HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 08/30/2016 - MANAGING TRAFFIC CONGESTION IN FORT COLLINSDATE:
STAFF:
August 30, 2016
Martina Wilkinson, Civil Engineer
Laurie Kadrich, Director of PDT
Mark Jackson, PDT Deputy Director
Joe Olson, City Traffic Engineer
WORK SESSION ITEM
City Council
SUBJECT FOR DISCUSSION
Managing Traffic Congestion in Fort Collins.
EXECUTIVE SUMMARY
The purpose of this item is to review historic and current traffic congestion in Fort Collins and discuss policies,
efforts and plans in place intended to mitigate and manage congestion.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. Does Council have feedback on the approach to congestion in Fort Collins?
2. Are there additional strategies that Council would like to see considered?
3. Is there additional information that Council like to see regarding congestion management?
BACKGROUND / DISCUSSION
Bottom Line
Traffic congestion is a challenging and complicated issue that results in driver frustration as well as economic,
safety, emissions, and quality of life issues. According to the latest Citizen Survey, it is one of two top concerns
among city residents. The City has implemented a new data collection system to measure and monitor
congestion citywide in real time. Staff utilizes a number of strategies to address congestion. In the short term this
includes active management of the signal system, and various operational strategies. Targeted capacity projects
also result in significant improvements. In the longer term, the City supports cultural and programmatic efforts
such as alternative modes, travel demand programs and land use planning to reduce vehicle-miles traveled. All
these efforts support the interests of the Climate Action Plan to reduce greenhouse gas emissions stemming from
the transportation system. There is no single solution to the issue of congestion, but rather a multitude of
approaches and efforts are needed to manage and mitigate to the degree possible.
Context
According to the 2015 Citizen Survey, “Ease of Driving” and “Traffic Congestion” are two of only a handful of
areas (affordable housing and parking downtown are others) where the City rates “Much Lower” when compared
to other benchmark cities. Traffic and transportation is noted as the “top priority” for residents in the survey.
Impacts of Congestion
Traffic congestion has many impacts on quality of life including:
Motorist Frustration - congestion makes the overall driving experience more difficult and can lead to
aggravation or road rage.
Excess Vehicle Emissions - more stopping, starting, idling etc., increases pollution and greenhouse gases
generated by motor vehicles.
August 30, 2016 Page 2
Neighborhood Livability - congested arterial roadways can result in motorists utilizing short cuts through
neighborhoods.
Economic Impacts - travel time reliability is very important to business, and lost productivity related to traffic
delays is also impactful.
Safety - Increased congestion tends to increase crash risk.
Defining and Categorizing Congestion
Congestion is understood from a common sense perspective by motorists as increased travel time. From a more
technical standpoint, congestion is also measured as total delay in a corridor which is calculated by taking each
vehicle’s delay and multiplying that by the total volume on the roadway. While the first measure reflects a driver’s
experience, the second measure correlates to corridor operations, fuel consumption and emissions. Both are
important.
Traffic congestion can be divided into two main types: recurring/typical congestion and non-recurring/unexpected
congestion. Recurring congestion is the predictable congestion related to peak hour travel that occurs at the
same times each day. It is primarily caused by high traffic volumes during peak times. In Fort Collins and other
cities, recurring congestion manifests primarily at signalized intersections where the total volume of vehicles in
one location of roadway is highest (because space is shared between multiple corridors). Traditional
improvement strategies such as adding auxiliary lanes at intersections or adjusting signal timing are intended
primarily to reduce recurring congestion.
Non-recurring congestion is atypical congestion most often associated with traffic incidents (crashes), work zones,
weather, special events, trains, etc. While it can occur anytime, it is often worst during peak hours when the non-
recurring congestion aggravates the normal recurring congestion resulting in excessive and frustrating delays.
Measuring Congestion
Since 1991, traffic volumes on arterial streets in Fort Collins have increased about 46%. At the same time,
population has increased by about 80%. Thus, the vehicle-miles traveled per capita have decreased over time.
Despite that, traffic volumes measured earlier this year were the highest recorded since the City began keeping
records in 1991.
In the fourth quarter of 2014 the City deployed Bluetooth readers at major intersections capable of receiving
anonymous signals from Bluetooth equipped devices carried by motorists. As motorists pass between devices
the system can compute travel times on City arterials. Staff is using this data to monitor congestion throughout
the City. Despite increased traffic volumes, overall travel times are lower (better) when comparing the 2nd quarter
of 2016 to the same time period in 2015. There are many reasons for the improvement; two notable changes
include the completion of the SH-14-Mulberry Bridge project and a reduction in train delays at Lemay/Riverside.
Managing Traffic Congestion
The City is utilizing numerous strategies to address congestion:
Recent, Ongoing or Pending
The Traffic Operations Center staff monitors and manages traffic signal operations in real-time to help
mitigate non-recurring congestion related to work zones, traffic incidents etc.
Traffic data is continually updated and background traffic signal timing plans are routinely adjusted to
accommodate changing traffic patterns.
New “traffic responsive” signal timing system adjacent to railroad tracks and along North College that will
automatically sense excessive train delays or truck impacts caused by the closure of I-80 during the winter
and automatically implement new timing plans accordingly are in the process of being deployed.
August 30, 2016 Page 3
Variable message board pilot project is scheduled for this year and will advise motorists of train related
delays.
The development review process requires a rigorous analysis of the transportation system in the area of
proposed projects, and completion (when warranted) of infrastructure by applicants to mitigate their
anticipated impacts.
Intersection capital improvement projects reduce delay and improve safety. For example, the
Timberline/Horsetooth project completed in 2015 reduced delay by 32% at the intersection, resulting in a
travel time reduction of 20-30 seconds per vehicle on the eastbound and southbound approaches (this
equates to a reduction in total intersection delay of more than 100 hours every day). In 2016, the
Shields/Drake and Timberline/Prospect capital projects are under construction.
Right turn lanes-in the past five years one or more right turn lanes have been added at 15 intersections in Fort
Collins. Right turn lanes are somewhat easier and less costly to implement than left turn lanes (since they get
added to the outside edge of the roadway). At locations with specifically heavy right turning movements, the
addition of right turn lanes provides relief at intersection bottlenecks at a relatively low cost.
Short Term
An adaptive signal system is proposed for the Harmony and Timberline corridors which will use new
technologies that allow traffic signals to adjust automatically based on current traffic conditions.
Capital projects-staff uses a data-driven arterial intersection prioritization analysis to identify strategic
locations for improvements. Funding through a variety of sources is sought for the highest priority locations.
The intersection of College and Horsetooth is expected to be completed in the short term.
Traffic Incident Management (TIM) is a collaborative effort among staff and both local and regional Police/Fire
to clear crashes more quickly
Regional partnerships and efforts-An example of this is the work to improve congestion on I-25. In addition to
being the major access corridor to our city where travel time reliability is important for businesses and
citizens, incidents on the interstate tend to create detour traffic that can cause significant additional traffic on
the east side of the City.
Cultural/Programmatic
Another strategy for congestion mitigation is to reduce vehicle-miles traveled on the system. This generally
consists of providing and encouraging alternatives to the single occupant vehicle. The City has a number of
efforts that support this approach:
Increase mode shift to bicycling and walking. The adoption and ongoing implementation of the Bike and
Pedestrian Master Plans, as well as the Safe Routes to Everywhere initiative is systematically building
infrastructure that supports active transportation options. The City of Fort Collins has some of the highest
mode split for bicycling in the nation, with the number of commuters using bicycles between 6 and 7%.
Increased Transit Ridership. Between the first half of 2015 and the first half of 2016, transit ridership has
increased by 57% (1.4 million cumulative ridership compared to 2.2 million cumulative ridership).
Travel Demand Management (TDM). This strategy encompasses approaches that reduce and/or redistribute
the demand on the system (such as carpooling efforts, support of flexible work hours and telecommuting).
Land Use Planning-City Plan recognizes that one of the potential benefits of increased density is to reduce
both trips and trip lengths and encourage alternate modes of travel.
Information/Technology. The City is working on the implementation of FCTrips2.0-a next generation version
of travel information from the City to road users.
Work Zone Management
The number of Work Area Traffic Control permits within the City has increased by 48% in the last five years with a
record 2,505 permits in 2015. While roadwork results in improved conditions when complete, the impact during
construction can be severe, and congestion related to work zones is at an all-time high. The following are
strategies underway specifically to address construction congestion:
August 30, 2016 Page 4
Project planning/coordination to reduce multiple project conflicts/overlaps. Citywide coordination meetings in
the spring, and ongoing area specific meeting are intended to minimize overlap where possible. For instance,
the Prospect Road work this summer was originally scheduled for 2015, but delayed due to the Mulberry
Bridge project
Formalize a City-administered lane closure policy to reduce impacts on heavily traveled corridors. This is a
proactive approach to how/when to limit approval of lane closures-such as detailed guidelines to when night
and/or weekend work is required in lieu of weekday work.
Implementation of a Lane Rental Policy that provides incentives/disincentives in construction contracts to
reduce duration of lane or road closures.
Long Term
The timeline and ultimate impact on congestion from long term efforts are less defined than shorter term efforts,
and the list of elements will undoubtedly change in coming years. Some of the areas that staff is tracking include:
Implement updated City Plan, Transportation Master Plan, and Transfort Strategic Plan. These plans set the
stage for how transportation will be approached in coming years.
Connected vehicles and roadways. The potential to reduce collisions can provide a significant reduction in
incident-related congestion.
Autonomous/Self Driving Vehicles. This technology has the potential to significantly increase capacity on our
roadways by streamlining travel speeds, and reducing distance between vehicles.
Other Congestion Considerations
The discussion above has highlighted the numerous detailed opportunities to impact congestion. There are also
several broader concepts to consider:
Can you build your way out of congestion?
The likelihood of a community completely building its way out of congestion is remote. The financial,
environmental, and community costs are likely too much to bear, and the resulting roadway system will not
reflect the many other interests of our community. Staff’s approach is to focus on specific and strategic
infrastructure improvements at key locations to help manage flow and address safety issues, and fully support
non-infrastructure efforts (i.e., technology etc.).
Can traffic congestion be “solved” by limiting growth?
Traffic congestion is a typical byproduct of a growing urban area. While certainly not on a par with major
metropolitan urban areas such as Denver or Los Angeles, Fort Collins is not immune to increased congestion
due to growth. The interrelationship between local land use, regional growth and resulting congestion is very
complex. As a community grows and/or density is increased, the pressures on existing (and often
constrained) systems also increase. However, if growth in Fort Collins is limited, then more and more of
those who work in Fort Collins will travel greater distances from neighboring communities. This is reflected by
the fact that Loveland and Greeley (less dense) have longer travel times to work than Fort Collins (by up to
24%), but Boulder (with strong growth boundaries) has significantly higher annual delay per capita than Fort
Collins (by about 50%). The balance is delicate, and no single solution is available.
Is congestion always a bad thing?
Common sense would dictate that congestion is by definition negative. In some instances however,
congestion may not only be acceptable, but to some degree supported. US 287 (College Avenue) through
downtown Fort Collins is a good example. In this area traffic flow is compromised in favor of a comfortable
pedestrian environment and ease of parking. This approach helps downtown Fort Collins retain its unique
character.
August 30, 2016 Page 5
Traffic Congestion and the Climate Action Plan
Reducing mobile source emissions plays a large role in our Climate Action Plan (CAP). Many of the strategies
discussed above also support the goals of the CAP.
Conclusions
Congestion is an understandably frustrating element of traveling to/from and within the City of Fort Collins.
Although volumes are at their highest levels, measurement of travel time and calculated delays with a new
citywide tool show that the various congestion management strategies can be effective. Staff will continue to
prioritize understanding this very complex phenomenon as well as managing and minimizing congestion utilizing a
multitude of approaches.
ATTACHMENTS
1. Powerpoint presentation (PDF)
1
Traffic Congestion in Fort Collins
Joe Olson, City Traffic Engineer
Martina Wilkinson, Asst. City Traffic Engineer
ATTACHMENT 1
Questions for Council
2
• Does Council have feedback on the approach to
congestion in Fort Collins?
• Are there additional strategies that Council would like to
see considered?
• Is there additional information that Council would like to
see regarding congestion management?
What is Congestion?
3
• Travel Time – experience of motorists
• Delay – travel time in excess of ‘free flow’
travel time
– (Travel Time) x (Traffic Volume) = Total Delay
– Correlates with fuel consumption, vehicle
emissions, greenhouse gases
What is Congestion?
4
• Perceptions of congestion vary significantly
• Fort Collins citizen survey
Top 2 interests:
– Affordable housing
– Congestion
City of Fort Collins, 2015 Citizen Survey
Impact of Congestion
5
• Driver Frustration
• Vehicle Emissions – Impact on CAP goals
• Quality of Live – Neighborhood cut-through
• Economic - Travel time reliability
• Safety – Increased crash risk
Types of Congestion
6
• Recurring Congestion
– Predictable congestion during peak hours
• Non-Recurring or Unexpected Congestion
– Traffic incidents (crashes)
– Work zones
– Railroad blockages
– Weather
– Special events
Historical Vehicular Volumes
7
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Fort Collins Traffic Volume (1991 - 2016)
Traffic Volume Trend
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Fort Collins Traffic Volume vs. Population Trend (1991 - 2016)
Traffic Volume Trend Population
Measuring Congestion
8
• Bluetooth Data System
– Anonymous
– Real-time and Historical Data
Measuring Arterial Congestion
9
2016 Quarter 2 Data – PM peak hour
(What Drivers Experience) (Measure of System Performance
and Emissions)
1.94
2.08
2.35 2.39
2.46 2.48 2.52 2.56
2.61 2.63
0
0.5
1
1.5
2
2.5
3
Travel Time / Mile (minutes)
Ave. Travel Time by Corridor
10.6
17.0 17.8
19.6
21.5 22.0 22.8
25.1
31.2
35.0
0.0
5.0
10.0
15.0
20.0
25.0
30.0
35.0
40.0
Delay (Veh-Hours/Mile)
Total Delay by Corridor
Trends
(Q4 2014 – Q2 2016)
10
2.00
2.10
2.20
2.30
2.40
2.50
2.60
2.70
2.80
Travel Time
(minutes/mile)
0
10
20
30
40
Delay
(veh.-hrs./mile)
Harmony Horsetooth Drake Prospect College
Corridor
Travel
Time
Corridor
Delay
2.00
2.10
2.20
2.30
2.40
2.50
2.60
2.70
2.80
Travel Time
(minutes/mile)
0
10
20
30
40
Delay
(veh.-hrs./mile)
Harmony Horsetooth Drake Prospect College
5%
6%
Comparing
Q2 2015–Q2 2016
Comparison to Other Cities
11
33.2
24.5
23.6
21.7
20.9
19.5
19.2
18.0
16.0
Wellington
Denver
Longmont
Greeley
Co Springs
Fort Collins
Boulder
Pueblo
Grand Junction
Travel Time to Work (Minutes)
35.0
32.6
27.0
20.4
13.2
13.0
12.2
10.4
Denver
Boulder
Colorado Springs
Fort Collins
Longmont
Greeley
Pueblo
Grand Junction
Annual Delay per Capita (Hours)
Source: U.S. Census Bureau
Source: Texas Transportation Institute
2015 Urban Mobility Report
Reducing Congestion
Recent, Ongoing and Pending Efforts
12
• Traffic Operations Center timing adjustments
Reducing Congestion
Recent, Ongoing and Pending Efforts
13
• Incident management
• Updated signal and corridor plans
• Addressing railroad blockages
– Lemay / Riverside: 83% reduction
in blockage times
• Capital Projects
Reducing Congestion
Recent, Ongoing and Pending Efforts
14
• Right turn lanes
– 16 locations in past five years
Reducing Congestion
Short Term Efforts
15
• Adaptive Signal System
(new technology)
• Traffic Incident Management
• Regional Partnerships – I-25
Source: Coloradoan
1:00
1:30
2:00
2:30
3:00
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
9:00
10:00
11:00
12:00
13:00
14:00
15:00
16:00
17:00
18:00
19:00
20:00
21:00
22:00
23:00
Travel Time (minutes)
Time of Day
Horsetooth Lemay (W. Leg) to Timberline
11/17/2014 to 12/12/2014
Reducing Congestion
Short Term Efforts
16
• Addressing bottlenecks
– Arterial Intersection
Prioritization Study (AIPS)
– Intersection Capital Projects
– Development Driven
1:00
1:30
2:00
2:30
3:00
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
9:00
10:00
11:00
12:00
13:00
Reducing Congestion
Longer Term Efforts
17
• Cultural and Programmatic Efforts to Reduce Vehicle-Miles Traveled
– Increased mode shift to bicycling and walking
– Increased transit ridership
– Travel Demand Management (TDM) programs
– Land Use Planning – increased density to reduce trips and trip length
– Technology
Work Areas and Construction
18
• Construction Planning/Coordination
• Safety!
• Lane Closure Strategy
• Construction Lane Rentals
Looking to the Future
19
• Update of City Plan, Transportation Master Plan
– Street classifications, multi-modal efforts, land
use, density etc.
• Vehicle safety measures
• Connected and ultimately autonomous vehicles
– Increases efficiency and roadway capacity
Other Considerations
20
• Can we build our way out of congestion?
• Does limiting growth “solve” the challenge?
• Meeting CAP goals depends on congestion reduction
– 23% of potential GHG reduction in CAP is related to transportation
Conclusions
21
• Congestion is:
– A complex phenomenon impacted by numerous things
– Important to measure consistently and accurately
• Managing congestion is:
– Multi-faceted and requires immediate, short term and long term efforts
– Something City staff is actively working on
• The first Annual Congestion Report in 2017
Questions for Council
22
• Does Council have feedback on the approach to congestion in
Fort Collins?
• Are there additional strategies that Council would like to see
considered?
• Is there additional information that Council would like to see
regarding congestion management?
14:00
15:00
16:00
17:00
18:00
19:00
20:00
21:00
22:00
23:00
Travel Time (minutes)
Time of Day
Horsetooth Lemay (W. Leg) to Timberline
11/17/2014 to 12/12/2014 11/16/2015 to 12/11/2015
Horsetooth/Timberline: Delay: 32% reduction
Saves 105 hours / day
No change in volumes before/after