Improving Traffic Flow in The Las Vegas Tourist Zone

ROBERT LANG, PH.D. | PROFESSOR AND DIRECTOR THE LINCY INSTITUTE | BROOKINGS MOUNTAIN WESTUNIVERSITY OF NEVADA, LAS VEGAS

Improving Traffic Flow in The Las Vegas Tourist Zone

What’s in This Talk?

Three Main Sections:

1) Defining the Surface Congestion Problem in the LV Tourist Zone

2) Using Case Analysis from Tysons Corner, VA for Comparison

3) Reviewing a Policy Matrix of Options

My Background

Was an Urban Planning Professor at Virginia Tech in Alexandria, VA

And a Resident Senior Fellow in DC at The Brookings Institution

Now a Public Affairs Professor at UNLV’s Greenspun College

I Link Urban Design and Traffic Flow

Defining the Problem: Limits on Las Vegas

Or Could it be Surface Transportation Congestion?

What Force Most Limits Growth Capacity in the Las Vegas Tourist Economy?

Is it the Airport? The Convention Center? The No. of Rooms?

Basic Concepts: Street Forms

Basic Concepts: Car/Transit/Bike

Basic Concepts: Grid vs. Superblock

Superblock vs. Grid: Las Vegas

Street Form—Traffic Flow—Density

If the Street System is Not Designed to Carry “High Load” or Does NOT Contain Multiple Diffusion Points, Every Increment of New Built Density Will Add a Greater Increment in Traffic Congestion.

If the Street System in Urbanizing Space is NOT Supported by Rail-Based Transit, Every Increment of New Built Density Will Add a Greater Increment in Traffic Congestion.

Midtown Manhattan versus Las Vegas Strip: New York Can Manage Much Greater Crowd/Commuters/ Tourists Per Square Mile Than Las Vegas Because it Has a Complete Grid and Rail-Based Transit.

Case Analysis from Tysons Corner, VA

But Why Tysons Corner?—Its Relevance for Las Vegas is Surprising. There are Plenty of Lessons for The Strip

Tysons Corner is Similar to The Strip

Quality Similarity

GovernanceThey are the Two Largest U.S.

Real Estates Assets in an Unincorporated Urban Space

Street SystemBoth Developed Street

Networks Intended for Much Less Intense Urban Density

Growth LimitsBoth Face Growth Limits Due to an Urban Design That Was

Intended for Less Vehicles

Seasonal/Event TrafficBoth See Variation in Traffic and Use Based on Seasonal

Patterns and Big Events

Tysons/The Strip: 75 Years Ago

Tysons Corner was Literally a Corner

The LV Strip was Literally a Strip

Difference: Tysons is Being Remade

Many Private and Public Interests Have Studied Tysons and Decided the Type and Level of Urban Redesign Needed and Secured the Funding to Execute the Plan.

Also, Virginia has Substantial Planning Expertise with Three Well-Regarded Urban Planning Programs and One of the Better State-Run Departments of Transportation in the U.S.

If You Doubt This, Simply Type “Tysons Corner Planning” into Google Images and See the Hundreds of Documents that Result—You Do Not See the Same Documents for the Las Vegas Strip.

Remaking Tysons Corner: Street System

The Top Illustration Shows Tysons Street System at the Start of its Rebuilding—Note the Curvilinear Streets and Suburban Subdivision Urban Form—And Superblocks

The Bottom Illustration Shows Tysons at the Mid 21st Century After a Total Makeover as an Urban Center Complete with Four Washington Metro Stops

Remaking Tysons: Metro Stops/Street Grids

Remaking Tysons: Metro Stops/Tunnel

Remaking Tysons: Three Senarios

Now Consider Las Vegas Planning

Las Vegas does Master Planning on a Grand Scale for Non-Tourist Sections of the Region

For Example, SummerlinHas Won all Kinds of Planning Awards from Groups Such as ULI—The Urban Land Institute

But Land Use Planning in the Tourist Zone is Less Comprehensive and More Fragmented

Lets Turn to the Specifics on Las Vegas

The Congestion Problem is Very Tysons Like—An Urban Design that Can’t Handle More Dense Use

The Scale of Development Overshot the Original Urban System’s Capacity to Handle Traffic Load

Let’s Start a Discussion on a Set of Relief Strategies that Begin to Address Congestion

Options: Short, Mid, and Longer Range

Shorter Range: Invest in Traffic Flow Systems that Squeeze More Efficiency Out of Existing System

Middle Range: Start Street Widening and Realignment, Including New Turn Lanes at Key Traffic Bottlenecks

Longer Range: Break Up Superblocks with New Roads via Easements

Options: The Longest Range

Longest Range: Switch the Street Network to a Multi-Diffusing, High-Capacity System Via an Urban Grid

Longest Range: Integrate and Expand Elevated Rail-Based Transit Systems to Relieve Surface Congestion

Longest Range: Add Light Rail System at Street Grade for More Surface Transportation Efficiency

Congestion-Relief Cost/Impact Matrix

EnhancementType

InfrastructureChange

Scale and Typeof Impact

EstimatedCost Range

Reprogram Traffic Flows

for Events

Redo Traffic Signals; Time Maintenance

MarginallyImproves

Traffic Flow

$A Million or

LessWiden Key

Intersections/Roadways

Add More Turn Lane Capacity

On Streets

ModestlyReduces

Congestion

$$ Tens ofMillions

Break Up Superblocks w/Street Grid

Cut Relief Streets Out East of Strip

Significantly Improves

Traffic Flow

$$$A Hundred

Million or MoreConstruct

Integrated Rail Transit

Link Key Assets by a Rail System

Expands Capacity for

Moving People

$$$$Hundreds of

Millions

The Four Biggest Metros in the Mountain West

Phoenix, Denver, Las Vegas, and Salt Lake City: Three of Four Have Integrated Rail Systems that Go to the Airport

Every Big Metro in the West, But Las Vegas, is Actively Building Rail Between Key Assets Such as Convention Centers, Downtowns, Ball Parks and Airports

Las Vegas Monorail Map, 2015

Note the Limited Number of Stops and the Disconnect With Key Regional Assets Such as McCarran Airport

Las Vegas Strip—All Monorail Transit Map

Current Map of All Monorail Transit Along the Las Vegas Strip

There is a Single Fee-Based System East of The Strip and 3 Separate Free Systems West of The Strip Attached to MGM Properties

The 4 Systems are NOT Integrated and None Reach McCarran Airport

Recommendations

Do a Land Use/Surface Transportation Study as was Done at Tysons—We are Not Doing One Now

Go For Low-Hanging Fruit by Tweaking the Current Surface Transport System

Plan Larger Infrastructure Changes Such as Street Expansion, Rail Extension and a New Transit System

Thank You

Hotel and Taxi Infrastructure Summit A Serious Look at Resort Transportation Needs & Expected Growth

On May 11, 2015 Executives from the Strip Casinos and Taxi Industries along with participants from the Gaming Control Board, Taxi Authority Board, RTC, LVCVA and other transportation specialists came together for a brain storming session. Mayor Pro-Tem Steve Ross and the Operational Excellence Team from Venetian/Palazzo moderated and facilitated the brain storming session after Urban Planning and Policy Expert Robert Lang, Brookings Institute, gave a 45-minute presentation on our Strip’s current infrastructure constraints and the changes required to expand our tourism growth. Below are the groups recommended solutions and they are divided as Short Term, Medium Term and Long Term solutions. Short Term Casino Operators

• Add Relief (Pick-Up and Drop-Off Points) • Multiple Cab Lines

Authority/Regulations

• Open All Options for Drivers and Routes (Tunnel) • Educate Public on Use of Tunnel • No Trolling Extended Limos • Eliminate Rolling Billboards • Develop an Event/Traffic Coordination Group • Event Specific Extra Medallions • Better Enforcement of Pedestrian Crossings (Bellagio/Paris, Mirage/Caesars,

Monte Carlo) • Get Pedestrians Off Of Walkway • Reorganize Transportation Board

Roadways/Airport/Monorail

• Better Planning During Construction (No Lane Closures During CES (Paradise)

• Improve Pedestrian Realm Up/Down Strip • Sky Bridges • Temporary Dedicated Lanes for Buses/Taxis/Limos • Airport Needs Two Dedicated Lanes for Pick-Up • Luggage Carts for Monorail • Railroad Right-Of-Ways (Make Road Easements) • More Free-Right Turns (N. Bound I-15 to E. Bound Sahara) & (N. Bound Koval

to E. Bound Tropicana)

• Need Resort Signs on I-15 Exists • Make Some Roads One-Way (Per Event or Variable Direction Lanes-Paradise,

Swenson, Convention Center Drive) Medium Term Solutions Roadways/Airport/Monorail

• Temporary One-Way Streets (Use Electric Signage To Notify) • Street HOV Lanes (Strip, Convention Center Drive, Time/Demand Driven) • Park and Rides for Locals (Event Related/Temporary, Free or Low Cost or

Included with Transit Cost) • Tropicana and Swenson-Capacity Consistent (Northbound) More Lanes,

Better Design, Allow Cabs to Use Tunnel • Enhance East Side Access Away From Strip (Frank Sinatra, Industrial) • Eliminate HOV Lanes

Casino Operators

• More Drop Off Points • Park-N-Rides/Commuters Pay • Dedicated Shuttles to Airport

Long Term Solutions

• Westside of the Strip (Add Monorail) • Train from L.A. • Phased Approach to Monorail-Light Rail Solution

o Connect to Airport, Connection to Convention Center • Need Solution for Employee Parking

o Off-Site Parking For Employees, o Light-Rail-Used by Employees

• Comprehensive Plan-Incentives for Resorts • Point-To-Point Transportation

o Convention Center-Overall Transportation System to Connect o Connect All Convention Centers o Monorail-Combination Above/Underground o Downtown Solution-Integrated within Plan o Walking Sky-Park Down the Strip

• Monorail • Plans For Connecting Both Sides of the Strip • Designated Lanes for Taxis and Transit • Downtown-More Use For Bikes • Better Long-Term Pedestrian Plan

• Better Structures for Parking (Allow For Resorts to Charge) • Move Certain Relief Streets Underground at Points (Koval?) • Utilize Current RR Right of Ways • Goal Should Be to

o Remove Workforce/Locals From Roads to Leave For Tourists • Underground-Subways • Expressways to Key Outer Super Arterials (Desert Inn) • Relief Airport

o Ensure Homeland Security Steps/Actions Taken Into Consideration for Mass Transit

• SkyPark-Building a Multi-Block Pedestrian Park Above Strip o All Pedestrians Connecting to All Casinos From There

NEVADA TAXICAB AUTHORITY

CHARLES D. HARVEYADMINISTRATOR

MISSION / VISION

CONFLICT

CAB CRISIS

Created in 1969 to provide for the

safety, comfort and convenience

of the taxicab riding public.



Began operation with 8 employees, regulating - -

• 8 Taxicab Companies• 275 taxicabs and 600 drivers

CORE FUNCTIONS

ADMINISTRATION

Testing

Licensing

Permitting

COMPLIANCE/ENFORCEMENT

Dispatch

Vehicle Inspectors

Enforcement

Administrative Court

Driver Training

Taxicab Authority

Board

Nevada Revised Statutes 706.881 to 706.885

Criminal History

TAXICAB AUTHORITY BOARD

5 – Member Board Responsibilities:

1. Adopt regulations for the administration and regulation of the Agency.

2. Conduct hearings/decide:a. Rates, charges and faresb. Applications to operate a

taxi company.c. How many taxicab can

operate.d. Driver appeals.

Appointed by the Governor

Serve 3 Year Term

CHALLENGES

INFRASTRUCTURE

RIDE SHARING

7- Administrative Assistants to license and permit 10,000 drivers.

Driver turnover = 60%

29- Police Officers to monitor compliance and enforce violations of the 27 million trips conducted each year.

9 - Vehicle Inspectors to ensure that each of the 3,000 taxicabs meet operating standards.

STAFFING

LONG HAULING

Taking a longer route to the passenger’s destination than is necessary, unless requested by the passenger.(NRS 706.8846)

PENALTIESNRS – 706.8846 (3)

1st Offense

$100 Fine

2nd Offense

Mandatory Court

$200 Fine 3 Day

Suspension

3rd Offense

Mandatory Court

$300 Fine 6 Day

Suspension

4th Offense

Mandatory Court

$350 Fine 10 Day

Suspension

5th Offense

Mandatory Court

$500 Fine Revocation

of Permit

CONTINUED GROWTH

QUESTIONS

Overview – Nevada Taxicab Authority

NV Taxicab Authority Legislative Testimony of Administrator Charles D. Harvey

February 2013

NV Taxicab Authority 2

Good afternoon. For the record my name is Charles D. Harvey, Administrator of the

Nevada Taxicab Authority. I am here this afternoon to provide a brief overview of the

State regulatory agency responsible for overseeing the taxicab industry in Southern

Nevada.

A. Responsibility

The taxicab industry represents a critical component of the transportation

and tourism industry in the State of Nevada. The Taxicab Authority (TA or

Authority), was established by the Nevada Legislature in 1969. The TA is

responsible for regulating the taxicab industry in counties with populations

of 700,00 or more, which is currently Clark County. (NRS 706.881).

B. Mission

The Mission of the TA is to provide for the safety, comfort, and

convenience, of the taxi riding public.

C. Funding

The TA is a 100% fee-funded agency, receiving .20 cents for each taxicab

trip. Approximately 85% of our fees are derived from this per trip charge.

(NRS 706.8826(3). The remainder of revenue comes from medallion and

regulatory assessments, and driver fines.

All collected fees are deposited in a TA Fund to defray the cost of

regulating the taxicab industry. Estimated operating revenues for the


biennium exceed $10 million. Estimated reserves are projected at $4.9

million.

D. Taxicab Company Ownership (Certificate Holders)

The taxicab industry is comprised of nine owner groups operating 16

taxicab companies in Clark County. They employ approximately 10,000

cab drivers, and operate a fleet of approximately 3,200 taxicabs.

In 2012, more than 27 million passenger trips were provided to Clark

County visitors and residents.

E. How is this industry regulated?

1. The Taxicab Authority:

i. Issues licenses (called certificates of public convenience and

necessity) to operate taxicab companies;

ii. Determines the number of taxicabs authorized for use by each

licensed company;

iii. Issues permits to drivers, and provide each driver with safety

training;

iv. Establishes standards for the safe operation of taxicabs, and

conduct regular inspections to ensure that each vehicle used

to transport the public meets those standards;

v. Audits certificate holders;

vi. Establishes and monitor standards for drivers and the safety of

passengers;


vii. Determines rates, charges and fares for taxicab service;

viii. Conduct compliance checks and investigate alleged

violations;

ix. Impose penalties, which may include monetary sanctions,

suspensions and revocation of driver permits

F. Taxicab Authority Structure

1. TA Board

i. The TA is governed by a five member Board, appointed by the

Governor. (Term 3 years, no more than 2 terms – NRS

706.8818(1)).

1. The Board is currently chaired by Ileana Drobkin. The

four other members are:

a. Dennis Nolan

b. Josh Miller (Replaced by Bruce A. Aguliera, Esq. in

2014)

c. Joe Hardy Jr. (Replaced by James Campos in

2015)

d. Dean Collins

ii. Responsibilities include:


1. Conducting hearings and rendering decisions regarding

new and amended applications for to operate taxicab

companies (certificates of public convenience and

necessity

2. Adopting and amending regulations

3. Granting temporary and permanent medallion

allocations

4. Setting taxicab fares and rates,

5. Hearing certificate holder/driver appeals and complaints

from the public and the industry.

b. TA Administrator

i. The Administrator is the executive responsible for the control

and regulation of the taxicab industry, including oversight of

the daily operations of the TA.

ii. Organization

1. The TA is comprised of two Divisions: Administration and

Compliance/Enforcement.


iii. The TA’s Administrative Division consists of 15 employees.

1. The Administrator’s Office is responsible for the overall

control and regulation of the taxicab industry.

2. The Licensing & Permitting Section is responsible for

processing driver applications, conducting criminal

history background inquiries, administering driver tests,

and driver safety training. The five-member team

assigned to this unit processes more than 3,000 drivers

per month.

3. The Administrator conducts an in-house administrative

court. Citations issued to taxicab drivers may be

appealed to our administrative hearing officer under

contract with the Taxicab Authority. If a taxicab driver

disagrees with the hearing officer’s decision, the driver

may appeal the matter to the Taxicab Authority Board.

(NRS 706.8822)

4. The Taxicab Authority also subsidizes the Taxi Assistance

Program (formally known as Senior Ride).

a. This program managed by the Division of Aging

Services in the Department of Health & Human

Services, provides discounted taxicab fares to

qualified individuals, age 60 and older, and

persons with disabilities through coupon booklets

that are accepted by all taxicab companies in


Clark County. (NRS 706.88182 Adoption of regulations

establishing program for transportation of elderly persons and persons

with permanent disabilities.) (Category 10 Seniorride (9041 Trans

$594,616)

iv. The Compliance/Enforcement Division consists of 41

employees.

1. The Vehicle Inspection Unit employs National Institute

for Automotive Service Excellence – certified

mechanics to perform quarterly inspections of all

taxicabs in Clark County to ensure the safety, comfort,

and convenience of the riding public. Taxicabs that

fail inspection are taken out-of-service until repairs are

made and the cab passes re-inspection. (7 employees) NRS 706.8833 Color scheme, insigne and design of cruising lights.

NRS 706.8834 Maximum period of use of vehicle as taxicab; condition of

vehicle acquired for use as taxicab; extension of period for hybrid electric

vehicle.

NRS 706.8837 Standards for taxicabs before operation. (lists 14 standards

including: steering mechanism, brakes, exhaust system, windows,

speedometer, headlights, taillights, stoplights)

NRS 706.8838 Structural defects

2. The TA’s Communication Center is the initial point of

contact between the Taxicab Authority, the general

public and local police agencies. Public Safety

Dispatchers track and dispatch enforcement officers to

various incidents involving taxicabs in Clark County.


3. The Compliance/Enforcement Unit employs category II

- certified peace officers who respond to incidents and

accidents involving taxicabs. Officers investigate

complaints, initiate enforcement efforts targeted at

recurring problems in the industry, and issue citations for

violation of Taxicab Authority laws and regulations.

(29 employees) NRS 706.8845 Standards of conduct while on duty. NRS 706.8846 Prohibited acts concerning destination of passenger.

NRS 706.8847 Compliance with passenger’s directions; exceptions.

G. Challenges

The Taxicab Authority faces challenges similar to many other State

agencies. Staffing, outdated equipment, technology, facility and vehicle

needs, infrastructure, changing needs of the riding public. However, there

are significant challenges that the Taxicab Authority must address as a

regulatory agency. These include: 1) How many taxicabs are needed to

satisfy the needs of the riding public, and 2) What will the Las Vegas

infrastructure support; 3) How will technological changes in the

transportation industry impact the “traditional” regulated taxicab

industry?

Over the last two years I have seen the effect of over & under allocation

of taxicabs, and how this impacts the taxi operators, the taxicab

companies, and the riding public. To help address this question, the


Taxicab Authority has created a dialog with community partners to

discuss short & long-term goals for the taxicab industry in Nevada.

Collaborative efforts with the Regional Transportation Committee, the

Nevada Transportation Authority, the City Mayor’s Office, the Hotel &

Resort Industry, McCarran International Airport, Clark County, and the Las

Vegas Metropolitan Police Department, have led to the inclusion of the

Taxicab Authority on planning committees.

Internal Challenges:

1. Equipment & Technology: The Taxicab Authority must quickly

evolve to keep pace with the technological and digital changes

occurring in the transportation industry. Technology has

changed the way that we live. This is also the case in the Taxicab

Industry as we are experiencing a digital and technology

revolution. From electronic meters to electronic trip sheets, radio

frequency identification devices, GPS and credit card machines,

the Taxicab Authority must plan, prepare, understand and adapt

to the challenges of the next generation of “Smart Technology.”

A new generation of smart phone technology is being

introduced into the marketplace – for taxicab operators, vehicles

and regulators.


2. Staffing: The Taxicab Authority operates on a 24/7 basis. I have

taken proactive steps during my administration to improve

internal operations. However, the demand for taxi service,

combined with the increased number, of taxicabs in operation,

and the high level of cab driver turnover creates tremendous

challenges for the Taxicab Authority, and the transportation

industry. Additional staffing is necessary to meet our goal of

providing for the safety, comfort and convenience of the riding

public.

3. Vehicles: The Taxicab Authority relies heavily on its patrol and

inspection vehicles to regulate the taxicab industry. The Agency

has approximately 24 vehicles, which are utilized 24 hours per day

by Investigators and Vehicle Inspectors. Prior Agency

Administrations authorized the practice of assigning take home

vehicles. In September 2011, I determined that the use of take-

home vehicles placed unnecessary wear and tear on an already

aged fleet. I therefore discontinued the allowance of take-home

vehicles. With an outdated vehicle inventory, I have embraced

a comprehensive approach that seeks the replacement of

Agency vehicles through a partnership with State Motor Pool

and/or directly through State purchasing. Of the 24 vehicles that

were on hand in May 2011:


• 3 - sent to salvage;

• 80% - more than 5 years old

• 70% - more than 70k miles

• 10% - more than 100K miles

4. TA Facility: The Taxicab Authority facility is no longer suitable for

our operations. It is my recommendation, (supported by the

Industry) that the Taxicab Authority relocate to a larger, more

modern facility. The lease of the current facility has been

extended through September 2013, as the Agency seeks

approval for funding to relocate the Agency. Shortly after my

arrival at the Taxicab Authority, I began working with State

Buildings and Grounds to address the building lease expiration

(November 30, 2011), as well as ongoing building issues. Building

issues notably began in July 2010, one month prior to the FY12-

FY13 budget submission in August 2010, escalating from basic

housekeeping to safety concerns, and have continued to date.

The predominant reoccurring issues include 1) Gas leaks; 2)

Climate control; and 3) Plumbing, all which have resulted in

operation closure.

This relocation project has been included in the Agency’s FY14-15

budget. This matter was not proposed during the last session as

the existing lease was current and the building condition was


deemed satisfactory by the prior administration, supporting the

request of maintaining a flat budget. Currently, with the

recommendation of State Buildings and Grounds, consideration

has been given to agency relocation, and it was determined in

the best interest of the Authority to relocate to a more modern

facility, which is centrally conducive to the constituents served by

the TA. Enhancements

H. Budget Enhancements

The Governor’s budget contains an enhancement request of $234

thousand dollars, to relocate the Taxicab Authority from our current

facility, to a larger, more modern facility near McCarran Airport. This

request is a result of an expired lease and ongoing maintenance issues at

our current facility. The preferred new location will provide additional

space to support industry growth, facilitate hearings and training with

separate public access, and provide a secure environment for

confidentiality and storage of driver and investigation files. Funding for this

enhancement will come from Taxicab Authority Revenues.

I. Closing

The final three pages of my handout discuss the Taxicab Authority budget

request for the biennium. On page 12 – you will see the budget request by

activity. Page 13 list positions by activity, and page 14 provides the

Governor recommended budget for FY14 and 15.


In my pursuit of a more effective, efficient and responsible regulatory

agency, I’ve discovered that the Authority is faced with significant internal

and external challenges. It is my goal to quickly move forward with

process improvements and proposals for technological changes for

taxicab operators, taxicabs, and taxi regulators.

Thank you for the opportunity to provide this overview. I would be happy

to answer any questions that you may have.