Colorado Statewide Intercity and Regional Bus Network Plan Scope of Work October 5th, 2006

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1 Colorado Statewide Intercity and Regional Bus Network Plan Scope of Work October 5th, 2006 Study Purpose: The Colorado Department of Transportation (CDOT) is requesting proposals to conduct a study of intercity and regional bus service in the state to identify a preferred network plan and to develop a comprehensive action plan that identifies improvements to intercity and regional bus services in the state and a potential funding plan. The purpose of this Statewide Intercity and Regional Bus Network Plan is to determine how CDOT, local and regional public transit providers, private carriers, and the aviation industry could work together to develop a financially sustainable network of intercity and regional bus service in Colorado. With a multitude of local and regional transit services, both public and private, the coordination of efforts in designing a statewide bus network is essential to achieve the best use of limited transit resources. This study effort will identify a strategic intercity and regional bus network, the capital and operating needs and costs, and a service implementation plan that can successfully develop a statewide intercity bus network. Proposals are due back to CDOT by November 10 th, 2006, at 5pm. Proposals should detail the project approach, intercity bus (ICB) experience, experience in preparing similar statewide ICB plans, and a cost proposal. Introduction/Background: With a nationwide restructuring of Greyhound lines, and their subsidiary TNM&O, some Intercity Bus (ICB) routes in Colorado have lost service in the last few years. Also, some rural bus stops on the remaining routes have been eliminated, making three routes primarily urban-focused. In response to experienced service reductions by private carriers and a recognized need to develop more extensive regional transit connections that serve Colorado residents, the Colorado Department of Transportation (CDOT) seeks consultant expertise in order to identify a financially-sustainable, preferred statewide intercity and regional bus network plan. Section 5311 (f) requires that each State use 15% of its annual formula apportionment to support ICB service unless the Governor certifies that the ICB needs of the state are adequately met. Given ongoing changes in the ICB industry, with some elimination of routes and rural stops, the FTA is encouraging states to consult with intercity bus operators and communities affected by loss of service when evaluating intercity bus needs of the state. Reauthorization modifies Section 5311(f) by requiring further consultation with affected intercity bus service providers before the Governor s certification. With historic 5311(f) awards in Colorado being less than 15% of the total

2 5311 FTA Award, careful consideration of statewide ICB funding levels and need must be analyzed. CDOT will form a Technical Working Group of stakeholders around the state to provide local input of regional service needs and to review the consultant work in designing a successful intercity and regional bus network. To provide a detailed analysis of service design options, CDOT requests consultant assistance with the following tasks: Scope of Work - Tasks: Task 1: Project Background and Context. Review and document the pertinent federal regulatory environment as applied to Colorado relative to the Section 5311(f) Rural Intercity Bus Program. Review and document the state regulatory environment for operating bus service in or through the state and initiating new regional and intercity bus service. The consultant will consult with the Colorado Public Utilities Commission (PUC) and the CDOT Transit Unit to identify existing regulations and ICB funding levels. Determine the existing CDOT policies and practices on the provision of regional and statewide ICB service and on the application of Section 5311(f) funding. Review historical development of intercity and regional bus service operating in and through Colorado. o Identify the ICB and regional bus network operating in Colorado now and over the past 15 years. This task will include the general identification of routes, major stops, frequencies, known ridership, and funding levels and sources. o Identify relative stability and/or volatility of intercity and regional bus service by region and corridor. This task will include an identification of ICB operating and capital costs generally, historical sources of funding, and an evaluation of the financial structure of the ICB industry as applied to Colorado. Task 1 Deliverable: Based on the first three Project Background tasks, the consultant will deliver a report that succinctly summarizes the pertinent regulatory environment, CDOT policies and practices as applied to ICB, the historical context of ICB operations in the state, and then offer an analysis of what the background and context mean for developing a statewide and regional bus network. 2

3 Task 2: Data Collection and Methodology: The consultant will identify data required for intercity and regional service needs analysis and develop and administer a plan to collect that data. Outreach efforts will include a stakeholder survey, the facilitation of a Technical Working Group, discussions with local transit providers, CDOT Aeronautics Division, Amtrak, and current intercity and regional bus providers (see consultation process below). Develop an inventory of the current regional and intercity services, existing ridership trends (break out by routes and by in-state boardings/alightings vs. outof state boardings/alightings), routes, stops, frequencies, scheduling, interconnectivity with other transit, passenger rail, and aviation services, and other pertinent operational information. Identify and document the existing multi-modal transit hubs and facilities utilized for commuter, regional, and intercity bus services. Based on national ridership trends, available ridership data, and stakeholder input, determine and categorize the specific purposes for which residents of rural areas travel to urban areas and the purposes for which urban residents travel to rural areas (demographics of each population versus destination, etc.). Categorize the rural regional transportation system based on areas that are served, underserved, and not served at all. Construct an inventory of potential routes and places that could be served by the rural intercity bus network, e.g., hospitals, medical facilities, prisons, employment centers, entry points, transit hubs, shopping opportunities, and education centers. Describe Colorado s environment for intercity and regional bus service compared to other states (based on similar states in terms of population density and characteristics). Forecast changes in demand for intercity and regional public transportation services through 2017 (10-year horizon) based on demographic trends, the development of other public transportation services, ridership trends, population growth and distribution, and other pertinent variables. Task 2 Deliverable: The information gathered in this Task 2 will be synthesized into one Technical Memorandum that specifies the results of the outreach effort, the inventory of existing ICB and regional services and facilities, and the extent of existing and potential future ridership. 3

4 Task 3: Stakeholder Input, and ICB Provider Consultation: The consultant team will determine a methodology to gather stakeholder input to determine intercity bus needs and develop a process and schedule to conduct outreach sessions to gain input from stakeholders (local and regional transit providers, Van Pool operations, community, business owners, key airport personnel, and public and private ICB partners). The consultant team will conduct the stakeholder outreach effort to gather the following information: o Identify and delineate current local transit services that interconnect with the regional and intercity bus network. This effort will include the identification of current connections and recommendations of how further connections between local transit services and the ICB network can be developed. o Determine and categorize the specific purposes for which residents of rural areas travel to urban areas, i.e., demographics of each population versus destination, etc. Task 3 Deliverable: The consultant will deliver a Technical Memorandum that identifies the methodology used for gathering stakeholder input, and the results of that input process. This deliverable also includes the consultant conducting the outreach and process including meeting scheduling and set up. Task 4: Statewide and Regional Bus Service Needs Assessment: Develop a needs assessment model for planning intercity and regional public transportation service by corridor and transportation planning region. This model will identify service gaps, intermodal network connectivity issues, and overall system functionality concerns. Identify the needed level of regional and statewide ICB service to meet expected demand. This analysis will consider varying network service options and identify a Preferred Network and will examine and evaluate overall system functionality for gaps in service and synergistic ridership effects of having an integrated network that considers geographic coverage, Amtrak and airport connections, and high-ridership corridors. Make recommendations concerning potential connectivity to the existing rural intercity bus network and make note of any current deficiencies. 4

5 Identify vital gaps in existing rural intercity transportation services including links with the national ICB network, gaps in interstate ICB travel options to surrounding states, the loss of stops along existing ICB routes, and gaps in regional and intercity needs within Colorado. Existing Common Carriers: Evaluate existing common carriers (e.g., Greyhound, TNM&O, Arrow Stage Lines, Burlington Trailways, and Powder River) and identify existing and potential connectivity and linkage to the current rural intercity bus network. Note deficiencies, significant changes and/or trends in route structure and level of service that might suggest future changes. Front Range Express (FREX) and other Front Range Bus Service: Identify and document the existing level of FREX service and how a statewide ICB network can build upon and integrate with the intensive regional bus service along the southern Front Range (Fountain, Colorado Springs, Castle Rock, Denver). The consultant will identify the current level of FREX service and annual operating costs, as well as the feasibility and merit of using limited resources to expand this FREX service into the North Front Range (Denver to Fort Collins and Greeley). The consultant will identify and recommend needed connections between an enhanced FREX service and other common carrier ICB service operating in the state. Amtrak Connections: Investigate, identify, and evaluate the existing Amtrak feeder bus network and note impact upon rural to urban transit service. Also identify the potential for improved linkages between the two existing Amtrak corridors through Colorado (California Zephyr and the Southwest Chief) and the regional and rural intercity bus network. Careful consideration should be given to creating scheduled ICB linkages with Amtrak services where appropriate. The TNM&O Thruway connection along I-25 should serve as a foundation for this analysis. Passenger Airport Connections: The consultant will utilize data on airport passenger traffic from the CDOT Aeronautics Division to identify the main commercial service airports that are suited to ICB connections. Both routes and appropriate scheduling of ICB service should be identified to provide maximum linkages to airports without sacrificing the functionality of the ICB network. Local transit connections to airports should be factored in where existing transit service connections are not duplicated by the ICB network. Multi-modal Transit Hubs/Facilities: Building upon the inventory of existing multi-modal hubs and facilities in Task 1, determine the need for expansion, combined use, and additional hubs/facilities needed to accommodate and enhance a regional and statewide ICB network. Prioritize listing of rural intercity bus service gaps. 5

6 Analyze other rural intercity bus services, e.g., public entity, community, social service, and private ownership, to o Identify type of service, e.g., dial-a-ride, fixed-route, and deviated fixed route. o Identify service classification, e.g., lifeline, commuter, feeder, community-to-community shuttle, social service, regional bus, and ICB service. o Identify cost-out method(s), e.g., cost per mile, cost per hour, cost per passenger mile, cost per passenger hour, and cost per passenger seat. Task 4 Deliverable: Needs Assessment Report: The consultant will deliver a Technical Memorandum that details the methodology of determining intercity and regional bus needs, and the findings of the data collection effort to determine the level of need for commuter, regional, and intercity bus needs in Colorado. This report will identify needed routes, estimated schedules, and facilities required for an enhanced network of bus service in the state. The consultant will then deliver a Technical Memorandum that delineates a prioritized list funding objectives and strategies for addressing that need. Task 5: Statewide ICB Network Identification and Recommendation: Based on stakeholder and transit provider input, model output, and a quantitative and qualitative assessment of service needs, identify needed intercity and regional routes that, combined with the existing services, will provide a financiallysustainable statewide network of interconnected service. Identify a prioritized Network Plan that determines ICB routes by level of need and as essential components of a statewide network. Identify optional prioritized networks based on various levels of funding. These various network options will be mapped in GIS format and complemented by a written description of routes, stops, frequencies, schedules and interconnectivity opportunities. Additionally, all cost and schedule analysis will be presented in an Excel spreadsheet format. Recommend a Preferred Network Plan that considers cost, ridership potential, geographic coverage, interconnectivity with other transit and aviation services, opportunities for partnership with other providers, and ease of implementation. Task 5 Deliverable: The consultant will deliver a draft Statewide Intercity Bus Network Plan that identifies existing intercity services, potential route options, a preferred statewide network, and recommendations as to route and network viability. 6

7 Task 6: Funding Needs, Sources, and Partnership Opportunities: Upon the identification of a preferred regional and statewide bus network in Colorado, identify the annual operating and capital costs of establishing the network to include financiallyconstrained and unconstrained scenarios. Network Cost: Identify annual capital and operating costs of the identified preferred regional and statewide ICB network. This cost analysis should consider non-facility costs of the network operation and identify several levels of service with varying routes and frequencies - and their associated cost. This identification of costs will delineate the existing expenditures of private common carriers, consider the costs of the enhanced network, and make an assessment of the level of public funding needed to establish and sustain operations of the regional and statewide network. Funding Sources: Identify existing private and public funding sources that could be used to fund the capital, operating, and facility needs of a regional and statewide ICB network. o Identify all potential sources of federal, state and local funding that may be accessed to fund statewide deficiencies of accessible rural intercity bus service using an Excel spreadsheet format. o Delineate the use of the annual FTA Section 5311(f) Rural Intercity Bus Program apportionment as a potential source to provide continued funding for existing rural intercity routes, new starts, and capital projects. Funding Partnerships: The consultant will determine the total costs of the network and make an assessment of the level of funding that would be born by private carriers and public financing respectively. This analysis will further identify the expected levels of private and public funding of an expanded ICB network and identify opportunities for funding partnerships between private carriers, the State, and existing local and regional transit transit providers. o Delineate and synthesize the funding sources found using an Excel spreadsheet format. o Conduct a cost/benefit analysis and assessment on the possibility of using these funds as a potential (sustainable) source for continued services. o Develop cost estimates to address identified needs. o Identify funding strategies to mitigate identified service gaps for on-going support of proposed rural intercity bus services. Deliverable: The consultant will deliver a Financial Technical Memorandum that thoroughly identifies capital and operating costs associated with each network scenario. Additionally, the consultant will identify all potential funding sources by category or program, the sustainability of funding, and then identify funding strategies for identified service gaps including the use of FTA Section 5311(f) Rural Intercity Bus Program apportionments. 7

8 Task 7: Integration of this Study into Departmental, Local, and Regional Planning Processes as an Action Plan: Review the 2030 Regional Transit Elements and coordinate with the 2035 Team and the 2035 Transit Component consultants to incorporate the Statewide Network Plan with the current planning process. Specifically, the consultant will identify the Corridor Visions of the Regional and Statewide Transportation Plans that will need to be updated to reflect the Preferred Network Plan. Develop methodologies and suggest standard policy, to be used by CDOT, Regional Planning Committees and other organizations, in cooperation with Metropolitan Planning Organizations (MPOs), and other policy makers, to ensure that future regional and intercity bus service needs are adequately addressed in the 2035 Plan. Develop policies, goals, objectives, performance measures and strategies for creating a plan to address the identified deficiencies of the rural intercity bus transportation network. Provide a strategy for the CDOT FTA Section 5311(f) Rural Intercity Bus Program, using the annual FTA Section 5311(f) apportionment, to provide continued funding for existing rural intercity routes, new starts, and capital projects. Recommend follow-up strategies to ensure the successful integration of these strategies into the 2035 Regional and State Transportation Plans. Prepare and submit an Action Plan for integrating the results of this Statewide Preferred Network Plan into the 2035 Regional and Statewide Plans. This Action Plan will identify schedules for incorporating the Network Plan into the 2035 Plan, deliver language to be incorporated into the 2035 Plan, and recommended language of integrating the identified priorities of regional and statewide ICB service into CDOT s overall planning. Task 7 Deliverable: Based on the findings and recommendations of this task, the consultant will develop specific language to integrate the Network Plan into the Corridor Visions and Transit Component sections of the 2035 Plan. 8

9 Task 8: Implementation Plan: Upon the identification of a preferred intercity and regional bus network plan, facility and bus capital needs, and annual operating costs, identify an Implementation Plan that considers route options, costs, available partnerships, and the 2035 planning process. Recommend an implementation schedule and the steps necessary for implementing the Preferred Plan. Develop a short-term and 10-year implementation plan and schedule. Task 8 Deliverable: The consultant will deliver a Technical Memorandum that identifies a tiered regional and intercity bus implementation plan that considers a financially-constrained network scenario (based on reasonably expected funds available for ICB service), a financially-unconstrained network scenario (identifying the level of funding needed to fund this scenario), and any intermediate scenarios (based on existing funding levels plus additional funding if it were to materialize). The implementation plan will cover all identified network scenarios. Task 9: Final Report - Findings and Recommendations The consultant will deliver a Final Report of all findings that identifies: the background and history of ICB service in the state, the regulatory background, collected data, stakeholder input, needs assessment, the Preferred Network Plan, funding needs, the 2035 planning process, and a process for implementing the development of the Preferred Network Plan. Task 9 Deliverable: Prepare and submit the Final report entitled: the Statewide Intercity and Regional Bus Network Plan. The content of the report shall include, but is not be limited to, the following chapters: The Statewide Intercity and Regional Bus Network Plan: 1. Executive Summary 2. Introduction 3. Project Context 4. Summary of Data Collection and Methodology 5. A summary of Stakeholder Input 6. A Needs Assessment 7. The Network Identification 8. Funding Needs 9. Integration of Network Plan into the 2035 Plan 10. Implementation Plan 11. Summary Report of Findings and Recommendations 9

10 Consultant Selection Criteria: CDOT will generally evaluate proposals based on the following criteria in priority order: A. expertise of the consultant team in intercity bus planning and service design on a statewide level, B. the proposed project approach, and C. project cost considerations The final Scope of Work and identified tasks may be negotiated based on the proposed project approach and suggested study needs as proposed by the consultant. The following criteria are the specific items which CDOT will evaluate in choosing a consultant: 1) The proposers understanding of the problem and specific approach to the project, as set forth in the proposal. 2) The consultant must specifically state in their proposal to what extent they have experience in analyzing operating costs and revenue, route, and fare structures, and interline structure and agreements of ICB operators. Additionally, the consultant must demonstrate experience in developing statewide ICB plans. 3) Qualifications of the individual/firm, particularly the Project Manager. 4) Experience in surveying ICB usage and needs of various governmental, transit provider, and rider groups. 5) The consultant must also state their availability in the given contract timeframe (Project Schedule). 6) Cost and manpower factors (number of estimated hours, cost per hour). The selected consultant must demonstrate strong skills and professional expertise in the areas of ICB financial and route analysis. The consultant must also demonstrate a strong understanding of the national ICB network and how individual routes interline with the network. The consultant must further demonstrate the ability to conduct a strong stakeholder input process in Colorado and an understanding of the Colorado regional and intercity transportation networks. This work will be conducted under the direction of CDOT s Transit Unit, with John Valerio as the CDOT Project Manager. In addition, the Working Group, made up of stakeholders from around the state, will provide guidance to and be a resource for the chosen consultant. Responses to RFP: 10

11 Proposers are required to submit a proposal of no more than 20 single spaced pages. Up to 15 pages of attachments (resumes, letters of reference, tables) may also be submitted. Proposals shall respond to this RFP in the format found below: 1. Identify the Project Manager and any other assigned staff for the project, including subcontractors. 2. Describe the qualifications and ICB experience of the individual/firm, and particularly the Project Manager. 3. Proposals should identify a Project Approach that details their understanding of the project and any particular approaches they would apply to the project. If some of the work would be delegated by the Project Manager/Coordinator to another person(s), the amount and nature of such delegated tasks shall be described. 4. Identify a project timeline and schedule of tasks to occur within the identified 6-month study time period. 5. Cost proposal - Proposals must quote their costs on a time and material basis, providing an estimate of the hours assigned to each of the stated tasks outlined above. Proposals must clearly state pay rates for each individual, as well as assumptions regarding the number of hours committed to the project. Rates of pay must be consistent with those in the current Task Order contract with the State. Deliverables: The following items will be delivered to the Transit Unit in electronic and printed formats by April 30 th, 2006: 1. Map Product: The consultant will provide electronic (GIS-based) and printed maps showing a preferred statewide intercity and regional bus network (Network Plan), route options, boarding s, and other pertinent geographic information. 2. Excel Spreadsheets: All financial data, ridership data, proposed schedules, and other data will be presented electronically to CDOT in Excel spreadsheets. 3. Final Report - Recommendations. A final report will be completed which details discussions with stakeholders, private carriers, and the Working Group. All capital and network operations financial data of the Network Plan will be identified. Proposals for this Scope of Work, including total cost estimate by task, must be received by November 10 th, 2006 by 5pm. Please submit proposals to John Valerio at the address below: John Valerio CDOT, Transit Planner 4201 E. Arkansas Ave., B-606 Denver, CO John.Valerio@dot.state.co.us

12 Proposed Project Schedule The following Project Schedule is an estimate. Consultant proposals should indicate your availability during this timeframe and whether any changes to the timeline would be needed. Proposals due to CDOT by November 10th, Consultant chosen by November 30th, Project Kick-off on December 30th, Project Completion June 30 th, 2006 (roughly 6 months from the contract signature date). 12