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Bus Transit Service in Land Development Planning (2006)

Chapter: Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments

« Previous: Chapter Six - Strategies that Support Integration of Bus Transit Service and Land Development Planning
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Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
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Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
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Page 38
Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
×
Page 38
Page 39
Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
×
Page 39
Page 40
Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
×
Page 40
Page 41
Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
×
Page 41
Page 42
Suggested Citation:"Chapter Seven Use and Application of Guidelines to Incorporate Bus Transit Service into New Developments." National Academies of Sciences, Engineering, and Medicine. 2006. Bus Transit Service in Land Development Planning. Washington, DC: The National Academies Press. doi: 10.17226/14002.
×
Page 42

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36 One section of the transit agency survey conducted for this synthesis focused on the use of transit agency development guidelines. Transit agency development guidelines provide a handbook of information on the material needs of transit in the physical environment. The survey probed for the contents of existing guidelines and copies of existing documents were requested. The purpose of this research was to determine if the existence of such guidelines is a helpful tool for transit operators when incorporating bus transit service into land developments. Of the 32 transit agencies responding to the survey, 9 (28%) had developed guidelines and 4 (13%) were in the process of developing guidelines. Appendix C pro- vides a list of the transit agencies that provided transit agency development guidelines. For those agencies that provide their guidelines on-line, links to those websites are provided. The guidelines provided by the respondents covered a wide range of publications. The city of Madison’s (Wisconsin) Development Guide is a guide to the land use and construction approval process. This document is not a transit agency devel- opment guideline, but it does provide a clear description of the land development process in Madison. Because transit agencies may find it an interesting and educational piece, it is listed in Appendix C and is available on-line (http://www.cityofmadi son.com/planning/2005DevBook.pdf). Some guidelines, such as Cleveland’s Transit Waiting Environments (http://www. cudc.kent.edu/d-Service-Learning/PDFs/TWE%20screen%20 shortpdf), and Portland’s Bus Stop Guidelines are primarily dedicated to the improvement of bus stops. Others, such as VTA’s Community Design and Transportation, is one of a mul- tivolume set that incorporates a myriad of issues than can affect transit and land development. All of the documents reflect the issues and concerns that predominate in their community. The guidelines also vary in scale and in topical content. Some agencies provided documents of only a few pages, whereas others, such as VTA, provided multiple volumes. All the guidelines reviewed for this paper included technical specifications for bus vehicle dimensions, bus stop length, and ADA requirements. Most included the physical attributes and specifications for bus stop spacing, bus stop pavements, stop placement, shelter size, turnarounds, and turning radii. Approximately half of the guidelines included recommenda- tions on the characteristics of land developments such as site design, land use, streets, sidewalks, open space, building design, parking, pedestrian amenities, bicycle amenities, security, landscaping, ADA elements, and directness of pedestrian paths. A suggested table of contents for transit agency development guidelines is presented here. Table of Contents Message from Board of Directors Introduction Purpose Guiding principles Specifications for Transit Equipment and Facilities Vehicle dimensions/weight Vehicle turning radius Bus stop location/spacing Bus stop pavement Bus stop size Bus stop identification Bus stop pads Bus stop amenities Special requirements for terminals/turnarounds Information displays Land Use Requirements Land use types Density Street pattern Lane width Intersection radii Curb height/curb cuts Pedestrian access and pathways Pedestrian amenities Lighting Parking design/management Building orientation Building architecture Landscaping References Appendices Acknowledgments PURPOSE AND USE OF GUIDELINES Respondents to the survey provided a brief summary describ- ing the purpose of their guidelines. A typical response to this question was to “Provide specific design guidance to devel- CHAPTER SEVEN USE AND APPLICATION OF GUIDELINES TO INCORPORATE BUS TRANSIT SERVICE INTO NEW DEVELOPMENTS

37 opers and local jurisdictions on transit operating and facility requirements.” Most of the purpose statements included developers as their target audience and wanted to provide information that would improve the transit environment. The responses can be summarized into the following elements: • Provide specific design guidance to developers and jurisdictions, • Ensure that transit elements are built to appropriate specifications, • Ensure adequate access to transit, • Streamline the development process, and • Make all stakeholders aware of the opportunities tran- sit provides. The stated purposes within the guidelines themselves are, of course, much longer but the message remains the same. For example, the LYNX Central Florida Mobility Design Man- ual states that: “This manual is a definitive statement of the actions needed to successfully integrate the physical design of independent projects into comprehensive sustainable com- munities that are served by a balanced transportation system.” Another example, from Pace, the Suburban Bus Division in the Chicago area, states that their Development Guidelines were prepared “to encourage the coordination of real estate development and transit service.” And furthermore, that the “recommendations in this manual are designed to help municipalities and the development community accommo- date transit service in their development plans.” DISTRIBUTION OF GUIDELINES It is unclear from the survey responses how often guidelines are actually used by stakeholders outside of the transit agency. In Florida, the larger developments are subject to a regional review mandated by the state, and the guidelines are required reading for developers when planning those large developments. King County Metro in Seattle and TriMet in Portland noted that developers will receive the guidelines when required as part of the permitting process. For other transit agencies it is not clear how often the guidelines are transmitted to developers. Based on the survey responses, it is apparent that the distribution of guidelines to stakeholders outside of the transit agency can be improved. Eight of the nine transit agencies that have produced guidelines make them available as a printed document. The exception is King County Metro, and their guidelines are available on-line. Also available on-line are the documents produced by Pace Suburban Bus, LYNX, and Cleveland RTA. See Appendix C for links to the on-line versions. VTA in San Jose, California, has a PowerPoint version of their guidelines available, and LYNX includes its guidelines in several planning documents including the Transit Develop- ment Plan. Transit agencies could do more to publicize the existence of their guidelines. With widespread use of the Internet, all transit agencies now have their own websites. Publication of the guidelines on the website would be a sim- ple and inexpensive method of distributing the information contained in the guidelines. Many local government websites have pages to explain the permitting and zoning processes in their areas. Links between the local government website and the transit agency website would increase the outreach. DEVELOPMENT CHARACTERISTICS INCLUDED IN GUIDELINES Development characteristics include items that affect not only the look and feel of a project, but also the innate ability of the project to support transit service. Characteristics such as site planning, land use, density, street pattern, sidewalks, open space, building design, parking, pedestrian amenities, security, ADA elements, and directness of pedestrian path are considered development characteristics. This list of char- acteristics was presented in the survey and transit agencies were asked to identify those characteristics that are included in their guidelines. The discussion of development characteristics included in the agency guidelines echo the literature on TOD, New Urbanism, and Urban Villages. The concepts of pedestrian scale, quality environments, pedestrian mobility, and bicy- cle paths are common in both. Transit is dependent on a diverse and lively environment to provide transit riders in sufficient numbers to enable cost-effective provision of ser- vice. The goals of transit planners and TOD proponents often coincide. The following discussion highlights some of the develop- ment characteristics discussed in the guidelines provided by the survey participants. Density is clearly one of the major determinants of successful transit provision. A good example of a density dis- cussion is found in VTA’s Community Design & Trans- portation Manual (see Figure 17). VTA cites best practices for the various aspects of integrating transportation and land use, and provides four best practices related to density: “Put density where it belongs,” “Build to planned densities,” “Consider design with density,” and “Match densities to transportation resources.” VTA’s document also includes an appendix devoted to development density. The appendix pre- sents recommendations on minimum and average building densities for various land uses. Building orientation and/or design is addressed in the guidelines from LYNX, CTA, VTA, Pace, and Cleveland RTA. All recommend that buildings front onto the main street to provide a better pedestrian environment and reduce walking distances for transit customers. LYNX also adds an alternative suggestion to front at least part of the building on the street (see Figure 18).

38 Directness of pedestrian path is clearly a topic that all transit agencies appreciate as a critical element in the successful provision of transit service. Many transit agen- cies reported that their areas were severely lacking in this critical area. Disjointed developments, decorative fences, and severe changes in grade prohibit direct pedestrian paths. These are often greater deterrents to pedestrian traffic than a lack of sidewalks. It is therefore not surprising that most agencies include a discussion of this element in their guidelines. CTA’s guidelines recommend the creation of shortcuts through long blocks and across corner parks. The guidelines note that “pedestrians seek the most direct route and are discouraged by circuitous pathways.” VTA’s guide- lines recommend the creation of “a continuous pedestrian network that connects buildings to each other and to transit facilities.” Closely related to the directness of pedestrian paths is the presence of sidewalks. Many suburban developments have been built so that pedestrians must walk in the road with the automobile traffic. This is true for all types of developments—residential, industrial, and commercial. Commercial big box retailers recently started to move from traditional suburban environments into the urban environment. The typical big box development set within an urban area with good pedestrian access provides a visual contrast of the worst and the best in providing pedestrian pathways. The guidelines provided by survey respondents indi- cated that transit agencies recognized the need to provide good pedestrian sidewalks. King County Metro in Seattle recommends a good durable sidewalk pavement that pro- vides adequate traction to reduce slips and falls. LYNX FIGURE 17 Minimum and average building density recommendations. (Courtesy: Valley Transportation Authority, Santa Clara, California.) FIGURE 18 Front buildings onto streets. (Courtesy: LYNX Central Florida Transportation Authority.)

39 adds that a clearly delineated pedestrian path through park- ing lots is required to safely accommodate pedestrian activ- ity (see Figure 19). VTA’s Pedestrian Technical Guidelines is a textbook that addresses all aspects of the pedestrian environment. It pro- vides guidance on how to plan for pedestrians and discusses pedestrian interaction with multiuse streets, street crossings, access to transit, site design, and building design. It is a use- ful reference for communities that are interested in improv- ing their pedestrian environment. In Florida, where the average summer temperature is 94°F and the average annual rainfall is 48 in., the provision of shelter for pedestrian circulation is an important feature for new developments and for redevelopment projects. The LYNX guidelines recommend the integration of awnings, arcades, and shelters into the façade architecture to provide shelter for pedestrians from the sun and rain (see Figure 20). Pedestrians in all parts of the country could benefit from this simple provision. The Cleveland RTA guidelines address the pedestrian experience and the impact that the surrounding development has on the quality of the waiting environment. A well-designed bus stop located in a dreary area may be a comfort for waiting customers; however, the surrounding area will overshadow the bus stop “oasis.” Cleveland’s guidelines note that the quality of the surrounding area is just as important as the quality of the transit waiting environment itself (see Figure 21). Landscaping is included in some of the transit agency development guidelines to address a multitude of various issues. It is recommended as a buffer to protect pedestrians from street traffic, because the buffer gives pedestrians a feeling of comfort and protection. Landscaping also provides shade for pedestrians while walking and while waiting for a bus. The judicious choice of trees, shrubs, and flowers improves the appearance of an area and creates a pleasing environment. Landscaping is also used to shield parking lots and blank walls from view. The use of trees to shade vehicles in park and ride lots is also noted in the guidelines. Although landscaping has many virtues, it must be properly chosen, placed, and maintained. Plants must be appropriate to the use envisioned and must be of the appropriate size. Land- scaping should not interfere with bus boarding and alighting. Regular maintenance is needed to reduce interference with pedestrians and passing vehicles. Overgrown shrubs encroach FIGURE 19 Clearly delineated pedestrian paths through parking lots. (Courtesy: LYNX Central Florida Transportation Authority.) FIGURE 20 Façade architecture provides shelter. (Courtesy: LYNX Central Florida Transportation Authority.)

40 on sidewalks and low-hanging branches can hit pedestrians. For a good, brief synopsis on landscaping see VTA’s Pedes- trian Technical Guidelines. A good integrated street network is a basic requirement for an efficient transit system (see Figure 22). CTA’s guide- lines note that a direct and interconnected street network pro- vides for regularly spaced and direct connections to transit. LYNX recommends that new developments should provide street connections in all major directions and connect to the existing street network. In places where new developments abut areas that are not yet developed, the use of interim stub- outs to identify where streets will connect in the future is rec- ommended. VTA observes that streets are not just the means to transport vehicles, pedestrians, transit riders, and bicycles. Streets are also places in their own right where children play and where neighbors gather. Streets are the largest single source of public space in urban areas, and planners must bal- ance the street’s transport role with its role as land use. SPECIFICATIONS INCLUDED IN GUIDELINES Specifications include the physical dimensions of transit equipment and facilities, and the overall requirements of these transit elements. Technical specifications provide straight- forward, quantitative information that involves very little pol- icy or planning involvement. Engineering drawings of the various transit elements provide a clear picture of what is needed. This information is readily available within the tran- sit agency and is generally easy to provide when requested. Bus vehicle specifications are typically the guidelines that developers will request when considering transit needs. How big is a bus, how much does it weigh, and what is the turning radius? These are basic questions that must be answered if a single bus stop is to be accommodated in a development (see Figure 23). However, additional information can be given to developers whether they request it or not. For example, that buses have both a front door and a rear door may escape their notice. Landing pads should be provided for both doors and unobstructed access to both doors is needed. Although devel- opers are familiar with general ADA requirements, the ADA implications of providing transit within their development should be pointed out. Developers also need to learn that the stop must be longer than the length of a bus to provide for pull-in and pull-out space; therefore, appropriate stop length must be supplied. Specifications for amenities required by the transit agency should be provided. These are likely to include specifications for informational signage and may include specifications for shelters, benches, and trash receptacles. The FIGURE 22 Curvilinear versus grid street networks. (Courtesy: Valley Transportation Authority.) FIGURE 21 A mix of land uses and landscaping provide an interesting pedestrian environment. (Courtesy: Mary Kay Christopher.)

41 expected volume of passengers at the development is helpful to lay out a properly sized waiting area and provide an appro- priate number of amenities. This type of information is also helpful to convince the developer that the expense is justified. Beyond the simplest provisions associated with a single bus stop, a development that will include more complex transit facilities will require the provision of additional specifications. If the development will house a bus terminal, then the developer will need to be aware of bus operator needs for a washroom. The likely layover time should be provided, as well as the max- imum number of buses in the terminal at one time. The transit agency should be in a position to provide guidance on the type of terminal that is desired (sawtooth, pull-through bays, etc.) and have specifications available for each type (see Figure 24). The provision of additional specifications on sidewalk width, roadway width, and roadway paving provides the developer with the benefit of the transit agency’s experience on what works best. VTA points out that a typical, 4-ft FIGURE 23 Bus turning template. (Courtesy: LYNX Central Florida Transportation Authority.) FIGURE 24 Detail of sawtooth bus stop. (Courtesy: Pace.)

42 sidewalk is inadequate for any foot traffic beyond one pedestrian. This is especially true if street furniture such as light poles or utility boxes are also provided within the con- fines of the pedestrian sidewalk. Additional specifications and technical details provided by transit agencies in their guidelines include: • A concrete pad at bus stops. Asphalt pavement is often inadequate at bus stops with heavy bus traffic. Hard braking by many vehicles over time will cause asphalt to slide and form mounds and gulleys. • Requirements that are unique to an agency’s operating environment. King County Metro, for example, provides technical information on the trolley overhead system employed by its fleet of trolley buses. Its guidelines also include provisions for other nontypical facilities such as high-occupancy vehicle lanes and motorbike parking. • Specific criteria to guide the provision of transit elements (see Figure 25). Lane Transit in Eugene, Oregon, for example, sets criteria for the provision of transit ameni- ties based on the number of average peak-hour traffic trips. Pace and TriMet provide guidelines for bus stop spacing based on population and/or employment density. FIGURE 25 Criteria for the provision of bus stop amenities. (Courtesy: Lane Transit District.)

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TRB's Transit Cooperative Research Program (TCRP) Synthesis 67: Bus Transit Service in Land Development Planning examines successful strategies that assist in the incorporation of bus transit service into land developments, as well as the challenges that transit agencies face when attempting to do so. The report also explores the state of the practice regarding the use and components of transit agency development guidelines.

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