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Improving Traffic Flow in The Las Vegas Tourist Zone

ROBERT LANG, PH.D. | PROFESSOR AND DIRECTOR THE LINCY INSTITUTE | BROOKINGS MOUNTAIN WEST UNIVERSITY OF , LAS VEGAS What’s in This Talk?

Three Main Sections: 1) Defining the Surface Congestion Problem in the LV Tourist Zone 2) Using Case Analysis from Tysons Corner, VA for Comparison 3) Reviewing a Policy Matrix of Options My Background

Was an Urban Planning Professor at Virginia Tech in Alexandria, VA Now a Public Affairs Professor at UNLV’s Greenspun College And a Resident Senior Fellow in DC at The Brookings Institution I Link Urban Design and Traffic Flow Defining the Problem: Limits on Las Vegas

What Force Most Limits Growth Capacity in the Las Vegas Tourist Economy?

Is it the ? The Convention Center? The No. of Rooms?

Or Could it be Surface Transportation Congestion? Basic Concepts: Street Forms Basic Concepts: /Transit/Bike Basic Concepts: Grid vs. Superblock Superblock vs. Grid: Las Vegas Street Form—Traffic Flow—Density

If the Street System is Not Designed to Carry “High Load” or Does NOT Contain Multiple Diffusion Points, Every Increment of New Built Density Will Add a Greater Increment in Traffic Congestion.

If the Street System in Urbanizing Space is NOT Supported by Rail-Based Transit, Every Increment of New Built Density Will Add a Greater Increment in Traffic Congestion.

Midtown Manhattan versus Las Vegas Strip: Can Manage Much Greater Crowd/Commuters/ Tourists Per Square Mile Than Las Vegas Because it Has a Complete Grid and Rail-Based Transit. Case Analysis from Tysons Corner, VA

But Why Tysons Corner?—Its Relevance for Las Vegas is Surprising. There are Plenty of Lessons for The Strip Tysons Corner is Similar to The Strip

Quality Similarity

They are the Two Largest U.S. Governance Real Estates Assets in an Unincorporated Urban Space Both Developed Street Street System Networks Intended for Much Less Intense Urban Density Both Face Growth Limits Due Growth Limits to an Urban Design That Was Intended for Less Vehicles Both See Variation in Traffic Seasonal/Event Traffic and Use Based on Seasonal Patterns and Big Events Tysons/The Strip: 75 Years Ago

The LV Strip was Literally a Strip

Tysons Corner was Literally a Corner Difference: Tysons is Being Remade

Many Private and Public Interests Have Studied Tysons and Decided the Type and Level of Urban Redesign Needed and Secured the Funding to Execute the Plan. Also, Virginia has Substantial Planning Expertise with Three Well-Regarded Urban Planning Programs and One of the Better State-Run Departments of Transportation in the U.S.

If You Doubt This, Simply Type “Tysons Corner Planning” into Google Images and See the Hundreds of Documents that Result—You Do Not See the Same Documents for the Las Vegas Strip. Remaking Tysons Corner: Street System

The Top Illustration Shows Tysons Street System at the Start of its Rebuilding—Note the Curvilinear Streets and Suburban Subdivision Urban Form—And Superblocks

The Bottom Illustration Shows Tysons at the Mid 21st Century After a Total Makeover as an Urban Center Complete with Four Washington Metro Stops Remaking Tysons: Metro Stops/Street Grids Remaking Tysons: Metro Stops/Tunnel Remaking Tysons: Three Senarios Now Consider Las Vegas Planning

Las Vegas does Master Planning on a Grand Scale for Non-Tourist Sections of the Region For Example, Summerlin Has Won all Kinds of Planning Awards from Groups Such as ULI—The Urban Land Institute

But Land Use Planning in the Tourist Zone is Less Comprehensive and More Fragmented Lets Turn to the Specifics on Las Vegas

The Congestion Problem is Very Tysons Like—An Urban Design that Can’t Handle More Dense Use

The Scale of Development Overshot the Original Urban System’s Capacity to Handle Traffic Load

Let’s Start a Discussion on a Set of Relief Strategies that Begin to Address Congestion Options: Short, Mid, and Longer Range

Shorter Range: Invest in Traffic Flow Systems that Squeeze More Efficiency Out of Existing System

Middle Range: Start Street Widening and Realignment, Including New Turn Lanes at Key Traffic Bottlenecks

Longer Range: Break Up Superblocks with New Roads via Easements Options: The Longest Range

Longest Range: Switch the Street Network to a Multi- Diffusing, High-Capacity System Via an Urban Grid

Longest Range: Integrate and Expand Elevated Rail- Based Transit Systems to Relieve Surface Congestion

Longest Range: Add System at Street for More Surface Transportation Efficiency Congestion-Relief Cost/Impact Matrix

Enhancement Infrastructure Scale and Type Estimated Type Change of Impact Cost Range

Reprogram Redo Traffic Marginally $ Traffic Flows Signals; Time Improves A Million or for Events Maintenance Traffic Flow Less Widen Key Add More Turn Modestly $$ Intersections/ Lane Capacity Reduces Tens of Roadways On Streets Congestion Millions Break Up Cut Relief Significantly $$$ Superblocks Streets Out Improves A Hundred w/Street Grid East of Strip Traffic Flow Million or More Construct Link Key Expands $$$$ Integrated Rail Assets by a Capacity for Hundreds of Transit Rail System Moving People Millions The Four Biggest Metros in the Mountain West

Phoenix, Denver, Las Vegas, and Salt Lake City: Three of Four Have Integrated Rail Systems that Go to the Airport

Every Big Metro in the West, But Las Vegas, is Actively Rail Between Key Assets Such as Convention Centers, Downtowns, Ball Parks and Map, 2015

Note the Limited Number of Stops and the Disconnect With Key Regional Assets Such as McCarran Airport Las Vegas Strip—All Monorail

Current Map of All Monorail Transit Along the Las Vegas Strip There is a Single Fee- Based System East of The Strip and 3 Separate Free Systems West of The Strip Attached to MGM Properties The 4 Systems are NOT Integrated and None Reach McCarran Airport Recommendations

Do a Land Use/Surface Transportation Study as was Done at Tysons—We are Not Doing One Now

Go For Low-Hanging Fruit by Tweaking the Current Surface System

Plan Larger Infrastructure Changes Such as Street Expansion, Rail Extension and a New Transit System Thank You Hotel and Taxi Infrastructure Summit A Serious Look at Resort Transportation Needs & Expected Growth

On May 11, 2015 Executives from the Strip Casinos and Taxi Industries along with participants from the Gaming Control Board, Taxi Authority Board, RTC, LVCVA and other transportation specialists came together for a brain storming session.

Mayor Pro-Tem Steve Ross and the Operational Excellence Team from Venetian/Palazzo moderated and facilitated the brain storming session after Urban Planning and Policy Expert Robert Lang, Brookings Institute, gave a 45-minute presentation on our Strip’s current infrastructure constraints and the changes required to expand our growth.

Below are the groups recommended solutions and they are divided as Short Term, Medium Term and Long Term solutions.

Short Term Casino Operators • Add Relief (Pick-Up and Drop-Off Points) • Multiple Cab Lines

Authority/Regulations • Open All Options for Drivers and Routes (Tunnel) • Educate Public on Use of Tunnel • No Trolling Extended Limos • Eliminate Rolling Billboards • Develop an Event/Traffic Coordination Group • Event Specific Extra Medallions • Better Enforcement of Pedestrian Crossings (Bellagio/Paris, Mirage/Caesars, Monte Carlo) • Get Pedestrians Off Of Walkway • Reorganize Transportation Board

Roadways/Airport/Monorail • Better Planning During Construction (No Lane Closures During CES (Paradise) • Improve Pedestrian Realm Up/Down Strip • Sky Bridges • Temporary Dedicated Lanes for /Taxis/Limos • Airport Needs Two Dedicated Lanes for Pick-Up • Luggage Carts for Monorail • Railroad Right-Of-Ways (Make Road Easements) • More Free-Right Turns (N. Bound I-15 to E. Bound Sahara) & (N. Bound Koval to E. Bound Tropicana) • Need Resort Signs on I-15 Exists • Make Some Roads One-Way (Per Event or Variable Direction Lanes-Paradise, Swenson, Convention Center Drive)

Medium Term Solutions

Roadways/Airport/Monorail • Temporary One-Way Streets (Use Electric Signage To Notify) • Street HOV Lanes (Strip, Convention Center Drive, Time/Demand Driven) • Park and Rides for Locals (Event Related/Temporary, Free or Low Cost or Included with Transit Cost) • Tropicana and Swenson-Capacity Consistent (Northbound) More Lanes, Better Design, Allow Cabs to Use Tunnel • Enhance East Side Access Away From Strip (Frank Sinatra, Industrial) • Eliminate HOV Lanes

Casino Operators • More Drop Off Points • Park-N-Rides/Commuters Pay • Dedicated Shuttles to Airport

Long Term Solutions • Westside of the Strip (Add Monorail) • from L.A. • Phased Approach to Monorail-Light Rail Solution o Connect to Airport, Connection to Convention Center • Need Solution for Employee Parking o Off-Site Parking For Employees, o Light-Rail-Used by Employees • Comprehensive Plan-Incentives for Resorts • Point-To-Point Transportation o Convention Center-Overall Transportation System to Connect o Connect All Convention Centers o Monorail-Combination Above/Underground o Downtown Solution-Integrated within Plan o Walking Sky-Park Down the Strip • Monorail • Plans For Connecting Both Sides of the Strip • Designated Lanes for Taxis and Transit • Downtown-More Use For Bikes • Better Long-Term Pedestrian Plan • Better Structures for Parking (Allow For Resorts to Charge) • Move Certain Relief Streets Underground at Points (Koval?) • Utilize Current RR Right of Ways • Goal Should Be to o Remove Workforce/Locals From Roads to Leave For Tourists • Underground-Subways • Expressways to Key Outer Super Arterials (Desert Inn) • Relief Airport o Ensure Homeland Security Steps/Actions Taken Into Consideration for Mass Transit • SkyPark-Building a Multi-Block Pedestrian Park Above Strip o All Pedestrians Connecting to All Casinos From There

NEVADA AUTHORITY

CHARLES D. HARVEY ADMINISTRATOR MISSION / VISION CONFLICT CAB CRISIS NEVADA TAXICAB AUTHORITY

Created in 1969 to provide for the safety, comfort and convenience of the taxicab riding public. NEVADA TAXICAB AUTHORITY

Began operation with 8 employees, regulating - -

• 8 Taxicab Companies • 275 and 600 drivers CORE FUNCTIONS

ADMINISTRATION COMPLIANCE/ENFORCEMENT

Testing Taxicab Vehicle Inspectors Authority Licensing Board Dispatch

Criminal History Enforcement

Permitting Driver Training

Administrative Court

Nevada Revised Statutes 706.881 to 706.885 TAXICAB AUTHORITY BOARD

5 – Member Board Responsibilities:

1. Adopt regulations for the Appointed by the Governor administration and regulation of the Agency.

2. Conduct hearings/decide: Serve 3 Year Term a. Rates, charges and b. Applications to operate a taxi company. c. How many taxicab can operate. d. Driver appeals. CHALLENGES INFRASTRUCTURE RIDE SHARING STAFFING

7- Administrative Assistants to license and permit 10,000 drivers.

Driver turnover = 60%

29- Police Officers to monitor compliance and enforce violations of the 27 million trips conducted each year.

9 - Vehicle Inspectors to ensure that each of the 3,000 taxicabs meet operating standards. LONG HAULING

Taking a longer route to the passenger’s destination than is necessary, unless requested by the passenger. (NRS 706.8846) PENALTIES NRS – 706.8846 (3)

1st Offense 2nd Offense 3rd Offense 4th Offense 5th Offense

. $100 Fine . Mandatory . Mandatory . Mandatory . Mandatory Court Court Court Court . $200 Fine . $300 Fine . $350 Fine . $500 Fine . 3 Day . 6 Day . 10 Day . Revocation Suspension Suspension Suspension of Permit CONTINUED GROWTH QUESTIONS

Overview – Nevada Taxicab Authority

NV Taxicab Authority Legislative Testimony of Administrator Charles D. Harvey

February 2013

NV Taxicab Authority 2

Good afternoon. For the record my name is Charles D. Harvey, Administrator of the Nevada Taxicab Authority. I am here this afternoon to provide a brief overview of the State regulatory agency responsible for overseeing the taxicab industry in Southern Nevada.

A. Responsibility

The taxicab industry represents a critical component of the transportation and tourism industry in the State of Nevada. The Taxicab Authority (TA or Authority), was established by the Nevada Legislature in 1969. The TA is responsible for regulating the taxicab industry in counties with populations of 700,00 or more, which is currently Clark County. (NRS 706.881).

B. Mission

The Mission of the TA is to provide for the safety, comfort, and convenience, of the taxi riding public.

C. Funding

The TA is a 100% fee-funded agency, receiving .20 cents for each taxicab trip. Approximately 85% of our fees are derived from this per trip charge. (NRS 706.8826(3). The remainder of revenue comes from medallion and regulatory assessments, and driver fines.

All collected fees are deposited in a TA Fund to defray the cost of regulating the taxicab industry. Estimated operating revenues for the NV Taxicab Authority 3

biennium exceed $10 million. Estimated reserves are projected at $4.9 million.

D. Taxicab Company Ownership (Certificate Holders)

The taxicab industry is comprised of nine owner groups operating 16 taxicab companies in Clark County. They employ approximately 10,000 cab drivers, and operate a fleet of approximately 3,200 taxicabs. In 2012, more than 27 million passenger trips were provided to Clark County visitors and residents.

E. How is this industry regulated? 1. The Taxicab Authority: i. Issues licenses (called certificates of public convenience and necessity) to operate taxicab companies; ii. Determines the number of taxicabs authorized for use by each licensed company; iii. Issues permits to drivers, and provide each driver with safety training; iv. Establishes standards for the safe operation of taxicabs, and conduct regular inspections to ensure that each vehicle used to transport the public meets those standards; v. Audits certificate holders; vi. Establishes and monitor standards for drivers and the safety of passengers; NV Taxicab Authority 4

vii. Determines rates, charges and fares for taxicab service; viii. Conduct compliance checks and investigate alleged violations; ix. Impose penalties, which may include monetary sanctions, suspensions and revocation of driver permits

F. Taxicab Authority Structure

1. TA Board

i. The TA is governed by a five member Board, appointed by the Governor. (Term 3 years, no more than 2 terms – NRS 706.8818(1)). 1. The Board is currently chaired by Ileana Drobkin. The four other members are: a. Dennis Nolan b. Josh Miller (Replaced by Bruce A. Aguliera, Esq. in 2014) c. Joe Hardy Jr. (Replaced by James Campos in 2015) d. Dean Collins ii. Responsibilities include: NV Taxicab Authority 5

1. Conducting hearings and rendering decisions regarding new and amended applications for to operate taxicab companies (certificates of public convenience and necessity 2. Adopting and amending regulations 3. Granting temporary and permanent medallion allocations 4. Setting taxicab fares and rates, 5. Hearing certificate holder/driver appeals and complaints from the public and the industry.

b. TA Administrator

i. The Administrator is the executive responsible for the control and regulation of the taxicab industry, including oversight of the daily operations of the TA.

ii. Organization 1. The TA is comprised of two Divisions: Administration and Compliance/Enforcement.

NV Taxicab Authority 6

iii. The TA’s Administrative Division consists of 15 employees. 1. The Administrator’s Office is responsible for the overall control and regulation of the taxicab industry. 2. The Licensing & Permitting Section is responsible for processing driver applications, conducting criminal history background inquiries, administering driver tests, and driver safety training. The five-member team assigned to this unit processes more than 3,000 drivers per month. 3. The Administrator conducts an in-house administrative court. Citations issued to taxicab drivers may be appealed to our administrative hearing officer under contract with the Taxicab Authority. If a taxicab driver disagrees with the hearing officer’s decision, the driver may appeal the matter to the Taxicab Authority Board. (NRS 706.8822) 4. The Taxicab Authority also subsidizes the Taxi Assistance Program (formally known as Senior Ride). a. This program managed by the Division of Aging Services in the Department of Health & Human Services, provides discounted taxicab fares to qualified individuals, age 60 and older, and persons with disabilities through coupon booklets that are accepted by all taxicab companies in NV Taxicab Authority 7

Clark County. (NRS 706.88182 Adoption of regulations

establishing program for transportation of elderly persons and persons with permanent disabilities.) (Category 10 Seniorride (9041 Trans $594,616)

iv. The Compliance/Enforcement Division consists of 41 employees. 1. The Vehicle Inspection Unit employs National Institute for Automotive Service Excellence – certified mechanics to perform quarterly inspections of all taxicabs in Clark County to ensure the safety, comfort, and convenience of the riding public. Taxicabs that fail inspection are taken out-of-service until repairs are made and the cab passes re-inspection. (7 employees)

NRS 706.8833 Color scheme, insigne and design of cruising lights. NRS 706.8834 Maximum period of use of vehicle as taxicab; condition of vehicle acquired for use as taxicab; extension of period for hybrid electric vehicle. NRS 706.8837 Standards for taxicabs before operation. (lists 14 standards including: steering mechanism, brakes, exhaust system, windows, speedometer, headlights, taillights, stoplights) NRS 706.8838 Structural defects

2. The TA’s Communication Center is the initial point of contact between the Taxicab Authority, the general public and local police agencies. Public Safety Dispatchers and dispatch enforcement officers to various incidents involving taxicabs in Clark County. NV Taxicab Authority 8

3. The Compliance/Enforcement Unit employs category II - certified peace officers who respond to incidents and accidents involving taxicabs. Officers investigate complaints, initiate enforcement efforts targeted at recurring problems in the industry, and issue citations for violation of Taxicab Authority laws and regulations.

(29 employees) NRS 706.8845 Standards of conduct while on duty.

NRS 706.8846 Prohibited acts concerning destination of passenger. NRS 706.8847 Compliance with passenger’s directions; exceptions.

G. Challenges

The Taxicab Authority faces challenges similar to many other State agencies. Staffing, outdated equipment, technology, facility and vehicle needs, infrastructure, changing needs of the riding public. However, there are significant challenges that the Taxicab Authority must address as a regulatory agency. These include: 1) How many taxicabs are needed to satisfy the needs of the riding public, and 2) What will the Las Vegas infrastructure support; 3) How will technological changes in the transportation industry impact the “traditional” regulated taxicab industry?

Over the last two years I have seen the effect of over & under allocation of taxicabs, and how this impacts the taxi operators, the taxicab companies, and the riding public. To help address this question, the NV Taxicab Authority 9

Taxicab Authority has created a dialog with community partners to discuss short & long-term goals for the taxicab industry in Nevada. Collaborative efforts with the Regional Transportation Committee, the Nevada , the City Mayor’s Office, the Hotel & Resort Industry, McCarran International Airport, Clark County, and the Las Vegas Metropolitan Police Department, have led to the inclusion of the Taxicab Authority on planning committees.

Internal Challenges:

1. Equipment & Technology: The Taxicab Authority must quickly evolve to keep pace with the technological and digital changes occurring in the transportation industry. Technology has changed the way that we live. This is also the case in the Taxicab Industry as we are experiencing a digital and technology revolution. From electronic meters to electronic trip sheets, radio frequency identification devices, GPS and credit card machines, the Taxicab Authority must plan, prepare, understand and adapt to the challenges of the next generation of “Smart Technology.” A new generation of smart phone technology is being introduced into the marketplace – for taxicab operators, vehicles and regulators.

NV Taxicab Authority 10

2. Staffing: The Taxicab Authority operates on a 24/7 basis. I have taken proactive steps during my administration to improve internal operations. However, the demand for taxi service, combined with the increased number, of taxicabs in operation, and the high level of cab driver turnover creates tremendous challenges for the Taxicab Authority, and the transportation industry. Additional staffing is necessary to meet our goal of providing for the safety, comfort and convenience of the riding public.

3. Vehicles: The Taxicab Authority relies heavily on its patrol and inspection vehicles to regulate the taxicab industry. The Agency has approximately 24 vehicles, which are utilized 24 hours per day by Investigators and Vehicle Inspectors. Prior Agency Administrations authorized the practice of assigning take home vehicles. In September 2011, I determined that the use of take- home vehicles placed unnecessary wear and tear on an already aged fleet. I therefore discontinued the allowance of take-home vehicles. With an outdated vehicle inventory, I have embraced a comprehensive approach that seeks the replacement of Agency vehicles through a partnership with State Motor Pool and/or directly through State purchasing. Of the 24 vehicles that were on hand in May 2011: NV Taxicab Authority 11

• 3 - sent to salvage; • 80% - more than 5 years old • 70% - more than 70k miles • 10% - more than 100K miles

4. TA Facility: The Taxicab Authority facility is no longer suitable for our operations. It is my recommendation, (supported by the Industry) that the Taxicab Authority relocate to a larger, more modern facility. The lease of the current facility has been extended through September 2013, as the Agency seeks approval for funding to relocate the Agency. Shortly after my arrival at the Taxicab Authority, I began working with State and Grounds to address the building lease expiration (November 30, 2011), as well as ongoing building issues. Building issues notably began in July 2010, one month prior to the FY12- FY13 budget submission in August 2010, escalating from basic housekeeping to safety concerns, and have continued to date. The predominant reoccurring issues include 1) Gas leaks; 2) Climate control; and 3) Plumbing, all which have resulted in operation closure.

This relocation project has been included in the Agency’s FY14-15 budget. This matter was not proposed during the last session as the existing lease was current and the building condition was NV Taxicab Authority 12

deemed satisfactory by the prior administration, supporting the request of maintaining a flat budget. Currently, with the recommendation of State Buildings and Grounds, consideration has been given to agency relocation, and it was determined in the best interest of the Authority to relocate to a more modern facility, which is centrally conducive to the constituents served by the TA. Enhancements

H. Budget Enhancements

The Governor’s budget contains an enhancement request of $234 thousand dollars, to relocate the Taxicab Authority from our current facility, to a larger, more modern facility near McCarran Airport. This request is a result of an expired lease and ongoing maintenance issues at our current facility. The preferred new location will provide additional space to support industry growth, facilitate hearings and training with separate public access, and provide a secure environment for confidentiality and storage of driver and investigation files. Funding for this enhancement will come from Taxicab Authority Revenues.

I. Closing

The final three pages of my handout discuss the Taxicab Authority budget request for the biennium. On page 12 – you will see the budget request by activity. Page 13 list positions by activity, and page 14 provides the Governor recommended budget for FY14 and 15. NV Taxicab Authority 13

In my pursuit of a more effective, efficient and responsible regulatory agency, I’ve discovered that the Authority is faced with significant internal and external challenges. It is my goal to quickly move forward with process improvements and proposals for technological changes for taxicab operators, taxicabs, and taxi regulators.

Thank you for the opportunity to provide this overview. I would be happy to answer any questions that you may have.