The Mobility Benefits of the Streetcar Community Streetcar October 2015 Coalition Prepared By: Community Streetcar Coalition

The Mobility Benefits of the Streetcar Community Streetcar October 2015 Coalition Prepared by: Community Streetcar Coalition

In collaboration with: David Taylor, Taylor | Future Solutions, LLC Salt Lake City City of Seattle City of Tucson Portland Streetcar Contact us: Jeffrey F. Boothe, Executive Director (202)429-2020 www.streetcarcoalition.org @StcarCoalition INTRODUCTION The Community Streetcar Coalition (CSC) did extensive background research and consulted When the new generation of streetcars began with select “modern” streetcar cities to examine appearing starting in 2000, the communities the mobility profile and bring the broader began to see to see the multiple benefits accruing benefits of streetcars to the forefront. In order of to this “new” mode. Among the benefits from the their initiation, the cities surveyed are Portland, streetcar were: Seattle, Salt Lake City, and Tucson. These four are referenced in subsequent sections. • New, short-distance trips that did not require a car This document outlines the streetcar’s benefits • Enhanced pedestrian mobility and in the context of the recent streetcar history, increased pedestrian activity changing demographic and urbanization trends, • Connectivity with the regional transport and actual experience across the country. The CSC network and trusts these resources will help advance future streetcar investments in communities to meet • Robust private investments in walkable their mobility, economic, and livability goals. urban development along streetcar routes When considering the streetcar as an element of the local transport network, it is not a stand- Yet, despite these documented benefits, some are alone infrastructure decision. There is a broader now suggesting that the streetcar is not delivering context where people-moving and place-making on its promise from the mobility perspective. potential should be optimized, with the assistance Some critics claim the mode is not fast enough, of the streetcar. Communities should look broadly does not compete with other modes on travel to define a streetcar district that is appropriately time, and that other modes are superior urban scaled with the following factors: transit modes based on speed and travel time alone. These critics are either misstating or • Definable, manageable boundaries misunderstanding the objectives of the streetcar, • Route visibility and clarity and saddling it with metrics it was never intended to meet. Further, the streetcar is incorrectly • Stop spacing for efficient operations and being compared to modes that cannot deliver the easy access for riders streetcar’s economic development and pedestrian • Multiple options for internal connectivity activation benefits. and links to the larger transport

SALT LAKE CITY, UT PORTLAND, OR 1 network THE “NEW” STREETCAR • A mix of pedestrian attractors and HISTORY – ONLY FIFTEEN producers with a supporting sidewalk network YEARS • Appropriate land use and zoning provisions The role of streetcars as a feature of city to allow intense and dense mixed uses transportation systems dates back to the late • Require appropriate orientation toward 1800s, when hundreds of U.S. cities began sidewalks, and, where possible, direct developing streetcar networks that thrived for integration with the streetcar a half-century. At one point, every community • Walkable sub-areas over 5,000 population had a streetcar. In a few • Opportunities for redevelopment and joint exceptional cases, legacy streetcars such as New development Orleans, San Francisco, and Philadelphia never • Potential implementation by public-private ceased operations. However, the preponderant partnerships share of streetcar systems was gone by the mid-1950s. After 50 years of virtual invisibility, The combination of these features and elements streetcars reappeared in modern form in 2000, allows the streetcar to help complete the” last launching the modern streetcar era. This means mile of longer transit trips” and also to avoid the contemporary streetcar history is very short short auto trips that can be completely avoided – only fifteen years. This short history period is because of a well-designed walking environment important to the current debate circling around and transit – the so-called “trip not taken.” These the streetcar as a means of mobility. The new twin mobility benefits are integral features of a streetcar era in the United States began between more walkable, livable downtown or streetcar 2000 and 2002 in three cities, in different regions, district, and the streetcar’s urban integration with different population sizes, different intents and frequent access points are essential to and purposes, and different choices in streetcar delivering its economic development benefits. A vehicles. complementary results is making a meaningful dent in auto traffic congestion.

2 CONSTRUCTION OF THE PORTLAND STREETCAR

The New Beginning Portland:

The first American streetcar project of the modern Portland’s streetcar was part of a larger era opened in 2000 in Kenosha, WI. Portland, strategy to focus mobility and development Oregon followed in 2001 and Tampa, Florida in a more urban context. The initial 2.5-mile in 2002. Interestingly, each had a different set line was the nation’s first “modern” streetcar, of objectives, but economic development and using European vehicle technology with low mobility were always high priorities. floor, double-sided/double-end boarding equipment and off-board ticketing. Its initial Kenosha: segment is in-street running, and the streets chosen were one-way streets with lower traffic At 95,000 residents, Kenosha was the smallest volumes. The streetcar became an essential of the three early streetcar cities. The City element of a multi-modal system – including envisioned its streetcar line as having mobility intercity rail, commuter rail, light rail, bus, and and development benefits. It developed a two- streetcar – to offer broader choices. In concert mile line to link a potential redevelopment with the regional land use plan to concentrate site on the shores of Lake Michigan through development within an urban growth downtown to an end-of-the line Metra boundary, the streetcar became an integrating commuter rail station. The latter would mode. connect Kenosha and Chicago via Metra, allowing the streetcar to be part of a regional One of its most chronicled successes was transit network. The lakefront brownfields site to help stimulate redevelopment of the served by the streetcar became Harbor Park, Pearl District, previously an 80-acre rail yard a downtown-adjacent neighborhood. Four immediately north of downtown Portland, private development projects quickly followed where the land lacked even a basic street and precipitated a desire for a four-mile grid. The initial line was routed to connect extension. Kenosha acquired and rehabilitated major destinations, starting from the Good five pre-1940s President Conference Samaritan Hospital, through the Pearl Committee (PCC) cars. Half of the line runs redevelopment district, into downtown and on in the street and half runs in a grass strip to Portland State University. The Pearl District alongside the street. The Kenosha streetcar is was the centerpiece, of the initial alignment, owned and operated by the Kenosha Transit and the streetcar, along with new zoning, Commission and cost $6.3 million to construct, financial incentives, and public infrastructure including a maintenance facility. investments, helped spur the complete 3 redevelopment of the rail yard into a vibrant, and entertainment focus. A short extension mixed-use, urban neighborhood. The heart brought the streetcar of the edge of the of the Pearl District is Jamison Square, a lively downtown core. By not running through public space that attracts people of all ages downtown, it limits broader non-tourist and is served by the streetcar on both its east mobility benefits. and west edges. That said, the City estimated approximately Initiated by a group of business owners $1 billion in public and private investment and developers, and supported by the City, occurred within the first five to six years the Portland Streetcar aimed to become a after operations began. The City is currently “pedestrian accelerator.” The streetcar would assessing an expanded streetcar network encourage more walk trips, create more retail- as an element of its downtown/waterfront seeking foot traffic, and provide a mobility planning and implementation strategy. A mode with sufficient permanence to entice newly-announced $1 billion private waterfront high-quality, long-term development. By all development project is urging the City to indications, the Portland Streetcar met its expand the current streetcar line and to desired objectives. Since its opening, more convert it to a modern vehicle. Tampa’s than $4.8 billion in commercial and residential original streetcar segment cost $48.3 million development occurred within ¼ mile of the to construct. streetcar line. These three streetcar systems set the table for a Since the initial line, Portland saw five nationwide interest in pursuing the streetcar as an additional extensions, resulting in a 7.35- integral element of community building. Between mile long system. Until the City received a 2002 and 2014, another five projects opened: federal Small Starts grant of $75 million in Tacoma, Seattle, Portland’s second line, Salt Lake 2009 (the fourth extension), the system was City, and Tucson. During that period, another 20 locally funded. Businesses in Portland formed communities began formal planning, design, and/ Portland Streetcar, Inc. to build and operate or construction of streetcar projects, as well as the streetcar, with the support of The City of extensions. Portland. The initial 2.5-mile route cost $55 million to construct. Implications of a Short History

Tampa: With these new projects – and Portland with the first modern streetcar in over 50 years – Addressing tourism was the principal goal there were no operative “rules” to guide project of the Tampa streetcar, connecting the development. Consequently, each community convention center, cruise port, Florida developed its lines to meet local needs and Aquarium, associated attractions, and mixed- expectations. The transportation industry did not use activity centers to Ybor City, the historic have accepted planning and design standards Cuban barrio. The Tampa line was deemed to coordinate/calibrate with the regional travel the destination crescent, clearly supporting demand model for estimating ridership. Street its tourism role. At 2.4 miles long, it runs in cross sections, overhead power supply delivery, a dedicated right-of-way using a replica car. traffic control, pedestrian coordination, speed The Gomaco Burney Safety car is the same and related issues were addressed independently. streetcar that historically ran in Tampa. While Accordingly, each community made local decisions the line is to the east and south of downtown on these issues. Kenosha had both in-street proper, it does skirt Channelside, a mixed- running and designated guideway; Portland use redevelopment district with a residential elected to have a completely in-street running 4 line; and Tampa had a designated guideway. vehicle. These accidents were no more frequent Because mobility was an important factor, the than with the introduction of other new transit streets designated for the streetcars were those modes, and because of the streetcar’s slower that offered desired access to existing and speed, the accidents that occurred were uniformly future destinations, gave route visibility and less severe. In its first 10 years of operations, the clarity, promoted modal connectivity, and could Portland Streetcar did not experience a single accommodate future extensions. accident that caused an injury.

Because streetcars had been largely absent for so Rating and evaluating systems for transit projects long, both from the public consciousness and from also were poorly-suited to measure the benefits the transit planning and design professions, their of streetcars. When federal funding opportunities arrival brought some challenges. As new streetcar began to emerge, evaluation criteria for modes systems began operations, there were some such as light rail and commuter rail were used minor accidents, as these new vehicles share the to assess the streetcar’s cost-effectiveness. roads with cars, commercial vehicles, pedestrians, Since these measures were designed for longer and bicyclists. d Drivers and operators were commuter-based trips and focused on congestion unaccustomed to sharing the road with a rail mitigation and travel-time savings, the streetcar

SOURCE: COMMUNITY STREETCAR COALITION 5 did not rate well; it was slower and stopped THE STREETCAR – FOR more frequently, often in urban congestion. Of TODAY AND TOMORROW course, that is the streetcar operating model. While the streetcar’s benefits come from easy There is a generous mix of reality and myth pedestrian access, integration with the urban concerning the streetcar – its goals, its environment, and suitability for all types of trips functionality, its role in development and value (not just commute trips), traffic-imposed delays creation, and its long-term contribution as a and slower speeds raised concerns among some transportation mode. The streetcar came on the about operating reliability of the streetcar. The scene during a time of change – a documented inability to meet “accepted transit measures” gave population return to city centers, complementary rise to criticisms of the streetcar as a true transit demographic shifts, emerging attitudes for travel mode. These critiques reflect a misunderstanding choices, and the market shift toward walkable of the streetcar’s objectives and strengths, and urbanism. While the first round of modern often reflect a bias for speed over access, a streetcars actually preceded these changes philosophy shown by the highway system to be by several years, they and those that followed highly detrimental to urban life and development benefitted from and facilitated this new urban opportunities. ethic. As the renaissance in city centers began to grow and spread, the streetcar was at the Expectations and Adaptation forefront. It provided access to both mature urban places and emerging opportunity areas. Missing from the discussion is a common set of The well-chronicled return to the city over the streetcar-specific evaluation criteria that can be past two decades is creating new real estate used to equitably assess streetcar performance. markets. At both ends of the population spectrum Some supporters of the streetcar are urging that – millennials and seniors – there is an increased critics stop making “perfect” the enemy of the desire to live in walkable in-town neighborhoods “good.” In fact, as identified in the section on and mixed use, high-density environments. Mobility Benefits, communities are addressing critical issues such as reliability, frequency, and speed in a number of creative ways, without compromising the accessibility that underlies the streetcar’s primary benefits. The results of these lessons learned will help inform a more positive approach to project development that can be more universally adapted and applied.

What the Future Looks Like The Community Streetcar Coalition monitors and documents new streetcar projects. In its Streetcar Summit 2015 report, the CSC reports 43 communities committed to or exploring new streetcar projects. In 2015, future openings are set for Dallas, Charlotte, Seattle (extension) and Washington, DC. 2016 will see openings in Cincinnati, Detroit, Kansas City, and St. Louis. The accompanying map depicts the current status of Cities Committed and Exploring Streetcars. MODERN STREETCARS: PORTLAND, SALT LAKE CITY, SEATTLE, TUCSON 6 Changing Demographics – Both Further support comes from Millennials Ends of the Spectrum & Mobility by the American Public Transportation Association (APTA). It The changing demographic picture in the US concluded that millennials are driving change over the last 15-20 years showed the beginnings and they: of dichotomous age trends with a focus on millennials (born between approximately 1984 • Prefer communities with many and 2004) and baby boomers (born between transportation options, including approximately 1945 and 1965). In 2015, there public transportation. Millennials are 92 million millennials and 77 million baby are multimodal, they choose the best boomers. These two population bulges have transportation mode (driving, transit, implications for future development and bike, or walk) based on the trip they transportation choices. are planning to take. Communities that attract millennials have a multitude of Millennials - A recent report by the US PIRG transportation choices, as proven by Education Fund on millennial habits found that millennial hotspots, popular zip codes these younger Americans have a propensity where residents have self-selected into a for urban living. Evidence comes from multi-modal lifestyle. multiple sources. The Pew Research Center • Consider public transportation options in 2014 revealed that 38 percent of 18- to as the best means for digital socializing 29-year-olds prefer to live in cities compared and among the most likely to connect the with 24 percent of all age groups. A similar user with their communities. Transit also 2014 TransitCenter survey reported that 32 allows millennials to work as they travel, a percent of those under age 30 preferred city trend noted by 40% of those polled. neighborhoods as their “ideal” neighborhood. • Employ pragmatic reasons for For those over age 30, the preference was transportation choices, such as needing 16 percent. The Urban Land Institute in a to save money, convenience, exercise, 2013 survey found that 21 percent of 18- to preferring to live in a place where it makes 34-year-olds who were likely to move stated more sense to use transit. they would like to relocate to a big city. The American Planning Association also indicated STREETCAR RIDERS IN some 56% of millennials desire to live in TUCSON, AZ walkable communities.

7 • Would like to see, over the next 10 years, Walkable Urban Places – more reliable systems with real time “WalkUPS” updates and Wi-Fi/3G/4G availability for fully leveraging technology. Driven by the demographic trends and the associated preferences, the downtown Cities across the nation are leading the renaissance came to understand the fundamental way by expanding public transportation changes in a broader context. There is a options, building new bicycle and pedestrian growing body of research into two patterns of infrastructure, and opening the doors for an development: drivable suburban, the last 60 array of innovative new technology-based year pattern; and walkable urban, the more transportation services. For example, Atlanta, recent pattern. Christopher Leinberger named certainly a car-dominated city, understands the neighborhoods that reflect this preference the “today and tomorrow” implications. The “WalkUPs,” or Walkable Urban Places. The City recognized that its streetcar investment drivable suburban model of the twentieth century was to attract – and retain – the millennial featured low-density development accessed age group as a long-term strategy to position primarily by private automobiles. Real estate Atlanta in the global marketplace. products – housing, shopping, office and industrial - were largely separated, requiring auto driving Baby boomers – Between now and 2030, an as the principal mode. This model fueled the estimated 1.6 million baby boomers will turn economy and was very successful in the mid- to 65 annually. Trends are showing, according late-20th century. to a Pew Research Center survey, that those 65+ prefer to live in a city. If the 50-64 baby In contrast, the WalkUP format offers greater boomer age group is added to the 65+, 37% density, intensity, and mixes of diverse real estate have a preference for city living. As living types. They are connected by multiple modes such preferences shift, the baby boomers are as rail, bus, bike, and auto. In WalkUPs, most daily seeking convenience, pursuing healthy living destinations are within walking distance. Research and staying engaged. Boomers are looking for studies into WalkUPs are being conducted by something different: the George Washington University’s School of Business and LOCUS, an arm of Smart Growth • Many are seeking urban or close-in America. Today there are over 550 WalkUPs in suburban locations 30 US metropolitan areas. Four WalkUP types • Most want urban amenities, even in are defined, ranging from High Walkable to Low suburban locations Walkable. These places have greater economic • Walkable communities with amenities, productivity, higher percentage of college culture, health care, and education graduates, and higher per square foot rent premiums. Trends found in the research suggest The streetcar is one of those transportation the demand for tens of millions of square feet of investments that responds to both of these walkable urban development and hundreds of dynamic demographic-induced change factors. new WalkUPs.

With the spread of WalkUPs, the streetcar can play an increasingly important role, since the pedestrian is the top priority rider. Research regarding WalkUPs are showing these places perform at a higher rate with rail transit.

PORTLAND, OR 8 SUPPORTING GROWTH AND Creating Value OPPORTUNITY Streetcar projects generate higher property values for cities, and that translates into higher revenues. Historically, transportation investments drove A 2009 study by The Brookings Institution provides development - where roads met rivers, where findings in property value increases for three railroads met towns, and where interstates met American cities with recent streetcar and related the suburbs. So the issue of whether the streetcar development experience – Portland, Seattle, creates, catalyzes, facilitates, guides or supports and Tampa. Of the three, Portland experienced economic development is not as important as the greatest increase in raw land valuation. the result. When streetcars are introduced, The increases were due largely to substantial development and increased property values show underdeveloped property and highly successful up. This stresses the importance of land use and redevelopment efforts in proximity to the mobility working together. The discussion on streetcar alignment. In Seattle’s South Lake Union dense, mixed use, and walkable development area, the streetcar proved to be a particularly patterns illustrates specific mobility requirements important catalyst for bioscience, technology and the streetcar’s potential role for today and companies, and general office, residential, and tomorrow. mixed-use activity that accompanied the large

NEW DEVELOPMENT SURROUNDING THE STREETCAR IN SALT LAKE CITY, UT

9 initial investments. Tampa’s streetcar investment enhanced. Even with the recession, properties was intended to serve as a catalyst for increased along its length experienced demonstrable tourism and it also led to unanticipated benefits changes. Current findings include: for other commercial and mixed-use investment. • $4.5 billion of public and private The Brookings study observed that a major investment was built within ¼ mile of benefit of these three streetcar projects was the streetcar alignment; that represents the “ability to connect places that were never 30% of all development in the corridor to connected before.” In effect,“the streetcar date became the connective tissue and organizing • Within ¼ mile of the line, a total of 23 principle for growth.” The private developers million square feet of space was built saw the streetcar as a permanent, high-quality, since 1998, with 7.7 million square feet in infrastructure investment evidencing the public commercial uses and 17,888 residential sector’s long-term commitment to the area. While units a strong facilitating factor, the streetcar was not • 35% of all commercial development and the only reason for development. Key private 41% of multi-family units were attributable players were in place to assure that the streetcar’s to the streetcar return-on-investment was realized early on. Such • Recently updated information found that near-immediate success also served to draw new the total market value of in the corridor and often unanticipated business and investment rose from $4.3 billion in 1998 to $11.63 interests toward transit supportive developments billion in 2015; in 1998, that was 11% of Portland’s total market value, and in 2015, Tracking Development Activity it represented 17% of its total market value Communities are tracking new development • 25% of all residential units in the corridor activity on a regular basis. Looking at the four are affordable cities surveyed by the Community Streetcar • Between 2000 and 2014, population grew Coalition for this report, a diverse array of 30% in the corridor, while Portland grew economic and development activity is evident 12.4% around their streetcar lines. • In 2014, 33% of all Portland jobs were found within the streetcar corridor Portland: • Properties located nearest the streetcar Portland’s goal was always to use high line more closely approached the available quality transit service as a means to improve zoning density potential than properties mobility and livability. The City achieved early situated farther away success in development along the streetcar, • Developers are building new residential initially and as it expanded. Portland’s 2014 buildings with significantly lower parking development report, updated to show ratios than anywhere else in the region. In development activity since 1998, when the some cases there was no parking at all. original streetcar alignment was identified. Within ¼ mile of the streetcar line, growth continued and market value was further

10 11 Seattle: South Salt Lake City, with its land use and zoning changes, has a five-acre mixed use/ Likewise, Seattle has a goal to accommodate housing project breaking ground in 2015, economic development and contribute with a similar 10-acre mixed use/housing to neighborhood vitality. Since its project opening in 2016. Currently, the City announcement, the South Lake Union is projecting $600 million in development streetcar line acted as a catalyst for more than: including:

• $4 billion in private investment • 3,000 housing units • Six million square feet of commercial • 150,000 square feet of retail and space • 1.2 million square feet of office • 3,500 housing units and • 20,000 new jobs Tucson:

With future extensions slated to open in Tucson is one of the newest streetcar 2015, 2016, 2017, and 2018, the City expects cities, opening its SunLink line in 2014. It continued economic development activity and is experiencing a wide variety of activity in will provide regular updates. concert with the line. Between 2008 and 2015, the Tucson Downtown Partnership Salt Lake City: documented $553 million in private development on or near the line. In 2015, Recognizing that for the new S Line streetcar $162 million in development is being added. to be successful, Salt Lake City and South The development totals break down as Salt Lake City (each City shares one mile of follows: the two-mile line) needed to coordinate and increase their land use and zoning allowances. • Office - $120 million Both City’s actions allowed major increases in • Mixed Use - $170 million density. By doing so, they began to realize the • Residential/Hotel - $118 million development potential anticipated with these • Retail - $50 million changes. To date, Salt Lake City reports $235 • Utilities - $60 million million of new private development completed • Cultural Arts - $15 million or underway, including: • Health and Education - $20 million • 700 new housing units and Beyond the $196 million spent on the • 220,000 square feet of new commercial streetcar, the Downtown Partnership lists space another $334 million in public investment to support the project and anticipated Based on current trends and reported activity, development. During the same 2008 to 2015 Salt Lake City expects another 350 housing period, 220 new businesses opened. In terms units and 475,000 square feet of office/ of jobs, the Downtown Partnership estimates commercial space from projects that are a total of 3,000 permanent jobs was created currently being planned. or relocated from private developments. SALT LAKE CITY, UT With the public construction, there were some 7,400 jobs. The City of Tucson and the Downtown Partnership see the streetcar as a win-win investment.

12 Attractiveness to Developers Portland - Two investors were the major drivers of development and investment As the old saying goes, “the proof is in the downtown and in the Pearl District. Their pudding.” While some question the causal direct involvement was crucial in the early relationship between the streetcar and various days of the streetcar’s implementation. private investments, the best way to ascertain the thinking of the investors is to ask them. The “As Board Chair for Streetcar, I would sit down testimony of those willing to make investments with property owners to discuss construction in collaboration with the streetcar investment is and say, ‘Go to the beach for a week, when compelling. you come back, the project will be done and your business will not have been negatively Kansas City - The Kansas City experience is impacted and your property will be worth highlighted here as another example where twice what it was the day you went to the the development community was attracted to beach.’ We made good on one promise, failed the streetcar line. This two-mile line, running on the other. We did get it done in a week, and primarily along Main Street, is scheduled to the property values didn’t go up twice, it went open in 2016. It serves downtown and major up closer to four times.” activity centers to the north and south. The City estimates more than 40 projects totaling Michael Powell, Owner just over $1 billion were started along the Powell’s Books route since 2012. Here are some of the testimonials of developers as to the benefits “The work that we put together was based they see from the streetcar investment. on three principles, and identified by three words that we thought captured the very “The Streetcar project…prompted us to double essence of the streetcar. The first word is the size of our development and increase our Commitment. From a developer’s perspective investment in Kansas City by $20 million.” and from a community’s perspective, the idea of the city making a commitment to Jonathan Arnold, CEO this infrastructure was very important. The Arnold Development Group next word’s Permanence. If a developer and small businesses come into the area, they’d “It’s on the streetcar line and everybody is like to know that that streetcar line is going looking at ways to maximize that.” to be there. The last word Catalyst, this is Deb Churchill, Partner the most important word. If the streetcar KC Commercial Real Estate line is in place, people felt that they could make investments in their businesses and in “Our decision to commit to residential and their properties because the commitment other services …is tied to the streetcar.” and the permanence signaled to them that Dan Musser, Senior Vice President this was going be here in twenty five, fifty, Zimmer Real Estate seventy five years, and they knew that that long term picture was going to be good for Of course, each of the four surveyed communities them. I can’t think of any one event that could – Portland, Seattle, Salt Lake City, and Tucson - has have triggered more catalytic development, similar responses from developers and investors. business growth than the streetcar.” A sample of them follows by City. John Carroll, Principal Carroll Investments

13 Seattle - The unprecedented growth and “In a little over 60 months we have seen more redevelopment in the South Lake Union area than $350 million in the greater downtown was fueled by Vulcan, Inc. The increase in area and $650 million of private investment property values enabled approximately one- along the entire streetcar axis. I think we have half of the first phase streetcar capital cost to answered the critics who so strenuously stated be covered by private investment. that transit-adjacent development would never happen in Tucson” “The Seattle Streetcar ignited investment and Michael Keith, CEO development in South Lake Union and played Tucson Downtown Partnership a key role in attracting innovative companies to the neighborhood. This has resulted in THE MOBILITY BENEFITS countless new jobs and millions of dollars of tax revenue for the city. The streetcar has been This section is based on the surveys of the four a vital component of growing a pedestrian- cities that are operating “modern” streetcars - oriented urban environment where residents, Portland, Seattle, Tucson, and Salt Lake City. Topics tenants and visitors can experience a car-free, considered are: sustainable lifestyle.” Ada M. Healey, Vice President, Real Estate • Mobility goals and purposes Vulcan Inc. • Meeting expectations • Adapting for reliability Salt Lake City - Not only was Salt Lake • Expanding reach and benefits City aggressive in up-zoning to induce development, its sister city, South Salt Lake While there is a summary for each city, several did the same. The development community noted trends were gleaned from the survey followed suit by investing and developing. findings. The trends point to emerging directions for planning, designing, and operating a streetcar “We are integrating transit stops and to maximize the benefits, beginning with mobility. connections that are walkable and attractive Among the trends are: into our mixed-use development. We believe the benefits of the streetcar and our TOD will • Mobility generally is among the first goals result in a new and remarkable mixed-use for implementing streetcars development for the neighborhood.” • New systems are demonstrating smart Todd Olsen route planning to avoid congestion Dee’s Inc. • Ridership is meeting or exceeding expectations “The streetcar project is a big catalyst for our • “Congestion” is not always a problem and development. It was the tipping point in our it is not an all-day phenomenon being willing to pay top dollar for the site.” • Innovative solutions are being introduced Dan Lofgren to increase and enhance reliability Cowboy Partners • Land use changes are being made in advance of openings Tucson – As the latest of the modern streetcar • Streetcars help advance economic cities surveyed, Tucson, in conjunction development along the lines with the Downtown Partnership, forged an • The development community still strongly important relationship to bring $1 billion in supports the streetcar as a project public and private investment to the streetcar “benefit” corridor. • Streetcars are becoming more integral elements of regional networks 14 The next four topics - Mobility Goals and Seattle: Purposes, Meeting Expectations, Adapting for Reliability, and Expanding Reach and Benefits The goal for Seattle is to “…provide local - are summarized City-by-City based on the transit service, connect to the regional survey results and supporting documentation. system, accommodate economic development, The sequence is Portland, Seattle, Salt Lake City, and contribute to neighborhood vitality.” and Tucson, the order in which streetcars lines Based on the 2005 Capital Financing and opened. Operating and Maintenance Plan, mobility is in the forefront of the expanding streetcar Mobility Goals and Purpose system.

All four communities have goals that feature Salt Lake City: mobility as a primary role, along with supporting economic development and livability. Having The Sugar House streetcar’s goal, according this emphasis on mobility leads to integrated to the 2010 Environmental Assessment, policy development and coordination. This is is clearly mobility-oriented and intended critical since some streetcars are sponsored by to “…address the need and opportunity cities, other by transit agencies, and others by for connectivity and increased mobility non-profit organizations. Clearly stated goals and between the newly developing 2100 South purpose help develop coordinated mobility, land area and…the community of Sugar House… use, and infrastructure implementation across The project is expected to contribute to multiple platforms. Goals for each, with mobility improved connectivity on 2100 South and highlighted are: between neighborhoods and attractions… and beyond…Provide multimodal travel Portland: choices; increase mobility for short-range trips; provide connections to the regional The Portland Streetcar System Concept network…provide a transportation Plan offers a holistic set of goals that improvement that is pedestrian-friendly, is is “encouraging infill development and compatible with surrounding neighborhoods, redevelopment…serving as a catalyst for and supports community and economic housing development…providing an accessible development.” Salt Lake City understands the network of transit options that will reduce need for accessibility and convenience, while the dependency on the automobile…and supporting neighborhood compatibility and advancing a healthy, competitive local, economic opportunity in Sugar House and regional and state economy.” beyond.

15 Tucson: Seattle:

The last of the four, and most recently opened, On the initial segment, Seattle’s estimated the intent of Tucson’s Sun Link streetcar is to “… capital costs of $53M were met, as was the develop a major transit investment connecting planned construction period of 16 months. major activity centers in the central core. The The initial ridership was estimated at 2,000 City of Tucson and other local decision-makers riders per day and current ridership sits at have been focused on addressing this need, 2,500 per day. In 2012, there was a slight drop as documented in previous transportation in ridership due to PM peak congestion in a planning and development initiatives. The specific location, and the City is addressing this need for the proposed action is based on the pinch point. The City estimates when its four following criteria: routes are completed (first extension opens in 2015), weekday ridership in 2018 will reach • Connect Major Activity Centers approximately 27,000. • Create Economic Development • Support Population and Employment Salt Lake City: Growth • Improve Transit Service The S Line was completed within its 18-month • Mitigate Parking Constraints” construction schedule and its $37 million construction budget. Ridership projections were 2,000 riders per day, but the economic Meeting Expectations recovery, shorter operating hours, and the While there are often criticisms that expectations fact that some of the nearby housing projects were overstated and not being met, a review of the were still under construction all contributed four cities helps to dispel some of the criticisms. to a lower starting ridership of about 800 Using the reported survey results, planned versus per day. Operating hours were extended in actuals for construction costs, construction August 2015 to match the rest of the regional schedules, and ridership are summarized below. On rail system, several new housing projects have the whole, estimated versus actuals for each of the opened, and ridership had climbed to 1,334 three factors show very good performance across riders per day by September 2015. the cities. Tucson: Portland: Sun Link’s estimated budget was $196M The discussion for Portland is more complex and the project is anticipated to meet that given its tenure and number of extensions. number. It currently is under budget, awaiting With five segments and a total construction project closeout. The project construction cost of $251.5M, each extension was under period exceeded its June 2013 opening by four budget and on time. Portland’s original daily months, being completed in October of that ridership goal was 4,980 and now the daily year. As the most recent streetcar project, its the ridership is 15,000. When the new loop is ridership is impressive. The initial estimate of complete, that number is expected to reach 3,600 riders per weekday now sits at 4,200. 25,000 over the next 10 years. Even when the Saturdays find between 4,000 and 5,000 fareless square in downtown was eliminated, riders, depending on particular events. The there was little ridership drop-off. This was due single highest day was a Saturday with 10,000 to the interlining streetcars on SW 10th and SW riders. 11th, resulting in more service being provided.

16 17 Adapting for Reliability In specific locations, the City is considering streetcar- and turn-only lanes. As noted earlier, with no operative models in place when the early systems opened, streetcars There is a PM peak congestion period at the were generally built to run in the street. Any interstate interchanges and at the Moda new street-running mode that shares the right- Center (National Basketball Association of-way with cars will create and encounter new games/concerts). Both are east of the conditions. Driver behavior is affected by having Willamette River in the Rose Quarter. All a new vehicle in the street. The specific route modes of transportation, including the such factors as time of day, congestion points, streetcar, are subject to delay at this location, and high pedestrian activity can affect the especially during sporting and entertainment streetcar’s performance. The surveys revealed events. each community understood there were unexpected issues they would need to address. Seattle: Some adaptations were dealt with after the fact, and some were anticipatory. In the latter case, Most of the congestion issues occur during adaptations were based on lessons learned from peak travel times, principally in the PM peak other communities’ experiences. Saying there near South Lake Union. Evening commuters never would be congestion or delays was not are trying to access I-5 at the same location the message ever sent by streetcar sponsors. where the streetcar serves a major medical However, the ability of cities to recognize and center, Amazon, and high-density residential mitigate “hot spots” reinforces the streetcar’s development. Consequently, the 15-minute mobility value. The advanced planning and planned headway is affected. The City is adaptation revealed in the surveys again are listed addressing the issue with spot improvements by City. at specific, high congestion intersections. A transit-only lane for bus and streetcar is being Portland: developed on the South Lake Union line. With the expansion of the system, the new 1.2- The City and Portland Streetcar, Inc. mile Center City Connector (2018) will run reported very few traffic-related issues on in an exclusive lane, delivering five-minute their alignments. The streetcar runs at 86% headways. reliability, which is equal to the MAX light rail system (which runs partially in a dedicated Salt Lake City: right-of-way) and better than TriMet’s buses. In a limited number of locations, the City The S Line is a 2.1-mile starter line that is employing mitigation solutions such as completely runs in a separate dedicated right- interlining, overlapping routes to reduce of-way. This avoids the typical congestion headways, and installing pedestrian signals. concerns so often raised. At two arterials, the On the Central Loop line, the City is interlining S Line has priority (though not preemption), service on SW 10th and SW 11th through and at smaller-volume street crossings, the downtown to the Pearl District, reducing cities gave the streetcar the right-of-way effective headways to seven minutes during over crossing vehicles. Cars are stopped by a the day and 10 minutes in the evening. Along traffic signal or stop sign. Because it is serving the Central Loop, there is also a pedestrian neighborhoods and ending in the Sugar House problem that affects traffic, and the City business district, the City made a conscious is installing pedestrian signal to allow a effort to choose access and convenience over “pedestrian scramble” to address the conflict. speed. With seven stops on the line, the City wants existing and future residents to easily 18 access the streetcar as a means of travel. In city centers, they provide the last mile of the addition to direct access with housing and trip service. The surveys indicated that each City shopping destinations, integration with bus was interested in maximizing connectivity to the and light rail allows access from Sugar House available modes. Obviously, the larger cities have to the greater region. more robust intercity and regional rail service. Nonetheless, integration and connectivity are Tucson: scaled to each city’s available modes. The result is a broadened understanding of the streetcar’s Tucson reviewed other streetcar projects emerging role as a regional transport asset. to apply lessons learned. The streetcar was designed to be a new mode for improving the Portland: City’s mobility network. In conceptualizing the Sun Link alignment, and knowing concerns A critical part of the City and region’s transit over congestion, Tucson took a “smart route legacy is the diversity of available modes - planning” approach. The City selected 3.9- Amtrak, commuter rail, light rail, bus, and mile route for the preferred alignment, using streetcar. Four modes directly connect through streets that had very low traffic volumes. A the central city. There are no intermodal conscious decision was made to avoid arterials hubs per se, rather the streetcar intersects for the alignment. There are no AM or PM with the Portland Transit Mall, allowing easy peak congestion issues. By not choosing an and frequent transfer with light rail, buses, arterial, the City could focus on making sure and Amtrak. The Transit Mall is one of the the streetcar’s operations were compatible City’s most iconic and recognizable transit with overall traffic conditions along the investments. Commuter rail, the fifth regional corridor. Interestingly, there are impacts mode, is accessible via light rail at Beaverton to service from Thursday through Saturday to the west of the City. evenings in downtown - the area is once again popular as a “cruise way.” That led the City to Seattle: develop a traffic diversion program to maintain streetcar operations. Tucson is working on As one of the largest streetcar cities, Seattle priority signalization and queue jumpers at has a rich transit network to which it key locations along the streetcar alignment. connects. As the system expands over the City ordinances allow towing and ticketing next three years, the multimodal integration of illegally parked vehicles. There are regular will commensurately broaden. The Seattle meetings with emergency services to reduce Streetcar connects with the Sounder blockage to streetcars. The City specifically commuter rail, Link light rail, and Metro buses. noted the high rate of “self-policing” along the There are seamless connections between corridor. modes, and transfers are free using the Orca smart card. The King Street station with Extending the Reach and Amtrak service in downtown sits just south of the new First Hill line that opens in 2015. Benefits However, there is no direct streetcar stop, the The idea of extending the reach and benefits is to two closest being about three blocks east and emphasize that the streetcar is not solely focused three blocks west of the station. on short trips. Rather, this section emphasizes the streetcar’s maturing role as an integral feature of The City is planning two major intermodal the larger regional transportation network. It has hubs with Link light rail at each end of a role in connecting riders to the regional services downtown – one at Westlake and the other that have a commuter function, while within the at the International District. The streetcar will 19 20 have a future connection with Link light rail at SUMMARY a smaller hub on Capitol Hill. These three hubs allow riders to access the ever-growing light Even in the face of skeptics, streetcars are rail system, as well as the extensive Metro bus repeatedly and continuously producing strong network. economic development benefits, as well as mobility benefits. Those making private capital Salt Lake City: investments uniformly point to the streetcar as a critical component to their willingness to invest. The S Line inter-connects with light rail, bus However, the economic development success and a circulator as part the expanding regional of streetcars does not necessarily overshadow rail and bus network. The S Line does not their mobility benefits, which are emerging more reach the region’s intermodal hub, but the clearly with every new project. streetcar connects to three north-south light rail lines at the east end of the line. Along the The “modern” streetcar history is only 15 years, route, the streetcar intersects with five north- beginning in 2000. Consequently, as streetcar south bus lines, adding to its intermodality. projects came onto the national stage, there As part of the overall project, a paralleling were no “models” or “standards” for planning greenway/bikeway adds bicyclists and and design. Over a three-year period – 2000 to pedestrians as additional connecting “modes”. 2002 – three streetcar projects were developed. A single, electronic fare card allows access to Kenosha was a heritage car version; Tampa was all modes. a replica car version and Portland was a modern car version. Three cities, in different regions, with Tucson: different population sizes, with different intents and purposes, and different choices in streetcar For a City of its size, the Sun Link streetcar vehicles, nonetheless helped kick-start what demonstrates a high level of connectivity became a virtual streetcar revolution. Since these with all available modes: bus, University of early starts, project goals and expectations are Arizona and neighborhood circulators, and well-defined, including mobility as a central role. Amtrak. The streetcar connects with Sun Tran’s (bus) fixed route in the downtown hub. Cat With increased expectations for the streetcar, Tran, the University of Arizona circulator, also there was a need to adapt to the particular connects with the streetcar on campus. The situation of each location and vehicle type. University is taking advantage of the streetcar The proponents of the streetcar movement for on-campus service, helping reduce the understand that it is about not only today but also need for additional expensive structured for the future. The sharp change in the Millennial parking. and Baby Boomer demographics emphasize the need for non-auto modes of transportation. Sun Shuttle, run by the Regional The demographic trends are reinforced by the Transportation Authority, is a neighborhood emergence of walkable urban places, WalkUPs. circulator that connects with Sun Link, thus A major finding is that streetcars support growth extending the effectiveness of the streetcar and opportunity. Reviews and surveys show as an integrating mode. In addition to hub that land values increase, development activity connections, streetcar stops link to these accelerates and the streetcar lines are attractive to services at various locations along the developers. alignment. It also serves Amtrak located at a train station near the alignment. For customer The premise of this report is that mobility benefits convenience, Sun Tran coordinates the transfer accrue to communities from their streetcar information in brochures, online, Facebook, investments. To help develop these benefits, and Twitter. the Community Streetcar Coalition surveyed key 21 features in four cities with modern streetcars Future updates: and a minimum of one year in operation. . These features surveyed were: Setting Mobility Goals, This document represents the Community Meeting Defined Expectations, Adapting for Streetcar Coalition’s initial effort to provide Reliability, and Expanding the Streetcar’s Reach. communities the most current information We highlighted general trends and outlined future on the diverse benefits – and especially the updates. mobility benefits – that streetcars provide. Each year, the Coalition holds a Streetcar Mobility Trends: Summit that continues to develop a broader and deeper appreciation of the benefits that Based on the surveys and interviews, several come with this important transportation noted trends were gleaned. These trends point investment. As more projects start and others to emerging directions for planning, designing, mature, the streetcar story will become even and operating streetcars to maximize the more compelling. benefits, beginning with mobility. Among the trends are: If you seek additional information about this report or the Community Streetcar Coalition, • Mobility generally is among the first goals please contact: for implementing streetcars • New systems are demonstrating smart Jeffrey F. Boothe route planning to avoid congestion Executive Director • Ridership is meeting or exceeding (202) 429-2020 expectations [email protected] • Congestion is not always a problem and it is not an all-day phenomenon • Streetcars – like other modes of transit – require innovative solutions to increase and enhance reliability • Land use changes being made in advance of openings • Streetcars are helping advance economic development along the lines • The development community still strongly supports the streetcar as a project benefit” and • Streetcars are becoming integral elements of regional networks, thereby extending their reach.