6g Resolution 3759 Attachment 1
ATTACHMENT 1 to Ground Transportation Policy Directive
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
[FINAL]
Table of Contents
Executive Summary EX-1
1. Introduction 1-1
1.1 Study Objectives 1-1
1.2 Study Organization 1-3
2. Stakeholder Outreach 2-1
2.1 Defining Equity Principles 2-1
2.1.1 TRANSIT AGENCY MEETINGS .....cooierresecnreeeamessitissssansa ssanissssssssssssssssesssssssassasssssssssins 2-3
2.2 Ground Transportation Operator Meetings 2-5
2.3 Airport Workforce Survey 2-7
3. Benchmarking and Best Practices 3-1
3.1 Summary of Benchmarking Study 3-1
3.2 Benchmarked Domestic Airports 3-2
3.2.1 MODE SHARE AND SUSTAINABLE TRANSPORTATION 3-2
3.2.2 AGREEMENTS, REGULATIONS, AND TRIP FEES 3-3
323 EQUITY AND LIVING WAGE POLICIES. .......ooeeieereenetiiaiescersenssemssensissisisisssssseessesessssssssossssssssssesssssnesssass 3-4
33 Benchmarked International Airports 3-5
3.3.1 DISCUSSION OF FINDINGS .3-5
4. Factors Affecting Mode Choice 4-1
4.1 Passenger Profiles 4-1
4.2 Factors Affecting Market and Mode Choice 4-3
4.22 MARKET SEGMENTS AND TRIP PURPOSE... sss ssssesissss sssissassissssassissssesioe 4-4
424 OTHER FACTORS...uiisiiiasisniinnseisosiossssis sme gous si ames is hiss 5 a idioms onsss estsa otSse oon EBEsAs 00 4-5
4.25 SUMMARY CHARACTERISTICS... 4-5
4.3 High-Occupancy Vehicle Services 4-6
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4.3.1 SUBURBAN SHUTTLE BUS 4-6
4.3.2 DIRECT AIRPORT RAIL 4-7
4.4 Evaluating and Ranking Modes 4-8
441 PERFORMANCE AND HIERARCHY OF GROUND ACCESS STRATEGIES. .......ovvecerrrreeenreemrsenisernens4-9
5. Regional Transportation Review and Integration 5-1
5.1 Regional Transit Access 5-1
5.11 KING COUNTY METRO .cccmererrcrrecrnermeesisesirescsssssssecesecssnsessessssesssscsssssessnssssessssessansonsssssanesssesssenssssnsssessses 5-3
5.1.2 SOUND TRANSIT 5-5
5.13 LIGHT RAIL SERVICE AND CAPACITY DISCUSSION 5-8
514 SUMMARY OF PROJECTS IN THE VICINITY... 5-13
5.15 EMPLOYEE AIRPORT ACCESS 5-15
5.2 Analysis Tools 5-17
6. Business Planning 6-1
6.1 Existing Conditions and Trends 6-1
6.1.1 BACKGROUND 6-1
6.1.2 COMMERCIAL GROUND TRANSPORTATION OVERVIEW 6-3
6.1.3 COMMERCIAL GROUND TRANSPORTATION ACTIVITY 6-5
6.1.4 COMMERCIAL GROUND TRANSPORTATION REVENUE 6-6
6.1.5 OTHER GROUND TRANSPORTATION REVENUE 6-8
6.1.6 GROUND TRANSPORTATION USE CASES........... 6-9
6.1.7 TNCS AND TAXIS: TRENDS, CHALLENGES, FINDINGS..... 6-13
6.1.8 TAXI/TNC BEST PRACTICES 6-22
6.2 Recommendations and Next Steps 6-27
7. Evaluation of Alternative GTAP Strategies 7-1
7.1 Evaluation Process 7-1
7.1.1 GENERATION OF IDEAS/STAKEHOLDER OUTREACH........ 7-1
7.1.2 LIST OF INITIAL STRATEGIES... 7-2
7.1.3 TARGET AUDIENCE .....oecrrcrerrineresressenseressesesianns 7-2
7.1.4 STRATEGY CATEGORIZATION......orierrrrrreeriesessiisesirsesessasesssscssessessssssssssssssssssnssessensantas esssssssssssssssssssassasesssss 7-2
7.1.5 PROCESS FOR LEVEL 1 STRATEGY SCREENING.......coocoerrrerrecrccmmrennecriseieesinsiiinnns 7-3
7.1.6 PROCESS FOR LEVEL 2 STRATEGY SCREENING. ......conrmenecenmrieerneeineieessisennins 7-5
7.2 Level 1 Screening of Strategies 7-6
7.3 Level 2 Analysis of Strategies 7-12
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7.3.1 QUALITATIVE ASSESSMENT 7-12
732 QUANTITATIVE ASSESSMENT.....ooieiiretiiceiassssenssi sss bssssea ssssscose enssiesssessssesssesssssssnssenessessssssnntecsnas 7-12
733 EVALUATION RESULTS i. imisiisisssssisiissmmmsisitisisstintsisinstsseenssissitsoniinessmeessossomiiessommsnssmmitsosmarbssome 7-13
7.34 SUMMARY HANDOUTS cc. eisseenmsssssssssnssnns 7-13
8. Recommendations and Next Steps 8-1
8.1 Recommendations 8-1
8.1.1 GTAP STRATEGIES......... iii miriam aso 8-1
8.1.2 BUSINESS STRATEGIES... ceeremmrecesecmensssicenniseesmssssensnessensecsiosesas 8-3
8.2 Summary of Recommended Next Steps 8-5
List of Appendices
Appendix A Stakeholder Outreach: Supplemental Information
Appendix B Benchmarking Study
Appendix C Strategy Evaluation: Level 1 and Level 2 Analysis Worksheets
Appendix D Analysis of Strategy 1: Express Bus Service
Appendix E Sound Transit Light Rail Memo
List of Tables
Table ES-1: Shortlisted (Top 10) GTAP Study Strategies......ereecemessimessmneesnressmanes EX-7
Table ES-2: Recommended Business Strategies Summary........co...... EX-8
Table ES-3: Summary of Qualitative and Quantitative Analysis of Shortlisted (Top 10) Strategies ......c.ccuuee. EX-9
Table 1-1: Mode Share Category Definition at SEA (2014 0 20717). iecierernrecnierisressesssesssssserssnsscsmsnsescs 1-3
Table 2-1: Schedule of Events for Ground Transportation Operator of MEetings.........occrocerrerermemrecrimecressncees 2-5
Table 2-2: Summary of Feedback from Ground Transportation Operator Meetings ..........ccceummosrceemmmmmsccsinns 2-6
Table 3-1: Summary of Annual Passenger Levels at Domestic Benchmarked Airports .......cenernmscesenees 3-2
Table 3-2: Cost of Living Variation by Metropolitan Ara... crinerneeriesenneesssesiosessisessesssssssmsssasesssesssesens 3-5
Table 3-3: Characteristics of European Transit CONNECTIONS ..........eimrienneriimesisecsissessisssssssssssssesssssessssessssasssssssessses 3-6
Table 4-1: Primary Markets Associated with Public Ground Transportation Services...cemeenncens 4-4
Table 4-2: Examples of Direct U.S. Airport Rail Connections - 4-8
Table 5-1: Current BUS Service 10 the AIMPOrt........creniiereessesseereesiesssissiessessssssscaseessassessessenssseresssssessassessmesessions 5-3
Table 5-2: King County Metro Current Routes with Stops at Seattle-Tacoma International Airport Station... 5-4
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Table 5-3: King County Metro Current Routes with Stops Adjacent to Seattle-Tacoma International
Airport Station... Ceeetaee aera A rete seEas ERAS Ree SASSER RARSeR RASeebA AASbabesbeanspenne 5-5
Table 5-4: Current Sound Transit Routes with Stops at Seattle-Tacoma International Airport Station................ 5-6
Table 5-5: Travel Demand ANaIYSIS TOONS... mesesissmsesssassssssessssisesssssssnssssssssssssssssssssssssssssssssssssssssasesssssasessssseans 5-18
Table 6-1: Overview of Principal Ground Transportation SErVICES .....ummriinsssesssenssessssenssssesssssssnes 6-4
Table 6-2: Outbound Trips at the Airport 2015 t0 2017 ..oovevveerrenrreeennn 6-5
Table 6-3: Ground Transportation Providers Trip Fees at Benchmarked Airports........eceeeerseereeeeneesseneins 6-7
Table 6-4: Commercial Ground Transportation Revenue 2015 t0 2077 ......cmrerenersennnriissmsssssesssssssssssssesssss 6-8
Table 6-5: Parking and Rental Car Revenue 2014 to 2017... ereebe eeeARERR REAR RASS6-8
Table 6-6: Trip Use Case: DOWNTOWN SEALE WA... sssssssnssssssssasssssssssssssesssssesssarssssssssssssessssanssasens6-10
Table 6-7: Trip Use Case: Bellevue WA sentra eres 6-11
Table 6-8: Trip Use Case: Everett WA er eeRReeeRe eRe ERE RRS RRR 6-12
Table 6-9: Taxi Contracts and Features 1989 t0 20717... mrreeememnerssnsrsssssssssssssssssssssssssssssssssssssnsssssenn 6-18
Table 6-10: Taxi and Transportation Network Company Salary and Wages.......covrveeunnn. 6-20
Table 6-11: Policy Options for Commercial Ground Transportation Agreements... .meemrssssssssnnssens6-21
Table 6-12: Comparison of Business Model Key Features........... .6-23
Table 6-13: Business Model Performance Compared to Criteria (Based on Goals and Priorities)...6-24
Table 6-14: Summary of Taxi and TNC Best Practices (1 of 2) etter estababasa eaeeasaeeReet ens enesserenee basen stern 6-25
Table 6-14: Summary of Taxi and TNC Best Practices (2 of 2) reste enersess ass saa sane tent ins .6-26
Table 6-15: Business Planning Recommendations SUMMETY ..........ucemurerermmemmesneseerssmsssssessssssssssssssessssssessssssssons6-28
Table 7-1: Level 1 Strategies by Category (Transit System and Mode Share Improvement) ........oo..coeeeeeeeeenernnn: 7-7
Table 7-2: Level 1 Strategies by Category (CONtraCtual/POlCY)... rriscmssessssnssssssssssssssssssnssssssssssssssesssssasesssans 7-8
Table 7-3: Level 1 Strategies by Category (Commute Trip Reduction) i" "7-9
Table 7-4: Level 1 Strategies by Category (Parking PoliCy/PriCing).....ccusreessinmeerssrsssssessssssssessssssessssssnesens7-10
Table 7-5: Level 1 Strategies by Category (Site ENNANCEMENT) ...vvecenrrreermrrisirenserissersressssmssssssssssssssssnsssssssssesssssssnseses7-10
Table 7-6: Level 1 Strategies by Category (Land US/LOCALION)......crrmrremmrreiisssssssessssssssssssssnsssssssssessssssssssens7-11
Table 7-7: Compiled Summary of Level 2 Strategy Evaluation RESUITS.......cmverecenmrrereenssesneseesesesessssssenesses nesens7-14
Table 8-1: Shortlisted (Top 10) GTAP StUAY Srat@GiES.... riersssssesesssssssssssssssssssssssassssssasssssasss sons 8-2
Table 8-2: Recommended Business Strategies SUMIMAIY ...........ciimersusssssssnssessssessssssenensins 8-4
Table B-1: Summary of Sustainable Transportation at Benchmarked Airports.............ceimncivnnsssessssneranssensenns B-1
Table B-2: Summary of Mode Share at Benchmarked AIrPOIES.........oerrimrrisisnssssssssnssssssssssssssssessssssssssssssssssenns B-2
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Table B-3: Transit Connections Characteristics at Benchmarked Airports B-3
Table B-4: Characteristics of TNC Agreements at Benchmarked Airports... B-3
Table B-5: Environmental Standards, Operating Requirements, and Regulations Affecting TNCs at
BeNChMarked AIMDOITS"o.oo sieseassrsssesmesssresssessessssesssssnsssessesessecsassss B-4
Table B-6: Ground Transportation Providers Trip Fees at Benchmarked AirpOrts.......ceevccerseceecsennccermecss B-5
Table B-7: Complex stakeholder management to develop Taxi Management System ..........rccerecenmenes B-6
Table C-1 (1 of 5): Level 1 Strategy Evaluation Spreadsheet (All Strategies) Cc-2
Table C-1 (2 of 5): Level 1 Strategy Evaluation Spreadsheet (All Strategies) .........rarecrnessmecresnecermecsesnesC-3
Table C-1 (3 of 5): Level 1 Strategy Evaluation Spreadsheet (All Strategies) ..C-4
Table C-1 (4 of 5); Level 1 Strategy Evaluation Spreadsheet (All Strategies) C-5
Table C-1 (5 of 5): Level 1 Strategy Evaluation Spreadsheet (All Strategies) C-6
Table C-2 (1 of 9): Level 2 Strategy Evaluation Spreadsheet (Multiple Variations of Express Bus Service) ......C-7
Table C-3 (2 of 9): Level 2 Strategy Evaluation Spreadsheet (Airport ACCESS FEES).....wcmeenermrereusecesnssersenneC-8
Table C-4 (3 of 9): Level 2 Strategy Evaluation Spreadsheet (Information/Promaotion of Transit) ........cceeeeeeec-9
Table C-5 (4 of 9): Level 2 Strategy Evaluation Spreadsheet (Form a Transportation Management
Association) .........cc....... C-10
Table C-6 (5 of 9): Level 2 Strategy Evaluation Spreadsheet (Restructuring Employee Parking)........ccoccneeeee. C-1
Table C-7 (6 of 9): Level 2 Strategy Evaluation Spreadsheet (Public-Private Partnerships for First/Last Mile
COVETAGE) c.eeeereirerseseeseeeessnesaressesesssesssesssssssesssesanensssssecsesrarsasecs C-12
Table C-8 (7 of 9). Level 2 Strategy Evaluation Spreadsheet (Increase/Preserve King County Metro
RapidRide and Sound Transit Express Bus Service) C-13
Table C-9 (8 of 9). Level 2 Strategy Evaluation Spreadsheet (Ticket for Free Transit Ride/Ride-Free Area)....C-14
Table C-10 (9 of 9): Level 2 Strategy Evaluation Spreadsheet (Incentives for Ride Share and Transit Use) ...C-15
Table C-11 (1 of 3): Level 2 Strategy Cost Estimates Spreadsheet...emcees: C-16
Table C-11 (2 of 3): Level 2 Strategy Cost Estimates Spreadsheet... receriieermeececensarscenisesenieces C-17
Table C-11 (3 of 3): Level 2 Strategy Cost Estimates Spreadsheet... cnccrerreseeescesreeeseresessnenes C-18
Table D-1: Planning Level Market Analysis of Strategy 1: EXpress Bus SErviCe........cumeermmmreescrmmmensronsecnniasenonae D-3
Table D-2: Example primary market area benchmarks for Strategy 1: Express Bus Service......erereseennen. D-4
Table E-1: SUMMArY Of KEY SYSIEMI FATESco.ccseriessisressssesesssesssssssstsesvases ssa sssssssessmsassassssersssas sssessessnssasens E-1
Table E-2: Discussion Areas and Potential Data Need / Strategy........... ls E-2
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List of Exhibits
Exhibit ES-1: Enplaning Passenger Survey Results: Travel Mode (2017) ....cceimecernnrreronmeesssessesnnnnns EX-2
Exhibit ES-2: Overall Strategy EValUuation PrOCESS ........creeeneierrnrreriscesessiammecesimmmnssssisssssasssmsssssssssssssssisnassesssosssssnes EX-2
Exhibit ES-3: Results and Interpretation of Barriers to Light Rail Survey certs sen series EX-3
Exhibit ES-4: Flowchart of Stakeholder Outreach Process ........c...... corresraeares EX-4
Exhibit 1-1: Enplaning Passenger Survey Results: Travel Mode (20717) ccmcesssesssssesssssssssssssssssanns 1-2
Exhibit 1-2: Enplaning Passenger Survey Results: Travel Mode Trends (2014 t0 2017).ocrcnrrrnserrensresnenenne 1-2
Exhibit 1-3: Ground Transportation Access Plan's Categorization within the Port of Seattle's Advanced
Planning ...cceeeerereneesessensessessssessnssssssesssnns - reer ens 1-4
Exhibit 2-1: Flowchart of Stakeholder Outreach Process... rere esrniaens 2-2
Exhibit 3-1: Examples of Progression of Living Wage Increases by City cere iensssenii seen 3-4
Exhibit 3-2: View of Taxi Staging Area and Curbside at Copenhagen Airport... meinen consessnesisesesnns 3-8
Exhibit 4-1: Comparison of Annual INCOMES......cwvcorerrionerimnrrinnnnns cerreeere seerssensesneasees 4-2
Exhibit 4-2: Comparison of Annual NUMber Of AIrPOrt THIPScc... reinsesrissseeessiessesssasesssssssssssssssssssossssaneses 4-2
Exhibit 4-3: Comparison of Ground Transportation MOA Share...sssesssessssssssssssssssnses 4-3
Exhibit 4-4: Trip PUrPOSE aNd RESIAENCY ..vveveeerrerreereirnesissesisresinesissesssssnsssssssessesssssssasssesssssssasssssssessssssssssssenssssssasssssssans 4-4
Exhibit 4-5: Examples of Trip Origins to Seattle-Tacoma International Airport ........cmnicnmrnssnsssisssenns 4-5
Exhibit 4-6: High-Occupancy Vehicle Service Example Los Angeles International Airport Flyaway Bus.......... 4-6
Exhibit 4-7: High-Occupancy Vehicle Service Example Boston Logan International Airport Express Bus.......4-7
Exhibit 4-8: Environmental IMPact DY MOGE......ornrnrissssssssnrssisrssessrssssssssssssssssssssssssssssssssssassssssssessssssns4-9
Exhibit 4-9: Hierarchy of Ground Access Mode Choices...... i. correereamisseenia sssiiae nes 4-10
Exhibit 5-1: Current Transit Network Near the AIrPOrt rireeeeissesemssmsresssssesssssssssssssssssssssssssssssssssssasases 5-2
Exhibit 5-2: Current (left) and Future (right) Transit CONNECHIONS ........oreeoeeriiesirensesseressssssssssssenssssssssssssssasssens 5-4
Exhibit 5-3: Sound Transit 2014 LONG-RANGE PAN ...c..coirerimmereeniinenrinesssereessssssssessaseessssnsssssssssasssssssssssssssssmssssssssnssssanases 5-7
Exhibit 5-4: Summary of Perceived Barriers to Light Rail Use Based on Recent Passenger Survey .........o.... 5-8
Exhibit 5-5: Existing and Future Sound Transit Light Rail NEtWOTK ........mermmerrmimesiisensesonsessessssssecssasessenss5-10
Exhibit 5-6: Light Rail Peak Demand and Enplaning Airport Passengers... i" 5-11
Exhibit 5-7: Light Rail Peak Demand and Deplaning Airport PASSENGETS..........cowmevreemminessssssssensssssesssssessssensas5-12
Exhibit 5-8: Map of Other Agency and City Projects near Seattle-Tacoma International Airport...5-14
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Exhibit 5-9: Trip Origins of Airport Employees ........eeeearereens 5-16
Exhibit 6-1: Comparison of Taxi and Transportation Network Company Trends at SEA......
Exhibit 7-1: Overall Strategy Evaluation Process...
Exhibit 7-2: Level 1 Strategy Screening Process..........
Exhibit 7-3: Level 2 Strategy Screening Process...
Exhibit 7-4: Proportion of Strategies by General Category .....
Exhibit 8-1: Timeline of Next Steps
Exhibit B-1: Terms of Use Document Developed for the CPH Taxi Management System..
Exhibit B-2: Screenshots of CPH Taxi Management System Forecast Tool...
Exhibit B-3: Balancing Supply with Demand in the CPH Taxi Management Forecast Tool
Exhibit D-1: Airport trip origins by ZIP code overlaid with Sound Transit network................
Exhibit D-2: Airport trip origins by ZIP code overlaid with King County Metro routes.........
Exhibit D-3: Airport trip origins by ZIP code overlaid with HOV/HOT lanes. .......ccoeecnercernnne.
Exhibit D-4: Airport trip origins by ZIP code overlaid with leisure traveler trips........ceu....
Exhibit D-5: Candidate Express Bus Service Sites (Defining Market Capture Areas)..............
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Table of Acronyms
ACRONYM/ABBREVIATION DEFINITION SECTION FIRST NOTED
IY autonomous vehicle 3.1
BOS Boston Logan International Airport 3.2.1
BRT Bus Rapid Transit 5.1.2
CPH Copenhagen Airport 33
DUB Dublin Airport 33
E-KPI Environmental Key Performance Indicator 6.1.7.1
EPS Enplaning Passenger Survey 1.1
ESFH Eastside for Hire 6.1.7.2
FAA Federal Aviation Administration 6.14
GHG greenhouse gas 3.21
GIS geographic information system 733
GT ground transportation 1.2
GTAP Ground Transportation Access Plan 1.1
HOV high-occupancy vehicle 3.1
KCM King County Metro 12
LAX Los Angeles International Airport 431
LGW Gatwick Airport 33
LHR Heathrow Airport 33
LOS level of service
MAP million annual passengers 33
PMT passenger miles traveled 4.4.1
Port Port of Seattle
PRR PRR Biz
SAMP Sustainable Airport Master Plan
SEA or the Airport Seattle-Tacoma International Airport
SD Service Directive
SFO San Francisco International Airport 6.1.7.1
) Sound Transit 1.2
TMA Transportation Management Association 3.1
TS taxi management system 3.3.1.6
TNC transportation network company 1.1
TSA Transportation Security Administration 23
VMT vehicle miles traveled 44.1
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Executive Summary
Seattle-Tacoma International Airport (SEA or Airport) is one of the busiest airports in the United States, serving
almost 47 million annual passengers (MAP) in 2017. This activity is projected to increase to more than 60 MAP!
in the next 10 years. The Airport has a major economic impact on King County and the Puget Sound region,
supporting $22.5 billion in total economic activity in 2017, according to the Sea-Tac International Airport
Economic Impacts study (January 2018).
To accommodate this projected increase in passenger traffic, the Sustainable Airport Master Plan (SAMP)
includes an ambitious capital improvement program centered around a major terminal expansion program and
associated landside improvements. It sets the stage for future development to accommodate increased
demand, but doing so in a way that ensures long-term sustainability of this critical element of the Puget Sound
economic fabric.
In 2017, the Port of Seattle commissioned this Ground Transportation Access Plan (GTAP) to advance efficient
and sustainable transportation modes, including consideration of equity while also addressing traffic congestion
on the airport curbs and roadways. It is a key objective of the Port to foster equity, both from a consumer-
options perspective and a desire to support quality "living wage" jobs perspective. The underlying purpose of
the GTAP Study is to assist the Airport and the Puget Sound region identify strategies that foster shifts in the
way Airport customers and the workforce think about Airport access; strategies that will affect a person's mode
choice in favor of longer-term sustainable options, while being sensitive to established equity and producing
measurable benefits at a reasonable cost.
A major contributor to traffic congestion is a heavy reliance on low-occupancy modes of transportation to
access the airport. According to the most recent passenger survey (conducted quarterly by Port staff) and as
reflected on Exhibit ES-1, almost 80% of originating passengers arrive at the Airport via low-occupancy modes,
including private vehicles, rental cars, taxis, limousines, and vehicles associated with transportation network
companies (TNCs) such as Uber or Lyft. This ongoing reliance on single- or low-occupancy modes of
transportation to the Airport perpetuates several burdens, ranging from Airport Expressway congestion to
Airport curbside congestion and environmental pollution. Addressing this congestion in a constrained
environment by simply building more roadway facilities becomes financially and environmentally unsustainable.
' MAP
million annual passengers
"FAA Terminal Area Forecast (TAF), https//www.faa.gov/data_research/aviation/taf (accessed January 24, 2018).
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This is a significant issue that challenges most major metropolitan areas in the United States, even if the airport
has been adequately served by higher-occupancy forms of transportation for decades.
Exhibit ES-1: Enplaning Passenger Survey Results: Travel Mode (2017)
40% 38%
35% Il High-occupancy mode
30%
25%
20%
15%
10%
5%
0%
NOTE: 1/ Other includes bicycle.
SOURCES: Business Intelligence, Enplaning Passenger Survey, January 2018, Ricondo & Associates, Inc, February 2018 (Analysis).
Overview of GTAP Study Methodology
The GTAP Study process included five general components, as illustrated on Exhibit ES-2 and described in the
following paragraphs.
Exhibit ES-2: Overall Strategy Evaluation Process
Generation |EI] Level 2 SaainaEiaAel
(Ile LEE List ofiInitial SACRE Screening: Recommendations
Stakeholder NEI ES Qualitative Quantitative and frade-offs
Outreach Evaluation Analysis
SOURCE: Ricondo & Associates, Inc, March 2018 (Analysis).
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The GTAP Study began with a series of meetings with Port staff, stakeholders, and regional transportation
agencies to gain a contextual understanding of transportation issues and trends in the Puget Sound region, and
how they impact the Airport. This component of the study also included data collection to quantify regional
transportation trends, information gathering about ongoing Airport development programs, research of
regional transportation programs and initiatives (existing services as well as future planned improvements), and
benchmarking airports with comparable activity levels and service offerings to identify trends and best practices
as they relate to airport access.
Simultaneous to this information gathering phase, the GTAP Study team was assessing mode choice and mode
shift trends as they relate to the Airport and the entire Puget Sound region. While it may be possible to reliably
predict if a certain strategy or policy will affect mode choice in a "positive" or "negative" way, it is very
challenging to predict or quantify "how positive" or "how negative" the impact of a strategy will be in terms of
how many passengers will change behavior. This challenge is increased when considering rapidly emerging
trends where there is very little historical data to assess consumer preferences. [For example, Transportation
Network Companies (TNCs) like Uber or Lyft emerged only 2-3 years ago and grew from escorting zero
passengers to the Airport to almost 1.3 million passengers in 2017 according to the Port of Seattle's Ground
Transportation Monthly Activity Report. Similarly, it is difficult to predict what impact driverless vehicles may
have in the coming years.] Exhibit ES-3 illustrates many of the perceived barriers that passengers face when
making decisions about mode choice, particularly as they relate to the option of using transit.
Exhibit ES-3: Results and Interpretation of Barriers to Light Rail Survey
Barrier to using transit (barrier score) Barrier score
Travel time vs. car [EEE 24 Interpreting Barrier scores:
Need to transfer [0] 14 "Barrier scores" indicate the relative
influence of each factor. For example, the
Service frequency [IT 13
travel time factor with a barrier score of 24
Service reliability [I 12 was six times more likely to be selected as
the largest barrier than the covered
Handling luggage [IIE10 walkway from the Airport station to
Outdoor walk to transit terminal.
EE
station
Behavior of other transit
passengers LL
Likelihood of rain [I 4
Covered walk from
I 4
Airport station to terminal
Ticket cost [I 2
SOURCE: Business Intelligence, Light Rail Barrier Survey, Port of Seattle, November 2016
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As the GTAP Study progressed, the GTAP Study Team and Port leadership conducted a series of meetings and
workshops with Airport staff and tenant employees, local and regional transportation agencies, and key airport
users/stakeholders (e.g., TNC, taxi and commercial ground transportation operators). The purpose and timeline
of these meetings are summarized on Exhibit ES-4. Detailed results of the meetings, workshops, and surveys
are presented in appendices of this document.
Exhibit ES-4: Flowchart of Stakeholder Outreach Process
-
PROJECT PORT INITIATIVES SOUND TRANSIT GTAP STATUS LEVEL 1 STRATEGY
KICK-OFF COORDINATION - AND KING COUNTY PORT LEADERSHIP EVAL WORKSHOP
(i.e. EQUITY AND METRO
ACCESSIBILITY)
DATA.COLLECTION = 2. ANALYSIS AND FEEDBACK 3. STRATEGIES
COMMISSION AIRPORT GROUND COMMISSIONER COMMISSIONER
EQUITY PRINCIPLES WORKFORCE TRANSPORTATION 2:2:1'8* 2:2:1'S & PORT
WORKSHOP SURVEY PROVIDERS LEADERSHIP
O = 6
&@ Port Staff Outreach Commission/Staff Workshops Workforce Survey o Agency/City Outieach (= Ground Transportation Operator OQutieach
* Briefing with former Commissioners Albro and Creighton
SOURCE: PRR Biz, February 2018 (Analysis); Ricondo & Associates, Inc, March 2018 (Analysis).
These workshops led to the identification of more than 60 potential strategies to fulfil/foster the user changes
required to achieve the stated goals and objectives of the GTAP Study. These potential strategies are detailed
in appendices of this report.
The Ricondo Team organized/condensed the strategies by classifying them into one of four target audiences
that each would impact, as well as identifying the key mode(s) that would be affected. Further, the Team
evaluated the strategies through a two-step screening process, illustrated on Exhibit ES-5 and Exhibit ES-6. In
the first level of screening (Exhibit ES-5), each strategy was scored using principles/goals that reflect the purpose
of the GTAP Study and the Port Century Agenda goals. In the second level of screening (Exhibit ES-6), the team
relied on industry research and professional judgement to quantitatively assess the strategy's potential impact
on metrics such as mode shift, vehicle miles traveled, greenhouse gas emissions, capital investment
requirements, and operating costs. Equity principles were also assessed, including economic equity,
environmental equity, regional access and operational equity, and social equity.
Ground Transportation Access Plan Study
[EX-4]
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
[FINAL]
Exhibit ES-5: Level 1 Strategy Screening Process
CAVE Summary of
Screening mmendation
Classification MCLG)
Worksheet Tool
"= Who: Passengers,
Evaluation of
input Employees
" Mode: Private vehicle, Principles/Goals
rail, bus, TNC, Airporter, . Social
Eee
* Environmental
Initial
Strategies * Economic
* Regional Access
and Operations Output
+ Consumer
List of
Options
Refined
" Fiscal Impacts
* Strategies
* Commute Trip Reduction Century Agenda
* land Use/Location
* Parking Policy/Pricing
* Site Enhancement
* Transit System/Mode
Separate Out
Share Improvements
\
2
+ Contractual/Policy | List cost-effective strategies that are
2"
v not the focus of GTAP objectives;
these should be explored further in
the CTR Program
" Site enhancement strategies that will
be carried forward into other
infrastructure SD's
SOURCES: Ricondo & Associates, Inc, March 2018 (Analysis).
Ground Transportation Access Plan Study
{EX-5]
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
[FINAL]
Exhibit ES-6: Level 2 Strategy Screening Process
EVE
Screening
Identification of impacts: Output
HAT ITRS
Summary.Handoutiwith: ii
*
N Mode Share Changes Evaluation)Matrix
(iE of * Operating Costs
Refined / + (Capital Costs }
Strategies + Vehicle Miles Traveled (VMT) Summary of
+ Greenhouse Gases (GHG) principles Gests
= Equity Screening + Strategy Description
" Primary Benefits
" Primary Drawbacks
" Other Considerations
(e.g., trade-offs, case
studies)
SOURCES: Ricondo & Associates, Inc, March 2018 (Analysis).
Summary of GTAP Study Recommendations
From this two-level screening/evaluation process, several recommendations and feasible strategies
emerged. (Note, some of these strategies combined multiple items identified in the ground access strategies
workshops and stakeholder engagement process). The final recommendations and shortlisted strategies are
categorized as either being a Business Strategy or a Ground Access Strategy. These are summarized below in
Table ES-1 and Table ES-2, and detailed in Section 8 of the study. The detailed qualitative and quantitative
evaluation of the shortlisted (top 10) ground access strategies are provided in Table ES-3. In summary, should
all of the top 10 ground access strategies be implemented, the planning-level estimated aggregate impact is a
reduction of up to 10 percent of the Port-controlled greenhouse gas emissions (GHG) (with an estimated annual
reduction of up to 100 million vehicle miles traveled (VMT) and 42,000 tons of GHG, and potentially 2 million
single-occupancy vehicles off the road annually). It has been noted, however, that several of the strategies
require further detailed study prior to implementation, and the estimated cumulative effects will be influenced
by the ultimate combination of strategies actually implemented, and the success of those efforts.
Ground Transportation Access Plan Study
[EX-6]
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
(FINAL)
Table ES-1: Shortlisted (Top 10) GTAP Study Strategies
AFFECTED STAKEHOLDER(S)
STRATEGY DESCRIPTION NEXT STEPS
GT
Air Pax Work-
force Oper.
Muitiple Variations of Express Express service from park and nde lots in Conduct Port sponsored feasibility
Bus Service primary surrounding aty locations: secure study and Pilot program (scoping Vv v
parking. 30 m.nute service (Port, KCM. ST TBD) undervay)
Form a Transportation Member controlled, orgaruzations that provide Conduct Port sponsored feasibility
Management Association transportation services In a part cular area study
Dedicated staff to manage CTR pregrams for Recommend Fort to incorporate in
v
airport workforce including nde share Commute Trip Reduction program
matching. guaranteed nde home, transit
subsidies
informaucn Shanng and Distribute information about transit routes and Recommend Port to pursue
Precmoting Transit integrate promot ons/marketing during arrine stakeholder partnerships and
v
ticket purchase and check in additional advertising/information
sharing opportunities
Public Private Partnerships for Develop partnerships with ride share Conduct Port sponsored feasibility
First/Last Mile Coverage companies and regional agenctes to provide study with TNC comparues and v v v
first and last mile coverage regional agencies
increase/preserve King County Mare frequent service (assuming regional Coordination with regional agencies
Metro RapidRide and Sound agency sponsorship) {addincral study and/or travel Vv Vv v
Trans.t Express Bus Service Change pick up/drop off location demand modeling may be necessary}
Ticket for Free Transit Passengers and employees nde free on tnps Coordination with regional agencies
Ride/Ride Free Area from the Airport (additional study and/or travel v v
demand medeling may be necessary)
Incentives for Ride Share and Provide discounts at airport concessionaires or Recommend Port to incorporate in
Transit Use access to aiine club lounges for travelers with CTR program
transit pass, transit receipt, or verification of
v v
panticipaticn in Ricte Share program
Implement a parking "cash cut" program
managed by Airport TMA
Revenue structures Develop a financial model to estimate impacts Further revenue/financial analysis
anticipating Autonomous of AV adoption
v
Vehicles Develop recommendations for Port policies
and programs around AVs
Airpest Access Fees Consider establishing fee structure for vehicles Further revenue/financial analysis
accessing terminal curbs; consider legislative v
implications
Install gantries for electronic fee collection
Restructure Employee Parking Restructure complimentary garage parking to Further revenue/financial analysis
incentivize Ride Share and transit (paired with TMA and garage analyses
Implement a parking "cash cut" program findings) v
managed by Airport TMA
Subsidize ORCA passes (state CTR program
influences benefit)
NOTE Strategies are not in order of priority
SOURCE Ricondo & Associates Inc. June 2018 (Analysis)
Ground Transportation Access Plan Study
EX 7)
SEATTLE-TACOMA INTERNATIONAL AIRPORT
AUGUST 20, 2018
[FINAL]
Table ES-2: Recommended Business Strategies Summary
CATEGORY DESCRIPTION
Business Model Continue with hybrid model approach, with agreements awarded to qualified concessionaire(s)
Fiscal/Revenue Develop a financial model to asses:
What sort of structures might adapt well to future C/AVs
How changes to commercial GT rates may affect long-term SEA financial needs
How changes will affect cost per enplaned passenger
The extent to which a revised fee structure will affect the entire range of businesses: taxis,
limos, TNCs, courtesy shuttles, rental cars, and airporters
How changes to the rate structure will affect the Airport capital program and the ability to fund
long-term needs, including SAMP
Assess annual permit process for GT operators in lieu of per trip fees
Consider impact of a market-based competitively bid rate
Airport access fees
Potential for offering first/last mile coverage incentives
Employee parking ~ impact of potential restructuring
Technology Consider future installation of communication infrastructure to support C/AVs and airport
access mechanisms, including collecting data that supports incentivizing higher occupancies
Labor Harmony Labor Relations and Office of Social Responsibility continue to develop Port-wide Labor
Harmony Policy and community engagement plan
Number of Vehicles Establish fleet to balance supply against demand, while minimizing wait time, and optimizing
driver income
Environmental/Sustainability Continue Re-match program for TNCs
Facilities and Operations Use Bandwagon or comparable API to discount passenger fare while increasing driver receipts
Management Conduct feasibility study for forming a Transportation Management Association
SOURCE: Ricondo & Associates, Inc, June 2018 (Analysis).
Ground Transportation Access Plan Study
{EX-8]
ACCA INT IRLIAT
Table E53: of Qualitative and Q ive Analysis of (Top 10)
QUALITATIVE IMPACTS: EQUITY TRADE-OFFS eR
REGIONAL ACCESS &OPERATIONS
ESTIMATED
Social B1Ralidy ESTIMATED CAPITAL ESTIMATED SREEVHOUSEGASES ANTICIPATED
STRATEGY ECONOMIC ENVIRONMENT
operaTING cos pevenue impacts
Multiple Variaticns of Express Bus Leltipte Variations of Expre:s Bus
Scnice BN oO Servke X X Oo
Ferm a Transportaticn O oO Form a Transpertation SID O
Management Awsorution (THA Management Associat rin (TMA Xx
Infoimaticn Sharing and
Promoting ltanst BSH :Stating und N/A Bs
Promoting Transit x x
Public frizate Partner beps for < Public Private Partneeshipy: for S NEN xX
First/Last Mile Coverage Furst/l azt bile Coverage x
Increase, preserve bang County Bs8 Intecaznipreserve Ki County BEE
Metio Rapicitide and Sound Lictra RupicRite and Sound IOH xX 0
Team: Express Bus Serie Transit xpress Bus Serie
Tiehet for Free Tranzt Ride Rule " Ticket fer Free Vranst Ride Ride SN NE 0 x
Free Arey Free Arca
Share and BS Fil eand
N/A 1 NE 0 xX
lran:it Use TransitUse
Revenue structures IRHGEILNg O flesenur strunture SBS NE 0 NN
Autcanmous Vehicles (AVS Autonomous Vehieles (AVS!
Xi NEE A"
Arpoit Access Fees AinpartAves: Feet
Restructure Emplogee Making Zz> Retiueture Enploges Parking SESE AE x NN
LEGEND
SCORE CAPITAL OPERATING GHG REDUCTION REVENUE IMPACT
Cost (TONHES/YR) (MILLION ANNUALLY)
Vv $0 to 82m 2 10,000 Source (+)
oO $210 $10m 5,000 < 10,000 <$1m Loss ()
X >$10 <5,000 >$1mLoss()
SOURCE ficands bi Auecintes,
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
[FINAL]
1. Introduction
1.1 Study Objectives
Seattle-Tacoma International Airport (SEA or the Airport) is one of the busiest airports in the United States; it
served 46.9 million passengers in 2017. The Airport has a major economic impact on King County and the Puget
Sound region, in which it supported $22.5 billion in total economic activity in 2017.* The Sustainable Airport
Master Plan (SAMP) forecasts continued high passenger growth for the Airport. As a result, the Port of Seattle
(the Port) is seeking ways to reduce traffic congestion and air pollution at SEA, which has resulted in the
development of this Ground Transportation Access Plan (GTAP) Study.
The GTAP Study identifies several objectives, which include advancing transportation modes and programs that
foster equity from the consumer options perspective, as well as supporting quality "living wage" jobs. Other key
objectives include promoting Airport access via environmentally preferred modes and increasing the carrying
capacity on the ground access system. The strategy development process included a consideration of changing
technologies and trends in the transportation industry, as well as coordination efforts and partnerships with
regional transit providers and nearby communities. The GTAP Study will inform the Airport's ground
transportation business model, with an emphasis on contractual relationships, support of the Airport workforce,
and a focus on current and future ground access trends. These objectives guided the study and will help the
Port advance toward its "Century Agenda" goals.
As shown on Exhibit 1-1, and based on the most recent quarterly Enplaning Passenger Survey (EPS),
approximately 80 percent of all originating passengers arrive to the Airport via single-occupancy or low-
occupancy mode (e.g. private vehicle, rental car, taxi, limousine). Shifting passengers from single-occupancy
modes to higher occupancy modes, such as public transit and Airporters, should relieve some of the traffic
congestion and delays that passengers experience accessing the Airport. Exhibit 1-2 shows the travel mode
trends, which are based on results from three previous EPSs compared with the current year. Table 1-1 provides
mode share category definitions for SEA and illustrates the change in data definition within the EPSs. Noticeable
trends are the introduction and growth of transportation network companies (TNCs) and the decline of taxi
share at the Airport.
' Community Attributes, Inc., Sea-Tac International Airport Economic Impacts, January 2018
Ground Transportation Access Plan Study
1-1]
SEATTLE-TACOMA INTERNATIONAL AIRPORT AUGUST 20, 2018
[FINAL]
Exhibit 1-1: Enplaning Passenger Survey Results: Travel Mode (2017)
[2] High-occupancy mode
NOTE: 1/ Other includes bicycle
SOURCES: Business Intelligence, Enplaning Passenger Survey, January 2018, Ricondo & Associates, Inc, February 2018 (Analysis)
Exhibit 1-2: Enplaning Passenger Survey Results: Travel Mode Trends (2014 to 2017)
35%
30%
59:6%50,6%
21
Private vehicle ~~ Rental vehicle TNC (eg Uber, LINKlightrail Shuttle Express Taxi Public transit bus
curbside Lyft)
D2014 2015 2016 2017
NOTE: Selected travel modes are only shown for data collected in the same category definition. Categories have changed across analysis
years; 100 percent of
modes are therefore not reflected See Table 1-1.
SOURCES: Business Intelligence, Enplaning Passenger Survey, January 2018; Ricondo & Associates, Inc., February 2018 (Analysis).
Ground Transportation Access Plan Study
(1-2)
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