Transportation Planning Capacity Building Program

– Peer Exchange Report –

Public Transit in a Gaming and Resort Community

I. Summary

The following report summarizes the results of a Peer Exchange held through the Transportation Planning Capacity Building (TPCB) Program, which is jointly sponsored by the Federal Highway Administration (FHWA) and Federal Transit Administration (FTA). The Regional Transportation Commission (RTC) of Southern Nevada hosted the Peer Exchange, which included meetings and several site visits for a delegation from the Gulf Coast of Mississippi. Representatives from the Coast Transit Authority (CTA); the Gulf Regional Planning Commission; the Gulf Coast Business Council; the Mississippi Governor's Commission on Recovery, Rebuilding, and Renewal; and Mississippi Power Company attended the event to learn about public transit in the Las Vegas region. The event took place on November 13th at the offices of the RTC and site visits were made to several regional transit facilities.

back to top

II. Background

The Gulf Coast in Mississippi is in the process of rebuilding and planning for the future after Hurricane Katrina. The natural disaster gave the Gulf Coast the opportunity to reshape its coastal gaming and resort communities. The Gulf Coast delegation would particularly like to integrate public transit into rebuilding efforts and is looking to Las Vegas as an example of a gaming and resort community with public transit.

The purpose of this Peer Exchange was to gain an understanding of the network design of Citizens Area Transit (CAT) in Las Vegas with particular emphasis on how high quality, high capacity transit is integrated into the local bus system to serve both residents and tourists. CAT has introduced a bus rapid transit (BRT) line and a high capacity double-decker bus line in recent years. Additionally, the Gulf Coast delegation was interested in the nature of the relationships between CAT and the Las Vegas gaming industry.

The Gulf Coast delegation was particularly interested to learn how the bus system has evolved, what the gaming industry has done to facilitate the evolution of transit in Las Vegas and any lessons learned that can be applied to the Gulf Coast recovery efforts. CAT has developed a BRT system and other unique services that support the gaming industry, such as the "Deuce" double-decker buses on the Strip. The Strip is the part of Las Vegas Boulevard where the largest casinos and hotels are located. A private consortium has also introduced a monorail line serving casinos and the convention center. Funding for these transit improvements was another topic of importance.

back to top

III. RTC Presentations

1. Introductions from Gulfport Delegation — Kevin Coggin, Executive Director, Coast Transit Authority and Ken Sislak, Project Manager, Gulf Coast Transit Development Plan, DMJM Harris
   
   Mr. Coggin gave a brief introduction of the Gulfport peer participants and gave background on the Mississippi Gulf Coast. After Hurricane Katrina in 2005, the area is assessing how to rebuild. As part of this effort, CTA, with funding provided by FTA, is completing a transit development plan to evaluate existing transit services and how to plan for future transit expansion. This plan, once completed, will be presented to the Metropolitan Planning Organization (MPO) as a supplement to the region's 2030 long-range transportation plan. Completion of the 2030 long-range plan was extended by one year to incorporate the expected changes in land use and transportation needs following the hurricane. Additionally, the Mississippi Governor's Commission on Recovery, Rebuilding, and Renewal has identified public transit as an area it would like to improve. The Mississippi Gulf Coast is focused on rebuilding and enlarging its public transit system, which is operated by the Coast Transit Authority (CTA). The CTA lost 10 buses due to Hurricane Katrina and currently is operating 25 buses. The CTA serves the coastal communities within a three county area.
   
   As part of the Peer Exchange, the Gulfport area was looking to Las Vegas to learn about Bus Rapid Transit, monorail and how the Las Vegas area has built up its transit system in conjunction with the gaming industry. The Gulfport area sees its future as a tier 1 resort similar to Las Vegas and would like public transit to be a major component of the transportation options. The CTA has had little success in serving the gaming industry in Mississippi. However, as part of the post-Katrina rebuilding efforts, the CTA would like to build a partnership with the gaming industry. The Gulfport peers were looking to learn about planning for transit expansion and who the key stakeholders should be in the process.
   
   Mr. Sislak added that the Gulfport peers were looking to learn how public transit operates in a resort community to serve both visitors and the local residential community. Since the Las Vegas metropolitan planning organization (MPO) and transit authority are housed in a single agency, the Gulfport peers wanted to hear about the advantages and disadvantages of this arrangement. The Gulfport area does not have a council of governments (COG). Its RPC is the federally designated MPO.
   
2. Welcome/Introductions — Tina Quigley, Deputy General Manager
   
   Tina Quigley, Deputy General Manager of the RTC, welcomed the Mississippi Gulf Coast delegation to Las Vegas and gave some background on the Regional Transit Commission and its relationship with the gaming industry. A major focus of the RTC is to encourage people to use other modes of transportation besides the automobile. However, it has been difficult to work with the gaming industry on this goal. Initially, congestion was not seen as a problem on the Strip. Casinos wanted people moving slowly past their buildings not quickly. However, the Strip has reached its traffic capacity and Wall Street investors are pressuring private developers to show how they can transport any more people to new hotel rooms. The Convention and Visitor's Bureau is contracting out a mobility study. While this would normally be the function of the MPO, the Convention and Visitor Bureau decided to use a consultant. It is the RTC's hope and expectation that the consultant will provide a similar result to that which the MPO would have provided.
   
   The RTC is focused on changing the goal of transportation planning from moving cars to moving people. This will be important as new developments continue along the Strip and no new traffic lanes can be added. Rideshare and carpools are being encouraged and exclusive transit lanes are being studied.
   
3. Regional Transit Commission of Southern Nevada Overview — Bruce Turner, Planning Manager
   
   Mr. Turner gave a presentation providing background on the Las Vegas region. The Las Vegas region is contained in Clark County, which is about eight thousand square miles or the size of Connecticut. The largest issue for Las Vegas and the RTC is the rapid population growth that is estimated at five to seven thousand new residents per month. The RTC sees the resulting traffic congestion and diminishing air quality as major problems. The Las Vegas region is not in conformity for its ozone levels.
   
   The RTC was initially created in 1965 as a conduit for highway trust fund money. The agency is authorized to operate the bus system by Nevada statute and functions as both the MPO and transit operator. The board consists of two members each from the City of Las Vegas and Clark County and one member each from the cities of North Las Vegas, Henderson, Boulder City, and Mesquite.
   
   Initially, the RTC provided buses to a private operator, but today operates its own fleet. Citizens Area Transit (CAT) buses were operated by a private operator through 1991 and had 12 million riders per year. In 1992, the publicly operated system had increased to 20 million rides per year. Currently, CAT has 55 million rides per year on its bus system. CAT's goal is to work towards a multimodal system and double its ridership to 110 million rides per year by 2030. CAT operates 36 fixed bus routes and has some additional paratransit service and service for senior citizens. In 2004, CAT started the MAX BRT line on North Las Vegas Blvd. It currently has 192,725 monthly rides. Trip time was improved from 55 minutes to 28 minutes and the line now only needs seven vehicles instead of 10 to operate. In 2005, the double-decker bus service called the "Deuce" began service along the Strip. The Deuce has proven to be popular with riders since it was first launched on its Strip route. Thanks in part to the bus's extra capacity and scenic views from its top level, the route carries more than 30,000 daily riders. Also in 2005, the RTC gained control of its bus stops from the state of Nevada. The RTC is now trying to improve design and management of the stops.
   
   The RTC has put forth a series of transportation funding initiatives to the voters. The first sales tax initiative failed in 1984, but subsequent ones in 1990 (called Question 10) and 2004 were successful. Transit was a small part of the overall funding package that voters approved. The funding breakdown at the RTC favors highway investments at 90% and $9 billion. Transit investments represent $890 million or 9% of the total. Federal, state, and local funding sources each provide approximately 30% of the total funding. The remaining funds are provided by private developers through fees.
   
   The RTC has been working to implement an intelligent transportation systems (ITS) project called freeway and arterial system of transportation (FAST). The system has been operational since 2004 and includes signal timing and coordination, dynamic message signs, video monitoring cameras, and bus priority and queue-jumping for BRT vehicles.
   
   The RTC has extensive bicycle and pedestrian investment plans including a ten fold increase in off-street shared use paths. The CAT system currently carries between fifty thousand and sixty thousand bicycles each month.
   
   The RTC has extensive plans for its public transit investments. Planned investment areas include:
   
   • More park and ride facilities
   • A proposed central city transfer terminal to replace the downtown transportation center
   • A new 17 mile MAX line along Boulder Highway
   • A new Downtown Connector MAX line along the Strip that will initially be in mixed traffic, but is envisioned in a center median at a later point.
   • A Regional Fixed Guideway system that is a longer term plan
   As part of the regional fixed guideway system, The RTC is also currently working on a proposed new transit corridor from a future University of Nevada Las Vegas campus north of the city to Henderson in the south. A steering committee met regularly for a year and recommended a diesel multiple unit (DMU) rail line. The RTC has recommended MAX BRT service.
   
   

   Question and Answer

   There was a short question and answer session on the regional fixed guideway project.
   
   Q: Who will pay for warning signals at grade crossings?
   
   A: This is not certain yet. It still needs to be negotiated.
   
   Q: What will the headways be?
   
   A: There will be 20-minute headways initially, then possibly 10 minutes. For less than 10-minute headways, it would require a service with all double tracks.
   
   Q: What is proposed length of the project?
   
   A: The proposed length is 33 miles for rail. Six miles would include the South Strip to downtown. In North Las Vegas, there are 150 feet of right of way (ROW) for another 8 miles.
   
   Q: Talk about public outreach in the planning process.
   
   A: Condominium developments want to advertise the new service. However, the public put out all types of concerns. People were afraid. We took some officials on trips to see successful systems.
   
4. Land Use and Zoning — Rod Allison — Clark County
   
   Rod Allison, Assistant Planning Director, from the Clark County Department of Comprehensive Planning gave a short presentation on land use in the county. Clark County is divided into 11 major land use planning areas. The county reviews two plans per year from the planning areas so no plan is more than five years old.
   
   Clark County has begun to focus on projects with mixed uses and more pedestrian friendly environments. Clark County has created 4 types of "mixed used overlay districts" (MUDs). Theses are called MUD 1 through MUD 4. Below is a summary of their different characteristics.
   
   • All have densities to support public transit
   • MUD 1 is unlimited density and is coordinated with the Strip
     • However, buildings over 100 feet tall require a special permit
   • MUD 2 is 50 dwelling units per acre
   • MUD 3 and 4 are less dense
   • There are incentives to developers who provide grocery stores and park and rides
   • MUDs were implemented in 2004, but work on them started in 2000
   • Gaming industry reaction was favorable to the overlay districts since gridlock is an issue on the Strip
   • MUDs are being implemented in areas where high density was already planned
   
   

   Question and Answer

   Q: Is eminent domain a big issue?
   
   A: It's something we're working on everyday. NDOT is turning Las Vegas Blvd over to Clark County. We have a combination of 90 foot, 200 foot and 300 foot ROW. Unlimited density zoning is helpful with eminent domain and the private sector has been working with the county so far. However we may have to think about another method in the future.
   
   Clark County is working on a pedestrian bridge plan. We want pedestrian bridges on the Strip to lead to center transit stations. Clark County is acquiring the ROW, not NDOT.
   
5. Overcoming the Heat Challenge — Sam Marra, Director of Maintenance, Veolia Transportation
   
   There was a short presentation about air-conditioning systems for RTC buses. The main points included the following:
   
   • Buses can only be expected to be about 15 degrees cooler than outside temperatures. Cooler temperatures can be achieved on routes with less frequent stops.
   • Air conditioner maintenance is performed year round in Las Vegas
   • The lack of humidity makes maintenance more difficult
   • Minor inspections are performed every 2,000 miles and major inspections are performed every 24,000 miles.
6. Funding Initiatives — Terry Cordell, Chief Financial Officer
   
   Terry Cordell gave a presentation of funding initiatives to support transit. As discussed earlier, Question 10 was the funding initiative that was approved in 1990 to support transportation including transit. Question 10 provided funding from six different tax areas for transportation. The sales tax and development tax went to support the RTC. In 2002, another funding initiative (called "son of Question 10") was passed for transportation. It focused mainly on highway funding but did continue support for the transit system as well. Both initiatives passed with between 50% and 60% of the vote, but the 1990 initiative passed more easily.
   
   The third funding initiative will be needed by 2010. There was an expiration on half of the sale tax increase in the 2002 question. The RTC will have some financial problems if that happens. For example there is not set funding for the Regional fixed guideway project yet.
   
   

   Question and Answer

   Q: Who put the initiative package together?
   
   A: RTC organized a 37-person group with all the important stakeholders. The group spent a year meeting every month. It is important to include the Sierra Club, the taxpayers association and some riders in your group. We used these members as representatives to talk to the public. We did public outreach and told people the truth about transportation issues. We talked about all modes — roads, transit, bicycle paths, pedestrian paths.
   
   Q: How is tax money allocated?
   
   A: The sales tax is for transit and other taxes are designated for other transportation issues. The volatility of the sales tax is a big issue. Las Vegas has had a boom for several years with the worst situation being 1.2% sales tax increase.
   
   Q: To what does the sales tax apply?
   
   A: The sales tax applies to all goods, but not to services.
   
   Q: Do you receive any revenue from "sin" taxes?
   
   A: We receive nothing from tobacco and alcohol taxes.
   
7. MAX Initiatives — David Swallow, Principal Civil Engineer
   
   As discussed above, the RTC has implemented its first MAX BRT line. The line runs along North Las Vegas Boulevard connecting the Downtown Transportation Center (DTC) with Nellis Air Force Base. The route is 7.8 miles long and uses dedicated transit lanes in the 4.5 mile segment between Carey Avenue and Craig Road. The RTC has 10 MAX BRT vehicles. The first line has been successful and the RTC is looking for other routes to deploy the MAX service.
   
   One potential deployment corridor is a 17-mile stretch of Boulder Highway. The proposed route would include 21 stations starting at the DTC. The normal CAT bus that runs along this corridor already has high ridership.
   
   Another 13-mile route would be the Downtown Connector. This project was initially targeted as a monorail extension project to the current private monorail line but it received an unfavorable rating from the FTA when the ridership of the initial monorail line proved to be less than predicted. The RTC has recommended a MAX line instead. The RTC is also studying an enclosed station concept at one location with air conditioning and sliding doors for vehicle boarding.
   
   The RTC used federal funds with a Buy America waiver to purchase the first 10 MAX vehicles. The look of the vehicle was very important in that the RTC preferred it not to resemble a standard flat-front bus. The RTC contracted with Civis and paid about $1 million per vehicle for the 10 vehicles it currently owns. The RTC attempted unsuccessfully to find an American company to meet its specifications. The buses are 61 feet in length and have four doors and several skylights. The vehicles are also 100% low floor vehicles with internal bike racks and a diesel electric powertrain.
   
   The vehicles are all equipped with and optical guidance system that helps with docking. Difficulties occur because rain does not clean the roadway and dust accumulates making it difficult to see the markings on the road. However, drivers are able to dock reasonably well without the guidance system.
   
   Each vehicle is also equipped with a black box that records speed and impact data. MAX vehicles have an Automatic Vehicle Locator (AVL) system and the RTC is planning for ITS technology to alert waiting passengers of when to expect the next bus.
   
   The RTC is trying to attract choice riders to transit with the MAX service. The agency has built attractive stations and high-capacity, attractive vehicles with good headways. A goal of the MAX is to provide a service more like rail service than typical bus service but with lower costs and less of an impact on infrastructure. There is no fare collection on vehicles and station dwell times are usually seven to ten seconds. The RTC is also considering adding wireless communications on MAX buses.
   
   Stations are designed uniquely for a non-rail system. Each station has a ticketing machine and vending machines. There are floor lights and individual seat for waiting passengers. Additionally the curb is raised to 10 inches and marked with yellow tactile striping for ease of boarding. At one location where the station is in a right turn lane / pull-out, a queue jump signal is used to aid the vehicle with merging into traffic. MAX uses one of the standard light rail transit signals for queue jumping. Below is a photograph of a MAX vehicle at a typical station.
   
   
   
   Photo 1: MAX Vehicle at a Station
   
   MAX service has shown significant increases in ridership as even other fixed routes have shown ridership decreases. When starting a BRT service, Mr. Swallow recommended having clear objectives, considering adjacent land use, making sure of political support, and locating stations where people are going.
   
   Question and Answer
   
   Q: Do you have video surveillance for buses and stations?
   
   A: Not yet. The RTC is looking into it.
   
   Q: Are there park and rides on the MAX line?
   
   A: There are no park and rides as the line serves denser areas.
   
8. Preservation of ROW for Transit and Vehicle Flow — Phil Banea, Planner and Marcus Majors, Principal Planner
   
   There was a brief discussion on the preservation of right of way (ROW) for accommodating non-automobile activities. The discussion also focused on the planning process for development along the Strip. The RTC is focused on pedestrians and improving sidewalks especially off the Strip. This effort will include encouraging street level amenities. The presenters also provided written information about the ROW preservation process especially for Las Vegas Boulevard.
   
   Question and Answer
   
   Q: Where does the RTC get design input in the planning process?
   
   A: The RTC has the advantage of being responsible for streets and highways. The RTC has an established planning process where the agency receives input from the project engineers. The RTC requires a pre-application meeting for pending developments. The RTC also requires a pedestrian plan.
   
   Q: Does RTC have a design guidebook?
   
   A: No. The RTC has guidelines, such as developers must provide a pedestrian level of service C or better.
   
   Q: Does the RTC have a modeling staff?
   
   A: Developers occasionally cooperate with RTC's modeling staff of 3.
   
   Q: How do parking policies affect transit projects?
   
   A: There is free parking everywhere and this is the most difficult thing to overcome.
   
9. FAST and Queue Jumping — Brian Hoeft, Traffic Operations Supervisor and Murali Pasamurthi, Traffic Engineering Division Manager
   
   The MAX line has a queue-jumping system in one location along its route on North Las Vegas Boulevard. At a typical queue-jump intersection, the larger traffic volume street has coordinated signals and the smaller traffic volume street does not. The MAX line generally runs on the coordinated street and the queue-jump is part of the coordinated signal system.
   
   The RTC is responsible for maintenance of the traffic signals and the queue-jumping equipment. Queue-jumping requires three basic technical elements:
   
   1. An AVL System
   2. A method through which the bus location is transmitted to traffic signal
   3. The controller at the traffic signal must be sophisticated enough to handle queue-jumping (RTC uses Next Phase 1.5 software).
   There are two triggers at a queue-jump signal: a loop detector and an Opticom trigger. (An Opticom trigger is the infrared-based system that is also used by emergency vehicles to communicate with the traffic signal controller to initiate priority calls. Emergency vehicles are treated as "high" priority, while the transit vehicles are "low" priority.) The triggers cause the signal to show a vertical white line, which is one of the standard light rail signal types that indicate to the operator that it is okay to proceed. Below is a photograph of a Queue-jump signal on the MAX line.
   
   
   
   Photo 2: Queue-jump Signal on the MAX Line
   
   The RTC recommended looking for experienced equipment provider but noted that all the products will likely not come from same provider.
   
10. Transit Technical Tours — RTC staff
    
    RTC staff led a tour of transit facilities during the afternoon. The tour was taken aboard an out of service MAX vehicle. Following is a list of locations visited:
    
    • Maintenance Facility — The maintenance and storage facility for RTC buses.
    • Queue-jumping intersection — The group alighted at the Jerry's Nugget Stop to observe queue-jumping and normal MAX line operations. A revenue service bus was observed docking at the station and using the queue-jump signal.
    • Downtown Transportation Center — The group observed double-decker buses and bus bays at the downtown transportation center (DTC). Located in downtown Las Vegas, the DTC serves as the transfer point between the MAX line and the Deuce double-decker buses that service the Strip.
    • South Strip Transfer Terminal — The group visited this transfer center station south of the Strip. This station serves as a transfer point for many buses including the double-decker Deuce line. Below is a photograph of the group tour at the South Strip Transfer Center.
    
    
    
    Photo 3: RTC staff lead the Mississippi Delegation on a tour of the South Strip Transfer Center
    
    Monorail
    The Las Vegas Monorail is operated 18 hours per day by a private consortium unaffiliated with the RTC. The Monorail operates along its 3.6-mile route from the Sahara Hotel to the MGM Grand. Along the way it makes seven stops, including the Las Vegas Hilton, the Las Vegas Convention Center, Harrah's and the Imperial Palace, the Flamingo and Caesars Palace, Bally's and Paris Las Vegas. The Monorail travels the seven-station route in 14 minutes. It reaches speeds of up to 50 miles per hour. It is capable of moving 3,200 passengers per hour in each direction. It carries approximately 32,000 passengers each day. The Monorail serves mostly visitors and provides a connection between hotels on the Strip and the convention center. The morning after the peer exchange, the Gulf Coast delegation rode the Monorail and observed operations. It costs $5.00 for a single ride, $9.00 for two-rides, $35.00 for 10-rides, $15.00 for an unlimited day pass, $40.00 for an unlimited three-day pass.
    
    The Monorail has not achieved the desired level of ridership and a recent fare increase has further diminished use of the system. There have been discussions of changing the operation and management contract of the system, which may include RTC.

back to top

IV. Lessons Learned

• Transportation planning should focus on moving people and not on moving vehicles.
• The MAX line has been successful by providing high quality service.
• The MAX line has an image that is modeled after light rail service, not bus service.
• Free parking is an obstacle to implementing transit service.
• It is important to include the Sierra Club, the taxpayers association and some riders in transit planning stakeholder groups.
• It was difficult to work with the gaming industry until congestion and transportation issues become a problem.
• ROW preservation is important if public transit cannot be implemented at the outset.
• Zoning can provide incentives for mixed-use development and higher densities that support transit. The pedestrian realm must be stressed in project development.

back to top

V. Recommendations

The RTC provided some recommendations for starting a BRT service and enhancing transit service in general:

• have clear objectives
• consider adjacent land use
• make sure of political support
• locate stations where people are going and stress pedestrian connections and environments
• the service and vehicles should be modeled after Light Rail Transit not standard bus transit
• package transportation funding initiatives in a way that citizens will be likely to support
• look for an experienced equipment provider for queue jumping equipment, while understanding that all the products will likely not come from same provider.

back to top

VI. For More Information:

back to top

VII. Attachments/Links

Attendees List

back to top