SOUTH CLACKAMAS TRANSPORTATION DISTRICT TRANSIT DEVELOPMENT AND MASTER PLAN South Clackamas Transportation District TRANSIT DEVELOPMENT & MASTER PLAN April 2020
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SCTD Transit Development and Master Plan Final TDMP
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PREFACE The development of this plan was guided by the Project Management Team (PMT), Technical Advisory Committee (TAC), and South Clackamas Transportation District (SCTD) Board of Directors. Each individual devoted their time and effort to provide valuable input and feedback and their participation was instrumental in the development of the plan update.
PROJECT MANAGEMENT TEAM (PMT) ODOT/TGM GRANT SOUTH CLACKAMAS LANDSMAN TRANSPORTATION MANAGER TRANSPORTATION DISTRICT PLANNING Héctor Rodríguez Ruiz Tom Strader Carol Landsman TECHNICAL ADVISORY COMMITTEE (TAC) MEMBERS Gerald Fisher Dan Taylor City of Molalla Molalla Adult Center
Karen Buehrig Virgil Foster Clackamas County Citizen Rider
Julie Wehling Donna Walsh Canby Area Transit Molalla River School District
Ray Atkinson Joseph Lowe Clackamas Community College Oregon Department of Human Services SCTD BOARD OF DIRECTORS David Weber Chair Doris Pence Kathy Roberson Cristina Reynaga Vice-Chair Shirley Lyons Patricia Torsen Sally Zeek Vice-Chair CONSULTANT TEAM KITTELSON & ASSOCIATES, INC. ANGELO PLANNING GROUP Susan Wright, PE Darci Rudzinski Krista Purser Shayna Rehberg Rachel Grosso
______This project is partially funded by a grant from the Transportation and Growth Management (TGM) Program, a joint program of the Oregon Department of Transportation (ODOT) and the Oregon Department of Land Conservation and Development (DLCD). This TGM grant is financed, in part, by federal Fixing America’s Surface Transportation Act (FAST Act), local government, and State of Oregon Funds. The contents of this document do not necessarily reflect views or policies of the State of Oregon.
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TABLE OF CONTENTS
Introduction ...... 6 History of SCTD ...... 6
SCTD Organizational & Funding Structure ...... 6
Project Purpose & Process ...... 8
Related Plans & Programs ...... 9
Public Involvement Process ...... 10
Mission & Goals ...... 11 Policy Framework ...... 11
Mission & Goals ...... 11
Baseline Conditions ...... 12 Transportation System and Transit Service Overview ...... 13
Fleet and Facilities ...... 14
Population, Employment, and Land Use ...... 16
Ridership Analysis ...... 28
Financial Characteristics ...... 30
Needs Assessment ...... 32 Future Population and Employment Forecasts ...... 32
Future Land Use Growth ...... 33
Outreach Findings ...... 34
Existing and Future Transit Demand ...... 35
Existing and Future Unmet Needs ...... 36
Alternatives Evaluation Criteria and Development ...... 39
Transit Development and Master Plan ...... 40 The Vision ...... 40
Service Plan ...... 40
Capital Plan ...... 45
Implementation Plan ...... 51
Financial Plan ...... 59
Management and Marketing Plan ...... 64
Performance Management and Monitoring Program Plan ...... 66
Policy and Code Amendments ...... 69
TDMP Update Schedule & Next Steps ...... 69
References ...... 70
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INTRODUCTION The following describes the history and organizational structure of SCTD, the Transit Development and Master Plan (TDMP) purpose and process, related plans and programs, and provides an overview of the public involvement that helped to inform and guide this TDMP.
HISTORY OF SCTD Molalla withdrew from the TriMet district on January 1, 1989 and SCTD was formed by the Clackamas County Board of Commissioners in 1989, originally as the Molalla Transportation District. SCTD is classified as a mass transit district and operates under the provisions of ORS 267.010 to 267.394. SCTD is governed by a seven-member board.
SCTD ORGANIZATIONAL & FUNDING STRUCTURE The SCTD service district is defined as the region in which services are provided and where employers and self- employed individuals are taxed for SCTD transit services. The service district includes the entirety of the City of Molalla and unincorporated areas and rural communities such as Liberal, Mulino, Carus, Lone Elder, Macksburg, Needy, Hamricks Corner, and Rural Dell.
The SCTD tax rate is currently set at 0.5% of wages paid to employees or 0.5% of net earnings from self-employment in excess of $400. This tax rate is separate from Oregon House Bill 2017’s (HB2017) tax withholding of 0.1% of wages earned for residents of Oregon and wages of nonresidents who perform services in Oregon.
Figure 1 breaks down the funding resources available to SCTD for the annual operating budget. As shown, approximately 31 percent of the 2019-2020 operating budget is provided by the payroll and self-employment taxes collected within the SCTD service district boundary. Figure 2 displays SCTD’s service district boundary, as well as currently provided services and stops serviced.
Figure 1. SCTD FY19-20 Revenue
Interest Income, $20,000 Cash Carryover, $100,000
Fare Revenue, $50,000
P/R & S/E Tax, Grant Revenue, $723,000 $1,065,000
Source: SCTD FY 19-20 Budget
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Figure 2. South Clackamas Transportation District Service Area
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PROJECT PURPOSE & PROCESS This TDMP provides the first update since the SCTD Five-Year Comprehensive Transit Plan (2000). In the years since this transit plan was adopted, SCTD's system ridership and budget has more than doubled. The 2000 TDMP no longer adequately addresses local development plans, urban growth projections, commuter trends, the needs of local riders, the Statewide Transportation Improvement Program (STIF) priority of improving access to low-income populations, or the recently updated Oregon Public Transit Plan (OPTP) goals and measures for public transportation services in the state. With new funding and opportunities for growth expected over the next several years, a new, well-researched, and publicly informed plan is critical to the ongoing success of this rural system and its services.
This TDMP provides strategic guidance to SCTD for the provision of transit services, bus stop and facility siting, and coordination with adjacent transit providers. The planning process examined how to improve access to low-income populations and how SCTD can enhance its rural community service through improved integration with other services to meet the needs of target populations (low-income, senior, youth, populations with Low English Proficiency), as well as future regional growth.
Figure 3 shows the project process, including outreach (red), Technical Advisory Committee (TAC) meetings (blue), and document development (green). These findings and activities are described in further detail later in this TDMP.
Figure 3. Project Process
Review existing conditions Conduct outreach and Develop updated goals with SCTD Board of examine the existing system and policies, future Directors and with TAC at to develop existing conditions and needs, and Meeting #1 and gain conditions and needs evaluation criteria feedback
Review goals and policies, future needs, and Develop future service Conduct outreach to solicit evaluation criteria at TAC opportunities based on feedback on service Meeting #2 and gain existing and future needs alternatives feedback
Review future service Review future service Develop future service prioritization and transit opportunities at TAC evaluation and benchmarks at TAC Meeting #3 and gain prioritization, and create Meeting #4 and solicit feedback transit benchmarks feedback
Present and gain feedback on draft TDMP through Develop draft TDMP Develop Final TDMP outreach and with SCTD Board of Directors
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RELATED PLANS & PROGRAMS Several jurisdictions within the SCTD service area (and SCTD itself) maintain transit-related goals and policies within their plans. The following sections summarize these plans’ transit-related goals and objectives.
SCTD Comprehensive Transit Service Plan (2000) The SCTD Comprehensive Transit Service Plan guided transportation planning within the SCTD service area prior to this TDMP. A simple set of existing goals and action items provided direction for District policy and practice. The goals addressed transportation needs in general, as well as funding stability and serving the transportation- disadvantaged. Transportation needs identified in the action items included continued services for people with disabilities and service to key destinations such as Clackamas Community College, Molalla, low-income areas, and – more generally – between residential areas and local businesses.
TriMet Coordinated Transportation Plan for Seniors & Persons with Disabilities (2016) TriMet’s Coordinated Transportation Plan for Seniors & Persons with Disabilities provides guidance through a vision, principles, and priorities. While the plan’s stated priorities primarily inform project selection and implementation, the vision and principles provide more overarching transit planning and implementation guidance. The vision statement, which emphasizes investments that facilitate options, independence, and community connections for seniors and people with disabilities, sets the stage for the principles. The principles describe the multi-faceted ways that coordination, collaboration, integration, and measurement can be used to improve existing transit services and provide access to a broader range of transportation services.
Oregon Public Transportation Plan (2018) The recently updated Oregon Public Transportation Plan (OPTP) goals and policies provide current and comprehensive direction regarding transit planning and practices. The OPTP provided a basis for developing goals and policies for this TDMP. The OPTP goals and policies are extensive, organized around ideas of mobility, accessibility, community livability and vitality, equity, safety, health, sustainability, strategic investment, and coordination and collaboration. Key themes in OPTP policies include reliable and accessible transit service and transit information; increasing coordination with other transit and transportation services; healthy options including safe, active transportation means of accessing transit, access to health-supporting destinations, and reduction of pollution; and greater coordination and collaboration with other public agencies (e.g., for land use planning and permitting) and new partners who can help broaden and innovate transit’s effectiveness.
Molalla Transportation System Plan (2018) An update of the Molalla Transportation System Plan (TSP) was adopted in 2018. The plan’s goals and objectives address the transportation system overall. Goals and objectives that were found to be particularly pertinent to developing the SCTD TDMP include those that address improving transit connections between key community destinations; attending to the needs of the transportation-disadvantaged; encouraging transit and active transportation as a means of enhancing public and environmental health; and fostering existing and new, innovative partnerships.
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PUBLIC INVOLVEMENT PROCESS The project process included several touchpoints where stakeholders and the public could provide input. Table 1 summarizes the activities, details, and purpose of each activity. Memo #1: Public and Stakeholder Involvement Strategy is included in Reference A.
Table 1. Public Involvement Activities
Type of Activity Activity Details and Purpose
Provided updates on project activities and documents, Project Website including links to online surveys and a continuously available Throughout Project commenting map. Onboard & Online Survey #1 Onboard – March 13th and 16th, 2019 Online – March 25th - April 14th, 2019 Understand the existing use and desired improvements of the Outreach Events #1 transit system from existing riders’ and non-riders’ March 28th, 2019 – Molalla Public Library perspectives. March 28th, 2019 – Molalla Adult Center April 3rd, 2019 – Clackamas Community College Driver Survey Understand the existing use and desired improvements of the April 15th – 19th, 2019 transit system from SCTD drivers’ perspectives. SCTD District Office SCTD Board of Directors Work Session #1 Provide an overview of the project and existing conditions April 25th, 2019 and obtain Board insights. Arrowhead Golf Course TAC Meeting #1 Provide an overview of the project and existing conditions June 6th, 2019 – 2:00 PM to 4:00 PM and discuss TAC member roles, interest in transit, and desired Arrowhead Golf Club outcomes. TAC Meeting #2 Provide an overview of the updated goals and policies, September 10th, 2019 – 10:00 a.m. to 12:00 p.m. evaluation framework, and future conditions, and discuss SCTD Office future service considerations. Onboard & Online Survey #2 Onboard – November 13th, 2019 Online – November 6th – December 20th, 2019 Obtain input on service alternatives and rank level of importance. Outreach Events #2 December 3rd, 2019 – Molalla Public Library TAC Meeting #3 Provide an overview of the future service opportunities and December 9th, 2019 – 2:00 p.m. to 4:00 p.m. obtain feedback from the TAC. Arrowhead Golf Club
TAC Meeting #4 Provide an overview of the survey summary, future service January 8th, 2020 – 2:00 p.m. to 4:00 p.m. prioritization, transit benchmarks, and obtain feedback from Arrowhead Golf Club the TAC. Open House & Virtual Open House Provide an overview of the draft TDMP and obtain feedback. Stakeholder Small Groups Provide an overview of the draft TDMP and obtain feedback. SCTD Board of Directors Work Session #2 Provide an overview of the draft TDMP and obtain feedback.
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MISSION & GOALS This section highlights the policy framework and updated mission, goals, and goal policies that informed the TDMP process and will continue to provide guidance as SCTD implements this plan.
POLICY FRAMEWORK Mission, goals, and policies from the following existing plans were reviewed in preparing goals and policies for this TDMP: » SCTD Comprehensive Transit Service Plan (2000) » TriMet Coordinated Transportation Plan for Seniors & Persons with Disabilities (2016) » Oregon Public Transportation Plan (2018) » City of Molalla Transportation System Plan (2018) A summary of the goals, objectives, and policies from these plans and full text of the goals, objectives, and policies are included in Memo #3: Updated Goals and Policies in Reference C.
MISSION & GOALS Policy language in this section draws from the goals and policies reviewed in Memo #3: Updated Goals and Policies. The OPTP informed the proposed goals and policies, given its focus on the customer experience and increased coordination and collaboration. The project’s stated objectives and outreach also influenced the proposed goals and policy language.
» Project Purpose and Objectives. This planning project’s purpose and objectives serve to tailor the goals and policies to address key project objectives, including serving transportation-disadvantaged and transit- dependent (low-income, senior, disabled, youth/student, and limited English proficiency) customers, improving integration with other transportation services, supporting transportation options, and contributing to environmental integrity. » Project Survey. Results from the onboard and online survey conducted in March and April of 2019 helped refine the proposed goals and policies, specifically survey results related to rider demographics, modes used to access transit, and the most requested service improvements. The mission statement was also informed by project objectives, as well as by examples from plans being developed for transit districts that are similar to SCTD; these districts have largely rural service areas and small urban service areas. The mission and goals are presented below.
Mission SCTD strives to provide safe, accessible, convenient, reliable, and efficient transit service that meets the needs of the community we serve.
Goal Area 1: Customer Experience » Goal 1A – Provide consistent, reliable public transit services for customers of all ages, abilities, and incomes – especially those that are transit-dependent. » Goal 1B – Provide services and tools that make riding transit easy and convenient.
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» Goal 1C – Provide service information that is clear, accurate, and available to customers through various sources. » Goal 1D – Maintain a safe and inviting transit environment by providing bus stop facilities to enhance customer experience. » Goal 1E – Retain existing riders and attract new riders. Goal Area 2: Accessibility » Goal 2A – Maintain existing and develop new services that support customers who are dependent on transit due to age, income, and/or disability. » Goal 2B – Continue to improve ADA accessibility and physical access to the system with improvements to bus stops, vehicles, and other facilities. » Goal 2C – Support access to education, employment, health, and other community services. » Goal 2D – Support infrastructure improvements of pedestrian and bicycle connections to transit routes and stops.
Goal Area 3: Connectivity & Coordination » Goal 3A – Emphasize service enhancements that strengthen connections to other transportation options, including other regional transit providers, and mobility services such as ride-sharing and bike-sharing. » Goal 3B – Enhance coordination with other transportation service providers and technologies, such as trip planning, vehicle arrival information, and fare payment. » Goal 3C – Foster new and innovative partnerships to share and leverage resources, improve services, and further create awareness of SCTD in the community. » Goal 3D – Inform land use planning and development to strengthen the planned transit system and increase customer access to transit.
Goal Area 4: Sustainability » Goal 4A – Foster financial sustainability through the establishment of stable funding sources, and investing strategically in maintenance, planning, transit service, and capital improvements. » Goal 4B – Consider ways to enhance the environmental sustainability of SCTD operations. » Goal 4C – Support strategies to reduce single-occupancy vehicle trips and greenhouse gas emissions. » Goal 4D – Support opportunities to improve the community health by providing access to active transportation options and transportation to health-supporting destinations. These goals helped to shape the evaluation criteria and outcomes of this TDMP and will continue to guide SCTD decisions throughout implementation.
BASELINE CONDITIONS The baseline conditions review the existing transportation system and transit service; SCTD fleet and facilities; existing population, employment, and land use patterns; existing and historic ridership analysis; and existing financial characteristics. Further details on these sections are included in Memo #2: Existing Conditions in Reference B.
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TRANSPORTATION SYSTEM AND TRANSIT SERVICE OVERVIEW Roadway Transportation System A suitable network of state highways, arterials, and collector streets serve the study area. State Highway 213 (OR 213) connects Molalla with Salem, Silverton, and Marquam to the south, as well as Liberal, Mulino, Carus, and Oregon City to the north. State Highway 211 (OR 211) links Woodburn to the west and Estacada to the east, eventually connecting to North Pacific Highway (99E) and Interstate 5 (I-5), providing further connectivity to Wilsonville and Portland. The Canby-Marquam Highway provides connectivity to Canby from OR 211. Within the incorporated area of Molalla, city streets provide local connectivity.
Transit Service Overview SCTD operates public transit services along three routes, with two commuter services and one deviated fixed route service. These routes provide connections within Molalla while also linking to Canby Area Transit (CAT), South Metro Area Regional Transit (SMART), and TriMet services, as well as to the Clackamas Community College (CCC) Xpress Shuttle. All SCTD buses are accessible for people with disabilities and include wheelchair lifts with operators trained to secure mobility devices. Additionally, all SCTD buses are equipped with two-bike racks. The following describes SCTD routes and adjacent transportation provider services. Table 2 includes the existing SCTD services and their characteristics.
Table 2. Existing Service Summary Route Service Span Headway Operating Annual Annual Annual Cost Buses Service Service Operating per Weekdays Saturdays Hours Miles Cost Hour Molalla 7:30 AM – 9:30 AM – 1 Hour 1 2,540 15,510 $163,000 $64.33 City 5:35 PM 3:45 PM1 Molalla 6:30 AM – No 1 Hour 1 2,540 54,864 $181,297 $71.38 to Canby 6:15 PM2 Service ½ Hour Weekday Molalla 5:00 AM – 7:00 AM – Peak3; 1 Hour 2 3,090 181,616 $483,936 $74.25 to CCC 8:30 PM 4:55 PM Otherwise 1Saturday Service Began August 2019. Annual Operating Cost does not yet include Saturday service cost. Annual service hours, service miles, operating costs, and ridership are based on service prior to these changes. 2Additional 2 hours of service began August 2019. Previous service hours were 7:30 AM – 5:15 PM. Annual service hours, service miles, operating costs, and ridership are based on service prior to these changes. 3Weekday morning peak service was expanded in August 2019, adding 2 additional runs before 9 AM. Annual service hours, service miles, operating costs, and ridership is based on service prior to these changes. Peaks operate between the hours of 5 AM – 8:45 AM, 1 PM – 3 PM, and 4:30 PM – 6:30 PM.
Molalla City This route creates a loop through incorporated Molalla, beginning and ending at the Ross Street Transit Stop. This route operates largely as a ‘flag stop’ system and provides seven fixed dedicated stops, and visits the Ross St. Transit Stop at the beginning, middle, and end of each service. Additionally, this service route is a deviated fixed route, and with 24 hours’ advance notice by phone call to the District Office, customers can request a deviation up to three quarters of a mile from the designated route for any passenger. The deviations meet requirements for complementary paratransit services consistent with the Americans with Disabilities Act (ADA). SCTD records indicate riders do not use deviation requests frequently. The Ross Street Transit Stop also provides connections to the Molalla to CCC and Molalla to Canby Buses.
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Molalla to Canby This route creates connections between Canby, Mulino, Liberal, Molalla, and Hamricks Corner, with seven fixed stops. The Molalla to Canby route operates on a clockwise loop, originating and concluding at the Ross Street Transit Stop. The Molalla to Canby route meets the Federal Transit Administration (FTA) definition of an intercity route and is therefore not required to deviate for complementary paratransit. Connections can be made at Ross Street Transit Stop to the Molalla City and Molalla to CCC routes. At the Canby Transit Center, connections can be made to the CAT 99X and SMART 3X to Wilsonville, and from those service onto the TriMet system, Woodburn Transit System, and Salem Cherriots.
Molalla to Clackamas Community College (CCC) This route connects Molalla with Liberal, Mulino, Carus, and Clackamas Community College (CCC). The Molalla to CCC route meets the Federal Transit Administration (FTA) definition of an intercity route and is therefore not required to deviate for complementary paratransit. Connections can be made at Ross Street Transit Stop to the Molalla City and Canby routes and at the CCC transit center to the CCC Xpress Shuttle as well as TriMet routes 32, 33, and 99X.
FLEET AND FACILITIES The following sections describe SCTD’s transit fleet, stop amenities, park and ride facilities, and transit technologies.
Vehicle Fleet, Maintenance, and Storage Facilities SCTD currently owns six buses and operates five of them regularly, with one bus in reserve. Three buses are expected to be replaced over the next year. The average age of the active fleet is 2.3 years of use and will drop to 1 year with the three new buses replacing the three oldest buses. Of the active fleet, three vehicles are in excellent condition, one in adequate condition, and one in poor condition. Two vehicles are above 200,000 miles, exceeding their Expected Useful Life (EUL) of 200,000 miles, and one is close to 200,000 miles. All vehicles are equipped with ADA seats and bike racks that hold two bikes. Table 3 summarizes the fleet information.
Table 3. Transit Fleet ADA Last Odometer Fuel Asset Model Year Seats Seats Condition Reading EUL Category Type Status Van 2014 16 2 Poor 287,000 7 yrs/200,000 miles Diesel Reserve Starcraft Allstar XL 2016 20 2 Poor 173,000 7 yrs/200,000 miles Diesel Decommissioned Starcraft Allstar XL 2016 20 2 Adequate 221,000 7 yrs/200,000 miles Diesel Active Starcraft Allstar XL 2018 20 2 Excellent 167,000 7 yrs/200,000 miles Diesel Active Starcraft Allstar XL 2018 20 2 Excellent 139,000 7 yrs/200,000 miles Diesel Active Starcraft Allstar XL 2018 20 2 Excellent 149,000 7 yrs/200,000 miles Diesel Active
The fleet is stored at SCTD’s Office when not in use at 807 E Main Street in Molalla, Oregon. Operating services are contracted through Marson Transit, which also handles maintenance of the vehicles.
Bus Stops and Amenities Transit stop amenities increase rider comfort prior to boarding. Amenities can include stop signage, bus shelters, benches, timetables, trash cans, bike racks, and more. Some stops in the SCTD system would benefit from improved signage. Figure 4 displays the transit stops served by SCTD routes, as well as their amenities. The stops that provide bus shelters include:
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» Ross Street Transit Center » Arbor Terrace Apartments » Molalla Safeway » SCTD Office/Park & Ride » Molalla Public Library » CCC » Molalla Adult Center » Canby Transit Center
Figure 4. SCTD Transit Stop Amenities
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POPULATION, EMPLOYMENT, AND LAND USE The following section describes the existing general population characteristics, transportation-disadvantaged populations, employment, and commuting patterns in the SCTD service area. The TDMP aims to examine how to improve access for low-income, senior, and youth populations, those with Low English Proficiency, and other disadvantaged groups. As the SCTD service area includes portions of census block groups, the City of Molalla’s information was evaluated where demographic information for the overall service area was not available.
Key takeaways are as follows:
» Most residents of the district area drive alone for their commute (79%). » The SCTD service area has a higher percentage of households with Limited English Proficiency and people with disabilities compared to the whole of Clackamas County (3% vs. 2% and 13.5% vs. 12%, respectively). » About 43% of households in Molalla earn less than the 200% poverty level. » Approximately 3,698 workers live in Molalla. Of these, 439 (11.9%) worked within Molalla, while 3,259 (88.1%) were employed outside Molalla. For those traveling outside Molalla for employment, Portland (17.5%), Oregon City (4.4%), and Canby (4.2%) were the primary work locations. » Approximately 2,025 people were employed in Molalla, with 439 (21.7%) living in Molalla and 1,586 (78.3%) commuting into Molalla. For those traveling to Molalla for employment, Woodburn, Oregon City, and Salem are the primary home locations. » Approximately 57% of Molalla City residents commute before the Molalla City Loop and Molalla to Canby routes begin service, with 79% of residents in the SCTD service area driving along, 16% carpooling, 2% riding transit, 2% telecommuting, and 1% commuting by other means. » Areas of Molalla in the northeast and southwest have transit supportive areas (TSA)s that are not served by transit.
Overall Population The estimated population of the service area is near 25,526 people. Table 4 shows the population growth in the City of Molalla and Clackamas County and Figure 5 shows the service area population density. As displayed below, the City of Molalla has experienced a 59% increase in population since 2000, a growth rate near 3.5% per year. This outpaces the County’s growth rate in the same time period.
Table 4. Study Area Population 2000 – 2017 Population Population Population % Change Annual % Place (2000) (2010) (2017) (2000 - 2017) Change Molalla 5,647 8,108 8,987 59% 3.5% Clackamas County 338,391 375,992 399,962 18% 1.1% Source: U.S. Census 2000 and 2010. American Community Survey (ACS) 2017 5-Year Estimates.
The City of Molalla TSP projects a population and household annual growth rate of 2.2% between 2017 and 2035 and an increase of 1.5% between 2035 and 2040. Additionally, the TSP projects an employment annual growth rate of 3.3% between 2017 and 2040. The service area of SCTD is expected to continue its rapid growth in the coming years, a key consideration in meeting the area’s growing transportation needs.
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Figure 5. Population Density
Source: ACS 2017 5-Year Estimates.
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Transportation-Disadvantaged Populations Title VI of the Civil Rights Act of 1964 (42 U.S.C. 2000d-1) states that "No person in the United States shall, on the ground of race, color, or national origin, be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity receiving Federal financial assistance.” In combination with subsequent federal nondiscrimination statutes, agencies receiving federal financial aid are prohibited from discriminating based on race, color, national origin, age, economic status, disability, or sex (gender). Other relevant federal statutes include the Federal-Aid Highway Act, the Rehabilitation Act of 1973, the Age Discrimination Act of 1975, the Civil Rights Restoration Act of 1987, the Americans with Disabilities Act of 1990 (ADA), Executive Order 12898 Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, and Executive Order 13166 Improving Access to Services for Persons with Limited English Proficiency.1 SCTD’s Civil Rights Program, the Title VI and Limited English Proficiency Plan, provides policies, goals, and objectives related to serving these populations.
Key findings form the transportation-disadvantaged population exploration were as follows:
» Figure 6 displays the percentage of households in the study area with residents aged 65 and older. Large swaths of the SCTD Transit District Boundary include census blocks with 20% or more senior populations, including communities such as Macksburg, Needy, Marquam, and Liberal. » Figure 7 depicts the percentage of households within the study area that include people ages 5 – 17. Molalla’s core downtown and immediate eastern neighborhoods are home to between 20 – 30% of youth, as are tracts along the periphery of SCTD’s service district near census-designated place Mulino. » Figure 8 details the percentage of households2 in poverty within the study area.3 As shown, high concentrations of persons in poverty are located southeast of Molalla and in the eastern edge of the SCTD service area near census-designated place Mulino. 21% of households earn less than $25,000 annually (near 100% poverty) and 43% of households earn less than $50,000 annually (near 200% poverty). » Figure 9 illustrates the locations of households with people who have limited English proficiency in the SCTD service area. High concentrations of households with limited English proficiency are located south of Molalla, and along the periphery of the service area. » Figure 10 shows the locations of households with racial and/or ethnic minority populations. High concentrations of racial and/or ethnic minority populations are located south of Molalla and in the eastern edge of the SCTD service area near census-designated place Mulino. » Figure 11 illustrates households with people with disabilities in the SCTD service area. As displayed below, high concentrations of persons with disabilities are located south of Molalla and south of Barlow. » Figure 12 displays the percentage of households with veterans in the study area. As depicted below, the tracts that Molalla and its immediate outskirts consist of are home to high percentages of veterans, as are the areas of Liberal, Mulino, Carus, Needy, and Macksburg.
1Title VI populations include individuals who identify as minorities (both racial and ethnic), low-income, disabled, elderly (65+), youth/children (under 18), veterans, and LEP (primary language is not English) (FTA. 2015. Title VI of the Civil Rights Act of 1964, available at http://www.fta.dot.gov/civilrights/12328.html). 2 American Census data from 2010 indicates that the average household size in Molalla is 2.82 people. 3 The federal poverty level is calculated by the size of the household and is adjusted annually – the federal poverty level for an individual is $12,140 in annual earning, and $25,100 for a household of four. https://www.healthcare.gov/glossary/federal-poverty- level-fpl/ — 18 — SCTD Transit Development and Master Plan Final TDMP
Figure 6. Households with Populations 65 and Over
Source: ACS 2017 5-Year Estimates.
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Figure 7. Households with Populations Ages 5-17
Source: ACS 2017 5-Year Estimates.
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Figure 8. Households with Populations in Poverty
Source: ACS 2017 5-Year Estimates.
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Figure 9. Households with Limited English Proficiency Populations
Source: ACS 2017 5-Year Estimates.
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Figure 10. Households with Racial and/or Ethnic Minority Populations
Source: ACS 2017 5-Year Estimates.
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Figure 11. Households with People with Disabilities
Source: ACS 2017 5-Year Estimates.
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Figure 12. Households with Veterans
Source: ACS 2017 5-Year Estimates.
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Employment & Commuting Patterns The following sections describe employment and commuting patterns in the SCTD service area. This information is largely informed by Longitudinal Employer-Household Dynamics (LEHD) employment data, which is a product of the U.S. Census Bureau. This data set is generated based on administrative records; therefore, some work locations may be over- or underrepresented. For example, if workers in Molalla have their paychecks processed with an address in Salem, their job site may be shown in Salem instead of Molalla, if there is not a local address shown in the administrative data.
In 2015, approximately 3,698 employees lived in Molalla. Of those employees, 439 (11.9%) worked within Molalla while 3,259 (88.1%) were employed outside Molalla. For those traveling outside of Molalla for employment, Portland, Oregon City, and Canby were the primary work locations. There were approximately 2,025 people employed in Molalla, with the 439 (21.7%) employees living in Molalla and the remaining 1,586 (78.3%) living outside of and commute into Molalla. For those traveling into Molalla for employment, Woodburn, Oregon City, and Salem are the primary home locations. Table 5 shows the departure time to work for Molalla residents. 519 (13%) employees depart before any SCTD service begins and an additional 2,198 (56%) employees depart before the Molalla to Canby or Molalla City routes begin.
Table 5. Departure Time to Work – Molalla Residents Time Count Share 12:00 a.m. to 4:59 a.m. 519 13% 5:00 a.m. to 5:29 a.m. 304 8% 5:30 a.m. to 5:59 a.m. 344 9% 6:00 a.m. to 6:29 a.m. 429 11% 6:30 a.m. to 6:59 a.m. 610 16% 7:00 a.m. to 7:29 a.m. 511 13% 7:30 a.m. to 7:59 a.m. 341 9% 8:00 a.m. to 8:29 a.m. 177 5% 8:30 a.m. to 8:59 a.m. 154 4% 9:00 a.m. to 9:59 a.m. 168 4% 10:00 a.m. to 10:59 a.m. 42 1% 11:00 a.m. to 11:59 a.m. 51 1% 12:00 p.m. to 3:59 p.m. 116 3% 4:00 p.m. to 11:59 p.m. 153 4% Total 3,919 100%
Land Use The existing land use is primarily rural outside of Molalla, with Molalla providing primarily residential, commercial, and office land uses. Figure 13 shows the transit supportive areas identified in the Molalla TSP Update in 2017. Transit supportive areas (TSAs) are identified at a minimum density of 3 households per acre or 4 employees per acre, indicating areas are supportive of basic hourly fixed-route service. As TAZ data is averaged over relatively large areas, there may be higher and lower intensity uses within each TAZ. As shown, portions of Molalla in the northeast and southwest have TSAs that are not served by transit.
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Figure 13. Year 2017 Transit Supportive Areas
Source: Molalla TSP Update (2018)
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RIDERSHIP ANALYSIS Existing Rider Characteristics The purpose of the first round of onboard and online surveys was to identify existing rider characteristics and begin to understand rider and non-rider needs. This survey focused on demographic information and transit use, while the second round of surveys were used to gain feedback and prioritization of service opportunities and is discussed later in this TDMP.
Survey Administration The existing conditions (first round) surveys were conducted on every run of the Molalla City and Molalla to Canby routes and most runs of the Molalla to Clackamas Community College (CCC) route on a weekday (Wednesday, March 13th, 2019) and every run of the Molalla to CCC route on a weekend (Saturday, March 16th, 2019), resulting in 110 participants. The Molalla City and Molalla to Canby routes were not surveyed on weekends. The online survey was available from Monday, March 25th, 2019 through Sunday, April 14th, 2019 and had 55 participants, including 25 non-riders and 30 existing riders. Table 6 shows the distribution of responses. Of the 30 online survey respondent riders, 2 riders indicated they typically ride multiple routes, resulting in 32 routes selected. It should be noted that the discussion below is based on a limited sample of data; while the Molalla to CCC route had over 100 riders reflected, the Molalla to Canby and Molalla City Loop had less than 20 riders reflected.
Table 6. Survey Responses by Source, Route, and Day Route Weekday Weekend Total Onboard Online Canby 13 - 13 5 CCC 67 18 85 21 City 12 - 12 6 Non-Rider - - - 25 Total 92 18 110 55
Rider Profile Key findings from the survey regarding the rider profile were as follows:
» About 6% of general population households report not having access to a vehicle, compared with 35% of surveyed existing riders. CCC weekend riders had the highest proportion of respondents who did not have a working motor vehicle. » Survey respondents’ ages were fairly well-distributed. The Molalla to CCC route, which serves the college, had more riders aged 19-24 years than other routes and non-riders. Non-riders had proportionally more respondents aged 65+ years. Contrary to these results, older adults and youth riders are typically considered more transit-dependent than other age groups. » Molalla to CCC weekend riders had high proportions of low-income riders despite having higher amounts of full-time and part-time workers. Non-riders had higher incomes on average compared to riders. » Molalla City and Molalla to Canby routes have the highest proportions of respondents with a disability while CCC weekend and non-riders had the lowest. » Survey respondents represented a slightly higher proportion of minority and low-income populations compared to the service area average, but a lower proportion of elderly, youth, and people with a disability.
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Transportation-Disadvantaged Populations Table 7 summarizes the Title VI populations in the study area compared to survey results. As depicted in the table below, the SCTD service area has a higher percentage of households with Limited English Proficiency and people with disabilities compared to the whole of Clackamas County. Providing reliable, consistent service to all people is a central tenet of SCTD’s mission.
Table 7. Households with Title VI Populations in Study Area Limited English Elderly (60+ Youth (Under Ethnicity Proficiency Years) 18 Years) (Non-White) Low-Income Disability Survey - Onboard - 5% 5% 9% 38% 10% Survey - Online - 13% 2% 4% 23% 11% Service Area 4% 11% 24% 7% 9% 14% Molalla 3% 10% 31% 8% 12% 13.5% Clackamas County 2% 17% 22% 11% 9% 12% Source: ACS 2017 5-Year Estimates, Tables B16004, 21007, B01001, B02001, A01001, A03001, A13005, S1602, S1810
SCTD’s Civil Rights Program, the Title VI and Limited English Proficiency Plan, provides policies, goals, and objectives related to serving these populations.
Transit Use Key findings regarding riders’ transit use are as follows:
» Most onboard survey respondents ride SCTD several times per week while riders that took the survey online reported less frequent trips. » Bus stops with the highest activity include: 1. Ross Street Transit Center 2. Molalla Safeway 3. CCC 4. Canby Transit Center 5. Canby Fred Meyer » TriMet Route 33 is the most common non-SCTD route that riders transfer to/from, with 36 respondents indicating a transfer – 24 of whom indicate a transfer to CCC. » Most riders walk to and from bus stops. Molalla to Canby and Molalla to CCC riders drove or got a ride to and from bus stops more often than the Molalla City route. » Approximately 40% of onboard respondents were going to or from work. Other common uses included college, recreation/social, and shopping. For the CCC route, 44% of respondents reported using the service for work. » If bus service were not available, approximately 5% of Molalla to Canby and Molalla to CCC weekday riders would not make their trip while approximately 30% of Molalla to CCC weekend riders and Molalla City riders would not make their trip. » Of 25 non-riders who took the online survey, only one was not familiar with any of SCTD’s services. 76% were aware of Molalla to CCC and 60% were aware of Molalla to Canby or Molalla City. Approximately 80% of existing riders and 30% of non-riders ranked their understanding of SCTD’s services as good or very good.
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» When asked about what caused respondents to miss a trip, riders noted being unable to afford Uber/Lyft/Taxis/transit, being unable to rely on friends/family, health issues, disabilities, no working vehicle, and no license more often than non-riders. Non-riders indicated SCTD not running where or when they needed to travel more often than riders did.
FINANCIAL CHARACTERISTICS This section provides funding information for SCTD overall, as well as by specific service routes. In addition, it discusses the fare structure SCTD uses and revenues by route. This information reflects costs and cost factors before service expansion in August 2019; these cost factors will be adjusted in the implementation plan to take service expansion costs into account.
Expenses Operations, administration, and maintenance costs were compared to the system’s service hours and service miles to establish relative cost per service hour and cost per service mile. These costs allow for locally-calibrated cost estimates when developing future service alternatives. The cost factors are used to develop fully loaded costs per service hour for SCTD’s services based on their service hours and service miles, the results of which are shown in Table 8.
Table 8. FY17 Fully Loaded Costs per Service Hour Service Cost/Service Hour1
Molalla City $64.33
Molalla to Canby $71.38
Molalla to CCC $74.25 Total $71.45 1Total cost includes labor, mileage, and administrative costs but not capital costs and fleet replacement impacts.
The system cost per service hour was compared to peer transit providers to evaluate SCTD’s efficiency. Figure 14 shows the results. As shown, SCTD operates at a similar cost to Sandy Area Metro and Woodburn Transit and substantially lower than CAT.
Figure 14. Peer Comparison of Cost per Service Hour
$140.00 $120.51 $120.00
$100.00 Sandy Area Metro $73.97 $80.00 $69.97 $71.45 SCTD System
$60.00 CAT Woodburn Transit $40.00
$20.00
$-
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Table 9 shows the projected revenue and expenses for SCTD in FY19-20. As shown, approximately half of SCTD’s funding comes from grant revenue, followed closely by payroll & self-employment tax. Contracted services, material, and supplies comprise approximately half of SCTD’s expenses.
Table 9. FY19-20 Projected Revenue and Expenses Forecast Revenue Amount Grant Revenue $929,000
STIF Formula $136,000
Payroll & Self-Employment Tax $723,000
Fare Revenue $50,000 Interest Income $20,000 Forecast Cost Amount Contracted Services, Materials & Supplies $1,093,000 Capital Expenses $500,000 Personal Services $200,000
Fare Structure and Revenue The SCTD fare system is a flat rate of $1.00 per ride per person on the commuter services to CCC and Canby and is fareless on the local City route. Only US one-dollar bills or SCTD tickets purchased from the District Office are valid. Children age 6 and under ride for free when accompanying an adult rider. Figure 15 shows the proportion of the type of fare collected for services that require fare, based on onboard results. As shown, the cash fare is the most common payment type.
Figure 15. Rider Payment Type
10%
Paid Cash Paid for SCTD Tickets
90%
Source: SCTD Onboard Survey 2019 Fare Revenue by Route Details on fare revenue and comparisons to costs and service hours are provided in Table 10. The unit costs established in Table 8 were used to calculate the total cost by route. Total cost per hour represents the average cost of providing the transit service for each hour of service.
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Table 10. FY17 Fare Revenue and Related Statistics Fare Total Cost/Service Farebox Ratio Service Revenue ($) Cost1 Hour1 (Revenue/ Cost)
Molalla City $0 $163,387 $64.33 0%
Molalla to Canby $7,621 $181,297 $71.38 4%
Molalla to CCC $29,212 $483,936 $74.25 6% Total $36,832 $828,621 $71.45 4%
1Total cost includes labor, mileage, and administrative costs but not capital costs and fleet replacement impacts. Statistics by Route Table 11 summarizes statistics and funding for FY17. As shown, Molalla City has the highest rides per mile as well as the lowest cost per hour. Molalla to CCC has the lowest cost per mile.
Table 11. FY17 Statistics Summary Cost per Hour Cost per Mile Molalla City $64.33 $10.53
Molalla to Canby $71.38 $3.30
Molalla to CCC $74.25 $2.66
System Total $71.45 $3.28
NEEDS ASSESSMENT This needs assessment summarizes existing and future demands from population, employment, land use growth, outreach, and overall transit demand to inform the service opportunities and recommendation. Further detail on these sections are included in Memo #4: Future Transportation Needs in Reference D.
FUTURE POPULATION AND EMPLOYMENT FORECASTS The following section describes the future population and employment in the SCTD service area. Future growth is considered in evaluating potential service enhancements and changes. Key takeaways are as follows:
» Molalla’s population is projected to grow 2.2% annually between 2017 and 2035, and 1.5% annually between 2035 and 2040. Molalla is among the fastest-growing cities in the area served by SCTD, alongside Canby and Oregon City. » Employment is expected to increase with 122,900 new jobs across the tri-counties in 2027, a 13% increase and 1.3% annual growth rate from 2017. Figure 16 compares the population and household growth projections for the cities SCTD operates within or transfers between. Cities marked with an asterisk indicate the growth rates which are for households as the respective TSP did not report future population estimates. Growth rates for calculated using a simplistic growth rate. As shown, Molalla is among the fastest-growing cities in the area, only outpaced by Canby and Oregon City, which SCTD services connect directly to. Future growth is anticipated to increase transit demand in the area.
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Figure 16. Future Population Growth Within and Nearby the SCTD Service Area
4.00% 3.43% 3.50% 2.93% 3.00%
2.50% 2.10% 1.92% 1.94% 2.00% 1.78% 1.47% 1.50% 1.19%
1.00% 0.77%
0.50%
0.00% Molalla Clackamas Canby Wilsonville* Woodburn Salem Oregon Portland Milwaukie* City County City*
FUTURE LAND USE GROWTH Information from adopted land use and transportation plans, along with observations of recent development activity and population forecasts from PSU, were used to assess land use change and its considerations for transit service. Figure 17 shows the summary of land use growth areas (shown in yellow) within and nearby SCTD’s routes. The adopted plans of the following jurisdictions were reviewed:
» Clackamas County, including planning for Beavercreek and Mulino » City of Molalla » City of Oregon City » City of Canby » City of Woodburn » City of Estacada Detailed plan summaries are included in Memo #4: Future Transportation Needs. Key takeaways from this review are as follows:
» Land use growth areas near existing SCTD services include residential growth in northern Molalla, employment growth in southwestern Molalla, employment and residential growth in the Beavercreek and Henrici, South End communities of Oregon City, and residential growth in the Northeast Canby Master Plan Area. » Land use growth in neighboring communities include the Clackamas Industrial Park, UGB expansion in Woodburn, and the Downtown and Riverside Area Plan for Estacada. » Land use growth within Molalla and the surrounding area are expected to increase transit demand. In addition, route modifications to serve land use growth near existing SCTD services may help better serve customers as these areas develop. Land use growth in neighboring communities not directly served by SCTD
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may increase demand for transit to these communities. Incorporating transit infrastructure, such as bus pullouts and stops, during the land use review process can help to support future transit.
Figure 17. Land Use Growth Areas within and nearby SCTD Service Areas
OUTREACH FINDINGS The following provides an overview of the process and results of the outreach for SCTD’s Transit Development and Master Plan (TDMP). The needs and preferred alternatives (second round) surveys were conducted on every run of the Molalla City and Molalla to Canby routes and most runs of the Molalla to Clackamas Community College (CCC) route on a weekday (Wednesday, November 13th, 2019), resulting in 92 on-board participants. The online survey was available from Wednesday, November 6th, through Friday, December 20th, 2019 and had 22 participants, including 14 non-riders and 8 existing riders. Table 12 shows the distribution of responses. As shown, the most responses were from riders of the Molalla to CCC route, which also has the highest ridership. It should be noted that the discussion below is based on a limited sample of data; while the Molalla to CCC route had over 100 riders reflected, the Molalla to Canby and Molalla City Loop had less than 20 riders reflected.
Table 12. Survey Respondents by Source, Route, and Day
Route Currently Riding Typically Ride Total Onboard Online Percentage of Total Respondents City 17 23 40 7 18% Canby 9 20 29 4 10% CCC 68 71 139 7 57% Non-Rider 0 0 0 14 11% Total 92 18 110 22 100%
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Key findings from the survey are as follows:
» Work-related (31%), recreation (20%), and college (20%) trips are the most common trip types among riders. » Most survey respondents are Molalla residents, with others concentrated in Mulino, Liberal, and Canby. » Of 14 non-riders who took the online survey, 4 were not familiar with any of SCTD’s services, showing increased information and marketing may help promote SCTD service. » Existing Molalla City Loop riders indicated that adding Sunday service (92 respondents, 7.26 out of 10 average importance score) and later evening service hours (92 respondents, 7.10 out of 10) are higher priorities on their route. » Existing Canby riders indicated that Saturday service (74 respondents, 7.08 out of 10) and later evening service hours (74 respondents, 7.00 out of 10) are higher priorities on their route. » Existing CCC riders indicated that later evening service (72 respondents, 7.88 out of 10), adding Sunday service (72 respondents, 7.50 out of 10), and increased frequency during commute hours (72 respondents, 7.50 out of 10) are higher priorities on their route. » Of the new services (Woodburn, Silverton, Estacada, Commuter service, on-demand shuttle service), direct service to Woodburn was the highest priority from existing riders (100 rider, 6.18 out of 10). Commuter service to employment areas was the highest priority for non-riders (14 non-rider, 6.46 out of 10). » Existing riders and non-riders ranked bus stop improvements (100 rider, 6.83 out of 10, 14 non-rider, 6.87 out of 10) and an online/mobile trip planning tool (100 rider, 6.72 out of 10, 14 non-rider, 6.76 out of 10) as high priorities. » Real-time vehicle arrival information also ranked high (100 rider, 6.34 out of 10, 14 non-rider, 6.42 out of 10), and it’s possible those wanting a trip planning tool also want this feature. » When asked which areas needed improvements first, respondents indicated: ❖ New services as the highest priority (100 rider, 7.21 out of 10, 14 non-rider, 8.25 out of 10), followed by ❖ Bus stop improvements and crosswalks (100 rider, 6.95 out of 10, 14 non-rider, 7.50 out of 10), and ❖ Information and technology (trip planning tools, real-time vehicle arrival, different fare payment options; 100 rider, 6.74 out of 10, 14 non-rider, 8.13 out of 10).
EXISTING AND FUTURE TRANSIT DEMAND Existing and future transit demand were evaluated to understand how well the current system meets the expected demand and how future demand may need to be accommodated. Demand is estimated using Transit Cooperative Research Program (TCRP) Report 161. Key takeaways from this exploration were as follows:
» Transit demand is anticipated to increase in conjunction with population and employment growth. The transit demand for the Molalla City Loop is estimated to be a 23% increase over the 2018 estimated demand. » The demand for the Molalla to Canby route is projected to increase 54% over 22 years, or about 4% annually.
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» Commuter demand for the Molalla to CCC route is projected to increase 48% over 22 years, or about 3% annually. » In order to continue to meet the transit demand, improvements to existing services or new services should be considered, including service enhancements such as increased frequency, expanded hours of service, adding weekend service, or make using transit easier via online tools, public information campaigns, and technological services. More information about these improvements is available in Memo #6: Future Service Opportunities.
EXISTING AND FUTURE UNMET NEEDS Based on the findings of Memo #2: Existing Conditions and Memo #4: Future Transportation Needs, potential needs have been identified and grouped by improvement options to address those needs and include new transit corridors, refinements to existing routes, and service enhancements and efficiencies. New corridors would provide service to areas that currently lack service. Refinements could include changes in service times, headways, and bus stop locations. Service enhancements include infrastructure and technological improvements.
Refinements to Existing Routes Potential needs for new service areas may be addressed by refinements to existing routes; however, the most common comments received were for increased frequency, particularly around commute times, and extended hours/days of service. Potential refinements to existing routes to serve new areas could include:
» Additional connections to/from: Employment areas, such as Clackamas Industrial Area and the Woodburn Outlets Food banks, homeless shelters, and other social services ❖ Such as the Oxford Houses in Oregon City, Molalla Service Center in Molalla, and Aware Food Bank in Woodburn Medical facilities ❖ Such as the Providence Willamette Falls Medical Center in Oregon City, Providence Medical Group in Canby, and Legacy Medical Group in Woodburn Human service agencies ❖ Such as the Oregon Department of Human Services facilities in Oregon City, Canby, and Woodburn Retirement and assisted living centers ❖ Several survey respondents indicated interest in service to these types of locations or indicated using SCTD services to reach these types of locations, such as the 29 out of 110 survey respondents indicating a shopping trip, 12 of the 110 indicated a healthcare trip, and 5 indicated a social services trip. » Potential rerouting of the Molalla to CCC route to serve the Beavercreek and Henrici areas ❖ Future land use growth in these areas is anticipated to increase transit demand. These areas are near existing SCTD services. ❖ Several survey respondents indicated interest in service to these areas, such as the 10 out of 92 onboard survey respondents indicating they live, work, or would like to access destinations on Henrici and Leland Roads. » Molalla to Canby potential routing modifications:
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❖ Serving the Northeast Canby Master Plan Area as Future land use growth in this area is anticipated to increase transit demand and commute demand to Canby is anticipated to grow in the future. ❖ The survey indicated low use of the route outside of Canby, Molalla, Mulino, and Liberal (2 out of 110 survey respondents indicated they live or work outside of these areas); indicating modifications to the route may increase its efficiency and better serve customers. » Adjustments to the Molalla City Loop as vacant lands develop, in particular along the new roadways noted on W 5th Street, Commercial Way, and Leroy Avenue ❖ Future land use growth in these areas is anticipated to increase transit demand. ❖ The Molalla TSP identifies future transit service to these areas. » Adjustments to the Molalla City Loop to serve northeastern and southeastern Molalla, such as service along Shirley Street, S Mathias Road, and E 5th Street as noted in the Molalla TSP Update ❖ Future land use growth in these areas is anticipated to increase transit demand. ❖ Public outreach from the Molalla TSP Update process indicated interest in these areas as well.
Service Enhancements and Efficiencies Potential needs for service enhancements include the following:
» Increase route frequencies ❖ Provides a means to capture projected future transit demand. ❖ Survey responses indicated increased frequency as a top 3 priority for both existing riders and non-riders, particularly on the Molalla to CCC route where increased frequency during commute hours (72 respondents, 7.50 out of 10) was a higher priority. » Increase the service span by providing bus service earlier in the morning and later in the evening ❖ Provides a means to capture projected future transit demand. ❖ Provides viable transit option for early morning commutes determined in census information. ❖ Survey responses indicated extended hours as a top 3 priority for existing riders on all 3 routes, including on the Molalla City Loop (92 respondents, 7.10 out of 10), Molalla to Canby (74 respondents, 7.00 out of 10), and Molalla to CCC (72 respondents, 7.88 out of 10)
» Increase schedule reliability and efficiency through coordination efforts with adjacent providers ❖ Shorter transfer times would improve customer experiences. » Provide real-time vehicle arrival information ❖ Providing real-time vehicle arrival information was the top desired tool identified on the survey. ❖ Real-time vehicle arrival information (100 rider, 6.34 out of 10, 14 non-rider, 6.42 out of 10) ranked as a high priority to survey respondents. » Make transit easier to ride via online tools and public information campaigns ❖ Improving tools and information would improve customer experiences. ❖ Existing riders and non-riders ranked an online/mobile trip planning tool (100 rider, 6.72 out of 10, 14 non-rider, 6.76 out of 10) as a high priority. » Improve access to/from and within transit stops and transit centers ❖ The Molalla TSP Update identified new sidewalks along OR 211, OR 213, Toliver Road, E Heintz Street, and several other roadways served by SCTD routes. » Better accommodations for shopping bags ❖ Public outreach indicated the one-bag rule was a challenge for riders. — 37 — SCTD Transit Development and Master Plan Final TDMP
❖ 29 out of 110 survey respondents were riding SCTD for a shopping trip at the time of survey. » Improve bus stops with signage, benches, and/or shelters ❖ The Molalla TSP Update specifically recommends new or enhanced bus stops at OR 213/Meadow Drive, OR 213/Toliver Road, OR 211/OR 213, OR 211/Leroy Avenue, OR 211/Kennel Avenue, and Meadow Drive/Meadowlawn Place/Toliver Road » Improve coordination between transit providers, especially in areas such as system integration, fares, timetables, transportation planning efforts, and trip planning applications/software. ❖ Existing riders indicated in the survey that long transfers (7 of 92 respondents) and different fare payments (8 of 92 respondents) were a barrier to ridership. » Provide increased fare payment options, such as monthly passes or mobile ticketing ❖ Existing riders indicated the current fare payment system (8 of 92 respondents) was a barrier to ridership. » Service designed for workers and people with low incomes Specialized employment shuttles, such as Clackamas Industrial Area and the Woodburn Outlets To/from commercial sites Parents with kids in after-school programs ❖ Providing these types of services would improve access and transportation to jobs for people with low incomes. » Work with local agencies to identify potential developer-funded transit sites (e.g., bus stops and related amenities such as sidewalks) serving residential development, commercial properties, and/or educational facilities. The identified locations could also include opportunities to work with developers to create a transit operations and maintenance agreement for any new facilities. ❖ Coordination with land use would improve access to transit for future growth areas.
New Corridors Potential need for new transit routes were primarily identified through public involvement and outreach, and future land use plans. These inputs highlighted public interest in connectivity to new areas and roadways, along with future transit-supportive land uses. Specific areas of interest include:
» To/from nearby communities and destinations not currently served directly by SCTD, potentially including Woodburn, Estacada and Colton, and Clackamas Town Center ❖ Future land use growth in these areas is anticipated to increase transit demand. ❖ Commute demand to Woodburn is anticipated to grow in the future. ❖ Several survey respondents indicated interest in service to each of these areas, including 5 mentions of Woodburn, 5 of Colton, 2 of Estacada, and 2 of Clackamas Town Center out of 92 onboard survey respondents. » To/from additional Oregon City locations ❖ Future land use growth in the Beavercreek and Henrici areas is anticipated to increase transit demand. ❖ Commute demand to Oregon City is anticipated to grow in the future. ❖ Three survey respondents indicated interest in service to additional Oregon City locations. » To/from employment centers, such as the Clackamas Industrial Area and the Woodburn Outlets ❖ Future land use growth in this area is anticipated to increase transit demand.
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❖ Of 114 survey respondents, the average ranking for commuter service to this area was 5.7/10 for riders and 6.5/10 for non-riders. » Along Beavercreek Road and Henrici Road to serve future Beavercreek and Henrici development ❖ Future land use growth in these areas is anticipated to increase transit demand. ❖ 25% (29 out of 111) of survey respondents indicated interest in the Molalla to CCC Route serving these areas. » Along roadway extensions in Molalla, such as those proposed in the Molalla TSP Update on W 5th Street (identified as a high priority in the TSP), Commercial Way (low priority), and Leroy Avenue (low priority) ❖ Future land use growth in these areas is anticipated to increase transit demand. ❖ The Molalla TSP identifies future transit service to these areas. » To/from the Northeast Canby Master Plan Area ❖ Future land use growth in this area is anticipated to increase transit demand. ❖ Commute demand to Canby is anticipated to grow in the future. » Shopping, medical, and/or event shuttles ❖ Five survey respondents indicated interest in these types of services. Some of these areas represent new coverage areas but could be accomplished by extending existing routes. Potential extensions are considered in the Refinements to Existing Routes section, below. However, these areas could also be served through new or substantially modified routes.
ALTERNATIVES EVALUATION CRITERIA AND DEVELOPMENT Service potential alternatives were identified based on future needs, and evaluation criteria were developed based on the updated mission, goals, and policies. This section summarizes the evaluation criteria and process for evaluation. Further detail on these sections are included in Memo #5: Evaluation Framework in Reference E, Memo #6: Future Service Opportunities in Reference F, and Memo #7: Future Service Opportunities, Evaluation, Prioritization, and Monitoring Program in Reference G.
Memo #5: Evaluation Framework presented evaluation criteria to (1) measure progress on SCTD’s goals, policies, and practices; and (2) prioritize future service opportunities. Table 13 provides the evaluation criteria, their related goal area, and a description of each criterion.
Table 13. Evaluation Criteria Evaluation Criteria Notes Customer Experience Total ridership potential from Transit Cooperative Research Program (TCRP) Annual Rides methodologies, existing ridership compared to population/employment near stops, etc. Service Hours Number of service hours Rides per Hour Cost-efficiency measure comparing potential ridership to service hours provided Service Frequency Can be further distinguished by frequency during peak periods vs. off-peak Service Span Number of hours per weekday and weekend day service is provided Travel Time Evaluates travel time impacts to existing service and travel time for new services Considers support and priorities of riders, community members, and other Stakeholder Support stakeholders
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Evaluation Criteria Notes Accessibility and Connectivity Population within ¼ Mile of Provides ridership proxy using population near stops or service Transit Route or Service Employees within ¼ Mile of Provides ridership proxy using employment near stops or service Transit Route or Service Transportation-Disadvantaged Populations within ¼ Mile of Measure of access to transit for transportation-disadvantaged populations Transit Route or Service Coordination Connections to Other Evaluates how well an alternative is integrated with other routes and mobility Routes/Providers services Sustainability Access to Health-Supporting Evaluates access to grocery stores, parks, community spaces, health care, and Destinations social services Cost per Ride Evaluates cost-efficiency of system Total Capital Costs Provides capital costs needed to start service alternative Total Annual Operating Costs Provides operating costs to maintain service alternative
Memo #6: Future Service Opportunities identifies all of the service and capital alternatives considered. Memo #7: Future Service Opportunities, Evaluation, Prioritization, and Monitoring Program includes the evaluation of alternatives that led to the projects in the Master Plan Service and Capital Plans.
TRANSIT DEVELOPMENT AND MASTER PLAN This chapter presents the implementation component of the SCTD TDMP. Based on the sum of all data, public and stakeholder input, and analysis contained in earlier sections of this TDMP, the chapter outlines the future strategies, implementation recommendations, and financial components to achieve SCTD’s mission and goals.
THE VISION SCTD provides fixed-route service within Molalla and connecting from Molalla to Canby and Clackamas Community College. SCTD strives to provide safe, accessible, convenient, reliable, and efficient transit service that meets the needs of the community we serve. SCTD’s goals are to improve the customer experience, improve and support accessibility, enhance connectivity and coordination with other providers, and develop a financially and environmentally sustainable system. The following outlines a long-range plan to help SCTD implement its vision over the next 20 years. The plan includes service and capital plan, implementation plan, a financial plan, a management plan, and a performance monitoring program.
SERVICE PLAN This section provides brief descriptions of the recommended routing service improvements. These were included in the plan based on the existing and future needs they help address. These service improvements focus on routing alternatives, including modifications to existing route, potential new routes, and other new service types.
Existing Routes The following section summarizes the opportunities being evaluated for existing routes.
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Molalla City Loop Service Opportunities Figure 18. Molalla City Existing Route The following opportunities were considered for the Molalla City Loop Route.
» MC1: Peak Hour Increased Frequency: Increase frequency to half hour headways between the hours of 7:30 – 9:30 AM and 3:35 – 5:35 PM. » MC2: Increased Frequency Throughout the Day: Increase frequency to half hour headways during all service hours (between 7:30 AM – 5:35 PM). Consideration should be given to the additional frequency providing bidirectional Figure 19. Molalla City Serve More Streets (MC4) service on this route. » MC4: Route Modification - Serve More Streets: Modify the Molalla City Loop towards the route outlined in the Molalla TSP to serve Shirley Street, Highway 211, and Main Street. Figure 18 and Figure 19 display the existing and modified routes. » MC5: Earlier Morning Service: Add two hours of service in the early morning (5:30 – 7:30 AM). » MC6: Later Evening Service: Add two hours of service in the late evening (5:35 – 7:35 PM). » MC7: Sunday Service: Add service on Sundays 9:35 AM – 3:45 PM, similar to the new Saturday service.
Molalla to Canby Service Opportunities The following opportunities were considered for the Molalla to Canby Route.
» Canby1: Route Modification – 2-way service on West Side of the route instead of Loop: Provide two-way service along Highway 211 and the Canby-Marquam Highway between Molalla and Canby to reduce wait time and increase headways and connectivity for riders and destinations on the western side of the route. ❖ Loop services can cause long transit trips for riders. For example, a rider boarding in Canby and alighting in Mulino will have a short trip. However, that same rider boarding in Mulino and alighting in Canby will have a long trip. Providing service on one side of the loop back-and- forth (line service) would shorten transit trips. Recent survey efforts and ridership information are being analyzed to understand which side of the Canby Route is most heavily used.
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Figure 21. Molalla to Canby Existing Route Figure 20. Molalla to Canby - Canby1 West Side
Figure 22. Molalla to Canby - Canby2 East » Canby2: Route Modification – 2-way service on east side of Side the route instead of Loop: Provide two-way service along Highway 213 and Mulino Road between Molalla and Canby to reduce wait time and increase headways and connectivity for riders and destinations on the eastern side of the route. » Canby3: Peak Hour Increased Frequency: Increase frequency to half hour headways between the hours of 7:30 – 9:30 AM and 3:15 – 5:15 PM. » Canby5: Earlier Morning Service: Add two hours of service in the early morning (5:30 – 7:30 AM). » Canby6: Later Evening Service: Add two hours of service in the late evening (5:15 – 7:15 PM). » Canby7: Saturday Service: Add service on Saturdays 8 AM – 6 PM. » Canby8: Weekend Service: Add service on Saturdays and Sundays.
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Molalla to CCC Service Opportunities The following opportunities were considered for the Molalla to CCC Route.
» CCC1: Henrici Route Modification: Modify existing route to serve Henrici Road and Beavercreek Road.
Figure 23. Molalla CCC Route Modification Figure 24. Molalla to CCC Existing Route (CCC1)
CCC1 Existing
» CCC2: Leland Route Modification: Modify existing route to serve Leland Road and Beavercreek Road. See Figure 25 on next page. » CCC3: Peak Hour Increased Frequency: Increase frequency to 20-minute headways between the hours of 6:00 – 8:00 AM and 4:00 – 6:00 PM on weekdays. » CCC4: Increased Frequency Throughout the Day: Increase frequency to half hour headways during all service hours (between 5:00 AM – 8:30 PM) on weekdays. » CCC6: Later Evening Service: Add two hours of service in the late evening (8:30 – 10:30 PM) on weekdays. » CCC7: Sunday Service: Add service on Sundays 8AM – 6PM.
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Figure 25. Molalla to CCC Route Modification (CCC2)
CCC2
Potential New Fixed-Routes Three new fixed-route services were identified and evaluated that would provide connections to other transit providers and access to transit users currently without transit service.
» Woodburn: Provide direct service from Molalla to Woodburn. The route provides access to the Ross Street Transit Center, Woodburn Transit Center, Walmart, and Woodburn Premium Outlets alongside residential and employment areas. This route could have 3-6 trips per day depending on funding and costs. Additional data is provided in the Implementation Plan section. » Silverton: Provide direct service from Molalla to Silverton. The route provides access to the Ross Street Transit Center and downtown Silverton alongside residential and employment areas.
Figure 26. Molalla to Woodburn Route
Woodburn
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New Service Types Figure 27. Molalla to Silverton Route » Commuter Service to Employment Areas: SCTD could explore organized buses and/or shuttles to major employment areas, such as the Clackamas Industrial Area and the Woodburn Outlets. » On-Demand Shuttle Service: Provide curb to curb shuttle service within the City of Molalla.
Actions Considered and Not Recommended Service alternatives not recommended include service enhancements that are costly, had low potential ridership, and ranked low among stakeholders’ priorities.
» Molalla City – Simplified Route (MC3): Simplifying the Silverton Molalla City loop may lead to more route deviation requests, which would increase travel time and costs Figure 28. Molalla City Simplified Route (MC3) associated with the service, negating any time travel and cost decreases gained by the route simplification. » Molalla to Canby – Increase Frequency Throughout the Day (Canby4): While riders indicated increasing frequency throughout the day on the Canby was a moderate priority, costs were much higher and ridership potential was low, resulting in poor cost per ride and MC3 - Simplified rides per hour results. » Molalla to CCC – Earlier Morning Service (CCC5): CCC already operates early in the morning, earlier service would have low ridership potential and was a low priority for survey respondents. » New Services – Estacada: While this service would increase connectivity, it was ranked as a low priority for SCTD riders, had low potential ridership, would require a new bus, and would be considerably expensive to implement.
CAPITAL PLAN The following section summarizes vehicle and fleet improvements, information and technology improvements, and facility improvements considered as part of this TDMP.
Vehicles » Fleet Improvements ❖ Properly maintained and replaced vehicles reduce the likelihood of vehicle breakdowns and/or disruptions to service. ❖ Current Fleet: SCTD currently owns six buses and regularly operates five of them, with one bus in reserve. The average age of the active fleet is 2.3 years of use. Of the active fleet, three vehicles are in excellent condition, one in good, one adequate condition, and one is no longer operational. Two vehicles are significantly above 200,000 miles, and one is nearing their
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expected useful life (EUL). The three older, high-mileage vehicles are due to be replaced in the next year. ❖ Fleet Size & Replacement: SCTD operates approximately 250,000 vehicle revenue miles per year. With EUL’s of 200,000 miles, SCTD is anticipated to need a replacement vehicle every 1.25 years on average. For fleet size, typically, a 20 percent spare ratio is recommended. The fleet size will be considered in developing a capital management plan. ❖ Fuel Types: SCTD has been purchasing diesel buses. A bus with hybrid-electric propulsion costs $150,000 to $200,000 more than a similar bus with diesel propulsion but will generally reduce fuel costs by approximately 25 to 30 percent. A bus with compressed natural gas (CNG) costs $25,000 to $50,000 more than a similar bus with diesel propulsion but will generally reduce fuel costs by approximately 25 to 45 percent. Challenges in using hybrid-electric and CNG is the additional cost of purchasing new vehicles (typically more than comparable diesel models) and need for charging/dual fueling facilities. ❖ Low Floor: Low-floor buses eliminate the steps in the vehicle, provide easier access for riders, speed boarding and alighting, and are much easier for drivers to operate than traditional lifts. Eventually, as part of the normal bus replacement schedule and as sidewalk infrastructure improves, SCTD can replace any remaining high-floor buses with low-floor models. SCTD has recently tested a low-floor demo bus on the Molalla City route for a day, with excellent reviews from both riders and drivers. Information & Technology Information & technology improvements and their key impacts and costs are as follows:
» Real-Time Vehicle Arrival Information and Passenger Counters: ❖ Improve the ridership experience by reducing passenger wait times, providing confidence that a bus has not been missed, and creating a more informed and comfortable rider. This can be a critical amenity for rural services that operate on an infrequent basis. ❖ GPS technology to provide vehicle arrival information is often paired with automatic passenger counters to provide better ridership data. ❖ However, these cost data were collected when the technology was newer; improved system efficiencies have led to decreased costs. These costs should be explored further with vendors. SCTD is in the process of investigating Automated Vehicle Location (AVL) technology. » Fare Payment Options ❖ In addition to potential ridership increase and improved customer experience, transitioning to electronic systems would reduce the effort of collecting and processing paper tickets and $1 bills, and simplify the transfer to other systems. ❖ Costs can vary significantly based on the type of system. ❖ Additionally, there exists the potential for administration savings as well as an improved ability to make minor adjustments to fares over time, as the coinage barrier is lowered. ❖ SCTD is participating in a regional effort among smaller rural transit providers to study the feasibility of an integrated, regional fare collection system to provide seamless transfers across different transit providers. » Online/Mobile Trip Planning Tool ❖ Trip planning tools can help the public get travel information at any day or time. ❖ While some providers create proprietary trip planning tools, free and readily available trip planning tools are available and more fitting to SCTD’s size and needs. These tools include Google Maps, OneBusAway, Moovit, and Transit. All of these tools depend on the open data — 46 — SCTD Transit Development and Master Plan Final TDMP
format for GTFS-. SCTD currently provides stops and schedule data in a format that allows Google Maps to include their services in a regional trip planner. » Cameras ❖ CCTV can be used to enhance safety and security at transit centers. ❖ Currently, SCTD operates 2 security cameras on all buses. In addition to improving existing service, data gathered from technologies such as real-time vehicle arrival information and AVL can help to analyze the performance of existing and future service opportunities. For example, AVL data providing rides by location and time of day could be assessed to adjust schedules based on delay points and improve transfer connections.
Facility Improvements Facilities improvements include transit centers and major stops, bus stops, fleet improvements, bicycle and pedestrian amenities, park-and-ride lots, and other bus and administrative facilities. Similar to information and technology improvements, safe and comfortable facilities can improve the ridership experience and increase ridership by improving stop visibility, providing protection from poor weather, and improving access to transit. Facilities improvements and their key impacts and costs are as follows:
» Transit Centers and Major Transit Stops ❖ Transit centers provide a transfer point for bus routes, while major transit stops are typically provided at major activity centers. In addition to providing greater passenger amenities that improve rider comfort, transit centers and major transit stops provide visibility for the transit service, reminding residents and visitors of the availability of the service within their community. ❖ Currently, transit centers are provided at Ross Street CCC and Canby Transit Center within SCTD’s system. Major bus stops within the system include the Molalla Safeway. As service and ridership increase, SCTD could consider enhancing other bus stops to improve rider experience. ❖ Though the March 2019 onboard survey indicated the Molalla Safeway as the only major stop outside of transit centers, consistent stop-level ridership information may identify other stops, such as Canby Fred Meyer, as major stops. Acquiring stop-level data would identify which stops should be considered major stops. Final decisions about transit center locations and other stop improvements depend on the final service network. » Bus Stops ❖ Waiting at a bus stop is generally the first part of a rider’s journey on SCTD’s transit system, and a visible, safe and comfortable stop is criticaland helps enhance the transit system. ❖ Signage: The cost for a new bus stop signage and pole, installed, can range from $300 to $1,000, depending on the material and the installation conditions. ❖ Shelters: Passenger shelters add to the comfort of using transit and are generally very popular with riders. An “off the shelf” passenger shelter costs approximately $6,000 plus installation. In addition to initial capital costs, passenger shelters will incur maintenance costs for cleaning, repair and replacement. ❖ Benches: An alternative to a shelter for a stop that has less ridership is a bench. Benches should be considered for stops with at least three boardings per day, although other factors, such as the proximity to senior housing and nearby businesses willing to contribute to the costs, should be factored into the decision a well. Installed benches vary in price from $500 to $1,500 ❖ Locations identified for improvements in the Molalla TSP Update include: » OR 213/ Meadow Drive (NB) » OR 213/ Toliver Road — 47 — SCTD Transit Development and Master Plan Final TDMP
» OR 211/ OR213 (EB) » OR211/ Kennel Avenue (EB) » OR211/ Leroy Avenue (EB) » Meadow Drive / Meadowlawn Place/ Toliver Road » Bicycle and Pedestrian Amenities ❖ Virtually every bus rider is also a pedestrian, and bicycles provide an important “last mile” option for transit, particularly for SCTD riders who may be fairly dispersed. Improvements such as continuous sidewalks, low-stress bicycle facilities, illumination improvements, and enhanced pedestrian and bicycle crossings can facilitate and encourage transit ridership for pedestrians and bicycles. ❖ SCTD can work with local cities and Clackamas County to prioritize pedestrian improvements that serve transit stops. 4 It is of particular importance and a legal requirement to provide for access by persons with disabilities. Transit centers, shelters, and new or relocated bus stops should be designed to meet the requirements of the Americans with Disabilities Act (ADA). It is recommended that cities, the County, and Oregon Department of Transportation (ODOT) prioritize street corners near transit centers and shelters for ADA ramps. ❖ Locations identified in the Molalla TSP Update for pedestrian improvements include: » OR 213 » Cole Avenue » OR 211 » Mathias Road » Molalla Avenue » Frances Street » Toliver Road » Kennel Avenue » Shirley Street » E Heintz Street » Ridings Avenue » Industrial Way » Leroy Avenue » Stowers Road » E 5th Street » E 7th St
❖ The bicycle/transit connection can be facilitated by providing for bike parking at transit centers and, space permitting, transit shelters. 5 All SCTD buses have the capability to carry bikes. ❖ Locations identified in the Molalla TSP Update for bicycle improvements include: » OR 213 » Leroy Avenues » OR 211 » 5th Street » Molalla Avenue » Ridings Avenue » Toliver Road » Cole Avenue » Shirley Street » Frances Street » Mathias Road
» Park-and-Ride Lots: ❖ Park-and-ride lots are typically feasible in situations where there is either a parking charge or parking shortages at the rider’s destination, or if there is a substantial savings in travel cost or time by using transit.
4 Memo #8: Transit Benchmarks discusses development requirements related to access to transit stops. 5 Bicycle parking space requirements for transit stops and transit centers are addressed in Memo #8: Transit Benchmarks. — 48 — SCTD Transit Development and Master Plan Final TDMP
❖ The intercity park-and-ride demand is likely to be relatively small due to free parking at CCC and near the Canby Transit Center. 6 Many cost estimates above are based on Transit in Small Cities: A Primer for Planning, Siting, and Designing Transit Facilities in Oregon.7
Ross St. Transit Center As the origin point of current and potential SCTD services, the Ross St. Transit Center is a crucial stop for SCTD. With predicted growth and development in the area, as well as multiple service alternatives frequenting the transit center, improvements such as the addition of bicycle racks, real-time vehicle arrival information on signage, or additional covered space will improve the functionality of the transit center.
Near-Term Stop Improvements SCTD has identified locations for new and improved stops in the City of Molalla and is working to identify locations along Highway 211 and Highway 213. Several of these improvements overlap with the Molalla TSP Update’s recommendations. Figure 29 shows the locations and types of improvements. These include 3 shelters and 29 new signs.
Future Facility Considerations Future facility considerations include continuing bus stop improvements, facilities for CNG and/or electric fueling, and potential park-and-ride locations. The financial plan allocates $50,000 per year in miscellaneous capital improvements, most typically bus stop improvements, and inflated these costs for future years. Automated vehicle locations technologies will help to identify bus stops with higher activity levels that would trigger more improvements. SCTD can also continue to consider alternative fuels, though these fueling facilities would cost more than the allocated $50,000 and would require additional funding. The planning process did not identify existing opportunities where park-and-ride was recommended but could be monitored for these facilities in the future or informal agreements with businesses and organizations could be used to establish park-and-rides in communities such as Mulino and Carus.
6 While park-and-ride lots are not identified as a short-term need in the SCTD service area, the Oregon Transportation Planning Rule (TPR) requires that park-and-rides be allowed to be developed in parking lots in jurisdictions with transit service. Given this TPR requirement and the potential need in the longer term, Memo #8: Transit Benchmarks addresses development requirements related to park-and-ride-and-ride lots. 7http://www.oregon.gov/LCD/TGM/docs/fulltransitprimer4-4-13.pdf
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Figure 29. Near-Term Bus Stop Improvements
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IMPLEMENTATION PLAN The extensive existing and future market analysis conducted for the SCTD service area and surrounding communities, and the subsequent public and stakeholder outreach, have informed the recommendations provided in this section. The management, operations, and capital strategies summarized in the Alternatives Evaluation Criteria and Development have been prioritized as Tier 1, Tier 2, and Tier 3 actions.
» For Tier 1 Actions, the recommended service alternatives were those that were high priorities for stakeholders, low-cost to implement, higher potential for ridership, and improved access to health- supporting destinations and connectivity to other providers. These recommendations meet identified significant unmet needs, including future transit demand accommodation, commute demand, and stakeholder support. No new buses are needed for these alternatives, making these recommendations feasible for nearer-term implementation than the other recommendations.
» For Tier 2 Actions, the recommended service alternatives were those that were moderate to high priorities for stakeholders, low to medium cost, and improved travel time, connectivity, and access, especially for transportation-disadvantaged populations. These recommendations meet needs such as commute demand, service to transit-supportive areas not previously served, and general transit demand growth from population, employment, and land use changes. No new buses are needed for these alternatives, making these recommendations feasible for nearer-term implementation than the other recommendations.
» For Tier 3 Actions, the recommended service alternatives were those that were moderate to high priorities for stakeholders, medium to high cost to implement, moderate to higher potential for ridership, increased connectivity, and increased service availability and frequency. While many of these were high priorities for stakeholders and had the opportunity for higher ridership, the increased frequency alternatives are better suited for longer-term implementation in order to allow current buses to increase their volume (buses generally have not reached seating capacity) and allows time for capital bus purchases. The Woodburn alternative will have higher efficiency as both Woodburn and Molalla grow, and a longer-term alternative allows time for agency coordination, routing refinement, and capital bus purchase. Four new buses are needed to increase frequency on all routes and add Woodburn service. Table 14 and the following section describes the prioritization for the future alternatives. Prioritization considered several factors, including evaluation results, funding availability, and other factors influencing decision-making including other services and capital purchases. For all tiers, SCTD should continue to collaborate with other jurisdictions to improve bicycle and pedestrian amenities at and near stops, which was a high priority for survey respondents and improves access to transit.
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Table 14. Future Service Opportunity Prioritization Further Evaluation Not Tier 1 Tier 2 Tier 3 or Monitoring Route Recommended Needed » MC4: Serve More Streets as » MC2: Increase development Frequency » MC3: » MC6: Later and street Throughout the » MC7: Add City Loop Simplified Evening Service connections Day or during Sunday Service Route occur peak hours to 30 » MC5: Earlier minutes (MC1) Morning Service » Canby3: Increase » Canby4: » Canby5: Earlier Frequency » Canby1: West Increase Morning Service During Peak » Canby8: Add Canby Line, or Canby2: Frequency » Canby6: Later Hour Sunday Service East Line Throughout Evening Service » Canby7: Add the Day Saturday Service » CCC4: Increase » CCC3: Further » CCC6: Later Frequency increase » CCC1: Henrici » CCC5: Earlier Evening Service throughout the Frequency Road CCC Morning » CCC7: Add Day to 30 During Peak » CCC2: Leland Service Sunday Service minutes during Hour to 20 Road non-peak hours minutes » On-Demand Curb to Curb New » None » None » Woodburn » Silverton » Estacada Services » Commuter Shuttle Total Additional $203,000 $520,000 Annual $112,000 - - ($315,000 Total) ($835,000 Total) Operating Cost Total New 0 0 +4 (+4 Total) - - Buses » Continued bus » Real-time stop vehicle arrival improvements information and » Fare payment passenger » Continued low- options floor vehicles. counters » Continued bus » Bus stop Programs to Information, » Rider tools and » stop improvements increase Technology, information via improvements » Fleet Fuel Types » None awareness of & Facilities website and » Continued low- » Covered bus Transit and mobile app floor vehicles. facility Travel Demand » Bus Stop Management » Park-and-Ride Improvements lots » Improvements » Low-floor to Ross St. Transit vehicles Center
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Tier 1 Actions For Tier 1, the recommended service alternatives (MC6, Canby1 or Canby2, CCC6, and CCC7) were those that were high priorities for stakeholders, low-cost to implement, higher potential for ridership, and improved access to health-supporting destinations and connectivity to other providers.
» Molalla City – Later Evening Service (MC6): Implementing later evening service provides increased travel opportunity within Molalla and improved connections for those transferring to Canby and CCC routes. This alternative was a high priority for survey respondents and has high potential for ridership. This requires no new buses and is relatively low cost. » Molalla to Canby – West or East Line (Canby1 or Canby2): Providing two-way service along Highway 211 or the Canby-Marquam Highway between Molalla and Canby would increase mobility options and expedite travel time for riders travelling between these two places. Implementation of the East Line would increase service and connectivity to the CCC route, though there is only one available stop between Township Rd and Hwy. 213. This requires no additional buses and is relatively low cost. West Line would increase service and connectivity to CCC route but decreases population and employment capture. Stop level activity is necessary to determine the line that would serve the most activity and/or provide more service coverage. Discussions with CAT indicated that the west line (Canby1) would be more desirable than the east line (Canby2). This is due to the higher amounts of transportation-disadvantaged populations on the west side of the existing loop in Canby. The Mulino and Liberal areas of the east side will continue to be served by the Molalla to CCC route, while no other services were available for the west side of the existing loop. To maintain one-hour headways, the Canby1 may need to forego a Fred Meyer stop. CAT will be implementing a local circulator route that would connect to SCTD at the transit center and could serve first and last-mile connections to Fred Meyer and other Canby destinations in the industrial area. » Molalla to CCC – Later Evening Service (CCC6): Implementing later evening service provides increased travel opportunity and improves connectivity for those transferring to SCTD and other Oregon City services. This alternative was a high priority for survey respondents, with 32% of riders indicating a preference. Potential for increased ridership, while not requiring a new bus. » Molalla to CCC – Sunday Service (CCC7): Adding Sunday service has moderate additional ridership potential while increasing travel opportunities and regional connectivity. Additionally, this service would provide intercity travel when no other transit services are available in Molalla on Sundays. This alternative was a high priority for survey respondents with 32% of riders indicating a preference. This alternative would not require a new bus. » Real-time Vehicle Arrival Information & Passenger Counters: These technologies, the first which tracks and communicates the vehicle’s location to the dispatcher, and the second which counts and reports passenger boardings/alightings, have excellent potential to increase annual ridership, decrease waiting time for riders, and improve rider experience. This was ranked as a top priority for online survey respondents and CCC riders and is relatively low cost to implement. SCTD currently has grant funding available for this improvement. » Rider Tools and Information via Website and Mobile App: This technology has moderate potential to increase annual ridership, is relatively low-cost to implement, and had an average ranking of 6.7 out of 10
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by all respondents. With the inclusion of real-time arrival information, this tool could show more up-to-date travel information. » Bus Stop Improvements: Transit centers, improved signage, covered shelters, and benches have good potential to increase annual ridership by creating a more pleasant rider experience and increasing SCTD’s visibility in the community, are low to moderate cost, and were ranked as a high priority for online survey respondents and CCC riders. Potential near-term improvements to Ross Street Transit Center is of particular interest, whether that be bike racks and other amenities in the near-term or pursuit of covered bus facilities to expand the waiting area in the long-term. Grant funding is available for stop improvements and shelters. » Low-Floor Vehicles: Low-floor vehicles improve travel time while reducing dwell time to board vehicles. Low- floor vehicles have minimal to no price differential from other vehicles, and exhibit high stakeholder support, with 90% of demo riders ranking their experience as “Very Good” or “Good”. This alternative will be pursued alongside the regular fleet replacement schedule.
Tier 2 Actions For Tier 2, the recommended service alternatives (MC4, MC5, Canby5, Canby6, and CCC4) were moderate to high priorities for stakeholders, low to medium cost, and improved travel time, connectivity, and access, especially for transportation-disadvantaged populations.
» Molalla City – Serve More Streets (MC4): Expanding service to currently unserved TSAs in the northeast area of Molalla would capture more population and employees within ¼ mile, likely increasing ridership. This alternative could likely be accommodated within existing headways, maintaining 1-hour frequency. This alternative would increase access to health-supporting locations and would not require a new bus or additional operating funds to implement. 37% of riders expressed support for this routing modification. For MC4, modifications such as service to the northeast area of Molalla would be shorter-term, while routing modifications with new roadways/developments in the southwest area of Molalla may require further evaluation. » Molalla City – Earlier Morning Service (MC5): Increasing service hours in the morning has good potential for increased ridership, provides increased travel opportunities, increases connectivity to both the Canby and CCC routes, and the increased service span allows for access to grocery stores and intercity services. This alternative is relatively low cost and does not require a new bus, while being a higher priority for riders, with 3 indications of preference and an average ranking of 5.7 out of 10. » Molalla to Canby – Earlier Morning Service (Canby5): Increasing service hours in the morning has great potential for increased ridership (especially commuters), provides increased travel opportunities, increases connectivity to Canby transfer opportunities, and the increased service span allows for access to grocery stores and Providence Canby Medical. This alternative is relatively low cost and does not require a new bus. For both riders and non-riders, the average ranking for this alternative was 5.7 out of 10. » Molalla to Canby – Later Evening Service (Canby6): Increasing service hours in the evening has moderate potential for increased ridership, provides increased travel opportunities, increases connectivity to Canby transfer opportunities and the CCC route, and the increased service span allows for access to grocery stores and Providence Canby Medical. This alternative is relatively low cost and does not require a new bus. Among riders, the average ranking for this alternative was 6.4 out of 10.
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» Molalla to CCC – Increase Frequency Throughout the Day (CCC4): Implementing ½ hour headways throughout the service span would provide increased travel opportunities while having potential for increased annual ridership. This alternative would increase connectivity to the Canby route by providing more frequent overlapping service and to other providers in Oregon City while also improving access to grocery stores and locations with advanced medical services. While this alternative does not require a new bus, it is moderately expensive to implement. » Continued Bus Stop Improvements: Transit centers, improved signage, covered shelters, and benches have good potential to increase ridership by creating a more pleasant rider experience and increasing SCTD’s visibility in the community and are low to moderate cost. Among riders and non-riders, bus stop improvement received an average rank of 6.8 out of 10. » Continued Low-Floor Vehicles: Low-floor vehicles improve travel time while reducing dwell time to board vehicles. Low-floor vehicles have minimal to no price differential from other vehicles, and exhibit high stakeholder support, with 90% of demo riders ranking their experience as “Very Good” or “Good”. This alternative will be pursued alongside the regular fleet replacement schedule. » Programs to Increase Transit Awareness: SCTD leadership would like to pursue programs to increase awareness of transit and its relationship to travel demand management (TDM) strategies, especially in partnership with other providers who have indicated TDM strategies as a need.
Tier 3 Actions For Tier 3, the recommended service alternatives (MC2, Canby3, Canby7, CCC3, and Woodburn) were moderate to high priorities for stakeholders, medium to high cost to implement, moderate to higher potential for ridership, increased connectivity, and increased service availability and frequency. Four new buses are needed to increase frequency on all routes and add Woodburn service.
» Molalla City – Increase Frequency Throughout the Day (MC2): Increasing frequency on the Molalla City route either throughout the day (as presented) or during peak hours would provide increased connection opportunities to the Canby and CCC routes, improve travel time and reduce transfer times, and provide substantial ridership potential. Increasing frequency requires one new bus. Among riders the average ranking was 6.6 out of 10. » Molalla to Canby – Double Frequency During Peak Hour (Canby3): Increasing service frequency to ½ hour headways during peak hour would provide increased travel opportunities, increase connectivity to Canby services, and increase access to reach Fred Meyer, Providence Medical Center, and other health- supporting locations. This alternative would require a new bus, has high ridership potential, and improves commute and transfer opportunities. Among riders, the average ranking was 6.1 out of 10, while non-riders ranked this alternative as 7 out of 10. » Molalla to Canby – Add Saturday Service (Canby7): Adding Saturday service to Canby would provide increased travel opportunities, connect riders to the CCC Route and other Canby services, and expand access to Fred Meyer. This alternative would not require a new bus and has moderate potential for increased ridership. Among riders, the average ranking was 6.2 out of 10, and among non-riders the average ranking was 6.4 out of 10. » Molalla to CCC – Increase Frequency During Peak Hour (CCC3): Increasing headways to 20 minutes during peak hours provides improved travel time, increased travel opportunities, provides connectivity to other — 55 — SCTD Transit Development and Master Plan Final TDMP
providers in Oregon City, and increases access to grocery stores. This alternative would require a new bus. Among riders, the average ranking was 6.8 out of 10, while non-riders ranked this alternative as 7.5 out of 10 on average. » New Services – Woodburn: Adding direct service to Woodburn would increase travel opportunities while providing a direct connection to Woodburn services and access to major shopping centers and medical facilities. This alternative would require a new bus and is a high priority to all survey respondents, with an average rank of 6.2 out of 10 for riders and 6.6 out of 10 for non-riders. This alternative would be a good candidate for the STIF intercommunity fund, which could be pursued to pilot a Woodburn service. Additionally, this service was discussed with adjacent transit providers to understand what options were available for implementation. Given Woodburn Transit operates within the City of Woodburn, SCTD would be the more likely provider of an intercity service. This service could be implemented at lower cost by beginning with fewer runs per day. For example, 3 runs per day would allow 1 morning, 1 midday, and 1 evening. Four runs per day could operate as 2 morning and 2 evening commuter service, with the same bus filling-in for Molalla to CCC’s midday frequency (CCC4). Five runs per day would allow for commuter and a midday run, leading up to the 6 runs per day identified as the initial Molalla to Woodburn Alternative. This alternative is especially useful in providing increased connections to Marion County via connecting services. Table 15 shows the service miles, service hours, and costs associated with each of these options.
Table 15. Woodburn Runs per Day Options
Runs per Day Annual Service Miles Annual Service Hours Additional Operating Costs per Year
3 27,000 1,150 $80,000-$88,000 4 36,000 1,530 $107,000-$118,000 5 45,000 1,910 $133,000-$147,000 6 54,000 2,300 $160,000-$177,000 » Continued Bus Stop Improvements: Transit centers, improved signage, covered shelters, and benches have good potential to increase annual ridership by creating a more pleasant rider experience and increasing SCTD’s visibility in the community, are low to moderate cost, and were ranked on average as 6.8 out of 10 by both riders and non-riders. » Continued Low-Floor Vehicles: Low-floor vehicles improve travel time while reducing dwell time to board vehicles. Low-floor vehicles have minimal to no price differential from other vehicles, and exhibit high stakeholder support, with 90% of demo riders ranking their experience as “Very Good” or “Good”. This alternative will be pursued alongside the regular fleet replacement schedule.
Recommended for Further Evaluation The recommended alternatives capture many of the high priority alternatives identified according to stakeholder feedback. Services that need further evaluation include route modifications to existing services, where the implications of the alternatives need to be studied and external factors are present, weekend service where other newly-implemented weekend service should be monitored for performance, and new services which require more detailed understanding of demand.
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» Molalla City – Add Sunday Service (MC7): While adding Sunday service on Molalla City is a high priority for riders, the newly implemented Saturday service should be evaluated before making a recommendation for Sunday service. » Molalla to Canby – Add Sunday Service (Canby8): As Saturday service is recommended within Tier 3, Sunday service would be contingent upon the success of that service implementation. » Molalla to CCC – Henrici Road or Leland Road Route Modification (CCC1 or CCC2): These areas may be better served by modification to TriMet Route 32 and a new Oregon City Last-Mile Shuttle than a Molalla to CCC route modification. Additionally, both of these modifications received uncertainty from survey respondents. Discussions with adjacent providers led to the decision to wait and see how the Meyers Road extension, subsequent modification to TriMet Route 32, and the new Oregon City Last-Mile Shuttle affect needs and ridership in the Henrici and Beavercreek areas. » New Services – On-Demand Curb to Curb Shuttle: This service, while a moderate priority to SCTD riders, would require further study as to the true costs of implementation, as well as the policies that shape a successful, cost-effective program. » New Services – Commuter Shuttle to Employment Areas: While this alternative would increase travel opportunities and connectivity, it was ranked as a low priority for SCTD riders and would require a new vehicle to implement. Additionally, further study would be necessary to determine eligible employment areas. » Fare Payment Options: SCTD and other nearby providers are currently studying fare payment options. » Bus Stop Improvements: Activity thresholds were identified that trigger bus stop improvements, such as benches for stops with at least three boardings a day. More information on bus stop activity is needed to identify which stops need improvements. Covered bus facilities may also be recommended as stop activity grows to provide more space and comfort for riders than a smaller bus shelter; information from passenger counters and real-time vehicle arrival can help to identify locations for covered facilities. » Fleet Fuel Types: Fleet fuel types such as hybrid-electric and CNG require capital costs for fueling and charging facilities and would need to be considered further prior to recommendation and implementation.
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Vehicle Fleet for Implementation Currently, SCTD has a fleet of 6 vehicles, with generally 5 vehicles in regular operation. Three vehicles are nearing or above their 200,000 miles expected useful life (EUL), needing near-term replacement and planned for replacement with three vehicles purchased for 2020. SCTD will need to set aside funding for regular fleet replacement. Annual mileage was examined to determine a fleet replacement rate and associated annual set-aside for fleet replacement costs. The estimated replacement needs by Tier are shown in Table 16.
Table 16. Cost of Vehicle Replacement by Tier Tiers Cost & Fleet Information Post-August 2019 Tier 1 Tier 2 Tier 3 Planned Service Annual Service Miles 292,346 327,708 366,467 433,188 Fleet Replacement Rate (200,000 Miles per Vehicle) 1.46 1.64 1.83 2.17 Fleet Replacement Annual Set-Aside ($150k per Vehicle) $219,260 $243,968 $274,850 $324,891 Additional Fleet Replacement Costs over Existing - $24,708 $55,591 $105,631 Operating Buses Needed 5 5 5 9 Recommended Fleet Size (20% Spare Ratio) 6 6 6 11
These costs and identified fleet sizes are based on the recommended tiers of improvements outlined in the Service Plan and a 20% spare ratio. Tier 1 and Tier 2 do not require additional operating buses but do add mileage to vehicles and accelerate fleet replacement needs. Tier 3 introduces the need for an additional four buses for new services and increased frequency of existing services, which augments the fleet to eleven total buses to maintain the 20% spare ratio. Table 16 also indicates the additional fleet replacement costs over existing. These additional fleet replacement costs will be considered alongside additional operating costs in the Financial Plan.
Purchasing vehicles in larger batches, as was done in 2018, has an advantage of having multiple vehicles that are identical in terms of parts and maintenance needs. Even very similar vehicles purchased in different years will have differences that may impact maintenance costs. Under existing service, approximately 1.46 vehicles need to be replaced per year. Rather than buying 2 vehicles in one year and 1 vehicle in the next, buying 3 vehicles every other year would be more beneficial to lower maintenance costs.
Regarding the types of vehicles, SCTD will need to balance the efficiency advantages of fleet standardization with the benefits of matching vehicle size and other vehicle attributes with specific service needs. Benefits of fleet standardization are greater flexibility in vehicle assignments and a reduced need for spare vehicles since sub-fleets each require their own spare vehicles, and smaller fleets typically require a greater spare ratio. In addition, fleet standardization reduces maintenance costs by requiring less parts inventory and letting mechanics focus on a reduced number of vehicle models, which allows them to become more familiar with the specific maintenance requirements of those vehicles. The benefit of having several diverse vehicle types is that a vehicle can be more closely tailored to a specific service need or operating environment. For example, the Molalla City Loop might be more appropriately served by a small, shuttle-type vehicle, while longer routes, such as the Molalla to Canby and Molalla to CCC services, could be better served by a larger bus with amenities such as softer seats and reading lights. Given the small fleet size, maintaining the same vehicle across the fleet is recommended for the near-term, but varying vehicle sizes may be considered in the larger fleet of Tier 3 improvements.
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FINANCIAL PLAN The following describes projected financial assessments for baseline operations, service alternative costs, tiered financial plan, and potential new and future funding sources.
Baseline Financial Plan The financial plan reflected in Table 17 and Figure 30 represent the baseline financial assessment for the 20-year horizon. Revenue sources are often restricted to expenditure types, either operating or capital; as such, the financial plan is organized by operating and capital costs and revenues. The baseline financial analysis allows SCTD to understand the magnitude of the net surplus given no changes to service operations. The financial plan addresses fleet replacement needs over the next 20 years, plus an annual budget for additional vehicle purchases and other capital and infrastructure needs. The following describes some of the assumptions for future revenues.
» Grant Revenue: State and federal grants, as allocated by ODOT, have varied but have generally increased historically. » STIF Formula: SCTD currently receives about 16.2% of TriMet’s out-of-district – Clackamas County funds. STIF formula funds projections have been released for the next several years, with a 5% growth rate projected beyond that. This assessment assumes funds grow at 4% to be conservative. The legislature considered merging the STIF funding into the same mechanism as the STF funds, which may have an impact on how STIF funds are distributed in the future. » Taxes: The SCTD tax rate is currently set at 0.5% of wages paid to employees or 0.5% of net earnings from self- employment in excess of $400. The forecast payroll and self-employment tax is based on an annual increase of 3.3% employment increase and a 1% wage growth. » Fare Revenue: Farebox revenues are assumed to grow proportionately to estimated population growth in Molalla, and do not assume any change in service or the existing fare structure. » Interest income: Interest income is assumed to remain constant throughout the forecast years. As shown, a budget surplus is expected in the near-term. However, the surplus is decreasing beyond 2030 primarily due to the slow anticipated growth of the grant revenue while costs are continuously expected to grow by 3% annually. Additional funding sources will be needed to maintain baseline SCTD services beyond the 20-year horizon, especially if services are expanded beyond the baseline.
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Table 17. Baseline Financial Plan Forecast Cost & Revenue Sources 2020 2025 2030 2035 2040 Baseline Operating Costs1 $1,290,000 $1,500,000 $1,740,000 $2,010,000 $2,340,000 Baseline Fleet Replacement Costs2 $220,000 $250,000 $290,000 $340,000 $400,000 Short-Term Fleet Replacement2 $195,000 $0 $0 $0 $0 Other Capital Costs3 $120,000 $140,000 $160,000 $190,000 $220,000 Total Forecast Costs $1,825,000 $1,890,000 $2,190,000 $2,540,000 $2,960,000 Grant Revenue4 $929,000 $897,000 $968,000 $1,021,000 $1,063,000 STIF Formula5 $136,000 $358,000 $427,000 $496,000 $564,000 Payroll & Self-Employment Tax6 $700,000 $851,000 $1,001,000 $1,152,000 $1,302,000 Fare Revenue7 $40,000 $44,000 $49,000 $49,000 $52,000 Interest Income $20,000 $20,000 $20,000 $20,000 $20,000 Total Forecast Revenue $1,825,000 $2,170,000 $2,465,000 $2,738,000 $3,001,000 Forecast Surplus/Shortfall - $280,000 $275,000 $198,000 $41,000
Figure 30. Baseline Financial Forecast $3,500,000 Baseline Operating Costs Baseline Fleet Replacement Costs $3,000,000 Short-Term Fleet Replacement Other Capital Costs Total Forecast Revenue $2,500,000
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$0 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040
1 Operating costs are expected to increase 3% annually based on historic operational cost increases. 2 Fleet annual costs are expected to be $450,000 for the immediate replacement of 3 vehicles, approximately $220,000 in 2020 based on service miles, with $220,000 increasing 3.0% annually afterwards. 3 Other capital annual costs, such as equipment upgrades and bus stop improvements, are expected to be approximately $120,000 in 2020 and increase 3.0% annually. 4 Based on information developed and cited in Memo #4: Future Transportation Needs in Reference D. 5 Estimate includes SCTD receiving 16.2% of the TriMet out-of-district - Clackamas County funding and December 2019’s forecasted funding availability through 2025. STIF funding beyond 2025 is estimated here at 4% per year. 6 Estimate includes a 3.3% Molalla TSP employment growth rate and a 1% wage growth rate for a total annual growth rate of 4.3% per year. 7 Estimate includes a 2.2% Molalla TSP population growth rate through 2035 and a 1.5% growth rate from 2035 to 2040 with no changes to SCTD service or fares. — 60 — SCTD Transit Development and Master Plan Final TDMP
Service Alternatives Costs Costs for the service alternatives were developed for implementation feasibility. Table 18 shows the recommended implementation tier, additional buses needed, and total costs per year for each service alternative. These costs include one-time capital costs, such as real-time vehicle arrival and passenger counter installation and new operating buses needed, ongoing fleet replacement costs due to increased mileage, and operating costs per year. Costs shown are in today’s dollars and show additional costs beyond maintaining existing service.
Table 18. Service Alternative Costs Capital Costs New per Year Additional Capital Costs Total Additional Service Alternative Buses (Increased Rate Operating Costs (One-Time) Cost per Year Needed of Fleet per Year Replacement) Tier 1 MC6 - - $3,000-$4,000 $31,000-$34,000 $34,000-$38,000 Canby1 or Canby2 - - - - - CCC6 - - $10,000-$13,000 $36,000-$40,000 $46,000-$53,000 CCC7 - - $8,000-$11,000 $39,000-$43,000 $47,000-$54,000 Real-Time Vehicle $48,000 Baseline, $12,000 $8,000 per Arrival & Passenger - - Tier 1, and Tier 2; (installation) Vehicle Counters $88,000 in Tier 3 Tier 2 MC4 - - $2,000-$3,000 - $2,000-$3,000 MC5 - - $3,000-$4,000 $31,000-$34,000 $34,000-$38,000 Canby5 - - $9,000-$12,000 $31,000-$34,000 $40,000-$46,000 Canby6 - - $9,000-$12,000 $31,000-$34,000 $40,000-$46,000 CCC4 - - $24,000-$33,000 $90,000-$99,000 $114,000-$132,000 Tier 3 MC2 +1 $150,000 (one bus) $10,000-$13,000 $155,000-$172,000 $165,000-$185,000 Canby3 +1 $150,000 (one bus) $18,000-$25,000 $69,000-$76,000 $87,000-$101,000 Canby7 - - $8,000-$11,000 $37,000-$41,000 $45,000-$52,000 CCC3 +1 $150,000 (one bus) $19,000-$26,000 $72,000-$80,000 $91,000-$106,000 Woodburn +1 $150,000 (one bus) $35,000-$47,000 $160,000-$177,000 $195,000-$224,000
The above costs were added to the baseline operating costs to understand the feasibility of implementing these alternatives. Figure 31 shows the short-term budget surplus could sustain Tier 1 actions, but costs exceed the budget by approximately 2032. Additional funding sources will be needed to maintain baseline SCTD services and add Tier 1 recommendations. Tier 2 and Tier 3 recommendations are above the short-term and long-term revenue projections and are not feasible to implement without substantial funding increase.
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Figure 31. Service Alternatives Financial Forecast
$6,000,000
$5,000,000
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Tier 3 Real-Time Vehicle Arrival Additional Fleet Costs Tier 3 Fleet Replacement Increased Cost Tier 3 Operating Cost Tier 2 Fleet Replacement Increased Cost Tier 2 Operating Cost Tier 1 Fleet Replacement Increased Cost Tier 1 Operating Cost Real-Time Vehicle Arrival - Operating & Maintenance - Existing Fleet Other Capital Costs Short-Term Fleet Replacement Baseline Fleet Replacement Costs Baseline Operating Costs Total Forecast Revenue
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New & Future Funding Sources Potential funding sources for SCTD includes federal, state, and local sources. SCTD currently receives Section 5310 (Enhanced Mobility of Seniors & Individuals with Disabilities Formula Grant), Section 5311 (Rural Area Formula Grant), Surface Transportation Fund (STF) formula funds, Statewide Transportation Improvement Fund (STIF) formula funds, fare revenue, and their own payroll and self-employment tax (separate from STIF funding). The Oregon Legislature will be considering ways to merge STF and STIF during the 2020 Session.
Federal Grants Section 5339 – Bus and Bus Facilities The 5339 grant provides funding through a competitive allocation process to states and transit agencies to replace, rehabilitate, and purchase buses and related equipment and to construct bus-related facilities and funds are distributed to providers through ODOT. The competitive allocation provides funding for major improvements to bus transit systems that would not be achievable through formula allocations.
Surface Transportation Block Grant (STBG) The STBG program provides flexible federal funding to best address state and local transportation needs, including Federal-aid highways, bridge and tunnel projects on public roads, pedestrian and bicycle infrastructure, and transit capital projects. ODOT distributes these funds for fleet replacement.
Other Federal Funding The FTA periodically releases additional funding opportunities. In 2019, the FTA released the Integrated Mobility Innovation opportunity, providing $15 million for demonstration projects focused on Mobility on Demand, Strategic Transit Automation Research, and Mobility Payment Integration. For FY20, the FTA also announced the Mobility for All Pilot Program to invest in mobility options for older adults, individuals with disabilities, and people with low incomes, aimed to enable connections to jobs, education, and health services. These types of funding opportunities can help SCTD invest in innovative and effective practices and partnerships.
State Funding Statewide Transportation Improvement Fund (STIF) Section 122 of Keep Oregon Moving (Oregon House Bill 2017) established the STIF, a new dedicated source of funding for expanding public transportation service through an 0.1 percent employee payroll tax in Oregon. Goals of HB 2017 include expanding access to jobs, improving mobility, relieving congestion, and reducing greenhouse gas emissions, while providing a special focus on low-income populations. STIF funds may be used for public transportation purposes that support the operations, planning, and administration of public transportation programs and may also be used as the local match for state and federal grants for public transportation service.
The Oregon Department of Revenue began collecting the tax on July 1, 2018 to first provide to transit agencies in May of 2019. 90% of STIF funds are distributed to Qualified Entities. Qualified Entities are required to coordinate with public transportation service providers in their area of responsibility to develop a sub-allocation method to distribute funding out-of-district. 5% of STIF funds are available via discretionary grants for flexible funding. 4% of funds are available via discretionary grants for projects enhancing intercommunity service and the statewide transit network. 1% of the funds are allocated for program administration and a technical resource center. While SCTD receives the formula portion of STIF funds, SCTD can also apply for discretionary grants for intercommunity services (i.e. Woodburn) or technology improvements (real-time vehicle arrival information, automated passenger counters).
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Local Funding Sources Fares The fares collected by transit providers can be an important source of revenue. Changes to the fare system could result in additional fares collected and improved farebox recovery for SCTD. The ongoing regional fare study should inform SCTD’s fare policy decisions, including potential student or monthly pass options, fare reciprocity, or payment options.
Other Transit Provider Revenue Other, usually relatively minor, funding sources include advertising/sponsorships and investment income. Advertising typically provides a consistent, small stream of revenue. Some transit providers sell sponsorships for facility names, individual transit vehicles, etc. Many transit providers receive small amounts of investment income from the Local Government Investment Pool (LGIP) on some of their long-term savings.
MANAGEMENT AND MARKETING PLAN Management Strategies Short- and medium-term management actions were developed through stakeholder and Transit Advisory Committee engagement, as follows:
» Partner with Employers – A commuter shuttle was identified as a service alternative but required partnerships with employers to identify major employment locations for Molalla or SCTD area residents, identify shift times, and develop potential commute solutions. SCTD can collaborate with employers to further explore these services, as well as market existing SCTD services through employers. » Continue to Enhance Coordination between SCTD, Local and Regional Partners, and other Transit Providers – Coordination between SCTD and local partners, including adjacent transit districts, local and regional transportation providers, and local jurisdictions, will lead to a comprehensive and efficient system in which users can travel seamlessly inter- and intra-regionally. SCTD should continue to coordinate with the City of Molalla in reviewing land use applications and coordinating installation of bus stop amenities, coordinate with ODOT for bus stops on Highways 211 and 213, and other providers for efforts such as the fare policy study and timing connections on intercity services. » Gain Community Support – Gaining community support by creating and supporting local programs promotes the service and builds consensus. » Involvement with Outside Organizations – SCTD’s continued involvement with outside jurisdictions and organizations, will enable knowledge and information sharing and support long-term relationships. » Adjust the Fare Policy – SCTD should review fares regularly (annually, biannually, etc.) to ensure that revenue, ridership, and equity objectives are being met. » Create Measurable Outcomes for Services to Promote Effective Monitoring – The transit benchmarks developed in this plan provide the foundation for an effective monitoring program. » Increase Customer and Stakeholder Satisfaction – SCTD service must have a friendly face to be recognized and successful. Promoting awareness of the service provided through online and on-paper means will contribute to the success of the service.
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Customer Service and Information Strategy The following describes actions to improve customer service and information that can be implemented in the short- term and that should be maintained on a long-term basis:
» Consolidate Existing Maps and Brochures into a Single User-Friendly Brochure. SCTD currently provides all of the relevant service information across several brochures and system maps. SCTD should consider consolidating all SCTD service into a single, user-friendly brochure. A current brochure exists but is in a larger format than the single-route brochures. » Support Mobile Application Technologies. A mobile/smartphone presence has become increasingly important. As Automated Vehicle Location (AVL) devices are installed on buses, allow AVL data to be used to make real-time bus locations available on applications such as Google Maps and Transit, and also consider information and tools for SCTD’s website. » Invest in Training Programs. The face of SCTD is the bus operators and customer service staff. Continue investing in training resources so that staff contribute to the District’s positive image.
Regional Coordination In addition to the service alternatives described above, SCTD should continue to examine individual route scheduling, timed transfers, and coordination with adjacent transit service providers. Current examples of inter- agency coordination are SCTD’s recent adjustments to the Molalla to Canby route to make better-timed connections with Canby Area Transit’s services, as well as additional morning runs on the Molalla to CCC route, providing increased connections to TriMet and CCC Xpress Shuttle services. Additionally, coordination of shelter placement with sidewalk and other pedestrian improvements projects planned by ODOT, City of Molalla, CCC, or other local agencies is encouraged.
Marketing Plan A coordinated, targeted, and effective public information and marketing campaign would help publicize and encourage people to use transit. Some non-rider survey respondents and outreach participants requested service to Canby, which SCTD already provides, and 1 of the 25 non-riders in the first survey and 4 of the 15 non-riders in the second survey indicated they were not aware of any SCTD services. This indicates more information and advertising may help inform the community about available transit services.
Fare Policies & Payment Options The SCTD fare system is a flat rate of $1.00 per ride per person on the commuter services to CCC and Canby and is fareless on the local City route. Only US one-dollar bills or SCTD tickets purchased from the District Office are valid. Children age 6 and under ride for free when accompanying an adult rider. It should be noted that SCTD is participating in a regional effort among smaller rural transit providers to study the feasibility of an integrated, regional fare collection system to provide seamless transfers across different transit providers. Opportunities to modify existing fare policy include the following options:
» Monthly passes – Equivalent pricing based on a fare structure where one round trip for 20 days equals the monthly pass cost suggests a monthly pass cost of $40.00. As most riders indicated using service several times per week, this option would likely be popular and reduce dwell time for riders to pay fares and administrative efforts in processing fares.
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» Mobile ticketing – Mobile ticketing may reduce the current challenges riders face in obtaining SCTD tickets or having exactly one-dollar bills on hand, increasing ridership and improving existing rider experience. Mobile ticketing also reduces administrative efforts in collecting and processing fare payment. » Fare reciprocity – Reducing the barrier of differing fare policies and payment methods is included within the regional study and noted in outreach efforts by existing and potential riders as a barrier to ridership. Having one fare payment approach in the region would reduce transfer friction to other services and could be pursued alongside other opportunities, such as mobile ticketing and monthly passes.
PERFORMANCE MANAGEMENT AND MONITORING PROGRAM PLAN The following section provides a program to track performance and the success of the recommendations. The program is data-driven and is founded on performance measures that can be tracked on an annual basis through set benchmarks. This program enables a dynamic system where service adjustments can be implemented and justified following performance evaluations.
SCTD-Specific Performance Measures & Benchmarks Performance tracking for SCTD is recommended to be based on a comparison to a baseline assessment developed from the previous five years of available data, which is to be used for the initial comparison for the first year of performance tracking. For subsequent years, the recommendation is for SCTD to compare results to the five- year baseline and peer transit agencies (such as Canby Area Transit, Sandy Area Metro, and Woodburn Transit) as shown in Memo #2: Existing Conditions. Recommended performance measures were identified that relate to SCTD’s goals and consider data availability, resulting in the following recommended measures:
Service Equity – Related to Goal Area 1: Customer Experience and Goal Area 2: Accessibility » Service equity: This measure is the equitable distribution of costs and benefits resulting from transit projects or services.
Cost Efficiency - Related to Goal Area 4: Sustainability » Total cost per service hour: This measure is one of the core evaluations of a transit system’s overall performance, and is another cost-efficiency indicator that compares a transit system’s ability to provide service outputs (e.g. service hours) as a function of service inputs (e.g. costs).
Cost Effectiveness - Related to Goal Area 4: Sustainability » Cost per vehicle: This is an indication of the operational cost-effectiveness of the system on a per-vehicle basis » Total cost per passenger trip: This measure is one of the core evaluations of a transit system’s overall performance. » Farebox recovery ratio: This measure is fare revenue divided by total expenses. It reflects how much of a transit agency’s costs are covered by passenger fares.
Productivity - Related to Goal Area 1: Customer Experience and Goal Area 4: Sustainability » Passengers per vehicle service mile: This performance measure provides an indication of how well vehicle resources are being used over a fixed distance. » Passengers per vehicle service hour: This performance measure provides an indication of how well vehicle resources are being used over a fixed period of time.
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» Number of transfer opportunities: This measure assesses connectivity to other routes and providers. This measure can be assessed at different transfer ranges (15 minutes, 30 minutes, etc.).
Service Reliability - Related to Goal Area 1: Customer Experience » On-time performance: This measure can be used both diagnostically and as a tool to assess the experience of customers.
Service Utilization - Related to Goal Area 4: Sustainability » Annual passenger trips: This measures the number of individuals boarding and/or alighting at a stop, boarding along a route, or boarding the system as a whole. » Annual vehicle service miles: This measures the number of miles that transit vehicles travel. » Annual vehicle service hours: This measures the number of hours that transit vehicles are in service, including revenue hours (transporting passengers) and deadhead hours (layovers and traveling in revenue service without passengers).
Resource Utilization - Related to Goal Area 4: Sustainability » Vehicle service miles per vehicle: This measure is the ratio of service miles to the number of vehicles in the fleet and is an indication of how well existing capital resources are being used. » Vehicle service hours per vehicle: This measure is the ratio of service hours to the number of vehicles in the fleet and measures the intensity of capital resources use.
Maintenance Administration - Related to Goal Area 4: Sustainability » Vehicle-miles between breakdowns: Vehicle breakdowns are one source of reliability problems. This measure is intended for internal agency use in monitoring trends in vehicle breakdowns. » Maintenance costs as a percentage of operating costs: This measure focuses on how well the maintenance department is performing relative to overall operating costs.
Perceived Service Quality - Related to Goal Area 1: Customer Experience and Goal Area 2: Coordination » Service frequency: Frequency refers to how often transit service is provided, either at a location or between two locations. » Number of missed connections with coordinated transit systems: SCTD should record any missed connections with neighboring transit systems.
Safety and Security- Related to Goal Area 1: Customer Experience and Goal Area 4: Sustainability » Bus stop amenities: SCTD should track the number of bus stops with signage, seating, and shelters. » Total reportable incidents: SCTD should record the number of customer complaints and compliments and develop a system by which customers can easily provide feedback. » Total crashes: SCTD should enumerate the total number of crashes involving their vehicle fleet.
Demand-Response Service- Related to Goal Area 1: Customer Experience » Service denials: Route deviation service as measured by the percentage of trip requests in which service cannot be adequately provided.
Example Benchmarks The following shows several example benchmarks, with the full benchmark exploration included in Memo #8: Transit Benchmarks in Reference H.
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Service Equity SCTD has not recently changed their routing. Therefore, no change is seen in service equity. Table 19 shows existing service equity by route, including a comparison to the service district, with bolded values showing routes serving those populations above service district average. As shown, SCTD services serve a higher proportion of people in poverty, people of color, and elderly adults and a lower proportion of people below the 200% poverty level, people with limited English proficiency, people with disabilities, and households with no vehicles.
Table 19. Service Equity Disadvantaged 200% People Elderly Limited Persons with Households with Poverty Youth Population Poverty* of Color Adults English Disabilities no Vehicles* Existing Service District 9.0% 43.0% 7.0% 11.0% 24.0% 4.0% 14.0% 6.0% Molalla City Existing 11.4% 28.9% 16.6% 11.7% 28.0% 1.8% 12.4% 5.3% Molalla to Existing 12.4% 28.0% 22.9% 11.8% 29.1% 3.2% 11.9% 5.5% Canby Molalla to Existing 8.4% 23.2% 14.5% 13.6% 27.5% 1.6% 11.7% 5.5% CCC *Census information from Molalla City. Remaining populations based on census blocks in the SCTD service district.
Cost Efficiency Table 20 and Figure 32 show the cost per service hour. As shown, costs have not changed substantially after the Molalla to CCC service change in 2016. All routes have lower costs per service hour compared to their 5-year benchmark.
Table 20. Cost per Service Hour Molalla to CCC Molalla to Canby Molalla City Five-Year Benchmark $78.15 $74.94 $67.58 2014 $79.74 $76.46 $68.91 2015 $80.69 $76.82 $69.45 2016 $79.21 $76.14 $68.62 2017 $76.87 $73.90 $66.60 2018 $74.25 $71.38 $64.33 Meets Benchmark?
Figure 32. Cost per Service Hour
$90.00 Molalla to CCC $85.00 Molalla to Canby $80.00 Molalla City $75.00 $70.00 $65.00 $60.00 $55.00 $50.00 2014 2015 2016 2017 2018
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POLICY AND CODE AMENDMENTS The TDMP process explored how the policies and development requirements of the jurisdictions served by SCTD support transit. This included identifying potential local policy and development code changes that could effectively implement TDMP recommendations over time, in the local jurisdictions served by SCTD. Specifically, policy and code language recommended in Memo #8: Transit Benchmarks (Reference H) is intended to ensure that access to transit is incorporated and enhanced through future local land use and development decisions. The work in Memo #8:
» includes an overview of transit-supportive policy and code; » summarizes TDMP recommendations, by jurisdiction, that are relevant to local policy and code; » assesses consistency between adopted language and “model” transit-supportive policy and code; and » presents recommendations for potential policy and code amendments. Model transit-supportive policy language addresses accessibility and connectivity, SCTD/jurisdiction coordination, and sustainability. Suggested language reflects goals and polices from Memo #3: Updated Goals and Policies (Reference C) and is informed by recent transit planning work in Oregon. Model transit-supportive development code – in categories including coordination, access to transit and supportive improvements, parking, and urban form – draws from Oregon transportation planning requirements, Oregon model development code, and successful transit plan implementation strategies. Specific model policy and development code language is provided in Appendix A and Appendix B of Memo #8: Transit Benchmarks (Reference H).
Local adoption of implementing policy and code measures is a “next step,” subsequent to SCTD adopting the TDMP. The following actions are recommended for jurisdictions that SCTD serves or that have planned transit service and are intended to be done in consultation with SCTD regarding specific content and timing of proposed amendments.
» The City of Molalla should review and refine model transit-supportive policy language in Appendix A of Memo #8: Transit Benchmarks (Reference H) and consider adoption to support and implement the TDMP. The City is encouraged to incorporate refined policy language as part of a future action to update the City’s Comprehensive Plan to be consistent with the TDMP. » The City of Molalla should review and refine suggested model transit-supportive regulatory language in Appendix B of Memo #8: Transit Benchmarks (Reference H) and consider future code amendments that can further support transit in the city. » For other jurisdictions that SCTD currently serves or where SCTD service is proposed to extend (Oregon City, Canby, and Woodburn), refine policy and code concepts in Memo #8 and identify upcoming comprehensive plan (policy) and development code update opportunities to make amendments and implement the TDMP.
TDMP UPDATE SCHEDULE & NEXT STEPS The TDMP should be updated every five to ten years to allow SCTD to prioritize the future, monitor progress in implementing identified projects, update the future financial outlook and planning, and to verify and update the population, land use, and growth trends used to determine and prioritize service enhancements. Next steps should also include policy and code recommendations identified for amendment. It is important to check progress since the last TDMP and to realign goals, priorities, and projects based on the new “existing” and “future” systems. — 69 — SCTD Transit Development and Master Plan Final TDMP
REFERENCES A. Memo #1: Public and Stakeholder Involvement Strategy B. Memo #2: Existing Conditions C. Memo #3: Updated Goals and Policies D. Memo #4: Future Transportation Needs E. Memo #5: Evaluation Framework F. Memo #6: Future Service Opportunities G. Memo #7: Future Service Opportunities, Evaluation, Prioritization, and Monitoring Program H. Memo #8: Transit Benchmarks
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