Hylan Boulevard Transportation Improvement Study a Multimodal Approach to Improving Mobility and Safety

Prepared for Prepared by

New York City In Association with Department of Transportation Howard/Stein-Hudson Associates Hylan Boulevard Sam Schwartz Engineering Transportation Improvement Study Vanasse Hangen Brustlin

May 2012

Hylan Boulevard Transportation Improvement Study A Multimodal Approach to Improving Mobility and Safety

Hylan Boulevard Transportation Improvement Study

Executive Summary

he approximately 16-mile long Hylan Boulevard Project corridor is one of Staten Island’s most heavily utilized transportation corridors and is a vital link for bus riders and vehicular traffic traveling between the T Staten Island Mall, the South Shore of Staten Island, and Bay Ridge, Brooklyn and beyond via the Verrazano-Narrows Bridge. (For the purpose of this study, the Project corridor refers to the route of the local S79 bus.)

This corridor was one of five that the Client team-consisting of Metropolitan Transportation Authority (MTA) New York City Transit (NYCT) and the New York City Department of Transportation (NYCDOT)-selected for implementation of Select Bus Service (the branded name of Bus Rapid Transit in the City of New York). Based on an assessment of transportation conditions along the Project corridor and input provided at meetings with the public and with other stakeholders, the following conditions were defined along this corridor:

• Bus travel time is slow, with one-way travel time on the S79 from the beginning to the end of the route generally exceeding one hour. • The frequency and location of local and express bus stops along Hylan Boulevard and the high volume of buses serving these stops adds to congestion along the corridor. • The absence of sidewalks, pedestrian ramps and pedestrian refuges at some locations along the corridor restricts mobility, access to bus stops and safety for pedestrians and bus passengers.

As a result of this feedback, NYCT and NYCDOT employed a comprehensive approach to improve safety, reduce traffic congestion, and improve transit service as part of the implementation of Select Bus Service.

The goals of the Hylan Boulevard Transportation Improvement project are:

• IMPROVE TRAFFIC FLOW, BUS TRAVEL TIME AND RELIABILITY

• IMPROVE TRANSIT ACCESS TO MANHATTAN, BROOKLYN AND STATEN ISLAND DESTINATIONS

• IMPROVE SAFETY FOR ALL CORRIDOR USERS, INCLUDING MOTORISTS, TRANSIT RIDERS, AND PEDESTRIANS ALONG THE HYLAN BOULEVARD CORRIDOR.

Led by the consulting firm AECOM, and based on input from a diverse group of project stakeholders, including the public, elected and appointed officials, this study recommends a series of treatments to accomplish these objectives. As shown in Exhibit ES-1, the recommended plan embodies a multi-modal approach to improving mobility and safety for pedestrians, motorists, and transit riders. Principal recommendations include the following:

Hylan Boulevard Transportation Improvement Study

Bus Lanes: Curb bus lanes are proposed along the northern two miles of Hylan Boulevard, between Lincoln Avenue and Steuben Street. This is an area where there are currently rush hour parking prohibitions and where bus ridership on local and express buses is highest. Bus lanes here would save travel time for bus passengers. Additionally, short segments of curb bus lanes and offset (interior) bus lanes are recommended in the following locations to help buses bypass congestion:

• Curb bus lane on westbound 92nd Street, between Dahlgren Place and Fort Hamilton Parkway, in Bay Ridge • Offset bus lane on southbound (“Brooklyn-bound”) Richmond Avenue from Shirley Avenue to Hylan Boulevard • Curb bus lane on northbound (“Staten Island Mall-bound”) Richmond Avenue from approximately one- quarter mile north of Drumgoole Road to Platinum Avenue.

Modified Curb Regulations: In conjunction with implementing bus lanes along Hylan Boulevard, curb regulations would be adjusted to prohibit parking in the bus lanes. Currently along Hylan Boulevard, parking and standing in the curb lane are prohibited in the peak direction of travel (6-9 AM northbound and 4-7 PM southbound). These restrictions would remain in effect, although the evening restriction would begin one hour earlier (3 PM). A long-term proposal would additionally prohibit parking and standing in the reverse-peak direction.

Parking would be permitted in the curb lane adjacent to the offset bus lane on southbound Richmond Avenue. Standing would be prohibited Monday to Friday 6-9 AM and 3-7 PM in the bus lane on northbound Richmond Avenue. Parking regulations would be changed to prohibit standing in the bus lane along 92nd Street.

Streamlined Bus Service: The Project would replace the S79 local bus service with a S79 Select Bus Service. All other local and express bus routes would be maintained throughout the corridor.

The S79 SBS would generally maintain the path of the existing S79 route, but operate with fewer stops. It is recommended that the S79 SBS route be streamlined near the Eltingville Transit Center, which would enable Staten Island Mall-bound SBS buses to avoid passing through the signalized intersection of Richmond Avenue and Arthur Kill Road twice. In conjunction with this rerouting a separate stop exclusively for northbound S79 SBS buses would be created along the north curbline in the Eltingville Transit Center station site. The S79 SBS would also be re- routed to provide a more direct path to the Staten Island Mall by avoiding the congested and lightly patronized portions of the route on Forest Hill Road, Yukon Avenue and Richmond Hill Road. These changes would reduce bus travel time and provide faster service.

SBS Stations: The S79 SBS would operate with fewer, more widely-spaced stations than the current S79 service. SBS stations would be provided at When will improvements major intersections and transfer points. Limiting the S79 service to these key be implemented? locations would enable buses to achieve higher travel speeds between Bus lanes and streamlined bus stations and reduce overall travel time along the corridor. service would be implemented by the Fall 2012. Treatments Improved Bus Stations: At some stations, local and/or express bus stops that involve construction or would be slightly relocated to facilitate buses accessing the curb, to provide coordination with external more space for waiting customers and to facilitate buses passing each other. stakeholders would be Other improvements include new bus shelters, larger waiting areas, and implemented in 2013. bicycle racks. It is recommended that a bus station be created in the wide median of Richmond Avenue at Yukon Avenue. This station would reduce by

Hylan Boulevard Transportation Improvement Study

approximately one-half the distance bus passengers would have to cross Richmond Avenue to access various bus routes serving the Staten Island What is an Advance Signal? Mall. An Advance Signal (or “Pre Signal” Optimized Signal Timings: Signal timings would be adjusted, where as commonly referred to in Europe) necessary, to improve the progression of traffic along the corridor. is a traffic signal that is installed upstream of a congested signalized Transit Signal Priority (TSP): Throughout the Project area “smart” intersection. It is similar to a queue traffic signals would be implemented to reduce the number of red lights jump in enabling buses to bypass that create delays for buses. congestion in adjacent travel lanes. An Advance Signal reduces weaving Advance Signals: Advance Signals would be installed on northbound between buses and right turning Hylan Boulevard upstream of Ebbitts Street, New Dorp Lane, and Jefferson Avenue. An Advance Signal reduces weaving between buses and vehicles, reduces delay and allows other vehicles, reduces delay and allows for more efficient and safer flow. for more efficient and safer flow. If successful, other locations would be identified and pursued. Advance Signals are proposed at three locations along Hylan Pedestrian Safety: Where sufficient space exists and geometrically Boulevard. feasible, medians at several signalized intersections along Hylan Boulevard and Richmond Avenue would be extended into crosswalks to reduce the crossing distance and provide refuge for pedestrians to cross the road in stages. Sidewalks would be constructed where none exist to improve access to bus stops. Pedestrian ramps that conform to Americans with Disabilities Act (ADA) of 1990 requirements would be provided where none exist at SBS stations.

Roadway Improvements: Portions of Hylan Boulevard that are in need of repair would be resurfaced.

Lane lines and crosswalks would be refurbished as required to improve visibility. Medians would be widened and landscaped, where sufficient space exists, to provide greater separation between opposing lanes of traffic, to beautify the street and reduce surface runoff.

Conclusion:

The recommended plan was developed in conjunction with stakeholders. It is multimodal, combining improvements for bus customers, pedestrians and drivers. Bus customers would experience faster and more reliable service through the combination of priority bus treatments, TSP, a streamlined route path and less congested bus stops.

When buses move faster, all traffic moves faster. Drivers gain traffic flow and safety benefits from improved traffic signal timing, the addition of left turn lanes, refurbished roads and pavement markings.

Pedestrian safety improvements along the corridor include the addition of median islands where pedestrians can wait or find refuge while crossing Hylan Boulevard, as well as the addition of curb cuts and sidewalks near the proposed SBS stations. The Yukon Avenue median bus station concept would eliminate the need to cross four lanes of fast-moving traffic, thus increasing pedestrian safety.

The traffic analysis conducted for this Project indicates that there would be no significant traffic impacts for general traffic with the implementation of the proposed mitigation measures. Although at two locations traffic may experience increased delay over today, traffic would still operate at acceptable levels of service.

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Hylan Boulevard Transportation Improvement Study

In the initial implementation plan, bus lanes would be implemented along Hylan Boulevard only in the peak direction. In the long-term, it is proposed to implement the bus lane in the off-peak direction as well. In this case, a limited number of on-street parking spaces in the area in which bus lanes are proposed along Hylan Boulevard would be displaced but only in the non-peak direction during the AM and PM peak periods when the bus lanes would be in effect. Moreover, observed utilization of these spaces is low and there are a sufficient number of on- street parking spaces on adjacent cross-streets and in adjacent off-street parking lots to accommodate these displaced spaces.

The order of magnitude construction cost for the initial implementation plan is $6.4 million. The total cost including the long-term improvements is $7.3 million.

In summary, the recommended plan:

• Represents a sustainable approach to improving mobility and safety for motorists and pedestrians

• Reflects the reality that driving is the predominant mode of travel along the corridor, and

• Further enhances the “lifeblood” that the corridor’s robust transit network provides.

Hylan Boulevard Transportation Improvement Study

Exhibit ES-1 Recommended Plan

Hylan Boulevard Transportation Improvement Study

Table of Contents Page

Executive Summary i

I Introduction 1

1.1 Background 2 1.2 Project Scope 3 1.3 Study Process 3 1.4 Report Format 5

II Project Area 8

2.1 Project Location 8 2.2 Project Area 9 2.3 Bus Routes 20 2.4 Bus Stops 22 2.5 Service Frequency 23 2.6 Ridership 23 2.7 Travel Time 24 2.8 Existing Traffic Conditions 24 2.9 Parking Utilization 26 2.10 Deliveries 27 2.11 Pavement Condition 29 2.12 Conditions for Pedestrians 29

III Purpose and Need 30

3.1 Problem Statements 31 3.2 Goals and Objectives 39

IV Alternatives 41

4.1 Retain the Status Quo 42 4.2 Improve Transit Access to Manhattan, Brooklyn and to Staten Island Destinations 42 4.3 Improve Bus Travel Time and Improve Reliability 48 4.4 Improve Traffic Flow 54 4.5 Improve Safety for All Corridor Users 56

V Elements of the Recommended Plan 60

5.1 Development of Corridor Wide Improvement Plan 61 5.2 Bus Lanes 63 5.3 Streamlined Bus Service 66 5.4 Select Bus Service Stations 71 5.5 Improved Bus Stations 73 5.6 Transit Signal Priority (TSP) 76

Hylan Boulevard Transportation Improvement Study

5.7 Optimized Signal Timings 76 5.8 Advance Signals 77 5.9 Pedestrian Safety 82 5.10 Roadway improvements 83 5.11 Recommended Concept Plan 84

VI Effects of the Recommended Plan 86

6.1 Traffic 87 6.2 Parking 90 6.3 Transit 91 6.4 Safety 92 6.5 Other Considerations 99

VII Stakeholder Participation 102

7.1 Community Advisory Committee Meetings 103 7.2 Public Meetings 104

VIII Cost Estimate 106

IX Conclusion 109

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Hylan Boulevard Transportation Improvement Study

Exhibits, Tables, and Appendices

Exhibits Page ES-1 Recommended Plan v

II-1 Hylan Boulevard Project Area 8

II-2 Marsh Avenue Terminus 10

II-3 S79 Bus Stop at Staten Island Mall 11

II-4 Eltingville Transit Center 11

II-5 Richmond Avenue South of Amboy Road 13

II-6 Hylan Boulevard at Nelson Avenue 14

II-7 Hylan Boulevard at Buffalo Street 15

II-8 Hylan Boulevard at Ebbitts Street 16

II-9 Hylan Boulevard at Jacques Avenue 17

II-10 Steuben Street at Hylan Boulevard 18

II-11 S79 Bus Stop at 86th Street in Bay Ridge, Brooklyn 19

II-12 Local Bus Routes 20

II-13 Express Bus Routes 21

II-14 Northbound Bus Stop on Hylan Boulevard at Guyon Avenue 23

III-1 Travel Speed and Delay on S79 Route (NB) 33

III-2 Travel Speed and Delay on S79 Route (SB) 34

III-3 Components of Delay on S79 Route 37

III-4 Bus Stop on Northbound Hylan Boulevard at Justin Avenue 38

IV-1 Transit Signal Priority (Victory Boulevard at Bay Street, Staten Island) 49

IV-2 Pre-Signal (Cape Town, South Africa) 54

IV-3 Proposed Location of Median Bus Station on Richmond Avenue at Yukon Avenue 57

IV-4 Existing Sidewalk Conditions at Bus Stop at Richmond Avenue and Yukon Avenue 57

V-1 Location of Proposed Bus Lanes 64

V-2 Rendering of Bus Lane at Hylan Boulevard at Midland Avenue 65

V-3 Branding of Select Bus Service 66

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Hylan Boulevard Transportation Improvement Study

V-4 Proposed Routing of Staten Island Mall-bound S79 SBS at Eltingville Transit Center 67

V-5 Proposed Routing of Staten Island Mall-bound S79 SBS on Richmond Avenue 69

V-6 Proposed Routing of S79 SBS on Approach to Marsh Avenue Terminus 70

V-7 Select Bus Service Stations 72

V-8 Median Bus Station along Richmond Avenue at Yukon Avenue 75

V-9 Operation of an Advance Signal 77

V-10 Pedestrian Refuge Island (Hylan Boulevard at Steuben Street) 83

V-11 Recommended Concept Plan for Hylan Boulevard Corridor 85

VI-1 Richmond Avenue at Yukon Avenue (Looking South) 93

VI-2 Existing Sidewalk Conditions at Bus Stop at Richmond Avenue and Yukon Avenue 93

VI-3 Proposed Conceptual Design for Median Bus Station at Yukon Avenue 95

VI-4 AutoTURN Analysis of Turning Maneuvers at Richmond Avenue and Yukon Avenue 98

VII-1 Hylan Boulevard Public Meeting 104

Tables II-1 Responses to Survey of Delivery Needs 27

III-1 Project Goals and Objectives 40

IV-1 Summary Assessment of Alternatives-Improve Transit Access 47

IV-2 Summary Assessment of Alternatives-Improve Bus travel Time and Improve Reliability 53

IV-3 Summary Assessment of Alternatives to Improve Traffic Flow 56

IV-4 Summary Assessment of Alternatives to Improve Safety for All Corridor Users 59

VI-1 Changes to On-Street Parking Supply and Demand at Block Faces Studied 90

VIII-1 Order of Magnitude Construction Cost Estimate 108

Appendices A Technical Memoranda and Deliverables 112

B Peak Hour Turning Movement Volume Diagrams 116

C Block Faces Included in the On-Street Parking Utilization Survey 123

D Organizations Invited to Serve on Citizens Advisory Committee 125

Hylan Boulevard Transportation Improvement Study

I Introduction

Table of Contents Page Background 2

Project Scope 3

Study Process 3

Report Format 5

Chapter I explain how and why the Hylan Boulevard Project corridor was selected for implementation of Select Bus Service and other measures to improve traffic flow, reliability of bus service and safety; the scope of this project; and the process by which the Project team conducted this study.

Hylan Boulevard Transportation Improvement Study I Introduction

1.1 Background Since the late 1990’s the New York City Department of Transportation (NYCDOT) and MTA New York City Transit (NYCT) have implemented several measures to improve bus operations, traffic flow and safety Why was the Hylan Boulevard along Hylan Boulevard on Staten Island. At selected intersections, corridor selected for these have included: implementation of Select Bus Service? • Banning on-street parking during the AM and PM peak In 2004, the NYC Department of periods Transportation, MTA New York City • Relocating bus stops Transit, and the New York State • Installing left turn bays, left turn signal phases, and pedestrian Department of Transportation began countdown signals studying how Bus Rapid Transit (BRT) • Banning left turns and closing segments of the center median • Installing large street name signs. could improve transit service in New York City. Through a process that In 2004, the Client team, consisting of NYCT, NYCDOT and the New involved detailed analysis and York State Department of Transportation (NYSDOT), launched the significant public outreach, the Phase 1 Bus Rapid Transit (BRT) Planning Study. During the initial agencies developed a set of phase of this study, the Project team, consisting of the Client team and recommended routes, including Hylan the Consultant team-led by prime consultant AECOM and Boulevard, which would be most subconsultants: Eng-Wong, Taub and Associates (which subsequently appropriate for BRT improvements, merged with Vanasse Hangen Brustlin), Howard/Stein-Hudson known as Select Bus Service. These Associates, and Sam Schwartz Engineering-assessed the viability of routes were included in PlaNYC 2030, implementing BRT on more than 80 corridors in the City of New York. Mayor Bloomberg's comprehensive From this initial screening 15 corridors were selected for more detailed sustainability plan for the City’s future. study. In 2006, the Client team selected five pilot corridors, including the route of the local S79 bus, which runs between Bay Ridge, Brooklyn and the Staten Island Mall primarily via Hylan Boulevard and Richmond Avenue, for concept design of Select Bus Service (SBS). SBS is the branding of BRT in New York City.

Between 2006 and mid-2009 the Client team conducted various outreach activities to obtain Project stakeholders’ input on implementing SBS along the Hylan Boulevard corridor. For the purpose of this study, “Project Corridor” and “the Corridor” refer to the route of the local S79 bus. While stakeholders were generally supportive of SBS, they raised concerns over a median Busway concept that had been proposed, which potentially would have had effects on parking and traffic flow. As a result of this feedback, NYCT and NYCDOT decided to take a comprehensive approach to the Hylan Boulevard Project and develop a program of improvements to traffic and transit service as part of the implementation of SBS.

Hylan Boulevard Transportation Improvement Study

The goals of this project are to implement by 2013 low-cost treatments to:

• IMPROVE TRAFFIC FLOW, BUS TRAVEL TIME AND RELIABILITY

• IMPROVE TRANSIT ACCESS TO MANHATTAN, BROOKLYN AND TO STATEN ISLAND DESTINATIONS

• IMPROVE SAFETY FOR ALL CORRIDOR USERS, INCLUDING MOTORISTS, TRANSIT RIDERS, AND PEDESTRIANS ALONG THE HYLAN BOULEVARD CORRIDOR.

1.2 Project Scope The bus service component of this project focuses on the route of the S79. The project did not look at modifying service on other local and express bus routes serving the corridor other than complementary and incidental adjustments to accommodate S79 Select Bus Service.

Lanes on Hylan Boulevard are generally less than 12-feet wide. In addition, utility poles typically are six inches to two feet from the curb. There is no space to widen or add travel lanes to increase capacity without acquiring private property and costly and significant disruption to the community. For these reasons the Client team established early on in the project that all proposed improvements must be developed within the existing public right-of-way. No roadway widening or acquisition of private property would be considered unless clear benefits could be established.

Finally, as noted, improving safety for all corridor users is a goal of this project. Recommendations to enhance safety for drivers and pedestrians are described herein. The Project team considered the effects on safety of these recommended treatments.

1.3 Study Process This Hylan Boulevard Transportation Improvement Study commenced in May 2010. In summary, the process that the Project Team employed to conduct this study is as follows. Spring-Summer 2010 1. The project’s goals were established. 2. A stakeholder participation program was organized to engage the public, civic and community groups, elected and appointed officials to provide input and recommendations in formulating problem statements, generating and commenting on alternatives and recommending improvements to the corridor. 3. Prior studies of transportation issues along the corridor were reviewed to determine if previously proposed recommendations should be evaluated for this project.

Hylan Boulevard Transportation Improvement Study

Fall 2010 1. The Consultant team organized a data collection program encompassing: • Travel lane and sidewalk widths, parking regulations, street furniture, etc. • Physical conditions of roadway pavement, sidewalks, medians, intersection corners, etc. • Local and express bus routes, bus stops, and ridership • Daily (24-hour) traffic volumes • Peak (A.M and P.M) period turning movement volumes counts at 25 intersections • Signalized intersection capacity and level of service • Vehicle occupancy • On-street parking utilization • Off-street parking utilization • Delivery needs • Travel time for cars and buses • Vehicular delays

2. The existing level of services at 25 signalized intersections along the corridor was evaluated. 3. Planning parameters to guide the development and evaluation of alternatives were established. 4. For the purpose of preliminarily identifying viable options, four “focus areas” that exemplify physical conditions, traffic and parking characteristics and land use along the entire corridor were established. 5. A two-day charrette attended by members of the Project Team and other transportation planners and engineers with national and international experience planning, designing and operating BRT systems was conducted. The purpose of the charrette was to evaluate conditions along the Corridor and develop potential options (“treatments”) to accomplish the Project’s goals. 6. A Community Advisory Committee meeting and a Public meeting were conducted to introduce the project to stakeholders.

Winter 2010 1. Individual treatments were combined into an integrated package of improvements for the four focus areas. 2. The effects of these improvements on bus travel time, delay, intersection level of service, parking and on safety were evaluated. 3. NYCT Staten Island Road Operations staff, bus dispatchers and bus drivers were interviewed for a first-hand account of bus operations along the corridor and to review and assess alternatives. 4. The NYCDOT (Staten Island) Borough Commissioner provided insight on traffic and parking issues of concern to Corridor residents and business owners.

Spring 2011 1. Recommendations for other portions of the corridor (beyond the four focus areas) were developed and “stitched together” into an overall plan for the entire corridor. 2. A Community Advisory Committee meeting and a Public meeting were conducted. The purpose of these meetings was to solicit input on priority bus treatments and traffic and safety improvements being considered.

3. The effects of possible improvements at representative locations along the corridor, taking into account transit travel times, traffic flow, traffic and pedestrian safety, parking, delivery access, and other issues of concern to project stakeholders, were evaluated. 4. A recommended concept plan was identified.

Hylan Boulevard Transportation Improvement Study

Summer 2011 1. Concept design drawings of the recommended plan were prepared.

Fall 2011 1. A Public meeting was conducted to obtain stakeholders’ input on the recommended plan. 2. The recommended plan was refined based on the results of the analyses and feedback from stakeholders.

Winter 2011 1. The effects of the recommended plan on traffic and parking under impact criteria specified in the New York City Environmental Quality Review (CEQR) Technical Manual (2010) were evaluated. 2. Traffic improvement measures were developed in locations where the analysis suggested the project might have negative effects on traffic flow. 3. A Public meeting was conducted to obtain stakeholders’ comments on the recommended plan.

Spring 2012 1. The concept design drawings were completed based on feedback from the Public meeting. 2. NYCT and NYCDOT developed a project implementation plan.

1.4 Report Format This report describes the recommend plan to improve bus service, traffic and safety along the Hylan Boulevard corridor. The report is organized as follows:

Chapter II (Project Area) describes existing bus service, traffic, roadway and pedestrian conditions. Included is a synopsis of the analysis of traffic operations, parking utilization and delivery needs.

Chapter III (Purpose and Need) defines the purpose and need for the Project.

Chapter IV (Alternatives) describes the alternatives that the Project team developed to achieve the Project’s goals and objectives. The evaluation of alternatives is presented, including the recommendations of specific treatments to be included in the concept design plan for the corridor.

Chapter V (Elements of the Recommended Plan) describes the specific elements of the concept plan and how these individual components were “stitched together” into a comprehensive program of improvements.

Chapter VI (Effects of the Recommended Plan) analyzes the effects of the recommended plan on traffic and parking under impact criteria specified in the New York City Environmental Quality Review (CEQR) Technical Manual (2010). The effects on safety and on the natural and built environment are evaluated.

Chapter VII (Stakeholder Participation) describes the public and agency participation program that was implemented for this project. The manner in which feedback from stakeholders was considered in developing the plan is described.

Chapter VIII (Cost Estimate) presents the estimated capital construction cost of the plan.

Chapter IX (Conclusion) summarizes the benefits of the recommended plan.

This report complements the Existing Conditions drawings and the Proposed Conditions drawings, which the Consultant team prepared during the course of this study. The Existing Condition drawings depict pavement 5

Hylan Boulevard Transportation Improvement Study

markings, bus route signs, curb regulations and cross-sectional dimensions at key locations along the corridor. NYCDOT plans to construct left turn lanes and/or modify the lane configuration at the following intersections along Hylan Boulevard in 2012: Cleveland Avenue, Fieldway Avenue, Buffalo Street and Chesterton Avenue and at Armstrong Avenue and at New Dorp Lane in 2013-2014. The Existing Condition drawings depict the configuration of these intersections at the completion of construction. The Proposed Condition drawings depict the physical improvements, such as pavement markings, bus stations, overhead gantries and other civil/site elements of the recommended plan.

During the course of this Transportation Improvement Study, the Project team collected, summarized and synthesized extensive data and prepared numerous technical memoranda and other deliverables. This report contains excerpts from those documents to substantiate the team’s recommendations. The complete list of technical documents is in Appendix A.

Hylan Boulevard Transportation Improvement Study

II Project Area

Table of Contents Page Project Location 8

Project Area 9

Bus Routes 20

Bus Stops 22

Service Frequency 23

Ridership 23

Travel Time 24

Existing Traffic Conditions 24

Parking Utilization 26

Deliveries 27

Pavement Condition 29

Conditions for Pedestrians 29

Chapter II describes the land use, physical conditions, traffic flow, parking utilization and bus service characteristics of the Project corridor. This description sets the stage for identifying the specific problems that this Project is intended to address.

Hylan Boulevard Transportation Improvement Study II Project Area

2.1 Project Location The approximately 16-mile long Hylan Boulevard Project area is one of Staten Island’s most heavily utilized transportation corridors and is a vital link for bus riders and vehicular traffic traveling between the borough’s Staten Island Mall, the South Shore of Staten Island, and Brooklyn and beyond via the Verrazano-Narrows Bridge. Key elements of the corridor are shown in Exhibit II-1.

Exhibit II-1 Hylan Boulevard Project Area

Hylan Boulevard is the only continuous north-south route on Staten Island’s south shore. With limited alternative routes to and from the Bridge, most drivers originating from or destined to the South Shore must use Hylan Boulevard for at least part of their trip. Currently along Hylan Boulevard parking and standing in the curb lane are prohibited in the peak direction of travel (6-9 AM northbound and 4-7 PM southbound).

Roadway segments in the Hylan Boulevard Project area encompass portions of the following streets in Brooklyn and on Staten Island: 8

Hylan Boulevard Transportation Improvement Study

Brooklyn • Fourth Avenue • 86th Street • Fort Hamilton Parkway • 92nd Street Staten Island • Narrows Road North • Narrows Road South • Steuben Street • Hylan Boulevard • Richmond Avenue • Forest Hill Road • Yukon Avenue • Staten Island Mall circulatory roadway system • Richmond Hill Road • Marsh Avenue

A detailed description of the Project area follows.

2.2 Project Area For geographic context the following discussion starts at the origin of the Brooklyn-bound S79 route at the Marsh Avenue terminus. Descriptions of Richmond Avenue, Hylan Boulevard, Steuben Street and the streets in Bay Ridge, Brooklyn follow.

Colloquially, Hylan Boulevard is referred to as a north-south arterial despite its actual alignment being northwest- southeast. “Northbound” Hylan Boulevard describes Brooklyn-bound traffic, and “southbound” Hylan Boulevard describes the opposite. Richmond Avenue also has a north-south orientation even though it intersects Hylan Boulevard. Thus, except when referring to conditions or proposed improvements at the intersection of Richmond Avenue at Hylan Boulevard, we will refer to both Richmond Avenue and Hylan Boulevard as north-south roadways. Southbound Richmond Avenue refers to Brooklyn-bound traffic and northbound Richmond Avenue refers to Staten Island Mall-bound traffic.

Included within this corridor are four “focus areas,” which the Project Team selected to assess the feasibility of alternatives and from which the most promising options were carried forth to assess at similar locations in the Project Area. These four areas were selected because they typify the traffic and land use characteristics throughout the Project Corridor. The analyses conducted in these four areas provided an early indication of an option’s viability, obviating the need to evaluate the option at multiple locations along the corridor. These focus areas include corridor segments and up to 100 feet in both directions along adjacent side streets. These focus areas are as follows:

• Hylan Boulevard between Old Town Road/Quintard Street and Benton Avenue • Hylan Boulevard between Ebbitts Street and Tysens Lane • Hylan Boulevard between Cleveland Avenue and Wiman Avenue • Richmond Avenue between Katan Avenue and Leverett Avenue

Hylan Boulevard Transportation Improvement Study

For continuity in the following “bus tour” of the corridor, the focus areas are described in the order in which they are located.

Staten Island Mall Area The Staten Island terminus of the S79 route is located on Marsh Avenue, south of Westport Street (Exhibit II-2). The S79 uses a portion of Ring Road adjacent to the Park and Ride lot in the northeast corner of the Mall’s site before exiting the Mall and turning north on to Marsh Avenue. The S79 turns west on to Richmond Hill Road before re-entering the Mall by turning south on to Ring Road.

Exhibit II-2 Marsh Avenue Terminus

Ring Road is a two-way road with two travel lanes in each direction, with multiple access points to the Mall’s parking lots. The S79 stops at Macy’s (Exhibit II-3) and Sears before exiting the Mall on to Richmond Avenue via Platinum Avenue. The S79 turns onto Yukon Avenue, stopping at NYCT’s Yukon Bus Depot, before continuing on to Forest Hill Road. From there the S79 rejoins Richmond Avenue.

Hylan Boulevard Transportation Improvement Study

Exhibit II-3 S79 Bus Stop at Staten Island Mall

Richmond Avenue Within the Project Corridor Richmond Avenue has two distinct areas of roadway and land use characteristics. North of Arthur Kill Road, in the area south of and adjacent to the Staten Island Mall, Richmond Avenue has as many as eight total through lanes. In this area, land use is nearly entirely commercial except for pockets of undeveloped area on the west side of Richmond Avenue opposite the Mall. South of Arthur Kill Road Richmond Avenue generally has a total of four travel lanes. Land use is generally residential, with occasional pockets of commercial land use. The two significant intermodal transportation facilities along Richmond Avenue are the Eltingville (park and ride) Transit Center (Exhibit II-4), located in the southeast corner of the intersection at Richmond Avenue at Arthur Kill Road and the Eltingville Staten Island Railway (SIR) station, located at the intersection of Richmond Avenue and Eltingville Boulevard.

Exhibit II-4 Eltingville Transit Center

Hylan Boulevard Transportation Improvement Study

Land use on both sides of Richmond Avenue is mostly residential, except for:

• the Eltingville Transit Center • the Greenridge Shopping Center on the east side of Richmond Avenue, opposite the Eltingville Transit Center • the blocks immediately adjacent to the Eltingville Staten Island Railway station, which contain small retail stores • a large number of medical offices, many in converted homes, south of Amboy Road.

Curb-to-curb widths and lane striping on Richmond Avenue vary throughout the length of the corridor. Between the Staten Island Mall and the Eltingville Transit Center:

• The curb-to-curb width is approximately 85 feet along most of the segment and increases to a maximum of 132 feet near the Staten Island Mall. • Richmond Avenue is striped as six lanes (three in each direction) with a raised center median separating the northbound and southbound lanes. • As it approaches the Staten Island Mall, Richmond Avenue is striped as eight lanes (four in each direction) with a raised center median separating the northbound and southbound lanes.

Between the Eltingville Transit Center and Genesee Avenue, the Richmond Avenue curb-to-curb width is approximately 55 feet. The roadway is striped as two lanes in each direction. Focus Area: Richmond Avenue between Katan Avenue and Leverett Avenue Land use bounding this segment of Richmond Avenue is almost entirely residential with the exception of PS 42 Elementary School located between Augusta Avenue and Genesee Avenue. Parking is largely prohibited at all times in the southbound curb lane with the exception of the one block between Katan Avenue and Figurea Avenue, which is unregulated. Parking is permitted in the northbound curb lane with the exception of the one block between Star Court and Genesee Avenue, along which parking is prohibited due to a number of bus stops. Parking along the block faces of the adjacent side streets is largely unregulated. The exceptions are the north curb of Augusta Avenue, which is currently regulated with school day parking prohibitions, both block faces of Genesee Avenue, east of Richmond Avenue, along which parking is prohibited due to the street merging with Sweetbrook Road; and the east curb of Leverett Avenue, west of Richmond Avenue, which is currently regulated as “2 Hour Parking; 8 AM-7 PM.”

At the Eltingville Staten Island Railway Station, located less than ¼ mile north of Amboy Road, Richmond Avenue operates with only one lane in each direction. During peak periods this area exhibits congestion as a result of the high commercial activity and parking maneuvers combined with the relatively narrow roadway under the trestle carrying the SIR tracks.

Between Genesee Avenue and Amboy Road the Richmond Avenue curb-to-curb width is between approximately 50 and 55 feet. It is striped as two northbound lanes and one southbound lane.

South of this Focus Area, between Amboy Road and Hylan Boulevard the Richmond Avenue curb-to-curb width is approximately 50 feet. It is striped as one lane in each direction (Exhibit II-5).

Hylan Boulevard Transportation Improvement Study

Exhibit II-5 Richmond Avenue South of Amboy Road

Hylan Boulevard Hylan Boulevard is typically six lanes wide (three lanes in each direction) with left turn bays provided at major intersections and at some minor intersections. Northbound and southbound lanes are typically separated by a raised median. Curb-to-curb widths along Hylan Boulevard range between approximately 70 and 75 feet. Land use on the east and west sides of Hylan Boulevard is mostly commercial with some small areas of residential scattered throughout, predominantly south of Tysens Lane.

In the AM peak hours (6 AM to 9 AM), typically, no standing or parking is permitted along most of northbound Hylan Boulevard. The exception is the segment of Hylan Boulevard between Richmond Avenue and Nelson Avenue. Similarly, curb regulations are in effect in the southbound direction in the PM peak hours (4 PM to 7 PM).

The segment of the corridor from Richmond Avenue to Nelson Avenue is characterized by a series of strip malls containing primarily small retail stores, supporting the residential neighborhoods on either side of Hylan Boulevard. The route is heavily trafficked although it generally moves well throughout the day. Sidewalks are extremely narrow throughout. At some locations they are less than five feet wide, with a narrow grassy area separating the roadway from the sidewalk.

Hylan Boulevard Transportation Improvement Study

Exhibit II-6 Hylan Boulevard at Nelson Avenue (Looking South)

Focus Area: Hylan Boulevard between Cleveland Avenue and Wiman Avenue Land use along this segment of Hylan Boulevard is mixed, with residential buildings around the intersection with Cleveland Avenue and small retail properties along the remainder (Exhibit II-6). On-street parking is accommodated via metered parking along portions of both curb lanes of Hylan Boulevard and regulated as “1 Hour Parking; 8 AM-7 PM.” This corridor segment is the only segment analyzed in this study where metered parking is provided. There are currently seven metered spaces in the northbound curb lane and 15 metered spaces in the southbound curb lane at this location, regulated as “1 Hour Parking; 8 AM – 7 PM.” In addition to the metered spaces, a limited number of free spaces are provided within this location and have the same regulations as the metered spaces. There are also limited off-street parking accommodations for some of the businesses along this segment.

Hylan Boulevard Transportation Improvement Study

Exhibit II-7 Hylan Boulevard at Buffalo Street (Looking North)

At Buffalo Street, Hylan Boulevard is bordered to the east by Great Kills Park (Exhibit II-7). The Great Kills Park frontage area of Hylan Boulevard varies in character from the open lawn area at Buffalo Street to primarily wooded areas with little or no pedestrian access. Focus Area: Hylan Boulevard between Ebbitts Street/Allison Avenue and Tysens Lane The east side of this segment of Hylan Boulevard has dense commercial land use with a very large shopping center hosting numerous retail outlets and parking lots with very large capacities. These commercial properties occupy the entirety of the east side of this corridor segment. (Exhibit II-8) The west side of Hylan Boulevard has mixed land uses, mainly single family residences and small retail structures scattered throughout the segment. This segment of Hylan Boulevard also experiences some of the highest traffic volumes and congestion of the entire corridor. As such, both the northbound and southbound curb lanes of Hylan Boulevard are regulated as “No Standing Anytime.”

On-street parking is accommodated on the side streets on the west side of this segment of Hylan Boulevard. The block faces of the side streets west of Hylan Boulevard are either unregulated or are regulated as “2 Hour Parking; 9 AM-7 PM.” Parking is prohibited along most of the side streets east of Hylan Boulevard adjacent to the shopping center. 15

Hylan Boulevard Transportation Improvement Study

Exhibit II-8 Hylan Boulevard at Ebbitts Street (Looking North)

Farther north, on-street parking is largely prohibited, with many of the businesses providing their own off-street parking. The roadway lane and parking configuration largely remain the same for the full length of the remainder of the corridor to Steuben Street. There are a number of major intersections with dedicated left-turn lanes and associated signal phases in this segment of the corridor. These include, but are not limited to: New Dorp Lane (Exhibit II-9), Midland Avenue, Seaview Avenue, Old Town Road, and Clove Road. Many of the intersections provide access to major traffic generators along the corridor such as Staten Island University Hospital as well as a number of schools.

Hylan Boulevard Transportation Improvement Study

Exhibit II-9 Hylan Boulevard at Jacques Avenue (Looking North)

(Jacques Avenue is approximately 250 feet north of New Dorp Lane.) Focus Area: Hylan Boulevard between Old Town Road/Quintard Street aand Benton Avenue This segment of Hylan Boulevard is within a mostly commercial portion of the corridor and contains retail property on both sides. The majority of the retail properties contain off-street parking lots in which customer parking is accommodated. The curb lanes of the entire segment are regulated to accommodate peak period and peak direction traffic volumes with “No Standing; 4 PM-7 PM” regulations posted along the southbound curb lane and “No Standing; 6 AM-9 AM” regulations posted along the northbound curb lane. The block faces of the side streets adjacent to this segment of Hylan Boulevard are largely unregulated.

Hylan Boulevard Transportation Improvement Study

Steuben Street Steuben Street has two travel lanes and a parking lane in each direction and is almost exclusively residential (single- family homes) in nature (Exhibit II-10). One signalized intersection is located on Steuben Street at the intersection of West Fingerboard Road. Immediately north of this intersection, the route divides into two separate roadways as it heads towards Narrows Road South and Narrows Road North, which function as the service roads of the Staten Island Expressway (SIE).

Exhibit II-10 Steuben Street at Hylan Boulevard (Looking North along Steuben Street)

Hylan Boulevard Transportation Improvement Study

Narrows Road South and Narrows Road North Narrows Road South is the eastbound service road of the Staten Island Expressway. Narrows Road North is the westbound service road. “No Standing; 6 AM-9 AM” regulations are posted along the Narrows Road South curb lane and “No Standing 4 PM-7 PM” regulations are posted along the Narrows Road North curb. Both roadways have three travel lanes. The locations of access and egress ramps to and from these service roads are being modified as part of the ongoing (2012) construction of new ramps to and from the SIE. The last eastbound bus stop on Staten Island prior to the Verrazano-Narrows Bridge is at the intersection of Narrows Road South and Fingerb0ard Road. Conversely, the first westbound bus stop on the Staten Island side of the bridge is at the intersection of Narrows Road North and Fingerb0ard Road. Bay Ridge, Brooklyn The S79 route to Brooklyn follows the Verrazano-Narrows Bridge to the Gowanus Expressway, 92nd Street, and Fourth Avenue before terminating at Fourth Avenue at 86th Street. 86th Street is a highly commercial street, with many retail stores on either side. The S79 route in Bay Ridge is heavily trafficked, with a large number of buses also using the route to provide access to the R subway station at 86th Street. Both the B1 and S79 currently lay over along the east curb of Fourth Avenue south of 86th Street (Exhibit II-11). 86th Street is characterized by slow moving traffic and extensive pedestrian activity. After departing from Fourth Avenue and 86th Street the S79 travels along 86th Street before turning south on to Fort Hamilton Parkway and east on to 92nd Street before heading over the Verrazano-Narrows Bridge. Fort Hamilton Parkway is almost exclusively residential, whereas 92nd Street is characterized by a combination of commercial, educational and medical facilities.

Exhibit II-11 S79 Bus Stop at 86th Street in Bay Ridge, Brooklyn (Terminus)

Hylan Boulevard Transportation Improvement Study

2.3 Bus Routes Bus service along the Project corridor includes the local S79 and S78 routes and the X1, X2, X3, X4, X5, X7, X8, X9 and X24 express bus routes. Refer to Exhibit II-12 for local bus routes and Exhibit II-13 for express bus routes. Each of these routes serves a portion of Richmond Avenue and/or Hylan Boulevard. Additional services that supplement these local routes include the local S59 and the S89 limited, which run along Richmond Avenue, and the local S53 to Bay Ridge, which serves the very northern portion of the corridor. Note that the S79 and S78 routes serve many of the same stops along Hylan Boulevard between Richmond Avenue and Steuben Street.

Exhibit II-12 Local Bus Routes

Hylan Boulevard Transportation Improvement Study

Exhibit II-13 Express Bus Routes

The X1 travels along the full route of the S79 from the Eltingville Transit Center to Narrows Road South where the X1 goes across the Verrazano-Narrows Bridge, before continuing into Manhattan. The X2, X3 and X9 originate in New Dorp and use the northern portion of the Hylan Boulevard corridor to access the Bridge before continuing to Manhattan. The X4 and X5 travel along Richmond Avenue and a portion of Hylan Boulevard before continuing on Midland Avenue and Father Capodanno Boulevard to access the Bridge. The X7 and X8 serve midtown and lower Manhattan from the Eltingville Transit Center. The X24 is operated by Atlantic Express and serves midtown Manhattan via New Jersey. Collectively, these local and express bus routes serve local origins and destinations, the Staten Island Ferry Terminal, the Staten Island Railway, and the 86th Street R subway station in Bay Ridge and provide access between the corridor and Manhattan.

The park and ride lot at the Eltingville Transit Center and at the Staten Island Mall provide passengers with free and convenient access to a multitude of local and express bus routes, including (at Eltingville) express bus service to Manhattan.

Hylan Boulevard Transportation Improvement Study

Mall-bound S79 buses do not enter the Eltingville Transit Center using a direct path. To access the site, northbound buses proceed through the intersection at Richmond Avenue at Wainwright Avenue, turn left at the intersection of Richmond Avenue at Arthur Kill Road and then turn left from Arthur Kill Road. After picking up customers the S79 bus operator merges with other buses departing the site, turns left on to Wainwright Avenue, then left onto Richmond Avenue and proceeds again through the intersection at Arthur Kill Road before continuing to the Mall. Brooklyn-bound buses have a more direct route path through the transit center, turning right onto Arthur Kill Road, left from Arthur Kill Road into the center and then exiting onto Richmond Avenue southbound toward Hylan Boulevard.

The Mall-bound S79 diverges from Richmond Avenue at Forest Hill Road. The S79 heads north on Forest Hill Road (without stopping), before turning west on Yukon Avenue to serve the Yukon Bus Depot as well as the adjacent retail stores. The route then rejoins Richmond Avenue for several hundred feet before entering the Staten Island Mall via Platinum Avenue. The S79 serves the same stops in the Brooklyn-bound direction.

The S79 serves the Staten Island Mall at two stations (Ring Road at Sears; Ring Road at Macy’s) before turning north onto an extension of Ring Road to access Richmond Hill Road. The S79 continues along Richmond Hill Road before turning south on Marsh Avenue and terminates at the Marsh Avenue/Ring Road stop. The Brooklyn-bound S79 originates its run here, enters the Mall, circumnavigates the Park-and Ride lot, turns north on Marsh Avenue, west on Richmond Hill Road and then south on Ring Road to continue through the Mall.

2.4 Bus Stops Salient bus stop characteristics include:

• There are a total of 80 S79 bus stops in each direction. • The S78 route diverges from the S79 route at Hylan Boulevard at Steuben Street at the north end and at Hylan Boulevard at Richmond Avenue at the south end. In the overlapping area, the S78 and S79 routes serve 46 common stops. The S78 comprises the largest number of transfers to and from the S79. • The average spacing of express bus stops is around 1,500 feet, which is less than the bus stop spacing guideline for express buses outside of Manhattan (1,750) feet as codified in the NYCT Service Guidelines document. Spacing between local stops is generally between 750 feet (standard) and 1,000 feet. • In terms of bus operations, Hylan Boulevard between Tysens Lane and Ebbitts Street is arguably the most congested portion of the corridor. Two bus stops within approximately 300 feet of each other along the east curb serve each of the local and express bus routes. Savvy automobile drivers know to avoid traveling in the curb lane in the morning to avoid becoming stuck in the continuous line of buses from Tysens Lane to north of Ebbitts Street. As a result, the capacity of northbound Hylan Boulevard is effectively reduced to two lanes for all non-bus traffic. • Approximately 50 percent of the S79 bus stops along the corridor serve one or more express bus routes. The bus stop at Guyon Avenue, shown in Exhibit 11-14, is an example.

Hylan Boulevard Transportation Improvement Study

Exhibit II-14 Northbound Bus Stop on Hylan Boulevard at Guyon Avenue

2.5 Service Frequency One of the most striking features of Hylan Boulevard, in terms of bus operations, is the high volume of buses in the AM and PM peak periods. Service frequencies on the S79 are 8, 13, 9 and 11 minutes in the AM, noon, PM and evening, respectively. Service frequency on the S78 is 15 minutes until the evening. The service frequency on the express buses is in the range of 10-15 minutes. With the exception of the X1, express buses operate only in the AM and PM peaks.

Depending upon location, between approximately 44 and 80 local and express buses per hour travel along northbound Hylan Boulevard in the AM peak. The peak volume in the southbound direction in the PM is approximately 30 to 56 buses per hour. The actual number of buses on the corridor is higher than scheduled local and express buses since the total include school buses, private buses, access-a-ride shuttles, and out of service buses.

2.6 Ridership With more than 2.9 million annual passengers and nearly 9,000 customers on an average weekday in 2011, the S79 is the second busiest bus route on Staten Island. In addition to the S79, local and express bus routes along the Project area serve local (Staten Island) origins and destinations such as, but not limited to, the intermodal facilities

Hylan Boulevard Transportation Improvement Study

at the Staten Island Ferry Terminal, the Staten Island Railway, the Eltingville (park and ride) Transit Center, the park and ride lot at the Staten Island Mall; the 86th Street R subway station in Bay Ridge, Brooklyn; and lower and midtown Manhattan. Local and express bus routes on the corridor carry approximately 30,000 passengers on a typical weekday.

Total daily boardings and alightings at stops range from the single digits at some stations to several hundred at key transfer points such as New Dorp Lane, Midland Avenue and intermodal centers such as Eltingville Transit Center and in the residential area along Steuben Street and Narrows Road South. Most of the peak period boardings and alightings occur at approximately 15 stops. The bus stop at Fourth Avenue at 86th Street, Bay Ridge (R Train transfer) has, by far, the most activity of any stop on the S79 route with more than 2,500 passengers boarding on a typical weekday. Congestion at this stop is compounded by customers entering and exiting the subway station and the B1 bus, which has its terminal on the same blockface as the S79 and performs layovers there. Most activity on the route occurs at the two ends, in Bay Ridge and at stops adjacent to the Staten Island Mall.

2.7 Travel Time The scheduled one-way running time for the S79 between Bay Ridge and the Staten Island Mall is 69 minutes (evening), 75 minutes (midday), 77 minutes (PM peak) and 81 minutes (AM peak). In the southbound direction the corresponding scheduled running times are: 60 minutes (evening), 70 minutes (AM peak), 74 minutes (midday), and 77 minutes (PM peak).

The Client team completed a series of travel time observations along the route of the S79 in November and December 2010 and in January and March 2011. In the northbound direction, the average one-way travel time was 72 minutes, 81 minutes and 71 minutes in the AM, midday and PM periods, respectively. In the southbound direction, the corresponding averages were 72 minutes (AM), 79 minutes (midday) and 80 minutes PM).

The express bus routes travel along portions of the Hylan Boulevard corridor. Since these provide a different level of service than the S79, serve different markets, travel along different routes and utilize different types of buses, it is not possible to make a direct comparison between travel times. However as context to the travel time for the S79, each of the express routes has a scheduled one-way travel time during peak periods of between 90 minutes and two hours.

2.8 Existing Traffic Conditions The prohibition against parking in the curb lane along Hylan Boulevard in the peak direction between Steuben Street in the north and Nelson Avenue in the south during the AM and PM peak periods is intended to improve the flow of traffic for all vehicles. This means that between 6-9 AM and 4-7 PM the curb lane effectively operates as a bus lane. Although general traffic is permitted to use the curb lane, many drivers familiar with the corridor avoid the curb lane to avoid being delayed by stopped buses. The importance of this phenomenon in developing supporting priority bus treatments cannot be overemphasized as discussed further in Chapter IV.

In the Fall 2010, daily and peak period turning movement volumes were collected at 25 major signalized intersections along the Project corridor. An evaluation of the existing level of service at these intersections was performed. This section summarizes the key findings. Volume Total (two-way) 24-hour weekday volumes on Hylan Boulevard range from approximately 31,000 vehicles per day (vpd) at Clove Road to 44,000 vpd at New Dorp Lane. Traffic volumes along Richmond Avenue are significantly

Hylan Boulevard Transportation Improvement Study

lower than along Hylan Boulevard. Total two-way weekday volumes range from 18,000 vpd at Genesee Avenue to approximately 31,000 vpd at Arthur Kill Road.

AM and PM peak hour turning movement volumes are shown on Traffic Volume Diagrams in Appendix B. Traffic volumes in the peak direction/peak hour along Hylan Boulevard vary along the length of the corridor, peaking in the 1,000-2,100 vehicles per hour (vph) range, with the highest volumes of nearly 2,500 northbound vehicles in the AM peak and 2,100 southbound vehicles in the PM peak at Bryant Avenue. Peak hour volumes on Richmond Avenue are generally less than 1,000 vph. In general volumes as measured in 2010 were about 10 to 15 percent lower than when measured in 2007 and 2008. Level of Service Key findings and observations from the existing conditions analysis include:

• Sixteen of the 25 intersections in the AM peak hour and 20 of the 25 intersections in the PM peak hour operate at overall Level of Service (LOS) C or better. All other intersections operate at overall LOS D. • Thirteen of the 25 intersections analyzed are characterized by at least one traffic “movement” or lane group operating at adverse LOS E or F during the AM peak hour and 16 intersections operate similarly during the PM peak hour. • Peak period traffic flow for through traffic along the Hylan Boulevard corridor often operates at acceptable or marginally acceptable conditions. This is due to the amount of green time provided to through traffic in the peak direction and, at some locations, due to standing and parking restrictions in the adjacent curb lane that provides for through and right-turning traffic in the peak direction (northbound in the AM peak period; southbound in the PM peak period). The combination of curb lane availability and provision of added green signal time is often critical in allowing peak direction traffic along Hylan Boulevard to operate better than it would otherwise. At several locations, nonetheless, Hylan Boulevard peak direction traffic is operating at volume-to-capacity (v/c) ratios close to 1.00 or just above 1.00, indicating that it is operating at the limit of available capacity. • Levels of service for left turns in the non-peak direction of Hylan Boulevard are often at LOS E, indicating significant delays, due to the inability of left-turners to be able to find sufficient gaps in peak period/peak direction oncoming traffic to complete their turns. LOS E conditions are also often found for cross-street traffic at major intersections since cross-street traffic does not get sufficient green time in comparison to the amount of green time afforded to Hylan Boulevard traffic, which is the major traffic flow. • Throughput at major intersections is sometimes limited by bus stops in moving lanes and weaving maneuvers on the approach to intersections, as reflected in the traffic analysis. • Traffic flow is often acceptable between major intersections, even during peak periods, as most minor intersections are not signalized.

In summary, in the AM peak period, with the exception of the intersection at Nelson Avenue, northbound traffic on Hylan Boulevard generally encounters few delays between Richmond Avenue and Guyon Avenue. All of the intersections analyzed in this segment except at Nelson Avenue operate at LOS of C or better overall and in the peak (northbound) direction. Continuing north, congestion is generally limited to the intersections between Guyon Avenue and Lincoln Avenue. This segment is characterized by high density residential and commercial parcels and New Dorp High School, which generate considerable vehicular traffic. The numerous and closely spaced bus stops served by local and express buses-especially between Tysens Lane and Ebbitts Street-contribute to congestion here. North of Lincoln Avenue, with the exception of the intersection at Midland Avenue, each of the analyzed intersections operates at LOS D or better. Traffic here typically moves in a platoon until around Seaver Avenue after which it dissipates and flows generally without delay to Steuben Street.

Hylan Boulevard Transportation Improvement Study

Traffic operations in the PM peak typically mirror the AM condition. As noted in the first bullet on the previous page, in the PM peak, 80 percent of the analyzed signalized intersections operate at an overall LOS C or better. Traffic in the through lanes in the peak (southbound) direction similarly operates at acceptable levels of service south of Steuben Street with “pockets” of southbound congestion generally limited to the intersections at Jefferson Avenue, New Dorp Lane and Tysens Lane. Between Tysens Lane and Richmond Avenue southbound through traffic at the major signalized intersections operate at LOS C or better.

In both the AM and PM peaks traffic on Richmond Avenue generally flows with minimal delay, except for isolated pockets of congestion at the intersections of Amboy Road (which was recently upgraded under NYCDOT’s Congested Corridor Program) and at Arthur Kill Road, which, as noted below, is the subject of planned capacity enhancements by NYCDOT.

Subsequent to the completion of the existing conditions analysis, it was discovered that the intersection of Richmond Avenue at Arthur Kill Road is scheduled to undergo full reconstruction at some future date. As such, it was decided that no further analysis of this location would take place.

2.9 Parking Utilization This study investigated the existing on-street parking supply and demand of the curb lanes along both Hylan Boulevard and Richmond Avenue and up to 100 feet along the side streets adjacent to the corridors at the four focus areas (also referred to as “typical locations”). As noted previously, these four locations were selected because they are representative of land use, traffic and parking conditions in the corridor. The calculated on-street parking supply and the observed demand were used to determine existing utilization of on-street parking.

The four typical locations that were analyzed included the following corridor segments:

• Hylan Boulevard between Old Town Road/Quintard Street and Benton Avenue • Hylan Boulevard between Ebbitts Street and Tysens Lane

• Hylan Boulevard between Cleveland Avenue and Wiman Avenue

• Richmond Avenue between Katan Avenue and Leverett Avenue

The on-street parking supply was determined through field verification of posted parking regulations, inventory of street furniture, and through field measurements of the amount of curb space available for on-street parking, taking into consideration the posted regulations, presence of curb cuts or driveways, fire hydrants, and the minimum legal clearances from hydrants. Subsequently, an existing on-street parking utilization survey was conducted on Wednesday, November 10, 2010 from 7 AM - 6 PM. Surveyors collected existing parking utilization data in one hour intervals by counting the number of legally and illegally parked vehicles along the curb lanes of the corridors and on up to 100 feet of the block faces of the adjacent side-streets on both sides of the corridors.

Analysis of the utilization data collected during the survey found the current demand for on-street parking within the corridor curb lanes was easily accommodated by the on-street parking supply of the four typical locations at all times. The maximum recorded legal utilization rate of the total on-street parking supply accommodated by the corridor curb lanes of these locations reached 75%. This maximum utilization rate occurred in the northbound curb lane of Typical Location 1 between 2 PM – 4 PM. Legal utilization rates of the corridor curb lanes within the analyzed typical locations were also observed to typically be significantly lower during the AM peak (6 AM – 9 AM)

Hylan Boulevard Transportation Improvement Study

and PM peak (4 PM – 7 PM) periods than during the midday period. The primary conclusion is that the maximum recorded utilization in any of the four typical locations was far below the total capacity.

Due to its commercial nature and numerous businesses along the Hylan Boulevard corridor, it was anticipated that a large number of commercial vehicles would be recorded during the study period loading and unloading along the corridor’s curb-lanes. However, the results of the on-street parking utilization survey found the opposite to be true. Almost no commercial vehicles were recorded utilizing the on-street parking supply of the corridors during the study period within the locations analyzed with the exception of Typical Location 1. At Typical Location 1, a maximum of only two commercial vehicles were recorded as parked in the curb lanes between 8 AM and 10 AM. Utilization rates of the on-street parking supply for the first 100 feet of the side streets adjacent to the corridors were observed to typically be much higher than along the corridors themselves. The side streets adjacent to the analyzed locations are almost entirely residential and typically unregulated. As such, it is likely that the higher utilization rates for these streets were a combination of local residents parking their vehicles on the streets, customers of businesses along the corridors parking on the side streets, and commuters parking their vehicles on the side streets before boarding express buses servicing the corridors. The baseline conditions for the existing on-street parking supply and demand at the four typical locations were then used to determine the impact resulting from implementation of the concept design alternatives. That analysis is described in Chapter VI.

2.10 Deliveries As part of the planning process, a survey of delivery needs was conducted of businesses along Hylan Boulevard between Steuben Street and Richmond Avenue and along Richmond Avenue between Hylan Boulevard and Arthur Kill Road. Surveys were distributed by mail by New York City Transit with a letter of support from the Staten Island Chamber of Commerce and included questions about how businesses both receive and send deliveries, as well as where and when deliveries take place. A total of 1,350 surveys were distributed in April 2011 and 66 completed surveys were received for a response rate of 3.7%. Of the 66 surveys that were received, 16 were not in the project study area, leaving a total of 50 valid responses.

Responses were geographically divided into six geographic segments, plus a category for “No Address Given.” For the sake of inclusiveness, completed surveys with no address were assumed to be valid. In fact, several of these businesses appear to be within the study area, as these respondents report receiving deliveries on Hylan Boulevard/Richmond Avenue. No responses were received for the segment of Hylan Boulevard from Guyon Avenue to Keegans Lane, which is almost entirely residential. The largest share was from Hylan Boulevard between Steuben Street and Midland Avenue, as shown in Table II-1.

Table II- 1 Responses to Survey of Delivery Needs

Segment Responses

Hylan Boulevard between Steuben Street and Midland Avenue 22

Hylan Boulevard between Midland Avenue and Guyon Avenue 12

Hylan Boulevard between Guyon Avenue and Keegans Lane 0

Hylan Boulevard between Keegans Lane and Richmond Avenue 9

Richmond Avenue between Hylan Boulevard and Arthur Kill Road 2

Hylan Boulevard Transportation Improvement Study

No Address Given 5

Total Responses 50

Responses on Receiving Deliveries: • Most surveyed businesses receive fewer than two deliveries per day and nearly all receive fewer than five. • Deliveries are spread fairly evenly across all weekdays with a much lower number on Saturday and almost none on Sunday. • Most surveyed businesses do not receive deliveries at a specific, regular time. Of those that do, most are spread fairly evenly from 9 AM – 2 PM, with only a couple of scheduled deliveries later than that. • Most surveyed businesses report that the delivery time is set by either the sender or the delivery service, or that there is no set time—in other words, that they do not have control over the delivery time. Approximately half of all delivery responses cited UPS, FedEx, USPS, etc. as the party making deliveries. Most of the rest of the deliveries are reported to be made by the manufacturer, supplier or vendor themselves. The remaining deliveries are made by the businesses’ own employees or a consolidated delivery service. • Most deliveries are made by commercial vans or single-unit trucks. • Approximately one-third of the surveyed businesses have off-street parking lots or loading docks for receiving deliveries. Close to half report deliveries being made at the curb on either Hylan Boulevard/Richmond Avenue or a side street. The remaining report receiving deliveries from double-parked vehicles. • It should be noted that of the businesses that reported receiving deliveries at an off-street loading dock or within an off-street parking lot, 40% reported they also receive deliveries on-street (either on the corridor or on an adjacent side-street). • Most deliveries take less than 20 minutes and approximately half take less than 10 minutes. • Reported parking regulations in the areas where deliveries are made vary widely, with the most frequent response being along curbs that are regulated as Two Hour Parking or One Hour Parking on a weekday with or without meters, depending on the particular block on which the business is located.

Responses on Sending Out Deliveries: • Significantly fewer businesses reported sending out deliveries. However, of those that did, the typical hour for loading varied widely, with a cluster of responses from 9 AM – 11 AM. • Reported days for sending deliveries were mostly weekdays, with some on Saturday and almost none on Sunday. • Most loading times for sending deliveries were reported to be less than 20 minutes. The single most common answer to the question of who picks up deliveries is UPS, FedEx, USPS, etc., followed closely by the businesses’ own employees or vehicles. • Close to half of all businesses sending out deliveries do so from their own parking lots or loading docks.

The findings of the on-street parking utilization study mirror the results from the delivery needs survey, with 76.5% of businesses who receive deliveries at a regular time reporting that they typically receive deliveries during off-peak hours (10 AM – 4 PM) and 63% of respondents reporting that receipt of deliveries typically occurs on a side street, off-street loading dock, and/or off-street parking lot.

Hylan Boulevard Transportation Improvement Study

2.11 Pavement Condition A formal pavement condition inspection was not performed as part of this study. However numerous visual observations and driving tours along the Project corridor indicate that:

• The pavement condition along the route of the S79 in Bay Ridge, along Steuben Street, Richmond Avenue and within the Staten Island Mall is good. • Portions of Narrows Road South and Narrows Road North are currently in a state of disrepair due to ongoing construction of new ramps to and from the Staten Island Expressway. It is expected that these roadways would be returned to their prior condition when construction is completed. • The section of Hylan Boulevard north of Lincoln Avenue is in better condition than the section to the south, which generally is in poor to fair condition. • Lane lines and crosswalks need to be refurbished at locations throughout the Project area.

In addition to reducing bus travel time and improving the reliability of bus service, improving traffic flow and pedestrian safety are key components of this project. During the course of this study, the Project team identified the need for roadway re-profiling and drainage improvements to eliminate ponding along the curb and in crosswalks at various locations along Hylan Boulevard. These conditions require an engineering investigation and are not addressed in this study.

2.12 Conditions for Pedestrians The consultant team conducted a visual assessment of the physical condition of sidewalks, medians and pedestrian reservoirs at representative locations throughout the Project corridor, including at heavily- utilized bus stops. This assessment revealed the following:

• Sidewalks are typically provided in Bay Ridge, along Steuben Street, along most portions of Hylan Boulevard and the residential and commercial areas along Richmond Avenue. Sidewalks are discontinuous along the east side of Hylan Boulevard adjacent to Great Kills Park, such as between Fairlawn Avenue and Buffalo Street, and along short segments of some side streets. • For the most part, sidewalks are in better condition in the residential portions of the corridor than along the commercial areas. One or more pedestrian ramps are missing in several pedestrian reservoirs. • Many pedestrian ramps lack tactile warning strips. • Street hardware and utility poles block access to some pedestrian ramps. • The presence of cracked sidewalks in some areas of the corridor and the absence of a sidewalk at some bus stops along the east side of Hylan Boulevard (near Great Kills Park) encourage some bus passengers to cross at undesignated mid-block locations. • Portions of some sidewalks are missing or discontinuous. • Low tree branches overhang the northbound curb lane and sidewalk along Hylan Boulevard, adjacent to Great Kills Park. This causes some pedestrians to walk in the roadbed. • Some signalized intersections have raised concrete medians but lack pedestrian refuges.

Hylan Boulevard Transportation Improvement Study

III Purpose and Need

Table of Contents Page Problem Statements 31

Goals and Objectives 39

Chapter III describes the conditions that passengers on buses, drivers and pedestrians encounter along the Project corridor. This chapter explains the relationship between these conditions and the Project’s goals and objectives.

Hylan Boulevard Transportation Improvement Study III Purpose and Need

3.1 Problem Statements Based on the evaluation of conditions along the Hylan Boulevard corridor, the purpose and need for this Project are as follows:

1. Bus travel time along the route of the S79 is slow, with one-way travel time from the beginning to the end of the route generally exceeding one hour.

In the Fall of 2010 and Winter of 2011 the Client Team conducted time and delay observations on a number of S79 northbound and southbound trips. This analysis uses a spreadsheet that catalogues the stops each bus makes for traffic lights, at bus stops and for congestion. The results are travel speed data for sections of the S79 route, which highlight areas where bus lanes, traffic signal priority or other priority bus measures would prove to be beneficial. This information is summarized in terms of average travel speed, traffic signal delays, and dwell times at bus stops. Average (AM, midday and PM) traffic signal delays and speed between bus stops are described below and depicted in Exhibits III-1 and III-2.

Average Travel Speed

Northbound travel speeds on the corridor range from below 12 mph to over 20 mph. In the vicinity of the Staten Island Mall travel speeds on Marsh Avenue, Richmond Hill Road and within the Mall are slow, less than 12 mph.

Travel speeds on Richmond Avenue are between 15-20 mph, with the exception of the Yukon Avenue-Forest Hill Road diversion which has slightly lower speeds. Travel speeds on the southern section of Hylan Boulevard range from 18-20 mph south of the congested areas near New Dorp Lane. From that point north travel speeds decrease to 12-15 mph. Travel speeds continue in this range into Bay Ridge with the exception of the Narrows Road/Verrazano- Narrows Bridge section which moves at a higher speed. Southbound travel speeds also range between 12 mph and over 20 mph. Travel speeds in Bay Ridge average less than 12 mph, likely due to congestion in the Bay Ridge business district. Travel speeds over the Verrazano-Narrows Bridge increase to over 20 mph but decrease slightly on Narrows Road and onto the northern section of Hylan Boulevard, where they range between 12-18 mph. The southern section of Hylan Boulevard from New Dorp Lane to Richmond Avenue has travel speeds of 18-20 mph. Travel speeds on the southern section of Richmond Avenue range between 15-18 mph. Travel speeds on the northern section of Richmond Avenue into the Staten Island Mall average less than 12 mph. Southbound travel speed top areas of concern include Bay Ridge, New Dorp Lane and the Staten Island Mall.

Traffic Signal Delays

Northbound signal delays range from under 10 seconds to over 75 seconds. Starting at the Staten Island Mall and along Richmond Avenue most signal delays average 26 seconds with the exception of the Richmond Avenue and Arthur Kill Road intersection at 56 seconds and Richmond Avenue and Hylan Boulevard at 49 seconds. On Hylan

Hylan Boulevard Transportation Improvement Study

Boulevard between Richmond Avenue and New Dorp Lane signal delays average about 27 seconds. Notable intersections with high delays include Hylan Boulevard and Lindbergh Avenue with 55 seconds of delay and Hylan Boulevard and Rose Avenue with 54 seconds of delay. Average signal delays on the northern section of Hylan Boulevard are 26 seconds and include the intersection of Hylan Boulevard and Crowell Avenue with a delay of 44 seconds. The travel path on Narrows Road and into Bay Ridge is slightly more congested with an average wait time of 31 seconds but also includes the intersection of 92nd St and 5th Avenue, which averages 82 seconds of delay.

Southbound signal delays range from 5 seconds to 61 seconds. From Bay Ridge over the Verrazano-Narrows Bridge delays average 27 seconds per intersection. Notable delay locations include Fort Hamilton Parkway and 92nd Street at 38 seconds and at the Staten Island Expressway toll booth at 50 seconds. On Narrows Road and northern Hylan Boulevard, signal delays average 28 seconds and notable intersections with high delays include Hylan Boulevard and Alter Avenue at 55 seconds, Hylan Boulevard and Midland Avenue at 52 seconds and Hylan Boulevard and New Dorp Lane at 54 seconds. On the southern section of Hylan Boulevard signal delays average 27 seconds. Intersections with high delay include Hylan Boulevard and Seacrest Avenue at 45 seconds. On southern Richmond Avenue the average delay is 25 seconds. The main intersection in this area that experiences congestion is the Richmond Avenue/Arthur Kill Road intersection. On the northern section of Richmond Avenue including the Staten Island Mall the average delay is slightly higher at 30 seconds and includes congested intersections at Richmond Hill Road and Vassar Street at 61 seconds and Richmond Hill Road and Rockne Street at 42 seconds..

Dwell Time at Bus Stops

Northbound the average dwell time at bus stops is 26 seconds. Dwell times range from less than 5 seconds to 76 seconds. The main bus stops with high dwell times are Yukon Avenue and Richmond Avenue at 76 seconds and Yukon Avenue and Kmart at 52 seconds.

Southbound the average dwell time at bus stops is 28 seconds. Dwell times range from less than 5 seconds to 59 seconds. The main bus stops with the highest dwell times are Narrows Road and Fingerboard Road at 50 seconds, Hylan Boulevard and New Dorp Lane at 59 seconds and Hylan Boulevard and Tysens Lane at 57 seconds and Ring Road at Macys at 51 seconds.

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Exhibit III-1 Travel Speed and Delay on S79 Route (NB)

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Exhibit III-2 Travel Speed and Delay on S79 Route (SB)

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NYCT estimates that 72 percent of transit commuters along the corridor have a trip longer than 60 minutes. With scheduled and actual one-way travel time on the S79 exceeding one hour in the AM, midday, PM and evening and travel time to Manhattan on the express buses exceeding 90 minutes, Staten Island residents have among the longest commutes in New York City.

Reducing this travel time is critical to improving the commuting experience of corridor residents that either do not have access to a car, choose not to drive or for whom the Staten Island Railway and Staten Island Ferry are not viable options for travel to and from Brooklyn and Manhattan.

2. Portions of the S79 route near the Eltingville Transit Center and Staten Island Mall are circuitous and add to the overall travel time.

Approximately 15 percent of the one-way travel time is the route path to and from the Eltingville Transit Center, along Forest Hill Road and Yukon Avenue and to the Staten Island terminus at Marsh Avenue. The stops along these segments (except at the Eltingville Transit Center) generate comparatively few passengers, all of whom could be accommodated either by a short walk to adjacent stops or via a convenient transfer to other routes.

Streamlining the route of the S79 in these areas would not only save travel time and thus encourage patronage but also reduce bus operating costs through savings in vehicle miles travelled.

3. The frequency and location of local and express bus stops and the high volume of buses serving these stops adds to congestion along the corridor.

The corridor has many closely spaced bus stops. Approximately 50 percent of the bus stops along the route of the S79 serve multiple local and express bus routes. Some stops serve six to ten bus routes. The S79 and S78 routes provide frequent service and stop at many of the same locations. Ridership data indicates that the S78 accounts for 25 percent of all transfers to the S79.

The presence of numerous bus routes and bus stops provides customers a high level of accessibility to bus service. But this also contributes to delays when some buses are unable to curb because the stop is occupied and/or when other buses in the curb lane that are not stopping are unable to pass buses that are stopped, resulting in increased travel times.

At some locations, during peak periods, buses arrive at a rate of more than one per minute. This problem is compounded because, as noted, many stops serve both local and express buses. To pass slower or stopped buses, local and express buses must merge into the general traffic lanes, which can delay their trip and could add to congestion for general traffic flow. During the AM and PM peaks the large bus volume, combined with the closely 35

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spaced local and express stops, often results in a high level of bus bunching. The time required to repeatedly decelerate, curb and then accelerate from a stopped position further increases bus travel time and makes the ride unpleasant for customers.

Automobiles are permitted to travel in the curb lane along Hylan Boulevard during peak hours, although parking and standing are prohibited in the peak direction (northbound in the AM and southbound in the PM). The high volume of buses and numerous bus stops discourage general traffic from using the curb lane. This means that during the AM and PM peaks the curb lane essentially functions as a bus lane, which encourages general traffic to use the center and left lanes for through movements to avoid buses that are stopped.

Collectively these facts suggest: 1) re-orienting the S79 route to serve only the busiest stops, 2) relocating and/or increasing the distance between selected local and express bus stops to reduce congestion along the curb, and 3) providing priority bus treatments to increase bus speeds.

4. Traffic signal delays and other operational issues contribute to delays to bus passengers and to congestion along Hylan Boulevard. These include:

• Numerous and closely spaced signalized intersections which, if not timed optimally, can disrupt the progression of traffic. • Weaving by though traffic, buses, right turning vehicles and vehicles entering and exiting driveways. • Heavy pedestrian volumes during peak periods, such as when school lets out. Right turning vehicles must yield the right of way to these pedestrians, causing residual back-ups on Hylan Boulevard.

As shown in Exhibit III-3, on average, buses are in motion for only 60 percent of their total trip along the corridor. Delays due to traffic signals and other reasons account for the other 40 percent. If one subtracts the non-stop route segment on the Verrazano-Narrows Bridge then buses are probably in motion for 55 percent or less of total travel time.

Hylan Boulevard Transportation Improvement Study

Exhibit III-3 Components of Delay on S79 Route

Various strategies are available to enable buses to spend more time in motion. For example:

• NYCT and NYCDOT have implemented bus lanes throughout the City to make bus service more reliable. • The agencies have worked together to implement Transit Signal Priority to save bus travel time. • NYCDOT has optimized traffic signal timing to make traffic flow more efficiently. • With the recent implementation of MTA BusTime, bus riders can receive real time information on bus arrivals, which reduces their time waiting for buses. • The MTA’s planned implementation of a new fare collection system will reduce the time required to board buses.

Collectively, when applied in the right places, these measures can reduce overall travel time and delays along the corridor.

5. Deteriorated roadway pavement adversely affects driver and passenger comfort, increases travel time and limits the effective capacity of travel lanes. 37

Hylan Boulevard Transportation Improvement Study

Deteriorated pavement and bus pads that have settled contribute to an uneven riding surface, causing vehicles to slow down and/or encroach into the middle lane, which reduces the effective utilization of all travel lanes. In general, northbound Hylan Boulevard is in worse condition than in the southbound direction.

Overgrown brush along the portion of Hylan Boulevard adjacent to Great Kills Park obstructs bus drivers’ visibility of passengers waiting at bus stops and, in the extreme case, has been observed to cause some pedestrians to walk in the road as shown in Exhibit III-4. The combination of deteriorated pavement along the curb and the obstruction created by the brush causes some vehicles in the curb lane to encroach into the center lane, reducing the roadway’s effective capacity and increasing the likelihood of sideswipes.

Improving the pavement condition and clearing brush will improve safety along the corridor.

Exhibit III-4 Northbound Bus Stop on Hylan Boulevard at Justin Avenue

6. The absence of sidewalks, pedestrian ramps and pedestrian refuges at some locations along the corridor restricts mobility, access to bus stops and safety for pedestrians and bus passengers.

• The absence of continuous sidewalks at some bus stops forces pedestrians to walk along a dirt path or in the street. Bus stops that lack sidewalks restrict mobility for pedestrians dependent on the bus. • The absence of pedestrian ramps and/or tactile warning strips in some intersection corners makes crossing Hylan Boulevard more challenging for the disabled and visually impaired.

Hylan Boulevard Transportation Improvement Study

• The absence of pedestrian refuge islands in the medians at some signalized intersections means that pedestrians do not have a haven in which to wait if they are unable to complete their crossing during the designated Walk phase.

Improving safety for pedestrians is a goal of this Project. Fortunately, in many locations along the corridor, there is space available within the public right-of- way to upgrade sidewalks and pedestrian ramps and to create pedestrian refuge islands in the median.

3.2 Goals and Objectives The goals of this project are to develop low-cost, easily implementable treatments to:

• IMPROVE TRAFFIC FLOW, BUS TRAVEL TIME AND RELIABILITY

• IMPROVE TRANSIT ACCESS TO MANHATTAN, BROOKLYN AND TO STATEN ISLAND DESTINATIONS

• IMPROVE SAFETY FOR ALL CORRIDOR USERS, INCLUDING MOTORISTS, TRANSIT RIDERS, AND PEDESTRIANS ALONG THE HYLAN BOULEVARD CORRIDOR.

Having established these goals and the need for this Project, the Project Team then established specific objectives by linking each problem statement to each goal. Refer to Table III-1. These objectives formed the basis for developing alternatives, which are described in Chapter IV.

Table III-1 Project Goals and Objectives Problem Statement Project Goal Project Objectives • Optimize progression of traffic signals • Maximize utilization of green time at signals #4:Traffic signal delays and other operational • Reduce congestion at intersections issues contribute to delays to bus Improve traffic flow • Reduce weaving of buses and cars at passengers and to congestion along Hylan intersections Boulevard. • Provide lane configurations consistent with traffic volume #1: Bus travel time along the route of the S79 is slow, with one-way travel time from beginning to the end of the route generally • Improve bus travel time exceeding one hour. Improve bus travel time and • Reduce congestion at bus stops #3: The frequency and location of local and reliability • Reduce time for fare collection and boarding express bus stops and the high volume of • Reduce traffic signal delays for buses buses serving these stops adds to congestion along the corridor. #2: Portions of the S79 route near the • Reduce travel time on S79 route Eltingville Transit Center and Staten Island • Reduce congestion at termini of bus routes Mall are circuitous and add to the overall Improve transit access to and at key intermediate stations travel time. Manhattan, Brooklyn and to Staten • Streamline S79 route to reduce travel time #3: The frequency and location of local and Island destinations • Reduce delays at local and express bus stops express bus stops and the high volume of • Maintain access to businesses along the buses serving these stops adds to corridor congestion along the corridor. #5: Deteriorated roadway pavement adversely affects driver and passenger comfort, increases travel time and limit the • Improve pavement conditions effective capacity of travel lanes. • Improve mobility, accessibility to bus stops #6: The absence of sidewalks, pedestrian ramps Improve safety for all corridor users and safety for pedestrians and pedestrian refuges at some locations • Provide better bus stations to improve along the corridor restricts mobility, access comfort and convenience to bus stops and safety for pedestrians and bus passengers.

Hylan Boulevard Transportation Improvement Study

IV Alternatives

Table of Contents Page Retain the Status Quo 42

Improve Transit Access to Manhattan, 42 Brooklyn and to Staten Island Destinations

Improve Bus Travel Time and Improve 48 Reliability

Improve Traffic Flow 54

Improve Safety for All Corridor Users 56

Chapter IV describes the alternatives that the Project team developed to achieve the project’s goals and objectives. This discussion assesses why or how each alternative was either rejected or carried forward as part of the recommended plan for the corridor.

Hylan Boulevard Transportation Improvement Study IV Alternatives

4.1 Retain the Status Quo Retaining the status quo, or the “Do Nothing Alternative,” would retain roadway, traffic, pedestrian, and safety conditions as is. NYCT would maintain current local and express bus operations, service patterns and bus stops. There would be no changes to the roadway, streetscape or pedestrian circulation elements except for scheduled state-of-good repair projects and improvements to left turn lanes at a handful of intersections on Hylan Boulevard, which NYCDOT will implement between 2012 and 2014.

Since retaining the status quo would not achieve the project’s goals and objectives, this alternative is not a viable course of action and was eliminated from further consideration.

4.2 Improve Transit Access to Manhattan, Brooklyn and to Staten Island Destinations The following alternatives were evaluated for their ability to reduce the overall travel time on the S79 between the corridor and Brooklyn and Manhattan and to reduce travel time for intra island (Staten Island) trips.

1. S79 routing to the Staten Island Mall via New Dorp Lane - Various alternatives that utilize New Dorp Lane instead of Hylan Boulevard and Richmond Avenue as a path to the Staten Island Mall were evaluated. The routes include: Richmond Road, Richmond Hill Road, Arthur Kill Road, and Rockland Avenue.

These routes do not serve a number of key sources of ridership along the corridor, such as the portion of Hylan Boulevard in Great Kills, on Richmond Avenue, at the Eltingville Staten Island Railway Station and the Eltingville Transit Center. For this reason these options were eliminated from further consideration.

2. S79 routing in New Dorp - Due to frequent congestion on Hylan Boulevard in New Dorp in the AM peak, it was postulated that travel time on the S79 between Tysens Lane and New Dorp Lane could be reduced by using Mill Road as a bypass route. Northbound buses would turn east on Tysens Lane, proceed north on Mill Road and then turn west on New Dorp Lane before rejoining Hylan Boulevard. Travel time runs conducted in April 2011 42

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indicated a three-minute trip using Hylan Boulevard and six minutes using Tysens Lane, Mill Road, and New Dorp Lane.

It was concluded that the S79 route should remain on Hylan Boulevard. The route option via Mill Road was eliminated from further consideration.

3. S79 routing to/from the Verrazano-Narrows Bridge - Two alternatives were evaluated for their ability to reduce travel time on the S79 between New Dorp and the Verrazano-Narrows Bridge. Travel time runs conducted in April 2011 indicated the following:

• Existing route via Hylan Boulevard, Steuben Street, Narrows Road South to Fingerboard Road: 10 minutes • Richmond Road route via New Dorp Lane, Richmond Road, Narrows Road South to Fingerboard Road: 15 minutes • Father Capodanno Boulevard route via Hylan Boulevard, Midland Avenue, Father Capodanno Boulevard, Lily Pond Avenue to the Staten Island Expressway: 11 minutes

Travel time via the (existing) Hylan Blvd route is 50 percent faster than the Richmond Road route. Therefore the Richmond Road route was eliminated from further consideration.

Travel times on the existing and Father Capodanno Boulevard routes are comparable. However the route via Father Capodanno Boulevard would bypass the communities of Dongan Hills and Grasmere, eliminating a major source of ridership. For this reason the Father Capodanno Boulevard route option was eliminated from further consideration.

4. S79 routing to/from the Verrazano-Narrows Bridge via an extension of Father Capodanno Boulevard through Miller Field - This option would create a roadway connection between Miller Field’s circulatory roadway (Cedar Grove Avenue) and Father Capodanno Boulevard, which does not currently exist. This connection would enable drivers travelling to and from the Bridge to use Father Capodanno Boulevard in lieu of the more heavily traveled Hylan Boulevard through Midland Beach.

This connection could possibly increase traffic volumes on Father Capodanno Boulevard and create some level of noise and air quality impacts in the adjacent neighborhoods as well as in the Park. Moreover, Miller Field is part of the

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National Park Service’s Gateway National Recreation Area. These issues would likely trigger the need for an extensive environmental review. In addition this routing would bypass areas of heavy ridership. For these reasons, this option was eliminated from further consideration.

5. Zone express and short turn service - One option would replace or augment the baseline local S79 with peak period variations that are more focused on certain geographies, e.g., Bay-Ridge-to New Dorp; New Dorp to Eltingville, etc. Similar to the existing express bus routes, this option would provide a quicker trip for peak period passengers. Buses would stop at only a limited number of stations in each geographic area.

A second option entails “short turns” (operating on only a portion of the route and ending service before reaching the terminus). Despite the potential travel time savings, this option is not desirable because there is heavy ridership to each terminal and because service frequencies (headways) on the route extremities might not attain minimum or desirable SBS standards. The addition of multiple routes, with distinct termini, could create confusion and require passengers boarding the wrong bus to transfer.

For these reasons both options were eliminated from further consideration. New York City Transit will operate some supplemental trips that do not go full route to serve a particular ridership demand such as a shift change or school dismissal.

6. Constructing grade separated crossings of major intersections and/or operating buses on dedicated busways.

These options were eliminated from further consideration due to right-of-way constraints, high cost, and adverse impacts on adjacent properties.

7. Bus lane on the Verrazano-Narrows Bridge - A bus lane on the upper level of the bridge would complement the HOV lane on the Staten Island Expressway (SIE) and the Gowanus Expressway/Brooklyn Queens Expressway. It would provide a continuous lane for buses traveling between Staten Island and the Brooklyn Battery Tunnel.

Providing such a lane would be problematic because the left lane on the upper level is designated for the ramp leading to the eastbound Belt Parkway. Designating one of the two remaining lanes for buses would leave just one lane for all other traffic. MTA Bridges and Tunnels (MTA B&T) is responsible for

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construction on and operation of the bridge, effectively limiting NYCT and NYCDOT’s ability to implement physical changes on the bridge. However, MTA B&T, in conjunction with the New York State Department of Transportation is constructing new ramps to and from the SIE adjacent to the VNB toll plaza to reduce delays and improve traffic flow in this portion of the project corridor. When complete, these ramps will improve traffic flow and complement the travel time savings in the existing HOV lanes on the SIE. The Project Team will continue to work with B&T to explore options for bus priority over the Bridge.

8. Streamlined bus service - The S79 was evaluated to eliminate circuitous routing and improve travel time in three areas: 1) adjacent to the Eltingville Transit Center, 2) in the lightly patronized, but congested portion of the route along Forest Hill Road and Yukon Avenue, and 3) along the time-consuming and lightly-patronized Richmond Hill Road approach to the Marsh Avenue terminus.

• Eltingville Transit Center-Mall-bound S79 buses would directly enter the Eltingville Transit Center via the north driveway (located slightly upstream of the signalized intersection at Richmond Avenue at Wainwright Avenue). This would provide a less circuitous Mall-bound path than currently exists via Arthur Kill Road. The new route would obviate the need for these buses to pass through the signalized intersection of Richmond Avenue at Arthur Kill Road twice and avoid additional delay upon exiting the site and merge with traffic on Wainwright Avenue. A separate stop exclusively for the mall-bound S79 would be created along the north curbline in the Eltingville Transit Center station site. Brooklyn-bound buses would exit the site via the aforementioned driveway. Assuming well coordinated traffic signals along Richmond Avenue, these buses would encounter fewer signal delays than currently exist. A long-term plan envisions constructing a new island platform opposite the station building to serve all S79 passengers.

• Forest Hill Road and Yukon Avenue-Instead of Mall-bound buses turning from Richmond Avenue to Forest Hill Road and then onto Yukon Avenue before rejoining Richmond Avenue, the S79 would continue north on Richmond Avenue and enter the Mall via Platinum Avenue, as it currently does. This new route avoids the recurring congestion along Forest Hill Road that is due to the adjacent Yukon Bus Depot. Bus travel time would also improve because these buses could use a curb bus lane, which is proposed along this portion of northbound Richmond Avenue. This revised route would also apply to Brooklyn-bound buses, which would continue south on Richmond Avenue instead of traveling on Yukon Avenue and Forest Hill Road.

• Marsh Avenue Terminus- Instead of exiting the Mall north of Macy’s and turning onto Richmond Hill Road, the Mall-bound S79 would continue directly to the Marsh Avenue terminus. Delays that customers currently experience at the signalized intersections on Richmond Hill Road would be eliminated. The fewer than 50 passengers that board and alight the S79 along Richmond Hill Road during weekday peak periods would be accommodated at new stations that are proposed on Mall property at the intersection of Ring Road and the Ring Road extension (Racal Court). This revised route path would also apply to Brooklyn- bound buses; upon starting their trip from the Marsh Avenue terminus these buses would circumnavigate the park-and-ride lot (as they currently do) but, instead of leaving the Mall and turning onto Marsh Avenue and Richmond Hill Road before re-entering the Mall, these buses would remain on Ring Road.

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The streamlined route paths will reduce travel time and not significantly inconvenience passengers whose stops would be displaced. Therefore, they are recommended for inclusion in the concept plan.

9. Increased spacing between S79 bus stops - As described in Chapter II most passenger boardings and alighting on the S79 route occur at approximately 15 bus stops. These locations serve busy retail, commercial and educational facilities, residential areas, transit nodes, park and ride facilities and intersections at which passengers can transfer to and from other NYCT buses. Providing S79 service to these key origins and destinations would reduce travel time along the corridor. The S78 and S59 would continue to serve all local stops on Hylan Boulevard and Richmond Avenue, respectively.

Increasing the distance between stops on the S79 route is recommended as part of the recommended plan.

Table IV-1 summarizes the evaluation of alternatives that are intended to improve transit access to Manhattan, Brooklyn and to Staten Island destinations.

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Table IV-1 Summary Assessment of Alternatives Improve Transit Access Manhattan, Brooklyn and to Staten Island Destinations

Alt. Description Objective Included in Recommended Plan?

S79 routing to SI Mall via New Streamline S79 route to No-Does not serve key market areas 1 Dorp Lane reduce travel time of corridor

NB S79 routing in New Dorp via Streamline S79 route to No-Travel time is faster via Hylan 2 Mill Road reduce travel time Blvd; bypasses key market areas

S79 routing to/from VNB via Streamline S79 route to No-Travel time is faster via Hylan 3A Richmond Rd reduce travel time Blvd; bypasses key market areas

S79 routing to/from VNB via Streamline S79 route to No-Travel time is faster via Hylan 3B Father Capodanno Blvd reduce travel time Blvd; bypasses key market areas

No-Anticipated environmental S79 routing to/from VNB via Streamline S79 route to impacts and community concerns; 4 extension of Father Cap Blvd reduce travel time through Miller Field bypasses key market areas

Zone Express and Short Turn Streamline S79 route to No-potentially confusing to riders 5 service reduce travel time due to multiple routes

No-Insufficient right-of-way, adverse Reduce conflicts between Create grade separated effects on adjacent properties, high 6 buses and other vehicles intersections and/or busway cost Reduce travel time to and No-MTAB&T is implementing other from Verrazano-Narrows 7 Bus lane on VNB mobility enhancement projects Bridge (VNB)

Streamline bus service at Streamline S79 route to 8A Yes Eltingville Transit Center reduce travel time

Streamline bus service near Streamline S79 route to 8B Yes Staten Island Mall reduce travel time

Streamline bus service near Streamline S79 route to 8C Yes Marsh Ave terminus reduce travel time

Increase spacing between S79 9 Improve bus travel time Yes bus stops

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4.3 Improve Bus Travel Time and Improve Reliability The following alternatives were evaluated for their ability to provide faster and more reliable bus service. Some of these alternatives use various priority bus treatments to reduce delays to buses in travel lanes, at bus stops and at signalized intersections. Others focus on minimizing conflicts between buses and general traffic.

1. Right-side Queue Bypass at Major Intersections - This alternative would be implemented in conjunction with a curb bus lane (see #4). At selected signalized intersections a separate signal phase would be provided to enable buses to proceed through the intersection ahead of traffic in the adjacent through lanes.

Based on the traffic analysis conducted for this alternative, levels of service in general use lanes would be worse with the queue bypass phase since it would usurp some green time that could otherwise be allocated to through traffic in the peak direction. Although this alternative would improve travel time for buses the overall effect on traffic would be too adverse to considerate it for implementation along the corridor. For this reason, this alternative was eliminated from further consideration, although the concept was include as part of Advance Signal locations(discussed in section 4.4).

2. Left-side Queue Bypass - At selected signalized intersections, the left lane would serve buses and left turns at all times. The remaining three lanes would serve general use traffic. Because the left lane would serve as a through and left turn lane, one phase could not accommodate this movement. A four phase signal would be required, adding to the complexity of the operations.

Although this alternative would improve travel time for buses, the combination of left turns and buses in the left lane requires its own phase and extended green time, which would result in less green time for the adjacent through lanes. At the locations evaluated, this generally resulted in adverse effects on through traffic levels of service. This alternative would also require moving bus stops away from the major intersections, to allow buses to reach them from the left turn lanes. This would increase the distance originating and transferring bus passengers would have to walk to access the stop, resulting in less convenient service. For these reasons, this alternative was eliminated from further consideration.

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3. Transit Signal Priority (TSP) - TSP reduces delays to specially equipped buses by either extending the green time or shortening the red time at traffic signals. Extending the green phase enables these buses to proceed through an intersection at which it would have otherwise been required to stop. In general the additional time for buses is taken from either the green phase for adjacent general traffic or from the cross street. Adequate green time for pedestrians to cross the side street would be maintained. TSP could be implemented at mainline intersections as well as at locations such as the entrance to the Eltingville Transit Center. As shown in Exhibit IV-1, NYCDOT has successfully deployed TSP on Staten Island at the intersection of Victory Boulevard at Bay Street as well as on the Fordham Road/Pelham Parkway SBS corridor.

TSP would reduce delays due to traffic signals. Because of these travel time savings, TSP is recommended as a component of the concept plan.

Exhibit IV-1 Transit Signal Priority Intersection of Victory Boulevard at Bay Street, Staten Island

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4. Curb Bus Lane - This alternative entails designating the curb lane in specific segments along the corridor as a bus lane available only to buses and vehicles making the next available right turn. Curb regulations would be changed to prohibit parking and standing in the bus lane during the hours of operations. A curb bus lane improves bus speeds and reliability by obviating the need for buses to pull into and out of traffic at bus stops and reducing conflicts between buses and other moving vehicles.

With the heavy volume of buses on Hylan Boulevard and the No Standing restrictions in the peak direction the curb lane displays some of the functions as a bus lane. However, since general traffic is permitted to travel in the curb lane, the full benefits for transit of these regulations are not realized. Therefore creating a true bus lane along the segment of Hylan Boulevard, where delays to buses are highest, is a viable option. Hylan Boulevard between Lincoln Avenue and Steuben Street is such a segment not only because of high bus delays but also because-as discussed in Chapter V- the impacts of a bus lane on general traffic can be accommodated. In other segments of Hylan Boulevard, such as between New Dorp Lane and Tysens Lane, where bus delays are also high, a bus lane is not viable because of the adverse effect it would have on adjacent through traffic

Another potential segment for a bus lane is along northbound Richmond Avenue on the approach to the Staten Island Mall. During the AM and PM peaks, northbound Richmond Avenue operates at an acceptable level of service. Revising the lane markings among the four wide travel lanes and converting the curb lane into a curb bus and right turn lane would improve bus travel times for the numerous local and express buses that serve this area. A curb bus lane along southbound Richmond Avenue near the mall does not appear viable because southbound buses eventually must merge from the curb lane to the two remaining lanes that continue past Drumgoole Road West. However, as described later in this chapter, a median bus lane, which is proposed in conjunction with a station in a portion of the wide median at Yukon Avenue would provide travel time savings and improve safety.

The section of 92nd Street between Dahlgren Place and Fort Hamilton Parkway and along Narrows Road South are also candidate locations for bus lanes subject to the results of an analysis of the effects on traffic, which has not yet been conducted.

For the travel time benefits described above, this treatment is recommended for inclusion in the recommended plan. The specific locations and hours of operation of the bus lane are discussed in Chapter V.

5. Offset (Interior) Bus Lane - An offset bus lane is a travel lane for buses adjacent to (one lane away from) the curb lane. This configuration makes parking and standing at the curb possible. An offset bus lane is desirable where parking and access to the curb for deliveries need to be provided and viable only when the reduction in roadway capacity resulting from the loss of a travel lane can be accommodated. Certain segments of Richmond Avenue are ideal candidates for an offset bus lane for these reasons.

An offset bus lane may be viable along segments of Richmond Avenue where delays to buses can be reduced and on-street parking should be retained. The

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southbound Richmond Avenue approach to Hylan Boulevard is an ideal segment if implemented in conjunction with revised signal phasing to provide preferential signal timing for buses. For these reasons an offset bus lane is recommended at this location as a component of the corridor plan.

6. Regulations to Prohibit Standing and Parking in Bus Lane - In conjunction with the proposed implementation of curb bus lanes, various combinations of temporal and directional restrictions against standing and parking were evaluated, e.g., retain existing restrictions in peak direction only; implement restrictions in peak and off peak directions, implement restrictions all day, on weekends, etc. Various factors suggest limiting bus lanes to only the weekday AM and PM peak periods: 1) Bus volumes are considerably higher in the AM and PM peaks than in the off-peak and on weekends. 2) Traffic to the commercial and retail areas increases between the AM and PM peaks and on Saturday, which means that delays to traffic in the remaining lanes would be adversely affected by the bus lanes. 3) On-street parking utilization is also greater during the midday than during the AM and PM peaks, thereby requiring replacement parking to accommodate spaces displaced by the bus lanes.

Because of the reduction in both vehicular conflicts and delays to bus riders resulting from these restrictions, the Project team concluded that these restrictions should be in effect in the peak direction only during the weekday AM and PM peak periods. Phased implementation of bus lanes in the off-peak direction should also be pursued.

7. Bus Lay-by Lane on East Side of Hylan Boulevard between Tysens Lane and Ebbitts Street - A lay- by lane would provide buses with an entire lane outside of the existing curb lane and adjacent general travel lanes in which to pull into and stop to pick and/or drop off passengers. The lay-by lane would also reduce delays to general (i.e., non-bus) traffic by removing bus maneuvers from the curb lane. In order to provide the lay-by lane a portion of the sidewalk and first row of parking spaces in the Super Shop and Stop shopping center would be removed.

Because of these benefits, the lay-by lane is recommended as a component of the corridor plan. However construction of the lay-by lane would require relocating the sidewalk and landscaped area along the curb and acquiring private property from the Super Stop & Shop shopping center parking lot. For these reasons, the bus lay-by lane is conceived as a possible long-term improvement measure.

Hylan Boulevard Transportation Improvement Study

8. Select Bus Service Stations - As noted previously, travel time on the S79 could be improved by increasing the distance between bus stops. Limiting the S79 service to these locations would enable buses to achieve higher travel speeds between stations, offer a smoother, less disruptive trip and reduce overall bus travel time along the corridor.

Because of these benefits, longer station spacing is recommended for the entire S79 corridor.

9. Improve operations at S79 terminus in Bay Ridge By Providing Additional Curb Space - As noted previously, the bus stop at Fourth Avenue at 86th Street has, by far, the most activity of any stop on the S79 route. S79 passengers queuing to board the bus conflict with: pedestrians entering, leaving or walking by the retail stores on Fourth Avenue (between 87th and 86th streets), with riders boarding the B1 bus and with subway passengers exiting the station immediately adjacent to the bus stop. Collectively these conditions increase boarding and dwell time and delay S79 buses from starting their trip. Relocating the B1 stop a short distance away to 87th Street at Fourth Avenue and designated the east blockface of Fourth Avenue exclusively for the S79 would reduce boarding and dwell times and eliminate conflicts between S79 and B1 buses and their customers.

Because of these benefits, designating the entire east blockface of Fourth Avenue to the S79 and relocating the B1 stop to 87th Street are recommended for inclusion in the concept plan.

Table IV-2 summarizes the evaluation of alternatives that are intended to improve bus travel time and reliability.

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Table IV-2 Summary Assessment of Alternatives to Improve Bus Travel Time and Improve Reliability

Alt. Description Objective Included in Recommended Plan?

No-Reduces delays to buses but causes 1 Right side queue bypass Improve bus travel time significant delays to general traffic

No-Reduces delays to buses but causes 2 Left side queue bypass Improve bus travel time significant delays to general traffic

Reduce traffic signal delays for 3 Transit Signal Priority (TSP) Yes buses

4 Curb bus lane Improves bus travel time Yes

Improves bus travel time 5 Interior (offset) bus lane Maintain access to businesses Yes along the corridor Regulations to prohibit 6 standing and parking in bus Reduce bus delays Yes lane

Bus lay-by lane between Reduce congestion at key No-Possibly as a long-term 7 Ebbitts St and Tysens La intermediate stations improvement

8 Select Bus Service Stations Improve bus travel time Yes

Streamline operations at Reduce congestion at termini of 9 Yes S79 terminus in Bay Ridge bus routes

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4.4 Improve Traffic Flow Traffic Engineers sometimes refer to a “toolbox” of strategies available to improve the overall efficiency of traffic flow. The following “tools” were identified to reduce delays at signalized intersections, reduce congestion at bus stops and improve the overall driving experience.

1. Optimize Signal Timings - This entails optimizing cycle lengths, splits, offsets, left-turn phases and the pedestrian sequence among adjacent intersections so that the signal progression matches the actual speed of traffic. NYCDOT would evaluate signal operations along the corridor and determine the intersections at which signal timing optimization is required.

2. Advance Signals - An Advance Signal (or “Pre Signal” as commonly referred to in Europe) is a traffic signal that is installed upstream of a congested signalized intersection. It is similar to a queue jump in application when there is insufficient space or too much congestion to implement an exclusive bus lane. By coordinating the signal timing between both intersections, buses would be given priority to bypass congestion in the adjacent lanes. Typically installed at either an upstream minor intersection or at a site driveway, an Advance Signal reduces weaving between buses and right turning vehicles, reduces delay and allows for more efficient and safer flow. It includes a short segment of bus lane upstream of the Advance Signal to accommodate the queue jump for buses. Advance Signals are commonly used in Great Britain and in South Africa, as shown in Exhibit IV-2.

Exhibit IV-2 Pre Signal in Cape Town South Africa (Traffic in South Africa travels in the same direction as in North America)

Hylan Boulevard Transportation Improvement Study

The Project team considered a number of factors in selecting locations along Hylan Boulevard to evaluate the feasibility of Advance Signals. These included:

• Proximity to proposed bus lanes • Delays to buses

• Bus dwell time

• Location of bus stops

• Location of site driveways

• Direction of traffic and volume on adjacent cross streets

• Signalization patterns

• Queuing

• Visibility

• Pedestrian activity

• Safety

Based on this assessment Advance Signals are proposed for further evaluation on northbound Hylan Boulevard upstream of the following signalized intersections:

• Jefferson Avenue • New Dorp Lane

• Ebbitts Street

The preliminary traffic analysis at these locations indicated that an Advance Signal would improve traffic operations and reduce delay to buses without adversely impacting general traffic. The analysis also indicates that an Advance Signal along the southbound approach to these intersections would not provide these benefits.

3. Adjust Bus Stop Locations where they Cause Congestion - At some stations local and/or express bus stops would be slightly relocated to make it easier for buses to access the curb, to pass each other and to provide more space for waiting customers. Generally, the expresses will be grouped together as will the S78 and S79s.

4. Roadway Improvements - NYCDOT would resurface portions of Hylan Boulevard and Richmond Avenue that are in disrepair. Bus pads that are in substandard condition would be repaired or replaced. At some stops that do not have bus pads, these would be constructed. At selected bus stops that serve multiple routes, bus pads would be lengthened.

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For the reasons described above each of these alternatives is recommended as part of the concept plan for the corridor.

Table IV-3 summarizes the evaluation of alternatives that are intended to improve traffic flow.

Hylan Boulevard Transportation Improvement Study

Table IV-3 Summary Assessment of Alternatives to Improve Traffic Flow

Alt. Description Objective Included in Recommended Plan? Optimize progression of traffic 1 Optimize signal timings Yes signals Reduce weaving of buses and cars at intersections 2 Advance Signals Yes Maximize utilization of green time at signals Adjust bus stop locations where 3 Reduce congestion at bus stops Yes they cause congestion Resurface street and repair bus 4 Improve pavement condition Yes pads

4.5 Improve Safety for All Corridor Users The following alternatives were evaluated for their ability to improve safety for all corridor users.

1. Improved Bus Stations - At many bus stops along the S79 route it is possible to reduce crowding on the adjacent sidewalk, reduce conflicts between pedestrians and vehicles, expedite boarding, and reduce overall dwell time by either designating the stop only for the S79 or, if the stop is served by multiple bus routes, by increasing the separation between the individual stops. At these and other locations, such as at the Eltingville Transit Center and at the S79 stops along Ring Road in the Staten Island Mall, upgrades to the station environment are possible by providing larger boarding areas, constructing sidewalks, installing CEMUSA shelters (CEMUSA is the firm that provides street furniture, such as bus shelters and newsstands in the City of New York) and installing pedestrian ramps.

Safety can also be improved by reducing the number of travel lanes that bus customers must cross to access bus stops. As shown in Exhibit IV-3 the wide median along Richmond Avenue in the vicinity of Yukon Avenue presents an excellent opportunity to create a station that not only reduces by approximately one-half the distance that passengers would have to cross Richmond Avenue to access the various bus routes serving the Staten Island Mall but also is a significant upgrade compared to the existing bus stop (Exhibit IV-4).

Because of these multiple benefits, improved stations are recommended as a component of the corridor plan. The improvements at the bus stations at the Eltingville Transit Center and the median station on Richmond Avenue are envisioned as long-term projects due to the required civil/site work. Approval of the owner of the Staten Island Mall is required to modify stations on mall property. NYCT and NYCDOT have met with Mall management several times to advance this proposal.

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Exhibit IV-3 Proposed Location of Median Bus Station Richmond Avenue at Yukon Avenue (Looking north)

Exhibit IV-4 Existing Sidewalk Conditions at Bus Stop on Richmond Avenue at Yukon Avenue (Looking west)

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2. Restripe crosswalks and lane lines and install new high visibility cross walks - This work would be performed in conjunction with roadway resurfacing and in other areas where the pavement is in satisfactory condition but the visibility of lane markings should nonetheless be enhanced. NYCDOT will identify the areas where resurfacing and new pavement markings are required.

3. Widen medians - Medians would be widened and landscaped, where sufficient space exists, to provide greater separation between opposing lanes of traffic, to beautify the street and, by reducing the amount of impervious material, also reduce surface runoff. Hylan Boulevard south of Nelson Avenue is an ideal location for this treatment; two lanes in each direction provide sufficient capacity for Hylan Boulevard to operate at an acceptable level of service. Unlike Hylan Boulevard to the north, which has three travel lanes in the northbound and southbound directions plus a left turn lane at most intersections, this section has a parking lane and two travel lanes in each direction separated by a raised median. There is adequate space within this cross-section to provide a total of four standard width lanes plus parking lanes and a wider median.

4. Extend medians into crosswalks to provide pedestrian refuges - Several signalized intersections have medians that are wide enough to accommodate a pedestrian refuge island. Where more than six feet is available, a planter bed could be provided as well. These refuge islands provide a haven for pedestrians if they are unable to cross the street during the designated Walk phase. The planter bed beautifies the corridor and reduces surface runoff.

5. Build sidewalks where none exist near bus stops - This treatment primarily applies along the east side of Hylan Boulevard near Great Kills Park. Several of the bus stops either lack sidewalks entirely or only have small segments immediately adjacent to the stop. Improving pedestrian access to bus stops is a key tenet of the city’s Safe Routes to Transit Program and promotes walking as a healthy form of non-motorized transportation along the corridor.

6. Add pedestrian ramps at bus stops where these are missing -Although many intersection corners along the corridor have two pedestrian ramps, some corners have one or none. Some of these ramps do not comply with ADA requirements. To mitigate this condition, and where space exists, ADA accessible ramps with tactile warning strips would be installed as necessary.

7. Trim overgrown trees - As with the need for new sidewalks (#5 above) this treatment is required primarily along the east side of Hylan Boulevard adjacent to Great Kills Park, where low hanging branches and overgrown brush restricts drivers’ visibility of pedestrians and prevents pedestrians from using the sidewalk to access bus stops.

Hylan Boulevard Transportation Improvement Study

For the reasons described above each of these alternatives is recommended as part of the concept plan for the corridor.

Table IV-4 summarizes the evaluation of alternatives that are intended to improve safety.

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Table IV-4 Summary Assessment of Alternatives to Improve Safety for all Corridor Users Component of Alt. Description Objective Recommended Plan? Reduce crowding at bus stops 1 Improved bus stations Protect bus passengers from the Yes elements

Restripe crosswalks and lanes 2 Improve visibility of pedestrians Yes Install new high visibility cross walks

Increase separation between opposing 3 Widen medians Yes lanes of traffic

Extend medians into crosswalks to 4 Provide refuge from traffic Yes provide pedestrian refuges

Build sidewalks where none exist 5 Improve access to bus stops Yes near bus stops

Improve accessibility for disabled 6 Add pedestrian ramps Yes pedestrians

Improve visibility of pedestrians and bus 7 Trim overgrown trees riders and improve accessibility for Yes disabled pedestrians

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V Elements of the Recommended Plan

Table of Contents Page Development of Corridor Wide 61 Improvement Plan

Bus Lanes 63

Streamlined Bus Service 66

Select Bus Service Stations 71

Improved Bus Stations 73

Transit Signal Priority (TSP) 76

Optimized Signal Timings 76

Advance Signals 77

Pedestrian Safety 82

Roadway Improvements 83

Recommended Concept Plan 84

Chapter V explains the process by which the Project team developed the recommended plan of improvements for the Project corridor. The specific components of the plan are described in detail.

Hylan Boulevard Transportation Improvement Study V Elements of the Recommended Plan

5.1 Development of Corridor Wide Improvement Plan The Project team used an incremental, iterative and integrated approach to develop a corridor-wide improvement program. Given the length and diversity of land use and transportation characteristics along the corridor, it was not possible to identify or evaluate treatments at each intersection or in each roadway segment along the corridor. It was necessary to focus instead on a subset of these segments from which promising options could be extrapolated to similar locations along the corridor. As noted in Chapter II, the four focus areas that were selected to preliminarily identify priority bus treatments and to assess their effects on traffic and parking:

• Hylan Boulevard between Old Town Road/Quintard Street and Benton Avenue (including signalized intersections at Old Town Road and at Benton Avenue) • Hylan Boulevard between Ebbitts Street and Tysens Lane (including signalized intersections at Ebbitts Street and at Tysens Lane)

• Hylan Boulevard between Cleveland Avenue and Wiman Avenue including the signalized intersection at Nelson Avenue)

• Richmond Avenue between Leverett Ave and Katan Avenue (including the signalized intersection at Genesee Avenue)

The Project team sought to first identify treatments to improve bus travel time and reliability and improve traffic flow. Identifying the complementary operational and physical treatments to improve safety then followed. The team identified and evaluated the effect of priority bus treatments at the six signalized intersections noted above. Based on this analysis we identified the single option for each of the six intersections that best addresses the project’s traffic and transit objectives. As described in the Traffic Analysis section of Chapter VI, we found that some options reduced bus delays. But other treatments either did not reduce delays or had adverse effects on traffic in adjacent through lanes or to left turning traffic that either could not be effectively mitigated or outweighed, in the team’s estimation, the delay savings to bus passengers.

The team then evaluated these and other options at six additional signalized intersections along the corridor. Using professional judgment we established the preferable lane treatment to “connect” both groups of intersections, considering, for example, the manner in which buses would access and egress stations. We then established bus priority treatments, traffic engineering measures and safety treatments at the remaining intersections within and adjacent to each of the four focus areas, to establish a consolidated concept for the project corridor.

A treatment was included in the recommended plan if it:

• Achieved one or more project goals. 64

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• Did not adversely affect traffic in general use lanes. In those few instances where negative effects were noted, the option was still considered viable if these effects could be mitigated.

• Did not adversely affect on-street parking and deliveries.

• Could be implemented in the short-to medium term (by 2013).

• Complements measures that NYCDOT has recently implemented, e.g., safety improvements at the intersection of Hylan Blvd and Steuben Street, pedestrian count-down signals throughout the corridor and additional safety and capacity improvements that NYCDOT will implement by 2014 at several intersections on Hylan Boulevard, including at New Dorp Lane.

As noted in Chapter III, the project team developed alternative treatments to address specific needs. This was particularly true with regard to improving reliability of bus service, reducing bus delays and improving overall traffic flow. However the team was also sensitive to not “impose” a treatment if: 1) it was not warranted or 2) if it improved bus operations but adversely affected general traffic. Thus, for example, traffic generally flows well even during peak periods along Hylan Boulevard between Guyon Avenue and Richmond Avenue. Buses are rarely delayed in this segment. For this reason the Project team concluded that priority bus treatments are not required and that improving roadway and pedestrian safety should be the focus.

Conversely, there is recurring congestion in the morning along northbound Hylan Boulevard between Tysens Lane and Lincoln Avenue. Buses are frequently delayed. If, for example, bus lanes were provided here, delays to buses would decrease, but delays to general traffic would increase dramatically. Without acquiring private property and adding travel lanes, little can be done to ameliorate this situation. For these reasons, the team concluded to not provide priority bus treatments throughout this entire portion of Hylan Boulevard but, instead, to identify specific intersections within this segment where “spot” improvements, such as Advance Signals, could help both buses and general traffic.

The principal elements of the recommended plan are described in the following sections.

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5.2 Bus Lanes Curb bus lanes would be implemented on approximately the northern two miles of Hylan Boulevard, between Lincoln Avenue and Steuben Street. This is an area where there are currently rush hour parking regulations and where bus ridership on local and express buses is highest. Additionally, short segments of curb bus lanes and offset (interior) bus lanes would be implemented in other Project areas to help buses bypass congestion. Exhibit V-1 shows the proposed location of bus lanes.

The proposed segments of bus lane are as follows:

• A curb bus lane on Hylan Boulevard from Lincoln Avenue to Steuben Street would be in effect in the peak directions, Monday-Friday, 6-9 AM (NB) and 3-7 PM (southbound). Exhibit V-2 is a rendering of curb bus lanes at the intersection of Hylan Boulevard at Midland Avenue. • An offset bus lane would be implemented on southbound (“Brooklyn-bound”) Richmond Avenue from Shirley Avenue to Hylan Boulevard and would be in effect at all times.

• A curb bus lane would be implemented on northbound (“Staten Island Mall-bound”) Richmond Avenue from approximately one-quarter mile north of Drumgoole Road to Platinum Avenue. This bus lane would be effect at all time.

• A southbound bus lane on Richmond Avenue would be implemented in conjunction with a proposed median island bus station at Yukon Avenue (described in section 5.5)

• A curb bus lane would be implemented on westbound 92nd Street, between Dahlgren Place and Fort Hamilton Parkway. This lane would be in effect Monday-Friday, 6-9 AM. This lane would not be implemented as part of the initial project implantation, and may be further evaluated at a later time.

In accordance with New York City law guiding the use of bus lanes, only buses and vehicles making the next right turn would be permitted to enter the bus lane. Video cameras would help enforce these restrictions, along with regular police enforcement. These restrictions would minimize conflicts between buses and other vehicles, resulting in decreased delay to buses.

In conjunction with implementing bus lanes along Hylan Boulevard, curb regulations would need to be adjusted to prohibit parking in the bus lanes. Currently along Hylan Boulevard parking and standing in the curb lane are prohibited in the peak direction of travel (6-9 AM northbound and 4-7 PM southbound). The proposed Project would begin the evening restrictions one hour earlier (3 PM). A long-term proposal would additionally prohibit parking and standing in the reverse-peak direction.

Parking would be permitted in the curb lane adjacent to the offset bus lane on Brooklyn-bound Richmond Avenue.

Parking and standing would be prohibited Monday to Friday 6-9 AM and 3-7 PM in the bus lane on Staten Island Mall-bound Richmond Avenue.

Parking regulations would be changed to prohibit standing in the bus lanes along 92nd Street.

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Exhibit V-1 Location of Proposed Bus Lanes

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Exhibit V-2 Rendering of Bus Lane at Hylan Boulevard at Midland Avenue (Looking South)

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5.3 Streamlined Bus Service The Project would replace the S79 local bus service with S79 Select Bus Service. Exhibit V-3 shows the branding of SBS buses along Fordham Road in The Bronx. All other local and express bus routes would be maintained throughout the corridor. The S79 SBS would replace the current S79, providing limited stop service all day on weekdays and weekends. The span of service would be comparable to the existing S79. The frequency of service would also be comparable to the current S79, with peak periods having a demand driven headway. Off-peak periods would have a minimum of four buses per hour (15 minute headways), and night service would have a minimum of two buses per hour (30 minute service).

Exhibit V-3 Branding of Select Bus Service

The S79 SBS would generally maintain the path of the existing S79 route except as described below. These route adjustments would improve bus travel time while still providing convenient bus service to customers.

Eltingville Transit Center - As shown in Exhibit V-4 direct access into the Eltingville Transit Center for Mall- bound S79 buses would be provided via the existing north driveway along Richmond Avenue . In conjunction with this rerouting a separate stop exclusively for northbound S79 SBS buses would be created along the north curbline in the Eltingville Transit Center station site. After picking up passengers, the Mall-bound S79 would exit the site via a right turn on to Arthur Kill Road and turn left on to westbound Richmond Avenue. This circulation option obviates

Hylan Boulevard Transportation Improvement Study

the need for Mall-bound buses to pass through the intersection of Richmond Avenue at Arthur Kill Road twice. It also enables these buses to avoid the sometimes difficult merge with heavy traffic on Wainwright Avenue. Brooklyn- bound S79s would continue to stop in front of the station building

A potential long-term plan for the site entails constructing an island platform opposite the station building, which would be exclusively for S79 passengers. This platform would oriented to facilitate circulation, permit right-side loading and unloading and accommodate approximately 16 parking spaces for buses. Based on discussions with Staten Island Road Operations staff, this should be sufficient to accommodate bus staging operations. As with the base plan, Mall-bound buses would only have to pass through the intersection of Richmond Avenue and Arthur Kill once

Exhibit V-4 Proposed Routing of Staten Island Mall-bound S79 SBS at Eltingville Transit Center

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Forest Hill Road and Yukon Avenue - As shown in Exhibit V-5, Staten Island Mall-bound and Brooklyn- bound S79 buses would no longer turn on Forest Hill Road and on Yukon Avenue, but would continue along Richmond Avenue. Mall-bound S79 passengers with origins or destinations along these now-bypassed streets could either walk or conveniently transfer to the S59 at Eltingville Transit Center. Brooklyn-bound, the only passengers who might need to transfer are those boarding the S79 at the first two stops. Customers could walk a short distance to Yukon Avenue or take the S59 directly there.

This option saves Mall-bound passengers on the S79 several minutes given the avoidance of traffic signals, three turns, and the slow bus speeds necessary to negotiate them (on all trips) and the added delays occasioned by bus operator reliefs (changing of operators) that occurs today at the Yukon Depot on many S79 trips. As noted above, the S59 would still serve the stops along Forest Hill Road and Yukon Avenue for the fewer than 50 passengers who typically board and alight here in the peak period. It is expected that bus operator reliefs would be converted to pull- in/pull-out of buses to/from the S79 terminal, just a short distance away via Marsh Avenue, Platinum Avenue, and Forest Hill Road. Thus, the adjustments NYCT would make to its operating plan to accommodate the re-routing of S79 are likely to be cost-neutral, while the service quality for customers is significantly enhanced. The same customer and operating benefits would accrue to Brooklyn-bound S79s. As noted above, the re-rerouting applies to both northbound and southbound S79s.

Marsh Avenue Terminus - Exhibit V-6 depicts a more streamlined routing to the Marsh Avenue terminus than currently exists. Instead of exiting the Mall north of Macy’s and turning on to Richmond Hill Road, the S79 would continue directly to the Marsh Avenue terminus. The fewer than 50 passengers that board and alight the S79 along Richmond Hill Road in the peak period would be accommodated at new stations that would be constructed on Mall property at the intersection of Ring Road and the Ring Road extension (parallel to Racal Court). NYCT and NYCDOT have presented this proposal to Mall management, and further discussions to address implementation, right-of-way and site issues are expected throughout 2012.

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Exhibit V-5 Proposed Routing of Staten Island Mall-bound S79 SBS on Richmond Avenue

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Exhibit V-6 Proposed Routing of S79 SBS on Approach to Marsh Avenue Terminus

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5.4 Select Bus Service Stations The S79 SBS would operate with more widely-spaced stations than the current S79 service. As a general guide SBS station spacing would be approximately 1 kilometer or 2/3 of a mile. SBS stations would be provided adjacent to major retail, commercial and educational facilities, in residential areas, at transit nodes and at park and ride facilities and at intersections at which passengers can transfer to and from other NYCT buses. Providing S79 SBS service to these key locations would enable buses to achieve higher travel speeds between stations and reduce overall travel time along the corridor. Local bus passengers, such as on the S78 and S59 routes, would be able to transfer to and from the S79 at SBS stations.

As shown on Exhibit V-7, SBS stations would be located as follows:

• Marsh Avenue • Staten Island Mall North-at the intersection of Ring Road and the extension of Ring Road leading to Richmond Hill Road • Staten Island Mall South-at the existing S79 stop on Ring Road • Richmond Avenue at Yukon Avenue • Eltingville Transit Center • Richmond Avenue at Genesee Avenue • Richmond Avenue at Eltingville Staten Island Railway Station (Amboy Road) • Hylan Boulevard at Richmond Avenue • Hylan Boulevard at Nelson Avenue • Hylan Boulevard at Bay Terrace • Hylan Boulevard at Buffalo Street • Hylan Boulevard at Tysens Lane • Hylan Boulevard at Ebbitts Street • Hylan Boulevard at New Dorp Lane • Hylan Boulevard at Midland Avenue • Hylan Boulevard at Seaview Avenue • Hylan Boulevard at Old Town Road • Hylan Boulevard at Clove Road • Hylan Boulevard South at Narrows Road South on (Brooklyn-bound station) • Narrows Road North at St John’s Avenue (Staten Island Mall-bound station) • Narrows Road South at Fingerboard Road (Brooklyn-bound station) • Narrows Road North at Fingerboard Road (Staten Island Mall-bound station) • 92nd Street at Fort Hamilton Parkway • Fourth Avenue at 86th Street

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Exhibit V-7 Select Bus Service Stations

In January 2012, the MTA implemented MTABusTime on Staten Island. MTABusTime uses Global Positioning System (GPS) hardware and wireless communications technology to track the real-time location of the next several buses that will arrive at a stop. Customers can use desktop and mobile technology to obtain this information. This reduces the uncertainty of bus arrival time and therefore minimizes the amount of time spent waiting for a bus. MTABusTime will be deployed on S79 SBS buses.

No changes in fare policy or technology are currently planned for the Hylan Boulevard Project corridor. The MTA is evaluating the feasibility of implementing contactless smart card technology on buses and in the subway system. The implementation of this technology system-wide would allow for integrated ticketing and facilitate lower dwell times at stations. While testing of this technology continues, fares would continue to be collected on board.

Hylan Boulevard Transportation Improvement Study

5.5 Improved Bus Stations Nearly all of the proposed SBS stations currently have bus shelters. CEMUSA bus shelters would be provided at those stations that lack shelters, where feasible. At some stations, local and/or express bus stops would be slightly relocated to facilitate buses accessing the curb, to provide more space for waiting customers and to facilitate buses passing each other. Pedestrian ramps and sidewalks would be installed where these are missing. Bicycle racks would be installed where warranted and where space permits.

Notable station improvements include the following:

Fourth Avenue at 86th Street-The B1 bus stop along the east blockface of Fourth Avenue, south of 86th Street, would be relocated to 87th Street to reduce congestion at the S79 SBS terminus. A bus holding light would be installed at the exit from the 86th Street R subway station to alert bus operators to wait for passengers exiting an arriving train.

92nd Street at Fort Hamilton Parkway-The curb along eastbound 92nd Street would be realigned and the sidewalk area expanded to make it easier for buses to access the curb.

Richmond Avenue at Eltingville Staten Island Railway Station-New traffic signal heads would be installed between Sylvia Street and the railway trestle to better control traffic and, in conjunction with a new, high-visibility crosswalk, to improve safety for pedestrians crossing Richmond Avenue.

Eltingville Transit Center-As described in the Streamlined Bus Service section of this chapter Staten Island Mall-bound S79 buses would enter the site directly from Richmond Avenue and stop along the north curbline of the site. In the long-term it is proposed to construct a new island platform in the bus staging area opposite the station building, which would be exclusively for SBS passengers. The island platform would be aligned to enable eastbound and westbound buses to fully platform.

Richmond Avenue at Yukon Avenue-Refer to Exhibit V-8. The short-term recommendation is to provide an SBS stop and a bus lane in the northbound direction. In the southbound direction a new bus pad, bus shelter, pedestrian ramp and new sidewalk would be installed at the existing stop. (Refer to Exhibit IV-4 for a photograph of existing conditions at this location). In the long-term, a bus station would be created in the wide median of Richmond Avenue at Yukon Avenue. This station would reduce by approximately one-half the distance bus passengers would have to cross Richmond Avenue to access various bus routes serving the Staten Island Mall, while maintaining traffic flow.

The motivation for this corridor-unique concept is to reduce pedestrian crossing distances, enhance safety, and eliminate unnecessary weaving. In a change from the existing routing, and with the inclusion of a mid-street bus station, SBS buses can turn left from Platinum Avenue into the left-hand lane, access the mid-street station, and continue east in the left-hand lane on Richmond Avenue all the way past the split with Drumgoole Road, avoiding any weaving maneuvers except for incidental traffic conditions.

All other local and express bus routes accessing the bus station would also turn left from Platinum Avenue to enter the proposed station and would continue east on Richmond Avenue until Arthur Kill Road or the Eltingville Transit Center (with some making an intermediate stop at Forest Hill Road). As such, the concept of a mid-street bus station at Yukon Avenue would be equally convenient for all routes expected to stop there. The safety aspects of this station are evaluated in Chapter VI.

Hylan Boulevard Transportation Improvement Study

The following proposed station improvements require approval from the owner of the Staten Island Mall.

“Staten Island Mall South” Station at the existing S79 stop on Ring Road adjacent to Sears - Improvements would include: reconfigured platforms to provide a larger waiting area, pedestrian ramps, a pedestrian refuge island that would also channelize traffic entering and exiting Ring Road, and high visibility crosswalks. Approximately two parking spaces would be displaced to accommodate the larger island platform.

“Staten Island Mall North” Station at the intersection of Ring Road and the extension of Ring Road leading to Richmond Hill Road (northeast of the current bus stop adjacent to Macy’s) - Refer to Exhibit V-6. This new station would complement the previously described streamlining of the route to better serve the Marsh Avenue terminus. Marsh Avenue-bound buses would stop at a new station constructed by combining two of the small landscaped islands at the end of adjacent parking rows (approximately 30 feet east of the large landscaped buffer). A Brooklyn-bound station would be created in the grass area along Ring Road. Sidewalks, pedestrian ramps and a high visibility crosswalk would be installed to enable pedestrians to cross Ring Road and access either station. A new sidewalk would be provided where one does not exist between Ring Road and Richmond Hill Road. The existing wide travel lanes would be narrowed to construct this new sidewalk.

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Exhibit V-8 Median Bus Station along Richmond Avenue at Yukon Avenue

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5.6 Transit Signal Priority (TSP) Throughout the Project area “smart” traffic signals would be implemented to reduce the number of red lights that create delays for buses. TSP reduces delays to specially equipped buses by either extending the green time or shortening the red time at traffic signals. Extending the green phase enables these buses to proceed through an intersection at which it would have otherwise been required to stop, and shortening the red time reduces time spent stopped at an intersection. Minimum safe pedestrian crossing times would be maintained for pedestrians.

NYCDOT has implemented TSP on Victory Boulevard on Staten Island, and on Fordham Road in The Bronx. NYCDOT conducted extensive data collection before and after implementing TSP on both corridors. In both cases, it was found that TSP noticeably improved bus travel times, improved vehicular travel times in both corridors, and had negligible effects on traffic delays on intersecting streets.

5.7 Optimized Signal Timings Signal timings would be adjusted, where necessary, to improve the progression of traffic along the corridor. As described in Chapter VI (Effects of Recommended Plan) minor changes to signal timing or phasing would also be implemented at five intersections to mitigate the effect on traffic of the bus lane on Hylan Boulevard.

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5.8 Advance Signals The operation of an Advance Signal is described below and depicted in Exhibit V-9. The following graphics were developed and prepared by NYCDOT.

Typical Signalized Intersection

At a typical “primary” signalized intersection on Hylan Blvd (depicted below as the rectangle to the right of the three arrows) weaving occurs among buses, general traffic and vehicles attempting to enter the curb lane to make a right turn; this weaving limits throughput at intersections where the through phase is already limited by heavy cross traffic and left turn phases. All vehicles proceed when the signal turns green.

Exhibit V-9 (Continues on the next 3 pages) Operation of an Advance Signal

Phase 1 An Advance Signal would be installed upstream of the primary intersection to enable weaving to occur before the primary signal turns green, thereby improving the efficiency of all traffic movements. In the sequence on the following pages, the Advance Signal is represented by the red stop bar on the left. During this signal phase, traffic in the middle and left lanes would be required to stop at the Advance Signal. Buses (and potentially vehicles turning right) would enter a short segment of bus lane upstream of the Advance Signal. While general traffic is stopped, these buses and right turn vehicles would receive a green signal and proceed to the stop bar (represented by the red vertical line on the right) at the primary intersection. Buses that need to stop at a downstream station would remain in the curb lane. Buses that do not need to stop could move to the center lane, as shown in the middle image of the sequence on the following page. Regardless, all vehicles would stop at the primary intersection to allow cross street traffic to proceed.

Traffic entering from the cross street (or site driveway) leg at the Advance Signal intersection would be accommodated either during an exclusive phase or would be permitted to turn right on red.

Pedestrians would be prohibited from crossing Hylan Boulevard at the Advance Signal. Signs would be installed to direct pedestrians to cross at the primary intersection, where crosswalks and pedestrian signals are present. Pedestrian fencing might also be applied on the median in appropriate locations.

Hylan Boulevard Transportation Improvement Study

Phase 1

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Phase 2 During Phase 2, the Advance Signal turns green, enabling vehicles in the middle and left lanes to proceed to the primary intersection. During this phase, traffic at the primary intersection remains stopped. But as shown, one of the benefits of an Advance Signal is that it preserves the capacity of three lane approach to the primary intersection for all vehicles.

The next image depicts traffic approaching the primary intersection just prior to the signal turning green. The signals could be timed such that the bus does not have to stop.

Hylan Boulevard Transportation Improvement Study

Phase 3 During Phase 3, signals at the primary intersection and the Advance Signal turn green. All traffic proceeds through both intersections.

Advance Signals are proposed for further evaluation on northbound Hylan Boulevard upstream of the following signalized intersections:

• Jefferson Avenue • New Dorp Lane • Ebbitts Street These locations would include a short segment of bus lane to accommodate the queue jump for buses and right- turning vehicles.

Owing to the complexity of signal coordination, timing, and phasing that would be required between the primary intersection and the Advance Signal, VISSIM simulation analyses-rather than analyses of intersection level of service using the Highway Capacity Software-were conducted for each Advance Signal location. As described in Chapter VI, the VISSIM analyses indicate that Advance Signals would reduce delays to buses without adversely affecting general traffic.

Jefferson Avenue is located within the segment of Hylan Boulevard along which curb bus lanes are proposed. The evaluation of the effect of the bus lane on traffic operations preliminarily indicated that, even with modifying signal timing and restriping the eastbound and westbound approaches to the intersection, the AM peak hour northbound through traffic can only be partially mitigated. For this reason, it was concluded that the northbound bus lane could be terminated upstream of Jefferson Avenue and that an Advance Signal should be installed in the vicinity of the intersection at Hylan Boulevard at Hull Avenue. By coordinating the signal timing between both intersections it is expected that delays to buses and to general traffic would decrease. The VISSIM analysis showed that the continuous bus lane was equally good for general traffic and buses as the advance signal; based on this more in- depth analysis NYCDOT suggests a continuous bus lane here.

Hylan Boulevard Transportation Improvement Study

The intersection of Hylan Boulevard and New Dorp Lane is one of the most congested intersections along the corridor, and HCS analysis showed that a continuous bus lane at this intersection would have a severe negative effect on traffic flow. The New York City Department of Design and Construction is planning to widen this intersection and provide exclusive right-turn lanes in 2013-2014. However, even with these improvements, the Project team concluded that a northbound bus lane would not be feasible through this intersection. Instead, an Advance Signal is proposed. For the purpose of modeling the traffic impacts, it has been assumed that the Advance Signal would be located at one of the site driveways south of New Dorp Lane.

As described in Chapter IV, northbound Hylan Boulevard between Tysens Lane and Ebbitts Street is congested in the AM peak period. A bus lane is not viable here due to the adverse effect it would have on general traffic. Thus, an Advance Signal is recommended as a strategy to improve bus travel time in this portion of the corridor. For the purpose of modeling the effect on traffic flow, the Project team assumed that this Advance Signal would be located at one of the site driveways upstream of Ebbitts Street. The Advance signal could also be beneficial in tandem with a bus lay-by lane, which is proposed as a long-term strategy to improve bus operations and reduce traffic congestion along northbound Hylan Boulevard between Tysens Lane and Ebbitts Street.

It is assumed that the true viability and the precise location of each Advance Signal would be established based on the results of the VISSIM analysis and considering factors such as traffic conditions, bus operations, site conditions, access to and egress from adjacent parcels, visibility, etc. For the final design of and development of the signal phasing for the Advance Signals consideration should be given to several operational and safety issues, including the following:

• The location and length of the segment of bus lane upstream of the Advance Signal should be established to minimize the adverse effect on traffic flow and bus operations. • A policy decision is required regarding the time periods when the Advance Signals would be in effect, e.g., all the time or only when bus lanes are in effect. This should be communicated to drivers to avoid any confusion. • Signs and markings need to be installed to safely guide motorists in the regulations pertaining to permitted movements at the Advance Signal. • Traffic control devices might be required to protect motorists exiting the minor leg approach of the Advance Signal intersection from a false sense of security that when general use traffic is stopped in the middle and left lanes, buses and right turn vehicles would also stop. In fact, the opposite would be true. To avoid right angle collisions, drivers on the minor leg approach must be cautioned that traffic approaching the Advance Signal in the curb lane would receive a green indication and, thus, would not stop. • Visibility of traffic signal heads. The heads should be positioned or shielded to minimize the possibility that drivers in the middle and left lanes that receive a red indication do not see the green indication for traffic in the curb lane and mistakenly think that they, too, can proceed. • To avoid conflicts with pedestrians it is essential that pedestrians are warned that crossing Hylan Boulevard at the Advance Signal is prohibited. Pedestrians should be instructed to use the crosswalk at the adjacent signalized. • A public education program should be developed to instruct motorists and pedestrians in the use of and regulations associated with Advance Signals. • Before and after studies should be undertaken to monitor the performance, effectiveness, compliance and safety aspects of the Advance Signals.

Hylan Boulevard Transportation Improvement Study

5.9 Pedestrian Safety Sidewalks would be constructed where none exist to improve access to bus stops. In the wooded stretches of street frontage on Hylan Boulevard adjacent to Great Kills Park, the Project team identified segments that require sidewalk, limiting the paved areas to those that reach the nearest signalized crossings. The wooded area encroaches on NYCDOT’s presumed right-of-way (said to include the area parallel to and approximately 15 feet east of the curb). In some cases the grade is washed out to a point below the road level and in some cases mounded slightly above it. There are steep drop offs in some segments on the park side of the right of. The unstable side slope and gradient present design challenges in this area, which is further complicated by evidence of subsurface water. The following design responses are recommended:

• Remove undergrowth in the right of way, leaving only trees above 6” in caliper. The majority of the new trees are invasive species such as Ailanthus and Norway maples which are commonly removed in this area. • Remove marginal trees in the right of way, such as misshapen growth that has sprouted from stumps. • Prune all remaining existing trees in the right of way to make a clear path for pedestrians. • Investigate the cause of washouts, and re-grade the sidewalk area to provide positive drainage and prevent further undermining of the roadway pavement along the curb • Consider the use of porous concrete or other porous pavement to avoid adding more impervious area, which could exacerbate the drainage problem. • In areas where the sidewalk pitches into the park, consider the use of bioswales or constructed wetlands to accommodate stormwater. • Investigate whether a roadside barrier is required in areas with a steep lateral drop-off • Remove broken pieces of concrete and other debris along the right-of-way. • Study lighting levels along the area where bus stops and sidewalk pavement are installed. Street lighting should be installed for the full length of all new walkway area.

Where sufficient space exists and geometrically feasible, medians would be extended into crosswalks to provide pedestrian refuges.

Americans with Disabilities Act (ADA) of 1990-accessible pedestrian ramps would be provided where none exist at SBS stations.

Pedestrian refuges are proposed at the following locations (refer to Exhibit I-1 in Chapter II):

• Hylan Boulevard at Garretson Avenue • Hylan Boulevard at Seaview Avenue • Hylan Boulevard at Lincoln Avenue • Hylan Boulevard at Keegans Lane • Hylan Boulevard at Cleveland Avenue • Hylan Boulevard at Nelson Avenue • Hylan Boulevard at Wiman Avenue • Hylan Boulevard at Richmond Avenue • Richmond Avenue at Forest Hill Road • Richmond Avenue at Yukon Avenue (A detailed evaluation of safety issues for the median bus station at this intersection is presented in Chapter VI.

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Exhibit V-10 depicts a pedestrian refuge island of the type to be installed along the Project corridor.

Exhibit V-10 Pedestrian Refuge Island (Hylan Boulevard at Steuben Street)

5.10 Roadway Improvements Portions of Hylan Boulevard that are in need of repair would be resurfaced. Lane lines and crosswalks would be refurbished as required to improve visibility. The median along Hylan Boulevard south of Nelson Avenue would be widened and landscaped, where sufficient space exists, to provide greater separation between opposing lanes of traffic, to beautify the street and reduce surface runoff.

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5.11 Recommended Concept Plan The Team used the results of the various technical studies and input from Project stakeholders to integrate the individual treatments described in this chapter into a comprehensive plan for the corridor. Exhibit V-11 depicts the recommended concept plan.

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Exhibit V-11 Recommended Concept Plan for Hylan Boulevard Corridor

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VI Effects of the Recommended Plan

Table of Contents Page Traffic 87

Parking 90

Transit 91

Safety 92

Other Considerations 99

Chapter VI evaluates the potential effects of the recommended plan on traffic, parking, transit, safety, and on the natural and built environment.

Hylan Boulevard Transportation Improvement Study

VI Effects of the Recommended Plan

In the short-term improvement plan for the corridor, bus lanes along Hylan Boulevard would operate in the peak directions: northbound in the morning and southbound in the evening. Eventually, assuming there are no adverse effects on traffic and parking, NYCT and NYCDOT anticipate expanding the bus lane operations to the non-peak direction as well, i.e., the bus lanes would be in effect in both directions in the morning and evening peak periods. For this reason, the analysis of the effects of the recommended plan was conducted based on the assumption that, in the long-term, bus lanes would be in effect in both the peak and off-peak directions. The text that follows describes the results of this more comprehensive analysis.

6.1 Traffic An evaluation of the effects on traffic in the Project area was performed. The traffic study showed that the project would not cause a significant impact to traffic in the Project study area. The following is a synopsis of findings.

The analysis conducted of the proposed concept design for improvements to Hylan Boulevard and Richmond Avenue showed that all intersections would meet acceptable levels of service for general travel lanes in the Build condition, after additional signal and geometry changes at selected locations. Fourteen intersections were analyzed where roadway changes would potentially have effects on traffic flow. These intersections were selected from a longer list of intersections analyzed under existing conditions as locations with the greatest potential for major effects on traffic flow. These intersections include:

• Lily Pond Avenue at McClean Avenue. This intersection is not directly in the Project area but was analyzed, nonetheless, for the effect of traffic diverted to and from Hylan Boulevard due to the presence of the bus lane on Hylan Boulevard. • West Fingerboard Road at Steuben Street • Ten intersections along Hylan Boulevard at Steuben Street, Clove Will bus lanes increase Road, Old Town Road, Benton Avenue, Seaview Avenue, Seaver congestion on Hylan Avenue, Jefferson Avenue, Midland Avenue, Lincoln Avenue, and Boulevard? Richmond Avenue Currently, the curb lane along • Two intersections along Richmond Avenue at Amboy Road and Hylan Boulevard operates, in effect, Genesee Avenue. as a bus lane due to the peak period Additionally, some improvements affect multiple intersections as a system, curb regulations that are in place. so traditional intersection-based analysis was not sufficient to understand Drivers are accustomed to this the traffic effects. At these locations, the team performed a VISSIM traffic pattern. Bus lanes are being simulation analysis to understand the Project’s effect on traffic flow. These proposed only in the peak AM and locations include: PM peak periods when bus volumes are highest and only in areas of the • Richmond Avenue at Yukon Avenue (median bus station) corridor where delays exist. At • Hylan Boulevard at Jefferson Avenue (Advance Signal) locations with the heaviest traffic • Hylan Boulevard at New Dorp Lane (Advance Signal) volumes, traffic signal timing would • Hylan Boulevard at Ebbitts Street (Advance Signal) be optimized to maintain the progression of traffic.

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The plan for the Project that has been analyzed includes curbside bus lanes from Steuben Street to Lincoln Avenue in both directions during both the AM and PM peak periods, as well as changes to lane designations along Richmond Avenue. Key analysis assumptions that resulted from the analysis of alternatives (and are further discussed below) included a diversion of ten percent of through traffic (northbound in the AM and southbound in the PM peak hours) to Father Capodanno Boulevard, as well as changes to the signal progression and to the peak hour factors. This diversion is based on NYCDOT experience with projects on congested streets where alternative routes are available; all traffic is still accounted for along alternative routes, which is why Lily Pond Avenue at McClean Avenue was analyzed, even though it is not on the S79 route. At Lily Pond Avenue and McClean Avenue and at West Fingerboard Road and Steuben Street, traffic volume changes only occurred due to the diversion described above.

The intersection at Hylan Boulevard and Richmond Avenue was evaluated with signal timing changes. At the Richmond Avenue intersections at Amboy Road and Genesee Avenue, the roadway is proposed to be reconfigured through minor restriping, but no physical bus treatments are included.

The 14 intersections were analyzed using 2000 Highway Capacity Manual procedures-the standard methodology approved for use by NYCDOT. The plan was analyzed as the Build condition under impact criteria specified in the New York City Environmental Quality Review (CEQR) Technical Manual (2010). CEQR guidelines define a “significant traffic impact” at signalized intersections as an increase in average vehicle delay of five seconds when the No Build condition is worse than mid-LOS D (45 + seconds of delay), four seconds when the No Build condition is within LOS E, and three seconds when the No Build condition is within LOS F. These guidelines are very conservative and were established primarily for the City’s review of development projects, defining impacts associated with those actions and the need for mitigation measures. These rigorous “5-4-3” significant traffic impact criteria noted above have been applied to compare Build to Existing conditions. Given the short implementation timeframe, a No-Build analysis would not add any information and was not prepared.

Below is a description of the five locations for which additional traffic changes are proposed:

1. Lily Pond Avenue at McClean Avenue – This intersection is affected due to the additional volume diverted from Hylan Boulevard. To accommodate traffic this location it is necessary to restrict parking during peak periods on the eastbound and westbound approaches of McClean Avenue. Although the mitigation calls for parking restrictions of 200 to 250 feet, due to curb cuts, a bus stop, and fire hydrants, this would result in a total parking loss of only 10 spaces (6 on the westbound approach and 4 on the eastbound approach). In addition, the AM signal timing would need to be changed to a 120 second cycle.

2. Hylan Boulevard at Seaver Avenue – The AM peak hour northbound through movement on Hylan Boulevard was affected, but can be accommodated through a shift in the signal timing plan that removes the dedicated left turn phase and reallocates that time to the northbound/southbound phases; this movement is currently only 1-2 vehicles per cycle.

3. Hylan Boulevard at Jefferson Avenue – The AM peak hour northbound through and PM peak hour southbound through movements on Hylan Boulevard were affected. Through restriping the east and westbound approaches, restricting parking on the westbound approach (estimated 8 parking spaces lost) and modifying signal timing, the AM peak hour issue can be partially resolved, and the PM peak hour impact can be fully resolved.

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As a result of this only partially mitigated issue, an Advance Signal is proposed for further analysis. Unlike a curb bus lane, which reduces the general traffic capacity of the Hylan Boulevard approach to the intersection approach from three to two lanes, an Advance Signal retains three general purpose lanes. Synchronizing the timing at both the upstream (Advance) signal and the signal at Jefferson Avenue, would enable buses to bypass congestion, enable general traffic to use all three lanes on the approach to Jefferson Avenue. This configuration provides bus priority without reducing the effective capacity of the intersection. The VISSIM analysis that was conducted for of this location shows improvement for buses and a slight improvement in general traffic operations.

4. Hylan Boulevard at Midland Avenue – The PM peak hour westbound left turn movement was affected and can be improved through restriping the westbound approach and modifying the signal timing plan.

5. Richmond Avenue at Amboy Road – The AM peak hour southbound left turn movement was affected and can be resolved by modifying the signal timing plan.

Findings: • Five of the intersections analyzed under Build conditions required additional changes under the CEQR standards described above. All were able to be fully accommodated. With approved changes, all intersections would continue to operate at acceptable levels of service. The approved changes measures would be included as part of the Project. • Along Richmond Avenue, the addition of bus lanes to some segments, as well as the restriping of the roadway at other locations and the addition of left turn bays, primarily makes use of existing capacity on the road that is simply reallocated to make the driving experience more logical and understandable. At the locations where traffic was analyzed, these changes would improve the operation of general traffic. • At Richmond Avenue at Yukon Avenue, a bus station is proposed in the median of Richmond Avenue to limit the distance and number of travel lanes that pedestrians must cross to access the southbound bus stop. The operation of buses and general traffic at this location was analyzed using the VISSIM simulation tool. The results of this analysis indicate that buses and general traffic would operate acceptably under this Build condition. The weaving of vehicles and buses would be expected to occur with minimal conflicts. • The VISSIM analysis of the Advance Signal locations indicates improvements for buses and better operations for general traffic compared to conditions with a bus lane at these locations.

In summary, the preferred alternative, as currently proposed, will allow for all general traffic to operate without significant traffic effects as compared to existing conditions, while providing improved conditions for buses and pedestrians. The curbside bus and right turn lanes on Hylan Boulevard (northbound in the AM peak period and southbound in the PM peak) would operate better than existing conditions at every analysis location. In all locations, this means operating at LOS A, B, or C, which would allow bus customers to move more quickly along Hylan Boulevard than they do today. The general through traffic lanes would operate similar to today, or slightly better, at nearly all locations, as well. At Midland Avenue and Lincoln Avenue in the southbound PM peak, “after” conditions would worsen slightly over existing conditions, however, traffic operations are still within acceptable

Hylan Boulevard Transportation Improvement Study

levels of service as defined by New York City and the CEQR Technical Manual. Therefore, the Project would not cause significant traffic effects.

Consistent with NYCDOT standard project implementation practices, NYCDOT would closely monitor traffic conditions after implementing the proposed SBS to determine if adjustments would be needed.

6.2 Parking An assessment (Draft Parking Utilization Study, December 14, 2011) was conducted of the existing on-street parking supply and demand of curb lanes along block faces within the two miles of Hylan Boulevard along which peak period curb lane exclusive bus and right turn lanes are proposed for implementation. As shown in Appendix C, all block faces with substantial amounts of parking in existing conditions were analyzed. Additionally, occupancy was analyzed at representative off-street parking lots along Hylan Boulevard. The goal was to determine the impact on corridor curb usage resulting from the implementation of this treatment. This analysis shows that there will be no significant impact to parking caused by the Project.

Analysis of the utilization data collected during the survey found that the current demand for on-street parking along Hylan Boulevard block faces was easily accommodated by the on-street parking supply during all hours of the study period. The maximum recorded utilization of the on-street parking supply accommodated by the northbound curb lane of Hylan Boulevard was 50% (41 of 82 legal spaces analyzed) between 1 PM and 2 PM, and utilization of the supply accommodated by the southbound curb lane of Hylan Boulevard was only 25% (30 of 122 legal spaces analyzed) between 12 PM and 1 PM. Legal utilization rates of the corridor curb lanes within the analyzed typical locations were also observed to typically be significantly lower during the AM peak (6 AM – 9 AM) and PM peak (4 PM – 7 PM) periods than during the midday period.

The impact on the on-street parking supply and demand of the proposed implementation of exclusive bus and right turn lanes operating in both the northbound and southbound curb lanes of the northern two miles of the Hylan Boulevard corridor between 6 AM and 9 AM and 3 PM and 7 PM is shown in Table VI-1.

Table VI-1 Changes to On-Street Parking Supply and Demand at Block Faces Studied

AM Peak Period “Extended” PM Regulations PM Peak Periods (6 AM – 9 AM) (3 PM – 4 PM) (4 PM – 7 PM)

Spaces Displaced Spaces Displaced Spaces Displaced Eliminated Demand* Eliminated Demand* Eliminated Demand* Northbound Curb Lane 0 0 82 40 82 36

Southbound Curb Lane 122 14 122 14 0 0

TOTAL 122 14 204 54 82 36

* “Displaced Demand” is the average number of vehicles observed utilizing on-street parking supply in the periods shown.

Hylan Boulevard Transportation Improvement Study

The CEQR Technical Manual defines a significant parking shortfall as when the project generates more parking than it provides and on-street and off-street parking spaces are not available within a convenient walking distance (about .25 mile). An off-street parking facility is “at capacity” when the parking utilization for that facility “is at or exceeds 98% of its capacity” during the peak hour. If current on-street parking demand is greater than or equal to 98% of proposed total parking capacity, then mitigation strategies to accommodate the excess demand would need to be considered. Since the portion of the corridor along which bus lanes are proposed contains both on-street parking spaces and off-street parking facilities, the total supply and utilization of parking spaces on all the blocks was analyzed if it was an off-street facility.

Displaced demand on-street parking in the AM peak period can be accommodated by excess capacity of parking on adjacent cross streets and/or in off-street parking lots. The total on-street parking demand displaced from both corridor curb lanes could be accommodated by the total excess capacity observed on the first 100 feet of adjacent cross streets on both sides of the corridor, with the assumption that motorists traveling to businesses on the east side of Hylan Boulevard may have to park on side streets adjacent to the west side of the corridor and then cross the street. Additionally, the off-street parking study found that in six off-street parking lots adjacent to this segment of Hylan Boulevard, utilization reached a maximum of only 40% (172 of 435 spaces occupied), which occurred in the midday period. Utilization was lower in the AM and PM peaks.

Findings: • Implementation of bus priority treatments along the block faces assessed in this study in the northern two mile segment of the Hylan Boulevard corridor would result in the restriction of 122 on-street parking spaces from the southbound curb lane during the AM peak period and between 3 PM and 4 PM, and 82 spaces restricted along the northbound curb lane between 3 PM and 4 PM and during the PM peak period. Actual utilization of these spaces was observed to be relatively low, particularly along the southbound curb lane, during these periods. Excess capacity available along the side streets adjacent to the corridor and in numerous off-street parking lots that line this segment would be sufficient to accommodate the displaced demand for on-street parking. • Therefore, this study found that the proposed implementation of bus lanes would not have a significant negative impact on parking needs along Hylan Boulevard.

6.3 Transit The Project would provide faster and more reliable bus service and improve access to bus stops throughout the Project area. The one-way end-to-end bus travel time on the S79 would improve by approximately 15-20 percent (roughly 15-20 minutes) relative to the existing travel time due to a combination of:

• More widely-spaced bus stations, which enables buses to achieve a higher speed over a greater distance, and to spend less time accelerating from and decelerating to bus stops • Bus lanes, which would enable buses to slow down less often to avoid conflicts with other vehicles • More direct routing to/from the Eltingville Transit Center and the Staten Island Mall, which would reduce both en-route travel time and delay at signalized intersections • More efficient signal timing, which would reduce delay at signalized intersections

Hylan Boulevard Transportation Improvement Study

• Transit Signal Priority and Advance Signals, which would enable buses to spend less time at signalized intersections How would the recommended • Less congestion at bus stations, which would enable buses to plan improve safety? enter and exit more quickly • No mid-route operator reliefs Safety for pedestrians would improve with the addition of sidewalks, high visibility cross Following implementation of Select Bus Service, NYCT will monitor walks, pedestrian refuge islands ridership patterns on local S78 and S59 buses and SBS buses and provide and pedestrian ramps. At the an appropriate level of service to accommodate the demand. intersection of Richmond Avenue at Yukon a new bus station would 6.4 Safety be constructed in the median. This would reduce by one-half the The proposed conceptual design for the Project corridor contains distance bus riders would need to numerous treatments that will improve transportation for both transit cross to reach their bus stop. and general traffic. Treatments proposed include, but are not limited to: Driver safety would improve where dedicated curb lane exclusive bus and right turn lanes along the northern space exists to widen the median two miles of the Hylan Boulevard corridor, consolidation of some bus and with refurbished lane stops to streamline service, and installation of numerous pedestrian markings. refuge islands to improve pedestrian safety. Most of the treatments have been successfully implemented in numerous locations in New York City and have become standard elements for NYCDOT, NYCT, and New York City motorists.

The proposed treatments for the median bus station at Richmond Avenue and Yukon Avenue, however, cannot be considered in the same category as above. Its effects on pedestrian and vehicular safety warrant an assessment. The following sections address safety issues associated with the median bus station. Will businesses lose parking spaces in locations where buys Note: Some of the exhibits that appear in previous chapters are lanes are proposed? repeated here to highlight important issues. The phased implementation plan includes bus lanes in both the peak Existing Conditions and off-peak directions. In the Richmond Avenue is approximately 132 feet wide at its intersection with non-peak direction (southbound in Yukon Avenue with four lanes in each direction separated by a large the AM peak and northbound in the concrete median to the south of the intersection. While adjacent to the PM) a small number of on-street Staten Island Mall (in fact, at this location all land uses that generate spaces will be displaced. However, pedestrian and vehicular activity are located on the east side of Richmond the demand for on-street parking Avenue, and with numerous bus stops on both the northbound and can be easily accommodated on southbound sides of Richmond Avenue, there are only minimal pedestrian adjacent cross streets and/or in treatments The concrete median to the south of the intersection does not adjacent off-street parking lots. extend into the crosswalk – requiring pedestrians to cross the entire width of the corridor – and pedestrian ramps have not been installed at either end of the crosswalk. Additionally, several other pedestrian ramps are missing at other pedestrian crossings at this intersection.

Hylan Boulevard Transportation Improvement Study

The southbound bus stop, located to the south of the intersection, currently serves two local (S55 and S56) and two express (X17 and X31) bus routes. South of this stop these buses must move from the curb lane to the middle lane to proceed beyond the turn off at Drumgoole Road West (which leads to the Outerbridge Crossing) and access their intended destination, such as along Arthur Kill Road. However, only a short segment of sidewalk has been installed extending from the crosswalk south to the head of the bus stop. This stop is in very poor condition and lacks passenger amenities such as a bus shelter or seating. The lack of pedestrian amenities and long crossing distances likely contribute to the low ridership generated from this bus stop, regardless of its proximity to the Staten Island Mall.

Exhibit VI-1 depicts the current roadway configuration of Richmond Avenue to the south of Yukon Avenue.

Exhibit VI-2 shows the current condition of the southbound bus stop along the south side of Richmond Avenue.

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Exhibit VI- 1 Richmond Avenue at Yukon Avenue (Looking South)

Exhibit VI-2 Existing Sidewalk Conditions at Bus Stop at Richmond Avenue and Yukon Avenue

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Currently, S79 service operates in a circuitous routing with southbound buses traveling south on Richmond Avenue, turning left onto Yukon Avenue, then turning right and traveling on Forest Hill Avenue until meeting up again with southbound Richmond Avenue. The proposed routing of the SBS service would eliminate this circuitous routing with S79 buses traveling entirely on southbound Richmond Avenue through this segment. The southbound S79 bus stops eliminated would be replaced with a single bus stop at Richmond Avenue and Yukon Avenue at the same location as the existing S55, S59, X17, and X31 stop. According to boarding and alighting data, a total of approximately 270 S79 passengers board and alight at the existing southbound Yukon Avenue/Richmond Avenue and Yukon Avenue/Kmart Driveway bus stops that would be consolidated. In considering that this change would result in this bus station becoming the primary SBS stop for the southern portion of the Staten Island mall, the importance mitigating the safety concerns with the existing stop condition, location, and lack of pedestrian amenities becomes apparent. Proposed Concept Design To address the current shortfalls of the existing roadway and bus stop configuration and to improve bus operations and pedestrian and vehicular safety, a median island bus station is proposed to accommodate all southbound bus routes that are planned to serve the Richmond Avenue and Yukon Avenue bus stop. The proposed center island bus station would not only be convenient for passengers going to and coming from the adjacent shopping center by requiring a shorter crossing distance, but would also be a more direct route for buses turning from Platinum Avenue to access bus stops along southbound Richmond Avenue. The motivation for this corridor-unique concept is to reduce pedestrian crossing distances, enhance safety, and eliminate unnecessary weaving. With the inclusion of a center island bus station, SBS buses would turn left from Platinum Avenue into the left-hand lane, access the center island bus station, and continue south in the left-hand lane on Richmond Avenue past the split with Drumgoole Road, avoiding any weaving maneuvers, except for incidental traffic conditions, and typical levels of traffic congestion at the point where the roads split.

The conceptual design proposed for the Yukon Avenue center island bus station is shown in Exhibit VI-3.

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Exhibit VI-3 Proposed Conceptual Design for Median Bus Station at Yukon Avenue

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Under the proposed routings, all southbound buses would turn left onto Richmond Avenue from westbound Platinum Avenue, one block north of Yukon Avenue. An existing local bus stop, serviced by the S55 and S56 routes, located along the curb lane just south of Platinum Avenue, would be eliminated to allow all buses to turn from Platinum Avenue into the interior-most lane of Richmond Avenue and continue south. This lane would be painted in the typical “bus lane red” color, designated for the exclusive use by buses, and would be located to the right of the double left turn lanes for vehicles intending to turn left at Yukon Avenue. As southbound traffic approaches the intersection with Yukon Avenue, left turning vehicles would merge into the dual left turn lanes (shown at the top left of Exhibit VI-3). Following an exclusive left turn phase, buses would proceed into the center island bus station in the same green phase as general traffic and access the bus stops along an approximately 140-foot passenger waiting island. The SBS S79 service would stop at the head of the island while the local (S55 and S56) and express (X17 and X31) buses would use the bus stop towards the rear. The width of the busway is proposed to be over 25 feet wide which would allow a bus at the rear stop to bypass an SBS bus at the front stop. However, if buses are queued within the busway end-to-end, there would be insufficient width for buses to maneuver around each other and the bus station would operate “first-in-first-out.”All traffic movements at the downstream entrance to the Mall - including buses exiting the median station, adjacent dual left turn lanes, and through traffic on northbound and southbound Richmond Avenue would be signal controlled. Subject to the results of a detailed traffic signalization analysis, which would be required prior to implementation, the southbound buses and left turning traffic would proceed on separate signal phases. Upon pulling out from the bus stops, buses would merge back into the interior bus lane on southbound Richmond Avenue via a stop controlled merge. This configuration would allow all southbound buses to travel in the interior lanes of Richmond Avenue to the intersection of Arthur Kill Road, bypassing the typical congestion at the split with Drumgoole Road West, likely resulting in some running time savings. Safety Improvements of Concept Design over Existing Conditions The opportunity to consider a center island station at this location is provided by unusually wide lanes and median, both of which can yield space for a station to be considered within the existing right–of-way. While the proposal offers ways to improve existing roadway use, pedestrian environment, and mitigate existing safety concerns at this location, it is important to assess whether new safety concerns would be created as a result of implementation and ways to mitigate these impacts.

The proposed concept design improves on safety concerns of the existing conditions in a number of ways. Walking distance (i.e. required crossing distance of active roadway) between the east side of Richmond Avenue (adjacent to the Staten Island Mall) and the bus stop would be reduced from over 132 feet to approximately 85 feet (measured from the edge of the curb on the southeast corner of Richmond Avenue and Yukon Avenue to the eastern curb of the pedestrian island.) Pedestrian safety and amenities would also be improved by the installation of pedestrian ramps at pedestrian access points, the installation of new, level, and well maintained sidewalk, and the installation of a new CEMUSA bus shelter on the center island bus station. Protection of pedestrians on the center island bus station would be improved over the existing condition through the installation of jersey barriers (shown in green in Exhibit VI-3) located along the west wide of the center island bus station and on the east side of the busway and extending to the intersection with the shopping center entrance. A hatched area along the west side of the center island bus station would also provide a buffer from southbound general traffic on Richmond Avenue. Vehicular safety would be marginally improved by eliminating the bus weaving maneuvers required to pull into and out of the bus stops along the southbound curb lane by relocating these bus stops to the dedicated bus way. The location and type of treatments described above, together with required site/civil work, traffic control devices and signal timing/phasing would be determined during final design.

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One safety concern with the proposed design occurs at the potential conflict point between buses exiting the station and merging back onto southbound Richmond Avenue and vehicles accessing the dual left turn bay at the approach to the intersection with the shopping mall entrance. If left uncontrolled, there is potential for collisions to occur at this point if motorists merging left do not notice buses exiting the station and vice versa. To mitigate this, as noted above, the exit from the station, and the adjacent left-turn lanes would be signal controlled. Each approach would operate on its own phase to mitigate the possibility of conflicts.

Another potential concern is that southbound buses entering the bus station could cross into the path of left-turning traffic, creating a conflict. To mitigate this concern, the pedestrian refuge island is angled to channelize bus traffic and the left-turn and bus lanes have also been angled to facilitate the movements further. The installation of peg-a- tracks to guide left turning vehicles through this intersection would also help to mitigate this concern. An AutoTURN analysis of the various turning movements at the entrance to the center island bus station reinforces this conclusion and shows that the travel paths of buses and left turning vehicles would not overlap. The analysis of the left turning vehicles was modeled using mid-size trucks and a 45-foot long express bus to replicate a “worst- case” scenario at this location. Exhibit VI-4 shows the results of the AutoTURN simulation and analysis of these vehicles (mid-size trucks shown in gray and 45-foot long express bus shown in blue).

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Exhibit VI-4 AutoTURN Analysis of Turning Maneuvers at Richmond Avenue and Yukon Avenue

Another potential safety concern with vehicular maneuvers at the entrance to the busway is the possibility of a motorist turning left onto southbound Richmond Avenue from Yukon Avenue mistakenly turning into the busway. This could result in a hazard for crossing pedestrians who would not expect turning vehicles at this point and could cause driver confusion which could lead to a vehicle-on-vehicle or vehicle-on-pedestrian collision. To mitigate this concern it is recommended that a Qwick Kurb extension of the median be installed on Richmond Avenue (shown as black dots bounded within a rectangle in Figure 4) outfitted with reflective, flexible delineators to serve as a deterrent to vehicles from Yukon Avenue accidentally turning into the busway. This could be further reinforced with signage on westbound Yukon Avenue, on the signal arm, and/or on the center island itself. An AutoTURN analysis was used to determine the length of the Qwick Kurb extension that would not interfere with the left turn movement from Yukon Avenue or the left turn movement from southbound Richmond Avenue.

As the conceptual design for the center island bus station represents a new pedestrian environment for New York City (although a median bus station has been built along northbound White Plains Road at the intersection with Gun Hill Road), pedestrian safety becomes extremely important. The following information regarding safety

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considerations at median at-grade busways comes from the 1998 At-Grade Busway Planning Guide1 published by Florida International University and represents some best practices in designing pedestrian facilities serving dedicated busway stations:

• Pedestrian pathways should be well defined. • Stations should be designed to prevent random pedestrian crossings of the busway lanes. • Sufficient passenger waiting areas should be provided to handle the maximum expected number of passengers at the peak periods. • To increase visibility of buses in the median, bus drivers might be instructed to use their headlights while in the median lane.

The southern crosswalk across Richmond Avenue is the only intended pedestrian access way to the center island bus station and represents a clearly defined and delineated path. The proposed installation of jersey barriers along the east and west sides of the bus station should discourage pedestrians from crossing mid-block to access the station. This can be further discouraged through the installation of a pedestrian fence along the west side of the pedestrian island, which could also serve as further protection for pedestrians on the island from the flow of southbound traffic.

A potential concern is that pedestrians crossing from the southeast corner of Richmond Avenue and Yukon Avenue to the center island bus station (or vice versa) may not notice southbound buses entering the busway to the east of the pedestrian island. This concern is somewhat mitigated by the fact that pedestrians should only be crossing the entrance to the busway during the red phase of southbound Richmond Avenue

6.5 Other Considerations Under the guidance of the National Environmental Policy Act (NEPA) and the Federal Transit Administration (FTA), the New York City Department of Transportation as the applicant prepared an analysis for a Categorical Exclusion under 23 Code of Federal Regulations (CFR) 771.117(d) for the Hylan Boulevard Select Bus Service (SBS) project (“the Project”). The following sections summarize the key findings of this assessment. Subsequent to this analysis, FTA suggested that the project may qualify for a Categorical Exclusion under 23 Code of Federal Regulations (CFR) 771.117(c).

Metropolitan Planning and Air Quality Conformity Hylan Boulevard Select Bus Service is included in the current conforming Long Range Transportation Plan (2010- 2035 New York Metropolitan Transportation Council (NYMTC) Regional Transportation Plan) and the current conforming Transportation Improvement Program (TIP) (NYMTC, TIP for Federal Fiscal Years 2008-2012). This is a non-exempt project for air quality conformity. The Project is not expected to cause or contribute to violations of the National Ambient Air Quality Standards (NAAQS). The Project conforms to the New York State Implementation Plan. CO Hot Spots The Project would not result in CO-related significant environmental impacts, and would maintain compliance with NAAQS for Carbon Monoxide. Therefore, no air quality impacts are anticipated.

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Historic Resources The Project would not result in any significant adverse effect on historic resources or disturb any archaeological resources as it will involve only areas within the transportation right-of-way that are already in transportation use. Noise The Project would not result in a significant increase in bus volume, or result in significant changes in roadway geometry with respect to noise-related impacts. Vibration The Project would not involve any speed bumps or other design features that result in unevenness in the road surface or cause additional vibration. Portions of Hylan Boulevard that are in need of repair would be resurfaced, and bus pads would be installed at selected SBS stations. As a result, the riding surface would be smoother, and vibrations reduced. Acquisitions and Relocations Required There will be no property acquisition or relocations as a result of this project. All work would take place within the existing right of way. Hazardous Materials No significant adverse impacts associated with the operational phase of the Project would occur since any subsurface hazardous materials that could be present would be isolated from the public by paved surfaces. Normal operation of the SBS stations is not projected to generate any hazardous materials. Community Disruption and Environmental Justice Improvements would not disrupt or cause disunity in the existing project area. The Project would not result in visual impacts, community disruption, or disproportionate impacts to minority and low income populations. Use of Public Parkland and Recreation Areas The Project would not require the use of any publically- owned land such as public parks, recreational areas, wildlife or waterfowl refuges or historic sites of national, state, or local significance. However the improvements would improve access to Great Kills Park. Wetlands The Project is located entirely within the street bed of an urbanized area and would not affect any Federal or State wetland or State-regulated adjacent area. Floodplains The Project was evaluated to determine whether it would affect or be affected by floodplains in accordance with Executive Order 11999. The project would involve changes within an existing street bed, with minimal changes in impervious surface area or that would alter floodplain conditions. Water Quality, Navigable Waterways, and Coastal Zones The Project would not result in additional off-site storm drainage requirements since project elements will not increase the impervious surface area within the alignment.

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Ecologically Sensitive Areas and Endangered Species The Project would occur within the physical limits of an existing roadway and right of way, with minimal changes to physical roadway conditions or traffic operations. Therefore, no impacts on ecologically sensitive areas or endangered species are projected. Safety and Security The Project is not projected to result in any adverse effect on safety and security within the project corridor. All SBS stations would comply with the Americans with Disabilities Act of 1990, which would improve safety for all transit patrons. New lane lines, pavement markings and pedestrian crosswalks would be installed. These treatments would increase safety for drivers. Pedestrian safety improvements in the Project area include the addition of median islands where pedestrians can wait or find refuge while crossing Hylan Boulevard, the addition of pedestrian ramps, and construction of sidewalks (where missing) near the proposed SBS stations. Impacts Caused by Construction No significant adverse construction impacts would occur to open space and natural resources, street trees, utilities infrastructure, transit and pedestrians, local businesses, traffic, noise, vibration, air quality or hazardous materials. Impacts resulting from construction are expected to be minor and temporary. Requirements for appropriately quiet construction equipment, maintenance of traffic and handling of potentially contaminated soil would be included in the construction specifications and contract documents.

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VII Stakeholder Participation

Table of Contents Page Community Advisory 103 Committee Meetings

Public Meetings 104

Chapter VII describes the public and agency participation program that was implemented for this project. The process by which feedback from stakeholders was considered in developing the plan is described.

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Hylan Boulevard Transportation Improvement Study VII Stakeholder Participation

NYCDOT and MTA NYC Transit have undertaken an extensive outreach program to engage stakeholders within the Project area. As described in Chapter I the Outreach process commenced in 2006 with briefings to elected officials. In this current phase of the Project, a formal Outreach program, consisting of meetings with the public and with a Community Advisory Committee (CAC), was employed.

7.1 Community Advisory Committee Meetings The CAC served in an advisory capacity, providing ongoing input to the Project Team. The CAC assisted in the development of improvements that address the needs of the Project area. It also served as a liaison between What feedback have the Project team and the various constituents by disseminating stakeholders provided on the information and receiving input to provide to the Project Team. CAC recommended plan? members were encouraged to help to recruit attendees at public meetings. The CAC consists of approximately 50 members of community groups and The public, elected and appointed civic associations and elected and appointed officials. Organizations officials are generally supportive of requested to join the CAC are listed in Appendix D. Two CAC meetings the plan. These stakeholders have have been conducted to date. emphasize the need to: improve safety for drivers and pedestrians; increase bus speeds; maintain on- • Tuesday, October 25, 2010 street parking and delivery access The purpose of this CAC meeting was to introduce the purpose and for businesses; provide more green need of the project, as well as the project benefits. time for pedestrians to cross Hylan

Boulevard; provide sidewalks • Thursday, June 2, 2011 where none exist; increase bus The purpose of this CAC meeting was to explain the guidelines that service; not increase make traffic the Project Team used to develop alternative design concepts and congestion worse; improve to discuss the service plan for SBS and local buses in the Project pavement condition on Hylan area. Boulevard. The recommended plan To enable all interested stakeholders to hear the perspectives of their addresses these issues. elected officials and for elected officials to understand their constituents’ concerns, NYCDOT and MTA NYC Transit decided to combine future CAC meetings with the public meetings.

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7.2 Public Meetings The public has been actively encouraged to attend and participate in the Project. Various forms of print and electronic media, including notices posted in S79 buses, press releases and announcements on the agencies’ websites, etc. were used to publicize these meetings.

Project staff used a variety of techniques at these meetings, including presentations; break out groups and one-on- one discussions (Exhibit VII-1) to solicit comments and ideas. Project staff commenced each meeting with a presentation to introduce various discussion topics. Attendees were encouraged to comment on display boards summarizing the material contained in the presentation, which were displayed around the room. Project staff used a laptop computer to demonstrate an animation of the Advance Signal, which, as described previously, will be used to improve traffic flow. Representatives from the Project team engaged the attendees and recorded on clipboards comments and questions rose. Fact sheets and other handouts were distributed, and additional copies were provided for attendees to distribute to their friends and constituents.

Exhibit VII-1 Hylan Boulevard Public Meeting

The Project team prepared summaries of each of the CAC and public meetings. The presentations and graphics that were utilized at each meeting were posted on NYCDOT’s and NYC Transit’s websites. Public meetings were conducted on the following dates:

• Thursday, December 2, 2010 The purpose of this meeting was to provide the public and CAC with an opportunity to learn about the goals and objectives of the Project and to talk with Project team members about concerns and issues regarding transit service, traffic conditions, pedestrian safety, and curb use on Hylan Boulevard.

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• Wednesday, June 8, 2011 The purpose of this meeting was to solicit input on priority bus treatments and traffic and safety enhancements being considered to improve bus service, traffic flow, and safety in the Project area.

• Thursday, September 15, 2011 The purpose of this meeting was to report on the results of various technical analyses and to request input on a draft plan of specific bus treatments and traffic and safety enhancements that are recommended to improve bus service, traffic flow, and safety.

While some stakeholders had site-specific comments, in general, comments at each meeting focused on the following Will bus riders on Express buses themes: benefit by this Project?

• Reduce congestion Yes. Express buses would be permitted in the • Improve safety for drivers and pedestrians bus lanes, meaning that all bus passengers • Enforce traffic regulations more aggressively would experience a faster and more reliable • Increase bus speeds trip than currently exists. • Maintain on-street parking and delivery access for businesses • Provide more green time for pedestrians to cross Hylan Boulevard • Provide sidewalks where none exist • Increase local and express bus service • Select Bus Service should not increase crowding on local routes • Changes should not make traffic congestion worse • Improve pavement condition on Hylan Blvd

• Wednesday, March 14, 2012 At this meeting the Project team described how the results of this study and the outreach process were used to develop the recommended concept plan. The team described the plan in detail, and outlined the key milestones for implementing elements of the project in 2012 and 2013. Questions from attendees focused on issues such as stop spacing, streamlined routing, service frequency, and the fare payment system.

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VIII Cost Estimate

This chapter contains an order of magnitude estimate of the cost to construct the recommended plan. This estimate is based on quantity take-offs and unit prices for major construction items, e.g., pavement rehabilitation/reconstruction, sidewalk, median, signs and markings, etc.

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The key assumptions and methodology employed to prepare the construction cost estimate for the final Concept Design drawings for the Hylan Boulevard Transportation Improvement Study are presented in this chapter. The estimate was developed based on the final conceptual plans (May 2012). Items were measured and estimated on a per item and per sheet basis to accommodate review and future revisions by others, if required. New York City Department of Transportation (NYCDOT) item numbers have been assigned where applicable and known. Where sufficient details are not available, lump sum items have been created (i.e. New Traffic Signal) and an overall cost has been assigned. The total includes only the items listed and the contingency is believed to be significant enough to cover items that would normally be included in a NYCDOT estimate but for which sufficient information is not available at this time to quantify. Assumptions include:

1. Plans are conceptual only and the minimum contingency is 33% (1/3 the total cost). 2. All quantities are approximate. 3. Some sidewalk quantities are assumed based on anticipated need. 4. Short term designs are used in the base cost estimate. A cost estimate for the long-term recommendations, such as bus lay-by lane, Yukon Avenue median station, etc. is also provided. 5. When dimensions are variable, an average dimension was used to calculate quantities. 6. When it is not clear whether all or part of a median is replaced, or where it appears the full median should be replaced, full median replacement was assumed. 7. Seven feet of striping per lineal foot of street was assumed; intended to include all striping, word messages, arrows, etc. 8. The 2010 DOT Bid Scope Price list was used as the basis for the unit prices, and adjusted using the Turner Construction Cost Index. 9. All construction methods and materials are assumed to be NYC DOT standard materials in conformance with the Standard Specifications. 10. No utility work of any kind is included nor have any utility conflicts, including NYC DEP water or sewer conflicts, been considered. 11. No cost for Maintenance and Protection of Traffic (MPT) has been included. MPT is a function of schedule and phasing/staging. No MPT plans were included. For budgeting purposes it is assumed that this cost is included in the contingency. 12. Construction Management and Inspection have been excluded. Costs are dependent on whether NYCDOT or a Consultant is providing the services. For budgeting purposes it is assumed that this cost is included in the contingency amount.

The total estimated cost, including a 33% percent contingency, is: $6.4 Million for the Short-term recommendations and $7.3 Million for the long-term recommendations (Bus lay-by lane, Eltingville Transit Center, Yukon Median station). The estimate is summarized in the table on the following page.

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Table VIII-1 Order of Magnitude Construction Cost Estimate Hylan Boulevard Transportation Improvement Study

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IX Conclusion

Chapter IX summarizes the benefits of the recommended plan.

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Hylan Boulevard Transportation Improvement Study IX Conclusion

The recommended Plan is multimodal, combining improvements for bus customers, pedestrians and drivers. Elements scheduled for implementation in 2012 include:

• Streamlined bus service • Fewer bus stops • Optimized signal timing • Transit Signal Priority • Bus lanes • Left turn lane bays • Improved bus stations • Upgraded medians • Sidewalk improvements • Pedestrian Refuge Islands • Advance Signals

Measures that require more extensive construction or coordination with the Staten Island Mall are expected to be implemented in 2013.

With this plan, bus customers would experience faster and more reliable service through the combination of priority bus treatments, TSP, a streamlined route path and less congested bus stops. Drivers gain traffic flow and safety benefits from improved traffic signal timing, the addition of left turn lanes, refurbished roads and pavement markings.

Pedestrian safety improvements along the corridor include the addition of median islands where pedestrians can wait or find refuge while crossing Hylan Boulevard, as well as the addition of curb cuts and sidewalks near the proposed SBS stations. The Yukon Avenue median bus station concept is intended to eliminate the need to cross four lanes of traffic, thus increasing pedestrian safety.

In the future, it is anticipated that peak period bus lanes may operate on Hylan Boulevard in both peak and off-peak directions. The traffic analysis has shown that there would be no significant traffic impacts for general traffic with the implementation of the proposed mitigation measures. Although at two locations traffic may experience increased delay over today, traffic would still operate at acceptable levels of service.

A limited number of on-street parking spaces in the area in which bus lanes are proposed along Hylan Boulevard would be displaced but only during the AM and PM peak periods when the bus lanes are in effect. However there are a sufficient number of on-street parking spaces on adjacent cross-streets and in adjacent off-street parking lots to accommodate these displaced spaces.

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In summary, the concept plan for the Hylan Boulevard Project area would:

• Provide significantly faster travel times along the corridor • Provide faster and more reliable bus service and improve access to bus stops. • Enhance vehicular and pedestrian safety • Be implemented within the existing street bed and public right-of-way • Not require any roadway widening or acquisition of private property • Not adversely affect the built and natural environment • Not have adverse construction impacts.

The recommended plan represents a sustainable approach to improving mobility and safety for motorists and pedestrians, recognizes both the reality that driving is the predominant mode along the corridor, and the importance of further enhancing the “lifeblood” that the corridor’s robust transit network provides.

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Appendix A Technical Memoranda and Deliverables

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Technical Memoranda and Deliverables DESCRIPTION DATE

Data Collection Plan June 4, 2010

Outreach Plan Framework June 4, 2010

Street Furniture Inventory July 31, 2010

Preliminary Assessment of Transit Data August 23, 2010

Draft Public Involvement Plan September 20, 2010

Draft Retrospective on Feedback from Stakeholders September 21, 2010

Bus Operations Planning Methodology Memo October 28, 2010

On-Street Parking Utilization Survey Methodology Memo and Forms October 28, 2010

Off-Street Parking Utilization Survey Methodology Memo and Forms October 29, 2010

Summary Report-CAC Meeting #1 October 29, 2010

Traffic Volume Data and Auto Occupancy Data Collection November 3, 2010

On-Street Parking Data Collection November 3, 2010

Survey of Business’ Delivery Needs November 5, 2010

Existing Condition Drawings November 12, 2010

Off-Street Parking Data Collection November 17, 2010

Express Bus Ridership Point Checks November 17, 2010

Summary of Findings-Hylan Blvd Contra Flow Feasibility Report November 24, 2010

Concept Development Workshop Briefing Book and Summary of Proceedings December 6-7, 2010

Summary Report-Public Meeting #1 December 13, 2010

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Draft Concept Design Criteria December 14, 2010

Revised Draft Concept Design Criteria January 5, 2011

Existing Conditions Level of Service Analysis January 26, 2011

Memo to Confirm Existing and No Build Conditions February 1, 2011

Concept Design Options in Four Study Areas February 9, 2011

Concept Design Options at Six Group Two Intersections February 9, 2011

Level of Service Analysis February 16, 2011

Draft Build Conditions traffic analysis in Four Study Areas March 4, 2011

Concept Design Options at Group Two Intersections March 8, 2011

Draft Parking Utilization Study March 11, 2011

Person Delay Analysis in Four Study Areas March 23, 2011

Sketch plan concept drawings of virtual bus lane March 24, 2011

Memo describing relevance of Staten Island Transit Needs Assessment Study April 5, 2011

Traffic Analysis of Existing and Build Conditions for Group One And Group Two intersections April 8, 2011

Results of Person Delay Analysis-Tech Memo May 4, 2011

Schematic layout of proposed SBS route path at Eltingville Transit Center May 16, 2011

Summary Report-CAC Meeting #2 June 6, 2011

Draft Report-Analysis of Delivery Needs June 9, 2011

White Paper-Strategy to Transition to Concept Design June 14, 2011

Summary Report-Public Meeting #2 June 14, 2011

Preliminary Concept Design Drawings July 29, 2011

Technical Memo-Recommendations to Improve Pedestrian Safety July 29, 2011

Treatments to Improve Driver and Pedestrian Operations and Safety September 9, 2011

Draft Concept Design Drawings September 13, 2011

Draft Assessment of Safety Issues at Proposed Yukon Avenue Bus Station September 21, 2011

Summary Report-Public Meeting #3 September 21, 2011

Recommendations for Block Faces for Parking Utilization Study September 28, 2011 118

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Draft Concept Design Drawings November 11, 2011

Build Conditions Traffic Analysis November 11, 2011

Draft Traffic Analysis Appendix November 11, 2011

Draft Parking Utilization Study December 14, 2011

Draft Documented Categorical Exclusion December 28, 2011

Draft Project Report February 29, 2012

Summary Report-Public Meeting #4 March 17, 2012

Final Concept Design Drawings May 21, 2012

Construction Cost Estimate May 21, 2012

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Appendix B

Peak Period Turning Movement Volume Diagrams

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Appendix C

Block Faces Included in the On-Street Parking Utilization Survey

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Appendix D

Organizations Invited to Serve on Citizens Advisory Committee

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First Last Title Organization

Diane Savino Senator 23rd Senate District

Andrew Lanza Senator 24th Senate District

Janele Hyer-Spencer Assemblymember 60th Assembly District

Matthew Titone Assemblymember 61st Assembly District

Lou Tobacco Assemblymember 62nd Assembly District

Michael Cusick Assemblymember 63rd Assembly District Constituent Service Philip Mararolo Assemblyman Michael Cusick Manager James Molinaro Borough President Borough of Staten Island

Deborah Rose Council Member City Council District 49

James Oddo Council Member City Council District 50

Vincent Ignizio Council Member City Council District 51

Leticia Remauro Chair Community Board 1 (Staten Island)

Josephine Beckmann District Manager Community Board 10 (Brooklyn)

Dana Magee Chair Community Board 2 (Staten Island)

Debbie Derrico District Manager Community Board 2 (Staten Island)

Frank Morano Chair Community Board 3 (Staten Island)

George Caputo President Cottages Hill Neighborhood Corp

Kamillah Hanks Executive Director Downtown Staten Island Council

Lenny Santamaria Principal I.S. 24 Myra S. Barnes Rev. Msgr. Whalen Principal Monsignor Farrell High School Edmund Joseph Markowski New Dorp Central Civic Association

Deirdre DeAngelis Principal New Dorp High School

Stanley Mroz Office of Assemblymember Janele Hyer-Spencer

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First Last Title Organization

Michael Cappotelli Chief of Staff Office of Assemblymember Lou Tobacco

Christopher Bauer Office of Assemblymember Matthew Titone

Michael Arvanites Staff member Office of State Senator Diane Savino Office of Staten Island Borough President James Joseph Sciortino Molinaro Chan Graham Executive Director Preservation League of Staten Island

Terry Troia Executive Director Project Hospitality

Linda Baran President & CEO Staten Island Chamber of Commerce Government Affairs Geoff Kravitz Staten Island Chamber of Commerce Director Camille Zarrelli President Staten Island Civic

Cesar Claro President & CEO Staten Island Economic Development Corporation

Jim Easley General Manager Staten Island Mall

Dee Vandenburg President Staten Island Taxpayers Association

Vincent Maniscalco Principal Staten Island Technical High School

Richard Sabatini President & CEO Staten Island Terminal Vice President, John Demoleas Staten Island University Hospital Community Relations Frank Sanchez Area Manager The Nicotera Group - Hospitality

Charles Schumer Senator The United States Senate

Kristen Gillibrand Senator The United States Senate Representative - 13th Michael Grimm U.S. House of Representatives District Ruta Shah-Gordon Dean of Campus Life Wagner College Associate Dean of Catharine McGlade Wagner College Campus Life Susan Meeker Executive Director West Brighton Local Development Corporation

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