TO: AC Transit Board of Directors
FROM: Michael A. Hursh, General Manager
SUBJECT: FY 2019/20 Service Change Approval
ACTION ITEM
RECOMMENDED ACTION(S):
Title
Consider the adoption of Resolution No. 19-028, approving proposed service changes for FY 2019/20 considered at the Public Hearing held on August 7, 2019, which include:
- the elimination of Line 1 and replacement with BRT, truncation of Line 801 and replacement with BRT;
- service on new streets for Lines 14 and 47, as well as service changes to Lines 71, 376, 60, and 96, and associated service on new streets;
- adoption of the Title VI Service Equity Analysis; and
- authorization to file a notice of exemption, as well as
- authorize the General Manager to negotiate and execute agreements with the Alameda Transportation Management Association for enhanced service for Line 96 in Alameda Point and with California State University, East Bay for expanded service on Line 60 in Hayward.
Body
BUDGETARY/FISCAL IMPACT:
The changes considered for FY 2019/20 cover a wide range of issues and fall into several distinct groupings:
• BRT: Replacement of Line 1 with new BRT service, replacement of the northern section of Line 801 with BRT, and re-routing portions of Lines 14 and 47.
• Navigability and reliability: adjustment of lines 71/376 in Parchester Village.
• Partnerships: frequency improvement on Line 60 and a re-route of Line 96 as well as additional service between Alameda Point and Downtown Oakland.
All adjustments made in conjunction with the BRT grouping are funded through the BRT project. Any differential in operating cost for BRT versus Lines 1 and 801 will be detailed in a separate report to the Board following an update of the Operations & Maintenance Plan. The costs associated with BRT operations include categories beyond just service hours, such as safety, security, fare collection, public outreach, maintenance of BRT facilities, and communications, etc. There are no additional costs associated with the routing change for Lines 14 and 47.
There are no additional costs associated with the routing change for Lines 71 and 376 in Parchester Village. There may be some run-time savings which will be re-invested into other portions of the line to improve reliability.
All proposals in the Partnerships grouping include increases in operating costs. The Line 60 expansion is a partnership with California State University, East Bay (CSUEB). Separate from the service expansion, CSUEB will purchase EasyPasses for all students, faculty, and staff. The expanded service on Line 60 along with their participation in the EasyPass program will generate approximately $1.4 million annually in revenue. The estimated annual cost for the additional frequency along Line 60 is $655,270, assuming marginal hourly rate of $140. CSUEB will help fund $100,000 annually for the service and contribute approximately $1.3 million annually for the EasyPass program, netting approximately $745,000 annually from the partnership.
The Line 96 proposed change is a partnership with the Alameda Transportation Management Association (ATMA). The proposal would adjust the Line 96 routing in Alameda Point to serve Site A (near W. Atlantic Avenue and Orion Street) and add a new express peak-only overlay service operating every half hour between Site A and downtown Oakland to satisfy the City’s Transportation Demand Management (TDM) requirements for 15-minute peak service to the Site A development. This service expansion will cost approximately $600,000 annually and will be funded entirely through fees from the developer.
Both the Line 60 and Line 96 expansions will have funding agreements similar to the existing Line 19 service expansion between the District and ATMA. The implementation of these proposals is entirely contingent upon receiving funding to cover the costs of their respective expansions.
BACKGROUND/RATIONALE:
On August 7, 2019, the Board held a public hearing for the following set of proposals from multiple projects that are slated for implementation in FY 2019/20:
Bus Rapid Transit - When implemented in the middle of FY 2019/20, BRT will be a new service type for the District. Line 1 will be eliminated and replaced with the BRT line which will differ from Line 1 in downtown Oakland where it will serve Broadway from 11th to 20th whereas Line 1 currently travels along 12th Street west of Broadway and serves Lafayette Square. Once revenue service starts, peak headways on BRT are proposed at every seven minutes during the peak versus the ten-minute peak headways currently in place on Line 1.
For the corresponding Owl service, BRT will operate along the current Line 801 alignment from downtown Oakland to San Leandro, replacing that section of Line 801. There will be a timed connection to the truncated Line 801 for riders who wish to continue toward Fremont BART. Staff received feedback during the public hearing period that this will introduce the need for Line 801 customers to pay a second fare for a trip they can currently take using only a single fare. Staff will bring a separate item to the Board with options for addressing this issue as it requires additional study and analysis.
In addition to the new service, minor adjustments to Lines 14 and 47 will be necessary given buses will not be able to make some turns on International Boulevard with the new BRT configuration. These lines will now use San Leandro Street from Fruitvale BART to High Street, which they will then use to continue onto their current alignment. The street segments not previously cleared through the environmental review process can be found in Attachment 2.
Navigability and Reliability - Lines 71 and 376 operate through Parchester Village in Richmond. The community has narrow streets with increased on-street parking that make bus access difficult. Based on community and bus operator input, staff is proposing to adjust the routing of Lines 71 and 376 through the neighborhood to operate on a shorter, more easily navigated loop along one or more of the street segments outlined in Attachment 2.
Partnerships - The District is in discussions with multiple partners for new or expanded service in key areas. CSUEB is interested in discontinuing its own dedicated shuttle service and providing alternative transportation options. To support this, they would fund the AC Transit EasyPass program for all students, staff, and faculty, and also fund a portion of additional service to improve headways on existing Line 60 from every 20 minutes to as often as every 15 minutes. In asking for the approval of the improvement of frequency, staff is also asking to authorize the General Manager to negotiate and execute agreements with CSUEB on funding for service expansion.
The second partnership is with ATMA to support the redevelopment of the former Naval Air Station in Alameda, now known as Alameda Point. The City requires developers in Alameda Point to provide transit service operating every 15 minutes. AC Transit is working with the City to finalize a phased approach to serving the new development. The first phase will feature an adjustment to Line 96 to serve Site A at W. Atlantic Avenue and Orion Street as well as a new peak-hour route operating from Site A to downtown Oakland with a 30-minute headway. Staff is requesting authorization for the General Manager to negotiate and execute an agreement with ATMA for the service expansion. Given the need to expand service in the future as Alameda Point continues to develop, staff is also requesting approval of new street segments detailed in Attachment 2 to facilitate any future service adjustments.
Public Engagement Related to Proposals
As part of the outreach associated with this public hearing, AC Transit staff hosted the following community meetings to provide additional opportunities for all customers, stakeholders, and the impacted neighborhoods to provide input regarding the proposed service changes:
July 23, 2019 6:00 p.m. - 8:00 p.m.
Parchester Community Center
900 Williams Drive
Richmond, CA 94806
July 25, 2019 6:00 p.m. - 8:00 p.m.
Bus Rapid Transit Information Center
3322A International Boulevard
Oakland, CA 94601
July 31, 2019 6:00 p.m. - 8:00 p.m.
Alameda City Hall 2263 Santa Clara Avenue
Alameda, CA 94501
August 1, 2019 6:00 p.m. - 8:00 p.m.
Hayward City Hall
777 B Street
Hayward, CA 94541
August 7, 2019 2:00 p.m. and 6:00 p.m.
AC Transit General Office
1600 Franklin Street
Oakland, CA 94612
These five AC Transit-sponsored meetings were promoted using the following strategies in four languages - English, Spanish, Chinese, and Vietnamese:
• Designated project page on the AC Transit website
• At-stop signage placed at every bus stop along the lines being considered for changes
• Brochures onboard buses and mailed to community organizations in the area and elected officials
• Posters in the Customer Service Center and the BRT Office
• Signage on the monitors at the Customer Service Center
• eNews and social media posts
• Distribution via external stakeholders’ newsletters and social media channels
• Announcements and brochure distribution at community events and meetings
Spanish, Chinese, and Vietnamese interpreters were provided at the AC Transit-sponsored meetings and notice of their availability was included in marketing materials advertising the meetings.
In total, the District received 68 public comments while the five community meetings were attended by a total of 53 participants. All comments are included in Attachment 5, and a summary of the main issues raised in the comments is included in Attachment 6.
Environmental Analysis
Legal staff evaluated the changes listed and determined they are not substantial enough to require a full California Environmental Quality Act (CEQA) analysis; rather, the changes fall under a general exemption. As such, there is no requirement to consider this in the public hearing process.
Title VI
Staff has completed a Title VI analysis for any necessary items and the findings reveal there are not disparate impacts or disproportionate burdens on protected populations associated with these changes. The full Title VI Analysis can be found in Attachment 3.
Schedule
• May 22, 2019 - Requested Setting Public Hearing for August 7, 2018
• June through August 6, 2019 - Noticed the Public Hearing and engaged with community, customers, and stakeholders
• August 7, 2019 - Held Public Hearings at 2:00 p.m. and 6:00 p.m.
• September 11, 2019 - Request Board acceptance of Title VI equity analysis and adoption of proposals
• December 2019 - Begin implementation of proposals
ADVANTAGES/DISADVANTAGES:
The FY 2019/20 proposals will permit the District to implement BRT, fill service gaps, improve safety, and increase ridership through new partnerships. These proposals are critical to ensuring major projects and initiatives - both the District’s and those of its partners - can advance to improve mobility in the service area and reduce reliance on automobiles.
The main disadvantage of the plan will be the same as with any proposed service changes: change can be controversial and impact residents, property owners, and business owners on streets with new service, as well as riders on existing routes. However, the changes are largely positive and will increase mobility for existing customers while opening markets to new customers.
ALTERNATIVES ANALYSIS:
Staff considered not implementing the proposals but does not recommend it as it will result in BRT service not launching on schedule and leaving areas under-served or unserved.
PRIOR RELEVANT BOARD ACTION/POLICIES:
• Board Policy 110 - Public Hearing Process for the Board of Directors
• Board Policy 333 - Fare Policy: Fares, Fare Structure, and Fare Increases
• Board Policy 518 - Title VI and Environmental Justice Service Review and Compliance Report Policy
• Staff Report 19-165 - Possible Line 60 Partnership with California State University, East Bay
• Staff Report 19-171 - Set Public Hearing for Changes in FY 2019/20
• Staff Report 19-171a - Public Hearing for FY 2019/20 Service Changes
ATTACHMENTS:
1. Resolution Adopting Changes
2. Service Change Proposals
3. Title VI Analysis
4. Public Hearing Notice
5. Public Comments
6. Public Comment Summary
7. Summary of Outreach and Communications
Approved by:
Ramakrishna Pochiraju, Executive Director of Planning & Engineering
Reviewed by:
Salvador Llamas, Chief Operating Officer
Beverly Greene, Executive Director of External Affairs, Marketing & Communications
Claudia L. Allen, Chief Financial Officer
Claudia Burgos, Director of Legislative Affairs & Community Relations
Robert del Rosario, Director of Service Development and Planning
Denise Standridge, General Counsel
Michele Joseph, Director of Marketing & Communications
Sally Goodman, Title VI Program Administrator
Prepared by:
Michael Eshleman, Service Planning Manager