Service, Design, Performance and Evaluation Guidelines

SERVICE, DESIGN, PERFORMANCE AND EVALUATION GUIDELINES

SERVICE STANDARDS – BIG BLUE BUS – 1 SERVICE STANDARDS – BIG BLUE BUS – 2 Contents

1 OVERVIEW...... 1 .1 2 SERVICE DESIGN ...... 2 .1 2 1. Service Categories ...... 2 .2 2 2. Service Design Standards ...... 2 .2 3 SERVICE PERFORMANCE...... 3 .1 3 1. Key Performance Indicators ...... 3 .2 4 SERVICE EVALUATION...... 4 .1 4 1. Data Needs for Service Evaluation Process ...... 4 . .2 4 2. Service Evaluation Schedule ...... 4 .2 4 3. Public Input & Review ...... 4 .3 4 4. New Service Evaluation ...... 4 .3 4 5. Conclusion ...... 4 .5 5 APPENDICES...... 5 .1 Appendix A: Santa Monica’s Big Blue Bus Public Hearing Procedures For Major Service Or Fare Changes ...... 5 .1 Appendix B: Sample Quarterly Route Performance Analysis Report ...... 5 .3

SERVICE STANDARDS – BIG BLUE BUS Contents – i SERVICE STANDARDS – BIG BLUE BUS Contents – ii 1 Overview

Santa Monica presents a unique case for transit in greater Los Angeles. While dense, it has historically been somewhat geographically removed from the urban core of the region. As a result, it encouraged the growth and success of its own transit system to better cater to the distinct needs of Santa Monica and its surrounding communities. Big Blue Bus has successfully served this area since 1928, and continues to be a highly-performing model for other transit agencies across the country to follow.

Today, Big Blue Bus is the primary transit provider for the City of Santa Monica as well as many surrounding portions of Los Angeles. Service is provided to many major area destinations and transit centers, namely UCLA, the Rimpau Transit Center, the Culver City Expo Line station, the Wilshire/Western Purple Line station, the Aviation/LAX Green Line station, and downtown Los Angeles.

The Los Angeles area is a highly dynamic region. As its population grows, so does its need for higher-capacity transportation solutions, with mass transit figuring prominently in regional provider LA Metro’s set of solutions. The introduction of the first phase of its Exposition Light Rail Line (Expo) has had a substantial positive impact on areas from downtown Los Angeles to Culver City and neighborhoods in between. By extending the Expo Line and increasing the level of connectivity between the already- powerful Santa Monica area and greater Los Angeles (Expo Phase 2 is scheduled for completion in 2016), there is substantial potential for mobility growth in the city and its surroundings. Yet with this growth comes a new set of challenges for transit in Santa Monica. How can Big Blue Bus ensure that it connects the people and businesses of Santa Monica with each other as well as with this new link to the greater Los Angeles area?

These standards will guide Big Blue Bus in ensuring that its service is meeting the expectations of both passengers and taxpayers, and will guide every change and investment in service as Santa Monica’s mobility needs and wants evolve.

SERVICE STANDARDS – BIG BLUE BUS Overview – 1.1 This set of standards consists of three primary components:

Figure 1: Service Standard Components

Service Service Service Design Performance Evaluation

The service design standards lay out how Big Blue Bus service should be designed and operated, for existing as well as new services. The service performance standards describe how Big Blue Bus ana- lyzes its routes to ensure the highest possible level of performance in terms of service effectiveness, efficiency, and quality for customers. The service evaluation process presents Big Blue Bus’ strategy for analyzing, updating, and communicating its service plans to ensure that it continues to provide service that stays relevant to the needs of the City and its residents, employees, and visitors.

Big Blue Bus is committed to the enforcement of US- DOT’s Title VI regulations which state that no person or group of persons shall be discriminated against with regard to the routing, scheduling, or quality of service of transportation provided on the basis of race, color, or national origin.

SERVICE STANDARDS – BIG BLUE BUS Overview – 1.2 2 Service Design

Service design standards refer to how transit service is designed, implemented, and operated on the street, from route alignment and stop spacing to frequency and span of service. The standards outlined in this section are not intended to be absolutes, but guidelines to develop an efficient, effective transit network.

Figure 2: Service Design

Service Route Area Design Coverage

Service Span of Connectivity Service Design

Stop Multiple Service Spacing and Service Vehicle Bus Stop Frequency Placement Types Assignment Amenities

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.1 2.1 Service Categories 2.2 Service Design Standards At present, Big Blue Bus operates 20 fixed-route bus The dynamic nature of development in Santa Monica services. Most of these are Local bus routes, which and western Los Angeles results in changing travel operate on a set schedule and make local stops. markets and patterns in Big Blue Bus’ service area. Big Blue Bus also operates several Rapid (limited- In order for Big Blue Bus to continue providing high stop or express) routes with fewer stops and higher quality transit service, it is important for service speeds. Lastly, Big Blue Bus operates limited Com- standards to monitor the quality of service provided muter services, which supplement the other servic- as well as determine where new services may be ap- es provided during peak times of travel. propriate or where services need to be adjusted and/ or discontinued. Based on current operating patterns, Big Blue Bus service can be grouped into these three categories Route design – The alignment of each route is a key based on the way the routes operate and their roles factor in its ability to successfully serve custom- in the transit network: ers’ mobility needs. Route design refers to route directness, connections to key origins and desti- Table 1: Service Categories nations, and how the route interfaces with other Big Blue transit services. Category Network Role Bus Routes • Direct – Big Blue Bus routes should be de- RAPID Provides high-frequen- R3, R7, R10, signed to serve origins and destinations via cy, limited-stop service R12 direct pathways, minimizing out-of-direction between Santa Monica movements. This provides a faster trip to at- and neighboring des- tract more customers and fare revenue, while tinations of strong minimizing the cost to provide service. regional importance. • Arterial – With the exception of some local ser- LOCAL Serves the greater 1, 2, 3, 4, 5, 7, Santa Monica area, 8, 9, 12, 14, 41 vices, bus routes should serve major arterial providing service along Crosstown, 44 streets, avoiding smaller neighborhood streets. major and secondary Sunset Ride • Grid Based – Big Blue Bus routes should be de- corridors and serving signed in a grid-based structure, with higher- larger local destinations and intermo- frequency routes serving major corridors and dal connections. connecting on-street rather than deviating to COMMUTER Augments the local 6, 11, 13, R20 serve transfer hubs. A limited number of hubs network with addition- are exceptions forming the beginning or end al peak hour service to of routes and/or serving major destinations, key destinations. namely Downtown Santa Monica and UCLA, as well as Rimpau Terminal, Expo Culver City, and Each category of service may have different stan- Green and Purple Line Metro Rail stations. dards and expectations based on the types of mar- • Intermodal Connectivity – Current Big Blue kets served and the operating protocols required. Bus service is more oriented towards east-west Wherever necessary, the service standards are travel, with most major corridors positioned in shown by category. this way consistent with a majority of travel patterns. With the coming Expo Line Phase 2 (projected to be completed in 2016), which will provide a frequent, high-capacity east-west connection, Big Blue Bus will need to improve

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.2 north-south connections to collect and distrib- • Rural Route Spacing – Areas with fewer than ute customers coming to/from Expo. North/ 10 residents or jobs per acre rarely provide south routes should focus on major arterials enough concentrated transit demand to gener- wherever possible, and should be designed to ate ridership and meet Big Blue Bus perfor- efficiently connect major destinations to Expo mance standards, and will only receive ser- such as Santa Monica College, UCLA, major vice if significant trip generators or attractors employers, major retail centers, medical facili- are present. ties, and visitor destinations. Connectivity – In order to maximize ridership and Service area coverage – The service area cover- avoid service duplication, it is important that cus- age standard generally defines how transit service tomers are able to transfer and connect to additional will be provided in a certain area that meets Big service that takes them to their final destination, ei- Blue Bus’ New Service Evaluation guidelines for ther at major hubs such as downtown Santa Monica minimum transit demand. This includes defining or on-street at major intersections. New services the maximum allowable walking distance to transit should not only be designed as isolated routes, but services and how far apart stops should be placed also as an important piece of the overall transit net- given the type of service that is being proposed or work. A new route may enable convenient transfers provided currently. with existing services or provide connections between current routes and major destinations (“first • Medium Density Route Spacing – In general, mile/last mile” connections). ½ mile spacing between routes allows customers a maximum of ¼ mile walk (approximately Designing service to enable convenient transfers al- five minutes) to access service and is an appro- lows Big Blue Bus to minimize service duplication, priate standard for a grid-based bus system. since every route does not need to provide a one- • High Density Route Spacing – Within the dense seat ride to the customer’s final destination. Within urban core of the Santa Monica area (popula- a limited-resource context, minimizing duplication tion and employment densities of 30 residents allows for a more effective use of resources. or jobs per acre and greater – roughly Wilshire • Big Blue Bus should seek to avoid duplicating Blvd. in the north to Ocean Park Blvd. in the (overlapping) its own services or other services south), service may be spaced as closely as ¼ to the maximum extent possible, by focusing mile between routes. Several major regional on providing frequent service on single routes arterials are present in this area which warrant on a corridor (or Rapid/Local pairs) rather than bus service (Wilshire Blvd., Santa Monica Blvd., providing less frequent service on several over- Colorado Ave., Pico Blvd., Ocean Park Blvd.) lapping routes. and all serve different regional and communi- • Convenient transfers should be facilitated by ties in Los Angeles County to the east. high frequencies (15 minutes or better, mini- • Low Density Route Spacing – Outside of mum; 10 minutes, preferred) on major arterial the dense urban core (in areas with 10 to 30 corridors. Frequency of service is discussed in residents or jobs per acre) service should be more detail below. spaced no closer than ½ mile between routes except in extraordinary circumstances. Big Span of Service – Span of service defines how many Blue Bus should avoid unnecessary duplication hours each day a specific route will operate. A lon- of LA Metro or Culver City Bus service, except ger span of service allows a route to capture more where the corridor supports multiple service riders throughout the day for a wider variety of trip types (e.g., Rapid and Local). purposes, but also increases overall costs.

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.3 Span of service standards are more important to de- Service Frequency – Service frequency defines how scribe by the type of market/corridor served than by long customers must wait for bus service. With high- the category of service, as a Local route serving a er frequencies, fewer customers are left waiting for major regional corridor may have very different span buses at any given time, which helps make the ser- needs than a Local route serving a smaller, second- vice more attractive to potential riders. At the same ary corridor. It is also important that the route spans time, however, higher frequencies can significantly be coordinated with each other to provide necessary increase costs by requiring more buses and drivers. connecting services. Frequent service (which enables customers to use Major Big Blue Bus corridors including Pico, Lin- service “spontaneously” without consulting bus coln, Santa Monica, Wilshire, and Westwood Blvd. schedules) is defined as 15 minute headways or bet- should operate as follows: ter. The following are minimum frequency standards.

Table 2: Major Corridor Span of Service • Rapid routes should operate at 15 minutes or better throughout a majority of the day (eve- Weekday Weekend nings may require less frequent service), while START TIME END TIME START TIME END TIME 10 minutes or better may be warranted on major, high-demand corridors. Whenever possible, 5am-6am Midnight 6am-7am Midnight Rapid services should operate more frequently than Local service on the same corridor, to allow maximum customer convenience and greater Later service may be required on certain corridors. access to the faster, more efficient service option. Most other Local corridors should operate as follows: • Local routes should operate at a minimum of 30 minutes or better throughout the day Table 3: Other Local Corridor Span of Service and week. Local routes on major corridors (especially those without Rapid options) may Weekday Weekend warrant much more frequent service (15 or START TIME END TIME START TIME END TIME 10 minutes). 5am-6am 9pm 6am-7am 9pm • Commuter route frequency should be tailored to demand volumes but should operate 15 Later service may be required on certain corridors. minutes or better to allow spontaneous use where supported by ridership. Commuter service spans should be tailored to demand patterns. Whenever possible, headways should be designed as “clock-facing” where service operates every 6, 10, Spans of service may need to be adjusted on certain 12, 15, 20, or 30 minutes – headways divisible by 60 – routes depending on the operating hours of connect- where the same times repeat each hour. This makes ing services such as Expo and the resulting demand. service easier for customers to remember and use without consulting schedules. Exceptions are per- During off peak hours, there may be over capacity in mitted where a route (usually with longer headways) areas where routes are close together. For this rea- will be operationally inefficient (e.g. require an addi- son, some routes may have a truncated span of ser- tional vehicle resource) with a clock-facing headway. vice on all or part of the route during off peak hours in order to save resources and trim capacity. The ex- Stop Spacing and Placement – This standard involves pectation is that riders will walk the short distance how far apart bus stops are spaced. Stops spaced between routes and use the alternate service that is further apart allow for higher bus speeds (minimiz- running later or running off peak. ing travel time for passengers on the bus) but require

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.4 customers to walk further to access service. Stop • Performance. Operating multiple service spacing standards differ by service type, with Rapid types requires a significant investment in re- stops spaced further apart than Local stops. sources and should only be implemented on very high-performing corridors. Per section 3, • Rapid Bus Stop Spacing – Rapid bus routes on Service Performance, corridors which perform corridors also served by Local routes should at 150% of system average or better may be have stops spaced a minimum of ½ mile apart, candidates for Rapid/Local service. and should be placed at major destinations, intersections, and transfer points. Rapid stop • Major stops. Corridors which have several placement should be determined based on high-volume stops interspersed with lower- overall spacing as well as ridership. volume stops are good candidates for Rapid/ Local service, as the Rapid will serve a major- • Local Bus Stop Spacing – For Local servic- ity of ridership by making only the major stops. es, stop spacing from 1000 feet up to ¼ mile (roughly 1,300 feet) is desirable. Local service • Longer-distance travel or significant end-to- on small streets can sustain the most close- end travel. Both Lincoln and Pico Blvd. are lon- ly-spaced stops (since trip distances are usu- ger-distance corridors where delay reduction ally short) while Local stops on major arterial has a significant impact. Rapid 12 service along streets risk introducing unnecessary delay if W estwood Blvd. shows significant end-to-end stops are spaced closer than 1,000 feet. Exist- demand between Culver City Expo and UCLA. ing stops with continuously low usage will be Shorter corridors with significant local turnover subject to review for consolidation with other are not good candidates for Rapid/Local service. stops or removal in order to increase service • Corridors without Rapid service operated by speed and reliability. another provider. LA Metro operates Rap- • Commuter Service Stop Spacing – Commuter id service along Wilshire and Santa Monica services can either use Local or Rapid-type Blvds., making them inappropriate for Big Blue stopping patterns depending on the type of Bus competing Rapid Bus service. service and passenger needs. • Stop Placement – Far-side stop placement Vehicle Assignment is recommended wherever possible. Far-side The Big Blue Bus fleet contains three sub fleets that stop placement improves bus speed with and are assigned by service type as follows: without transit signal priority, and improves pe- destrian and bicycle safety (crossing the street • Articulated 60-foot motor coaches behind instead of in front of the bus). It also ⁻⁻ The articulated 60-foot coaches are assigned to maintains a larger amount of curb space avail- Rapid service routes that have higher demand and able for parking than nearside stop placement. less frequent stops. Given that there are not enough articulated buses to supply all of the assignments Corridors With Multiple Service Types – Big Blue for Rapid service, some 40-foot coaches are also Bus currently operates three Rapid/Local pairs on assigned to Rapid service. The Rapid assignments the same corridor – Lincoln (3/Rapid 3), Pico (7/ with the highest average passenger loads are as- Rapid 7), and Westwood Blvd. (12/Rapid 12). These signed the 60-foot articulated coaches due to the corridors are among the highest-ridership and high- coach’s higher capacity. Within Rapid service, bus- est-performing in the Big Blue Bus system. In or- es are assigned among routes to maintain fleets on der to determine whether additional corridors may each route with an average age that does not ex- warrant Rapid/Local service, the following criteria ceed the system wide average. should be met:

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.5 • 40-foot motor coaches amenities are allocated based on volume of activity ⁻⁻ The 40-foot motor coaches make up over 80% of (total number of average daily boardings). Activity the Big Blue Bus fleet. These buses are assigned levels are classified as follows: to the majority of the middle performing service as Table 4: Amenities Based On Ridership well as to some Rapid service as noted above. With- in routes with 40-foot bus assignments, buses are Average assigned among routes to maintain fleets on each Bus Stop Amenities Daily route with an average age that does not exceed the Classification Provided system wide average. Boardings • 32-foot motor coaches 49 OR LESS Low Volume Public Information ⁻⁻ The 32-foot motor coaches are assigned to routes kiosk with low ridership profiles and/or to routes that use 50-99 Medium Volume Above plus local streets. Some 32-foot buses may also be as- shelter and signed to routes that primarily use 40-foot coaches, seat specifically at times when ridership is expected to be light, such as nights or weekends. Within routes 100-999 High Volume Above plus with mixed 40-foot and 32-foot bus assignments, real-time buses are assigned among routes to maintain signage fleets on each route with an average age that does 1000 OR Very High Volume Above plus not exceed the system wide average. MORE multiple shelters ⁻⁻ The low number of vehicles in the 32-foot fleet (15 or extra large as of this writing), and the propensity to replace the shelter whole fleet at once means that there is little opportunity to assign a variety of vehicles in order to main- Note: Due to the rapid changes taking place in how tain fleets on each route with an average age that transit customers obtain information, allocation of does not exceed the system wide average. Buses on routes with exclusive use of 32-foot vehicles are real time signage remains a fluid issue. Depend- currently younger than the system wide average and ing on technology developments, Big Blue Bus may will age on that route until they are replaced with cease to provide these signs at stops, or may signifi- new vehicles, until such time as the 32-foot fleet is cantly alter how they are allocated. large enough to enforce an average age policy. Parts of the Big Blue Bus service area that are outside of the City of Santa Monica are allocated bus Bus Stop Amenities stop amenities through a contract with a private provider through LA Metro. Big Blue Bus has no control The Big Blue Bus service area contains the City of over bus stop amenities at those sites Santa Monica, where Big Blue Bus has significant influence over bus stop amenities. At these stops,

SERVICE STANDARDS – BIG BLUE BUS Service Design – 2.6 3 Service Performance

Service performance standards are necessary to ensure that all services are fulfilling their roles in the transit network and contributing to the overall financial sustainability of BBB. Performance should be measured regularly in order to identify trends over time, and to allow prompt changes to be enacted if necessary. Performance standards help ensure that Big Blue Bus services are useful to customers as well as cost-effective for the agency. Figure 3: Service Performance

Service Passengers Passengers Per Revenue Per Revenue Farebox Performance Hour Mile Recovery

Cost Per Passenger Passenger Load Factor Boarding

Service Efficiency and Composite On-Time Index of Quality Performance Effectiveness Measures

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.1 3.1 Key Performance gers per revenue hour on weekdays, and from approximately 10 to 50 passengers per revenue hour Indicators on weekends. Service performance may be measured using a The following are the expected minimum thresholds number of industry best practice key performance required to justify service. There are different mini- indicators (KPIs). These fall into two distinct groups, mum expectations for each service category and the first focused on efficiency and effectiveness, the day of the week. Some seasonal fluctuation in per- second on service quality: formance is to be expected, as ridership to schools • Efficiency and Effectiveness: and colleges may be lower during the summer, and ⁻⁻ Passengers per Revenue Hour recreational ridership may be higher. Per the Service Evaluation Process, service performance should be ⁻⁻ Passengers per Revenue Mile reviewed quarterly but major service change deci- ⁻⁻ Farebox Recovery sions should be based on annual data. ⁻⁻ Cost Per Passenger Boarding Table 5: Minimum PPH Thresholds ⁻⁻ Composite Index of Efficiency and Effectiveness measures Expected Minimum • Service Quality: Passenger Boardings ⁻⁻ On-Time Performance (service reliability) per Revenue Hour ⁻⁻ Passenger Load Factor (identifying overloads) CATEGORY WEEKDAY WEEKEND Rapid 40 35 Local 20 15 3.1.1 Efficiency and Commuter 20 - Effectiveness Measures There are a number of external factors such as gas- Passengers per Revenue Mile (PPM) – this indica- oline price, cost of parking, and state of the economy tor is a measure of raw passenger generation per that are at once fairly volatile, and also substantially mile that the bus operates, which does not account influential regarding our expectations for key perfor- for differences in service speed (unlike Passengers mance metrics. For that reason, while Big Blue Bus Per Revenue Hour). does set minimum and maximum standards for performance, the service is to be primarily measured Current Big Blue Bus route-level performance for this against the mean for the system. In this way, the metric ranges from less than 1 passenger per revenue merits of individual routes can be accurately mea- mile to 8 passengers per revenue mile on weekdays, sured, while regulating for the effects of external and from less than 1 passenger per revenue mile to 5 factors influencing overall ridership. passengers per revenue mile on weekends.

Passengers per Revenue Hour (PPH) – This KPI Expected minimum thresholds for passengers for measures service effectiveness or productivity based revenue mile are shown below. Since Rapid services on ridership (unlinked boardings) generated for each provide faster service (more miles in fewer hours), hour of service operated. they may not perform as well as Local services in this category and therefore do not have higher Current Big Blue Bus route-level performance thresholds than Local. for this metric ranges from approximately 10 passengers per revenue hour to almost 60 passen-

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.2 Table 6: Minimum PPM Thresholds Table 8: Maximum Boarding Costs

Expected Minimum Expected Maximum Cost Passenger Boardings Passenger Boarding* per Revenue Mile CATEGORY WEEKDAY WEEKEND CATEGORY WEEKDAY WEEKEND Rapid $4.50 $5.00 Rapid 2 1.75 Local $5.00 $6.00 Local 2 1.75 Commuter $5.00 - Commuter 2 - * Values to be updated regularly in accordance with BBB cost structures.

Farebox Recovery – This indicator measures the Composite Index of Efficiency and Effectiveness amount of service operating cost that is recouped Measures – The weakness of individual measures through farebox revenue, and is expressed as a of performance is that some routes may perform percentage. The higher the percentage, the higher poorly on certain measures even though the bus is the amount of cost that is covered by farebox rev- running at full capacity and performs well on other enue. Routes which carry more riders per the measures. For instance, Big Blue Bus Line Rapid 10, amount of service investment will have a higher which runs express (no stops) for more than half the farebox recovery. Farebox recovery takes into ac- route, could receive a low performing Passengers per count the cost of operation, the number of riders, Revenue Hour score even when running full because and the average fares that customers pay. once the bus is loaded, there are no further opportu- nities to open up new seats and gain more boardings Table 7: Farebox Recovery Ratio along the route. Depending on the relative number Expected Minimum of boardings on other routes, this could conceivably result in a Low Performing score. Each of the four Farebox Recovery Ratio* efficiency and effectiveness measures gives valuable CATEGORY WEEKDAY WEEKEND insight into performance, and yet, each measure will Rapid 16% 14% favor certain routes and route profiles. Local 12% 12% Commuter 12% - The advantage to the Composite Index KPI is that it is * Values to be updated regularly in accordance with BBB cost structures. a blend of the values of the other four efficiency and effectiveness measures, and gives a more a measured and balanced overall look at the performance Cost per Passenger Boarding – This KPI measures of each route against system averages. the cost to provide service on a per-passenger basis. Routes which carry more people per the amount of The Composite Index KPI is calculated by assessing service investment will have a lower cost per pas- a ranking value between 1 and 20 to each route for senger boarding. Since operating costs are largely each of the other efficiency and effectiveness mea- driven by revenue hours, evaluating routes on a cost sures, and then adding those ranking figures for per passenger boarding basis will yield similar re- each route to gain an overall ranking for the route. A sults to the passengers per revenue hour analysis – lower ranking indicates better performance (routes however, cost per passenger boarding can take into are ranked with the number one route being the account cost sharing or other funding relationships highest performer and the number 20 route being that may reduce subsidy. If routes do not meet mini- the lowest performer.) mum expectations for the other indicators above, they must meet cost per passenger boarding expectations to continue operation.

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.3 3.1.2 Service Quality Measures Overcrowding may be a result of high ridership performance, and should therefore be evaluated On-Time Performance – An on-time performance in the context of not merely relieving crowded ve- standard defines a minimum threshold that Big Blue hicles but providing higher service levels overall. Bus should meet regarding the percentage of total Sustained crowding (e.g. not merely one or two daily trips that are recorded as on-time. On-time trips per day) of approximately 130% of seated ca- performance reflects both the quality and reliability pacity should be evaluated for the need to provide of service, which can affect whether or not people increased frequency. choose to use transit.

Big Blue Bus defines “on time” as one minute early to 5 minutes late at each timepoint, disregarding 3.1.3 Relative Service early arrivals at the final timepoint. Effectiveness Measures and Corrective Action Guidelines The goal of 85% on-time performance systemwide is a common industry standard, which allows Along with minimum performance standards, routes for some level of service variability while main- will be evaluated in comparison with each other for taining the reasonable expectation of reliability service efficiency and effectiveness. Big Blue Bus for customers. will derive the systemwide average for each metric and determine how each route performs compared Passenger Load Factor – Passenger loads refers with the system average. For example, if the system- to how many people are on the bus at any given wide average is 40 passengers per revenue hour, moment compared to its capacity both seated and and one route generates 30 passengers per revenue standing. If passenger loads are high which results hour, that route performs at 75% of system average. in overcrowded conditions, additional service may need to be required to address the issue. Based on percentage of system average, the routes Service quality issues with crowding are dependent will be evaluated within the following categories: on the amount of time that customers must stand on • Low-performing service: 50% of system aver- the bus. If crowding is a relatively brief phenomenon, age and below; it does not justify the expense of adding additional • Average-performance service: between 51% service. Conversely, on longer-distance express-type and 149% of system average: and service, it is not advisable to allow any standees due to the amount of time that most customers spend on • High-performing service: 150% of system av- the vehicle as well as the bus’ higher speeds. erage or better The sections below include corrective action plans Table 9: Load Factor for routes falling into the categories described above. Category Passenger Load Factor Routes in the low and high categories may warrant Rapid on Freeway 100% of seated capacity more intensive actions, while routes towards the middle are adequately fulfilling their roles in the Rapid 150% of seated capacity for two or more miles network. Routes at the cusps of each category may Local 150% of seated capacity for two or be subject to the actions in the neighboring category more miles based on the best judgment of Big Blue Bus. Commuter 150% of seated capacity for two or more miles

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.4 Low-Performing Service (50 percent or lower This is applicable for routes which do not meet of system average) minimum performance standards yet serve a need identified by businesses, schools, attrac- If a bus route is found to be “low performing” (ranks tions, or other organizations that may be will- at or below 50% of the system average) on three or ing to assist with funding operations in order to more of the five efficiency and effectiveness met- continue service. Routes that have cost-shar- rics listed in Section 3.1 for two or more consecutive ing relationships will likely become Average quarters in a row, the service is subject to a Correc- Performing or High Performing in the Cost Per tive Action Plan. Passenger Boarding metric, but will still need Routes which rank within this category will be re- to meet least average performing standards on viewed to determine their potential for improvement. at least two other metrics in order to avoid fur- Corrective actions include any and all of the following ther Corrective Action Plans. based on the best judgment of Big Blue Bus. Routes • Targeted Marketing: Marketing tactics can in this category may still meet expected minimum help to raise the public awareness of a route performance standards as identified above – how- in need of remedial action. Poor ridership may ever, there may be room for improvement. be a result of a lack of public knowledge of a route, and investing in marketing can reverse • Segment Level Analysis: A segment level this trend. This is especially the case for con- analysis of a low-performing service may high- centrated market groups like employment light a specific portion of the route that sig- centers, shopping districts, schools, hospitals, nificantly reduces the overall performance, agencies, and other major destinations. causing it to perform below the standard for its service class. If a low-performing segment • Rider Outreach: Onboard surveys and rider is identified, it can be modified to attempt to interviews are methods for gaining valuable raise productivity for the route as a whole. If the information on how a route can be improved. results of a segment level analysis turn out to These methods can reveal information about be inconclusive, however, modifications to the popular destinations that a route may bypass, entire route should be considered. or other aspects of a service that may be hold- ing back ridership growth. • Operational Analysis: Often the difference between meeting and failing minimum perfor- Using this information, Big Blue Bus will create a mance standards is one of vehicle resources. Corrective Action Plan for improving performance. Realigning service to cover only critical seg- The Corrective Action Plan will be formally imple- ments or eliminating unnecessary delay (e.g. mented in the next feasible service change window deviations) are ways to reduce travel time given the limitations in place regarding public pro- and save resources, thereby raising perfor- cess, public hearing (if required), and annual service mance levels. change calendar. • Change in Service Levels: Adjusting the service levels of a low-performing route – by Once a Corrective Action Plan and implemented, the any combination of frequency, span, or day of route must meet Average Performing or High Per- week changes – may help to tailor the tran- forming standards on at least three of the five Ef- sit product to its market, and subsequently ficiency and Effectiveness metrics for at least one increase productivity. quarter within the first three successive quarters af- • Cost Sharing: Exploring cost sharing or public- ter implementation of the plan or face further action. private partnerships can reduce the amount of Once a route reaches at least Average Performance subsidy required on low-performing services. on three of the five efficiency and effectiveness met-

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.5 rics for at least one quarter, the process of Correc- egory does not preclude service adjustments at the tive Action is deemed concluded, and any subse- discretion of Big Blue Bus. quent low performance is treated as a new event. • Actions: Routes in this category perform well • Discontinuation: This is the final option for a as a whole. Their average performance may low-performing route that does not meet mini- point to conditions where performance is con- mum performance standards for at least three sistent equally throughout their length, or con- successive quarters. It can be applied to a ditions where there may be segments of very route segment or the route as a whole. If none high and also low performance. Routes in this of the aforementioned Corrective Actions are category should undergo a trip-by-trip or seg- successful in raising productivity to Average or ment-level analysis to determine whether they High Performing in at least three of the five Effi- are average overall, or include trips or seg- ciency and Effectiveness Metrics shown above, ments which fall into the more extreme cat- discontinuation may be necessary to ensure egories. Segments which would be considered effective use of resources. Corrective Actions low or very high performers are subject to the shall be in action for at least three successive actions detailed in those sections. quarters before service is discontinued, except High-Performing Service (150 percent or higher of in extreme or unforeseen circumstances. The score average) effects on the routes’ transit-dependent riders will be considered when discontinuation is Routes ranking in this category suggest the need for an option. greater investment, as high performance may signal overloading and passing passengers by due to ca Average-Performing Service (51 to 149 percent pacity issues, as well as the presence of significant of score average) latent demand. Routes in this category are adequately fulfilling their roles in the transit network, and no Corrective Action Actions for high-performing routes include: is required. These routes will be monitored on an on- going basis to determine whether their performance • Increase service levels: In order to maintain a improves, decreases, or remains steady. While no high quality of service, it is important to prevent particular action is necessary, ranking in this cat- significant overcrowding on vehicles. Increas-

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.6 ing service levels by adjusting the service’s frequency, span, or days of week served can help to alleviate this issue, as well as make service more attractive to a wider pool of potential customers, including those that currently drive. High frequencies provide dependable service with minimal waits, encouraging passengers to arrive randomly without consulting a schedule. • Introduce additional service types (Rapid): High-performing corridors may warrant the upgraded service quality of Rapid bus service with Local underlays. Very high-performing corridors will be analyzed for the need to introduce new Rapid service. This category of routes constitutes the top-performing tier of the entire Big Blue Bus system and es- sentially the system’s flagship service. It is very important to maintain a high-quality level of service as well as to continue further investment. It is important to monitor these routes and make investments in key areas that are aimed at further improving overall service.

SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.7 SERVICE STANDARDS – BIG BLUE BUS Service Performance – 3.8 4 Service Evaluation

The service evaluation process is conducted in order to ensure the continued performance of individual services, as well as the overall network. This evaluation is intended to improve service design and productivity within categories, which is important to ensure that Big Blue Bus offers a consistent system that is easy for customers to use and easy for Big Blue Bus to promote, manage, and administer.

Figure 4: Service Evaluation

Quarterly Performance Analysis

Public Input Data and Review Analysis

Service Title VI and Evaluation Environmental New Service Justice Evaluation

SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.1 • Costs: The cost of providing service will be updated on an annual basis for each vehicle type. • On-Time Performance: Departure times at each timepoint (and arrival at final timepoint) are collected via Big Blue Bus Automatic Ve- hicle Location (AVL) systems. • Community Considerations: The locations of senior, disabled, and lower-income populations are important to consider in transit service planning in order to ensure that these groups are provided with mobility within the region. This information is available via US Cen- sus or American Community Survey data. Cen- sus tracts with concentrations of minority or low-income populations above the service area average are covered by Title VI regulations. Likewise, the presence of medical facilities, nursing homes, and other community services are given consideration to ensure that these facilities are connected with the communities they serve. This data will be collected through cooperation with local planning and development agencies. 4.1 Data Needs for Service • Business Arrangements: Existing or proposed arrangements with employers, educational in- Evaluation Process stitutions, and government entities are considered when evaluating route performance. For The performance measures discussed above cost sharing arrangements, the amount of sub- require the regular collection and updating of the sidy provided to operate service on a monthly following data sources: or annual basis (however the contract is struc- • Ridership: Total number of boardings and on- tured) will be provided, as well as any condi- board load by route and day of the week will tions on that subsidy. Any cost sharing should be collected monthly. This data is available be included in the cost per passenger boarding through Big Blue Bus Automatic Passenger metric to assure that services is represented Counter (APC) systems. Through regular col- accurately regarding performance levels. lection of ridership data, trends over time can be examined. 4.2 Service Evaluation • Revenue: The amount of income generated on a route-by-route basis will be gathered monthly. Schedule • Resources: The number of vehicles, revenue Quarterly Route Performance Analysis – On a miles, and revenue hours per route by day of quarterly schedule, service performance measures the week will be collected from Big Blue Bus will be reviewed according to the metrics and stan- scheduling information. dards outlined below. See Appendix B for a sample quarterly route performance analysis report.

SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.2 The quarterly report will include the following • Publication on website Key Performance Indicators: • Information posted on buses • Passengers per Revenue Hour by Route • Public meetings in various parts of the Big • Passengers per Revenue Mile by Route Blue Bus service area • Farebox Recovery by Route • Notices to public officials, key stakeholders, and community groups • Cost per Passenger Boarding by Route • Targeted surveys to riders of affected services • Composite Index by Route • E-communications to self-identified Big Blue • On time performance by Route Bus passengers (those who provide contact in- • Passenger Load Factor by Route formation) • “Ambassador” personnel stationed at key 4.3 Public Input & Review bus stops and transit hubs to discuss service changes with customers During any substantial changes to service (alignment or significant schedule changes), customer, Big Blue Bus will conduct public outreach one month public, and employee input on recommendations re- or more prior to a route change, depending on the sulting from service evaluation are actively sought. amount of service impacted. Customers, stakehold- Current Big Blue Bus policy requires a public hear- ers, and the general public are invited to provide ing with the Santa Monica City Council prior to: comment through the Big Blue Bus website, at public meetings, through surveys, or at public hearings • Any permanentfare media change that increases fares on with the Santa Monica City Council. Overall, BBB will the BBB’s service. change follow public outreach policy shown in Appendix A. • A twenty-five percent (25%) or more reduction of the number of daily transit revenue vehicles miles of a route; i.e., the total number of miles 4.4 New Service Evaluation operated by all vehicles in revenue service for As development patterns change and population a particular day of the week on an individu- centers shift – and as transit options to Santa Mon- al route. change ica are expanded, as seen with the coming addition • A twenty-five percent (25%) or more reduction of Metro’s Expo Line – Big Blue Bus will analyze the of the number of transit route miles of a route; need for new services using the criteria listed below. i.e., the total mileage covered during one round New services or improvements to existing services trip by a vehicle in revenue service on a par- are evaluated with respect to design standards and ticular route. consistency with adopted policy principles. Service or elimination • Proposed introduction of a new route. investment decisions can provide incentives for community support of transit in policy, funding, zon- Detailed information on Big Blue Bus public hearing, and site design. ing procedures are contained in Big Blue Bus “Pub- lic Hearing Procedures for Major Service or Fare Planning and implementing new transit service re- Changes”, attached as Appendix A. In addition to the quires an examination of certain characteristics of public hearing process, Big Blue Bus employs vari- the proposed service area. The densities and demo- ous outreach methods including: graphic characteristics of a given service area, as well as destinations served and integration with the surrounding transit network, are key parts of transit success. It is important to note that new service im-

SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.3 plementation is not dependent on any one factor be- • Key Destinations: Connecting residents with low, but arises from a combination of each of these key destinations such as employment centers, factors. To determine whether an area warrants new hospitals, schools, shopping, and entertain- transit service, Big Blue Bus will analyze the follow- ment is a key factor in designing transit ser- ing characteristics of a proposed service area: vice. Key destinations are those defined as generating at least 150 daily transit boardings. • Population and Employment Density: A minimum level of density (approximately 10 people • Network Integration: Any new service should or jobs per acre) needs to be present in a given avoid duplicating existing service (see Ser- area to support regular bus service. In general, vice Spacing guidelines), and should link into higher density areas are more conducive to ef- the existing transit network in a logical man- fective bus service than low density areas due to ner to ensure that connections to other routes greater demand and potential ridership. Density and services provide attractive linked journeys. of the proposed new service area will be com- With the arrival of Expo light rail in Santa Moni- pared to the densities of existing service areas. ca, first-mile and last-mile connections are expected to be a key component of BBB service. • Transit Inclined Populations: Certain demo- graphic groups are more inclined to use transit • Projected Performance: In order to ensure than others such as seniors, the disabled, stu- continued maintenance or improvement of dents, low-income individuals, Millenials and Big Blue Bus service productivity, new routes households without automobiles. In assess- should be projected to perform at levels that ing an area’s demand for transit service it is meet or exceed the system average based on be important to examine the presence of these the metrics outlined in the Service Perfor- demographics groups and whether any unmet mance section. needs are present. Census tracts with concen- New services depend on budget availability and can trations of minority or low-income populations only be initiated when funding allows, either through above the service area average are covered by resource reallocation, additional fare revenue, or Title VI regulations. While Title VI areas are new outside funding. Introduction of new services not in themselves a warrant for service, they are subject to a trial period of one year to meet mini- should be considered as part of the decision- mum performance standards commensurate with making process. service category using the following process. • Parking shortages, high parking costs: There • New services will be examined quarterly to as- are a number of worksite, recreation and shop- sess whether they are meeting the minimum ping destinations in Santa Monica and the sur- service efficiency and effectiveness metrics. rounding sections of Los Angeles where free or inexpensive parking is difficult to obtain. These • If at the conclusion of the first three succes- sites have a higher propensity for transit rider- sive complete quarters after implementation, ship than similar sites with ample free parking. or any time thereafter, the service is found to be “low performing” (ranks at or below 50% of • Transit Demand Management: A number of the system average) on three or more of the schools and businesses in Santa Monica and five efficiency and effectiveness metrics listed surrounding Los Angeles offer subsidized in Section 3.1 for three or more quarters in a transit passes, and other programs to encour- row, the service is subject to a corrective action age their constituents to avoid driving single- plan and subsequent outcomes as discussed occupant automobiles. Depending on the pro- in Section 3.1.3. gram features, these conditions can lead to an increased demand for transit.

SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.4 Title VI and Environmental Justice 4.5 Conclusion Big Blue Bus complies with all United States Depart- Big Blue Bus is proud to be a trusted partner in moment of Transportation (USDOT) Title VI guidelines bility in the dynamic Santa Monica region. By setting and prepares regularly scheduled Title VI reports. clear standards for service design, performance, and When evaluating potential service or fare changes, evaluation, Big Blue Bus is committing itself to pro- Big Blue Bus will evaluate the effects of the changes viding the most effective and efficient transit service to discover if there are disproportionate impacts to possible, with full accountability to those it serves. low-income or minority populations. Title VI prohib- Through the use of these standards, Big Blue Bus its recipients of Federal financial assistance (e.g., ensures that it will continue to provide a transpar- states, local governments, transit providers) from ent and inclusive process in its decision making. discriminating on the basis of race, color, or national Through our interaction with our stakeholders and origin in their programs or activities. the community at large, it is our expectation that this document will continue to evolve and adapt to the changing needs of Santa Monica and the surrounding Los Angeles area.

SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.5 SERVICE STANDARDS – BIG BLUE BUS Service Evaluation – 4.6 Santa Monica’s Big Blue Bus Public Hearing Procedures For Major Service Or Fare Changes

5 Appendices Appendix A:

Santa Monica’s Big Blue Bus Public Hearing Procedures For Major Service Or Fare Changes

1. BACKGROUND

Santa Monica’s Big Blue Bus (BBB) is required by the Federal Transit Act, as amended through 1992, to establish a policy which defines a process to solicit and consider public comment prior to raising fares or implementing a major change of transit services.

2. BBB POLICY

A . It shall be the BBB’s policy that public comments be solicited prior to: fare or fare media i. Any permanent change that increases fares on the BBB’s service. change ii. A twenty-five percent (25%) or more reduction of the number of daily transit revenue vehicles miles of a route; i.e., the total number of miles operated by all vehicles in revenue service for a particular day of the week on an individual route. change iii. A twenty-five percent (25%) or more reduction of the number of transit route miles of a route, i.e., the total mileage covered during one round trip by a vehicle in revenue service on a particular route. or elimination that will be, or has been, operated iv. Proposed introduction of a new route. for more than twelve (12) months B . It shall be the BBB’s policy that the following shall be exempt from public comment and public hearing:

i. A minor change in fare or service. Examples would be temporarily reduced, experimental or promotional fares, minor reroutes or minor tem- porary reroutes due to street construction(s) or minor schedule changes.

ii. Experimental, seasonal or emergency service or fare changes expected to exist fewer than one hundred and eighty (180) consecutivesix (6) months days in service. If these changes ultimately continue to remain in effect for more than onesix hundred (6) months and eighty (180) consecutive days, they will be the subject of public comment and public hearing.

SERVICE STANDARDS – BIG BLUE BUS Appendix – 5.1 3. PUBLIC NOTIFICATION 6. DOCUMENTATION OF PUBLIC HEARING

When required, the public comment process will be- Official records of BBB public hearings on fare or gin with the publishing of a legal notice seven cal- service adjustments will be generated by: endar days in advance of the public hearing date in A . Affidavits of newspaper publications of the local newspapers of general circulation. This no- public notices . tice will set a specific place, date and time for one or more public hearings. Written comments will also B . Press releases conveying information on upcom- be accepted on the proposed changes seven calen- ing public hearings . dar days beyond initial publishing of the legal notice. C . Tape recordings and transcripts of proceedings . 7. ADDRESSING PUBLIC COMMENTS RECEIVED Legal notices will inform the public of the proposed actions that initiated the public-comment process. All relevant comments received verbally or in writ- Press releases will also be prepared and sent to the ing at a public hearing, or as otherwise conveyed to local media. BBB prior to the established deadline, will be en- tered into the public record of the comment process. 4. SCHEDULING PUBLIC HEARING(S) Subsequent to the public comment period, staff will The public hearing(s) will be scheduled and conduct- evaluate and analyze all relevant comments received ed by the City of Santa Monica City Council at a time, and prepare a written report for consideration by the date and place to be designated. The facility utilized Santa Monica City Council. for public hearings will be accessible to persons with 8. CITY COUNCIL disabilities. Special arrangements will be made for sight or hearing impaired persons if requested at The City Council will be notified by the City Manager least three days prior to the meeting. of all written public comment solicitations in advance of all scheduled public hearings on fare and 5. PROCEDURE FOR CONDUCTING service adjustments. A summary of public feedback PUBLIC HEARING received will be provided to the City Council along Forms will be available to attendees to register their with staff recommendation for final disposition of presence and desire to speak. Public hearings will the issues. Upon review by the City Council, the City begin with a reading of the public notice, purpose Manager will be directed accordingly to proceed with and proposed action that necessitated the public or amend the recommended service and/or fare ad- hearing. After an explanation of the proposed ac- justments. tion is completed, the public will be invited to offer their comments. The City Council will determine the amount of time the public has to comment during the public hearing. After all registered persons have commented, a final opportunity will be offered for any additional public comment. This offering will precede the close of the public hearing.

SERVICE STANDARDS – BIG BLUE BUS Appendix – 5.2 Appendix B:

Sample Quarterly Route Performance Analysis Report APRIL 1 - JUNE 30, 2013 Introduction Line 7 continues to be the highest performing route in the Big Blue Bus system, followed by Rapid 12, Rapid 7, Line 14 and Line 3 in that order. Changes put into effect on June 16, 2013 increased service on two of these lines, Line 7 and Rapid 7, changing their base frequencies from every 15 minutes to every 12 minutes on both lines. Additional changes that will go into effect on August 25th, 2013 will add service to the Lincoln corridor by adding midday service on Rapid 3. This is expected to relieve the frequent midday crowding that is currently occurring on Line 3. Figure 5: Passengers per Revenue Hour by Route

r 70 u 150% Mean: 66.4 o

H 60 e u

n 50 e Mean: 44.3 v e 40 R r e

p 30 s

r 50% Mean: 22.2 e 20 g n e

s 10 s a

P 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

Figure 6: Passengers per Revenue Mile by Route

10 e l i M

e 8 u

n 150% Mean: 7.17 e v

e 6 R

r Mean: 4.78 e

p 4 s r

e 50% Mean: 2.39 g

n 2 e s s a

P 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

SERVICE STANDARDS – BIG BLUE BUS Appendix – 5.3 Figure 7: Farebox Recovery by Route

40% 150% Mean: 39.01% 35%

y 30% r

e Mean: 26.01% v

o 25% c e

R 20% x o b

e 15% 50% Mean: 13.00% r a

F 10% 5% 0% 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

Figure 8: Cost per Passenger by Route

$10

e $8 g n e s

s $6 a P r

e $4 p t 150% Mean: $2.78 s o

C $2 Mean: $1.85 50% Mean: $0.93 $0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

Figure 9: Composite Index

18 k

n 16 a

R 14 x e

d 12 n

I 10 e t i

s 8 o

p 6 m

o 4 C 2 0 7 22 27 14 1 3 12 23 13 8 11 2 10 9 5 44 6 41 4 20 Route (Ordered by Rank)

SERVICE STANDARDS – BIG BLUE BUS Appendix – 5.4 Figure 10: On Time Performance by Route

100%

e Goal of 85%

g 80% a t n e

c 60% r e P

e 40% m i T

n 20% O 0% 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

Figure 11: Passenger Load Factor

140% Recommended

r Maximum

o 120% t Passenger c a 100% Load Factor F

d of 130% a

o 80% L r

e 60% g n

e 40% s s a

P 20% 0% 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

Figure 12: Total Ridership by Route

800,000

p 700,000 i h s

r 600,000 e d i 500,000 R l a

t 400,000 o T 300,000 200,000 100,000 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 20 22 23 27 41 44 Route

SERVICE STANDARDS – BIG BLUE BUS Appendix – 5.5