Station Stop Policy Guidance Document

2016·3.5 MB·English

by  Washington State Department of Transportation

Station Stop
Policy Guidance
Document
M 3125
July 2016
Americans with Disabilities Act (ADA) Information
Materials can be made available in an alternate format by emailing the WSDOT Diversity/ADA
Affairs Team at [email protected] or by calling toll free, 855-362-4ADA (4232). Persons
who are deaf or hard of hearing may make a request by calling the Washington State Relay at 711.
Title VI Notice to the Public
It is the policy of the Washington State Department of Transportation (WSDOT) and the Oregon
Department of Transportation (ODOT) to assure that no person shall, on the grounds of race, color,
national origin, or sex, as provided by Title VI of the Civil Rights Act of 1964, be excluded from
participation in, be denied the benefits of, or be otherwise discriminated against under any of its
federally funded programs and activities. Any person, who believes his/her Title VI protection has
been violated, may file a complaint with either agency.
For additional information regarding Title VI complaint procedures and/or information regarding our
non-discrimination obligations, please contact WSDOT’s OEO Title VI Coordinator at (360) 705-
7082 or ODOT’s Office of Civil Rights Intermodal Title VI Coordinator at [phone].
To get the latest information on WSDOT publications, sign up for individual email updates
at www.wsdot.wa.gov/publications/manuals.
Page ii Station Stop Policy Guidance Document M 3125
July 2016
Acknowledgements
Advisory Committee
Rep. Nancy Nathanson, OR Legislature Kitty Piercy, City of Eugene
Sen. Joe Fain, WA Legislature Dennis Bloom, Intercity Transit
Rep. Luis Moscoso, WA Legislature Ann Freeman-Manzanares, Intercity
Sharon Konopa, City of Albany Transit
Rob Eaton, Amtrak Andy Cotugno, Metro
Ingrid Gaub, City of Auburn Sean O’Hollaren,
Oregon Transportation Commission
Joe Welsh, City of Auburn
Martin Young, Sound Transit
Bob Steele, BC Ministry of
Transportation Tessa Forrest, TransLink
and Infrastructure Alan Lehto, TriMet
Bonnie Onyon, City of Blaine Rachel Bianchi, City of Tukwila
Harry Robinson, City of Blaine Miora Bradshaw, City of Tukwila
Ravyn Whitewolfe, City of Blaine Mike Eliason, Union Pacific Railroad
Dave Wilbrecht, City of Blaine Don Klimchuk, City of Vancouver, B.C.,
Canada
Ken Schoenborn, BNSF Railway
Robert Wilson, Whatcom Council of
Rich Wessler, BNSF Railway
Governments
Grant Meyer, City of White Rock
Jim Hendrix, City of Woodburn
Project Team
ODOT WSDOT
Hal Gard Ron Pate
Jennifer Sellers Jason Beloso
Robert Melbo Jason Biggs
Jim Cox Cheryl McNamara
Stacy Snider Jeremy Jewkes
Janet Matkin
Teresa Graham
Special Consideration
Roxanne Goettsch, ODOT
Piset Khuon, Puget Sound Regional Council
Kathryn Johnson, Puget Sound Regional Council
Angela Risher, WSDOT
Station Stop Policy Guidance Document M 3125 Page iii
July 2016
Acknowledgements
Page iv Station Stop Policy Guidance Document M 3125
July 2016
Contents
Chapter 1 Guidance Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
1.1 Summary .....................................................1-1
1.2 Organization of Guidance ........................................1-1
1.3 Amtrak Cascades service overview.................................1-2
1.4 Developing Amtrak Cascades Station Stop Policy and Guidance..........1-3
Chapter 2 Stakeholders and Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-1
2.1 Roles and Responsibilities Delivering the Service .....................2-2
2.2 Other Stakeholders Indirectly Involved..............................2-4
Chapter 3 Evaluation Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3-1
3.1 Key Terms with Special Meaning ..................................3-1
3.2 Process Summary...............................................3-2
3.3 Comprehensive Process..........................................3-5
3.4 Step 1: Concept Development ....................................3-6
3.5 Step 2: Initial Feasibility .........................................3-9
3.6 Step 3: Detailed Feasibility Study .................................3-14
3.7 Analysis Complete and Next Steps ........ ........................3-17
Chapter 4 Examples and Other Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-1
4.1 Examples .....................................................4-1
4.2 Other Considerations............................................4-2
Appendices
Appendix A Station Stop Policy Statement .............................. A-1
Appendix B Acronyms and Terms......................................B-1
Appendix C Contact List and Resources .................................C-1
Appendix D References .... ............ ............................. D-1
Appendix E Cascades Station Ownership ................................E-1
Station Stop Policy Guidance Document M 3125 Page v
July 2016
Contents
Page vi Station Stop Policy Guidance Document M 3125
July 2016
Chapter 1 Guidance Overview
1 .1 Summary
The Washington State Department of Transportation (WSDOT) and the Oregon
Department of Transportation (ODOT) adopted a corridor-wide policy on station
stops for the state-sponsored Amtrak Cascades service on June 1, 2016. The Station
Stop Policy formally establishes a consistent and transparent process and approach
for determining the value and benefit of proposed station stop changes to the Amtrak
Cascades corridor.
This guidance is a companion document to the policy. It details an information
gathering and evaluation process to inform decision making regarding proposals to
change station stops for Amtrak Cascades service. The process was developed in
coordination with an advisory committee and stakeholders who represent a variety of
perspectives along the Amtrak Cascades corridor. It is a process the service providers
(e.g., WSDOT, ODOT) will follow and is intended to assist local governments,
transportation agencies and authorities, communities and other stakeholders in the
development, clarification and review of station stop proposals.
It is important to recognize that use of this guidance does not guarantee agreement or
approval regarding proposals, and does not eliminate the need for coordination with
WSDOT and ODOT.
The guidance document is subject to periodic revision. Please verify you are using the
latest version, based on its version number and month of issue, as listed on WSDOT’s
Publications1 webpage.
1 .2 Organization of Guidance
The guidance document is organized to provide users with background information in
the first chapters and more detailed and technical information in the later chapters and
appendices. The contents of each chapter include:
Chapter 1: Guidance Overview
Chapter 1 provides an overview of Amtrak Cascades service, summarizes the process
for how the Station Stop Policy and Guidance Document was developed, and
introduces the corridor-wide approach for developing and assessing the feasibility of
station stop proposals.
Chapter 2: Stakeholders and Partnerships
Chapter 2 provides an overview of the stakeholders and partnerships and their roles
and responsibilities regarding Amtrak Cascades service and station stop proposals.
1 www.wsdot.wa.gov/publications/manuals/fulltext/M3125/SSPGD.pdf.
Station Stop Policy Guidance Document M 3125 Page 1-1
July 2016
Guidance Overview Chapter 1
Chapter 3: Evaluation Process
Chapter 3 is considered the “heart” of the document. It presents the evaluation process
and provides a three-step approach for determining the value and benefit of station
stop proposals.
Chapter 4: Examples and Other Considerations
Chapter 4 provides examples, suggestions and resources that will help proponents
through the feasibility process, as well as other things to consider regarding a proposal.
Appendices
The appendices contain supplementary information regarding use of this document.
1 .3 Amtrak Cascades service overview
1.2 Amtrak Cascades service overview
Amtrak Cascades provides a unique transportation
Amtrak Cassceardveics ep irno vthidee Ps aac uifinciq Nueo rttrhawnsepsot ratnadti oisn dsiesrtviniccet firno tmhe
Pacific Nortohtwheers tr aainl ds eirsv dicisetsin tchta ft ruosme tohteh ecro rrariidl oser,r vsuiccehs atsh at use
the corridorS, souucnhd aTsr Sanosuint’ds TSoraunnsdite’rs sSeorvuinndge cr osmermviuntge rc otrmavmeul tienr
travel in thet hgere garteear tPeru gPeutg Seot uSnodu nadre aar;e aan; da nAdm Atrmaktr’ask C’so Casota st
Starlight (SeSattatrllei gtoh tL (oSse aAttnleg etloe sL)o asn Ad nthgee lEesm) painrde tBhuei Eldmerp ire
(Seattle/PorBtlaunildd etor (CSheiactatlgeo/P)oprrtolavniddi ntog Clohnigca-dgios)t apnrcoev isdeirnvgic e.
long-distance service.
Amtrak Cascades is a state-supported service and operates on the
Pacific NortAhwmetrsat kR Caials Ccaodrreisd iosr a( PsNtaWte-RsuCp)p, oornteed o sf e1r1v ircaei la nd
corridors deospigenraatteesd obny tthhee PUa.cSi.fi Dc eNpoarrtthmweenstt o Rf aTilr aCnosrproidrtoart ion
for high-spe(ePdN iWnteRrcCi)t,y opnaes soefn 1g1e rr araili lc soerrrvidicoers.1 dWesiitghn 1a8tedst abtyio tnh e
stops along Uth.eS .4 D67e-pmariltem reonut toefb Tertwanesepno rVtaatniocno ufvoer rh, iBghri-tsisphe ed
Columbiaanindt eErucigteyn pea, sOserneggoern ,r aAilm sterravki cCea.2s cWaditehs 1s8e rsvtiacteio pnl astyosp as
vital role in atlhoen Pga tchief i4c 6N7o-mrthilwe erostu’tse m buetlwtimeeond Vala tnrcaonuspvoerr,t aBtiroitni sh
system and Cproolvuimdebsi aa nan idm Epourgteannet ,t rOarnesgpoonrt,a Atimontr oapkt Cioans cfoard es
regional travseerlevrisc ea lpolnagy st hae v Ii-t5al c roorlrei dino rt.he Pacific Northwest’s
multimodal transportation system and provides an
Investment and Funding
important transportation option for regional travelers
along the I-5 corridor.
Washington State’s investment in Amtrak intercity passenger rail
service began in 1994, followed by Oregon in 1995. After
Investment and Funding
incremental infrastructure improvements by the states, as well as
Washington State’s investment in Amtrak intercity
other partners, the service became officially known as Amtrak
passenger rail service began in 1994, followed by
Cascades in 1999. Investment in the service continues today.
Oregon in 1995. After incremental infrastructure
With the 2017 completion of nearly $800 million in federally
funded capiitmal pimropvreomveenmtse nbtys 2t,h Ae mstatrtaeks ,C aas swcaedlle as sw oitlhl einr cpraeratsnee rrse,l iability, deAcmretraaske Ctraasvceadl etism Setast,i ons
the service became officially known as Amtrak on the PNWRC
and improve frequency of service in the corridor. Specificservice outcomes are tied to these
Cascades in 1999. Investment in the service continues today. With the 2017 completion
grant monies, including on-time reliability and adherence to designated travel times.
of nearly $800 million in federally funded passenger rail service improvements,3
The fundingAsmtrutrcatku rCeafsocra Adems twraikll Cinacsrceaadsees r seeliravbicileit yc,h danecgreeda sder atmraavteilc atilmlye ws,i athn dim implpermovene tation of
the federal Pfraesqseunegnecry Roaf isle Irnvviceest imn etnhte acnodr rIimdoprr.o Svpeemciefinct Asecrtv oicfe 2 o0u0t8c o(mPResII aAr)e, twiehdi ctoh tehliemsei ngartaendt
federal fundminogn aiess o, fi nOcclutodbinegr 1o,n 2-t0im13e3 .r eTlioadbaiyli,t yW aansdh iandghteorne nacned tOo rdeegsoignn aartee dre tsrpaovnesl itbimlee fso. rthe
direct costs to operate the service. These costs are coveredby a combination of ticket revenues
and statefunding. Investing public funds comes with commitments and obligations that require
2 The PNWRC was designated as a high-speed rail corridor in 1992. www.fra.dot.gov/Page/P0140.
future projects,such as changes to station stops to align with these investments.
3 Federal American Recovery and Reinvestment Act (ARRA) funds, administered by the Federal Railroad Administration, were used
to upgrade existing rail infrastructure and signal systems, relocate an existing station and purchase new locomotives.
Page 1-2 Station Stop Policy Guidance Document M 3125
July 2016
1 The PNWRC was designated in 1992;see FRA’s High-Speed Rail Timeline.
2 WSDOT invested nearly $800 million in federal American Recovery and Reinvestment Act (ARRA) funds to
improve rail infrastructure, upgrade and build stations,address congestion and delays, and purchase new
locomotives.
3 PRIIAis a federal act that eliminated federal funding provided through Amtrak for state-supported intercity
passenger rail programs. As a result, states are required to absorb all ofthe costs to operate the service.
June 2016 Station Stop Policy–Guidance Document
page 1-2 Chapter 1: Guidance Overview
Chapter 1 Guidance Overview
The funding structure for Amtrak Cascades service changed dramatically with
implementation of the federal Passenger Rail Investment and Improvement Act of 2008
(PRIIA), which eliminated federal funding as of October 1, 2013.4 Today, Washington
and Oregon are responsible for the direct costs to operate the service. These costs are
covered by a combination of ticket revenues and state funding. Investing public funds
comes with commitments and obligations that require future projects, such as changes
to station stops, to align with these investments.
1 .4 Developing Amtrak Cascades Station Stop Policy and Guidance
Determining where and when a train stops involves a delicate balancing act. There is a
need to provide travelers with sufficient access to the service, all the while maintaining
a total travel time that is attractive to customers. On average, a new stop adds
approximately five minutes to the train schedule.5 A key finding from a previous study
indicated that longer travel times can outweigh potential ridership gains from adding
stations, which result in incremental losses to larger markets (e.g., Vancouver, British
Columbia, Seattle and Portland) traveling through the station.6
Corridor Administration
WSDOT and ODOT are responsible for administering the operation of Amtrak
Cascades service in which Amtrak is the contracted service operator. Both agencies
are accountable for the successful management of the service. This involves meeting
federal obligations, state requirements and passenger expectations through successful
handling of partnerships, budgets, performance goals and customer service needs.
WSDOT and ODOT operate under a corridor management work plan designed as
a unified framework to maximize existing resources and ensure responsible use of
public investments.7 With support from ODOT, WSDOT developed an interim policy
on station stops in 2013.8 The Interim Policy established a process for addressing
and evaluating new stop proposals for Amtrak Cascades and was the first step
toward establishing a transparent, fair process for communities to follow. Following
completion of each state’s rail plan,9 the agencies began work on finalizing a corridor-
wide policy.
4 PRIIA is a federal act that eliminated federal funding provided through Amtrak for state-supported intercity passenger rail programs.
As a result, states are required to absorb all of the costs to operate the service.
www.highspeed-rail.org/pages/priiasection209.aspx.
5 This additional schedule time accounts for train deceleration, station dwell time, and train acceleration.
6 Amtrak Cascades New Stop Evaluation – Auburn.
7 Cascades Rail Corridor Management Workplan – January 2013.
8 Amtrak Cascades New Stop Evaluation – Auburn
9 Each state rail plan articulates long-term goals, principles and policy recommendations to achieve the vision for the respective rail
system. See Appendix D for links to these rail plans.
Station Stop Policy Guidance Document M 3125 Page 1-3
July 2016
Guidance Overview Chapter 1
Stakeholder Participation
Between October 2015 and May 2016, WSDOT and ODOT convened a Station
Stop Policy advisory committee comprised of 30 individuals representing regional
and local government agencies, station owners, transit authorities, state legislatures,
Amtrak, and host railroads from Washington, Oregon, and British Columbia. This
group met on a regular basis and was instrumental in developing a final corridor-wide
policy, as well as creating this policy guidance document. In addition, the agencies
engaged key stakeholders, including, but not limited to, regional and metropolitan
planning organizations and passenger rail advocacy groups, by providing periodic
project updates and opportunity to review draft final versions of the policy and
guidance document.
Final Policy and Guidance
Final Policy and Evaluation Process
With advisory committee and stakeholder participation, WSDOT and ODOT established a final
With advisory committee and stakeholder participation, WSDOT and ODOT
policy and three-step feasibility approach to help guide development and decision-making for
developed a final policy that established an evaluation process to help guide
station stop prdoepvoelsoaplsm. eTnht iasn pdr doecceisssio ins- imnateknindge dfo tro s htaetliopn t hstoospe pinroteproessatlesd. T ihni se xpprolocerisns go uat lcihnaens gthee t o
current stationp esrttoinpesn bt yin ofourtmlinatiinogn tnheee dpeedrt tion ednetv delaotpa tahned d faatac tasn nde feadcetsd n teoe adsesde tsos atshsee svsa tlhuee vaanldue
benefits of thea npdr obpeonseafilt.s Tohf eth teh preroep-sotseapl . pErvoacleusast iaolnl oowf sa tphreo pporsoapl oisn ebnrotkteon e dvoawluna tine ttoh ae tfheraesei-bsitleipty
before proceefdeiansgib tioli ttyh ea snseesxstm setenpt .process. Each of these steps includes sub-steps which allow
proponents to understand the viability of a proposal early and provides the opportunity
to decide wFheigthuerr eo r1 n.1ot –to F ceoanstiinbuieli otyn Atos tshee snsemxte sntetp P. Friogcueres s1 .1 illustrates the
overall process, including the three major steps.
Add additional scenarios
Concept End Process:
Begin Process Initial Feasibility Detailed Feasibility
Development Analysis Complete
Feasibility Assessment Process
Figure 1.1
The feasibility of a proposal is assessed using specific criteria. The same criteria are used in the
initial and detailed feasibility steps, but the complexity of the analysis increases as each step is
pursued. Thus, each step has different focuses for outcomes, level of analysis, and level of effort
– some qualitative and some quantitative.
Evaluation Criteria
A. Consistency with Corridor Goals
B. Customer Demand
C. Operational Feasibility
D. Station Suitability
E. Interconnectivity
F. Fiscal Viability
These evaluation criteria are used to assess both the benefits and disadvantages of a station stop
proposal. The evaluation process is detailed fully in Chapter 3.
Page 1-4 Station Stop Policy Guidance Document M 3125
July 2016
June 2016 Station Stop Policy–Guidance Document
page 1-4 Chapter 1: Guidance Overview