SPUR REPORT TRANSPORTATION Freeways of the Future Delivering a fast and reliable regional bus network on existing freeway lanes JANUARY 2021 This report is a component of the SPUR Regional Strategy, a vision for the future of the San Francisco Bay Area spur.org/regionalstrategy This report was adopted by the SPUR Executive Board on July 14, 2020. Acknowledgements Authors: SPUR is grateful to the following Thank you to the funders of the Jonathon Kass and Arielle Fleisher individuals who reviewed report SPUR Regional Strategy: findings and/or provided feedback, Chan Zuckerberg Initiative This work was informed by many insights or research: Nicholas Clarence E. Heller Charitable reviewers and task force participants. Abbott, Ratna Amin, Lacy Bell, Foundation However, the report has not been Tony Bruzzone, Lauren Bennett, Curtis Infrastructure Initiative endorsed by task force members or Lauren Cencic, Dahlia Chazan, Dignity Health reviewers and does not necessarily Conan Cheung, Betty Deakin, Facebook reflect their views. All errors are the Jean Fraser, Tim Haile, Jason Junge, Genentech authors’ alone. Lisa Klein, Timothy Lew, Gwen George Miller Litvak, Jim Macrae, Colin Peppard, Hellman Foundation SPUR Task Force: Rick Ramacier, Darwin Moosavi, John S. and James L. Knight Charles Anderson, Helena Culic-Caro April Petonak, Joe Rouse, Georgia Foundation Robert Del Rosario, Austin Denmeier, Sheridan, Chris Schmidt, Ray Trainor, Marin Community Foundation Lauren Dong, Ron Downing, Joshua Schank, and Anup Tapase, Sage Foundation Michelle Go, Ian Griffiths, Chris Lepe, and Philbert Wong. Silicon Valley Community Foundation Linda Morris, Sean Nozzari, Aaron Stanford University Quigley, Toshi Tosh Shephard-Ohta, Thank you to SPUR staff and former Dave Vautin staff who reviewed and provided Additional funding provided by feedback, including Katie Ettman, AECOM, Fund for the Environment Benjamin Grant, Nick Josefowitz, and Urban Life, Microsoft, Seed Fund, Karen Steen, Laura Tolkoff and Stripe, Uber Technologies and Kristy Wang. Wells Fargo. Edited by Rachel Fudge Designed by Shawn Hazen Copy Edited by Becky Ohlsen Cover photo by Sergio Ruiz Contents Executive Summary 4 Introduction 6 Chapter 1 11 What Are Managed Lanes, Express Buses and Express Lanes? Chapter 2 13 Current Bay Area Managed Lanes and Express Buses Fall Short Chapter 3 20 Cause for Optimism Chapter 4 24 Delivering a Comprehensive Regional Express Bus Network: Challenging but Worthwhile Chapter 5 34 Recommendations: How to Create a Robust Express Bus Network Appendix A: 40 Bay Area Freeway-Based Express Bus Routes Appendix B: 41 Interstates and Highways Carrying Current Express Bus Routes Appendix C: Options for Freeway Transit Stations and Stops 42 MENDING THE NET 4 Executive Summary Imagine a Bay Area where your school, your job and your friend in the next county are no more than 30 minutes away via convenient, reliable and enjoyable buses zipping along uncongested freeway express lanes throughout the day. In this future, a fast, reliable and coordinated regional express bus network operating on a system of freeway express lanes connects transportation hubs throughout the region and beyond. All-electric buses serve freeway stations and freeway-adjacent stations that are accessible via walking, bicycling, local transit and evolving neighborhood transportation options. Stations in the freeway median create destinations that help bring more people and energy to otherwise desolate freeway underpasses and overpasses, reducing the freeway’s impact as a barrier between surrounding communities. Direct access ramps make it easy for vehicles to get into and out of freeway express lanes from the local street network, allowing the express lane network to support shorter distance transit connections and promoting a rich mix of other high-occupancy travel modes, including local bus operators, private shuttles and vanpools. The netw ork delivers high-quality regional transit options to portions of the Bay Area that have historically been underserved, connects new destinations along corridors that already have some regional transit, and provides an alternative where existing regional rail has been filled to capacity. Meanwhile, this fast and sustainable transit option reduces solo driving, improves air quality and helps the region meet its greenhouse gas emissions-reduction targets. This report considers benefits of a coordinated regional express bus network operating on freeway express lanes and proposes strategic policies, processes and regulatory reforms needed to deliver such a network. This report does not propose specific express bus routes or operating details. Historically, policymakers have looked to rail service to deliver fast, high-capacity regional-scale transit. But achieving regional goals for increased transit use and reduced greenhouse gas emissions demands improvements that can be delivered more quickly and affordably by bus than by rail. The Bay Area already has extensive high-occupancy vehicle (HOV) lanes and express lanes and an ambitious plan for expanding that network throughout the region. The region also has express buses, though they are not operated as a coordinated network nor are they supported with targeted infrastructure, such as efficient access to express lanes and accessible, high-quality stops. The region’s commitment to creating a comprehensive and continuous express lane network creates an opportunity for regional express buses to deliver faster and more reliable transit options. Designed properly, with ramps and bus stops that are easy to access, the express lane network could support buses, vanpools, private shuttles and high-occupancy vehicles. The effort is not without major challenges, both in the development of an express lane network, and in the design and implementation of express bus service. Challenges include the following: > Efficient development of a freeway express lanes will require conversion of existing general-purpose lanes, which has been politically challenging in the past. > Fragmented authority for both express lanes and regional bus operation threatens efforts to deliver efficient and coordinated regional services. > Delays in delivering express lane projects, sometimes due to slow and complex approval processes, hamper the region’s ability to create an efficient express bus network. > Express bus services attract disproportionately white and higher income riders. Ensuring equitable access will require explicit service design and pricing strategies to serve more diverse communities. To address these opportunities and challenges, SPUR makes the following recommendations: FREEWAYS OF THE FUTURE 5 Recommendation 1: Establish a “conversion first” policy to deliver the region’s express lane network. A continuous express lane network is essential for fast and reliable express bus service. It must be developed primarily through conversion of existing freeway lanes so that the network can be delivered quickly, affordably and in line with greenhouse gas emissions reduction goals. Recommendation 2: Accelerate at least three regional express bus pilot routes within the next five years. The process of establishing a more efficient regional express bus network will be iterative. Pilots to deliver uncongested regional express bus routes should begin immediately and incorporate near-term strategies where continuous freeway express lanes cannot be put quickly into place. These strategies may include some combination of intensive HOV enforcement, conversion of freeway shoulders to part-time transit lanes and increased restrictions on which vehicles may access HOV lanes as necessary to maintain speed targets. Recommendation 3: Seek legislative and administrative policy changes to expedite implementation of express lanes. Creating express lanes that adequately support a regional express bus network will require a new state law authorizing the conversion of general-purpose traffic lanes to express lanes. It will also require more flexible Caltrans guidelines to accommodate express bus infrastructure such as stations and direct access ramps. In addition, the process will be accelerated if Caltrans and the Metropolitan Transportation Commission (MTC) establish “corridor managers,” who are jointly accountable to Caltrans and the MTC, and who take ownership of completing express lane projects. Recommendation 4: Rationalize governance. Creating coherent regional policies that prioritize fast reliable regional express bus operation will require a stronger regional governance model — one that ensures coordinated pricing (including low-income discounts), fines, enforcement methods and lane-access policies. These policies should include criteria for the use of express lane revenues to support a regional express bus network and a regional authority that can assign bus-operating responsibilities for regional express bus routes. Recommendation 5: Develop a comprehensive regional express bus network plan. MTC should lead development of an integrated express bus network plan that includes performance metrics and equity strategies. This initiative should also establish a process to coordinate planned and future freeway rehabilitation projects to incorporate express bus infrastructure. Recommendation 6: Establish equity targets and design the network and operations to meet the targets. A growing regional express bus network must deliver service equitably, particularly for those who have not been well served by regional buses in the past, including nonwhite