Purpose

This report presents the findings of a transit services study conducted by the Arroyo Verdugo Cities Subregion, an area that includes the Cities of Burbank, Glendale, La Canada Flintridge, Pasadena, and South Pasadena.  The Arroyo Verdugo Transportation Audit recommends several new and modified transit services for the 5-city area, and identifies potential sources of funding that could be used to implement them.  The Council is being asked to consider the Audit Report findings and recommendations, and to direct staff to work with the Arroyo Verdugo organization to implement an initial set of transit improvement measures.

The Arroyo Verdugo Cities (AVC) Subregion

The AVC Subregion is an administrative division of the 5-County, Southern California Association of Governments (SCAG) region.  In addition to serving as an informational conduit between SCAG and the individual Cities, the Subregional organization is a forum for issues and programs that are of joint interest.  The AVC Steering Committee is comprised of one Council Member from each of the five cities, and is supported by the five City Managers and staff.  The Committee meets monthly to receive new information, review progress on work program items, and to conduct general AVC business.  Transportation staff representatives of the cities also meet monthly, as the Transportation Subcommittee, to discuss transportation and transit issues and to complete work program projects. 

Most recently, the AVC Subregion has completed two SCAG-funded projects dealing with transportation facilities and transit services within the subregion.  The initial project was a survey of area residents and employees, stratified by city, conducted for the purposes of identifying perceptions of existing problems and deficiencies, travel patterns, and suggested areas of improvement.  A key finding was that a significant segment of the responders indicated that they would be inclined to utilize transit services more often, if not regularly, if (1) the routes and frequencies more closely matched their needs, and (2) information on routes, services, and connections was more readily available.    Responding to the apparent willingness of commuters and residents to use transit if it was more �user friendly�, the AVS Steering Committee applied to SCAG to fund a comprehensive study of existing transit services, and identification of improvements and strategies that would increase transit usage. 

AVC Transportation Audit Study         

Utilizing Federal transportation funds programmed by SCAG, the Subregion conducted a yearlong study of public transit operations.  The key objectives of the study were to:

     �        Identify existing deficiencies of the local and regional transit systems within the AVC Subregion;

    �        Determine whether greater cooperation between the five municipalities, and with the regional service providers, could reduce transit costs and provide a more coordinated service;

     �        Develop specific service improvements that could be implemented to address currently unmet transit needs;

     �        Look at the organization structures of the existing Transportation Management Organizations/Associations in terms of their potential roles in marketing transit and providing public information; and

      �        Formulate funding strategies for implementing recommended service improvements.

While the conclusions reached in the study generally pertain to the subregion as a whole, most have a local context as well.  Each of the eleven findings is briefly explained below, followed by a more detailed explanation of how it relates to transit services in Burbank.      

    1.      The existing public transportation services are deficient and are not meeting the current needs of the subregion.  A significant segment of the respondents to the prior AVC Survey questionnaires noted existing transit services as deficient, and expressed an interest in using buses and other modes of transit if accessibility and frequency factors were improved.  The Audit study took the next step in using socio-economic characteristics of the population to identify areas where existing public transportation services are not meeting local demand.  Within Burbank, the study found that there was an unmet demand for better connections to the B-G-P Airport from area transportation nodes and activity centers; and service deficiencies along the Buena Vista Street, Verdugo Avenue, and Kenneth Road corridors.            

     2.      Public transportation services need to be improved.  The study recommends several modifications and new services to improve route coverage, provide minimum time spans and frequencies of service, and eliminate overcrowded conditions.  Two alternative plans are proposed to achieve these service policies:

      -         �Alternative A� is considered a financially constrained strategy, in that it proposes some restructuring of existing routes and the addition of eight new ones, all operating at the same service levels and fare structures of the existing local routes in the subregion.  The added annual net cost of this strategy is estimated at approximately $1.5 million for the subregion.   

     -         �Alternative B� adds fourteen new routes across the subregion, and standardizes service levels at 30 minutes-or-less during peak periods on weekdays and Saturdays, and 60 minutes-or-less during other periods and days.  The additional net annual cost of this service plan is estimated to be $2.7 million.  This is the preferred strategy, in that it is projected to result in a 33% increase in ridership.  Twenty-four additional buses would be required within the subregion to provide this level of service improvements.   

The Burbank Service Plan proposes a restructuring of the City�s fixed route and shared ride services.  The objective is to create a conventional local transit system that provides more direct service to the Media District and Airport area, and better access to areas and corridors that are not served by the present regional system.  Both alternatives would require twelve 25-30 foot buses, five beyond the seven that the City is currently purchasing.  Strategy B would provide improved spans of service and frequencies on weekdays and Saturdays, more consistent with other local service providers in the area.   The Plan estimates the added net annual cost to the City of implementing Strategy A would be approximately $831,000; and for the Strategy B service improvements, an additional $1.5 million would be needed. 

The following route and service changes would occur in Burbank in both strategies:

     �        Local Route BT1:  Olive-Media District (5 buses) � In both strategies, this line would continue to connect the Downtown Burbank Station with the Media District studio area, via Olive Avenue, Buena Vista Street, and Riverside Drive, terminating at Kenwood Street and Alameda.  At the terminus, buses would be �interlined� (same bus continues on other route) with the new BT2 route to give continuous service in the Verdugo and Buena Vista corridors.  In Strategy A, the service would continue to operate at 15 minute headways (time between successive buses), with no off-peak or weekend service; in Strategy B, service with 30 minute headways would be added during off-peak periods on weekdays and 60 minute service on weekends.

     �        Local Route BT2:  Kenneth-Buena Vista (2 buses) � This new local route would be focused on the Downtown Station, and would serve the Kenneth, Buena Vista, and Verdugo corridors, before interlining with Route 1 at Kenwood and Alameda.  In Strategy A, the route would provide 30 minute service during peak periods and no service during off-peak periods; in Strategy B, the 30 minute service would be extended to the off-peak periods. 

    �        Local Route BT3:  Glenoaks-Airport Area (4 buses) � This new local route would also be focused on the Downtown Station, and would serve the Downtown, Glenoaks corridor and Airport area, which is currently served by the two shared-ride services.  It would be interlined with the Glendale Metrolink Express (Route GB 12) to provide continuous service and a direct link between the Glendale Transportation Center and the Airport.  In Strategy A, no off-peak or weekend service would be provided (as now); in Strategy B, 30 minute service would be added during off-peak periods on weekdays and 60 minute service on weekends.

     �        Local Route BT4:  Alameda (1 bus) � This local route would replace the Media District Express Routes 1 and 3.  It would operate on Alameda between the Downtown Station, serving the Medical Center and NBC Studios, before terminating at Kenwood and Alameda where connections to Route 2 could be made.  The route would operate at 30 minute headways during peak periods, which is better than the frequency of the existing express routes it replaces.  In Strategy A, no off-peak or weekend service would be provided (as now); in Strategy B, 30 minute service would be added off-peak on weekdays and 60 minute service on weekends. 

    �        Local Intercity Route GB12:  Metrolink Express  (4 buses/1.2 in Burbank) � This existing intercity route, operated by the Glendale Beeline, serves the Flower Street corridor and the Downtown Station in Burbank.  The route needs to have a consistent 15 minute service, as compared to the present 19-27 minute service during peak periods, to enable it to be interfaced and possibly interlined with Local Route BT3 for direct service to the Airport.  In Strategy A, no off-peak or weekend service would be provided (as now); in Strategy B, 30 minute service would be added during off-peak periods on weekdays and 60 minute service on weekends.

     �        Local Intercity Route GB13:  Bel Aire/Central Glendale (3 buses/0.8 in Burbank) � This new intercity route would replace MTA Route 183 east of the Burbank Downtown Station.  The route would be restructured to serve the Bel Aire corridor in Burbank and Glendale, and the Kenneth and Central corridors in Glendale.  The route would continue to provide 30 minute service all day, as now. 

These recommended service changes will affect MTA regional routes 96, 152, and 183.  Recommended changes to these routes are outlined in the Regional Service Plan, which along with the Service Plans of the other Cities, are included in the study. 

     3)      An Equipment and Technology Plan should be adopted to standardize the transit fleet, to consolidate vehicle purchases and facilitate the adoption of one alternative fuel technology for the subregional fleets.  Additionally, the applications of new technologies will be needed to ensure that services are delivered effectively and efficiently.  Technologies such as automatic vehicle location systems (AVL) and real-time customer information systems, which have recently been incorporated into the Glendale Beeline service, could be expanded region-wide. 

Burbank is in the process of purchasing up to seven, 30-foot long, compressed natural gas fuel (CNG) buses.  This vehicle technology is also being used by Glendale for their Beeline fleet, and MTA�s regional buses are also CNG fueled.  Pasadena has been contemplating purchasing hybrid (diesel-electric) powered buses, but is reviewing this technology choice in view of this recommendation.  Glendale has recently implemented an AVL system, using on-bus transponders to provide �next-bus� times at most bus stops. 

     4)      Staff resources to manage the transit services are inadequate.  The study found there to be understaffed administrative and management functions within the municipal agencies.  Five additional staff positions are needed to meet current needs under the existing independent agencies.  Collaboration and sharing of resources between the municipalities, or the adoption of a single management organization for public transportation in the subregion, would assist in meeting the collective transit management needs. 

     5)      The Subregion should investigate the feasibility of establishing a single maintenance facility for the combined transit fleets to consolidate maintenance practices, improve vehicle maintenance efficiency and to simplify the adoption of alternative fuel vehicles.  Glendale is currently in the final stages of designing a new transit maintenance and operations facility adjacent to its Metrolink station.  The study suggests that this facility could serve as a joint transit center for the subregion, with satellite facilities possibly located near a Gold Line station in western Pasadena and at the Downtown Metrolink Station in Burbank.     

     6)      A subregional TMO could result in administrative cost efficiencies and other benefits to its members, and help promote transit usage in the subregion.  Uniform regulations and ordinances would have to be passed by each municipality, to provide the consistency of purpose and funding that would be necessary to achieve these purposes.  While the study recognizes the success of the Burbank TMO in assisting its member companies to achieve trip-reduction goals and improve air quality, it also notes that its support is largely due to the City�s mandated transportation management ordinance.  Unless the other cities chose to follow this model, it is unlikely that a regional TMO could develop a comprehensive program that worked well across the subregion.  The Burbank TMO�s large membership allows it to effectively promote public transit use in the city, while the two other organizations in the subregion each have a more limited role in their communities.    

    7)      Pursue greater Transit Coordination.  The study recommends that the municipal transit operators work towards a consolidated transit operations and vehicle maintenance contract, at a potential savings of $400,000.  Each city currently contracts individually for operations and maintenance with a private entity.  A joint contract could reduce costs, especially if services were staged out of a central facility.  Prior to entering into the current operations and maintenance contract with Southland Transit, Burbank staff looked at whether joining in Glendale�s contract with MV Transportation would provide any cost benefit.  At that time, lease costs for operator-supplied vehicles and Glendale�s contract administration fee made that option infeasible.

     8)      Investigate Single Transit Agency.  The study concludes that consolidation of the transit services, through the creation of a single transit agency, offers the greatest potential for delivering transit services efficiently and for maximizing the use of existing personnel resources.  This single-agency structure would be a prerequisite for pursuing Included/Eligible Operator status (see below).  While there are many ways in which the separate agencies could better coordinate services and cooperate on cost-sharing administrative and public information programs, implementing the service expansions recommended by this study will likely require access to regional transit funding. 

     9)      Pursue Included/Eligible Operator Status.  In addition to other cost efficiency options, the largest source of new funding would be to qualify for a share of regional funding via the Los Angeles County Bus Transit Formula Allocation Procedures (FAP).  The study estimates that the share for a consolidated Arroyo Verdugo transit system would range between $.5 and $5 million annually depending upon the formula calculation method, which is somewhat equivalent to the share Foothill Transit receives.  If consolidated, the combined Arroyo Verdugo transit system would rank as the 6^th largest system in LA County. 

While there are considerable financial benefits in ultimately achieving an Included Operator status, the prescribed process is lengthy (3-5 years) and requires a prior funding commitment that may be difficult to provide.  For the 3 years prior, 50% of the combined agency�s expenses must have been funded from one-or-more of the following sources:  fares, city general funds (which do not include Proposition A or C funds), or Federal Transit Administration programs.  In that Proposition A and C funds are the primary sources of funding for most local transit programs, this requirement could be difficult to meet.  Moreover, the reluctance of current Included Operators to reduce their shares of the FAP to provide a share to a new operator may require a considerable effort by the subregion. 

     10)  Apply for MTA Project Funding.  The MTA awards grants for transportation and transit projects every other year, through the Call For Projects.  The study identifies this funding program as a potential source for the purchase of buses and other capital expenses.  The Arroyo Verdugo Steering Committee authorized the submittal of an application as part of the 2003 Call to fund the purchase of 17 CNG-fueled buses.  If awarded, those funds would ultimately provide the majority of the 20-25 buses that are believed to be needed to the expanded services. 

Burbank Transportation Commission Comments on Study

The Commission reviewed the study and discussed it at its March and April 2003 meetings.  The consensus position was that increased cooperation and coordination between the municipal transit operators would improve service efficiency and access, and thereby increase transit usage.  Notwithstanding that general agreement with the study�s overriding conclusion, many of the members had specific concerns or comments on various aspects of the study findings and recommendations.  The primary concern was the estimated cost of the additional transit services, especially in view of the current budgetary shortfalls that are occurring.  Whatever additional funding is necessary to implement the service expansions should not negatively effect Burbank�s existing transit services.  Another shared concern was that becoming a part of a subregional transit agency could lessen the City�s autonomy over local operations and services, and effect our current ability to respond to local needs.  A third area of common interest was the need to ensure that the City�s contribution to improved regional transit was commensurate with the service improvements made locally.

Park, Recreation and Community Services Department Staff Comments on Study

The P,R&CS Department is responsible for the operations of Burbank Local Transit (BLT), Burbank Transportation System (BTS), and Got Wheels, and oversees the transit information and marketing contract with Moore and Associates.  P,R&CS staff provided the current transit ridership and cost information that was used by the Audit Study consultants to develop the recommended service improvements.  While supportive of the desire to improve regional and local transit services, P,R&CS staff was concerned about the potential impact of a subregional program on local services, and raised some questions on projected costs and ridership. 

In addition to a general concern as to the ability of the City to fund the recommended service improvements identified in the study, P,R&CS staff noted an apparent inequity concerning the magnitude of the increased cost/revenue-hour of operation for the Strategy B service, relative to Glendale�s cost increase.  The larger increase in hourly service cost for Burbank was determined to be attributable to the cost of switching the demand-response services to a fixed-route service ($33/hr. vs. $45/hr.).  The increase in hourly costs is considered to be justified by the projected 300% increase in ridership. 

P,R&CS staff also notes that a change from demand-response service to fixed-route service in the Downtown and Golden State/Airport areas, represents a significant level of service change for the riders.  Rather than being picked-up and delivered to the workplace door, Metrolink riders would need to access the fixed-route shuttle at the nearest stop.  Additionally, the proposed universal fare structure of $.50 for fixed-route service may not be well received, and would potentially lessen the reimbursement received from Metrolink under the existing service arrangement.  Finally, P,R&CS staff believes that there is a potential loss in local control of transit operations inherent in the subregional organization strategy. 

Analysis and Summary

The study represents an overall strategy for improving transit service in the Arroyo Verdugo Subregion.  It provides some very detailed information on the specific service improvements that are recommended for implementation, and specific guidelines for achieving the subregional organization.   The immediate value of the study is that it identifies existing shortcomings in transit service delivery, and thoroughly explores opportunities for the participating cities to work together to create a more efficient and accessible system. 

While the formation of a single transit agency is seen as the ultimate objective and facilitator of the improvement strategy, because of its inherent organizational benefits and funding potential, the study points out that there are several incremental steps short of this that the cities could take to improve services.  At the most basic level, the study itself is a product of increased cooperation between the local transit operators, and with the MTA Transit Sectors.  Staff representatives of the five Arroyo Verdugo Cities (AVC) worked together and with the consultant for over a year in preparing the study, and are continuing to meet monthly as the AVC Transportation Subcommittee on improving transit service. 

While awaiting comments from each of the respective City Councils on the Audit Study, the AVC Steering Committee requested that the Subcommittee select four of the study recommendations to form a priority implementation plan.  The specific recommendations and actions in the following plan were selected because they are considered to be the most appropriate initial steps, and because they can be accomplished through collaborative efforts without formal organizational or funding commitments:

      �        Pursue opportunities for increased cooperation and resource sharing between municipalities.

            -         Form a group of transit operations staff to meet monthly to discuss opportunities for better coordination of services.

            -         Increase community outreach efforts to identify detailed service needs.

            -         Maintain better ridership count information to provide a basis for route and frequency of service adjustments.

            -         Invest in transit scheduling software that could be utilized by all agencies to better match services to ridership patterns.

      �        Meet with MTA to discuss implementing the recommended service improvements.

            -         Work through the San Fernando Valley and San Gabriel Valley MTA Sector Boards and respective staffs to promote

                  identified service modifications.

          -           Continue to discuss opportunities for transferring segments of MTA lines to local operation, especially where the

                 existing MTA services does not meet local needs.

      �        Investigate the feasibility of establishing a single transit operations and maintenance facility for subregional transit service.

            -         Determine whether the planned Glendale facility could serve as a primary facility for the municipal transit fleets.

            -         Consider the need for two additional satellite facilities, potentially near a Gold Line station in Pasadena and the

                  Downtown Metrolink station in Burbank.

            -         Determine necessary contractual arrangements and funding.

      �        Investigate the feasibility of establishing a joint marketing and customer information service/center for the subregion.

            -         Review current sources of transit information available to subregional riders, and improve quality, accessibility, and

                  content as needed. 

           -         Consider additional sources such as a joint informational brochure, and an enhanced web site that provides assistance

                  to transit riders needing to transfer between systems and modes for subregional and regional trips.

           -         Determine the feasibility of one of the cities becoming the marketing and information lead for the subregion or,

                alternately, jointly contracting with a private company to manage the program.

           -         Discuss with the area TMO/TMA�s the feasibility of taking a more active role in disseminating transit information and

                 conducting market research.

Several of the study recommendations would require formal cooperation agreements, joint contracts for services, or an organizational structure that would facilitate cost and/or revenue sharing.  Any action necessitating a legal obligation or unbudgeted expenditure would require authorizations by the City Councils of the participating municipalities.  This would, of course, include any potential formation of a joint powers transit agency.

While the study presents a comprehensive strategy for improving transit services throughout the subregion, the complete implementation of the recommended service expansions would require substantial increases in transit funding.  The Funding Plan explores the potential for each of the cities to provide additional funding (Prop A and C, Redevelopment funds, benefit assessments, development impact fees, and various General Fund revenues), and examines potential external funding sources such as MTA grants, regional transit funds, and revenue-accelerating bond financing.  Beyond some limited potential for increased municipal funding, and possible MTA funding for capital (equipment and facilities) costs, the feasibility of financing significantly higher operating costs likely depends upon access to County transit operation funds that are allocated to Included Operators.  As the 6^th largest operator in the County, a subregional entity would benefit from a significant share of the allocated funding.  

Whether the formation of a single transit agency is ultimately feasible and advantageous depends upon the results of the several exploratory studies and tasks that are recommended in the report.  Cooperation among the transit staff of the five cities on the priority implementation plan is expected to achieve some immediate gains in the areas of service coordination and public information, and to identify opportunities for further improvement through resource-sharing and cooperative programs.  Moreover, an initial period of working together to improve transit service will potentially provide a cooperative foundation upon which a more formal organizational structure can be envisioned. 

Fiscal Impact

The implementation of the priority recommendations of the Audit Study does not require any unbudgeted expenditure or create any new financial commitments. 

Recommendation

Direct staff to work with the Arroyo Verdugo Cities Subregion on the priority implementation plan outlined in this report. 

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