Memorandum

City of Lawrence

Public Transit

TO:	Tom Markus, City Manager
FROM:	Robert A. Nugent, Transit Administrator
DATE:	March 16, 2017
RE:	Transit Transfer Hub

The Transit transfer hub remains a critical outstanding facility need. The following memorandum summarizes relevant background information on this issue and discusses identified next steps.

Background on Transfer Hub

The city operates a hub and spoke fixed route system. The hub supports the transfer function, which is the critical element to the efficiency and effectiveness of transit services. The vast majority of trips require passengers to transfer from one route to another at a centralized hub in order to reach their destination in other parts of the city. To help facilitate these transfers the city also utilizes “clocked headways”. This means that at specific locations in the system buses are scheduled to arrive at virtually the same time which greatly reduces the passengers wait time for a transfer and improves the relative connectivity of the service. At the present time the primary transfer is located at 7^th and Vermont streets which supports the clocked service to three secondary transfer hubs at 31^st/Iowa, 6^th/Wakarusa, and Jayhawk Boulevard). These secondary locations have become extremely important to facilitate the trip patterns of the traveling public.

The current transfer hub was located along the curb of the 700 block of Vermont Street over six years ago as a temporary solution until a decision about a permanent location could be made and construction of a transfer center could be completed. This location presents numerous operational, logistical and safety challenges. In its present state, the curb frontage is insufficient to accommodate buses from all routes. Additionally, locating the hub function at a temporary site inhibits long-range planning related to transit routes, facilities and amenities. Determining a permanent location of the hub drives all other decisions about the development of the transit system. Route planning and service levels, permanent amenities and facilities along routes, bus acquisition, and staffing needs to support the operation all hinge on a decision about a permanent location for the central point of transfer. Even decisions about the design and scope of a transfer center facility depend on a decision about the location.

For example, the proposed concept for the 2021 Stewart Ave property includes a fairly simple transfer hub with limited amenities for approximately $4 million. However, a large portion of the estimated cost of the facility is for off-site improvements such as street resurfacing, traffic signals and to establish mitigation elements to address potential traffic issues to the immediate neighborhood. Whereas, the recently proposed multi-modal concept at Lot 90 on the KU campus was estimated at $30 million because it also incorporated a large parking facility to accommodate long range university needs. Each design concept was tailored to the specific location to address related needs.

At the July 21, 2015 City Commission meeting, city staff recommended that the Commission approve proceeding with locating the transfer hub and constructing a transfer center at 2021 Stewart Ave. The Commission instead directed staff to make efforts to site the transfer center in the KU Central District development or near the intersection of 9^th and Iowa streets. A number of locations were evaluated since the July 21, 2015 Commission meeting and a summary of staff’s work follows.

University of Kansas: City staff discussed the site issue with KU officials. KU confirmed that the transfer center could not be located in the Central District. As an alternative, KU partnered with the city on a TIGER grant application to fund construction of a transfer center at KU Parking Lot 90. Unfortunately the grant was not awarded for that project. After the unsuccessful TIGER grant application process, city staff inquired about alternative locations on the KU campus and property owned by KU Endowment. KU confirmed that 2021 Stewart Ave is the only site available for the transfer center on KU and KU Endowment property.

9^th and Iowa: Locations near the intersection of 9^th and Iowa were evaluated. Deed restrictions on Centennial Park, which were recorded as a condition of the donation of that property to the city, prevent siting the transfer hub in Centennial Park. The ownership of Hillcrest Shopping Center, 925 Iowa, was contacted about the potential to site the transfer hub on that property. The ownership is willing to consider a portion of 925 Iowa for this use, but that portion is too small to feasibly accommodate the hub. Among the concerns about this particular site is the fact that at least two buses would need to park along 9^th street as there would not be enough space to accommodate the current or future needs for the transfer hub.  After further evaluation of properties near the intersection of 9^th and Iowa, it appears no other properties could feasibly accommodate the transfer hub.

Downtown: Staff looked at the potential to site the transfer hub Downtown. Linear curb space sufficient to accommodate a transfer hub Downtown does not appear to exist. Curb space at the current temporary location is insufficient. Alternatives, such as a multi-modal facility in an existing parking lot have some merit and are worth further consideration.

Major Corridors: Locations along major corridors in proximity to the city’s center, including Iowa, 6^th and 23^rd streets were evaluated for potential properties that could feasibly accommodate the transfer center. While there are properties worth considering, no single property is without complication. For example, the Eagles Lodge along 6^th street is for sale. That site would work well but complicating factors similar to those at 2021 Stewart Ave exist. Complications include ingress/egress on a major arterial and in close proximity to a major intersection that was recently improved (6^th and Iowa), plus the potential for conflict with neighborhood preferences. Further analysis is needed to guide additional evaluation of locations along the city’s major corridors.

Alternative Service Design:

In both a 2010 “Lawrence Route and Schedule Design for Coordinated Transportation” study and a 2016 “Comprehensive Operational Analysis” consultants were asked to provide recommendations to improve transit service to our community. In both studies consultants provided a variety of recommended changes to route alignments, hours of service, days of service and other operational elements. However, neither consultant made recommendations to change the overall network design of the routes from a hub and spoke system to any other network concept.

Staff recently evaluated various route network designs and found that operating without a centralized transfer hub would necessitate a significant increase of annual operating costs. At the current 30-60 minute service frequency accommodating convenient transfers throughout the service area would be mathematically impossible. The amount of time a passenger would need to wait for a transfer with a less centralized service would greatly increase as a result. In order to reduce the wait time, service would need to be increased from the existing 30-60 minutes to every 15-20 minutes. This increase is projected to double the cost of Transit operation.

Additionally, restructuring service to accommodate a less centralized service would ultimately deemphasize and diminish service in the heaviest traveled corridors in order to accommodate better connectivity for less traveled corridors.  

Next Steps

At the March 21, 2017 City Commission meeting City staff recommended initiating a new consultant-led study to identify locations for the transit transfer hub. The consultant would engage the City Commission and stakeholders to develop criteria to guide the evaluation process. Upon identifying an acceptable transfer hub location, a concept for the transfer center facility – appropriate for that specific location and budget constraints – would be developed. The Commission approved the release of an RFP for this effort but reserved the right proceed with a contract until further information was provided. The Commission is scheduled to consider awarding the contract on April 18^th, the same date it will receive a presentation on the Transit Comprehensive Operational Analysis report.