FINAL REPORT MAY 2019 City of Modesto Triennial Performance Audit FY 2015/16 - 2017/18 moore & associates City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report Table of Contents Chapter 1: Executive Summary ........................................................ 01 Chapter 2: Review Scope and Methodology ..................................... 05 Chapter 3: Program Compliance ...................................................... 09 Chapter 4: Prior Recommendations ................................................. 15 Chapter 5: Data Reporting Analysis ................................................. 17 Chapter 6: Performance Analysis ..................................................... 19 Chapter 7: Functional Review .......................................................... 37 Chapter 8: Findings and Recommendations ..................................... 49 Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report This page intentionally blank. Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report Chapter 1 Executive Summary In 2018, the Stanislaus Council of Governments (Stan COG) selected Moore & Associates, Inc., to prepare Triennial Performance Audits of itself as the RTPA and the four transit operators to which it allocates TDA funding. Moore & Associates is a consulting firm specializing in public transportation. Selection of the consultant followed a competitive procurement process. The California Public Utilities Code requires all recipients of Transit Development Act (TDA) Article 4 funding to complete an independent audit on a three-year cycle in order to maintain TDA funding eligibility. Audits of Article 8 recipients are encouraged. The Triennial Performance Audit is designed to be an independent and objective evaluation of the City of Modesto as a public transit operator, providing operator management with information on the economy, efficiency, and effectiveness of its programs across the prior three fiscal years. In addition to assuring legislative and governing bodies (as well as the public) that resources are being economically and efficiently utilized, the Triennial Performance Audit fulfills the requirement of PUC Section 99246(a) that the RTPA designate an entity other than itself to conduct a performance audit of the activities of each operator to whom it allocates TDA funds. This chapter summarizes key findings and recommendations developed during the Triennial Performance Audit (TPA) of the City of Modesto’s public transit program for the period Fiscal Year 2015/16 through Fiscal Year 2017/18. The City of Modesto operates Modesto Area Express (MAX), which is comprised of seventeen local fixed- routes and two commuter routes. The local service operates within the Modesto Urbanized Area and Salida. Service is available on weekdays from 5:45 a.m. through 9:30 p.m., Saturdays from 7:15 a.m. through 9:00 p.m., and Sundays from 8:45 a.m. through 8:15 p.m. The service does not operate on designated holidays. Riders may connect with Modesto ACE Express, Modesto BART Express, Stanislaus Regional Transit (StaRT), Amtrak, and Ceres Area Transit (CAT). The City operates two commuter bus services: Modesto ACE Express and Modesto BART Express. The ACE service provides three trips in the morning from Modesto's Vintage Faire Mall park and ride to the Lathrop/Manteca Altamont Commuter Express and four return trips in the evening. The BART service operates five round trips between the Modesto Transit Center and the Dublin/Pleasanton BART station. Both services operate on weekdays only. The City also operates Modesto Area Dial-A-Ride (MADAR), a door-to-door, curb-to-curb demand- response service available to registered seniors and qualified disabled residents. Trips are provided on a first-come, first served basis. Requests for service may be made the day before or up to seven days in advance. 1 Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report This performance audit was conducted in accordance with generally accepted government auditing standards. Those standards require the audit team plans and performs the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for its findings and conclusions based on the audit objectives. Moore & Associates believes the evidence obtained provides a reasonable basis for our findings and conclusions. This audit was also conducted in accordance with the processes established by the California Department of Transportation (Caltrans), as outlined in the Performance Audit Guidebook for Transit Operators and Regional Transportation Planning Entities. The Triennial Performance Audit includes five elements: Compliance requirements, Follow-up of prior report recommendations, Analysis of program data reporting, Performance Audit, and Functional review. Test of Compliance The City of Modesto met the test of compliance with respect to all Transportation Development Act (TDA) regulations. Status of Prior Recommendations 1. Include additional locally generated revenue in the farebox recovery and TDA fiscal audits. Status: Implemented. 2. Refine performance standards for the transit service. Status: Implemented. 3. Pursue Short Range Transit Plan update. Status: Implemented. Findings and Recommendations Based on discussions with City staff, analysis of program performance, and an audit of program compliance and function, the audit team presents no compliance findings. Moore & Associates has identified one functional finding. While this finding does not affect TDA compliance, we feel it is significant enough to be addressed within this audit: 1. The City needs a comprehensive SRTP with a five- to ten-year planning horizon. 2 Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report Program Recommendations In completing this Triennial Performance Audit, Moore & Associates submits the following recommendations for the City of Modesto. They are divided into two categories: TDA Program Compliance Recommendations and Functional Recommendations. TDA Program Compliance Recommendations are intended to assist in bringing the operator into compliance with the requirements and standards of the TDA, while Functional Recommendations address issues identified during the audit that are not specific to TDA compliance. Given there are no compliance findings, only functional findings and recommendations are presented below. Exhibit 1.1 Summary of Audit Recommendations Functional Recommendations Importance Timeline Prepare a comprehensive Short-Range Transit Plan 1 Medium FY 2020/21 with a five- to ten-year planning horizon. 3 Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report This page intentionally blank. 4 Moore & Associates, Inc. | 2019 City of Modesto Triennial Performance Audit, FY 2015/16 - FY 2017/18 Final Report Chapter 2 Review Scope and Methodology The Triennial Performance Audit (TPA) of the City of Modesto’s public transit program covers the three- year period ending June 30, 2018. The California Public Utilities Code requires all recipients of Transit Development Act (TDA) funding to complete an independent review on a three-year cycle in order to maintain TDA funding eligibility. In 2018, the Stanislaus Council of Governments (StanCOG) selected Moore & Associates, Inc., to prepare Triennial Performance Audits of itself as the RTPA and the four transit operators to which it allocates TDA funding. Moore & Associates is a consulting firm specializing in public transportation. Selection of the consultant followed a competitive procurement process. The Triennial Performance Audit is designed to be an independent and objective evaluation of the City of Modesto as a public transit operator. Direct benefits of a Triennial Performance Audit include providing operator management with information on the economy, efficiency, and effectiveness of its programs across the prior three years; helpful insight for use in future planning; and assuring legislative and governing bodies (as well as the public) that resources are being economically and efficiently utilized. Finally, the Triennial Performance Audit fulfills the requirement of PUC Section 99246(a) that the RTPA designate an entity other than itself to conduct a performance audit of the activities of each transit operator to which it allocates TDA funds. This performance audit was conducted in accordance with generally accepted government auditing standards. Those standards require the audit team plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for its findings and conclusions based on the audit objectives. Moore & Associates believes the evidence obtained provides a reasonable basis for our findings and conclusions. The audit was also conducted in accordance with the processes established by the California Department of Transportation (Caltrans), as outlined in the Performance Audit Guidebook for Transit Operators and Regional Transportation Planning Entities, as well as Government Audit Standards published by the U.S. Comptroller General. Objectives A Triennial Performance Audit has five primary objectives: 1. Assess compliance with TDA regulations; 2. Review improvements subsequently implemented as well as progress toward adopted goals; 3. Review the accuracy