HomeMy WebLinkAboutStaff Report 7374
City of Palo Alto (ID # 7374)
City Council Staff Report
Report Type: Action Items Meeting Date: 4/17/2017
City of Palo Alto Page 1
Summary Title: VTA Next Network Final Plan & Palo Alto Shuttle Vision Plan
Title: Review the Valley Transportation Authority Next Network Initiative
Final Plan and the Draft Palo Alto Transit Vision Plan and Direct Staff to
Pursue Funding from VTA to Backfill Service Reductions with Local Shuttle
Service
From: City Manager
Lead Department: Planning and Community Environment
Recommendation
Staff recommends that Council review the Valley Transportation Authority’s Next Network
Initiative Final Plan, which is schedule for a VTA Board vote in May, review the draft Palo Alto
Shuttle Vision Plan, and:
1) Direct staff to pursue VTA funding to backfill planned reductions in bus service with local
shuttle service; and
2) Direct Staff to develop a finance and implementation plan for possible future extensions to
the existing Crosstown Shuttle and Embarcadero Shuttle routes as well as a new branding
and marketing strategy for the Palo Alto Free Shuttle Program. These actions would be
contingent on future funding.
Executive Summary
VTA is planning reductions in bus service in Palo Alto at the same time that Palo Alto has been
planning potential expansions in local shuttle service. Expansion of local shuttle service is
contingent on funding.
This evening’s agenda item allows for a discussion of both planning efforts and suggests that
the City advocate for VTA funds to backfill bus service reductions with local shuttle service. City
staff is also requesting direction to develop a finance and implementation plan for additional
shuttle service expansions as well as a new branding and marketing strategy for the Palo Alto
Free Shuttle. Funding may be available from County Measure B and other sources, and would
City of Palo Alto Page 2
be a pre-requisite for shuttle service enhancements.
Background
The 1998-2010 City of Palo Alto Comprehensive Plan identified “Goal T-2: A Convenient,
Efficient, Public Transit System that Provides a Viable Alternative to Driving.” This goal led to
the establishment of the Palo Alto Shuttle in 1999. The City of Palo Alto has historically
provided free public transit service via a shuttle program that included two routes: the
Crosstown and the Embarcadero. In 2014, the Palo Alto Free Shuttle Program introduced a new
shuttle route in partnership with the City of East Palo Alto, bringing the total number of shuttle
routes in the program to three. However, this third route was discontinued by the City of East
Palo Alto on September 30, 2016. The Palo Alto Free Shuttle service complements transit
services provided by the Valley Transportation Authority (VTA), as well as shuttle services
provided by Stanford University, private companies and other transit operators.
The Crosstown Shuttle provides a north-south connection from the Palo Alto Transit Center to
Crescent Park, Midtown, the Charleston Road area, and several community centers, libraries,
senior centers, neighborhoods and schools in between. The north-south connection is also
supported by the VTA route 21, which follows Middlefield Road from the Palo Alto Transit
Center to the Mountain View city limits, continuing on to downtown Mountain View. The
Crosstown Shuttle route is funded 100% by the City’s General Fund and operates Monday
through Friday during the daytime period, excluding some holidays.
The Embarcadero Shuttle provides an east-west connection from the Palo Alto Transit Center to
the businesses located in the Baylands at the east end of Embarcadero Road. The City currently
contracts with the Peninsula Corridor Joint Powers Board (PCJPB) to operate the Embarcadero
Shuttle, which is a part of the Caltrain peak-hour commuter shuttle program and subsidized
46.5% by the PCJPB. The remaining 53.5% is funded by the City of Palo Alto General Fund. The
shuttle operates Monday through Friday at peak periods only, excluding some holidays.
In 2015, with the vision of expanding mobility options for Palo Alto residents, employee and
visitors of all ages and abilities, staff retained Nelson\Nygaard Consulting Associates, Inc. to
develop the Palo Alto Transit Vision Plan (Attachment A). In January 2017, VTA released its Next
Network Initiative Draft Plan (Attachment B), which included modifications and proposed
elimination of several transit routes in Palo Alto. Addressing gaps which would result from the
VTA fixed-route transit service changes in Palo Alto was a key consideration in the development
of transit route concepts in the Palo Alto Transit Vision Plan. VTA is expected to release their
Next Network Initiative Final Plan on April 7, 2017 and it will likely include changes to the draft
plan proposal for VTA service in Palo Alto.
Discussion
City of Palo Alto Page 3
In 2015, Staff engaged Nelson\Nygaard Consulting Associates, Inc. to develop the Palo Alto
Transit Vision Plan. This study was intended to move the vision of a citywide fare-free transit
network forward by developing an expanded system concept for consideration by elected
officials and residents alike. The plan is intended to serve as a blueprint for implementing new
transit services within Palo Alto that connect residential areas to key employment, shopping,
recreation, and school destinations. The vision outlined within the plan also seeks to improve
regional connectivity with linkages to Caltrain and other transit providers (e.g. VTA, SamTrans,
AC Transit), and take appropriate measures to address and fill gaps which may be presented by
the elimination or modification of some VTA transit service in Palo Alto.
This Palo Alto Transit Vision Plan was developed in close consultation with current shuttle
users, residents, commuters and visitors. The planning process included the following phases:
Community Engagement and Market Analysis (October 2015 to January 2016) - market
demand analysis, community survey and community meeting
Route Concept Development (January 2016 to March 2016) - development of universe
of route concepts derived from community goals and objectives, community meeting,
and high-level operational analysis
Route Concept Screening and Service Plan Development (February 2016 to March
2016) - screening of universe of route concepts against goals and service criteria and
development of a five-year service plan including phased implementation of additional
service
Monitoring VTA Next Network Initiative (April 2016 to January 2017) – study paused
while Staff engaged in advocacy and coordination around the proposed route restricting
by VTA
Route Concept Development Phase 2 (January 2017 to March 2017) – route concepts
refined based on VTA Next Network Initiative draft plan and pre-release discussions
around the final plan
VTA Next Network Initiative Update
In January 2017, VTA released the Next Network Initiative Draft Plan, which focused on a
reduction in coverage-based transit service in order to provide more robust and frequent
service to higher ridership routes within the VTA service area. This draft plan included a service
concept that was 90% focused on high-ridership routes and 10% oriented toward providing
service coverage to other areas. In early April, after the preparation of this staff report, VTA
released the Next Network Initiative final plan, which is likely to propose 83% of operating
funding be used to improve higher ridership routes, and 17% of funding for routes serving
coverage goals. Based on discussions with VTA staff, the Next Network Initiative Final Plan will
propose modification to fixed-route service in Palo Alto as described in Table 1 below:
Table 1: VTA Next Network Initiative Final Plan - Projected Impacts to Palo Alto
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Route
Number
Description of Change Routing
Change
Frequency
Change
21 (New) The existing routes 35 and 32 would become route 21
and connect the Palo Alto Transit Center with San
Antonio Shopping Center, San Antonio Caltrain Station,
Downtown Mountain View, Downtown Sunnyvale and
the Santa Clara Caltrain Station.
NO NO
22 Route will remain but frequency will be reduced. NO YES
35 Current route 35 will be discontinued and replaced with
new Route 21.
YES YES
88/288
(New)
Current routes 88, 88L and 88M will be replaced with
three new routes 288, 288A and 288B that will only run
once in the morning and twice in the afternoon. One bus
on each of the three routes will travel to Gunn High
School and the VA Medical Center in the morning and
one bus on each of the three routes will depart the
school at dismissal time. One bus on one route will
depart at a later time to be determined jointly by the
school administration, PTA, greater school community,
City and VTA.
YES YES
89 Route 89 will continue to operate as is between the
California Avenue Caltrain Station, Stanford Research
Park and VA Medical Center.
NO NO
102/103/10
4/182
No changes to express routes proposed at this time.
Subject to change pending outcome of upcoming study.
NO NO
522 Route will remain with increased frequency proposed to
begin in April 2017. VTA has agreed to analyze the
addition of more stops within Palo Alto.
NO YES
Paratransit
Service
Paratransit service area will likely contract with the
reduction in fixed-route service, increasing the fare for
paratransit service for residents along the west side of
the US 101 freeway on the east side of Palo Alto. The
elimination of the all-day route 88 service will move
these residents from the standard paratransit area to
the extended paratransit service area. These residents
could see their paratransit fare increase from $4.00 to
$16.00 per trip.
YES NO
Source: Planning and Community Environment Department, March 2017
At the January 24, 2017 City Council meeting, VTA staff presented the Next Network Initiative
Draft Plan and received feedback from the Councilmembers. Subsequent to the meeting, both
the Mayor and City Manager drafted letters to the VTA Chair and Executive Director,
respectively. These letters are included as Attachment C.
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Throughout the last phase of the development of the Palo Alto Transit Vision Plan, Staff has
worked to identify solutions to the proposed reduction in fixed-route transit service for Palo
Alto residents. In order to address this, the plan identifies specific expansion opportunities for
the Palo Alto Free Shuttle Program. Currently, 74% of Palo Alto residents are within walking
distance (1/4 mile) of fixed-route transit service. Under the Next Network Initiative Final Plan, it
is anticipated that this would be reduced to 61% of Palo Alto residents (Note: this amount
increased slightly between the draft and final plans). With the implementation of the
recommendations of the Palo Alto Transit Vision Plan, 77% of Palo Alto residents would be
within walking distance (1/4 mile) of fixed-route transit service. This exceeds the mobility goal
of 75% within the draft Sustainability and Climate Action Plan.
Palo Alto Transit Vision Plan Recommended Shuttle Route Modifications and Extensions
Based on current transit coverage in Palo Alto and gaps in coverage identified through the
transit walkshed analysis, proposed changes to the VTA network, and community needs as
expressed through the outreach process, a full set of route concepts were developed and
screened as part of the visioning process. The outcome developed proposed route
modifications to the Crosstown and Embarcadero routes, as well a new South Palo Alto route.
The recommended route modifications and extensions seek to enhance coverage, frequency,
and span within the Palo Alto Free Shuttle Program, while addressing the VTA reduction in
fixed-route and paratransit services.
South Palo Alto Shuttle
The Palo Alto Transit Vision Plan identifies a new route: the South Palo Alto Shuttle
(Attachment A, pages 43-44). The South Palo Alto Shuttle would begin at the California Avenue
Caltrain Station and terminate at the VA Medical center, serving schools and other destinations
along Colorado Avenue, Louis Road, Fabian Way, East Charleston Road, West Charleston Road,
Arastradero Road, and Miranda Avenue along the way. A special school run in the morning and
afternoon would extend from the California Avenue Caltrain Station to Palo Alto High School,
connecting the small sliver of the school’s attendance zone south of Oregon Expressway to the
school. This route would provide replacement service for the areas currently served by VTA
Route 88, with much more direct and seamless connections to local services and the regional
transit network. Implementation of this route in coordination with the new VTA route
288/288L/288M could enable residents, employees and students along the route to depend
much more regularly on transit, and increase overall transit utilization along the corridor. Staff
recommends that this route be implemented initially through a financial partnership with the
Valley Transportation Authority at the same time the Next Network Initiative route changes
take effect (currently estimated to be December 2017).
Crosstown Shuttle
Staff recommends the implementation of Crosstown Variant B (Attachment A, pages 39-40),
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which would run primarily on Middlefield Road. This overlaps the proposed VTA Route 21
within Palo Alto and, with coordination, could result in 15-minute headways all day long along
Middlefield Road. Coupled with the high-frequency service along El Camino Real, this would put
a large number of Palo Alto residents and employees within walking distance of high-frequency
fixed-route transit service. As part of the concept service plan, the Crosstown Shuttle is
targeted for significant increases in frequency and service span. Implementation of this variant
in coordination with the new VTA route 21 could enable residents and employees along the
Middlefield Road corridor to depend much more regularly on transit, and increase overall
transit utilization along the corridor.
The other Crosstown Shuttle alternative, Crosstown Variant A, would generally follow the
Middlefield Road corridor, but deviate to serve libraries, community centers and schools,
providing greater coverage but resulting in significantly less frequency along Middlefield Road.
This variant, along with Crosstown Variant B, includes an extension to the Stanford Shopping
Center, San Antonio Caltrain Station and San Antonio Shopping Center. These key destinations
were identified during our community engagement process and would likely lead to an increase
in ridership.
Embarcadero Shuttle
Staff recommends modifying the Embarcadero Shuttle (Attachment A, pages 41-42) by
extending the current route to serve municipal service buildings and other businesses along
West Bayshore Road and East Bayshore Road, as well as the portion of San Antonio Road
nearest to US 101, which includes the Oshman Family Jewish Community Center and other
important trip generators. The segment along West Bayshore Road would provide new fixed-
route transit access to several existing multi-family housing communities, as well as the Palo
Alto residents who would see their VTA paratransit access reduced under the Next Network
Initiative final plan. This modification could allow for the expansion of the City’s Caltrain Go
Pass program to employees that work at the Municipal Service Center and on Elwell Court.
Currently the Embarcadero Shuttle is managed and operated by Caltrain, but 53.5% of the
services funding comes from the City of Palo Alto. When the route began, the City of Palo Alto
only funded 25%, but this has increased as Caltrain and transportation grant funds have
tapered off. With the change in funding allocation, staff recommends that the City of Palo Alto
initiate discussions with Caltrain on taking ownership of the management and operation of the
service (subject to available funding), which can allow for synergy of marketing, branding, and
provide a unified customer service experience across City-funded shuttle services. Several other
variations of the Embarcadero Shuttle were brought into the Route Concept Screening and
Service Plan Development phase but were not moved forward. These are included in Appendix
C of the Palo Alto Transit Vision Plan.
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Policy Implications
The following Goals, Policies and Programs from the Comprehensive Plan are directly related to
this discussion:
• Goal T-1: Less Reliance on Single-Occupant Vehicles
• Policy T-2: Consider economic, environmental, and social cost issues in local
transportation decisions.
• Policy T-3: Support the development and expansion of comprehensive, effective
programs to reduce auto use at both local and regional levels.
• Goal T-2: A Convenient, Efficient, Public Transit System that Provides a Viable
Alternative to Driving
• Policy T-4: Provide local transit in Palo Alto.
• Policy T-5: Support continued development and improvement of the University Avenue
and California Avenue Multi-modal Transit Stations, and the San Antonio Road
Station as important transportation nodes for the City.
• Policy T-6: Improve public transit access to regional destinations, including those within
Palo Alto.
• Policy T-7: Support plans for a quiet, fast rail system that encircles the Bay, and for intra-
county and transbay transit systems that link Palo Alto to the rest of Santa Clara
County and adjoining counties.
• Policy T-9: Work towards integrating public school commuting into the local transit
system.
• Policy T-11: Support efforts to integrate train, bus, and shuttle schedules at multi-modal
transit stations to make public transit use more time-efficient.
• Policy T-43: Provide and/or promote demand-responsive paratransit service.
Resource Impact
The recommended action suggests that the City pursue funding from VTA for local shuttle
service (a new South Palo Alto route) to backfill reductions in bus service. As shown in Table
2b, below, the estimated cost for this new shuttle service would be approximately $1M
annually. Table 2a outlines the current City financial support of the existing routes for the FY
2017 Adopted budget, amended for the termination of the funding agreement with the City of
East Palo Alto for the East Palo Alto shuttle route (Staff Report #7170).
The recommended action also suggests that Council direct staff to develop a finance and
implementation plan with a comprehensive funding strategy to advance the new route and
existing route modifications and extensions for the Crosstown and Embarcadero Routes.
Ideally, this funding strategy will leverage the existing annual General Fund expenditures on the
Palo Alto Free Shuttle System and the Caltrain contributions to the operations of the
Embarcadero Shuttle to secure newly-available Measure B funding from the Transit Operations
Program and/or Local Streets and Roadways Program, as well as regional and state
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transportation grants. A draft Transportation Nexus Study, which is currently underway,
suggests that a portion of the City’s Transportation Impact Fees may also be directed toward
the capital infrastructure required to operate the Palo Alto Free Shuttle Program (i.e. benches,
signs, shelters, etc.).
Planning-level cost estimates shown in Table 2b will be refined in the finance and
implementation plan and will depend significantly on the operational model selected to provide
the program in the future. Implementation of expanded service is contingent on funding.
Table 2a: Current Shuttle Services City Finances
Route FY 2017 Adjusted
Budget
Current Annual
Operating Costs
Shuttle Services $484,422
South Palo Alto -
Crosstown $281,911
Embarcadero $135,100*
Administration costs (staffing) $107,078 $107,078
City Funding TOTAL $591,500 $524,089
*The City pays 53.5% of costs, and the JPB pays 46.5% (up to $117,300) for a total cost of
$252,400.
Source: Planning & Community Environment, April 2017
Table 2b: Planning-level Cost Estimates for Recommended Shuttle Route Expansions and
Modifications
Route Current Annual
Operating Costs
Enhanced Service Level
Annual Operating Costs
Full Service Level
Annual Operating
Costs
South Palo Alto -- $625,107 $1,026,704
Crosstown $281,911 $864,119 $1,564,931
Embarcadero $135,100 City Funds
(JPB Funds up to
$117,300, Total Cost:
$252,400)*
$376,903** $821,940**
TOTAL $527,051 $1,866,128 $3,413,575
*The City pays 53.5% of costs, and the JPB pays 46.5% (up to $117,300).
**The assumption is that the JPB can continue to fund $117,300 for this service, if grant
continues
Source: Nelson/Nygaard, March 2017
City of Palo Alto Page 9
Timeline
The current schedule for the VTA Next Network Initative is detailed below:
April 7, 2017 – Final Plan published in agendas for Technical Advisory Committee and
Policy Advisory Commitee
April 12, 2017 – Final Plan presented to VTA Technical Advisory Committee
April 13, 2017 - Final Plan presented to VTA Policy Advisory Commitee
May 4, 2017 - Final Plan presented to VTA Board of Directors
December 2017 (dependent on date of BART Berryessa Extension opening) –
Implementation of fixed-route service changes identified in adopted plan
After receiving direction from Council, Staff will seek VTA funding for the new South Palo Alto
route via a Memorandum of Understanding with VTA. If successful, staff will return to Council
for approval of this MOU. Staff will also seek funding for other shuttle service enhancements
and return to Council with a finance and implementation plan later in 2017. A new branding
and marketing strategy for the Palo Alto Free Shuttle Program would be presented to Council
concurrently with the roll-out of shuttle route expansions and modifications when funding is
identified. All recommended actions are contingent on funding.
Environmental Review
This program is exempt from the requirements of the California Environmental Quality Act
(CEQA) pursuant to Section 15061(b)(3) of Title 14 of the California Code of Regulations since it
can be seen with certainty that there is no possibility the acceptance of this plan may have a
significant effect on the environment.
Attachments:
Attachment B - VTA Next Network Initiative Draft Plan (PDF)
Attachment C - Letters from City to VTA (PDF)
Attachment A - Palo Alto Transit Vision (PDF)
Date: December 22, 2016
Current Meeting: January 5, 2017
Board Meeting: January 5, 2017
BOARD MEMORANDUM
TO: Santa Clara Valley Transportation Authority
Board of Directors
THROUGH: General Manager, Nuria I. Fernandez
FROM: Interim Director - Planning & Program Development, Carolyn M. Gonot
SUBJECT: Next Network Draft Plan
3331 North First Street ∙ San Jose, CA 95134-1927 ∙ Administration 408.321.5555 ∙ Customer Service 408.321.2300
Policy-Related Action: No Government Code Section 84308 Applies: No
ACTION ITEM
RECOMMENDATION:
Approve the Draft Transit Service Plan for release to the public for review and comment.
BACKGROUND:
Under VTA’s Transit Ridership Improvement Program (TRIP) initiated in 2015, VTA began a
two-year planning and outreach effort to develop a redesigned transit network. This project was
known as Next Network, with implementation of a new transit service plan to occur concurrent
with the opening of BART Phase 1 service at the Milpitas and Berryessa stations. The project
aims to engage the community in developing a new bus and light rail transit network that reflects
our transit needs and values, while increasing ridership, improving farebox recovery, and
integrating BART service into the transit network. VTA engaged Jarrett Walker + Associates, an
internationally-recognized leader in transit planning, to assist with the effort. The project's major
milestones include:
- Late 2015: Independent assessment of VTA’s service and market
- April 2016: Transit Choices and Alternatives reports to VTA Board
- Summer 2016: Community outreach phase 1
- November 2016: VTA Board decision on ridership-coverage allocation (85/15)
- January 2017: Draft transit service plan released
- January-February 2017: Community outreach phase 2
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- April 2017: Final transit service plan for VTA Board approval
- Fall 2017: Service begins (concurrent with the opening of BART Phase 1)
The Next Network project started with an independent assessment of VTA's transit service and
market. This assessment, called the Transit Choices Report and accompanying Transit
Alternatives Report (both available at http://nextnetwork.vta.org/library), illustrated the
significant tradeoff decisions for consideration in developing a redesigned transit network. The
reports identified the allocation of services between ridership-oriented service and coverage-
oriented service as the most critical policy choice facing VTA. To this end, the project team
sought to engage the community in a broad discussion of VTA's allocation of resources on the
spectrum and whether the new transit service plan should represent a shift in resource allocation
towards ridership and away from coverage.
Over the summer of 2016, the project team utilized a series of three transit network concept
maps to engage the community and solicit their input on tradeoff questions. This first of two
project outreach phases included VTA-hosted community meetings, discussions at non-VTA
community meetings, intensive community leader workshops, an online meeting, an interactive
dedicated project website, numerous blog posts with accompanying discussion area, social media
engagement, and tabling events. The project team received over 5,000 points of valuable
feedback, including votes on the ridership-coverage balance. The volume of feedback was used
to develop a draft transit service plan.
Following the first phase of community outreach, the VTA Board of Directors held a November
2016 workshop to discuss the community’s input and give staff direction on the ridership-
coverage balance for the draft transit service plan. At the conclusion of the meeting, the VTA
Board voted to direct staff to develop a draft transit service plan that reflects an “85/15” split -
that is, a network that allocates 85% of resources to ridership-oriented service and 15% of
resources to coverage-oriented service. This direction to pursue a network designed to achieve
higher ridership represents a shift from today’s network of 70% ridership-oriented service and
30% coverage-oriented service. This change would have the effect of increasing frequency in
high ridership transit-supportive corridors and areas, decreasing service in areas with low transit
demand, and a design philosophy that embraces a grid of frequent routes with more rapid routes
and more midday and weekend service.
DISCUSSION:
VTA staff have developed a draft transit service plan that reflects the substantial community
input received over the summer as well as the VTA Board’s guidance on the ridership-coverage
balance given at the November 18 Board Workshop. Staff is requesting Board approval to take
the draft transit service plan out to the community in a second phase of outreach. The draft
plan’s network map is presented as Attachment A; a route-by-route matrix of proposed
service changes is presented as Attachment B.
The draft transit service plan includes the following major features:
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REALLOCATION OF RESOURCES FROM COVERAGE TO RIDERSHIP
What we heard: The community understood the difficult ridership and coverage tradeoff and
overall voted strongly in favor of VTA allocating more resources to ridership service and fewer
resources to coverage service.
VTA currently spends approximately 70% of its operating dollars on productive ridership-
oriented service and the remaining 30% to unproductive coverage-oriented service, a “70/30”
balance. The draft plan would achieve an 85/15 balance by reallocating resources from
unproductive services and investing those resources in more productive services. This
reallocation of coverage-oriented service to ridership-oriented service is how the plan can
offer significant benefits while not increasing the total cost of service.
The areas that would lose service under the draft plan are generally areas that lack the transit-
supportive characteristics such as dense, walkable, pedestrian-oriented spaces that are necessary
for transit to be productive. VTA is exploring alternative mobility strategies for these difficult-to-
serve areas in a concurrent Core Connectivity project to potentially serve these “gaps” in the
transit network.
INCREASED LIGHT RAIL SERVICE
What we heard: The community expressed a strong desire to invest in VTA’s light rail system.
The VTA Light Rail to BART connection will be at the Montague Light Rail station, and VTA
will modify the light rail service plan to better serve this connection as well as the ongoing needs
of Santa Clara Valley residents and workers.
In May 2016, staff brought, for review, three different operating plans with three different
optional enhancements to the VTA Board of Directors. Staff returned in October 2016 with a
staff recommendation that includes the following changes (see Attachment C for a map of the
recommended light rail operating plan):
‒ A new line from Alum Rock to Mountain View operating every 15-minutes. This new
line would double the Light Rail service frequency at the Milpitas BART Station and
provide a direct trip from BART to major employment centers in North San Jose, Santa
Clara, Sunnyvale, and Mountain View. This line would also serve Levi’s Stadium,
reducing the need for special event trains. Staff is also continuing to study the potential
for an express service on part of this line.
‒ The existing Winchester to Mountain View line would be modified to a Winchester to
Old Ironsides line. The frequency of this service would improve from the current 15-
minute peak hour/30-minute midday frequencies to 15-minute frequencies all day.
‒ The Commuter Express, which currently operates three trips each peak period between
Santa Teresa and Baypointe, would operate from Santa Teresa to St. James Station and be
expanded to six trains each peak period, instead of the current three, using the same
resources.
‒ No changes are proposed for the existing Santa Teresa to Alum Rock line and the
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existing Almaden Service.
‒ Signage and wayfinding improvements, including renaming the light rail lines to coincide
with their colors (Orange, Blue, Green, Purple, Yellow) and renaming of two stations.
Montague light rail station will become Milpitas light rail station, and I-880/Milpitas
light rail station will become Alder light rail station.
FREQUENT BART CONNECTIONS
What we heard: The community reiterated the importance of BART service in the county and
expressed a desire for convenient transit connections to BART service.
The draft plan includes frequent connecting service at the Milpitas and Berryessa transit centers,
ensuring that riders would have a range of transit options to connect with BART trains (see
Attachment D for an illustration of transit connections at the two transit centers). The Milpitas
and Berryessa transit centers would feature an array of connecting services:
‒ A new light rail line between Alum Rock and Mountain View, discussed above, that
would provide a direct BART connection for Alum Rock, Santa Clara, Sunnyvale, and
Mountain View destinations (every 15-minutes all day).
‒ A redesigned and improved DASH service, renamed Route 500, would provide a direct
service with more frequency, longer spans of service, and a larger service area that would
include the Berryessa BART station. As an expanded route with new regional
connections, Route 500 would be a standard fare route. Route 500 trips would be timed to
meet BART trains at the Berryessa BART station and provide fast and direct service into
downtown San Jose and Diridon Station (trips timed to meet every BART train).
‒ Today’s Airport Flyer Route 10 would be upgraded to become a new frequent Route 60
that would provide a direct connection between the Milpitas transit center’s BART trains
and Mineta San Jose International Airport, Santa Clara Caltrain Station, Valley
Fair/Santana Row, and the Winchester corridor (every 15-minutes all day). As a new
countywide frequent route, Route 60 would be a standard fare route, with the exception
of boardings at the airport, which would be fare-free.
‒ Rapid 523, a new Rapid service between Berryessa BART, downtown San Jose (via
King Road and Alum Rock Avenue), San Carlos Street, Stevens Creek Boulevard,
Sunnyvale-Saratoga Road, downtown Sunnyvale, and Lockheed Martin via Mathilda
Avenue (every 15-minutes all day).
‒ A new Route 20 that would serve north San Jose, Santa Clara, Sunnyvale, and Mountain
View (every 15-minutes peak and 30-minutes midday).
‒ Additional bus routes from the Milpitas and/or Berryessa BART stations:
o Route 47 would serve Milpitas (every 30-minutes all day).
o Route 66 would serve Milpitas, Oakland Road, downtown San Jose, and
Monterey Highway (every 15-minutes all day).
o Route 77 would serve both Milpitas and Berryessa BART stations, plus Lundy
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Avenue, King Road, and the Eastridge Transit Center (every 15-minutes all day).
o Route 70 would serve both Milpitas and Berryessa BART stations, plus southern
Milpitas, Jackson Avenue, and the Eastridge Transit Center (operating every 15 or
30 minutes all day, depending on route segment).
o Route 71 would serve Piedmont Road, White Road, and the Eastridge Transit
Center (every 30-minutes all day).
o Route 61 would serve Berryessa Road and West San Jose via Taylor Street,
Naglee Avenue, and Bascom Avenue (every 15-minutes all day).
o AC Transit’s Route 217 would serve Milpitas and Fremont BART via Mission
Boulevard (every 30-minutes all day).
SIMPLIFIED FAMILY OF SERVICES
What we heard: The community expressed frustration in understanding and using VTA’s
complex transit network.
The draft plan features a simplified family of transit services that would make service easier to
understand and use (see Attachment E). The new family of services would establish a strong
hierarchy of transit service and a clear structure to complement VTA’s new brand:
‒ Light rail, featuring 7-day a week service every 15-minutes
‒ Rapid bus, featuring 7-day a week service every 15-minutes, with limited stops
‒ Frequent bus, featuring 7-day a week service every 15-minutes, with local stops
‒ Local bus, featuring weekday service every 30-minutes, with local stops
‒ Express bus, featuring peak-only commuter service on weekdays
The draft plan also proposes discontinuing Community Bus as a distinct service class and fare.
The Community Bus fare was established in 2007 because the Community Bus routes were
serviced by light duty gasoline-fueled cutaway vehicles (which were significantly cheaper to
acquire) and because the bus operators assigned to Community routes were paid less than
operators assigned to regular routes. Neither of these cost differentials apply today; VTA
operates our regular transit buses on all Community routes and all operators are paid the same
wage regardless of the route they operate. Therefore, the draft plan incorporates routes
previously classified as Community routes into the Local Bus class.
REGIONAL CONNECTIONS
What we heard: The community expressed a desire for better connections with other regional
transit services to expand mobility beyond Santa Clara County.
The draft plan would enhance regional mobility by improving connections with the Bay Area’s
regional transit network. Better regional connections would be achieved by 1) improving the
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frequency of VTA routes that connect to the regional transit network, thereby reducing transfer
wait times, and 2) introducing new VTA routes that connect to the regional transit network.
Some of the improved regional connections include:
‒ Numerous Frequent routes that would serve the Milpitas and Berryessa BART stations.
‒ A new light rail Orange Line that would offer direct service between Alum Rock and
Mountain View, serving Milpitas BART, Mountain View Caltrain, and ACE/Capitol
Corridor at Great America Station.
‒ A new cross-county Frequent route that would offer a direct connection between Milpitas
BART, San Jose International Airport, Santa Clara Caltrain, light rail, and Valley
Fair/Santana Row (Route 60).
‒ Improved service frequencies at Diridon Station for routes connecting to Monterey-
Salinas Transit Route 55 to Monterey and the Highway 17 Express to Santa Cruz.
‒ New Rapid 523 service that would connect Sunnyvale Caltrain to Lockheed Martin
transit center, De Anza College, and the Stevens Creek/San Carlos/Santa Clara/Alum
Rock corridors.
‒ A revised and more frequent downtown San Jose DASH shuttle that would offer frequent
connections at Diridon Station and the Berryessa BART station (Route 500).
‒ New routes at Milpitas BART that would offer connections with AC Transit’s Route 217
(previously connecting at the Great Mall Transit Center).
FOCUS SERVICE NEAR TRANSIT-SUPPORTIVE DEVELOPMENT
What we heard: Community members understood the land use and transportation connection
and expressed a desire for transit to support dense, walkable, and sustainable development.
Transit, land use, and the street grid form an interrelated trio of features that work together to
produce sustainable communities where residents can adopt transit-oriented lifestyles. The draft
plan focuses transit resources in areas with a street grid and land use pattern that support transit
and where it would achieve the greatest ridership per dollar spent. These transit-supportive areas,
often in dense cores, along corridors, and around station areas, would benefit from additional
transit service as part of a robust frequent transit network. By establishing a frequent transit
network where cities could focus dense, transit-oriented development, cities could accommodate
future growth while minimizing new auto trips. In turn, additional growth along the frequent
network would generate additional ridership on the transit network, continuing the mutually
beneficial cycle of transit-supportive land use and transit productivity.
MORE RESIDENTS AND JOBS ON THE FREQUENT TRANSIT NETWORK
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What we heard: Today’s transit network tries to go too many places and transit is spread too
thin, service doesn’t come very often, and therefore transit trips take too long. The community
expressed a desire for transit to focus on transit-supportive areas.
As outlined in the project’s Transit Choices Report released in early 2016, a transit network
maximizes ridership by maximizing the total number of residents and jobs on a frequent network
of transit services (i.e. getting more people to more places in less time). The draft plan aims to
maximize the number of residents and jobs on a network of frequent transit routes in the most
transit-supportive areas of the county by taking more residents to more places in the same
amount of time, which is a central theme of high ridership transit networks.
PARATRANSIT SERVICE AVAILABILITY
What we heard: High-quality paratransit service options are critical to valley residents.
The draft plan features a redesigned fixed-route transit network which would impact VTA’s
federal requirements regarding complementary paratransit service. Some network changes would
increase VTA’s paratransit service obligations, such as new service in previously-unserved
geographic areas or an expansion of the hours of service availability in evenings and on
weekends. Conversely, some network changes would reduce VTA’s paratransit obligations, such
as geographic areas that would lose fixed route service entirely. The net impact of the draft
plan’s fixed route network on paratransit service has not been fully analyzed yet, and VTA staff
will engage the VTA Committee for Transportation Mobility and Accessibility (CTMA) in
developing a recommended paratransit policy strategy for adoption with the final transit service
plan. In advance of Board adoption of a paratransit policy, the draft plan includes a
recommendation to minimize service impacts for all existing paratransit customers in the
county so that paratransit users are not negatively impacted by the new transit service
plan.
IMPROVED SERVICE TO LOW INCOME AND MINORITY RESIDENTS
What we heard: VTA should pay particular attention to the transit needs of low income and
minority residents.
The draft plan includes elements to increase transit service available to low income and minority
residents. As outline in VTA’s Title VI program, staff paid particular attention to the location
and travel needs of low income and minority residents during the planning process to develop the
draft plan. In Santa Clara County, low income and minority residents tend to reside in areas that
are already transit supportive (featuring dense, mixed land uses and a strong street grid). The
draft plan’s emphasis on expanding service in transit-supportive areas work hand-in-hand with
the goal of improving service for low income and minority residents. Staff also enlisted the
expertise of an independent consultant to conduct a preliminary Title VI equity analysis. The
preliminary Title VI analysis concluded that the draft plan does not impose a disparate impact on
minority populations or a disproportionate burden on low income populations.
Staff will continue to include Title VI equity considerations as part of the planning process to
revise the draft plan into the final transit service plan. A full Title VI service equity analysis will
be conducted on the final transit service plan and the results will be presented with the final plan.
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EXPANDED WEEKEND SERVICE
What we heard: The community expressed frustration with VTA’s limited transit options on
weekends, particularly those residents who work in the service and retail sectors.
The draft plan aims to increase the amount of transit service provided on weekends, particularly
on the core network of frequent routes. Compared to VTA’s current transit network, the draft
plan provides 9% more service on Saturdays and 7% more service on Sundays.
For example, VTA’s transit network today provides no service to Alviso on Saturdays or
Sundays. Under the draft plan, Alviso would have 15 hours of service on Saturdays and 11 hours
of service on Sundays. By providing a more useful 7-day transit network, more residents could
adopt a transit-oriented lifestyle.
BETTER NORTH-SOUTH CONNECTIONS IN WEST VALLEY
What we heard: West Valley residents and workers expressed a desire for more frequent transit
service, particularly north-south service.
Effective transit networks utilize a grid of intersecting frequent routes to create the possibility of
travel anywhere within the grid, as demonstrated by the success of East San Jose’s strong grid
network of frequent routes. The draft plan introduces new north-south frequent service in West
Valley’s strongest corridors. These new frequent corridors include:
‒ A Frequent 57 route on the Saratoga/Kiely/Bowers/Great America corridor, every 15-
minutes on weekdays and 20-minutes on weekends.
‒ Improved service on Frequent route 60 along the Winchester corridor, every 15-
minutes on weekdays and every 20-minutes on weekends.
‒ A new Rapid 523 route along the Mathilda/Sunnyvale-Saratoga/Hollenbeck corridor
between De Anza College and the Lockheed Martin transit center, every 15-minutes
every day (including weekends).
SCHOOL SERVICE
What we heard: Many communities rely on VTA service for youth school trips.
Many schools are located near fixed-route service, and VTA plays a role in getting these students
to and from school. VTA’s school service takes the form of additional vehicles added to routes
near schools, timed to the school bell times, to ensure students are well-served. The draft plan
continues VTA’s program to provide supplementary school trips at the same level as today,
about 46,000 annual service hours (3% of VTA’s total annual bus service hours).
The draft plan includes four cases where VTA would scale back an existing all-day fixed route to
a schedule focused on school bell times. These four routes have low ridership today and would
otherwise have been discontinued under the draft plan’s shift to a more ridership-oriented
network. Instead, these four routes have been scaled back to operate at school bell times only:
‒ Route 88 in Palo Alto would be converted to special service (Route 288), for Gunn
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High School, Kehillah Jewish High School, Palo Verde Elementary School, Hoover
Elementary School, and Jane Lathrop Stanford Middle School.
‒ Route 82 in Willow Glen would be converted to special service (Route 282), for
Willow Glen High School and Willow Glen Elementary School.
‒ Route 46 in Milpitas would be converted to special service (Route 246), for Milpitas
High School.
‒ Route 16 in Morgan Hill would be converted to special service (Route 216), for Sobrato
High School, Live Oak High School, and Lewis Britton Middle School.
VTA EXPRESS SERVICE
VTA’s twelve Express routes were not studied as part of this project. However, a dedicated
Express service redesign project will be conducted following adoption of the final transit service
plan in 2017. Therefore, the draft plan does not make recommendations for VTA’s Express
routes, except for the routes that currently serve Fremont BART (Express routes 120, 140, 180,
and 181). As the only VTA routes that provide service outside of Santa Clara County, the four
Express routes that currently serve Fremont BART would all be replaced by the BART Phase 1
extension:
‒ Express 120 to Lockheed Martin/Moffett Park (6 AM and 6 PM trips) would be replaced
by the new Orange light rail line (every 15-minutes all day) and the BART extension to
Milpitas.
‒ Express 140 to Mission College and Montague Expressway (3 AM and 3 PM trips)
would be replaced by a new Frequent route 20 (every 15-minutes peak and 30-minutes
midday) and the BART extension to Milpitas.
‒ Express 180 to Milpitas (and Eastridge on select peak trips) (every 30-minutes) would be
replaced by the BART extension to Milpitas (and Frequent route 77 every 15-minutes).
‒ Express 181 to downtown San Jose (every 15-minutes) would be replaced by Rapid
route 500 (timed to meet every BART train at Berryessa Station), and the BART
extension to Berryessa Station.
‒ Express 101, 102, 103, 104, 121, 122, 168, 182: no change; service remains as it is
today.
RELATIONSHIP TO FARE STUDY
The draft plan utilizes a grid network of frequent routes to expand the range of trips possible on
the transit network, however VTA’s current fare structure discourages the transfers that would
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unlock the ridership benefits of the grid. Concurrent with the project, VTA staff will separately
engage the Board in discussions and development of revised fare policies that would
complement the new transit service network.
BUDGET
Following VTA Board guidance, the draft plan represents an unchanged total amount of bus
service, utilizing the same annual service hours as the most recent Board-approved service plan
(the FY16-17 Transit Service Plan). The draft bus service plan is anticipated to be cost neutral,
i.e., no increase in annual operating expenses directly related to the number of service hours.
The light rail portion of the draft plan represents an increase in the total amount of service
provided. The proposed light rail service plan is projected to increase operating costs by
approximately $11 Million annually. Net costs after projected fares, would be approximately $8
Million annually.
ALTERNATIVES:
Alternatively, the Board could direct staff to defer release of the draft transit service plan or
make modifications to the proposals contained within the draft service plan.
FISCAL IMPACT:
There is no direct fiscal impact related to approval of the draft transit service plan. However,
subsequent adoption of the final transit service plan, currently scheduled for April 2017, could
result in increased annual operating expenses of up to $11 Million ($8 Million net of projected
fare revenues) depending on the level of light rail service ultimately approved. In addition,
changes made to the draft bus service plan that result in a higher amount of overall service hours
could result in increased annual operating expenses.
Prepared by: Jason Tyree
Memo No. 5840
ATTACHMENTS:
Attachment A: System Map (PDF)
Attachment B: Route by Route List of Major Changes (PDF)
Attachment C: Light Rail System Map (PDF)
Attachment D: BART Connections (PDF)
Attachment E: Family of Services (PDF)
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12/29/2016
DR
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VTA Bus Lines Proposed Change
RouƟ ng
Change
Frequency
Change
Weekday Saturday Sunday
Span Peak Midday Span Frequency Span Frequency
10 Metro/Airport LRT StaƟ on - Santa Clara Transit Center Combine with new Route 60, which would connect Mineta San Jose Airport to Milpitas BART StaƟ on, Santa Clara
Caltrain StaƟ on, Valley Fair, Santana Row and Downtown Campbell.
12 Eastridge Transit Center - San Jose Civic Center DisconƟ nue; current riders may use revised Route 61 or Route 77.
13 Ohlone/Chynoweth LRT StaƟ on - Almaden/McKean DisconƟ nue due to low ridership.
14 Gilroy Transit Center - St. Louise Hospital DisconƟ nue and replace with new Route 96, which serves Route 14 desƟ naƟ ons and other areas of Gilroy.
16 Morgan Hill Civic Center - BurneƩ Avenue Scale back to school-oriented service (to be called Route 216) for Sobrato High School, Live Oak High School and
Lewis BriƩ on Middle School ●7-8am, 2-4pm 30 min — — — — —
17 Gilroy Transit Center - St. Louise Hospital DisconƟ nue and replace with new Route 96, which serves Route 17 desƟ naƟ ons and other areas of Gilroy.
18 Gilroy Transit Center - Gavilan College Renumber to Route 97; decrease frequency on weekdays, add service on weekends.
19 Gilroy Transit Center - Wren and Marshall DisconƟ nue; replace with new Route 96, which serves Route 19 desƟ naƟ ons and other areas of Gilroy.
20 Downtown Mountain View - Milpitas BART StaƟ on Create new Route 20 that would connect Milpitas BART StaƟ on, Mission College, Santa Clara Square, Downtown
Sunnyvale and Downtown Mountain View. New Route 20 would provide service to areas currently served during
commute periods by parts of Routes 58, 321 and 304.
New 6am - 10pm 15 min 30 min — — — —
21 Palo Alto Transit Center - Santa Clara Caltrain StaƟ on Create new Route 21 that would connect Downtown Palo Alto with San Antonio Transit Center, Downtown Mountain
View, Downtown Sunnyvale and Santa Clara Caltrain StaƟ on. New Route 21 would replace current Routes 32 and 35.New 6am - 10pm 30 min 30 min 8am - 8pm 45 min 9am-8pm 60 min
22 Palo Alto Transit Center - Eastridge Transit Center Decrease weekday frequency; increase frequency on Route 522 (to be implemented in April 2017).●24 hours 15 min 15 min 24 hours 15 min 24 hours 15 min
23 De Anza College - Alum Rock Transit Center Change rouƟ ng on east end to serve White Road in East San Jose. Decrease frequency from 12 to 15 minutes on
Route 23 and ;increase frequency on Route 523.●●5am - 12am 15 min 15 min 6am - 12am 15 min 6am - 12pm 15 min
25 De Anza College - Alum Rock Transit Center Change rouƟ ng on east end to no longer serve White Road in East San Jose. Decrease weekday frequency and
increase Sunday frequency. ●●6am - 12pm 12 min 12 min 6am - 12pm 15 min 6am - 12pm 15 min
26 Lockheed MarƟ n Transit Center - Eastridge Transit Center Split into two separate routes. Revised Route 26 would connect West Valley College and Eastridge Transit Center;
frequency would increase on weekdays and weekends. New Route 56 would connect Lockheed MarƟ n and
Winchester Transit Centers.
●●6am - 12pm 15 min 15 min 7am - 12pm 20 min 8am - 11pm 20 min
27 Good Samaritan Hospital - Kaiser San Jose Extend to Winchester Transit Center via Los Gatos Boulevard, Highway 9 and Winchester Boulevard; increase
frequency on weekdays and Saturdays. ●●6am - 10pm 30 min 30 min 7am - 10pm 30 min 8am - 8pm 60 min
31 Evergreen Valley College - Eastridge Transit Center DisconƟ nue; replace with part of new Route 76 (formerly Route 42).
32 San Antonio Shopping Center - Santa Clara Transit Center DisconƟ nue; replace with new Route 21.
34 San Antonio Shopping Center - Downtown Mountain View DisconƟ nue due to low ridership.
35 Stanford Shopping Center - Downtown Mountain View DisconƟ nue; replace with new Route 21.
37 West Valley College - Capitol Light Rail StaƟ on DisconƟ nue due to low ridership; current riders may use new Route 26.
39 Eastridge Transit Center - The Villages Renumber to Route 93; decrease peak period frequency.
40 Foothill College - Downtown Mountain View Extend Route 40 along Shoreline Boulevard to connect with Mountain View Transit Center; increase Sunday
frequency.●●7am - 10pm 30 min 30 min 7am - 7am 45 min 9am - 6pm 45 min
42 Kaiser San Jose - Evergreen Valley College Renumber to Route 76; change rouƟ ng between Capitol Expressway and Evergreen College to serve Eastridge Transit
Center and current Route 31. Increase weekday frequency. DisconƟ nue segments with low ridership.
45 Penetencia Creek Transit Center - Alum Rock Transit Center DisconƟ nue due to low ridership.
46 Great Mall Transit Center - Milpitas High School Scale back to school-oriented service (to be called Route 246) between Milpitas High School and Landess/
Yellowstone. Current riders may use Route 47.
47 Milpitas BART StaƟ on - McCarthy Ranch Reroute Main Street segment to McCarthy Boulevard; route becomes a two-way loop. Increase Sunday frequency. ●●6am - 10pm 30 min 30 min 7am - 9pm 30 min 8am - 8pm 30 min
48 Downtown Los Gatos - Winchester LRT StaƟ on DisconƟ nue and replace with revised Route 27; increase frequency on Route 27.
49 Downtown Los Gatos - Winchester LRT StaƟ on DisconƟ nue and replace with revised Route 27; increase frequency on Route 27.
51 Moff eƩ Field - De Anza College New number for Moff eƩ Field to De Anza College porƟ on of current Route 81; decrease frequency in this secƟ on and
disconƟ nue Saturday service. ●●7am - 6pm 30 min 60 min — — — —
52 Foothill College - Downtown Mountain View No Changes No changes 7am - 10pm 30 min 30 min — — — —
53 Downtown Sunnyvale - Santa Clara Caltrain StaƟ on Change rouƟ ng to serve Vallco Mall and Santa Clara Caltrain StaƟ on instead of West Valley College; this change
replaces part of current Route 81. Increase frequency on weekdays. ●6am - 8pm 30 min 30 min 9am - 6pm 60 min — —
54 Lockheed MarƟ n Transit Center - De Anza College DisconƟ nue Route 54; add more frequent new Rapid 523 service on Mathilda Avenue/De Anza Boulevard corridor.
55 De Anza College - Old Ironsides LRT StaƟ on Change rouƟ ng between Downtown Sunnyvale and Remington Avenue from Fair Oaks Avenue to Sunnyvale Avenue;
decrease weekday peak period frequency and increase Sunday frequency.●●6am - 10pm 30 min 30 min 8am - 9pm 30 min 8am - 8pm 30 min
56 Lockheed MarƟ n Transit Center - Winchester LRT StaƟ on Create new Route 56, which would connect Lockheed MarƟ n Transit Center to Downtown Sunnyvale, Vallco Mall,
Downtown Campbell and Winchester Transit Center.New 6am - 10pm 30 min 30 min 7am - 10pm 30 min 8am - 9pm 30 min
57 West Valley College - Old Ironsides LRT StaƟ on Increase weekday and Saturday frequency.●6am - 11pm 15 min 15 min 7am - 11pm 20 min 8am - 10pm 20 min
Route-By-Route List of Major Changes in DraŌ Plan AƩ achment B
AƩ achment B
VTA Bus Lines (ConƟ nued) Proposed Change
RouƟ ng
Change
Frequency
Change
Weekday Saturday Sunday
Span Peak Midday Span Frequency Span Frequency
58 West Valley College - Alviso DisconƟ nue; current riders may use Routes 57, 59, 20 and 26.
59 Baypointe Light Rail StaƟ on - Santa Clara Caltrain StaƟ on Create new Route 59, which would connect Santa Clara Caltrain StaƟ on, Mission College, Alviso and Baypointe Light
Rail StaƟ on. New Route 59 would cover segments of disconƟ nued Route 58 and revised Route 60.New 6am - 10pm 30 min 30 min 7am - 10pm 30 min 8am - 6pm 60 min
60 Downtown Campbell - SJC Airport - Milpitas BART StaƟ on Combine with Route 10 to create new Route 60, which would connect Mineta San Jose Airport to Milpitas BART
StaƟ on, Santa Clara Caltrain StaƟ on, Valley Fair, Santana Row and Downtown Campbell. Increase weekend
frequency.
●5am - 11pm 15 min 15min 5am - 11pm 20 min 5am - 11pm 20 min
61 Good Samaritan Hospital - Berryessa BART - Sierra/Piedmont Change rouƟ ng from Mabury Road to Berryessa Road between Berryessa BART StaƟ on and Piedmont Road. Increase
frequency on weekdays, Saturdays and Sundays. ●6am - 11pm 15-30 min 15-30 min 7am - 11pm 20-40 min 8am - 10pm 20-40 min
62 Good Samaritan Hospital - Sierra/Piedmont DisconƟ nue; current riders may use Route 61.
63 Almaden Expressway/Camden - San Jose State University Change southern end from Almaden Expressway/Camden Avenue to Meridian Avenue/Blossom Hill Road.●6am - 10pm 30 min 30 min 8am - 7pm 60 min 9am - 6pm 60 min
64 Almaden LRT StaƟ on - McKee/White Change downtown rouƟ ng.●6am - 11pm 15-30 min 15-30 min 7am - 11pm 30 min 7am - 11pm 30 min
65 Kooser/Blossom Hill - 13th/Hedding DisconƟ nue due to low ridesrhip; current riders may use Route 61, 63 or 66.
66 Milpitas/Dixon - Kaiser San Jose Change rouƟ ng to serve Milpitas BART StaƟ on; increase weekday frequency.●●5am - 11pm 15 min 15-30 min 6am - 11pm 20 min 6am - 11pm 20 min
68 San Jose Diridon StaƟ on - Gilroy Transit Center Decrease midday frequency on Santa Teresa Light Rail StaƟ on to Gilroy Caltrain StaƟ on segment. ●5am - 11pm 15 min 15-30 min 5am-11pm 20 min 5am - 11pm 20 min
70 Capitol LRT StaƟ on - Berryessa BART - Milpitas BART Change northern end from Great Mall Transit Center to Milpitas BART StaƟ on, change rouƟ ng to connect to
Berryessa BART StaƟ on. DisconƟ nue service between Eastridge Transit Center and Capitol Light Rail StaƟ on, some
riders in that segment may use Routes 76, 72 or 26.
●6am - 11pm 15-30 min 15-30 min 7am - 11pm 20-40 min 7am - 10pm 20-40 min
71 Milpitas BART StaƟ on - Eastridge Transit Center Change northern end from Great Mall Transit Center to Milpitas BART StaƟ on; decrease weekday peak period service
and increase Sunday service. ●●6am - 10pm 30 min 30 min 7am - 10pm 30 min 8am - 9pm 30 min
72 Downtown San Jose - Senter/Monterey Extend to Capitol Light Rail StaƟ on; increase frequency on Saturday and Sunday. ●●6am - 11pm 15 min 15 min 7am - 11pm 20 min 8am - 11pm 20 min
73 Downtown San Jose - Berryessa BART - Snell/Capitol Change southern end from Capitol Expressway/Snell to Monterey Road/Branham Road; increase weekend frequency. ●●6am - 11pm 15 min 15 min 7am - 11pm 20 min 8am - 11pm 20 min
76 Monterey/Branham - Evergreen College Create new Route 76 to replace Routes 42 and 31.●●6am - 10 pm 30 min 30 min 8am - 7pm 60 min 9am - 6pm 60 min
77 Milpitas BART StaƟ on - Eastridge Transit Center Change northern end from Great Mall Transit Center to Milpitas BART StaƟ on; change southern end of route to
access Eastridge Transit Center via Tully Road rather than RigoleƩ o Drive. Change rouƟ ng to connect to Berryessa
BART StaƟ on. Increase weekday, Saturday and Sunday frequencies.
●●6am - 11pm 15 min 15 min 7am - 11pm 20 min 7am - 10pm 20 min
81 Moff eƩ Field - Downtown San Jose DisconƟ nue; replace Moff eƩ Field to De Anza College segment with new Route 51. Replace De Anza College to Santa
Clara Caltrain StaƟ on segment with revised Route 53.
82 Westgate - Downtown San Jose Scale back to school trips (to be called Route 282) serving Willow Glen High School. AlternaƟ ves include Routes 66,
68, 56.
88 Palo Alto VA Hospital - Middlefi eld/Colorado Scale back to school trips (to be called Route 288) serving Gunn High School, Kehillah Jewish High School, Palo Verde
Elementary School, Hoover Elementary School, Jane Lathrop Stanford Middle School.●7-8am, 2-4pm 30 min — — — — —
89 California Avenue Caltrain StaƟ on - Palo Alto VA Hospital DisconƟ nue due to low ridership.
93 Eastridge Transit Center - The Villages New number for Route 39; decrease weekday peak period frequency. New 7am - 6pm 60 min 60 min 9am - 6pm 60 min 9am - 6pm 60 min
96 Gilroy Caltrain StaƟ on - St. Louise Hospital - Gilroy Plaza New two-way loop route in Gilroy; replaces Routes 14, 17 and 19. New 7am - 6pm 60 min 60 min 9am - 6pm 60 min 9am - 6pm 60 min
97 Gilroy Caltrain StaƟ on - Gavilan College Renumbered from Route 18 ●7am - 10pm 30 min 30 min — — — —
101 Camden/Highway 85 - Palo Alto No changes proposed. No changes 2 trips each peak period — — — —
102 South San Jose - Palo Alto No changes proposed.No changes 7 trips each peak period — — — —
103 Eastridge Transit Center - Palo Alto No changes proposed.No changes 4 trips each peak period — — — —
104 Penetencia Creek Transit Center - Palo Alto Change eastern end to serve Milpitas BART StaƟ on rather than Great Mall Transit Center. No changes 2 trips each peak period — — — —
120 Fremont BART - Lockheed MarƟ n Transit Center/Shoreline DisconƟ nue due to extension of BART to Santa Clara County.
121 Gilroy Transit Center - San Jose Diridon StaƟ on No changes proposed.No changes 9 trips each peak period — — — —
122 South San Jose - Lockheed MarƟ n Transit Center No changes proposed.No changes 1 trip each peak period — — — —
140 Fremont BART StaƟ on - Mission College/Montague DisconƟ nue due to extension of BART to Santa Clara County.
168 Gilroy Transit Center - San Jose Diridon StaƟ on No changes proposed.No changes 6 trips each peak period — — — —
180 Fremont BART StaƟ on - Great Mall - Eastridge DisconƟ nue due to extension of BART to Santa Clara County.
181 Fremont BART - San Jose Diridon StaƟ on DisconƟ nue due to extension of BART to Santa Clara County.
182 Palo Alto - Baily Road/IBM No changes proposed.No changes 1 trip each peak period — — — —
185 Gilroy Caltrain StaƟ on - Shoreline - San Antonio Create new express route between Gilroy Transit Center and North Bayshore in Mountain View (to be implemented
in January 2017).No changes 3 trips each peak period — — — —
AƩ achment B
VTA Bus Lines (ConƟ nued) Proposed Change
RouƟ ng
Change
Frequency
Change
Weekday Saturday Sunday
Span Peak Midday Span Frequency Span Frequency
216 Sobrato High School - Main/Hale School-oriented service ●7-8am, 2-4pm 30 min — — — — —
246 Milpitas High School - Yellowstone/Landess School-oriented service ●7-8am, 2-4pm 30 min — — — — —
282 Willow Glen High School - Tamien StaƟ on - Monterey/Alma School-oriented service ●7-8am, 2-4pm 30 min — — — — —
288 Gunn High School - North Palo Alto School-oriented service ●7-8am, 2-4pm 30 min — — — — —
304 South San Jose - Sunnyvale Transit Center DisconƟ nue due to low ridership; some current riders may use Routes 66, 68 or 20.
321 Great Mall - Lockheed MarƟ n Transit Center - Moff eƩ Park DisconƟ nue due to low ridership; current riders may use new Route 20.
323 De Anza College - Downtown San Jose Upgrade to Rapid 523 and extend western end to Lockheed MarƟ n Transit Center and eastern end to Berryessa BART
StaƟ on; increase frequency on Rapid 523.
328 Almaden/Via Valiente - Lockheed MarƟ n Transit Center DisconƟ nue due to low ridership.
330 Almaden/Via Valiente - Lockheed MarƟ n Transit Center DisconƟ nue due to low ridership.
500 Diridon StaƟ on - Berryessa BART StaƟ on Replaces DASH shuƩ le; connects Diridon StaƟ on to San Jose State University and Berryessa BART StaƟ on; increase
frequency on Rapid 500. New 4am - 12am 8 min 15 min 6am - 12am 15 min 8am - 12am 20 min
522 Palo Alto Transit Center - Eastridge Transit Center Increase weekday frequency (to be implemented in April 2017).●5am - 11pm 12 min 12 min 6am - 11pm 15 min 6am - 9pm 15 min
523 Lockheed MarƟ n Transit Center - Berryessa BART StaƟ on Create new Route 523 which would connect Lockheed MarƟ n Transit Center, Downtown Sunnyvale, De Anza College,
Vallco, Valley Fair, Santana Row, Downtown San Jose, Mexican Heritage Plaza and Berryessa BART StaƟ on; increase
frequency.
New 5am - 10pm 15 min 15 min 6am - 10pm 15 min 7am - 9pm 15 min
DASH Diridon StaƟ on - Downtown San Jose - San Jose State University DisconƟ nue; replace with Rapid 500.
VTA Light Rail Lines
RouƟ ng
Change
Frequency
Change
Weekday Saturday Sunday
Span Peak Midday Span Frequency Span Frequency
Green Old Ironsides LRT StaƟ on - Winchester LRT StaƟ on Change name to Green Line. Change northern end to Old Ironsides Light Rail StaƟ on; increase frequency to 15
minutes all day. ●●5am - 12am 15 min 15 min 6am - 12pm 15 min 6am - 12pm 15 min
Blue Alum Rock Transit Center - Santa Teresa LRT StaƟ on Change name to Blue Line.No changes 5am - 1am 15 min 15 min 5am - 1am 15 min 5am - 1am 15 min
Purple Almaden LRT StaƟ on - Ohlone/Chynoweth LRT StaƟ on Change name to Purple Line.No changes 6am - 10pm 15 min 15 min 8am - 10pm 15 min 8am - 10pm 15 min
Orange Mountain View Transit Center - Alum Rock Transit Center Create new Orange Line to connect Downtown Mountain View with Alum Rock Transit Center; operate at 15-minute
frequency all day. PotenƟ al express service under review.New 15 min 15 min 15 min 15 min
Yellow Downtown San Jose - Santa Teresa LRT StaƟ on Change name to Yellow Line. Change northern end from Baypointe Light Rail StaƟ on to St. James Light Rail StaƟ on;
increase peak period frequency. ●●6 trips each peak period — — — —
VTA Bus and Light Rail Routes
Campbell 26, 27, 37, 48, 49, 56, 60, 61, 62, 82, 101, 328, 330, Green
CuperƟ no 23, 25, 26, 51, 53, 54, 55, 56, 81, 101, 182, 323, 523
Gilroy 14, 17, 18, 19, 68, 96, 97, 121, 168, 185
Los Altos 22, 40, 51, 52, 81, 522
Los Altos Hills
Los Gatos 27, 48, 49
Milpitas 20, 46, 47, 60, 66, 70, 71, 77, 104, 140, 180, 181, 246, 321, 330, Blue
Monte Sereno
Morgan Hill 16, 68, 121, 168, 185, 216
Mountain View 20, 21, 22, 32, 34, 35, 40, 51, 52, 81, 120, 185, 522, Green, Orange
Palo Alto 21, 22, 35, 88, 89, 102, 103, 104, 182, 288, 522
San Jose 10, 12, 13, 20, 22, 23, 25, 26, 27, 31, 32, 37, 39, 42, 45, 49, 56, 57, 58, 59, 60, 61, 62, 63, 64, 65, 66, 68, 70, 71, 72, 73, 76, 77, 81, 82, 93, 101, 102, 103, 104, 122, 140, 168, 180, 181, 182, 185, 282, 304, 321, 323, 328, 330, 500, 522, 523, Blue, DASH, Green, Orange, Purple, Yellow
Santa Clara 10, 20, 21, 22, 23, 32, 53, 55, 57, 58, 59, 60, 81, 121, 140, 304, 321, 328, 330, 522, Green, Orange
Saratoga 37, 53, 57, 58
Sunnyvale 20, 21, 22, 26, 32, 53, 54, 55, 56, 120, 121, 122, 304, 321, 328, 522, 523, Green, Orange
Routes Listed by City/Town AƩ achment B
N
S
EW
N
S
EW
70
every30min 61
ever
y30min
5
0
0
ev
e
r
y
15
mi
n
52
3
ever
y15min
77
every15min
77
every15min
70
every
15 minDowntown San Jose
East San Jose
West Valley
66
every30min
47
every30min
47
every
30 min217
every
30 min
LRT
ever
y
15min
20 every30min
6
0
ev
e
r
y
15
mi
n
LR
T
ever
y15min
66
every15min
70
every
30 min LRT
every
7.5 min
Downtown San Jose
East San Jose
West Valley
61 every15minWest Valley
Berryessa
77
every15min
MILPITAS
TRANSIT CENTER
BERRYESSA
TRANSIT CENTER
departing trains & buses per hour42
departing buses per hour28
71eve
r
y
30min
Milpitas
Fremont
Milpitas
Rapid Bus
Frequent Bus
Local Bus
Light Rail
Next Network Draft Plan BART Station Service
(Attachment D)
Rapid Bus
Frequent Bus
Local Bus
Light Rail
FR
E
Q
U
E
N
T
N
E
T
W
O
R
K
Fast, Frequent, Reliable
Neighborhood Connections
Frequent Trains All Day
• Every 15 minutes • 7 days a week
• Wide stop spacing
• Every 15 minutes • 7 days a week
• Wide stop spacing
• Every 15 minutes • 7 days a week
• Local stop spacing
• Every 30-60 minutes • 5-7 days a week
• Local stop spacing
• Weekday mornings & evenings
• Freeway & expressway based routes
Show Up and Go Service
Peak Period Commuter Service
Light Rail
Rapid
Frequent
Local
Express
VTA’s Service Hierarchy
(Attachment E)
PALO ALTO TRANSIT VISION | DRAFT City of Palo Alto
Nelson\Nygaard Consulting Associates Inc. | i
PALO ALTO TRANSIT VISION
DRAFT
March 2017
PALO ALTO TRANSIT VISION | DRAFT City of Palo Alto
Nelson\Nygaard Consulting Associates Inc. | i
Table of Contents
Page
1 Executive Summary ............................................................................................................ 1
Purpose of The Plan ............................................................................................................................................ 1
Palo Alto Shuttle System Goals ........................................................................................................................ 1
Plan Development Process ................................................................................................................................. 2
2 Introduction ......................................................................................................................... 6
Purpose of The Plan ............................................................................................................................................ 6
Overview of the Palo Alto Shuttle ................................................................................................................... 6
Other Transit Services in Palo Alto .................................................................................................................. 7
Integration with VTA Next Network ................................................................................................................ 8
Report Organization .......................................................................................................................................... 8
3 Current Transit Conditions ................................................................................................ 10
Palo Alto Shuttle Routes ................................................................................................................................... 10
Other Operators Within Palo Alto ................................................................................................................ 12
Transit Access Within Palo Alto ...................................................................................................................... 20
4 VTA Next Network............................................................................................................ 22
Transit Access with VTA Next Network ......................................................................................................... 25
5 Palo Alto Transit Vision .................................................................................................... 27
Proposed Route Modifications ........................................................................................................................ 36
Service Plan and Implementation ................................................................................................................... 45
6 For Further Consideration ................................................................................................. 49
Other Service Delivery Models ...................................................................................................................... 49
Appendix A Community Profile ............................................................................................. 52
Appendix B Concept List and Screening Process ................................................................... 55
Appendix C Other Route Variants Considered ...................................................................... 66 Embarcadero Route Variants .......................................................................................................................... 66 South Palo Alto Route Variants ...................................................................................................................... 70 Southwest Route ................................................................................................................................................. 74
Table of Figures
Page
Figure 1 Concept Service Plan ............................................................................................................... 2
Figure 2 Service Implementation Summary .......................................................................................... 4
Figure 3 Sample Route Package and Associated Operating Costs ............................................... 5
Figure 4 Overview of Current Palo Alto Shuttles ............................................................................. 11
Figure 5 VTA Ridership .......................................................................................................................... 12
Figure 6 SamTrans Ridership ................................................................................................................ 13
Figure 7 Other Existing Transit Serving Palo Alto ............................................................................ 14
Figure 8 Access to Transit within a Quarter-Mile in Palo Alto ....................................................... 21
Figure 9 VTA Transit Route in Palo Alto ............................................................................................. 22
Figure 10 Current VTA Network Coverage (left) and Proposed VTA Network Coverage (right) in Palo Alto ................................................................................................................... 24
Figure 11 Proposed Route 88 Changes ................................................................................................ 25
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Figure 12 Transit Accessibility Walkshed Incorporating VTA Network Changes ......................... 26
Figure 13 Survey Response: What is your affiliation with Palo Alto? ............................................ 29
Figure 14 Survey Response: How often do you use the shuttle? ...................................................... 30
Figure 15 Survey Response: Why don’t you use the shuttle? ............................................................ 30
Figure 16 Survey Response: What would motivate you to use the shuttle more often? ............. 31
Figure 17 Survey Responses: Key Destinations .................................................................................... 31
Figure 18 Survey Responses: Key Destinations of Survey Respondents ......................................... 32
Figure 19 Survey Comment Analysis ..................................................................................................... 33
Figure 20 Crosstown Route Variant A ................................................................................................... 38
Figure 21 Crosstown Route Variant B .................................................................................................... 40
Figure 22 Embarcadero Route Modification ........................................................................................ 42
Figure 23 South Palo Alto ........................................................................................................................ 44
Figure 24 Service Implementation Summary ........................................................................................ 45
Figure 25 Sample Route Package and Associated Operating Costs ............................................. 46
Figure 26 Transit Access Walkshed Analysis – Sample Route Package ........................................ 47
Figure 27 Bus Stop Amenity Guidelines ................................................................................................ 48
Figure 28 TNC partnership Model Pros and Cons .............................................................................. 49
Figure 29 Point Deviation/Anchored Flex Service Model Pros and Cons ...................................... 50
Figure 30 Dynamically Routed Flex Service Model Pros and Cons ................................................ 51
Figure 31 Population Density in Palo Alto ............................................................................................ 52
Figure 32 Employment Density in Palo Alto ......................................................................................... 53
Figure 33 Transportation Goals of the Current Comprehensive Plan ............................................. 54
Figure 34 Palo Alto Shuttle Improvement Concepts – Initial List ...................................................... 56
Figure 35 Shuttle Improvement Concept Screening Criteria ............................................................. 59
Figure 36 Shuttle Concept Screening Process and Assigned Scores ............................................... 61
Figure 37 Embarcadero Route Variant A ............................................................................................. 67
Figure 38 Embarcadero Route Variant B ............................................................................................. 69
Figure 39 South Palo Alto – Variant B .................................................................................................. 71
Figure 40 South Palo Alto – Variant C ................................................................................................. 73
Figure 41 Southwest Route ...................................................................................................................... 75
PALO ALTO TRANSIT VISION | DRAFT City of Palo Alto
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1 EXECUTIVE SUMMARY
With increasing interest in expanding mobility options for residents and workers of all ages, the
City of Palo Alto is seeking to develop and implement a citywide fare-free transit system that
focuses on innovation, usefulness, and sustainability to maximize car-free mobility and provides
convenient accessibility to key destinations and regional connections. The City of Palo Alto also
seeks to evaluate and address gaps in transit service which may result from the route
modifications or eliminations included in the Draft VTA Next Network.
PURPOSE OF THE PLAN
This study helps move the vision of a citywide fare-free transit system forward by developing an
expanded system concept for consideration by elected officials and residents alike. The plan
serves as a blueprint for implementing new transit services within the City of Palo Alto that
connect residential areas to key employment, shopping, recreation, school destinations. The
vision outlined within this plan also seeks to improve regional connectivity with linkages to
Caltrain and countywide transit providers (e.g. VTA, SamTrans) and take appropriate measures to
address and fill gaps which may be presented by the elimination of some VTA transit service in
Palo Alto.
Responding to Draft VTA Next Network Changes
In January 2017, VTA released its Draft Next Network plan, which included modifications and
proposed elimination of several transit routes in Palo Alto. Addressing gaps which would result
from the VTA Next Network changes in Palo Alto was a key consideration in the development of
transit route concepts in this study. VTA is expected to release their Final Next Network plan in
April 2017 and may include changes to the proposal for VTA service in Palo Alto. Any changes will
be reflected in a new iteration of the Palo Alto Transit Vision.
PALO ALTO SHUTTLE SYSTEM GOALS
To guide development of a transit vision for Palo Alto, three simple yet highly descriptive goals for
the system were developed along with specific objectives. These goals help guide the service
concept development process and their related objectives allow for further definition and
refinement of service characteristics.
1. Convenient and Accessible – With all transit trips beginning or ending with a walk
trip, all residents and businesses should be within a reasonable walking distance of a
transit stop along a route providing frequent, all day service.
2. Frequent and Reliable – All transit routes and services within the City should provide
frequent and reliable all day service in order to serve the wide variety of trip types that
compose overall travel need.
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3. Visibility and Ease of Use – The system should be convenient to use and serve all
important destinations while having friendly and exciting branding that generates
awareness.
PLAN DEVELOPMENT PROCESS
This transit vision was developed in close consultation with City of Palo Alto staff, as well as the
community of residents and visitors to Palo Alto. The planning process included the following
phases:
Community Engagement and Market Analysis (October 2015-January 2016),
based on market demand data and the results of a community survey.
Concept Development (January-March 2016), including the development of full list of
route concepts using established goals and objectives, findings from community outreach,
and market analysis.
Concept Screening and Service Plan Development (February-March 2016),
including screening of concepts against goals and service criteria and development of a
five-year service plan including phased implementation of additional service. See
Appendix B for more on this process.
Concept Development Phase 2 (January-February 2017), which is the basis for this
version of the transit vision in which concepts are refined in light of release of draft VTA
Next Network.
Service Plan
Expansion of the Palo Alto Shuttle system, with consideration of, and adherence to, the stated
system goals of vastly improving coverage and frequency, will require a substantial investment
well above today’s expenditure on shuttle operation. The service plan presented below is
considered illustrative and conceptual. Figure 1 describes the preferred variants of current or new
routes, developed through the screening of initial concepts and feedback from the community,
including the public survey and meetings. These concepts also take into consideration the
proposed changes to the VTA transit network in Palo Alto, discussed further in Chapter 4.
Additional variants on these routes were considered by staff and can be found in Appendix C.
Figure 1 Concept Service Plan
Route Current/New Route Key Destinations
Crosstown A Current Stanford Medical Center, Stanford Shopping Center, Palo Alto Transit Center, downtown Palo Alto, Lytton Gardens, Rinconada library, Jordan Middle School, Midtown, JLS Middle School, Mitchell Park and Library, Cubberley, senior residences/centers, San Antonio Caltrain, San Antonio Shopping Center
Crosstown B (VTA 21 Supplemental) Current Stanford Shopping Center, Palo Alto Transit Center, downtown Palo Alto, Jordan Middle School, Midtown, JLS Middle School, Mitchell Park and Library, Cubberley, senior residences/centers, San Antonio Caltrain, San Antonio Shopping Center
Embarcadero Current Palo Alto Transit Center, downtown Palo Alto, Town & Country Village, Paly High School, Lytton Gardens, Rinconada library, Greer Park, Girls’ Middle
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School, Bayshore/Fabian employers, senior residences/centers including Moldaw, Palo Alto Animal Services and Municipal Services
South Palo Alto New California Avenue Caltrain, Midtown and Palo Verde neighborhoods, Mitchell Park and Library, Senior residences/centers (i.e. Moldaw Residences), Terman Middle School, Gunn High School, VA Hospital
Service Implementation Concepts
Annual service hour costs are presented for each route concept at two service levels – initial and
full. Initial service levels are typically all-day service at 30-minute frequencies without weekend
service. Full service indicates all-day service, into the evenings, at 15-minute peak frequencies and
the introduction of weekend service at 40-60 minute frequencies.
Full buildout of the system, including 15-minute peak, 30-minute midday, and 30-60 minute
evening/weekend service on two existing modified routes and one new route would dramatically
increase the total number of revenue hours needed to operate the system. A summary of the
concept service changes is provided in Figure 2.
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Figure 2 Service Implementation Summary
Light Level of Service Full Level of Service
Route Name Description of Service
Annual Service Hours Annual Cost1 Description of Service
Annual Service Hours Annual Cost
Crosstown Route – Variant A
7 AM to 7 PM weekday service; 30-minute frequency all day, 40 minute in evenings, no weekend service
11,985 $864,118
7 AM to 9 PM weekday service; 15-minute peak frequency, 30-minute midday and 40-minute evening; 8 AM to 8 PM weekend service with 40-minute frequency
21,705 $1,564,930
Crosstown Route –
Variant B
6 AM to 10 PM weekday service with 30-minute frequency all day; 8 AM to 8 PM weekend service with 45-minute frequency
14,640 $1,055,544
6 AM to 10 PM weekday service with 30-minute frequency all day; 8 AM to 8 PM weekend service with 45-minute frequency2
14,640 $1,055,544
Embarcadero Route
6:50 AM to 7 PM weekday service with 20 minute frequency during peak, no midday service, 40-minute evening; no weekend service
5,228 $376,902
7 AM to 9 PM weekday service with 15-minute frequency in peak, 30-minute frequency in midday and evening; 8 AM to 8 PM service on weekends with 60-minute frequency
11,400 $821,940
South Palo Alto
7 AM to 7 PM weekday service with 30-minute frequency all day and 60-minute evening frequency; no weekend service
8,670 $625,107
7 AM to 9 PM weekday service with 15-minute frequency in peak, 30-minute midday, 60-minute evening; 8 AM to 8 PM weekend service with 60-minute frequency
14,240 $1,026,704
A sample route package incorporating Crosstown Route Variant A, the modified Embarcadero
Route, and South Palo Alto Variant A has been produced in Figure 3. This comparison shows the
1 Assuming service hour cost of $72.10
2 Based on proposed service specifications on VTA Route 21
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operating cost differences between the estimated annual operating costs of the existing shuttle
network and both an initial and full service implementation of this sample package.
Figure 3 Sample Route Package and Associated Operating Costs
Route and Variant Current Annual Operating Costs
Annual Costs – Enhanced Service Level
Annual Costs –
Full Service Level
Crosstown A $281,911 $864,119 $1,564,931
Embarcadero $252,400 $376,903 $821,940
South Palo Alto -- $625,107 $1,026,704
TOTAL $534,311 $1,866,129 $3,413,575
Note: The Embarcadero shuttle is funded in partnership with the Joint Powers Board (JPB). The JPB currently pays 46.5% of the operating cost (up to $117,300 per year). The breakdown of current operating costs is $135,100 per year from the City of Palo Alto and $117,300 from the JPB per year.
As the above table shows, the investment in an expanded shuttle system will require significantly
more funding on an annual basis; however, with the elimination of multiple existing VTA routes,
expansion of the Palo Alto Shuttle system is important to maintaining strong transit coverage and
access for Palo Alto residents and visitors.
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2 INTRODUCTION
Palo Alto has had its own shuttle system for many years, providing fare-free “last mile”
connections to and from Caltrain and “community shuttle” routes for use by students, seniors,
and other riders interested in accessing destinations along the routes. With only three routes
currently in operation, not all residents and workers are served by the shuttle, and most trips that
are not close enough for walking are made by car, other transit providers, and bike, in that typical
order of magnitude.
With increasing interest in expanding mobility options for residents and workers of all ages, the
City of Palo Alto is seeking to develop and implement a citywide fare-free transit system that
focuses on innovation, usefulness, and sustainability to maximize car-free mobility and provides
convenient accessibility to key destinations and regional connections. This study report helps
move this vision forward by developing an expanded system concept for consideration by elected
officials and residents alike.
PURPOSE OF THE PLAN
The primary purpose of the Palo Alto Transit Vision is to better serve the mobility needs of Palo
Alto residents (who live and/or work in the City) and workers. It is also a response to — and was
largely informed by — the comments and preferences communicated by the Palo Alto community
members who responded to the Palo Alto Shuttle community survey in 2015. The plan serves as a
blueprint for implementing new transit services within the City of Palo Alto that connect
residential areas to key employment, shopping, recreation, school destinations as well as improve
regional connectivity with linkages to Caltrain and countywide transit providers (VTA,
SamTrans). Further, it provides a framework for ongoing guidance of future service change efforts
through proposed system goals and objectives, service design guidelines, and performance
standards.
All service concepts presented in this plan are currently unfunded and would require substantial
investment on behalf of the City to realize new routes or expansion of service hours on existing
routes. A two-phase implementation strategy is presented as part of this plan to help frame the
effort and cost needed to achieve a citywide fare-free transit system.
OVERVIEW OF THE PALO ALTO SHUTTLE
The Palo Alto Shuttle Program began in 1999 and has historically provided free service that
included two routes: Crosstown Shuttle Route and Embarcadero Shuttle Route. In 2014, the
Phase One expansion of the Palo Alto Shuttle Program introduced a new shuttle route in
partnership with the City of East Palo Alto, bringing the total number of shuttle routes in the
program to three. However, the East Palo Alto route was discontinued by the City of East Palo
Alto in 2016 with some portions replaced by SamTrans route 280. In 2015, the City increased
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midday service frequency on the Crosstown Shuttle route to improve the service to local schools
and community facilities. The City of Palo Alto currently operates the following two shuttle
routes:
The Crosstown Shuttle provides a north-south transit connection from Charleston
Road to the Palo Alto Transit Center (University Avenue) via Middlefield Road and
several community neighborhoods. This route is funded 100% by the City and operates
Monday through Friday during the daytime period, excluding some holidays.
Average daily ridership on the Crosstown route in February 2016 was 276 boardings per
day. This represents a cost of $3.49 per boarding. The Crosstown route had an average
81% on-time performance in fall 2015. Estimated annual cost to operate the existing
Crosstown shuttle route is about $282,000.
The Embarcadero Shuttle connects the business parks on the east side of the City
along Embarcadero Road to the University Avenue Caltrain Station. The City currently
contracts with the Peninsula Corridor Joint Powers Board (JPB) for the Embarcadero
Shuttle, which is a part of the Caltrain peak hour commuter shuttle program and
subsidized 46.5% by the JPB (including BAAQMD funding). The remaining 53.5 is
subsidized by the Palo Alto Shuttle Program. This route operates Monday through Friday.
Average daily ridership on the Embarcadero route in October 2015 was 268 boardings per
day. The cost per boarding and on-time performance statistics are unknown as the City of
Palo Alto does not hold the contract or pay the full price of the service. The estimated cost
to operate the Embarcadero shuttle is $245,000 per year.
The City contracts the operation of the Crosstown shuttle to MV Transportation. The City’s
current contract with MV Transportation extends through June 30, 2017. The Caltrain Commuter
Shuttle Program operates the Embarcadero Shuttle.
OTHER TRANSIT SERVICES IN PALO ALTO
The Palo Alto Shuttle does not operate within a vacuum within the City, and the other transit
agencies and the services they provide must be accounted for when considering expanded shuttle
service. The City is also well served by regional transit agencies including Santa Clara Valley
Transportation Authority (VTA), SamTrans, Caltrain, and Dumbarton Express (operated by AC
Transit). Further, Stanford University operates a robust campus transit program and there are
many private shuttles (typically from large tech companies) that also operate in the City,
primarily serving Caltrain stations and residential areas.
VTA provides bus, light rail, and paratransit services throughout Santa Clara County and
participates as a funding partner in regional rail service including Caltrain, Capital
Corridor, and the Altamont Corridor Express. Within Palo Alto, VTA provides Rapid Bus,
local bus, community circulator, and commuter express services. See Chapter 4 for
discussion of proposed VTA network changes in Palo Alto.
SamTrans operates 76 bus routes throughout San Mateo County and into parts of San
Francisco and Palo Alto. Within Palo Alto, SamTrans provides local bus, community
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circulator, and first/last mile shuttle services. SamTrans also provides transit service to
East Palo Alto in lieu of the recently-eliminated East Palo Alto shuttle route.
Caltrain provides commuter rail service along the San Francisco Peninsula, through the
South Bay to San Jose and Gilroy. Palo Alto is served by two stations: Palo Alto Station
(downtown) and California Avenue Station. The Palo Alto Station is the second busiest in
the Caltrain system.
Dumbarton Express is a weekday-only transbay bus service operating between Palo Alto,
Stanford and Caltrain and Union City BART. This service is operated by AC Transit and
consists of two routes, DB and DB2.
The Stanford Marguerite shuttle operates numerous routes offering first/last mile service
to Caltrain, residential areas in the City, areas with high concentrations of ancillary
Stanford employment, and local shopping destinations. The Stanford Marguerite shuttles
are free to ride and open to anyone.
Private employers located in Palo Alto and surrounding communities are increasingly
providing private commuter buses to their employees. This includes employers such as
Google, Facebook, Box, VM Ware, some of which operate on Foothill Expressway and
Page Mill Road in Palo Alto.
INTEGRATION WITH VTA NEXT NETWORK
Over the past several years, the City of Palo Alto has looked closely at expansion of the Palo Alto
Shuttle as one way to expand mobility and access for residents and workers of all ages. The
ultimate vision is a citywide fare-free transit system that focuses on innovation, usefulness, and
sustainability to maximize car-free mobility and provides convenient accessibility to key
destinations and regional connections.
During the shuttle route concept development process, the express intent was to minimize
duplication and overlap with other transit agencies/routes. The first phase of concept
development, which took place in spring 2016, was conducted with the best available information
at the time. VTA, as part of their Transit Ridership Improvement Program, was still developing
and had not yet published their Next Network concepts (Network 70, Network 80, and Network
90).
In January 2017, VTA released a draft plan which focused on an 85/15 resource split, with the
largest portion going toward higher ridership routes to increase frequency and the smaller portion
funding routes serving coverage goals. As a result, some routes in Palo Alto are proposed for
elimination and/or modification. Thus, the purpose of this study effort is to revisit and update the
draft 5-year service plan to be responsive to and complement the adopted Next Network. In order
to meet the City’s own coverage and frequency goals for transit access and mobility, new and/or
modified routes have been explored and developed, and are outlined in the transit vision Chapter
5. Staff expect that a revised VTA Next Network Plan will be released in Spring 2017 which will
include revisions reflecting an 83/17 split in allocated resources. A future iteration of this plan
will react to any major changes in service provision in Palo Alto.
REPORT ORGANIZATION
The Palo Alto Transit Vision consists of six chapters, which are summarized below.
Chapter 1 provides an executive summary of the report.
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Chapter 2 presents an introduction to the context, goals, and processes used in
development of this plan.
Chapter 3 reviews existing transit services within the City of Palo Alto in more depth and
offers an analysis of peer systems.
Chapter 4 summarizes the Draft VTA Next Network plan and the implications of the
network changes in Palo Alto.
Chapter 5 presents the shuttle system’s guiding goals and objectives and presents
proposed performance standards.
Chapter 6 describes the next steps, as well as consideration of an additional route and
other service models the City could consider instead of providing fixed-route shuttle
service
Appendix A offers insight on the community profile of Palo Alto.
Appendix B describes the process of developing and screening initial service
improvement concepts during phase one of this effort in Spring 2016.
Appendix C includes maps and specifications of additional route variants considered by
staff for the Embarcadero and South Palo Alto routes.
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3 CURRENT TRANSIT CONDITIONS
Public transit in Palo Alto is provided by a wide variety of operators and many service types,
including fixed route, long distance commuter shuttle, first/last mile shuttle, community
circulator, and school service. Palo Alto is also served by two Caltrain (commuter rail) stations.
The Palo Alto Station (downtown) is an exceptionally important multimodal transit hub,
generating the second highest commuter rail ridership in the Caltrain system while connecting
with Palo Alto Shuttle, Stanford Marguerite, VTA, SamTrans, Dumbarton Express, and private
employer shuttles. This chapter reviews existing services within the City.
PALO ALTO SHUTTLE ROUTES
The Crosstown Shuttle provides a north-south transit connection from Charleston Road to the
Palo Alto (University Avenue) Caltrain station along Middlefield Road and several community
neighborhoods. This route serves both JLS and Jordan middle schools during the morning and
afternoon bell schedules. Crosstown Route currently operates on one-hour headway during most
of the day, except for the morning and mid-afternoon school bell schedule period when there is
additional service to support school activity. This route is funded 100% by the City’s General Fund
and operates Monday through Friday, excluding some holidays, from 7:40AM- 5:30PM.
Average daily ridership on the Crosstown route in February 2016 was 276 boardings per day. This
represents a cost of $3.49 per boarding. The Crosstown route had an average 81% on-time
performance in fall 2015. The stimated annual cost to operate the existing Crosstown shuttle
route is about $282,000.
The Embarcadero Shuttle connects the business parks on the east side of the City along
Embarcadero Road to the Palo Alto (University Avenue) Caltrain Station. The City currently
contracts with the Peninsula Corridor Joint Powers Board (JPB) for the Embarcadero Shuttle,
which is a part of the Caltrain peak hour commuter shuttle program and subsidized 46.5% (up to
$117,300) by the JPB. The remainder 53.5% is subsidized by Palo Alto (the General Fund). The
shuttle operates on 15- minute headway Monday through Friday from 6:50AM-9:50AM and
3:10PM-6:50PM, excluding some holidays. The Embarcadero Shuttle includes a special run to
Jordan Middle School to supplement the Crosstown Shuttle service to/from the school.
Average daily ridership on the Embarcadero route in October 2015 was 268 boardings per day.
The cost per boarding and on-time performance statistics are unknown as the City of Palo Alto
does not hold the contract or pay the full price of the service. The estimated cost to operate the
Embarcadero shuttle is $245,000 per year.
Recently Discontinued
The East Palo Alto Shuttle began operation on July 1, 2014 and linked the University Avenue
Caltrain Station with Woodland Avenue community in East Palo Alto. This route was funded by
the City of East Palo Alto but managed by the City of Palo Alto. It operated on 30-minute
headways, seven days per week, excluding some holidays, from approximately 6:00AM to
10:00AM and 4:00PM-9:00PM. At the request of East Palo Alto, the route was discontinued in
September 2016. SamTrans Route 280 was modified to address coverage gaps left by the
elimination of the East Palo Alto shuttle route.
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Figure 4 Overview of Current Palo Alto Shuttles
Route Name Route Operator Managed By Funded By
Headways and Service Days Ridership Service Hours
Estimated Annual Cost Points of Interest
Crosstown
Shuttle
University Ave/Downtown - South Palo Alto @ Charleston Road, via Middlefield
MV Transportation City of Palo Alto City of Palo Alto 60 min
Weekdays, except holidays
276 boardings per day (February 2016)
Weekdays: 7:40 AM – 5:20 PM
Weekends: no service
$282,000 Palo Alto Transit Center, Avenidas, Lytton Gardens, Channing House, Main Library, Palo Alto Art Center, Jordan Middle School, Midtown Shopping District, JLS Middle School, Mitchell Park Community Center + Library, Stevenson House
Embarcadero
Shuttle
University Ave. Caltrain - Baylands Business Park, via Embarcadero
Caltrain Commuter Shuttle Program
Caltrain Commuter Shuttle Program
BAAQMAD, Peninsula Joint Powers, City of Palo Alto
15-20 min
Weekday peak, except holidays
268 boardings per day (October 2015)
Weekdays: 6:51-9:34 AM & 3:10-6:28 PM
Weekends: no service
$245,000 E. Bayshore, Embarcadero Road, Palo Alto High School, Jordan Middle School, Palo Alto Medical Foundation
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OTHER OPERATORS WITHIN PALO ALTO
The City is also served by regional transit agencies including Santa Clara Valley Transportation
Authority (VTA), SamTrans, Caltrain, and Dumbarton Express (operated by AC Transit). Further,
Stanford University operates a robust campus transit program and there are many private
shuttles (typically from large tech companies) that also operate in the City, primarily serving
Caltrain stations and residential areas, including Google, Facebook, Box, VMware, and others.
Figure 7 lists the universe of routes that serve Palo Alto operated by other agencies.
The following section details ridership and productivity of routes serving Palo Alto, in order to
gain additional understanding into the current usage and potential of the transit market to, from,
and within the City. Based on availability, data ridership is summarized at the route level. Many
routes provided by other operators travel on significant portions of roadway outside the City
proper.
VTA
VTA reports ridership and productivity in their annual transit service plan, most recently for FY
2016 – FY 2017. Standards are based on the average productivity of each route service type –
core, local, community, and express. Routes operating below the standard are typically an
indicator or need for improvement, but is not a hard cut off. Instead, VTA operates with a
minimum productivity standard of 15 boardings per revenue hour for all routes.
Figure 5 VTA Ridership
Route Serving Palo Alto Weekday Ridership Boardings per Revenue Hour
22 12,929 32.2
35 1,068 16.5
88/88L/88M 207 12.5
89 130 23.5
101 77 19.3
102 314 22.4
103 198 24.8
104 90 22.5
182 28 14.0
522 5,228 21.5
Source: Transit Service Plan FY 2016- FY 2017, VTA Service & Operations Planning, May 2015
VTA released a proposed re-imagination of its network in January 2017 called the VTA Next
Network. The Next Network proposes elimination or modification of a number of existing VTA
routes in Palo Alto. See chapter 4 for detailed discussion of the implications of the Next Network
changes in Palo Alto.
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SamTrans
SamTrans has seen some declines in ridership related to the local economy in San Mateo County
and recovery from the Great Recession, but those declines have now leveled off. Overall the
system averages 26.1 boardings per revenue hour.
Figure 6 SamTrans Ridership
Route Serving Palo Alto Weekday Ridership Boardings per Revenue Hour
280 226 10.6
281 790 12.4
297 58 11.5
397 210 42.1
ECR 12,460 37.3
Source: San Mateo County Transit District Short Range Transit Plan Fy2014 - Fy2023, SamTrans, December 2014
Dumbarton Express
In February 2014, average weekday ridership on Dumbarton Express was roughly 1,300
boardings, split nearly evenly between the two routes DB and DB1.3 No other detailed
productivity information was available at time of this study.
Caltrain
Caltrain ridership has been steadily increasing since the introduction of the Baby Bullet (2004),
with only a slight blip during the Great Recession. The Palo Alto Station and California Avenue
Station rank number 2 and 12 in the system, in terms of weekday ridership, respectively. Almost
7,200 boardings were recorded at the Palo Alto Station while the California Avenue Station saw
over 1,500 on a daily basis. These riders are primarily last mile, meaning they arrive at each
station and require a last mile shuttle (Embarcadero, Marguerite, etc.) to reach their destination.
For riders leaving one of these stations as their first trip, station parking is provided, but first mile
shuttle service is also highly valued by providing car free mobility to this regional high-capacity
transit connection.
Stanford Marguerite
Stanford University operates an extensive transit network within Palo Alto and nearby
communities called the “Marguerite”. These routes are free for use by University affiliates and the
public alike. The full list of routes, as well as recent ridership data, is shown in Figure 7.
Ridership on all Marguerite routes in 2016 included about 3.2 million boardings. Average
ridership on all routes was 272,421 boardings per month in 2016.
3 Dumbarton Express Operations Update, AC Transit, March 2014.
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Figure 7 Other Existing Transit Serving Palo Alto
Route Name Route Operator Managed By Funded By Headways Service Days Service Hours - Weekdays Service Hours - Weekends
Ridership
(Boardings Per Revenue Hour)
Valley Transportation Authority (VTA)4
22 Palo Alto Transit Center to Eastridge Transit Center via El Camino VTA VTA VTA 10-15 min (daytime) Daily 24 hours 24 hours 32.2
35 Downtown Mountain View to Stanford Shopping Center VTA VTA VTA 30-60 min Daily 5:42 AM – 10:46 PM 8:23 AM – 8:59 PM 16.5
88 Palo Alto Veteran’s Hospital to Middlefield & Colorado VTA VTA VTA 60 min Weekdays 6:32 AM – 6:39 PM None 12.5
88L
Palo Alto Veteran’s Hospital to Middlefield & Colorado (School Days Only)
VTA VTA VTA None School Day Peaks 7:38-8:06 AM & 2:29-4:12 PM None 12.5
88M
Palo Alto Veteran’s Hospital to Middlefield & Colorado (School Days Only)
VTA VTA VTA None School Day Peaks 7:43-8:06 AM & 2:29-4:08 PM None 12.5
89
California Avenue Caltrain to Palo Alto Veterans Hospital (via Stanford Research Park)
VTA VTA VTA 30 min Weekdays 6:36 AM – 6:38 PM None 23.5
101 Camden & Highway 85 to Palo Alto VTA VTA VTA 60 min Weekday Peaks 6:16-8:20 AM & 4:10-6:42 PM None 19.3
4 Note proposed VTA network changes released in January 2017. See Chapter 4 for explanation of implications on VTA routes serving Palo Alto.
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Route Name Route Operator Managed Funding Headways Service Days Service Hours - Weekdays Service Hours - Weekends
Ridership
(Boardings per Revenue Hour)
102 South San Jose to Palo Alto VTA VTA VTA 8-30 min Weekday Peaks 5:50-9:01 AM & 3:25-6:51 PM None 22.4
103 Eastridge Transit Center to Palo Alto VTA VTA VTA 30-60 min Weekday Peaks 5:08-8:23 AM & 2:41-6:29 PM None 24.8
104 Penitenicia Creek Transit Center to Palo Alto VTA VTA VTA 30-45 min Weekday Peaks 5:54-7:55 AM & 4:00-6:05 PM None 22.5
182 Palo Alto to IBM/Bailey Ave VTA VTA VTA None Weekday Peaks 7:29-8:33 AM & 5:05-6:14 PM None 14.0
Rapid 522 Palo Alto Transit Center to Eastridge Transit Center VTA VTA VTA 15-30 min Daily 4:37 AM – 11:16 PM 7:50 AM – 11:09 PM 21.5
Dumbarton Bridge Regional Operations Consortium
DB Dumbarton Express AC Transit (MV
Transportation)
Dumbarton Bridge Regional Operations Consortium (DBROC): AC Transit, BART, SamTrans, Union City Transit, VTA
Regional Measure 2 30-60 min Weekdays, except holidays 5:22 AM – 8:51 None
1,300 (average weekday ridership in February 2014 on both DB and DB1)
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Route Name Route Operator Managed Funding Headways Service Days Service Hours - Weekdays Service Hours - Weekends Ridership (Boardings per Revenue Hour)
DB1 Dumbarton Express AC Transit (MV Transportation)
Dumbarton Bridge Regional Operations Consortium (DBROC): AC Transit, BART, SamTrans, Union City Transit, VTA
Regional Measure 2 20-60 min Weekday peaks,
except holidays
5:26-9:45 AM & 1:35-8:43 PM None
1,300 (average weekday ridership in February 2014 on both DB and DB1)
SamTrans
280 Purdue / Fordham – Stanford Mall SamTrans San Mateo County Transit District San Mateo County Transit District 60 min Daily 5:20 AM – 10:24 PM 7:38 AM – 7:57 PM 10.6
281 Onetta Harris Center – Stanford Mall SamTrans San Mateo County Transit District San Mateo County Transit District 15-30 min Daily 6:00 AM – 10:32 PM 8:03 AM – 7:58 PM 12.4
297 Redwood City Transit Center –Palo Alto Transit Center SamTrans San Mateo County Transit District San Mateo County Transit District 60 min Nightly 10:43 PM – 5:21 AM 6:45 PM – 9:22 AM 11.5
397 San Francisco – Palo Alto Transit Center SamTrans San Mateo County Transit District San Mateo County Transit District 60 min Nightly 12:48 AM – 6:22 AM 12:48 AM – 6:22 AM 42.1
ECR Daly City BART – Palo Alto Transit Center SamTrans San Mateo County Transit District San Mateo County Transit District 10-30 min Daily 3:56 AM – 2:21 AM 4:47 AM – 2:21 AM 37.3
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Route Name Route Operator Managed Funding Headways Service Days Service Hours - Weekdays Service Hours - Weekends Ridership (Yearly Total – 2016)
Stanford Marguerite Routes
1050 A Medical School Office Building –Arastradero Road Stanford University Stanford University Stanford University and numerous contributors 20 min Weekdays, except
holidays 7:05 AM – 6:45 PM None 87,412
BOH Menlo Park Caltain – Bohannon Stanford University Stanford University Stanford University and numerous contributors 30 min Weekdays, except
holidays 7:01 AM – 6:33 PM None 66,061
C Vi! – Serra Mall – Escondido Village Stanford University Stanford University Stanford University and numerous contributors 30 min Weekdays, except
holidays 5:40 AM – 9:17 PM None 131,988
HD Hoover Pavilion Shuttle Stanford University Stanford University Stanford University and numerous contributors 7 min Weekdays 4:06 AM – 1:38 AM None 410,028
MC (MCH) Palo Alto Transit Center –Stanford Hospital Fountain Stanford University Stanford University Stanford University and numerous contributors 15-20 min Weekdays 5:05 AM – 9:04 PM None 191,550 (MC)
8,384 (MCH)
N Campus – Downtown Palo Alto (Counter-Clockwise) Stanford University Stanford University Stanford University and numerous contributors 40 min Nightly, except holidays and Summer 8:10 PM – 1:38 AM 8:10 PM – 1:38 AM 7,257
O Campus – Downtown Palo Alto (Clockwise) Stanford University Stanford University Stanford University and numerous contributors 40 min Nightly, except holidays and Summer 8:25 PM – 1:57 AM 8:25 PM – 1:57 AM 7,089
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Route Name Route Operator Managed Funding Headways Service Days Service Hours - Weekdays Service Hours - Weekends Ridership (Yearly Total – 2016)
OCA
Tresidder Union – Oak Creek
Apartments
Stanford University Stanford University Stanford University and numerous contributors 20 min
Nightly, except
holidays and
summer
9:00 PM – 2:10 AM 9:00 PM – 2:10 AM 3,198
P Palo Alto Transit Center –
Stanford Oval Stanford University Stanford University Stanford University and numerous contributors 10-20 min Weekdays, except
holidays 6:08 AM – 8:10 PM None 266,555
R California Avenue – Stanford Research Park Stanford University Stanford University Stanford University and numerous contributors 25 min Weekdays, except
holidays 10:00 AM to 3:00 PM None 1,365
RP Palo Alto Transit Center –
Research Park Stanford University Stanford University Stanford University and numerous contributors 10-40 min Weekday peaks 6:28-10:12 AM & 3:30-7:33 PM None 131,008
S
Palo Alto Transit Center –
Stanford West Apartments – Oak
Creek Apartments – Rosewood
Hotel
Stanford University Stanford University Stanford University and numerous contributors 45 min Weekday peaks,
except holidays
6:20-9:07 AM & 4:34-6:47 PM None 16,342
SE
Palo Alto Shopping Center –
Campus – San Antonio Shopping
Center
Stanford University Stanford University Stanford University and numerous contributors 35-60 min
Daily, except
holidays and
Summer
3:00 PM – 10:25 PM 9:35 AM – 11:08 PM 90,297
SLAC SLAC – Hoover Tower Stanford University Stanford University Stanford University and numerous contributors 20-60 min Weekdays, except
holidays 7:00 AM – 9:26 PM None 73,351
TECH
Palo Alto Transit Center –
Embarcadero Road – Palo Alto
Technology Center
Stanford University Stanford University Stanford University and numerous contributors 10-30 min Weekday peaks 6:30-10:20 AM & 2:40-7:25 PM None 41,408
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Route Name Route Operator Managed Funding Headways Service Days Service Hours - Weekdays Service Hours - Weekends Ridership (Yearly Total – 2016)
VA
Stanford Hospital – Campus – California Avenue Caltrain Station – Palo Alto VA Hospital
Stanford University Stanford University Stanford University and numerous contributors 25-45 min Weekdays 6:30 AM – 9:37 PM None 27,981
X
Palo Alto Transit Center –Stanford Shopping Center –Campus (Counter-Clockwise)
Stanford University Stanford University Stanford University and numerous contributors 15-20 min Weekdays, except
holidays 5:51 AM – 8:59 PM None 508,160
Y Palo Alto Transit Center –Stanford Shopping Center –Campus (Clockwise) Stanford University Stanford University Stanford University and numerous contributors 15-20 min Weekdays, except
holidays 6:08 AM – 8:59 PM None 521,472
AE-F/U Fremont BART – Stanford Oval –Stanford Shopping Center
Stanford University / AC Transit Stanford University / AC Transit Stanford University / AC Transit 30-60 min Weekday Peaks 6:00-9:26 AM & 2:45-7:03
PM None 139,443
Caltrain
Deer Creek
Shuttle
Palo Alto Transit Center –California Ave Caltrain Station –Deer Creek Caltrain Caltrain
Bay Area Air Quality Management District Transportation Fund for Clean Air, Peninsula Corridor Joint Powers Board, Hewlett-Packard
20-60 min Weekday Peaks
7:33-10:01 AM & 3:38-7:01
PM
None
About 7,200 daily boardings at Palo Alto station
About 1,500 daily boardings at California Avenue station
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TRANSIT ACCESS WITHIN PALO ALTO
In addition to the Palo Alto Shuttle, five other transit operators provide service in Palo Alto —
SamTrans, VTA, Dumbarton Express, and Stanford’s Marguerite Shuttle (which is also free to the
community). Given the presence of many operators, an analysis of access to existing transit
service found that 74% of Palo Alto residents are within a quarter-mile walk of a bus stop in Palo
Alto (Figure 8) along routes that provide intracity (within Palo Alto) service. Gaps identified as
part of this exercise, and shown in the below figure, informed the goals and the subsequent route
development process of the Palo Alto Transit Vision.
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Figure 8 Access to Transit within a Quarter-Mile in Palo Alto
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4 VTA N EXT NETWORK
When developing new or modified route concepts for the Palo Alto Shuttle network, the initial
intent was to minimize duplication and overlap with other transit agencies/routes and expand
coverage into areas of the City currently without transit service. During an initial concept
development process conducted in spring 2016, VTA was still developing internally their Next
Network concepts as part of their Transit Ridership Improvement Program (TRIP).
Fast forwarding to January 2017, VTA has now released its Draft Next Network Plan, which
focuses on a reduction in coverage-based transit service in order to provide more robust and
frequent service to higher ridership routes within the VTA service area.5 This is proposed through
introduction of an 85/15 approach to funding allocation, with 85% of operating funds being used
to improve higher ridership routes and 15% funding routes serving coverage goals. The
implications of the proposed transit network modifications for Palo Alto include elimination of
multiple local transit routes, as described in Figure 9.6
Transit provided by VTA in Palo Alto today, as well as the Next Network proposed changes, are
shown in Figure 10. As shown below, the first iteration of the Next Network proposal identified
VTA Route 89 for discontinuation. However, through subsequent conversations with VTA staff,
Route 89 is expected to be retained in future proposals.
Figure 9 VTA Transit Route in Palo Alto
Route Number Description of Change Routing Change Frequency Change
21 New Route 21 would connect Downtown Palo Alto with San Antonio Shopping Center, Downtown Mountain View, Downtown Sunnyvale and Santa Clara Caltrain station. New Route 21 would replace current Routes 32 and 35.
N/A N/A
22 Route will remain but frequency will be reduced. X
35 Current Route 35 will be discontinued and replaced with new Route 21. X
88 Current Route 88 will become new Route 288A/B and will provide school trips only (2 AM & 3 PM), with service to Gunn High School, Terman Middle School, Kehillah Jewish High School, Palo Verde Elementary School, Hoover
X
5 The VTA Draft Next Network Plan can be accessed at: http://nextnetwork.vta.org/
6 This figure represents proposed changes released by VTA in January 2017. A revised Next Network is expected to be released by VTA in Spring 2017 and may include changes to the proposal for VTA service in Palo Alto. Any changes will be reflected in a new iteration of this plan.
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Elementary School, Jane Lathrop Stanford Middle School.
89 Current Route 89 will be discontinued due to low ridership.7 X
102/103/104/1828 No changes proposed. Limited run commute-only route. Subject to change pending outcome of upcoming study. X
288 New Route 288 proposed to provide service to schools in lieu of proposed discontinuation of current Route 88. X
522 Route will remain with increased frequency proposed to begin in April 2017. X
7 VTA Route 89 was slated for discontinuation in the January 2017 proposal. However, through subsequent conversations with VTA staff, Route 89 is expected to be retained in future proposals.
8 Route 104 will serve Milpitas BART station upon opening.
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Figure 10 Current VTA Network Coverage (left) and Proposed VTA Network Coverage (right) in Palo Alto
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Palo Alto will retain the following service from VTA:
Three all-day routes, primarily along Middlefield Road (new Route 21) and El Camino
Real (current Routes 22 and 522 Rapid)
Two school tripper routes (288A and 288B) with service between portions of Palo Verde,
Charleston Meadow, Greenmeadow, Fairmeadow, and Saint Claire Gardens
neighborhoods and Gunn High School and others surrounding schools via Charleston and
Arastradero Road
Four express routes with limited trips during commute hours, primarily serving Page Mill
Road business complexes, including current Routes 102, 103, 104, and 182
Figure 11 Proposed Route 88 Changes
TRANSIT ACCESS WITH VTA NEXT NETWORK
The existing access to transit analysis revealed that with the current VTA network and Palo Alto
shuttle routes, 74% of Palo Alto residents are within a quarter-mile walk of bus service or a half-
mile walk of rail (i.e. Caltrain). This walkshed map and associated discussion is presented in
Chapter 3. However, when the walkshed analysis is re-run with the Draft VTA Next Network,
transit access within the same walking radius described above drops to 61% of residents in Palo
Alto. This amounts to a 17.5% decrease in transit accessibility citywide.
As shown in Figure 12 below, residents and businesses in the following areas will have
significantly reduced VTA service due to elimination of current Routes 88 and 89:
Adjacent to Louis Road, Meadow Drive and Charleston Road in Palo Verde, Fairmeadow,
Meadow Park and Charleston Gardens neighborhoods
Evergreen Park and Green Acres neighborhoods and adjacent to Page Mill Road, Hoover
Street, Arastradero Road and Foothill Expressway
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Figure 12 Transit Accessibility Walkshed Incorporating VTA Network Changes
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5 PALO ALTO TRANSIT VISION
Goals
The following goals were developed based on current operating characteristics, community
priorities, and the markets for transit services. The objectives to support each goal are, in most
cases, actions that can be taken by the City to help move toward realization of these goals. The
service concepts and preferred service alternative presented in the succeeding chapters seek to
meet these goals and objectives with service design.
Convenient & Accessible – With all transit trips beginning or ending with a walk trip,
all residents and businesses should be within a reasonable walking distance of a transit
stop along a route providing frequent, all day service.
o Locate routes within ¼ mile walk of major health, recreational, education,
employment, cultural and social services facilities.
o Once the first accessibility objective is met, increase citywide coverage by
providing all residents accessibility to routes within a ¼ mile walk, starting first
at higher density locations (e.g. multi-family housing)
Frequent & Reliable – All transit routes and services within the City should provide
frequent and reliable all day service in order to serve the wide variety of trip types that
compose overall travel need.
o Achieve headway benchmarks defined as 10-15 minute weekday peak, 30 minute
midday, and 30-60 min weekday evening/weekends.
o Operate reliably by meeting on-time performance standards as agreed upon with
operator.
Visibility and Ease of Use
o Implement friendly, exciting and encouraging new branding.
o Strive for convenience - superior coverage and frequent service should go where
people want to go and offer real and practical alternatives to driving.
o The system should be easy to understand and easy to ride for all users.
Markets
“Who should the shuttle serve?” was a fundamental question explored as part of this study
process. While full build-out of a fare-free citywide transit system that serves all residents,
employees, and visitors to the greatest extent possible is the ultimate vision, it cannot be fully
achieved without complementary policy, behavioral, and built environment changes. For
example, a Palo Alto resident with full access to a private vehicle will likely drive to downtown,
Town & Country Village, California Avenue, etc. for a shopping or dining trip even with accessible
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shuttle service because parking is free. For a choice rider, a very low marginal cost of driving
begets driving.
Thus, a fare-free citywide transit system will need to be implemented incrementally and should
serve the populations and physical areas of the City with the highest transit propensity and need
first. As part of the process in developing system goals and objectives, identification and
prioritization of these service markets further determines how service planning decisions and
incremental investments in service improvements can be made.
First, priority is given to the mobility and accessibility needs of residents, employees, and visitors
who are without access to a private vehicle, who choose not to drive, or cannot drive, including
seniors, students, and persons with special needs or disabilities. The following service markets are
identified in descending order of need, and form the basis of the service planning efforts:
1. Seniors – Ensure origins and destinations are served well with frequent service and a
one seat ride, provide more amenities at stops that enhance customer experience, and
ensure language needs are addressed.
2. Students – More trips during peak hour to relieve overcrowding; better serve high and
middle schools; coordinate with schools to consider schedules for alternate days off.
3. Employees Last Mile – Serve all major employment generators with Caltrain-based
shuttles and meet all peak period commuter trains at Palo Alto and California Avenue
stations or provide service at high enough frequencies that meeting specific trains is less
important.
4. Employees First Mile – Enhance first mile connectivity for Palo Alto residents with
express service from dense residential areas to Caltrain.
5. Employees Intracity – Ensure that Palo Alto residents who also work in Palo Alto can
access their place of employment car-free.
6. Residents – Focus on evening and weekend trip making to entertainment, dining and
shopping (note: this is the hardest group to serve without complementary policy changes,
such as introduction of parking charges to disincentivize auto use).
Community Outreach / Feedback
The goals, concepts, and recommendations included in this service plan were informed by an
engagement process comprised of a community survey, a set of community meetings, other
informal public engagement activities including social media interactions, and community
engagement as part of the City of Palo Alto General Plan update. The methodology and findings
for these community engagement efforts are outlined further in the below sections.
Community Survey
A comprehensive community survey was developed and distributed in the fall of 2015. Running
for nearly four months from September through December 2015, the survey was housed on online
survey platform SurveyMonkey. The survey was also distributed in paper form at senior centers
around Palo Alto, including Avenidas and Sheridan House, to ensure the senior population had
the opportunity to comment and contribute their views to the survey.
The survey garnered 1,981 responses in the nearly four-month period, representing a strong
interest in the shuttle program and in making improvements to ensure the shuttle is a viable
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transportation option. Of all respondents, 67% live in Palo Alto, 47% work in Palo Alto and 12%
go to school in Palo Alto, indicating a mix of affiliations with Palo Alto. For visitors to Palo Alto,
the most common reasons reported on the survey were for medical purposes, followed by
entertainment and visiting family and friends.
Figure 13 Survey Response: What is your affiliation with Palo Alto?
About half of respondents were members of a one or two-person household, while the other half
lived with two or more people. More than half of respondents have more than one private vehicle
available in their household (55%) while 11% have no car available. This alone demonstrates a
challenge to encouraging widespread use of the shuttle within Palo Alto.
Shuttle Usage
Of all respondents, the vast majority (67%) said they had personally never used the shuttle (see
Figure 14). However, more than 20% of respondents said that someone in their household had
used the shuttle in the past three months.
67%
47%
12%
0%10%20%30%40%50%60%70%80%
Live in Palo Alto
Work in Palo Alto
Go to school in Palo Alto
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Figure 14 Survey Response: How often do you use the shuttle?
Shuttle Improvements
The most popular response regarding why respondents do not use the shuttle pertained to
insufficient locations served by the shuttle (37%), followed by a lack of awareness of the shuttle in
general or how to use it (30%) (see Figure 15).
Figure 15 Survey Response: Why don’t you use the shuttle?
When asked what would entice respondents to use the shuttle more often, the most common
improvements included more frequent shuttle service (53%), service to additional destinations
(51%), service close to home (47%), better information on the service (38%), and longer service
hours (36%) (see Figure 16).
4%3%6%
9%
11%
67%
Daily on weekdays
Weekly
A few times a month
I used to ride but don't
currently
Less than once a month
I've never used it
6%
8%
19%
30%
37%
0%5%10%15%20%25%30%35%40%
"It doesn't run frequently enough"
"It doesn't run when I need it"
"I'd like to use it but I don't know how"
"I didn't know about it"
"It doesn't go where I need to go"
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Figure 16 Survey Response: What would motivate you to use the shuttle more often?
More than 1,000 pieces of destination data were collected as part of the survey. With this data, a
map of “key destinations” was produced to include the work, school and other destinations, such
as shopping and medical appointments, of the shuttle survey respondents. While not exhaustive
or assumed to be reflective of the entire Palo Alto population, the most common destinations
indicated on the community survey are shown in Figure 17 and Figure 18.
Figure 17 Survey Responses: Key Destinations
Destination Category Number of Responses
SAP Employer 154
City of Palo Alto Employer 73
Jazz Pharmaceuticals Employer 66
Stanford University Employer 52
Palantir Technologies Employer 42
Palo Alto High School School/Employer 100
Gunn High School School/Employer 69
Fairmeadows/Hoover/JLS Schools 69
Ohlone Elementary School/Employer 18
Barron Park Other destination 28
California Avenue corridor Other destination 18
Town and Country Shopping Center Other destination 10
Stanford Shopping Center Other destination 8
Cubberley Community Center Other destination 6
35%
36%
38%
47%
51%
53%
0%10%20%30%40%50%60%
Real time tracking on mobile
Longer service hours
Better schedule information
Bus routes closer to home
Bus routes closer to my destination
Buses that come more often
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Figure 18 Survey Responses: Key Destinations of Survey Respondents
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Open-Ended Comment Analysis
Additionally, more than 1,000 0pen-ended comments were received on the shuttle survey, as well
as 19 comments on the City of Palo Alto Facebook page. Responses to the final survey question,
which collected open-ended and general comments regarding the shuttle service, were coded and
categorized into 1,307 pieces of response data. See Figure 19 for a breakdown of these comments
and an overview of key themes discussed in that category of responses.
Open-ended responses related to location of shuttle service, such as requests for new service
areas, as well as communication-related comments, including requests for better shuttle
informational materials both paper and online, topped the list of common themes. This analysis
reinforced the findings in previous survey questions that service to additional locations, as well as
improved communications and frequency, are the key concerns and requests by survey-takers.
The fact that school service was also a common theme in open-ended responses highlighted the
important role the Palo Alto Shuttle plays, and has the opportunity to play, in school
transportation.
Figure 19 Survey Comment Analysis
Category Number of Responses Key Themes in the Category
Location 366 New service areas, neighborhoods and destinations; general requests for additional service
Communication (COMM) 233 Better service marketing and expanded awareness; improvements to the branding and bus wraps, improved website and schedule materials; introduction of real-time tracking and an app for the service
Frequency (FREQ) 164 Requests for more frequent service (every 5-15 min) or more buses
Service hours (HRS) 137 Requests for midday hours on all shuttle routes, service hours later into the evenings (to allow for dinner out or to match the evening commute) and weekend service
School Service (SCHOOL) 105 Requests for service to additional PA schools, for shuttle schedules that link up to school schedules and related to capacity issues when school is in session and on routes serving schools
Reliability 73 Comments that the bus is frequently operating far off its published schedule which deters use of the service; requests that the shuttle better aligns with other transit in the city (Marguerite, VTA)
Caltrain 59 Better service linking to Caltrain stations and with Caltrain schedules
Amenities (AMEN) 53 Benches and signage at stops, senior accessibility such as low step boarding, pull cords on-board the shuttles, bike facilities and stroller facilities on-board
Door to Door 31 Suggestion for paratransit or door-to-door service in addition to or in lieu of the shuttle; partnerships with Uber, TNCs, etc.
Travel Time 28 Requests to reduce shuttle travel time, suggestions for express service/routes with fewer stops
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Key Findings and Conclusions
Key findings from the community survey demonstrate opportunities to expand the shuttle’s reach
into new ridership areas and markets. Opportunity areas for improvements should facilitate
mobility for:
Seniors — through ADA accessibility, helpful drivers, and service to senior centers and
shopping centers
Students — parents request reliable, timed links to schools with enough capacity
Caltrain commuters — timed and reliable service to/from Caltrain stations, particularly
Palo Alto station where bullet trains stop and during hours which allow for use in the
evening commute
Employees at Palo Alto businesses — opportunity to provide first mile/last mile service to
employers along Page Mill Road and one-seat ride to people who work at Stanford and in
downtown business corridors
Travelers during more hours of the day — opportunities for travel during the midday,
evenings and on weekends was requested
Residents of more neighborhoods — such as the Southwest part of Palo Alto, including
Ventura, Barron Park and Evergreen Park neighborhoods, among other areas
Everyone — a robust communications and awareness campaigns, as well as efforts to
improve the usability of the website and other informational materials, would benefit all
current and potential future users of the shuttle.
Community Meetings
Two community meetings were held on
March 10, 2016 to share an overview of
the findings of the community survey and
discuss five initial shuttle service
concepts, which included three new
routes and two modifications or
extensions to existing shuttle routes.
Attendees were notified that all potential
new shuttle routes are currently
unfunded.
An afternoon meeting was held at the
Palo Alto Main Library to ensure the
senior population and others were able to
come to the meeting via the existing Crosstown shuttle service. The evening meeting was held at
the Lucie Stern Community Center to allow those who work normal business hours to attend.
The afternoon meeting was attended by about 40 people and the evening meeting by about 20.
The afternoon meeting was particularly well-attended by residents of the Moldaw Residences.
Overall, attendees were happy with the proposal to expand the shuttle routes and about the
locations served by the proposed new and modified routes. Depending on the specific home
locations and destinations of attendees, participants expressed interest and approval of different
routes.
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Comments received at the meetings included requests to:
Ensure safe boarding and waiting areas at all stops for new routes, including benches,
closest to senior centers and other destinations
Extend hours on Crosstown route to evenings and weekends
Improve frequency on all routes
Serve Palo Alto Caltrain station on both sides of station
Strive for easy transfer opportunities between Palo Alto shuttle routes and other transit
services
Consider extending Barron Park and/or Southwest routes to Mitchell Park and to
intersect with the Crosstown route
Serve additional key destinations including the JCC, Palo Alto Medical Foundation,
Update current bus branding and decorations to represent all rider groups; install cords
on the buses to indicate when riders want to exit the bus
Consider the impacts of the shuttle expansion and downtown parking pricing on nearby
residential neighborhoods
Ensure shuttles are always ADA accessible for those in wheelchairs and scooters
Consider whether a quarter-mile walkshed is realistic for seniors and people with
disabilities
Consider travel time on new and existing routes – does it take too long to be worth it?
Advertise the Shuttle in the Weekly newspaper, include in transit planning apps
Impact of reduced Stanford Marguerite service during the summer months
Consider how a potential flex, on-demand service could work for seniors or low income
residents without smart phones
Each of these comments either reinforced the need for a certain goal or improvement
already in discussion for future implementation or was regarded as an important
consideration for future steps of this work. The latter type of comment includes those
related to choosing specific stop locations, building in transfer opportunities, and
development of a branding and communications campaign.
Other Engagement Activities
Targeted in-person engagement was conducted at senior residence and activity centers in Palo
Alto in December 2015 in conjunction with the survey. In addition to bringing more responses to
the survey, this effort offered the opportunity to engage with potential and current shuttle users in
person. Additional comments were fielded through social media including on the City of Palo Alto
Facebook page. These comments were incorporated into the survey analysis described earlier in
this chapter.
Relevant comments from the ongoing community involvement process for Our Palo Alto
2030, including a Summit in May 2015 with more than 350 participants, were reviewed
and considered in development of shuttle plans. Notes from the summit include multiple
calls for improvements to the existing shuttle services, including9:
9 http://www.paloaltocompplan.org/wp-content/uploads/2015/06/Palo_Alto-Summit_Q4_results.pdf
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“Expand Palo Alto Shuttle geographically and in frequency (i.e. West of El Camino).”
“Improved citywide shuttle service with collaboration with local employers.”
“More geographically distributed bus/shuttle service – within a 10 min walk of each
home.”
Enact shuttle improvements to routes and schedules to meet the needs of both
commuters and residents; expand into neighborhoods
Improve communication of services via websites, apps, signage
On-demand shuttles
PROPOSED ROUTE MODIFICATIONS
Based on current transit coverage in Palo Alto and gaps in coverage identified through the transit
walkshed analysis, proposed changes to the VTA network, and community needs as expressed
through the outreach process, a full set of route concepts were developed and screened as part of
the visioning process. See Appendix B for full list of initial concepts and the screening process
methodology. What is shown below is the outcome of the visioning and screening process:
proposed route modifications to Crosstown and Embarcadero routes, as well as a new Palo Alto
Shuttle route, “South Palo Alto.” Additional variants not shown in this chapter were considered by
staff and can be found in Appendix C. These proposals seek to achieve enhanced coverage,
frequency, and span within the Palo Alto Shuttle network while addressing the reduction in VTA
service included as part of the Draft Next Network Plan.
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Crosstown
Two variants for a revised Crosstown shuttle route are presented and are still under consideration
by the City. Crosstown Variant A improves upon the original Crosstown route by adding new
routing on both ends:
North End - Extension from Palo Alto Caltrain Station to the Stanford Shopping Center
and Stanford Medical Center
South End – Extension from Middlefield Road to San Antonio Road and El Camino Real.
This extension adds access to the Moldaw Residences, as well as San Antonio Caltrain
and San Antonio Shopping Center.
Crosstown Variant A Specifications
Primary Route Type Community Circulator
Round-Trip Route Length 20.2 miles
Round-Trip Cycle Time 105 minutes
Vehicle Requirements 7 vehicles for 15-minute service
4 vehicles for 30-minute service
3 vehicles for 40-minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Stanford Medical Center*
Stanford Shopping Center*
Palo Alto Caltrain*
Downtown Palo Alto*
Lytton Gardens
Rinconada library
Jordan Middle School
Midtown
JLS Middle School / Hoover Elementary / Fairmeadow Elementary*
Mitchell Park and Library*
Cubberley Community Center*
Senior residences/centers*
San Antonio Caltrain
San Antonio Shopping Center*
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Figure 20 Crosstown Route Variant A
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Crosstown Variant B provides coverage redundancy for the new VTA Route 21 in an effort to offer increased frequency, up to 15-minute headway.
As part of the concept service plan, Crosstown is targeted for significant increases in frequency
and service span. Initially, peak weekday frequencies would be improved and span of service
extended to provide additional utility in the early AM and evening periods. Over time, service
frequencies would be improved to 15 minutes during peak periods and service would be
introduced on weekends.
Crosstown Variant B Specifications
Primary Route Type Community Circulator
Round-Trip Route Length 15.7 miles
Round-Trip Cycle Time 90 minutes
Vehicle Requirements 3 vehicles for 30-minute service
2 vehicles for 45-minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Stanford Medical Center*
Stanford Shopping Center*
Palo Alto Caltrain*
Downtown Palo Alto*
Lytton Gardens
Rinconada library
Jordan Middle School
Midtown
JLS Middle / Hoover Elementary / Fairmeadow Elementary*
Mitchell Park and Library*
Cubberley Community Center*
Senior residences/centers*
San Antonio Caltrain
San Antonio Shopping Center*
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Figure 21 Crosstown Route Modification – Variant B
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Embarcadero
As a first/last mile shuttle, the current route structure is designed to serve the Palo Tech Center
employers east of US 101. A modification of the Embarcadero route is presented with the goal of
addressing coverage gaps presented in the Greer Park/Midtown areas with the elimination of VTA
routes and expanding Palo Alto Shuttle coverage to areas along both East and West Bayshore.
With match funding ending and a duplicate service to the Palo Tech Center provided by the
Stanford Marguerite Tech route, the modified Embarcadero presented here extends the current
Embarcadero route to serve municipal service buildings and other businesses along West and
East Bayshore Drives, as well as the portion of San Antonio Road nearest to U.S. 101.
Embarcadero Modified Route Specifications
Primary Route Type First/Last Mile and Community Circulator
Round-Trip Route Length 10.8 miles
Round-Trip Cycle Time 50 minutes
Vehicle Requirements 4 vehicles for 15-minute service
2 vehicles for 30-minute service
2 vehicles for 60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Palo Alto Caltrain*
Downtown Palo Alto*
Town & Country Village*
Paly High School*
Lytton Gardens
Rinconada library
Palo Alto Municipal Service Center10
Palo Alto Animal Services
Businesses near San Antonio Road/E Charleston Road
Senior residences/centers*
Greer Park
Staff considered additional variants on the Embarcadero route, which can be viewed in Appendix
C.
10 Expanding the Palo Alto Shuttle to the Municipal Service Center allows the City of Palo Alto to expand its employee Caltrain GoPass program to employees outside of the City Hall.
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Figure 22 Embarcadero Route Modification
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South Palo Alto
Most routes, whether Palo Alto Shuttle or operated by other agencies, serve downtown Palo Alto,
including the Palo Alto Transit Center. South Palo Alto terminates at the VA hospital and the
California Ave Caltrain Center, serving schools and other destinations along Arastradero,
Charleston, Louis, and Colorado along the way. This South Palo Alto route concept provides
connections to Caltrain by terminating near the California Avenue Caltrain station. Variant A also
includes a Paly school tripper extension serving the residential areas south of Oregon Expressway.
South Palo Alto Specifications
Route Type Community Circulator
Round-Trip Route Length 13.4 miles
Round-Trip Cycle Time 75 minutes (60 minutes evening/weekend)
Vehicles Requirement 5 vehicles for 15-minute service
3 vehicles for 30-minute service
1 vehicle for 40-60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
California Avenue*
California Avenue Caltrain*
Midtown
Palo Verde neighborhood
Mitchell Park and Library*
Senior residences/centers*
Terman Middle School*
Gunn High School*
VA Hospital
Two additional variants on the South Palo Alto route were considered by staff and can be viewed
in Appendix C.
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Figure 23 South Palo Alto
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SERVICE PLAN AND IMPLEMENTATION
Annual service hours and costs are presented for each route (including two variants for the
Crosstown route) in Figure 24. For each route/variant, a description and estimated annual costs
are provided for both an enhanced (initial) service level and a full (meets frequent and reliable
goal) service level. The City of Palo Alto may select a phased introduction of new or modified
shuttle routes, or may choose to introduce a full service level from the beginning, acknowledging
the loss of VTA service.
Figure 24 Service Implementation Summary
Enhanced Service Level Full Service Level
Route Name Description of Service Annual Service Hours
Annual Cost11 Description of Service Annual Service Hours
Annual Cost
Crosstown
– Variant A
7 AM to 7 PM weekday service; 30-minute frequency all day, 40 minute in evenings, no weekend service
11,985 $864,118
7 AM to 9 PM weekday service; 15-minute peak frequency, 30-minute midday and 40-minute evening; 8 AM to 8 PM weekend service with 40-minute frequency
21,705 $1,564,930
– Variant B12
6 AM to 10 PM weekday service with 30-minute frequency all day; 8 AM to 8 PM weekend service with 45-minute frequency
14,640 $1,055,544
6 AM to 10 PM weekday service with 30-minute frequency all day; 8 AM to 8 PM weekend service with 45-minute frequency13
14,640 $1,055,544
Embarcadero
6:50 AM to 7 PM weekday service with 20-minute frequency during peak, no midday service, 40-minute evening; no weekend service
5,228 $376,902
7 AM to 9 PM weekday service with 15-minute frequency in peak, 30-minute frequency in midday and evening; 8 AM to 8 PM service on weekends with 60-minute frequency
11,400 $821,940
11 Assumes service hour cost of $72.10.
12 Crosstown Variant B duplicates much of VTA Route 21’s route. 30-minute service on Crosstown Variant B would be scheduled as to offer 15-minute frequency to passengers when combined with VTA Route 21’s 30-minute service.
13 Based on proposed service specifications on VTA Route 21.
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South Palo Alto
(To be coordinated with VTA Routes 288 and 89)
7 AM to 7 PM weekday service with 30-minute frequency all day and 60-minute evening frequency; no weekend service
8,670 $625,107
7 AM to 9 PM weekday service with 15-minute frequency in peak, 30-minute midday, 60-minute evening; 8 AM to 8 PM weekend service with 60-minute frequency
14,240 $1,026,704
Sample Route Package
A sample route package incorporating Crosstown Route Variant A, the modified Embarcadero
Route, and South Palo Alto Variant A has been produced in Figure 25. This comparison shows the
operating cost differences between the annual operating costs of the existing shuttle network and
both an initial and full service implementation of this sample package.
Figure 25 Sample Route Package and Associated Operating Costs
Route and Variant Current Annual Operating Costs
Annual Costs – Enhanced Service Level
Annual Costs –
Full Service Level
Crosstown A $281,911 $864,119 $1,564,931
Embarcadero $252,400 $376,903 $821,940
South Palo Alto -- $625,107 $1,026,704
TOTAL $534,311 $1,866,129 $3,413,575
Note: The Embarcadero shuttle is funded in partnership with the Joint Powers Board (JPB). The JPB currently pays 46.5% of the operating cost (up to $117,300 per year). The breakdown of current operating costs is $135,100 per year from the City of Palo Alto and $117,300 from the JPB per year.
As the above table shows, the investment in an expanded shuttle system will require significantly
more funding on an annual basis; however, with the elimination of multiple existing VTA routes,
expansion of the Palo Alto Shuttle system is important to maintaining strong transit coverage and
access for Palo Alto residents and visitors.
As shown in Figure 26, this sample package results in transit access for 77% of Palo Alto residents
within a quarter-mile walk of a bus stop or half-mile walk of a train station. This is an increase
from the 61% identified when incorporating the loss of the VTA routes proposed in the draft Next
Network (Figure 12). It also represents an improvement in transit access from the 74% of
residents who are currently within a quarter mile of bus transit with the existing transit service
(Figure 8).
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Figure 26 Transit Access Walkshed Analysis – Sample Route Package
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Capital Improvements
Because Palo Alto contracts operation of its shuttle routes to a private transportation provider
(currently MV Transportation), it does not own buses or maintenance facilities, and thus primary
capital needs are bus stop improvements and ongoing design and printing of new informational
materials and schedules. The following section outlines guidelines and costs for bus stops and
amenities. Follow on service planning will determine stop locations for new or modified routes, as
well as any upgrades needed to existing stop locations.
Bus Stops
Stop siting/placement will be part of detailed route planning for modified or new routes. All stops
should be fully accessible with a concrete landing and access to a sidewalk or pathway. ADA
accessibility standards require that each bus stop include a landing pad with a minimum width of
60 inches and minimum depth of 96 inches. Bus stops should also connect to adjacent sidewalks
or pedestrian paths. Many systems go beyond ADA minimums and provide a landing pad for the
rear door of the bus. The addition of landing pads, connecting sidewalks, and amenities such as
seating and shelter enhance the customer experience and are especially important for seniors and
other persons with disabilities.
Signage and Amenities
Well-designed bus stop signage has the opportunity to provide useful customer information while
simultaneously marketing transit service. Route signage should be limited to one design to
minimize inventory and materials costs. The unit cost of bus stop poles and signage is
approximately $250 per stop.
Bus stop amenities enhance the customer experience by increasing comfort and perceived safety
and reducing perceived waiting times. Bus stop amenities also influence the community’s
perception of transit service. The approximate cost of bus shelters with seating and trash
receptacles is $10,000 per stop.
Figure 27 Bus Stop Amenity Guidelines
Amenity Description
Pole and sign Installed at stops with fewer than 5 average daily boardings
Pole, sign, and seating Installed at stops with 10-20 average daily boardings and at key senior destinations
Pole, sign, seating, and shelter Installed at stops with 20 or more average daily boardings and at schools and senior centers
The provision of amenities is typically based on ridership. Circumstances that might preclude
installation of shelters or seating at particular stop meeting specific thresholds are:
Amenities would compromise pedestrian or operational safety
Adequate right-of-way is not available
Regulations enforced by City, County, State, or Federal government
Installation costs are excessive
Plans are in place to relocate or close the stops
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6 FOR FURTHER CONSIDERATION
OTHER SERVICE DELIVERY MODELS
With transportation network companies and technology applications adding new options for
customers to more directly control when, where and how they travel, the City wants to explore the
potential for and impacts of converting all or some of its services into real-time e-hailing flex
services. There are several ways to accomplish this objective. At a high level, these include:
Partnering with transportation network companies (TNCs) through a contract or MOU
Developing/acquiring applications for e-hailing, dynamic trip-booking, vehicle
assignment, and electronic payment functionality to apply to services operated in-house
or via contract
Converting all or some of existing fixed route to a blended flex service and apply a
combination of advanced booking and real-time e-hailing, scheduling, and fare payment
system functionality
The analysis of existing services coupled with the community survey results suggests the
predominant improvements that would encourage potential riders to use the shuttle were
corrective actions to the perceived service deficiencies concerning the desire for more frequent
service, better service coverage, more information, longer service span, etc.
The perceived service gaps reinforce the City’s interest in exploring whether an alternative service
delivery approach might yield higher ridership. Essentially, these data suggest that potential
riders want a service that operates when they wish to travel and where they wish to travel. This
service delivery philosophy correlates to flexible services with real-time responsiveness (similar to
OmniLink Flex-Route – a point deviation service) as well as real-time dynamically routed services
(similar to the FlexBus concept and the VTA Flex pilot).
Flex Service Types
Partnering with a TNC – one obvious service model for the City to consider is partnering with
Transportation Network Companies like Uber and Lyft. TNC’s offer an easy bridge to extend
existing services to currently unserved and underserved areas and markets via a memorandum of
understanding, service parameters and standards, and a financial agreement. Figure 28 presents
a snapshot of pros and cons of the TNC partnership model.
Figure 28 TNC partnership Model Pros and Cons
TNC Partnership Pros Cons
Start-up process Easy to set up; Quickly expands mobility to a wide market MOU must address legal, financial, risk, performance considerations
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Financial Low initial investment; Reasonable investment for modest expansion of mobility
Subsidy on a per trip basis, unless there is a counteracting requirement for a high level of shared trips, will increase overall costs, especially at a cost/trip basis
Access to Service Quickly expands to cover the general public TNC market
Requires concerted effort to facilitate access to service and service accessibility to low income, and disabled population
Managing Service The customer arranges transport directly with the TNC
The City has limited control over service quality and the amount of service provided which can have fiscal impacts
E-hailing Flex Services – The City may also consider converting the shuttles to point
deviation and/or anchored flex services and deploying e-hailing and electronic fare payment
applications. Figure 29 presents a snapshot of pros and cons of the point deviation and anchored
flex service models.
Point deviation Flex services include a generalized transit route created by a series of
designated stop locations with the ability of the service to deviate between stops on
request to make off-route pick-up and drop-offs.
Anchored Flex services operate more like dial-a ride without specified routes and stops
except for one, in some cases 2-3, where the vehicle is always scheduled to be at a
particular location and time, generally each hour of half hour. At the anchor stop, the
vehicle connects with a regional rail or transit service. Otherwise, the anchored flex
service is free to pick up and drop off passengers based on requests.
Figure 29 Point Deviation/Anchored Flex Service Model Pros and Cons
Point Deviation / Anchored Flex Services Pros Cons
Start-up process
Modify existing services into point deviation and/or anchored Flex services can be done with a service change
Requires customer awareness; Retrain drivers; Acquire and deploy technology systems
Financial Point deviation productivity can be high; Improved service cost-effectiveness
Requires initial investment in technology; Technology deployment takes time;
Access to Service Improved customer awareness, service access, service information; Increase ridership
Point deviation and anchored dial-a-ride services can be a challenge to some customers
Managing Service
Technology applications will enhance customer experience, operations management, data collection, reporting
The City is responsible for operations, service quality
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Dynamic Point-to-Point Flex Services – The next option for the City to consider is a real-
time dynamically routed point-to-point Flex service. This is essentially a service without routes or
schedules. This service model was initially designed for Central Florida as the FlexBus concept
and is currently being implemented on the LYNX NeighborLink service in a slightly modified
zonal service model. VTA Flex service in Milpitas is another example. Figure 30 presents a
snapshot of pros and cons of the point deviation and anchored flex service models.
Figure 30 Dynamically Routed Flex Service Model Pros and Cons
Dynamically Routed Flex Services Pros Cons
Start-up process Modify existing services; Rebrand existing services; Leverage ridership base
Retrain customers and drivers; Acquire and deploy technology; More vehicles
Financial Productivity can be high; High cost-effectiveness; Low subsidy per trip
Requires initial investment in technology; Technology deployment takes time;
Access to Service High customer awareness & service access, Real-time service; Real-time status
Service concept needs to be explained; Non-tech savvy and certain populations may require support
Managing Service Enhanced customer service, operations management, data and reporting
The City is responsible for operations, service quality
Next Steps
Based on this brief analysis of a range of Flex service models currently operating and/or
emerging in the industry, there seems to be evidence for the City to further investigate
new and emerging service delivery models such as TNC-partnerships, dynamic Flex service models, and point deviation service models as a replacement for or in addition to local fixed-route circulator service. The intent of these service delivery types is to offer
new ways to deliver mobility in lower-density and lower-productivity environments.
Their primary advantage is in providing more cost-effective service that can minimize the
tradeoff between frequent service and good coverage through partnerships or deviations.
This initial assessment just scratches at the surface of what alternate service delivery
could look like in Palo Alto. A detailed planning and implementation study should follow
to further develop and refine these concepts into a feasible pilot program. At time of
writing, several formal partnerships have formed and are currently being piloted here in the Bay Area, and best practices/lessons learned from these programs provide a logical, convenient, and accessible starting point for the City as it seeks to explore emerging
mobility options for its residents, employees, and visitors.
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APPENDIX A COMMUNITY PROFILE
The City of Palo Alto is located about 30 miles south of San Francisco and 20 miles north of San
Jose in Santa Clara County, California. Palo Alto maintained a relatively stable population from
1970 to 2000 with 4.7% growth but has been growing significantly faster since 2000. The 2010
US Census found a population of about 64,000 residents. However, the city’s population is
projected to increase 25.1% between 2000 and 2030, reaching more than 73,000 residents by the
year 2030.14
Figure 31 shows the density of residential population throughout Palo Alto. The highest density
areas include the University Avenue and California Avenue areas, as well as Barron Park and
some census tracts east of Middlefield and south of Oregon Expressway. Other areas of relative
high density are in East Palo Alto and near the San Antonio Caltrain station on the border with
Mountain View.
Figure 31 Population Density in Palo Alto
14 Our Palo Alto 2030, Draft Existing Conditions Report: Population, Housing and Employment (2014), 10-5, 10-6
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Residents age 65 and older constitute 17.1% of Palo Alto’s population. This is a larger portion than
the share for Santa Clara County as a whole, which is 11%. Palo Alto’s population is also aging; the
median age in 2010 was 41.9 years old, compared to 31.6 in 1970. Between today and 2030, the
number of residents older than 65, the average age, and the share of children are all expected to
continue to increase.
The ethnic make-up of Palo Alto’s population is shifting, with a decrease in persons identifying
themselves as Caucasian and an increase in the proportion of people who self-identify as Asian. In
2000, 72.8% of the population identified themselves as white, compared to 60.6% in 2010.
Conversely, 17.2% of Palo Alto residents identified as Asian in 2000; this increased to 27% in
2010. These trends are expected to continue both in Palo Alto and throughout the Bay Area.
Income in Palo Alto is consistently higher than for surrounding communities in Santa Clara
County. Palo Alto’s median household income increased to $122,482 in 2012, compared to
$90,747 in Santa Clara County overall.
Palo Alto boasts consistent job growth and low unemployment rates. More than 110,000 jobs are
projected in Palo Alto by 2030, a 24% increase from the number of jobs in 2010. Employment
density in Palo Alto (Figure 32) is concentrated in the University Avenue and California Avenue
areas, the Page Mill Road corridor including the Stanford Research Park, and in the southeast
part of the city near Fabian Way and San Antonio Road.
Figure 32 Employment Density in Palo Alto
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Figure 33 Transportation Goals of the Current Comprehensive Plan15
Transportation Goals
Goal T-1 Less reliance on Single-Occupant Vehicles
Goal T-2 A convenient, efficient public transit system that provides a viable alternative to driving
Goal T-3 Facilities, services, and programs that encourage and promote walking and biking
Goal T-4 An efficient roadway network for all users
Goal T-5 A transportation system with minimal impacts on residential neighborhoods
Goal T-6 A high level of safety for motorists, pedestrians and bicyclists
Goal T-7 Mobility for people with special needs
Goal T-8 Attractive, convenient public and private parking facilities
Goal T-9 An influential role in shaping and implementing regional transportation decisions
Goal T-10 A local airport with minimal off-site impacts
15 Our Palo Alto 2030, Draft Existing Conditions Report: Transportation and Traffic (2014), 12-7
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APPENDIX B CONCEPT LIST AND
SCREENING PROCESS
This concept development and screening process took place in Winter/Spring 2016 during the
initial development of concepts, prior to the concept refinement in consideration of the draft VTA
Next Network.
Concept Development
Using the established goals and objectives, the findings from the community survey, and analysis
conducted regarding existing transit service, a set of more than 20 initial concept ideas were
developed to improve the Palo Alto Shuttle system.
These concepts were classified as either new routes, modified routes, or other service
improvements. Other service improvements included concepts not directly related to expanded or
modified coverage, such as increased frequency, increased service hours, improved reliability, and
a campaign to expand awareness and improve the user experience of the shuttle. The full list of
initial concepts is included as Figure 34.
This initial concept list was developed with the following market factors and planning parameters
in mind:
Walkshed analysis and existing transit access gaps
Population and employment densities
Key activity generators and destinations as identified on the survey
Ridership trends on existing shuttle services
School catchment areas (see figures below)
Residential locations of key user groups (e.g. seniors)
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Figure 34 Palo Alto Shuttle Improvement Concepts – Initial List
Concept Type Description Alignment with Goals Service Characteristics Key Destinations Served
Southwest Shuttle New Route Community Circulator; FM/LM
New route with service from Stanford Shopping Center/Apartments to PA Caltrain, Cal Ave Caltrain, Stanford Research Park (Page Mill), VA Hospital, Gunn HS
Convenient and Accessible
Either peak only (to only serve Gunn and commuters) or 7:30am-7:30pm route; consider later service Friday PM (to 10 pm) Frequency: 15 min
Stanford Shopping Center, Palo Alto Caltrain, Cal Ave Caltrain and business district, Page Mill Rd employers, Stanford Research Park, VA Hospital, Gunn High School/Terman Middle
Midtown-San Antonio Circulator + Paly School Tripper
New Route Community Circulator; School Tripper
New route with service between California Ave and San Antonio Shopping Center via Palo Verde and San Antonio transit hub Continues to El Camino and Embarcadero Road for school trips
Convenient and Accessible Frequent and Reliable
Frequency: 15 min peak Additional trip(s) to Paly in accordance with bell schedule
Cal Ave shopping district, Cal Ave Caltrain, Mitchell Park, San Antonio Caltrain, San Antonio Shopping Center
Central PA New Route Community Circulator
New loop route with service from Stanford Shopping Center/Downtown PA to Fairmeadow via Alma/Bryant Convenient and Accessible Frequency: 15 min (perhaps 30 min headway if combined or offered as alternative route to Southwest)
Stanford Shopping Center University Avenue PA and Cal Ave Caltrain stations
Barron Park New Route Community Circulator
New route with service from within Barron Park neighborhood to downtown PA, Convenient and Accessible Frequency: 15 min (perhaps 30 min headway if combined or offered as alternative route to Southwest)
PA Caltrain, PAMF, Town and Country Shopping Center, Barron Park
West Shuttle
New Route Community Circulator; School Tripper
Connects connect South Palo Alto, California Avenue, Paly High School, Town and County Village, the Palo Alto Medical Center, Palo Alto Transit Center, University Avenue, and Stanford Shopping Center via El Camino Real and East Meadow Drive
Convenient and Accessible Sample schedule includes 20 weekday runs and approximately 24 vehicle revenue hours with two buses in operation.
Palo Alto Caltrain University Avenue Connections to Marguerite Stanford Shopping Center Palo Alto Medical Foundation California Avenue Palo Alto Commons Stevenson House Moldaw Residences
Winter Shopping Trolley New Route Community Circulator
Connects the University Avenue Downtown Business District with the Stanford Shopping Center Convenient and Accessible Pilot project: December park-once shuttle for holiday shopping Stanford Shopping Center University Avenue
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Concept Type Description Alignment with Goals Service Characteristics Key Destinations Served
Summer Lunchtime Trolley New Route Community Circulator
Connects the University Avenue Downtown Business District with the Stanford Shopping Center Convenient and Accessible
Pilot project: Summer lunchtime trolley for access to dining destinations in Stanford Shopping Center and downtown Requires high frequency (<10 min to be successful)
Stanford Shopping Center University Avenue
Paly School Tripper (North Palo Alto) New Route School Tripper
Serves Paly students living in downtown North and downtown neighborhoods. Convenient and Accessible Extra AM/PM run timed with school schedule Paly High School North and Old Palo Alto residential neighborhoods
Gunn/Terman School Tripper New Route School Tripper
Serves Gunn/Terman students living in Stanford housing and in neighborhoods near Stanford Convenient and Accessible Extra AM/PM run timed with school schedule Gunn/Terman schools Stanford University housing
Paly School Tripper (SW Palo Alto) New Route School Tripper
Serves Paly students living in College Terrace and Evergreen Park neighborhoods.
Convenient and Accessible Extra AM/PM run timed with school schedule Paly High School College Terrace and Evergreen Park neighborhoods
Flex Routes New Route Community Circulator
Serves lower demand areas either spatially or temporally that are not served with fixed route transit
Convenient and Accessible Frequent and Reliable
Potential to serve lower demand residential areas with point to point or point to downtown service TBD based on extents of service area
Crosstown: Stanford Shopping Center, PAMF Extension + Cubberley Extension
Modified Route Community Circulator
Extends Crosstown route west to Stanford Shopping Center, Town and Country Shopping Center and PAMF; east to loop serving Cubberley Community Center
Convenient and Accessible Extension to encircle Stanford Shopping Center via Sand Hill, Arboretum, Galvez, El Camino; loop around Middlefield, San Antonio and E Charleston
Existing plus Stanford Shopping Center, Town and Country Shopping Center, PAMF; Cubberley Community Center, Greenmeadow neighborhood, Moldaw Residences
Embarcadero: Bayshore Service Modified Route - Route and Hours Community Circulator; FM/LM
Diverts Embarcadero route along East/West Bayshore to Fabian Way/San Antonio Road
Convenient and Accessible Frequent and Reliable
Modified route to serve Bayshore, southeast PA All day service at 15 minute headway in peak, perhaps more in off-peak
Greer Park, Fabian Way and W Bayshore businesses, existing Embarcadero shuttle destinations
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Concept Type Description Alignment with Goals Service Characteristics Key Destinations Served
East Palo Alto: Stanford Shopping Center, PAMF Extension
Modified Route Community Circulator
Extends EPA route west to Stanford Shopping Center, Town and Country Shopping Center and PAMF Convenient and Accessible Extension to encircle Stanford Shopping Center via Sand Hill, Arboretum, Galvez, El Camino Existing plus Stanford Shopping Center, Town and Country Shopping Center, PAMF
East Palo Alto: 101 Extension Modified Route Extend EPA route across US 101 and further into East Palo Alto Convenient and Accessible Could either be a new additional route, or could be alternated with existing route for 1 hr headway vs 30 min headway East Palo Alto, Palo Alto Caltrain, downtown PA
Crosstown: Hours Extension - Weekends Other Service Improvement - Weekend Service
Implement weekend service for shopping, dining opportunities as well as access to Main Library, Mitchell Park, and other community centers Frequent and Reliable Options exist for all day service or just evening service Same as existing route
Crosstown: Hours Extension - Evenings Other Service Improvement - Extend Weekday Operating Hours
Extend Crosstown service into the evening to facilitate evening commute use and car free access to downtown dining and shopping Frequent and Reliable Extend Crosstown route hours to 7:30 pm M-Th; to 10 pm Fri Same as existing route
Crosstown: Frequency Increase Other Service Improvement - Weekday Peak Period Frequency
Increase all day frequency on Crosstown route to 15 min headways; currently 30 min headway in non peak, hourly in peak One additional Jordan Middle route run in AM and PM
Frequent and Reliable
15 min headway or better; schedule designed to meet Caltrain arrivals/departures True first mile/last mile would require as many runs as Embarcadero Shuttle
Same as existing route
East Palo Alto: Hours Extension Other Service Improvement - Midday Service Extend EPA route hours in midday weekday and weekend Frequent and Reliable Closing gap on midday service from EPA to downtown Same as existing route
Marketing and Communications Campaign Other Service Improvement Develop and implement marketing and communication improvements for existing shuttle services Visibility and Ease of Use
Existing Shuttle Reliability Study Other Service Improvement Invest in study of reliability issues for existing shuttle routes Frequent and Reliable
Schedule and Operations Review Other Service Improvement Invest in review of existing schedules, opportunities for coordination and transfer between Palo Alto shuttle and other operators Visibility and Ease of Use
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The concepts were screened against known operational constraints including street design and
roadway configurations (e.g. one-way streets and designated bike boulevards) in addition to the
criteria listed below:
Ridership Potential: does the route serve multiple activity generators or key
destinations in Palo Alto?
Ability to Serves Target User Groups: does the route serve multiple user groups,
including seniors, students, employees and residents?
Expand Transit Access: does the route expand the transit service area in Palo Alto and
avoid overlap with existing services?
Address Survey Requests: does the route address requests we heard in the survey?
Level of Resources Required: does the route require significant resources or is it
easily-implementable?
Points were assigned in each criteria category corresponding to a low, medium or high score.
Characteristics for each score category are outlined in Figure 35.
Figure 35 Shuttle Improvement Concept Screening Criteria
Criteria Low – 1 Point Medium – 2 points High – 3 points
Ridership Potential < 5 activity generators on route 6-10 activity generators on route 11+ activity generators on route
Low employment and population density Moderate population and employment density Significant high population and employment density
Ability to Serve Target User Groups One user group reached Two user groups reached 3-5 user groups reached
Expands Transit Access Significant overlap with existing service Some new corridors/streets served Mostly new corridors/streets served
Nearby population already has transit within quarter mile
Provides some new quarter-mile transit access
Addresses many gaps in transit access
Addresses Survey Requests Does not address key destinations/categories of survey responses
Addresses one key destination/category of survey responses
Addresses multiple key destinations/categories of survey responses
Level of Resources Required Anticipated to be very resource intensive Moderate level of resources required Requires reasonable level of financial/staff resources to implement
Following the screening and scoring exercise, the concepts were placed into Tiers 1 through 3,
with Tier 1 concepts most closely aligning with the goals (as described in Chapter 5) and practical
constraints of the shuttle program. Concepts were also separated into near-term concepts
(primarily modified routes and other service improvements, such as frequency and hours of
operation) and mid to long-term concepts (primarily new routes).
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Figure 36 outlines the scoring process and shows the scores assigned to each initial concept, as
well as the tiered outcomes. Tier 1 concepts, including new routes and modified routes, were
further refined and shared at the community meetings in March 2016.
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Figure 36 Shuttle Concept Screening Process and Assigned Scores
Palo Alto Shuttle Initial Concepts
Concept Screening High - 3 points, Medium - 2 points, Low - 1 point * Inverse weighting
Tier Concept Ridership Potential Serves Target User Groups Expands Transit Access Addresses Survey Requests
Level of Resources Required* Total Points Ranking Notes
Tier 1 Southwest Shuttle
3 Low to Moderate population density; high employment density; about 12 activity generators
3 Seniors, students, employees FM/LM to research park, residents
2 2 1 11 Tier 1 because of potential new ridership, multiple user groups served and addressing survey requests
Tier 1
Midtown-San Antonio Circulator + Paly School Tripper
2 Moderate to high population density; low to moderate employment density; about 7 activity generators
3 Seniors, students, PA employees, residents
2 2 1 10
Tier 1 because of gaps filled in transit access, number of target user groups served and addressing survey comments.
Tier 1 Embarcadero: Bayshore Service
2 Moderate population density; moderate employment density; about 6 activity generators
2 Seniors, residents, PA employees
3 2 2 11
Tier 1 because of significant closure of transit access gaps, multiple target user groups served and moderate resources required
Tier 1
Crosstown: Stanford Shopping Center, PAMF Extension + Cubberley Extension
2 Moderate population density; moderate employment density; about three activity generators
2 Seniors, residents, PA employees
2 3 3 12
Tier 1 because low anticipated resources required, addresses frequent survey requests and while there is some existing transit overlap, it serves senior population where one seat ride is important
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Palo Alto Shuttle Initial
Concepts
Concept Screening
High - 3 points, Medium - 2 points, Low - 1 point
*Inverse weighting
Tier Concept
Ridership
Potential
Serves
Target User
Groups
Expands
Transit
Access
Addresses
Survey
Requests
Level of
Resources
Required* Total Points Ranking Notes
Tier 1 Crosstown: Hours Extension - Evenings
3 Same ridership potential as Crosstown, plus evening commuters
2 Seniors, PA employees, residents
1 3 2 11
Tier 1 because of additional ridership potential, addressing frequent survey comments and moderate level of resources required
Tier 1 Crosstown: Frequency Increase
3 Same ridership potential as Crosstown, plus evening commuters
2 Seniors, PA employees, residents
1 3 2 11
Tier 1 because of potential to increase ridership, address survey requests and moderate level of resources required
Tier 2 Central PA
2 Moderate population density; moderate employment density; about 6 activity generators
2 Seniors, PA employees, residents
3 1 1 9 Tier 2 due to infeasibility of route due to non-thru streets other than bike blvd Bryant, car thoroughfare Alma
Tier 2 Barron Park
2 Low to moderate population density; moderate employment density; about 6 activity generators
2 Seniors, PA employees, residents
2 2 1 9 Tier 2 due to high survey response but low density neighborhood.
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Palo Alto Shuttle Initial
Concepts
Concept Screening
High - 3 points, Medium - 2 points, Low - 1 point
*Inverse weighting
Tier Concept
Ridership
Potential
Serves
Target User
Groups
Expands
Transit
Access
Addresses
Survey
Requests
Level of
Resources
Required* Total Points Ranking Notes
Tier 2 West Shuttle
2 Moderate population density; moderate employment density; about 5 activity generators
2 Seniors, PA employees, residents
1 2 1 8 Tier 2 due to transit overlap but moderate population and employment density in the area.
Tier 2 Winter Shopping Trolley
2 Moderate population density, high employment density; about 4 activity generators
2 Seniors, residents
1 1 2 8 Tier 2 due to transit overlap but moderate population and employment density in the area.
Tier 2 Summer Lunchtime Trolley
2 Moderate population density, high employment density; about 4 activity generators
2 Seniors, residents, PA employees
1 1 2 8 Tier 2 due to transit overlap but moderate population and employment density in the area.
Tier 2 East Palo Alto: Stanford Shopping Center, PAMF Extension
2 Moderate population density; moderate employment density; about three activity generators
2 Seniors, residents, PA and EPA employees
1 2 1 8
Tier 2 due to resources and coordination required but moderate population density and transit access expansion.
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Palo Alto Shuttle Initial
Concepts
Concept Screening
High - 3 points, Medium - 2 points, Low - 1 point
*Inverse weighting
Tier Concept
Ridership
Potential
Serves
Target User
Groups
Expands
Transit
Access
Addresses
Survey
Requests
Level of
Resources
Required* Total Points Ranking Notes
Tier 2 Crosstown: Hours Extension - Weekends
2 Same ridership potential as Crosstown
2 Seniors, PA employees, residents
1 2 2 9 Tier 2 due to unclear market demand
Tier 3 Paly School Tripper (North Palo Alto)
2 Includes catchment area but depends on student enrollment
1 Students 2 2 2 7 Tier 3 because of unknowns related to ridership potential
Tier 3 Gunn/Terman School Tripper
2 Includes catchment area but depends on student enrollment
1 Students 2 2 2 7 Tier 3 because of unknowns related to ridership potential
Tier 3 Paly School Tripper (SW Palo Alto)
2 Includes catchment area but depends on student enrollment
1 Students 1 2 2 6 Tier 3 because of unknowns related to ridership potential
Tier 3 Flex Routes Dependent on geographic extents
Dependent on geographic extents
Dependent on geographic extents
Dependent on geographic extents 1 Tier 3 because of unknowns related to ridership potential, cost and operating plans
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Palo Alto Shuttle Initial
Concepts
Concept Screening
High - 3 points, Medium - 2 points, Low - 1 point
*Inverse weighting
Tier Concept
Ridership
Potential
Serves
Target User
Groups
Expands
Transit
Access
Addresses
Survey
Requests
Level of
Resources
Required* Total Points Ranking Notes
Tier 3 East Palo Alto: 101 Extension
2 Moderate to high population density; moderate employment density; about three activity generators
2 Seniors, residents, PA and EPA employees
1 1 1 7 Tier 3 because of transit overlap, low response rate on survey and coordination required.
Tier 3 East Palo Alto: Hours Extension
2 Same geographic extents as current EPA
2 Seniors, PA and EPA employees, residents
1 1 1 7 Tier 3 because of coordination required and low response rate on survey.
Tier 1 Marketing and Communications Campaign
Recommended to address 200+ survey comments related to lack of awareness and potential increase ridership with relatively small investment.
Tier 2 Schedule and Operations Review Could benefit legibility and cost-effectiveness of existing and future routes.
Tier 3 Existing Shuttle Reliability Study Reliability becomes less important with significant frequency increases.
Yellow highlighting indicates variables with significant unknown details.
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APPENDIX C OTHER ROUTE
VARIANTS
CONSIDERED
EMBARCADERO ROUTE VARIANTS
Embarcadero Route Variant A retains the current Embarcadero route, extending it beyond
Palo Alto Technology Center along East Bayshore before turning around at Charleston/Fabian to
a return trip via Embarcadero Road to Palo Alto Caltrain.
Embarcadero Modification Variant A Specifications
Primary Route Type First/Last Mile and Community Circulator
Round-Trip Route Length 13.4 miles
Round-Trip Cycle Time 60 minutes
Vehicle Requirements 4 vehicles for 15-minute service
2 vehicles for 30-minute service
1 vehicle for 60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Palo Alto Caltrain*
Downtown Palo Alto*
Town & Country Village*
Paly High School*
Lytton Gardens
Rinconada library
Palo Alto Technology Center
Palo Alto Municipal Service Center
Palo Alto Animal Services
Businesses near San Antonio Road/E Charleston Road
Senior residences/centers*
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Figure 37 Embarcadero Route Variant A
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Embarcadero Route Variant B removes service to Palo Alto Technology Center and areas east
of Highway 101 in favor of providing service along West Bayshore Road with a loop at
Fabian/Charleston. Embarcadero Variant B aims to fill existing service gaps in the Greer
Park/Midtown neighborhood and serve senior residences and employment centers.
Embarcadero Variant B Specifications
Route Type Community Circulator
Round-Trip Route Length 10.6 miles
Round-Trip Cycle Time 50 minutes
Vehicles Requirement 4 vehicles for 15-minute service
2 vehicles for 30-minute service
1 vehicle for 40-60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Palo Alto Caltrain*
Downtown Palo Alto*
Town & Country Village*
Paly High School*
Lytton Gardens
Rinconada library
Greer Park
Businesses near San Antonio Road/E Charleston Road/Fabian Way
Senior residences/centers*
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Figure 38 Embarcadero Route Variant B
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SOUTH PALO ALTO ROUTE VARIANTS
South Palo Alto Variant B provides all-day duplication of proposed VTA routes 288A and
288B which would provide only school bell service (3 AM and 3 PM trips). This route loops
through Midtown neighborhood via Louis Road, Colorado Avenue, and Middlefield Road.
South Palo Alto Variant B Specifications
Route Type Community Circulator
Round-Trip Route Length 10.4 miles
Round-Trip Cycle Time 60 minutes
Vehicles Requirement 4 vehicles for 15-minute service
2 vehicles for 30-minute service
1 vehicle for 40-60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Midtown
Palo Verde neighborhood
Mitchell Park and Library*
Senior residences/centers*
Terman Middle School*
Gunn High School*
VA Hospital
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Figure 39 South Palo Alto – Variant B
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South Palo Alto Variant C terminates at Midtown Shopping Center and California Avenue
Caltrain station. This nearly circular route travels along Louis, Fabian, E Charleston, Arastradero,
Foothill Expressway, and Page Mill Road. The routes includes a school tripper extension from
Midtown Shopping Center to Palo Alto High School (3 AM and 3 PM trips).
South Palo Alto Variant C Specifications
Route Type Community Circulator
Round-Trip Route Length 16.5 miles
Round-Trip Cycle Time 75 minutes
Vehicles Requirement 7 vehicles for 15-minute service
4 vehicles for 30-minute service
2 vehicles for 40-60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Midtown Shopping Center
Midtown neighborhood
Palo Verde neighborhood
Mitchell Park and Library*
Senior residences/centers*
Terman Middle School*
Gunn High School*
VA Hospital
Stanford Technology Center*
California Ave Caltrain*
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Figure 40 South Palo Alto – Variant C
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SOUTHWEST ROUTE
Lastly, the Southwest route would provide service from downtown Palo Alto and the Stanford
Medical Center/Shopping Center area to Old Palo Alto (currently unserved or underserved by
transit), California Avenue, College Terrace, and along Page Mill Boulevard to serve Stanford
Research Park and then south to the VA Hospital and Gunn High School/Terman Middle School.
With the proposed elimination of VTA route 89, the Southwest Route may present as an
important opportunity for future expansion of the system. This route would also provide a one-
seat fare free ride between downtown Palo Alto and California Avenue shopping districts, as well
as being able to serve portions of Old Palo Alto that today do not have transit within a quarter-
mile walk. Initially the route would operate during weekday peak periods to serve employees and
students. Over time, service would be added midday and extended further into the evening as well
as on weekends.
Southwest Route Specifications
Route Type Community Circulator
Round-Trip Route Length 18.1 miles
Round-Trip Cycle Time 60 minutes
Vehicle Requirements 4 vehicles for 15-minute service
2 vehicles for 30-minute service
1 vehicle for 60 minute service
Destinations
(* indicate key destinations identified in the community survey and shown in Figure 18)
Stanford Medical Center*
Stanford Shopping Center*
Palo Alto Caltrain*
Downtown Palo Alto*
Old Palo Alto neighborhood
California Avenue*
California Avenue Caltrain*
College Terrace
Stanford Research Park*
VA Palo Alto
Gunn High School*
Terman Middle School*
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Figure 41 Southwest Route