NCTCOG TRANSIT NEEDS ASSESSMENT AND PLANNING STUDY FINAL IMPLEMENTATION AND FUNDING PLAN FOR ROCKWALL COUNTY

Transcription

1 NCTCOG TRANSIT NEEDS ASSESSMENT AND PLANNING STUDY FINAL IMPLEMENTATION AND FUNDING PLAN FOR ROCKWALL COUNTY September 2013

2 Prepared in cooperation with the Regional Transportation Council, the North Central Texas Council of Governments, and the Texas Department of Transportation. The contents of this report reflect the views of the authors who are responsible for the opinions, findings, and conclusions presented herein. The contents do not necessarily reflect the view or policies of the Regional Transportation Council, the, or the Texas Department of Transportation.

3 Table of Contents Page Introduction... 1 Tier 1 Service Strategies... 7 Dial-A-Ride Expansion... 7 Small City Transit Service Promoting Public Awareness of Transportation Options Vanpooling From Suburban/Bedroom Communities Carpooling Volunteer Driver Program Tier 2 Service Strategies Feeder/Connector Service to Fixed Route Employer/Site-Specific Shuttle Community Shuttle Express Bus/Park-and-Ride Service Subsidized Taxi Program Mobility Management and Service Coordination Cost Sharing with Non-Transportation Agencies Limited-Stop Bus Service Local Fixed Route Bus Service Summary Funding Strategies Understanding Potential Costs Understanding Potential Funding Conclusion Table of Figures Page Figure 1 Conceptual Point Deviation Zones and Time Points in Rockwall Figure 2 Proposed 3-Year Point Deviation Service Thresholds Figure 3 Population Densities in Rockwall County Figure 4 Potential Feeder/Connector Route Figure 5 Potential Route of Site-Specific Shuttle Figure 6 Comparison of In-House and Contracted Shuttle Operations Figure 7 Rockwall City Work Trip Destinations Figure 8 Conceptual Location for Express Bus Park-and-Ride Figure 9 Major Implementation Considerations for Each Strategy/Program Figure 10 Implementation Steps for each Strategy Figure 11 Summary of Cost Projections Rockwall County Tier I Strategies Figure 12 Summary of Cost Projections Rockwall County Tier II Figure 13 Opportunities for Transportation Funding in Rockwall County Figure 14 Rockwall County Local Sales Tax Rates Nelson\Nygaard Consulting Associates Inc. i

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5 IMPLEMENTATION PLAN INTRODUCTION The Rockwall County Implementation Plan builds on the Existing Conditions Report that was produced as the first deliverable in the. The service strategies presented in this Plan were developed in response to Rockwall County transportation needs identified in the earlier report, which were based on an outreach process, demographic analysis, and examination of transportation resources currently available in the county. Some of the key elements in the Existing Conditions Report are summarized below to provide a context for this Implementation Plan. Demographics and Community Profile The consultant team conducted an analysis of the distribution and density of population in Rockwall County to help understand the travel needs of residents and employees. Key findings are as follows: Rockwall County is a predominantly suburban and rural county located in the north central region of Texas. Rockwall County s total population grew from 43,080 to 78,337 from 2000 to 2010, an increase of 82%. The population is expected to increase by about 120%, to 172,568, by 2035, 1 and some of the highest levels of growth will occur in unincorporated areas just outside current city limits. The median household income in Rockwall County is $82,146, which is one of the highest in the region. 5.5% of all people in the county have incomes that put them below the federal poverty line. Countywide, 1.3% of households do not have access to a vehicle. In the City of Rockwall, 5% of households do not have access to a vehicle. Nearly 10% of the county population was over 65 in The largest concentrations of seniors are in the city of Rockwall and in Rowlett, and along the shore of Lake Ray Hubbard. There are approximately 5,000 veterans (9.5% of the civilian population over 18 years old) living in Rockwall County. Rockwall County had the fastest proportional job growth in the country at 98% - between 2000 and Most of Rockwall County jobs are located within the city of Rockwall. 1 NCTCOG RIS 2035 Population Projection, City of Rockwall Economic Development Corporation Nelson\Nygaard Consulting Associates Inc. 1

6 Existing Transportation Services Public transit services in Rockwall County are very limited. Existing public transportation service in Rockwall County is limited to weekday demand response service. DART service is provided in Downtown Rowlett, which is in Dallas County adjacent to a small strip of Rockwall County just west of Lake Ray Hubbard. Vanpool service through DART and The T is also available, although it is not widely used in Rockwall County. STAR Transit Demand Response Service Taxis STAR Transit offers Medicaid and general public demand response paratransit service. Service is typically provided on Monday through Friday from 8:00 a.m. to 5:00 p.m., and extended hours are available in the City of Rockwall. In FY 2012, STAR Transit demand response service carried over 148,000 passengers for the entire service area, which includes Kaufman, Rockwall and Ellis Counties. No specific breakdown for Rockwall County ridership is available. STAR Transit operates approximately 50 vehicles on its fixed route and demand response services throughout the multi-county service area. Several taxi providers operate service in Rockwall County. According to the NCTCOG, an estimated 200 taxi trips per month are provided in Rockwall County. Regional Vanpool Services DART provides vanpool service that is available to Rockwall County residents. Currently, there is one regular vanpool in Rockwall County, operating between Royse City and Dallas. Non-Profit Transportation Providers Health Services of North Texas offers door-to-door transportation to medical and social service appointments for people living with HIV/AIDS in Rockwall and four other counties in the region. Stakeholder and Public Input Stakeholders and members of the public participated in the initial phase of this project in a number of ways: one-on-one interviews, a public survey, and focus groups. The primary issues identified most often by stakeholders included the following: Traffic congestion, particularly due to the barrier of crossing Lake Ray Hubbard Limited information and lack of awareness of public transportation services in Rockwall County Limited transportation options for seniors, low-income residents and people with disabilities Planning is done primarily for automobiles, and policy-makers prioritize streets and roads maintenance Nelson\Nygaard Consulting Associates Inc. 2

7 DART rail service terminates in Rowlett Transportation Alternatives by Community Type Besides providing a description of the different types of transportation services that could be feasible in Rockwall County in the near term, this report also presents an overview of the relationships between community types and transit service design. Transit and other transportation services can be provided in a variety of ways, ranging from regional express bus service to volunteer driver programs. For transit to be most effective, individual services must be designed to match market demand and operating environments. Rockwall County is made up of relatively dense suburban development in addition to rural communities. These two community types have different characteristics which help determine the most appropriate type of transit service for a community. The table below groups Rockwall County s communities into community types: Rockwall County Community Types Rural Communities McLendon-Chisholm Mobile City Royse City Small Cities Fate Heath Rockwall Rural Communities: This group includes Rockwall County communities with populations under 6,000. Small Cities: This group includes Rockwall County cities with populations over 6,000. In addition to transit strategies that are most suited to these two community types, there are some strategies that are most effective when provided countywide as they provide important intercommunity connectivity. These too will be addressed in this report. Service Alternatives The project team identified a range of transportation service alternatives that could potentially meet the various mobility needs of Rockwall County residents. Evaluation criteria were developed and refined in order to enable the consultant team to prioritize the strategies and rank them into two tiers. These criteria were grouped into the following four categories: 1. Community Level of community support, serves greatest need, serves needs of diverse community, accepted by target population High ranking - High community support and serves greatest need Medium ranking - Moderate community support and serves greatest need Low ranking - Low community support Nelson\Nygaard Consulting Associates Inc. 3

8 2. Transportation Benefits Number of beneficiaries, number of problems solved, measurable solutions High ranking - Large number of residents benefit, addresses multiple concerns, growth potential Medium ranking - Moderate number of residents benefit, addresses multiple concerns Low ranking - Small number of residents benefit, addresses one concern 3. Financial Overall cost, cost per beneficiary, funding availability and sustainability (operating and capital) Highest ranking - Lowest cost to implement (under $50,000), most cost-effective and financially feasible High ranking - Low cost to implement ($50,000 to $100,000), cost-effective and financially feasible Medium ranking - Medium cost to implement ($100,000 - $250,000), moderately cost-effective and feasible Low ranking - High cost to implement ($250,000 to $1M), high cost per beneficiary Lowest ranking - Highest cost to implement (over $1,000,000), highest cost per beneficiary 4. Implementation Implementation time frame, staging, and coordination High ranking - Short term (1-2 years), or capable of being implemented in stages, potential for coordination increases likelihood of implementation Medium ranking - Medium term (3-4 years), less coordination potential Low ranking - Long term (5+ years), may require large upfront fixed costs, least coordination potential Alternatives Evaluation Summary The table below shows the compatibility of each service alternative with the community types found in Rockwall County. A white circle indicates that the service alternative is less compatible with a community type, while a black circle shows more compatibility. A circle that is both black and white means that a service alternative is not currently ideal for a community, but could be successful under certain circumstances. Some alternatives, such as carpool and volunteer driver programs, may be appropriate for all of the County s communities. Others, however, are only feasible under certain conditions that may not be present in every community. It should be noted that transit services can evolve along with the communities they serve. A vanpool program that is strained by its own success can be converted into an express bus service. Conversely, a fixed route bus service that is failing to meet ridership goals can be transformed into a route deviation service to widen its coverage area. Some service alternatives require supportive infrastructure such as bus stops or park & ride lots. Nelson\Nygaard Consulting Associates Inc. 4

9 These too can be viewed as place holders for transit centers and rail stations if demand warrants over the long term. It should also be noted that other strategies were also evaluated but not found to be compatible with the development patterns and population size of Rockwall County. Funding Plan The second part of this report provides an overview of funding sources that could potentially be available in Rockwall County, and which strategies may be eligible for each of these sources. This funding discussion also explores the potential range of implementation and ongoing costs, in order to base future decision-making on financially realistic assumptions. In addition to providing guidance on how to apply for various funding sources, the plan presents three scenarios of different combinations of service strategies, depending on different funding levels, including status quo, medium additional investment, and significant investments. The Plan emphasizes the importance of local contributions as a means of expanding the available funding pool, in addition to meeting local match requirements in order to leverage additional state and federal funds. In addition to funding considerations, a critical factor in the likelihood of implementation of any of these strategies is the presence of a champion who will be willing to build the political support required. A number of entities are cited in this plan as possibly filling this role, but this factor will require significant additional exploration. STAR Transit currently plays the key role in transportation services in the County. It is anticipated that STAR Transit will continue to play a key, if not expanded, role in the implementation of the strategies included in this plan. For some strategies STAR Transit may not be the actual provider of services, but will serve to bring together the key partners that will be required for implementation and operation of the services or programs. Finally, performance measures will need to be established that can be used as the basis for deciding whether to expand existing services, or to initiate new ones. The information provided in this plan provides guidance for an entity such as STAR Transit to initiate the discussions needed to taking the first steps towards a more efficient, comprehensive and visible array of public transportation options available to Rockwall County residents. Nelson\Nygaard Consulting Associates Inc. 5

10 Short-Term Transit Service Alternatives Service Alternative Rural Communities Small Cities Countywide Tier 1 General Public/Eligibility- Based Dial-A-Ride Point/Route Deviation Promoting Public Awareness of Transportation Options Vanpool Carpool Volunteer Driver Program Tier 2 Feeder/Connector Service to Fixed Route Employer/Site Specific Shuttle Community Shuttle Express Bus/ Park & Ride Service Subsidized Taxi Program Mobility Management/ Coordination Cost Sharing Opportunities Limited Stop Bus Service Local Fixed Route Bus Service Nelson\Nygaard Consulting Associates Inc. 6

11 TIER 1 SERVICE STRATEGIES DIAL-A-RIDE EXPANSION Increase use of Demand Response Service Dial-a-ride (DAR) is a shared, curb-to-curb transportation service and is available to either the general public (known as General Public DAR) or is eligibility-based. Both of these options are discussed in this section. This strategy would involve expanding STAR Transit s typical service hours from 8:00 a.m. 5:00 p.m. to 6:00 a.m. 8:00 p.m. on weekdays. (Note that extended hours from 6:00 a.m. 6:00 p.m. are currently available in the City of Rockwall only.) This expansion of service hours will better meet the mobility needs of transit-dependent members of the community as identified in the outreach efforts documented in the Existing Conditions Report. This strategy should be viewed in conjunction with the marketing strategy discussed later that will increase the visibility of the program to ensure that members of the general public are more likely to ride this service. Needs Addressed by Strategy Dial-a-ride services provide a very basic level of mobility coverage in low-density environments with dispersed destinations and provide the ability to serve a large geographic area. Summary of Scenario Elements Service Design Service Hours Immediate Term (Within 3-5 Years) Curb-to-curb, shared ride service based on prescheduled trips. Same day service on a space available basis Flexible: based on passenger requests and funding availability. Proposed hours in this strategy: Cost estimates assume building up to expanded hours from 6:00 a.m. to 8:00 p.m. but could start off with a smaller expansion Headways N/A N/A Vehicle Requirements Annual Operating Costs (estimated) Generally smaller cutaway vehicles (typically up to 27-foot buses) $700,000 - $850,000, based on current operating costs 3 (upper cost assumes full expansion of additional 5 hours daily) Opportunities (Longer Term or Phase 2) Additional vehicles, expanded service area, longer service hours. Program expansion could include transitioning to a point or route deviation service Service could begin operating at 5:30 a.m. and end operations after 9:00 p.m. Need for additional vehicles will depend on service expansion Will depend on service expansion 3 Based on STAR Transit FY 2012 Operating Statistics (CH. 3 of the Existing Conditions Report). Assumptions: 20% of the total operating costs can be attributed to Rockwall County, based on the number of vehicles in STAR Transit s fleet that are assigned to Rockwall County; 10% increase in annual operating costs each year, excluding depreciation. In the next 3-5 years, 30%-50% increase in operating costs. Nelson\Nygaard Consulting Associates Inc. 7

12 Elements Annual Farebox Revenues (estimated) Annual Ridership (estimated) Administrative and Policy Roles Expected Benefits Immediate Term (Within 3-5 Years) Farebox revenues will vary depending on level of service. Based on assumptions above, revenues range from $17,000 $20,000 Annual ridership will vary depending on level of service. Under these scenarios, assuming 3 passengers per hour, ridership ranges from 35,000 45,000 passengers 4 STAR Transit, Rockwall County, City of Rockwall Opportunities (Longer Term or Phase 2) Will depend on service expansion Will depend on service expansion Additional jurisdictions or a consolidated single administrative agency Provides service throughout county Provides intercity curb-to-curb travel beyond city limits to destinations throughout county Facilitates a connection to social services and other programs for people who need it most Meets basic mobility needs of transit-dependent members of the community and lays the foundation for a community based transportation network Supports other human service and health agencies by helping them find transportation for their clients and patients Potential Obstacles Requires funding formula for cities and county to share in the cost of the service May require new vehicles and support equipment plus capital funds to pay for these investments Program managers must work to sustain the interest of stakeholders to ensure that the service is valued by the broader community DAR trips provide a high level of service to individuals that need it, but are expensive services to provide, especially in terms of cost per trip. The high cost of DAR service may eventually require managing demand, especially for people who do not need a higher level of service and particularly if other services are introduced in Rockwall County. Need to establish eligibility criteria that are generally agreed upon by all stakeholders (if eligibility-based dial-a-ride) Overview Demand response services, such as dial-a-ride, are public transportation services that provide rides based on passenger requests. Passengers schedule their trip in advance and travel between pre-determined, requested locations. DAR services are frequently successful in rural areas where 4 Dial-a-ride services typically generate 2 to 3 passenger trips per vehicle revenue hour. STAR Transit currently has 2.3 passengers/revenue hour. Estimate assumes a 10% ridership increase per year. Nelson\Nygaard Consulting Associates Inc. 8

13 demand is lower. Given the relatively low density and the lack of fixed route transit service, increased dial-a-ride service is a good fit for Rockwall County. In DAR service, vehicle routing is determined entirely or primarily in response to passenger requests. Typically passengers may request to be picked up from and taken to any safe location within the defined service area. Dial-a-ride services are called door-to-door if drivers assist passengers between vehicles and the front door of pickup and drop-off locations, otherwise the service is called curb-to-curb. In a large dial-aride system, with multiple vehicles operating throughout a large service area, trips must be requested through a call center where vehicles are scheduled and dispatched. Service areas may be designed to serve local trips only but are often inclusive of some type of connections to regional transit providers (similar to a zone service). In smaller settings it is common to have a single vehicle providing dial-a-ride service in a small area, with all requests received and scheduled by the driver. DAR service sometimes includes taxi subsidy programs, in which eligible residents are able to ride taxi services at below market rates. Currently, STAR Transit provides general public demand response service for residents of Rockwall County. Riders are asked to reserve a trip from 8:00 a.m. to 4:00 p.m. on weekdays the day before service, although same day rides are also available (such as for medical appointments) for a higher fare. One of the challenges in Rockwall County is that although transit services are available, some people are unaware of the public transit options. According to the general public survey, 50% of respondents indicated transit was not available to them. A major obstacle for people who perceive a lack of public transportation is that information is not necessarily readily accessible. Better marketing may help to increase awareness of current services and increase demand for services. Expanding DAR services in Rockwall County will help to better meet the transportation needs for individuals with low incomes and people with disabilities, as well as the general public. The service will support the most transit-dependent residents and create a safety net for members of the community, especially for people traveling occasionally, rather than supporting ongoing and regular needs, such as commute trips. Since no traditional fixed route service is being proposed for Rockwall County, there is no requirement to provide ADA paratransit service, and therefore no need for an ADA paratransit eligibility certification process. However, the service may provide a different level of service to people with disabilities and seniors, or to charge a discounted rate to these riders. In these instances, some form of eligibility identification will be necessary. Operating Characteristics and Outcomes Dial-a-ride service is highly personalized service, somewhat like a shared taxi ride. Once clients understand how to make reservations and standing appointments, this kind of service can be extremely valuable for those who can t walk far or take regular public transportation. Critical decisions for a dial-a-ride service include the size of the area to be served, how far in advance requests will be taken, whether requests will be phoned directly to the driver or through a Nelson\Nygaard Consulting Associates Inc. 9

14 dispatcher, and whether unscheduled boardings will be allowed at a transfer point with a bus or rail route. A large service area may generate high levels of demand, but also limits the number of trips that can actually be served with each vehicle since each trip is likely to be longer than in a smaller service area. If unscheduled boardings are allowed at a transfer point, the area served needs to be balanced against the service frequency and the number of vehicles used. Defining Service Parameters The specific parameters of expanded dial-a-ride in Rockwall County will need to be defined and documented: Service Area. Dial-a-ride service must have well-defined boundaries to ensure reasonable trip distances and travel times. Service Parameters. Daily trip limits per passenger are usually included in the program. Hours are based on demand and funding availability. Market: Seniors, Disabled, General Public (for local shopping / services). Extent of Assistance Provided by Driver. While the program sponsor may choose to implement a model that leaves the discussion of physical or personal assistance to the rider and driver, the service delivery model ultimately selected (or risk management plan) may call for specific policies related to rider assistance. These policies could relate to the type of assistance that can be provided to riders inside their home or their destination, if applicable (e.g., help with putting groceries away, putting on or taking off a jacket); carrying packages or luggage; assistance in transferring to and from a wheelchair when getting into and out of the vehicle; etc. Other Implementation Considerations: Dial-a-ride services typically require dedicated dispatching staff and specialized ride-matching software to operate efficiently. Implementation Considerations Expanding General Public DAR service in Rockwall County provides an opportunity to serve populations who have very limited options. This type of service has capital requirements, as well as operating expenses, most notably driver wages, but also a dispatcher to take trip requests, schedule rides and coordinate with the driver when s/he is on the road. Vehicles also need to be cleaned and maintained. In addition, some sort of information about how to use the service is necessary to encourage the general public to use it. In order to expand the DAR service in Rockwall County, additional vehicles may need to be purchased. STAR Transit currently has approximately eight vehicles operating in peak times in Rockwall County. Expansion of the DAR service in Rockwall County should be prioritized as follows: Increase awareness of DAR service and the fact that it is open to the general public Expand number of vehicle service hours to address latent demand, with the goal of meeting all trip requests and lessening the need for trip time negotiations. Proposed service span expansion is to extend the hours from 6:00 a.m. 8:00 p.m. throughout the county on weekdays, although initially a smaller expansion may be more feasible Add weekend service If significant concentrations of trip boardings occur in specific locations, these should be examined with the view to potentially establishing point deviation service with these locations as designated time points Nelson\Nygaard Consulting Associates Inc. 10

15 SMALL CITY TRANSIT SERVICE Point Deviation and Route Deviation According to STAR Transit staff and public stakeholders, demand response service in the city of Rockwall is perceived as being almost exclusively for seniors and people with disabilities. Modifying the service to allow for regularly scheduled pickup and drop-off times at defined time points allows people to use the service without having to make an advance reservation. Point deviation services require that transit vehicles operate within distinct areas, but do not follow any fixed routes. They do stop at designated stops within each of these areas at designated times. A route deviation service is similar to a fixed route service in that it operates along a designated route, but, based on advanced requests, the vehicle may deviate from the route to pick up or drop off a passenger. Although dial-a-ride service alone may potentially be effective for service within the city of Rockwall, point deviation services can be considered. Rockwall s key trip generators are relatively scattered, and given the city s demographic composition, it is unlikely that most residents would consider riding fixed route services. A point deviation operation sometimes can be implemented to help structure/organize local dial-a-ride service, allowing the operation to accommodate more general public riders, and develop service patterns that could eventually be converted to a local fixed route. A point deviation service is likely to the best first step in trying to move from dial-a-ride to a regular route operation. Route deviation may be considered at a later date if full fixed route service is not considered viable. One of the benefits of a route deviation strategy would be that if an ADA paratransit eligible person is able to request a trip the day before on a door-to-door basis, this will remove the obligation of the agency to provide paratransit service. The service would also be required to meet the other ADA paratransit service criteria such as ¾ mile on each side of the bus route, and similar service hours. This strategy considers point deviation service in the city of Rockwall, with the long-term potential to expand to other Rockwall County cities if the model is successful. Needs Addressed by Strategy Low transit service productivity for demand response services; inefficient delivery of services in small communities with need for local circulation as was identified in the outreach efforts earlier in this study Summary of Scenario Elements Short Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Point deviation in Rockwall Point deviation services could convert to deviated fixed routes (or regular fixed routes) if ridership increases. Service Hours 6:00 a.m. to 6:00 p.m. Monday through Friday Expand to weekends if demand warrants Headways minutes, depending on run times 30 minutes for all services Vehicle requirements 2 vehicles plus.5 spare vehicles Will depend on service expansion Nelson\Nygaard Consulting Associates Inc. 11

16 Elements Short Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated, based on service standards) Administrative and Policy Roles Expected Benefits $280,000 to $375,000 Will depend on service expansion $27,000 to $45,000 Will depend on service expansion 30,000 to 50,000 Will depend on service expansion STAR Transit; City of Rockwall Provide more effective and efficient transportation Resources committed to local transportation Provide more appealing service for general public Potential Obstacles STAR Transit; City of Rockwall Change to existing operating characteristics, including scheduling and dispatch procedures Need to develop service and implementation plans Dial-a-ride service may be sufficient Ability to market the program to the general public Overview This overview provides more detail than the brief description at the beginning of this section. Point Deviation service operates within a defined service area, which incorporates a series of designated locations (such as key landmarks) where the bus will arrive at designated times. However, the bus can circulate along any streets between those stops to pick up riders who have requested door-to-door service. Point deviation services in small cities are usually able to operate at a productivity level that exceeds dial-a-ride productivity, and have the added benefit of being able to serve a subset of the ridership in front of their homes/destinations. One variation on this alternative would be that while there are designated stops in the area, the bus will only travel to specific stops upon request of a general public rider (walk-on riders can only get off at certain locations). Figure 1 illustrates conceptual point deviation services that could be implemented in the city of Rockwall, based on key existing trip origins and destinations, as well as locations that are central to multiple origins and destination. These are only conceptual, and ideally STAR Transit and local community leaders would define specific locations that best meet the needs of current users for local trips. They would then need to be fully developed into an operational strategy if any were to be pursued. Nelson\Nygaard Consulting Associates Inc. 12

17 Figure 1 Conceptual Point Deviation Zones and Time Points in Rockwall Nelson\Nygaard Consulting Associates Inc. 13

18 Operating Characteristics and Outcomes Although data is not available from STAR Transit about the volume of local trips on dial-a-ride services, for a deviated service in Rockwall, expectations are that the service should carry at least five passengers per hour, with a short-term goal of achieving a minimum of eight passengers per hour. Current dial-a-ride services average over two passengers per hour. To be cost-effective, it is proposed that general service would operate on 60-minute headways, which could be increased to 30-minutes headways if ridership growth occurs and funding becomes available. Local service in Rockwall currently operates weekdays only from 6:00 a.m. to 6:00 p.m. A baseline service assumes the same hours of operation in the immediate term, with two vehicles (plus part of a spare in the general fleet) providing service. The result is approximately 6,240 annual vehicle service hours. At a fully allocated operating cost of $45 to $60 per hour, based on 2012 STAR Transit demand response operating costs, total annual operating costs for weekdayonly service within the City of Rockwall are estimated at about $280,000 to $375,000 per year. If the City of Rockwall represents the majority of current dial-a-ride requests in Rockwall County, the introduction of point deviation or route deviation service can reduce the demand for dial-aride service in the county. The flexibility of point deviation service would be expected to reduce the need for dial-a-ride service in Rockwall, making the reassignment of a vehicle possible. For example, one vehicle could be shifted from countywide dial-a-ride service to point deviation service in Rockwall. Ridership growth is dependent on the effectiveness of the point deviation route structure, reservations and dispatch procedures, marketing, and fare policies. Based on current and past ridership performance, an expected minimum standard of five passengers per hour is appropriate for a point deviation service. Based on this standard and an upper limit of eight passengers per hour, ridership is estimated at between 30,000 and 50,000 annual trips. If fares for local service were set at $1.50 for the general public, $1.00 for students and 75 for people with disabilities and seniors, an average fare of $0.90 is assumed to reflect a disproportionate number of senior and disabled riders who will continue to dominate the service. Based on these assumptions, the total revenues for the point deviation service are estimated to be between $27,000 and $45,000 annually. A draft set of basic service standards for consideration is presented in Figure 2. Standards provide a valuable tool for allocating scarce resources (their use in the service planning and allocation process will avoid potentially inequitable, and possibly inefficient, allocations of service). These draft measures can be revised and expanded, and are offered as a starting point for modifying/implementing new service in the city of Rockwall. Establishing performance measures for service will allow the STAR Transit to monitor the effectiveness of services and develop policies to allow for service expansion or contraction based on performance. Nelson\Nygaard Consulting Associates Inc. 14

19 Figure 2 Proposed 3-Year Point Deviation Service Thresholds Basic Performance Measures Passengers per Revenue Hour Passengers per Revenue Mile Proposed Minimum Service Standards 5 passengers/hour 0.4 passengers/mile Farebox Recovery 10% Service Frequency On Time Performance Stop Spacing 30 minutes-60 minutes minimum; clockface headways (depending on cycle time) 90% on-time performance for all services Point-Deviation Service approx ½ mile Accidents /Bus Miles Operated Trips Cancelled Fewer than 1 preventable accident/100,000 revenue miles No trips cancelled Implementation Considerations To implement point deviation services, policies will need to be established regarding the actual zone limits in which the bus can deviate from a time point (How far in distance/time will the vehicle deviate?); advance reservation requirements (Can passengers request deviations upon boarding the bus or do they need to book these in advance?); fares (Is there a premium fare for getting on or off at a stop that is not a regularly scheduled time point?) and others. In the current context in which some STAR Transit dial-a-ride trip requests are perceived to be unavailable for the general public, this service could fill an important gap. Since deviations need to be limited in order to maintain schedule adherence, this mode can only meet the needs of a limited number of people with disabilities who use mobility devices, most of whom would continue to rely upon diala-ride services. The following steps are recommended to implement point deviation services in the city of Rockwall: Determine community interest and commitment Refine the bus service plan and confirm operating hours, schedules, vehicle requirements and frequencies. Finalize service goals, objectives, policies, performance standards and design criteria. Establish a workable implementation plan and schedule, including roles and responsibilities. Finalize running times for the development of accurate point deviation schedules. Identify and prioritize time points/bus stop locations. Determine which stops need facilities to enhance their usability and accessibility, such as installation of shelters, benches, curb cuts, etc. Nelson\Nygaard Consulting Associates Inc. 15

20 Test the feasibility of turns, planned bus stop locations, and bus operations along all potential service streets. Establish marketing, outreach and staff orientation plans. PROMOTING PUBLIC AWARENESS OF TRANSPORTATION OPTIONS Raise Public Awareness of Public Transportation Services One of the challenges in Rockwall County is that although limited transit services are available, some people are unaware of the options. According to the general public survey conducted for this study, 50% of respondents indicated transit was not available to them when in fact STAR Transit dial-a-ride services are available to the general public throughout Rockwall County. The purpose of this strategy is to promote information dedicated to transportation services to increase awareness of existing service. Advertising alone may not necessarily lead to an increase in ridership, but information, visibility and tools to debunk misinformation and build support for transportation services in rural and suburban areas has tended to lead to an increased willingness to value, talk about, and ride transit. Needs Addressed by Strategy Lack of information about available transportation programs and services; transportation programs invisible to people not affiliated with specific agencies; need for personalized assistance with trip planning. Expected Benefits Increase awareness of transportation services. This is especially valuable for older adults who may have a high risk of isolation and may not know how to get information about the programs and services that would benefit them Increase utilization and cost-effectiveness of existing services Increases mobility for the general population Provide single point of information Potential Obstacles Requires champion agency to promote public awareness of transportation services Requires leadership, on-going attention and committed staff Low density communities can make it more difficult to promote to a wide audience Challenge of putting together information from multiple sources Overview When there is relatively little information available about public transportation, people may perceive that the services are only available to select populations, such as seniors and people with disabilities, or that only very low income people would ever consider taking transit. Marketing and public awareness strategies help to counter these misperceptions by confirming that transit is an integral part of any community. Additionally, brand identities that incorporate local geography into their name can instill a sense of local pride among riders and non-riders alike. Nelson\Nygaard Consulting Associates Inc. 16

21 A number of the transportation strategies recommended in this report lend themselves to proactive marketing. This can take different forms, such as bus stops and signage for point and route deviations and for shuttles, or brochures for the dial-a-ride service. STAR Transit staff currently includes a Client Advocate who is responsible for providing personalized service to individuals to help match them with the appropriate transportation option and provide them with assistance in using those services. While the Client Advocate may not be responsible for actual production of informational materials, coordinating this function could be a valuable role for this position, and can be well integrated with public outreach and travel training efforts. Greater detail on all the promotional activities below is provided in the Rockwall County Existing Conditions Report. Operating Characteristics and Outcomes A major challenge in Rockwall County is that some members of the public and organizations know that public transportation is available to them, and some do not. Some of the best means for providing quality public information about transit service is to conduct personal outreach and build partnerships with major institutions and community groups within the various transportation service areas. The purpose of this strategy is to promote information dedicated to transportation services to increase awareness of existing service. Advertising alone may not necessarily lead to an increase in ridership, but information, visibility and tools to debunk misinformation and build support for transportation services in rural and suburban areas has tended to lead to an increased willingness to value transit, talk about transit, and ride transit. Key elements of this program would include the following: Providing assistance to seniors, people with disabilities, caregivers, and others who call and request information about the transportation programs. Providing trip planning, scheduling and other travel navigation services to callers. Offering assistance and referrals to agency representatives. Participating in county and local events that focus on older adults, people with disabilities, youth, low-income communities or transportation. Leading information sharing events and speaking about programs available at community events, meetings, and other forums. Distributing printed information about transportation programs to individuals and agencies that request it. Posting and advertising the availability of services and information about the services throughout Rockwall County. For purposes of this plan, this program element focuses not only on sharing information about the transportation services that would be available to eligible persons, but also helping to connect these individuals directly to those programs. Nelson\Nygaard Consulting Associates Inc. 17

22 Operating Costs Estimated annual operating costs for the short term are shown below. Annual Costs Program Administration Functions $15,000 Marketing/Outreach and Printing $6,000 Miscellaneous (Start up/contractor Service) $15,000 TOTAL EXPENSES $36,000 Additional capital costs may include any signs or amenities to be installed at bus stops (if applicable). Costs can vary for transit stop amenities, but simple bus shelters can be purchased and installed for less than $2,000 each (more elaborate shelters can cost $10,000), and bus stop signs cost about $300 installed. Implementation Considerations The specific parameters of a public awareness of transportation options campaign in Rockwall County will need to be defined and documented: Market: While all members of the public should be exposed in some way to these educational efforts, particular groups who are likely to be more transit-dependent should be targeted, such as people with disabilities, seniors, youth, and low-income residents who may not have access to a car. Existing Conditions Required for Success: Transportation options that can be accessed by the target population. A commitment on the part of local agencies to assign adequate budget for marketing purposes in the face of limited resources for service provision. Anticipated Outcomes: Increased usage of local transportation resources and/or increased willingness to value transit, talk about transit, and ride transit. Extent to which Needs are Addressed: Effective public awareness and educational campaigns can be critical in areas where residents are not aware of their transportation options, particularly in an auto-oriented environment. Other Implementation Considerations: Requires coordination between local agencies, and built-in programmatic function to assume ongoing updating of service information. The Existing Conditions Report documents the consulting team s assessment of some of the specific obstacles and opportunities regarding public awareness of transportation options. This section identifies strategies to help increase public awareness, including: Signs and amenities at bus stops Signage on transit vehicles Availability of print information about services Web (Internet) and social media presence Outreach and partnerships Nelson\Nygaard Consulting Associates Inc. 18

23 Signs and Amenities at Bus Stops Although demand response service does not necessitate bus stop signage (except at a major transfer point or activity center), bus stop signs provide an invaluable ongoing marketing function for routes, trolley services and shuttles. They show people who are not familiar with the transit service that it exists and might be available to them. They also reassure riders that they are at the correct location, which is especially important when buses run with limited frequency or along circuitous routes. At high-traffic bus stops, or stops around schools, hospitals, or shopping centers, agencies may also install other rider amenities such as a paved concrete pad (in more rural areas) to allow for wheelchair boarding, benches, lighting, a shelter, news racks/bulletin boards, and bicycle racks. Signage on Transit Vehicles Signs on buses allow transit agencies to advertise themselves. Signage may be placed or painted on the side, back, or front of the transit vehicle and can include the name of the transit provider, the type of service provided, the contact or dispatch number (for dial-a-ride services), and for fixed route services, the route number and/or destination of the bus. Likewise, even though they may not have one true destination (i.e., they operate on a loop), shuttles/circulators may also use signage space to advertise other characteristics of the service. STAR Transit features identifying signage and contact numbers on the outside of their transit vehicles. Availability of Print Information about Services For some people with low incomes, seniors, and people who may not have frequent access to the internet, printed information such as brochures, signage, and posters is the most consistent and reliable medium for raising public awareness about available transit options. STAR Transit already offers and distributes a brochure for their dial-a-ride services. Agencies often distribute brochures throughout their service area, stocking them in government offices, healthcare facilities, businesses, and hotels, and posting service information and maps where people gather, such as transit centers, senior centers, and shopping centers. Key elements to increase awareness would include the following: Offering assistance and referrals to social service agency representatives, major employers, and hospitals Participating in regional events that focus on older adults, people with disabilities, youth, or transportation Developing and maintaining a database of transportation programs and services Speaking about transportation services at community events Distributing printed information about transportation services to individuals and agencies that request it Web and Social Media Presence Transit agencies of all sizes include a great deal of information about their services on the internet, including maps, service information and alerts, service changes, special event information, etc. Transit agencies typically choose a clear and succinct web page URL to maintain consistency with posted signage and reduce confusion. Increasingly, transit agencies have also expanded their web presence onto social media websites such as Facebook or Twitter where more Nelson\Nygaard Consulting Associates Inc. 19

24 direct communication to existing and potential riders is possible. When Facebook or Twitter users like, or follow the transit agency s page or account, these users will receive real-time notice of any updates that the agency makes, whether regarding special offers or service alerts. 5 Some agencies allow riders to sign up for newsletters to stay informed of any service changes or other news. Outreach and Partnerships Some of the best means for providing quality public information about transit service is to conduct personal outreach and build partnerships with major institutions and community groups within the service area. Types of organizations that transit agencies may coordinate with include senior and community centers, major employers, and hospitals. It may also be beneficial to conduct personal outreach, whether through one-on-one rider trainings or attending community events. In practice, some of transit s best advertising is by word of mouth and by making use of free access to the public and large organizations. The extent to which small and rural transit agencies conduct outreach to large organizations and the public can vary by the type of service offered (i.e., fixed route versus dial-a-ride, or general public dial-a-ride versus eligibility-based dial-a-ride) and the presence of large institutions and/or community events in the agency s service area. Implementation Considerations Marketing strategies used by primarily small and rural transit agencies to increase public awareness about available public transportation services range from small scale enhancements to websites and printed information to more robust branding and social media efforts. While some of the strategies are basic, such as formalizing bus stops, putting identifying signage on transit vehicles, offering information on a website, and distributing brochures, there is a wide variety of other creative approaches to publicizing public transit in rural areas. When combined as part of a larger marketing plan, these strategies can help to increase and improve the public perception of transit while continuing to serve an important role in the community. VANPOOLING FROM SUBURBAN/BEDROOM COMMUNITIES Implement and Promote Vanpool Program A vanpool program is one component of a commuter-based transportation program in which strategies are adopted to help commuters avoid driving on their own to work. Vanpools usually involve a group of people who have similar origins and destinations, and whose work patterns allow them to share the commute with a large enough group to justify a van rather than a carpool. In this strategy, STAR Transit could help promote the use of vanpool programs operated by Dallas Area Rapid Transit (DART) and the Fort Worth Transportation Authority (The T) for Rockwall County residents commuting to jobs in locations served by those agencies. DART s vanpool policy allows for vanpools to be formed to serve any commuter trip that begins or ends in Dallas, Denton, Ellis, or Collin County. This means that Rockwall County residents can organize or join a subsidized DART vanpool for commutes to any of these neighboring North Central Texas 5 On Facebook, when a user likes a transit agency page, they will have the option to Get Notifications from the agency in addition to having updates show up in the user s News Feed. Nelson\Nygaard Consulting Associates Inc. 20

25 counties. The T also administers a vanpool program for employees commuting to Tarrant County. While the short term priority is to promote the existing vanpool programs, there is long-term potential for STAR Transit to develop a countywide vanpool program for commutes within the county and to neighboring counties. Needs Addressed by Strategy Few transportation alternatives for commuters traveling to major employment sites in the region; lack of transit coverage; need for lower cost transportation option where transit is not viable Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Promotion of vanpool programs operated by DART and The T. Depends on riders work shifts, usually 7-8 a.m. to 5-6 p.m. Development of a vanpool program based within the county. N/A Headways N/A N/A Vehicle Requirements Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated) Administrative and Policy Roles Expected Benefits Vans, furnished to vanpool drivers by the vanpool service provider DART s program is available to Rockwall County residents who work in Dallas County. Cost is about $480 per van to consumers. The T s monthly rate for a commute of less than 45 miles round trip is $98; commuters traveling more than 166 miles each day may pay as much as $243. $6,000 -$14,000 per van (based on DART and The T pricing structure) Potential for purchasing vans for program instead of using a vanpool renting contractor For a new vanpool program, total operating cost is $10,000 to $19,000 per van, depending on whether operated inhouse or via a contractor; vanpool subsidies range from $4,000 to $15,000. Will depend on service expansion in short-term Will depend on service expansion DART and The T STAR Transit create new vanpool program; consolidate with DART or The T vanpool program Provides a commuter-focused transportation option to serve long-distance commute needs of Rockwall County residents Uses a public-private partnership model where riders pay a greater share of costs than traditional bus and rail transit (riders pay on average more than 70% of vanpool total costs) Offers a lower-cost commute solution Increases mobility and provides air quality benefits. Assists employers with the transportation needs of their employees Nelson\Nygaard Consulting Associates Inc. 21

26 Can increase the federal apportionment for transit if managed by a transit agency Potential Obstacles Enough commuters must live in close proximity to one another and share a work destination If a new program is started, there is potential for duplicative efforts, given other vanpool programs in region Serve only a limited number of trips; not applicable for part-time employees Costs may be too high for some to participate Low density communities can make it more difficult to find vanpool partners Requires at least one participant to have drivers license Overview Currently, one regular vanpool operates from Rockwall County, traveling from Royse City to Dallas. With the existing program in place for out-of-county commutes, it is mostly unnecessary at this time to establish a vanpool program specific to Rockwall County. Rockwall has a fastgrowing job market which could merit vanpool service from other cities in the county in the near future, but demand for vanpools is primarily for jobs outside of the county. The main challenge in Rockwall County is that many people may be unaware of existing vanpool programs. Operating Characteristics and Outcomes Vanpooling has proven to be most successful in areas with little or no transit service, and is especially beneficial when serving employment locations with a limited supply of parking. Vanpools can be especially effective in areas with high-occupancy vehicle lanes (HOV) that allow them to travel at higher speeds than single-occupancy vehicles and in areas where park-and-ride facilities are available so people can leave their car and travel via van to their work location. HOV lanes are available on I-30 across the border in Dallas County and allow carpools, vanpools, and buses to bypass heavy traffic congestion during peak commuting times. Vanpool operating characteristics are as follows: Commuters are assigned to a specific vanpool group/van operating on a fixed schedule. Vanpools are formed by a group of 5 to 15 commuters that live close to each other and have similar work schedules and work destinations. Route determined by individuals in a specific vanpool. Vanpools can make multiple stops along the route to pick up riders and/or have a single fixed pick-up location. Each vanpool group determines the travel time that works for the schedules of all its members and adheres to that agreed upon schedule. There is no flexibility in the departure/arrival times unless predetermined and approved by all members of the group. Riders are responsible for their own travel if they are unable to make the fixed departure times. Monthly fares are calculated based on number of riders per vanpool group. Nelson\Nygaard Consulting Associates Inc. 22

27 Fares are paid in advance by the vanpool group and divided among the vanpool participants. Base fares are fixed each month. Vanpool groups submit expense reports for gas and other approved out-of-pocket commute expenses. Vanpool groups must decide how to divide the group s fees fairly to compensate drivers and to accommodate part-time riders, rider substitution, and/or day riders. Requires two volunteer drivers primary driver and one back-up driver; one member of the group is responsible for tracking vanpool expenses and collecting fares. Implementing vanpools is comparatively inexpensive versus the development of new transit services, and can benefit from funding, typically, from a number of markets, including the vanpool users, the employers, and the sponsoring agency. The cost of using a vanpool is lower than operating a car for commuting to work. The cost to Rockwall County residents who use DART s program is a portion of $480 per van each month, plus gasoline, tolls and other expenses. DART s total annual operating costs are $16,000 per van. The cost to an individual to use The T vanpool program varies based on the distance an individual commutes: it is less than $100 each month for a 50-mile round trip, $151 for a 75-mile round trip, $200 for a 140-mile round trip (other costs are charged to users based on distance). If an agency within Rockwall County wanted to implement a new vanpool program, costs would be in the range of $10,000 to $19,000 per van, depending on whether the vans are owned or rented from a vanpool contractor. Typically, vanpool subsidies range from $4,000 to $15,000. Implementation Considerations Implementation of a vanpool program is a relatively simple undertaking compared with some of the other services proposed in this plan, and can be scaled to the number of potential users. A small program could begin with a commitment for a few vehicles. For an expanded DART and The T program: Increase the visibility and understanding of the existing vanpool programs. Promote regional transportation policies that support vanpooling. Build strong working relationships with cities, employers and other regional partners. For a new program: Identify target markets for vanpooling in Rockwall County. Define service parameters for a vanpool program in the county, including vanpool policies and procedures, such as cost/mile, cost/trip, and revenue/trip standard, as well as vehicle capacity standards. Develop procedures for program administration. Develop vendor contract (as needed) and request for proposals for vanpool rental agencies and vendors. Secure vendor and work with them to develop a focused vanpool marketing program. Build and maintain appropriate partnerships to sustain financial stability. Nelson\Nygaard Consulting Associates Inc. 23

28 Demonstrate critical vanpool program outcomes to customers, policy makers and members of the public; share vanpool affordability/performance compared with other regional commute modes; educate key partners about vanpooling. Consider initiating employer-subsidized program by reaching out and explaining benefits of program and tax benefits to employers. Develop vanpool partner program that ties activities to program outcomes. Focus on using regional partnerships to increase marketing. CARPOOLING Implement, Expand and Promote Carpool Program Carpooling is the shared use of a car by the driver usually the owner of the vehicle and one or more passengers. When carpooling, people either get a ride or offer a ride to others instead of each driving separately. Carpools are typically used for long-distance commutes, often to destinations outside of the county. This strategy suggests that rural communities and small cities in Rockwall County could coordinate and partner with the Tryparkingit.com effort, hosted by the. Try Parking It allows users to locate carpool (or vanpool) matches within the region so commuters can find someone near them with a similar schedule and commute route to share a ride. Needs Addressed by Strategy Few transportation alternatives for commuters traveling to major employment sites in the region; lack of transit coverage; need for lower cost transportation option where transit is not viable Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Promotion of carpool program for commuters and students Flexible: Route and schedule developed by participants themselves. Headways N/A N/A Promotion of ridematchng services Flexible Vehicle Requirements Drivers would furnish their own vehicles Drivers would furnish their own vehicles Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated) Administrative and Policy Roles Less than $50,000 per annum $0 $0 Unknown Could be local government or non-profit agency, existing program Will depend on promotion and operation of ridematching service Will depend on service expansion and introduction of HOV/HOT lanes Could be local government or non-profit agency Nelson\Nygaard Consulting Associates Inc. 24

29 Expected Benefits Provides a commuter-focused transportation option to serve commute needs of Rockwall County residents Offers a lower-cost commute solution Increases mobility and provides air quality benefits and reduces congestion Can be especially effective in areas with HOV lanes that allow them to travel at higher speeds than single-occupancy vehicles Assists employers with the transportation needs of their employees Potential Obstacles Can be difficult to form because of the challenges associated with matching users Serve only a limited number of trips; not applicable for part-time employees Can be difficult to maintain due to changing travel patterns and needs Drivers carry the additional burden of potential legal action from passengers in case of an accident Low density communities can make it more difficult to find carpool partners Requires at least one participant to have drivers license Overview A carpool program is one component of a commuter-based transportation program. Carpools provide a transportation option where no others may exist. They help to improve the efficiency of road/freeway systems by increasing the number of people per vehicle. They provide a viable option to commuters and others who want to share a ride and do so without restricting personal mobility or incurring high operating costs. There is potential for significant time-savings where HOV lanes are available. Carpooling arrangements and schemes involve varying degrees of formality and regularity. Carpools may be formal arranged through an employer, public website, etc., or casual, where the driver and passenger might not know each other or have advanced agreed upon arrangements. Carpools are most effective for recurring work or school commutes, but are not well suited for occasional or periodic trips such as shopping or medical appointments. Carpools also depend on potential participants to have sufficiently similar commuting patterns. Specific intended benefits to employers and the general public include reduction of automobile congestion around major employment centers, reduction of parking requirements at employment sites, conservation of energy, and reduction of air pollution. Intended user benefits for the journey-to-work trip include low costs, acceptable travel time, ability to read and relax, and convenience. Participants of rideshare programs are often part of commute trip reduction programs, which can provide economic and time-saving benefits, including: Discounts on parking permits Access to priority parking spaces reserved for car or vanpool vehicles Shared vehicle expenses and tolls Use of dedicated carpool or vanpool diamond or high-occupancy vehicle (HOV) lanes on major roadways, tunnels, or bridges Nelson\Nygaard Consulting Associates Inc. 25

30 Waived or reduced tolls Rockwall County could actively support and embrace existing carpooling efforts. Given the closeknit character of the communities in Rockwall County, residents might feel more comfortable if they knew they were riding with their neighbors on a service that has been facilitated by their community. A designated city staff member could be assigned to oversee and promote residents ridesharing efforts and facilitate the formation of ridesharing groups. Operating Characteristics Carpooling has proven to be most successful in areas with little or no transit service, and is especially beneficial when commuting to major employment centers or universities. Ridematching services can help facilitate and promote carpooling. Such services can be operated by public, private, or non-profit organizations. Several organizations provide carpool matching assistance in the Dallas/Fort Worth area but none focus specifically on Rockwall County. Rural communities and suburban/bedroom communities in Rockwall County could coordinate with the Tryparkingit.com effort, hosted by the NCTCOG. Try Parking It allows users to locate carpool (or vanpool) matches within the region. After creating a profile that includes their home and employment locations, the website will present individuals with rideshare matches. Additionally, employers can register with the site and thereby assess travel reduction programs. The website counts miles not driven by individuals, employers, and the region as a motivational tool. Carpool operating characteristics are as follows: Route determined by individuals in a specific carpool. Carpools can be based on a regular schedule or on an as-needed basis (casual carpool). Carpool participants determine the travel time that works for the schedules of its users and adheres to that agreed upon schedule. Riders are responsible for their own travel if they are unable to make the fixed departure times. Requires at least one driver; alternate drivers may be necessary if more than two people participate in a carpool. Implementation Considerations Implementing carpools is comparatively inexpensive versus the development of new transit services. This would be particularly true if communities partnered with the Try Parking It program, and actively promoted it. STAR Transit could play a lead role in this effort and can help increase awareness of the carpooling program at little or no cost with rapid implementation. Initiatives to promote carpooling in Rockwall County can include information on the city websites and local newspapers, such as the Rockwall Herald Banner and The Rockwall News, as well as events where the program can be promoted to a wide audience. Nelson\Nygaard Consulting Associates Inc. 26

31 Recognizing that it will not be possible to address every transportation need in a rural service area, it is recommended that STAR Transit assume an active role in promoting the carpooling and vanpooling program primarily for the benefit of residents and employees. A rideshare program is a component of an overall "mobility management" strategy applicable to rural communities. As part of the collaboration with Try Parking It, possible collaboration with large employers in the region should be considered. VOLUNTEER DRIVER PROGRAM Volunteer Reimbursement and Driver Incentives Several volunteer driver programs currently exist within the greater Dallas-Fort Worth region, but no formalized programs operate within Rockwall County. Implementation of a volunteer driver program is an appropriate tool where no regularly scheduled transit services exist. Implementation of a volunteer driver program is based on a model that allows for volunteer incentives and/or reimbursement in the recruitment of drivers for people with mobility needs. Typically, a volunteer driver program is managed by a county government (or unit thereof, such as a Department of Human Services or Parks Department) or a nonprofit human service organization. Identifying the appropriate sponsor agency will depend on: the staff s capacity to administer a volunteer driver program the potential for the agency or organization to be a recipient of grant funding and donations for the program an agency s comfort with the liability exposure related to administering a volunteer driver program and the ability to possess minimum insurance required existing volunteer pools or networks for recruiting volunteers, and organizational experience with coordinating volunteers. In Rockwall County, potential sponsor agencies other than the County itself could include any number of organizations, including senior centers and nonprofits. Needs Addressed by Strategy Few transportation options for people with limited mobility; need for low cost (to consumer) option where transit is not viable; need for personalized or door-through-door service Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Drivers recruit their own volunteers and the sponsor agency also recruits volunteers; Volunteers are reimbursed at a nominal per-mile rate Flexible: could be available any day, early and late trips if volunteers are available Headways N/A N/A Vehicle Requirements Volunteer drivers would furnish their own vehicles Program expansion to support some trips that cannot be served by regular dial-aride services Flexible Program could provide vehicles as needed Nelson\Nygaard Consulting Associates Inc. 27

32 Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated) Administrative and Policy Roles Expected Benefits $40,000 to $50,000 Will depend on service expansion Will depend on program parameters (whether riders will make donations) Will depend on service expansion 1,000 to 3,000 in first years Will depend on service expansion Rockwall County, a nonprofit agency STAR Transit, Rockwall County, local jurisdictions, additional funding partners Links people with the greatest need to a basic lifeline service Offers a low-cost way to address some transportation needs Facilitates a connection to social services and other programs for people who need it most Potential Obstacles Funding required to incentivize volunteers Insurance coverage for volunteer trips Limited number of people who can be served by volunteer transportation Potential for unnecessary/fraudulent use of driver incentives Volunteer driver programs are one element of a comprehensive set of transportation programs, but rarely serve as the primary mode Overview Volunteer driver programs are often sponsored by nonprofit organizations for several reasons, including the familiarity many nonprofits have with managing volunteer-based activities, funding opportunities available to nonprofits, and the perception that operating a volunteer driver program is riskier for an entity with deep pockets, such as a public entity. Some of the primary human services and transportation providers, such as Rockwall County Committee on Aging (Meals On Wheels Senior Services), Rockwall County Helping Hands, and the Salvation Army may have the experience and access to needed resources to effectively manage such a program. Although several different types of models exist for a volunteer driver program, based on some of the concerns voiced by stakeholders and successful approaches elsewhere, a proposed approach addresses issues of volunteer reimbursement, risk management, insurance and other issues. Operating Characteristics and Outcomes The objectives of the program and the constraints and priorities of the sponsoring agency will ultimately determine which model is most appropriate. Three of the most logical examples for suburban and rural portions of Rockwall County include the following: The volunteer friends model pioneered by the TRIP program in Riverside, California. Riders recruit their own drivers and schedule rides without involvement of the sponsoring agency. Mileage reimbursement is provided to the riders, who in turn Nelson\Nygaard Consulting Associates Inc. 28

33 reimburse their volunteer drivers on a monthly basis. This approach is intended to empower riders, reduce operating costs, and limit the sponsor agency s liability related to recruiting, screening, training and monitoring volunteer drivers. Sponsors implementing programs inspired by the TRIP model often provide coaching to riders about how to identify and recruit volunteer drivers. Traditional volunteer driver programs that recruit, screen, train, and monitor volunteer drivers, as well as match riders with drivers, schedule rides, and reimburse drivers. In these programs, the sponsor agency has a central role in developing and implementing a range of policies and procedures, driver standards, driver screening and training activities, and other measures that reduce risk and liability exposure. A hybrid model that relies on riders to recruit and schedule rides with their own volunteer drivers, but requires drivers to pass a basic screening which typically includes verification of a valid drivers license, verification of insurance, and Department of Motor Vehicles and Department of Public Safety records checks. A hybrid model may supplement rider-identified volunteers with a pool of volunteers recruited by the sponsor agency. In cases in which the sponsor agency directly recruits volunteers, the sponsor typically assumes responsibility for screening, training, and monitoring those volunteer drivers directly recruited by the agency. Some volunteer programs do not reimburse or incentivize drivers, but these efforts usually are managed through a church or senior volunteer program and, based on the experience of some of the smaller programs in the Dallas-Fort Worth region, some of them have difficulty recruiting regular volunteer drivers. In Rockwall County, a model that relies on some riders recruiting their own volunteer drivers may be a good starting point. This approach significantly reduces the staff time associated with recruiting, screening and training drivers and scheduling rides, and also reduces organizational liability associated with these activities. If this approach is implemented, it is recommended that the sponsor agency provide coaching to riders in recruiting a driver or drivers, as is done in various programs modeled after TRIP. 6 While the TRIP program does not vet volunteer drivers, if this program is pursued, it is recommended that volunteer drivers recruited by riders receive a basic level of screening. If there is concern that some riders may be isolated and/or have difficulty recruiting volunteers for other reasons, or if Rockwall County stakeholders prefer to adopt a model with a somewhat more centralized approach to volunteer recruitment and oversight, the sponsor agency could implement a hybrid model that provides for a pool of volunteers who are available to riders unable to recruit a driver or drivers. Programs in communities similar to Rockwall County have budgets ranging from $60,000 to $500,000 annually. Assuming an average of 17 miles per round trip (based on 2012 STAR Transit dial-a-ride per-trip data) at a volunteer reimbursement rate of 23 /mile, if the service averaged only 20 round trips per week, annual driver reimbursement costs would be approximately $4,000; even at 60 trips per week, annual reimbursement costs would be less than 6TRIP Riverside has developed a flier that is provided to enrolled riders entitled, Volunteer Drivers Talk about How They Were Asked to be a TRIP Driver that also includes categories of volunteer candidates that have been successful sources of drivers for other riders. See: Nelson\Nygaard Consulting Associates Inc. 29

34 $12,000. Assuming.5 FTE for staffing, at a cost of about $35,000 annually, total operating costs are likely to be under $50,000 annually. Defining Service Parameters The specific parameters of a volunteer driver program in Rockwall County will need to be defined and documented: Eligible Riders. Some stakeholders indicated that a volunteer driver program in Rockwall County should be targeted to isolated seniors and people with disabilities who are unable to drive themselves, access transit services, or use a contracted provider. In refining these criteria, the sponsor agency may wish to consider additional qualifying factors such as the need for specialized transportation service due to a medical or health condition, the need to make a trip more often than what might be available by countywide dial-a-ride service (depending on what that service looks like), the inability to pay for more expensive transportation options, or the use of the volunteer driver program to connect with transit services that do not operate near the rider s home. Trip Purpose. Some volunteer driver programs prioritize or limit service to certain types of trip purposes, such as medical trips or nutrition-related trips. However, recognizing that a wide range of trips are necessary to maintain an individual s social engagement and mental and physical health, it is probably not necessary to limit services by trip purpose at this time. Trip/Reimbursement Limits. Trip or reimbursement limits are used by volunteer driver programs to control costs and ensure that the budget for driver reimbursement is distributed in an equitable way among registered riders. Assuming driver reimbursement is provided on a mileage basis, limits can be placed on the amount of reimbursable mileage allocated to each rider on a monthly basis. Some programs adjust mileage allocations for riders who have special needs, such as the need to travel long distances to access specialized medical care. Service Area. The sponsor agency has the option to establish geographic limits for transportation to be reimbursed through the program. The program can adopt maximum distances established for travel between communities. User Fees/Donations. Many volunteer driver programs provide services free of charge, but others choose to incorporate a user fee such as a suggested per-trip donation to support the program, which may be optional to accommodate low-income individuals. Extent of Assistance Provided by Driver. While the program sponsor may choose to implement a model that leaves the discussion of physical or personal assistance to the rider and driver, the service delivery model ultimately selected (or risk management plan) may call for specific policies related to rider assistance. These policies could relate to the type of assistance that can be provided to riders inside their home or their destination, if applicable (e.g., help with putting groceries away, putting on or taking off a jacket); carrying packages or luggage; assistance in transferring to and from a wheelchair when getting into and out of the vehicle; etc. Nelson\Nygaard Consulting Associates Inc. 30

35 Driver Reimbursement There are several means of reimbursing volunteer drivers for services provided, including mileage reimbursement, per trip reimbursement, and/or non-cash incentives such as discounts for local programs or business, or special events. When the distances travelled are greater as they are likely to be in Rockwall County a straight per mile reimbursement is likely the most effective and straightforward means of providing reimbursement in keeping with Internal Revenue Service regulations related to non-taxable income. Mileage reimbursements are non-taxable as income when they are less than the Optional Standard Mileage Rates established annually (and sometimes more frequently) by the IRS. As of January 1, 2013, the IRS Optional Standard Mileage Rates are 56.5 cents/mile for business miles driven, 24 cents/mile driven for medical and moving purposes, and 14 cents/mile driven in service of charitable organizations. The business mileage rate is applicable both for for-profit business mileage reimbursement and nonprofit business mileage reimbursement, including volunteer drivers. This does not mean that a volunteer program must reimburse drivers at this level. Several programs currently offer reimbursement in the cents/mile range. Implementation Considerations Implementation of a volunteer driver program in Rockwall County provides an opportunity to serve the most isolated populations who have very limited options. It offers more flexibility to some of them than a countywide dial-a-ride service can offer because trips can take place outside of traditional service hours and a higher level of individual service can be provided by volunteers. If such a service is implemented, a number of steps will need to be undertaken to initiate service. These include the following: Determine the appropriate program sponsor. Define policies and service parameters. Confirm the program design. Staff the program. Based on the scale of the presumed program, a program coordinator would be needed to recruit, screen and orient volunteer drivers, reimburse drivers, and prepare monthly performance and management reports. Develop a risk management plan 7 with standards for safe drivers and driving conduct, specific criteria for selection and screening of drivers, driver training in defensive driving, emergency measures, passenger treatment, insurance coverage for non-owned vehicles (this is advisable for any type of volunteer driver program), and ongoing evaluation of drivers, vehicles, and service delivery. Secure funding through public grants, private donations and contributions from program partners. Develop forms. These include a rider application, rider liability waiver, rider information files, volunteer driver application and driver liability waiver, volunteer driver information 7 See Beverly Foundation and Independent Living Partnership (2006), Risk and Risk Management Strategies: Important Considerations for Volunteer Driver Programs and Volunteer Drivers. Available at Nelson\Nygaard Consulting Associates Inc. 31

36 files, rider guide, volunteer driver handbook, vehicle safety checklist, driver selection checklist, and driver training checklist (if applicable). Identify and secure necessary insurance. Recruit an initial pool of volunteer drivers. Nelson\Nygaard Consulting Associates Inc. 32

37 TIER 2 SERVICE STRATEGIES FEEDER/CONNECTOR SERVICE TO FIXED ROUTE Last-Mile Connections for Low-Density Environments Feeder/Connector service can take on several forms and serve a variety of functions. Service can be fixed route, demand response, or a flexible combination of the two. It is designed to feed passengers from low-density environments or communities not served by general fixed route transit to near-by transit centers or rail station. It can also provide last mile connections from the regional network to employment or retail sites. At a minimum, the service concept requires close proximity of a regional transit center or corridor. The DART Blue Line station in downtown Rowlett provides this sort of gateway for Rockwall residents. Currently, parking is free for all commuters at Downtown Rowlett Station, but DART has implemented Fair Share parking at several other stations that requires commuters who are not residents of a DART member city to pay a parking fee. Over time, paid parking may be implemented at other stations, including Downtown Rowlett Station. Needs Addressed by Strategy Feeder/Connector services are designed to provide the last mile connections that are key to the success and functionality of a regional transit network. Feeder/Connector services are particularly important in environments with poor pedestrian networks or long walk distances. Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Peak-period fixed route or demand response service linking neighborhoods to near-by regional transit connections 6:00 a.m. to 9:00 a.m. and 3:30 p.m. to 6:30 p.m. weekdays only Expanded service hours, frequency, and coverage if demand warrants Expand to all-day service if demand warrants Headways 30-minute peak frequency 30-minute peak frequency, as warranted in the off-peak Vehicle requirements Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated, based on service standards) Administrative and Policy Roles 3 transit bus or cut-away vans, plus one spare Transit buses or cut-away vans, quantity depends on travel time and service frequency $275,000 Will depend on service expansion $12,000 Will depend on service expansion 15,000 Will depend on service expansion STAR Transit, County, or City STAR Transit, County, or City Nelson\Nygaard Consulting Associates Inc. 33

38 Expected Benefits Links Rockwall into the regional transit network. Provides a practical and competitive commuting option. Offers an alternative to possible parking fees at DART lots in the future. Enhances mobility for Rockwall residents and facilitates reverse commuting into Rockwall. Could reduce the need for long distance medical trips for STAR Transit. Potential Obstacles Identifying sustainable funding sources and operating structure. Integration with regional fare system. Overview Rockwall County s population is highly concentrated in the City of Rockwall, across Lake Ray Hubbard from Rowlett. The regional travel demand model shows that the largest destination outside of Rockwall County for work trips generated in the County is the Garland/Richardson area, representing 12% of work trips. Figure 3 Population Densities in Rockwall County Nelson\Nygaard Consulting Associates Inc. 34

39 DART s Blue Line is a major trunk link through this area with many local routes emanating from it. Connecting Rockwall residents to the Blue Line at Downtown Rowlett Station would allow Rockwall residents to connect to jobs and educational opportunities in the Garland/Richardson area and beyond. Similarly, Feeder/Connector service from the end of the Blue Line to Rockwall creates reverse-commuting opportunities to the growing employment base in Rockwall County, particularly in the City of Rockwall. Operating Characteristics and Outcomes Lakeview Parkway (SH 66) links Rockwall to downtown Rowlett. Approximately one third of Rockwall is north of SH 66 and two thirds are to the south. The northern part of the city is mostly suburban single-family neighborhoods, while the south is a mix of single and multi-family homes as well as several large retail developments. The geographic and land-use division of Rockwall make it difficult to serve the city with a single Feeder/Connector route. Instead, separate approaches are needed for the two parts of the city. The residential neighborhoods to the north of SH 66 would likely best be served by demand response service with a single time point at Downtown Rowlett Station. The southern part of the city has the density and land-use diversity to support a more traditional fixed route feeder service with Downtown Rowlett Station as an anchor. Figure 4 Potential Feeder/Connector Route Nelson\Nygaard Consulting Associates Inc. 35

40 Initially, Feeder/Connector service in Rockwall would likely operate during peak periods only, expanding over time as demand warrants. A single vehicle can be assigned to the northern demand response zone, and two vehicles could provide 30-minute peak frequency on the southern loop. It should be noted that a loop design is an efficient way to collect or distribute passengers traveling to or from a rail station, but it is a poor design for facilitating local trips because passengers cannot complete a trip without traveling to Downtown Rowlett first. Elements of demand response service can be included in the southern loop, resulting in a deviated fixed route loop. Allowing for deviations may increase travel times and reduce service frequency, but could also increase accessibility for Rockwall residents and shift some trips from STAR Transit s countywide demand response service and long-distance medical trips to Dallas. Implementation Considerations If this service is of interest to the City of Rockwall in the future, an initial issue that must be considered before implementation is who will operate the service. STAR Transit is a good candidate given their existing relationship with Rockwall and their existing fleet and maintenance facility. A new service operated by the City or County could also be considered, but contracting with DART for the service is likely not an option, given the DART Board policy of limiting purchased services to express bus and rail service. It is expected that many Feeder/Connector bus riders from Rockwall would transfer to other services in downtown Rowlett. Similarly, some reverse commuters may utilize STAR Transit in Rockwall County. To make these transfers as seamless as possible, it is important to coordinate with regional transit systems on fare policy and fare media. The following additional steps are recommended to implement Feeder/Connector service in the City of Rockwall: Refine the bus service plan and confirm operating hours, schedules, vehicle requirements and frequencies. Finalize service goals, objectives, policies, performance standards and design criteria. Establish a workable implementation plan and schedule, including roles and responsibilities. Finalize running times for the development of accurate route schedules. Identify and prioritize time points/bus stop locations. Determine which stops need improvements to enhance their usability and accessibility, such as installation of shelters, benches, curb cuts, etc. Test the feasibility of turns, planned bus stop locations, and bus operations along all potential service streets. Establish marketing, outreach and staff orientation plans. Nelson\Nygaard Consulting Associates Inc. 36

41 EMPLOYER/SITE-SPECIFIC SHUTTLE Last-Mile Connections for Major Point Destinations An employer or site-specific shuttle is a jointly funded service designed to provide last-mile connection to a sponsoring employer, institution, or retail destination. Rockwall County had the fastest proportional job growth in the country between 2000 and 2010, showing 98% growth in jobs. In 2012, there were close to 26,000 jobs in Rockwall County, mostly concentrated in the central part of the City of Rockwall. A shuttle that serves employment centers could improve job access opportunities for transit-dependent riders and make transit more competitive for choice riders. Needs Addressed by Strategy Employer/Site-Specific Shuttles are designed to provide the last mile connection to and from major employment destinations that are beyond walking distance from regional transit centers or stations. Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Headways Shuttle linking major employment sites to nearby regional transit center Schedules determined by shift change times, or as agreed by participating employers Schedules determined by shift change times, or as agreed by participating employers Expanded service hours, frequency, if demand warrants Schedules determined by shift change times, or as agreed by participating employers Schedules determined by shift change times, or as agreed by participating employers Vehicle requirements 1 to 2 or cut-away vans, plus one spare 2 cut-away vans, plus one spare Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated, based on service standards) Administrative and Policy Roles Expected Benefits $92,000 Will depend on service expansion $0 (service paid for by participating employers) Will depend on service expansion 15,000 Will depend on service expansion STAR Transit or private contractor STAR Transit or private contractor Allows employees to consider transit as a viable option for their commute. Facilitates last mile connections. Broadens the pool of potential employees for employers. Nelson\Nygaard Consulting Associates Inc. 37

42 Potential Obstacles Identifying sustainable funding sources and operating structure. Coordinating among several potential participating employers with a variety of shift times. Overview A quarter of the jobs in Rockwall County are in the retail and food service fields, which tend to attract a local employment base. However, the County has a sizable and growing stock of highskilled positions which are more likely to attract commuters from throughout the region. The Rockwall Technology Park in the City of Rockwall includes 1,000 employment positions at companies such as Bimbo Bakeries, L-3 Communications and EZ-Flo International. The Rockwall Technology Park is less than 20 minutes from DART s light rail service that terminates at the Downtown Rowlett Station. An Employer/Site-Specific Shuttle between the technology park and the rail station would make rail commuting a viable option for employees and assist with recruitment and retention of new employees. Operating Characteristics and Outcomes Service between Downtown Rowlett Station and Rockwall Technology Park could be provided every 40 minutes with one vehicle or every 20 minutes with two. Service times can be customized to the shift times of large employee groups. Most Employer/Site-Specific Shuttles run closed door between a transit center/rail station and the site they serve. Figure 5 Potential Route of Site-Specific Shuttle Employer/Site-Specific Shuttles can be funded and operated entirely by an employer or institution, or can be jointly funded by an employer or group of employers and a public entity. When a shuttle is publicly funded, it is open to the general public even if it is primarily designed to serve a specific ridership group. Nelson\Nygaard Consulting Associates Inc. 38

43 Implementation Considerations Employer/Site-Specific Shuttles are often managed by Transportation Demand Management (TDM) organizations. This allows for the cost of the service to be efficiently shared by several employers that make up the TDM partnership. In the case of Rockwall, Rockwall Technology Park could consider forming a TDM group to manage the shuttle service and other transportation issues such as carpool and vanpool coordination. The TDM group could enter into a contract with STAR Transit or a private service provider to operate the route, with the City or County of Rockwall contributing a portion of the operating cost to ensure that the service is open to the general public. Fares are often free for site specific shuttles, because the majority of riders are associated with the employers or institutions served by the route. Additionally, private contractors are often unequipped to handle fare inspection. The following additional steps are recommended to implement Employer/Site Specific Shuttle service in the City of Rowlett if the service is of interest in the future: Refine the bus service plan and confirm operating hours, schedules, vehicle requirements and frequencies. Establish a workable implementation plan and schedule, including roles and responsibilities. Finalize running times for the development of accurate route schedules. Establish marketing, outreach and staff orientation plans. Nelson\Nygaard Consulting Associates Inc. 39

44 COMMUNITY SHUTTLE Implement and Promote Community Shuttle Community shuttles generally provide free or low-cost (to riders) service connecting residents and customers with local area businesses and services. Community shuttles can be fixed route or demand response services in small or rural communities that operate in a variety of communities one to three days a week. A community shuttle is typically a small passenger bus or van that connects important community destinations, either travelling within the community or linking the community with a key destination. For Rockwall County, shuttle service could operate in alternating communities on set days of the week, depending on which other strategies may be adopted and the specific needs and interests of each community. A community shuttle in Rockwall County could replace or scale back the existing general public demand response service. Needs Addressed by Strategy Few transportation options for people with limited mobility; need for low cost (to consumer) option where transit is not viable; need for more cost-effective group options for rides to common destinations, such as shopping centers. This is a lifeline option for communities where few alternatives exist. Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Available at least one day per week in a number of communities, rather than all weekdays in one community. Can be operated as a fixed route or demand response service. Service hours depend on funding and ridership demand. Proposed weekday service span of 8 hours, 6 hours on Saturdays. Headways N/A N/A Vehicle Requirements Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) One small bus or van if only operating in one community at a time initially ($70,000 capital cost if unavailable in current fleet), plus 0.5 spare vehicle Assuming one vehicle that would be travelling in specific communities on designated days of the week, operating costs would vary between $108,000 and $144,000 (assumes operating cost per hour from $45 - $60). Will depend on program parameters (if service is free or if there is a fare) Program expansion to support additional trips and additional communities Could increase to 10 hours each weekday, and add Sunday service to address church-going and shopping needs Additional vehicles can be purchased as needed Will depend on service expansion Will depend on service expansion Nelson\Nygaard Consulting Associates Inc. 40

45 Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Annual Ridership (estimated) Administrative and Policy Roles 4,000 6,500 roundtrip passengers. Ridership is highly dependent on the service design, which can be fixed route or demand response. Roughly 4-6 one-way passengers per hour. Shuttles may be provided by an agency such as STAR Transit, or a private entity to serve the needs of their customers, residents and/or visitors Will depend on service expansion If successful, community shuttles could be established though collaborative agreements with specific businesses and to serve the needs of clients of specific agencies. Expected Benefits Offers a low-cost way to address some transportation needs Provides service linking major activity centers, including local businesses, retail stores, medical facilities and social service agencies Increases traveler independence May reduce demand for paratransit/demand response services Potential Obstacles Funds must be secured for capital, administrative and operating expenses Need to develop service, implementation and marketing plan May be challenging to identify specific retailers/medical facilities to serve Overview Shuttles have flexibility and can run on regularly scheduled routes, by appointment, or for specialized purposes. Community shuttles also allow for flexibility to share services with other organizations; for example, the senior center could share shuttle services and expenses to operate and maintain the vehicle(s) with local daycare centers, after school programs, and businesses wishing to provide shuttle services for their customers. A community shuttle may be an effective way of providing transportation in the city of Rockwall and other suburban/bedroom communities in the county. The goal would be to link activity centers in Rockwall County, such as Fate, Heath and Rockwall, and possibly provide a link to outlying communities such as McLendon-Chisholm and Royse City on a designated day of the week. A common type of community shuttle is a shopper shuttle, which is a fixed route, fixedschedule service designed around the origins and destinations and needs of the community. For example, a shopper shuttle route could be scheduled to make a trip to a nearby supermarket. Riders in Rockwall County could get a ride to Brookshire s grocery store and a return trip after an hour of shopping. The focus of a shopper shuttle route is on front-door convenience at the expense of direct routing, providing highly personalized service. In some communities, partial funding for these types of services is provided by grocery stores. An analysis of current demand response trip patterns should be conducted to plan for an efficient and convenient route. Based on stakeholder preferences, such a service could have 30-minute Nelson\Nygaard Consulting Associates Inc. 41

46 headways and operate six days a week, but costs to operate this level of service could be prohibitive. It may be more realistic to only operate on select days of the week. Since the route would link residents with grocery stores and other retail establishments, it is possible that partial funding for this service could come from private funds. Community shuttle service may convert into a fixed route service model if ridership is strong and increasing. Operating Characteristics and Outcomes The figure below provides a summary of costs and benefits associated with in-house operation or a contracted service. Figure 6 Comparison of In-House and Contracted Shuttle Operations In-House Model Contracted Service Benefits Costs/Disincentives Benefits Costs/Disincentives More direct control over operations More efficient coordination of marketing, outreach and service provision functions Direct control over driver training and safety procedures Likely to have higher operating costs over the long term Possibly difficult to find and retain qualified operations management staff Difficult to quickly add staff and capital resources necessary for large service increases Capital facility development and vehicle purchasing process may be slower Likely to have slightly lower operating cost Creates competition and more efficient operations management Contractors bring extensive operations experience Contractors bring institutional management practices and monitoring systems Contractors can draw from nationwide labor and expertise pool Allows for development of monetary penalties/ incentives for performance & service quality Ability to quickly bring on line new vehicles and garage facilities Less direct control over customer service May require some duplication of staffing (or higher staffing levels) for contract and service performance monitoring Less flexibility to respond directly to customer concerns about services or operators May be difficult to solicit competitive bids for small system Not necessarily coordinated with existing services (such as dial-aride) operated by STAR Transit Potential duplication of services Nelson\Nygaard Consulting Associates Inc. 42

47 Implementation Considerations Implementation of a community shuttle service in Rockwall County provides an opportunity to serve common destinations in small cities. The following series of steps provides a brief overview of what is involved in planning for and implementing a community shuttle service: Know what you are trying to accomplish. The first step in developing any shuttle service is to have a clear idea why the service is important and what needs you expect this shuttle service to address. This may best be accomplished through the formation of a technical or policy advisory group. Understand your market. Once you know why a community shuttle service is needed, another critical step is to fully understand who you are planning to serve. This can be accomplished in a number of ways, such as conducting surveys, evaluating demographic data, and talking with key stakeholders in the community. Identify funding potential. As with any service, it is important to know how much funding is potentially available to administer and operate the service. The budget will influence what types of services can be administered. Identify potential shuttle service options. Once it is clear why a community shuttle service is needed, what the market is, and about how much money is available to provide the service, the next step is to identify the type of community shuttle that is most appropriate. As noted above, there are a number of different types of community shuttle services, ranging from fixed route shuttles to demand response check-point services. While identifying the right community shuttle service is not an easy process, it is likely that the first few steps in developing the new service will provide insight into several options that are best suited to the need. These options should be fleshed out to the point of estimating the following elements: Estimated annual service hours Estimated annual operating costs (could be a range depending on in-house vs. private operations) Number of vehicles required Conceptual routing Span of service and service frequency Get feedback on potential shuttle service options. Once several conceptual shuttle services are developed, a critical element of this process is receiving feedback and direction from the general public, elected officials and other interested stakeholders. This can take the form of open house meetings, community workshops, formal public meetings or discussion with a technical or policy advisory group. Media attention to the potential shuttle service is helpful at getting the word out. Refine shuttle service options into a preferred option. Once sufficient time has been devoted to receiving feedback on the conceptual shuttle services, a refined service option should be developed. As with the development of potential service options, this should consist of the following key elements: Refined estimate of annual service hours Nelson\Nygaard Consulting Associates Inc. 43

48 Estimated annual operating costs (could be a range depending on in-house vs. private operations) Number of vehicles required Finalized routing Bus stop locations, if applicable Span of service and service frequency Conceptual service schedules Identify operating entity. As discussed above, operations of a community shuttle service can be handled in-house or contracted out to a private transportation provider. This process is generally a community decision and is driven by the ability to provide the service in-house, the availability of vehicles to operate the service, the cost savings associated with each option, and the anticipated quality of service provided by each entity. If it is decided to have a private transportation provider operate the service, a Request for Proposals would need to be developed that outlines all of the details associated with operating the service and a competitive bidding process would ensue. If the service is to be provided in-house, it would be necessary to hire and train drivers, develop a safety and maintenance program, and identify where vehicles and drivers are to be located. In either case, it would also be necessary at this point to decide what vehicles are to be used for the service and whether or not they will be purchased exclusively for this service. It is also necessary to identify where vehicles are to be stored and maintained. Implementing the service. Once an operator has been identified and vehicles have been secured, the next step is to actually implement the service. There are a number of details that would need to be handled at this point: Development of schedules and marketing materials Identifying and marking bus stop locations Development of fare media and distribution Development of policies and regulations Development of a process for receiving complaints and compliments Monitoring and service adjustment. Once the shuttle service is in operation, the final step is to monitor service and adjust the design of the service as needed. Nelson\Nygaard Consulting Associates Inc. 44

49 EXPRESS BUS/PARK-AND-RIDE SERVICE Express or One-Seat Service for Commuters Express bus trips offer non-stop or very limited stop one-seat service (no transfers required) between a suburban or small urban park-and-ride facility and a major regional employment destination such as downtown Dallas. This type of service tends to attract primarily daily commuters traveling to and from work or school. In Rockwall County, the greatest potential for express bus service is in the I-30/US 67 corridor. I-30 bisects the City of Rockwall (the County s largest city), and serves the fast-growing communities of Fate and Royse City. HOV lanes along I- 30 allow carpools, vanpools, and buses to bypass heavy traffic congestion during peak commuting times. Needs Addressed by Strategy Reduced commuting cost compared to driving alone, especially for long commutes; potential for significant time-savings where HOV lanes are available; opportunities for reverse commuting to jobs in suburban or small urban locations. Summary of Scenario Elements Immediate Term (Within 3-5 Years) Opportunities (Longer Term or Phase 2) Service Design Service Hours Peak-period service only, operating from a shared-use parking lot such as a movie theater or football stadium. 6:00 a.m. to 9:00 a.m. and 3:30 p.m. to 6:30 p.m. weekdays only Peak-period with a few mid-day trips, or all day service depending on ridership demand, operating from a transit center with connecting local routes. 6:00 a.m. to 9:00 p.m., or as demand warrants, weekdays only Headways 30-minute peak frequency 30-minute peak frequency, as warranted in the off-peak Vehicle Requirements 3 commuter coaches, plus one spare Commuter coaches, quantity depends on travel time and service frequency Annual Operating Costs (estimated) Annual Farebox Revenues (estimated) Annual Ridership (estimated) Administrative and Policy Roles Expected Benefits $200,000 Will depend on service expansion $20,000 Will depend on service expansion 20,000 Will depend on service expansion STAR Transit by contract, county, or city STAR Transit by contract, county, or city Provides alternative to costs associated with long distance commuting (parking, tolls, fuel, vehicle maintenance, etc.) Offers travel-time savings where there are HOV lanes. Nelson\Nygaard Consulting Associates Inc. 45

50 Potential to generate reverse commute ridership if transit or pedestrian connections exist on both ends of the route. Air quality and congestion mitigation benefits if ridership grows. Potential Obstacles Identifying sustainable funding sources and operating structure Express service runs mostly closed door so productivity depends on high ridership from one community Security of unattended vehicles at park-and-ride Integration with regional fare system Overview Approximately 4% of Rockwall County residents who work outside of the County work in downtown Dallas, although the percentage is higher for City of Rockwall residents. Nelson\Nygaard Consulting Associates Inc. 46

51 Figure 7 Rockwall City Work Trip Destinations Rockwall County residents have the option of accessing the DART light rail network at Downtown Rowlett Station. Including travel time by car from Rockwall to Rowlett, trips to downtown Dallas can take an hour or more using the DART Blue Line. An express bus service from Rockwall to downtown Dallas can provide comparable or better travel times by utilizing the I-30 HOV lanes. This service may appeal not only to Rockwall County residents, but also to others who currently drive into the region along I-30 from points east and park at existing rail stations. Express bus service in suburban environments depends on park & ride lots to facilitate access. One potential park-and-ride site is the parking lot of the Cinemark Theater on Summer Lee Drive. The location of this site along I-30, on the east bank of Lake Ray Hubbard, allows for the largest possible capture envelope of commuters from Rockwall and points east. Nelson\Nygaard Consulting Associates Inc. 47

52 Figure 8 Conceptual Location for Express Bus Park-and-Ride Operating Characteristics and Outcomes The service characteristics of express bus service will ultimately depend on ridership demand and funding availability. As a starting point, four inbound (to Dallas) trips in the morning and four outbound trips in the afternoon/evening are the minimum service levels needed to begin to attract commuters. If buses are stored and maintained at a location in Rockwall County, each one-way trip to Dallas will generate a corresponding return trip to Rockwall County. This creates the opportunity for reverse-commute ridership from Dallas to Rockwall County. However, reverse-commuting is only feasible if complementary pedestrian or transit connections exist for commuters arriving by bus in Rockwall County. Travel time from the Cinemark 12 Theater in Rockwall to downtown Dallas is approximately 30 minutes in peak periods (using the I-30 HOV lane). A 30-minute peak frequency can be achieved with two buses, with both buses making two round trips per peak-period. In the first three to five years of operation, express bus service would be expected to average 20 to 25 passengers per trip or 80 to 100 average daily riders. Ridership would be expected to increase with the introduction of midday service, not necessarily because midday trips would be wellutilized, but because the presence of midday trips gives prospective peak-period riders the peace of mind that they will not be stranded if they need to return home early for some reason. Nelson\Nygaard Consulting Associates Inc. 48