I-85 CORRIDOR LIGHT RAIL TRANSIT FEASIBILITY STUDY
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1 May 2009 I-85 CORRIDOR LIGHT RAIL TRANSIT FEASIBILITY STUDY Executive Summary Prepared for: Gwinnett Village Community Improvement District 1412 Oakbrook Drive, Suite 181 Norcross, Georgia Gwinnett Place Community Improvement District 3700 Crestwood Parkway, Suite 680 Duluth, Georgia Prepared by: HDR Engineering, Inc Peachtree Street, Suite 2210 Atlanta, Georgia
2 I-85 CORRIDOR LIGHT RAIL TRANSIT FEASIBILITY STUDY Executive Summary Prepared for: Gwinnett Village Community Improvement District 1412 Oakbrook Drive, Suite 181 Norcross, Georgia Gwinnett Place Community Improvement District 3700 Crestwood Parkway, Suite 680 Duluth, Georgia Prepared by: HDR Engineering, Inc Peachtree Street, Suite 2210 Atlanta, Georgia May 2009
3 Table of Contents 1 Introduction Alternatives Refinement Technology Assessment Conceptual Engineering Track Alignment Station Locations Maintenance Facility Technical Analysis Travel Demand Forecasting Operating Plans Operating and Maintenance Cost Estimates Capital Cost Estimates Limited Environmental Assessment Evaluation and Recommendations Funding Opportunities About This Report...13 Table of Tables Table 1: Comparison of Transit Technology Options... 2 Table 2: Alignment Alternatives... 3 Table 3: Estimated Daily Boardings per Station... 7 Table 4: Summary of Operating Requirements... 8 Table 5: Capital Cost Estimates... 8 Table 6: Evaluation Matrix... 10
4 1 INTRODUCTION The was commenced in September, 2008 to evaluate the technical and financial viability of a light rail line in Gwinnett County. The project co-sponsors, Gwinnett Village Community Improvement District and Gwinnett Place Community Improvement District, initiated the project to explore the potential benefit of serving the I-85 corridor with light rail transit (LRT). Figure 1 displays the extent of the corridor examined for the I-85 Corridor LRT Feasibility Study. Figure 1: I-85 LRT Study Corridor As part of this study, conceptual LRT alignments and station locations were identified and analyzed. Capital and operating costs were estimated for each alternative along with a basic ridership forecast and environmental screening. The preferred alignment, which was developed alongside the project sponsors and in conjunction with a number of stakeholders, was evaluated to determine its relative strengths compared to other recently implemented LRT systems. Finally, a number of funding opportunities at both the federal and local levels were identified. The results of this analysis are summarized herein and presented in greater detail in Executive Summary 1
5 the following sections of the final report. 2 ALTERNATIVES REFINEMENT 2.1 Technology Assessment A technology assessment was conducted to evaluate the various transit technology options for the I-85 corridor. Heavy rail transit (HRT), light rail transit (LRT), and modern streetcar were evaluated as part of this analysis. Table 1 displays a comparison of each mode by operating variable. Heavy rail is the most capital-intensive transit mode, while modern streetcar is typically the least expensive mode to build. However, HRT provides the highest capacity and operating speeds. Light rail transit, which can be classified into two categories high cost, exclusive right-of-way and moderate cost, shared right-of-way provides a balance between HRT and streetcar, as it offers operating speeds and capacity that can compete with heavy rail at a fraction of the capital cost. Table 1: Comparison of Transit Technology Options Light Rail Light Rail Heavy Rail Exclusive Right of Streetcar Shared Right of Way Way Cost/Mile $ million $ million $25-60 million $15-30 million Seated Capacity/Train Service Range Up to 30 Miles Up to 20 Miles Up to 15 Miles 2 to 10 Miles Maximum Speed MPH MPH MPH MPH Average Speed MPH MPH MPH 8-15 MPH Station Spacing > 1 Mile 1/2 to 1 Mile 1/2 to 1 Mile ¼ to ½ Mile Executive Summary 2
6 3 CONCEPTUAL ENGINEERING The conceptual engineering phase of the I-85 Corridor LRT Feasibility Study involved identifying preliminary track alignments, station locations, and maintenance facility sites. Substantial data analysis and field assessments along with evaluation of existing land use and transportation plans provided the information necessary to develop conceptual LRT routes and station locations. 3.1 Track Alignment Six preliminary track alignment options were identified and screened based on the following factors: Right-of-way availability Land use compatibility Future land use plans, both at the CID and County levels Topographic constraints Potential impacts to street traffic operations Availability of adjacent land for maintenance facility Additionally, coordination meetings were held with other stakeholder agencies including MARTA and the Gwinnett County Department of Transportation in order to further vet and refine the alignment alternatives. Based on input from these agencies and CID staff, a preferred alternative was developed for further analysis. Table 2 provides a brief description of each alternative, while Figure 2 graphically displays each alignment alternative. Table 2: Alignment Alternatives Alternative Route One-Way Travel Miles Time (Mins) Description Preferred Industrial Corridor / Satellite Blvd. / Satellite Blvd. Alternative Industrial Corridor / Venture Dr. / Utility Corridor Alternative Jimmy Carter Blvd. / Satellite Blvd. / Satellite Blvd. Alternative Industrial Corridor / Venture Dr. / Satellite Blvd. Alternative Jimmy Carter Blvd. / Venture Dr. / Utility Corridor Alternative Jimmy Carter Blvd. / Venture Dr. / Satellite Blvd. Executive Summary 3
7 Figure 2: Alignment Alternatives 3.2 Executive Summary 4
8 3.3 Station Locations A total of nine station locations were identified for the Preferred Alternative, as displayed in Figure 3, below. These preliminary station locations were determined based on the following criteria: Topography Current land use Adjacent land uses Redevelopment potential Sufficient size to accommodate the station and ancillary facilities Roadway access Pedestrian access Environmental fatal flaws The stations are classified into two categories: major and neighborhood. Major stations will serve larger office and retail markets and tend to have more amenities and intermodal transfer facilities, while neighborhood stations will be smaller and tend to serve smaller, more pedestrian-oriented market areas. Major stations identified include Norcross, Gwinnett Village, Indian Trail, Pleasant Hill, Gwinnett Place, and Gwinnett Arena. Neighborhood stations identified include Mitchell Road, Liddell Road, and Duluth Highway. Figure 3: Station Locations for Preferred Alternative Executive Summary 5
9 3.4 Maintenance Facility Fourteen preliminary sites, as displayed in Figure 4, were screened for suitability as a possible maintenance facility site for the LRT corridor. In consideration of the costs associated with nonrevenue train movements, the bulk of the sites identified were near either terminus of the alignment. Because most of the land within the corridor is built-out, it is likely that any potential maintenance facility site would have to be redeveloped. Thus, sites were identified and screened based on adjacent land use compatibility and parcel size. It was determined that six sites within the industrial area on the western end of the alignment should be advanced for further analysis and consideration. Figure 4: Maintenance Facility Site Options Executive Summary 6
10 4 TECHNICAL ANALYSIS The Technical Analysis phase of the I-85 Corridor LRT Feasibility Study involved further examination of the alignment options identified in the Conceptual Engineering phase. Highlevel ridership estimates were developed based on existing Transit Planning Board (TPB) travel demand forecasts. LRT operating plans were created and used to develop operating and maintenance cost estimates. Capital costs were estimated based on the preliminary engineering drawings. Finally, a limited environmental analysis was conducted to identify any major environmental fatal flaws. 4.1 Travel Demand Forecasting Estimated daily boardings for the LRT line from Norcross to Gwinnett Arena were developed based on the TPB Concept3 travel demand forecasts which included a line from Cumberland to Gwinnett Arena. This forecast was adapted to include only that ridership that would occur on the Gwinnett County portion of the TPB alignment. Ridership by station, as displayed in Table 3, was estimated based on low, medium, and high land use scenarios. It should be noted that the stations coded for the Concept3 model differ slightly from those stations identified in this study. Thus, these ridership estimations are for proxy use only, and will be further refined in Phase II of the I-85 Corridor LRT Feasibility Study. Table 3: Estimated Daily Boardings per Station Station Total Daily Boardings (2030 Model Year) LRT Low LRT Med. LRT High MARTA HRT Norcross 6,799 9,432 11,839 2,200 Gwinnett Village/Jimmy Carter Blvd ,117 6,000 Indian Trail 1,951 3,030 4,325 3,400 Gwinnett Place 2,966 4,200 5,339 9,300 Old Norcross 692 1,007 1,064 n/a Boggs 1,171 1,453 1,733 n/a Gwinnett Arena 2,024 2,576 3,388 n/a Total: 16,236 22,563 28,805 20, Operating Plans Operating plans for each alternative were developed based on ridership estimations and data provided in the conceptual engineering phase of the project. Operating requirements for each alternative are displayed in Table 4, below. Because the alternatives had only marginal differences in route miles and running time, the operating requirements are similar for each alignment with respect to car-miles, car-hours, train-hours, and peak trains. Executive Summary 7
11 Table 4: Summary of Operating Requirements Route Peak -----Annual Revenue----- Lay Cycle ---Trains--- ALT Miles LRVs Car-Miles Car-Hours Train-Hours Over Time Peak Base Eve. Preferred Alternative ,382, ,760 46, Alternative ,366, ,760 46, Alternative ,339, ,760 46, Alternative ,309, ,760 46, Alternative ,320, ,760 46, Alternative ,263, ,760 46, Operating and Maintenance Cost Estimates Operating and maintenance (O&M) costs were estimated based on the projected operating requirements for each alternative. A fully-allocated cost model was developed using data from nine peer LRT systems. The unit costs for each operating variable derived from these peer systems were applied to corresponding planned units of service for each alternative to estimate total annual O&M costs. Annual O&M costs (estimated in 2009 dollars) range from approximately $25.1 million to $25.6 million. 4.4 Capital Cost Estimates Capital costs were estimated using the Federal Transit Administration s (FTA) Standard Cost Categories (SCC). Standard Cost Categories include all capital components of the LRT construction process. Unit costs for each SCC were developed and applied to the units required for construction of each LRT alternative. The total capital costs and capital cost per mile for each alternative are listed in Table 5, below. Table 5: Capital Cost Estimates Alignment Option Total Cost Length (miles) Cost per Mile Preferred Alternative $1,017 million $73 million Alternative 1 $918 million $67 million Alternative 2 $1,058 million $78 million Alternative 3 $926 million $69 million Alternative 4 $959 million $71 million Alternative 5 $967 million $73 million Executive Summary 8
12 4.5 Limited Environmental Assessment A preliminary screening of the LRT corridor was performed in order to identify any areas of environmental concern. While this exercise does not fulfill or replace any local, state or federal requirements for environmental permitting, it provides a baseline indication as to the potential environmental hazards within the corridor. There were 37 documented sites found within 150 of the preferred alignment, and 279 within the corridor as a whole. Remediation may be required depending on the severity of environmental risk posed at these sites. Executive Summary 9
13 5 EVALUATION AND RECOMMENDATIONS The preferred alternative was evaluated against five peer LRT systems that have been recently constructed or are currently being built. The proposed Gwinnett LRT system compares favorably with regard to capital and operating cost variables. However, the system s ridership received lower ratings compared to the peer system average. Further ridership analysis to be performed during Phase II of this project will allow for greater certainty as to how the Gwinnett system s projected ridership will compete with the peer systems. It is important that the Gwinnett LRT system is rated favorably with regard to these variables as each contributes to the funding formulas dictated by the FTA for New Starts funding. System Phase Projected Ridership (Design Year) Table 6: Evaluation Matrix Daily New Ridership Ridership/Rou te-mile Cost/New Rider Capital Cost (YOE) Capital Cost/Mile Annual O&M Cost (YOE) Annual O&M/Route Mile Gwinnett Norcross to Arena - N/A - N/A Charlotte South Corridor o Houston Downtown to Astrodome o - + o Minneapolis Hiawatha Corridor o Phoenix East Valley + + o + - o - + Seattle Central Link + o Positive rating with regard to criterion o Neutral rating with regard to criterion - Negative rating with regard to criterion Executive Summary 10
14 6 FUNDING OPPORTUNITIES A number of funding opportunities exist to finance a LRT project in Gwinnett County. In addition to federal New Starts grant funding, which typically fund up to half of a project s total capital costs, the following federal and local funding options exist: Development Impact Fees/Benefit Assessment Districts Tax Increment Financing (TIFs) Federal Discretionary Funds Federal Railroad Administration Intercity Passenger Rail Investment Grants Public-Private Partnerships (PPP) Bonding Grant Anticipation Notes TIFIA Loans State Infrastructure Banks Private Donations Dedicated Sales Tax Hotel/Motel Tax Car Rental Tax Vehicle Registration Fee Property Tax for Transit Joint Development on Existing and Planned Facilities Tolls Congestion Pricing Safety Inspection Fee New Resident Impact Fee Distance-based Road User Fee On-going operating and maintenance expenses should also be planned for prior to implementation of a LRT system. While some of the aforementioned funding opportunities for capital expenses may also be applied to operating expenses, funding options for operating and maintenance typically include: Fare revenues Advertising revenues Interest Taxes Federal funding (5307, JARC, CMAQ [in non-attainment areas], STP) Parking revenues Joint development funds. Executive Summary 11
15 7 FINAL REPORT The I-85 Corridor Light Rail Feasibility Study Final Report is divided into four sections. Section 1, Refine Alternatives Final Report, includes the technology assessment report and documentation of the conceptual engineering process. Section 2, Technical Analysis Final Report, documents the technical studies performed for the project including ridership estimation, operating plan development, operating and maintenance cost estimation, capital cost estimation, and a limited environmental assessment. Section 3, Evaluation and Recommendations and Funding Opportunities, detail the evaluation methodology and results and funding opportunities for the proposed LRT project. Finally, Section 4 Station Renderings, includes a number of conceptual renderings for the Gwinnett Village, Mitchell Road, and Gwinnett Place Stations. In the months following preparation of the final report, Phase II of the I-85 Corridor LRT Feasibility Study will be conducted. Phase II will encompass detailed ridership forecasting using a travel demand model specifically coded for the proposed LRT corridor as well as a comprehensive travel market analysis. A third section will provide a detailed framework for advancing the project into the FTA New Starts project development process. Executive Summary 13
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