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TRANSIT
TCRP
SYNTHESIS 64
COOPERATIVE
RESEARCH
PROGRAM
Sponsored by
the Federal
Transit Administration
Bus Use of Shoulders
A Synthesis of Transit Practice
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TCRP OVERSIGHT AND PROJECT TRANSPORTATION RESEARCH BOARD EXECUTIVE COMMITTEE 2006 (Membership as of March 2006)
SELECTION COMMITTEE
(as of March 2006) OFFICERS
CHAIR Chair: Michael D. Meyer, Professor, School of Civil and Environmental Engineering, Georgia Institute
DAVID A. LEE of Technology
Connecticut Transit Vice Chair: Linda S. Watson, Executive Director, LYNX--Central Florida Regional Transportation Authority
Executive Director: Robert E. Skinner, Jr., Transportation Research Board
MEMBERS
ANN AUGUST MEMBERS
Santee Wateree Regional Transportation
Authority MICHAEL W. BEHRENS, Executive Director, Texas DOT
LINDA J. BOHLINGER ALLEN D. BIEHLER, Secretary, Pennsylvania DOT
HNTB Corp. JOHN D. BOWE, Regional President, APL Americas, Oakland, CA
ROBERT I. BROWNSTEIN LARRY L. BROWN, SR., Executive Director, Mississippi DOT
PB Consult, Inc. DEBORAH H. BUTLER, Vice President, Customer Service, Norfolk Southern Corporation and Subsidiaries,
SANDRA K. BUSHUE Atlanta, GA
FTA ANNE P. CANBY, President, Surface Transportation Policy Project, Washington, DC
PETER CANNITO DOUGLAS G. DUNCAN, President and CEO, FedEx Freight, Memphis, TN
Metropolitan Transportation Authority--
NICHOLAS J. GARBER, Henry L. Kinnier Professor, Department of Civil Engineering, University
Metro North Railroad
GREGORY COOK of Virginia, Charlottesville
Ann Arbor Transportation Authority ANGELA GITTENS, Vice President, Airport Business Services, HNTB Corporation, Miami, FL
NATHANIEL P. FORD GENEVIEVE GIULIANO, Professor and Senior Associate Dean of Research and Technology, School
San Francisco MUNI of Policy, Planning, and Development, and Director, METRANS National Center for Metropolitan
RONALD L. FREELAND Transportation Research, USC, Los Angeles
Booz Allen Hamilton, Inc. SUSAN HANSON, Landry University Prof. of Geography, Graduate School of Geography, Clark University
FRED M. GILLIAM JAMES R. HERTWIG, President, CSX Intermodal, Jacksonville, FL
Capital Metropolitan Transportation Authority ADIB K. KANAFANI, Cahill Professor of Civil Engineering, University of California, Berkeley
KIM R. GREEN HAROLD E. LINNENKOHL, Commissioner, Georgia DOT
GFI GENFARE SUE MCNEIL, Professor, Department of Civil and Environmental Engineering, University of Delaware
JILL A. HOUGH
DEBRA L. MILLER, Secretary, Kansas DOT
North Dakota State University
JOHN INGLISH MICHAEL R. MORRIS, Director of Transportation, North Central Texas Council of Governments
Utah Transit Authority CAROL A. MURRAY, Commissioner, New Hampshire DOT
JEANNE W. KRIEG JOHN R. NJORD, Executive Director, Utah DOT
Eastern Contra Costa Transit Authority SANDRA ROSENBLOOM, Professor of Planning, University of Arizona, Tucson
CELIA G. KUPERSMITH HENRY GERARD SCHWARTZ, JR., Senior Professor, Washington University
Golden Gate Bridge, Highway MICHAEL S. TOWNES, President and CEO, Hampton Roads Transit, Hampton, VA
and Transportation District C. MICHAEL WALTON, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas at Austin
PAUL J. LARROUSSE
National Transit Institute EX OFFICIO MEMBERS
CLARENCE W. MARSELLA
Denver Regional Transportation District MARION C. BLAKEY, Federal Aviation Administrator, U.S.DOT
FAYE L. M. MOORE JOSEPH H. BOARDMAN, Federal Railroad Administrator, U.S.DOT
Southeastern Pennsylvania Transportation REBECCA M. BREWSTER, President and COO, American Transportation Research Institute, Smyrna, GA
Authority GEORGE BUGLIARELLO, Chancellor, Polytechnic University of New York, and Foreign Secretary,
MICHAEL H. MULHERN National Academy of Engineering
Jacobs Civil, Inc. SANDRA K. BUSHUE, Deputy Administrator, Federal Transit Administration, U.S.DOT
STEPHANIE L. PINSON J. RICHARD CAPKA, Acting Administrator, Federal Highway Administration, U.S.DOT
Gilbert Tweed Associates, Inc. THOMAS H. COLLINS (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard
ROBERT H. PRINCE, JR. JAMES J. EBERHARDT, Chief Scientist, Office of FreedomCAR and Vehicle Technologies, U.S. DOE
DMJM+Harris
JEFFREY M. ROSENBERG JACQUELINE GLASSMAN, Deputy Administrator, National Highway Traffic Safety Administration, U.S.DOT
Amalgamated Transit Union EDWARD R. HAMBERGER, President and CEO, Association of American Railroads
MICHAEL SCANLON JOHN C. HORSLEY, Exec. Dir., American Association of State Highway and Transportation Officials
San Mateo County Transit District JOHN E. JAMIAN, Acting Administrator, Maritime Administration, U.S.DOT
BEVERLY SCOTT J. EDWARD JOHNSON, Director, Applied Science Directorate, National Aeronautics
Sacramento Regional Transit District and Space Administration
KATHRYN D. WATERS ASHOK G. KAVEESHWAR, Research and Innovative Technology Administrator, U.S.DOT
Dallas Area Rapid Transit BRIGHAM MCCOWN, Deputy Administrator, Pipeline and Hazardous Materials Safety Administration,
FRANK WILSON U.S.DOT
Metropolitan Transit Authority WILLIAM W. MILLAR, President, American Public Transportation Association
of Harris County SUZANNE RUDZINSKI, Director, Transportation and Regional Programs, U.S. EPA
EX OFFICIO MEMBERS ANNETTE M. SANDBERG, Federal Motor Carrier Safety Administrator, U.S.DOT
WILLIAM W. MILLAR JEFFREY N. SHANE, Under Secretary for Policy, U.S.DOT
APTA CARL A. STROCK (Maj. Gen., U.S. Army), Chief of Engineers and Commanding General,
ROBERT E. SKINNER, JR. U.S. Army Corps of Engineers
TRB
JOHN C. HORSLEY TRANSIT COOPERATIVE RESEARCH PROGRAM
AASHTO
J. RICHARD CAPKA Transportation Research Board Executive Committee Subcommittee for TCRP
FHWA MICHAEL D. MEYER, Georgia Institute of Technology (Chair)
SANDRA K. BUSHUE, Federal Transit Administration, U.S.DOT
TDC EXECUTIVE DIRECTOR
WILLIAM W. MILLAR, American Public Transportation Association
LOUIS SANDERS
APTA JOHN R. NJORD, Utah DOT
ROBERT E. SKINNER, JR., Transportation Research Board
SECRETARY MICHAEL S. TOWNES, Hampton Roads Transit, Hampton, VA
ROBERT J. REILLY C. MICHAEL WALTON, University of Texas at Austin
TRB LINDA S. WATSON, LYNX--Central Florida Regional Transportation Authority
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TRANSIT COOPERATIVE RESEARCH PROGRAM
TCRP SYNTHESIS 64
Bus Use of Shoulders
A Synthesis of Transit Practice
CONSULTANT
PETER C. MARTIN
Wilbur Smith Associates
San Francisco, California
S UBJECT A REAS
Public Transit
Research Sponsored by the Federal Transit Administration in Cooperation with
the Transit Development Corporation
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2006
www.TRB.org
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TRANSIT COOPERATIVE RESEARCH PROGRAM TCRP SYNTHESIS 64
The nation's growth and the need to meet mobility, environ- Price $35.00
mental, and energy objectives place demands on public transit
Project J-7, Topic SD-03
systems. Current systems, some of which are old and in need of
ISSN 1073-4880
upgrading, must expand service area, increase service frequency,
ISBN 0-309-09767-3
and improve efficiency to serve these demands. Research is nec-
Library of Congress Control Number 2006925244
essary to solve operating problems, to adapt appropriate new
technologies from other industries, and to introduce innovations © 2006 Transportation Research Board
into the transit industry. The Transit Cooperative Research Pro-
gram (TCRP) serves as one of the principal means by which the
transit industry can develop innovative near-term solutions to COPYRIGHT PERMISSION
meet demands placed on it.
The need for TCRP was originally identified in TRB Special Authors herein are responsible for the authenticity of their materials and for
Report 213--Research for Public Transit: New Directions, pub- obtaining written permissions from publishers or persons who own the
lished in 1987 and based on a study sponsored by the Federal copyright to any previously published or copyrighted material used herein.
Transit Administration (FTA). A report by the American Public Cooperative Research Programs (CRP) grants permission to reproduce
Transportation Association (APTA), Transportation 2000, also material in this publication for classroom and not-for-profit purposes.
Permission is given with the understanding that none of the material will be
recognized the need for local, problem-solving research. TCRP,
used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FTA, or Transit
modeled after the longstanding and successful National Coopera-
Development Corporation endorsement of a particular product, method, or
tive Highway Research Program, undertakes research and other practice. It is expected that those reproducing the material in this document
technical activities in response to the needs of transit service provid- for educational and not-for-profit uses will give appropriate acknowledgment
ers. The scope of TCRP includes a variety of transit research of the source of any reprinted or reproduced material. For other uses of the
fields including planning, service configuration, equipment, fa- material, request permission from CRP.
cilities, operations, human resources, maintenance, policy, and ad-
ministrative practices.
TCRP was established under FTA sponsorship in July 1992.
NOTICE
Proposed by the U.S. Department of Transportation, TCRP was
authorized as part of the Intermodal Surface Transportation Effi- The project that is the subject of this report was a part of the Transit Coop-
ciency Act of 1991 (ISTEA). On May 13, 1992, a memorandum erative Research Program conducted by the Transportation Research Board
agreement outlining TCRP operating procedures was executed by with the approval of the Governing Board of the National Research Coun-
the three cooperating organizations: FTA, the National Academy of cil. Such approval reflects the Governing Board's judgment that the project
Sciences, acting through the Transportation Research Board concerned is appropriate with respect to both the purposes and resources of
(TRB); and the Transit Development Corporation, Inc. (TDC), a the National Research Council.
nonprofit educational and research organization established by The members of the technical advisory panel selected to monitor this
project and to review this report were chosen for recognized scholarly com-
APTA. TDC is responsible for forming the independent govern-
petence and with due consideration for the balance of disciplines appropri-
ing board, designated as the TCRP Oversight and Project Selec-
ate to the project. The opinions and conclusions expressed or implied are
tion (TOPS) Committee. those of the research agency that performed the research, and while they
Research problem statements for TCRP are solicited periodi- have been accepted as appropriate by the technical panel, they are not nec-
cally but may be submitted to TRB by anyone at any time. It is essarily those of the Transportation Research Board, the Transit Develop-
the responsibility of the TOPS Committee to formulate the re- ment Corporation, the National Research Council, or the Federal Transit
search program by identifying the highest priority projects. As Administration of the U.S. Department of Transportation.
part of the evaluation, the TOPS Committee defines funding Each report is reviewed and accepted for publication by the technical
levels and expected products. panel according to procedures established and monitored by the Transporta-
Once selected, each project is assigned to an expert panel, ap- tion Research Board Executive Committee and the Governing Board of the
pointed by TRB. The panels prepare project statements (requests National Research Council.
for proposals), select contractors, and provide technical guidance
and counsel throughout the life of the project. The process for
developing research problem statements and selecting research The Transportation Research Board of The National Academies, the
agencies has been used by TRB in managing cooperative re- Transit Development Corporation, the National Research Council, and the
search programs since 1962. As in other TRB activities, TCRP Federal Transit Administration (sponsor of the Transit Cooperative
project panels serve voluntarily without compensation. Research Program) do not endorse products or manufacturers. Trade or
Because research cannot have the desired impact if products manufacturers' names appear herein solely because they are considered
fail to reach the intended audience, special emphasis is placed on essential to the clarity and completeness of the project reporting.
disseminating TCRP results to the intended end users of the re-
search: transit agencies, service providers, and suppliers. TRB
provides a series of research reports, syntheses of transit practice, Published reports of the
and other supporting material developed by TCRP research.
APTA will arrange for workshops, training aids, field visits, and TRANSIT COOPERATIVE RESEARCH PROGRAM
other activities to ensure that results are implemented by urban are available from:
and rural transit industry practitioners.
Transportation Research Board
The TCRP provides a forum where transit agencies can coop- Business Office
eratively address common operational problems. The TCRP results 500 Fifth Street, NW
support and complement other ongoing transit research and train- Washington, DC 20001
ing programs. and can be ordered through the Internet at
http://www.national-academies.org/trb/bookstore
Printed in the United States of America
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The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished schol-
ars engaged in scientific and engineering research, dedicated to the furtherance of science and technology
and to their use for the general welfare. On the authority of the charter granted to it by the Congress in
1863, the Academy has a mandate that requires it to advise the federal government on scientific and techni-
cal matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Acad-
emy of Sciences,
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Academy organization
of Sciences of outstanding
is a private, nonprofit,engineers. It is autonomous
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and to their use for the general welfare. On the authority of the charter granted to it by the Congress in programs
aimed at meeting
1863, the Academy national needs, encourages
has a mandate education
that requires andthe
it to advise research,
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government on the superior
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to the
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ments of engineers. Dr. William A. Wulf is president of the National Academy of Engineering.
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the broad community of science and technology with the Academy's purposes of furthering knowledge and
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www.national-academies.org
than 5,000 engineers, scientists, and other transportation researchers and practitioners from the public and
private sectors and academia, all of whom contribute their expertise in the public interest. The program is
supported by state transportation departments, federal agencies including the component administrations of
the U.S. Department of Transportation, and other organizations and individuals interested in the
development of transportation. www.TRB.org
www.national-academies.org
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TCRP COMMITTEE FOR PROJECT J-7 COOPERATIVE RESEARCH PROGRAM STAFF
ROBERT J. REILLY, Director, Cooperative Research Programs
CHAIR CHRISTOPHER W. JENKS, Manager, TCRP
FRANK T. MARTIN EILEEN DELANEY, Director of Publications
PBS&J, Tallahassee, FL
TCRP SYNTHESIS STAFF
MEMBERS STEPHEN R. GODWIN, Director for Studies
DEBRA W. ALEXANDER and Information Services
Capital Area Transportation Authority, Lansing, MI JON WILLIAMS, Manager, Synthesis Studies
DWIGHT FERRELL DONNA L. VLASAK, Senior Program Officer
The Ferrell Group, Richardson, TX DON TIPPMAN, Editor
MARK W. FURHMANN CHERYL Y. KEITH, Senior Secretary
Metro Transit, Minneapolis, MN
ROBERT H. IRWIN TOPIC PANEL
British Columbia Transit, Victoria, BC, Canada GRAHAM CAREY, Lane Transit District
PAUL J. LARROUSSE RON DROLET, British Columbia Transit
National Transit Institute, New Brunswick, NJ RICHARD A. CUNARD, Transportation Research Board
WADE LAWSON AARON ISAACS, Twin Cities Metro Transit
South Jersey Transportation Authority, Atlantic City, NJ HERBERT S. LEVINSON, New Haven,Connecticut
DAVID A. LEE CATHERINE C. MCGHEE, Virginia Department
Connecticut Transit, Hartford, CT of Transportation
DAVID PHELPS DAVID E. SCHUMACHER, San Diego Association
Consultant, Moneta, VA of Governments
HAYWARD M. SEYMORE, III HAK-CHUL SHIN, Jackson State University
Laidlaw Transit Services, Inc., University Place, WA R. SCOTT ZELLER, Washington State Department
PAM WARD of Transportation
Ottumwa Transit Authority, Ottumwa, IA JEFFREY A. LINDLEY, Federal Highway Administration
JOEL R. WASHINGTON (Liaison)
Washington Metropolitan Area Transit Authority, Washington, DC VENKAT PINDIPROLU, Federal Transit Administration
(Liaison)
FTA LIAISON
KAREN FACEN
Federal Highway Administration
TRB LIAISON
PETER SHAW
Transportation Research Board
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FOREWORD Transit administrators, engineers, and researchers often face problems for which in-
By Staff formation already exists, either in documented form or as undocumented experience and
Transportation practice. This information may be fragmented, scattered, and unevaluated. As a conse-
Research Board quence, full knowledge of what has been learned about a problem may not be brought to
bear on its solution. Costly research findings may go unused, valuable experience may be
overlooked, and due consideration may not be given to recommended practices for solv-
ing or alleviating the problem.
There is information on nearly every subject of concern to the transit industry. Much
of it derives from research or from the work of practitioners faced with problems in their
day-to-day work. To provide a systematic means for assembling and evaluating such use-
ful information and to make it available to the entire transit community, the Transit Co-
operative Research Program Oversight and Project Selection (TOPS) Committee author-
ized the Transportation Research Board to undertake a continuing study. This study,
TCRP Project J-7, "Synthesis of Information Related to Transit Problems," searches out
and synthesizes useful knowledge from all available sources and prepares concise,
documented reports on specific topics. Reports from this endeavor constitute a TCRP re-
port series, Synthesis of Transit Practice.
This synthesis series reports on current knowledge and practice, in a compact format,
without the detailed directions usually found in handbooks or design manuals. Each re-
port in the series provides a compendium of the best knowledge available on those meas-
ures found to be the most successful in resolving specific problems.
PREFACE This synthesis documents and summarizes transit agencies' experiences with policies and
regulations that permit buses to use shoulders on arterial roads or freeways to bypass con-
gestion either as interim or long-term treatments. Both the transit and highway perspectives
are explored. The purpose is to identify and obtain information and experience about juris-
dictions that allow bus use of shoulders and about how jurisdictions have considered, but
have not implemented, these treatments and the reasons why. This topic will be of interest
to transit agency and highway organization staff responsible for bus use of shoulders. They
can use this report to learn from and compare their experiences with the experiences of other
agencies.
Findings in this report are based on a literature review, surveys of selected transit agen-
cies and roadway jurisdictions, analysis of documentation submitted, as well as interviews
and site visits. Case study descriptions were prepared for the following six regions:
MinneapolisSt. Paul Twin Cities (Minnesota); Falls Church, Virginia; Miami, Florida;
San Diego, California; Toronto, Canada; and Dublin, Ireland.
Peter C. Martin, Wilbur Smith Associates, San Francisco, California, collected and syn-
thesized the information and wrote the paper, under the guidance of a panel of experts in
the subject area. The members of the Topic Panel are acknowledged on the preceding page.
This synthesis is an immediately useful document that records the practices that were
acceptable within the limitations of the knowledge available at the time of its preparation.
As progress in research and practice continues, new knowledge will be added to that now
at hand.
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CONTENTS
1 SUMMARY
3 CHAPTER ONE INTRODUCTION
Background, 3
Scope, 4
Definitions and Acronyms, 4
Report Organization, 4
5 CHAPTER TWO OVERVIEW OF FINDINGS
Survey Responses, 5
Current Bus Use of Shoulder Locations, 5
Bus Use of Shoulder Concerns, 17
Operational Experience, 18
Intelligent Transportation Systems, 19
20 CHAPTER THREE CASE STUDIES
Case Study 1--MinneapolisSt. Paul Twin Cities, 20
Case Study 2--Falls Church, Virginia, 26
Case Study 3--Miami, Florida, 28
Case Study 4--San Diego, California, 29
Case Study 5--Toronto, Ontario, 32
Case Study 6--Dublin, Ireland, 36
40 CHAPTER FOUR CONCLUSIONS AND FURTHER RESEARCH
42 REFERENCES
43 APPENDIX A SCREENING QUESTIONNAIRES
52 APPENDIX B SURVEY RESPONDENTS
54 APPENDIX C SUPPORTING MATERIALS FROM CASE STUDIES
