There was no surprise when Jackson County announced that it would not put a transit tax measure on the ballot this November. There are still too many unknowns, and a comprehensive package will take more time to develop. Better to do this right than fast.

One of the big unknowns is location of a downtown terminus for commuter rail. The Jackson County Commuter Corridors Alternatives Analysis for the I-70 and Rock Island corridors, which has been underway  for over a year, is currently on hold. The County would like to move the downtown terminus from Third and Grand, the option presented to the public in April, to Union Station. That’s good, because nearly everyone really wants commuter trains to go there, and that’s the location identified for commuter rail in Kansas City’s comprehensive plan, FOCUS.

The sticking point has been getting the Kansas City Terminal Railway to agree to allow commuter trains on their tracks.  These are the tracks that Amtrak trains already use.  Once the Terminal (and its owners, primarily the Burlington Northern Santa Fe and Union Pacific) agree they are open to that possibility, a capacity analysis will have to be done to determine if commuter trains can be sandwiched in among all the freight and Amtrak trains.

Actually, it’s a little more complicated than that: whereas there’s some flexibility in freight train schedules, frequent delays for a commuter train could lead to loss of riders and failure of the whole commuter rail endeavor, so the railroads would have to commit to a pretty exacting schedule for the commuter trains.  As of this writing, a capacity analysis has not yet been done.

For commuter rail into Union Station to work, the railroads have to:

• agree in principle that commuter trains on their tracks would be OK
• complete a capacity analysis to determine that it’s feasible, and
• develop detailed cost estimates.

Meanwhile, Jackson County continues to work on more-detailed cost estimates for getting trains to a terminal at Third and Grand.

While that’s going on, the US 71 Corridor Transit Study is proceeding in the first phase of its evaluation process.

In addition to studying the I-70, Rock Island, and US 71 corridors to identify a locally preferred alternative in each, Jackson County is fleshing out the rest of a county-wide transit and trails plan to take to the voters. 

That plan would:

1. Fill in many of the bus transit needs in the county. All rail systems need a robust bus system to support them and Jackson County doesn’t have that outside of Kansas City, Missouri. MARC’s Smart Moves transit concept is the basis for filling in the missing transit links in the county, and Transit Action Network advocates Janet Rogers and Ron McLinden are working with a team that includes Jackson County, Kansas City, KCATA, and consultants to help define the transit part of the package.
2. Develop a plan to connect and complete a Jackson County trails system. No longer would there be “trails to nowhere,” but “trails to everywhere.” The County has been working with trail and bike advocates, using MARC’s MetroGreen plan as the basis for the trails component.

Assuming voters approved a one-cent sales tax  — nobody at the County will verify that this is the target amount — that would raise only about $80 million per year. Given that limitation, the County will have to make some tough choices because they can’t afford to do everything that’s currently being considered.

Right now we consider the following as likely components of a trails and transit package to be submitted to the voters:

• Probably one commuter rail line using the Kansas City Southern tracks in the I-70 corridor
• Implementation of many of the service components of the region’s Smart Moves transit plan
• Bus Rapid Transit (MAX style service) on Prospect
• Transit connections linking municipalities throughout the County
• Upgraded Express Bus Services in all three major corridors (including I-70, even if commuter rail is developed in that corridor)
• Build out of a complete network of trails as envisioned in MetroGreen.

We anticipate seeing such a package submitted to the voters sometime in 2013, though perhaps not until the second half of the year.

The Jackson County US 71 Transit Study, an Alternatives Analysis, started in June and is the third transit corridor to be studied as the County works to complete a transit package to put before voters. Completion is scheduled for the end of the year.

There have been two Stakeholder meetings (Janet Rogers and Mark McDowell both represent TAN) and a public meeting. Until a final decision has been made for locally preferred alternatives in the three corridors, nothing can go forward.

The US 71 corridor originates in downtown Kansas City, Missouri and extends south of the downtown area, terminating in Belton, Missouri. The corridor generally parallels U.S. 71 crossing Kansas City (MO), Grandview and Belton and is being evaluated as a potential addition to the Jackson County Commuter Corridors Alternatives Analysis, a transit study that has been in progress since 2011, which consists of the I-70 corridor and the Rock Island corridor.

This corridor is very congested and portions of US 71 between 51st and 75th are particularly slow. Current transit service on U.S. 71 and parallel service on Prospect provide transit access for the area, but scheduled travel times are almost double the travel time of the automobile.

The US 71 corridor study is benefiting from the work already done in the other corridors. This study is considering Express Buses, Bus Rapid Transit (BRT), streetcars and commuter rail. Just a reminder that the commuter rail is not electrified light rail. It is a diesel vehicle, Diesel Multiple Unit (DMU), which operates on existing freight lines or new tracks.

The project team, Jackson County, MARC, KCATA and Kansas City, Missouri  and the consulting team, Parsons Brinckerhoff, are all the same as the previous study.

The study is in Phase I, which provides the purpose and needs statement and does an initial evaluation of the alternatives to decide which ones will go through to Phase II.

The first two alternatives advance automatically to Phase II

1. NO Build  – do nothing plus

• all capital improvements identified in the fiscally constrained MARC 2040 Long Range Transportation Plan (LRTP) that will be implemented by 2035.
• the existing bus network augmented with the recommendations listed in the KCATA Comprehensive Service Analysis Key Corridor Network.

2. TSM (Transportation Systems Management)

Everything in No Build plus

• capital improvements and bus network enhancements.
• an expansion of KC Scout Intelligent Transportation Systems.
• New park and ride lots
• Capital bus enhancements on U.S. 71 (such as bus on shoulder), which will be identified and evaluated as part of Tier 2.
• New intermodal transfer point in vicinity of Hillcrest and Bannister Road.
• Seven U.S. 71 / Prospect BRT station pairs.
• Extension of local bus service along Prospect to Bannister Road and Blue Ridge.
• Extension of Express Bus service (Route #471) from current terminus Point at U.S. 71 & Red ·  Bridge Road to U.S. 71 & M-150. The extended service would serve park and ride lots at U.S.
• 71/M-150 and at Truman Corners Shopping Center. Number of trips would be increased from 5 AM and 5 PM to 8 AM and 8 PM.

Three additional alternatives to be evaluated for advancement to Phase II

Alternative 1: Bus Rapid Transit (BRT)

1. Two alignments are anticipated for the BRT alternative–a Commuter BRT on U.S. 71 and an Urban BRT on Prospect.
   1. US 71 Commuter BRT connects M-150 in Grandview with the 10^th and Main Transit Center.
   2. Prospect Urban BRT connects Bannister Road in south KC with the 10^th and Main Transit Center.

Alternative 2: Enhanced Streetcar Alternative

The enhanced streetcar would serve a third phase of the KC streetcar system (phase II would be to the Plaza). The streetcar would travel on the west side of US 71 and ends at M-150. A feeder bus network would also be a part of this alignment.

We expect the streetcar alternative to be eliminated because it is so expensive and probably wouldn’t qualify for federal funds to help us pay for it. We expect the projected ridership to be too low to make the line cost-effective by FTA standards. If it is advanced to Phase II it will be because the partners want to do the cost and ridership analysis for future reference.

Alternative 3: Diesel Multiple Unit Alternative

The alignment for the DMU Commuter Service South Line runs from the Jackson County Line to Leeds Junction. South of Leeds Junction the rail travels with limited stops on KCS track to its destination near M-150 in Grandview. North of Leeds Junction, it shares a common line with the Rock Island Corridor alternative, and farther north those lines combine with the I-70 corridor into downtown.  The two possible alignments for the DMU Commuter Service Common Line into downtown run from:

a. Leeds Junction to the River Market

b. Leeds Junction to Union Station via the Trench

The DMU alignment crosses nearly 80 bridge structures. About 20 of those would require improvement of some kind, up to and including replacement.

The stations along this alignment are limited due to various complications, including physical challenges and the lack of population and employment density.

The U.S 71 corridor has a large low-income population. The ability to provide improved access to work opportunities is an important goal of the enhanced transit system.

There will be additional public involvement as the study progresses.

US71 – combined alternatives – Click to Enlarge

US71 – BRT -Click to Enlarge

US71 – Streetcar- Click to Enlarge

US71 – DMU – Click to Enlarge

For more detail, review the information from the public open house materials and fill out the comment form.

http://www.kcsmartmoves.org/projects/us71transitstudy-openhouse1.aspx

Calvin Williford, Jackson County Chief of Staff, recently wrote to the Jackson County Commuter Corridors Partner Team describing new developments related to the study currently underway.  He said completion of the current commuter corridors study would be postponed and the County would move forward with a comprehensive transit plan. Letter_Partnership _Team

For almost two years everyone said the study would be completed and a “Locally Preferred Alternative” (LPA) would be decided in the June 2012 time frame.  In a bold step, and with a growing understanding of transit needs, Jackson County decided to wait for more information. The county’s ambitious target date for having a conceptual countywide transit plan in place is the end of July.

Part of the reason for the postponement is that another study, this one in the Highway 71 / Grandview corridor, is just beginning and the County wants to gain an understanding of transit alternatives in that corridor before making any decisions since all three corridors are interrelated.

The biggest reason for the postponement, though, is that a new rail alternative has become available for consideration — the possibility of getting commuter rail to Union Station.  This new alternative uses the Kansas City Terminal (KCT) Railway tracks to get into the area just north of Union Station. These are the tracks that Amtrak uses. It will be a big deal if the County can get the railroad to consider this. In the past KCT has always rejected the idea of accommodating commuter rail, and the cost of putting new tracks in that corridor would require expanding a number of bridges at an estimated cost of $1 billion.

This new KCT alternative is not without concerns. There are capacity issues since so many freight trains use these tracks daily. Therefore a capacity analysis has to be done first to see if this alternative is workable before formally evaluating this corridor for commuter service as part of the AA.  Because of existing challenges, it was assumed from the beginning that KCT would not allow commuter rail on its tracks. No previous study has been completed to estimate costs, ridership numbers or travel-time savings to Union Station using this route.

Will this rail alternative have significantly better quantitative results than the Third and Grand alternative?  We don’t know. The 2007 study of commuter rail in the I-70 corridor concluded: “Possible conflicts at Union Station with a high volume of freight traffic and Amtrak passenger service have a significant likelihood of negatively impacting commuter rail reliability, which is not acceptable when building ridership.”  If capacity issues can be resolved, then this route should definitely be studied. This route would likely be shorter and provide a more desirable terminus — factors that could improve ridership forecasts.

Like the Third and Grand location, this route would require other transit service (such as the Downtown Streetcar) to provide access to the Central Business District (CBD). However, in contrast to the Third and Grand alternative, there are thousands of jobs in the vicinity of a terminal at Union Station. Since there isn’t a fast direct route from the highways to Union Station, commuter rail on the KCT tracks might compete favorably in travel time with driving, provided they can increase the speed of rail. Of course an express bus will likely still be faster to the Government District and the rest of the CBD.

So that leaves the question of cost. Can Jackson County persuade the railroads to bring the cost of access to their tracks down far enough that even if ridership projections are low and the travel time to the CBD is slow, the overall cost of getting to Union Station will be acceptable? Wait and see. The County is working very hard to put this together.

Williford’s letter also mentions Jackson County’s commitment to developing a comprehensive county-wide transit strategy that includes “rail, buses and a well-connected trails system”. The commuter corridors study process has raised the County’s awareness of the huge transit and trail gaps in the county, and considering a comprehensive package to take to voters is a great idea. In order to develop such a strategy, a number of groups have been convened to look at particular parts of an overall multi-modal plan. MARC is working with trails advocates to develop a detailed trails plan that satisfies multiple users, and the KCATA will be taking the lead in configuring and costing a more extensive bus system following the “Smart Moves” concept. Transit Action Network is part of a committee to identify the transit gaps. The original project team is working with the railroads on the capacity study to get into Union Station, but Third and Grand remains a fallback location for rail.

In a recent public meeting Williford talked about Jackson County’s serious “transit deficits” and made the following specific points:

1. Every community that has developed rail transit has started first with a robust bus system. “Buses are the backbone of every transit system in the country,” he said, citing the “cost effectiveness” of buses over rail.
2. Service for the mobility-impaired is inadequate.
3. You can’t get from Kansas City to Independence after 6:00 at night.

Williford also said that while economic development is important, the county is placing greater emphasis on mobility than it did earlier. We think it’s great that the County’s understanding of the transit issues in the region has developed and expanded.

In order to create a comprehensive plan the County needs to fit all the pieces together with a financial package to pay for it. The County has taxing authority up to a one-cent sales tax. The full tax would raise approximately $80 million, derived almost equally from Kansas City and the rest of the county.

As part of this process, the County realized that parks and trails are really important to people. In the recently concluded session of the Missouri legislature the County successfully sought taxing authority for another ¼ cent sales tax for trails and parks. Such a tax could raise about $20 million.

Jackson County has taken on a huge challenge: Create a plan for commuter transit in three corridors, supplemental transit to fill numerous transit gaps throughout the county, and a set of parks and trails amenities. We hope they can come up with a great package at a cost that’ll be a “no-brainer” for voters to support.

A lot of factors go into making a good transit project.  Most people will gladly tell you they prefer trains to buses. However, when ridership numbers, time savings and costs factors come into the picture, reality hits.  Are the ridership numbers sufficient to justify the cost? Does the project actually save commuters time? Will the project qualify for federal funds to help pay for such an expensive project?  How much would it require in local taxes?

Open House #3 April 24 @ St Paul’s School of Theology

The Jackson County Commuter Corridors Alternatives Analysis (JCCCAA) is beginning to address some of these questions. The project team had its third series of open house meetings April 24-26. (See the Open House Display boards).  One more series is planned.

This open house provided the first look at quantitative results for the current commuter corridor study. The study is not complete and some of the numbers will change.

Some additional information is needed to understand the following information from the open house.

1. The ridership numbers and travel time are forecasts for 2035. These are the numbers you can expect to see in 23 years.
2. The dollar figures are for 2012.
3. The model for forecasting congestion on I-70 only indicates an additional 3-5 minutes for travel time in 2035 over travel times today. The travel time for a car was not provided for comparison.

After evaluating the information from the open house, Transit Action Network’s preliminary conclusion is that, in all probability, none of the fixed guideway alternatives would qualify for federal funding due to the relatively high cost for the low ridership and the insignificant amount of time saved. The FTA uses these factors to measure cost-effectiveness. Of course, the numbers are being revised, but considerable improvements would be needed to change this assessment. Both of the commuter rail lines plus the Rock Island streetcar line and the Rock Island Bus Rapid Transit (BRT) alternatives are probably not cost-effective enough to receive capital funds for construction from the FTA.

A. I-70 Corridor from Oak Grove – Highlights

There are only two alternatives left in this corridor and they are basically the same as were studied in a 2007 Alternatives Analysis. Summary of 2007 I-70 Commuter Corridor AA

1. One choice is an enhanced version of today’s highway express bus with more comfortable over-the-road coaches and significantly more service. In 2007 the recommendation was to improve the Express Buses. Compared to the 1,500 riders projected in the 2007 study, the 600 daily riders in the current study looks very low.
   

   Click to Enlarge I-70 corridor

2. The second choice is a commuter train (Diesel Multiple Unit or DMU) that stays on the Kansas City Southern rail line toward the Northern Industrial District and then turns west and finishes at Third and Grand. There is a new alignment which is an improvement over the alignment in the 2007 study. There is a narrow strip of land owned by Kansas City, north of Cliff Drive by Kessler Park, that could be used instead of going through a rail yard. However, maximum daily ridership last time was 1,425 and right now this project is showing 1,150-2,800 daily riders. These ridership numbers are not significantly improved considering the project capital cost in 2007 was $102.8-168.9 million. More money is being projected for track improvements, which would increase the train speed and decrease the travel time.
3. There is not a significant time savings for commuters using the train. The estimated time to 10^th and Main from Oak Grove using the Express Bus is 59 minutes and getting to 10^th and Main using the DMU plus a transfer to the streetcar is 61 minutes.

B. The Rock Island Corridor – Highlights

Four alternatives are still being considered, but they are not comparable situations.

1. Only the Enhanced Express Bus and the Diesel Multiple Unit go to Pleasant Hill.
   

   Click to Enlarge SE Rock island Corridor

2. The Express Bus is an enhanced version of today’s highway express bus with better coaches and significantly more service.
3. The DMU travels on the Rock Island Line, then continues north toward the Northern Industrial District. North of St. John Avenue it merges with the I-70 corridor KCS line and the two lines share a common segment into Third and Grand. The cost for this line does not include the common rail section since the Rock Island DMU line would only be built if the I-70 DMU line were built.
4. The Bus Rapid Transit (BRT) only goes to Lee’s Summit. It uses a new paved busway on the Rock Island line to the Sports Complex and then a fixed guideway (the two middle lanes of traffic get barriers to segregate the bus from other traffic) is built on Stadium Drive and Linwood Blvd. At Bruce R. Watkins Drive (Highway 71) it uses the freeway to get into Downtown.
5. The Enhanced Streetcar is not really part of the commuter corridors since it has been shortened to start at 63^rd Street and Raytown Road, which makes it more of an urban corridor route. The streetcar goes down Linwood Blvd in a fixed guideway (the two middle lanes of traffic get barriers to segregate the streetcar from other traffic). At Main Street it would operate in mixed traffic and turn north to meet the proposed Downtown Streetcar line at Pershing.  MARC’s Smart Moves plan consists of two types of corridors – urban corridors that serve the urban core and commuter corridors, which bring people into the city from the suburbs. In fact, the significantly larger ridership numbers projected for this “enhanced streetcar” alternative are from people in the urban core. The streetcar has significantly more riders than the BRT even though they both go down Linwood since the bulk of the streetcar ridership happens west of Highway 71 after the BRT turns north.  Because the streetcar makes several stops along Linwood and functions like an urban streetcar corridor, this alternative does not appear to serve suburban commuters very well.
6. This is the first AA that has been done in the Rock Island commuter corridor so it is interesting to see such low ridership numbers.
   

   Open House #3 April 25 @ John Knox Village

• Express bus – 350; DMU – 500; Bus Rapid Transit – 500. These ridership numbers are breathtakingly low and don’t warrant any rail investment. Even if the study increases the numbers they aren’t going to go up nearly enough to justify the cost of rail. The low ridership projections for the DMU in the Rock island corridor compared to the I-70 corridor is partly because this line doesn’t go through the main population centers of these cities and a lot of the route goes through industrial areas.

For commuters in the Southeast Corridor there are two bus possibilities:  Enhanced Express Bus from Pleasant Hill or Bus Rapid Transit from Lee’s Summit.

1. To compare travel time between the two buses, look at the time from Raytown Road. The BRT time to 10^th and Main is 54 minutes and the express bus from that location is 48 minutes. So the express bus is faster over the same distance.
2. The Express Bus costs $35-39 million, while the BRT would entail paving the Rock Island line and establishing a fixed guideway on Linwood for a total of $230-283 million. Is the additional cost worth it for a slower travel time and only a few more people?

What about the Rock Island Streetcar? Even though the ridership is better than the other alternatives in this corridor, it is far too low for the cost.

To put this streetcar in perspective, compare it to the Downtown Streetcar project currently being planned.

Financing Transit in Jackson County

Once transit alternatives are selected for these corridors — i.e., once a “Locally Preferred Alternative” or LPA is determined, local funding has to be obtained.  This is true whether there is a federal contribution to the project or not.

Jackson County has special taxing authority allowing voters to approve up to a 1-cent sales tax for transit, which would collect about $80 million annually. Jackson County has significant transit needs, especially in eastern Jackson County.  Not only does commuter transit need to be improved and expanded, but transit is needed to get to other activity centers such as jobs, education, medical facilities, shopping and entertainment in areas other than downtown. (Only 14% of the region’s jobs are currently in the CBD).

Although a property tax is a possible funding source, it doesn’t raise much money.

TAN realizes the study isn’t finished and there will be changes, but the total annual cost is important to understand Jackson County’s ability to provide transit. The following numbers are based on the information presented at the April open house. We will re-do our analysis when adjusted numbers become available.

Estimated Rail and Fixed Guideway Annual Costs

Very preliminary conclusions:

Open House #3 April 24 @ John Knox Village

1. Without federal assistance, Jackson County cannot pay for DMU rail lines in three Corridors. Study of a third corridor, the Highway 71 corridor to Grandview, is just getting under way.  It is possible that the annual costs for the DMUs in the first two corridors (as high as $49MM plus $36MM) could use up more than the 1-cent sales tax ($80 million annually) with nothing left to provide supporting bus services, much less transit to other parts of the county.
2. Without significant federal funding, any fixed guideway options still being considered would be difficult to justify considering all the other transit needs and issues. The costs would be further complicated with a fixed guideway option in the Grandview corridor.
3. Voters in Kansas City might object to paying a full 1-cent sales tax on commuter rail from eastern Jackson County without much benefit to taxpayers living within the City. In other words, for a transit tax to pass county-wide, there would have to be something in the package for Kansas City.
4. Since rail projects are so expensive, most cities seek federal funding to help build projects. The FTA has only been funding large projects with a cost-effectiveness rating of at least Medium. Once a  project qualifies to be considered for federal funding, it still has to compete against other cities and recently the FTA has only been covering 30-50% of the cost of rail projects selected for funding. For perspective look at the FTA current Capital Investment Program Project Profiles.

Additional very preliminary conclusions:

1. The two DMU rail lines could cost a billion dollars to build (using high-end estimates of  $600MM plus $413MM).
2. The capital and operating costs for the Enhanced Express Buses could be covered without federal funding, although federal dollars are much easier to get for this use. Bus projects can usually be funded without issuing bonds. Bonds were not needed for the Troost and Main Street MAX lines. The FTA often pays up to 80% of the capital cost for major improvements to bus systems. Using such an approach, there would be money for other transit services in Jackson County, even without using the full 1-cent sales tax.
3. Jackson County could fund express buses plus a robust transit system to serve other needs in the county at the same time.
4. TAN expects that a reasonable allocation of any county transit tax would have to clearly provide a transit benefit in the City of Kansas City. Population and sales tax revenue in Jackson County are about evenly split between Kansas City and the remainder of the county.

Summary

Open House #3 April 25 @ John Knox Village

The purpose of performing an Alternatives Analysis is to find the best transit solution to seek federal funds. Federal funds are particularly important when proposing a rail project since they are so expensive. Sometimes good plans don’t get federal funding because of intense competition, but if a plan doesn’t qualify for federal funds because it isn’t cost effective, then it probably should not be built.  Sometimes cities fund a very short 1-2 mile starter rail line but rarely are long rail lines successfully funded with only local money.

Are Jackson County taxpayers prepared to pay for major transit plans that are not sufficiently cost-effective to qualify for federal funding? We doubt it.

An out-of-town transit consultant spoke at the MARC Transit committee when the two current rail studies started. He advised people to remember that serious rail transit is about the need to move a lot of people. Non-serious rail transit is about wanting to have a train.

Transit consultants in Kansas City will tell you when they do major commuter rail studies in other cities they usually come upon a robust bus transit system that will not be able to efficiently meet demand in the next few years and needs the additional capacity that rail provides. When they come to Kansas City to study rail, no such demand exists. We don’t even have a transit system in eastern Jackson County let alone one that is bursting at the seams and needs to be upgraded to rail.

Bottom line: What is the best use of our current or potentially available public money? Where do we get the biggest transit bang for our buck? Transit Action Network is very pro-rail, but we are also realistic and cost conscious. We want to see a significant transit improvement emerge from this study, and we’re waiting for the next wave of information and for the Locally Preferred Alternative to be determined. We hope the decision will reflect the information gained from spending nearly three years and $2 million dollars studying commuter options to find the best solution for the transit needs in Jackson County. Every major metropolitan region needs a good transit system that is appropriate for the community.