1 Agenda – Standing Policy Committee on Infrastructure Renewal and Public Works – October 4, 2017 REPORTS Item No. 4 Recomm

Agenda – Standing Policy Committee on Infrastructure Renewal and Public Works – October 4, 2017

REPORTS

Item No. 4 Recommendations Regarding Trial Program for Taxis and Handi- Transit Vehicles in Diamond Lanes

WINNIPEG PUBLIC SERVICE RECOMMENDATION:

1. That the $100,000 required for the proposed study, outlined in this report, be referred to the 2018 Budget Process.

2. That the proper officers of the City be authorized to do all things necessary to implement the intent of the foregoing.

Agenda – Standing Policy Committee on Infrastructure Renewal and Public Works – October 4, 2017

DECISION MAKING HISTORY:

STANDING COMMITTEE RECOMMENDATION:

On September 11, 2017, the Standing Policy Committee on Infrastructure Renewal and Public Works laid over the matter to its meeting on October 4, 2017 to allow the Winnipeg Public Service time to consult with counterparts in Montreal and Edmonton.

On April 13, 2017, the Standing Policy Committee on Infrastructure Renewal and Public Works laid over the matter to its meeting on September 12, 2017.

COUNCIL DECISION:

On October 26, 2016, Council concurred in the recommendation of the Standing Policy Committee on Infrastructure Renewal and Public Works and adopted the following:

1. That the Winnipeg Public Service report back to the Standing Policy Committee within 180 days on the following:

A. Implementation of a pilot project to allow the taxi industry and Handi-Transit private service providers to use diamond lanes.

B. The potential implementation of high occupancy vehicle lanes for vehicles including taxis, through the ongoing OurWinnipeg process.

2. That the Proper Officers of the City do all things necessary to implement the intent of the foregoing.

EXECUTIVE POLICY COMMITTEE RECOMMENDATION:

On October 12, 2016, the Executive Policy Committee concurred in the recommendation of the Standing Policy Committee on Infrastructure Renewal and Public Works and submitted the matter to Council.

STANDING COMMITTEE RECOMMENDATION:

On October 4, 2016, the Standing Policy Committee on Infrastructure Renewal and Public Works recommended the following:

Agenda – Standing Policy Committee on Infrastructure Renewal and Public Works – October 4, 2017

DECISION MAKING HISTORY (continued):

STANDING COMMITTEE RECOMMENDATION (continued):

1. That the Winnipeg Public Service report back to the Standing Policy Committee within 180 days on the following:

A. Implementation of a pilot project to allow the taxi industry and Handi-Transit private service providers to use diamond lanes.

B. The potential implementation of high occupancy vehicle lanes for vehicles including taxis, through the ongoing OurWinnipeg process. and submitted the matter to the Executive Policy Committee and Council.

COUNCIL RECOMMENDATION:

On September 28, 2016, Council ruled automatic referral of the following motion to the Standing Policy Committee on Infrastructure Renewal and Public Works:

Moved by Councillor Eadie, Seconded by Councillor Wyatt,

WHEREAS the taxi industry is an essential component of a city’s transportation system including limousine service;

AND WHEREAS Handi-Transit is part of the City of Winnipeg’s mass transportation system;

AND WHEREAS visitors to the City of Winnipeg can get frustrated with the city through slow taxi service;

AND WHEREAS the city’s taxi industry continues to lobby for use of diamond lanes in Winnipeg like other cities;

AND WHEREAS the City of Winnipeg has the authority under the Highway Traffic Act to allow usage of diamond lanes for the taxi industry including private providers of Handi-Transit services;

Agenda – Standing Policy Committee on Infrastructure Renewal and Public Works – October 4, 2017

DECISION MAKING HISTORY (continued):

COUNCIL RECOMMENDATION (continued):

AND WHEREAS on March 17, 2010 EPC’s agenda had a motion entitled “Item No. 5 - High Occupancy Vehicle Lanes” (diamond lanes) added to its agenda, which was referred to the Winnipeg Public Service for possible implementation with the following rationale:

WHEREAS in the 2006 Implementation Plan for Rapid Transit Task Force Recommendations, the City of Winnipeg has defined diamond lanes as traffic lanes designated for exclusive use by transit vehicles, cyclists, emergency vehicles, and right-turning vehicles;

AND WHEREAS a 2009 Winnipeg Taxi Study commissioned by the Manitoba Taxi Board recommends assisting the efficiencies of the Winnipeg taxi industry by opening up high occupancy vehicle and diamond lanes;

AND WHEREAS the cities of Vancouver, Calgary, Edmonton, Toronto and Ottawa specify the use of high occupancy vehicle lanes to include vehicles such as taxis, motor vehicles with two or more occupants, bicycles and buses;

AND WHEREAS the OurWinnipeg process launched on April 25, 2009 includes the preparation of a Sustainable Transportation Direction Strategy;

THEREFORE BE IT RESOLVED THAT the usage of diamond lanes and the potential implementation of high occupancy vehicle lanes for vehicles including taxis be referred to the Winnipeg Public Service for recommendation and report back to the appropriate committee of Council through the ongoing OurWinnipeg process.”

AND WHEREAS nothing was ever done to allow taxis to use diamond lanes;

AND WHEREAS transit drivers, transit inspectors and WPS traffic services can report abuses of diamond lane rules during a pilot project’s period of study;

THEREFORE BE IT RESOLVED THAT the Winnipeg Public Service undertake all things necessary to implement a pilot project allowing the taxi industry and Handi-Transit private service providers to use diamond lanes with the following exclusions: no pick up or drop off in diamond lanes during operational hours of the lane, and no use of the Graham Avenue transit corridor.

ADMINISTRATIVE REPORT

Title: Recommendations Regarding Trial Program for Taxis and Handi-Transit Vehicles in Diamond Lanes

Critical Path: Standing Policy Committee on Infrastructure Renewal & Public Works

AUTHORIZATION

Author A/Department Head CFO CAO B. Radstrom G. Ewankiw M. Ruta D. McNeil

EXECUTIVE SUMMARY

The Public Service was asked to develop a plan to implement a trial program permitting taxis and Handi-Transit to make use of Diamond Lanes in Winnipeg. Transit and Public Works reviewed information and past decision-making; the Public Service has not supported such requests from the taxi industry in the past on multiple grounds, namely that:

 Taxis may be a form of publically-available transportation, but are not mass transit;  Other cities in North America generally do not make diamond-lanes on an arterial road network available to taxis or other high-occupancy vehicles – nearly all examples are on limited-access freeways.  Opening diamond lanes to vehicles other than transit vehicles or buses is contrary to Council-approved policy in both OurWinnipeg and the Transportation Master Plan.

Based upon the foregoing, the Public Service’s position is that the Diamond Lanes should not be opened up to other modes besides Transit vehicles, cyclists and emergency vehicles.

In response to the Standing Policy Committee on Infrastructure Renewal and Public Works directive, the Public Service proposes completing a microsimulation analysis; the results of which can be evaluated by the Public Service and shared with stakeholders.

RECOMMENDATIONS

1. That the $100,000 required for the proposed study, outlined in this report, be referred to the 2018 Budget Process.

2. That the proper officers of the City be authorized to do all things necessary to implement the intent of the foregoing.

REASON FOR THE REPORT

On October 26, 2016, Council adopted the following:

1. That the Winnipeg Public Service report back to the Standing Policy Committee within 180 days on the following:

A. Implementation of a pilot project to allow the taxi industry and Handi-Transit private service providers to use diamond lanes.

B. The potential implementation of high occupancy vehicle lanes for vehicles including taxis, through the ongoing OurWinnipeg process.

2. That the proper officers of the City do all things necessary to implement the intent of the foregoing.

IMPLICATIONS OF THE RECOMMENDATIONS

Transit has investigated the potential of completing a microsimulation study including obtaining video traffic/taxi count data. It is anticipated that a study of two existing diamond lane corridors (e.g. Main and Portage) would cost approximately $100,000 plus applicable taxes. Existing budget for this study does not currently exist. The estimated amount is recommended to be referred to the 2018 budget process.

HISTORY/DISCUSSION

Diamond Lane Background

Diamond Lanes in Winnipeg are reserved lanes for transit buses and bicycles. The City of Winnipeg has established, under its delegated authority for traffic regulation as defined in the Highway Traffic Act, the use of the “Diamond Lanes” for transit vehicles, bicycles, and emergency vehicles only.

Winnipeg has approximately 30.1 km of Diamond Lanes on major corridors throughout the City; some of these are time limited -- they operate during specific peak periods such as only during the AM peak period or only during the PM peak period.

Under the regulation, all other vehicles can enter the Diamond Lanes only for the sole purpose of turning at the next intersection of a city block. A traffic regulatory sign (Right Lane Must Turn Right) is posted at each intersection where a right turn is required; transit vehicles, bicycles, and emergency vehicles are exempted and are the only vehicles permitted to travel straight through.

The intent and purpose of the Diamond Lanes (also known as Reserved Lanes) is to ensure that transit buses operate reliably and efficiently during the specified time period when traffic volumes are highest. They assist transit buses in avoiding congestion and therefore adhering

6 better to their schedules - optimizing the quality of service to citizens who rely on Winnipeg Transit as their mode of transportation. Opening Diamond Lanes to vehicle classes other than Transit and cyclists is contrary to OurWinnipeg and the Winnipeg Transportation Master Plan.

Taxi Industry Background

The taxi industry in Winnipeg is a vital element and an essential component of the City’s transportation system.

 For visitors to the city, a taxi or a limo is often a preferred method of travel within the city, particularly for those who do not wish to learn how to use Winnipeg Transit.  For those who do not own motor vehicles, taxi trips are a solution when not using Winnipeg Transit.  For those with mobility-related disabilities (wheelchairs and walkers for example), the standard bus service and Handi-Transit cannot entirely meet their transit needs. The same can be said for those persons with disabilities who qualify for Handi-Transit trips.

The taxi industry asserts, that for these reasons, vehicles like taxis (and Handi-Transit) that provide a service different from that of regular vehicles should be allowed to make use of the Diamond Lanes, receiving preferential treatment that regular traffic does not receive.

City Rationale for Maintaining Diamond Lane Access As Is

Requests for other vehicles to use the Diamond Lanes are not uncommon; they have been made repeatedly in recent years. The Public Service’s position is that permitting other vehicles full access of the Diamond Lanes is problematic for the following reasons:

1. Although taxicabs are a form of publically-available transportation, they are not a form of mass transportation, and are used primarily as a substitute for personal vehicles.

2. A small number of travellers (taxi patrons) will degrade travel for a large number of travelers.

3. Diamond Lanes allow high-capacity Transit vehicles to be isolated from other traffic, allowing transit vehicles to bypass delays resulting from regular traffic. This benefit to a large number of travelers stems from a significant number of passengers a single bus can carry. A taxi can only carry a small number of people simultaneously, and often only one passenger at a time.

4. Allowing taxicabs (or other low-occupancy vehicles) to use Diamond Lanes would increase delays to the transit system, ultimately resulting in increased operating costs to the City of Winnipeg, and degraded service quality for large numbers of bus passengers.

5. North American cities generally do not allow taxis to use Diamond Lanes on arterial streets. Nearly all instances where taxis or high-occupancy vehicles are allowed in Diamond Lanes are on limited-access freeways.

The rationale for providing priority to private taxicabs, as opposed to any private vehicle, is not readily apparent. Each taxi can potentially carry only a few passengers, and would interfere 7 with the efficient operation of the public mass transit system. This is counter to the overall objective of Diamond Lanes.

Concern about Opening Access Beyond the Taxi Industry (HOV Lanes)

Opening the Diamond Lanes to taxicabs would be expected to eventually bring public pressure to open the Diamond Lanes to carpools of 2+ or 3+ occupants (which could ultimately include ride-hailing services such as Lyft or Uber, if approved in Winnipeg, in the future).

While high-occupancy vehicles (HOVs) are permitted in restricted access lanes in other cities, generally HOV lanes are only implemented on high-capacity infrastructure limited-access expressways and freeways. Lanes can be dedicated to HOVs (and taken out of service for other travellers) because there are many alternative routes for non-HOV vehicles to take instead, and there is no reason for a vehicle to stop on a limited-access expressway.

Winnipeg’s network lacks these features, and the capacity is not available in a dense, built-up, urban arterial network like Winnipeg’s. If any Diamond Lanes are reclassified as HOV lanes, the result would be that the Diamond Lanes would no longer provide an advantage to Transit vehicles compared to standard travel lanes, making the commute of large numbers of bus passengers worse as a result (i.e. transit buses would not be able to maintain schedule adherence and reliability).

Implementation and Enforcement

Should non-bus vehicles be permitted into Diamond Lanes, non-compliance would be highly likely and would be impossible to monitor effectively.

Delay Due to Taxis Loading/Unloading in Diamond Lane

It has been suggested that should Diamond Lane usage by the taxi industry be permitted, that problematic pick up and drop off activity would not occur, that taxis would only use the Diamond Lanes for travel either of passengers or by empty taxis travelling to a pickup location.

Enforcing a no loading/unloading restriction throughout the city would be extremely difficult, and additional resources would be required. The Public Service does not anticipate that voluntary adherence to these rules by taxi drivers would be high.

Cost to Modify Infrastructure

A capital cost would be incurred in order to allow taxicabs or other low occupancy vehicles usage, as a result of having to change all of the informational and regulatory traffic signage that currently demarks the existing Diamond Lanes.

Transit Signal Prioritization Issues

There would be operational issues to resolve with respect to the existing (approximately 30) Transit Signal Priority (TSP) signals installed along the Diamond Lane network. The impact on 8 taxis on the operation of TSP would need to be investigated, because if these other vehicles did not trigger the TSP, or were not allowed to act upon triggered TSP indication, the positive impact for Transit vehicles of the TSP signalization would be degraded/lost, negatively impacting schedule adherence.

Taxis are currently not authorized to enter the intersection under TSP operation. The Highway Traffic Act would need to be modified; otherwise the presence of a taxi in front of a bus will prevent the bus from utilizing TSP, negating the benefit of TSP provision. However, even permitting taxi priority through TSP controlled intersections could result in transit delays as the priority signal expires while buses are queued behind taxis. Transit priority signals are configured to only be activated by a bus in the queue-jump lane, and would need to be reprogrammed to be activated by taxis. There are approximately 30 transit priority signals in Winnipeg.

Cyclist Opposition to Expanding Diamond Lane Access

Public Works and Transit are not the only sources of opposition to allow other vehicles to make use of Diamond Lanes. Cyclists, who are currently permitted to make use of Diamond Lanes also expressed opposition to the concept.

Several cyclists and cycling advocacy groups were consulted regarding the proposed concept, and all were uniformly opposed to the concept, citing many of the same reasons already stated.

Existing Reserved Lanes for buses and bicycles tend to be on high volume routes with 50 km/h or 60 km/h speed limits. However, Transit vehicles seldom reach these speeds due to transit stops. Thus, corridors allowing lower speed travel are created on these corridors. Adding more vehicles to the Reserved Lanes would no longer provide a safe lower-speed travel lane for cyclists. Taxi drivers have different priorities to Transit drivers; taxi drivers would be more prone to want to pass buses and cyclists, creating potential unsafe movements when changing lanes (in and out of the Diamond Lanes) repeatedly. Speed is a focus for taxis, whereas schedule adherence and reliability are the focus for transit buses in a Diamond Lane. Furthermore, in most cases, Diamond Lanes, from a cyclist’s perspective, act as a regional connection for commuter cyclists where the City does not have alternative routes within 200 – 400 metres. They provide direct and safer connections for cyclists on heavy traffic routes. Adding taxis to Reserved Lanes would very likely result in a need to remove cyclists from these lanes, thus effectively removing 28.5 km of cycling corridor from the City’s cycling network.

Winnipeg's Diamond Lanes make transit more attractive and competitive while also providing space for people on bikes on the curbside lane during peak travel times.

Other Cities in Canada

A brief overview of policies in large Canadian cities with diamond lanes was conducted. Some of these cities do allow taxis and carpool vehicles into Reserved Lanes.

 In large metropolitan cities with complex road networks, (Toronto, Montreal) private vehicles with multiple occupants and taxis are allowed to use Diamond Lanes on limited- access expressways and freeways. 9

 In cities comparable to Winnipeg’s population and form (Edmonton, Calgary, Ottawa), there is no consensus; Edmonton allows taxis, Calgary is investigating if this should occur, Ottawa has not permitted it on City facilities but there are some Provincial segments in the Ottawa area where carpooling is allowed in Reserved Lanes.

Description of City HOV/Diamond lane implementation road network Toronto ON Clear hierarchy 5 HOV corridors on arterials, use is restricted to qualifying vehicles (buses, Pop.: 2.65M of road private vehicles with 3 or more occupants, taxis, cyclists, Major classifications, motorcycles/scooters) when in operation, typically on weekday morning (7-10 metropolitan major highways, a.m.) and afternoon (3 -7 p.m.) rush periods. area major arterials, many alternative City of Toronto's HOV network is a total of 58.4 km routes When the City's HOV lanes were being established in the early 1990s, the decision to use 3+ vehicles (i.e. vehicles with three or more people) over 2+ vehicles (i.e. vehicles with two or more people) balanced levels of anticipated use with the expected operating speed of the lane and, also considered vehicle occupancy patterns in the City. It was felt that a 2+ occupancy would result in too many 'carpools' utilizing the HOV lane, thus detracting from travel time incentives the HOV lanes offered, and interfering with the operations of transit vehicles. By improving transit efficiency and providing incentive for ridesharing, it was reasoned that mobility in the city would be improved and this in turn would help address the City's environmental concerns associated with congestion conditions.

In recent years, the Province has introduced its HOV lanes on some 400 series highways as 2+ HOV lanes. These lanes were add-ons to the existing highway cross-section in that they added an additional lane of highway capacity in the corridors and along those lengths of roadway in which they operated.

http://www.toronto.ca/311/knowledgebase/64/101000040264.html

Montreal QC Several 4 out of 139 km of bus-only lanes permit carpools. Pop.: 1.65M highways Metropolitan Grid system of Taxis are permitted on all but three sections of STM bus lanes. area arterials throughout city The decision to allow or not allow other modes of transport in bus lanes is based on safety, as well as the impact of having others on the lanes might have on bus performance.

http://www.montrealgazette.com/Squeaky+Wheels+Carpoolers+envy+reserve d+lanes/9149334/story.html Edmonton Several Bus lanes provide fast and reliable transit service, they can be used by Police, AB highways emergency vehicles and taxis, but not private vehicles. Pop.: Ring road 812,000 Grid system of 6 segments throughout city. Unicity arterials throughout city https://www.edmonton.ca/transportation/on_your_streets/bus-lanes-traps.aspx Calgary AB Several Two HOV corridors: Pop: 1.10M highways Unicity Ring road  Centre Street N: 2 or more people in a vehicle, bicycles, transit Grid system of  Crowchild Trail: Transit only arterials throughout city Primary HOV network is part of Calgary Transportation Plan, evaluation taking place on how to implement and extend, determining which forms it should take and what vehicles are permitted in given segments of HOV network.

http://www.calgary.ca/Transportation/TP/Pages/Getting-Around- Calgary/Commuting/High-Occupancy-Vehicles-(HOV).aspx Ottawa ON Limited number There are a few examples of HOV/carpool lanes in the Ottawa area. Pop: of highways. 883,000 Grid system of  2+ carpool lane on the Champlain Bridge Twin city w/ arterials  3+ carpool lane on the Portage Bridge Gatineau QC throughout city  New 2+ carpool lanes on Highway 417 west of Moodie Drive  There are no carpool lanes on City of Ottawa roads with the exception of a short approach to the Portage Bridge on Wellington Street.

http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/tmp_ch apter_8_en.pdf

Recommended Next Steps: Microsimulation

In order to fully understand the potential impacts of opening Diamond Lanes to taxis, a microsimulation of one or more Diamond Lane corridors could be undertaken; looking at existing conditions, and comparing this with a scenario like that described in the motion, with Handi- Transit and private taxis utilizing the Diamond Lane. This will allow some of the effect of the change to be assessed; however, some of the implications listed in this report such as the impact to cyclists or enforcement requirements will not be further informed by the microsimulation. Inclusion of HOVs is not recommended in the microsimulation.

A microsimulation model can simulate actual vehicle conditions on a corridor prior to changes actually being implemented. Therefore, if the change is problematic, there is no impact to actual travellers. Such microsimulations have been recently carried out on other City projects:

 A microsimulation was used in the design of the IGF Station (rapid transit station) to model the design of the ramp access for pedestrians and select amongst alternative concepts; and  A microsimulation was used in a recent review of a segment of an existing Diamond Lane south of Selkirk and Main, to analyze the impact the Diamond Lane had on transit operation

Based on an initial investigation, it is anticipated that this project (data collection, modelling, and analysis of two corridors during peak periods) would be in the neighbourhood of $100,000 to review two corridors. It is proposed that such a study be completed by a consultant through a Request for Proposals process, with the findings reviewed by Transit and Public Works, ahead of any subsequent steps.

FINANCIAL IMPACT Financial Impact Statement Date: March 8, 2017

Project Name: First Year of Program 2018 Recommendations Regarding Trial Program for Taxis and Handi-Transit Vehicles in Diamond Lanes

2018 2019 2020 2021 2022 Capital Capital Expenditures Required $ 100,000 $ - $ - $ - $ - Less: Existing Budgeted Costs - - - - - Additional Capital Budget Required $ 100,000 $ - $ - $ - $ -

Funding Sources: Debt - Internal $ - $ - $ - $ - $ - Debt - External - - - - - Cash to Capital 100,000 - - - - Reserves, Equity, Surplus - - - - - Other - - - - Total Funding $ 100,000 $ - $ - $ - $ -

Total Additional Capital Budget Required $ 100,000

Total Additional Debt Required $ -

Current Expenditures/Revenues Direct Costs $ - $ - $ - $ - $ - Less: Incremental Revenue/Recovery - - - - - Net Cost/(Benefit) $ - $ - $ - $ - $ - Less: Existing Budget Amounts - - - - - Net Budget Adjustment Required $ - $ - $ - $ - $ -

Additional Comments: It is recommended that the cost of the recommended study be referred to the 2018 capital budget process.

original signed by Tanis Yanchishyn, CPA, CA Manager of Finance and Administration

CONSULTATION

This Report has been prepared in consultation with the departments listed below, and they concur with its content.

Public Works

OURWINNIPEG POLICY ALIGNMENT

Opening Diamond Lanes to vehicle classes other than Transit and cyclists is contrary to OurWinnipeg and the Winnipeg Transportation Master Plan.

Section 5.3.1 (q) of the TMP is an Enabling Strategy that states “Restrict the use of diamond lanes to transit vehicles and bikes.” As such, Council’s direction for this motion is in conflict with what was approved in the TMP.

Diamond Lanes are often components of Transit’s Quality Corridors, which are precursors to the implementation of Rapid Transit Corridors and in some instances, are included as part of Rapid Transit Corridors. (i.e. the south segment of Main Street forms part of the Phase 1 Rapid Transit System.) Other Diamond Lanes could be a part of future Rapid Transit Corridors. Diamond Lanes were cited in the TMP as “One of the most significant enhancements to the transit system over the past few years”. A reduction of services goes against the intent of Quality Corridors. Quality Corridors are referenced in Enabling Strategy 5.3.1. (n).

SUBMITTED BY

Department Transit Division Service Development Prepared by: David Patman, Senior Transit Planner Date: March 8, 2017