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Passenger Ferry Service - An Overview and a Study Proposal for Passenger Ferry Service in Wisconsin
Click HERE for graphic. MISSION STATEMENT TRANSLINK 21- Wisconsin's 21st century transportation plan- will outline a comprehensive transportation system that moves people and goods efficiently, strengthens out economy, protects our environment, and supports our quality of life. Working with DOT, the public will identify Wisconsin's transportation needs- and help to male tomorrow's transportation choices. Tommy G. Thompson, Governor Charles H. Thompson, Secretary Passenger Ferry Service An overview of issues and a study proposal for passenger ferry service serving the state of Wisconsin Wisconsin Department of Transportation July 1994 ACKNOWLEDGEMENT'S This paper was created by the Wisconsin Department of Transportation. The principal author of this document was Dawn Krahn, Multimodal Planning Unit. Editor/publisher of this document was Daniel Yeh. Multimodal Planning Unit. Others providing significant input for this document include the following: John Hartz, Supervisor of the Multimodal Planning Unit; Randall Wade, Chief of the Statewide System Planning Section; Ellen Fisher, Chief of the Harbors and Waterways Section. PASSENGER FERRY SERVICE Introduction Ferry services have long been a part of Wisconsin's passenger and freight intercity transportation system. With state borders formed by two Great Lakes to the north and east and the Mississippi and St. Croix rivers on the west, along with the Wisconsin River running through the state, opportunities abound for movements by ferry. Translinks 21, the state's transportation plan for the 21st century, includes a component for intercity transportation. For ferries, the primary thrust of long-distance, intercity service has been over Uke Michigan, from points -in Wisconsin to places in Michigan. For Translinks 21, this brief study of ferry services in Wisconsin will concentrate on the passenger aspects of the Lake Michigan services, although the freight services will also be discussed briefly. An overview of Lake Michigan ferry services In Wisconsin, eight counties have coastlines on the main portion of Lake Michigan, with another three counties having coastlines on Green Bay. Overall, well over half of Wisconsin's population resides within 50 miles of the lake Michigan coastline. On the other side of lake Michigan, the entire western border of Michigan's lower peninsula is constituted by coastline on the lake. Due to the circuitous land routing between Wisconsin and Michigan's lower peninsula, a ferry service operating over Lake Michigan has the potential to offer a shorter route for Wisconsin passengers to and from Michigan (and vice versa). As an example, a trip from Milwaukee to Grand Rapids, Michigan is approximately 270 miles by land. The same trip by ferry, via Muskegon, Michigan, is only 120 miles in length. Lake Michigan ferry services developed over the years in response to this distance advantage. However, the strict length of trip was only one of the many factors involved in ferry operations. Over the years, there have been many trials and tribulations in developing an effective, cross-lake passenger ferry service. Until recently ferry service stayed in operation primarily because of the freight related business, although service was also provided to passengers to create additional revenue. Ferry service across Lake Michigan began in the mid- 1 800's with the use of paddle vessels carrying passengers and freight, principally eastbound grain and flour, from Milwaukee to Grand Haven, Michigan. Their purpose was to provide an east-west route for northern freight that would be shorter and more economical than the all-land route through Chicago. In the 1890's and early 1900's, as railroads began competing in delivering cargo to western markets, railroad car ferry service across Lake Michigan became an efficient method of Passenger ferry -- Page 1 transportation. Operating costs per ton-mile were higher by ferry, but the high capital costs of laying track around the lake more than offset the higher operating costs. Recent history: 1970-1990 After a number of different operators who had varying degrees of success, three operators emerged to operate cross-lake ferries during the 1970's, with two of these providing passenger/auto services. The Chesapeake and Ohio Railway (C&O) operated ferry service between Ludington, Michigan and Kewaunee, Manitowoc and Milwaukee. Three coal-fired steam vessels carried rail freight cars, passengers, and automobiles. With capacity for about 500 passengers on each ship, C&O was the major provider of passenger/auto ferry service during the 1970's. However, the quality and availability of C&O's passenger/auto service slowly dwindled during this time. The inconvenient travel times and lack of current information on routes and schedules tended to discourage passenger usage. Often, schedules and destinations changed based on seasonal patterns or the freight traffic movements. As a result, passenger totals dwindled from 197,000 in 1971 to 126,000 in 1979. In just a few more years, the C&O discontinued its ferry operations altogether. The Grand Trunk Western Railway (GTW) operated two ferries from Milwaukee to Muskegon, carrying freight only. In 1978, the GTW received permission from the Interstate Commerce Commission (ICC) to abandon these services. The Ann Arbor Rail Company also operated cross-lake ferries in the 1970's, and received a public subsidy from the Michigan Interstate Railway Company after October of 1977. The Ann Arbor operated two routes, Kewaunee-Frankfort, Michigan and Manitowoc-Frankfort. However, one of the ferries broke down in 1973, necessitating a service embargo between Manitowoc and Frankfort until 1979. The Ann Arbor's passenger/auto service was operated only on an unscheduled basis after 1971. This inconvenience helped lead to declining passenger levels from 30,000 in 1971 to 6,000 in 1979. The Ann Arbor finally discontinued all cross-lake ferry operations in April of 1982. Late in 1983, the C&O's rail ferry services were taken over by the Michigan & Wisconsin Transportation Company (MWT). Without any subsidy, the service operated a rail freight and passenger/auto operation year-round between Kewaunee and Ludington. At times, additional service was operated between Ludington and Milwaukee during the summer months. Passenger levels at first were fairly promising, with just under I 00,000 passengers carried in the 1983/84 season. However, by 1990, MWT went bankrupt due to declines in rail and passenger traffic. Present Lake Michigan ferry service After the abandonment of the Michigan and Wisconsin Transportation Company (MWT), it appeared that cross-lake ferries were extinct. However, in the spring of 1991 a new private company, the Passenger ferry -- Page 2 Lake Michigan Carferry (LMC) was founded. Whereas previous operators offered primarily rail freight service, with passenger/auto service as a secondary consideration, the LMC changed its philosophy to cater solely to passenger/auto service. LMC purchased and completely refurbished an existing steam ferry, the S. S. Badger. Improvements to this ship included providing passenger amenities such as food service, game rooms, shops and improved lounge and seating areas. The S.S. Badger has a capacity of 520 passengers and 120 automobiles. In 1992, the S.S. Badger offered one daily round-trip between Ludington and-Manitowoc from May 15 to October 12. A second daily round-trip was added during the peak months of July and August. Passenger response was strong, with 113,000 passengers carried, about 33,000 more than the operators had projected. In 1993, LMC operated the ferry from May 3 to October 11. However, passenger counts in 1993 declined slightly from the previous year as a result of fewer total ferry trips being made, partly due to the vessel being briefly out-of-service for repairs. Figure 1, displays the route of the existing service and those routes abandoned since 1970. Figure 1: Past and present Lake Michigan ferry routes Click HERE for graphic. Government involvement Translinks 21 is the state's transportation plan for all modes, and includes a limited review of the Lake Michigan ferry service. It is instructive to look at past government involvement with the various ferry services. Passenger ferry -- Page 3 Other than the short period of subsidies for the Ann Arbor through 1982, and the abandonment hearings by the ICC, there has been very little recent government involvement in ferry operations. However, two incidents of government interest in the 1980's bear mention: Michigan DOT survey In 1984, the Michigan Department of Transportation performed a survey of ferry passengers as an information gathering effort for all transportation modes. Key findings included the following: 58% of ferry passengers were from Wisconsin or Michigan. Of this group, about 55 % or passengers were from Michigan, and 45 % were from Wisconsin. About 67 % of passengers were recreational travelers, with only 6 % on work related trips. Wisconsin interest in subsidies The other government action of note occurred in the mid-1980's, when the state of Wisconsin expressed some interest in subsidizing passenger ferry operations as a service preservation measure. In fact, the state legislature passed a bill which provided funds to subsidize the purchase of a ship for Milwaukee-Muskegon ferry service. However the actual costs turned out to be much higher than originally estimated and the project was dropped. Potential for future passenger service Based on the strong passenger counts of the 1992 and 1993 sailing seasons, LMC management is optimistic about the long-term potential for the current Manitowoc-Ludington route. For the 1994 season, LMC plans to offer daily round-trip service from May 20 to October 10, with twice-daily service from June 24 to August 28. LMC hopes to expand its tour bus business by marketing the advantages of the ferry's easy connection between popular tourist areas in Wisconsin and Michigan. LMC will also reportedly be carrying truck freight during non-peak months and on other sailings when passenger service does not fill the ferry's capacity. The LMC management is also evaluating other lake Michigan routes such as Milwaukee to Muskegon, or Waukegan, Illinois to Holland, Michigan. LMC's evaluation is looking at routes on the basis of the following: Forecasted demand between new cities, without detracting from the current service; Costs of updating dock and refurbishing car ferries; and Financing considerations. Passenger ferry -- Page 4 Other private companies have also reportedly evaluated the potential for passenger/auto ferry service across Lake Michigan. Translinks 21 and cross-lake ferries At this point, all considerations of expanded cross-lake service are from a private standpoint. However, through Translinks 21, WisDOT proposes to include a formal analysis of ferry issues to determine an appropriate state role in these services. Study goals The,proposed study of ferries under Translinks 21 would examine the potential for an additional route or expanded service on the current route. WisDOT would work closely with LMC and the State of Michigan to evaluate the potential for expanded service. The study would include review ,.of the following issues: The study would determine if there is a market for an additional ferry route, such as Milwaukee - Ludington. Depending on the results of the analysis, it could recommend that state assistance be provided by Wisconsin and/or Michigan to initiate the additional service. The analysis would also determine if there is a need for an additional boat(s), either on the current route and/or on other routes. This may also require subsidies or capital assistance by Wisconsin and/or Michigan. A determination of the need for and impact of marketing assistance would be a part of the study. This may require coordination of efforts outside the respective state DOT'S, such as working with the state Departments of Development/Tourism. Another aspect of the study would be to analyze the need for site improvements at the port in Manitowoc or at an additional port sites in Wisconsin or Michigan. Finally, the study would address the possibilities and methods for increasing truck freight moving capabilities on the current and future routes. LMC is currently working to increase truck traffic for their service. In particular, certain overweight, oversize trucks may be particularity suited to utilize the ferry. These trucks are hampered by -- and can exacerbate -- significant congestion problems in the Milwaukee-Chicago corridor. Survey of passengers A key part of the proposed study would be an on-board survey of ferry passengers. As part of its intercity planning efforts of Translinks 21, WisDOT sponsored special surveys of travelers using all other intercity modes serving the state (air, automobile, bus and train). To understand the role of ferry service in Wisconsin's passenger transportation system, a survey should also be performed for ferry passengers. Passenger ferry -- Page 5 A careful methodology for the survey of ferry passengers is required as the demographics of passengers change not only with the season and school year but also with economy and weather. The survey will be designed to collect the following information: Origins and destinations of passengers -- i.e., before arriving at or after departing from the ferry dock -- to help determine geographic market areas for ferry passenger services. Socioeconomic characteristics of passengers, to determine the general makeup of the ferry passenger market. Alternative modes of transportation which might be used by those ferry travelers, in order to -assist in analyses of potential -shifts from -other modes. Information on why the passenger chose the ferry, what their impressions were of the service, and if they plan to ride again, to help evaluate potential demand. Cost and logistics Translinks 21 proposes an array of four alternative sets of actions for other intercity passenger modes. Due to the limited nature of services currently available, this special study is the only action being proposed under Translinks 21 for ferry services. It is expected that the study would be conducted during 1995. The study would likely take several months to conduct, as the passenger survey would need to be conducted at various different times during the ferry's operating season. This special study would be conducted by WisDOT either directly or through a contracted consultant. LMC and the state of Michigan would be closely involved in the study. The estimated study cost is $50,000 to be funded solely through the state of Wisconsin. Other Wisconsin ferry operations The Lake Michigan ferry services are the primary focus of Translinks 21 in terms of intercity passenger movements. For information purposes, Wisconsin's short-distance carferry operations are described briefly below. Only those services which carry vehicles and passengers are included in this discussion. Madeline Island Ferry Located in Bayfield County in northern Wisconsin, this privately owned ferry line provides service from the city of Bayfield to Madeline Island. Madeline Island is the largest of the Apostle Islands of Lake Superior, a popular tourism and recreation area. Madeline Island is also home to permanent residents, who utilize the ferry as their freight and passenger link to the mainland. The 20 minute ferry service provides 23 daily round trips in the summer and seven or eight daily round trips in the spring and fall. Lake Superior freezes in winter, so the ferry is landlocked from Passenger ferry -- Page 6 January to March. During winter months, the crossing is made by wind sled (an air propeller driven vehicle), snowmobile, on foot,.or even by automobile depending on ice conditions. Washington Island Ferry This privately owned ferry line provides service across lake Michigan between Northport, at the northern tip of Door County, and Detroit Harbor on Washington Island. Ferry service over the six mile journey has been offered for about 50 years. This service provides year-round transportation to the island for the 650 residents of the island and for tourists visiting the island. In addition to passengers, the service accommodates autos, trucks, and supplies needed by the residents (such as mail, food, and construction materials). (Another ferry operates to Washington Island from Gills Rock on Door County, but it carries passengers only on a seasonal basis.) Cassville Ferry The village of Cassville owns and operates the Cassville Ferry, which operates from May to October. The ferry links Cassville, located in Grant County in southwestern Wisconsin, with Turkey Creek, Iowa on the western bank of the Mississippi River. The ferry provides an essential bridge service, as the nearest conventional highway bridges are over 30 miles to the north or south of Cassville. Merrimac Ferry The Merrimac Ferry is owned and operated by WisDOT as a connecting segment of State Highway 113 at Merrimac over the Wisconsin River. Autos and small trucks can be taken on the free, five minute ferry ride. While many people use the ferry to avoid driving ten or twelve miles in either direction to the nearest bridge, others take it because it is a tourist attraction. The ferry has been in operation since 1848. Passenger ferry -- Page 7 WISCONSIN TRANSLINKS 21 For more information on this topic, Contact RANDALL WADE STATEWIDE SYSTEM PLANNING SECTION WISCONSIN DEPARTMENT OF TRANSPORTATION PO BOX 7913 MADISON, WI 53707-7913 FOR ADDITIONAL COPIES, CALL: OFFICE OF PUBLIC AFFAIRS, 608/266-3581
