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University Microfilms International 300 North Zeeb Road Ann Arbor, Michigan 48106 USA St. John's Road, Tyler’s Green High Wycombe, Bucks, England HP10 BHR 7824592 GLACEL# BARBARA PATE A POLICY a n a l y s i s OF REGIONAL TRANSIT AUTHORITIES IN MASSACHUSETTS. THE u n i v e r s i t y OF OKLAHOMA, P H .D ., 1978 UniversiV M iodnlm s International s o o n , z e e b r o a d , a n n a r b o r , m i 4 s io 6 0 1978 BARBARA PATE GLACEL ALL RIGHTS RESERVED i THE UNIVERSITY OF OKLAHOMA ■ . GRADUATE COLLEGE I I • A POLICY ANALYSIS OF REGIONAL TRANSIT AUTHORITIES IN MASSACHUSETTS A DISSERTATION SUBMITTED TO THE GRADUATE FACULTY in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY BY BARBARA PATE GLACEL Norman, Oklahoma 1978 A POLICY a n a l y s i s OP RÉGIONAL TRANSIT AUTHORITIES IN MASSACHUSETTS APPROVED BY DISSERTATION COMMITTEE ACKNOWLEDGMENTS For the past three years during which time this study gradually grew from the germ of an idea to complete fruition, many individuals have contributed their time, thoughts, and inspiration to the final out­ come, The product as presented here, however, is completely the author's own, and the author bears full responsibility for the contents. It would be impossible to recognize everyone individually who has been of assistance, so I take this opportunity to say a general thank you to all those who aided me in my research. Specific thanks must be directed to the following. The American Association of University Women who awarded me the Charlotte Wyatt Endowed Fellowship which enabled me to complete this work during the 1977-1978 academic year. Without their generous assistance my task would have been more burdensome and less timely. My advisors. Professors Hebert, MacNiven, Morgan, Scheffer, Tharp, Altshuler, and Colcord, who directed this work. Particular thanks must go to David Morgan and Ted Hebert who patiently read each chapter and offered criticisms for revisions and improvement. Special thanks go to Alan Altshuler of the Massachusetts Institute of Technology and Frank Colcord of Tufts University who agreed to serve on an inter-university dissertation committee. These men generously contributed much time, talent, and expertise in the field of transportation. Officials at the Massachusetts Executive Office of Transportation and Construction who allowed me access to their offices, their records, and assisted me in my research. Particular thanks go to Daniel Brand, Karla Karash, Murray Gintis, and Adrienne Marvin. Administrators of the regional transit authorities who gave of their time and talents in answering many questions and providing much in­ formation. Particular thanks go to Jim O'Sullivan, Lou Perachi, and Terry Tornek. The typist, Jill Jones, who patiently and expertly assisted in revision after revision. On a personal note, I must give the greatest thanks to three in­ dividuals who have inspired me, supported me, and kept me going when the end seemed out of sight. My Mother, who is the epitome of a successful businesswoman and mother, has had a profound influence on my life and iii ambitions. My husband has allowed me the freedom to pursue my own goals. And my daughter, who has sacrificed many precious moments with Mommy even in her brief two years of life. Thank you all. IV TABLE OF CONTENTS Page LIST OF ILLUSTRATIONS vil LIST OF TABLES viii Chapter I. MASS TRANSIT POLICY 1 Problems and Policy Policy-Making Regionalism Mass Transit Policy in Massachusetts Conclusion II. POLICY ANALYSIS 4? Approaches to Policy Analysis Systems Analysis Methodology III. MASSACHUSETTS GENERAL LAW 161-B 75 Legislative History Analysis IV. THE REGIONAL TRANSIT AUTHORITY 137 RTA Formation RTA Operations Inter-Governmental Relations Analysis of RTA Operations Conclusion V. THE REGIONAL TRANSIT AUTHORITIES— A CLOSER LOOK 190 Pioneer Valley Transit Authority Lowell Regional Transit Authority Berkshire Regional Transit Authority Conclusion Page VI. A QUANTITATIVE ANALYSIS OF REGIONAL TRANSIT AUIHORITY OPERATIONS 258 Evaluating the Hypotheses Comparative Analysis of RTA Operations Conclusion VII. CONCLUSION 293 Stimulus Constituency Inter-Governmental Relations Decision-Making Goals Effects Recommendations BIBLIOGRAPHY 308 Articles Books Unpublished Works Public Documents and Reports Appendix 332 A. INDIVIDUALS INTERVIEWED 332 B. QUESTIONNAIRE TO ADVISORY BOARD MEMBERS 338 G. RELATED UNSUCCESSFUL TRANSPORTATION BILLS INTRODUCED 3^2 D. MAP OF REGIONAL TRANSIT AUTHORITIES 3^4 E. TEXT OF CHAPTER 161-B 346 F. LIST OF ABBREVIATIONS 371 VI LIST OF ILLUSTRATIONS FIGURE Page 1.1 The Urban Mass Transportation Invest­ ment Process 20 3.1 A Systems Application of the Passage of General Law 161-B 108 4.1 Local Area Transportation Development Program Plan 148 4.2 Functional Planning and Operational Diagram for Massachusetts Regional Transit Authorities I5 I 4.3 Regional Transit Authority Organiza­ tional Chart 162 4.4 A Systems Application of the Regional Transit Authority Operations 1?4 5.1 Pioneer Valley Transit Authority 194 5.2 Lowell Regional Transit Authority 216 5.3 Berkshire Regional Transit Authority 240 vix LIST OF TABLES TABLE Page 3.1 Association of Roll Call Vote by Region, H 267 of 1972 124 3.2 Association of Roll Gall Vote, by Region, H 7576 of 1973 126 3 .3 Association of Roll Call Vote by Region, H 7575 of 1973 127 3 .4 Association of Roll Call Vote by Region, Senate, H 7576 of 1973 128 3.5 Association of Roll Call Vote by Region, Senate, H 7575 of 1973 128 3.6 Key to Regions for 1972 and 1973 Vote Analysis of RTA legislation in the Massachusetts House of Representa­ tives and Senate 129 4.1 The Formation of Massachusetts Region­ al Transit Authorities 142 6.1 Government Support for RTA-Area Public Transportation Services 265 6.2 Tax Rate Effect on Selected RTA Com­ munities 271 6 .3 Scope of Service Index for Massachu­ setts Regional Transit Authorities 277 6.4 Transportation Needs Index for Massa­ chusetts Regional Transit Authori­ ties 279 6.5 Transit Mobility Index Ranking for Massachusetts Regional Transit Authorities 280 V l l l TABLE Page 6.6 Performsuice Standards Index for Mass­ achusetts Regional Transit Author­ ities 284 6.7 Cost-Benefit Index for Massachusetts Regional Transit Authorities 28? IX A POLICY ANALYSIS OF REGIONAL TRANSIT AUTHORITIES IN MASSACHUSETTS CHAPTER I MASS TRANSIT POLICY In the past decade, mass transit systems In the United States have been examples of several trends of governmental policy. In the first place, the government has taken a positive interest in providing services to the population and hence has allocated substantial amounts of money to public transportation systems. Second, in view of the de­ cline of services available, the government has become directly involved in the operation and/or ownership of such services through public author­ ities. And third, the government has emphasized regionalism in plan­ ning and operation, even in the absence of regional institutional struc­ tures. Academic literature on transportation has increased since 19^0 owing to the widening interest in the field and to the emergence of trans­ portation as a topic relevant to both public administration and political science. It addresses the areas of* l) planning, particularly multi-modal planning, traffic and passenger forecasting, modeling, and quantification techniques^; 2) technology, concerning state-of-the-art innovations, ^See, for example, Frank E. Horton, Jordan Louviere, and David 1 often referred to as space-age technology, and engineering designs and innovations^; 3) land use, urban development, zoning, and the decaying urban environmout^ ; 4) economics and the acceptance of free fare versus the user charge philosophies^; and 5) highways, still a high priority in P. Reynolds, "Mass Transit Utilization: Individual Response Data Inputs," Economic Geography. 49 (April, 1973)1 PP* 122-133; Edward S. Alcott, "Innovative Approaches to Urban Transportation Planning," Public Admin­ istration Review.