I-105 Expresslanes Draft Concept of Operations

I-105 ExpressLanes

Draft Concept of Operations

February 19, 2020

Prepared for:

One Gateway Plaza Los Angeles, CA 90012

Prepared by:

Revision Date Description Submitted by 0 8/15/2019 First draft for Metro Review John Lowery 0.1 10/14/2019 Response to Metro Comments John Lowery 1 10/15/2019 Administrative Draft for Stakeholder Review Philbert Wong 1.1 2/13/2020 Response to Administrative Draft Comments John Lowery

Revision Prepared by Quality Reviewed by Approved and Released by 0 Esteban Martinez John Lowery Darren Henderson 0.1 Esteban Martinez John Lowery John Lowery 1.1 Esteban Martinez John Lowery Darren Henderson

I-105 ExpressLanes February 13, 2020 Concept of Operations – Administrative Draft

Contents

EXECUTIVE SUMMARY ...... 1 INTRODUCTION ...... 2 1.1 PURPOSE AND INTENDED AUDIENCE ...... 2 1.2 PROJECT CONTEXT ...... 4 1.3 PROJECT HISTORY ...... 6 1.4 GOALS AND OBJECTS OF THE EXPRESSLANES PROGRAM ...... 10 CURRENT CHARACTERISTICS OF THE I-105 ...... 11 2.1 I-105 CORRIDOR GENERAL-PURPOSE LANES ...... 11 2.2 I-105 CORRIDOR HOV LANES, OPERATING POLICIES AND ENFORCEMENT ...... 11 2.3 I-105 CORRIDOR TRAVEL CHARACTERISTICS: VOLUMES, TRAFFIC SERVICE AND OPERATIONAL ISSUES ...... 12 2.4 I-105 CORRIDOR TRANSIT FACILITIES AND EXISTING SERVICES ...... 17 ALTERNATIVE CONCEPTS CONSIDERED ...... 20 3.1 ALTERNATIVE 1: NO-BUILD ...... 20 3.2 ALTERNATIVE 2: CONVERT HOV LANE TO ONE EXPRESSLANE ...... 21 3.3 ALTERNATIVE 3: CONVERT HOV LANE TO DUAL EXPRESSLANES ...... 22 3.4 OCCUPANCY REQUIREMENTS ...... 23 3.5 NEXT STEPS ...... 23 FACILITY DESIGN ...... 24 4.1 ACCESS ...... 24 4.2 SEPARATION TREATMENT ...... 30 4.3 CALIFORNIA HIGHWAY PATROL OBSERVATION/ENFORCEMENT ...... 32 4.4 LIGHTING ...... 33 4.5 EXPRESS LANES SIGNAGE ...... 33 4.6 TOLL RATE SIGNS ...... 37 4.7 TRANSIT INTEGRATION ...... 40 4.8 OTHER PHYSICAL IMPROVEMENTS ...... 40 4.9 TOLL SEGMENTS ...... 41 4.10 TOLLING INFRASTRUCTURE REQUIREMENTS ...... 43 4.11 I-105/I-110 INTERCHANGE ...... 44 4.12 STUDEBAKER ROAD ...... 48 TRAFFIC MODELING AND PERFORMANCE ...... 52 5.1 SUMMARY OF TRAFFIC MODELING ...... 52 5.2 FUTURE CONDITIONS – 2027 ...... 53 5.3 FUTURE CONDITIONS – 2047 ...... 55 ROLES, RESPONSIBILITIES AND INSTITUTIONAL REQUIREMENTS ...... 59 6.1 ROLES AND RESPONSIBILITIES ...... 59 6.2 EXPRESS LANE AGREEMENTS ...... 63 6.3 EXPRESS LANE AUTHORIZATION LEGISLATION AND OTHER LEGAL REQUIREMENTS ...... 63 OPERATIONAL POLICIES ...... 66 7.1 HOURS OF OPERATION ...... 66 7.2 VEHICLE ELIGIBILITY ...... 66 7.3 EXEMPTED/DISCOUNTED VEHICLES...... 66 7.4 TOLLING ...... 69 7.5 EQUITY AND LOYALTY REWARD PROGRAMS ...... 71 7.6 USE OF PROJECT REVENUES ...... 72

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ENVIRONMENTAL JUSTICE ...... 73 8.1 SETTING ...... 74 8.2 MINORITY POPULATIONS ...... 76 8.3 LOW-INCOME POPULATIONS ...... 84 8.4 RELATED COMMUNITY CHARACTERISTICS ...... 91 8.5 REACHING LOW-INCOME AND MINORITY AUDIENCES ...... 97 TECHNICAL REQUIREMENTS ...... 99 9.1 ELECTRONIC TOLL COLLECTION ...... 99 9.2 STATE AND NATIONAL INTEROPERABILITY ...... 101 9.3 TOLLING OPERATIONS OVERVIEW ...... 102 9.4 ROADSIDE EQUIPMENT ...... 104 9.5 TOLL SYSTEM HOST ...... 113 9.6 TRAFFIC MANAGEMENT CENTER...... 115 9.7 CUSTOMER SERVICE CENTER ...... 115 9.8 CUSTOMER SERVICE BACK OFFICE SYSTEM FUNCTIONALITY ...... 116 9.9 SYSTEM MAINTENANCE ...... 117 9.10 OTHER SYSTEM INTERFACES ...... 117 9.11 FAILURE SCENARIOS ...... 119 9.12 INFORMATION SECURITY...... 119 ENFORCEMENT AND INCIDENT MANAGEMENT ...... 120 10.1 ELIGIBILITY VIOLATION ENFORCEMENT ...... 120 10.2 TOLL VIOLATION ENFORCEMENT ...... 121 10.3 INCIDENT MANAGEMENT ...... 122 PERFORMANCE ASSESSMENT ...... 123 11.1 FEDERAL AND STATE PERFORMANCE REQUIREMENTS ...... 123 11.2 IDENTIFICATION OF PERFORMANCE METRICS ...... 124 11.3 PERFORMANCE MONITORING AND REPORTING ...... 125

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Figures

FIGURE 1 - CONCEPT OF OPERATIONS PROCESS ...... 3 FIGURE 2 - PROJECT VICINITY MAP ...... 4 FIGURE 3 - PEAK HOUR TRAFFIC ON THE I-105 CORRIDOR ...... 5 FIGURE 4 - DISTRICT 7 MAP OF DEGRADED HOV FACILITIES ...... 6 FIGURE 5 - LOS ANGELES COUNTY EXPRESSLANES NETWORK ...... 9 FIGURE 6 - I-105 CORRIDOR MAP ...... 11 FIGURE 7 - I-105 FREEWAY EXISTING AVERAGE DAILY TRAFFIC (ADT) ...... 13 FIGURE 8 - I-105 EXISTING GP LANES AM AND PM PEAK HOUR LOS ...... 15 FIGURE 9 - I-105 EXISTING MANAGED (HOV) LANES (ML) AM AND PM PEAK HOUR LOS ...... 17 FIGURE 10 - I-105 PARK AND RIDE LOTS AND TRANSIT LINES ...... 18 FIGURE 11 - ALTERNATIVE 1 – NO BUILD (DIRECTIONAL CROSS SECTION) ...... 21 FIGURE 12 - ALTERNATIVE 2 – CONVERT HOV LANE TO SINGLE EXPRESS LANE (DIRECTIONAL CROSS SECTION) ...... 22 FIGURE 13 - ALTERNATIVE 3 - CONVERT HOV LANE TO DUAL EXPRESS LANES (DIRECTIONAL CROSS SECTION) ...... 23 FIGURE 14 - TYPICAL WEAVE LANE DESIGN ...... 25 FIGURE 15 - TYPICAL WEAVE ZONE DESIGN ...... 25 FIGURE 16 - I-105 EXPRESSLANES ACCESS LOCATIONS (ALTERNATIVE 3) ...... 26 FIGURE 17 - 2-FOOT AND 4-FOOT BUFFER STRIPING ...... 31 FIGURE 18 - CHANNELIZERS USED FOR LANE SEPARATION ...... 31 FIGURE 19 - EXISTING METRO GREEN LINE MAINTENANCE GATE ...... 32 FIGURE 20 - EXAMPLE ADVANCE SIGN AT EXPRESS LANE ENTRY ...... 33 FIGURE 21 - EXAMPLE REGULATORY SIGN AT EXPRESS LANE ENTRY ...... 34 FIGURE 22 - EXAMPLE ADVANCE SIGN AT INTERMEDIATE INGRESS...... 34 FIGURE 23 - EXAMPLE ADVANCE SIGN AT INTERMEDIATE EGRESS ...... 34 FIGURE 24 - EXAMPLE EXPRESS LANE ENDS SIGN AT TERMINUS ...... 35 FIGURE 25 - EXAMPLE SIGN SPECIFIC REQUIREMENTS ...... 35 FIGURE 26 - EXAMPLE EXPRESS LANE TRANSPONDER REQUIREMENT SIGN ON I-110 ...... 36 FIGURE 27 - INFORMATIONAL DMS ON SR-91 ...... 36 FIGURE 28 - EXISTING FULL MATRIX TOLL RATE SIGN ...... 37 FIGURE 29 - EXAMPLE STATIC TOLL RATE SIGN ...... 37 FIGURE 30 - PROPOSED I-105 TOLL RATE SIGN DESTINATIONS (ALTERNATIVE 3) ...... 39 FIGURE 31 - PROPOSED TOLL GANTRY LOCATIONS (ALTERNATIVE 3) ...... 42 FIGURE 32 - I-110/I-105DIRECT CONNECTOR RAMPS ...... 44 FIGURE 33 - EXISTING SB I-110 READ POINT CONFIGURATION ...... 46 FIGURE 34 - PROPOSED SB I-110 READ POINT CONFIGURATION ...... 47 FIGURE 35 - EXISTING NB I-110 READ POINT CONFIGURATION ...... 48 FIGURE 36 - PROPOSED NB I-110 CHANNELIZERS ...... 48 FIGURE 37 - PROPOSED STUDEBAKER RD ACCESS ...... 50 FIGURE 38 - LAND USES ADJACENT TO I-105 CORRIDOR ...... 75 FIGURE 39 - I-105 BLOCK GROUPS WITH >50% HISPANIC POPULATION ...... 78 FIGURE 40 - I-105 BLOCK GROUPS WITH HISPANIC POPULATION GREATER THAN REFERENCE ...... 79 FIGURE 41 - I-105 BLOCK GROUPS WITH >50% BLACK POPULATION ...... 80 FIGURE 42 - I-105 BLOCK GROUPS WITH BLACK POPULATION GREATER THAN REFERENCE ...... 81 FIGURE 43 - I-105 BLOCK GROUPS WITH ASIAN POPULATION GREATER THAN REFERENCE ...... 82 FIGURE 44 - I-105 BLOCK GROUPS WITH >50% AGGREGATE MINORITY POPULATION ...... 83 FIGURE 45 - I-105 BLOCK GROUPS WITH >50% FEDERAL POVERTY LEVEL ...... 87 FIGURE 46 - I-105 BLOCK GROUPS WITH FEDERAL POVERTY LEVEL GREATER THAN REFERENCE ...... 88 FIGURE 47 - I-105 BLOCK GROUPS WITH <$25,000 ANNUAL HOUSEHOLD INCOME ...... 89 FIGURE 48 - I-105 BLOCK GROUPS WITH <$50,000 ANNUAL HOUSEHOLD INCOME ...... 90 FIGURE 49 - I-105 BLOCK GROUPS WITH LIMITED-PROFICIENCY ENGLISH POPULATION GREATER THAN REFERENCE ...... 93 FIGURE 50 - I-105 BLOCK GROUPS WITH CARPOOL USE GREATER THAN REFERENCE ...... 94 FIGURE 51 - I-105 BLOCK GROUPS WITH TRANSIT USE GREATER THAN REFERENCE ...... 95 FIGURE 52 - EXAMPLE OPEN ROAD TOLLING ...... 100 FIGURE 53 - EXAMPLE 6C STICKER TAG IN SOUTHERN CALIFORNIA ...... 102 FIGURE 54 - EXAMPLE 6C SWITCHABLE TAG IN COLORADO ...... 102 FIGURE 55 - TOLL SYSTEM ARCHITECTURE ...... 104

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FIGURE 56 - EXAMPLE OVERHEAD AUTOMATIC VEHICLE IDENTIFICATION ANTENNA ...... 105 FIGURE 57 - EXISTING METRO TRANSPONDER WITH SELF-DECLARATION SWITCH ...... 106 FIGURE 58 - EXAMPLE OVERHEAD LICENSE PLATE READER AND LIGHTING ASSEMBLY ...... 107 FIGURE 59 - ENFORCEMENT LED PANEL ...... 108 FIGURE 60 - EXAMPLE STATIC PRICING SIGN WITH DYNAMIC MESSAGE INSERTS ...... 108 FIGURE 61 - MOBILE OCCUPANCY DECLARATION INTERFACE (LEFT) AND VEHICLE MOUNTED LPRS (RIGHT) ...... 110 FIGURE 62 - EXAMPLE SETUP FOR A VIDEO OCCUPANCY DETECTION SYSTEM ...... 111 FIGURE 63 - MOBILE OCCUPANCY VERIFICATION SYSTEMS ...... 112 FIGURE 64 - EXAMPLES PAN/TILT/ZOOM CCTV CAMERA ...... 113

Tables

TABLE 1 - I-105 EXISTING GP LANE PERFORMANCE MEASURES ...... 14 TABLE 2 - I-105 EXISTING HOV LANES PERFORMANCE MEASURES ...... 16 TABLE 3 - METRO GREEN LINE PARK AND RIDE LOTS ...... 19 TABLE 4 - EASTBOUND I-105 EXPRESSLANES ACCESS ...... 27 TABLE 5 - WESTBOUND I-105 EXPRESSLANES ACCESS ...... 29 TABLE 6 - EB TOLL SEGMENTS ...... 41 TABLE 7 - WB TOLL SEGMENTS ...... 41 TABLE 8 - I-105 GP LANES 2027 PERFORMANCE MEASURES ...... 54 TABLE 9 - I-105 MANAGED LANES 2027 PERFORMANCE MEASURES ...... 55 TABLE 10 - I-105 GP LANES 2047 PERFORMANCE MEASURES ...... 56 TABLE 11 - I-105 MANAGED LANES 2047 PERFORMANCE MEASURES ...... 57 TABLE 12 - STUDY AREA MINORITY DEMOGRAPHICS ...... 76 TABLE 13 - MINORITY POPULATION (LOS ANGELES COUNTY VS STUDY AREA) ...... 77 TABLE 14 - US CENSUS BUREAU 2018 HOUSEHOLD POVERTY THRESHOLDS ...... 84 TABLE 15 - STUDY AREA INCOME DEMOGRAPHICS ...... 85 TABLE 16 - LOW-INCOME POPULATION (LOS ANGELES COUNTY VS STUDY AREA) ...... 85 TABLE 17 - METRO LOW-INCOME ASSISTANCE PLAN ELIGIBILITY ...... 86 TABLE 18 - COMMUTE TRAVEL BEHAVIOR (LOS ANGELES COUNTY VS STUDY AREA) ...... 92

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Acronyms

AB Assembly Bill ADT Average Daily Traffic AVI Automatic Vehicle Identification BOS Back Office System Caltrans California Department of Transportation CAMUTCD California Manual on Uniform Traffic Control Devices CAV Clean Air Vehicle CCR California Code of Regulations CHP California Highway Patrol ConOps Concept of Operations CRD Congestion Reduction Demonstration CSC Customer Service Center CTC California Transportation Commission CTOC California Toll Operators Committee CVC California Vehicle Code DMS Dynamic Message Sign DMV Department of Motor Vehicles DSRC Dedicated Short Range Communications DVAS Digital Video Auditing System EB/WB Eastbound/Westbound EO Executive Order ETC Electronic Toll Collection FAST Act Fixing America’s Surface Transportation Act FHWA Federal Highway Administration FSP Freeway Service Patrol GP General Purpose HCM Highway Capacity Manual HOT High Occupancy Toll HOV High Occupancy Vehicle HOV2+ Two-or-More-Person High Occupancy Vehicle HOV3+ Three-or-More-Person High Occupancy Vehicle IMP Incident Management Plan ISO International Organization for Standardization (ISO) ISTEA Intermodal Surface Transportation Efficiency Act ITS Intelligent Transportation System IVR Interactive Voice Response LADOT Los Angeles Department of Transportation LAX Los Angeles International Airport LOS Level of Service LPR License Plate Reader LRT Light Rail Transit MAP-21 Moving Ahead for Progress in the21st Century Act Metro Los Angeles County Metropolitan Transportation Authority

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MPO Metropolitan Planning Organization MUTCD Manual on Uniform Traffic Control Devices NIOP National Interoperability OCR Optical Character Recognition ODS Occupancy Detection System ORT Open Road Tolling PA&ED Project Approval and Environmental Document PeMS Performance Monitoring System PSR Project Study Report RF Radio Frequency RIITS Regional Integration of Intelligent Transportation Systems RTDM Regional Travel Demand Model SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users SCAG Southern California Association of Governments SEMP Systems Engineering Plan SOV Single Occupant Vehicle SSH Secure Shell T&R Traffic and Revenue TAP Transit Access Pass TCA Transportation Corridor Agencies TMC Traffic Management Center TOPD Traffic Operations Policy Directive TSR Traffic Study Report UPA Urban Partnership Agreement UPS Uninterruptable Power Supply VES Violation Enforcement System VHD Vehicle Hours of Delay VLAN Virtual Local Access Network VMT Vehicle-Miles Traveled VRF Virtual Routing and Forwarding

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Executive Summary

The Los Angeles County Metropolitan Transportation Authority (Metro) in partnership with the California Department of Transportation (Caltrans), is proposing improvements on the Interstate 105 (I-105) corridor in the cities of El Segundo, Inglewood, Hawthorne, Los Angeles, Lynwood, South Gate, Paramount, Downey, Norwalk, and portions of unincorporated Los Angeles County. The improvements would convert the existing high-occupancy-vehicle (HOV) lane to one or more priced managed lanes, referred to as express lanes and branded by Metro as I-105 ExpressLanes.

The I-105 corridor is an integral part of Southern California’s freeway network, extending approximately 18 miles from Aviation Blvd at the western limit to Studebaker Road at the eastern limit. Traffic demand regularly exceeds the capacity of the corridor, resulting in higher than 11,000 daily vehicle hours of delay (VHD) for eastbound general-purpose lane users and over 2,200 daily VHD for westbound HOV lane users. Existing daily vehicle miles travelled exceed 2.7 million, and average daily traffic (ADT) volume exceeds 250 thousand vehicles, with HOV lanes accounting for 17% of total ADT.

The proposed improvements for the project were evaluated via three alternatives. Alternative 1 is the no-build scenario. Alternative 2 recommends converting the existing I-105 HOV lanes – one in each direction – to a single express lane. Alternative 3 recommends converting the existing HOV lanes to dual express lanes in both directions. In addition, the project will add new auxiliary lanes to improve operational performance and modify local arterial streets to enhance freeway access.

This report incorporates ongoing work being completed for the Project Approval and Environmental Documents (PA&EDs) of the I-105 ExpressLanes. The PA&ED studies have identified design and operations alternatives and are evaluating the options relative to perceived user safety, convenience, and cost in order to identify a preferred alternative. A Traffic Operations Analysis Report (TOAR) was also commissioned as part of the PA&ED process. This report summarizes the findings of investment grade traffic and revenue studies that are currently being conducted for the proposed express lanes to help inform the selection of a preferred alternative.

This Concept of Operations also provides additional information on facility design operational policies, technical requirements, enforcement and incident management, institutional roles and responsibilities, and performance monitoring. Key design and operations support elements, such as ingress and egress locations, electronic toll collection implementation requirements, traffic data collection, pricing scheme, customer service and account management, enforcement options and supporting equipment, required system equipment, maintenance provisions and marketing concepts are all discussed in this document.

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Introduction

This Concept of Operations (ConOps) describes the proposed operational concept for priced managed lanes on Interstate 105 (I-105) in Los Angeles, also referred to as the I-105 ExpressLanes. Express lanes allow vehicles not meeting established requirements for a high-occupancy vehicle (HOV) lane to pay a toll for use of the lane while continuing to allow vehicles meeting established requirements toll-free travel. This ConOps includes recommended design and operational features of the I-105 ExpressLanes that have been developed through a collaborative process with key stakeholders including the California Department of Transportation (Caltrans), the Federal Highway Administration (FHWA) and the California Highway Patrol (CHP). The I-105 ExpressLanes implementation is being led by the Los Angeles County Metropolitan Transportation Authority (Metro). The concept for the I-105 ExpressLanes presented in this document is heavily influenced by the legacy and experience of Metro’s existing I-10 and I-110 ExpressLanes projects.

1.1 PURPOSE AND INTENDED AUDIENCE

The development of a ConOps is one of the first steps in the systems engineering process and is intended to document a shared understanding among stakeholders of how complex priced managed lane projects will be developed and operated. This sets a foundation that can be built upon in future phases of project development to ensure that the ultimate project conforms to the initial concept.

According to FHWA, “the Concept of Operations is a formal document that describes the use and operation of priced managed lanes projects. It is used to present the proposed project to decision makers and other stakeholders and to solicit their feedback on how to improve it. The Concept of Operations is often a living document that evolves as decisions are made as planning and design work progresses.” The Concept of Operations provides information on the following issues:

 Purpose of and need for the project

 Current conditions and characteristics of the proposed corridor

 Design and system standards to which the project will be developed

 The different priced managed lane alternatives that will be assessed

 Operational policies including occupancy rates, hours of operation and toll-setting procedures

 Transit improvements to be implemented as part of the project, such as new park-and-ride facilities and new bus services

 Legislative approvals and other agreements needed to implement the project

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Figure 1 - Concept of Operations Process

Source: Caltrans/Federal Highway Administration Systems Engineering Guidebook for ITS

This ConOps document is a user-oriented document describing the outcomes of a collaborative stakeholder engagement process to define the operational characteristics of the I-105 ExpressLanes. The user perspective includes that of stakeholder agencies that will have a role in the development and operation of the express lanes and the express lanes users themselves. As a user-oriented document, the ConOps is meant to describe the operational concept in an easily understood way that is widely accessible by stakeholder groups. This ConOps report is intended to bridge the gap between the needs and expectations of users and the design requirements and technical specifications to be developed for the toll system. Future phases of the project will translate the concepts described in this document into detailed technical requirements and design documents.

The development of this ConOps report was assisted by extensive stakeholder engagement as well as the experience of operating the I-10 and I-110 ExpressLanes projects. Stakeholder engagement was achieved through several ConOps focused meetings and workshops where each aspect of the proposed express lanes was reviewed and discussed. In addition, many of the characteristics of the I- 105 ExpressLanes described in this document were influenced by policies developed and operational experience gained from the I-10 and I-110 ExpressLanes projects, which Metro has been operating since 2012 and 2013 respectively.

A ConOps is intended to be a living document with flexibility to allow for updates and changes as project development advances. This document synthesizes ongoing work being completed for the Project Approval and Environmental Document (PA&ED) for the I-105 ExpressLanes Project. As development of the I-105 ExpressLanes Project matures through the PA&ED and design phases, this document may be updated to reflect final consensus related to the physical and operational aspects of the Project.

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1.2 PROJECT CONTEXT

I-105 is a major east-west interstate freeway in Los Angeles County (see Figure 2). Also known as the Glenn Anderson Freeway, the 18-mile facility serves a major route connecting air passenger traffic generated from Los Angeles International Airport (LAX) with the north-south I-405, I-110, and freight heavy I-710 and I-605 freeways. The western terminus of I-105 starts at the intersection of California Street and Imperial Highway and its eastern terminus is located just east of the I-605 Interchange at Studebaker Road in Norwalk. The corridor predominantly consists of three general purpose (GP) lanes and one HOV lane in each direction, and Metro’s Green Line light rail transit (LRT) runs in the median of I-105 for the majority of the route.

Figure 2 - Project Vicinity Map

Los Angeles area freeways have consistently ranked among the worst in the nation for traffic congestion, which has resulted in travel time delays, productivity losses, and increased emissions and air pollution. According to the Southern California Association of Governments (SCAG), in Los Angeles County alone, vehicles travel about 205 million miles each weekday, with a projected growth to 223 million miles by 2040. Furthermore, according to Inrix, Los Angeles residents spend the most hours per capita in congestion compared to other U.S. cities. The I-105 freeway is currently travelled by over 250,000 vehicles per day, supporting the transport of cargo shipments to and from LAX,

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employment centers throughout the corridor, commuter traffic traveling to both LAX and Downtown Los Angeles, and freight traffic traveling from the Ports of Los Angeles and Long Beach. Data from the I-105 ExpressLanes Project Study Report (PSR) and from Caltrans’ 2017 HOV Degradation Report and Action Plan show that existing I-105 HOV lanes are degraded (see Figure 4), with travel speeds less than 45 miles-per-hour (mph) for more than 10 percent of peak AM/PM commuting hours over a consecutive 180-day period. Due to limited freeway right-of-way, insufficient funding, and potential environmental impacts, the opportunities to add freeway capacity are very limited. If left unaddressed, the growing congestion of the freeway system will threaten the economic and environmental sustainability of the region.

Figure 3 - Peak Hour Traffic on the I-105 Corridor

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Figure 4 - District 7 Map of Degraded HOV Facilities

Delivering the I-105 ExpressLanes facility is a significant priority for the region. I-105 was identified as a Tier-1 corridor for near-term implementation in Metro’s Countywide ExpressLanes Strategic Plan, which documented the results of a screening analysis to identify high priority corridors with the highest combined financial and mobility benefits. The I-105 ExpressLanes are also included in the “Twenty-Eight by 28,” an initiative by Metro to accelerate 28 critical transportation projects in the Los Angeles area with the intent of providing more reliable travel times between 2028 Olympic and Paralympic venues. Measure M, the local sales tax passed by Los Angeles County voters in 2016, provides $175 million for the I-105 ExpressLanes Project.

1.3 PROJECT HISTORY

1.3.1 Consent Decree

The planning and design of the I-105 freeway was met with significant opposition. Just before the scheduled groundbreaking was to occur in 1972, at the height of the “freeway revolts” that were taking place across the country, a lawsuit was filed to prevent right-of-way acquisition needed for the project. Construction was delayed for nearly a decade until an agreement was reached in October 1979 as documented in a consent decree, which mandated several conditions on the development of the freeway. The purposes of the consent decree were to avoid costly and lengthy litigation and to permit construction of the freeway so long as it: (1) incorporated certain design features and support

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facilities as outlined in the consent decree; (2) provided for mitigation of the depletion of the housing stock which at the time, was in distinguishably short supply in the affected communities; (3) provided for the housing needs of those living in the area of the proposed path of the freeway; and (4) ensured that employment opportunities generated by the freeway construction would benefit the communities that had been economically impacted by the construction.

The consent decree specified the design elements of the I-105 freeway and created programs to support community members impacted by the construction. With respect to design, the decree specified that the freeway was to include six GP lanes, two HOV lanes, and a median busway that could be converted to rail. The decree also created a robust housing program that not only assisted community members that were displaced, but also helped to restock the housing supply that was lost through right-of-way acquisition. Ultimately, 4,200 new homes were constructed. In addition, the consent decree also established an affirmative action plan to provide employment opportunities and incentivize participation by minority groups. As part of this ConOps, an evaluation was conducted to confirm that the I-105 ExpressLanes project remains compliant with the intent and provisions of the Consent Decree.

Based on current public accessible electronic court records, the 1972 Consent Decree was closed on January 24, 2002. While the I-105 ExpressLanes is not bound by this closed case, it is bound by any and all applicable state and federal laws and regulations.

1.3.2 Congestion Reduction Demonstration Program

The ExpressLanes program in Los Angeles County began in 2008 when the federal government awarded Metro, in partnership with Caltrans, a $210.5 million grant to develop a pilot program on the I-110 Transitway (Harbor Freeway) and the I-10 Busway (San Bernardino Freeway) in 2012 and 2013, respectively. The Metro ExpressLanes pilot program was one of six sites across the nation funded by the U.S. Department of Transportation (USDOT) through its Urban Partnership Agreement (UPA) and Congestion Reduction Demonstration (CRD) program to demonstrate congestion pricing and other supporting strategies. Specifically, the Metro I-110 and I-10 project converted the existing carpool lanes to express lanes, where carpoolers, vanpoolers, transit buses, and eligible clean air vehicles were permitted to use the lanes at no charge with a valid FasTrak® Flex switchable transponder, while single occupant vehicles (SOVs) and HOV2+ person carpools using the I-10 during peak periods, were given the option to pay a variable toll to avoid congestion. Furthermore, the program supported significant investments in transit service infrastructure along the respective corridors to maximize the benefits of express lanes by encouraging commuters to shift modes. The program also introduced unprecedented equity programs to support and encourage express lanes participation by qualifying low income resident, carpoolers, as well as frequent corridor transit users.

1.3.3 Authorizing Legislation

State legislation passed in 2014 and 2015 provided authorization for Metro to operate and expand the ExpressLanes program in Los Angeles County. Due to the success of the ExpressLanes pilot program, California State Senate Bill 1298 was signed into law in September 2014 to grant Metro the authority to conduct, administer, and operate the ExpressLanes program indefinitely. In

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addition, Assembly Bill (AB) 194 (Frazier) was passed by the California Legislature in September 2015 and signed by the Governor in October 2015. With its passage, regional transportation agencies such as Metro and Caltrans can now apply to the California Transportation Commission (CTC) to obtain tolling authority to operate new HOT lanes. Furthermore, AB 194 removed the prior limitation (two in northern California and two in southern California) on the number of HOT lane facilities that could be approved in the State. The passage of AB 194 gives Metro greater ability to implement a network of express lanes.

Simultaneous with the preparation of this ConOps, Metro has prepared an application to the CTC for authorization to operate express lanes on I-105 as specified in AB 194. The application, which was submitted to the CTC in August 2019, was approved by the CTC at their October 9, 2019 meeting.

1.3.4 Metro Countywide ExpressLanes Strategic Plan

Building off the success of the I-110 and I-10 Congestion Reduction Demonstration pilot program, the Metro Board of Directors requested that a Countywide ExpressLanes Strategic Plan be prepared. The Strategic Plan established a vision for Metro to deliver a system of express lanes in Los Angeles County focusing on those freeways with existing, in construction, or planned HOV Lanes. The intent of the Strategic Plan was to make better use of existing vehicle capacity in HOV lanes and address the degradation in HOV lane performance already experienced on many freeway corridors in the County. The Strategic Plan identified the most promising corridors for conversion to express lanes and potential funding sources needed to implement the plan.

The primary objectives of Metro’s Countywide ExpressLanes Strategic Plan are to:

 Identify and recommend potential corridors that can benefit from HOV to express lane conversion;

 Develop a resource plan for existing and future express lane corridors;

 Respond to degraded HOV facilities across Los Angeles County as well as transportation needs which have outpaced traditional revenue sources;

 Provide recommendations regarding tiers of projects, phasing, planning-level costs and revenue forecasts, and a timetable for implementation;

 Provide a high-level assessment of vehicle occupancy requirements on existing and planned HOV/express lane facilities. The Countywide ExpressLanes Strategic Plan screened all HOV lanes (planned, in construction, and existing) in Los Angeles County for their feasibility for conversion to express lane operation. Individual corridors were evaluated using a two-phased process assessing their mobility benefits and financial feasibility

Recognizing that the implementation of a countywide network would require substantial investment and time to plan and construct, it was assumed that the individual segments would be implemented in tiers approximately ten-years apart as follows:

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 Tier 1 identifies corridors with the highest potential mobility benefits and financial feasibility, to be implemented in the near term (5-10 years);

 Tier 2 identifies corridors best-suited for mid-term implementation (within 15 years);

 Tier 3 identifies corridors best-suited longer-term implementation (within 25 years).

The analysis led to the recommendation to develop a 621 lane-mile network of express lanes (see Figure 5), mostly comprised of single lane facilities in each direction, with dual lane facilities recommended where right-of-way allows. The proposed Metro ExpressLane network is shown in Figure 5 and is made up of the existing I-10 and I-110 ExpressLanes and the Tier 1, 2, and 3 projects. As shown in Figure 5, the I-105 corridor is included as a dual lane facility in the Tier 1 network.

Figure 5 - Los Angeles County ExpressLanes Network

Metro’s Board approved the Countywide ExpressLanes Strategic Plan on January 26, 2017. Following the recommendations in the Strategic Plan, the Metro Board directed staff to begin planning and environmental studies for the Tier 1 projects. Pursuant to this direction, ExpressLanes are being studied in the I-105 Project Approval/Environmental Document (PA&ED) and the I-605 Corridor Improvement Project (CIP) PA&ED. In addition, the PA&EDs for the I-405 Sepulveda Pass ExpressLanes and an extension of the I-10 ExpressLanes to San Bernardino County are expected to begin in early 2019.

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1.4 GOALS AND OBJECTS OF THE EXPRESSLANES PROGRAM

The goals of the ExpressLanes program as stated in Metro’s Strategic Plan is to:

 Provide a safe, reliable, predictable commute for ExpressLanes users

 Reinforce efforts to increase vehicle occupancy rates and transit ridership

 Optimize vehicle throughput through dynamic pricing

 Generate sufficient revenue to sustain the financial viability of the ExpressLanes Building on the goals stated in the Strategic Plan, the Draft Project Report for the I-105 ExpressLanes Project states the following purpose and need.

Purpose

 Enhance operations and improve trip reliability, and travel times within the corridor;

 Improve the traffic flow by reducing the congested areas and therefore, offering the motorist a faster and reliable commute;

 Sustain and manage mobility within the corridor to include other transportation options such as ExpressLanes. Need

Deficiencies on I-105 within the Project limits are summarized below:

 Current daily traffic demand on some sections of I-105 exceeds capacity due to heavy traffic on both weekdays and weekends;

 The existing traffic of the mixed flow and HOV lanes of the I-105 exceeds the capacity; thus, future operating conditions will be further deteriorated;

 According to the 2017 California High-Occupancy Vehicle Facilities Degradation Report and Action Plan (Caltrans, 2018), the existing I-105 HOV facilities are degraded and the travel speed is below 45 miles per hour (mph) during peak periods

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Current Characteristics of the I-105

2.1 I-105 CORRIDOR GENERAL-PURPOSE LANES

The I-105 Freeway spans approximately 18 miles (see Figure 6) and was designed as a six-lane highway with auxiliary lanes between most on-ramps and off-ramps. The corridor generally has three general purpose lanes in each direction, with some sections having five lanes in each direction. The availability of auxiliary lanes and merge areas widen the freeway up to six lanes in some locations. The I-105 is located within approximately 320-feet of right-of-way, with variable widths near interchanges and transit stations. I-105 GP lane widths are typically 12 feet throughout the corridor. The freeway also includes an outside shoulder that is generally 10 feet wide with variable widths at some locations. The I-105 freeway has a posted speed of 65 miles per hour.

Within the project limits, there are four major freeway-to-freeway interchanges, located at the I-405, I-110, I-710, and I-605 freeways. The corridor also has an exclusive median transit way for the Metro Green Line LRT, which is owned and maintained by Metro, as well as HOV lanes for qualifying two- or more person carpool users (HOV2+).

Figure 6 - I-105 Corridor Map

2.2 I-105 CORRIDOR HOV LANES, OPERATING POLICIES AND ENFORCEMENT

Within the project area the I-105 Freeway includes a 16.3-mile eastbound and 15.7-mile westbound HOV lane in each direction between the I-405 interchange and Studebaker Road near I-605. The HOV lanes were added to the I-105 corridor in 1994 after the Intermodal Surface Transportation Efficiency Act (ISTEA) was passed in 1991 as a strategy to address system deficiencies, mobility, and air quality. The HOV lanes widths are typically 12-feet, with a 2 to 4-foot painted buffer between the HOV lane and GP lanes. The HOV lane also includes an inside shoulder that is generally 10 feet wide. The existing HOV lanes currently operate 24 hours a day, seven days a week with a minimum

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HOV2+ occupancy requirement. Additional information regarding operating policy is covered in Section 7.

As part of the construction of the HOV lanes, Caltrans entered into an agreement with the City of Norwalk to construct an eastbound off-ramp for I-105 HOV users to access the Norwalk Station Park & Ride lot near Studebaker Road. Additionally, the agreement stipulates that Caltrans must restrict I-105 on- and off-ramps at Studebaker Road to HOV users only, with an exception for travelers destined for the Park & Ride Lot. The I-105 ExpressLanes Project will impact the existing configuration of the access points at Studebaker Road. The information is further discussed in Section 4.12.

The I-105 HOV lanes are enforced by the CHP. Any driver observed by CHP to be using the HOV lane without meeting the eligibility requirements is subject to a citation per California Vehicle Code (CVC) Section 21655.5, which carries a minimum fine of $490.

2.3 I-105 CORRIDOR TRAVEL CHARACTERISTICS: VOLUMES, TRAFFIC SERVICE AND OPERATIONAL ISSUES

According to the I-105 PA&ED Traffic Study Report (TSR), the I-105 corridor has existing average daily traffic (ADT) volumes of approximately 277,100. The HOV lanes carry about 17% of the total ADT. Figure 7 below illustrates the ADT volumes along the corridor, by facility and by direction. The ADT was calculated by taking the average PeMS flows for all non-holiday weekends during the year 2016 where the PeMS percent observed exceeded 66.67%. The blue and red text indicate the lowest and highest volumes in the corresponding travel direction, respectively. The volumes contribute to approximately 2.7 million daily vehicle-miles traveled (VMT) on the I-105 freeway mainline (GP lanes) and an additional 570,000 daily VMT on the I-105 HOV lanes. Truck traffic as a percentage of overall freeway traffic is approximately 4% west of I-710 and 10% east of I-710.

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Figure 7 - I-105 Freeway Existing Average Daily Traffic (ADT)

Source: Caltrans PeMS

2.3.1 Existing General Purpose Lanes

Table 1 provides a summary of I-105 GP lane performance measures from the I-105 PA&ED TSR including the peak period and daily VMT, peak period and daily vehicle hours of delay (VHD), and the peak period average travel times in minutes. Recurrent GP lane congestion is considerable throughout many hours of the day in both directions but tends to be worst in the eastbound direction during the PM peak period due to the presence of bottlenecks that occur west of the I-110, I-170, and I-605 interchanges.

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Table 1 - I-105 Existing GP Lane Performance Measures

Eastbound Westbound AM PM AM PM Performance Measure Peak Peak Daily Peak Peak Daily Period Period Totals Period Period Totals (6-9am) (3-7pm) (6-9am) (3-7pm) Vehicle Miles Traveled (VMT) 217,289 196,700 1,381,885 209,658 220,668 1,410,026

Vehicle Hours Delay (VHD) 431 5,152 11,019 3,993 562 7,324

Average Travel Time (Min) 20.9 47.3 N.A. 38.2 22.1 N.A.

The level of service (LOS) for existing GP lanes is illustrated in Figure 8 for the AM and PM peak hour. The LOS analysis and evaluations were conducted based on the methodologies described in the Highway Capacity Manual (HCM), 6th Edition. As shown, LOS F conditions are experienced over nearly the entire length of the corridor in the eastbound direction during the PM period.

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Figure 8 - I-105 Existing GP Lanes AM and PM Peak Hour LOS

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2.3.2 Existing HOV Lanes

Table 2 provides a summary of the existing I-105 HOV lane performance measures from the I-105 PA&ED TSR including the peak period and daily VMT and VHD, and peak period average travel times in minutes. Consistent with the pattern for the GP lanes, congestion in the HOV lanes tends to be more severe in the eastbound direction during the PM peak period as evidenced by the higher VHD and average travel times. HOV lanes offer approximately three minutes of travel time savings on average in the eastbound direction during the PM peak and approximately six minutes of travel time savings on average in the westbound direction during the AM peak.

Table 2 - I-105 Existing HOV Lanes Performance Measures

Vehicle Hours Delay (VHD) 147 1,155 2,274 1,391 230 2,159

Average Travel Time (Min) 18.4 44.3 N.A. 32.4 18.2 N.A.

Figure 9 illustrates the LOS for the HOV lanes during the AM and PM peak hours. As shown, there are multiple locations that regularly experience LOS F. Similar to the GP lanes, congestion is typically worst in the eastbound direction during the PM peak period.

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Figure 9 - I-105 Existing Managed (HOV) Lanes (ML) AM and PM Peak Hour LOS

2.4 I-105 CORRIDOR TRANSIT FACILITIES AND EXISTING SERVICES

There are three major transit routes and ten park-and-ride lots along the I-105 corridor as illustrated in Figure 10 and discussed in more detail below.

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Figure 10 - I-105 Park and Ride Lots and Transit Lines

Metro Green Line (Route 803) – This light rail service currently runs from Redondo Beach to Norwalk. It runs partly in the median of I-105 from the Hoxie Avenue Park-and-Ride Lot to Aviation Boulevard/LAX before diverting south to the Redondo Beach station. The Green Line is fully grade- separated and has several stops along I-105 including stations at: Aviation/LAX, Hawthorne/Lennox, Crenshaw, Vermont/Athens, Harbor Freeway (connection to Metro Silver Line), Avalon, Willowbrook (connection to Metro Blue Line), Long Beach Boulevard, Lakewood Boulevard and Norwalk. A free shuttle service is available at the Aviation/LAX station to transport airport passengers to LAX. Currently, the line operates with seven to eight minute headways during peak hours Monday through Friday, 15-minute headways during weekday midday and on weekends, and approximately 20-minute headways during night hours. Ridership on the Green Line has been steadily declining since 2013. Weekday ridership was estimated at 43,115 in 2013 as compared to 30,839 in 2018.

Metro Route 460 – This express bus route primarily serves commuters from the Orange County area to Downtown Los Angeles, which operates on I-105 between I-605 and I-110. This route operates seven days a week with a headway of 21 minutes during peak commute hours Monday through Friday.

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LADOT Line 438 – This is a City of Los Angeles Department of Transportation (LADOT) commuter express bus that connects commuters from the South Bay Cities region to Downtown Los Angeles, which operates on I-105 between Aviation Blvd and I-110. This route provides service Monday through Friday during AM and PM peak periods only, with headways as low as ten minutes.

There are ten (10) park-and-ride lots along the I-105 corridor, listed in Table 3.

Table 3 - Metro Green Line Park and Ride Lots

Parking Name Location Spaces Aviation/LAX 11500 Aviation Blvd, Los Angeles 90045 390 Hawthorne/Lennox 11230 S Acacia St, Inglewood 90304 362 Crenshaw 11901 S Crenshaw Blvd, Hawthorne 90303 513 Vermont/Athens 11603 S Vermont Ave, Los Angeles 90048 155 Harbor Freeway 11500 S Figueroa St, Los Angeles 90048 253 Avalon 11667 S Avalon Blvd, Los Angeles 90067 158 Willowbrook/Rosa Parks 11611 Willowbrook Ave, Los Angeles 90059 231 Long Beach Blvd 11508 Long Beach Blvd, Lynwood 90262 646 Lakewood Blvd 12801 Lakewood Blvd, Downey 90242 414 Norwalk 12901 Hoxie Ave, Norwalk 90650 1792 TOTAL 5175

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Alternative Concepts Considered

The I-105 ExpressLanes Project seeks to convert the existing HOV lanes to express lanes, addressing existing degradation of the HOV lanes as documented in the 2017 California High-Occupancy Vehicle Facilities Degradation Report and Action Plan. This would be accomplished by potentially increasing minimum occupancy requirements for HOVs and/or adding additional lane capacity in conjunction with deploying dynamic pricing as a means to optimize existing capacity, thereby offering greater travel time reliability and enhanced mobility choice to travelers. The Project intends to incorporate Context Sensitive Solutions, where applicable, that integrate and consider community, aesthetic, multimodal and environmental values with transportation safety, maintenance, and performance goals. The Project is expected to yield mobility benefits to commuters and freight traffic alike, through reduced travel times, increased vehicle and passenger throughput and reliability, and reduced delay through active traffic management to optimize freeway speeds throughout the corridor.

The express lanes improvements to the I-105 freeway include two build alternatives, to be compared to Alternative 1 which is a no build scenario. The two build alternatives propose modifications to the existing HOV facility within the corridor by changing the current lane configuration. All three alternatives are briefly described below:

Alternative 1 (No Build) represents the future No Build condition, under which no physical or operational modifications to existing freeway within the project limits would be undertaken.

Alternative 2 (HOV to one express lane) would convert the existing I-105 HOV lane in each direction, from I-405 to I-605, to an ExpressLane with similar lane and shoulder widths.

Alternative 3 (HOV to two express lanes) would convert the existing I-105 HOV lane in each direction, from I-405 to I-605 and add a second lane to operate as two express lanes in each direction.

3.1 ALTERNATIVE 1: NO-BUILD

Alternative 1, the No-Build Alternative, does not include improvements to the existing lane configuration for I-105. Under the No-Build Alternative, no additional travel lanes or ramp improvements would occur. Additional land areas would not be impacted and existing and projected traffic congestion would not be alleviated beyond that associated with other projects in the approved regional transportation plans. The purpose of the No-Build Alternative is only to provide a baseline for comparison with the Build Alternatives. Figure 11 illustrates a typical cross section for the I-105 existing conditions.

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Figure 11 - Alternative 1 – No Build (directional cross section)

Source: Los Angeles Metro, 2019

3.2 ALTERNATIVE 2: CONVERT HOV LANE TO ONE EXPRESSLANE

Alternative 2 involves the conversion of the existing single HOV lane to a single express lane in each direction with standard lane and shoulder widths (12-foot wide ExpressLane, 12-foot wide general- purpose lanes, 12-foot wide auxiliary lanes, 10-foot wide inside and outside shoulders, and 4-foot buffer, respectively). Some of the proposed engineering features include improvements to the corridor such as restriping and widening in some locations to accommodate an additional 12-foot weave as well as installation of foundations and overhead structures to support signage and toll equipment. Additional improvements to the corridor may include physical on-ramp improvements designed for use with ramp meters, as well as outside widening of some existing bridges, changes to existing retaining walls and creation of new retaining walls to avoid right-of-way acquisition. No property acquisition is anticipated for this alternative, as it retains standard 12-foot lane and 10-foot shoulder widths throughout most of the corridor within the confines of the existing Caltrans owned right-of-way.

Alternative 2 will also require the installation of various roadside toll infrastructure, including overhead toll gantries with transponder readers, pavement speed detectors, license plates cameras, and other associated equipment that enable a toll system to automatically collect tolls from customers, set the appropriate toll rate, and support toll evasion enforcement efforts. Additionally, the corridor will require new signage approaching express lane ingress and egress points, including variable toll rate signs that indicate the destinations and toll rates on the express lane, travel time signs, as well as overhead and median signing detailing the accessibility and rules/requirements of the facility. The system would also require complete closed-circuit television coverage of the entire facility and a backhaul fiber network to connect all roadside infrastructure to a centralized toll operations location.

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Figure 12 - Alternative 2 – Convert HOV Lane to Single Express Lane (directional cross section)

Source: Los Angeles Metro, 2019

3.3 ALTERNATIVE 3: CONVERT HOV LANE TO DUAL EXPRESSLANES

Alternative 3 proposes to convert the existing HOV lane to dual express lanes in each direction with non-standard shoulder and lane widths (11-foot wide ExpressLanes, 11-foot wide general purpose lanes, 12-foot wide auxiliary lanes, 2 to 4-foot wide inside shoulder, 10-foot wide outside shoulder, and 2-foot buffer, respectively) in order to accommodate the additional lane. The cross-section for these improvements is shown in Figure 13.

Some of the proposed engineering features include improvements to the corridor such as restriping and roadway widening in some locations to accommodate the dual express lanes, weave lanes, and direct connector ramps. Alternative 3 also proposes new auxiliary lanes where appropriate, as well as maintained stopping sight distance at curves, and non-standard shoulder widths where site constraints exist. Local improvements have also been considered where minimum vertical clearances are not met along the corridor. Further changes to the corridor include physical on-ramp improvements designed for use with ramp meters, as well as outside widening of existing bridges, changes to existing retaining walls and creation of new retaining walls, and new or improved sound walls at multiple locations. Alternative 3 is anticipated to require limited right-of-way acquisitions to accommodate the proposed improvements. The extent of right-of-way acquisitions will be determined as part of the I-105 PA&ED following completion of the recommended preliminary design for this alternative.

Alternative 3 will also require the installation of various roadside toll infrastructure, including toll gantries with transponder readers, pavement speed detectors, license plates cameras, and other associated equipment that enable a toll system to automatically collect tolls from customers, set the appropriate toll rate, and support toll evasion enforcement efforts. Additionally, the corridor will require new signage approaching express lane ingress and egress points, including variable toll rate signs that indicate the destinations and toll rates on the express lane, travel time signs, as well as overhead and median signing detailing the accessibility and rules/requirements of the facility. The system would also require complete closed-circuit television coverage of the entire facility and a backhaul fiber network to connect all roadside infrastructure to a centralized toll operations location.

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Figure 13 - Alternative 3 - Convert HOV Lane to Dual Express Lanes (directional cross section)

Source: Los Angeles Metro, 2019

3.4 OCCUPANCY REQUIREMENTS

Another characteristic of the future build condition still being evaluated is whether to operate the express lanes with a minimum HOV2+ or HOV3+ occupancy requirement. Under an HOV2+ occupancy requirement, single occupant vehicles would pay a toll and all vehicles with two or more occupants would travel toll-free. Under an HOV3+ occupancy requirement, HOV3+ would be allowed free use, and HOV2 vehicles would be required to pay a full or discounted toll. All vehicles would be required to carry a transponder. The Traffic and Revenue (T&R) study and Traffic Study Report for the I-105 ExpressLanes Project will inform the decision to operate at HOV2+ or HOV3+. When this decision is made, the I-105 ExpressLanes ConOps document will be updated to incorporate the adopted occupancy requirement.

3.5 NEXT STEPS

As the Project progresses through the project development process, viable alternatives will continue to be evaluated and refined based on input from the community, stakeholders, and local jurisdictions. The Final Project Report and Environmental Document will serve as the approval mechanism for the “preferred” alternative. It is anticipated that a comprehensive revision to the I- 105 ExpressLanes ConOps will be completed following the completion of the I-105 PA&ED and recommendation of a preferred alternative to incorporate associated findings and updated policy recommendations.

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Facility Design

This section provides an overview of the proposed I-105 ExpressLanes facility and highlights geometric and signing standards that will be applied to the express lanes design for either Alternative 2 or Alternative 3. The design concept discussed in this section is based on the preliminary engineering being performed for the project as part of the PA&ED phase, and further changes and refinements are anticipated to be made during finalization of the Project Report and during the subsequent final design phase. The concepts provided in this chapter do not represent final design decisions. Instead, they are intended to guide final design decisions to promote clarity and consistency for users and stakeholders.

As described in the previous section, Alternative 2 and Alternative 3 would convert the existing HOV lane in each direction of the I-105 into express lanes. Under Alternative 2, the proposed I-105 ExpressLanes is a single lane variant that generally consists of 12-foot express lanes, a 2-foot or 4- foot buffer separating the express lanes from the GP lanes, and roadway widening to accommodate an additional 12-foot weave lane at ingress/egress locations. Under Alternative 3, the proposed I-105 ExpressLanes is a dual lane variant that generally consists of either 12 or 11-foot express lanes, a 2- foot buffer separating the express lanes from the GP lanes, and roadway widening to accommodate 12-foot auxiliary lanes at on-ramps and connectors. Additionally, 12-foot weave lanes at ingress/egress locations are proposed based on traffic forecasts that predict twice as much traffic volume in the dual lane alternative, as well as a preliminary weave analysis that demonstrated the need for weave lanes at most ingress/egress locations.

At certain constrained locations, 11-foot lanes and median and/or outside shoulder width less than the standard 10 feet may be necessary. Deviations from the standard geometric cross sections are under review and will be conceptually approved by Caltrans. A Design Standard Decision Document for these deviations will be prepared for the Preferred Alternative after circulation of the draft environmental document for Caltrans approval.

4.1 ACCESS

The I-105 ExpressLanes facility will have a total of twenty access points, including four entry/termini access points, four access points to and from the I-110 ExpressLanes via direct connector ramps, and twelve intermediate at-grade access points. Additional access points at the I- 605/I-105 Interchange in the form of direct connector ramps are being considered as part of the I-605 ExpressLanes project, but are not included for consideration in this ConOps.

The intermediate, at-grade access points will be designed to the extent feasible in conformance with Caltrans’ Traffic Operations Policy Directive (TOPD) 11-02, with respect to access opening and weaving distance between the access points and the adjacent on- or off-ramp. The TOPD specifies a

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minimum 2,000 feet for access opening and a minimum of 800 feet per each lane change between the access opening and the nearest freeway on-ramp or off-ramp.

The twelve at-grade intermediate ingress/egress access points generally align with the existing access points for the I-105 HOV lanes. A weaving lane (see Figure 14) between the express lane and the GP lanes is proposed at most intermediate at-grade access point in both directions to provide a dedicated lane for speed adjustments between the typically higher speed through traffic in the express lanes and the slower speed of the GP lanes during heavily congested peak periods. In one location, along eastbound I-105 near the Western Avenue overcrossing, a weave lane has been identified to not be feasible due to right-of-way constraints, and a weave zone will be provided instead (Figure 15).

Figure 14 - Typical Weave Lane Design

Figure 15 - Typical Weave Zone Design

For Alternative 3, four access points are modified to incorporate add and drop lane conditions for the additional express lane. Near the beginning of the corridor where the additional express lane is introduced, the existing access points are converted to an ingress-only condition. Conversely, near the end of the corridor where the additional express lane ends, access points are converted to an egress-only condition. This change is described in more detail in the following sections.

The access points for the I-105 ExpressLanes Alternative 3 are depicted in Figure 16 below. Additionally, the sections below provide a summary and sequence of access points in the eastbound and westbound travel directions.

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Figure 16 - I-105 ExpressLanes Access Locations (Alternative 3)

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4.1.1 Eastbound Access

The following table lists the I-105 ExpressLanes access points in the eastbound travel direction. This is followed by a brief description of the changes from the existing I-105 HOV access.

Table 4 - Eastbound I-105 ExpressLanes Access

Access # Location Interchange Served

1 EB near Aviation Blvd – ExpressLane Begins -

EB near Hawthorne Blvd – Alt 3 Ingress (add lane); 2 - Alt 2 Weave Zone Vermont Ave 3 EB near Western Ave – Weave Zone I-110 Central Ave

4 EB at I-110 – EB/NB Direct Connector – Egress I-110N ExpressLanes

5 EB at I-110 – SB/EB Direct Connector – Ingress -

Wilmington Ave 6 EB near Central Ave – Weave Lane Long Beach Blvd I-710 7 EB near Long Beach Blvd – Weave Lane Garfield Ave Lakewood Blvd 8 EB near Paramount Blvd – Weave Lane Bellflower Blvd EB near Bellflower Blvd – Alt 3 Egress (lane drop) I-605 9 Alt 2 Weave Lane

10 EB near Park & Ride Lot – Alt 3 Egress Park & Ride Lot

11 EB at Studebaker Rd – ExpressLane Ends -

(1) At the western limits of the project, the existing I-105 HOV lane begins east of Aviation Blvd, approximately 1,500 feet prior to the I-105/I-405 interchange. The I-105 ExpressLanes will utilize the existing access point as the beginning of the EB ExpressLane.

(2) Near Hawthorne Blvd, the existing condition is an I-105 HOV weave zone allowing ingress and egress into the HOV lane. This is the location where the second EB ExpressLane will be added for Alternative 3 only; therefore, this location will be converted to an ingress-only access point with the addition of the second lane and would not require a weave lane. For Alternative 2, the location would remain a weave zone.

(3) Near Western Ave, the existing condition is an I-105 HOV weave zone. The project team determined a weave lane at this location is not feasible due to right-of-way constraints as well as

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relatively low weave volumes and potential speed differentials. Therefore, the I-105 ExpressLanes will utilize the existing access condition.

(4) Prior to the I-110 interchange, access to the NB I-110 ExpressLanes is provided via a direct connector ramp. The I-105 ExpressLanes will utilize the existing direct connector access condition.

(5) Downstream of the I-110 interchange, access to the EB I-105 HOV lane is provided via direct connector ramp. The I-105 ExpressLanes will utilize the existing direct connector access condition.

(6) Near Central Ave, the existing condition is an I-105 HOV weave lane. The I-105 ExpressLanes will maintain the existing access condition.

(7) Near Long Beach Blvd, the existing condition is an I-105 HOV weave zone. The I-105 ExpressLanes converts the existing weave zone into a weave lane condition.

(8) Near Paramount Blvd, the existing condition is an I-105 HOV weave zone. The I-105 ExpressLanes converts the existing weave zone into a weave lane condition.

(9) Near Bellflower Blvd, the existing condition is an I-105 HOV weave zone. This is the location where the second EB ExpressLane will transition to a GP lane in Alternative 3; therefore, this location will be converted to an egress-only access point for Alternative 3 only. A weave lane is proposed for Alternative 2 at this location.

(10) Prior to the Norwalk Station Park & Ride lot, the existing condition provides access for users in the HOV lane to access the off-ramp to the Park & Ride lot. The existing condition also allows GP lane vehicles to access the Park & Ride lot via an access point from the GP lanes to the HOV lane. Alternative 3 proposes to preserve the access to the Park & Ride lot from the express lane and the GP lanes. This is proposed to be accomplished via striping that allows express lane vehicles to merge right and access the Park & Ride lot. Access from the GP lanes will also be maintained, although striping will be used to convert the existing access point to a trap lane that requires all vehicles to exit for the Park & Ride lot.

(11) At the eastern project limits, the existing I-105 HOV lanes end at Studebaker Rd. The ConOps includes diagrams that include conversion of the Studebaker HOV ramps to express lanes. This is further described in Section 4.12 but is pending ongoing discussions with the City of Norwalk.

4.1.2 Westbound Access

The following table lists the I-105 ExpressLanes access points in the westbound travel direction. This is followed by a brief description of the changes from the existing I-105 HOV access.

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Table 5 - Westbound I-105 ExpressLanes Access

Access # Location Interchange Served

12 WB at Studebaker Rd – ExpressLane Begins -

WB near Bellflower Blvd – Alt 3 Ingress (add lane); 13 - Alt 2 Weave Lane Long Beach Blvd 14 WB near Gertrude Dr – Weave Lane Wilmington Ave Central Ave I-110 15 WB near Central Ave – Weave Lane Vermont Ave

16 WB at I-110 – WB/NB Direct Connector – Egress I-110N ExpressLanes

17 WB at I-110 – SB/WB Direct Connector – Ingress -

Crenshaw Blvd 18 WB near Western Ave – Weave Lane Prairie Ave Hawthorne Blvd I-405 WB near Hawthorne Blvd – Egress (lane drop for 19 La Cienega Blvd Alternative 3 only) Imperial Hwy

20 WB near Aviation Blvd – ExpressLane Ends -

(12) At the eastern limits of the project, the existing I-105 HOV lanes begin at the ramp from Studebaker Rd. The ConOps includes diagrams that include conversion of the Studebaker HOV ramps to ExpressLanes. This is further described in Section 4.12 but is pending ongoing discussions with the City of Norwalk.

(13) Near Bellflower Blvd, the existing condition is an I-105 HOV weave zone allowing ingress and egress into the HOV lane, although this location effectively serves to provide ingress only due to proximity to the start of the HOV lane. This is the location where the second WB ExpressLane will be added for Alternative 3; therefore, this location will be converted to an ingress-only access point with the addition of the second lane for Alternative 3 only. This access location will be converted to a weave lane for Alternative 2 only.

(14) Near Gertrude Dr, the existing condition is an I-105 HOV weave zone. The I-105 ExpressLanes converts the existing weave zone into a weave lane condition.

(15) Near Central Ave, the existing condition is an I-105 HOV weave zone. The I-105 ExpressLanes converts the existing weave zone into a weave lane condition.

(16) Prior to the I-110 interchange, access to the NB I-110 ExpressLanes is provided via a direct connector ramp. The I-105 ExpressLanes will utilize the existing direct connector access condition.

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(17) Downstream of the I-110 interchange, access to the WB I-105 HOV lane is provided via direct connector ramp. The I-105 ExpressLanes will utilize the existing direct connector access condition.

(18) Near Western Ave, the existing condition is an I-105 HOV weave lane. The I-105 ExpressLanes will utilize the existing access condition.

(19) Near Hawthorne Blvd, the existing condition includes a separate dedicated egress lane to facilitate traffic exiting the HOV lanes destined to the I-405 freeway system interchange ramps. The I-105 ExpressLanes will utilize the existing egress condition for Alternative 2 and Alternative 3. This is the location where the second WB express lane will transition to a GP lane in Alternative 3; therefore, this location will serve to provide the lane drop in conjunction with the dedicated egress- only lane for Alternative 3.

(20) At the western project limits, the existing I-105 HOV restriction ends approximately 1,500 feet prior to the I-105/I-405 interchange, and the lane ends in a merge condition downstream. Alternative 3 will extend the limits of the express lane approximately 3,000’ through the interchange with a skip stripe to allow vehicles to exit along the entire length.

4.2 SEPARATION TREATMENT

Striping for the express lanes will be typical for freeway lanes, in compliance with the California Manual on Uniform Traffic Control Devices (CAMUTCD). Under Alternative 2 with a single express lane in each direction, striping will consist of a solid yellow line on the left edge of travel way (next to the inside shoulder) and one to two sets (depending on location) of double-white lines as buffer striping separating the express lanes from the GP lanes, as shown in Figure 17. Under Alternative 3, with two express lanes in each direction, a dashed white lane line will be used between the two express lanes.

The proposed I-105 ExpressLanes will be separated from the GP lanes through buffer striping in combination with channelizers wherever possible. The Caltrans TOPD 11-02 states that the recommended buffer width separating managed lanes from adjacent GP lanes is 4 feet; however, this width may be reduced as outlined in the priority listing in Section 3.10 of the 2018 Caltrans’ HOV Guidelines. Per the Guidelines, reduction of the buffer width from 4 to 2 feet is recommended before considering reduction of other geometric elements below the standard, i.e. lane and shoulder widths.

Based on the preliminary cross section, a buffer width of 4 feet is proposed for the single lane variant, referenced previously as Alternative 2. Due to right of way and physical constraints, the dual lane alternative, referenced previously as Alternative 3, will utilize a 2-foot buffer. The striping details will be consistent with Striping Detail 44 and Detail 45 in the 2014 CAMUTCD, as shown in Figure 17.

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Figure 17 - 2-Foot and 4-Foot Buffer Striping

Note: Per the MUTCD, an 8-in separation between white stripes will create a 2-foot buffer. Source: 2014 CAMUTCD Detail 44

Source: 2014 CAMUTCD Detail 45

Pending further analysis, channelizers may be used in conjunction with striping. The key objectives of installing channelizers are to:

 Improve safety for all freeway users

 Promote greater equity among express lanes users by discouraging behaviors that facilitate toll evasion

 Increase compliance with applicable policies and California law regarding illegal access to and egress from the express lanes The 2-foot buffer striping (Detail 44) above can be used in conjunction with channelizers located in the 8-inch gap between the 8-inch white stripe lines. For the 4-foot buffer (Detail 45), channelizers would be placed within the 10-inch buffer space. Vehicles are not permitted to cross into or out of the express lanes when they are separated from the GP lanes by a painted buffer or channelizers. Crossing the buffer is a moving violation under the California Vehicle Code (CVC), and drivers are subject to a penalty if the double white lines are crossed. An example of channelizers used for lane separation is shown in Figure 18 below.

Figure 18 - Channelizers Used for Lane Separation

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4.3 CALIFORNIA HIGHWAY PATROL OBSERVATION/ENFORCEMENT

CHP observation areas and enforcement areas are ideally placed downstream and in close proximity to each tolling point for CHP officers to perform enforcement. CHP observation areas are ideally 14 feet wide, 1,000-1,300 feet long and provide opportunities for CHP to observe the express lanes operation and assess potential violations safely.

Due to limited right of way and the physical constraints of the existing Metro Green Line LRT in the median, CHP observation areas have been incorporated into the build alternatives near the existing Green Line LRT maintenance gates. These locations provide additional median width for Green Line maintenance vehicles to access the tracks and could potentially serve as locations for CHP observation areas. Figure 19 below shows a typical configuration of an existing Metro Green Line LRT maintenance gate. To facilitate enforcement, toll gantries and enforcement beacons will be co- located with CHP observation areas wherever feasible.

Figure 19 - Existing Metro Green Line Maintenance Gate

CHP Enforcement areas where CHP can pull vehicles over on inside shoulder are not proposed as part of the Project. Incorporation of CHP Enforcement Areas at interchange on-ramps modified by the Project that would not require additional right-of-way will be further evaluated during the subsequent phase for the “preferred” alternative.

In addition, Metro plans to implement an automated vehicle Occupancy Detection System (ODS) proof of concept on the I-10 and I-110 ExpressLanes to ensure compliance with express lanes toll policies and occupancy requirements. Provisions for the ODS, if used for the I-105 ExpressLanes, will need to be evaluated in subsequent phases. Additional information on ODS is provided in Section 9.4.3.

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4.4 LIGHTING

Per Caltrans TOPD 11-02, managed lanes facilities should provide lighting for each access opening to facilitate decision making and lane changing during dark hours. On the I-105 freeway, it is likely that the existing Metro Green Line LRT will preclude the installation of a median lighting at each access point due to the presence of high-voltage overhead catenary cables and the potential for light poles to interfere with the catenary cables in the event a pole is dislodged due to a collision. Similar to the I-210 Barrier Replacement Project, this project will likely pursue a lighting elimination exemption, and will use the I-210 exemption as a template for approval. Lighting needs along the corridor will be further evaluated as the project progresses forward, and any deviation from the TOPD 11-02 guidance will be appropriately documented for approval from Caltrans.

4.5 EXPRESS LANES SIGNAGE

The signage considerations discussed in this report are preliminary and subject to change. Detailed signage plans for the I-105 ExpressLanes will be developed during the final design phase. Overhead and roadside signs will be used along the express lanes facility to guide motorists, display toll information, and indicate regulatory information. Where possible, the final sign design will make considerations to deter unnecessary sign clutter, as well as utilize existing HOV lane sign structures where possible. Ultimately, the express lanes signage will conform to the most recent edition of the CAMUTCD, and any deviations will require a review of substantial conformance to the CAMUTCD by FHWA and Caltrans.

4.5.1 Signage at Entry Points

A sequence of advance overhead signs will be installed in advance of the start of the I-105 ExpressLanes to advise motorists that there is an upcoming entry point into the express lanes, that it is a toll facility, and that a FasTrak® transponder is required. The CAMUTCD calls for an overhead “Express Lanes Entrance” guide sign to be installed at two miles, one mile, and one-half mile in advance of an express lanes entry point, followed by the “Express Lanes Entrance with diagonal arrow” sign at the point of entry, as shown in Figure 20. All advisory “LEFT” plaques are required to be standalone panels above the guide sign, as shown in the figures below. Due to physical constraints, sign clutter, access spacing, required weaving distances, and other physical characteristics considered during the design stage, not all overhead advance signage may be able to be applied.

Figure 20 - Example Advance Sign at Express Lane Entry

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In addition to the entrance signs, an overhead regulatory sign will be installed at the start of every entry point as shown in Figure 21.

Figure 21 - Example Regulatory Sign at Express Lane Entry

4.5.2 Signage at Intermediate Access Points

In locations where intermediate access to and from the express lanes is provided, signs will be installed in advance of the access points to inform motorists in the GP lanes of an upcoming opportunity to enter the express lanes, as well as to inform motorists in the express lanes of the upcoming exits. The CAMUTCD calls for an overhead “Express Lanes Entrance” guide sign to be installed at one mile and one-half mile in advance of an ingress point, followed by an “Express Lanes Entrance with diagonal arrow sign” at the point of ingress, as illustrated in Figure 22. As discussed previously, the final design may have to omit overhead signage deemed unfeasible due to sign clutter or physical constraints along the corridor, subject to approval from Caltrans and FHWA.

Figure 22 - Example Advance Sign at Intermediate Ingress

For exits from the express lanes, median post-mounted exit signs similar to those currently used for limited access HOV facilities throughout Southern California will be installed displaying names of downstream exits, as shown in Figure 23 below.

Figure 23 - Example Advance Sign at Intermediate Egress

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4.5.3 Signage at Termini

A sequence of overhead and roadside signs will be installed upstream of the terminus of the express lanes to advise motorists that the express lanes end ahead. Overhead “Express Lane Ends” signs will be installed approximately one-half mile upstream of the express lanes termini and near the end of the express lanes restriction. Figure 24 depicts an example overhead sign indicating the end of the express lanes restriction that is currently used on the I-10 ExpressLanes.

Figure 24 - Example Express Lane Ends Sign at Terminus

4.5.4 Signs Indicating Requirements and Restrictions

Additional corridor signage will also be required to communicate specific requirements or restrictions associated with the express lanes. These signs are usually post-mounted in the median at regular intervals along the express lanes corridor. Express lane regulatory signs identifying fines for occupancy violations will be used to help reduce occupancy violations, and signs displaying “Do Not Cross Double White Lines” messages will also be posted at regular intervals, as shown in Figure 25.

Figure 25 - Example Sign Specific Requirements

Post-mounted signage may be considered to reiterate the FasTrak® Flex requirement for eligible carpools to obtain the toll benefit. The signage depicted in Figure 26 provides an example of a post- mount sign used on Metro’s existing facilities. The example sign in Figure 26 may be modified for the I-105 ExpressLanes to include the FasTrak® Flex logo consistent with the specific requirement to use a switchable transponder to obtain carpool benefits within the respective corridors. However, the signs on the Metro I-10 and I-110 ExpressLanes in Los Angeles County do not currently display the

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FasTrak® Flex logo because the “Flex” logo was designed after the I-10 and I-110 signs had been installed and the facilities opened for service.

Figure 26 - Example Express Lane Transponder Requirement Sign on I-110

The signage discussed in the document conforms to the current operational rules that require transponders. If license plate tolling (referred to as “Pay-as-you-Go” by Metro) were to be implemented in the future, which would allow motorists to use express lanes without a transponder, the signage would likely require changes to accommodate additional requirements of the program.

4.5.5 Informational Signs

Full matrix dynamic message signs (DMS) may be installed to provide additional information to the express lane users such as travel times, weather advisories, incident notifications, and emergency notifications (see example in Figure 27). For example, DMS may be installed in advance of the start of the express lanes to provide comparative travel times between the express lanes and GP lanes. The exact number and locations of informational signs will be determined during the final design phase in collaboration with Caltrans and Metro.

Figure 27 - Informational DMS on SR-91

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4.6 TOLL RATE SIGNS

The existing I-10 and I-110 ExpressLanes utilize full matrix DMS to display destinations and toll prices to customers, shown in Figure 28 below.

Figure 28 - Existing Full Matrix Toll Rate Sign

Metro’s preference for future corridors is to install static sign panels with dynamic inserts to display toll rates. An example of these signs is shown in Figure 29 below. As required by the CAMUTCD, the signs will be installed upstream of each ingress point into the I-105 ExpressLanes to communicate the toll prices to travel to specific locations along the I-105 ExpressLanes. Additionally, a dynamic message panel may be included at the bottom of all or some of the sign panels to display express lane information as appropriate.

Figure 29 - Example Static Toll Rate Sign

4.6.1 Proposed Toll Rate Sign Destinations

Metro’s preference for express lane toll rate signs is to display prices for the next and last destinations along the facility. This means that users can expect to see a toll rate sign that displays

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the price to the most immediately available destination, and the price to travel the corridor in its entirety. The “next and last” approach accounts for the two destinations allowed per sign, which is the maximum allowed per CAMUTCD.

The I-105 ExpressLanes interface with the existing I-110 ExpressLanes and the termination at Studebaker Rd create two unique situations with respect to pricing signs. These challenges are discussed in more detail in Section 4.11 and Section 4.12. Based on recommendations from this discussion, toll rate destination signing for Alternative 3 is shown in Figure 30 below.

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Figure 30 - Proposed I-105 Toll Rate Sign Destinations (Alternative 3)

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From an operational standpoint, the content of the toll rate signs must be accurately displayed on a real-time basis. The toll amount displayed when a vehicle passes a toll rate sign must be aligned with the actual toll charged to the customer. There is usually a delay between the time a driver sees the toll rate sign and the time the vehicle’s transponder is read in the express lanes. Business rules are in place to ensure that the amount a driver sees prior to entering the express lanes is the maximum amount charged for use of the express lanes.

4.7 TRANSIT INTEGRATION

The addition of express lanes along I-105 provides opportunities to enhance existing transit services as well as encourage transit agencies to implement future bus services and routes. The pricing feature of the express lanes will provide the ability to better manage traffic demand and, coupled with future occupancy detection systems for compliance monitoring and changes to CAV eligibility for free passage in the lane, can help prevent the onset of congestion in the express lanes and therefore improve the travel time trip reliability. Transit services will be able to use the express lanes with faster travel times and improved reliability. Provisions for expanded transit services also help address equity concerns with pricing.

Transit buses will be eligible for the Metro ExpressLanes Non-Revenue Program, which allows certain fleets of emergency, transit, and maintenance vehicles to associate license plate information with a non-revenue account. In this way, non-revenue vehicles do not have to have a transponder. When a non-revenue vehicle travels in the express lanes, the system captures an image of the license plate and automatically posts the transaction to the non-revenue account.

In addition to the mobility benefits to transit services, and per state law, gross toll revenue generated through the I-105 ExpressLanes would be reinvested back into the corridor. However, revenues generated would first be used to cover direct expenses related to the maintenance, administration, and operation, including marketing, toll collection, and enforcement activities related to the ExpressLanes. Any remaining revenue would be reinvested in projects and services that provide traffic congestion relief in the corridor.

4.8 OTHER PHYSICAL IMPROVEMENTS

Outside widening is required along I-105 to accommodate the conversion from existing HOV lanes to an express lanes facility with striped buffer, access point weave lanes, and the additional express lanes under Alternative 3.

The needs for power and communications systems are currently under evaluation, and may be shared with Caltrans. The design of these systems will be determined during the design phase of the project.

Operations of the I-105 ExpressLanes will also require facilities that are not part of the freeway facility, including a Traffic Management Center (TMC) and Customer Service Center (CSC), as well as the potential need for accessing electrical power and/or communications systems outside of the existing Caltrans right-of-way.

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4.9 TOLL SEGMENTS

The I-105 ExpressLanes will be divided into toll segments, and separate toll rates will be applied for each segment. For the purpose of pricing and signage, toll segments for the I-105 ExpressLanes corridor are generally defined as segments between EB and WB access points, as shown in Table 6 and Table 7. Dividing the corridor into toll segments provides greater flexibility to manage demand and gives users more flexibility to choose how long to travel in the express lanes.

Table 6 - EB Toll Segments

Toll Begin Location End Location Segment EB1 Aviation Blvd Hawthorne Blvd EB2 Hawthorne Blvd Western Ave EB3 Western Ave Central Ave EB4 Central Ave Long Beach Blvd EB5 Long Beach Blvd Paramount Blvd EB6 Paramount Blvd Bellflower Blvd EB7 Bellflower Blvd Studebaker Rd

Table 7 - WB Toll Segments

Toll Begin Location End Location Segment WB1 Studebaker Rd Bellflower Blvd WB2 Bellflower Blvd Long Beach Blvd WB3 Long Beach Blvd Central Ave WB4 Central Ave Western Ave WB5 Western Ave Prairie Ave WB6 Prairie Ave Aviation

Each toll segment will include a tolling point consisting of the toll equipment needed to detect vehicles and assess the segment toll. The proposed locations of toll gantries specifically for the I-105 ExpressLanes Alternative 3 are shown in Figure 31. As shown, two tolling points will be required on the I-110 SB connectors feeding into the I-105 ExpressLanes as further described in Section 4.11.

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Figure 31 - Proposed Toll Gantry Locations (Alternative 3)

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4.10 TOLLING INFRASTRUCTURE REQUIREMENTS

Express lanes require various infrastructure elements to support toll system equipment. Important items to consider during the design phase include the following:

Loading and vibration requirements – The design of overhead structures should take into consideration the weight of all toll equipment to be attached, including Automatic Vehicle Identification (AVI), Violation Enforcement System (VES), Digital Video Audit System (DVAS) and CHP enforcement beacon equipment. These equipment are described in greater detail in Chapter 9. Some toll equipment, such as laser scanners used as a failsafe system to trigger the presence of a vehicle approaching a toll zone, can only tolerate minimal vibration to perform appropriately.

Cabinet placement – The placement of cabinets should take the following into consideration:

Distance from toll equipment – For certain toll system equipment such as pricing signs, cabinets should ideally be located such that cable length runs are no longer than 300 feet. This limitation is related to the particular type of cable being used. Otherwise, special design and installation aspects may be needed that can add to cost, especially considering the presence of the Metro Green Line LRT in the median of the I-105 which will likely limit or preclude the ability to locate cabinets within the median to maintain necessary vehicle clearances.

Pricing sign visibility – Pricing sign controller cabinets should be located upstream and in view of the pricing sign being controlled. This allows maintenance/testing personnel to view the pricing sign while accessing the controller.

Access – Steep grades, landscaping elements and protection from general purpose lane traffic should be taken into consideration when determining cabinet placement so that cabinets can be accessed safely and easily by maintenance/testing personnel. The ability to access equipment cabinets without the need to close travel lanes should also be a major consideration.

Placement – Cabinets and other toll equipment must be placed outside of the clear recovery zone or be protected by attenuation barrier or rail.

Power service – Power service locations should be confirmed early in the design process to inform the layout of toll equipment in the corridor. Depending on the distance to a power source and the toll equipment being powered, considerations may be needed for step-up and step-down transformers. Accommodations for sheltered, secure spaces to place back-up power generators should also be considered.

Toll readers – The following should be considered for the placement of equipment used to detect in-vehicle toll tags:

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Toll tag antennas typically require 18 to 20 feet of vertical clearance from the roadway surface and need to be centered over the express lanes.

Ideally, antennas should not be located along horizontal curves or in areas where there is radio frequency (RF) interference. An RF survey is typically conducted to determine where there is interference along the corridor.

CCTV coverage – Closed Circuit Television (CCTV) cameras should be installed that are dedicated for viewing express lane operations and placement should allow for viewing of the entire corridor. Where appropriate, CCTVs should be spaced roughly one per mile, while also allowing CCTV coverage of toll sign information to ensure prevailing toll rates are displayed correctly and can be verified as the basis for enforcement actions. Elements such as vertical and horizontal curvature, overpasses and trees should also be considered when determining CCTV camera placement and frequency.

4.11 I-105/I-110 INTERCHANGE

The I-105 ExpressLanes will connect to the existing I-110 ExpressLanes at the I-105/I-110 interchange. Here, existing direct connect ramps connect four interfacility ExpressLanes travel movements. With the inclusion of the I-105 ExpressLanes, there are several challenges that will affect destination pricing and tolling at the interchange. The existing direct connector ramps are shown in more detail in Figure 32 below.

No direct connect ramps exist from NB I-110 to the I-105. Vehicles on the NB I-110 wishing to use the I-105 ExpressLanes will be required to use the general-purpose ramps and enter into the ExpressLanes at the next available ingress location.

Figure 32 - I-110/I-105Direct Connector Ramps

4.11.1 I-105 EB to I-110 NB

In its existing condition, I-105 motorists traveling in the EB direction see a toll rate sign prior to the I-110 interchange that lists the price to travel to 39th Street and Adams Street, which are the next and last northbound I-110 ExpressLanes destinations. With the inclusion of the I-105 ExpressLanes,

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and adhering to the “next and last” approach, this would require an additional two destinations for travel in the I-105 ExpressLanes, resulting in four downstream destinations.

Providing four destinations on a single toll rate sign is not recommended, and would also not conform to CAMUTCD guidelines. Instead, the number of priced destinations can be reduced to two by displaying one destination for I-110 and one destination for I-105 as follows:

 For I-110, it is recommended that the price shown only be for use of the next segment immediately accessible using the I-110NB direct connector, rather than for destinations further downstream, such as 39th Street or Adams Street, as is currently done. This recommendation is consistent with the approach described in the SCAG Regional Express Lanes ConOps related to pricing for direct connectors, which is to display the price to the destination immediately downstream of an inter-facility direct connector. The destination shown could reference the interchange immediately accessible on I-110N (e.g., Florence via I- 110N). To simplify decision-making by express lane users, the destination could simply be shown as I-110 North.

 For I-105, it is recommended that the price shown be to I-605, which is the major destination near the end of the facility. Although Studebaker Road is the true end of the facility, it is not recommended to display and lock in prices for use of the Studebaker ramps at locations that are far upstream and not a major destination. Instead, the price to Studebaker would only be shown upon approaching the last intermediate access point in the eastbound direction.

4.11.2 I-105 WB to I-110 NB

Similar to the eastbound direction, in the current condition, I-105 motorists traveling in the WB direction see a toll rate sign prior to the I-110 interchange that lists the price to travel to 39th Street and Adams Street. As described above, the recommended solution is to include a single destination for I-110 North and a single destination for I-105 to limit the total number of destinations shown to two. The destination shown for I-105 should be the end of the facility, which is Aviation/LAX.

4.11.3 I-110 SB to I-105

In its existing condition, I-110 ExpressLanes users traveling in the SB direction see a toll rate sign prior to the I-105 interchange that lists the price to travel to I-105 and SR-91. The price currently shown for I-105 applies to the eastbound and westbound connectors and is set by the I-110 ExpressLanes toll system. With the implementation of the I-105 ExpressLanes, it is desired to set separate toll rates for the eastbound and westbound movements, and for the I-105 ExpressLanes toll system to set the toll rates. This will allow the I-105 ExpressLanes toll system to separately manage demand for each movement onto the I-105 ExpressLanes from the I-110 ExpressLanes. Therefore, three destinations will be needed: one for the end of the I-110 SB ExpressLanes, one for taking the connector to the I-105 EB ExpressLanes, and one for taking the connector to the I-105 WB ExpressLanes. How the three destinations are shown, whether on one sign or on separate signs, will require review and approval by Caltrans and FHWA given the restriction in the CAMUTCD to display no more than two destinations. Figure 30 illustrates possible alternatives for both one-sign and two-sign messaging implemented at this location.

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4.11.4 Toll System Considerations

As discussed in the section above, an objective of the I-105 ExpressLanes project is to ensure the I- 105 and I-110 ExpressLanes systems can manage demand on their respective corridors. This will require evaluating the existing toll gantries installed as part of the I-110 ExpressLanes, and determining how the system can be modified so that the I-110 and I-105 ExpressLanes operate as standalone systems. The following are initial recommendations to accommodate this goal.

I-110 Southbound Toll Read Points

Currently, toll read points on SB I-110 prior to the I-105 interchange are capable of distinguishing vehicle movements as follows (refer to Figure 33):

(A): This toll point cannot differentiate between vehicles traveling through to continue in the I-110 ExpressLanes and vehicles exiting to EB I-105 since it is located upstream of the EB I- 105 connector ramp.

(B) This toll point detects vehicles traveling to I-105WB.

Figure 33 - Existing SB I-110 Read Point Configuration

To allow the I-105 ExpressLanes toll system to distinguish vehicles traveling EB or WB from either connector, the following improvements are recommended (refer to Figure 34):

(1) Install a new toll point somewhere on the EB I-105 connector to identify vehicle movements onto the EB I-105 ExpressLanes (location shown in Figure 34 is conceptual only).

(2) Install a new toll point somewhere on the WB I-105 connector to identify vehicle movements onto the WB I-105 ExpressLanes (location shown in Figure 34 is conceptual only).

(3) An alternative to recommendation 2 is to repurpose the I-110 SB toll point to become part of the I-105 ExpressLanes system, to detect vehicle movements onto the WB I-105 ExpressLanes. This alternative would require further evaluation for feasibility.

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(4) Although not part of the I-105 ExpressLanes project scope, to better improve the capabilities of the I-110 system, installing a new read point on SB I-110 would allow the I-110 ExpressLanes system to identify vehicles that do not exit for I-105 and continue in the I-110 ExpressLanes.

Figure 34 - Proposed SB I-110 Read Point Configuration

I-110 Northbound Toll Read Points

Although not part of the I-105 ExpressLanes project, potential improvements to the I-110 were identified for potential consideration. Currently, toll read points on NB I-110 downstream of the I- 105 interchange are not capable of distinguishing different vehicle movements. In order for the I-110 ExpressLanes system to be capable of separately managing demand for each of the connector movements, the configuration of these read points would need to be changed. The existing and recommended configuration for these toll read points is described below.

(C) This toll point is currently not capable of distinguishing between vehicles originating on I- 110 and vehicles originating on I-105 (see Figure 35).

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Figure 35 - Existing NB I-110 Read Point Configuration

To allow the I-110 system to distinguish vehicles from NB I-110 versus the EB/WB I-105, the following improvement has been identified for future consideration:

Install channelizers along the NB I-110 ExpressLanes prior to the transponder read point, effectively allowing the read point to categorize motorists in the left lane as I-105 traffic, and those in the right lane as I-110 traffic (see Figure 36 below). This recommendation may also require the need to taper and restripe the lane to allow for space for a channelized buffer.

Figure 36 - Proposed NB I-110 Channelizers

4.12 STUDEBAKER ROAD

At the eastern limit of the I-105 ExpressLanes project, the HOV lane terminates in a unique manner at the Studebaker Road interchange. The I-105 ExpressLanes proposes modifying the termini and existing HOV entrance at Studebaker Road. These recommendations are described in the following sections.

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4.12.1 Eastbound Termini

In the eastbound direction, access to the Norwalk Station Park & Ride is provided for vehicles in the existing HOV lane and the GP lanes. Access to the Park & Ride lot from the GP lanes is provided via an HOV lane upstream of the off-ramp to the Park & Ride lot (see yellow lane in Figure 37). With the conversion to express lanes, this access point from the GP lanes is proposed to remain so that access to the Park & Ride facility by carpools and buses in the GP lanes is not impacted. However, striping is proposed to preclude vehicles that enter from the GP lanes from being able to access the express lane to Studebaker Rd. This striping detail would include a skip-strip to the left of a solid line to indicate that vehicles in the right lane are not permitted to cross over into the leftmost express lane. In this way, the striping will convert the GP lane access point to a trap lane that takes vehicles to the Park & Ride off-ramp. The striping detail will permit vehicles already in the express lane to access the Park & Ride off-ramp by merging into the right lane. Any vehicle destined for the Park & Ride lot will not be charged a toll because the proposed location of the toll read point is located further downstream.

The proposed changes in this section will require an amendment to the existing Caltrans-Norwalk freeway agreement – for more information on this agreement, please see Section 6.3.4.

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Figure 37 - Proposed Studebaker Rd Access

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4.12.2 Westbound Entry

The entrance of the existing HOV facility is along Studebaker Road where existing signage in the median of Studebaker Rd informs motorists of the HOV restriction to turn right or left onto the I-105 ramp. These signs are proposed to be replaced with pricing signs that display the toll to travel to the next and last destination in the I-105 ExpressLanes. Downstream of Studebaker Rd, two on-ramps join the mainline, one from Imperial Hwy and one from Hoxie Ave. Vehicles entering from either of these on-ramps would see the sequence of signage indicating an entrance point ahead at Bellflower Blvd.

4.12.3 Additional Considerations

Currently, the eastbound lanes passing Bellflower Blvd and the I-605/I-105 interchange regularly experience slower speeds and low levels of service (LOS) during the peak hours of travel, according to the I-105 TSR. Furthermore, each of the surrounding intersections near the terminus of the freeway all experience degraded conditions during both peak hours as well. There are ongoing commitments by Caltrans to improve mobility and safety in this area.

To manage demand onto Studebaker, an eastbound toll segment will charge users who do not exit the lane at Bellflower Blvd and continue to the end of the express lane to Studebaker Rd. Similarly, to manage demand from Studebaker, a westbound toll segment will record users who enter the express lanes from Studebaker Rd. Westbound drivers who enter from Imperial Hwy or Hoxie Ave will not have access to the express lanes until the access point at Bellflower Blvd, which may require a channelized buffer to prevent immediate entrance into the express lane. Sufficient pavement width would be required to install the channelized buffer.

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Traffic Modeling and Performance

This chapter summarizes the results of the traffic modeling analysis that was performed in support of the PA&ED effort. Further details about the traffic modeling effort can be found in the I-105 ExpressLanes Project Approval and Environmental Document Traffic Study Report. Additional traffic modeling to support the preparation of revenue forecasts are currently being prepared. The results of the traffic and revenue (T&R) forecasting effort is anticipated to be incorporated into the I- 105 ExpressLanes ConOps during the comprehensive review that is expected to occur at the completion of the I-105 PA&ED.

5.1 SUMMARY OF TRAFFIC MODELING

The future traffic forecast is based on the SCAG Regional Travel Demand Model (RTDM) that was used to estimate future traffic volumes by vehicle class (e.g., drive-alone autos, shared-ride vehicles, trucks) for the network of roadways covering the study area. The RTDM produces average daily traffic volumes for the regional highway network broken down by five time periods as follows:

AM peak — 6:00 A.M. to 9:00 A.M.

Midday — 9:00 A.M. to 3:00 P.M.

PM peak — 3:00 P.M. to 7:00 P.M.

Evening — 7:00 P.M. to 9:00 P.M.

Night — 9:00 P.M. to 6:00 A.M.

Travel demand forecasts were prepared for each of the three alternatives for years 2027 and 2047; one No Build Alternative and two build alternatives:

Alternative 1 – No Build

Alternative 2 – Single express lane in each direction along I-105

Alternative 3 – Two express lanes in each direction along I-105

For the purposes of the evaluation, Alternative 1 maintained the current HOV minimum eligibility requirement of two or more persons per vehicle (HOV2+). For Alternative 2, the evaluation considered the effects of increasing the minimum occupancy requirement to HOV3+ in conjunction with the introduction of variable pricing allowing other users not qualifying as HOV to access the facility for a toll, thereby providing a means to better manage demand for the proposed express lane. For Alternative 3, the addition of a second lane in each direction provides additional managed lane

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capacity allowing the corridor to be evaluated with an HOV2+ minimum occupancy requirement, and variable pricing utilized to allow SOV users to access the facility for a toll.

GP and express lanes performance measures including peak period and daily VMT and VHD, and average travel times for each alternative for years 2027 and 2047 were assessed and presented in the I-105 PA&ED TSR. As with the existing conditions, the LOS analysis and evaluations were conducted based on the methodologies described in the HCM, 6th Edition.

5.2 FUTURE CONDITIONS – 2027

The following sections summarize the modeling results for year 2027 for the GP lanes and express lanes.

5.2.1 General Purpose Lanes

Performance measures for the three alternatives are summarized in Table 8 for the eastbound and westbound GP lanes. The daily VMT in the eastbound and westbound directions are relatively consistent between the three alternatives in 2027, although Alternative 3 has the least daily VHD of the alternatives. Alternative 3 is also expected to have shorter travel times than both Alternatives 1 and 2.

In the Alternative 1 No Build scenario, nearly the entire length of the freeway is forecasted to be congested at LOS ‘F’ during the directional peak periods in 2027. Alternative 3 is expected to have the most improvement over Alternative 1, with the least number of segments with LOS ‘E’ or ‘F’, in year 2027.

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Table 8 - I-105 GP Lanes 2027 Performance Measures

5.2.2 Managed Lanes

Performance measures for the three alternatives are summarized in Table 9 for the eastbound and westbound managed lanes. The daily VMT in the eastbound and westbound directions are relatively consistent between Alternatives 1 and 2, with Alternative 3 carrying nearly double the VMT of the other two alternatives as a result of additional capacity in the express lanes. Despite carrying more vehicles and significantly greater VMT, Alternative 3 has less daily VHD than Alternative 1.

In the Alternative 1 No Build scenario, the majority of the segments are forecasted to be congested or operate at LOS ‘F’ during the directional peak periods. Nearly the entire HOV facility operates at LOS ‘D’ or better under the build alternatives during both AM and PM peak hours.

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Table 9 - I-105 Managed Lanes 2027 Performance Measures

5.3 FUTURE CONDITIONS – 2047

The following sections summarize the modeling results for year 2047 for the GP lanes and express lanes.

5.3.1 General Purpose Lanes

Performance measures for the three alternatives are summarized in Table 10 for the eastbound and westbound GP lanes. The daily VMT in the eastbound and westbound directions are relatively consistent between the three alternatives in 2047. While daily VMT is approximately 1.5 million for the alternatives, Alternative 3 has the least daily VHD of the alternatives. By 2047, Alternative 3 is expected to produce a 25% reduction in VHD from Alternative 1. Alternative 3 is also expected to have shorter travel times than both Alternatives 1 and 2.

In the Alternative 1 No Build scenario, nearly the entire length of the freeway is forecasted to be congested at LOS ‘F’ during the directional peak periods in 2047. Alternative 3 is expected to have the most improvement over Alternative 1, with the least number of segments with LOS ‘E’ or ‘F’, in year 2047.

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Table 10 - I-105 GP Lanes 2047 Performance Measures

5.3.2 Managed Lanes

Performance measures for the three alternatives are summarized in Table 11 for the eastbound and westbound managed lanes. The daily VMT in the eastbound and westbound directions are relatively consistent between Alternatives 1 and 2, with Alternative 3 carrying nearly double the VMT of the other two alternatives. Despite carrying more vehicles and significantly greater VMT, Alternative 3 has less daily VHD than Alternative 1.

In the Alternative 1 No Build scenario, the majority of the segments are forecasted to be congested or operate at LOS ‘F’ during the directional peak periods. The managed lanes facilities in Alternatives 2 and 3 show significant improvement compared with the No Build scenario in year 2047 during both peak periods. With the build alternatives, almost the entire managed lane facility operates at LOS ‘D’ or better during both AM and PM peak hours.

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Table 11 - I-105 Managed Lanes 2047 Performance Measures

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Roles, Responsibilities and Institutional Requirements

The implementation and operation of the I-105 ExpressLanes will require close collaboration among multiple organizations. This chapter of the ConOps describes the roles and responsibilities of the different stakeholders, as well as related institutional and legislative requirements to advance the project.

6.1 ROLES AND RESPONSIBILITIES

6.1.1 LA Metro

Branded as “Metro,” the Los Angeles County Metropolitan Transportation Authority is the state- chartered regional transportation planning agency and public transportation operating agency for Los Angeles County. Metro was formed in 1993 through the merger of the Southern California Rapid Transit District and the Los Angeles County Transportation Commission. It is responsible for transportation planning, policy, and funding programs in Los Angeles County and it is also the county’s primary transit provider. The agency operates the third-largest public transportation system in the United States with over 2,000 buses and nearly 90 miles of rail transit lines.

Metro operates the I-10 and I-110 ExpressLanes and is studying the conversions of the I-105 HOV lanes to express lanes, as well as the potential for express lanes in other highway corridors in Los Angeles County. Metro is partnering with Caltrans and other mobility partners in developing the I- 105 ExpressLanes project.

Metro is partnering with Caltrans to prepare the PA&ED, with Metro preparing the Project Report and ConOps and Caltrans is preparing the environmental document (ED). As Caltrans is the lead agency for the ED, Caltrans will certify the ED. Metro will also prepare the ultimate design of the express lanes, including the civil design and toll system design with Caltrans oversight. Responsibility for procuring and managing the construction of the project will be shared with Caltrans. Once the express lanes are operational, Metro will be responsible for their day-to-day operation. This includes transponder distribution, electronic toll collection, back office operations and accounting, setting toll rates on the lanes, and processing fines.

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6.1.2 California Department of Transportation

Caltrans manages more than 50,000 miles of California's highway lanes, provides inter-city rail services, permits more than 400 public-use airports and special-use hospital heliports, and works with local agencies to implement transportation projects. As owner of the state highway system, Caltrans has a large role in express lane development and implementation.

Caltrans has the following responsibilities for express lane projects in Los Angeles County:

Reviewing and approving all design and operation plans, including construction and maintenance activities within state right-of-way.

Monitoring the operation of the freeway and initiating corrective actions when needed to ensure motorist safety.

Maintaining elements of the express lanes as specified in a Maintenance Agreement to be executed by Metro and Caltrans prior to the I-105 ExpressLanes construction. The Maintenance Agreement will delineate maintenance responsibilities between Metro and Caltrans and specify activities for which Metro will reimburse Caltrans.

Monitoring the performance of HOV lanes.

Maintaining the Freeway Performance Monitoring System (PeMS).

Publishing traveler information.

Supporting CHP in incident management.

Caltrans District 7 serves Los Angeles County and Ventura County, and is therefore responsible for interfacing with the I-105 ExpressLanes Project. Caltrans District 7 and Metro partnered together on the successful implementation and operation of the I-10 and I-110 ExpressLanes in Los Angeles County.

6.1.3 Federal Highway Administration

FHWA is the agency within the U.S. Department of Transportation that supports State and local governments in the planning, design and construction of the National Highway System. FHWA provides financial resources and technical assistance for a coordinated program of public roads that service the transportation needs of Federal and Indian lands via the Federal Lands Highway Program. FHWA maintains project level approval for projects that are deemed as Projects of Division Interest (PoDI), which typically include major ITS projects such as express lanes and projects costing over $500 million. The I-105 ExpressLanes has been designated as a PoDI.

FHWA’s role in the I-105 ExpressLane Project includes:

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Reviewing and approving improvements and lane operations on Federal Aid Highway Routes

Preparing and managing the PoDI Stewardship and Oversight Plan.

Providing lessons learned and recommending best practices.

Providing oversight and project review.

Reviewing the Concept of Operations and approving the Systems Engineering Management Plan (SEMP).

6.1.4 California Highway Patrol

CHP is the law enforcement agency with patrol jurisdiction over all California highways and serves as the state police. Its primary purpose is to assure the safe convenient and efficient transportation of people and goods on California’s highway system. CHP’s roles on the I-105 ExpressLanes will be the same as on the I-10 and I-110 ExpressLanes, which include:

Performing on-site enforcement of vehicle eligibility (i.e., HOV and Clean Air Vehicle) requirements.

Enforcing buffer-crossing violations in express lanes.

Leading coordination and implementation of response functions related to incidents or other disruptions on the express lanes and GP lanes.

Providing lane closure enforcement for installation and maintenance activities when required by policy, contract or agreement.

Enforcing all violations of the California Vehicle Code.

Metro intends to establish a comprehensive agreement with CHP for the enforcement of the I-105 ExpressLanes. This agreement will be modeled on similar documents executed for the I-10 and I-110 ExpressLanes projects.

6.1.5 System Integrators

Metro intends to utilize its recently procured back office (TransCore) and roadside toll collection system (Conduent) contractors as system integrators for this project to design, install, and operate the toll collection system on the I-105 ExpressLanes. System integrators provide two main functions: designing and installing the required toll collection system and communication equipment in the lanes and functioning as back office system (BOS) provider

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6.1.6 Transit Agencies

There are three transit services operated by two transit agencies (Metro and LADOT) that operate along the I-105 corridor as noted in Section 2.4. These services will continue to operate in the I-105 ExpressLanes and the responsible transit agencies will provide input on bus/light rail operations and access needs.

6.1.7 Southern California Association of Governments

The Southern California Association of Governments (SCAG) is the metropolitan planning organization (MPO) for Los Angeles, Orange, Riverside, San Bernardino, Imperial and Ventura counties. As the MPO, SCAG develops a Regional Transportation Plan/Sustainable Communities Strategy (RTP/SCS) every 4 years providing a vision for the future of transportation throughout Southern California. As part of its most recent 2016-2040 RTP/SCS, SCAG has completed a region- wide screening and feasibility analysis to identify a recommended regional network of priced managed lanes. It has also completed a regional concept of operations document for the network to promote design consistency and interoperability among express lane projects across the region. It should be noted however the final Regional Express Lanes Network Concept of Operations was presented to the SCAG Technical Advisory Committee, but has not been subsequently approved by the SCAG Executive Committee or Regional Council.

6.1.8 California Toll Operators Committee

The California Toll Operators Committee (CTOC) is a collaborative organization of California's toll facility operators/owners, primarily concerned with developing protocols and resolving issues related to electronic toll collection (ETC) interoperability. CTOC is currently coordinating statewide efforts to change electronic toll collection protocols within California from those defined in Title 21, Chapter 16 of the California Code of Regulations (CCR), commonly referred to as Title 21, to those prescribed in International Standards Organization (ISO) 18000-63, commonly referred to as 6C, in accordance with national toll interoperability requirements introduced in the Moving Ahead for Progress in the 21st Century (MAP-21) Act that was enacted in 2012. The 6C protocols will apply to the toll collection system to be installed as part of the I-105 ExpressLanes.

6.1.9 California Transportation Commission

The California Transportation Commission (CTC) was established in 1978 by Assembly Bill 402 (Chapter 1106, Statutes of 1977) with the intent of establishing a single, unified California transportation policy framework. The Commission replaced and assumed the responsibilities of four independent bodies: The California Highway Commission, the State Transportation Board, the State Aeronautics Board, and the California Toll Bridge Authority.

The CTC’s involvement with the I-105 ExpressLanes includes:

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Designating Metro eligible to implement and operate express lane projects per the authority granted in AB 194. The CTC approved Metro’s toll facility application to operate the I-105 ExpressLanes at their October 9, 2019 Commission meeting.

Approving the programming of any state funds, if used to fund the express lanes

6.1.10 Freeway Service Patrol

The Metro Freeway Service Patrol (FSP) is a congestion mitigation program managed in partnership with Metro, CHP and Caltrans on all major freeways in Los Angeles County. FSP drivers patrol freeways during hours of peak congestion, providing response to incidents including clearing of debris, towing, and minor auto repairs.

6.2 EXPRESS LANE AGREEMENTS

A variety of agreements will need to be in place between stakeholders in order to implement and operate the I-105 ExpressLanes. These include, but are not limited to:

Agreement between Metro and CHP for enforcement of the express lanes. This could be in the form of an amendment to the existing agreement for enforcement of the I-10 and I-110 ExpressLanes or a separate agreement.

Agreement between Metro and Caltrans for oversight of the PA&ED, design and construction phases.

Maintenance agreement between Metro and Caltrans to delineate maintenance responsibilities between the two agencies and terms for Metro reimbursement of Caltrans’ maintenance activities.

Contract between Metro and system integrator(s) to design, procure, install, test and operate the I-105 ExpressLanes, and to provide back office services.

6.3 EXPRESS LANE AUTHORIZATION LEGISLATION AND OTHER LEGAL REQUIREMENTS

6.3.1 Federal Express Lane Authorization

Historically, Federal law generally prohibited the imposition of tolls by states on federally funded facilities. Under the Safe, Accountable, Flexible and Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) Congress enabled several exceptions to the general prohibition. In MAP-21 passed in 2012, Congress expanded the exceptions for construction of new tolling capacity but did little to expand existing toll pilot programs. The Fixing America’s Surface Transportation (FAST) Act of 2015 is a five-year authorization of surface transportation programs, which made some significant changes with respect to tolling, especially as it relates to express lanes.

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Section 129 General Tolling Program

Section 129 of Title 23 of the United States Code (23 U.S.C. § 129) General Tolling Program allows tolling on new highways and new lanes added to existing highways and on the reconstruction or replacement of bridges, tunnels and existing toll facilities. MAP-21 expanded the authority of states to implement new Interstate capacity as tolled express lanes on existing non-tolled highways by right without additional federal authorizations, provided the number of toll-free lanes after construction is not less than the number of toll-free lanes before construction. Tolling agreements are not required for the construction of new capacity as requirements previously included in the tolling agreements are codified in the statute.

Section 166 HOV/HOT Lanes

Under Section 166 of Title 23 of the United States Code (23 U.S.C. § 166), existing HOV lanes may be converted to express lanes operations, subject to certain requirements. States must demonstrate that the existing HOV facility is not degraded, and that the presence of tolled vehicles will not result in degradation. The FAST Act also requires express lane sponsors to consult with the Metropolitan Planning Organization (MPO) on toll placement and rates on Interstate facilities within the applicable metropolitan planning area. Automatic toll collection systems must be implemented on such projects, and toll revenue from such facilities is subject to the requirements of 23 U.S.C. § 129(a)(3).

Facilities tolled pursuant to 23 U.S.C. § 166 are subject to ongoing annual reporting documenting conditions on the converted lanes. The FAST Act also amended 23 U.S.C. § 166 to allow waivers of sanctions for degraded HOV operation under certain conditions including in part that the agency is meeting the conditions under 23 U.S.C. § 166(d)(1)(D) and is making a good faith effort to improve performance.

6.3.2 State Express Lane Authorization

At the state level, Assembly Bill 194 modified Section 149.7 of the California Streets and Highways Code allowing regional transportation agencies (such as Metro) and Caltrans to apply directly to the CTC for permission to implement express lane projects.

6.3.3 California Privacy Requirements

In 2010, privacy protections were codified into statute and extended to all transportation agencies that operate electronic toll collection systems. California law prohibits selling or providing personally identifiable information obtained through electronic toll collection systems, including transponders, license plate recognition systems, or other electronic media.

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6.3.4 Performance Agreement

Caltrans and the City of Norwalk entered into a Performance Agreement pertaining to portions of I- 105 and I-605 in May of 1991. The Performance Agreement includes a provision that restricts traffic on the on- and off-ramps to the I-105 freeway at Studebaker Road to HOVs except vehicles destined to the Park-and-Ride lot. Metro and Caltrans have met with representatives from the City of Norwalk to discuss the conversion of the Studebaker ramps to express lanes and allowing toll-paying vehicles to use the ramps, and the City of Norwalk has indicated its concurrence with Metro’s proposal to convert the Studebaker ramps to express lanes. The agreement will be revised to reflect the proposed changes upon approval.

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Operational Policies

There is a wide range of operational policies that Metro will need to establish prior to opening the facility. These policies will identify which motorists will be allowed to use the express lanes at a reduced toll or no cost, as well as the framework for determining and communicating the price that motorists pay to use the lanes. Metro’s operational policies will also determine the type of equipment and accounts motorists will need to have in order to use the express lanes. The operational policies established for the I-105 ExpressLanes will influence user experience, as well as the revenue generation potential for the facility. The various operational policies will guide the development of subsequent business rules and ultimately the operations of the express lanes.

Metro’s intent is that the operational policies used on the I-105 ExpressLanes will be consistent with those on the I-10 and I-110 ExpressLanes to the greatest extent possible.

7.1 HOURS OF OPERATION

The I-105 ExpressLanes will operate 24 hours a day, seven days a week. This policy is consistent with the operations of the I-10 and I-110 ExpressLanes, as well as other existing and planned express lane facilities in Southern California. It will also help to maximize the efficiency of traffic operations and the overall performance of both the express lanes and GP lanes in the I-105 corridor as well as minimize driver confusion on how and when the ExpressLanes can be used.

7.2 VEHICLE ELIGIBILITY

Two-axle vehicles, buses and motorcycles will be eligible to travel on the I-105 ExpressLanes. However, trucks with more than two axles, school buses and vehicles with trailers will not be permitted to travel in the express lanes by virtue of state law prohibitions on these vehicles traveling in the leftmost freeway lanes. Vehicles meeting established vehicle occupancy rates, transit vehicles, motorcycles, Clean Air Vehicles, emergency vehicles, and operations and maintenance vehicles will be able to travel in the lanes at a reduced toll or at no cost as described in the following section.

7.3 EXEMPTED/DISCOUNTED VEHICLES

Toll facilities in California are required by law to offer discounts or exemptions to certain types of vehicles. Doing so can incentivize beneficial activities, such as carpooling, transit utilization, and the use of low-emission vehicles. However, they also have an impact on demand management capability, revenue, operations, customer service center systems, and enforcement. It is important to assess toll discounts or exemptions early during project development to evaluate the anticipated effects on the

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operational performance of the express lanes and the potential need for design modifications to accommodate the additional demand for the facility due to toll exemptions and discounts.

The following sections describe exemptions and discounts for different vehicle types.

7.3.1 High-Occupancy Vehicles

Metro is assessing HOV2+ and HOV3+ vehicle occupancy rates, as well as a hybrid vehicle occupancy policy, such as that currently used on the I-10 ExpressLanes, where HOV2 vehicles with transponders may use the lanes at no cost during off-peak periods and are charged the same toll rates as SOV vehicles during peak periods.

Occupancy requirements for toll-free or discounted travel on the I-105 ExpressLanes will be finalized later in the project development process, pending the final results of a detailed Traffic and Revenue Study. Preliminary traffic and revenue results indicate that HOV3+ only scenarios with dual ExpressLane and a dynamic toll rate designed to minimize traffic delays results in a higher percentage of paying customers and higher toll revenues. Permitting HOV2+ to use the lanes at no cost during off peak periods would allow more customers to use the lanes toll free and generate marginally lower revenues when compared to a no-cost HOV3+ scenario.

Once traffic and revenue modeling are completed, Metro will have the information it needs to identify vehicle eligibility policies meeting its needs. However, given current and projected HOV lane degradation, it is recommended that Metro adopt HOV3+ as the minimum occupancy during peak periods in order to maintain consistency with recommendations from the Metro’s 2017 Countywide ExpressLanes Strategic Plan.

It should be noted that Metro is currently considering conducting a pilot where only vehicle pools with five or more people would be eligible for toll-free trips on the I-10 ExpressLanes. It is not known what the outcome of such a pilot would be or what effects it might have on occupancy requirement policies on the I-105 ExpressLanes.

7.3.2 Transit Vehicles

One of the primary goals of express lane facilities is to facilitate enhanced transit service. CVC 21655.5(b) permits mass transit and paratransit vehicles to use preferential lanes. Further, 23 U.S.C. § 166 allows privately-owned buses servicing the public to utilize toll facilities under the same rates, terms and conditions and other public mass transit vehicles. Therefore, all transit and paratransit vehicles, whether publicly or privately operated, will be permitted to travel toll-free in the I-105 ExpressLanes at all times.

Transit vehicle may be issued non-revenue toll tags for the purpose of being recognized as toll- exempt by the toll system, or may otherwise be automatically screened out by the toll system.

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7.3.3 Motorcycles

CVC 21655.5(b) provides for free passage on preferential lanes for motorcycles. Therefore, motorcycles will be permitted to travel toll-free in the I-105 ExpressLanes at all times. Consistent with the I-10 and I-110 ExpressLanes, motorcycles will not be required to carry a transponder to travel toll-free in the I-105 ExpressLanes.

7.3.4 Clean Air Vehicles

CVC Section 5205.5 allows motorists driving Zero Emission Vehicles or Transitional Zero Emission Vehicles displaying a DMV-issued red or purple Clean Air Vehicle (CAV) decal to travel toll-free or at a reduced rate in express lanes. However, the statute does not mandate the rate of reduction. The CAV decal program is subject to authorization by FHWA and therefore could end sooner than specified in California law.

On April 11, 2018, the Metro Board established its CAV discount policy to provide a 15 percent toll discount for single occupant CAVs on all Metro ExpressLanes facilities. Prior to that time, it provided toll-free access to all qualified CAVs utilizing the I-10 or I-110 ExpressLanes. The toll discount will apply for qualifying CAVs on the I-105 ExpressLanes to maintain consistency across all Metro ExpressLanes, assuming the CAV decal program is still in effect. CAVs are now required to meet the established occupancy requirement for toll-free travel.

Due to the current tolling technology implemented on the I-10 and I-110 ExpressLanes, the CAV discount is administered at the account level, but with new vendors and protocols, CAV status could be associated with designated transponders in the future.

7.3.5 Emergency Vehicles

CVC 23301.5 provides toll exemptions for emergency response vehicles traveling to or from and emergency calls. Metro is currently processing these transactions using a “non-revenue” account inorder to monitor ExpressLane use by emergency response vehicles. Metro will establish agreements with the local emergency response agencies that will outline the protocols associated with the non-revenue accounts.

Pursuant to CVC 23301.5, an emergency vehicle is exempt from any requirement to pay a toll or other charge under the following circumstances:

The authorized emergency vehicle is properly marked (i.e. CHP, Sheriff, Fire, Police, Ambulance)

The vehicle is responding to an “urgent” or emergency call that does not include any personal, commuting, training, or administrative use

The driver of the vehicle determines that use of the express lane will likely improve availability, response, and arrival time to the emergency.

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7.3.6 Exempt Vehicles

Currently, the Metro ExpressLanes Exempt Program allows identified vehicles associated with the exempt account of a public safety agency, mass-transit agency, or maintenance provider that serves the express lanes to be toll-exempt when using the express lanes. Maintenance vehicles could include those utilized by Metro, Caltrans or their contractors performing maintenance activities on the I-105 ExpressLanes. These vehicles are not required to have a transponder; instead, the toll system captures the license plate of the exempt vehicle and posts the transactions to the exempt account. This program will be carried over to the I-105 ExpressLanes.

7.4 TOLLING

The following sections describe the operational policies related to setting and collecting tolls for the I- 105 ExpressLanes.

7.4.1 Toll Pricing Objectives

The optimization of person throughput is a key performance measure and stated goal of existing Metro ExpressLanes, which is achieved by using pricing as a mechanism to maintain priority access for vehicles carrying multiple occupants. Pricing is also necessary to ensure that demand for the express lanes is managed and that express lanes operations exceed the federal 45 mph minimum performance requirement.

7.4.2 Toll Payment Method

Transponder-based electronic toll collection will be the primary method of collecting tolls on the I- 105 Express Lanes. Transponder-based toll collection is a proven, accurate solution with relatively low transaction costs and is the way tolls are collected on Metro’s existing ExpressLanes. As California transitions from the legacy battery-operated transponders to the new, less expensive 6C transponders, the cost for a transponder-based toll collection system will decrease even further.

Transponders for the I-105 ExpressLanes will need to comply with California interoperability standards for toll collection. Title 21 of the California Code of Regulations specifies the protocol for the exchange of transponder information for toll facilities in California. These transponders are branded as FasTrak® and can be used on any of the California toll facilities. CTOC, the entity that maintains toll interoperability throughout the state, has developed a plan to transition from the current Title-21 tolling protocol to the International Organization for Standardization (ISO) 18000- 63 (known as 6C) protocol. The 6C protocol offers significantly lower transponder costs and is an established standard in the toll industry. 6C transponders come in a variety of forms including a transportable hard case form that allows for occupancy declaration and a non-removable sticker form. It is envisioned that the transition from the legacy Title 21 protocol to the new 6C protocol will be fully deployed by the time the I-105 ExpressLanes are implemented. Currently, Metro is

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supporting 6C via license plate tolling and will continue to support Title-21 through December 31, 2023. Metro will be able to fully support the new 6C system by Spring 2020.

Consistent with Metro’s existing ExpressLanes, HOV vehicles on I-105 ExpressLanes will be required to use switchable transponders to indicate their vehicle occupancy status and receive the appropriate toll discount. Switchable transponders provide the benefit of allowing motorists to self- declare their vehicle occupancy rate, thereby eliminating the need to provide declaration lanes for qualified HOV vehicles.

Vehicles using the express lanes without a transponder will be detected by license plate recognition (LPR) cameras. If there is no account associated with the license plate, then the license plate will be matched to the address of the vehicle’s registered owner for issuance of a violation notice and a bill to collect the toll payment. The toll violation policy for the I-105 ExpressLanes will be consistent with the policy for Metro’s other ExpressLanes.

7.4.3 Pay As You Go – License Plate Tolling

On January 1, 2020 Metro began a one year pilot implementation of a license plate-based “Pay-as- You-Go” system on the I-10 and I-110 ExpressLanes. The pilot allows motorists without transponders to travel on the lanes and would use license plate cameras and optical character recognition technology to identify license plate numbers. The system would then bill the registered vehicle owners without transponders for their express lanes toll plus an additional $4 administrative fee. Vehicles using the pay-by-plate tolling would not be eligible for any toll exemptions or discounts.

License plate tolling would make the express lanes available to more users, but it could result in potential congestion and higher tolls on the express lanes, revenue leakage due to unidentifiable plates or registered owners, and longer periods of time to collect toll revenue. Metro’s pilot of license plate tolling will assess these effects. License plate tolling is used on Transportation Corridor Agencies (TCA) toll facilities in Orange County, and on other toll and express lane facilities elsewhere throughout the country.

7.4.4 Pricing Method

The I-105 ExpressLanes will utilize dynamic pricing, with tolls calculated and applied based on traffic conditions within each defined toll segment. Dynamic pricing allows for the adjustment of toll rates in real-time based on actual traffic conditions. In this way, dynamic pricing offers greater flexibility than time-of-day pricing, which is not able to respond during periods of unusual congestion. Despite higher capital and operating costs compared to fixed time-of-day pricing, the ability to adjust toll rates and manage demand in real time will provide Metro with the flexibility to respond to changing conditions as soon as they occur. Dynamic pricing is also consistent with Metro’s existing ExpressLanes.

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7.4.5 Maximum and Minimum Toll Rates

Minimum and maximum toll rates have not been established for the I-105 ExpressLanes; however, the toll system for the I-105 ExpressLanes will need to have the capability to establish maximum and minimum per-mile toll rates. During peak hours, per-mile rates on the existing I-110 and I-10 ExpressLanes range from $0.35 to $2.10. Minimum rates are pegged to transit fares so as not to compete with transit service operating in the corridor. This policy also underscores the premise that utilization of the express lanes and transit trips should be perceived to be of equal value. Maximum rates are typically set to ensure that the dynamic pricing algorithm does not set toll rates that are perceived to be too high.

In situations where the maximum toll rate is not sufficient to maintain acceptable operating conditions in the express lanes, the toll system will have the ability to revert to HOV-only mode. When this occurs, pricing signs in the corridor will indicate that the express lanes are only open to HOVs.

7.5 EQUITY AND LOYALTY REWARD PROGRAMS

Metro currently provides a number of equity and loyalty reward programs for customers using the I- 10 and I-110 ExpressLanes. It is expected that these programs will be extended to the I-105 ExpressLanes.

7.5.1 Low-Income Assistance Plan

The Low-Income Assistance Plan provides subsidies for lower income commuters. It offers eligible LA County residents a one-time $25 credit when they establish a FasTrak® account. The credit may be applied to the transponder deposit or used as a pre-paid toll deposit. The monthly $1.00 maintenance fee is also waved for plan participants. As of February 2018, over 15,800 Metro ExpressLane customers had established Low-Income Assistance-Plan accounts. To qualify for the plan, applicants must be residents of Los Angeles County and have an annual income less than $33,820 for two-person households, or $51,500 for four-person households. These thresholds are set at twice the 2019 federal poverty level.

7.5.2 Transit Rewards Program

Metro offers transit riders the ability to earn toll credits by linking their Transit Access Pass (TAP) card to their Metro Expresslanes FasTrak® account. The Transit Rewards Program allows transit riders to earn toll credits on the Metro ExpressLanes corridors. Transit riders earn a $5 toll credit by taking sixteen (16) one-way trips on select transit routes operating along the I-10 El Monte Busway or I-110 Harbor Transitway in a one month period. The toll credits must be used on Metro ExpressLanes and are not valid on other toll roads. The Rewards Program is the first of its kind in the transit and toll industry. From inception through June 2016, Metro issued a total of $70,560 worth of credits through the Transit Reward Program.

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For the program to be applied to the I-105 ExpressLanes, eligible transit routes operating along the corridor will need to be identified. The routes could include Metro’s Green Line, Metro’s Route 460 and LADOT’s Line 438

7.5.3 Carpool Loyalty Program

Carpool Loyalty is a rewards program that automatically enters Metro ExpressLanes FasTrak® account holders into a monthly drawing for a chance to win toll credits when they use the express lanes as a carpool. Every month, 20 carpoolers from each corridor win $20 - $30 in toll credits.

7.6 USE OF PROJECT REVENUES

State law currently requires that toll revenues generated from the Metro ExpressLanes be reinvested in the corridor from which they were generated. Metro currently uses toll revenues generated on the I-110 and I-10 ExpressLanes to pay for the cost of operations, including roadway and equipment maintenance, administration, toll collection, customer service, equity and loyalty reward programs, CHP enforcement and FSP tow trucks.

The precedents established for the use of project revenues generated by Metro’s existing express lanes will serve as a model for the use of the revenue generated by the I-105 ExpressLanes. Metro is currently conducting investment grade traffic and revenue studies to help inform the selection of a preferred alternative. The revenue forecasts and cost estimates generated through the T&R and PA&ED processes will be used to prepare a Revenue Expenditure Plan for the I-105 ExpressLanes that will assess the use of project revenues for including debt repayment for capital construction costs, operation and maintenance costs, corridor improvements, transit subsidies, assistance and loyalty programs, and possibly net toll grants.

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Environmental Justice

Freeway construction can provide significant benefits to the adjacent communities and surrounding population in terms of improved travel times, reduced congestion, and improved safety. The resulting infrastructure and vehicle traffic can also create impacts from noise, air quality, and restricted access. The effort to evaluate those populations impacted both positively and negatively is the basis of Environmental Justice. Federally-funded projects are subject to the 1994 Executive Order 12898 (EO 12898), titled Federal Actions to Address Environmental Justice in Minority and Low-Income Populations, which directs federal agencies to "promote nondiscrimination in Federal programs substantially affecting human health and the environment, and provide minority and low-income communities access to public information on, and an opportunity for public participation in, matters relating to human health or the environment."

The principles of Environmental Justice (EJ) are rooted in Title VI of the Civil Rights Act of 1964, which prohibits discrimination on the basis of race, color, and national origin in programs and activities receiving federal financial assistance. Following the direction of EO 12898, federal agencies developed their own strategies to implement EJ. The United States Department of Transportation (USDOT) Order 5610.2(a) dated May 2, 2012 is an internal directive that updates and clariﬁes environmental justice procedures for the department in response to the Memorandum of Understanding on Environmental Justice signed by heads of federal agencies on August 4, 2011, USDOT’s revised environmental justice strategy issued on March 2, 2012, and EO 12898 dated February 11, 1994. It is based on the framework of National Environmental Policy Act of 1969 (NEPA), Title VI of the Civil Rights Act of 1964, the Uniform Relocation Assistance and Real Property Acquisition of 1970, and the Safe, Accountable, Flexible, Efﬁcient Transportation Equity Act (SAFE-TEA) of 2005. Locally, Caltrans Directors Policy #21 (DP-21) and Deputy Directive #63 (DP-63) establish EJ and civil rights policies for the department’s transportation facilities.

USDOT Order 5610.2(a), as well as the Federal Highway Administration (FHWA)/Federal Transit Administration (FTA) Order 6640.23A, defines the fundamental principles of EJ as:

Avoiding, minimizing, or mitigating disproportionately high and adverse human health and environmental (including social and economic) effects, on minority and low-income populations;

Ensuring full and fair participation by all potentially affected communities in the transportation decision-making process; and

Preventing the denial of, reduction in or significant delay in the receipt of benefits by minority and low-income populations (USDOT, 1997).

Specific to Metro projects and efforts, the Metro Executive Management Committee approved an Equity Platform Framework on February 15, 2018. The Equity Platform Framework provides four

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pillars that direct activity related to EJ. These four pillars are: define and measure, listen and learn, focus and deliver, and train and grow. From a policy-level, the framework aims to counteract disparities in communities through the use of technical methods for measuring and analyzing data and the use of effective approaches to creating inclusive involvement early in the process.

8.1 SETTING

For transportation infrastructure projects, impacted populations will include those who live adjacent to the project corridor and those who use the corridor. In terms of human health and environmental impacts (air quality, noise, construction, access and circulation), those populations adjacent to the corridor will be most affected compared to populations living further from the corridor. There are no national, state, or local guidelines on buffer distances to evaluate populations for EJ analysis. Distances too large will result in larger and more diverse populations which has the potential to dilute concentrations of minority and low-income populations. Distances too small may limit the data available depending on the configuration of available data groups. For this analysis, the EJ study area was identified as the population contained within a 1-mile buffer on either side of the I-105 alignment. In total, there are 368 block groups included in the buffer analysis representing a population of 536,413 persons (142,551 households) which equates to 5.2% of the total Los Angeles County population of approximately 10.3 million. Figure 38 illustrates the general land uses surrounding the corridor. As shown, the majority is privately-held lands used for residential or commercial uses with the exception of the Los Angeles International Airport on the far west end of the corridor. Smaller, dispersed educational facilities (Los Angeles Southwest College), medical centers (Martin Luther King Jr Community Hospital, Kaiser Permanente Downey Medical Center) and recreational uses (parks, golf courses) are located throughout the corridor length.

The data used for identifying potential environmental justice issues related to the I-105 ExpressLane project utilized socio-economic data from the United States Census Bureau (USCB) and the Southern California Association of Governments (SCAG). The last official Census was undertaken in 2010 and, therefore, is approaching the end of the 10-year interval before the 2020 Census survey is scheduled. As such, data from the 2017 American Community Survey (ACS) was used as the reference dataset for income and race determinations. The 2017 ACS data was released in September 2018 and is the latest available data (2018 data was not available until September 2019). The SCAG 2018 Local Profile data for Los Angeles County was utilized as a local reference population in addition to national averages. All data was analyzed within a graphic information system (GIS) environment at the block group level.

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Figure 38 - Land Uses Adjacent to I-105 Corridor

Source: WSP

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8.2 MINORITY POPULATIONS

EO 12898 does not define the term “minority”. However, guidance from FHWA Order 6640.23A defines “minority” as a person who is: American Indian/Alaskan Native, Asian American, Native Hawaiian/Pacific Islander, Black (not of Hispanic Origin), or Hispanic (regardless of race). CEQ Guidelines for EO 12898 list the above populations as either (a) the minority population of the affected area exceeds 50%, or (b) the minority population percentage of the affected area is meaningfully greater than the minority population percentage in the general population or other appropriate unit of geographic analysis.

According to the SCAG 2018 Local Profile for Los Angeles County, the aggregate minority population of LA County (73.3%) is significantly higher than that of the United States (38.5%), and therefore, the LA County averages were used as the reference population. The block group data was used to highlight the location of minority populations within the study area as a basis to specifically consider impacts in areas where EJ populations had the potential to be disparately impacted by the project. A block group was considered to meet the EJ threshold if the minority percentage within that block exceeded 50% or if the minority percentage was 10% greater than the LA County average for that particular population.

Overall, the census block groups located within the 1-mile buffer of the project had the following aggregate demographics (Table 12). Table 13 compares the study area to the reference population of LA County in terms of percentages.

Table 12 - Study Area Minority Demographics

Study Area

1-Mile buffer Total Population 536,413 Race and Ethnicity (by population) Hispanic (of any race) 376,844 Black (alone) 105,301 Asian (alone) 18,547 American Indian (alone) 3,157 Total Minority 504,684

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Table 13 - Minority Population (Los Angeles County vs Study Area)

Reference Population Study Area Los Angeles County 1-Mile buffer Race and Ethnicity Hispanic (of any race) 48.4% 70.3% Black (alone) 7.9% 19.6% Asian (alone) 14.3% 3.5% American Indian (alone) 0.2% 0.6% Total Minority 73.3% 94.1% Note: Calculated percentages may not add to 100%.

Detailed maps highlighting the distribution of block groups meeting the EJ thresholds for minority populations are provided in Figure 39 through Figure 44. For each category, separate maps are shown for each approach – greater than 50% of the block group, and 10% greater than the reference population. It should be noted that the Asian populations within the study area were not significant enough in individual block groups to trigger the 50% threshold. This is similar for the American Indian populations which did not satisfy either methodology. As can be observed in the exhibits, minority populations meeting the EJ threshold are present in almost every census block within the study area.

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Figure 39 - I-105 Block Groups with >50% Hispanic Population

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Figure 40 - I-105 Block Groups with Hispanic Population Greater than Reference

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Figure 41 - I-105 Block Groups with >50% Black Population

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Figure 42 - I-105 Block Groups with Black Population Greater than Reference

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Figure 43 - I-105 Block Groups with Asian Population Greater than Reference

Source: WSP

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Figure 44 - I-105 Block Groups with >50% Aggregate Minority Population

Source: WSP

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8.3 LOW-INCOME POPULATIONS

EO 12898 does not define the term “low-income.” However, guidance from FHWA Order 6640.23A defines “low-income” as a person whose median household income is at or below the Department of Health and Human Services poverty guidelines. These poverty thresholds vary by household size and are provided in Table 14.

Table 14 - US Census Bureau 2018 Household Poverty Thresholds

Related children under 18 years Size of family unit Eight or None One Two Three Four Five Six Seven more

One person (unrelated individual): Under age 65...... 13,064 Aged 65 and older...... 12,043

Two people: Householder under age 65...... 16,815 17,308 Householder aged 65 and older...... 15,178 17,242

Three people...... 19,642 20,212 20,231 Four people...... 25,900 26,324 25,465 25,554 Five people...... 31,234 31,689 30,718 29,967 29,509 Six people...... 35,925 36,068 35,324 34,612 33,553 32,925 Seven people...... 41,336 41,594 40,705 40,085 38,929 37,581 36,102 Eight people...... 46,231 46,640 45,800 45,064 44,021 42,696 41,317 40,967 Nine people or more...... 55,613 55,883 55,140 54,516 53,491 52,082 50,807 50,491 48,546 Source: U.S. Census Bureau.

According to the SCAG 2018 Local Profile for Los Angeles County, the median household income of LA County ($61,015) is slightly higher than that of the United States ($57,652) but within reasonable range to utilize the national poverty thresholds which correspond to household size. The block group data was used to highlight the location of low-income populations within the study area as a basis to specifically consider impacts in areas where EJ populations had the potential to be disparately impacted by the project. A block group was considered to meet the EJ threshold if the low-income percentage within that block exceeded 50% for that particular population. Overall, the census block groups located within the 1-mile buffer of the project had the following aggregate demographics (Table 15).

Table 16 compares the study area to the reference population of LA County in terms of percentages.

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Table 15 - Study Area Income Demographics

Study Area

1-Mile buffer Total Households 142,551 Low-Income (by household) Percent below $25,000 37,457 Percent below $50,000 70,654 Percent below Poverty 31,937

Table 16 - Low-Income Population (Los Angeles County vs Study Area)

Reference Population Study Area Los Angeles County 1-Mile buffer Low-Income Median Household Income $61,015 $45,000-$49,999 Percent below $25,000 (Household) 21.2% 26.3% Percent below $50,000 (Household) 42.1% 49.6% Percent below Poverty 13.1% 22.4% Note: Calculated percentages may not add to 100%.

In addition to federal poverty analysis, Metro requested analysis of data related to their Low-Income Assistance Plan. Eligibility for Metro’s Low-Income Assistance Plan is based on twice the federal poverty thresholds as shown in Table 17. While the assistance eligibility is based on household size, individual data is not available to analyze household income jointly with household size, and all income data from the USCB is provided in general ranges. Therefore, analysis focused on the number of households with income less than $25,000 which would qualify any sized household and households with income less than $50,000 which would qualify a family of four persons or larger.

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Table 17 - Metro Low-Income Assistance Plan Eligibility

Detailed maps highlighting the distribution of block groups meeting the EJ thresholds for low- income populations are provided in Figure 45 through Figure 48. As shown, there are no highlighted block groups that have a significant portion of households below the federal poverty level but there are block groups with many households that may qualify for Metro’s assistance programs.

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Figure 45 - I-105 Block Groups with >50% Federal Poverty Level

Source: WSP

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Figure 46 - I-105 Block Groups with Federal Poverty Level Greater than Reference

Source: WSP

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Figure 47 - I-105 Block Groups with <$25,000 Annual Household Income

Source: WSP

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Figure 48 - I-105 Block Groups with <$50,000 Annual Household Income

Source: WSP

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8.4 RELATED COMMUNITY CHARACTERISTICS

The primary EJ analyses focus on minority and low-income characteristics but there are other important factors that can define the adjacent populations and change the potential impact. To further understand the study area populations, analyses were conducted on English language proficiency and transit/carpool use.

Understanding the English language is important in terms of communicating project impacts and mitigation needs. As part of the ACS questionnaire, households are asked what language is spoken at home and whether they speak English “very well”, “well”, “not well”, or “not at all”. Households where English is not spoken or spoken less than “very well” by all members aged 14 years and older are considered Limited-Proficiency English and need English language assistance. While none of the census block groups exceed 50% Limited-Proficiency English households, Figure 49 shows those block groups 10% greater than the reference population. As an aggregate value, the study area has 13.5% of households with Limited-Proficiency English compared to 24.5% for LA County. Of the 19,281 households with Limited-Proficiency English, the majority (17,710) speak Spanish as their primary language followed by Asian and Pacific Island languages (1,009). The remainder fall between “Other Indo-European” (385) and “Other” (177) languages.

The ExpressLane project will modify the existing operations of the HOV lane and may impact carpooling and/or transit use. Due to these potential changes, an evaluation of current carpooling and transit use was prepared utilizing a similar approach to the EJ screening. Data was obtained from the same census data source with a focus on block groups participating in carpooling or transit at a rate greater than 10% above the reference population. For comparative purposes, travel mode characteristics for LA County were obtained from the 2017 ACS which indicate an overall carpool use of 9.6% and transit use of 6.3%. It is important to note that the carpool question relates to the number of people in the car and does not directly relate to the use of high-occupancy lanes on the freeway. Overall, the Census block groups located within the 1-mile buffer of the project had the following aggregate characteristics as compared to the reference population of LA County (see Table 18). As shown in Figure 50, Census blocks where carpool participation was observed to be higher than the average for LA County tended to be clustered around park-and-ride lots adjacent to the I- 105 HOV lanes. As shown in Figure 51, transit use in the I-105 Corridor is higher than the County average particularly around the Metro Green Line stations.

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Table 18 - Commute Travel Behavior (Los Angeles County vs Study Area)

Reference Population Study Area Los Angeles County 1-Mile buffer Commute Travel Behavior Percent Carpool Use 9.6% 12.3% Percent Transit Use 6.3% 7.2%

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Figure 49 - I-105 Block Groups with Limited-Proficiency English Population Greater than Reference

Source: WSP

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Figure 50 - I-105 Block Groups with Carpool Use Greater than Reference

Source: WSP

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Figure 51 - I-105 Block Groups with Transit Use Greater than Reference

Source: WSP

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8.5 REACHING LOW-INCOME AND MINORITY AUDIENCES

This section is meant to share effective practices that will help engage low-income and minority populations within the corridor and can be used as a guide for other ExpressLanes projects. This section will provide an overview of low-income and minority outreach on the original I-10 and I-110 ExpressLanes, as well as other ExpressLanes projects underway at the time, namely the I-105 Community Participation Program and the I-605 Corridor Improvement Project Community Impact Assessment.

In order to determine viable strategies, it is important to give some historical perspective regarding the original I-10 and I-110 ExpressLanes program and how low-income communities were engaged prior to opening (2012 for I-110 and 2013 for I-10). The early engagement – including as required under federal EJ orders and California State Bill 1422 (2008) – of focus groups, surveys, hundreds of community-based meetings and neighborhood events, social media, promotions, analysis of impacts, educational campaigns and consultation with community leaders, EJ advocates, elected officials and more allowed Metro to tailor the program to meet the needs of low-income populations. As a result, according to a March 2017 FHWA white paper titled “Impacts of Congestion Pricing on Low-Income Populations: Efforts to Measure and Respond to Income-Equality Concerns,” Metro’s ExpressLanes “became the first toll operation in the country to offer a plan for low-income commuters.”

A key contributor to what made the original ExpressLanes a success and moved it from a pilot program to an expanding Metro Board-approved program, was the low-income options as well as transit and alternative transportation investments, including:

 The original $210.5 million Federal Congestion Reduction Grant that paid for the construction of the ExpressLanes also included funds for the construction of a new El Monte Transit Center, I-110 station improvements, purchase of 59 new buses, and operating subsidies to increase transit service operating on the I-10 and I-110.

 Toll revenues are reinvested in the same corridors in the form of transit subsidies and net toll grants. Transit subsidies were provided to the Metro Silver Line, Foothill Transit, Gardena Transit, and Torrance Transit to increase transit service on the I-10 and I-110 ExpressLanes. Net toll grants have been granted to cities for active transportation, transit, and roadway improvement projects.

 Carpool Loyalty Program, which rewards carpools using the ExpressLanes with toll credits.

 Transit Rewards Program (toll credits for TAP card users).

 Low-Income Assistance Program (formerly known as the Equity Program), which provides a $25 toll credit upon account opening and a waiver of the $1 monthly account fee.

With the above initiatives in place, the vocal critics of the program had limited opposition arguments against the investment in transit or the active transportation benefits that would (and did) come to fruition and deliver benefits to the community.

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As for the Low-Income Assistance Program (LIAP), participation has grown year over year, resulting in a 500% increase since Fiscal Year 2013, according to the December 2018 annual ExpressLanes report to the California Legislature, as required by AB 620. The report indicates that awareness of the LIAP has grown as a result of targeted outreach and education campaigns, including:

 Dissemination of pamphlets at libraries and community centers in close proximity to the corridors.

 Attendance at community events including Martin Luther King Jr. festivals, Lunar New Year events, Farmers Markets, CicLAvia events and transportation workshops, among others.

 Annual campaigns including radio ads, McDonald’s TV, gas station TV, outdoor billboard advertising, online ads and mail advertising. Metro has also continued to engage with low-income audiences through focus groups and field surveys to gather qualitative and quantitative data to inform further improvements to the LIAP’s potential users. Metro’s early efforts to engage low-income communities and its continued success with the LIAP (more than 20,000 accounts as of the date of this report) are cited as effective practices in many research studies and presentations on the topic, including the FHWA’s white paper referenced above.

8.5.1 Low-Income and Minority Outreach Strategies

As part of the activities referenced above, the engagement with diverse audiences on the I-10 and I- 110 was planned and implemented early and often. This demonstrates that engaging low-income and minority populations early will be essential to gaining similar participation before and after operations begin. For the I-105 project, outreach to the low-income and minority populations is a major focus.

As part of the preparation of the environmental document for the I-105 ExpressLanes, the Post- Scoping Outreach Plan includes outreach strategies that are intended to reach a more comprehensive and diverse range of stakeholders and potential users along the Project corridor. Engagement of low-income audiences occurred through stakeholder roundtable meetings that included EJ organizations and representatives, community events and opportunities for pop-up information tables and public surveys.

The I-105 project is consistent with Metro’s vision of planning and delivering inclusive transportation programs that are accessible to low income and minority audiences, building upon the successes and lessons learned of the I-10 and I-110 programs.

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Technical Requirements

The I-105 ExpressLanes will require equipment, software and communications infrastructure to establish an electronic toll collection (ETC) system. The ETC system will consist of roadside equipment capable of facilitating an open road tolling environment, and a toll system host capable of processing toll transactions and facilitating communications between other external systems. The toll system host will interface with the Back Office System (BOS) to send transaction information for posting to accounts, violations processing, or invoice processing. The components of the express lanes ETC system are described in further detail in the sections below.

9.1 ELECTRONIC TOLL COLLECTION

The ETC system will be responsible for collecting tolls from I-105 ExpressLanes users and will be developed by a toll system integrator. The ETC system will utilize automatic vehicle identification (AVI) and violation enforcement systems (VES) to detect users and a toll system host to process data and assemble toll transactions. The system host will also serve as an interface between the ETC system and Metro’s customer service center (CSC), Caltrans traffic management center (TMC), and any other external systems required for enforcement and operations. The toll system host could be a cloud-based service or installed at a central facility, connected through a backhaul communications network to the roadside equipment installed on the roadway.

The I-105 ExpressLanes will operate as an open road tolling (ORT) facility. ORT is the most appropriate method to collect tolls on express lanes, as it eliminates the need for vehicles to slow down, stop, and pay tolls at a toll booth. Ultimately, ORT operation is dependent upon the system’s ability to uniquely identify vehicles passing under a tolling point. The primary method of detection uses radio wave technology to detect in-vehicle transponders. These transponders are a type of radio frequency identification (RFID) device that is linked to an account. An example of an open road tolling configuration is shown below in Figure 52.

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Figure 52 - Example Open Road Tolling

For vehicles operating within the express lanes without a transponder, or for vehicles whose transponders are not detected, the system will utilize license plate readers to capture plate imagery for charging and enforcement actions. The license plate readers utilize optical character recognition (OCR) technology accompanied by manual image review as needed to uniquely identify license plate characters to be linked to registered accounts. If there is no account associated with a vehicle’s license plate, vehicle ownership is determined through Department of Motor Vehicle (DMV) records, and a violation notice is generated. If license plate tolling is implemented, a violation notice will be generated at a reduced fee. The register owner of the vehicle would receive a notice in the mail for the toll amount plus a processing fee.

In addition to the toll evasion enforcement, vehicle occupancy and clean air vehicle (CAV) eligibility will also be enforced. For vehicle occupancy, Metro currently relies primarily on visual enforcement by CHP using light beacons connected to the tolling points. Beacons used for I-105 ExpressLanes will consist of both enforcement beacons on the back side of the gantry as well as numerical displays on the front side of the gantry. In addition to this enforcement, other supplementary or complementary alternatives could be considered based on policy regulations and technological maturity. Such options include mobile app self-declaration and video-based occupancy detection systems (ODS). CAVs are enforced at the back office level, where vehicles not tied to CAV accounts will not be allowed a CAV discount. For I-105, it is possible that sticker transponders or mobile apps could be used to declare CAV status, but these alternatives are not currently supported on Metro’s ExpressLanes.

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9.2 STATE AND NATIONAL INTEROPERABILITY

Consistent with current Metro ExpressLanes policy, it is anticipated that all I-105 ExpressLanes customers will be provided with a vehicle transponder. Each transponder is uniquely coded and linked to a Metro account that is debited when a trip is recorded in the express lanes. In order to create an interoperable environment within the state of California, the California Toll Operators Committee (CTOC) was established and has led the development of technical specifications that specify the requirements for the exchange of valid customer transponder identification, license plates and toll transactions for payment. Metro, along with other Southern California toll agencies, are members of CTOC.

Currently, all tolling facilities in the state of California are required to conform to the communications protocol outlined in Title 21, Chapter 16 of the California Code of Regulations (CCR). The Title 21 requirements ensure that all ETC systems used in California are interoperable with other ETC systems in the state. Metro currently issues Title 21 switchable transponders. Transponders with the switchable feature allow HOV2 and HOV3+ users to declare occupancy and receive toll discounts. Transponders without the switchable feature require customers to pay single occupancy rates.

On July 6, 2012, President Obama signed into law the Moving Ahead for Progress in the 21st Century Act (MAP-21). As part of MAP-21, Section 1512(b) required that all Federal-aid highway toll facilities “implement technologies or business practices that provide for the interoperability of electronic toll collection” by October 1, 2016. While National Interoperability (NIOP) has not been accomplished, CTOC developed a Transition Plan for the replacement of legacy Title 21 protocol (sunsetting in 2024 per its CCR update) with the ISO 18000-63 (referred to as 6C) protocol starting in 2019. This protocol will allow interoperability among most toll agencies on the West Coast and allow users to maintain a single transponder throughout California, Washington, Oregon, Colorado, and Utah. As of 2019, most of California agencies are already transitioning to the 6C protocol, although not without challenges. It is expected that by the time the I-105 ExpressLanes opens, Title 21 will have transitioned out and the 6C protocol will be the standard protocol for transponder transactions.

9.2.1 Transponder characteristics

All transponders will come branded with the Fastrak® logo, which is California’s branding for ETC. ETC transponders come in various form factors and technologies. All transponders currently authorized for toll collection in California use either the legacy Title 21 or the 6C RFID protocol. The legacy Title 21 protocol in California is set to sunset in 2024 and will be fully replaced by the 6C protocol, which was introduced in 2019. The Title 21 protocol uses active RFID technology, which requires a battery to broadcast a signal to the RFID reader; the 6C protocol on the other hand, is meant for passive-use, hence drawing its power from the reader and not requiring a battery. 6C transponders come at a much lower cost and smaller form factors, such as stickers.

The images below in Figure 53 and Figure 54 show examples of different transponder form sizes and applications. While current switchable transponders in California are all Title 21, 6C technology can

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also accommodate switchable transponders. For I-105, it is possible that both sticker and switchable 6C transponders will be used.

Figure 53 - Example 6C Sticker Tag in Southern California

Source: Transportation Corridors Agency, Orange County

Figure 54 - Example 6C Switchable Tag in Colorado

Source: E-470 Public Highway Authority, Denver, Colorado

9.3 TOLLING OPERATIONS OVERVIEW

The I-105 ExpressLanes will utilize dynamic pricing, which is designed to manage travel demand for and traffic flow in the express lanes by adjusting the toll rate based on real-time conditions and traffic congestion. Tolls in the express lanes will be higher with increased congestion, and lower when traffic is light. This is accomplished through the use of roadside equipment capable of detecting traffic on the express lanes, a toll system host capable of processing data and setting the appropriate toll rate, a traffic management center to monitor performance and incidents, and a back office for administrative services. The following components are included as part of the toll system and are described in more detail in the following sections:

Roadside Equipment: Includes the field equipment, software and communications needed to display toll rates to drivers and to identify vehicles that enter a toll zone, either by reading its transponder or by capturing images of its license plate. Field equipment also includes detection

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devices to capture speed and volume data from the express lanes and CCTV cameras for monitoring. Each of these components will need to be connected via a secure and reliable fiber optic, landline or wireless communications network.

Toll System Host: The host is the central database and processor for the toll collection system. It receives and processes data from the roadside equipment and assembles the transponder reads and license plate data into compiled trip transactions for distribution to the back office. The host also includes the dynamic pricing algorithm used to set toll rates based on traffic conditions and supports monitoring and maintenance of the roadside equipment.

Traffic Management Center (TMC): The primary function of the TMC is to monitor the operations of the express lanes. Workstations and displays at the TMC provide real-time video feeds and other information to express lane operators. Depending on Metro’s final procurement and operations strategy, the TMC could be a standalone facility or be co-located with an existing facility.

Back Office: Actual back office systems for the Metro express lanes provide the core processing functionality of the tolling system, including the transaction database, user account database, tag database, dynamic pricing, trip building, tolling system management, CSC interface, public website, reporting, financial database, maintenance and operations management system (MOMS), California Toll Operators Committee (CTOC) transfers, and Department of Motor Vehicles (DMV) processes. Together these systems bill customers and provide the data required to operate the ExpressLanes.

Customer Service Center (CSC): The CSC provides all customer service related activities needed to operate Metro’s ExpressLanes. It is expected that the CSC for the I-105 will be shared with the I-110 and I-10 ExpressLanes. The CSC is described in more detail in Section 9.7.

Other Interfaces: The toll collection system will support interfaces with other systems to share data. Examples include an interface with the Caltrans TMC, 511 and CTOC.

A graphic of the toll system architecture with the components above is shown below in Figure 55.

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Figure 55 - Toll System Architecture

9.4 ROADSIDE EQUIPMENT

To facilitate toll collection on the I-105 ExpressLanes, the ETC system will require robust roadside equipment responsible for relaying real-time operations data to the toll system host. The primary equipment needed on an express lanes facility are: vehicle detection, AVI equipment to identify vehicles in toll zones, zone controllers to receive data and construct transaction events, violation enforcement systems to capture vehicle license plates, dynamic message signs to display toll rates, occupancy detection systems to verify vehicle occupancy, traffic monitoring stations to detect and measure vehicle activity, and a backhaul communications network to connect all of these components together. While the placement and function of each of these subsystems can vary based on the technology used and the provider, the vehicle identification equipment and license plate readers are typically installed overhead per lane. The following sections describe these components in further detail.

9.4.1 Toll Zone Equipment

The toll zone equipment consists of many devices/systems operating together to properly identify vehicles within the lane, collect data, and assist in enforcement. These include: the toll zone/lane controller, AVI, VES, DVAS and CHP enforcement beacons.

As a vehicle passes through a toll point, a vehicle detector is used to trigger the toll zone equipment. Vehicle detection can be in the form of an overhead system that detects the presence of vehicles using laser or optical sensors, or can be an in-pavement system that uses inductive loops,

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magnetometers or other similar devices to detect the presence of a vehicle entering the toll zone. Once a vehicle is detected, the AVI and VES systems are activated to detect in-vehicle transponders and license plate images as described below. AVI equipment primarily consists of an antenna and reader mounted on an overhead structure to identify in-vehicle transponders (see example in Figure 56).

Figure 56 - Example Overhead Automatic Vehicle Identification Antenna

On January 1, 2020 Metro began a one year pilot implementation of a license plate-based “Pay-as- You-Go” system on the I-10 and I-110 ExpressLanes. As a result, Metro ExpressLane users are not required to carry a transponder but vehicles without a transponder will be assessed a $4 fee in addition to the toll rate. Furthermore, transponders continue to be required in order to be eligible for any toll exemptions or discounts. A sample image of the transponder is shown below in Figure 57 showing the user-selectable occupancy modes. The AVI system records and transmits the user- selected occupancy declaration mode in addition to the transponder message, which is transmitted to the lane controller and then to the host for interpretation and further processing as part of a lane transaction associated to a location, serving as the building block of a trip transaction.

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Figure 57 - Existing Metro Transponder with Self-Declaration Switch

For customers traveling without a transponder, on-site, license plate image capture systems will utilize cameras to capture license plate images to associate detected vehicles whether to Metro- registered vehicles, or if unregistered providing the option to “Pay As you Go” via license plate tolling. The camera processing shall utilize optical character recognition (OCR) technology with manual review if necessary. Mounting of the cameras should be rear-facing, looking downstream at the rear of vehicle, and will include a lighting assembly to provide adjustable illumination for varying conditions. The light assembly typically consists of a set of high intensity filtered or unfiltered LED strobes or Infrared (IR) lights angled to stay out of the customer’s line of sight. An example overhead license plate reader installation is shown in Figure 57.

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Figure 58 - Example Overhead License Plate Reader and Lighting Assembly

DVAS cameras will be installed at each toll zone. These are dedicated cameras used to monitor the toll zone and perform audit functions.

Each toll zone will include enforcement signals to indicate to CHP officers the status of in-vehicle switchable transponders that pass under the toll zone. Metro is moving towards enforcement signals consisting of two-way LED panels (see Figure 59) visible upstream and downstream of a toll zone that display a number corresponding to the switch setting of in-vehicle transponders (e.g., displaying a “2” if the in-vehicle transponder is set to 2 occupants). The two-way signals allow officers at downstream observation locations and officers following a vehicle through a toll zone to observe the enforcement signal and correlate it with a visual observation of the number of vehicle occupants. Similar to other devices associated with open road tolling, any violation indication will be provided for each lane so officers can determine within which lane a potential violation has occurred.

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Figure 59 - Enforcement LED panel

All collected data from the AVI and license plate capture systems are transmitted to a zone (or lane) controller which aggregates the data from each toll point and lane. This data is then sent to the toll host system for trip building. All critical roadside equipment should also be supported by uninterruptable power supply (UPS) and/or stationary or portable power generators for a reasonable amount of time in the event of power failure.

9.4.2 Pricing Signs

The I-105 ExpressLanes will use dynamic message elements within static sign panels to display price information to customers (see Figure 60). Each pricing sign will be placed upstream of express lanes access points to ensure customers are informed and can make an educated decision before entering the lane. The dynamic message signs will have the ability to display variable toll rates which will be adjusted based on traffic congestion and site conditions.

Figure 60 - Example Static Pricing Sign with Dynamic Message Inserts

The size of the pricing sign dynamic message panels will need to be in accordance with CAMUTCD guidelines for character height and will need to take into consideration the maximum message size needed to be displayed. Besides the toll rate, example messages may include “HOV 2+ W/FLEX $0”, “HOV 2+ ONLY”, “OPEN TO ALL” or “CLOSED TO ALL.” The dynamic elements are connected to a

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roadside sign controller which can communicate with both the lane controller and the host depending on the system architecture and messaging redundancy needs.

9.4.3 Automated Occupancy Detection Systems

Automated ODS have the capability to assist in the enforcement of the toll collection as toll rates vary based on occupancy. Vehicle occupancy is a user-selection mode on the transponder and enforcement relies on visual observation from nearby officers. Automated occupancy detection systems are currently being piloted by Metro and could be integrated as part of the I-105 ExpressLanes system. Below is an overview of some of the different occupancy detection and enforcement systems.

9.4.3.1 Back Office Declaration

When using non-switchable tags (e.g., stickers), Metro expects to provide the option of declaring occupancy via a mobile interface that would be tied to their account (transponder and license plate). Enforcement would also require law enforcement visual inspection, which instead of beacons could work with mobile license plate recognition cameras, as well as mobile computers or phones connected to the back office. Such a system would interface with the back office and would be consistent with Metro’s existing business rules, which currently specify:

If a switchable transponder is used, the device setting will take precedence over all other occupancy rates priced in the trip transaction.

If a 6C sticker transponder or a non-switchable device is used; and the website, IVR or mobile app (digital declaration systems) is set at a declaration of two or higher no less than 30 minutes before the trip, the trip is priced based on the digital declaration setting.

If a 6C sticker transponder or non-switchable transponder is used without a digital-based declaration or switchable device-based declaration, the trip is priced at the single occupant toll rate.

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Figure 61 - Mobile Occupancy Declaration Interface (left) and Vehicle Mounted LPRs (right)

9.4.3.2 Occupancy Detection Systems

ODS are characterized by their ability to more directly measure the person occupancy of a vehicle. The most common and tested option relies on cameras that take several pictures of the vehicle and use image processing algorithms to calculate the number of passengers (see example in Figure 62).

At the time of this writing, Metro is in the process of implementing a proof of concept for an automated ODS on the existing I-110/I-10 ExpressLanes to electronically determine vehicle occupancy. ODS is intended to supplement manual observation by the CHP to catch violators that intentionally mis-declare their vehicle occupancy. The ODS consists of a front camera and illuminator, a side camera and illuminator, and a laser trigger. The ODS system photographs the front and rear seats of each vehicle, and then determines vehicle occupancy based on those images and compares that occupancy to the corresponding transponder setting. A demonstration project was completed in 2016 to compare the ODS results with time stamped toll transponder data, resulting in 94.1 percent accuracy. When augmented with a manual image review, accuracy improved to 99.9 percent. Metro is optimistic that the ODS proof of concept will be successful and result in the installation of permanent ODS locations to enhance enforcement of occupancy requirements on the I- 105 ExpressLanes.

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Figure 62 - Example Setup for a Video Occupancy Detection System

9.4.3.3 Mobile Occupancy Verification Systems

A different option of combining declaration and verification using a mobile app has been implemented on other express lanes, such as those in Dallas. This type of solution is typically called mobile occupancy declaration and verification systems and relies on an “opt in” approach in which riders with smartphones (or other proxy devices) are automatically detected, counted, and matched to their vehicle (see Figure 63). These technologies currently work by collecting near real-time information that can be matched with information collected by the toll system to associate a transaction with a verified occupancy. In the near future, these technologies could develop further to be potentially used with gantry-less tolling; however, at this time, future testing and demonstration is required.

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Figure 63 - Mobile Occupancy Verification Systems

9.4.4 Monitoring and Data Collection Equipment

The I-105 ExpressLanes will use ITS devices that work to support the toll system and general operations of the corridor. Such devices include traffic monitoring stations to collect data and support express lane performance monitoring and incident management. Roadside vehicle detection equipment will be installed and connected to a traffic management center where real-time traffic conditions can be monitored and coordinated directly with CHP, Caltrans and other entities as necessary. In addition, the data collected will be processed and used in the dynamic pricing algorithm responsible for setting toll rates on the facility. The equipment will need to detect vehicles and provide data related to volume, speed, and lane occupancy (density). Numerous methods and technologies are available for vehicle detection and can be mounted overhead along with the AVI and license plate readers, in pavement, or side mounted.

CCTV cameras capable of pan/tilt/zoom functions will also be utilized to provide a full range of visual coverage on the express lanes (see example in Figure 64). The location of CCTV cameras will be dependent on the placement of toll points and known bottleneck locations on the facility. They may also be used to allow for visual confirmation of signs displaying toll rates. The CCTV cameras can be mounted on the same structures as other roadside equipment or on separate poles depending on the need.

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Figure 64 - Examples Pan/Tilt/Zoom CCTV Camera

9.4.5 Communications Network and Equipment

All roadside equipment for the I-105 ExpressLanes will require communications and will be connected to a central system through a fiber optic communications network, referred to as a backhaul network. The backhaul network will be established by either installing new fiber for the ETC system, or by utilizing existing Caltrans fiber. If existing fiber is used, there would need to be enough capacity to support the communications requirements of the express lanes system.

Roadside system devices are then connected to the trunk line of this network by fiber optic laterals. Ethernet is typically used for short runs communicating devices with roadside cabinets. Switches and routers for Layer 2 and Layer 3 communications complete the basic network set up. Wireless or leased communications are sometimes used for some or all read point locations or communications hubs to serve as a redundant method of communications.

Important aspects of network communications for express lanes is uptime and redundancy. Therefore, communications networks typically leverage topologies such as redundant, collapsed spanning tree rings to allow the roadside equipment to continue to communicate with the host in the event of a fiber cut. Single points of failure are also avoided by using redundant switches and state of the practice protocols.

In addition to efficiency and redundancy, security is a priority for the communications network. For overall security, switches typically support remote access and terminal access systems using a secure shell (SSH) protocol. Logical topologies such as VLAN (Virtual Local Access Network) and VRF (virtual routing and forwarding) commonly implemented in these networks to reduce congestion also provide an additional security benefit.

9.5 TOLL SYSTEM HOST

The toll system host is the central database and processor that operates the ETC system. Through the roadside equipment installed on the lanes, the toll system host receives data from different toll zones and assembles transactions recorded at each zone into a single trip, known as trip building. The compiled trip is then sent to the BOS for processing. The toll system host also manages the dynamic pricing algorithm that sets the toll rates on the express lanes. For business continuity purposes, it is common to have a primary and secondary host for redundancy.

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9.5.1 Pricing and Trip Building

Toll rates are calculated for each toll segment, which is the smallest unit of pricing in a corridor and constitutes the distance between a consecutive entry and exit point. The toll rates are calculated as the product of the distance of the toll segment and the applicable per-mile toll rate for that segment based on downstream traffic conditions. For the I-105 ExpressLanes, each segment has only one tolling point gantry, but if more were added, toll rates would only be associated to the first one. If there are intermediate entry/exit points within a toll segment, these shorter entry/exit combinations are called skip segments. When those exist, the trip building logic will consider the shortest distance possible to ensure the customer is not overcharged. There are currently no skip-segments envisioned for the I-105 ExpressLanes.

Trips are formed and charged based on the collection of traveled segments within an entry and exit to the corridor in the same direction of travel within a reasonable travel window. To ensure the customer does not incur duplicate trips or is overcharged, there are several business rules that the toll system applies to minimize the frequency of such cases.

Charged toll rates are locked with the start of the trip when a vehicle is detected at the first toll segment. For example, if a vehicle registered to a FasTrak® account in good standing and equipped with a FasTrak® transponder enters the express lanes eastbound at I-405 and the price to I-605 is $6.00, the vehicle will be charged no more than $6.00, even if the price to I-605 were to increase while the vehicle is traveling in the express lanes.

9.5.1.1 Inter-Corridor Pricing and Trip Building

As discussed in Section 7, the recommended approach for pricing between the I-105 ExpressLanes and I-110 ExpressLanes is to:

 Allow the I-105 toll system to set the price for movements onto the I-105 ExpressLanes from the I-110 ExpressLanes. This is a change from the current configuration where the I-110 toll system controls the price for movements onto I-105. The price to I-105 destinations on the I- 110 pricing sign would need to be controlled by the I-105 toll system, and toll readers need to be installed on the connectors so the I-105 toll system can assess the appropriate toll.

 Display the price to the next destination for interfacility movements. For example, when approaching the I-105 connector from the I-110 ExpressLanes, the prices shown for the I-105 ExpressLanes will only be the price to travel to the next immediate destination accessible from the I-105 ExpressLanes. The alternative, to display prices to the end of the I-105 ExpressLanes on I-110, would require integration between the I-110 and I-105 toll systems to ensure that users are accurately notified of the prevailing toll rate and charged accordingly.

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9.6 TRAFFIC MANAGEMENT CENTER

The TMC for the I-105 ExpressLanes will be staffed by Metro vendor personnel. The TMC will provide real-time traffic data to operators and have a configurable video wall to display live feeds from CCTV cameras and other traffic management tools.

Emergency scenarios and incident management will require coordination between Metro ExpressLanes operators, Regional Integration of Intelligent Transportation Systems (RIITS) personnel, Caltrans, other partner agencies, and ultimately CHP. Procedures for incident management and operations of the express lanes will be documented before the opening of the facility in an Incident Management Plan (IMP). All appropriate agencies will be involved in the development of the IMP, which will include scenarios such as when to close the express lanes, when to route general traffic on the express lanes, and when to stop tolling the express lanes during emergencies. Typical activities conducted at the Metro’s I-105 ExpressLanes TMC include:

Incident logging and reporting;

Performing manual overrides to support congestion and incident response lane modes;

Assisting Caltrans and maintenance personnel during lanes closures and incidents,

Coordinating with CHP personnel; and,

Conducting bulk trip transaction adjustments and corrections, such as during lane closure

9.7 CUSTOMER SERVICE CENTER

Customer service functions for the I-105 ExpressLanes will be co-located with Metro’s existing CSC for the I-10 and I-110 ExpressLanes. The CSC provides all customer service related activities needed to operate Metro’s ExpressLanes. The CSC and associated personnel are responsible for account management, violations processing, payment processing, first level financial accounting, discount/equity program management, transponder distribution and general customer support. The BOS will receive trip transactions from the I-105 ExpressLanes toll system host, post transactions to customer accounts, and manage all activities to ensure all payments and violations are processed.

9.7.1 Typical Customer Service Center Services

The CSC offers four main services to establish communications with Metro ExpressLanes customers. These are customer service centers, a call center, a website, and mail service.

The customer service centers operate during normal business hours and are staffed with personnel who are trained about the program and customer service. Customers can use the customer service centers to open accounts, close accounts, acquire transponders, make payments, and resolve violation disputes, amongst other services related to their accounts. Metro currently operates two customer service centers located in close proximity to the I-10 ExpressLanes and I-110 ExpressLanes corridors: one located in Gardena, CA and one at the Metro El Monte Station. It is envisioned that a

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new customer service center would be located along the I-105 corridor with the implementation of the I-105 ExpressLanes.

A toll-free number is provided for customer service and account management functions. The call center utilizes an interactive voice response (IVR) system to route customer calls and aid in account management, payments, and customer support.

Metro ExpressLanes also has a website where almost everyone can use to assess information about the program. The website also offers customers the opportunity to manage their account, make payments, and contact customer service.

Mail service is provided for enrollment, payment, transponder distribution, and violation resolution.

9.8 CUSTOMER SERVICE BACK OFFICE SYSTEM FUNCTIONALITY

The I-105 ExpressLanes toll system will include an interface to Metro’s current BOS. The system will capture all transaction information that is transmitted. The BOS serves as processing system for all customer service functions, including the following:

Account Management: This includes all aspects of ETC account management, including account openings, account replenishment, account closures, assessing of fees and credits, processing customer statements, reciprocity with other agencies, and troubleshooting.

Payment Options: Most electronic toll collection accounts are automatically linked to credit or debit cards for the automatic payment of tolls. Payment by check or cash will be supported.

Transponder Inventory Management: This function includes transponder orders, distribution, activation, and replacement. Operational support for the distributing inventory to third party retail outlets is also required.

Violation Processing Management: Violation processing includes the full life cycle of violations, reviewing system-read license plates, obtaining names and addresses from the DMV, printing and mailing notices, processing payments, reconciling financials, and administering appeals. Performance measures would include accuracy of reviewed images and notices, timeliness of invoicing and payment processing, and timeliness of vehicle owner identification.

Customer Service Interfaces: This includes support for phone call management, IVR systems, project website, and apps.

Financial Accounting: Financial accounting includes the processing and reconciliation of all customer payments, fees and credits, and reconciliation of fees and revenues against system transaction records. The sections below explore in more detail key technical elements supporting these functions.

9.8.1 Account Management Business Rules

Back office business rules for the I-105 ExpressLanes will be based on Metro’s existing ExpressLanes program business rules. These business rules are continuously updated as the program’s policies and

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technical aspects evolve. The sections below summarize relevant business rules and identify areas where future business rule modifications may be required.

9.8.1.1 “Pay-as-You-Go”

On January 1, 2020 Metro began a one year pilot “Pay-as-You-Go” program that allows drivers to use Metro ExpressLanes without a FasTrak® transponder. Tolls would be assessed based on license plates. The registered owner of the vehicle on file with the DMV would be responsible for the toll payments. Customers would receive a notice of toll evasion violation for their Metro ExpressLanes trip plus a $4 administrative fee and would have the option to pay on the website, over the phone or at a customer service center. Any unpaid invoices would incur penalties for being past due and delinquent. With “Pay-as-You-Go”, customers would not be able to access other FasTrak® facilities throughout the State unless that facility offers a similar program.

It should be noted that “Pay-as-You-Go” can reduce demand management capabilities, which can be especially critical in highly congested corridors, because all travelers in the corridor would now be eligible to access the lanes as opposed to only those previously registered with a FasTrak® account. “Pay-as-You-Go” would also complicate enforcement by eliminating the ability to conduct automated enforcement based on vehicles being equipped with a valid transponder linked to an account in good standing. Furthermore, “Pay-as-You-Go” would increase toll collection costs due to the added complexity of confirming a license plate match, and would increase toll leakage due to increased incidences of failing to obtain a license plate match due to obscured plates, incomplete DMV records, and from out-of-state or out-of-country vehicles.

9.9 SYSTEM MAINTENANCE

The entity responsible for maintenance of the ETC system will use systems to track all hardware, equipment, software, secure storage of spares or inactive equipment, and firmware for all toll points, dynamic message signs, and communications network hardware installed by the service provider. Maintenance coverage will be required 24 hours a day, seven days a week.

This operator will also be responsible for monitoring communications network performance and maintenance of all switches and other communications equipment delivered as part of the toll system. The operator will work to ensure the ETC system is fully functional and monitored and restored when network issues arise. Prior to opening the express lanes, maintenance requirements will be developed and will specify appropriate thresholds and penalties if requirements are not met.

9.10 OTHER SYSTEM INTERFACES

External coordination between the ETC and other systems will be needed to support the tolling operations, either directly or indirectly. The full extent of these services is not known, but the following interfaces have been identified and should be anticipated.

 Los Angeles Regional Traffic Management Center: Providing data feed from the CCTV cameras installed as part of the toll facility will allow Caltrans TMC operators to observe and

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monitor traffic performance within the corridor. Caltrans operators have capabilities to identify issues/incidents, dispatch resources, and alert motorists of issues. Any additional data sharing/integration needs agreed upon by both parties will be also established.

 Regional Integration of Intelligent Transportation Systems (RIITS) network: Providing data collected at the traffic monitoring stations (vehicle volume, speed, and density) can be shared through the RIITS network which allows real-time information exchange between a number of member partners including jurisdictional governments, transit providers, emergency service providers, and the general public. By 2020, data from the ExpressLanes will route through RIITS to Caltrans.

 511 System: The “GO511.com” website allows for public consumption of traffic system features, incidents, and performance from across southern California. The site provides real- time information on segment travel speeds, posted dynamic messages, roadway closures or construction/maintenance activity, and current camera video. These are all types of data that the ETC system could generate and provide to the 511 platform. However, relevant data would primarily be provided by RIITS and not the ETC roadside system. The only planned interaction with the toll collection system is for the BOS to interact with 511 to help provide information to customers

 California Highway Patrol: CHP enforcement officers will require user information during enforcement activity. Account information (identification and status) will assist in the determination of violations and potentially reduce the length of time of on-road investigations.

 Third Party Vendors: Providing open source data regarding toll rates, travel speed, and occupancy requirements will allow third-party vendors, such as mobile app developers, to distribute real-time information and conditions to the public.

 Transit Rewards Program: The TAP Card is a transit loyalty program that allows users to purchase a single card that works across multiple providers. Currently, customers can earn toll credits on Metro ExpressLanes corridors by using their registered TAP card on the I-10 El Monte Busway or I-110 Harbor Transitway. The I-105 ExpressLanes may look to enact a similar toll credit for Metro transit riders commuting on nearby facilities.

 Low-Income Assistance Plan: If residents in LA County have an annual household income equal or less than the amounts specified by the program, they are eligible for a one-time $25 credit upon account set-up. The credit can be applied to the transponder deposit or used as a pre-paid toll deposit. In addition, their monthly account maintenance fee is waived. To apply, residents must provide proof of eligibility by mail, or by visiting a walk-in center.

 Carpool Loyalty Program: Metro ExpressLanes customers who choose to carpool are eligible for discounts and exemptions per the operational policy of the corridor. In addition, when a FasTrak® account holder uses a Metro ExpressLanes as a carpooler, they are automatically entered in a monthly drawing for a chance to win toll credits.

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 In-Store Purchases: Some stores, including the American Automobile Association, Costco, and Albertsons offer promotional discounts up to 20% on transponder purchases. To qualify for the discount, customers must set up a new account or link the transponder to an existing account.

9.11 FAILURE SCENARIOS

Failure of the ETC system can be a result of physical damage, loss of power, hardware failure, software complications, road blockages, or other complications. The system will be designed to account for planned and unplanned events that will result in temporary disruptions and/or failures through the use of redundancies, response plans, and other mechanisms to reduce impacts to the operations. While not a complete list, the following descriptions highlight baseline failure scenarios:

 Physical damage;

 Loss of power or communications;

 Hardware failure;

 Software complications; and,

 Road blockages

The ETC design will include provisions for failure scenarios prior to acceptance and the ETC operator will develop response plans with associated thresholds for approval by Metro prior to opening the facility.

9.12 INFORMATION SECURITY

Information security is paramount to the integrity of a toll collection system. The potential for data loss and of systems being compromised are risks that need to be mitigated to ensure uninterrupted toll operations. The I-105 ExpressLanes will incorporate best practices with respect to protecting data, including password controlled access, configuration of secure channels, use of anti-virus and anti-malware software, and data backup and purging.

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Enforcement and Incident Management

Express lanes require effective enforcement policies and programs to operate successfully. Enforcement of vehicle occupancy requirements and toll payment is critical to protecting travel time savings and safety for eligible motorists and ensuring the success of an express lane facility. Visible and effective enforcement promotes fairness and maintains the integrity of the facility and helps to garner acceptance among users and nonusers.

In Los Angeles County, the enforcement of the existing Metro ExpressLanes is regulated by the CVC, and the CHP is the designated enforcement agency for express lanes throughout California. Metro has a funding agreement in place to compensate CHP for its enforcement services on the I-10 and I-110 ExpressLanes and anticipates that the agreement will be used as the basis for enforcement on the I-105 ExpressLanes.

There are essentially three types of violations that need to be enforced on the I-105 ExpressLanes: eligibility violations; toll violations; and buffer crossing violations. The proposed procedures, equipment and responsible entities needed to enforce these violation types are described below.

10.1 ELIGIBILITY VIOLATION ENFORCEMENT

Current Metro ExpressLanes business rules require all vehicles using the express lanes to have a FasTrak® transponder. In addition, to receive toll-free travel, vehicles must have a switchable transponder that allows drivers to declare their occupancy as HOV2 or HOV3+. Motorists who falsely declare their occupancy resulting in a discounted toll charge risk receiving a citation by CHP.

To enforce vehicle occupancy rates, CHP officers will correlate visual inspections of vehicle occupancy with enforcement beacon displays in one of two ways:

1. By observing enforcement beacons from observation areas downstream of tolling points. The beacons will display a numeric image corresponding to the vehicle’s transponder switch setting. CHP officers will conduct visual inspections of passing vehicles to determine if the observed occupancy rates are consistent with the display on the enforcement beacon.

2. By observing enforcement beacons facing upstream while following vehicles through a toll zone. Additional enforcement beacons will also be visible as vehicles approach toll gantries, enabling CHP to enforce vehicle occupancy requirements from moving patrol vehicles.

10.1.1 Automated Occupancy Detection Systems

Metro is in the process of implementing a proof of concept for an ODS on the existing I-10 and I-110 ExpressLanes. ODS is intended to supplement manual observation by the CHP to catch violators

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who intentionally set their transponder to receive a discounted trip. As discussed in Section 9.4.3, the ODS system photographs the front and rear seats of each vehicle, and then determines vehicle occupancy based on those images and compares it to the corresponding transponder setting. Metro completed a demonstration project in 2016 comparing the ODS results with time-stamped toll transponder data and found that the ODS had an accuracy rate of 94.1 percent. When augmented with manual image review, accuracy improved to 99.9 percent. Metro is optimistic that the ODS proof of concept will be successful and result in the installation of permanent ODS locations to enhance enforcement of occupancy requirements on the I-105 ExpressLanes.

There are other emerging technologies to detect and communicate vehicle occupancy that may become operational over the next decade. One such method involves interrogation via vehicle on- board units that use seat detectors to determine occupancy rates. The seat detectors are a component of Connected Vehicle systems under development in states around the country as part of the USDOT Connected Vehicle Pilot Program. Another emerging technology involves the use of opt-in occupancy declaration mobile applications (e.g., CARMA, Rideflag), which employ advanced algorithms to verify and declare legitimate carpooling.

Metro is at the forefront of testing and piloting of automated occupancy detection and enforcement applications and has generated important data enforcement and performance monitoring and reporting. By the time the I-105 Express Lanes are in operation, these or other automated occupancy enforcement technologies may be viable for deployment. However, given the uncertainties in the emerging technologies, the I-105 ExpressLanes must be designed to incorporate traditional visual inspection methods.

10.2 TOLL VIOLATION ENFORCEMENT

Under current Metro ExpressLanes business rules, a toll violation occurs when a driver uses the express lanes without a properly mounted transponder associated with a valid FasTrak® account. The ETC system identifies vehicles that do not have valid transponders and captures images of their license plates. Metro uses the images to associate the transaction with a toll account when a transponder is not read, or to look up the registered owners address in the case of a toll violation. License plate numbers are identified using OCR technology and are then confirmed manually. The owners must pay the toll plus a $25 penalty for their first violation. The penalty increases to $55 for the subsequent violation notices. Metro’s system integrator is responsible for confirming license plate numbers and issuing and tracking violation notices.

Metro has used its transponder-only requirement as a tool to meter traffic on the I-10 and I-110 ExpressLanes. However, Metro will be piloting “Pay-as-You-Use” license plate tolling in late 2019 and depending on its performance could potentially adopt license plate tolling on a permanent basis. If this is the case, toll violations would only be issued to “Pay-as-You-Use” customers who do not make the required toll payments. Metro’s toll system integrator will run the “Pay-as-You-Use” pilot, including the enforcement of non-payment.

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10.2.1 Buffer Crossing Violations

The I-105 ExpressLanes will be separated from the general-purpose lanes on I-105 by double solid white lines. Designated access and egress points will be indicated by single striped lines. It is a violation of the California Vehicle Code to cross the double solid white lines. The CHP will be responsible for enforcing buffer crossing violations on the I-105 ExpressLanes, together with other moving violations. This will be done primarily from patrol cars operating on the lanes. Buffer crossing violators can be issued a minimum citation of $491. Signs will be posted along the ExpressLane alignment informing motorists of the fine for buffer crossing violations. This is consistent with current buffer crossing enforcement protocols on the I-110 and I-10 ExpressLanes. However, on the I-110 and I-10 ExpressLanes, channelizers are being installed. Experience with channelizers on those lanes may inform access future access restriction design and policy on the I- 105 ExpressLanes.

10.3 INCIDENT MANAGEMENT

The CHP will be responsible for incident management on the I-105 ExpressLanes. Procedures for clearing incidents and maintaining express lane operations during incidents will be documented in an IMP, which will identity response protocols for incidents of different types, together with the incident management functions of the following entities:

Los Angeles Regional Transportation Management Center

California Highway Patrol

Metro Freeway Service Patrol (FSP)

System Integrator

The FSP plays a role in incident management on the existing I-10 and I-110 ExpressLanes and provides dedicated tow trucks to clear disabled vehicles and debris from the lanes in a timely manner. It is expected that they will perform similar functions on the I-105 ExpressLanes.

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Performance Assessment

Performance assessment and evaluation of the I-105 ExpressLanes will serve a variety of purposes. Real-time performance data will be used to set dynamic toll rates on the express lanes to ensure that free-flow conditions are maintained. Performance data will also be used to optimize the operation of the express lanes and calibrate dynamic pricing algorithms. In addition, Metro will disseminate information on the performance of the express lanes to its Board, elected officials, stakeholders and the public to validate their performance and demonstrate the benefits they provide to the traveling public.

Performance reporting for the I-105 ExpressLanes is likely to be similar to the reporting done for the I-10 and I-110 ExpressLanes. This reporting includes a monthly data trends report that is reviewed by Metro staff and annual reporting that is presented to the Metro Board.

11.1 FEDERAL AND STATE PERFORMANCE REQUIREMENTS

Federal law requires express lanes to have performance monitoring programs to ensure that projects constructed with federal funding are not degraded. Express lane facilities are considered degraded when average speeds during AM or PM peak periods are less than 45 mph for 10 percent or more of the time over a consecutive 180-weekday period.

Degradation can be caused by a number of factors, such as VMT growth, weaving/merging at/near freeway-to-freeway interchanges and ingress/egress points, lane drops, and occupancy misdeclaration. In the case of the I-110 ExpressLanes, it is often caused by ExpressLanes vehicles merging onto the congested mainline at the northern terminus at Adams Blvd. On the I-105 Expresslanes, performance would be maintained by the following: constructing dual lanes for almost the entire 105 corridor so that there are no bottlenecks; automated occupancy detection; adding weave lanes to minimize friction at all ingress/egress points except for one; setting the toll rate appropriately; CHP enforcement of the vehicle code; channelizers to prevent unauthorized weaving; and dedicated freeway service patrols to clear incidents as soon as possible.

To comply with federal requirements, Caltrans prepares an annual California High-Occupancy Vehicle Facilities Degradation Report and Action Plan, with the most recent version dated November 2018. This report identifies HOV and express lane facilities in California that do not meet federal performance standards. In addition, Caltrans District Offices have developed Action Plans to remediate cases of performance degradation with input from Caltrans' Headquarter Traffic Operations and FHWA.

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Caltrans District 7 prepares a Managed Lane Annual Report2 documenting the performance of all HOV and express lanes in Los Angeles and Ventura counties. This report provides manual count data of vehicle volumes, occupancy, and classification for all managed lanes in the two counties, including I-105. The Annual Report is used to inform policy decisions on managed lane facilities in Los Angeles County.

At the state level, Assembly Bill 194 modified Section 149.7 of the California Streets and Highways Code allowing regional transportation authorities to apply directly to the CTC for permission to implement new high occupancy toll lane projects. Section 149.7 was modified to include the following reporting requirement:

(h) A sponsoring agency that develops or operates a toll facility pursuant to this section shall provide any information or data requested by the commission or the Legislative Analyst. The commission, in cooperation with the Legislative Analyst, shall annually prepare a summary report on the progress of the development and operation of any toll facilities authorized pursuant to this section. The commission may submit this report as a section in its annual report to the Legislature required pursuant to Section 14535 of the Government Code.

Metro will need to coordinate with the CTC to identify performance data that the CTC may require on the I-105 ExpressLane to include in its annual report to the California State Legislature.

11.2 IDENTIFICATION OF PERFORMANCE METRICS

As plans for the I-105 ExpressLanes advance, Metro will track any emerging issues and develop a set of proposed performance metrics for the express lanes. As potential measures are considered, the following issues should be considered:

How is the measure collected – with real-time detection equipment, regular counts or surveys, or one-time customer surveys?

Is the data already collected, or would a new effort be needed to do so?

How often should the data be collected?

Which agency is best placed to collect the data?

What is the cost of collecting the data?

Should the data be collected internally or by an outside vendor or contractor?

In order to demonstrate that the I-10 and I-110 ExpressLanes meet Federal and State operational standards, Metro’s Board approved the use of the following performance metrics:

2 https://dot.ca.gov/-/media/dot-media/district-7/documents/dist-favs/ml/2016-managed-lane-annual-report-ct-dist-07-a11y.pdf

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Travel time savings

Average vehicle speed

Mode shift to carpool, bus, or vanpool

Person throughput

Transportation access for the low-income commuter

During the first year of operation, Metro also conducted a customer satisfaction survey of travelers in the I-10 and I-110 corridors to determine the effects of the demonstration program on travelers using the express and general-purpose lanes. The customer satisfaction survey was required by the state law enabling the ExpressLane demonstration.

11.3 PERFORMANCE MONITORING AND REPORTING

11.3.1 Data Collection

Performance data for express lanes primarily comes from the automated toll collection and traffic monitoring systems that are used to operate the lanes. These systems can be programmed to generate automated reports that can be formatted to meet varying requirements. These systems include roadway detection devices that collect data on traffic speeds, volumes, density, and throughput. This information is conveyed in real time to the TMC and is also archived in standardized templates used to generate weekly and monthly performance reports.

Field counts are also commonly used to validate and, if need-be, calibrate the information derived from toll collection systems. For example, Caltrans conducts manual counts of peak period vehicles and vehicle occupancy rates on its HOV facilities twice a year. Metro regularly conducts field counts of vehicle occupancy to validate and refine the occupancy information derived from switchable transponders and account for transit riders. Metro also conducts speed runs on the I-10 and I-110 express lanes to develop a better understanding of fluctuations in speeds that are not possible to derive from average speed calculations.

In addition, Metro conducts annual attitudinal surveys of their customers to learn about their satisfaction with Metro’s ExpressLanes program. The survey asks questions about customer demographics, satisfaction, and usage preferences.

11.3.2 Performance Reporting

Metro prepares two types of ExpressLanes performance reports: monthly data trends reporting and annual reporting to the Metro Board.

Metro’s monthly data trends reporting is intended as a tool for staff to assess the performance of the ExpressLanes, including traffic and toll system performance. Metro staff also have the ability to pull ad-hoc reports from the ExpressLanes toll systems to investigate issues or trends.

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Metro prepares an ExpressLanes Performance Report for each fiscal year (July 1st to June 30th). These reports are provided to Metro’s Board in January. Performance highlights from the reports include:

Monthly average travel speeds

Average AM and PM peak-period travel speeds

Total number of vehicle trips

Number of transponders issued

Low Income Assistance Plan account openings

Total minutes of HOV-only operation

The Performance Reports also discuss the financial performance of the express lanes, how net toll proceeds are used, violation statistics, and reward program activity. The reports also discuss operational issues and improvement projects to alleviate inefficiencies and bottlenecks. In addition to the fiscal year performance reports, Metro’s Board also receives updates on the performance of the express lanes at six-month intervals.

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