2. Literature Review

2.1 Review of Other Evaluations

Many other transportation systems have incorporated and evaluated HOV systems and components similar to those used in the Salt Lake system. This section features individual discussions of several related HOV evaluations.

2.1.1 Houston System

The I-10W Katy Transitway is an eleven-mile radial corridor originally built as a transit expressway. When it opened, vehicles with at least two occupants were allowed in addition to transit vehicles. Presently, the corridor allows vehicles with three or more occupants during peak hours and two or more at regular hours. About 45 percent of Katy's users ride buses. The success of Katy has helped pave the way for a growing network of HOV lanes in Houston, now totaling 74 miles (4).

2.1.2 Oregon Evaluation

The Oregon Department of Transportation evaluated I-5 before and after the introduction of a HOV lane (5). Four follow-up evaluations were conducted and the results from the last evaluation indicate:

• HOV lane drivers save an average of eight to ten minutes when they drive the entire length of the corridor.
• The number of persons using the HOV lane is greater than the number of persons using a GP lane. The HOV lane carries approximately 2,600 people per hour and a typical general-purpose lane in the same area carries about 1,700 people per hour.
• Occupancy compliance rates are at about 92 percent. This percentage is average compared to HOV lanes nationwide.

2.1.3 New Jersey Failure

New Jersey recently closed two HOV lanes, I-80 and I-287, and re-opened the lanes to all vehicles. The HOV lane on I-287 was used very little with fewer than 400 vehicles per lane-hour (vplh). This flow was not nearly high enough to alleviate the high congestion problem on this corridor. The I-80 HOV lane, however, was used heavily with more than 1,000 vplh. However, political opposition spilled over from the I-287 closure and encouraged the closure of I-80's HOV. Neither of these HOV facilities carried much transit service nor was the public prepared for the initial opening of lanes. They therefore lacked a sufficient HOV market (4).

2.1.4 Virginia Success

In Northern Virginia I-66 extends west from downtown Washington, D.C. The HOV lane on this corridor was originally designated for vehicles with at least three occupants but was changed to vehicles with at least two occupants. This relaxation of restrictions produced a 60 percent increase in ridership (1,700 vplh) (4).

2.1.5 California Evaluation

Caltrans operate 1,061 miles of HOV lanes and is constructing an additional 162 miles. On average, California's HOV lanes carry 2,518 persons per hour during peak hours - substantially more people than a congested mixed-flow lane and roughly the same number of people as a typical mixed-flow lane operating at maximum capacity. In terms of vehicles carried, however, California's HOV lanes are operating at only two-thirds of their capacity. There has been some political discussion that HOV lanes encourage alternative fuel vehicles to utilize the HOV lanes as a way to increase alternative vehicle attractiveness. Transportation engineers are slow to accept this idea as they are trying to focus on the purpose of transportation: to move people. There are some locations where dual occupancy is being implemented. This includes two or more occupants during off-peak times and three or more during peak-times. Some bridges in the San Francisco Bay area eliminate tolls for HOV vehicles during peak times. Regional data indicate that HOV lanes do encourage people to carpool, but the statewide impact on carpooling is unknown due to lack of data. The exact impact of HOV lanes on air quality is also unknown (3,6).

2.1.6 Seattle HOV Evaluation

In the Puget Sound area of Seattle, Washington there are 205 miles of HOV lanes with 330 lane-miles planned by 2010 and 500 more planned by 2030. More than 100 of these lane-miles are arterial. According to the Washington State Department of Transportation (WSDOT) HOV study (7, 8), congestion occurs for nearly fourteen hours per day. HOV lanes average between 700 and 900 vehicles per hour during the midday periods with HOV lanes carrying as many people as the GP lanes. In a public survey, 95 percent of the HOV users thought HOV lanes were a "good idea" while only 72 percent of HOV users agreed. The top five options to improve HOV lane usage were determined to be:

1. Better enforcement
2. Inside access ramps
3. HOV lanes to inside lanes
4. Employer subsidies
5. Increased bus service

The Washington State Patrol (WSP) wrote 3,500 warnings and issued 9,000 tickets during 2000. This was a 49 percent increase in violation citations. The increased enforcement was coupled with the new HERO program. HERO allows motorists to self monitor the HOV lanes by reporting violators via web or phone. Upon first offense violators are sent educational material on HOV lanes. For a second offense WSDOT sends a personalized letter emphasizing the proper use of the HOV system. For a third reported offense the WSP sends a personalized letter noting the date, time, and location of the reported violation. The HERO program received 43,879 reports of violation in 2000, a 6 percent increase from 1999. Less than 6 percent of those reported were second time offenders and less than 1 percent had three offenses or more. The program is credited with reducing repeat HOV violators.

2.1.7 Performance Summary

Nationwide, there are 22 cities with HOV lanes and more than 2000 HOV lane-miles. Approximately 52 percent of the HOV lanes are enforced 24 hours a day, seven days a week. Approximately 86 percent HOV lanes require two or more facilities with the remainder requiring three or more ridership. More than eighty percent of HOV lane users have two riders in the vehicle. When HOV user requirements increase to three or more occupants, 80 percent of HOV lane use is reverted back into the GP lanes. HOV lane violation averages 10 to 15 percent nationally. The purpose of HOV lanes is to increase vehicle occupancy and reduce travel time for private vehicles as well as for transit service. MOEs typically include volume, vehicle occupancy, speeds/travel times, violations and public attitudes. Both continued monitoring and informing the public of system benefits are key to the nationwide success of the programs. Southern California has forty sample locations monitoring 400 of its 1061 lane-miles.

2.2 Review of Other Agencies' Educational Programs

2.2.1 Marketing HOV Lane in Long Island

A HOV lane on the Long Island Expressway underwent an extensive marketing effort. The HOV lane opened in 1994 but the marketing of the lane began much earlier. The marketing program had two major objectives: 1) to promote the HOV project to stakeholders as a highway improvement project to gain support for the project, and 2) to build a constituency among potential HOV lane travelers to encourage usage. This marketing program consisted of three parts. First, to provide factual information to stakeholders about the Long Island HOV system and other HOV lanes around the country. Second, to expand the planning process outside of the traditional departments and cooperate with other agencies. And third, to bring together a diverse collection of private and public interests early in the project to encourage support for the HOV concept (9).

2.2.2 Gaining Public Acceptance in Tennessee

The Tennessee Department of Transportation (TDOT) implemented a HOV lane in 1993. Due mostly to a collective marketing effort by TDOT, the Regional Transportation Authority, and other state and local jurisdictions, the lane achieved a high level of support. The campaign utilized free media and paid television and newspaper advertising. It sent information by mail to 38,000 residents and provided newsletters to public policy makers. In addition, outdoor billboards, bus bench boards, and signs on buses were used. The campaign cost approximately $100,000 (10).

2.2.3 Marketing in New Jersey

While the New Jersey HOV lane failure was a transportation setback, the exclusive bus lane serving the Lincoln Tunnel remains a successful HOV facility. Based on the failure of one HOV project and the success of the other, New Jersey implemented a $2.5 million marketing campaign to promote a new HOV lane on I-80 in Morris County. The marketing campaign had six goals:

• Heighten public awareness of the HOV mission
• Build constituencies and partnerships with employers and elected officials at the local, county, and state level
• Increase public confidence
• Develop accurate expectations
• Encourage HOV facility use and mode shift
• Enhance future HOV project planning

The campaign first sought to create good relations with the print media. Briefings were held with newspapers and reporters who were given status reports throughout the project. The campaign also provided information to television and radio stations and numerous press conferences were held. In addition, one million people were contacted through direct mailings, windshield fliers, and notices accompanying license renewal forms (11).

2.2.4 Marketing Features and Benefits of Carpool Lanes

Donna Carter, an expert in marketing carpool lanes shared some of her marketing experiences at the Seventh International Conference on HOV systems in 1994 (12). According to Carter, because HOV lanes are implemented as a part of a major highway reconstruction, it is best to present the entire transportation system as a whole and provide information on HOV lanes as part of that system. Carter found that motorists find the name HOV confusing and are further confused when the statistical benefits of HOV lanes are presented in miles instead of in time. Carter also noted that research indicates that people overestimate the HOV violation rate. In some areas travelers thought that violation rates were as high as 70 percent when in reality the violation rate was under 10 percent. Commuters must be educated about HOV lanes to dispel misconceptions. Carter says the safety of HOV lanes must be emphasized; the benefits must be presented in terms of time saved driving; and the public must learn that HOV lane violators will be fined. In closing, Carter noted that marketing efforts must continue after the HOV lane is opened. Continuous communication is critical to increasing and maintaining public HOV lane usage.