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FY2013-FY2015 Triennial Performance Audit of the North County Transit District (NCTD)

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FY2013-FY2015 Triennial Performance Audit of the North County Transit District (NCTD) San Diego Association of Governments FY2013-FY2015 Triennial Performance Audit of the North County Transit District (NCTD) FINAL AUDIT REPORT June 2, 2016 FY2013-2015 Performance Audit of NCTD San Diego Association of Governments (SANDAG) TABLE OF CONTENTS EXECUTIVE SUMMARY ............................................................................................................ 1 SECTION I: INTRODUCTION ..................................................................................................... 4 SECTION II: COMPLIANCE REVIEW AND PRIOR AUDIT RECOMMENDATIONS ................ 19 SECTION III: MANAGEMENT CONTROL AND REPORTING ................................................. 24 SECTION IV: PERFORMANCE TRENDS AND FUNCTIONAL REVIEW ................................. 28 SECTION V: CONCLUSIONS AND RECOMMENDATIONS .................................................... 44 -i- June 2, 2016 FY2013-2015 Performance Audit of NCTD San Diego Association of Governments (SANDAG) EXECUTIVE SUMMARY Transit operators that receive Transportation Development Act (TDA) funds are required to undergo triennial performance audits in the State of California. Triennial performance audits are a requirement for the continued receipt of State TDA funds for public transit under California Public Utilities Code (PUC) Section 99246. The performance audit is administered by the San Diego Association of Governments (SANDAG) and prepared by CH2M HILL. This report represents the State-mandated performance audit of the North County Transit District (NCTD) for Fiscal Years 2013, 2014, and 2015, the period from July 1, 2012 through June 30, 2015. The TDA triennial performance audit of NCTD includes evaluations of: – Compliance with pertinent sections of the Public Utilities Code – Progress to implement prior performance audit recommendations – Agency goals and objectives and performance monitoring systems – System-wide and functional area performance trends The objective of the performance audit is to assess compliance with PUC requirements, identify significant achievements as well as opportunities for improvement, and develop recommendations for short and long-term efficiency and effectiveness improvements. Several audit period accomplishments and challenges were noted in spite of both temporary SPRINTER shutdown and changes to LIFT operating model. Major accomplishments include: – Record ridership in FY2014 and FY2015 for all modes – Recovery and growth of service following service decreases in previous period – Continued implementation of Positive Train Control system – Development of more robust and proactive safety culture – Robust rail reliability statistics for both COASTER and SPRINTER – Continued implementation of JD Edwards Enterprise Resource Planning software NCTD is in compliance with Public Utilities Code (PUC) requirements with the exception of farebox recovery ratio for paratransit service. Additionally NCTD has made progress towards implementation of prior audit recommendations: – Compliance with PUC Requirements: NCTD is in compliance with all PUC requirements with the exception of paratransit farebox recovery ratio. The PUC mandates that the farebox recovery ratio for paratransit service must be at least 10.0%. In FY2015, the farebox recovery ratio for paratransit was 9.2% according to calculations based on data from the National Transit Database. – Progress to Implement Prior Audit Recommendations: NCTD has meaningfully addressed the four recommendations from the prior audit period. 1) While regional fare policy is set by SANDAG, NCTD initiated and led the preliminary regional discussion regarding fare simplification in September 2013. This led to the decision to implement a smaller fare simplification working group led by SANDAG. In January 2014, the Fare Simplification Working Group recommended that the region update the fare study from 2008 in order to determine any necessary modifications to the existing SANDAG Regional Fare Ordinance. The fare study update commissioned by SANDAG is currently underway. NCTD also is embarking on a joint procurement with MTS for mobile ticketing services. 2) NCTD analyzed BREEZE, LIFT, and industry peers for best practices regarding bundling contractor procurements, contract terms and conditions, and requests for proposals for procuring contractor services. These practices were analyzed in the bundled procurement of contractor service for SPRINTER and COASTER services which concluded after the end of this audit period. 3) NCTD has improved safety training for SPRINTER service by doubling the size of the Safety Department, instituting the Risk Roundtable meeting, and implementing the intermodal Integrated Safety Plan. 4) NCTD created the LIFT Performance Plan -1- June 2, 2016 FY2013-2015 Performance Audit of NCTD San Diego Association of Governments (SANDAG) to monitor paratransit performance metrics. NCTD tracked contractor adherence to the Performance Plan until November 2013. At this time the LIFT contractor, the American Logistics Company, informed NCTD that it could not fulfill the remainder of its contract. Consequently, NCTD procured and implemented new contractor services. NCTD tracks performance of the new LIFT contractor through regular reporting out on progress. Performance indicator trends show the following: – System-wide operating cost per service hour, a measure of cost efficiency, decreased 10.1% during the audit period from $146.19 in FY2012 to $131.49 in FY2015. This was impressive given the 4.4% rate of inflation. The trend is a result of a 13.6% growth in operating costs and a 26.4% increase in vehicle service hours during the audit period. These costs reflect, in large part, increase in service following service decreases in the prior period and the higher staffing levels caused by the addition of new departments and functions. Operating cost per passenger, a measure of cost effectiveness, increased by 8.6% from $6.29 in FY2012 to $6.83 in FY2015. This is a result of a 13.6% increase in operating costs and a 4.6% increase in ridership. The increase in ridership is primarily the result of the economic recovery, and the increased service across all modes. – Service productivity decreased during the audit period. Passengers per service hour decreased by 17.2% while passengers per service mile decreased by 11.4%. Despite the gains in ridership, this is a result of a 26.4% increase in vehicle service hours and an 18.0% increase in vehicle service miles coupled with a 4.6% increase in ridership. It should be noted that LIFT accounted for a disproportionate amount of the increase in service hours and miles. This was largely due to a change in the LIFT operating model and a considerable increase in demand for paratransit. – Service hours per employee FTE, a measure of labor productivity, increased by 7.7% during the audit period from 882 in FY2012 to 885 in FY2015. This trend is a result of a 26.4% increase in vehicle service hours and a 17.4% increase in employee FTEs. – The NCTD system-wide farebox recovery ratio decreased during the audit period, from 23.9% in FY2012 to 22.5% in FY2015. NCTD farebox recovery during the audit period was still higher than the PUC mandated farebox recovery of 18.8%. – The average fare per passenger trip increased by 2.3% during the audit period, from $1.50 to $1.54. – The net cost per passenger trip increased by 10.6%, from $4.78 in FY2012 to $5.29 in FY2015, which was above the inflation rate of 4.4% over the audit period. The system-wide TDA performance trends overall are indicative of the continued attention that NCTD placed on cost containment given service increases during the audit period. NCTD’s accomplishments position it well for continued cost containment in the future. Three recommendations are offered for NCTD’s consideration: – Recommendation 1: Implement strategies to minimize operating costs for LIFT paratransit service. LIFT farebox recovery dropped below the PUC mandated 10% level in FY2015. NCTD should explore best practices to minimize operating costs in order to achieve compliance with the PUC. Additionally NCTD should implement strategies which will contain growth of operating costs given the likely increase in demand for paratransit. – Recommendation 2: Institute robust tracking and management system for excess capital inventory at rail maintenance facilities. Excess capital inventory from rail projects is currently stored at rail maintenance facilities. NCTD does not currently track this excess inventory. NCTD should incorporate this inventory into the current inventory tracking system and later in the JD Edwards system. NCTD should also consolidate the excess inventory at a centralized “lay-down” yard which can be done at no direct cost to NCTD. This would free up space at rail maintenance facilities and would potentially reduce the need for excess procurements for future rail capital projects. -2- June 2, 2016 FY2013-2015 Performance Audit of NCTD San Diego Association of Governments (SANDAG) – Recommendation 3: Work with SANDAG to develop digital database for storing NCTD right of way data. NCTD owns its rail right of way. As a result, NCTD must process entry requests, rail safety plans, and associated work plans. NCTD does not have digital files for current right of way. NCTD should work with SANDAG to leverage SANDAG’s robust GIS system to create a digital database. This would greatly improve the efficiency of the right of way permitting process. -3- June 2, 2016 FY2013-2015 Performance Audit of NCTD San Diego Association
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