BC Transit 1998/99 Conceptual Transit Service Plan

ADMINISTRATIVE REPORT
Date: October 14, 1997
File No. 4252-6
CC File No. 5551
TO:Standing Committee on Transportation and Traffic
FROM:General Manager of Engineering Services
SUBJECT:BC Transit 1998/99 Conceptual Transit Service Plan
RECOMMENDATION
A.THAT Council confirm its outstanding requests for transit improvements as listed in Appendix A.
B.THAT substantial resources in the 1998/99 Annual Service Plan be allocated to City bus routes in order to meet increasing service demands, with the following focus (notwithstanding the need for other Appendix A improvements):

-providing more service on bus routes experiencing passups and overcrowding, in all time periods.
-providing peak period express service on selected City transit corridors, based on need.
-adding B-Line Stops on Broadway at Renfrew Street and Clark Drive
C.THAT BC Transit be requested to work with the City to review transit options for the Downtown and Central Area, as per the City’s Transportation Plan (including the Central Broadway/Waterfront Station Route).
D.THAT the local service on Georgia Street provided by North Vancouver buses be made permanent; and further that the local service operation be extended to include West Vancouver buses.
E.THAT the use of buses on Burrard Street between 4th Avenue and the Burrard Bridge, and bus stops on northbound and southbound Burrard Street at 3rd Avenue be approved.
F.THAT BC Transit be thanked for the new services provided in the 1997/98 Annual Service Plan.
G.That BC Transit be requested to provide the City an opportunity to comment on the detailed 1998/99 Annual Service Plan in advance of its approval by the Vancouver Regional Transit Commission.
COUNCIL POLICY
Council approved a Transportation Plan which recognizes that Transit, and not the automobile, will have to accommodate future increases in travel demand.
Council has approved a number of requests for transit service improvements including the Transportation Plan, service design guidelines, additional routes, and new innovative services. Council’s outstanding requests for conventional bus service (i.e. non-rail) are updated and summarized in Appendix A.
SUMMARY
BC Transit is requesting municipal input regarding introducing service improvements for next year’s Annual Service Plan. These are provided in recommendations A, B and C above.
In addition, there is an increasing problem at present with the lack of bus system capacity. Staff plan to report back on the need for BC Transit to revise its 5 Year Plan to respond to this situation.
PURPOSE
This report discusses a City response to BC Transit’s 1998/99 Conceptual Service Plan.
BACKGROUND
The 1998/99 BC Transit Conceptual Service Plan outlines the general strategy and direction for transit service changes in the Region for the coming fiscal year. It is the second of five annual service plans that will implement BC Transit’s Five Year Plan.
BC Transit has circulated the conceptual plan to the municipalities for their input. This input will be used to prepare the more detailed 1998/99 Annual Service Plan. BC Transit plans to present a draft Annual Service Plan to the Vancouver Regional Transit Commission (VRTC) in November and present the final Plan for approval in December.
REVIEW OF THE PREVIOUS (1997/98) ANNUAL SERVICE PLAN
BC Transit introduced a large amount of service in the City last year as part of the 1997/98 Annual Service Plan. About half of the 140,000 new service hours in this plan were added to City routes. Appendix B lists the improvements introduced or soon to be introduced for this year. Highlights include the West End Loop, and the new services for North Shore False Creek and Southeast Vancouver/Fraser Lands.
Two improvements not previously reported to Council are:
-Local Service on Georgia Street
BC Transit effectively created a new east-west local transit link on Georgia Street in the Downtown in June 1997 by allowing Vancouver passengers to load and unload on the North Vancouver buses. BC Transit will be reviewing the success of this 6 month pilot project at the end of the year.
It is recommended Council support the permanent implementation of the service as a major benefit to local transit users in this sector, and further that the local service operation be extended to include West Vancouver buses.
-#44 Downtown /UBC Express Service
A new peak period express service was introduced in September along 4th Avenue between Waterfront Station and UBC (see Appendix C). The service operates every 15-30 minutes. Vancouver riders can load and unload at all stops along Burrard Street in the Downtown and at a limited number of stops outside the Downtown. This route provides a much higher level of service to this corridor. The service replaces two infrequent services to UBC -- the #85 which only operated two trips during the AM Peak periods, and the hourly #286 from North Vancouver.
It is recommended that Council approve the new route on Burrard Street between 4th Avenue and the Burrard Bridge, and the new bus stops on northbound and southbound Burrard Street at 3rd Avenue.
The City sent BC Transit a letter of appreciation for the increased transit service in the Downtown, in February. It is recommended that BC Transit be thanked for all the new services provided in the 1997/98 Annual Service Plan.
In spite of these new services, however, the bus system continues to be overloaded, and passups are frequent. BC Transit recently requested special funding from the VRTC in order to operate an additional 20 to 30 buses to assist in reducing this problem. The continuingincreases in ridership in spite of these service deficiencies, suggests there is a strong latent demand for more service.
1998/99 CONCEPTUAL SERVICE PLAN
The 1998/99 Conceptual Service Plan (available in the City Clerk’s office) proposes to add 100,000 service hours next year, which represents about a 3% increase in bus service annually. It is planned to increase the bus fleet by about 2% with 21 articulated buses. This is consistent with the 5 Year Plan, but much less service than would be required to meet the objectives of Transport 2021.
This section presents detailed comments on the general projects proposed by BC Transit in the conceptual plan. An excerpt from BC Transit’s proposals is provided in Appendix D.
In general, it is recommended that Council confirm its previous outstanding requests for transit service, as listed in Appendix A, and that BC Transit be so informed. It is also recommended that a substantial number of service hours in the Annual Service Plan be allocated to the City to address chronic overcrowding and passups on City routes. Regarding priorities, there is a need in the City to add more service strategically in the peak periods and certain other time periods on routes experiencing overcrowding.
Selected major projects proposed by BC Transit for the plan with accompanying City staff comments are as follows:
-Downtown Vancouver Transit Enhancements
BC Transit’s report proposes continuing the process to improve Downtown services, including improving the False Creek North and South services and responding to market research findings regarding the need to service other destinations in the Central Vancouver area such as Gastown/Chinatown.
It is recommended BC Transit be requested to work with the City to review transit options for the Downtown and Central Area including improved bus service to poorly served neighbourhoods, some form of reduced Downtown fare, and a route linking Central Broadway to the Downtown.
Staff will be reporting to Council in early 1998 on the development of a Downtown Transportation Plan. The above recommendation is consistent with this initiative.
-Off-Peak Improvements In The Growth Concentration Area (GCA)
The focus of next year’s transit service plan should be on providing more service in the peak periods. Any service hours added in off-peak periods should be targeted to routes clearly experiencing midday crowding and to alleviate passup/crowding problems on buses during the shoulders of the peak travel time periods, i.e. where the higher peak service frequencies change to lower off peak frequencies.
-Transit Priority Measures
The City has had, and will continue to have, an important role in working with BC Transit on providing beneficial infrastructure improvements and transit priority measures. These measures improve the reliability, quantity and quality of transit service. BC Transit should be encouraged to coordinate cooperatively the implementation of additional measures, per Council’s motions of October 19, 1995 (Appendix A, sections G1 to G4). An example of this approach is the focused comprehensive study on potential priority measures on Granville Street for the Richmond/Vancouver RapidBus project.
-Post-Secondary School Service Enhancements
This project proposes a number of proactive service enhancements to post-secondary institutions, including UBC. More service is required immediately for the #99 B-Line, to deal with crowding and passups. Other problematic services connecting to UBC should be targeted as well. The "U Pass" program should be pursued strongly.
-Urban Express Service
Express services are particularly valuable because they add service where needed, make more efficient use of buses, and provide service more competitive with the automobile. The success of the #99 B-Line demonstrates this.
A number of these new services could be introduced. Possible improvements include some form of peak period express services on Main and Knight Streets. B-Line stops should be added on Broadway at Renfrew Street and Clark Drive. Stops for the #99 B-Line will be added soon on 10th Avenue in the vicinity of Blanca Street.
-Accessible Diesel Buses On Trolley Routes
BC Transit does not plan to purchase trolley buses in the near term, although a number of surplus trolleys may exist in Edmonton. As a result, diesel buses will have to be added to trolley bus routes if service is to be improved in the short term. One benefit is that diesel buses are wheelchair accessible and trolley buses are not.
In addition, while it is appreciated that BC Transit is giving the City an opportunity to provide comments at this conceptual stage, it is recommended that BC Transit also provide the City an opportunity to comment on the detailed Annual Service Plan in advance of VRTC approval.
LONG-TERM TRANSIT PLANNING
Negotiations are currently underway regarding governance and cost sharing in order to provide effective funding, management and future enhancements of the transit system. However, this will take time. In the interim, there appears to be a serious problem with lack of bus and SkyTrain capacity. Staff plan to report to Council shortly on the short term need for BC Transit to work with the VRTC and the Province to revise its 5 and 10 Year Plans and operations in order to provide the required additional service. Specific priorities for improvement include providing more vehicles, better productivity (e.g. reduced absenteeism), low-cost contracted-out small bus services, and up-to-date technology to control on-street bus positions and count passengers. The June 1997 Auditor General of British Columbia’s report proposes many improvements in these areas and will be discussed as well.
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SELECTED OUTSTANDING COUNCIL REQUESTS TO BC TRANSIT AND/OR THE VANCOUVER REGIONAL TRANSIT COMMISSION FOR CONVENTIONAL TRANSIT SERVICE (I.E. NOT INCLUDING RAIL TECHNOLOGY, OR SPECIAL SERVICES FOR THE DISABLED) NOTE: IN GENERAL, ITEMS ESSENTIALLY COMPLETED OR NO LONGER APPLICABLE HAVE BEEN REMOVED FROM THE LIST.

The Vancouver Regional Transit Commission (VRTC) was forwarded a number of suggested transit minimum level-of-service standards for input into the BC Transit study on Service Design Guidelines (originally approved April 21, 1994; reaffirmed Feb 22, 1996).
The items below were forwarded to BC Transit and/or the Vancouver Regional Transit Commission for input into the appropriate transit planning and operations processes (Items B1 to C1 were originally approved April 21, 1994; items B1 to F3 were reaffirmed or approved February 22, 1996):
B1.That BC Transit and City Engineering staff undertake an ongoing program of improving personal safety conditions at transit facilities (including stations, bus loops and stops) in Vancouver, and report to Council as necessary on additional costs.
B2.That more detailed data be collected (e.g., through the use of operators and on-board automatic data recording devices) regarding ridership, maximum loadings, reliability, etc., in order to improve the decision making process for an efficient transit system and to apply the service design guideline recommendations above.
B3.That better field supervision be provided (potentially including the introduction of an Automatic Vehicle Location and Control [AVLC] system on selected routes) to control the positions of buses on the street network to meet the guidelines above, and for security purposes.
B4.That improved public information systems be provided, including:
-maximum 5-minute wait for telephone transit information.
-consideration of innovative public timetable designs, eg., including travel time information and simplified format.
-improved driver training for customer relations.
-posted route information at appropriate bus stops.
B5.That transit service on heavily used corridors (e.g., Broadway) be expedited with proof-of-payment systems (i.e., loading at both doors for passengers with transfers) and "move to the rear" programs to better balance loads, reduce crowding, and decrease pass-ups.
B6.That bicycles carried by external bus racks be permitted on appropriate routes.
B7.That the City's previous requests for the following service improvements be confirmed: ...
-First Avenue Service.
-Stanley Park - service extension into the park.
B8.That the planned new express services on Granville Street ... be implemented as soon as possible.
B9.That the potential for other new express routes in the City be investigated.
B10.That guidelines be developed to evaluate potential express routes, including a minimum productivity measure and a travel time savings warrant.
B11.That articulated buses for selected City transit services be acquired as soon as possible in advance of the current schedule for the trolley fleet replacement program, in order to reduce on-board crowding levels.
B12.That economical small bus operations be implemented in the City where service has been withdrawn:
-in Vancouver Heights/Bridgeway (e.g., Cambridge Street)...
-in West Point Grey/UBC - (the #42 service will be discontinued on Sundays, except in summer).
B13.That economical small bus/van services be considered in low-density areas beyond 450 metres from existing routes (eg., Southlands), for Community Bus Routes designed for the elderly, or for innovative Route Deviation (e.g., Dial-a-Bus) services in off-peak times.
C1.That BC Transit be requested to use electrified trolleys as much as possible on West End routes.
D1.That the #22 Knight/Macdonald service be extended to Dunbar Loop (previously reaffirmed by Council on January 13, 1994).
D2.Council on January 14, 1992, supported a BC Transit concept for improved service to the Vancouver International Airport including direct service to the Downtown.
E1.That the Vancouver Regional Transit Commission request BC Transit to reinvestigate the potential to provide a more economical minibus service than the service that has been proposed, in order to serve the low-ridership and special-needs areas of the City and Region;
E2.That BC Transit be urged to add appropriate signage to bus destination sign rollers, or to electronic signs located at the front of buses indicating "FULL -BUS FOLLOWING".
E3.THAT Council request the Vancouver Regional Transit Commission and BC Transit to expand the minibus program proposed by BC Transit to include routes in Vancouver and, in the meantime, to look into other provisions, i.e., Van Pools, to ensure communities are not isolated due to the lack of transit.
F1.THAT BC Transit develop options for a new route linking Central Broadway, the Downtown and Waterfront Station.
F2.THAT BC Transit consider providing more innovative fare policies in order to encourage ridership, such as group based discounts for educational, other government and major employment institutions.
F3.Council on June 20, 1989 requested the Vancouver Regional Transit Commission to consider further the adoption of:
-a fourth fare zone including a review of Tsawwassen in the fourth zone;
-differential zone fares in the off-peak with off-peak fares less than the peak fares;
-Downtown Loop fare zone.
Approved October 19, 1995:
G1.THAT Council support the proposal that BC Transit coordinate a program leading to the implementation of transit priority measures in the Region, while retaining the right to approve and implement individual projects in the City.
G2.THAT the General Manager of Engineering Services report back to Council for approval of individual projects as they proceed including process, community consultation, cost sharing and implementation arrangements.
G3.THAT the consultation process include residents and commercial businesses directly affected by any bus/HOV lane proposals.
G4.THAT BC Transit be requested to form a Staff Advisory Committee, including representatives from the GVRD and member cities, to review and advise BC Transit on project priorities, cost sharing and other matters common to the proposed Program.
Approved October 10, 1996:
H1THAT Council recommend to the Vancouver Regional Transit Commission that generally, the first few years of the Five Year Plan focus resources into the inner area of the Regional Growth Concentration Area.
Approved March 11, 1997:
I1.THAT BC Transit be requested to provide additional express bus stops on Broadway at Renfrew Street and Clark Drive, and on 10th Avenue in the vicinity of Blanca Street.
I2.THAT the Vancouver Regional Transit Commission not approve any reduction in the frequency of service of the #9 Broadway bus route until a comprehensive ridership review of both the #9 and #99 services is complete and overloads on the #9 are significantly reduced.
Approved March 25, 1997:
J1.THAT in the absence of proven alternate fuel technology, BC Transit, while conducting their review process for new technologies, including European technology, acquire replacement trolley vehicles to both maintain and augment transit service on existing routes in Vancouver.
J2THAT BC Transit continue its research of quiet, alternatively fuelled vehicles, for consideration on new routes and express service applications in Vancouver, with the understanding Council’s preference is an expanded trolley system where feasible.
Approved April 8 1997:
K1.THAT BC Transit be requested to provide at least a 12 minute service frequency for the daytime Monday to Saturday False Creek North route.
K2.THAT BC Transit be requested to review the proposed evening, Sunday and holiday route for False Creek North and Beach Avenue over the next year, to determine whether a more frequent or less circuitous service should be provided.
Approved June 3, 1997:
L1.THAT BC Transit be requested to investigate as a high priority the potential for moving the layby for the West End transit services from Denman and Davie Streets to the eastern Entertainment District in order to provide a continuous transit connection between the Davie, Denman and Robson Street commercial/residential neighbourhoods, as illustrated in Appendix E of the Administrative Report dated May 20, 1997.
L2.THAT the VRTC consider, in the future, increasing peak period fares relative to the off-peak fares to encourage off-peak ridership and to more closely mirror the actual cost of providing peak period service.
On May 27, 1997 Council approved the Vancouver Transportation Plan, which includes a number of requests for improved transit service
APPENDIX B: 1998/99 Transit Service Improvements - City of Vancouver
-Direct wheelchair accessible express service between North Burnaby and Downtown Vancouver, on Hastings Street
-Improved #99 B-Line frequencies
-New #2 and revised #1 routes serving False Creek North and Pacific Boulevard
-New evening and Sunday/holiday service for Beach Avenue and Yaletown
-Improved #5 and #6 trolley services connecting the West End with the east end of the Downtown (the West End Loop), and higher frequencies
-New service to Fraser Lands with #29 route extension along Marine Drive
-New local service on Georgia Street using existing North Vancouver services
-Peak Period Improvements:
-new #44 peak period express between Waterfront Station and UBC
-improved frequencies on #4, #5, # 6, # 7,# 8, # 15, # 20 services
-Off-Peak Period Service Improvements
-improved weekday midday frequency between Joyce Station and Dunbar Loop from every 10 to every 8-9 minutes
-improved frequencies on #3, #5, #6, #8, #10, #15, #17, #20 routes
-improved midday Monday to Saturday frequency between Marpole and the Airport from every 30 to every 15 minutes
-earlier Sunday/holiday #19 service
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