Transversal Accessibility to the Metropolitano in Lima, Peru by ACCEPLAN

TRANSVERSAL ACCESSIBILITY TO THE METROPOLITANO IN LIMA, PERU Diagnosis and proposals for urban improvement in the vicinity of the BRT stations

EXECUTIVE SUMMARY

Pilot Project for Transversal Accessibility to the Metropolitano Contracting entities:

Consultant: UTE ACCEPLAN y ROVIRA-BELETA ACCESIBILIDAD

STUDY, DIAGNOSIS, ANALYSIS AND PROPOSAL FOR ACTION TO IMPROVE ACCESS CONDITIONS FOR PEOPLE WITH DISABILITIES TO THE METROPOLITANO SYSTEM World Bank - PE Mainstreaming inclusive design and universal mobility in Lima : P129561 November - 2014. ACCEPLAN ACCESIBILIDAD S.L.

www.aceplan.com | info@acceplan.com Madrid - Barcelona, Spain

ROVIRA-BELETA ACCESIBILIDAD S.L.P.

www.rovira-beleta.com | info@rovira-beleta.com Barcelona, Spain

ÂŠ ACCEPLAN ACCESIBILIDAD S.L. 2014 Any total or partial reproduction of this document is forbidden without the previous authorization of its authors.

EXECUTIVE SUMMARY

Index 1. Project background 2. Justification and general methodology 3. The mobility of persons with functional limitation in the COSAC-1 4. Problems perceived by users and their participation in the solutions 5. The access conditions surrounding the stations 6. Selection and integration of alternatives: implementation of multiple criteria analysis 7. The final decision by means of implementation of the Multiple Criteria Matrix 8. Activities in participation, distribution and consensus on decisions 9. Criteria for the 5 preliminary intervention proposals 10. Description of the proposed draft for Quilca - 2 de Mayo 11. Final conclusion

UTE ACCEPLAN ROVIRA-BELETA ACCESIBILIDAD

TECHNICAL TEAM Area 1: SOCIAL Manager: Technical team: Support:

Marcel E. Velasquez Landman (Anthropologist) Ruben Ruiz Marticorena (Anthropologist) Susana Stiglich Watson (Educator) Marco Salinas (Historian)

Area 2: DISABILITY

Manager: Support:

Enrique Rovira-Beleta Cuyás (Architect) Ana Folch Méndez

Area 3: MOBILITY Manager: Technical team:

Alfonso Sanz Alduán (Geographer and Statistician) Miguel Mateos Arribas (Civil Engineer) Juan José Martínez Marín (Civil Engineer)

Area 4: AACCESSIBILITY AND URBAN DESIGN Manager: Technical team:

Eliana Pires de Souza (Architect and urban planner) Mariano Calle Cebrecos (Architect and urban planner) Anna Alòs Paulet (Architect) Francesco Cocco (Architect)

Area 5: COORDINATION Project Coordinator: Multiple Criteria Matrix: Technical team:

Fernando Alonso López (Economist) Zenira Pires de Souza (Mathematician Ph.D. RSC) Angelia Berndt (Production Engineer Ph.D.) Ivan Tamajón Velasco (Sociologist)

1. PROJECT BACKGROUND

The urban mobility in Lima, a city of 9 million inhabitants, poses several different types of problems that have worsened over the years. In the early 90s the lack of infrastructure and planning was joined by the deregulation of urban transport, the emergence of hundreds of informal lines served by low capacity, old and unsafe vehicles, (the so called combis, coasters, etc.) which began to compete among themselves for passengers in every corner of the city. This situation has remained until today and only the appearance of the Metro Line 1 and the Metropolitano BRT has been a substantial, though insufficient, change in the public transport landscape of the city. Of the 14 million trips made by Lima inhabitants daily, around half occur in public transport, with the line 1 and the Metropolitano representing little more than 5% of the total. It is safe to say that, the Metropolitano is the most ambitious urban transport project carried out so far in metropolitan Lima. It is a BRT system (Bus Rapid Transit), consisting of a 28 kilometre corridor, segregated from traffic, along which high-capacity buses quickly and safely connect urban areas with high demands for mobility, specifically the northern and southern zones (Cono Norte and Cono Sur) through the centre of the city. Via that single axis, called the COSAC 1 (Segregated Corridor of High Occupancy), over 630,000 people travel daily (July 2014), while the number of passengers using the –up to now- single line of Metro de Lima is around 150,000. But the corridor along which the articulated vehicles of the Metropolitano travel is only part of the system. At the end of the line, the so called “feeder lines” ferry thousands of passengers from the different neighbourhoods into the main line via twenty auxiliary bus lines using unsegregated roads. After the implementation of this new form of bus massive transport in 2010, new challenges were raised to improve the quality of the journey for different users, such as the congestion of passengers at certain times, the system’s performance and its future development before the increasing demand. One of the requirements is to ensure an independent and fair use for everyone, regardless of their physical characteristics, or disability. According to the 2012 ENEDIS1 survey, the number of Persons with Disabilities (hereinafter referred to as PWD) in Lima amounted to 636,439, representing 6.8% of the total population of the region2.

1 The First Specialized National Survey on Disability, conducted in 2012 by the National Institute of Statistics and Data (INEI) and the Ministry of Women’s Affairs and Populations at Risk (MIMP), in urban and rural areas of Peru’s 24 regions, plus the Constitutional Province of Callao. 2 According to the INEI, Lima’s population in 2012 gets to 9,395,149 inhabitants.

The system (fixed infrastructure, rolling stock and information and communication systems) is originally designed to be accessible to all these people, but in operational practice some of the conditions of use are inadequate, or insufficient, as explained later on. Additionally the Metropolitan is inserted into a complex urban structure and is poorly adapted for use by PWD; consequently, access to stations from the transverse routes and the intermodal connection with other urban transport is inadequate. In this context, the International Bank for Reconstruction and Development (BIRF) has donated the Metropolitan Municipality of Lima (MML) the amount of US $ 2,500,000 from the Bank of Japan to intervene in improving urban access of the COSAC1 corridor stations. In 2012, it approved the project, PHRD TF011294, “Mainstreaming of Inclusive Design and Universal Mobility in the Lima Transport Project”, which is included in the Plan of Action of the MML, and its execution is entrusted to the public municipal company PROTRANSPORTE. The project included the need to carry out a technical and social diagnosis for the selection of one or more of the COSAC 1 stations in order to improve safety and remove urban barriers that deter people with disabilities from using the system. This intervention should take the form of a pilot project and be refined through a pre-proposal for urban design, comprising the main technical characteristics and an economic estimate for implementation. The project’s general objective is to “Improve the quality of cross-accessibility conditions for PWD at the Metropolitano stations”, focusing specifically on the conditions of the urban environment in which the COSAC 1 corridor stations are located. On the 10th of December 2012 the Opening Workshop of the Project took place in a ceremony held at the Sheraton Hotel in Lima with the attendance of approximately 200 participants. This event was presented to a Panel of Experts, to participate in conjunction with the Technical Team from PROTRANSPORTE in overseeing the project during all stages. The Panel was made up of recognized professionals, many of them disabled and very knowledgeable about the issues faced by these groups. The next step in the process was an international competition entitled “Development of the Diagnostic Study, Analysis and Intervention Proposal to improve the accessibility of the Metropolitano for PWD” (hereinafter referred to as, METRACC). The tender for the contract over consulting services was won by the consortium UTE ACCEPLAN and ROVIRA-BELETA ACCESIBILIDAD, and was signed on the 21st of April 2014.

Image 1: Route of the COSAC1 corridor on a map of the Limaâ&#x20AC;&#x2122;s Metropolitano

2. JUSTIFICATION AND GENERAL METHODOLOGY

The Metropolitano is the first mode of public transportation in Lima that people with functional limitations can use independently; however, the need or importance of this project for these people raises as a consequence of the following factors: • The streets and public spaces around the stations of the Metropolitano present serious accessibility deficiencies particularly regarding pedestrian safety. The connections with other means of mobility: bus feeder lines and others such as combis, coasters, taxis and private cars, pedestrian and bicycle access also pose problems of accessibility and functionality. • The weight of people with functional limitations (disabilities and other limitations, such as carrying babies, being heavily pregnant, limbs in plaster or serious injuries, etc.) in the global mobility of Lima is unknown, and their specific needs or demands have not been sufficiently studied, nor their needs or opinions taken into account in other projects that may directly affect them. • Peru and Lima lack of updated regulations and reference standards on accessibility for the design of urban areas, facilities and transport infrastructure. • There are no precedents of comprehensive urban intervention projects which have taken into account the above aspects, nor is there any knowledge regarding technical and design criteria to be applied. Given these needs, and with the general objective of improving the quality of the transversal accessibility conditions for PWD at Metropolitano stations, it was proposed to carry out a technical and social assessment about the main parameters of use in each of the stations along the corridor. Through this assessment the selection of areas in the vicinity of one or more of the COSAC 1 stations to intervene would take place, in order to develop the corresponding pilot urban improvement project, to be financed by the World Bank grant. This assessment includes research and a participative process in order to learn:(1) the mobility needs of the PWD, (2) the concrete demands of these groups, in terms of mobility in the side streets leading to the stations and its approaches, and how they are satisfied, and (3) architectural and pedestrian safety barriers existing in each of the areas evaluated. The information ascertained from these studies would be used to identify the station in which intervention is paramount, through the use of a multi-criteria methodology. The project diagnosis carried out had three fundamental perspectives: • • •

The needs of the target groups (PWD and functionally limited citizens). The accessibility of the urban thoroughfare around the station. The PWD mobility needs along the COSAC line.

Of the 38 stations of the corridor, PROTRANSPORTE, along with the Panel of Experts, proposed a selection of 5 considered to have the greatest importance for the mobility of PWDs. The urban intervention should be conducted in one of those, namely: • the two stations at the north and south ends of the line, the stations Naranjal and Matellini, • the “Estación Central”, located in the centre of Lima, which acts as a key reference point for the COSAC1 due to its location, facilities, available services and exchange point between the lines circulating in the corridor. • two stations on the Vía Expresa, expressway connecting South Central, Canaval-Moreyra and Angamos, which because of its high passenger traffic due to its proximity to areas of office and retail, they are also considered major stations. A first review of these criteria and the first fieldwork lead the consultant consortium to propose some changes over the group of selected stations. First place Angamos and Matellini, have both undergone a recent refurbishment intervention in their surroundings, so it made no sense to raise a possible new intervention as a result of the Project. Protransporte and the Panel of Experts, decided to replace them with Tomás Valle station and a combination of two stations neighbouring each other in the central area of the city: Quilca and 2 de Mayo. The reasons for including these stations are of different sorts but fundamentally, the exchange with other major transport lines occurring there, the existence of representative places around and the concentration of health centres and facilities which are a priority destination (or “centres of attraction”) for the selected users. Finally, using technical and participatory criteria, the project had to analyse and develop improvement proposals for the cross roads and urban fabric around the 5 pre-selected stations: Naranjal, Tomás Valle, Canaval y Moreyra, Central and Quilca - 2 de Mayo. The consultants proposition to enlarge the target groups under study, due to their affection by the accessibility conditions, resulted in the inclusion of people with functional limitations due to their advanced age, mothers in advanced stages of pregnancy and passengers –generally women- carrying babies or small children, either in their arms or in buggies. The resulting classification used to segment the target population and carry out counts and interviews was: 1. 2. 3. 4. 5.

Youths/adults with reduced mobility but able to walk Elderly persons with reduced mobility but able to walk Autonomous wheelchair users with reduced mobility Assisted wheelchair users with reduced mobility Passengers with other physical limitations: manual disabilities such as arms and hands, very overweight, etc.. 6. Blindness or visual impairment 7. Apparent mental or cognitive limitation 8. Apparent deafness or hearing impairment 9. Adults with buggies, small children, etc. 10. Mothers in advanced stages of pregnancy or carrying babies Both changes were discussed with PROTRANSPORTE and the Panel of Experts, and were finally accepted.

3. THE MOBILITY OF PERSONS WITH FUNCTIONAL LIMITATION IN THE COSAC 1

Accessibility, urban design and mobility are closely linked to making it possible for people with disabilities to use the bus, hence the need to analyze the travel demand of the Metropolitano in detail, as part of a study of accessibility at stations and their vicinity. For this purpose counts were carried out of the persons with functional limitations entering stations along the COSAC1, both during the week and weekends/holidays as well as interception surveys. In the five major stations counts were performed on a weekday throughout the hours of operation (16 hours) and were supplemented with the study of other stations of the Metropolitano (33 stations) during two periods, of 4 and 2 hours, representing peak and off-peak hours in each of them respectively. A total count of 556 hours on weekdays was conducted. During holidays (public holidays) counts were performed in two periods, one of 4 hours, between 8am and 12pm, and another of 3 hours, between 5pm and 8pm, in each of the corridor stations equally. These times were chosen, as it has been noted that it is when the greatest use of the Metropolitano occurs on Sundays. A total of 301 hours of counting on bank holidays was conducted. As for the interception surveys, they were carried out on a random sample of 500 users with disabilities (plus an additional 10% for support). In order to optimize the statistical representativeness of the sample, the bulk of these interception surveys was carried out in the 5 selected stations, where increased demand is concentrated and it is therefore easier to achieve significant representation regarding types of users, travel patterns and desired travel. TYPE OF DISABILITY

MINIMUM NUMBER OF RESPONDENTS

Young persons with reduced mobility but able to walk

Adults with reduced mobility but able to walk

Autonomous wheelchair users

Assisted wheelchair users

Pregnant mothers or carrying babies

Blindness or visual impairment

Apparent mental and cognitive limitation

Apparent deafness

Adults with buggies

Others

OBSERVACIONS

Spread over the 5 main stations. No less than 50 surveys per station TTable 1: Distribution of surveys by type of disability. Source: compiled from field work and the Focus Group.

The results of the counts indicate that PWD or functionally limited persons represent 1.14% of the total number of passengers using the COSAC 1 on a weekday, although this figure only includes those who the surveyors at the entrances of the stations, could visually identify as such, so the figure is necessarily underestimated. In terms of distribution throughout the hours of operation of the system, Image 2 shows the differences in access to stations by PWD or functional limited persons (red bars) relative to the set of all users (grey bars). Users with functional limitations spread their travels more evenly throughout the day, without any very pronounced peaks of use. This indicates that, when possible, these people prefer to travel either at periods or from stations with lower levels of congestion.

Considering the use of the stations by these groups, it is remarkable that 42% of the validations (travel starting point) registered in the COSAC1 stations (image 3) are centered in the 5 major stations. When including also the information about travel destinations, this percentage rises until 66% of total daily travels. This data confirms the importance of the 5 major stations in the Metropolitano BRT system.

Image 2: Distribution of travel times for people with functional limitation of mobility in the five major Metropolitano stations (weekday) Image 3: Endorsements per station on the Metropolitano (April 2013) Source: Compiled from information from PROTRANSPORTE

When considering the composition of people entering stations, the category corresponding to “Women in advanced stages of pregnancy” or “Carrying babies” is the majority representing 48% of the total, followed by persons with reduced mobility but able to walk, (totalling another 35%). All this is shown in Image 4, which shows the results of the counts made on the 28th of April 2014 in the five major stations of the system during the hours of 6am to 10pm.

Another important aspect is the motivation of the trip on the Metropolitano. We analysed the answers given by PWD, which leads us to conclude that, as is the case for the general population, travel to work make up the majority among these groups (46%), followed by trips to the doctor (25%) and others such as leisure, studies or shopping with a much lower incidence. The final destination of the trip also was collected in interception surveys conducted in the stations, allowing the development of geo-referenced data base, classified by type of centres of attraction and from categories and frequencies shown in Table 2:

Number of Centres identified

Number of times indicated

1. State Institutions

111

2. PWD associations

3. Educational Institutions

4. Hospitals, clinics and health centers

5. Rehabilitation centres

6. Shopping Centres

104

143

7. Social and sports clubs for PWD

TOTAL

367

489

Centres of Attraction

As for the foreseeable future evaluation by these groups it should be noted that the Metropolitano transport system of Lima is currently close to saturation (630,000 trips / day in July 2014 faced with a maximum capacity of 700,000). This means that a notable increase in demand may not occur, especially during peak times. Given that the congestion in stations and vehicles is the main difficulty to overcome by PWD in the use of the Metropolitano, if measures are not taken to alleviate it, there is a clear risk that this group may be gradually ejected from the system, reducing its use, especially by the disabled and visually impaired.

Image 4: People with various (recognizable) limitations entering the Metropolitano. Table 2: Travel centers of attraction identified. Source: Compiled from fieldwork and Focus Groups

4. PROBLEMS PERCEIVED BY USERS AND THEIR PARTICIPATION IN THE SOLUTIONS

The methodology of the study was designed to collect the perspective of different groups of PWDs and other functional limitations along the different stages of the consultancy. It has sought to rely on their views and experiences in the diagnosis and in the review of the proposals developed by the consultant team (“concept test”) in the second part of the job, and in the final participatory workshop. The elements of this approach are summarized in the following table.



   

Qualitative studies conducted with representation of PWD: 12 focus groups to determine the needs of PWD or other functional limitations: 7 with PWD, 4 with elderly people and 1 with mothers carrying their children. In total 100 people from 24 districts of Lima took part. 7 ethnographies or monitoring of persons of different functional typology in the city and on the Metropolitano. 8 in-depth interviews with experts in disability, accessibility and transportation. 6 group exercises to present and discuss the proposals made. 1 final participatory workshop to oppose the solutions proposed.

The focus groups were designed to gather perceptions, motivations, expectations and suggestions of involvement of people with limitations in using the COSAC1. The main barriers, benefits and risks faced by different groups in passing through the city and alternative solutions to these problems were identified. The ethnographies, for their part, were designed as follow-ups to observe and identify the barriers and risks that citizens of the key groups face throughout their mobility chain in situ and directly, including on the Metropolitano; and to identify the strategies and patterns they use every day to get around using this medium. The semi-structured in-depth interviews involving eight experts and leaders from the world of disabilities and senior citizens, enabled the collection of information on issues such as mobility in the city of Lima, changes in public transport, the importance of the Metropolitano for the mobility of people from key groups, as well as collecting specific suggestions from the experts to improve accessibility for these groups. By combining these various research projects complementarity was sought, and it was hoped that the information that each contributed enabled the comparison and contrast of different perspectives of both groups of users and specialists.

Some conclusions drawn from these analyses, mainly from the focus groups are as follows: -

The major obstacles identified by the experts in ensuring that Lima is an inclusive and accessible city are the problems in attitudes towards PWD, followed by deficiencies in infrastructure.

The attitude towards PWD and senior citizens are often negative to the extent that it is considered that their interests are opposed to the other persons. It is for this reason that their rights and needs are not respected and they are marginalized from public spaces such as transport.

So that the means used, such as transmitting messages through information campaigns are more effective, it would be necessary to establish sanctions for offenders who use spaces or exclude PWD and senior citizens.

PWD are still not empowered in society, though having greater presence of in public spheres. This would be the first step towards having real influence on decision-making.

The infrastructure changes in the urban fabric are still far from achieving accessibility in the city and transport, but gradually some works that aim to achieve accessibility are being developed. However, the participants stated that when there are no officials and technicians really interested and with the knowledge needed to achieve universal access works, such works are badly carried out.

The most prominent problem for users is the overcrowding of passengers. Within the bus this means that the same passengers unwilling or unable to ensure the accessibility and convenience of PWD, senior citizens and those carrying babies.

The group with the most difficulties in moving around the city is the mobility limited PWD, especially if they live in remote areas, unless they can invest large sums of money in their own transports means. Given the unfriendly urban infrastructure and limited solidarity of the drivers, it is observed that they usually take much longer to mobilize and spend much more than anyone. It is extremely complicated to transit, especially in the feeder lines.

Deaf of persons with hearing limitations are the group that presents fewer problems in adjusting to the urban infrastructure of public spaces and means of transport. Except for very specific problems, they have very good access to the Metropolitano service; however, their disability in some cases affects their treatment of others due to communication barriers and they are not perceived as PWD, thus excluding them from services received by other groups with disabilities.

The Intellectual PWD are gradually gaining some independence in Lima, including having greater autonomy to use public transport, which has gradually been achieved in some cases. Currently, none of the intellectual PWD that participated in the focus groups travel alone on the Metropolitano, even though their families recognize that it is more reliable than other means of public transport. For fixed stops a greater sense of security than in the external stations and buses. Those who do not usually use the system unaccompanied argue that they do not go alone because of the fear of confusing their whereabouts, of getting lost within the system, or wandering the streets after getting off at a station they do not know. The Metropolitano lacks proper signage for this specific group.

The shortcomings of the information system stand out among the accessibility obstacles within the Metropolitano stations. In visual terms it must understandable to everyone, especially senior citizens and intellectual PWD, for whom the information presented is very complicated. Nor are there adequate specific information systems for visual PWD; while these individuals are intuitively located at the stations, they need the support of others to board the correct bus. However, in large stations like the Central station, they very often get lost. In the case of auditory information, the visual PWD indicated that often the messages are not adequately audible and this should be improved.

Image 5: Images of some of the Focus Groups, ethnographies and interviews carried out.

5. THE ACCESS CONDITIONS SURROUNDING THE STATIONS

The evaluation of accessibility in the urban environment of the COSAC 1 stations, begins by considering the existence of Accessible Pedestrian Routes (hereinafter referred to as APR) on the itineraries accessing the stations. According to the Ministerial Order VIV 561/2010, of the 1st of February establishing the development of the technical document of the basic conditions of accessibility and non-discrimination for access and use of urbanized public spaces, in Spain3, â&#x20AC;&#x153;pedestrian routes are those that guarantee non-discriminatory use and autonomous and continuous movement for all personsâ&#x20AC;?. A first observation allows us to deduce that the study of accessibility in the crossroads accessing Metropolitano stations in is very influenced by the unequal distribution of space between the motor vehicles and the pedestrian routes, especially at the crossing points. Just as in other large cities in Latin America, in Lima the car is the clear protagonist in the city, with pedestrians being exposed to situations of great insecurity. That is what the accident figures show: in Latin America, the number of deaths from traffic accidents is three times higher than in Europe. Based on this study of the urban surroundings of the 38 stations of the COSAC 1, we have identified the main barriers to accessibility in pedestrian routes, including non-existent crossings, inadequate traffic islands and other security issues. For the selection of these outstanding barriers we have taken into account the frequency with which they have been detected in the areas around the stations, and the impact they have on both the accessibility and the security of the pedestrian route. From this analysis, some recommendations are derived regarding the accessibility in the urban surroundings of all COSAC 1 stations. These are considerations to be taken into account during the intervention and maintenance works to be carried out in any of the stations of the line (see Para. 7)

https://www.boe.es/diario_boe/txt.php?id=BOE-A-2010-4057

Image 6: Analysis of itineraries in the urban environment of the station Canaval y Moreyra. In red the most problematic points are marked, especially informal, poorly designed or badly measured pedestrian crossings without pedestrian signals, with unsafe intermediate traffic islands poor paving or inadequate ramps.

Image 7: Different situations and shortcomings noted in the diagnosis.

The main barriers identified in the surroundings of the 38 Metropolitano stations are: - - - - - - - - - - - - - -

Poorly designed pedestrian ramps: reduced passage width, steep slope, inadequate placement of the ramp, lack of tactile pavement surface Insufficient space in intermediate traffic islands Elevated curbs at corners Interruptions to the route due to badly placed elements Congestion Incorrectly oriented pedestrian signals Interruptions to the route due to kiosks and / or street trading Central traffic islands to access the stations without sufficient turning space Scalable railings Street furniture: provision, location and design Invasion of the sidewalk due to grates and commercial elements Absence of criteria for the alignment of an accessible pedestrian route on the pavement Lack of signage and pedestrian protection during public road works Implementation and maintenance problems

Existing accessibility solutions are insufficient and not very functional, since the majority are basically limited to ramps at corners. Among the most common problems we must highlight the constant exposure of pedestrians to risk at intersections between pedestrians and motor vehicles itineraries.

Poorly designed pedestrian ramps.

Insufficient space in central traffic island.

Elements of street furniture misplaced.

Pedestrian traffic lights outside the visual field of the pedestrian.

Street vendors on the sidewalk.

Insufficient space in central traffic island accessing the station.

Pedestrian crossing with central island dangerous for schoolchildren.

6. SELECTION AND INTEGRATION OF ALTERNATIVES: IMPLEMENTATION OF MULTIPLE CRITERIA ANALYSIS

The information collected in the diagnosis by the different teams of specialists (social, mobility, accessibility) has revealed the characteristics that determine the design of the solutions to be applied in the projects proposed for the five main stations. The results were subsequently integrated into a mechanism to optimize solutions in order to best select the station where the intervention is well founded and is suitable from the different points of view considered: the transport needs of people with functional limitations, equal opportunities, safety and comfort in the use of public space and access to the Metropolitano. To address the integration of the various analyses, the methodology was designed as summarized in the chart below.

The whole information regarding the station where to intervene was reflected in a multiple criteria matrix. This method allowed to connect different criteria in order to evaluate the five main stations, enabling the conciliation of the general and specific objectives and strategic decision-makers.

Image 8: Outline of the methodology developed

The structure of the matrix is organized according to the three areas covered: mobility conditions of PWD and functional limitations, accessibility features of the stations’ urban environment, and the problems founded by these groups when using the Metropolitano. For the construction and operation of the Multiple Criteria Decision Aid Methodology (MCDA), the MACBETH (Measuring Attactiveness by a Categorical Based Evaluation Technique)4 multiple criteria approach was followed, allowing the construction of a quantitative model referring to qualitative evaluation by the decision maker. It is divided into three phases interacting with each other: STRUCTURING, EVALUATION and RECOMMENDATION, as shown in the illustration below.

The final design of the matrix is made using the combined work of the technical team and the sector specialists in the three major areas considered: social, accessibility and mobility. The relevant variables for each area are set in the STRUCTURING process, when the real decision problem is determined. A tree structure was designed to allow a simple and transparent representation of a complex initial problem, offering a view of the criteria to be considered in evaluating the alternatives. These criteria should be non-redundant and independent of each other. Illustration 13 shows a small example of the hierarchical criteria tree developed. The reading of the tree starts at the top level, where the most strategic context objective is situated; below this continue the study areas, subareas and criteria or sub-criteria.

On this page: Image 9: Phases and contents in developing the multi-criteria model. On the next page: Image 10: Evaluation model of PLF access to the Metropolitan.

In this example we can notice that the Accessibility area was divided into three sub-areas: urban design, characteristics of use of public space, and conditions for maintenance and improvements carried out / foreseen. One of the criteria defining the Urban Design sub-area is the PVF 16 - Pedestrian Crossing, which due its amplitude was deployed into four sub-criteria:

PVE 16.1 - Pedestrian ramps, PVE 16.2 - Intermediate traffic island, PVE 16.3 - Pedestrian crossing, PVE 16.4 - Pedestrian traffic lights 4 BANA e COSTA, C.A., Structuring, construction and operation of a model of Multiple Criteria Decision Aid, PHD Thesis, Universidade Técnica de Lisboa, 1992.

In turn, the PVE 16.2 â&#x20AC;&#x201C; Intermediate traffic island was also divided into two subcriteria, in order to be better evaluated:

PVE 16.2.1 - Level of the island PVE 16.2.2 - Dimensions of the island

In total 25 PVF (criteria) and 58 PVE (sub-criteria) were defined, to represent the decision-making framework of this project. The tree structure with each of the areas under study with their respective areas, criteria and sub-criteria is presented in the following graph. The tree structure below presents the complementarities between the 3 areas of interest defined by specialists: the Social area contains the perception of users of the Metropolitano transport system; the area of Physical-Spatial Accessibility and the area of Mobility represent the existing and available infrastructure for the use of the groups of people studied. One way of evaluating the alternatives is to use the multi-attribute value, which is a unique criteria method of synthesis. A value function can be considered a tool to help the decision maker to express their preferences. It is used to classify the intensity of preference (as opposed to attraction) between levels of a descriptor.

The function of the value is expressed in a lineal addictive aggregation form, as the following specification: V(A) = w1*v1(A) + w2*v2(A) + w3*v3(A) + … + wn*vn(A) where: V(A) – overall value of the alternative A Vi – v1(A), v2(A), ... , vn(A) – fpartial value functions of the alternative A in relation to the attributes i = 1, 2, ..., n Wi – w1, w2,..., wn – rate of weighting of the attributes i = 1, 2, ..., n; Σwi =1 n – number of attributes The analysis results are presented and discussed in paragraph 7.

Image 11: Tree structure of the Multiple Criteria Matrix.

7. THE FINAL DECISION BY MEANS OF IMPLEMENTATION OF THE MULTIPLE CRITERIA MATRIX

23-24

III

Location of the 5 major stations selected: 14- Canaval y Moreyra, II- Central, 23-24- Quilca - 2 de Mayo, 31- Tomรกs Valle, III- Naranjal.

7. THE FINAL DECISION BY MEANS OF IMPLEMENTATION OF THE MULTIPLE CRITERIA MATRIX

The following table summarizes the values resulting from the application of the multiple criteria approach in terms of accessibility. The values are derived from the type and amount of barriers identified in the diagnostic work for each station. Positive values mean a better situation with respect to a neutral value set by the specialists; negative values mean the opposite.

Weight

Naranjal Station

Tomas Valle Station

Quilca y 2 de Mayo Station

Canaval y Moreyra Station

Central Station

PVF 16 - Pedestrian crossing

20,00%

-31

-133

PVF 17 - Pedestrian route

15,00%

100

PVF 18 - Urban furniture

10,00%

-140

-20

-60

PVF 19 - Crowds

10,00%

100

PVF 20 - Kiosks and / or street trading

7,50%

-300

100

PVF 21 - Commercial activity occupying the sidewalk

7,50%

-150

100

PVF 22 - Pavement Condition

10,00%

100

PVF 23 - Improvement Works performed / prior

20,00%

100

-200

100

-12

-49

-70

General Evaluation

From the resulting values it appears that the stations Quilca y 2 Mayo, Tomás Valle and Naranjal obtained the worst scores in the criteria evaluated: -70, -49 and -12, respectively. Consequently they should be, in that order, the first to receive improvements. The second aspect relates to assessing the conditions of mobility. From that point of view the Naranjal station receives a greater influx of PWD, senior citizens and people carrying babies followed by the station Quilca y 2 de Mayo and the station Tomás Valle, in this order. The assessment of user perception regarding the accessibility confirms the need for improvements in all three stations. As regards the social assessment, the third aspect to value, the following chart presents the assessments as perceived by each of the groups for the set of criteria that define the social area and which have been primarily derived from the information collected in the qualitative studies conducted. These values were determined according to the formula presented above. For example, the overall assessment for the PWD mobility group is - 32 which was determined by the sum of the product of the rate of each criteria for each score received by this group. It was similarly calculated for different groups of people with disabilities / functional limitations.

Table 3: Evaluation of the Multiple Criteria Matrix (accessibility) in the five stations

As Table 4 shows the resulting assessment for all groups was negative, which means that the vicinity of the stations-considered as a whole- is not accessible to them. Weight

PWD PWD Motor Visual

PWD Audio

PWD Intellectual

Senior citizens

Persons carrying babies

PVF 1 - Pedestrians towards PWD and senior citizens and carrying babies

4,0%

PVF 2 - Drivers of private vehicles

7,0%

-67

PVF 3 - Public transport drivers

8,0%

-53

-23

-40

-53

-93

PVF 4 - Public transport conductors (revenue officers)

6,0%

100

PVF 5 - Other public transport users

5,0%

-100

PVF 6 - Visual information PVF 7 - Audio information PVF 8 - Tactile information PVF 9 - Risk of falls and injuries PVF 10 - Traffic hazards PVF 11 - Robberies and assaults PVF 12 - Temporary obstacles on the sidewalk PVF 13 - Barriers on the sidewalk

8,0% 5,0% 7,0% 8,0% 10,0% 7,0%

-133 -39 -65 -11 -26 0

-133

-6 -26 -100

-100 -39 -26 -11 0 -100

-133

-39 -65 -11 -26 0

-133 -79 -65 -11 -26 0

4,0%

-165

-15

9,0%

PVF 14 - Road maintenance obstacles

7,0%

PVF 15 - Obstacles due to crowds of people

5,0%

-99

-80

-99

-59

General evaluation

-32

-21

-12

-35

-30

-20

-6 0 0

It can be concluded from the overall assessment that it is the intellectual and mobility PWDs, along with the elderly those who perceive greater difficulties in using the stations evaluated. For these groups there are different serious problems: from the attitude of the drivers of private vehicles (PVF 2), to that of the drivers of public transport (PVF 3), the visual and tactile information (PVF6, PVF 8), the risk of falls and injuries (PVF 9) or the obstacles due to congestion of passengers (PVF 15). The final result identifies the priority station for intervention, and is obtained primarily from the resulting values in the accessibility sub model. The reason is that neither the information on mobility nor the social information refers to the urban environment outside the stations, which is where the interventions will be made. In the first case, the information about the journeys made using the Metropolitano is taken into account but do not change the result. And regarding the second, the social value, it is very important to set priorities in the types of interventions, because it allows to identify those groups most in need of improvements in accessibility. These are, in order: (1st) intellectual disability, Table 4: Evaluation of the Multiple (2nd) mobility disabilities and (3rd) senior citizens. This information can be crucial Criteria Matrix (attitudes and to focus on the type of intervention according to target groups and elements others) for different functional whose values are more negative, but do not allow a hierarchy between stations. limitations.

In summary, the resulting classification of multi-criteria analysis, depending on degree of need for intervention in the environment of the stations would be:

1º QUILCA – 2 DE MAYO 2º TOMAS VALLE 3º NARANJAL 4º ESTACIÓN CENTRAL 5º CANAVAL Y MOREYRA So we can conclude that the area between the stations of Quilca and 2 de Mayo takes priority over the rest in the need of improvements due to the facts that it has the worst accessibility conditions in its vicinity according to all parameters evaluated, and it is very relevant to the mobility of PWD and functional limitations over the COSAC1 system.

8. ACTIVITIES IN PARTICIPATION, DISTRIBUTION AND CONSENSUS ON DECISIONS

Once the results of the multi-criteria model are known and robustness tests have confirmed the resulting selection, it had to be validated by the users through a round of group exercises (â&#x20AC;&#x153;concept testâ&#x20AC;?) and a participatory workshop with representatives of the users was performed. The improvement proposals for the urban vicinity of the 5 main stations was also discussed. The concept test main part consisted of presenting the design proposals submitted for each area to groups of technicians, representatives and experts from the different target groups (senior citizens and people with motor, audio, visual, and intellectual disabilities). In total 6 meetings were held each with a number between 6 and 10 assistants, in addition to the technical team, between the 21st and 23rd of July 2014. The participatory workshop, meanwhile, served to present and openly discuss the results of the evaluation and selection of the station through the multi-criteria analysis as well as, and the types of improvements to be developed and the criteria considered. The workshop was attended by over 40 representatives of organizations of persons with disabilities, among which a large consensus on the option finally obtained was reached, as well as on the quality work undertaken by the technical team. The main concerns raised in the group dynamics and the workshop was focused on the following topics: 1. The level of influence that the study may have on improving the regulatory and quality standards. The interest by attendees in learning how they could implement the recommendations and alternative interventions proposed by the study and how they could be included in the Municipal regulations or national technical standards since in many cases these were or they used beyond current standards. The attendees hoped that the project will set a precedent with the improvements proposed, considering that its quality standards are higher than those prevailing under current regulation. It has also been recognized that the project is an opportunity to generate good practice manuals. 2. The necessary unification of criteria for universal accessibility improvements in urban improvements. The accessibility solutions implemented in the city need to be standardized to achieve universal accessibility. This applies especially to the signage and implementation of urban infrastructure adequately studied, and that this is reproduced as standard throughout the city. All this would result in improved physical accessibility, improving access to information, and increased security.

3. The importance of coordination between different bodies to avoid overlap, destruction and delay in the construction of infrastructure. It was clarified to the attendees that the Municipality of Lima and Protransporte, would be responsible for making appropriate arrangements with utilities and with the municipalities where they will perform the intervention proposed by the study. 4. The need for awareness campaigns focusing on several aspects, such as information on the treatment of PWD, driver’s training or general education and urban planning, among others. The participants of the focus groups frequently stressed the importance for any accessibility improvement program to include public awareness programmes. 5. The accessibility and service problems that still exist inside the stations Although not being part of the subject in this project, various accessibility issues were addressed regarding the interior of the Metropolitano stations. Amongst the most mentioned problems were: • Accessibility issues from the entrance to the access point of the bus. • Problems using the lifts by the public. • The space between where the bus is parked and the platform (especially for users of electric wheelchairs). • The existence of elevators with Braille writing in English. • The need for high relief maps at the stations. • The need to install reflective tape. • The need for auditory and visual information about the routes and their whereabouts. • The need to include important announcements by visual means, such as visual announcements when each line arrives. • The need to rehire guides at the stations. • The need for service windows designed and equipped (induction loops) so that deaf people are able to communicate. • The need to allocate a separate colour to identify each bus line.

On the next page: Image 12: Images of some of the group exercises carried out.

Group dynamics undertaken with motor PWD.

Group dynamics undertaken with visual PWD.

Group dynamics undertaken with intellectual PWD.

Group dynamics undertaken with hearing PWD.

Group dynamics undertaken with senior citizens.

9. CRITERIA FOR THE 5 PRELIMINARY INTERVENTION PROPOSALS

Any intervention project in the physical urban space should come based on a broad perspective of the model of street / neighbourhood / city that is referential for it and grounded with general and technical criteria. The correct implementation of accessibility improvements cannot be detached of design and urban planning. Without these, the results of the accessibility improvements will always be limited, if not useless. The urban improvements to be applied in the public space transversal to the Metropolitano stations in the COSAC 1 comprise different levels of action over the infrastructure, planning and urban facilities to allow greater and better access to the transport system. When travelling within the urban vicinity PWD are integrated into a space characterized by a physical infrastructure fundamentally fixed (pavement, vehicle carriageway, traffic islands etc.), some more or less movable equipment (street furniture, urban elements, elements of signalling and communication etc.) and a set of applications that determine the use of space and the movement of people. Backing its proposals, the consortium ACCEPLAN and ROVIRA-BELETA has long experience in proposing intervention models. In this case the structural element proposed is the Accessible Pedestrian Route, APR, which ACCEPLAN developed for the Spanish standard governing the accessibility of public spaces in Spain: the Ministerial Order VIV561 / 2010, cited above. To be an APR a pedestrian route must meet certain minimum width and height characteristics, evenness and slopes, lighting, provision of street furniture, signage, etc., which are detailed in the aforementioned standard. In the case of the streets of Lima, various solutions have been provided applicable depending on the morphology of the road and the mobility requirements. The following figures show the outlines according to sidewalk widths available.

The criteria adopted in the preparation of proposals for the intervention in the environment of the five selected stations, Naranjal, TomĂĄs Valle, Canaval y Moreyra, Central, Quilca - 2 de Mayo, are briefly described below: General criteria used in the drafting of proposals: 1. Promotion of a network of Accessible Pedestrian Routes (APRs), to access the stations, which, as a general rule, will pass along the faĂ§ade. 2. Redistribution of the available space on the sidewalk, so that both the street furniture, such as kiosks, and the street vendors have an assigned place that do not invade or impaire the accessible pedestrian route (APR) 3. Improving road safety at intersections between pedestrian and vehicular routes: - Alignment of pedestrian crossings and its main elements: pedestrian ramps, central traffic islands (intermediate traffic islands), etc. - Improved visibility from the sidewalk to the vehicle carriageway and vice versa, - Improved signalling: painting pedestrian crossings, vertical Pedestrian crossing signal, and adjustment of alignment and orientation of the pedestrian traffic lights. 4. Formalization of already existing improvised pedestrian routes that were identified as viable routes in the assessment stage. 5. Shortening the distance of the pedestrian routes in the pedestrian crossings. 6. Adjust the measures of vehicular carriageway lanes, starting from the identification of leftover spaces resulting from oversized width of lanes, parking areas and vehicleâ&#x20AC;&#x2122;s turning radius. 7. Unification of the design criteria used: - Vehicle turning radius: 6 m in the axis of the lane. - Vehicular lane Width of: 3 m (applicable to streets that have at least 2 lanes of traffic). - Width of pedestrian streets up to 3 lanes with light traffic flow: 6 metres. - Width of pedestrian streets up to 4 vehicle lanes with moderate flow: 8 meters - Width of pedestrian streets over 4 lanes with intense vehicular flow: 10 metres 8. Expansion of sidewalk space through gaining the residual spaces existing on the vehicular road. 9. Alignment of street furniture on the outer edge of the sidewalk. 10. Replacing the pavement in poor state of preservation and specific repairs. On the next page: Image 13: Proposal for management of pedestrian routes according to street width.

11. Rationalisation of signage and information elements present in the public space, reducing their number so that they do not take away space from pedestrians on the sidewalk. To this end the grouping of these signalling elements and information in shared uprights displays it is proposed, and its location outside the APR

Availability of APR in reduced width sidewalks.

Availability of APR and stretch for furniture placement in reduced width sidewalks.

Availability of APR in wide sidewalks, with the presence of commercial elements on both sides.

12. Promote activities to encourage road safety culture, both among drivers and among pedestrians. It should cover different aspects of the proper use of public space, such as road and parking discipline, public awareness of the diversity and needs of people, road safety, etc. It should always have an impact on the functional diversity of the citizens (needs of the disabled) and the need for universal accessibility. The priorities identified in the preliminary draft interventions, seek to compose a continuous network of accessible pedestrian routes. The proposal prioritization focuses on the points where we have identified the most serious barriers to pedestrian mobility, as well as safety problems at intersections between pedestrian and vehicular routes. Specific accessibility criteria used in the preparation of proposals 1. Design criteria for the construction of accessible pedestrian ramps. 2. Construction of pedestrian crossings raised to pavement level (these elements also act in reducing the vehicle speed), or speed humps. 3. Construction of pedestrian crossings with the pavement at the same level as the vehicle carriageway in cases where it is advisable for the characteristics of the urban network and / or the use of the road. 4. Pedestrian crossing with intermediate traffic island (central island) leveled with the vehicle carriageway. 5. Unification of criteria for the application of tactile pavement throughout the city. Definition of its main function: “Blister surface” for warning in the absence of a kerb upstand and “corduroy” or longitudinal strips “ for guiding in absence of vertical surfaces. Avoid confusion on the basis of its restrictive and appropriate use; without excess, repetition or shortcomings. 6. Differentiate location of the APR according to sidewalk width : adjacent to the line of buildings or located in the centre of the pavement.

On the next page: Image 14: Images of the proposals made for the urban environment of the five main stations.

Formalization of improvised pedestrian route in the vicinity of the station Canaval y Moreyra.

Sloped pedestrian ramp and intermediate island (central traffic island) level with the vehicle carriageway.

Central traffic island accessing the station Tomรกs Valle level with the vehicle carriageway.

Reformulation of the pedestrian crossing and building an accessible access route to the elevated pavement.

10. DESCRIPTION OF THE PROPOSED DRAFT FOR QUILCA – 2 DE MAYO

10. DESCRIPTION OF THE PROPOSED DRAFT FOR QUILCA â&#x20AC;&#x201C; 2 DE MAYO

There are several factors that make the surroundings of the stations Quilca and 2 de Mayo the most suitable area for conducting a trial model in terms of improving accessibility, safety and pedestrian mobility in Lima. The principal accessibility barriers identified in the assessment stage for the chosen option, Quilca-2 de Mayo, are located in the vicinity of the Plaza 2 de Mayo. This square holds a junction of extreme importance in urban mobility at the centre of Lima; it acts as a redistributor of traffic and concentrates a number of modes of urban transport, coming from different parts of the city. Other objective reasons that reinforce this choice are: 1. The poor state of the pedestrian crossings stands out from other areas, fundamentally around the Plaza 2 de Mayo because of insufficient space on the sidewalks to manoeuvre wheelchairs and the lack of pedestrian traffic lights. 2. The sidewalks do not have enough space to support the existing pedestrian mobility needs. Crowding on the sidewalks is due to the large demand of pedestrian mobility and commercial activity taking place in the area. 3. Its importance as attracting area of travel for PWD and persons with other functional limitations (such as pregnant women, mothers with babies, the elderly, etc.) due to the presence of health centres, such as the Archbishop Loayza and San Bartolome Hospitals, clinics, consultants and clinical laboratories, etc. 4. Spot highly representative in the context of the city and visibility of the intervention. It is a central location that can take advantage of this opportunity to enhance its value. The project includes the expansion of pedestrian space together with access to the underground Metropolitano station, on the sidewalks around the square. It includes traffic modifications and pedestrian crossings to open the possibility of visiting the area inside the ring. All this will highlight the tourism potential of the square. 5. This intervention completes a series of accessible routes around the Metropolitano stations located in the historic centre of Lima. Its implementation will allow the completion of the network of accessible pedestrian routes around the Alfonso Ugarte Avenue. 6. There have not been any interventions nor are there any planned accessibility improvements in the urban vicinity of the Plaza 2 de Mayo square, despite the existing serious accessibility problems.

On this page: Image 15: Partial aspect of the redevelopment of the Plaza 2 de Mayo. On the next page: Image 16: Pedestrian crossing in the vicinity of the Plaza 2 de Mayo. Image 17: Plan of the proposed intervention of the Plaza 2 de Mayo and outline with the pedestrian circulation area.

The main elements of the intervention are the following: • Reconfiguration of the urban space in the Plaza 2 de Mayo, starting from the use of residual space identified in the vehicular carriageway. • Enlargement of sidewalks in the vicinity of the square, redesigning the pedestrian crossings at all intersections. • Extension of the area of pedestrian use at the station access, covering an open area over the access to the lower underpass. • Creation of an accessible pedestrian route of access to the centre of the square, which also allows a direct connection between the two entrances to the station. • Improvements in the signage in the surrounding area facilitating the orientation of the people regarding access to the station. • Reconfiguration of the urban space of Jiron Zepita Street. Widening the sidewalks and redesign of the pedestrian crossings, to promote an accessible pedestrian route connecting the Avenues Alfonso Ugarte and Garcilaso de la Vega along which other regular bus lines circulate. It could be a starting point for posing new solutions to the security problems identified in this street. • Redesign of the pedestrian crossing at the intersection between Jirón Zepita and the Avenue Garcilaso de la Vega. • Accessibility improvements to sidewalks and pedestrian crossings in Jirón Quilca Avenue, as an alternative direct connection between Avenue Garcilaso de la Vega and the Quilca station.

Current State

Proposal

Current State

Proposal

Plaza 2 de Mayo: P edestrian area - current state.

Plaza 2 de Mayo: edestrian area - proposal

11. FINAL CONCLUSION

Last August 12th at the Sheraton Hotel in Lima the final conference of the project was held. It was called “RADIATING ACCESSIBILITY: Results of the Metropolitano Transversal Accessibility Project” and the work carried out and its final results were presented in summary form. Through this act the participatory and communication process of the project was closed, the satisfaction of the various parties involved in its development was ascertained and the final results were presented through the intervention of speakers and the audience. After the conference the consultants have continued completing the contractual commitments for the development of the final instalments, including the Baselines of the Pilot Project. The project is thus able to tackle their following phases: preinvestment, technical file, bidding for the project and carrying it out, all of which PROTRANSPORTE should undertake shortly. We must emphasize the sense of the title used in the Conference “radiating accessibility”. This title is perfectly consistent with the philosophy and scope of this project, to claim a substantial improvement in accessibility for people with disabilities and functional limitations on the Metropolitano by intervening in the cross roads, improving pedestrian crossings, the sidewalks and pavements, the street furniture etc. and ultimately, the urban design for the benefit of the entire population. The measures to introduce not only improve the accessibility for one group of users; they do so for everyone and also significantly increase safety on the streets accessing the stations. Thereby, the Metropolitano exceeds its limits (the COSAC 1 corridor and the 38 stations), to promote an intervention in the public spaces of their surroundings, including improved traffic management or the conditions of use of a square as characteristic as the Plaza 2 de Mayo. This ability to “radiate” accessibility to the city in which it is inserted is an innovation and an opportunity. It is innovative that a means of public transport, designed to be accessible, generate actions to facilitate people with disabilities to reach it, and to do so at points up to 500 meters away from the station. But above all it is an opportunity to contemplate the improvement of accessibility through different eyes; the eyes of an improvement for all users and to the city itself. The Metropolitan can radiate accessibility to the city, and this can perceive the benefit of transferring these improvements to other points, not necessarily located in the vicinity of the stations. That would be the best result we could get from this project.

Fernando Alonso-López Project coordinator

“Las ciudades son libros que se leen con los pies.”

“Cities are books that are read with your feet.” Quintín Cabrera (Uruguayan singer-songwriter)

TRANSVERSAL ACCESIBILIITY TO THE METROPOLITANO IN LIMA, PERU

Diagnosis and proposals for urban improvement in the vicinity of the BRT (Bus Rapid Transit) stations

EXECUTIVE SUMMARY

Contracting entities:

Consultant: UTE ACCEPLAN y ROVIRA-BELETA ACCESIBILIDAD