New Mobility in the Right-Of-way MARCH 2019 urbanism next center @urbanismnext urbanismnext.com city of Portland, or|city of seattle, wa |city of vancouver, bc ACKNOWLEDGEMENTS The Urbanism Next Center would like to thank the Advisory Committee members: Peter Hurley, Portland Bureau of Transportation; Shannon Walker, Seattle Department of Transportation; Evan Corey Costagliola, Lime; Joanna Clark, City of Vancouver, BC; and Johanna Partin and Susanna Sutherland of the Carbon Neutral Cities Alliance/ Urban Sustainability Directors Network for their guidance. We would also like to thank all of the representatives from the cities of Portland, Seattle, and Vancouver who attended the one-day workshop on November 5, 2018. In addition, we would like to thank representatives at Fehr & Peers, Lyft, the City of Chandler, AZ, and the San Francisco Municipal Transportation Agency for providing useful background information for this report. Finally, we extend our gratitude to Neelima Shah and the Bullitt Foundation for providing the grants that funded this work. The Urbanism Next Team are the primary authors of this report: • Amanda Howell, Urbanism Next Project Manager • Nico Larco, AIA, Professor, Urbanism Next Center Director and Sustainable Cities Institute Co-Director • Rebecca Lewis, PhD, Assistant Professor and SCI Research Director • Becky Steckler, AICP, Urbanism Next Program Director Graphic design was done by Michelle Montiel and Marsie Surguine. Urbanism Next | University of Oregon About the Urbanism Next Center The Urbanism Next Center is a research center housed within the Sustainable Cities Institute at the University of Oregon. It is a leading source for information about the potential impacts of emerging technologies — autonomous vehicles, new mobility, e-commerce, and the sharing economy — on city development, form, and design and the implications for equity, health, the economy, the environment, and governance. About the Sustainable Cities Institute The Sustainable Cities Institute (SCI) is a cross-disciplinary organization at the University of Oregon that promotes education, service, public outreach, and research on the design and development of sustainable cities. We are redefining higher education for the public good and catalyzing community change toward sustainability. Our work addresses sustainability at multiple scales and emerges from the conviction that creating the sustainable city cannot happen within any single discipline. SCI is grounded in cross- disciplinary engagement as the key strategy for improving community sustainability. Our work connects student energy, faculty experience, and community needs to produce innovative, tangible solutions for the creation of a sustainable society. New Mobility in the Right-of-Way | March 2019 Urbanism Next | University of Oregon TABLE OF CONTENTs 01| Introduction 3 02| Why Cities Should Manage the 11 Curb 03| Portland, Seattle, And Vancouver’s 17 Desired Climate And Equity Outcomes 04| Keeping Mobility Equity at the 23 Forefront of Curb Management 05| Curb Management Planning 27 and Implementation Examples, Resources, and Research 06| Emerging Themes and Research 53 Gaps | Conclusion 61 | Works Cited 63 New Mobility in the Right-of-Way | March 2019 | 1 Urbanism Next | University of Oregon 01 | INTRODUCTION New Mobility in the Right-of-Way | March 2019 | 3 Background Streets and sidewalks, together known as the public right-of-way (ROW), are often compared to arteries and veins in a body. They transport people and goods, and just as with arteries, problems can occur when they are clogged. The function of a street is not limited to movement, of course. Streets are places for recreation and entertainment, for commerce, and for some people, it is where they live. Streets are also the workbench for utilities and public works. They host vertical infrastructure and serve as the conduit to underground “ infrastructure. Streets are the circulatory systems that are critical The curb is for livable cities. In short, the functions of the right-of-way can be summarized as the following: movement, access, loading, storage, the new urban activation, and greening. (See Figure 1-1 for a description of the primary right-of-way functions as identified by the Seattle Department frontier of Transportation). These activities occur in three different “zones” of the street, which the Seattle Department of Transportation (SDOT) - Donald Shoup at have defined as the pedestrian realm, the “flex” or curb zone, and the LACoMotion, Nov. 2018 ” travelway (Figure 1-2). The curb zone is where many of these uses intersect and “where movement meets access”(Mitman, Davis, Armet, & Knopf, 2018, p. 4). Traditionally, this zone has been used by private vehicles, taxis, pedestrians, cyclists, high-capacity transit, and freight and delivery vehicles. Over the past eight years, however, demand for curb access is noticeably changing. This increase in demand is related to the introduction of transportation network services (TNCs) like Uber and Lyft. It is also driven by the growth in docked and dock-less shared mobility, including the introduction of shared electric scooters. It is influenced by a significant rise in e-commerce with the growth of Amazon and other online retailers. Finally, the ease of in-app ordering combined with low-cost or even free delivery, often provided by courier network services like GrubHub and Postmates is impacting demand for the curb. These technological innovations have fueled the growth of the gig economy,1 enabling many people to use their personal vehicles to ferry passengers—as well as make package and food deliveries. Cities are only just beginning to understand how these services are impacting the demands placed on the right-of-way, including the curb. For instance, the growth of TNCs and courier services is contributing to an increased demand for short-term loading zones to enable safe and efficient passenger and goods loading. At the same time, demand for parking is decreasing in certain areas, such as nightlife corridors and airports (International Parking Institute, 2018; Walker Consultants, 2018). Cities are also anticipating the near-future commercial deployment of fleets of autonomous vehicles (AVs), which will likely function similarly to how TNCs do today. AVs will be used to move both passengers 1 The gig economy generally refers to the broad swath of jobs that “use app-based platforms to dole out work in bits and pieces — making deliveries, driving passengers or cleaning homes…” (Kobie, 2018) 4 | New Mobility in the Right-of-Way | March 2019 | Section 1 Urbanism Next | University of Oregon Figure 1-1. Primary Functions of the Right-of-Way (ROW) as Defined by the Seattle Department of Transportation ACCESS FOR ACCESS FOR FUNCTION STORAGE GREENING ACTIVATION MOBILITY COMMERCE PEOPLE Provides storage Enhances Offers vibrant Goods and People arrive at Moves people for vehicles or aesthetics and social spaces services their destination, and goods equipment environmental reach their or transfer DEFINITION health customers between different and markets ways of getting around Bus layover Plantings Food trucks Commercial Bus or rail stops Sidewalks Long-term -Boulevards Parklets and vehicle load parking -Street trees streateries zones Bike parking Bus or -Planter boxes streetcar lanesReserved Public art Curb bulbs spaces (e.g. for Rain gardens Truck load Bike lanesUSES police or other and bio-swales Street festivals zone Passenger load zones General government use) Short-term purpose travel Construction parking lanes Taxi zone Right or left turn-only lanes Source: Seattle Right-of-Way Improvements Manual, Seattle Department of Transportation, 2016. Accessed at http://streetsillustrated.seattle.gov/street-types/row-allocation/ and goods, providing point-to-point service, and placing additional demands on curbside access. While questions remain about how soon fully autonomous vehicles will be commercially deployed, as well as how widespread they will be, AVs are already on streets. For instance, Fry’s, which is owned by grocery giant Kroger, recently partnered with the delivery-bot maker Nuro to pilot autonomous grocery delivery in Scottsdale, Arizona (Metz, 2018). These grocery delivery vehicles travel on public roads alongside traditional vehicles. The curb has long been in high demand with multiple users vying for limited space, especially for the purposes of parking personal vehicles. However, TNCs and other services have helped to usher in a new age that involves an increased demand for short-term loading and micromobility2 device parking. Multiple issues can arise when the curb zone is not well allocated or managed, including increased congestion, double-parking and circling for parking, all of which 2 Micromobility refers to “small, human- and electric-powered transportation solutions such as bikes, scooter, and mopeds”(Populus, 2018.) Delivery robot Nuro operating in Scottsdale, AZ; Source: Nuro Urbanism Next | University of Oregon Section 1 | New Mobility in the Right-of-Way | March 2019 | 5 NEW MOBILITY result in an increase in GHG emissions. Failure to consider the curb “New mobility is the term comprehensively has often resulted in the prioritization of parked favored by many jurisdictions vehicles over other uses, which not only contributes to mode conflicts, across the country to describe but also has considerable ramifications on mobility equity. For transportation that is newly instance, curb space dedicated to the storage of private vehicles might enabled by technology, otherwise be used for dedicated transit. In doing so, users who can primarily the use of smart afford to access a private vehicle are often prioritized over users who phones. This technology are transit-dependent. AVs will likely exacerbate existing issues with includes transportation the right-of-way and the curb, which is why it is important that cities network companies (like Uber tackle curb management in new ways. and Lyft), micro-transit (like The cities of Portland, OR; Seattle, WA; and Vancouver, BC recognize bikeshare, electric scooter the importance of innovative curb management. In 2017, the three share, and potentially other cities partnered with the Carbon Neutral Cities Alliance at the Urban modes of transportation that Sustainability Directors Network (CNCA/USDN) on a project to better are enabled by smart phones understand how each city is individually addressing policy issues or other electronic devices. related to AVs. CNCA/USDN, with support from the Bullitt Foundation, Autonomous vehicles (AVs) are provided a grant to the Urbanism Next Center to conduct research expected to be included in the and lead three workshops with the cities between June and November suite of technologies covered 2018. The first two workshops focused on the potential impacts of by new mobility when they are AVs on GHG emissions, and Urbanism Next produced an associated deployed in cities.” report, “AVs in the Pacific Northwest: Reducing Greenhouse Gas – AVs in the Pacific Northwest: Emission in a Time of Automation.” During the first phase of the Reducing Greenhouse Gas project, the cities broadly identified the right-of-way and specified Emissions in a Time of the curb as an area of keen interest. The group collectively decided Automation (Urbanism Next, that the impacts of new mobility on the curb would be the focus of Aug. 2018) the second phase of research. The final workshop in November 2018 brought together representatives from the three cities for an in-depth discussion about curb management, and this report catalogs the findings from the second phase of the project. Figure 1-2. Street Right-of-Way (ROW) Zones as Designated by the Seattle Department of Transportation Source: Seattle Right-of-Way Improvements Manual, Seattle Department of Transportation, 2016. Accessed at http://streetsillustrated.seattle.gov/street-types/row-allocation/. 6 | New Mobility in the Right-of-Way | March 2019 | Section 1 Urbanism Next | University of Oregon Purpose of this Report The purpose of this report is to categorize and summarize efforts that are already underway in cities across the world to rethink curb management, to outline the key takeaways from the one-day workshop that involved city staff from Portland, Seattle, and Vancouver, and to identify major research gaps. Methods The Urbanism Next Center at the University of Oregon used the following methods to complete this report: Literature Review Urbanism Next conducted a brief literature review on curb management and how it is directly linked to impacts on climate and mobility equity. The literature review informs Section 2. Policy and Pilot Project Analysis Urbanism Next reviewed curb management policies and pilot projects in ten cities, including Washington, D.C., San Francisco, CA, Seattle, WA, New York, NY, London, U.K., and others. Additionally, Urbanism Next reviewed research to rethink curb management, especially pertaining to data collection. The policy and pilot project analysis helped identify promising practices, important takeaways, and existing research gaps. The policy and project analysis inform Section 5. Interviews Urbanism Next conducted four interviews with representatives of the San Francisco Municipal Transportation Authority, Lyft, Fehr & Peers, and the City of Chandler, Arizona in order to better understand efforts underway by these agencies and jurisdictions to respond to changes in curbside demand. These discussions provided additional clarity on issues pertaining to curb management and further highlighted research gaps. The interviews inform Section 5. Facilitated Workshop Urbanism Next facilitated a one-day workshop with representatives from the three cities in November 2018 to discuss preliminary research findings and to identify areas of opportunity for the cities work together to advance curb management understanding and policymaking. The workshop discussions inform Section 6. Urbanism Next | University of Oregon Section 1 | New Mobility in the Right-of-Way | March 2019 | 7 Report Scope Management of the curb is the primary focus of this report. While curb management requires thinking about the interactions between the various zones of the ROW (Figure 1-2), management of the full ROW is not the primary focus of this research effort. This report also does not provide specific guidance or research about the management of the pedestrian realm or the travelway. Additionally, this report did not conduct data analysis about ROW use. Limited data are available in terms of passenger trips made with transportation network services. Furthermore, no publicly available data about the impacts of courier network services appear to exist. Figure 1-3. Multiple uses of the right-of-way (ROW) GREENING personal vehicles puBLIC TRANSPORTATION bikeshare/e-scooter active transportation storage TNC FREE G PARK IN The f h Co st o ig rkingH Free PaUP ALD SHO DON TNC electric car charging ride-hailing parking COURIER SERVICES utilities freight/goods delivery Streeteries Source: Michelle Montiel 8 | New Mobility in the Right-of-Way | March 2019 | Section 1 Urbanism Next | University of Oregon BIKESHARE e-SCOOTER SHARE MOPED SHARE CARSHARING Services providing fleets Services providing fleets Services providing fleets Services providing access to of bicycles for short-term of electric scooters for of mopeds for short-term shared vehicles for trips rental. Pay at kiosk/ short-term rental within a rental. Typically dockless: where users only pay for smartphone app. Docked: defined service area. pick-up/return anywhere time used. Stationary: pick-up/return at fixed Pick-up/leave anywhere within a defined area . pick-up/return to same stations. Dockless: within a defined area. parking spot. Free-floating: pick-up/leave anywhere pick-up/leave anywhere within a defined area. within a defined area. Peer-to-peer: rent from individuals. RIDE-HAILING MICROTRANSIT PUBLIC TRANSIT AUTONOMOUS VEHICLE Use of smartphone apps Privately operated Use of public transit as it Vehicles use sensors and to connect passengers passenger vans and currently exists, but using advanced control systems with drivers who provide shuttle buses offer newer technologies like to operate independently rides in their personal transit-like service on a smartphone apps to look from a human driver and vehicles. Also known as smaller scale. Routes may up routes and/or pay for may be used to transport transportation network be fixed or dynamic, but ride. passengers as well as companies (TNCs). Can typically use freight. be single or shared predetermined pick-up occupancy. and drop off points for passengers. COURIER SERVICES AUTONOMOUS DELIVERY SELF-DRIVING ROBOTIC AERIAL DROne DELIVERY The use of an app to The delivery of goods by DELIVERY Not a focus of report/or in connect people using their driverless autonomous the scope of Urbanism personal vehicles to make vehicles, from larger Fleets of small autonomous restaurant, grocery, or freight vehicles to smaller delivery vehicles that may Next... but a technology be used on sidewalks or on on the near horizon.other package deliveries. passenger vehicles. roads depending on size and speed. New Mobility in the Right-of-Way | March 2019 | 9 m o v i n g p e o p l e m o v i n g G O O D S m o v i n g p e o p l e m o v i n g G O O D S Urbanism Next | University of Oregon 02 | Why cities should manage the curb New Mobility in the Right-of-Way | March 2019 | 11 Source: Ravi Patel on Unsplash Free Curbside Parking Impacts Travel Behavior For years, curb space has been primarily allocated to the storage of private vehicles through the provision of short- and long-term on- street parking. Many cities, especially in the U.S., have historically not charged for on-street parking. According to Donald Shoup, U.S. drivers park free at the end of 99 percent of their trips (Shoup, Appendix B, 2011). The widespread availability of free and cheap parking impacts travel behavior and induces vehicle travel. Researchers have inferred that a causal relationship exists between parking and citywide automobile use (McCahill, Garrick, Atkinson-Palombo, & Polinski, 2016). However, roadway space is finite and as vehicle use increases, congestion may increase, especially in highly trafficked corridors during peak travel periods. Free on-street parking not only induces vehicle use, it also encourages drivers to circle or “cruise” for parking, contributing to a string of negative externalities. As Shoup writes in Parking and the City, cruising not only wastes the time of the driver, it also “congests traffic, pollutes the air, endangers pedestrians and cyclists, and creates CO2 emissions” (Shoup, 2018, p. 24). Even just a small amount of time spent searching for a parking space can increase traffic and VMT/VKT. Vehicle Miles/Kilometers Traveled and Congestion can Increase Greenhouse Gas Emissions An increase in VMT/VKT in gasoline-powered vehicles is directly linked to increased GHGs (VMT/VKT is a proxy measurement for GHGs, though fuel efficiency is a factor). Increased congestion results in cars accelerating, decelerating, and idling more frequently, which can in turn result in increased tailpipe emissions. For instance, researchers 12 | New Mobility in the Right-of-Way | March 2019 | Section 2 Urbanism Next | University of Oregon at Texas A&M’s Transportation Institute attempted to quantify the additional amount of emissions generated by urban congestion in 498 urban areas in the U.S. and found that “56 billion pounds of additional CO2 were produced at the lower speeds under congested conditions” (Eisele, et al., 2014, p. 73). The presence of free or cheap on-street parking can encourage circling, increasing VMT/VKT and contributing to increased congestion. As a result, comprehensive curb management is an important component in any citywide effort to reduce VMT/VKT and GHGs. Comprehensive Curb Management Can Encourage Mode Shifts Just as the presence of free or cheap on-street parking can induce driving, allocating curb space to other modes can help promote mode shifts. Price, safety, and reliability are all important factors in mode choice, and the prioritization of private vehicles at the curb can impact both the reliability and safety of other modes. For instance, drivers searching for parking may increase congestion, thereby slowing transit and reducing its reliability. Vehicles entering and exiting the travel lane can pose safety risks to cyclists and other non-motorized users. However, making space at the curb for other users can impact mode choice. Research has shown that there is a clear correlation between bike lanes, increased rates of cycling, and reduced risk for riders (NACTO, 2016). People who do not feel safe riding in the street due to a lack of infrastructure may choose to ride on the sidewalk, or not to ride at all as is the case of the “interested but concerned” cyclist (Dill & McNeil, 2013). Both are problematic since sidewalk riding can endanger pedestrians, but choosing not to ride may mean that the trip is made by private vehicle instead. In terms of transit usage, “speed, reliability and frequency are critical dimensions of service quality that discretionary riders value” (Chakrabarti, 2017, p. 87). Congested streets can greatly reduce the speed and reliability of transit, thereby impacting mode choice. Amazon Prime Fleet; Source: Daimler Mercedes Benz Urbanism Next | University of Oregon Section 2 | New Mobility in the Right-of-Way | March 2019 | 13 However, dedicated bus lanes can increase the speed of travel, making it more predictable and reliable. Seattle, for instance, has seen transit ridership increase after giving buses priority on some heavily trafficked corridors (Small, 2017), among other improvements. Using curb lanes for dedicated transit, bike lanes, and uses other than the storage of private vehicles can encourage important mode shifts. Demand for Curbside access is increasing The number of multiple and competing curb demands is increasing with the introduction of new mobility technologies such as TNCs and e-scooters, and the continued growth of e-commerce. TNCs offer A note on GOODS passengers door-to-door service with the ability to be picked up DELIVERY and dropped off at their desired destinations. This is increasing the demand for short-term curbside uses like passenger loading zones, There are a variety of especially in areas with concentrated nightlife. Multiple reports have terms being used to refer also linked TNCs to increased congestion (Gehrke, Felix, & Reardon, to local goods delivery, 2018; San Francisco County Transportation Authority, 2018; Schaller, including urban delivery, 2018). Though congestion is certainly not a new phenomenon, TNCs goods delivery, and urban may be exacerbating it in part by spending time circling and idling freight. Some cities are while waiting for passengers. also referring to services like UberEats, Grubhub, Package deliveries are also on the rise. According to José Holguín- Postmates, Amazon Veras, a researcher at Rensselaer Polytechnic Institute, “the number Flex and others, which of freight deliveries per person in America has doubled over the last primarily use couriers to decade…with almost all of that growth attributable to internet buying” make food and package (Humes, 2018). If current growth continues, that number could double deliveries, as courier again by 2023 (Humes, 2018). The growth in goods delivery is putting network services (CNS). additional pressure on demand for short-term loading zones. This report uses urban goods delivery to refer The growth of the shared micromobility market with the introduction of to deliveries made e-scooters is also placing increased demands on the curb. The shared by carriers directly to devices are meant to be ridden in the street, but many cities are consumers. The term struggling to keep riders off the sidewalk. The City of Portland received courier network services 1,622 reports of sidewalk riding during the city’s four-month e-scooter refers specifically to pilot program (Portland Bureau of Transportation, 2019, p. 24). services that enable However, instances of sidewalk riding were also directly related to the app-based ordering and posted speed of traffic and/or the lack of bike infrastructure, according delivery via couriers. to the Portland Bureau of Transportation’s report findings. This supports research findings that allocating curb space for nonmotorized modes could impact mode shift. Additionally, questions about where shared micromobility devices should be stored when not in use are spurring conversations about the curb. Some cities like Santa Monica, CA are experimenting with replacing parking spaces with e-scooter corrals (Linton, 2018). Finally, the growth of the electric vehicle market is also placing increasing demands on the curb. EV charging infrastructure is another important consideration in the discussion about curb space allocation. The right-of-way may become increasingly electrified through EV charging stations, as well as, eventually, inductive charging. 14 | New Mobility in the Right-of-Way | March 2019 | Section 2 Urbanism Next | University of Oregon Potential Curbside Impacts of Autonomous Vehicles Early research findings about the potential transportation impacts of AVs suggest that they may increase VMT/VKT (Fagnant & Kockelman, 2014; Greenblatt & Shaheen, 2015) as it is anticipated that AVs will function similarly to TNCs. New research also suggests that AVs could exacerbate congestion by circling endlessly while waiting for a passenger in order to avoid parking charges even during periods of lower demand (Millard-Ball, 2019). TNC drivers, on the other hand, are more likely to pull over and park during slow periods. However, unlike human drivers who may choose to pull up in front of a bus stop or stop in a travel lane, AVs are expected to be programmed to follow all laws and regulations. This means AVs will need to access designated passenger zones in order to pick up and drop off passengers. Anticipating and planning for the commercial deployment of AVs requires comprehensive curb management and a consideration about how curb space is currently allocated and priced. Mobility Equity and the Curb The prioritization of curb space for the storage of private vehicles privileges those who can afford to drive. Lower income communities are less likely to own a private vehicle and are more reliant on transit (Blumenberg & Pierce, 2012; Giuliano, 2005). Prioritizing space for parking over transit, for instance, can reduce reliability, frequency, and efficiency of transit. This in turn can diminish both mobility and access to opportunity. Rates of cycling are also linked to income, as well as race and ethnicity. In 2014, PeopleForBikes reported that people making less than $20,000 per year are twice as likely to rely on bicycles for to meet their daily transportation needs, and people of color are more likely to be regular riders (Andersen, 2015). Allocation of curb space is an important factor in mobility equity that should not be overlooked. Source: Zach Inglis for Unsplash Urbanism Next | University of Oregon Section 2 | New Mobility in the Right-of-Way | March 2019 | 15 Urbanism Next | University of Oregon 03 | PORTLAND, SEATTLE, AND VANCOUVER’S DESIRED CLIMATE AND EQUITY OUTCOMES New Mobility in the Right-of-Way | March 2019 | 17 Source: Aditya Chinchure on Unsplash Focusing on desired outcomes is an important starting point for any project. In the case of curb management, Portland, OR; Seattle, WA and Vancouver, BC are interested in the ways that effective curb management can help them achieve the desired outcomes of reducing greenhouse gas emissions and advancing equity. The three cities’ goals related to greenhouse gas emissions and equity are outlined in plans that have been adopted by the cities, as well as city-led initiatives, which are described here. Reduce Greenhouse Gas Emissions Each of the three cities have ambitious goals to significantly reduce GHG emissions from the transportation sector. According to the U.S. Environmental Protection Agency, the transportation sector accounts for the largest portion of GHG emissions compared to all other sectors: 28% in 2016 (United States Environmental Protection Agency, 2018). In Canada, the transportation sector accounted for 25% of total GHG emissions in 2016 (Government of Canada, 2018). Total vehicle miles or kilometers traveled (VMT/VKT) is directly related to GHG emissions, as gasoline-powered vehicles emit carbon, and all three cities have established goals to reduce total VMT/VKT. Effective curb management policies can help reduce total VMT/VKT, which in turn reduces GHG emissions. 18 | New Mobility in the Right-of-Way | March 2019 | Section 3 Urbanism Next | University of Oregon Table 3-1. Overview of Climate Action Plans for Portland, Seattle, and Vancouver 2020 2030 2050 40% 80% Reduction in GHG City of Portland and Multnomah County Climate Action Plan from 1990 levels from 1990 levels Adoption Date: 2015 30% reduction in daily per capita VMT from 2008 levels 58% 100% Reduction in GHG Seattle Climate Action Plan Adoption Date: from 1990 levels Carbon neutral 2013 20% reduction in VMT from 2008 levels 100% 80% Reduction in GHG Greenest City 2020 Action Plan Adoption Date: energy from from 2007 2015 renewable levels 20% sources reduction in VkT per resident from 2007 levels Urbanism Next | University of Oregon Section 3 | New Mobility in the Right-of-Way | March 2019 | 19 VANCOUVER sEATTLE Portland Advance Equity Initiatives Each of the three cities have adopted important equity initiatives with the aim of mitigating historic disparities in access and opportunity. Effective curb management policies that prioritize the needs of underserved users can help advance these important equity initiatives. Portland Source: Andrey Yachmenov for Unsplash The City of Portland adopted the 2035 Comprehensive Plan in 2018 and it explicitly outlines equity as one of its five guiding principles: Promote equity and environmental justice by reducing disparities, minimizing burdens, extending community benefits, increasing the amount of affordable housing, affirmatively furthering fair housing, proactively fighting displacement, and improving socio-economic opportunities for under-served and under-represented populations. Intentionally engage under-served and underrepresented populations in decisions that affect them. Specifically recognize, address and prevent repetition of the injustices suffered by communities of color throughout Portland’s history (City of Portland, 2018, p. 17). The Bureau of Transportation also adopted a 5-Year Racial Equity Plan 2017-2021 and the first long-term goal it lists is to “provide equitable City services to all residents” (City of Portland, Bureau of Transportation, 2016, p. 1). Seattle Source: Milkovi for Unsplash The City of Seattle has established several equity initiatives to guide city policymaking and planning efforts, including the Equity and Environment Initiative, and the Race and Social Justice Initiative. Seattle also adopted race and social equity as one of its four core values in the Comprehensive Plan: “Limited resources and opportunities must be shared and the inclusion of under-represented communities in decision-making processes is necessary” (Office of Planning & Community Development, 2018, online). 20 | New Mobility in the Right-of-Way | March 2019 | Section 3 Urbanism Next | University of Oregon There are also several equity initiatives specifically housed under the Seattle Department of Transportation. In January 2018, Seattle’s City Council adopted a Transportation Equity Resolution to establish the Transportation Equity Program, managed by SDOT. The Transportation Equity Program “provides safe, environmentally sustainable, accessible, and affordable transportation options that support communities of color, low-income communities, immigrant and refugee communities, people with disabilities, people experiencing homelessness or housing insecurity, LGTBQ people, women and girls, youth, and seniors to thrive in place in vibrant and healthy communities, and mitigate racial disparities and the effects of displacement” (Seattle Department of Transportation, 2018, online). Additionally, one of the key principles of the New Mobility Playbook, published by SDOT in 2017, is to “Advance Race and Social Justice” (Seattle Department of Transportation, 2017, p. 32). Vancouver Source: Aditya Chinchure for Unsplash In 2014 Council approved the City of Vancouver’s Healthy City Strategy, which recognizes that the social determinants of health and well-being are interconnected and that “a ‘for all’ lens will help ensure that the city pursues initiatives that are both universal for all citizens and focused on specific populations most vulnerable to health inequities” (City of Vancouver, 2015, p. 6). One of the goals outlined in the strategy is that “Vancouverites enjoy safe, active, and accessible ways of getting around the city” (City of Vancouver, 2015, p. 11). This policy direction is also reflected in Vancouver’s Transportation 2040 Plan, adopted in 2012, which is underlined by traditional sustainability goals of Economy, People (Society) and Environment (City of Vancouver, 2012). The plan’s “people” goal leads to numerous equity- related policies and strategies throughout the plan and focuses on mobility for all. Urbanism Next | University of Oregon Section 3 | New Mobility in the Right-of-Way | March 2019 | 21 Urbanism Next | University of Oregon 04 | KEEPING MOBILITY EQUITY AT THE FOREFRONT OF CURB MANAGEMENT New Mobility in the Right-of-Way | March 2019 | 23 MOBILITY EQUITY Understanding the needs of the community is an important first step in any pilot project or planning process. A robust community needs assessment should inform decision-making and guide policy development. For instance, in 2018, Portland State University partnered with OPAL Environmental Justice Oregon to conduct a “Community-Based Assessment of Smart Transportation Needs in the City of Portland.” One research question they set out to answer on behalf of the City of Portland was: “How can smart mobility technologies address the current and future needs of transportation disadvantaged communities?” (Golub, Serritella, Satterfield, & Singh, 2018, p. 1). The research team found that “by lowering costs and improving service for public transit, ridesharing and active transportation, smart mobility technologies could potentially address many of the transportation needs of transportation disadvantaged communities” (Ibid, p. 1). Information like this should be used to inform decision-making related to the right-of-way and curb management. Researchers at the Greenlining Institute have outlined twelve mobility equity indicators that can be used to conduct a mobility equity analysis (Figure 4-1). As they suggest, “Decision-makers and communities can use these indicators and their metrics to assess the equity outcomes of individual transportation projects or entire transportation modes or plans” (Creger, Espino, & Sanchez, 2018, p 11). This framework provides three examples of how a mobility equity analysis can inform prioritization of various of transportation modes (Figure 4-2). In their analysis they assume that all mobility equity indicators are weighted equally, and that all modes are available in each hypothetical place type (urban, suburban, and rural). In urban and suburban settings, for instance, their analysis suggests that active transportation should be the first priority in a mode hierarchy. Rural areas, however, may prioritize rideshare given the longer distances between destinations1. Figure 4-1. Mobility Equity Indicators from the Greenlining Institute’s Mobility Equity Framework Source: Mobility Equity Framework, The Greenling Institute, 2018, p. 5. 1 Note that the Greenlining Institute differentiates rideshare from ridehail, which encompasses TNC services like Uber and Lyft. 24 | New Mobility in the Right-of-Way | March 2019 | Section 4 Urbanism Next | University of Oregon This type of analysis is applicable to curb prioritization, as it helps SAN FRANCISCO’S GUIDING guide decision-making about which pilot projects to implement and PRINCIPLES FOR EMERGING how to allocate limited space. Using Greenlining’s example, if a city wants to prioritize active transportation and electric public transit first MOBILITY SERVICES AND and foremost, then curb space and related policies should support TECHNOLOGIES that prioritization by making room for pedestrian, cyclists, and transit. The San Francisco Municipal Implemented, this could be bus-only lanes in the flex (or curb) zones, Transportation Agency (SFMTA) as opposed to parking—since personal vehicles appear at the bottom and San Francisco County of the prioritization scheme (Figure 4-2). A different jurisdiction Transportation Authority (SFCTA) could also choose to weight some factors more heavily than others, established the Guiding Principles depending on the goals or outcomes desired. While resources like for Emerging Mobility Services the Greenlining Institute’s Mobility Equity Framework can provide and Technologies to “provide a guidance, there is no one size-fits-all approach. Each community consistent policy framework to should conduct its own transportation needs assessment. evaluate new mobility services” The next section highlights research, pilot projects, and other efforts (SFMTA, p. 1). The 10 Guiding pertaining to curb management, though equity outcomes were Principles were crafted to support not necessarily the impetus of these projects. Some pilot projects the City of San Francisco’s goals simply respond to existing conditions. However, this report strongly of “providing for safe, reliable, recommends that mobility equity be a prioritization factor for cities as sustainable, and equitable they choose what pilots to implement, as well as a key consideration transportation choices now and in in pilot project design and other efforts undertaken related to curb the future” (p. 1). This framework management. is a useful resource that can be used in evaluation processes of new mobility services. Figure 4-2. Transportation Mode Breakdown Applied to Urban, Suburban, and Rural Areas Using the Mobility Equity Indicators (The Greenlining Institute, 2018) URBAN SUBURBAN RURAL Source: Mobility Equity Framework, The Greenling Institute, 2018, p. 15-17. Urbanism Next | University of Oregon Section 4 | New Mobility in the Right-of-Way | March 2019 | 25 Urbanism Next | University of Oregon 05 | CURB MANAGEMENT PLANNING AND IMPLEMENTATION EXAMPLES, RESOURCES, AND RESEARCH New Mobility in the Right-of-Way | March 2019 | 27 Urbanism Next reviewed policies, plans, and pilot projects related to curb management from the following cities: Seattle, WA; London, U.K.; Washington, D.C.; Ft. Lauderdale, FL; Los Angeles, CA; West Hollywood, CA; San Francisco, CA; Portland, OR; New York, NY; and Chandler, AZ. Additionally, Urbanism Next reviewed research conducted by the International Transport Forum, the transportation consulting firm Fehr & Peers, and the University of Washington’s Urban Freight Lab, as well as resources published by the Institute of Transportation Engineers (ITE) and the National Association of City Transportation Officials (NACTO). Finally, Urbanism Next reviewed services provided by Coord, a private sector curb mapping resource, and the data sharing platform SharedStreets. This section presents brief introductions to all of the reviewed policies, plans, pilot projects, research, and resources. They are organized according to four primary categories: Visioning and Planning This covers how cities are connecting management of the right-of-way to larger goals. Visioning includes efforts to think comprehensively about the ROW and its primary purposes. Planning covers efforts to develop actions that will help achieve city goals. Data Collection This covers gathering baseline data about the right-of-way, including efforts to map and inventory the curb. Data collection also entails efforts to understand ROW usage to inform decision-making and regulations. Space Allocation This covers different ways of allocating the right-of-way depending on desired outcomes. It includes information about how to prioritize transit and different ways of implementing passenger and goods loading zone pilot projects. Regulation and Policy This covers different ways that pricing and zoning mechanisms can be used for right-of-way management. Each reference is classified as either a planning example, an implementation example, a resource, or relevant research. The planning and implementation examples highlight jurisdictions that have adopted plans and policies and/or have implemented a pilot project. The resources are briefly described and included for reference, and research efforts are summarized with important findings highlighted. Key takeaways as identified by Urbanism Next are presented for each category. The takeaways are informed by interviews conducted with representatives from Fehr & Peers, Lyft, the San Francisco Municipal Transportation Agency, and the City of Chandler, AZ, as applicable. 28 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Source: Fred Joe for Urbanism Next VISIONING AND PLANNING An important step in any planning process is to establish a vision of the future that reflects community values. Using the visioning document as a guide, cities develop goals that pertain to the vision and then develop actions that will help achieve those goals in the form of city plans. Strategic Vision Not every street can serve every function, so it can be helpful to engage in a visioning process about the various functions that should be prioritized on different streets—and how those functions connect to overarching goals and other adopted plans. Thinking about the different functions of the curb also helps break away from the notion that the curb lane is primarily a space for on-street parking. A parking lane automatically defines the use and is limiting in scope, but re- framing the curb as a flex zone shifts the conversation and connotes far more opportunity for how that space can be used. A strategic vision can also help guide decision-making across the various departments that manage the curb. Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 29 Visioning Establishing a Strategic Vision for the Function of London’s Streets London adopted a “Street Types” Places prioritize place (Figure 5-2). matrix in 2014, resulting from According to Transport for London a 2-year project launched in [Street Types] (TfL), “The aim of Street Types is 2012 and involved more than “recognizes the role to help planners work together 400 experts from Transport to ensure customers get a for London, Greater London of the street network consistent level of service Authority, and London’s in civic life but also on TfL and borough roads, boroughs. “The Street Types highlights where areas are whether they are travelling matrix serves as planning by foot, bicycle, bus or car.” input for street interventions…” under intense pressure “It [Street Types] recognizes and balances the movement to help people move. the role of the street network in and place functions of the street - Transport for London ”civic life but also highlights where (International Transport Forum, areas are under intense pressure 2018, p. 32). Core/Arterial Roads, for to help people move.” (Transport for instance, prioritize movement whereas City London, n.d., online). Source: Mavis for Unsplash 30 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Figure 5-1. Street Types for London Matrix (Transport for London) Source: Transport for London Figure 5-2. Aims of London’s Street Types Matrix Source: London’s Street family: Theory and Case Studies (Chapters 1-2), Transport for London Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 31 Visioning Identifying and Prioritizing the Functions of the “Flex Zone” in Seattle In 2017, as part of their Comprehensive Plan, of streets based on the surrounding land use Seattle adopted the term “flex zone” to refer to (Figure 5-4). Mobility is identified as the primary the curb space component of the right-of-way. function for all street types, but it is important They also defined the six overarching functions to note that the framing is “support for modal of the right-of-way: mobility, access for people, plan priorities.” This helps to connect the access for commerce, activation, greening, and prioritization scheme to other existing plans and storage (Figure 5-3). From there, they determined acknowledges that different street types have how they would prioritize the various functions different modal priorities. Figure 5-3. Primary Functions of the Right-of-Way (ROW) as Defined by the Seattle Department of Transportation ACCESS FOR ACCESS FOR FUNCTION STORAGE GREENING ACTIVATION MOBILITY COMMERCE PEOPLE Provides storage Enhances Offers vibrant Goods and People arrive at Moves people for vehicles or aesthetics and social spaces services their destination, and goods DEFINITION equipment environmental reach their or transfer health customers between different and markets ways of getting around Bus layover Plantings Food trucks Commercial Bus or rail stops Sidewalks Long-term -Boulevards Parklets and vehicle load parking -Street trees streateries zones Bike parking Bus or -Planter boxes Curb bulbs streetcar lanesReserved Public art USES spaces (e.g. for Rain gardens Truck load Street festivals zone Passenger load Bike lanes police or other and bio-swales zones General government use) Short-term purpose travel Construction parking lanes Taxi zone Right or left turn-only lanes Source: Seattle Right-of-Way Improvements Manual, Seattle Department of Transportation, 2016. Accessed at http://streetsillustrated.seattle.gov/street-types/row-allocation/ Figure 5-4. Flex Zone Prioritization Based on Surrounding Land Use (SDOT) Source: Seattle Department of Transportation 32 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Planning Once a city has a vision, the next step is to incorporate it into policies and implementation measures. They should also identify actions that will be taken to achieve goals. If a city has adopted a people-first vision of mobility, the plans for streets and curb need to support that vision. Planning Increasing People-Moving Capacity on Streets in Central Portland In 2018 the Portland Bureau of Transportation The main idea that serves as the backbone drafted “Transportation for Everyone: Central City in of Central City in Motion is that the amount of Motion Implementation Plan,” which recommends land devoted to the right-of-way is constant, but 18 key projects that are designed to “increase the how that space is allocated will shift. Currently, people moving capacity…by an average of over only 1% of the ROW is dedicated to transit and 60%” (Portland Bureau of Transportation, 2018, p. 3% is dedicated to bicycle and new mobility 5). Two years of community engagement preceded infrastructure (Figure 5-5). Implementation of the the final draft of Central City in Motion, which is 18 key projects is designed to increase space for intended to help the City of Portland achieve goals transit, and space for bicycles and new mobility by outlined in two other plans—Central City 2035 1% each. In order to accomplish this, some curb Plan and the Transportation System Plan. Both of space will be reallocated from parking and loading those plans call for transit, walking, and bicycling to other use designations. Portland’s City Council to account for 85% of all Central City trips in 20 unanimously approved the plan in November 2018 years (Ibid, p. 10). (Portland City Council Resolution 37395). Figure 5-5. Portland’s Central City in Motion Implementation Outcomes Source: Transportation for Everyone: Central City in Motion Implementation Plan, Portland Bureau of Transportation, 2018, p. 4. Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 33 Takeaways for Visioning and Planning Adopting a strategic vision about the street is a good way to connect the street back to larger goals. Prioritizing the “place” function of the street over “movement” on some streets can help reinforce goals of creating walkable communities. Thinking of the curb as a flex zone is gaining traction and Seattle in particular is regularly being cited for their work in this regard. (Seattle’s functions of the right-of-way have been cited in the Institute of Transportation Engineers’ Curbside Management Practitioner’s Guide, the International Transport Forum’s report on the Shared Use City, as well as in the curb studies completed by consulting firm Fehr & Peers.) The two years of community engagement that contributed to the formulation of the Central City in Motion Plan in Portland provided residents with multiple opportunities to weigh in on the future of streets downtown. This may have contributed to why the plan was unanimously passed by City Council. Source: Aditya Chinchure on Unsplash 34 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon DATA COLLECTION In order to manage and regulate the curb, it is necessary to have a complete picture about it—how much space there is, where it is, where regulations are applied currently, and how the space is actually being used. Gathering Baseline Data Many cities do not have comprehensive information about the curb outside of metered locations. Many cities are recognizing that this is an important gap and are working to gather baseline data through mapping, coding, and inventorying efforts. Private companies also recognize the value of this information, and several companies have started mapping curbs in order to meet the demand for data. GATHERING BASELINE Data Implementation: Commercial Loading Zones in Washington, D.C. In an effort to ease congestion stemming from zone lane on a busy commercial thoroughfare. double-parked trucks on busy commercial The pilot was considered a success and corridors, the District of Columbia’s Department DDOT subsequently implemented the citywide of Transportation (DDOT) undertook a project to Commercial Loading Zone Management inventory and map all of its Commercial Loading Program. The end result of their inventorying Zones (CLZs). They used ArcGIS Collector to efforts was the creation of interactive map that gather data and worked with the Golden Triangle displays different loading zones where users can Business Improvement District, carriers, and access information about what address each downtown receivers on the project. In 2015 they loading zone is closest to, what the operating launched a pilot that involved installing parking hours are, etc. (Figure 5-6). meters in a designated commercial loading Figure 5-6. Snapshot of District Department of Transportation’s Interactive Truck and Bus Map Source: DC Truck and Bus Map, District Department of Transportation, 2018. Accessed at http://godcgo. com/dc-truck-and-bus-map/ on 11/1/2018. Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 35 GATHERING BASELINE Data Implementation: Gathering Baseline Data about Curb in Los Angeles, CA The Los Angeles Department A subsequent attempt to 2018). However, as Stephen of Transportation (LADOT) digitally code the curb relying Goldsmith noted in Governing, announced an initiative in 2016 solely on video footage “In the spirit of rapid iteration, to map more than 7,500 miles “generated too many errors the city is already undertaking of streets. “Code the Curb” is “a to be reliable enough as a new approach utilizing digital undertaking to inventory a source of data for traffic promising technologies” more than 1 million signs, curb enforcement and third-party (Goldsmith, 2018). The project is paint, and other regulatory app development” (Goldsmith, ongoing. tools along the 7,500 miles of Los Angeles streets. When complete, the digital inventory will make parking regulations easier to understand and will help LADOT improve sign design and policy” (Los Angeles Department of Transportation, 2018, p. 7). Initially, the data collection plan was to have city workers manually record information about curbside signage, but the city moved towards digital data collection Source: Nathan Dumlao on Unsplash methods soon thereafter. GATHERING BASELINE Data Research: Gathering Baseline Data Private Loading Bays and Docks in Seattle, WA The University of Washington’s Urban Freight Lab launched a research initiative called the “Final 50 Feet” with two goals related to goods delivery: reduce dwell time and reduce failed first deliveries. The Urban Freight Lab is working with the Seattle Department of Transportation to geocode the locations and features of all private truck load/unload bays and loading docks in Seattle’s Center City, not just city curbs. This is the first time that a major U.S. city has had this kind of information (Urban Source: Hannes Egler for Unsplash Freight Lab, 2018). 36 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon GATHERING BASELINE Data Resource: Private Sector Tool for Gathering Baseline Data The need for highly detailed maps of the curb has created a marketplace for third-party vendors to fill the gap, and Coord is one company doing this work. Coord is a part of Sidewalk Labs, which is under the umbrella of Alphabet, Google’s parent company. Coord has undertaken pilot projects in San Francisco and Toronto with the goal of documenting all curbside uses and parking restrictions (Mitman et al., 2018, p. 33). Coord employs surveyors who use cell phone video technology to inventory parking signs, curb colors, and other regulated uses. They also measure the length of loading zones, no parking zones, etc. to create as complete a picture as possible of how curb space is currently designated. Source: COORD, Curb Explorer. Accessed at https://coord.co/explorer/ sf#37.79307263237486,-122.40564174272345@15. Understanding Usage While gathering baseline data about the curb is an important first step, that information alone does not tell cities how the curb is actually being used. For instance, cities need to know if no-parking zones are routinely being used for passenger loading or unloading or if bus stops are being block by non-designated users. They need to know where double-parking occurs most frequently, contributing to congestion and possible safety conflicts. Some of this information can be gathered by manual counts and other forms of municipal observational data collection. Getting a full picture of how the curb is used requires cooperation between public and private entities, however. For instance, transportation networks companies and courier service networks have important data about hotspots, occupancy, average dwell times, and other useful data points that help cities gain needed information. Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 37 Understanding Usage Implementation: Creating a Platform to Facilitate Data Collection in Los Angeles The Los Angeles Department of Transportation has created a Mobility Data Specification (MDS), which is a “data standard and API specification for mobility as a service providers, such as dockless bikeshare, e-scooters, and shared ride providers who work within the public right of way” (Los Angeles Department of Transportation, 2018, online). It is intended to facilitate “real-time data sharing, measurement and regulation for municipalities and mobility as a service providers” and “to ensure that governments have the ability to enforce, evaluate and manage providers” (Los Angeles Department of Transportation, 2018). Mobility service providers who receive permits to operate in the City of Los Angeles must agree to create a data sharing API that is compatible with MDS (Los Angeles Department of Transportation, 2018a, online). Understanding Usage Resource: Creating a Shared Data Standard with open platform Software The Open Transport Figure 5-7. How SharedStreets Data Exchange Compares to GIS-Based Data Partnership and the Exchange National Association of City Transportation Officials (NACTO) have created a shared data standard using open platform software, which they have called SharedStreets. It is designed to facilitate collaboration between public and private entities by using a linear referencing system that enables different datasets to be shared while also being anonymized. As it is Source: SharedStreets, 2018. Accessed at https://github.com/sharedstreets/sharedstreets-ref-system. described in a report by the International Transport Forum, to share proprietary base map an agreement to share data via the platform in September 2018 “SharedStreets addresses a information and...privacy- (National Association of City confounding issue that has sensitive un-anonymised data” Transportation Officials, 2018). limited the willingness of (International Transport Forum, commercial operators to provide 2018, p. 35). In a sign that However, some questions curb- and street-use data they SharedStreets may indeed help remain about whether or not the collect—namely, the necessity to facilitate greater data sharing, data is granular enough to be Ford, Uber, and Lyft announced helpful to cities. 38 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Understanding Usage Research: Measuring Curb Productivity in San Francisco The transportation consulting Figure 5-8. Observed Passenger Throughput Compared to Designated Curb Space firm Fehr & Peers worked with on Townsend Avenue (San Francisco) from Fehr & Peers Study Uber Technologies on a curb usage study in San Francisco, published in 2018. In this study, curb productivity is defined in relation to passenger throughput, or “the efficiency with which a given section of the curb facilitates the arrival and departure of people, including those arriving by TNC, taxi, transit, private car drop-off, parked car, or another mode that requires curbside access Source: San Francisco Curb Study, Fehr & Peers, 2018, p. 32. (e.g., bikeshare, motorcycle, In four of its five study locations matched to the demand. TNCs etc.) (Fehr & Peers, 2018). Fehr Fehr & Peers observed have a passenger throughput of & Peers quantified passenger parking mismatches, meaning over 400 but only approximately loading demand by mode for that parking accounts for 100 feet of designated five study locations in San a significant amount of passenger loading space, Francisco that were identified designated curb space indicating that more space may by Uber as passenger loading while having lower rates of be needed. hotspots1. They developed a productivity when compared “Curb Productivity Index, which to transit and TNCs. The only Fehr & Peers suggests three represents the productivity of location without a parking strategies to increase curb a specific curbside designation mismatch has no designated productivity at these case study based on its primary use” parking. Figure 5-8 shows the locations, including relocation, (Fehr & Peers, 2018, p. 15)2. observed passenger throughput conversion, and flexibility. The CPI is calculated based at the Townsend Street case Relocation involves relocating on the “amount of activity (i.e., study location compared to a designated use elsewhere number of people using the designated curb space with on the block while keeping curb) observed per unit of time passenger throughput on the Y the overall amount of space over the total amount of space axis and designated curb space designated to various uses dedicated to that use” (Ibid, p. on the X axis. There is 400 the same. Conversion involves 15). feet of curb space designated adjusting the amount of curb Figure 5-8. Fehr & Peers Curb for parking but an observed space to designated uses, Productivity Index (CPI) Equation passenger throughput of less and they note that this often than 50—this is a parking includes some reduction in the mismatch. Transit, on the other amount of space dedicated to hand, has more than 400 feet on-street parking. Flexibility of designated curb space with a allows for designated uses to passenger throughput of nearly change throughout the day Source: San Francisco Curb Study, Fehr 500, indicating that the space based on changes in demand & Peers, 2018. p. 16 devoted to that use is well for various uses (Fehr & Peers, 2018, p. 21-22). 1 The study was limited to passenger loading and did not include courier services or goods loading information. 2 Passenger loading/unloading events that blocked lanes of travel were identified and the impacts of those events were measured in this study. However, loading/unloading events that did not occur in a travel lane were not measured in terms of their impact on the travelway (e.g., vehicles entering and exiting the flow of traffic). Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 39 Figure 5-9. Curb Space Productivity and Curb Allocation on Townsend Street (San Francisco) Source: San Francisco Curb Study, Fehr & Peers, 2018, p. 36 Figure 5-10. Number of Vehicles and People by Mode Observed on Townsend Street (San Francisco) Source: San Francisco Curb Study, Fehr & Peers, 2018, p. 36 40 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Takeaways for Data Collection Forming partnerships and engaging with stakeholders from the very beginning can provide worthwhile results. DDOT was successful in its commercial loading zone initiative and considered the partnerships with stakeholders to be a key accomplishment (Federal Highway Administration, 2017). The partnership between Urban Freight Lab and Seattle Department of Transportation also seems to be producing promising results thus far. Being able to adapt in a timely way is important when challenges with data collection arise. It is not only challenging to collect accurate data, but also to able to keep it up to date. Coord recently mapped San Francisco’s curbs, but representatives from the San Francisco Municipal Transportation Agency noted that some information is already out of date. Establishing public-private partnerships that enable data sharing could help mitigate this issue. Shared data standards are critical to facilitating private-public collaborations. Both the Mobility Data Specification and SharedStreets open-source platforms appear to be producing promising results thus far in facilitating greater collaboration and data sharing between private and public entities. Curb space is not often maximized and the amount of space designated for parking even in high-density urban environments like in San Francisco suggests that private vehicles are still prioritized. However, parking has the lowest curb productivity index in terms of passenger throughput. Transit has the highest curb productivity index due to its ability to move the highest number of people in the least amount of space. Fehr & Peers’ study provides valuable information about TNC usage at five study locations in San Francisco, but there is no information about the usage rates of courier services for urban delivery. This information would be useful to incorporate in future studies in order to better understand the demand for goods loading zones, in addition to passenger loading. Using passenger throughput to determine curb productivity is valuable, but it is limited in scope. There may be other ways to measure curb productivity that a city may find equally valuable especially when considering the multiple functions that the curb serves. Additionally, productivity may not always be the best measure to use depending on the desired outcomes. More productivity that leads to more vehicle trips could be detrimental to GHG reduction goals. (For instance, if expanding passenger loading zones encourages a mode shift from transit to TNCs, that could result in an increase in total vehicle trips.) Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 41 SPACE ALLOCATION The amount of land devoted to the right-of-way may remain constant, but how the space is allocated can shift. Cities are experimenting with allocating curbside space differently based on new information about demand and are managing it more dynamically. This entails allowing different uses based on time of day. Space can also be allocated in ways that prioritize certain modes, such as transit. Prioritizing Transit Prioritizing transit through lane and curb management can help cities achieve desired goals related to greenhouse gas emissions since timely, efficient, and reliable transit can encourage mode shifts away from private vehicles. In addition, prioritizing transit can help reduce idling and congestion. Prioritizing transit Resource: NACTO’s Curb Appeal Report Outlines Ways to Prioritize Transit NACTO issued a report in delivery by bike; creating November 2017 that focuses reservable loading zones on curbside management that allow freight companies strategies for improving to “park and walk” instead transit reliability. They make of driving door-to-door; the following suggestions to exploring off-peak freight improve transit through curb delivery; allowing longer management: loading zones on nearby streets and shorter loading “Shift from a parking zones on busy streets lane to flex zone.” This to provide more options; suggestion gets at the instituting progressive importance of adopting a parking rates, demand-based strategic vision and reframing pricing or dynamic pricing; the discussion about the set occupancy targets; and curb. (NACTO, 2017, p. 2). using automated enforcement “Clear the way for transit” (NACTO, 2017, p. 6). through the use of right-turn “Look beyond the pockets, transit signal priority, corridor.” This involves road diets, and prioritizing contextualizing parking transit at peak periods with options by looking at an area time-limited bus only lanes. rather than just one street; (NACTO, 2017, p. 4). when proposing projects “Move loading and access that include reassignment of to nearby streets.” This on-street parking, include a involves designing wider larger radius to contextualize bikeways to encourage parking available within the area (NACTO, 2017, p. 10). 42 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Loading There are a number of pilot projects underway to experiment with: space allocation with the goals of reducing double-parking; improving safety; decreasing congestion and VMT/VKT; and meeting new demand for passenger and goods loading. Most of these pilots are geared towards passenger loading, though some are specific to goods loading. All of the identified goods loading pilots are focused on designated commercial carriers, and so do not address courier services and deliveries that are made by private vehicles—such as via UberEats, Amazon Flex, Grubhub, and others. Loading Implementation: City-Led Passenger Loading Zone Pilot in Washington, D.C. Over 100 restaurants and nightlife Figure 5-11. Dupont Circle (Washington, D.C.) Nightlife Demonstration establishments are concentrated in a 3-block Project Passenger Loading Zones area near Dupont Circle. A recent increase in late-night activity led the Washington D.C. Department of Transportation (DDOT) to launch the Dupont Circle Safety Demonstration Pilot to address traffic and pedestrian safety concerns. A working group facilitated by the Golden Triangle Business Improvement District brought together numerous stakeholders including DDOT, the Department of Consumer and Regulatory Affairs, the Alcohol Beverage Regulation Administration, Metro Police, Office of Planning, the Department of Public Works, Parking Enforcement Management, and the Department for For-Hire Vehicles. Forty-five parking spaces were reallocated to passenger loading zones between 11 p.m. and 7 a.m. Thursday-Sunday. The City had to modify four regulatory ordinances in order to make the trial possible, but in general, the results have generally been positive since the pilot launched in October 2017 (International Transport Forum, 2018, 54). Wayfinding and enforcement have been the Source: District Department of Transportation (DDOT), 2018. primary challenges since the pilot launched. Accessed at https://ddot.dc.gov/release/ddot-nightlife-parking-demonstration-underway. The police department ending up setting out cones in order to direct drivers to the passenger loading zones and upped enforcement for vehicles parked in the temporary zones. (International Transport Forum, 2018, p. 55). Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 43 Loading Implementation: City-Led Passenger Loading Zone Pilot in Ft. Lauderdale, FL In a similar move to Washington D.C., the City of Ft. Lauderdale, FL launched a six-month safety demonstration project from January to June 2018 to improve safety on Las Olas Blvd., one of its high crash corridors. Among the various improvements included as part of the pilot was the creation of three “rideshare” zones during prime nightlife hours Thursday-Monday, which necessitated the temporary removal of parking. The City of Ft. Lauderdale issued an evaluation report in July 2018 that found that the rideshare zones helped promote better traffic flow and Source: Marie-Louise Verbeke contributed to a reduction in traffic delays (City of Ft. Lauderdale, 2018, p. 5). Loading Implementation: City-Led Passenger Loading Zone Pilot in West Hollywood, CA The City of West Hollywood launched a pilot program in 2018 geared towards promoting safer pick-up and drop-off and reducing travel lane blockages. The City named its program “The Drop,” and instead of limiting the passenger loading zones to one street, they have designated 12 curb zones located throughout the City of West Hollywood in areas that experience a high volume of rideshare use during evenings and nights. Similar to Washington, D.C. and Ft. Lauderdale, “The Drop” is time-limited and only applies to the hours between 6 p.m. and 3 a.m. During other parts of the day some of these areas are designated for parking, and others are designated as commercial loading zones during business hours. These passenger loading zones are not “geofenced,” meaning that drivers are not restricted to picking up or dropping off passengers in these zones, but they are strongly encouraged to use them (City of West Hollywood, 2018). 44 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Loading Implementation: TNC-Led Passenger Loading Pilot in San Francisco, CA Lyft ran a three-month pilot Lyft’s own evaluation of the insufficient and that the city from March to June 2018 project Schrimmer concludes needs more loading zones” on San Francisco’s Valencia “that existing curb space is (Schrimmer, 2018). Street, which is part of the city’s “Vision Zero High-Injury Figure 5-12. Lyft Passenger Pick-Up Project on Valencia Street (San Francisco) – Network.” Using a geospatial Stars Indicate Where Passengers Were Redirected tool called “Venues,” Lyft created “geofences” around prime pick-up hotspots along the corridor. As Debs Schrimmer of Lyft describes, “When a user tries to request a ride from an area that has been mapped with a Venue, they are unable to manually control the area in which they’d like to be picked up. Venue redirects them to a pre-established location” (Schrimmer, 2018). The geofences push users to walk to less congested side streets for loading purposes. Unlike the other loading zone pilots, this pilot was not time-limited—it ran 24 hours per day—and when it was over, Lyft opted to make the geofencing along Source: “Creating a Safer Valencia Street” by Debs Schrimmer, 2018. Accessed Valencia Street permanent. In at https://medium.com/sharing-the-ride-with-lyft/creating-a-safer-valencia-street-54c25a75b753 on 11.1.2018. Loading Implementation: Allocating Space for Commercial Loading Zones in Washington, D.C. As highlighted previously in this report, DDOT has a now well-established Commercial Loading Zone Management Program. Carriers are able to obtain information about loading zones using an interactive map and can pay the loading zone fee a variety of different ways, including a pay-by-phone option for hourly access. The locations of loading zones are determined by DDOT’s own data analysis but freight industry stakeholders and Business Improvement Districts are also invited to make suggestions about loading zone placement (District Department of Source: Jack Kolpitcke for Unsplash Transportation, n.d.). Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 45 Loading Implementation: Restricting Parking and Commercial Loading to Reduce Congestion in New York City, NY As part of its Congestion for the “expeditious” pick-up Action Plan, the New York City and drop-off of passengers, as Department of Transportation well for deliveries to off-street launched a 2018 “Clear Curbs” loading docks (New York City initiative at three pilot locations: Department of Transportation, Midtown, Flatbush Ave., and 2018). However, the project Roosevelt Ave. (New York City ended five weeks earlier than Department of Transportation, scheduled after many local 2018). The idea was to business owners complained restrict curbside parking and that the pilot was hurting commercial loading on both business due to their inability to sides of the street during peak receive curbside deliveries and weekday hours (7-10 a.m. and because it was off-putting to 4-7 p.m.) in order to reduce customers (Charlesworth, 2018). congestion. The pilot did allow Loading Implementation: Using e-Cargo Bikes for Urban Goods Delivery UPS announced in October 2018 that it would launch an e-cargo bike package delivery pilot in downtown Seattle near Pike Place Market, in partnership with the Seattle Department of Transportation and the University of Washington’s Urban Freight Lab. The idea is that one trailer will be parked in a centralized location and e-cargo bikes will be deployed from there in order to make deliveries in urban environments that would otherwise be difficult for conventional trucks to access. The e-cargo bikes will operate in bike lanes as opposed to vehicle travel lanes, helping to reduce congestion and reduce instances of double-parking (UPS Pressroom, 2018). Portland and Vancouver are also working Source: UPS on similar pilot projects with UPS. 46 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Takeaways for Space Allocation Anecdotal evidence from the passenger loading zone pilots suggests that managing passenger pick-up is easier than managing drop-off. Passengers have more control over where they are dropped off and may ask a driver to stop outside of a designated zone. Drivers are likely to accommodate these requests to avoid a negative rating. Thus far, most passenger loading zone pilot projects are focused on areas with pockets of concentrated entertainment and most are time- limited (i.e., only enforced during certain hours). There is little information available about other high-demand land uses such as high-density residential, hotels, hospitals or doctor offices, for example. There are promising results in terms of desired outcomes related to safety and traffic flow, but there are also challenges. Creating widespread awareness about the location of these zones has been one such challenge. In D.C., cones were set out to help direct drivers to the designated loading zones. It is important that flex zones be intuitive. For instance, if an area allows for parking during the day but restricts parking in the evening, signage should be clear and not overly complicated. None of the passenger loading zone pilots yet undertaken have included a price component, such as by levying a fee to access a designated loading zone. However, pricing is likely to be addressed in the next round of passenger loading zone pilots. The involvement of stakeholders is critical to a successful program or pilot. The outcome of the Clear Curbs NYC project illustrates how important stakeholder involvement is. Business owners asserted that customers were staying away due to the lack of parking and because they were being ticketed. Perhaps a contextualization of the parking restrictions or a more concerted effort to provide information about where to park and make deliveries during the restricted hours might have helped. The UPS e-cargo bike pilot is just getting underway. While there are no lessons available yet, looking for ways to move away from gasoline- powered vehicles for deliveries in dense urban areas appears to be promising. Courier network services/urban delivery have not been the focus of any identified pilots or projects to date. No pilots were identified that prioritized pick-up/drop-off for HOVs but that is something that could be considered. Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 47 REGULATION AND POLICY Cities use a variety of tools and mechanism to achieve their goals. Requiring certain behavior or activities is one of the most direct ways to do so. Pricing is another effective tool. Pricing Pricing is a regulatory mechanism that can be used to influence mode choice. Pricing can help maximize efficiency by communicating right- of-way and/or parking supply constraints. Traditionally, efforts to price curb access have been mostly limited to parking fees—which can be flat or variable rates. As new mobility technologies have been introduced cities have begun experimenting with other pricing mechanisms such as “ride fees.” However, these fees apply to trips rather than curb access at specific locales. Cities are also discussing instituting “micro-parking” or “curb-kiss” fees geared towards charging vehicles for the use of passenger loading zones for very short periods of time. While regularly used at airports, these efforts are nascent throughout cities. Pricing Implementation: Two-Tier Curb Pricing for TNCs at San Francisco International Airport to Manage Congestion at Arrivals Gate Many airports charge TNCs to access the passenger loading zones, including the San Francisco International Airport (SFO). However, SFO updated its fee structure in June 2018 in an attempt to better manage congestion at the curb. They instituted a two-tiered fee structure for TNC pick-ups—passengers picked up curbside pay a $5 fee, but passengers can choose to meet their TNC driver in a nearby parking garage for a reduced fee of $3.60. As part of the change, SFO also required shared TNC services like UberPool and LyftLine to pick up passengers in the parking garage because of additional coordination time required (McGinnis & Jue, 2018). According to a spokesperson for the airport, the new fees have helped divert 20% of TNC traffic from the arrivals gate to the Source: Duke Cullinan for Unsplash parking garage (Marshall, 2018). 48 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Pricing research: “Curb-Kiss” Fee Discussion by the International Transport Forum The International Transport Forum released These ‘curb-kiss’ fees could be gradated by the report “The Shared Use City: Managing occupancy, type of services, by time of day the Curb” in 2018. In it, they note that as a city and by location. If they are applied based on becomes more parking “light” and more pick- duration (for freight) or number of passengers, up/drop-off “heavy” that traffic may be more they would incentive shared uses over solo use” difficult to manage (International Transport (International Transport Forum, 2018, p. 58). Forum, 2018). They suggest that a pricing They do note that the ability to levy such a fee mechanism may need to be in place for pick- would require digital infrastructure, regulatory up/drop-off: a “curb-kiss fee could be digitally language, compliance and enforcement regimes, triggered every time a vehicle operates a and data standards. As a result, no cities have meaningful transaction at the curb... yet to implement a fee of this nature. Source: Matt Alaniz for Unsplash Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 49 Zoning Cities are just beginning to consider how emerging technologies will change land uses and how zoning codes may need to adapt. Zoning codes impact the design of the street through requirements like curb cuts for parking. Minimum parking requirements may be one of the first zoning regulations that cities tackle. To date, the City of Chandler, AZ appears to be the only city that is allowing developers to reduce minimum parking requirements by creating loading zones based on the deployment of AVs. Zoning Implementation: Zoning Amendments in Chandler, AZ With the support of the study that could include mayor and city council, projected demand for the City of Chandler, AZ passenger loading zones, adopted zoning amendments projected demand for staging in March 2018 that allows area spaces for TNCs or AVs, developers to apply for up to and/or projected demand for a 40% reduction in parking short-term parking spaces for waymo operates in exchange for creating a couriers, restaurant delivery, commercially deployed loading zone (City of Chandler, and similar uses. 2018). In order to determine avs in chandler, az the building square footage City staff acknowledged that through its waymo one to loading zone ratios city this information is not readily planners looked to nearby available as yet since cities are program cities’ on-street loading zones still struggling to understand requirements for guidance. usage. However, they noted No cap was placed on the that the zoning amendments number of loading zones are meant to be a jumping per block, so if multiple off point and they can be developers choose to apply amended as new infromation for a parking reduction on becomes available. The idea the same block they would is to get in front of parking theoretically be allowed to. changes and prepare for more changes to come by Developers may be required increasing flexibility within the to submit a parking demand code. 50 | New Mobility in the Right-of-Way | March 2019 | Section 5 Urbanism Next | University of Oregon Takeaways for regulation and policy Evidence from SFO suggests that the two-tier TNC pricing is helping reduce congestion, but it may still be too soon to know whether there is enough of a price difference to change behavior. There are still a number of challenges to creating a “curb-kiss” fee, so there are no implementation examples yet. However, there are discussions being had about how this might work and the next phase of TNC loading zone pilots may offer some insights if pricing is a component. Zoning code amendments adopted in Chandler, AZ may be preemptive since more information is likely needed in order to create parking to loading zone ratios. An alternative approach could be to abolish minimum parking requirements altogether, but that does not necessarily result in the creation of loading zones. Chandler’s approach is a way to try and proactively plan for the future while accounting for the need for some flexibility down the line. Source: Waymo Urbanism Next | University of Oregon Section 5 | New Mobility in the Right-of-Way | March 2019 | 51 Urbanism Next | University of Oregon 06 | EMERGING THEMES and RESEARCH GAPS New Mobility in the Right-of-Way | March 2019 | 53 Emerging Themes In November, representatives from the Cities of Portland, Seattle, and Vancouver gathered for a one-day workshop centered on curb management and discussed emerging technologies and the opportunities and the challenges they see in the road ahead. An overarching theme of the discussion was that emerging technologies will need to be proactively shaped by cities in order to take advantage of the opportunities presented. The emerging themes are organized by the four categories presented in Section 5. Planning/Visioning Opportunities for Regional Collaboration and Coordination The Cities of Portland, Seattle, and Vancouver are already closely aligned in many regards with all three cities having adopted a “people first” approach to transportation and mobility. During the workshop, city representatives discussed opportunities to continue to work together and the benefits that regional collaboration could yield moving forward. For instance, speaking with a regionally unified voice could prove useful in negotiations with mobility service providers. The cities could also potentially maximize limited staff resources and funding via pilot project coordination and data sharing. While pilot projects are context-specific in design and results from one place may not be exactly replicable in another, some pilot elements are usually transferable in principle and practice. The cities intend to share data and findings where applicable. Data Collection Opportunity to Gather Baseline Data in Vancouver The Province of British Columbia is currently working on enabling legislation for transportation network companies, but that process is still underway. As a result, TNCs are not yet operating in Vancouver, putting the city in a very unique position. Unlike many U.S. cities, Vancouver has the opportunity to collect incredibly valuable baseline data in advance of TNC deployment. City representatives stressed how valuable it would be not just for Vancouver, but for many cities to be able to see those baseline metrics. Challenge of Collecting and Accessing Data City representatives expressed concern about the possibility of not being able to collect and/or access the data they need to make informed decisions pertaining to curb management. Acquiring data from private new mobility companies is a growing challenge. However, there have been some promising developments in the realm of data sharing with the work being done to create open data platforms by the Los Angeles Department of Transportation with the Mobility Data Specification, and SharedStreets. 54 | New Mobility in the Right-of-Way | March 2019 | Section 6 Urbanism Next | University of Oregon Space Allocation Near-Term Opportunities to Conduct Passenger Loading Zone Pilots Passenger loading zone pilots are likely the most easily implementable in the next 12-18 months, and the cities may consider pilot projects like those undertaken by Washington, D.C., Ft. Lauderdale, FL, and others. A person- first approach to a loading zone pilot could prioritize high occupancy/multiple passenger loading over single passenger loading. Regulation and Policy Opportunity to Manage Mobility Comprehensively Historically, the focus of right-of-way and curb management has been on traffic management as opposed to mobility in general. As a result, private vehicles have traditionally been prioritized. The era of new mobility is helping to spur conversations about mobility management in a much broader sense. City officials are viewing this as an important opportunity to rethink street design. Traditional metrics such as level-of-service (LOS) and vehicle throughput are being reconsidered, and some jurisdictions are moving towards metrics that more closely align with desired outcomes, such as vehicle miles/kilometers traveled and person throughput. Challenges Posed by Preemption City representatives acknowledged that federal and/or state/province preemptions could pose serious challenges to the cities’ abilities to enact regulations that might otherwise enable them greater control over management of new mobility in the right-of-way. For instance, every U.S. state—with the exception of Oregon—has adopted a statewide law regulating transportation network companies in some fashion, thereby preempting local authorities to varying extents (James, 2018). This is not unto itself a bad thing, and a representative from Lyft reiterated that it would be incredibly difficult to operate if every jurisdiction had its own regulatory framework. However, statewide regulations that preempt local authorities can effectively eliminate important leverage points at the local level. To that end, city representatives discussed the importance of also focusing on the areas where local authorities have jurisdiction. For instance, cities do already have the ability to pedestrianize the street and prioritize active modes over private vehicles. Challenges Posed by Vertical Integration of Private Mobility Services Uber recently acquired the e-bikeshare and e-scooter company Jump, and Lyft acquired the bikeshare provider Motivate. Both companies are also expanding their services to include e-scooters. While there are benefits from this kind of vertical integration of mobility, particularly with regards to encouraging users to not just rely on vehicle trips, there are also challenges. City representatives expressed concern about the ways in which vertical integration by a handful of private mobility providers could have potentially negative impacts on the cities’ abilities to achieve mobility equity, and other important outcomes. Urbanism Next | University of Oregon Section 6 | New Mobility in the Right-of-Way | March 2019 | 55 Research Gaps Interest in curb management is piquing, and discussion, a number of research gaps have been there are a number of efforts underway to better identified. These research gaps are organized by understand how the curb is conceptualized, the primary categories previously identified, and managed, and used. However, many questions Urbanism Next has briefly summarized the needed remain. Based on the literature review, policy and research. pilot project review, interviews, and workshop Data Collection In-service TNCs and Deadheading Gaps: Needed research: Information about the total number of in-service TNCs on Data analysis of TNC deployment; the road without passengers (e.g., drivers waiting for a surveys of TNC driver behaviors; new trip request). spatial analysis of TNC vehicles or Information about usage of parking spaces of in- proxies by observing key corridors. service TNCs between passengers and parking locations. Impact of deadheading (distance driven to pick up passenger from a requested location or between passenger trips) on total VMT/VKT. courier network services (e.g. ubereats, Grubhub , amazon flex) Gaps: Needed research: Information about the frequency of deliveries, dwell times, Data analysis of courier network hours and locations of peak demand, delivery patterns, services spatial data; proxies: vehicle type, and curb usage by courier network observing key corridors. services. Delivery-Dependent Small Businesses Gaps: Needed research: Understanding the freight and delivery needs of delivery- Surveys of small businesses. dependent small businesses. 56 | New Mobility in the Right-of-Way | March 2019 | Section 6 Urbanism Next | University of Oregon Adoption Rates and Users of New Mobility Technologies Gaps: Needed research: Additional information about the adoption rate of new Surveys of residents; secondary mobility technologies and the socio-demographics of analysis of survey data. the users. Dedicated Passenger Loading Zones and Trip Patterns Gaps: Needed research: Understanding whether or not the existence of dedicated Observational data paired with passenger loading zones increases overall vehicle trips streets with and without passenger and/or impacts mode choice. loading zones or before/after passenger loading zones. Source: Dan Gold for Unsplash Urbanism Next | University of Oregon Section 6 | New Mobility in the Right-of-Way | March 2019 | 57 Space Allocation ELECTRIC AND NON-ELECTRIC Mode Interactions Gaps: Needed research: Understanding how to manage the interactions between Design analysis to examine ideal electric (e.g., e-scooters) and non-electric modes. placement for charging depots. Understanding the role of the ROW management in enabling electric modes (e.g. EV charging in the ROW, charging depots, etc.). On-Street vs. Off-Street Loading Zones Gaps: Needed research: Understanding the mode conflicts that arise in on-street Observational data comparing on- passenger loading zones and if/how they compare to street and off-street loading. off-street loading zones (e.g., private bays, docks, etc.). Understanding what opportunities exist to increase off-street goods loading. Source: Fred Joe for Urbanism Next 58 | New Mobility in the Right-of-Way | March 2019 | Section 6 Urbanism Next | University of Oregon Regulation and Policy Pricing and Behavior Gaps: Needed research: Understanding the appropriate pricing for different uses of Surveys of willingness to pay the curb that achieve the desired outcomes of nudging for curb usage; impact analyses; users toward higher occupancy, lower carbon modes observational data comparing of travel. before/after curb usage by mode and Understanding what income-sensitive mechanisms occupancy. in curb pricing are needed in order to mitigate existing disparities. Zoning Mechanisms Gaps: Needed research: Understanding of the potential to use zoning mechanisms Observational data: passenger/ to incentivize off-street loading zones and what loading goods loading trip counts by land use zone formulas might be appropriate. and place type, including a temporal component. Enforcement Gaps: Needed research: Understanding the most effective and efficient Policy review examining how bus/ enforcement of changes to the curb given limitations of transit only lanes are enforced in city staff and budgeting constraints. different jurisdictions; interviews with jurisdictions that have implemented curb pilots. Urbanism Next | University of Oregon Section 6 | New Mobility in the Right-of-Way | March 2019 | 59 Urbanism Next | University of Oregon Conclusion Congested streets are not a new phenomenon. Curb management is not new either—cities have long regulated this space. However, new mobility technologies are changing the demand for the curb. The curb is a finite resource and it needs to be managed more comprehensively than it has been in the past. This means looking at its various uses and then prioritizing those uses in ways that are most likely to achieve desired outcomes. 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