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001 of 2014 - Citywide Transit Master Plan R 14-1 R 14-2 RESOLUTION NO. 1 2014 (Approving the Scope of Work for a Citywide Transit Master Plan and authorizing funding for the Citywide Transit Master Plan) WHEREAS, Salt Lake City (the "City") has a commitment to continually improve transportation for the benefit of the community; and WHEREAS, the City's current Transportation Master Plan emphasizes providing choices in travel, and reducing dependence on the single occupant vehicle; and WHEREAS, Mayor's Livability Agenda states that transportation should "further develop connections between the City's activity centers with a safe, clean and green travel network that will help us 1) use resources and time efficiently and wisely to get around town and 2) connect with our fellow residents through personal interactions 3) foster stronger relationships with our local business entertainment, and arts organizations, share and enjoy our parks and natural spaces; and WHEREAS, the City Council has adopted a philosophy statement that directly addresses transit and it states, "Salt Lake City residents should have choices in modes of transportation which are safe, reliable, affordable, and sustainable. Residents should reap the value of well- designed transportation systems that connect residents to neighborhoods and the rest of the region. The City encourages alternatives to motorized-vehicular transportation and making those options more appealing and accessible to visitors and residents"; and WHEREAS, the City desires to establish a Citywide transit master plan ("Citywide Transit Master Plan") to update the City's objectives and goals of providing Citywide transit options, and to address the Mayor's Livability Agenda and the City Council's philosophy statement for transit within the City; and 1 WHEREAS, the City's Division of Transportation has created a proposed scope of work ("Scope of Work") for the Citywide Transit Master Plan, attached to this Resolution as Exhibit A; and WHEREAS, the Scope of Work includes a proposed cost of $400,000 to create the Citywide Transit Master Plan, which includes City budgeted funds of $250,000 and approximately $150,000 in matching funds from the Utah Transit Authority; and WHEREAS, in the Capital Improvement Program for FY 2013-2014, the City Council allocated $250,000 for the Citywide Transit Master Plan, subject to the City Council's approval of the Scope of Work; and WHEREAS, City Council has reviewed and agrees with the proposed Scope of Work for the Citywide Transit Master Plan; and WHEREAS, the City Council finds that this Resolution is in the best interest of the City; NOW, THEREFORE, be it resolved by the City Council of Salt Lake City, Utah, as follows: 1. The City Council hereby approves the Scope of Work for the Citywide Transit Master Plan. 2. In connection with the City Council's approval of the Scope of Work, the City Council hereby approves the Division of Transportation's use of$250,000, which was previously allocated in the Capital Improvement Program, for the Citywide Transit Master Plan. 3. This Resolution shall take effect immediately upon passage. 2 Passed by the City Council of Salt Lake City,Utah,this 4th day of February 2014. SA 'LA : CI COUNCIL :y i I CHAI•i • 4' A"1F'ES f:L -, ///Z j‘,I,..ICE, cjT "y CITY RECORDER ;y %• "K 6 t rry0, q D�RTES.P. APPROVED AS TO FORM °"•�o...-" , f, SALT LAKE CITY ATTORNEY'S OFFICE HH ATTY-#35219-v3•Resolution-Transit Master Plan.DOCX 3 EXHIBIT A Salt Lake City Transit Master Plan Scope of Work—December, 2oi3 Background: Salt Lake City has a commitment to continually improve transportation for the benefit of the community. The City's Transportation Master Plan emphasizes providing choices in travel,and reducing dependence on the single occupant vehicle. The Mayor's Livability Agenda states that transportation should"further develop connections between the City's activity centers with a safe,clean and green travel network that will help us i)use resources and time efficiently and wisely to get around town and 2)connect with our fellow residents through personal interactions 3)foster stronger relationships with our local business entertainment,and arts organizations,share and enjoy our parks and natural spaces. The City Council has adopted a philosophy statement that directly addresses transit and it states,"Salt Lake City residents should have choices in modes of transportation which are safe, reliable,affordable,and sustainable.Residents should reap the value of well-designed transportation systems that connect residents to neighborhoods and the rest of the region.The City encourages alternatives to motorized-vehicular transportation and making those options more appealing and accessible to visitors and residents". The purpose of this plan is to document through process and analysis Salt Lake City's short,medium and long-term public transportation needs,goals,and implementation strategies to support the stated desires for improving transit for Salt Lake City. The Plan will be based on the following key principles: - A transit system that is optimized for a variety of factors such as mobility,economic development,sustainable growth and land use patterns,regional access to Salt Lake City,and is complementary with other travel modes - A robust,inclusive and equitable public process - Coordination with other transportation plans and investments,those of both the City and other agencies,to leverage resources for expanded success - Will draw from successful processes and plans that have been undertaken in other places as models - Collaboration among SLC divisions/departments,local and regional stakeholders,and federal partners,with an emphasis on coordination with other transit providers,including UTA,the University of Utah,and Salt Lake City School Districts The final product should provide recommendations for the City and UTA can focus resources more efficiently and realize City goals.It will serves as a key framing document that can align UTA about City priorities and needs,guide decision making about the timing and location of capital investments,and emphasize an increase in transit mode share citywide. Estimated Project Cost: This scope of work assumes an estimated consultant contract of approximately$350,000.Additional city staff time will be spent on this project. An estimate of city staff time is 6,00o hours or approximately$i8o,000 in staff time which includes Transportation,Planning,Economic Development,and RDA contributions, Tasks Task a:Project Management This task includes oversight of the consultant team,including subconsultants,and the administrative tasks required to support the overall project. Task 1.1:Project Scope and Work Plan The consultant and City will hold a project kickoff to confirm project goals and objectives,methodology, and project schedule,and to establish: • Communication protocols and methods • Project objectives,priorities,timelines and deliverables • Data requirements and sources • Logistics for conducting public outreach,including identifying key stakeholders who can assist in reaching groups who do not normally participate in the planning process • The composition of and workplans for project teams/committees Task 1.2:Regular Project Management Team Meetings The consultant will arrange and facilitate regular project meetings between lead consultant staff and City management staff to address project progress,key milestones and deliverables,and any critical path issues that arise during the project. Task 1.3:Project Meetings and Briefings Salt Lake City will assemble policy and technical teams to assist in the review and analysis of transportation services.The consultant will prepare meeting summaries and collect and summarize comments provided by these teams. SLC will conduct Council and Mayoral briefings.The consultant will create supporting materials and be available during briefings to respond to technical questions as needed. Task a Deliverables: Project scope and work plan,progress reports,schedule and budget updates Public engagement plan Meeting summaries Monthly progress reports Digital,editable copies of color maps and exhibits Production of presentation materials Task 2:Existing Conditions:Data Collection,Research and System Analysis This includes review of similar planning efforts that have been successful and arc relevant to SLC, assessment of existing conditions(including travel patterns,demographics,land use,major activity centers and active corridors,and local plans that will inform this plan),and assessment of future projections and needs.A report will be prepared to identify strengths and deficiencies in the existing system;summarize governance and funding issues;and provide a foundation for the items that the Transit Master Plan will address. Task 2.1:Transit System Plans,Policies and Perform ance Analysis Work in this subtask relies upon SLC and UTA to provide all necessary data,projections and mapping, and may include: • A policy and planning summary of the existing policy and planning framework related to transit, with an emphasis on policies and initiatives that provide direct guidance to achieving the long- term goals of SLC's transportation system. Policies and initiatives may include: o including its Complete Streets policy o the Transportation Master Plan o Plan Salt Lake and other adopted Community and Small Area Master Plans of the City o the Bicycle and Pedestrian Master Plan,and o SLC's Sustainable Salt Lake Plan 2015 • An evaluation of how plans and policies tit within the context of changing Federal Transportation Policy and related goals for energy,climate change,housing affordability,equity, livability,and walkability • Collection and analysis of UTA routes serving SLC,including current and past routing,and also including performance • Evaluation of current plans,time and system integration strategies for TRAX extensions,bus expansion,streetcar projects and that are identified in WFRC's RTP • Assessment of existing travel demand projections using the most current modeling tools available and appropriate to the unit(s)of geography under consideration • An assessment of the likelihood,time horizons,locations/opportunities and intensities of transit supportive land use development Task 2.2:User Experience and Mode Integration The consultant will evaluate how transit customers access current services,with particular attention to bicycle and pedestrian access as well as the facility of transit transfers and the integration of all travel modes.This subtask will focus on the degree to which existing facilities are being effectively utilized and will include analysis of transit boarding activity relative to adjacent land use patterns,transportation network connectivity,and other measures. Task 2.3:Gap Analysis The consultant will prepare a gap analysis to determine the mismatches between transit supply and demand in the existing system and especially as foreseeable based on 2040 projections related to growth patterns and travel patterns.Focusing on transit facilities,the Consultant will identify gaps in the current transportation infrastructure. This will include: • Corridors or segments that are currently served where demand is greater than supply,including deficiencies in first mile/last mile service. • Corridors or segments that are inefficiently served or where service levels are too high for demand. • Corridors that have a mismatch between service type/operational characteristics and markets served. • Corridors or segments that are not served but where significant demand exists. • Locations where transit facilities are insufficient or lacking. • Transit corridor physical design characteristics and impacts on current or future transit operations(speed,reliability,loading delay,etc.). • Transit access barriers or deficiencies including pedestrian conditions and bicycle system access and parking. • Programmatic deficiencies for transit dependents,such as low-income,elderly,disabled,and student populations. Gaps analysis will be conducted based on current and projected land use conditions. Analysis of future conditions may require some assumptions about growth and allocation of transit operating resources. This analysis will also identity system elements that are working well and should be maintained or enhanced. Task 2.4:Governance and Funding With the Regional RTP as a starting point,funding assumptions will be refined as they specifically relate to transit within SLC.Potential sources will be identified ranging from federal New Starts to highly localized sources.Atypical sources that do not fall strictly within the realm of transportation, such as disaster relief funds,should be considered. The range of governance structures that currently operate in the U.S.will be summarized and consideration given to the applicability of alternate models within Salt Lake City.The pros and cons of various owner-operator scenarios will be clearly outlined with the goal of aiding decision making.Each scenario should articulate the associated interface with the regional transit network and UTA. Task 2 Deliverables: Existing conditions report,to include identification of areas(geographic and categorical)of high and low performance within the system,mutual support of existing/ongoing plans,public input needs,and high-level snapshot of the SLC resident's transit experience. Funding strategies memo,for incorporation into overall implementation plan.This may be refined during plan preparation to make specific recommendations for implementation. Governance models memo,This may be refined during plan preparation to make specific recommendations for implementation. Task 3:Public Involvement This includes all types of outreach efforts,including meetings,digital media,and creative,convenience- based approaches to communicating with major stakeholders,elected officials,and the general public. This task should seek to refine and goals for the transit network that are tied to broader SLC initiatives, as described in the Background section, and to gain input on scenarios that are developed to meet those goals.Additionally outreach should focus on promoting an understanding of the trade-offs inherent in planning transit and land use together. Basic principles of densities,modes,and best practices will be shared as an integral part of the public process,and will also provide a basis for future decision-making. At minimum,outreach should occur at key milestones such as goals,objectives and criteria development;key corridors identification;scenario development;and plan adoption.Public involvement will constitute the majority of Task 9. The consultant should be prepared to integrate public outreach efforts developed for the project with existing SLC outreach systems and approaches,particularly to avoid duplication of efforts and build upon general transportation input to drill down into more nuanced and detailed feedback.Strategies should seek meaningful and targeted information sharing and input.In particular,the current or potential transit user should be approached as chiefly possessing expertise on the transit experience. Special attention will be required to enlist the participation of underrepresented communities, including but not limited to low-income residents,youth,disabled populations,senior,immigrants and non-native English speakers.One-on-one interviews with key stakeholders are included in this task,as well as focus groups and/or surveys. Task 3 Deliverables: Public involvement plan,including anticipated staffing,materials,meetings and work products. A vision statement and metrics by which we evaluate concurrence with it.The vision statement may be adopted from a broader planning effort,such as Plan Salt Lake. FAQ,presentations,and graphics needed to support outreach. Initial drafts of meeting agendas,initial drafts of presentation materials, meeting minutes,and facilitation for Committee meetings(shared responsibilities with SLC as determined in project team meetings). Stakeholder interview list,stakeholder interview questions,stakeholder interview key findings memorandum. Project website materials and web-based transit opinion survey. Task 4:Goals and Objectives for Transit This task is a vital step to understand why transit is important to Salt Lake City,and what role it will play in developing and maintaining a livable community. In the City Council Retreat held in September 2013,the Council identified the following goals for transit: o Ease of Use:Anyone in Salt Lake City can get from Point A to Point B using only one transfer c Affordability:Cost for service should be scaled to the length of each trip—or everyone should get a transit pass o Destinations:Everyone should be able to get to two transit routes within a quarter mile of where they live or work o Time of Day:Mass transit hours of operation should mirror the times people leave and return from work and play o Immediacy:Mass transit service should be available every to minutes so people can presume service o Route Reliability:Routes should remain stable so residents and developers can make transit part of their long-term housing choice These goals will be shared throughout public engagement to help generate further public discussion. During this process goals will be affirmed,modified,or added to based on what is learned by the information gathering in previous tasks,and with additional ideas that are brought forward by public process. At this point in the process the consultant will organize and conduct a retreat of the City Council to review goals for transit,and to give the opportunity to either verify or modify goals based on new information. Using data analysis in previous steps,goals and objectives will set the future metrics by which to evaluate important alternatives and corridors. Task q.r:Consolidation and Exploration of Existing Policies The consultant will distill goals and objectives from commonalities among existing plans and policies related to transit,and will call out variation across time and/or geography that may emerge upon a review of City master,area and topical plans.This information,in conjunction with the existing conditions report and public input,will be used to facilitate the City's workshopping of questions such as: • Who arc Salt Lake City transit customers? • What service types and features,system design aspects and informational services do they value? • What other secondary public goods are supported by transit investments(social,economic, environmental)? • How does the community value these"goods"and how do they relate to transit investment decisions? • What arc the incentives for and barriers to transit usage? • What land use policies are in place that currently support transit,and what modifications should be considered as alternatives are explored?What trade-offs need to be considered? Task 4.2:Market Assessment This subtask identifies existing transit markets,latent transit markets,and markets that may he maximized in the future based on trends and correction of deficiencies in the existing transit system,as well as the use of land use information to determine existing and future markets.Important to this task will be an assessment of trip magnitude that may be generated from each of the distinct markets, including latent markets,that arc identified. The magnitude of trip generation will be used when connecting markets with each other,as noted in Task 4.3,and will be the basis to match the appropriate mode(bus,BRT,streetcar,etc...)with selected corridors.In addition,the consultant will examine the primary markets to identify ways in which land use and economic development policies and strategies could be used to increase trip generation to influence mode choice. As well,an overall assessment of increasing transit mode share within Salt Lake City will also be included, Task 4.3:Corridor Prioritization Framework The consultant will work with the City to develop criteria based on the goals and objectives developed in 4.1 and the conclusions of 4.2.These criteria will be used in task 5 to identify key corridors to be advanced for further development and to utilize in mode identification in task 8. If tasks 6 and 7 are funded,these corridors will form the basis of scenarios evaluated.The prioritization of corridors will rely heavily on previous tasks including market assessment and goals and objectives,and will include assessment of current and future potential land use. Task 4 Deliverables: Goals and Objectives report&presentation,including summary of what our existing/ongoing plans and policies,public comments,and local initiatives explicitly state or suggest relative to the transit system. Existing and future needs map/visualization that illustrates the important connections our community must make and the opportunity areas for land use and economic vitality. Evaluation framework development report describing the process by which goals and objectives were translated into market-based prioritization criteria. Task 5:Land Use Recognizing the inextricable relationship between land use and transportation,this plan should be developed in close coordination with the City's Planning,Housing and Neighborhood Development, and Economic Development Divisions.This relationship should be a primary focus within the other tasks,and additionally the consultant will give particular attention to the following: • City Master Plans vary in their degree of currency and,especially less recent plans,may or may not have contemplated how public transit could shape urban form and vice versa; incompatibilities between the two should he noted and recommendations made. • Related to the above,the consultant should work with the Planning Division to identify locations in the City where the existing zoning supports transit and locations that could support transit with zoning changes. • Funding strategies may he tied to land use;these should be explored,especially as they relate to the role of the Redevelopment Agency of Salt Lake City. • Regional transit plans may not adequately address the necessary connections between neighborhood business nodes; these should be prioritized in support of livable neighborhoods and a vibrant local economy. • Regional transit plans may not adequately address local circulation needs; short trips made locally throughout the day, especially in mixed use contexts, should be considered in addition to peak hour commutes. • Create materials to aid in the understanding of the trade-offs between the quality of transit service and the level of land use intensity. Task 5 Deliverables: Land Use technical report, including recommendations for our existing/ongoing plans and policies, that would mutually support Salt Lake City's transit system and community vision. Matrices, maps and other graphic representations that clearly illustrate for public consumption the relationship between land use and transit in Salt Lake City, including funding options, intensity/mix of uses relative to mode choice, and geographic areas of special focus for any of the elements listed above. Task 6: Key Corridor Identification Based on data, feedback, and goals and objectives, and utilizing the prioritization framework developed in task 4.3, key corridors will be identified that link neighborhoods,businesses, cultural facilities, and important activity centers. This will include a high-level audit of transit-compatibility relative to walk and bike access,land use and zoning,presence of transit dependent populations, and other factors to narrow the number of potential alignments. Task 6 Deliverables: Overlay added to Task 4 map showing all potential corridors that respond to goals and objectives and match generally accepted industry standards for transit compatibility. Task 7: Alternatives Development(possible task depending on funding) This includes development of transit network scenarios (bus and rail) that are optimized for particular goals (for example, one is mobility, another is economic development). These scenarios can then be overlaid to create scenarios that support the greatest number of community goals. This task could be limited to two scenarios, such as the best we can do with existing resources(retooling of local bus routes, utilization of capital funds already anticipated in regional plans, smaller investments in the rider experience)versus a no-holds-barred scenario. Task 7 Deliverables: Separate overlays for each scenario with associated conceptual cost range system-wide and a general assessment of benefits generated. Technical report describing each factor and how scenarios were developed to Optimize for those factors. Task 8: Evaluation(possible task depending on funding) This includes evaluation, meshing, and ranking of scenarios using objective metrics for system performance that are tied to goals established in task 4. Scenarios may be reworked to account for issues that may not appear as goals for the system but would arise as considerations upon pursuit of implementation, such as equity, fatal flaw environmental impacts, disproportionate impacts to regional transit performance, etc. Task 8 Deliverables: Overlay added to Task 4 map showing all potential corridors that respond to goals and objectives and match generally accepted industry standards for transit compatibility. Technical report summarizing evaluation criteria and methodology. Task 9: Mode Identification Once corridors are understood, modes will be identified that best meet the purpose of the corridors. This will consider ridership potential,land use, and other factors tied to the overall goals and objectives for transit, in addition to feasibility in terms of technical constraints, funding and potential for public support. Task 9 Deliverables: Map showing compatible modes for priority corridors. Technical report of mode selection criteria and methodology. Task 1o: Amenities, Convenience and Comfort This task will focus on transit amenities that are necessary to improve convenience and reliability. It will consider existing City amenities (placemalcing, urban form, public space) that support and can be enhanced by transit, as well as those investments that could generate measurable differences in ridership and enhance the transit customer experience, This task will be informed by public input regarding the user experience and ranking of amenities, such as real-time passenger information, service frequency, etc. It will utilize prior work conducted by SLC and UTA. Task 10 Deliverables: Summary report of transit market(existing and latent) needs and preferences. Amenitization map showing where investments are most needed and/or would yield the greatest gains for both transit and the surrounding urban environment. Task ii: Plan Preparation, Review and Adoption During this task the information assembled in each of the above tasks will be used to prepare a Transit Master Plan for consideration and adoption. The Plan will be highly graphic and usable for public entities, including the general public. The plan will also be available online. Included in this task is the creation of materials to assist interested parties in decision-making,such as maps, summary graphics and charts. It also includes attendance at meetings to answer technical questions and support the decision-making process. The process for review and adoption will be consistent with the Master Plan process as outlined by the Community and Economic Development Department. Task ii Deliverables: Maps, summary graphics, charts,presentations. A final plan, including all supporting technical memos, in editable electronic format. A short version of the plan for public distribution.