Orange Line Phase One Definition and Review of Related Projects. Task 2 Deliverable

Transcription

1 Orange Line Phase One Definition and Review of Related Projects Task 2 Deliverable 8/21/2017

2 Revision History Revision Date Description Number 0 7/19/2017 Initial draft to Dakota County for comment 1 7/27/2017 Dakota County comments incorporated 2 8/8/2017 TAC comments incorporated 3 8/21/2017 Metro Transit comments incorporated 1

3 List of Acronyms BRT Bus Rapid Transit CQI DCRRA JPA MnDOT MVTA OLX PIP PM PMP PMT PWG QA QC QR RP TAC TPP Continuous Quality Improvement Dakota County Regional Rail Authority Joint Powers Authority Minnesota Department of Transportation Minnesota Valley Transit Authority Orange Line Extension Public Involvement Plan Project Manager Project Management Plan Project Management Team Policy Work Group Quality Assurance Quality Control Quality Reviewer Responsible Professional Technical Advisory Committee Transportation Policy Plan 2

4 Table of Contents Contents Revision History... 1 Table of Contents... 2 Introduction... 4 Study Overview... 4 Purpose of this Memo... 4 Review of Related Projects and Plans... 5 Dakota County East-West Transit Study... 5 METRO Orange Line Project Plan Update... 6 Cedar Avenue Transitway Implementation Plan Update... 7 MnPASS Phase II Study... 9 MnPASS Phase III Study Metro Transit 2016 Annual Regional Park-and-Ride System Report Metropolitan Council Regional Transitway Guidelines I-35W Bus Rapid Transit Study (2005) METRO Orange Line Southern Terminus Concept Study METRO Orange Line Small Starts Project Information Burnsville 2030 Comprehensive Plan (Transportation Chapter) Lakeville 2030 Comprehensive Plan (Transportation Chapter) Dakota County Capital Improvement Program Burnsville Capital Improvement Plan Lakeville Capital Improvement Plan Understanding METRO Orange Line Phase Stations Service Operations Existing Transit Service Overall Transit Coverage Burnsville South Station Area Existing Transit Routes Kenrick Park & Ride Station Area Existing Transit Routes

5 Introduction Study Overview The METRO Orange Line Phase 1 is a 17-mile highway bus rapid transit (BRT) line that will connect downtown Minneapolis to Richfield, Bloomington, and Burnsville via I-35W. Like the METRO Red Line, the Orange Line is a flexible transit mode that will travel between stations in mixed traffic, on bus-only shoulders, in MnPASS lanes, or within a dedicated transit travel lane. The METRO Orange Line Extension (OLX) is a proposed extension of the METRO Orange Line Phase 1. The OLX would extend the planned service from the current southern terminus in Burnsville to the Kenrick Park-and-Ride in Lakeville, adding two or more stations and approximately five miles to the initial Orange Line alignment (Figure 1). The OLX is an important transitway for Dakota County and for the Twin Cities region because it would strengthen Dakota County's connection to the METRO system with frequent, all-day bus rapid transit (BRT) service comparable to the service provided in Phase 1. Figure 1: OLX Study Area Purpose of this Memo The review of the following studies, project development efforts, and completed projects serve as a foundation for later tasks in the OLX Study. The components of the current METRO Orange Line project and elements of other studies which may influence the OLX are documented in this memo. Information included in this memo will guide stakeholders through the OLX Study process. 4

6 Review of Related Projects and Plans Dakota County East-West Transit Study (2017) Overview The Dakota County East-West Transit Study was prepared because many of the major transit services in or influencing Dakota County have a north-south orientation, including the METRO Red, Orange, and Blue Lines, as well as the north-south orientation of the planned Robert Street and Red Rock Corridors. The study looked for opportunities to improve the quality of fixed route transit service in Dakota County and improve connections to the regional transit system by identifying and evaluating potential east-west transit corridors. Recommendations were developed to improve connections to employment, mobility to and from areas adjacent to the county, and to expand the range of travel options for transitdependent populations. Conclusions This study evaluated fifteen east-west corridors in Dakota County. There were eight chapters in the report including background and context, related projects and plans, study area characteristics, stakeholder engagement, evaluation framework, travel demand analysis, corridor evaluation, and recommendations. The corridors were identified and evaluated on their fulfillment of eight goals. Ideal corridors: Are supported by existing and planned land use Improve mobility for transit dependent populations Are cost-effective and efficient Maximize regional transit connectivity Maximize transit ridership Respond to present and future travel patterns Improve access to employment, institutions, and services Incorporate safe, convenient, and multimodal access and facilities. The report recommended five corridors for further consideration based on this analysis. Impact to the Orange Line Extension Seven of the corridors that were analyzed in this study intersect with I-35W in Burnsville. Two of those corridors were recommended for further consideration. Cliff Road was recommended for further consideration to provide a new connection between the future Orange Line and the Red Line stations and to serve the existing population and employment density within the corridor. County Road 42 was recommended for further consideration to serve local destinations and in response to public feedback. The study also recommended increasing transit infrastructure and creating a fully-connected network of pedestrian and bicycle infrastructure around transit in both corridors. 5

7 METRO Orange Line Project Plan Update (2014 present) Overview The METRO Orange Line Project Plan Update is a periodic publication from Metro Transit that contains news and updates on the transitway. The newsletter started in 2014, and since then there have been seventeen updates. The updates include Orange Line project details such as station design, route design, operations, right of way acquisition, fare collection, branding and marketing, maintenance, run time frequency, ridership, fleet, budget, project timeline, coordination with concurrent projects, environmental design, and partner agency news. Impact to the Orange Line Extension Most updates focus specifically on the METRO Orange Line Phase 1. However, some updates include information relevant to the OLX. Specifically, the November 2015 update covered the TAC s decision about where to locate the Burnsville Station at the southern end of the Orange Line. The next issue in February 2016 also discussed planning for the OLX; it discussed broad concepts related to station locations, routing, costs, and the implementation timeline. 6

8 Cedar Avenue Transitway Implementation Plan Update (2015) Overview The 2015 Cedar Avenue Transitway Implementation Plan Update identifies service and facility improvements that address the many changing conditions in the Cedar Avenue corridor, communities, and in the region. These changes include recent updates to forecast employment growth, population growth, and land uses, which provide an opportunity to reassess the demand for transit service around the Cedar Avenue Transitway. Regionally, Counties Transit Improvement Board (CTIB) project funding eligibility and Metropolitan Council Regional Solicitation project prioritization and selection have also changed, which affects the availability of these funds for the Cedar Avenue Transitway. Conclusions The plan includes goals for the Cedar Avenue Transitway and measure/indicators to track progress towards these goals. Other chapters cover the public involvement process, general characteristics of the transitway, future ridership estimates, potential improvements to the corridor (including the cost, timeline and funding sources for such improvements), and next steps for the transitway, including phased recommended improvements for additional stations and service extensions. The plan recommends evaluating and changing land use and economic development plans to take advantage of potential transitway station investments and encourage increased development density and more transit-friendly development patterns. Other recommendations include enhanced marketing of the Red Line, enhancing pedestrian and bicycle connections, and integrating landscaping and public art into station areas. There are also detailed recommendations for improving specific stations. Impact to the Orange Line Extension To understand the future needs of the Cedar Avenue Transitway and inform planning and design processes, ridership forecasting and sensitivity tests for the METRO Red Line were completed as part of the Implementation Plan Update. As part of the METRO Red Line forecasting process, forecasts were also prepared for the METRO Orange Line to better understand the travel markets and expected travelsheds for the respective corridors. Five sensitivity tests were conducted in the corridor to examine the impact that extending the Orange Line would have on the Red Line. While most of the sensitivity test results did not show a significant impact on METRO Red Line ridership, Test 3, which evaluated the impact of increased density near 147 th Street Station and Glacier Way Station as well as extending the Orange Line, did impact Red Line ridership. The test found that increasing density near 147 th Street and Glacier Way shows a significant increase in transit ridership on the Red Line. Another finding from this report that is related to the OLX is shown in Figure 2 from the Implementation Plan Update. This map depicts the market area for the METRO Red Line, when extended to a potential 215th Street Station, and the market area for the future METRO Orange Line. This illustrates the influence each corridor has on the western Dakota County and Hennepin County markets. The areas shown in blue illustrate market areas where the Red and Orange Lines overlap. The METRO Red Line better serves transit trips destined for the south loop area near the Mall of America and the Hiawatha Corridor via the METRO Blue Line. The METRO Orange Line better serves transit trips destined for downtown Minneapolis and destinations along I-35W. Both corridors provide connectivity to local bus service expanding the market area to include other parts of Dakota County, the I-494 corridor, Bloomington, and south Minneapolis. 7

9 Figure 2: Market Areas for the METRO Red Line and METRO Orange Line, Source: Cedar Avenue Transitway Implementation Plan Update. The orange line represents the planned METRO Orange Line Phase 1 route and the red line represents the existing and planned METRO Red Line route. The blue dots along the red and orange lines represent planned transit stations. The blue dots south of the METRO Orange Line represent the station locations modeled for a METRO Orange Line Extension. 8

10 MnPASS Phase II Study (2010) Overview Completed in 2010, the purpose of the MnPass Phase II Study was to analyze and make recommendations for the next generation of MnPASS managed lane projects in the Twin Cities Metropolitan region. In the MnPASS Phase II Study, MnDOT reassessed its priorities for short-term (2 to 10 years) MnPASS lane implementation. Conclusions Nineteen candidate corridors were evaluated in the study. These corridors were identified in a working session that included the MnDOT project manager, MnDOT/Metropolitan Council Technical Advisory Committee, and the consultant team. Eleven of the nineteen candidate corridors were eliminated, and eight corridors were further evaluated for near term implementation (2 to 10 years). Performance measures for these corridors included travel-time reliability, throughput, travel-time reduction, change in congested VMT, and transit suitability. Also included were other model outputs such as managed lane daily vehicles, corridor daily vehicles, and change in speed. The final component of the analysis included comparing the percent of revenue the corridor produces to cover capital costs, the total additional investment required, and the cost/benefit analysis of the project. The result was a tiered list of priority MnPASS expansion corridors, which was adopted into the region s long-range investment plan, the 2040 Transportation Policy Plan, as the vision for the development of the MnPASS system. Impact to the Orange Line Extension MnPASS Phase II Study noted that Corridor 7 (Trunk Highway 77 northbound from 141 st Street to Old Shakopee Road) was a strong performer and has strong transit service. The corridor advanced for further evaluation in a separate study (TH 77 Corridor Managed Lanes Study) and could serve as METRO Red Line runningway. This corridor and the pink highlighted I-35 alignment south of the I-35E and I-35W split are the only corridors from this study located near the OLX (Figure 3). The MnPASS Phase II study also mentioned existing MnPASS lanes on I-35W between I-494 and I-35E, which were converted from high-occupancy vehicle lanes in 2010 and

11 Figure 3: MnPASS Study Phase II Corridor Location Map, Source: MnPASS Phase II Study 10

12 MnPASS Phase III Study (Draft in Progress) Overview The MnPASS Phase III Study is in progress and expected to be complete in Summer Its study area affects OLX, as it is evaluating a 6-mile segment of I-35 from the I-35E/I-35W split on the north end (near Crystal Lake Road) to CSAH 70 on the south end. This analysis is being led by MnDOT in collaboration with Metropolitan Council and local government staff. The draft report states that as the region has grown and more development has occurred, traffic volumes have increased to the point that several I-35 segments are approaching capacity and are vulnerable to incident and weather related congestion on a regular basis. Congestion is expected to significantly increase by year 2030 as additional growth and development occur in communities along the corridor. Approach and Initial Findings This analysis used evaluation methodologies and criteria from the MnPASS Phase II Study and other MnPASS corridor studies, including the following: Review and analysis of the existing conditions and issues on the corridor such as traffic flow and congestion, vehicle crashes, transit and park-and-ride use, MnPASS use, freight use, and infrastructure condition Review of traffic and transit forecasting data Review of planned and programmed transportation improvements in the corridor High level concept development and cost estimating for a MnPASS extension During peak hours, portions of I-35 in Lakeville approach maximum capacity. Based on the traffic and land use forecasts, is it likely that recurring congestion caused by weather and traffic incidents could occur within the next 5-10 years. Improvements in monitoring traffic flows and congestion along this corridor will help in determining when additional investments may be needed. Impact to Orange Line Extension The improvement considered for this project would extend the current northbound MnPASS lane further to the south. It would be limited to high-occupancy vehicles (HOV, carrying two or more passengers) and toll-paying single-occupant vehicles (SOV) during the a.m. peak period and open to all users during p.m. and off peak times of day. Build Alternative During the development of the build alternative for this project, consideration was given to determine the benefits of extending the southbound MnPASS lane along I-35W. Currently, the southbound MnPASS lane transitions to a general-purpose lane near TH 13. Between TH 13 and CSAH 42, there are three general purpose lanes, with one exit-only lane at CSAH 42, resulting in two general purpose lanes between CSAH 42 and the merge with I-35E. Extending the southbound MnPASS lane the same distance as the northbound auxiliary lane would not increase the capacity, which is restricted by two lanes at the merge with I-35E. This would limit the benefits of such an improvement. Transit/Park-and-Ride Data There is one park-and-ride facility, two park-and-pool facilities, and two transit providers within the study area. The Kenrick Avenue Park & Ride facility features 750 parking spaces contained within a multilevel parking structure. This facility is operated by Metro Transit and is served by route 467 which 11

13 has 8-20 min frequency for northbound during the a.m. peak (14 bus trips), and an 8-10 min frequency for southbound during the p.m. peak (14 bus trips). The occupancy of the park-and-ride has shown strong growth, with 593 out of 750 spaces utilized. Usage increased dramatically in initial years of operation and has grown more slowly over the past three years. There are two park-and-pool facilities within the study area. There is an 80-space surface lot located at the northeast corner of I-35 and CR 70, and a 63-space surface lot located at the southeast corner of I-35 and CR 60. Traffic Forecasting Daily traffic forecasts were developed for freeway segments and ramps in the study area. Volumes on I-35 and I-35W are expected to increase by up to 28,000 vehicles per day (vpd) between years 2012 and After this increase in traffic, future daily volumes on I-35 vary between 107,000 vpd south of Kenwood Trail to 143,000 vpd in the Kenwood Park & Ride segment between Crystal Lake Road and CSAH 46. The largest increase in volume is expected on the southern segments of I-35 south of Kenwood Trail where the most land use development potential exists. Transit Forecasting There are multiple transit investments planned or programmed within the study corridor and in areas adjacent to the corridor that could impact traffic volumes and transit ridership. Orange Line By 2040, the Phase 1 Orange Line station-to-station service is forecast to carry 11,400 rides per day. The extension of the Orange Line to the Kenrick Avenue Park & Ride is expected to increase year 2040 ridership by 1,500 rides per day (yielding 12,900 rides per day per the Orange Line Extension Ridership Results, SRF Consulting July 2015). Red Line, Routes (new + more frequency), and park-and-ride expansion/conversion Information about these transit investments is forthcoming in the final report draft of the MnPASS Phase III Study. Evaluation Projected MnPASS demand (transit, HOVs, SOVs) Impacts on highway performance (e.g. throughput, speeds, travel time reduction, reliability) Transit advantages (e.g. transit ridership, park and ride use) Operations (maintenance and enforcement) Future construction impacts and opportunities 12

14 Metro Transit 2016 Annual Regional Park-and-Ride System Report Overview The 2016 Annual Regional Park-and-Ride System Report provides a summary of current trends in the Twin Cities regional park-and-ride system. This document is a system performance update that complements other Metropolitan Council long-term planning documents, including the Thrive MSP 2040, 2040 Transportation Policy Plan, and the 2030 Park-and-Ride Plan. A survey of the system was conducted in late September and early October 2016, which included vehicle and bicycle counts for every facility as well as recording license plates for user origin analysis. Conclusions The observed regional park-and-ride parking occupancy rate was 55 percent of the 34,172 total spaces. The occupancy rate has been dropping steadily since Factors that impact park-and-ride usage include transit service availability, location of employment (within or outside the central business district), gas prices, and freeway congestion. Impact to the Orange Line Extension The report contains details about every park-and-ride in the system, including those currently used for the METRO Orange Line and those near the planned Orange Line Extension. Kenrick Park & Ride The I-35 and Kenrick Avenue Park & Ride in Lakeville is a potential site for an Orange Line Extension station. The report shows that, on average, 82 percent of this lot is occupied (615 out of 750 spaces). Potential Future Stations along I-35W The intersections of I-35W and County Road 60 or I-35W and County Road 70 are also under consideration as potential future Orange Line Extension stations. Both locations are currently used by MnDOT for ride-sharing lots (park-and-pools), with parking occupancy rates around 15 percent. Burnsville Transit Station Burnsville Transit Station was among the facilities with the largest decrease in use between 2015 and The station had 116 fewer riders on average in 2016 than in 2015, but still served more customers than any other park-and-ride in the system. Table 1: Lakeville and Burnsville area Park-and-Ride Usage Parkand-Ride Parkand-Pool Name Heart of the City I-35 & Kenrick Ave Burnsville Transit Station I-35 and Co Rd 70 I-35 & CR 60 City Burnsville Lakeville Burnsville Travel Corrid or I-35W South Lower I-35W South Lower I-35W South Lower 2016 Capacity 2016 Usage 2016 % Utilized Usage Change Capacity 2015 Usage 2015 % Occupie d % +44% % % +4% % 1,428 1,080 76% -10% 1,428 1,196 84% Lakeville N/A % -20% % Lakeville N/A % -50% % 13

15 Metropolitan Council Regional Transitway Guidelines (2016) Overview The Regional Transitway Guidelines, published in February 2012 by the Metropolitan Council in partnership with the Counties Transit Improvement Board (CTIB), established a set of best practices to support the development and operation of transitways in a consistent, equitable, and efficient manner throughout the Twin Cities. The guidelines are intended to apply whenever investments in a transitway corridor are being studied, planned, or made in the region. The guidelines provide parameters for decisions related to the planning, designing, building, and operating of four transitway modes: commuter rail, light rail transit, highway BRT, and arterial BRT. Dedicated busways, express bus with transit advantages, and streetcar are not addressed in the guidelines. Conclusions The guidelines are separated into nine categories: Service Operation Factors that will determine the effectiveness of the transit system including proper transit type, coordination of services, limited competing routes, minimum frequencies (stops/hour) and spans of service (stops/day), travel times, and productivity (passengers/hour). This chapter emphasizes the need for coordination of all service providers within the transitway corridor to ensure ease and continuity of service for riders Station Spacing/Siting Market analysis, available station types, site location and land use factors, station spacing, and staged development Support Facility Design Station design features, such as enclosures/shelters, station sizing, design components (i.e. heating), landscaping/public art, passenger information, bike access, security, and maintenance facilities Runningway Vertical and horizontal ROW needed for all modes Vehicles Vehicles for all modes with a focus on BRT Fare Collection Modern and convenient fare collection, easy record-keeping, and effective coordination with other modes Technology & Customer Information Automatic vehicle location, passenger counts, transit signal priority/pre-emption, real-time customer information, and additional technological advancements Branding Consistent branding for routes, stations, vehicles, and advertisements Project Development, Leadership and Oversight Coordinate regional planning related to transitways Impact to the Orange Line Extension The guidelines should be used to examine and differentiate between the components being considered for the METRO Orange Line Extension. The service operation guidelines (Table 2-1 in the original report) provide a list of criteria to consider collectively when comparing between alignments and station locations of the Orange Line Extension. As options are identified, the guidelines for station spacing and siting (Table 3-1 in the original report) can be used to further define the best available option(s). Guidelines for transit type runningways will likely also help to differentiate between the viability of potential alignments. 14

16 I-35W Bus Rapid Transit Study (2005) Overview The I-35W Bus Rapid Transit Study examined the feasibility of implementing bus rapid transit (BRT) in the I-35W Corridor. This corridor was expected to experience significant levels of population and employment growth, resulting in strong travel demand throughout the corridor. As a result, there was growing interest from corridor partners to explore the feasibility of providing BRT service. This study followed a bill passed by the 2003 State Legislature requiring MnDOT to study the feasibility of BRT in the corridor and make recommendations for its implementation. Conclusions The study detailed several key findings that support the conclusion that it is feasible to implement BRT in the I-35W corridor. These findings include the following: Significant levels of transit service and investment already exist in the I-35W corridor Buses will be able to operate at posted speeds during the peak hour The corridor will experience significant growth in employment and population Forecasts indicate that ridership demand will almost triple over the next 25 years BRT serves more people without adding freeway lanes Several planned highway projects provide an opportunity to incorporate BRT infrastructure The study also included service recommendations for the corridor, such as having buses operate at posted speeds in a shared BRT/HOV lane, providing a mix of express, station-to-station and local service, and adding new service to Lakeville including a park-and-ride lot just north of County Road 50, among other recommendations. Impact to the Orange Line Extension The primary objective of this study was to determine the feasibility of BRT in the I-35W corridor. The study concludes that it was feasible, and offered a vision for implementing BRT in the corridor. The Lakeville North Park-and-Ride, located on Kenrick Avenue just north of County Road 50, was proposed as a BRT station because there are many current and potential BRT users nearby. Many of the recommendations from this study have been implemented since its release. 15

17 METRO Orange Line Southern Terminus Concept Study (2015) Overview In 2013, Metro Transit began conceptual design work for bringing the Orange Line to Burnsville Transit Station (BTS). During preliminary meetings with Metro Transit on expansion concepts at BTS, MVTA raised concerns about space constraints, maintaining opportunities for MVTA growth, and the long term impacts of having the Orange Line co-located at the station. These concerns prompted the study of alternative Orange Line station locations. Two possible Orange Line station locations, Burnsville Transit Station (BTS) and Travelers Trail (TT), were identified and adopted as options in the Project Plan Update (Figure 4). Metro Transit initiated a study in May 2015 to develop, evaluate, and compare alternative site concepts and to identify a preferred Orange Line southern terminus station location and preliminary layout. Figure 4: Burnsville Transit Station (BTS) and Travelers Trail (TT) Sites and Vicinity 16

18 Conclusions The Southern Terminus subcommittee included representatives from Metro Transit, Metropolitan Council, MVTA, MnDOT, Dakota County, Burnsville, Minneapolis, Richfield, Bloomington, Hennepin County, Scott County, the Federal Highway Administration, and Southwest Transit. The goals and objectives of the study were to: Refine understanding and comparison of alternative sites: Evaluate routings, travel times, access, platform locations, site layout, operations, and connectivity to parking, other transit routes, and walk up destinations Evaluate site feasibility: Consider costs, impacts, and risks Consider site adaptability for a future Orange Line extension: Outline potential for a Burnsville southern terminus station to serve as an in route station with the Orange Line extended south to Lakeville Evaluate concept for an online I 35W BRT station at Burnsville Parkway. Lay out a concept and estimate costs for comparison to the offline southern terminus sites (BTS and TT) Impact to the Orange Line Extension While this study s emphasis was to find a solution that benefits the southern terminus in Burnsville, it was also important to consider how the selected Burnsville location will impact a Phase II extension. Therefore, the objective of the Orange Line Southern Terminus Study was to determine a station location that supports an extension to the south, to serve possible additional stations at the Burnsville Center regional mall and in Lakeville. Findings and Site Recommendation Based on the Southern Terminus Concept Study, Metro Transit concluded that the Travelers Trail site provides the best balance among these important objectives: Best connection to the Heart of the City for walk up service with ample parking available in the city s parking structure Good travel time Minimal conflicts with traffic and MVTA bus operations Good connectivity to MVTA local and express routes Support from future riders and the City of Burnsville Better adaptability for an extension of Orange Line service to the south, as well as more flexible interconnectivity with local routes (noting that all local bus routes and stops are south of Highway 13, except for routes that also stop at BTS) The recommended Travelers Trail Station will require a ramp meter bypass lane for buses and high occupancy vehicles, to eliminate the AM peak hour delay at the I 35W northbound entrance ramp from Burnsville Parkway. Evaluation The following concepts were used to evaluate and compare the BTS and TT sites individual opportunities and constraints (Figure 7). Mobility and Operations traffic system impacts, bus circulation, Orange Line layover, Orange Line branding/visibility Design and Constructability maximum use of site and existing infrastructure, staging/complexity of construction 17

19 Access and Convenience parking capacity, on site passenger facilities, pedestrian and bicycle access, accessibility for transit dependent riders, connection to Burnsville s Heart of the City, southern terminus travel time, local routes transfer Cost and Property Issues construction costs, operating costs, property control and acquisition feasibility and costs Adaptability to Changes redevelopment potential/opportunities and adaptability to an Orange Line Phase II south extension Stakeholder Input Metro Transit Onboard & Online surveys, local government input and support Findings Station and Operational Characteristics The TT site was rated more favorably because the potential co location of MVTA and Orange Line routes at the BTS site was not favorable for traffic/bus circulation, branding of the services, and for staging of construction. Transit Rider Characteristics the sites were comparable in this category, with TT site connectivity to the Heart of the City the one important differentiator. Economics and Long Term Feasibility The TT site was more favorable because it provides better redevelopment or economic development opportunity and adaptability of the site to a Phase II south extension of the Orange Line. Stakeholder and Public Acceptance While both sites had support, consensus for one site over the other was not an overwhelming factor. Possible Two-Platform Concept Even as studies of the Burnsville Parkway sites found that they would not balance the goals and criteria of the Orange Line as effectively (Section 4), continued interest and discussions among Dakota County staff and Metro Transit introduced the possibility of a secondary platform at Burnsville Parkway s crossing with Travelers Trail, which is the frontage road that provides the routing for the Orange Line with a TT site alternative (Figure 5). The key concerns raised by the two-platform concept were its consistency with typical BRT station spacing and operating principles and the additional cost, at about $500,000. These concerns could translate into shifting investment priorities for the southern terminus such as tradeoffs in supporting pedestrian infrastructure investments. Final Terminus Recommendation The Travelers Trail site was the consensus recommendation among TAC Subcommittee Figure 5: Travelers Trail Station with Optional Burnsville Parkway Platform Travel Routing 18

20 staff (Metro Transit, MVTA, MnDOT, Dakota County, and the City of Burnsville). The optional twoplatform configuration remained a possibility, pending completion of the Orange Line environmental documentation and related project approvals. Specifically, the two platform concept could be acceptable as an Orange Line station configuration, to add system accessibility with little or no change in travel time compared to the TT site by itself. Also, because the TT site is viable on its own, the second platform concept could be revisited and adapted into the project later. Adaptability to a South Extension and to the Local Transit System Figure 6 illustrates routings that should be considered for a south extension of the Orange Line, or an Orange Line Phase II project. As shown, the possible two-platform configuration is feasible for later adaptability to routes extended south to Lakeville. The potential connectivity of the Orange Line with the existing local transit system with a two-platform concept was noted as good, again illustrating the value of routing the Orange Line south of Highway 13. Overall, the evaluations of routings, travel times, connectivity, and adaptability to change support the recommended station at Travelers Trail. Figure 6: Travelers Trail Station with Optional Burnsville Parkway Platform Phase II Travel Routing Other Alternatives Considered The final section of the report provided a summary of other alternatives and issues considered within the context of the South Terminus Study. The subcommittee studied these alternatives to potentially reduce the travel time needed for the primary station options (the BTS and TT sites). This section discussed several online and inline options but ultimately suggested that the previously recommended 19

21 Travelers Trail site offers the best available opportunity to develop both a southern terminus and a future extension. Figure 7: Concept Evaluation Matrix (BTS and TT Sites) 20

22 METRO Orange Line Small Starts Project Information (2016) Overview Small Starts is administered by the Federal Transit Administration as part of the discretionary Capital Investment Grant (CIG) program. The CIG program provides funding for fixed guideway investments such as new and expanded rapid rail, commuter rail, light rail, streetcars, bus rapid transit, and ferries, as well as corridor-based bus rapid transit investments that emulate the features of rail. There are four categories of eligible projects under the CIG program: New Starts, Small Starts, Core Capacity, and Programs of Interrelated Projects. Small Starts projects are new fixed guideway transit projects, extensions to existing fixed guideway systems, or corridor-based bus rapid transit projects with a total estimated capital cost of less than $300 million and that are seeking less than $100 million in Section 5309 CIG program funds. All projects must be evaluated and rated by FTA in accordance with statutorily defined criteria at various points in the development process. To be eligible to receive a construction grant, all projects must go through a multi-step, multi-year process and receive at least a Medium overall rating, in addition to other requirements. Conclusions The informational report is broken into three main sections: general reporting, project justification criteria, and local financial commitment. The general reporting section covers the project background, operations and maintenance costs, and capital costs. The project justification criteria section includes information about project justification warrants, mobility improvements, cost effectiveness, congestion relief, environmental benefits, land use, and economic development. The last section provides details and evaluation on local financial commitments. Impact to the Orange Line Extension This report focuses entirely on the METRO Orange Line Phase 1, and does not have any reference to a southern extension. 21

23 Burnsville 2030 Comprehensive Plan (Transportation Chapter) (2010) Overview The transportation component of the 2030 Burnsville Comprehensive Plan provides information about Burnsville s transportation system and provides guidance to decision makers for investments to enhance and maintain the system into the future. This chapter explains how this plan is consistent with the Metropolitan Council 2030 Transportation Policy Plan (TPP) and how it incorporates the regional 2010 Systems Statement requirements. Conclusions As stated in the plan, the City of Burnsville desires to have a sustainable, integrated transportation system composed of local and regional road networks, mass transit, sidewalks, and trails. Planning these modes in strategic locations will allow access to shopping, recreation, employment, entertainment, schools, parks, natural areas, and other destinations efficiently and quickly with minimal adverse impacts to neighborhoods, the environment or the health and safety of residents, visitors and property owners. The Transportation Plan lists five primary objectives: Provide a guidance document for city staff and elected officials regarding the long-range planning and implementation of effective transportation facilities and systems Give residents and businesses background information on transportation issues and allow them to be better informed regarding the city s decision-making on transportation issues Communicate to other government agencies Burnsville s perspectives and intentions regarding transportation planning issues Comply with state law and Metropolitan Council requirements for comprehensive planning (Minn. Stat ) Provide stakeholders with the opportunity to have input into the transportation planning process Impact to the Orange Line Extension The transportation chapter specifically cites the city s support for BRT along the I-35W corridor. Overall the goals and policies within this plan support increased investment in transit and specifically express the desire for an inter-city transit or trolley system to move people from neighborhoods to work and shopping areas. The non-motorized transportation section also prioritizes the construction of new trails where no sidewalks, trails, or on road trails are identified. This section also conveys support for efforts to coordinate transit stop locations with pedestrian and trail systems. The City of Burnsville is actively updating their comprehensive plan using 2040 employment and population projections. All municipal comprehensive plan updates are required to be submitted for review to the Metropolitan Council by December 31,

24 Lakeville 2030 Comprehensive Plan (Transportation Chapter) (2008) Overview The transportation chapter of the Lakeville 2030 Comprehensive Plan provides the policy and guidance needed to make appropriate transportation-related decisions to maintain and improve a comprehensive transportation system within the City of Lakeville. The Transportation Plan also demonstrates how the City will provide for an integrated transportation system that will serve the future needs of its residents and businesses, support the City s development plans, and complement the portion of the metropolitan transportation system that lies within the City s boundaries. Conclusions The plan includes goals, policies, roadway classifications, and design standards, as well as identifying future roadway system improvements. Priorities include: Focusing the transportation system on activity centers within Lakeville and in neighboring communities Creating and implementing a Comprehensive Pavement Management Program Providing local street networks to encourage interconnected neighborhoods by incorporating transportation planning with land use strategies Incorporating urban streetscape designs to enhance the aesthetics of corridors and gateways Participating in the I-35W Solutions Alliance to improve mobility in the I-35W corridor Expanding transit service and constructing transit facilities (i.e., designated park and carpool and park-and-ride lots) Expanding pedestrian and bicycle trailways in conjunction with roadway improvements as well as residential, commercial, industrial, and office developments Supporting Airlake Airport as a Metropolitan Airports Commission (MAC) reliever airport. Impact to the Orange Line Extension The transportation chapter details several transit improvements that focus specifically on BRT along the I-35 corridor, including additional park-and-ride facilities and high-occupancy vehicle (HOV) lanes. The goals and policies in the plan support the expansion of transit and non-motorized transportation throughout the city. The plan prioritizes the expansion of pedestrian and bicycle trailways in conjunction with roadway improvements as well as with residential, commercial, industrial, and office developments. I-35 and County Road 70 are identified as the two principal arterials in the city. The City of Lakeville is actively updating their comprehensive plan using 2040 employment and population projections. All municipal comprehensive plan updates are required to be submitted for review to the Metropolitan Council by December 31,

25 Dakota County Capital Improvement Program (2016) Overview Each year, as part of its annual budget process, Dakota County prepares a five-year Capital Improvement Program (CIP) that includes a one-year capital budget. The CIP identifies projects that will support existing and projected needs in the following categories: transportation, parks, and buildings. It is based on numerous long range planning documents that are updated regularly and on projected capital needs as identified by County staff, cities, and townships. The CIP prioritizes the use of the limited resources that are available for capital projects by identifying which projects will be funded and when they will be constructed. It establishes a comprehensive development program that is used to maximize outside revenue sources and effectively plan for the growth and maintenance of the County s infrastructure. Conclusions Projects programmed in the CIP implement policies, strategies and investment levels identified in the Dakota County 2030 Transportation Plan. Additional projects may be programmed to address emerging needs. The Plan includes ten overarching principles that apply to all Plan goals. These included five guiding principles identified in DC 2030: Planning for the Future (Dakota County Comprehensive Plan) and five principles specific to transportation. Together these principles guide the Plan policies and strategies, and help form the basis for decision-making and priority determination. The County will incorporate the following principles into all aspects of the transportation system development operations: sustainability, connectedness, collaboration, economic vitality, growing and nurturing people, transportation planning, transportation safety, social/economic/environmental impacts, public and agency involvement, and context sensitive design and complete streets. Impact to the Orange Line Extension The plan shows the METRO Orange Line Extension (OLX) between Burnsville and Lakeville is programmed for construction in All-day, frequent BRT service will complement local and express bus routes along I-35W, providing competitive running times for station-to-station trips and a new option for reverse-commute markets. Both BRT and express riders will benefit from stations, runningway technology, and service improvements. The Orange line would provide 10-minute peak frequency and 15-minute off-peak frequency, at least 16 hours per day, seven days a week. The total project cost is estimated at $9,500,000, with most of this expenditure ($8,615,000) programmed in The CIP shows the following anticipated funding shares: $6,560,000 Federal, $920,000 State, and $1,135,000 Dakota County. The Cliff Road Station, Palomino Station, and Apple Valley Transit Stations Expansion are included in the five-year CIP as well. These stations are all located on the METRO Red Line (the Cedar Avenue Transitway) that runs parallel to I

26 Burnsville Capital Improvement Plan (2016) Overview The City of Burnsville prepared its Capital Improvement Plan to translate the community s goals and priorities into financial capabilities. The CIP is directly linked to the goals and policies of the City s Comprehensive Plan and acts as a work plan for the City s staff. The City of Burnsville annually reviews and updates its CIP because it is an important part of the implementation of specific projects. This document is only a plan; subsequent project specific considerations and actions must be made by the Council prior to the implementation of individual projects. Conclusions Over the next five years the following projects are planned: $4,155,000 for street rehabilitation $33,430,000 for street reconstruction $850,000 for street light replacement $1,440,000 for maintenance overlays $100,000 for right of way rehabilitation (concrete) $150,000 for multi-modal transportation $3,025,000 for host landfill grant projects Impact to the Orange Line Extension The Burnsville CIP made no specific mention of the METRO Orange Line Extension. There is funding for general transportation infrastructure and street projects, as well as $150,000 for multimodal transportation. 25

27 Lakeville Capital Improvement Plan (2016) Overview The Lakeville CIP provides a fiscal framework from which to meet the infrastructure needs and development objectives of the city. It provides policy-makers and the community with a strategic (documented) approach to implementation and administration of improvement projects and equipment acquisitions. Conclusions The plan identifies the allocation of the City s financial resources and maximizes the use of non-tax revenues to finance the improvements. Municipal State Aid (MSA) street funds, connection charges, special assessments, and other revenue sources are vital elements to financing City improvements. The use of these revenue sources reduces the reliance on property taxes to finance these improvements. The six different categories include transportation, utilities, natural resources, parks, facilities, and equipment. The transportation budget ranges from $13,490,370 in 2017 to as high as $19,880,113 in Transportation projects make up 60 percent of the total budget for the five-year CIP. The transportation category includes all roads, streets, street lights, bridges, and traffic signals within the City except for I-35 and routine maintenance of County roads. Many improvement and reconstruction projects are detailed in the plan. Impact to the Orange Line Extension The City and County are partnering on a County-wide principal arterial system planning study to evaluate potential east-west alignments south of CSAH 42 for future classifications as principal arterials. The CSAH 70 (210 th /215 th ) corridor is included in the study. The City of Lakeville and Dakota County will review recommended CSAH 70 improvements identified in the study in annual CIP discussions during 2017 for inclusion into future County CIPs. CSAH 70 is currently identified as a future 4-lane divided highway from Kenrick Ave to Dodd Blvd. If the study recommendation is to classify CSAH 70 as a principal arterial, the City s share of the engineering, right-of-way, and construction costs will be a maximum of 25 percent of the total project cost. The total project cost is listed as $5,930,

28 Overview of METRO Orange Line Phase 1 The METRO Orange Line Phase 1 will be constructed starting in summer This section documents the relevant design details and assumptions from this precedent project that may carry-over to the OLX. Stations The METRO Orange Line is a 17-mile highway bus rapid transit (BRT) line that will connect downtown Minneapolis to Richfield, Bloomington, and Burnsville via I-35W. Similar to the METRO Red Line, the Orange Line is a flexible transit mode that does not need a consistent runningway type. The line will travel in mixed traffic, on bus only shoulders, in MnPASS lanes, or within a dedicated transit travel lane to navigate between stations. There are 12 stations proposed in the Metro Orange Line, as shown in Table 2. Service Operations The Metro Orange Line Phase 1 will run on a fixed schedule. Buses will run every 10 minutes during rush hour and every 15 minutes during midday, evenings and weekends, with less frequent service in the early morning and late at night. During rush hour, express bus service will supplement Orange Line service. 27

29 Table 2: METRO Orange Line Phase 1 Station Details Station City Station Type Runningway Type Notes 3 rd Street Station 5 th Street Station 7 th Street Station 11 th Street Station Lake Street Station 46 th Street Station 66 th Street Station 76 th Street Station American Boulevard Station 98 th Street Station Nicollet Avenue Station Burnsville Parkway Station Minneapolis Downtown Bus-only lanes on 2 nd /Marquette Avenue Minneapolis Downtown Bus-only lanes on 2 nd /Marquette Avenue Minneapolis Downtown Bus-only lanes on 2 nd /Marquette Avenue Minneapolis Downtown Bus-only lanes on 2 nd /Marquette Avenue Minneapolis Online Southbound: Mixed traffic Northbound: MnPASS Lane A variety of express routes share station locations with Orange Line; local route connections can be made on cross-streets A variety of express routes share station locations with Orange Line; local route connections can be made on cross-streets A variety of express routes share station locations with Orange Line; local route connections can be made on cross-streets A variety of express routes share station locations with Orange Line; local route connections can be made on cross-streets Serves local routes 21, 27 and 53 Minneapolis Online MnPass Lane Serves local routes 11 and 46 on 46 th Street. Richfield Inline MnPASS Lane Serves local route 515 Richfield Offline Northbound: MnPASS Southbound: Mixed Traffic Bloomington Offline Northbound MnPASS Southbound Bloomington Northbound inline, southbound offline MnPASS Northbound MnPASS Southbound MnPASS Serves local routes 539 and 540 Serves local routes 4, 538, and 542 Serves local routes 18, 536*, and 539 *As part of METRO Orange Line Phase 1 DRAFT service plan Burnsville Offline Mixed Traffic Serves local routes 421, 426, and 444 Burnsville Offline Mixed Traffic Serves local routes 426, and 444 Existing Transit Service in the Study Area Overall Transit Coverage MVTA and Metro Transit operate many routes in the Orange Line Extension corridor, with differing levels and times of service (Table 3). Express services are typically longer routes designed for commuter travel that supplement capacity on congested highway corridors. Limited stop routes provide a faster option and wider stop spacing than local service in high-demand corridors. Bus rapid transit (BRT) contains features similar to a light rail, and is often more reliable, convenient, and faster than regular bus services. Only three of the 25 routes listed below provide weekend service. Where these routes operate within the larger OLX Study area is shown in Figure 8. 28

30 Table 3: Existing Transit Routes in the OLX Corridor Route Type Termini Service Span Frequency 420 MVTA Flex Rosemount Apple Valley 421 MVTA Flex Burnsville Savage 5:43 AM-9:08 PM M-F 8:03 AM-3:54 PM M-F 60 minutes 90 minutes non-peak hours 60 minutes peak hours 426 MVTA Local Burnsville Shuttle Minneapolis 438 MVTA Flex Apple Valley Eagan Minneapolis 440 MVTA Local Apple Valley Eagan Minneapolis 442 MVTA Local Burnsville Apple Valley 444 MVTA Local Savage Burnsville Eagan Bloomington 460 MVTA Express Burnsville Minneapolis 464 MVTA Express Savage Burnsville Minneapolis 465 MVTA Express Burnsville Bloomington Minneapolis U of M 467 Metro Transit Lakeville Express Minneapolis 6:01 AM-7:01 PM M-F 7:12 AM-7:13 PM M-F 7:12 AM-7:13 PM M-F 4:57 AM-12:06 AM M-F 5:00 AM-11:24 PM M-F 6:39 AM-10:29 PM Sat/Sun 2:05PM-6:43 PM M-F 5:35 AM-6:38 PM M-F 6:15 AM-10:56 PM M-F 5:57 AM-6:25 PM M-F 30 minutes 60 minutes 60 minutes 30 minutes 30 minutes M-F 60 minutes Sat/Sun 20 minutes non-peak hours 5 minutes peak hours 30 minutes 60 minutes, 30 minutes, 15 minutes 8-20 minutes 470 MVTA Express Eagan 5:50 AM-7:03 PM minutes Minneapolis M-F 472 MVTA Express Eagan 5:54 AM-6:37 PM 30 minutes Minneapolis M-F 475 MVTA Express Apple Valley 6:33 AM-6:59 PM minutes Eagan M-F Minneapolis U of M 476 MVTA Express Rosemount 5:38 AM-6:49 AM 15 minutes Apple Valley M-F Minneapolis 477 MVTA Express Lakeville 5:51 AM-7:07 PM 5-30 minutes Apple Valley M-F Minneapolis 478 MVTA Express Rosemount 5:55 AM-7:00 PM minutes Minneapolis M-F 479 MVTA Express Apple Valley 6:25 AM-5:43 PM 30 minutes 29

31 Minneapolis M-F 480 MVTA Express Apple Valley Burnsville Eagan St. Paul 484 MVTA Express Rosemount Eagan St. Paul 491 MVTA Express Prior Lake Shakopee Eagan Minneapolis 492 MVTA Express Prior Lake Shakopee Eagan Minneapolis 495 MVTA Express Bloomington Burnsville Shakopee 597 Metro Transit Bloomington Express I-35W Minneapolis METRO Cedar Avenue BRT Apple Valley Red Line 147 th St 140 th St Cedar Grove Mall of America 6:05 AM-6:48 PM M-F 6:02 AM-6:24 PM M-F 5:48 AM-4:52 PM M-F 3:58 PM-7:29 PM M-F 4:35 AM-12:05 AM M-F, Sat, Sun 6:03 AM-6:25 PM M-F 4:05 AM-12:28 AM M-F, Sat, Sun 2-30 minutes minutes 60 minutes-4 hours 60 minutes minutes minutes minutes 30

32 Figure 8: Overall Transit Coverage Near Study Area 31

33 Burnsville South Station Area Existing Transit Routes Several existing transit routes serve the Burnsville South station area (Figure 9). The Routes 442 and 444 serve the Burnsville Center Mall directly. Figure 9: Burnsville South Station Area Existing Transit Routes 32

34 Kenrick Park & Ride Station Area Existing Transit Routes The southbound express Route 467 exits I-35W at Kenwood Trail, re-enters the freeway northbound, and drops passengers off at the transit-only slip ramp within Kenrick Park & Ride. This is the only existing route that serves the park-and-ride. The route used to serve the park-and-ride via a turn-around circle on the north side of the facility off Kenrick Avenue. Figure 10: Kenrick Park & Ride Station Area Existing Transit Routes 33