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SR-10A (6) CMO KEL s9 f Icmanager/stfrprts/slp/mpsr wpd Council Meeting February 25, 1997 Santa Monrcarca:1'A f, ~, -, ;. ~ ... .d .........-J' --;f~ " ij }'-II: - ... .. FED 2 5 1997 To Mayor and City Council From City Staff Subject Recommendation to Approve the Big Blue Bus Service Improvement Plan and Modifications to Fare Schedules and Policies regardmg Service of the Big Blue Bus, TIDE Shuttle, and WISE Paratranslt after Holding a Public Hearing to Receive Comments Introduction ThiS report requests that the City Council adopt the Big Blue Bus Service Improvement Plan which identifies proposed Improvements to transit operations, capital projects, as well as TIDE Shuttle and (WISE) Paratranslt Services The report also recommends that the City Council amend the fare policy for fixed route services to comply With suggested changes by the Federal TranSIt Adm/nrstratlon, adopt a fare structure for the TIDE Shuttle service and revise the fare collection policy for the WISE Paratranslt servIce Service Improvements are proposed to be Implemented on March 2, 1997 Proposed fare modifications are recommended to take effect on Apnl 6, 1997 City Council action on the proposed service Improvements and fare modifications should follow public testimony pursuant to federal public hearing gUidelines, Section 9(e)(3)(H) of the Surface Transportation ASSistance Act of 1982 1 ,.,) A 1 . , I ~ ~J ! 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FES 2 5 1997 Background The service Improvement plannmg process began approximately one year ago With the first of three phases of community meetmgs designed to sohclt public Input on ways to Improve Big Blue Bus service A total of eleven meetings were conducted In Phase I of the MUnicipal Bus Lines' Community Outreach Program The main pnonty Identified at the conclUSion of the Phase I process called for more frequent service on eXisting Big Blue Bus hnes Other top priorities Included expanding the hours when service IS available, particularly In the evenings and on weekends Input was also soliCited on other aspects of the service, such as passenger amenities and the type of vehicles used by the Big Blue Bus The community expressed a need for Improved Information at bus stop locations and a slgnlf[cant level of support for the use of smaller vehIcles where they would be more compatible With street confIgurations and ridershIp levels than a standard 40 foot transIt coach As the Community Outreach Program progressed, these pnorltles remaIned consIstent In addition to publiC outreach, an mdependent market research firm was engaged to conduct focus groups to obtam opinions from riders and nonnders on Big Blue Bus and TIDE services, passenger amemtles, vehicles and graphics Responses from the first four focus groups were used as Input to service plan development The last two focus groups were deSigned to evaluate recommendations which grew from the service planning process 2 Although the focus groups were structured to solicit responses to specific Issues, the feedback from focus group participants was significantly aligned with that received from the commumty meeting process Both nders and nonnders Indicated that the most needed bus service Improvements were more frequent service and more service available In the evemngs and on weekends The commumty outreach and market research processes both gave clear communication on how the Municipal Bus Lines should approach service evaluation EXlstmg users were particularly concerned that the process not result m unnecessary change Current users expressed a high level of customer satisfaction with the eXlstmg system and urged staff not to fix those aspects of the service that were not broken Riders also expressed a preference for maintaining the Big Blue Bus $ 50 fare Even nonnders found this low fare an attractive enticement to use the service A more thorough evaluation of this Issue conducted dunng the focus groups Indicated that most people, both nders and nonnders, would be Willing to pay a higher fare for Improved service that better met their needs DIScusSion The proposed Big Blue Bus Service Improvement Plan focuses pnmarlly on achieVing the objectives Identified from the public process and market research conducted over the past year ThiS information, combined With technical assessments of land use and route speCific operating performance was used to evaluate eXisting services and recommend a strategy for Implementing Improvements 3 Service Imorovement Prooosals The Service Improvement Plan formulates a package of Improvements for the fixed route, TIDE Shuttle and WISE Paratranslt Services The proposed Improvements and fare policy modifications regardmg each type of service are discussed below Fixed Route Service Plan The Service Improvement Plan proposes a multi-year program of Improvements to the fixed route service which will be phased Into the eXisting system beglnnmg thiS year and contmumg each year through FY 2000-01 The service plan also proposes some route re- alignments that would create the opportunity to utilize smaller vehicles on some eXlstmg route segments The first Implementation phase of the Service Improvement Plan IS scheduled to occur on March 2, 1997 and WIll effect five of twelve BI9 Blue Bus routes Two routes, Line 1 (Santa Monica Blvd) and Line 7 (PICO Blvd), are proposed to undergo minor schedule adjustments to Improve on-time performance Major service enhancements are proposed for three routes Line 9, Pacific Palisades/Olympic Blvd. - Midday service IS proposed on OlympiC Blvd between 10 a m and 3 p m Midday service frequencies on thIS line are Improved to 30 mmutes Line 12, Robertson Blvd.lPalms - Planned Improvements Include extendmg weekday evening hours on thiS line to 9 p m and additional Saturday service that 4 will serve UCLA at 30 minute Intervals Line 14, Bundy/Centinela - Weekday peak hour service frequencies are Increased from every 30 mInutes to every 15 mInutes In addition, a new Sunday schedule will be added which will operate from 7 30 a m to 6 30 P m In FY 1998. service Improvements will focus on enhanced service frequencies on Line 3 (Lmcoln Blvd /Montana) Modifications to this service will enable the Big Blue Bus to provide more frequent service on Lincoln Blvd on weekdays, Saturdays and Sundays In addition, more service will be operated to UCLA from Montana Avenue on weekends In FY 1999, re-allgnment of service operated In the Olympic Blvd corndor IS planned In order to provide more direct service between downtown Santa MOnica and Century City This re-allgnment also offers the first opportunity to deploy a small vehicle In fixed route servIce on Sawtelle Avenue A small bus IS also proposed on Carlyle Avenue by separating this segment from Line 8, Ocean Park Blvd Additional FY 1999 Improvements Include mcreased midday service mtervals on Line 10 (Freeway Express), new Sunday service on Line 12 (Robertson/Palms), and, extension of LIne 14 (Bundy/Centlnela) to serve Fox Hills Mall In FY 2000, re-allgnment ofthe southern portions of Line 1 (Santa MOnica Blvd) and Line 2 (Wilshire Blvd Nenlee) IS proposed thereby provldmg the opportunity to deploy a small bus on 4th Street between downtown Santa Monica and HIli Street This former Line 2 5 segment IS proposed to operate as part of a new route, Line 16 (Rose/Palms Avenue). which would run via PaCific Avenue to Rose, Walgrove and Palms Avenue extending to Westwood and PICO Boulevards As a result of this re-allgnment, the remaIning portion of the Line 2 (Wilshire Blvd) would operate at Improved frequencies between downtown Santa MOnica and UCLA Line 1 (Santa Monrca Blvd) would be extended at ItS southernmost terminus to proVide service between Venrce Circle and Venrce High School, Similar to that currently proVided by the Line 2. In FY 2001, adjustments are needed In orderto maXimize the use oHlmed transfers dunng evening hours and on weekends, when service IS less frequent The Service Improvement Plan does not recommend any reductions In eXisting route frequencies or hours of service The FY 97 service Improvements WIll not require an Increase In the $0 50 fare However, an Issue concernIng the fare polICY must be addressed In order for the BIg Blue Bus to remam eligible for Federal funds In 1995, a passenger With a Visual Impairment lodged a complamt With the Federal Transit Administration (FTA) allegmg that the Munrclpal Bus Lines' policy of allowing blind persons to nde for free while charging other passengers With disabilitIes a fare was a Violation of the Americans With Disabilities Act (ADA) Historically, most transit operators In Los Angeles County have allowed legally blind mdlvlduals to ride for free The City Attorney responded to the FTA's inquiry and explained the basIs for the poliCY The FTA evaluation concluded that the complainant's concerns were valid The FTA determination also indicated that failure to conform With thiS finding could result In the 6 termination of its Federal funding eligIbility Although the MUnicipal Bus Lines has not received Federal financial assistance since 1985, the Municipal Bus Lines has attempted to comply with all FTA regulations and requirements In order to remain eligible for these funds should they be needed As described In the Big Blue Bus Service Improvement Program, servIce IS expected to Increase Significantly over the next five years, and Federal financial assistance Will be necessary to meet the Increased service levels Therefore, It IS Imperative that the MUniCipal Bus Lines remain eligible for these Federal funds To address the concerns of the FTA, it IS recommended that the City Council adopt a fare of $025 for IndiViduals With visual Impairments who display appropriate Identification, such as a Transportation Department Identification card, a white cane, a gUide dog for the Visually disabled, or a card Issued by the Braille Institute ThiS fare Will be consIstent With the current fare charged other persons With disabilities TIDE Shuttle In addition to Improvements to the fixed route service, the Service Improvement Plan proposes expanding the current TIDE service, which has operated between Main Street and the Third Street Promenade since 1993 In 1993, 1994 and 1995, the TI DE operated dunng the summer season only In January 1996, the City CounCil approved extending the service to a year-round operatIon that IS In service dally from noon until 10 30 P m The Service Improvement Plan proposes two enhancements to the TIDE Shuttle service 7 First, extend the hours ofthe eXisting TIDE route from 1030 P m to 12 midnight Second, establish another TIDE route, which would operate between Third Street Promenade and Montana Avenue via Ocean Avenue, pendmg financial support from the business commumty This route would operate at 15 mmute service Intervals and would also utilize small shuttle vehicles To malntam eXisting service and to support TIDE enhancements a fare IS necessary Staff recommends that the City Council establish a $0 25 cash fare, and a semor and disabled fare of $0 10 for the TIDE service Children under age 5 will ride for free when accompamed by an adult Staff from the Big Blue Bus Will work with the business commumty to develop a promotional program whereby TIDE tokens are sold to local businesses for distribution 10 their customers The use of tokens would allow the servIce to contmue the free fare concept for many VIsitors and patrons of Santa Monica's commercial busmess dlstrrcts since any business that wanted to provide tokens to their customers could purchase rolls of TIDE tokens from the Big Blue Bus The revenue raised would be used to offset the cost of operating the service, which would be useful now that the TIDE operates year-round The operatmg costs of the TIDE shuttle service are currently funded by four hotels as a condition of development project approvals The current combmed contnbutlon of these hotels IS $130,000 annually. With the City paymg up to $100,000 m Proposition A Local 8 Return funds for the service In recognitIon of the fact that these hotels already fund the operating costs of the TIDE shuttle as conditions of therr project approvals, staff recommends that these hotels be provided with tokens at no additional cost to distribute to their guests WISE Paratransit Service design changes proposed for the WISE Paratranslt Service are Intended to Increase service effiCiency, while makmg the service more available to eligible users Recommendations that Will be key In achlevmg these goals are the elimination of subSCription service and the adoption of a service cancellatIon policy These recommendations Will make WISE Paratranslt service more accessible to those who want to use It Under the proposed POliCY, a rider would be able to request a tnp up to SIX days in advance and cancel service up to 90 minutes prior to the time the service IS scheduled Under the proposed service policy, riders Will have more access to the service and Will be able to schedule a broader range of tripS than could be accommodated under the current policy These factors are expected to produce a positive Impact on both riders and overall performance The WISE Paratranslt Service policy also recommends Implementation of a fare structure which assumes consistent collection of the existing $ 50 one way trip fare and permits a discount for trip tokens or pre-paid tripS Currently, the fare IS treated as a voluntary donation The Implementation of thiS fare structure would support service enhancements 9 and associated Increased service demands for WISE Paratranslt Services The following summanzes the proposed fare structure · $0 50 cash fare per one-way tnp (existing policy) 50 tokens for $2250, or 10 tokens for $4 50 ($0.45 per one way tnp) Tokens Will be available at the Big Blue Bus office and WISE Semor Services Additional locations may be added · Pre-paid trips Will be calculated at the token rate of $0 45 per one way tnp (Some chents pay by check for thiS service These payments Will be entered Into the dispatchIng computer which will automatically deduct $0 45 every time the chent takes a tnp) · Registered attendants Will pay $0 25 per one way tnp · Compamons Will be accommodated on a space available baSIS at the rate of $050 per one way tnp Tokens Will not be accepted for companions · Free transfers to a Santa Monica Big Blue Bus · $0 10 Interagency Transfers (IAT) to the MTA or other bus lines (lAT's cannot be paid In advance) An appeal process IS being developed for those individuals for whom the fare Will be a financial burden Under thiS fare structure. individuals who qualify for S81 and/or MediCal Will be eligible for the fare subSidy ThiS Information Will be kept confidential and these customers WIll not be Identified as subSidIzed customers In any way 10 The proposed WIse Paratranslt ServIce enhancements and fare structure were unanimously endorsed by the CommissIon on Older Amencans on December 18,1996 Capital Program The fixed route service program projects a 32% Increase In service levels at full Implementation of the Service Improvement Plan which would require 27 additional buses In service dunng peak hours by FY 2000-01 Factoring a 20% spare requirement, a total of 32 expansion vehicles Will be needed, Includmg 10 small buses The vehicles must be acquired In addition to the procurement of replacement buses for the eXisting fleet The second major capital element of the Plan IS the development of the downtown transportation mall concept which was orlgmally conceived as part of the City'S Downtown Urban Streetscape Plan In 1996 ThiS project proposes to significantly enhance transit access In the downtown Santa MOnica area by providing transIt lanes on Santa MOnica Blvd and Broadway, Improved Sidewalks, lighting and transit passenger Information kiosks and amenities Financial Analvsls A five-year financial forecast IS contamed In the Service Improvement Plan It shows that the Plan can be Implemented utlllzmg the MUniCipal Bus Lines' formula share of transit subSidy funds allocated on an annual baSIS by the Los Angeles County Metropolitan Transportation Authonty (MTA) The MUniCipal Bus Lines may need to Increase ItS use of 11 Proposition A Discretionary funds beyond FY 1998 to support the operating program These funds are also distributed to the Big Blue Bus on a formula basIs for operating purposes Unused funds may be carned over for a two year period and may be applied to capital expenditures, as well as operating expenses In FY 1996-97, service Improvement funding IS available from transit subsidy revenues allocated to the Big Blue Bus from two Proposition C Discretionary Fund programs established by the MTA The CounCil adopted a resolution on September 10, 1996 In support of the MTA Bus Service Improvement Program which provided the Mumclpal Bus Lines With $542,000 In funding to Improve service quality on lines slgmficantly utilized by transit dependent nders In addition, the MT A has allocated the Big Blue Bus an additional $3 million In FY 1997 as part of ItS Proposition C Recession Mitigation Program FY 1996- 97 service enhancements are Included as part of the Midyear Budget request AcquIsItion of roiling stock comprises over one-third of the Service Improvement Plan Capital Prog ram Federal capItal funds Will be utilized to fund most of the vehicles required to meet proposed replacement and expansion needs Federal SectIon 9 capital funds are allocated to the Big Blue Bus on a formula basIs Section 3 federal discretionary capital funds Will be sought thiS year, as part of the Intermodal Surface Transportation EffiCiency Act (ISTEA) reauthorization process Remaining capital projects Will be funded uSing Transportation Development Act (TDA) funds allocated by formula No general funds Will be used for the Service Improvement Plan 12 Although projected transIt SubsIdIes are sufficIent to fund proposed servIce level Increases, the MTA requires that tranSit operators malntam a local revenue contribution of 38% generated from farebox revenues and other local sources Based on service plan estimates, the MUnicipal Bus Lines can malntam the required farebox recovery ratio throug h FY 1998-99 without a fare Increase At that time, staff Will evaluate the need to consider modification to the current fare structure and Will make an appropriate recommendation to the City Council In the Interim, Transportation Department staff Will continue to momtor the financial Impacts of both operating and capital programs through development of a ten year financial plan, the Incorporation of Service Improvement Plan elements mto the Big Blue Bus annual Short Range Transit Plan and In future City budgets PublIC NotIce On January 11 and 25, 1997, and agam on February 11, 1997 r the City published a notice of City Council consideration of the Big Blue Bus ServIce Improvement Plan and specified service Improvements on March 2, 1997 The notice also addressed proposed modificatIons to fare poliCies on the TIDE Shuttle, WISE Paratranslt servIce, and fares charged for legally blind nders on the Municipal Bus Lines The public notice appeared In the Santa Monica Outlook and La DOImon newspapers, as well as the City'S Internet web site Cards announcing the hearing, m both English and Spanish, were posted on all the Big Blue Buses, WISE paratranslt vehicles, and TIDE shuttle vehicles Also, the service 13 Improvements and fare structure for the paratranslt service was presented to the Commission on Older Amencans (COA) In addition, letters were sent to agencies that provide services to the visually Impaired to request their assistance In dlssemmatlng thIs mformatlon to their clients California Environmental Oualitv Act (CEOA) According to California statute, a fare Increase IS exempt from CEQA requirements If the funds are used for one or more of the follOWing purposes (1) to meet operating expenses, mcluding wage rates and fringe benefits, (2) to purchase or lease supplies, equipment or matenals, (3) to meet financial reserve needs and requirements, (4) to obtam funds for capital projects necessary to malntam service wlthm eXlstlng service areas, or (5) to obtam funds necessary to maintain such mtra-clty transfers as are authonzed by CIty charter The funds generated by this fare Increase Will be used to meet operating and capital expenses of the Bus Lines, whIch IS m conformance with the above mandate BudaetlFlnanclallmoact - . The amount of revenue that the Big Blue Bus Will realize from Implementing a fare for visually Impaired passengers cannot be accurately estimated Since the Bus lines does not currently count these boardlngs It IS expected to be a minimal amount, therefore, It Will not be necessary to Increase the FY 1996/97 Big Blue Bus passenger revenue budget Implementing the fare Will enable the Bus Lmes to remain eligible for Federal fundmg 14 assistance Based on ndershlp for the first SIX months of this fiscal year, It IS estimated that the TIDE shuttle could generate between $30,000 and $40,000 annually, and the paratranslt service could generate approximately $15,000 annually It IS recommended that the TIDE passenger revenue budget In account number 01-600-656-00000-0589-10000 be Increased by $3,000 for the remainder of FY 1996/97, and the paratranslt passenger revenue budget In account number 01-600-656-00000-0590-10000 be Increased by $1,000 Recommendation Upon conclusion of public comment on proposed service changes and fare modifications, City staff recommends that the City CounCil 1) Adopt the five year Service Improvement Plan as a bluepnnt for gUldmg the development of Big Blue Bus tranSit services, 2) Approve the cancellation policy and elimination of subscnptlon service for WISE Paratranslt Service, 3) AuthOrize Implementation of those fixed route service Improvements outlined In thIS staff report scheduled to take effect on March 2, 1997, 4) Adopt the attached resolution adJustmg fares for the Santa MOnica MUniCipal Bus Lmes, TIDE shuttle, and paratranslt service effective April 6, 1997, and 5) Approve the budget changes set forth above 15 Future service Improvements will come before Council for public hearing and approval each year, pnor to Implementation by the MUnicipal Bus Lines Prepared by John B Catoe, Jr I Director of Transportation Stephanie Gnffin, Manager of Transit Development Joseph W Stitcher, Semor Transit Programs Analyst Attachment 16 ATTACHMENT #1 RESOLUTION TO BE PROVIDED WHEN FINALIZED 17 \ t (~ v I ~~ ; TD:JBC:JWS:js\f:trans\adm1n\council\wpfiles\fareres city Council Meeting February 25, 1997 Santa Monica, California RESOLUTION NO. 9128 (CCS) A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SANTA MONICA REPEALING RESOLUTION NUMBER 8241 (CCS) PERTAINING TO FARES ON THE SANTA MONICA MUNICIPAL BUS LINES AND ESTABLISHING A NEW FARE STRUCTURE WHEREAS, the City Council previously established the passenger fare structure of the Santa Monica Municipal Bus Lines in Resolution Number 8241 (CCS) adopted on June 11, 1991; and WHEREAS, the City council seeks to modify the passenger fare structure established by Resolution Number 8241 (CCS) to implement fares for the Tide Shuttle Service and paratransit Service and to modify the fare for the Municipal Bus Lines to eliminate the former fare exemption for legally blind individuals pursuant to a determination by the Federal Transportation AgencYi and WHEREAS, the City Council has held a public hearing after the publication of adequate notice and has considered comments expressed by the publici and WHEREAS, the city council finds that the fare proceeds will be used for one or more of the purposes detailed in Public Resources Code Section 21080 and therefore the new fare structure is not subject to the provisions of the California Environmental Quality Act. NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SANTA MONICA DOES RESOLVE AS FOLLOWS: SECTION 1. Resolution Number 8241 (CCS) is hereby repealed in its entirety. SECTION 2. The following general fares shall be charged to passengers of the city of Santa Monica's Municipal Bus Lines, Tide Shuttle Services and paratransit Service: A. Municioal Bus Lines: 1. Local Fare: Cash Tokens School Tickets $.50 10 rides for $4.50 10 rides for $2.50 1 College Tickets Qualifying seniors Qualifying Disabled Individuals , t 10 rides for $4.00 $.25 $.25 2. Freeway Fares for passengers traveling on the freeway bus service between the Santa Monica/West Los Angeles area and Downtown Los Angeles: Cash Qualifying seniors Qualifying Disabled Individuals 3. Interagency Transfer: Cash Qualifying Seniors Qualifying Disabled Individuals B. Tide Shuttle Service: Cash Tokens Qualifying Seniors Qualifying Disabled Individuals C. paratransit service: Cash Tokens Prepaid Trips Registered Attendants Companions Supplemental Security Income (SSI}and Med1Cal Recipients $1.25 $ .60 $ .25 $ .25 $ .10 $ .10 $.25 100 for $20.00 $.10 $.10 $.50 10 rides for $4.50 $.45 $.25 $.50 Free The general fares shall become effective at 4:00 a.m. on the 6th day of April, 1997. SECTION 3. The School Tickets referred to in section 2 of this Resolution shall be available only to students attending an elementary school, junior high school or high school, and shall be valid only for travel on regular school days. SECTION 4. The College Tickets referred to in Section 2 of this Resolution shall be available only to students 20 years of age and under who regularly attend a recognized college or 2 \ university and shall be valid only for travel to and from school between the hours of 6:00 a.m. and 6:00 p.m. SECTION 5. The Qualifying Seniors referred to in Section 2 of this Resolution are those individuals who are sixty-two {62} years of age or older and who display identification issued by a public agency representing age, a senior card issued by the Transportation Department or other identification establishing age as mandated by state or federal law. SECTION 6. The Qualifying Disabled Individuals referred to in section 2 of this Resolution are those individuals who are defined as "Qualified Individuals with Disabilities" under the Americans with Disabilities Act, and who can display one of the following: (1) a disability card issued by the City of Santa Monica Transportation Department; (2) other disability identification recognized by the Transportation Department; (3) a white cane; (4) a guide dog for the visually disabled; {5} an identification card issued by the Braille Institute; or (6) other disability identification mandated under state or federal law. SECTION 7. Transfers shall be issued between the various lines of the Santa Monica Municipal Bus Lines at no additional charge to passengers for continuous travel in the same general direction. SECTION 8. The establishment of the fare structure set forth in this Resolution is exempt from the California Environmental Quality Act of 1970 pursuant to Public Resources Code Section 21080 (b) (8). The City Council finds that the fare structure is for the purpose of meeting operating expenses, including employee wage rates and fringe benefits, purchasing or leasing suppl1es, equipment or materials, and obtaining funds for capi tal proj ects necessary to maintain service wi thin existing service areas. The facts underlY1ng these f1ndings are contained in the Staff Report entitled "Public hearing on fare adjustment for Municipal Bus Lines," dated February 2 5, 1997, which is incorporated by reference into this Resolution. SECTION 9. The City Clerk shall certify to the adoption of this Resolution, and the same shall become effective on April 6, 1997, and thenceforth and thereafter the same shall be in full force and effect. APPROVED AS TO FORM: -fYltlALULJ )~~ MA$SHA JQNES MOUTRIE City Attorney 3 I Adopted and approved thIS 25th of February. 1996 rLlrAv\ 1 .. ~1,^ 1Vlayor . ;,. L :VIana M Ste\vart. CIty Clerk of the CIty of Santa MOnica. do herebv certify that the fore2om2 ..., --."..... - ResolutIOn 9928 (CCS) was duly adopted at a meetmg of the City CouncIl held on the 25th of February, 1996 by the followmg vote Aves CouncIl members Ebner. Femstem. Genser. Greenberg. Holbrook. O'Connor. Rosenstem Noes CouncIl members None Abstam Council members ~one Absent CouncIl members None ATTEST '-----\L'-~L' CIty Clerk ~,)CLJ-