance work such as roadway resurfacing or pathway rehabilitation, restoration, and/or repair. 3

5 In contrast with infrastructure expenses, transit operating and maintenance costs vary based on the number of vehicles being maintained and on the level of the service being provided. Routes with higher service frequencies and longer service spans have higher associated operating costs. Another factor to consider when looking at the costs associated with the transit circulator alternative is fare box recovery, which can be used to help offset some of the other operating costs. Calculating Future Benefits and Costs For most transportation investments, the majority of the costs are incurred upfront while the benefits accrue over time. So when assessing the benefits and costs of an alternative, it is necessary to take into account the time value of money by converting the benefits and costs that take place in different years into a common year (present value). Having the benefits and costs as equivalent monetary values helps to ensure that an objective comparison is made. The formulas shown below were used to calculate present day costs/benefits: Where: Present Value of Future Capital Cost (Capital Cost) Present Value of Constant Annuity (Operating Cost) P = Present value of cost F = Future value of cost i = Assumed average interest rate n = Number of periods (years) A = Value of annuity (annual cost) Example Benefit Cost Comparison An evaluation of benefits and costs can be used to guide decisions of investment options or determine the economic usefulness of making any investments in the first place. To provide an example of comparing the benefit and cost of a crossing on US 19, two potential alternatives constructing a pedestrian overpass and implementing a transit circulator were evaluated. The example on the following page demonstrates how the benefit/cost evaluation methodology can be used as a tool to evaluate the cost effectiveness of different crossing alternatives. This example is for demonstration purposes and is not intended to be used as an actual benefit cost analysis of the two evaluated crossing alternatives. On the following page is an illustrative representation of the benefit and cost evaluation process used for this example. 4

6 Benefit Assumptions For this example, the benefit of both alternatives was considered to be the same, providing access across US 19 to transit and adjacent land uses. Using assumptions about travel speed, time value, and distance to destination (across the street), the values shown below were developed as an example of the benefits of crossing US 19. To calculate the benefit (time and value saved by each alternative) of each alternative, the costs associated with each alternative were subtracted from the cost of the status quo scenario. Status Quo Pedestrian Overpass Transit Circulator Travel Distance (Feet) 2, ,840 Avg. Travel Speed 2.38 MPH 2.38 MPH 12 MPH Value of Time $15/hr $15/hr $15/hr Additional Cost $1.50 Assuming an annual inflation rate of 2.5% over 50 years, the present value benefit of the two alternatives compared to the status quo were calculated as shown below. 5

7 Status Quo Pedestrian Overpass Transit Circulator Cost per Trip $3.38 $0.89 $2.17 Annual Cost* $ $ $ Present Day Cost** $24, $6, $16, Present Day Benefit Value (Status Quo Cost Alt. Cost) $18, $8, *Annual Cost assumes 1 trip per day, 5 days per week, for 52 weeks. **Calculated using Present Value of Constant Annuity formula As mentioned previously, these values represent the direct benefit value related to travel time and travel speed associated with each alternative. Also, important to note is that these values represent the benefit value per person and do not incorporate potential utilization of the overpass facility or transit circulator. Cost Assumptions For the transit circulator alternative, 23 foot cutaway transit vehicles were selected as the operating vehicle for this example. The 23 foot cutaway vehicles provide an ADA accessible option at a considerably lower capital cost compared to the larger transit vehicles. For example purposes, it was assumed that three transit vehicles would be needed, two in service and one as a back up and relief vehicle, to provide the frequencies needed to encourage people to use the circulator as a crossing alternative. Also, since the evaluation timeframe for the example provided is 50 years and the expected useful life span of a vehicle is 10 years, it is expected that the vehicles would need to be replaced during the evaluation period. The table below provides a breakdown of the estimated capital, maintenance, and operating costs for both alternatives. These costs are for example purposes; actual cost may vary and should be determined on a site specific basis. Pedestrian Overpass Transit Circulator Capital cost $4,000,000 Annual maintenance (annual cleaning + painting every 5 yrs) $2,000 Major capital maintenance (after 25 yrs) $50,000 Annual operation (lighting and inspections) $10,000 Capital cost for 3 vehicles (2 in service, 1 spare), replaced every 10 yrs $210,000* Annual maintenance (est. $5,000/vehicle) $15,000 Annual operations (14,630 revenue hrs [20 hrs/day, 359 days/yr] at $37.63/hr**) $540,400 Annual farebox revenue (100 riders/day, avg. fare $1.50) $53,850 *Transit Vehicle cost from FDOT Transportation Costs Report (2015). **Derived from PSTA Financial Model No New Revenue Community Bus Plan. 6

8 Assuming an annual inflation rate of 2.5% over 50 years, the present value cost of a pedestrian overpass and a transit circulator were calculated as shown below. The cost for the transit circulator includes the sum of capital, operating, and maintenance costs minus farebox revenues. Total Present Day Cost (Total 50 Year Cost) Present Day Capital Cost (Total 50 Year Capital Cost) Present Day Maintenance Cost (Total 50 Year Maintenance Cost) Present Day Operating Cost (Total 50 Year Operating Cost) Present Day Revenue (Total 50 Year Revenue) Pedestrian Overpass $4,397,075 ($5,462,265) $4,000,000 ($4,000,000) $113,450 ($487,420) $283,625 ($974,845) NA (NA) Transit Circulator $14,965,810 ($51,439,120) $741,635 ($2,549,075) $425,435 ($1,462,265) $15,326,050 ($52,677,310) $1,527,310 ($5,249,530) Benefit/Cost Comparison Using the calculated benefit values (compared to the status quo) and associated cost values of providing either a pedestrian overpass or a transit circulator, a comparison of benefits and costs can be developed. The table below shows the results of the benefit cost comparison. Pedestrian Overpass Transit Circulator Benefit Value $18,348 $8,913 Cost $4,397,075 $14,965,810 Benefit/Cost It is important to again note that the benefit values that were used in this calculation are based on a per person benefit. So for example, if 100 people utilized both the pedestrian overpass and the transit circulator once a day, 5 days a week, and for 52 weeks a year, the benefit costs for a pedestrian overpass and transit circulator would increase to 0.42 and 0.06, respectively. Based on increased utilization, the benefit cost increase is due to the benefit value of the infrastructure increasing while the costs associated with each alternative remain the same. So when calculating and comparing benefits and costs, it is also necessary to understand the potential utilization of the alternative being evaluated. Conclusion 7

9 The benefit and cost evaluation and resulting values presented within this memorandum were for example purposes and were only evaluating the direct benefits of the selected alternatives. As previously mentioned, calculating and including potential indirect benefit values and determining site specific costs could have a significant impact on the results of the benefit and cost evaluation. For example, a pedestrian overpass can operate 24 hours per day with no additional operating costs and could provide crossing opportunities for non transit users. Comparatively, a circulator that connects a major activity center and eliminates the need for additional deviation could have additional benefits that make it a much more attractive alternative. Also, including additional costs like right of way acquisition could significantly alter the evaluation. Ultimately, any proposed crossing alternative on US 19 must be identified and evaluated on an individual/site specific basis to make a true determination of the associated benefits and costs. 8

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