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    MetrocaatllnAlex HutchinsonLand Use & Transportation

    ART Technologyin MedellnRio de Janeiro andCaracas

    Accessibility-Mobility- Equity:

    Accessibility-Mobility-Equity: ART Technology in Medelln, Rio de Janeiro

    and CaracasAlex Hutchinson

    URSP 633: Transportation & Land Use

    Word Count: 3,089

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    ABSTRACT

    Development policy makers and transportation experts have praised Aerial RopewayTransit systems based on their ability to connect isolated areas of developing cities to the

    formal economy, while critics have passed judgment based on the affordability of ART

    systems to local residents and their technical limitations. Informal transportation fills thevoid of mobility for low-income residents by providing frequent and low-cost paratransitservices in traditionally underserved areas. The shortage of transportation makes access

    to participate in the formal city low. Yet transportation formalization can be beneficial tothe city overall while simultaneously being detrimental and reducing access to the city

    due to increased transportation costs. This paper is a starting point that examines ARTsystems case studies in Medelln, Caracas and Rio de Janeiro through the lens ofengineering history, development paradigms, equity concepts and transportation mobility

    and accessibility theory.!

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    LIST OF ABREVIATIONS AND ACRONYMS

    Acceleration Growth Program-(PAC)!Aerial Ropeway Transit -(ART)

    Bus Rapid Transit -(BRT)

    Informal Urban Settlements-(IUS)

    Integrated Urban Project-(PUI)

    Inter-American Development Bank -(IDB)

    Monocable Detachable Gondola -(MDG)

    Multilateral Development Banks-(MDB)

    Non-Motorized Transportation -(NMT)

    Passengers Per Direction Per Hour-(PPHPD)

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    LIST OF FIGURES AND TABLES

    Figure 1. City Case Studies Modal Share

    Figure 2. Medelln Metro Map

    Figure 3. ART case study city locationFigure 4. Overcrowding in line for metrocable

    Figure 5. Caracas Metrocable

    Figure 6. High level Brazilian politicians

    Table 1. ART System Attributes

    Table 2. Pros and Cons of ART Technology

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    1

    For nearly two centuries Aerial

    Ropeway Transit (ART) has been used

    for mobility in mines, ski resorts, touristic

    destinations, and in urban environments

    (Neumann, 1999). More recently, developing

    cities including Medelln, Colombia, Caracas,Venezuela, and Rio de Janeiro Brazil have

    used ART to provide transit service to

    inaccessible and remote locales. Dozens of

    cities around the world are in the process

    of, or are conducting feasibility studies to

    construct ART systems as a form of transit

    (Alshalalfah, 2012). Development policy

    makers and transportation experts have

    praised ART systems based on their ability to

    connect isolated areas of developing cities to

    the formal economy, while critics have passedjudgment based on the affordability of ART

    systems to local residents and their technical

    limitations. This paper is a starting point that

    examines ART systems through the lens of

    engineering history, development paradigms,

    equity concepts and transportation mobility

    and accessibility theory.

    Urban Informality

    Many developing cities have

    seen informal growth in areas that formal

    developers dare not build due to their risk of

    environmental hazards such as landslides,

    RRGVRURWKHUQDWXUDOGLVDVWHUV$V

    urbanization surges throughout the world,

    PDQ\FLW\QHZFRPHUVRFNWRXUEDQDUHDVWKDW

    commonly perch atop steep hillsides or rest

    DORQJORZRRGSODLQV

    Informal urban settlements (IUS)

    may be squatter settlements or legally hold

    land rights but are subnormal in servicesprovided. They differ from formal settlements

    in the sense they lack legal plats. Due to

    their remoteness utility services such as

    water, sewage, electricity, trash collection

    DQGWUDQVSRUWDWLRQDUHGLIFXOWWRSURYLGHIRU

    residents.

    Poor road networks in IUS translate to

    prolonged travel times for residents frequently

    SURYLGHGE\XQRIFLDORULOOHJDOWUDQVSRUWDWLRQ

    FRPSDQLHV,QIRUPDOWUDQVSRUWDWLRQOOVWKH

    void of mobility for low-income residents by

    providing frequent and low-cost paratransit

    services in traditionally underserved areas.Informal transportation modes are diverse and

    they include motorcycle-taxis, minivans, and

    bicycle rickshaws. The informal companies

    are owner-operated, additionally informal

    transportation is a source of employment for

    low-income, often migrant citizens (Cervero,

    2011). Informal vehicles are often the only

    possible mode capable of maneuvering in the

    narrow street networks of IUS (Lindau, 2012).

    Therefore ART is increasingly being turned to

    as a formal transportation solution to the lackof access and mobility to the central city.

    Access & Mobility Theory

    Access to schools, health clinics,

    recreation and education in IUS is poor due

    to their isolated locations. Distances from

    the central business districts or employment

    FHQWHUVDUHVLJQLFDQWDQGWKHUHIRUHUHTXLUH

    VHYHUDOWUDQVIHUVDQGWLPHWRUHDFKQDO

    GHVWLQDWLRQV7KHVWDQGDUGGHQLWLRQRI

    accessibility is the ease of reaching desired

    destinations given a number of available

    opportunities and impedance to the resources

    used to travel from the origin to the

    destination (Bocarejo, 2010). Despite dense

    street networks, local conditions in IUS often

    lack the same diversity of opportunities as

    the formal city. Critical resources such as

    hospitals, schools, sports facilities, banks

    and community centers are often lacking

    exacerbating endemic problems of health,education and unemployment. The shortage

    of transportation makes access to participate

    in the formal city low. Planners in IUS are

    beginning to bring activities and improve

    land uses to increase access to essential

    VHUYLFHVZLWKRXWKDYLQJWRSURYLGHVLJQLFDQW

    transportation upgrades.

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    2 -Hutchinson

    Mobility, or the ability to reach activity

    sites is a requirement for participation in the

    formal city. In the United States mobility

    typically necessitates an automobile, however

    in developing nations the majority of people

    still walk, bike or use public transportation tomeet their daily needs. Despite this favorable

    mode share, transportation investments and

    policies are being made that are inequitable

    because they enhance a small percentage of

    users mobility while reducing another groups

    accessibility (Hanson, 2004). A study from

    So Paulo, Brazil showed that low-income

    households make 50% fewer trips per day

    than their higher-income equivalents (CMSP,

    2003). Transportation planners and engineers

    KDYHW\SLFDOO\SULRULWL]HGLQFUHDVHGWUDIFspeeds and distances traveled rather than

    promoting policies that provide a high level

    of access to destinations and activities by

    means of compact development that promotes

    accessibility to a variety of mode users.

    Equity analysis for transportation

    projects can be problematic to categorize;

    what may seem equitable from one

    perspective may be the contrary from

    another. As a result equity analysis is done

    inconsistently or ignored altogether. Yet as

    unmanageable as equity analysis may be, it is

    essential to account for the different types of

    equity that exist: Horizontal Equity, Vertical

    Equity in regards to income and social class,

    and Vertical Equity in regards to mobility

    need and ability (Litmann, 2012). Motility

    is the combination of equity and mobility, in

    that mobility allows a user to access differentactivities in society, yet motility takes this

    concept one step further by allowing citizens

    social mobility and the access of different

    hierarchies of society (Can-Rubiano, 2010).

    Multilateral Bank Transport Investments

    Traditional transportation investment

    practices in developing countries have

    prioritized road building and increased and

    enhanced mobility as a pillar of growth.

    For decades, the World Bank, the Inter-American Development Bank (IDB) and other

    Multilateral Development Banks (MDB)

    have spent the majority of their investment

    portfolios in road investments despite the

    low motorization rates of developing nations

    (Hook, 2005). These myopic investments fail

    to acknowledge the fact the poorest residents

    do not have access to motorized vehicles

    WKHUHIRUHWKH\DUHQRWEHQHFLDULHVRIWKHVH

    projects.

    The goals of the MDBs aim to

    alleviate poverty while addressing the

    needs of societys most vulnerable citizens.

    Paradoxically road investments have done the

    opposite, endangering the lives of the poorest

    residents through increased air pollution and

    WUDIFDFFLGHQWVFDXVHGGLUHFWO\RULQGLUHFWO\

    by large, high-speed roads located nearby low-

    income housing (Vasconcellos, 2011).

    To give credit, the MDBs have

    begun to shift towards sustainable transportinvestments that more appropriately serve

    a spectrum of income levels in developing

    countries, particularly the banks low-income

    target, in terms of Bus Rapid Transit and

    Metro. However some have criticized formal

    transit investments as lacking vertical equity

    because they are unaffordable for the poorest

    Figure 1. City Case Studies Modal Share

    Source: observatorio movilidad urbano CAF

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    3

    members of society (Bocarejo, 2010).

    Affordability

    Numerous affordability studies have

    attempted to quantify transportation costs as

    a ratio to income. These studies do not agreeon a benchmark affordability index, in fact

    it varies greatly betweens cities and nations

    (Gomide, 2004) (Carruthers, 2005). Many

    policy makers in these studies advocate for

    increased transportation subsidies to address

    the affordability issue. However, they fail

    to recognize that the poorest members of

    society often use low-cost, non-motorized

    transportation (NMT) such as walking or

    bicycling, while moderate-income groups

    use more expensive formal transit systems.Following this analysis, subsidies would be

    incorrectly targeted at middle income groups

    due to the fact NMT has little to no cost, thus

    represents a smaller percentage for low-

    income groups (Estupin 2007).

    The poorest residents of

    Bogot, Colombia spend roughly 20% of

    their income on transportation. Although

    the formalization of the Transmilenio BRT

    system of Bogot overhauled and improved

    the citys public transportation system, in less

    than a decade Transmilenio fares doubled

    effectively pricing out many users of the

    system who were left with no affordable

    alternative for long distance travel due to

    the fact trunk bus lines were now solely

    operated by Transmilenio (Morales, 2010).

    The issue of affordability does not discredit

    the Transmilenio system as a whole for it

    has indisputably improved quality of life

    for the city in terms of reduced accidents,

    improved travel times, and air-pollutionreductions. More practically, the Transmilenio

    system is an example of how transportation

    IRUPDOL]DWLRQFDQEHERWKEHQHFLDOWRWKH

    city overall while simultaneously being

    detrimental and reducing access to the city due

    to increased transportation costs.

    ART Technology

    7KHUHH[LVWVVLJQLFDQWYDULDWLRQ

    in the speeds, passenger capacities and

    mechanical details of ART technology. Thesystems this paper will examine in Latin

    America were all installed by the Austrian/

    Swiss company Doppelmayr. Also in

    common, the systems all use the Monocable

    Detachable Gondola (MDG) system design.

    ART has been adopted in many cities as a

    form of urban transportation because of the

    following technical attributes: increased

    HQHUJ\HIFLHQF\WKHUHGXFWLRQRIWUDYHO

    times, a small construction footprint,

    H[LELOLW\LQQDYLJDWLQJGLIFXOWWHUUDLQ

    safety, low operation costs due to automated

    vehicles, fast implementation, and relatively

    low construction cost. However the systems

    currently being implemented are not without

    fault and these limitations will be addressed.

    Table 1. ART System AttributesAdapted from: Alshalalfah, Brand, SuperVia

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    4 -Hutchinson

    Medelln, Colombia

    Colombias second largest city, Medelln

    rests in the Aburr valley. Medelln is the

    historic and current industrial powerhouse,

    ZKLFKH[SHULHQFHGVLJQLFDQWJURZWK

    expanding from 350,000 to 1.5 million

    between 1951 and 1985 (Fukuyama, 2011).

    The citys growth was affected by Colombias

    GHFDGHVORQJFLYLOFRQLFWWKDWGLVSODFHG

    hundreds of thousands of Colombians from

    rural areas into the cities, many of whom

    relocated along the steep, precarious hillsides

    of the valley. When Colombia became the

    worlds largest cocaine manufacturer in 1980s,the violent Medelln Cartel based operations

    there deeply scarring the city, particularly in

    the 1990s and 2000s. The Medellin cartel

    ZDVGLVPDQWOHGEXWGUXJWUDIFNLQJRSHUDWLRQV

    still persist.

    In the 1980s the Colombian national

    government began to relegate power from

    the federal branch to local municipalities

    ZKHQDXUU\RISROLFLHVZHUHFUHDWHGWKDW

    mandated municipal elections, the creation of

    local development plans, and the integrationof subnormal settlements (Bahl, 2011).

    Following on the relative success of the

    PRIMED development program, the Medelln

    municipal government created the Integrated

    Urban Project, (PUI,its Spanish acronym.)

    PUI strategically target municipal funds

    to areas of the city with the lowest human

    development indexes. PUI in coordination

    with other municipal entities construct

    public work projects such as pedestrian

    bridges, libraries, schools, police substations,

    clinics, as well as stream and public space

    rehabilitations. The development of PUI

    are noteworthy for their approach to public

    participation in which citizen input is an

    essential part of the process.

    Many of these projects are supported

    in tandem by the development ofMetrocable

    ART projects that are used as a development

    Figure 2. Medelln Metro Map, Green & Yellow Lines are lines K and J Respectively,

    Source: ETMVA

    Figure 3. ART case study city location

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    5

    catalyst, For every dollar invested in the

    construction of Metrocable lines, stations and

    facilities, nearby PUI public works projects

    spent six times the amount (Brand, 2011).

    In collaboration with the

    municipalitys metro company ETMVA, thecity installed ART to connect with the existing

    heavy rail system. Documents from the

    agency also show that the metrocables were

    intended to channel ridership into the metro

    system a scheme similar to Rio de Janeiro

    ART. The metrocable system easily allows

    users to pay a single fare integrating the ART

    to distant regions of the city Medellns Metro

    and BRT systems. However the Metrocable is

    too expensive for many of the nearby residents

    to warrant its use in only but the mostnecessary trips when the alternative would be

    several bus transfers and fare payments. The

    V\VWHPKDVEHHQWRXWHGIRULWVVLJQLFDQWWLPH

    VDYLQJVEHQHWVKRZHYHUGXHWRWKHIDFWPDQ\

    residents face lengthy walks to stations and

    waiting times in lines that can last upwards of

    RQHKRXUDWSHDNSHULRGVWKHVHEHQHWVVKRXOG

    be examined carefully.

    Caracas, Venezuela

    Caracas the capital and largest city in

    Venezuela rests in the Caracas valley. Being

    one of the biggest cities in Latin America with

    a population of 5.9 million it has many of

    the problems of inequality and rapid growth

    in peripheral neighborhoods. Many of these

    neighborhoods are on steep hillsides where

    SURYLGLQJSXEOLFVHUYLFHVLVGLIFXOW7R

    address this issue the city looked to Medelln

    as an inspiration. The municipal government

    of Caracas decided to place the metrocable

    project in the San Agustn, neighborhood.The same level of public participation was

    not seen in the Caracas Metrocable project,

    in fact land use/transportation studies were

    not completed until after the initial line was

    close to realization (Modelistica, 2009). The

    passengers per direction per hour (PPHPD) are

    extremely low, at 500 this is 1/6th the capacity

    of the system (Barra, 2012). The system is

    primarily used by tourists (Alshalalfah, 2012)

    that raises the question as to whether these

    funds are truly being used as transportation

    investments or merely as economic

    development incentives.

    Unlike the Medellin metrocable,

    the Caracas San Agustn line is located in

    a low-density area that explains the low

    ridership. Despite this lackluster evidence of

    success, and recommendations to avoid future

    projects, the city has moved forward with the

    construction of another line with is anticipated

    to be completed this year. While these projectsare better located and have higher demand,

    they face the same capacity issues as other

    metrocable systems. The Caracas ART, also

    called MetrocableZDVVLJQLFDQWO\PRUH

    costly to build than the Colombian example,

    at a cost of $320 million, however most of

    this cost was attributed to station construction

    Figure 4. Overcrowding in line for metrocablesource: ETMVA

    Figure 5. Caracas Metrocable labeled with

    Equity Source: Gondolaproject.com

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    6 -Hutchinson

    that serves as community, health and police

    center. The line itself apparently had a cost

    RIPLOOLRQDJXUHFRQVLVWHQWZLWKRWKHUV\VWHPV7KHEHQHWVWKHVWDWLRQFRPPXQLW\

    center gives the affected area notwithstanding,

    the exorbitant cost for a community center

    and the metrocable in such a low density area

    and underutilized area, does little to improve

    mobility and access to the city. Solicited

    technical reports recommended against the

    4.8 km second line being built given the low

    capacity and high cost of the project. The

    report made alternative recommendations of

    enhancing the conventional road transport

    (Modelistica, 2009). Venezuelan decision

    PDNHUVMXVWLFDWLRQVRIWKLVSURMHFWVKRXOGEH

    questioned.!Rio de Janeiro, Brazil

    Rio, the second biggest city in Brazil

    experienced an intense period of growth as

    the capital city pushed for modernization.

    Millions of Brazilians left the destitute

    Northeastern region of the country andsettled in economically booming Brazilian

    cities such as Rio de Janeiro. During the

    military dictatorship of the 1960s favelas,

    informal communities in Portuguese, were

    cleared and residents were relocated to distant

    peripheral areas of the city where access was

    GLIFXOW'HO5LR&ULPHYLROHQFH

    and unemployment became rampant in these

    hardscrabble neighborhoods. Its estimated

    that 2.3 million Brazilians live in informal

    communities (Lindau, 2012). Brazil will host

    both the 2014 world cup and Rio the 2016

    summer Olympics, both events that will putan international spotlight on the country,

    particularly its obvious social, economic,

    and spatial inequalities. To prepare for

    these events, in addition to the tremendous

    economic growth the country is experiencing,

    the nation has undertaken one of its biggest

    public work projects in Brazils history the

    Acceleration Growth Program (PAC, by its

    Portuguese acronym) (Lindau, 2012). One

    of these projects is focused in the Complexo

    do Alemo section of the city, an area thatKDVIRU\HDUVEHHQGLVSXWHGGUXJWUDIFNLQJ

    WHUULWRU\DQGUHFHQWO\XQGHUZHQWDSDFLFDWLRQ

    process. Complexo do Alemo inaugurated

    %UD]LOVUVW$57LQDVWKHKLJKOLJKWRI

    the PAC project in the 13 conjoining favelas

    that have a combined population of 94,684

    residents (IGBE census, 2010). The ART

    represents over 1/5th of the total PAC cost

    a comprehensive project that also includes

    housing, water and sewage in addition to other

    services. The dense, path networks of the

    favelas provides the main form of mobility

    for reidents of Complexo do Alemo, 56.1%

    of whom walk as a form of transportation

    (Aquino). Rios system, the Teleferico of

    Alemo, has average lengths between stations

    of 567 meters. The system integrates with

    the Bonsucesso train station, operated by the

    private SuperVia train company. Teleferico

    stations are mixed-use with the development

    and inclusion of formal banks and institutions(Supervia, 2011).

    Citizens, many who reside in between

    the hill summits where the stations are located,

    face grueling inclines to connect to the system.

    The Rio system has a subsidy which provides

    free service for all residents of Complexo do

    Alemo, despite this free service only 8.4%

    Figure 6. High level Brazilian politicans

    inaugurate the Rio Teleferico Source: Roberto

    Stuckerdt Filho

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    7

    of residents have registered for the system.

    After this subsidy expires residents will have

    to pay a 50 fare and an additional $1.20 to

    integrate to the SuperVia metro. Authorities

    expected 70% of local inhabitants trips in

    Complexo do Alemo to be made by ART, yet

    nearly a year after inauguration the number

    is 11%. Average daily ridership is only 6,557,

    21% of the system capacity (SuperVia, 2012).

    (The Medelln system took several years to

    get to the level of ridership it has today.) The

    Complexo do Alemo, granted while in its

    nascence, is a project that potentially was

    created to increase government intervention

    DQGYLVLELOLW\LQDQRWRULRXVO\GLIFXOWWR

    patrol region of the city as the municipality

    leads up to the international events.

    Conclusion

    ART is worth closer examination due

    to its potential to provide mobility and accessWR,86DQGGLIFXOWWRUHDFKWHUUDLQ&LWLHV

    from all over the world are assessing the

    potential of ART in integration to metro and

    even BRT systems. However before decision

    makers build ART projects they must closely

    acknowledge several issues associated with

    their implementation. As many ART projects

    are in low-income communities the residents

    themselves are often unable to afford these

    systems. If it is found that subsidies should be

    provided, how will this affect ridership and theV\VWHPVQDQFLDOVXVWDLQDELOLW\7KH5LRFDVH

    shows us that subsidies alone will not increase

    ridership and that outreach and education

    must be carried out to include uninformed

    residents. While these projects are typically

    not exorbitant in cost, the low ridership as a

    mass transit system, when compared to Light

    Rail or BRT, posits whether investments might

    be better allocated in upgraded bus service or

    improved NMT facilities. Low labor operating

    costs of ART, when compared to conventional

    bus service is often a selling point, however

    when ridership is low these costs arent as

    EHQHFLDODVSXUSRUWHG7LPHVDYLQJVDUH

    DVLJQLFDQWEHQHWRI$57KRZHYHUORQJ

    queues can nullify these time savings. Might

    cablecar technologies other than the MDG,

    such as Tricable Detachable Gondola which

    provide higher PPHPD be incorporated?

    How can the public participation process

    be improved when making transportation

    decision in developing countries so that

    SXEOLFLQYHVWPHQWVDFFXUDWHO\UHHFWGHVLUHV

    and needs of the communities in which they

    DUHSODFHG"4XDQWLWDWLYHGDWDLVGLIFXOWWR

    locate in informal communities due to the

    transitory nature of their residents. This paper

    could be improved with better ridershipnumbers in relation to residents. While total

    costs were located, the exact construction

    costs were not published in any document.

    The pricing would be useful to understand

    the structures of different systems and what

    future ART projects can learn from these case

    studies. IUS have a long history of relocation

    and displacement, how many people were

    displaced in these projects and what was

    their compensation? Was their displacement

    preventable?This paper is a beginning in a

    conversation that must take place in

    Latin American decision making and

    transportation planning circles to understand

    how metrocables affect equity, mobility,

    accessibility and their effect on IUS.

    Pros Cons

    Reduced Travel Times Low PPHPD

    Environmental Flexibility Low Ridership

    $%" Unaffordable

    Low Labor Cost Low Waiting Times

    Small Construction Footprint Far Distances from Dwellings

    Table 2. Pros and Cons of

    ART Technology for case

    study cities

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