TASK 4.0 – PURPOSE AND NEED STATEMENT

Mayagüez Transit Study
TASK 4.0 – PURPOSE AND NEED STATEMENT
Prepared For:
Municipality of Mayagüez
Economic Development Office
archUD-AECOM
February 2015
Table of Contents
1.
Introduction ................................................................................................................... 1
1.1
1.2
1.3
2.
Project Purpose .............................................................................................................. 1
Project History ................................................................................................................ 3
Project Setting ................................................................................................................ 3
1.3.1 Land Use ........................................................................................................... 3
1.3.2 Zoning ............................................................................................................... 6
1.3.3 Population and Employment............................................................................... 9
1.3.4 Traffic .............................................................................................................. 12
1.3.5 Transit Network ................................................................................................ 17
Problem Statement ...................................................................................................... 21
2.1
2.2
Goals and Objectives.................................................................................................... 22
Conclusion and Process Summary ............................................................................... 23
List of Tables
Table 1: Average Daily Traffic and Heavy Vehicle Percent, PR-2 ........................................................... 13
Table 2: Average Daily Traffic and Heavy Vehicle Percent, PR-2R......................................................... 15
Table 3: Average Daily Traffic and Heavy Vehicle Percent, East-West Corridor...................................... 16
List of Figures
Figure 1: Project Corridors ....................................................................................................................... 2
Figure 2: Existing Land Use Map ............................................................................................................. 6
Figure 3: Zoning Map............................................................................................................................... 8
Figure 4: 2012 Population Density by Census Tract ................................................................................. 9
Figure 5: 2012 Median Household Income by Census Tract................................................................... 10
Figure 6: 2000-2012 Labor Force and Employment Trends .................................................................... 11
Figure 7: 2012 Percent of Workers Living and Working in Mayagüez by Census Tract ........................... 12
Figure 8: Existing and Future No-Build LOS for AM and PM Peak Hours, PR-2...................................... 14
Figure 9: Existing and Future No-Build LOS for AM and PM Peak Hours, PR-2R ................................... 15
Figure 10: Existing and Future No-Build LOS for AM and PM Peak Hours, East-West Corridor .............. 17
Figure 11: TIM Downtown Routes .......................................................................................................... 18
Figure 12: TIM Rural Routes.................................................................................................................. 19
Figure 13: UPR Mayagüez Trolley Colegial Transit Routes .................................................................... 20
Figure 14: Alternatives Analysis Process ............................................................................................... 23
i
Purpose and Need Statement
1.
Introduction
This document establishes the Purpose and Need for transportation investment in the Municipality of
Mayagüez, Puerto Rico. An Alternatives Analysis (AA), entitled the Mayagüez Transit Study (MTS), has
been initiated in a study area encompassing two corridors. The Purpose and Need Statement outlines
the reasons for proposing a project and the underlying needs for a project. The Purpose and Need
Statement acts as the foundation of the planning process. It provides the rationale and justification for
undertaking an important transportation investment and forms the basis for the range of alternatives to be
studied. This Purpose and Need Statement also includes Goals and Objectives, which focus on related
issues reflecting environmental, community, and transportation values.
The Purpose and Need Statement embodies observable and data-supported transportation conditions, as
well as problems, opportunities, and needs articulated by the public, stakeholders, and the Municipality of
Mayagüez. Public and stakeholder input regarding problems, opportunities, and needs will occur as an
integral part of the public involvement process for this AA. This Purpose and Need Statement presents
the purpose of the proposed project, documents the deficiencies in the existing transportation system,
and the foreseeable long-term consequences of those deficiencies, and describes the needs arising from
those deficiencies that support the project purpose. The Purpose and Need Statement serves as a
cornerstone for the development and evaluation of alternatives proposed as potential solutions to
identified deficiencies.
1.1
Project Purpose
The Municipality of Mayagüez, as elucidated in its 2005 Plan de Ordenación Territorial (POT), desires to
“transform Mayagüez into an accessible, livable city.” In support of this goal, the POT promotes the
development of an efficient, dependable multi-modal transportation system, providing new facilities for
pedestrian and bicycle activity and transit, with a particular focus on the aging population and population
of students.
The purpose of the MTS is to improve the travel speed, reliability, safety, and convenience of transit
service in the metropolitan area, linking existing and emerging activity centers in the downtown area with
established and emerging activity centers along the north-south PR-2 corridor. The project will better
serve existing transit riders, attract new transit patrons, improve connections between different services,
and support redevelopment and other economic development opportunities. Importantly, it will also serve
to improve livability by increasing mobility and accessibility for all residents in communities throughout the
study area.
Two inter-related corridors have been identified for study within the context of this AA: a North-South
Corridor, encompassing both PR-2 (a regional primary arterial/highway) and PR-2R (a local arterial), the
two major north-south routes through the municipality, and an East-West Corridor, centering on
Candelaria and Méndez Vigo Streets, the pair of one-way roads providing access to/from the town core
(see Figure 1). Both of these corridors represent the historical access routes in and out of the municipality
for the past century. The construction of PR-2 in the 1960s followed much of the alignment originally
developed for the freight and passenger railroad which facilitated movement around Puerto Rico (“the
island”), between San Juan on the north coast, Mayagüez on the west coast, and Ponce on the south
coast.
1
Figure 1: Project Corridors
2
1.2
Project History
In February 2005, a document entitled Existing Conditions Report was published by the Puerto Rico
Highway and Transportation Authority (PRHTA), at the behest of the Municipality of Mayagüez. As a
result of this report, a planning and feasibility study for a transit corridor in the Mayagüez Central District
was then completed. The results of this study, entitled Alternatives Evaluation Report, were finalized in
July 2007.
In 2010, the Central American Games were held in Mayagüez. A bus transit system was implemented
during the two weeks of sports competition in order to mitigate projected traffic congestion, primarily as a
result of spectators attending from all over Central America and the Caribbean. This system was deemed
highly effective at mitigating traffic impacts.
The success of the bus system during the Central American Games increased the awareness of and
support for transit in the municipality. This, in turn, led to the reorganization and improvement over the
last three years of the existing municipal bus system. This AA process furthers the development of the
municipal transit system, building on the past studies and more recent operational experience.
1.3
Project Setting
Over the past three years, the Municipality of Mayagüez has been dramatically improving its bus/van
system, primarily in response to latent demand. The system currently consists of four routes (three loop
routes operating in proximity to downtown and a fourth along the coast to the northwest). In addition to
this municipal service, University of Puerto Rico (UPR) Mayagüez runs five shuttle routes, some of which
extend beyond the campus to the downtown and other nearby areas. At present, UPR shuttle service is
not consistently available, since the vehicles used for this service also have other responsibilities.
In addition to these two services, a number of público routes operate in and around the municipality. Two
routes extend between downtown Mayagüez to the barrios (large neighborhoods) to the east and
southeast. However, the most well used público service operates without a fixed schedule, in a partially
on-demand/curb-to-curb fashion within certain zones/subareas of the downtown and its surroundings.
Additionally, long-distance público routes provide service to San Juan, Ponce, and other destinations
outside the municipality. Público service operates under permit, issued by the Department of
Transportation and Public Works (DTPW).
Mayagüez’s geographic area covers 55.9 square miles, excluding the uninhabited offshore islands of
Mona, Monito, and Desecheo. The following subsections describe the existing and expected future land
use patterns, projected population and employment conditions, traffic conditions, existing transit services,
and the state of transit system connectivity, which provide the context for the project need.
1.3.1 Land Use
th
The Municipality of Mayagüez experienced strong development activity in the second half of the 20
century, following the replacement of the long-distance railroad (north-south) and local trolley system
(east-west) by the private vehicle. New suburban development presented an alternative to traditional
urban settings, in many instances related to the availability of industrial job opportunities and commercial
developments along primary highways and in the port zone. While the North-South and East-West
Corridors overlap near the downtown core, outside this overlap area the two corridors generally present
quite different land use patterns. Figure 2 presents a map of the existing land use within the study area.
3
North-South Corridor
Centered along PR-2, the North-South Corridor is seven miles (11.3 kilometers) long, more than five
times the length of the East-West Corridor. The corridor is essentially a suburban, auto-oriented area,
evolving since the mid-1950s with an ambiguous, dual role: accommodating regional traffic through and
into Mayagüez and providing access to the city’s suburbs beyond its traditional town limits. The corridor
contains new subdivisions (urbanizaciones), as well as new satellite government centers and commercial
developments, colonized agricultural land, and environmentally sensitive areas in a loose, fragmented
pattern.
PR-2 through the North-South Corridor can be divided into three segments, each with similar land uses:
1. North (Western Plaza shopping mall to UPR): This segment, in which PR-2 operates as a limited
access highway, lies primarily in the barrios of Sabaneta, Algarrobos, and Miradero. It is
characterized by an incomplete grid of streets, compared to the central and south segments.
Commercial uses are sparsely distributed along fragmented frontage roads, with residential uses
mostly sitting substantially back from PR-2. The fragmentation is due to existing topography,
large forested areas, and historical development. In general, the eastern side of the segment is
occupied by newer middle-class subdivisions, while the western side is generally older, working
class or low-income communities.
2. Central (UPR to Nenadich Street): This central segment encompasses the UPR campus and the
town center. The primary government, institutional, and cultural uses of Mayagüez are also
concentrated in this segment of the corridor.
3. South (Nenadich Street to Mayagüez Mall): The main activity generators in the south segment
are the Mayagüez Judicial Center, the Dr. Ramón Emeterio Betances Hospital (Mayagüez
Medical Center), and, at the southern end of the corridor, the Mayagüez Mall. Due in part to the
presence of creeks, wetlands, and other sensitive environmental resources, this segment is
characterized by a fragmented land use pattern, with limited north-south connections other than
those provided by PR-2 itself and its incomplete frontage roads. Compared to the north PR-2
segment, the south segment has a more dense suburban fabric.
PR-2R also traverses the North-South Corridor, east of PR-2 through the downtown core. This route
diverges from PR-2 north of downtown at the San Juan Street intersection. South of PR-2R, opposite the
UPR Mayagüez campus, land uses include the brewery, the northern part of the Barcelona district, and
the Ensanche Vivaldi neighborhood. After passing the UPR campus, the route turns south across the
Yagüez River into the downtown core.
PR-2R runs north-south across the town center, intersecting Méndez Vigo/Candelaria (the spine of the
East-West Corridor), De Diego, Nenadich, and other east-west streets, encompassing most of the central
historic district’s commercial, institutional, cultural, medical, and mixed-use destinations. South of
Nenadich Street to the PR-2R/Cabassa Avenue intersection, land uses fronting PR-2R are mostly
commercial and light industrial, with some institutional uses set out in uneven distribution and density,
including the Municipal Asylum, churches, and the historic municipal cemetery. The local street network
offers only limited connectivity. On the east side of PR-2R are the Santurce neighborhood, the
Urbanización Alemany subdivision, and Yagüez Public Housing; all are densely populated, transitdependent communities. Parts of this area, along the Majagual Creek, reflect great structural
deterioration, due to poor soils and drainage conditions.
PR-2R turns west on Cabassa Avenue, returning to PR-2 in the vicinity of the Medical Center. Along
Cabassa Avenue, where PR-2R turns west, the main activity generator is the Mayagüez Judicial Center,
near the PR-2/Cabassa Avenue intersection. The undeveloped property north of Cabassa Avenue is a
protected wetland resource. Of particular importance is the Mayagüez Medical Center/Betances Hospital,
on the west side of PR-2 at the first intersection south of Cabassa Avenue.
4
PR-64/PR-102 also runs through the North-South Corridor along the coastal edge of the municipality.
This route passes a few key regional destinations, such as the Mayagüez Port Zone, Litoral Park, and the
Centroamerican Sports Complex (Isidoro García and José A. Figueroa Freyre Stadiums).
East-West Corridor
The East-West Corridor includes the area surrounding the two arterial streets, Méndez Vigo and
Candelaria, which run east-west across the traditional town center of Mayagüez (the central zone of
Barrio Pueblo). Oriente Street (PR-105) lies at the eastern end of the corridor and PR-102 and Litoral
Park sit at the western limit. The length of the corridor is approximately 1.3 miles (2.1 kilometers),
bisected by the PR-2 viaduct (Eugenio María de Hostos Avenue). The area east of the viaduct comprises
the historic core of the town: Plaza Colón, governmental/institutional buildings, and a series of traditional
neighborhoods with varying combinations of uses (commercial, institutional, residential, and cultural). The
area west of the viaduct remains predominantly a commercial/warehouse district. This area was the
center of port and mercantile activities until 1932, when the Port of Mayagüez was relocated north of the
Yagüez River.
The street grid layout reflects a relationship with key geographical features, starting perpendicular to the
coast in the former port zone, gradually shifting angles in response to the alignment of the river, as well
as to the topographical narrowing of the valley created by the mountains. Consistent with the port’s
historic commercial activities, block sizes are significantly larger west of the viaduct, and even east of the
viaduct blocks retain long east-west dimensions compared to the traditional town center and its
extensions. Presently, seven bridges (one limited to pedestrian use) connect the traditional town center to
areas north of the river.
The East-West Corridor is characterized in general by a commercial/mixed use zone along Candelaria
and Méndez Vigo Streets, with residential neighborhoods and developments distributed north and south
of this spine. The central spine lies at a higher elevation than the adjoining north and south areas and the
waterfront. The East-West Corridor can be divided into three geographic segments, each with similar land
use patterns:
1. East (Oriente Street to Martínez Nadal Street): This area contains several dense neighborhoods
with a mix of residential and service-related uses (community support, workshops, recreation).
2. Central (Martínez Nadal Street to the PR-2 viaduct): The primary government, institutional, and
cultural uses of Mayagüez are concentrated in this area.
3. West (the PR-2 viaduct to PR-102): Land uses along the spine of both Candelaria and Méndez
Vigo Streets are mainly commercial and warehousing. Some of the structures are of historic
significance, such as the US Customs House on Comercio Street. New uses, especially west of
San Juan Street towards the former La Playa/La Marina warehouse district, are tourism-oriented,
with a recent expansion of restaurant activity.
West of PR-2, many formerly active commercial and/or industrial buildings remain vacant with small-scale
commercial developments randomly sited in the area. As the East-West Corridor reaches the coast,
more activity is present, mostly of a commercial nature. As of 2010, recreational uses were introduced, reactivating the coastline, attracting more regular use of the area. The only residential component present
west of PR-2, along the edge of the East-West Corridor, is the medium-density, low-income community of
Dulces Labios.
5
Figure 2: Existing Land Use Map
6
1.3.2 Zoning
Figure 3 presents a map of existing zoning classifications. Zoning classifications along the existing and
proposed transit corridors were developed with transit-oriented development (TOD) principles interwoven.
However, basic TOD principles incorporated in the latest municipal planning regulations cannot quickly
overturn the momentum that the private vehicle has sustained since the mid-20th century.
North-South Corridor
Along the North-South Corridor, residential districts predominate in the areas set back from the main
roadway, while commercial districts are concentrated around principal intersections. The zoning map
does not reflect formal or informal conversions from residential to commercial uses along PR-2 frontage
roads. Areas zoned for Public Uses include the Mayagüez Airport, the Medical and Judicial Centers, and
cemeteries, while the lands occupied by the Port of Mayagüez and several existing or proposed industrial
parks are zoned Industrial.
East-West Corridor
For the East-West Corridor, the predominant zoning is commercial, as well as medium- and high-density
residential. The commercial districts, with few exceptions, allow for combined residential uses, making
them, effectively, mixed-use districts, concentrated along the main streets including Candelaria, Méndez
Vigo, PR-102, PR-2R, Martínez Nadal, and Balboa. In the Ensanche Martínez area, the Public Use
category is predominant, which mostly relates to the concentration of medical facilities, schools, and
related support services. To the south, there are also Public Use districts comprising the Government
Center, schools and parks, while along the Bay, Litoral Park and its associated sports facilities fall into the
Public Use district. North of the town center, the extensive UPR campus and the Mayagüez Zoo are also
zoned Public Use. Since Mayagüez is a university town, the amount of land zoned for education facilities
(Public Use) is substantially more than in a typical Puerto Rican municipality.
7
Figure 3: Zoning Map
8
1.3.3 Population and Employment
This section examines current conditions and historic trends in demographic, socioeconomic, and
employment characteristics in the study area.
Demographic Trends
The Municipality of Mayagüez has exhibited a mixed pattern in its population dynamics over time. Except
for small reductions in the 1920s and 1960s, up to the 1990s Mayagüez showed impressive growth rates
in its population. However, starting in 2000, the population has trended downward. This trend is
consistent with that observed for the entire population of Puerto Rico, resulting from lower birth rates and
growing emigration.1 While extended projections to 2020 and 2040 indicate that population will continue
to decline, the rate will decrease largely as a result of diminished emigration. The 2040 Long Range
Transportation Plan (August 2013) projects that the population of Mayagüez will reach 82,051 in 2040.
Correspondingly, between 2000 and 2010 the number of households in the Municipality of Mayagüez
declined from 34,731 to 32,521 (a reduction of 6.4 percent). Simultaneously, the average size of
households decreased from 2.83 persons in 2000 to 2.74 persons in 2010 (a reduction of 3.5 percent).
Based on the 2010 Census, the municipality exhibits a population density of 1,664 persons per square
mile, substantially higher than for Puerto Rico as a whole (1,088 persons per square mile). When looking
at population density at a lower geographic level (census tract), it can be seen that a group of high
density census tracts is clustered around the central core/intersection of the North-South and East-West
Corridors (see Figure 4).
Figure 4: 2012 Population Density by Census Tract
Source: US Census; 2008-2012 Five - Year ACS.
1
Raúl Figueroa Rodríguez and Judith Rodríguez Figueroa, ACP Group, Estudio Demográfico y Poblacional, Municipio
Autónomo de Mayagüez, February 2014.
9
Socioeconomic Trends
Figure 5 examines median household income at the census tract level. In the study area core, median
household income ranges between $2,800 and $12,200 annually. This concentration of lower income
households is also reflected and reinforced by the distribution of population below poverty level by census
tract and the distribution of zero-vehicle households (see Appendix C of the Existing and Future No-Build
Facilities report for related figures).
Figure 5: 2012 Median Household Income by Census Tract
Source: US Census; 2008-2012 Five - Year ACS.
Employment Trends
Labor market dynamics in the Municipality of Mayagüez do not differ substantially from those observed
for Puerto Rico as a whole during the last decade. The labor market in Mayagüez, as well as for Puerto
Rico, has been characterized by both declining participation and declining numbers of jobs over the last
13 years. As a result of the declining participation, unemployment rates have remained relatively stable,
even dropping, during the last few years. While total employment has dropped from 29,700 jobs in 2000
to 21,500 in 2013, a reduction of 27.6%, the unemployment rate has also lowered from a peak of 18.4%
in 2011 to 16.6% in 2013.
This reduction in the active labor force is the result of two factors interacting – limited employment
opportunities and a reduction in the working population. The lack of existing employment opportunities
discourages segments of the population of people 16 years old or more, the population potentially able to
work, from participating in the labor market. Therefore, the overall participation rate and the absolute
number of persons comprising the local labor force drop. Figure 6 depicts the behavior of labor
participation, employment, and unemployment rates in the Municipality of Mayagüez for the years 2000 to
2012 (US Census, American Community Survey). As observed with the labor participation rate, as well as
the employment rate, a descending trend started in the 2005-2007 reporting period. This negative growth
10
trend for both variables, illustrated by the lighter colored trend lines, remains unchanged through reporting
years 2010-2012.
Figure 6: 2000-2012 Labor Force and Employment Trends
50.0%
45.0%
Participation Rate
40.0%
35.0%
Employment Rate
30.0%
Unemployment Rate
25.0%
2 per. Mov. Avg.
(Participation Rate)
20.0%
2 per. Mov. Avg.
(Employment Rate)
2 per. Mov. Avg.
(Unemployment Rate)
15.0%
10.0%
5.0%
0.0%
In addition to declining labor participation, a second factor influencing these dynamics is the change in the
age structure of the local and island-wide population during the last two decades. Puerto Rico’s
population is undergoing an aging process that progressively subtracts resources from the stream that
feeds its labor market. This trend is aggravated by the significant emigration observed during the last few
years, composed in substantial proportion of the younger working population in their most productive
years.
11
Labor Mobility
The US Census 2008-2012 5-year American Community Survey (ACS) included data indicating
municipality of residence and work (see Figure 7). Of the total 22,209 work force participants 16 years
and older, 17,524 (78.9 percent) both live and work in Mayagüez.
Figure 7: 2012 Percent of Workers Living and Working in Mayagüez by Census Tract
Source: US Census; 2008-2012 Five - Year ACS.
1.3.4 Traffic
This section discusses traffic analyses for Existing and Future (defined as Year 2018) No-Build conditions
for the North-South (PR-2 and PR-2R) and East-West (Méndez Vigo/Candelaria Streets) Corridors. A
traffic model was developed for assessing Existing intersection delay, vehicle queuing, and level of
service (LOS). This model was then modified to calculate delay queuing and LOS for 2018 Future NoBuild Conditions. Future No-Build Conditions are an approximation of what traffic conditions would be
like when proposed bus rapid transit (BRT) service resulting from the MTS might begin service.
Additional approach and methodology information and detailed tables of results can be found in the
Existing and Future No-Build Facilities report and appendices.
Larger increases in delay are experienced where intersections are at or over capacity. Vehicle delay at
most of the study intersections would increase from Existing to Future No-Build conditions as a result of
traffic volume increases. Level of Service (LOS) at most study intersections would remain in the same
range for Existing and Future No-Build conditions: LOS A-D (acceptable conditions); LOS E or F
(deficient conditions).
In concert with the level of service analysis, the length of the backup of vehicles (queue length) on
approaches to the study intersections was also analyzed. Larger increases in queue length are
experienced where intersections are at capacity or over capacity. Vehicle queue lengths at study
intersection approaches would increase from Existing to Future No-Build conditions as a result of traffic
volume increases. At study intersections below capacity, queue lengths would generally increase by 200
feet or less between Existing and Future No-Build conditions. Queue lengths at intersections over
12
capacity would generally increase in the range of 200 to 300 feet. Intersections where queue lengths
would extend back to the adjacent intersection in the Future No-Build condition are listed in the following
sections.
North-South Corridor (PR-2)
PR-2 in the North-South Corridor includes 20 signalized intersections over its seven mile (11.3 kilometers)
length. Two additional signalized intersections, Intersections 10 and 11, are part of the North-South
corridor, but are at-grade, level with the East-West Corridor below the viaduct. Based on the available
2010 data provided by PRHTA, the AM peak hour occurs between 7:15-8:15 AM with an average traffic
volume of 5,303 vehicles per hour (vph) through each of the twenty intersections in the corridor. The PM
peak hour of traffic occurs between 4:00-5:00 PM with an average traffic volume of 5,404 vph per
intersection. From the profile it can be seen that midday traffic volumes tend to decrease somewhat from
the peak periods.
Table 1 shows the Existing average daily traffic (ADT) at the study corridor PR-2 intersections, divided
into four segments. The ADT of the secondary roads is also provided in the same table. Percent of
heavy vehicles (HV%) on PR-2 in different areas of the North-South Corridor was computed, which was
then averaged for use in the traffic network model. The average HV% was four percent during the AM
peak hour of traffic and three percent for the PM peak hour. Overall, PR-2 in the North-South Corridor
carries an ADT of 45,946 vpd, while the section of PR-2 between Dunscombe Avenue and PR-114
exhibited the highest ADT of 57,329 (vpd).
Table 1: Average Daily Traffic and Heavy Vehicle Percent, PR-2
Primary Road
HV%
Intersection
ADT
Number
Segment
SB (%)
NB (%)
(vpd)
AM
PM
AM
PM
1
2
3
PR-2
37,709 3.39
2.98
6.00 2.96
4
5
6
7
8
PR-2
42,006 3.12
3.49
4.29 3.03
9
12
13
14
15
PR-2
57,329 3.89
2.45
2.61 2.78
16
17
18
19
20
PR-2
46,740
4.20
2.60
2.71
2.81
21
22
Average ADT
PR-2
45,946
3.65
3.02
3.84
2.89
Secondary Road
Segment
ADT (vpd)
PR-64
Western Plaza
Algarrobo Avenue
Los Maestros
PR-102
PR-3108
Chardon Street
PR-2R
San Juan Street
Nenadich Street
Dunscombe Avenue
Cabassa Street
Opalo Street
Centro Medico
Carolina Street
PR-114
Los Velez Street
Mayagüez Mall
North
Mayagüez Mall
South
PR-343
-----
5,908
7,763
6,598
1,913
10,630
5,038
3,526
6,013
24,274
10,182
16,184
2,234
2,624
7,415
7,267
15,315
6,788
12,232
4,922
12,137
-----
Under Existing conditions during the AM peak period, eight of the 22 intersections (36% of the
intersections), operate at LOS F (breakdown conditions). In addition, four intersections (18%) operate at
13
capacity with LOS E. In terms of overall delay, results show that motorists would have to wait between 55
and 265 seconds/vehicle at each of 12 of the 22 intersections (55%) on PR-2 in the North-South Corridor
during the AM peak hour.
Under Existing conditions during the PM peak period, 10 of the 22 intersections (45%) operate at LOS F
and two operate at LOS E. Under Future No-Build conditions, the number of LOS F and LOS E
intersections both increase. Figure 8 shows the change in LOS between Existing conditions and Future
No-Build conditions for the AM and PM peak hours.
Figure 8: Existing and Future No-Build LOS for AM and PM Peak Hours, PR-2
Number of Intersections
12
10
Existing AM Peak Hour
8
6
2018 No-Build AM Peak
Hour
4
Existing PM Peak Hour
2
2018 No-Build PM Peak
Hour
0
A
B
C
D
E
F
Level of Service
For Future No-Build conditions, 11 intersections have queue lengths extending back to the next adjacent
intersection in both the AM and PM peak periods along PR-2 in the North-South Corridor.
North-South Corridor (PR-2R)
PR-2R in the North-South Corridor is approximately 2.3 miles (3.7 kilometers) in length. Traffic counts
were collected at 12 intersections along this route. Table 2 shows the ADT at the intersections evaluated
along PR-2R. Overall, this corridor carries an ADT of 10,016 vpd. However, there are segments of the
corridor that may experience higher traffic volume than others based on local traffic behavior. For
example, Intersections 56 and 57 are located in a segment of PR-2R that functions as a major arterial,
with an average ADT of 17,290 vpd. Meanwhile, Intersections 58, 32 and 46, in the Mayagüez downtown
core area, exhibit a much lower average ADT of 5,947 vpd. A third segment of PR-2R, between
Intersections 59, 61, 62, and 63, presents an average ADT of 9,268 vpd. These variations in ADT result
from particular characteristics of each segment and local traffic behavior, such as the location of
important trip generators.
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Table 2: Average Daily Traffic and Heavy Vehicle Percent, PR-2R
Primary Road
PR-2R ADT
Intersection
Cluster
ADT
Number
Segment
Average
(vpd)
(vpd)
56
PR-2R
19,290
17,615
57
PR-65
15,940
58
Betances Street (PR-2R)
4,675
32
Betances Street (PR-2R)
6,485
5,947
46
Betances Street (PR-2R)
6,680
59
Betances Street (PR-2R)
7,405
61
Betances Street (PR-2R)
6,940
9,268
62
Betances Street (PR-2R)
9,290
63
Betances Street (PR-2R) 13,435
31
3,505
Méndez Vigo Street
47
4,335
----Candelaria Street
60
Muñoz Rivera Street
2,910
Average ADT
7,844
10,016
Secondary Road
Segment
San Juan Street
PR-2R
De Diego Street
Méndez Vigo Street
Candelaria Street
Muñoz Rivera Street
San Vicente Street
Nenadich Street
Cabassa Street
Basora Street
Basora Street
Basora Street
ADT
(vpd)
15,280
9,480
2,475
1,784
4,360
2,415
1,170
3,875
8,170
1,340
940
1,035
1,105
Under Existing conditions during the AM peak hour, three intersections operate near capacity (LOS D) or
worse (LOS E and F). Under Existing conditions during the PM peak hour, one intersection operates at
LOS D and one at LOS F.
The LOS would worsen slightly in the Future No-Build condition. Figure 9 shows the change in LOS
between Existing conditions and Future No-Build conditions for the AM and PM peak hours.
No study intersections would have vehicle queue lengths that extend back to the next adjacent
intersection during the AM and PM peak hours in the Future No-Build condition.
Figure 9: Existing and Future No-Build LOS for AM and PM Peak Hours, PR-2R
Number of Intersections
5.0
4.0
Existing AM Peak Hour
3.0
2018 No-Build AM Peak
Hour
2.0
Existing PM Peak Hour
1.0
0.0
2018 No-Build PM Peak
Hour
A
B
C
D
E
F
Level of Service
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East-West Corridor
The East-West Corridor, centered on Méndez Vigo Street (PR-106) and Candelaria Street (PR-105),
contains 35 intersections along its length of approximately 1.3 miles (2.1 kilometers). Nine of these
intersections were evaluated based on data from on-site traffic counts. Of these nine intersections, four
are controlled by traffic signals, while five are controlled by typical two-way stop control.
Table 3 shows the ADT at the intersections evaluated along the one-way pair in the East-West Corridor.
Overall, the East-West Corridor carries an ADT of about 3,380 vpd through Méndez Vigo Street
(westbound) and 4,001 vpd through Candelaria Street (eastbound). However, certain segments of the
corridor experience higher traffic volumes than others, based on local traffic behavior.
Table 3: Average Daily Traffic and Heavy Vehicle Percent, East-West Corridor
Primary Road
Secondary Road
Intersection
Number
Segment
ADT (vpd)
Segment
31
32
37
370
380
38
11 & 111
46
47
Average ADT
Méndez Vigo Street
Betances Street
Comercio Street
PR-102
PR-102
Comercio Street
Candelaria Street
Betances Street
Candelaria Street
3,505
6,485
8,145
14,585
15,075
10,140
7,473
6,680
4,335
3,380
Basora Street
Méndez Vigo Street
Méndez Vigo Street
Aduana Street
Candelaria Street
Candelaria Street
Frontage PR-2 SB & NB
Candelaria Street
Basora Street
ADT (vpd)
1,340
1,784
4,850
2,805
2,090
1,745
6,503
4,360
940
4,001
Under Existing conditions during both the AM and PM peak hours, the performance of the entire corridor
fluctuates between LOS A and LOS B, except for Intersection 11, which operates at LOS E. Intersections
11 and 111 represent one compound intersection under the PR-2 viaduct, which has the highest traffic
interaction of the East-West Corridor. Consequently, significant control delays occur at this location during
both AM and PM peak hours.
While analysis of Existing LOS shows reasonable operations at intersections in the East-West Corridor,
overall operating speed along the corridor is quite slow, in particular at Intersections 32 and 46 in the
downtown core. The slow operating speeds result from a number of issues, including two adjacent
schools with substantial drop-off/pick-up activity, large amounts of illegal parking, and trucks loading and
unloading. While overall LOS remains acceptable for these two intersections, there are times within the
peak hours (and off-peak times) when delay, and consequently LOS, can be much worse due to
congestion related to these issues.
Under Future No-Build conditions, two intersections would degrade to LOS D in the AM peak hour and
one intersection would degrade to LOS C in the PM peak hour. Figure 10 shows the change in LOS
between Existing conditions and Future No-Build conditions for the AM and PM peak hours. Due to
increased vehicular volumes under Future No-Build conditions, travel speed would be expected to
diminish further.
In the Future No-Build condition, the backup for the eastbound approach at Intersection 38 would extend
back to the next upstream intersection during the AM peak hour. No study intersections would have
queues that extend back to adjacent intersections for the Future No-Build PM peak hour.
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Figure 10: Existing and Future No-Build LOS for AM and PM Peak Hours, East-West Corridor
Number of Intersections
7
6
5
Existing AM Peak Hour
4
2018 No-Build AM Peak
Hour
3
Existing PM Peak Hour
2
1
2018 No-Build PM Peak
Hour
0
A
B
C
D
E
F
Level of Service
1.3.5 Transit Network
There are currently three distinct transit services operated in the Mayagüez area: the TIM (Transporte
Integrado de Mayagüez) public bus service, the “Trolley Colegial” services connecting the UPR
Mayagüez campus with surrounding areas, and the various público services connecting Mayagüez with
parts of its surrounding area.
TIM System
The TIM system is currently a fare-free public bus service operating four routes, using rubber-tired trolley
vehicles, centered on downtown Mayagüez (see Figure 11):
Route 1 – Downtown- UPR loop service
Route 2 – Downtown-Government office center loop service
Route 3 – Downtown-PR-2 connector (via Méndez Vigo/Candelaria one-way pair) loop service
Route 4 – Downtown-PR-102 northern waterfront corridor service (via the Méndez
Vigo/Candelaria one-way pair)
Span of Service – Currently, the span of service for three of the TIM bus routes – Route 1, Route 2, and
Route 3 – is 7:00 AM to 6:30 PM Monday through Friday. Span of service on Route 4 (El Maní) is
Monday through Friday 7:00 AM to 10:30 AM and 2:30 PM to 6 PM. There is currently no TIM service on
Saturday or Sunday.
Frequency of Service – Frequency of service for the TIM routes is:
Route 1 – Approximately every 20 to 34 minutes
Route 2 – Approximately every 25 minutes
Route 3 – Approximately every 27 minutes
Route 4 – Approximately every 30 minutes
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Ridership – Daily boardings have been estimated for three TIM bus routes:
Route 1 – Approximately 1,076 daily boardings
Route 2 – Approximately 710 daily boardings
Route 3 – Approximately 328 daily boardings
Route 4 – No data available
At present, boarding and alighting information at the stop level is not available.
Future Plans – Proposed service additions/modifications to the existing TIM system include (see Figure
12):
A new southern waterfront route operating between downtown, using Méndez Vigo/Candelaria,
and PR-102 to the south as far as the Guanajibo Homes neighborhood.
Four rural routes (RR) into the mountainous areas east of the town center:
o RR-108 as far as the PR-108 intersection with PR-352/PR-354.
o RR-106 as far as the municipal border with Las Marías.
o RR-105 to Montoso.
o RR-348 to the vicinity of PR-3349.
Figure 11: TIM Downtown Routes
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Figure 12: TIM Rural Routes
University Trolley System
UPR Mayagüez operates the Trolley Colegial system within the UPR campus and into surrounding areas.
Service, using passenger vans of different sizes, is fare-free and available to the UPR community.
Interviews with staff indicated that UPR started to provide the trolley service several years ago in order to
reduce the need to provide parking within the campus and to reduce congestion. Students who own cars
while living in surrounding neighborhoods are encouraged to use the Trolley Colegial system and leave
their cars at home.
Service is provided on five trolley routes (see Figure 13):
Route 1 (Palacio) – Operates between a park-and-ride facility at the nearby sports stadium and
the campus library
Route 2 (Zoológico) – Operates between the parking facility at the Mayagüez Zoo and the UPR
campus
Route 3 (Interno) – Operates on a loop essentially within the UPR campus
Route 4 (Terrace) – Connects the UPR campus with the Mayagüez Terrace residential area
Route 5 (Darlington) – Connects the UPR campus with the Darlington residential area of
Mayagüez
Span of Service – Currently, the span of service for all Trolley Colegial routes is 7:00 AM to 9:30 PM
Monday to Friday. There is no Trolley Colegial service on Saturday or Sunday.
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Frequency of Service and Ridership – No data are available regarding either frequency of service or
ridership on any Trolley Colegial transit routes, although interviews with staff indicated that approximately
1,000 to 1,200 UPR students use the Trolley Colegial system on a regular basis. However, it should be
noted that due to budgetary restrictions, Trolley Colegial vehicles are not used exclusively for this service,
but also have other transportation responsibilities. As a result, reliability of Trolley Colegial service is
reduced.
Future Plans – Interviews with staff indicated that there are no documented plans to modify the Trolley
Colegial system at this time.
Figure 13: UPR Mayagüez Trolley Colegial Transit Routes
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Local and Long-Distance Público Service
In addition to these two services, a number of público routes also operate in and around the municipality.
Two routes extend between downtown Mayagüez to the barrios (large neighborhoods) to the east and
southeast. However, the most well used público service operates without a fixed schedule, in a partially
on-demand/curb-to-curb fashion within certain zones/subareas of the downtown and its surroundings.
Additionally, long-distance público routes provide service to San Juan, Ponce, and other destinations
outside the municipality. Público service operates under permit issued by the PRHTA. Typically, this
service is provided using passenger vans of different sizes, although automobiles are sometimes used as
well.
At this time, there is very limited information regarding span of service, frequency, and ridership of these
services.
2.
Problem Statement
The previous sections help to establish the need for expanding public transit service in the study area.
The need for improved transit service has four main components:
1) to serve actual and latent demand, including transit-dependent population segments;
2) to provide service between key activity centers in the study area;
3) to improve connectivity between existing transit services and between existing and planned
services; and
4) to serve local government policies and initiatives for a more accessible, livable city.
Key transportation problems in the study area include:
Substantial transit dependent population – Demographic analysis of the study area indicates that
a substantial amount of the existing population remains highly transit dependent, related
particularly to low income levels and high unemployment.
Demand for work- and service-related travel outside the town center – There is significant workrelated travel to areas outside the municipality of Mayagüez and the Mayagüez town center,
including the UPR campus and other important employment and service centers. This pattern is
reflected in the high level of work-related travel by people that both live and work within the
municipality.
Extensive use of existing UPR shuttle service – Anecdotal evidence indicates that UPR-operated
shuttle service carries large numbers of students both within campus, as well as to/from
downtown.
Lack of integration among existing and proposed services – UPR and municipal transit services
are somewhat duplicative and could provide better service with improved coordination. Improved
coordination with the público system could also enhance overall transit service for system
patrons.
Coordination of east-west and north-south transit service – With the development/enhancement
of north-south transit service, the need for coordination with east-west service to and from
downtown will increase.
Slow and unreliable transit travel times – Traffic congestion along PR-2 (north-south), particularly
during morning and evening peak hours, presently obviates any benefit that might accrue from
using PR-2 for existing transit service. Along the spine of the East-West Corridor, traffic
congestion occurs randomly throughout the day, which negatively impacts current transit
operations.
Limited mobility options for older people, a rapidly growing segment of the population that makes
heavy use of medical and social services in the town center and the Medical Center area.
21
Inability to support redevelopment efforts in a struggling economy – While current transit service
provides a mobility option for patrons, it has not yet achieved the efficiency level necessary to
support municipal redevelopment goals.
Inability to reinforce existing TOD regulations – While current zoning regulations incorporate a
variety of TOD principles, the lack of an existing transit system in the North-South Corridor, in
particular, results in continuing reinforcement of a dispersed development pattern.
2.1
Goals and Objectives
The following goals and objectives of the Mayagüez Transit Study complement the purpose and need,
and focus on related transportation, economic, and environmental issues.
Goal 1: Enhance mobility options for travel by developing alternatives responsive to corridor
needs.
Objectives:
a.
b.
c.
d.
e.
f.
g.
h.
i.
j.
k.
Provide an attractive and reliable transit alternative to the private automobile.
Coordinate existing and proposed transit service with existing and proposed north-south service.
Increase transit speeds.
Coordinate with municipal efforts to improve pedestrian and bicycle mobility and access.
Seek cost-effective solutions that attract new riders and better serve current riders.
Improve access to the transit system.
Better connect the UPR Mayagüez campus with important destinations in the municipality.
Provide improved access to jobs and other opportunities for transit dependent travelers.
Increase accessibility to major activity centers for all users (residents, employees, students,
visitors, and shoppers).
Mitigate the rate of growth in traffic congestion by increasing transit ridership.
Make accommodations for transit improvements in proposed roadway projects.
Goal 2: Minimize environmental impacts.
Objectives:
a.
b.
c.
d.
Focus on improved transit operations using existing roadway corridors.
Improve regional air quality.
Reduce energy consumption.
Avoid or minimize adverse impacts to farmland, historic, archaeological, and other sensitive
natural resources.
e. Avoid or minimize adverse impacts to neighborhoods and communities.
f. Avoid or minimize adverse impacts to businesses.
Goal 3: Stimulate and support economic growth.
Objectives:
a.
b.
c.
d.
e.
Support municipal growth initiatives and policies.
Encourage sustainable development and land use patterns, including transit-oriented development.
Plan development and redevelopment in concert with transportation investments.
Help meet the municipal goals and measures contained in the Mayagüez Vision 2032 plan.
Improve livability by providing increased access to facilities, such as medical and other
governmental services, food shopping, retail shopping, entertainment, etc.
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2.2
Conclusion and Process Summary
As shown in this Purpose and Need Statement, based on an assessment of Existing and Future 2018 NoBuild conditions in the MTS study area, a major investment to develop a BRT system in the Municipality
of Mayagüez is highly justified. The need for this investment is well-supported by the analysis of land
use, socio-economic, traffic, and other data presented herein.
An overall summary of the AA process is shown in Figure 14. While the Purpose and Need Statement is
initially drafted toward the beginning of the process, it is typically not finalized until late in the game,
allowing for continued refinement as technical analyses and on-going public involvement progress.
Ultimately, the Purpose and Need Statement ties the entire process into a cohesive whole, coordinated
directly with the selection of a Locally Preferred Alternative.
Figure 14: Alternatives Analysis Process
23