20th ACEA Bus Rapid Transit (BRT) An Efficient and Competitive Mode of Public Transport DECEMBER 2013 Robert Cervero University of California Berkeley, USA 20 Report_20thSAG.indd 1 26/11/2013 15:37 Content 1. Introduction: rationale and main objectives 3 2. BRT: a suite of high-quality, bus-based mobility options 3 3. Global trends 4 BRT systems by countries and regions 5 Regional comparisons of BRT ridership and performance 7 Urban densities and BRT usage 9 4. Characterising BRT: the supply side 11 Infrastructure and running-ways 11 Stations 11 BRT vehicles 12 Network designs 13 BRT operations, routing and scheduling 14 Fare collection and enforcement 17 5. BRT system performance 17 Operating speeds 17 Comfort 18 Safety 19 Environmental impacts 19 Social equity 20 6. BRT versus urban rail: cost and service comparisons 20 Cost comparisons 20 Urban densities and cost-effective investments 23 The limits of BRT relative to urban rail 23 Net welfare impacts 24 7. BRT and urban development 24 8. BRT management and institutional challenges 28 Managed competition in Bogotá 28 Other BRT institutional experiences 29 9. Conclusion 31 Report_20thSAG.indd 2 26/11/2013 15:37 3 1. Introduction: tional bus systems. In ways, it offers the best of both worlds: rationale and main objectives the speed and reliability of rail, and the operating flexibility and lower cost of a conventional bus (Deng and Nelson, 2011). Bus Rapid Transit (BRT) systems have gained popularity worldwide as a cost-effective alternative to far more expen- New York-based Institute of Transportation & Deve- sive urban rail investments. High-quality bus-based systems lopment Policy (ITDP), which has emerged as one of the also better serve the low-density settlement patterns of technology’s strongest proponents, defines BRT as “a many suburban markets and small-to-medium size cities high-quality bus-based transit system that delivers fast, due to the inherent flexibility advantages of rubber-tyre comfortable and cost-effective urban mobility through the systems – the same vehicle that provides speedy line-haul provision of segregated right-of-way infrastructure, rapid services on a dedicated bus lane or busway can morph into and frequent operations, and excellence in marketing and a feeder vehicle, collecting and distributing customers on customer service” (Wright and Hook, 2007). It is the element local streets. of a separate right-of-way that distinguishes “high-end” BRT from lower quality services, which some have called This report reviews experiences with designing and “BRT Lite”. Table 1 distinguishes high-end, full-service BRT implementing BRT systems worldwide. BRT is first defined from low-end to moderate-quality services in terms of key across a spectrum of service qualities and costs. Global design and operating features. High-end services, such as trends are next reviewed, highlighting cities and regions of in Bogotá, Colombia and Guangzhou, China, offer a metro- the world with the most extensive and advanced systems. quality service, featuring: an integrated network of routes Relationships between urban densities and BRT cost- and corridors; enclosed, high-quality stations; pre-board effectiveness are noted. System designs and operations – in fare collection/verification; frequent and rapid services; terms of running ways, rolling stock, route configurations, modern, clean vehicles; branding and marketing; and supe- stations, fare collections, and the like – are then reviewed. rior customer service. BRT Lite offers some form of priority This is followed by a comparison of BRT’s cost and perfor- but not full-segregated busways, and instead of stations, mance relative to urban rail transit systems. Information usually has simpler bus shelters. Thus, what mainly distin- on the cost-effectiveness of heavy-rail, light-rail and BRT guishes high-end from low-end services is the presence of systems relative to urban densities are also compared. exclusive or dedicated rights-of-way for operating buses, The report then turns to efforts among a handful to cities to and more substantial station platforms and boarding areas. proactively promote transit-oriented development (TOD) Bus stations are particularly important since they accommo- near BRT stations and along corridors. This is followed by date fare payment before boarding the bus, allowing for fas- discussions on the institutional arrangements that have ter, more orderly, multi-door boarding and alighting, similar been introduced to effectively manage BRT services. to urban rail systems. This reduces dwell time at stops and The report closes with discussions on BRT’s likely future allows for more predictable scheduling and thus, more given global growth projections and other pressing policy reliable services. Advanced technologies are also part and agendas in the foreseeable future. parcel of high-end BRT: AVL (automated vehicle location) for real-time management and dispatching, preferential signal treatment of buses at signalised intersections, and real-time 2. dynamic passenger information systems (“next bus” at stations; “next station” on buses). Other features of BRT are common BRT: a suite of high-quality, regardless whether high-end or not. These include: branding bus-based mobility options (e.g., logos and colour schemes that distinguish BRT from conventional bus services); wider spacing between stops/ Dozens of definitions can be found on BRT however they stations than traditional bus services; raised platforms and all frame BRT as a bus-based system that mimics the high- same-level boarding and alighting (eliminating the need capacity, high-performance characteristics of urban rail for passengers to climb steps to get on the bus and thus systems at a much lower price. Curitiba, Brazil, is credited reducing vehicle dwell times); vehicles that are quiet, have high with pioneering BRT and its mayor at the time, Jaime capacities and run on clean fuels; and intersection treatments Scientific Advisory Group Report Lerner, referred to the city’s BRT system as a “surface metro” to expedite vehicle flows, such as far-side bus stops and queue- – a high-quality bus service with similar performance of a jumper lanes. ACEA subway but at a fraction of the cost (Cervero, 1998). In terms th of service quality and costs, then, BRT is often thought of as For BRT, to truly represent a mode that is time-competitive occupying the middle ground between urban rail and tradi- with urban rail systems and private automobiles, exclusive, 20 Report_20thSAG.indd 3 26/11/2013 15:37 4 Bus Rapid Transit (BRT) dedicated right-of-way is an essential feature. A new termi- The three BRT systems that have been awarded the nology has been introduced in recent years, adopting the Gold Standard – Bogotá, Guangzhou, and Lima, Peru – to Olympic medals of Gold, Silver, and Bronze, to rate BRT in date have also added elements that safeguard or improve terms of service quality. In The BRT Standard 2013, a col- the speed, reliability, and comfort of services. These include lection of pro-BRT organisations led by ITDP identified five full-service control centres that GPS monitor bus locations essential elements needed to “keep the ‘R’ in Bus Rapid (to respond to incidents, avoid bunching and recording Transit” and thus achieve a Gold Standard: demand patterns for future service adjustments) and passing lanes at stations. • busway alignment: median-location of a busway or bus- only corridor that minimises conflicts with turning vehicles, delivery vehicles, and other potential obstructions (Figure 1) ; 3. • dedicated right-of-way: physical segregation and full enforcement; Global trends • off-board fare collection: barrier-controlled turnstiles that verify off-board ticket payment; To date, more than 150 cities have implemented some • intersection treatments: turn prohibitions across busway form of BRT system worldwide, carrying around 28 million and sign priorities; and passengers each weekday. At present, BRT systems world- • platform-level boarding: elimination of steps and wide comprised 280 corridors, 4,300km of routes, 6,700 shrinkage of gaps between vehicles and platforms through stations and 30,000 buses (BRTDATA.ORG). bus guidance, raised platforms, and boarding bridges. BRT systems are currently being added at a geometric Lower-quality BRT exists where elements deviate from rate, gaining particular favour in the developing world, this (according these services Silver or Bronze standards), following on the heels of widely publicised BRT successes such as the use of delineators or colourised pavement in lieu in Curitiba, Bogotá, Mexico City, Istanbul, Ahmedabad and of physical separators along the dedicated right-of-way or Guangzhou. These developing cities show that high-per- barrier-free, proof-of-payment schemes instead of turnstile formance BRT systems that yield appreciable mobility and controls with verified ticketing for passenger entry. environmental benefits can be built at an affordable price. Table 1 Differences between High-End BRT and BRT Lite HIGH-END BRT/FULL-SerVICE LOW-END BRT/ BRT “LIte”/ MODerAte-SerVICE Exclusive transit-ways; dedicated bus lanes; Mixed traffic; modest intersection RUNNING WAYS some grade separation; intersection treatments treatments Enhance shelters to large Stops, sometimes with shelter, seating, lighting, STATIONS/STOPS temperature-controlled transit centres and passenger information SerVICE DesIGN Frequent services; integrated local More traditional service designs and express services; timed transfers