Trans-Lake Washington Ferry Feasibility Study

1. Refer to the attached Engineer's Estimate for detailed description of improvements and costs.

2. Preferred site based on site conditions and pedestrian linkage.

Trans-Lake Washington .. Ferry Feasibility Study ..PMX #554-3164-007 (01)

. FILENAME .Trans Lake Ferry Study Table (Revised)..1.April 2000

Briefing to Sound Transit Board Members

Lake Washington Ferry Project Feasibility Study

1.0 Background:

In November 1999 the Sound Transit Board passed an amendment to its 2000 Budget that created a "placeholder" for a proposed Lake Washington Ferry demonstration project. The amendment identified a funding need of $5.6 million over an envisioned two-year duration of a ferry demonstration program. Further, the amendment identified excess tax revenue from the East King County subarea as the source for these potential expenditures.

In light of the "placeholder" nature of the proposed demonstration project, the Sound Transit Board directed staff to conduct further research and analyses regarding the feasibility of a demonstration ferry project to inform their final determination on the proposed ferry program. In this regard, the Board authorized $50 thousand for consultant support for this effort and Parametrix, Inc. was secured to develop a feasibility study designed to address the following items:

• Ferry route alternatives
• Terminal facility needs, costs, and environmental impacts
• Fleet needs, specifications, and procurement alternatives
• Fares, ridership, and revenue forecasts
• Parking facility and transit connector service options
• Recommended implementation plan, budget, and timeline for a demonstration project

Finally, Sound Transit Boardmember, and King County Councilperson, Jane Hague created an Advisory Committee for the Lake Washington Ferry Project. Among other duties, this committee of interested community leaders would provide a forum for public comment and outreach for the feasibility study as well as formally comment on the study results.

2.0 Summary of Feasibility Study Findings:

Since February, Parametrix, Inc. has been studying the various issues surrounding trans-lake ferry service. Following is a summary of the results by major categories.

Ferry Route: The route examined for the feasibility study was a Kirkland - UW route with a potential extension to South Lake Union. Subsequent ridership forecasts suggest that the UW - South Lake Union extension serves a unique submarket (i.e. riders are not traveling from Kirkland to South Lake Union) due to the extended travel time between UW and South Lake Union resulting from speed restrictions and congestion.

Terminal Facilities: A total of eleven terminal sites were reviewed and initial improvement costs were estimated. Cost estimates were based on accommodation of a 49-passenger ferry. This requires, along with some amenities, a 40' X 20' float, loading platform, and transition gangway. Improvement cost estimates for individual sites range from $19,000 to $585,000. Final preferred dock alternatives are Marina Park in Kirkland, Sakuma Viewpoint Park at UW, and Chandler's Cove at Lake Union. The improvement costs for these sites are $19 thousand, $231 thousand, and $19 thousand respectively.

Terminal Facility Environmental Review and Permitting Requirements: The applicable permits and review required for the proposed dock improvements vary by location. For the preferred options-- Marina Park in Kirkland, Sakuma Viewpoint Park at UW, and Chandlers Cove at South Lake Union-- the Kirkland and South Lake Union improvements will require Shoreline and local building permits only; resulting in a processing time of up to 8 months after submittal of final design. The UW dock will require those permits as well as a Section 10 permit, HPA permit, and Aquatic Use Authorization. Processing time for the UW improvements could be more than a year. Further, the Muckelshoot Tribe would have standing in the Section 10 permit process. Finally, if any federal funding is secured for the project, formal Endangered Species Act review will be required. ESA processing is a 6 - 12 month process.

Fleet Needs and Costs: Depending on the selected route and decisions on maintaining a "standby" vessel, fleet needs are 1 - 3 vessels to maintain a 60 minute headway schedule. Vessel costs depend on selection of 49-passenger or 149-passenger vessels. Capital costs for these vessels are estimated at $900 thousand for a 49-passenger vessel and $2.8 million for a 149-passenger vessel. The development of vessels would require 1 - 2 years. Operating costs for the vessel alternatives are estimated at $325 per hour for a 49-passenger vessel and $400+ for a 149-passenger vessel.

For reference, a 60 foot Low Floor Articulated Bus costs appropriately $494 thousand. Sound Transit's contracted hourly costs for bus service ranges from about $62 - $85 per hour.

Fares: Given the existence of viable substitutes for the ferry service, the fare structure for the proposed ferry would mirror the Sound Transit Express fare structure (i.e. it is a 2-zone trip, $2 adult $1 senior/disabled, $1.50 youth). The transfer and pass acceptance policy on the proposed ferry would also mirror ST Express policies. The resulting average fare per boarding assumed for the proposed service is $1.40 (rounded up from $1.3966).

Ridership Forecasts: Parsons Brinkerhoff developed ridership estimates for the proposed ferry service. To summarize, their findings at full route maturation were up to 675 boardings per weekday for service between Kirkland and South Lake Union under the baseline scenario (the baseline scenario did not include the provision of direct connector service on the Kirkland side or a dedicated Park and Ride facility). Under the alternative scenario (includes provision of direct shuttle service and Park and Ride facility on Kirkland side), there is up to 840 boardings per weekday.

These estimates are at full maturation; it is assumed that during the first 6 - 12 months of operation ridership will only reach 80 percent of these levels. Further, as noted, ridership for the UW to South Lake Union extension was low and did not compete well with other options for that trip. Finally, discretionary trips by tourists represent up to 1/3 of the estimated boardings.

Optimal Service Configuration: Parametrix created a proposed service schedule that best serves ridership and vessel utilization. Please note that the results of this estimate assume the "upper bound" of ridership forecast by Parsons Brinkerhoff and assume a single vessel fleet. To summarize, dependent on vessel type and whether or not a shuttle and park and ride are provided, annual operating costs ranged from $850 thousand to more than $1.2 million, ridership is 70 - 111 thousand boardings, and the resulting ratio of operating revenue to operating expenses is 9 - 15 percent. Thus under the best scenario, the net operating cost per boarding for this service is $7.91 to $13.52.

If the lower range of estimated ridership is applied to this service, the farebox recovery drops to 3 - 5 percent. The net operating cost per boarding, in turn, increases to approximately $26 to $44.

For comparison, the net operating cost per boarding for Sound Transit Regional Express service in 1999 was $5.20.. Additionally, here is a summary of farebox recovery ratios for agencies in the region (estimates are for 1999 unless noted):

• Everett Transit Bus Services - 13 percent
• Pierce Transit Bus Services - 15 percent
• Community Transit Bus Services - 20 percent
• King County Metro Bus Services - 25 percent
• Sound Transit Bus Services (expected for 2000 based on first quarter results) - 28 percent (32 percent at full build-out)
• Washington State Ferries - 60 percent

2010 Ridership Results: Parsons Brinkerhoff conducted a model run of the ferry service for 2010 that includes the implementation of Sound Move Phase 1 (e.g. operational LINK service from the U-District to SeaTac). The results were a potential increase in total ridership for the Kirkland to UW service of up to 47 percent but ridership for UW to South Lake Union suffered due to competition with LINK. Holding all cost factors constant, utilizing the optimal service schedule, the most robust ridership estimates, and the most favorable existing cost-to-revenue ratio, a potential farebox recovery of up to 22 percent could be realized.

3.0 Next Steps

At this point, Parametrix is concluding the final stages of the feasibility study. A final report is expected no later than June 9. The schedule of pending review and action on the feasibility study results:

06.09.00 - Formal ETP review

06.12.00 - Advisory Committee Public Outreach Meeting in U District

06.15.00 - Advisory Committee Public Outreach Meeting in Kirkland

06.23.00 - Advisory Committee Meeting to develop committee position on study findings and disposition of demonstration project

07.07.00 - Sound Transit Executive Committee Presentation

07.13.00 - Sound Transit Board Action

Please do not hesitate to contact the project manager, Tony Fuentes, at 206.689.3357 if you have any questions. Thank you for your time.

. Based on unaudited year-end totals.