Sound Transit University Link Title VI Service and Fare Equity Analysis. March 14, 2016

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1 Sound Transit University Link Title VI Service and Fare Equity Analysis March 14, 2016

2 Table of Contents 1 Introduction The central Puget Sound transit environment Link light rail and the U-Link extension Brief history of the U-Link extension Previous Environmental Justice analysis of U-Link Service Equity Analysis Policies and definitions Major service change Adverse effects Public involvement in policy development Service standards Sound Transit service standards and performance measures King County Metro service guidelines Definitions and data analysis Demographic analysis methodology and Title VI data definitions Service area methodology Sound Transit Title VI population averages Service changes Sound Transit service changes U-Link extension Title VI analysis results Improved AM and PM peak frequency New ST Express route King County Metro - U-Link bus integration changes Compounding impacts Service equity analysis conclusion Fare Equity Analysis Description of fare changes Policies and definitions Fare equity analysis policy Link fare policy and rates King County Metro fare rates Data set description and technique used to collect data Fare media analysis Fare change analysis and impact/burden determination Change A: New Link fares for UW and Capitol Hill Stations Change B1: Transfer introduced and B2: Transfer eliminated Change C: Lower fare on Link for comparable KCM service Fare impacts mitigation Alternatives considered Alternative fare media/payment types and transit modes available i

3 3.9 Fare equity analysis conclusion Public Involvement and Outreach Link Connections outreach process Outreach through U-Link s planning and construction phases Outreach for U-Link extension launch & service change Conclusions and Next Steps Appendices A. King County Metro March 2016 University Link Bus Integration Service Changes - Title VI Service Equity Analysis B. Sound Transit Board of Directors Resolution R : Service Equity Analysis Policy C. Sound Transit Board of Directors Resolution R : Public Participation Policy D. Sound Transit 2014 Service Standards and Performance Measures E. King County Metro Service Guidelines, 2013 Update F. American Community Survey data for U-Link Service Equity Analysis G. Sound Transit 2016 Service Implementation Plan H. Sound Transit Board of Directors Resolution R : Fare Equity Analysis Policy I. Title VI Fare Equity Analysis for Sound Transit Board of Directors Resolution R : Establishing Low Income Discount Fare J. Sound Transit Origin-Destination Study survey instruments K. King County Metro Link Connections Public Engagement Report Executive Summary. 37 L. North Link Final Supplemental Environmental Impact Statement Appendix I: Environmental Justice ii

4 1 Introduction This Service and Fare Equity (SAFE) Analysis is being conducted for the University Link (U-Link) extension of Sound Transit s Link light rail system. The U-Link extension would not have been possible without the FTA commitment of $813 million through the Federal New Starts grant program. Per FTA Circular B, transit providers that will implement a New Starts fixed guideway capital project shall conduct a SAFE analysis. Per the circular, changes to parallel or connecting service (operated both by Sound Transit and King County Metro) are also included in this evaluation. 1.1 The central Puget Sound transit environment As the regional transit provider, Sound Transit trains and buses offer express service between major population and employment centers in King, Pierce and Snohomish counties. Sound Transit s district stretches 1,080 square miles and serves about three million people, or 40 percent of the state s population. Sound Transit works closely with local transit agencies that provide service in the Sound Transit district. King County Metro (KCM) is the largest of these partner agencies and serves Washington State s most populous county. With a service area of more than 2,000 square miles and 2 million residents, Metro operates 214 bus, trolley and Demand Area Response Transit (DART) routes that serve destinations across the county. U-Link will operate within an area historically dense with transit service operated primarily by KCM. Because of this overlap of services, Sound Transit and KCM worked closely with each other, stakeholders, and members of the public to develop a service integration plan that maintains high levels of transit service for riders while minimizing redundant services in order to make the most efficient use of the taxpayers investment in transit. 1.2 Link light rail and the U-Link extension Sound Transit will open the U-Link segment of its Link light rail system on March 19th, Link light rail currently runs from Sea-Tac Airport to Westlake Station in downtown Seattle. U-Link will extend light rail north from Westlake Station to the University of Washington, as shown in Figure 1. The extension includes 3.1 miles of tunneled alignment, and two new stations at Capitol Hill and the University of Washington (see Figure 2). The opening of U-Link and modifications to integrate the surrounding bus system, operated by Sound Transit and KCM, will change the way many riders travel. Sound Transit s expansion of the existing light rail alignment will enhance transit access and speed and reliability for the ethnically and economically diverse neighborhoods along the new and existing corridor. U-Link will bring new service to Washington s three largest urban hubs: downtown Seattle, Capitol Hill/First Hill, and the University District while providing expanded access to south King County, south/central Seattle and Sea-Tac Airport. 1

5 Figure Link light rail system map Figure 2. University Link map 1.3 Brief history of the U-Link extension The U-Link extension is part of the Central Link system planned for more than two decades. In 1999, Sound Transit published an Environmental Impact Statement (EIS) for a Central Link alignment extending from South 200th Street in the City of SeaTac to North 103rd Street in the City of Seattle. This alignment had been part of the voter-approved Sound Move system plan in Due to financial constraints, Sound Transit identified three operable segments for implementation, the first of which extended from just south of downtown Seattle to the University of Washington. FTA awarded a Full Funding Grant Agreement (FFGA) for this project in January 2001, but it was suspended later that year due to cost increases. Sound Transit redefined the project as an Initial Segment from Westlake Station in the downtown Seattle Transit Tunnel south to Tukwila, which was constructed under an FFGA executed by FTA in October 2003 and opened for revenue service in July Sound Transit completed a Supplemental Draft EIS for the North Link segment in December 2003, and the Sound Transit Board selected the 3.1- mile U-Link Extension as the first phase in August FTA issued a limited-scope Supplemental Draft EIS in October 2005 to address changes in the preferred alternative, including an alternative route through the University of Washington. FTA approved the project into preliminary engineering in December FTA issued a Final EIS in April 2006 and a Record of Decision in June FTA approved the project into final design in December Sound Transit and FTA executed an FFGA in January 2009, with revenue operations scheduled for April

6 In 2009, construction for the U-Link extension, phase two of the original Sound Move light rail line, began and revenue operations is scheduled for March of 2016, a year ahead of schedule and under budget. By 2030, the extension is expected to add an additional 70,000 daily boardings to the Link light rail system. 1.4 Previous Environmental Justice analysis of U-Link In 2006 Sound Transit published a Supplemental Environmental Impact Statement (SEIS) for the North Link Project (including the U-Link segment). The environmental justice section of the SEIS analyzed whether the North Link Project would result in disproportionately high and adverse effects on minority or low-income populations (pursuant to Executive Order and Department of Transportation Order ). The analysis found that impacts were limited in scope or could be mitigated. Furthermore, the SEIS concluded that the North Link Project would provide substantial benefits to minority and low-income residents in the areas surrounding light rail stations, such as improved access to transit, transit travel time savings, and improved access to employment. The remainder of the document is divided into three sections: Section 2 covers the service changes and associated equity analysis, Section 3 covers the fare change and equity analysis, and Section 4 details the public outreach process for the U-Link extension and associated changes. All related, referenced materials are included in the Appendices. 2 Service Equity Analysis In the sections below, Sound Transit defines the step by step process used to develop the service analysis portion of the SAFE. The section starts off by summarizing the Sound Transit adopted policies, followed by a discussion about Sound Transit s service standards and a discussion about the data definitions and methodologies used for the service equity analysis. In addition, the section describes the service changes that Sound Transit, and also King County Metro, adopted as a result of the U-Link extension. The section concludes with a discussion on mitigation strategies to address the results and findings of the service equity analysis. Service changes adopted by King County Metro as a result of the U-Link extension, described later in this report, were analyzed by King County Metro based on their Council approved definitions and methodologies. King County Metro s Service Equity Analysis for the University Link Bus Integration Service Changes is attached in Appendix A of this report. 2.1 Policies and definitions The section below describes Sound Transit s approved policies for conducting and identifying major service changes, as well as their impacts on Title VI populations Major service change The Sound Transit Board of Directors Resolution R established policies for conducting equity analyses of Major Service Changes impacting minority and low income populations, and is attached as Appendix B. This policy defines a major service change as follows: A major service change is any single change in service on an individual bus or rail route that would add or eliminate more than 25 percent of the route s weekly platform service hours, and/or move the location of a stop or station by more than a half mile. 3

7 2.1.2 Adverse effects The policy also defines potential adverse effects of major service changes as follows: A potential adverse effect is defined as a geographical or time-based addition or reduction in service which includes but is not limited to: span of service changes, frequency of service changes, route segment elimination, re-routing or route elimination. Resolution R directs Sound Transit to conduct a service equity analysis prior to making any major service change to analyze potential adverse effects on minority and low income populations and establishes the following thresholds for determining whether the proposed service change would have a disparate impact on minority populations and/or a disproportionate burden on low-income populations: A disparate impact occurs when the minority percentage of the population adversely affected by a major service change is greater than the average minority percentage of the population of Sound Transit s service area. A disproportionate burden occurs when the low income percentage of the population adversely affected by a major service change is greater than the average low income percentage of the population of Sound Transit s service area. Per Sound Transit s policy, if any disparate impact or disproportionate burden is found during the service equity analysis, Sound Transit will consider steps to avoid, minimize, or mitigate the adverse impacts and reanalyze the modified changes to determine if the impacts are removed or lessened Public involvement in policy development Public involvement in developing the service equity analysis policy was conducted primarily through notifying over 60 organizations and individuals in the Sound Transit service area, representing minority and low income advocacy, interest, and community based organizations of the opportunity to comment on the development of this policy. The information was also provided to Sound Transit s Diversity Oversight Committee for discussion and comments at their August 2013 meeting. As set forth in the policy, more extensive outreach is called for regarding proposed major service and fare changes to populations affected by the particular change. Public outreach for proposed service and fare changes is guided by Sound Transit s Inclusive Public Participation Policy, Resolution R , which is provided as Appendix C. The public involvement efforts conducted for the service changes associated with U-Link are described in greater detail in Section 4 of this document. While the University Link light rail extension does not meet the policy definition of a major service change, because U-Link is a New Starts fixed guideway capital project, Sound Transit must conduct a service equity analysis per FTA Circular B. 2.2 Service standards Transit agencies throughout the country use service standards to identify principles and processes to develop and monitor their service. The service standards serve as a guide for performance measurement and continuous service improvements. Sound Transit provides predominantly regional express bus service, as well as light rail and commuter rail service. King County Metro provides primarily local service within King County. Due to the 4

8 differences in the type of service provided by Sound Transit and King County Metro, both agencies have very distinct service standards and guidelines for their service. In the sections below, the most recently adopted service standards for Sound Transit, 2014 Service Standards and Performance Measures, and King County Metro s Service Guidelines, 2013 Update, are described. Due to the differences in type of service provided between the two agencies, the service equity analysis for changes related to U-Link opening will use the service standards consistent with the agency making the service change. For the service equity analysis of changes to Sound Transit service, Sound Transit s 2014 Service Standards and Performance Measures are used. Service equity analysis of King County Metro service changes used the 2013 update of the King County Metro Service Guidelines Sound Transit service standards and performance measures Since its creation in 1998, Sound Transit has used service standards and performance measures to help plan and manage Sound Transit service. The standards provide guidelines for service evaluations and service change processes. Specific sections within the guidelines define service design characteristics to ensure that the Sound Transit system design reflects characteristics of a high speed, limited-stop regional system. The service standards and performance measures serve as a basis for service evaluation and service adjustment processes for all of Sound Transit s modes, including service quality guidelines, on-time performance reviews guidelines, and major and administrative change process descriptions. Since the adoption of the original 1998/1999 Service Standards & Performance Measures, the document has been amended three times. In 2006, the Service Standards and Performance Measures were amended to include standards and measures for Sounder commuter rail and Tacoma Link. In 2010, after the opening of the initial segment of Link light rail, the document was amended to include standards and measures for the Link light rail system. The document was most recently amended in 2014 to include revised productivity measures for all modes, as well as provide industry benchmarks for Sound Transit s rail modes. The Service Standards and Performance Measures are applied during the annual development of the Service Implementation Plan, which is developed in parallel with Sound Transit s budget, and describes major and administrative changes to take place during the scheduled service change dates of the following calendar year. A copy of the 2014 Service Standards and Performance Measures is included as Appendix D of this report King County Metro service guidelines As part of the King County Metro Strategic Plan, the Agency s service guidelines were updated in The service guidelines guide King County Metro s objective and transparent decision making process, supporting alignment with the regional goals for the public transportation system. KCM uses the service guidelines to make decisions about expanding, reducing and managing service, evaluate productivity, and to determine if service revisions are needed. The guidelines establish service levels for both All-Day and Peak Network services. Productivity, social equity and geographic value are prioritized it the guideline s three step process. King County Metro s Service Guidelines, 2013 Update, are included as Appendix E of this report. 5

9 2.3 Definitions and data analysis The following sections describe the data definitions and methodologies used by Sound Transit to develop estimates for Title VI populations within the Sound Transit service area. It is important to note that methodologies used by King County Metro to analyze their major service changes, especially relating to service area methodologies and data sources used, differ from Sound Transit s methodologies. Due to the varying types of service and the different markets that each agency serves, it is important to maintain separate thresholds. When an adverse effect is determined under each agency s own thresholds, in the case of a major service change or fixed guideway extension, the important aspect is coordination on resolving the adverse effect. King County Metro methodologies are described in more detail in their Service Guidelines, Appendix E of this report Demographic analysis methodology and Title VI data definitions Sound Transit uses census demographic data to identify Title VI communities (Minority, Low Income, & Limited English Proficiency) for service equity analyses and calculates the system-wide or mode specific average representation of these communities within the general population. Sound Transit uses the 2010 designated Census tracts as the geographic basis for assessing the Title VI populations. For the demographic analysis relating to the U-Link extension, demographic data from the American Community Survey (ACS) was used. The ACS was used to identify Minority, Low Income and Limited English Proficiency (LEP) populations. The following sections describe the methodology for identifying each of the Title VI populations for the purposes of this analysis Minority Persons who self-identify as being one or more of the following ethnic groups: American Indian and Alaska Native, Asian, Black or African American, Hispanic or Latino, Native Hawaiian and Other Pacific Islander. Table B03002 of the ACS dataset, which outlines Hispanic or Latino Origin by Race, is used to develop Minority population estimates. Total minority populations is estimated by subtracting the Non- Hispanic White Alone population from the Total Population for a specific census tract Low income Persons whose median household income is below the federal poverty level. Table B17001 of the ACS dataset, which identifies Poverty Status in the Past 12 Months by Sex and by Age, was used to estimate the low income populations or populations that fell below the federal poverty level in the past 12 months. Total low income population for a specified census tract is the number of people that fall within the Income in the past 12 months below the poverty level category Limited English Proficiency (LEP) Persons who identify a language other than English as their primary language, and are not fluent in English. Table B16001 of the ACS dataset, Language Spoken at Home by Ability to Speak English, was used to estimate LEP populations. For a specific census tract, those that identified speaking English less than Very Well (i.e. Well, Not Well, or Not at All ), were identified as LEP populations Service area methodology Most transit agencies in the US define their service area as a buffer around each of their transit routes. Given the unique service characteristics of Sound Transit service -- limited stops connecting regional urban and employment centers -- the agency defines its service area based on buffer around the transit 6

10 stops, rather than the transit route alignment. Table 1 provides details on Sound Transit s service area by stop type. Table 1. Sound Transit service area definitions Type Service Area (miles) Bus Stop without parking 0.5 Rail station without parking 1.0 Major bus facilities 2.5 Rail station with parking 5.0 The current Link service area has twelve (12) stations that fall within the Rail station without parking category, while one (1) station falls within the Rail station with parking category. For the two (2) stations being added as part of the U-Link extension, both fall within the Rail station without parking category. Table 2 provides details on the station categories for the Link system after the U-Link extension. Table 2. Link stations by service area definition University of Washington (U-Link extension) Capitol Hill (U-Link extension) Westlake University Street Pioneer Square Station Without Parking (1 mile service area) International District/Chinatown Stadium SODO Beacon Hill Mt. Baker Columbia City Othello Rainier Beach SeaTac/Airport Station with Parking (5 mile service area) Tukwila International Blvd Station Sound Transit Title VI population averages Using the demographic analysis and Title VI definitions previously outlined in this section, averages for the three Title VI populations for the Sound Transit service area are identified. Later in this analysis, Title VI populations for Link before and after the U-Link extension are identified. The population representation for any Title VI analysis is calculated using the percentage of area that falls within the district or mode s service area to estimate the specific number of people that fall within each of the Title VI categories. For example, if a census tract total is 10 acres and 3 acres are in the service area, based on the previously identified methodologies, then 30% of the tract s total population, and in turn 30% of each of the Title VI populations, is considered to be within the service area. This methodology assumes an even distribution of population throughout the census tract. 7

11 As shown in Table 3, the Title VI population averages for the Sound Transit service area are: Minority %, Low Income %, and LEP %. These averages serve as a comparison in the service change analysis conducted by Sound Transit. Table 3. Sound Transit district Title VI population averages Sound Transit District Minority Population Minority % Low Income Population Low Income % LEP Population LEP % Total Population 883, % 361, % 303, % 2,919, Service changes The section below describes the service changes adopted by Sound Transit resulting from the extension of Link service to the University of Washington. A service equity analysis was conducted using Sound Transit s Service Standards and Performance Measures. An overview of the King County Metro service changes adopted is also included. In accordance with King County Metro s Service Guidelines, King County Metro conducted a service equity analysis, included as Appendix A. Overall, the service changes provide increased access to high-capacity light rail to transit riders throughout the region Sound Transit service changes Sound Transit provides high speed, limited-stop regional express bus service, as well as high-capacity light rail and commuter rail service throughout the Central Puget Sound tri-county region. As described in Section 2.2.1, Sound Transit uses its Service Standards and Performance Measures to continually monitor its service. As part of the U-Link extension, there were three service improvements proposed for the Sound Transit service. The service improvements included both administrative and major service changes that were implemented or are scheduled to be implemented. The service improvements include the U-Link extension, the improvement to AM & PM peak frequencies, and the implementation of the new ST Express bus route U-Link extension Title VI analysis results The opening of the U-Link extension will provide many benefits to Sound Transit riders, King County Metro riders, and new riders. The extension of Link service to the University of Washington, through the Capitol Hill neighborhood, will provide increased access to one of the Puget Sound Region s largest employment centers and transit trip generators, the University of Washington. The following section describe the Title VI analysis for the U-Link extension, as well as a discussion about the travel time benefits and improvements tied to the extension. In order to show the full change related to the U-Link extension, the Link service area before and after the extension was analyzed. Table 4, U-Link Extension Title VI Analysis, shows a comparison between service area and Title VI population access for the entire Link alignment before and after the U-Link Extension. The table also shows the Title VI population percentages for only the U-Link extension. Prior to the U-Link extension, Link s service area provided access to high capacity transit to an estimated 347,000 residents. With the U-Link extension, two new stations in Capitol Hill and University of Washington, an estimated 47,000 additional residents will have access to Link, an increase of 8%. The 8

12 table below outlines the Title VI proportion of the overall population gaining access. The results of the analysis show that the increased access provided by the two new stations, slightly lowers the percentages and proportion of each individual Title VI category served by Link. However, the Link light rail line will still remain well above the Sound Transit District average in terms of the proportion of Title VI populations served. The Title VI population percentages are based on the added total population resulting from the U-Link extension. Table 4. U-Link extension Title VI analysis - results Link Service Area (Pre U- Link) Link Service Area (Post U- Link) U-Link Service Area Sound Transit District Minority Population 196, ,782 15, ,672 Minority % 56.5% 53.6% 32.8% 30.3% Minority Census Tracts Low Income Population 67,201 72,159 4, ,409 Low Income % 19.3% 18.2% 10.3% 12.3% Low Income Census Tracts Minority & Low Income Census Tracts LEP Population 66,417 69,342 2, ,607 LEP % 19.1% 17.5% 6.1% 10.4% LEP Census Tracts Total Census Tracts Total Population 347, ,730 47,712 2,919,300 The results from the service analysis, shown in Table 4, show that based on Sound Transit s adopted major service change policies, the accrual of benefits resulting from the U-Link extension will be borne by a higher minority population proportion than the Sound Transit district average. In addition, the minority populations along the entire length of the Link alignment will benefit from the addition of service on the U-Link extension. Overall, the minority population proportion of 53.6% in the U-Link service area, is far greater than the overall Sound Transit district minority average. The analysis also shows that the accrual of benefits within the U-Link service area will be borne by a population with a slightly lower low income population proportion than Sound Transit district s average (10.3% versus 12.3%, respectively). Since this is a service addition, with no associated reduction in service to low income communities, this change is not an adverse impact. In addition, there is not a disproportionate burden on low income populations in the U-Link service area. Furthermore, the low income populations along the entire length of the Link alignment will benefit from the addition of service on the U-Link extension. Overall and with the U-Link extension, the low income population proportion of 18.2% in the Link service area, is far greater than the overall Sound Transit district low income average. Similarly, the analysis also shows that the accrual of benefits within the U-Link service area will be borne by a population with a slightly lower LEP population proportion than Sound Transit district s average 9

13 (6.1% versus 10.4%, respectively). Since this is a service addition, with no associated reduction in service to LEP communities, this change is not an adverse impact. Overall and with the U-Link extension, the LEP population proportion of 17.5% in the Link service area, is far greater than the overall Sound Transit district LEP average. The ACS data used for the U-Link extension analysis is included in Appendix F. To complement the service change analysis for the U-Link extension, a series of maps, Figures 3 to 10 providing details on the Link light rail service area before and after the U-Link extension, were developed. There are four Title VI categories that Sound Transit analyzed during this process, minority, low-income, minority & low income, and LEP populations. For each category, there are two maps, one before U-Link and one after U-Link. The maps also overlay the affected King County Metro routes on top of our analysis for reference. Service area representation, analysis, and averages represented in Figures 3 through 10 are strictly Sound Transit specific. King County Metro service changes and respective analysis are described in more detail in Section of this report. 10

14 Figure 3. Link service area prior to U-Link extension Minority census tracts 11

15 Figure 4. Link service area prior to U-Link extension Low income census tracts 12

16 Figure 5. Link service area prior to U-Link extension Low income & minority census tracts 13

17 Figure 6. Link service area prior to U-Link extension LEP census tracts 14

18 Figure 7. Link service area after U-Link extension Minority census tracts 15

19 Figure 8. Link service area after U-Link extension Low income census tracts 16

20 Figure 9. Link service area after U-Link extension Low income & minority census tracts 17

21 Figure 10. Link service area after U-Link extension LEP census tracts 18

22 Benefits to existing and new riders It is important to point out that after the opening of U-Link, the residents in the Link service area will have direct and very frequent service between the University of Washington, Capitol Hill, downtown Seattle, and the existing Link light rail system. For example, the Title VI communities in the Link service area, after the U-Link extension, will see increased and improved transit and job access opportunities using high capacity, frequent, and reliable transit service. Travel Time Benefits of U-Link One of the major benefits to the U-Link extension is the travel time improvements and access to highcapacity light rail for many more Puget Sound residents. Depending on where transit riders are traveling to and from, the U-Link extension, coupled with Sound Transit s and King County Metro s adopted service changes (both described in more detail later in this section), travel times will be significantly faster and increase travel time reliability. For example, existing northbound Link customers who transfer to King County Metro bus routes in downtown Seattle to reach the University of Washington campus or the Capitol Hill neighborhood, will now have a direct connection, via the U-Link extension. Similarly, existing southbound King County Metro customers who transfer to Link in downtown Seattle to access the Rainier Valley or the SeaTac International Airport, will now have a faster and more reliable connection to Link at the University of Washington campus or Capitol Hill. During the Link Connections outreach process (described in Section 4.1), King County Metro conducted a travel time analysis to and from the neighborhoods impacted by the U-Link extension. The results showed significant improvement in travel times to and from most neighborhoods, with some travel times decreasing/improving by more than 10 minutes. The full results for each of the alternatives presented can be found on the King County Link connections website or In another example, a Sound Transit ST Express rider from northeast King County trying to access downtown Seattle will now have multiple options. Passengers can take the available ST Express route to downtown Seattle or take one of the three ST Express routes to the University of Washington and connect with Link to access downtown Seattle. These new opportunities to connect with Link and reach downtown Seattle are a welcome relief for those northeast King County riders who currently ride on Sound Transit s second busiest route. This route currently experiences maximum capacity on most trips during the commute rush hours. Travel times for both methods of reaching downtown Seattle are comparable and in certain cases get faster when transferring to Link at the University of Washington, especially due to the heavy congestion experienced on I-5 during rush hour periods. The trip from Westlake, in downtown Seattle, to and from the University of Washington will be eight (8) minutes and to and from Capitol Hill station will be four (4) minutes Improved AM and PM peak frequency This section summarizes the service change analysis of the adopted frequency improvements to the Link light rail system. The improvements that increased peak frequency from 7.5-minutes to 6-minutes for the Link system took place in September 2015 in preparation for U-Link and due to demand on the Link system. To meet the anticipated ridership demand with the extension of Link service to the University of Washington, increases in AM and PM weekday peak frequencies, from 7.5 minutes to 6 minutes, were 19

23 planned. The improvement in peak frequencies, coupled with the U-Link extension to the University of Washington, would create increased job access opportunities using frequent and reliable high-capacity transit for all populations along Link s service area, including Title VI populations. The service change added two additional trips per hour during the AM and PM peak periods through some of Sound Transit s most densely populated minority and low-income neighborhoods. During the development of the 2015 Service Implementation Plan (SIP), Sound Transit staff analyzed and recommended increasing the AM and PM peak frequencies, prior to the extension to the University of Washington, for the following reasons: Increasing the AM and PM peak frequencies increases the capacity to accommodate growing ridership. Phasing in major service improvements for Link would limit the confusion for new and existing riders. Increasing frequencies prior to the opening of the U-Link extension to the University of Washington provides Link operations staff a few months of experience of revenue testing with the increased frequencies. Table 5 below provides more details on the Link frequencies by weekday time period, both before and after the September 2015 service change. Through the September 2015 service change, Link operated at 7.5 minute frequencies during the AM and PM weekday peak periods. Table 5. Link Light Rail Service Frequencies by Weekday Time Period Weekday Time Headway (min.) Headway (min.) prior to Sept After Sept Early/Late 5:00 a.m. to 6:00 a.m AM Peak 6:00 a.m. to 9:00 a.m Base 9:00 a.m. to 3:00 p.m PM Peak 3:00 p.m. to 6:30 p.m Base 6:30 p.m. to 10:00 p.m Early/Late 10:00 p.m. to 1:00 a.m Using the 2014 Service Standards and Performance Measures, increasing headways on Link fell within the administrative authority of Sound Transit. The frequency improvement was considered a Scheduled headway adjustment of up to three minutes during specified times of the day, which fell into the category of Permanent changes that can be implemented administratively at regular service change dates. Although the improvement of frequencies on the light rail system falls within the administrative authority of Sound Transit staff, a Major Service Change analysis was still conducted to ensure the improved frequencies did not require a more in-depth Title VI Evaluation. Table 6 provides details of the results of the analysis. The overall change in Weekly Platform Hours for this frequency improvement is 10%. The results of the analysis show this improvement is not a major service change. 20

24 Table 6. Estimated Link service statistics Link Service Statistics: 7.5 Minute Frequency During Peak Periods Day Type Trips Per Day Plat Hrs. per Day Plat Hrs. per Week Plat Hrs. per Yr 1 Weekday ,063 54,188 Saturday ,098 Sunday ,098 Total 1,430 74,384 Link Service Statistics: 6 Minute Frequency During Peak Periods Day Type Trips Per Day Plat Hrs. per Day Plat Hrs. per Week Plat Hrs. per Yr¹ Weekday ,173 59,823 Saturday ,098 Sunday ,098 Total 1,540 80,019 % Change 10% 10% The Sound Transit Board through the approval of the 2015 SIP (Resolution R ), approved the implementation of increasing AM and PM peak frequencies on Link during the September 2015 service change, rather than spring of 2016 as anticipated New ST Express route 541 Consistent with Sound Transit s Service Standards and Performance Measures, Sound Transit s adopted 2016 Service Implementation Plan (SIP) includes both major and administrative service changes for The 2016 SIP also includes a Title VI analysis for those major service changes, as well as a summary of the outreach conducted as part of the development of the SIP. As part of the Link Connections outreach process, described in Section 4.1 of this report, Sound Transit staff recommended the implementation of a new northeast King County route. The new route, Rt. 541, would provide a new two-way peak connection across Lake Washington from the Overlake neighborhood in Bellevue, the location of the Microsoft Campus, to the University of Washington Station. The route will offer new opportunities to transfer to fast, reliable light rail service. The complete Title VI analysis of new route 541 is detailed in the 2016 SIP, attached as Appendix G King County Metro - U-Link bus integration changes As previously described, King County Metro provides local bus service to communities within King County. As part of the Link Connections process, King County Metro proposed changes intended to integrate King County Metro service with Sound Transit s U-Link extension to the University of Washington. The proposal includes changes to 33 existing peak-only and all-day routes, primarily in the neighborhoods in Northeast Seattle, as well as in the SR-522 corridor, Capitol Hill, First Hill and the Central Area neighborhoods. In accordance with King County Metro s Service Guidelines, King County Metro conducted a service equity analysis, included as Appendix A. King County Metro s Service Guidelines identify thresholds, methodologies, and respective impacts relating to their major service changes. 1 Based on an annualization factor of 255 weekdays, 55 Saturdays, and 55 Sundays 21

25 King County Metro s analysis of the final service change proposals relating to the U-Link extension, and adopted by the King County Council, concluded that there was no disproportionate burden on lowincome population or disparate impacts on minority populations Compounding impacts Although Sound Transit and KCM are separate agencies with different governance structures, service types, policies, and performance standards, both agencies recognize the importance of close coordination in the provision of transit service. Coordination is especially important with respect to providing a fair and equitable balance of transit investments for minority and low income populations. Both agencies, through their respective analyses, found no disparate impacts or disproportionate burdens with the U-Link extension and related service changes. Sound Transit has considered the changes made by both agencies and has determined that no compounding negative impacts to low income or minority populations will be created by Sound Transit s U-Link service changes. 2.5 Service equity analysis conclusion The service equity analysis demonstrated that the U-Link extension and related service changes will not have any adverse effects that would have a disparate impact on minority populations or a disproportionate burden on low income populations. The added service frequency and reliability will be a benefit not only to new customers but also to customers currently using the existing Link alignment from downtown Seattle through southeast Seattle to Sea-Tac Airport, opening up new opportunities for education, employment, healthcare, services, and recreation that were either not available or more onerous to reach prior to the extension s opening. 22

26 3 Fare Equity Analysis 3.1 Description of fare changes Regular adult fares on Link light rail are set by a distance-based policy last updated in November This existing fare structure will be introduced for the line s extension to two new stations in accordance with Sound Transit s fare policy. Although the existing fare structure will apply to riders using the two new stations, the new light rail segment and associated bus changes will alter some customer s rides and how they pay their fares. Service changes that King County Metro (KCM) will make to better coordinate and integrate bus service with the light rail extension require that a subset of existing customers will need to make a transfer between KCM bus and Link light rail for a trip that was made solely by KCM bus prior to the opening of the light rail extension. Conversely, another subset of customers who were transferring between KCM bus and Link light rail prior to the opening of the extension will be able to make the trip solely on light rail after the extension opens. For certain fare types, the transfer introduced or eliminated by the KCM service changes and the light rail extension will create a change in the fare they pay when considering the fare paid across both agencies systems. A third and final category of fare change is being evaluated as part of this fare equity analysis: customers who currently use a KCM service for trips made exclusively on Link after U-Link opens may have a lower fare, depending on the distance and time of day. To summarize, the three fare changes considered include: A. New Link fares (UW & Capitol Hill Stations) B. Transfer introduced/eliminated C. Lower fare on Link for comparable KCM service Each of these changes will be described in greater detail in Section 3.4, Fare media analysis. 3.2 Policies and definitions Fare equity analysis policy Sound Transit Board of Directors Resolution R established policies for conducting equity analyses of fare changes impacting minority and low income populations, and is attached as Appendix H. The policy directs Sound Transit to conduct a fare equity analysis prior to making any fare change to analyze potential adverse effects on minority and low income populations and establishes the following thresholds for determining whether the proposed fare change would have a disparate impact on minority populations and/or a disproportionate burden on low-income populations: A disparate impact occurs when the minority percentage of the population adversely affected by a fare change is greater than the average minority percentage of the population of Sound Transit s service area. 23

27 A disproportionate burden occurs when the low income percentage of the population adversely affected by a fare change is greater than the average low income percentage of the population of Sound Transit s service area. Per Sound Transit s policy, if any disparate impact or disproportionate burden is found during the fare equity analysis, Sound Transit will consider steps to avoid, minimize, or mitigate the adverse impacts and reanalyze the modified changes to determine if the impacts are removed or lessened. Public involvement in developing Resolution R was conducted in concert with R (service equity analysis policy) and is described in Section 2.1. As set forth in the policy, more extensive outreach is called for regarding proposed fare changes to populations affected by the particular change. Public outreach for proposed fare changes is guided by Sound Transit s Inclusive Public Participation Policy, Resolution R , which is provided as Appendix C. The public involvement efforts conducted for the fares associated with U-Link are described in greater detail in the following sections Link fare policy and rates All central Puget Sound transit services utilize the RFID-enabled fare card One Regional Card for All (ORCA). Payment for transit fare through ORCA can be made using E-Purse (debit) or a pass product. Pass products are associated with a one-way fare value. For the purposes of this analysis, five fare types are considered: Adult cash/ticket, adult ORCA, adult low income ORCA ( ORCA LIFT ), Regional Reduced Fare Permit (RRFP), and Youth. RRFP is an ORCA product available to senior citizens (65+ years old) and persons with qualifying disabilities. RRFP card holders may use their RRFP cards in the same way as an ORCA card, or may present the card to validate a cash/ticket payment at the RRFP fare rate. Riders aged 6-18 are eligible for Youth fare, which can be paid through ORCA or cash/tickets with ID. Per Sound Transit Board Resolution R in November 2014, rates were adjusted so that the adult one-way base fare for Link light rail was set at $2.25 and a flat, $1.50 fare for low income adults (ORCA LIFT) was adopted. For full-fare adult one-way trips, a per-mile charge of $0.05, rounded up or down to the nearest $0.25 is added to the base fare to determine the fare for any given pair of stations. All other fare types are flat rates (not distance-based). The Title VI Fare Equity Analysis conducted for Link fare policy Resolution R is included as Appendix I, along with the Public Outreach Report that describes the outreach conducted and feedback received about the fare change proposal. This fare change was approved by the Sound Transit Board in November 2014 for a March 2015 fare change. The current and future one-way Link light rail fares for pre- and post-extension are shown in Tables 7 and 8. Table 7 shows regular adult one-way fares. The shaded cells show the fares for the new stations. As shown in Table 7, the fares for the existing alignment range from $2.25 to $3.00. The base one-way adult fare for the new stations is $2.25, the same cost as the base one-way adult fare for the existing stations. A trip for the entire length of the line will be $3.25. This is $0.25 higher than the current maximum fare because of the 3.1 mile extension. Table 8 shows current and future one-way fares for other fare types (ORCA LIFT, Youth, Senior/Disabled), which will not change after the opening of the light rail extensions. Current Sound Transit fare policy grants a two-hour transfer credit among different Sound Transit modes (light rail, express bus, and commuter rail) and between Sound Transit and partner transit agency services for customers using ORCA. The same accommodation is not made for cash customers. 24

28 3.2.3 King County Metro fare rates Some of the fare changes described in this analysis include fares paid on board King County Metro services, so those are described here for reference. King County Metro has a zone based and peak/off peak fare structure. Only the Off Peak and Peak One Zone fares are pertinent to this analysis, as there are no two zone routes involved in the various fare changes associated with the opening of U-Link and bus service changes. KCM s basic fare structure for one-way trips is provided in Table 9. KCM, like Sound Transit, accepts ORCA regional fare media for fare payment. In addition to allowing a two-hour transfer credit for fares paid using ORCA (as does Sound Transit), KCM also provides paper transfers for transfers within the KCM system. These paper transfers are not accepted by any other transit providers in the region, including Link light rail, and KCM does not accept paper transfers (from cash fare payment) from other providers. 25

29 Table 7. Current and future one-way adult fares for Link light rail UW Capitol Hill Westlake University Street Pioneer Square Int'l District Stadium SODO Beacon Hill Mount Baker Columbia City Othello Rainier Beach Tukwila Int'l Blvd SeaTac/Airport UW $2.25 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.75 $2.75 $2.75 $3.00 $3.25 Capitol Hill $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.50 $2.50 $2.75 $3.00 $3.00 Westlake $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.50 $2.50 $3.00 $3.00 University Street $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.50 $2.50 $3.00 $3.00 Pioneer Square $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.50 $2.50 $3.00 $3.00 Int'l District $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.50 $2.50 $3.00 $3.00 Stadium $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.75 $3.00 SODO $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.75 $2.75 Beacon Hill $2.50 $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.50 $2.75 $2.75 Mount Baker $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.75 $2.75 Columbia City $2.75 $2.50 $2.50 $2.50 $2.50 $2.50 $2.25 $2.25 $2.25 $2.25 $2.25 $2.25 $2.50 $2.75 Othello $2.75 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.25 $2.25 $2.25 $2.50 $2.75 Rainier Beach $2.75 $2.75 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.50 $2.25 $2.25 $2.50 $2.50 Tukwila Int'l Blvd $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $2.75 $2.75 $2.75 $2.75 $2.50 $2.50 $2.50 $2.25 SeaTac/Airport $3.25 $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $2.75 $2.75 $2.75 $2.75 $2.75 $2.50 $2.25 Current and future one-way adult fare for existing station pairs Future one-way adult fare for trips involving new stations Table 8. Current and future one-way fares for other fare types Fare Type Current fare (before capital project opens) Future fare (after capital project opens) Low income adult (ORCA LIFT) $1.50 flat fare $1.50 flat fare Youth (6-18 years old) $1.50 flat fare $1.50 flat fare Senior/Disabled with Regional Reduced Fare Permit (RRFP) $1.00 flat fare $1.00 flat fare 26