TRANSPORTATION MANAGEMENT ASSOCIATION | IMPLEMENTATION & WORKPLAN Downtown Memphis Commission & Memphis Medical District Collaborative
Downtown Memphis & Medical District Transportation Management Association Implementation & Workplan
Public Review Draft – 09.29.2020
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Table of Contents Page 1 2 3
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Executive Summary ............................................................................................................ 1 Background ......................................................................................................................... 4 Understanding & Framework .................................................................................................................. 4 Vision & Goals............................................................................................................................................ 5 Organization Structure ........................................................................................................ 8 Evaluation Process...................................................................................................................................... 8 Preferred Organization ........................................................................................................................... 8 TMA Service Area ................................................................................................................................... 10 Implications for Existing Organizations ............................................................................................... 11 Administration .................................................................................................................. 13 TMA Staffing ............................................................................................................................................ 13 TMA Administration/Governance ......................................................................................................... 13 Third Party Options ................................................................................................................................. 15 Workplan .......................................................................................................................... 16 TMA Initiation............................................................................................................................................ 16 Strategies & Programs ........................................................................................................................... 17 Performance Measures ........................................................................................................................... 32 Next Steps......................................................................................................................... 34
Table of Figures Page Figure 1 Figure 2 Figure 3
Proposed TMA Implementation Timeline .............................................................................. 3 Central Business Improvement District Boundaries.............................................................. 9 Downtown/Medical District TMA Service Area ................................................................ 11
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1 EXECUTIVE SUMMARY The Downtown Memphis Commission (DMC) and the Memphis Medical District Collaborative (MMDC) have worked together over the past 18 months to evaluate the impacts of growth in their districts on parking, access, and mobility networks. Recognizing that current travel behaviors will create considerable new travel and parking demand as development continues, the DMC and MMDC seek to develop a transportation management association (TMA) to coordinate transportation demand management (TDM) efforts on behalf of the employers, employees, students, residents, patients, and visitors in their service areas. The day-to-day parking experience is a defining issue for the future of Downtown and Medical District growth, with many different uses and user groups competing for parking throughout the day. This geography contains more than 71,000 total parking spaces, split between on-street (7,500) and off-street (63,800) spaces, covering more than four square miles. This number of parking spaces includes publicly-owned, privately-owned but publicly accessible, and privatelyowned restricted-access spaces. There are many different entities controlling parking, including the City of Memphis, Downtown Mobility Authority (DMA), and a variety of private owners. Each has different patrons and needs that influence the number of available parking spaces. In particular, because on-street spaces are often the most convenient and cheapest parking spaces, demand for these spaces in the heart of Downtown and in the Medical District is very high, used by both long-term parking employees and short-term parking visitors and patients with appointments. Stakeholders have voiced concerns relative to the parking demands of employees, visitors, patients, students, and residents. Certain sections of the Downtown Parking Study Area, especially the Downtown Core, the Pinch/St. Jude, and the Medical District, expect to grow to levels that will exhaust the current parking supply under a “Boom” scenario, when assuming current usage trends and drive-alone mode share. Plans for new construction are not expected to provide enough supply to satisfy the existing and growing demand if this is the case. Amidst this context, the opportunity exists to establish a unified organization to increase the availability and viability of TDM options in Downtown Memphis and the Medical District. Creation of a one-stop mobility resource for employers, employees, and transportation providers could include: ▪
Formal employee on-boarding program with travel training and analysis for employees based on employee home locations and travel patterns
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“TDM Toolkit” for employers with clear implementation steps to begin TDM programs, such as a pre-tax commuter benefits program, discount bus passes, parking cash out, rideshare matching, emergency ride home programs, etc.
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Clearinghouse and resources to connect employers with emerging mobility platforms
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Centralized program and online portal for employee incentives
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Updated website, marketing, and messaging to be more interactive and dynamic
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A “certification” program for employers who provide TDM programs and services
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Expanded events that promote changes to established travel patterns and assist commuters interested in trying new travel options
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The TMA’s organization structure is a critical consideration when setting the path toward achieving the above mission, vision, and goals. This study reviewed several options with the Downtown Memphis Commission (DMC) and Memphis Medical District Collaborative (MMDC) and included conversations with community partners, including the Memphis Metropolitan Planning Organization (MPO), Memphis Area Transit Authority (MATA), Shelby County Health Department (Memphis Area Rideshare), Innovate Memphis (Commute Options), Greater Memphis Chamber, and the Tennessee Department of Transportation (TDOT). Each organizational option was assessed for its potential for effective TMA development, with the DMC’s Downtown Mobility Authority demonstrating the strongest results. The geographic boundaries of the TMA are another important consideration, with mission alignment, resource availability, and potential for impact factoring heavily in setting the appropriate service area. Deriving the TMA service area geography from an existing institutional context allows for alignment with the mission of both the DMC and MMDC. In the geography of the DMC and MMDC, the TMA would serve a familiar set of stakeholders, whose needs are wellestablished. With the recent and planned growth forecasted in these districts, the demand for transportation services will intensify. A TMA that concentrates its efforts in this service area stands to have a greater impact than one that is diffused more regionally. The administration of the TMA within the Downtown Mobility Authority (DMA) would be a combined function of existing and dedicated staff, the DMA Board of Directors, a TMA Advisory Committee, and potential third-party support. While existing DMC staff may be utilized to perform important administrative functions, such as human resources, accounting, and legal support, there is a clear need to increase staff capacity with dedicated transportation management personnel with special expertise and knowledge who can focus explicitly on TMA functions and program management. TMAs typically include a series of leadership, program management, and support staff. In some cases, depending on the role of the organization, additional positions can address explicit functions that include employee benefits management, parking operations, shuttle services, and other program specific functions. Parking operations and shuttle services may also be contracted to third-party firms rather than staffed in house. Implementation of the TMA will require a series of deliberate steps to formalize the organization, assemble resources, and begin operations. Several of these steps have already been completed or are in motion via this planning process. Others will take time to formulate and materialize. The following workplan outlines a detailed approach to TMA initiation and operation in years 1-3, followed by an overview of additional strategies and considerations that extend from years 4-10. The workplan includes the following components: ▪
TMA Initiation: Formalize the organization, establish the administrative structure, hire Director, create the Advisory Committee, and approve the TMA Workplan and budget.
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Strategies & Programs: Outline key strategies and programs the TMA will be responsible for in years 1-3 to address its mission, vision, goals, and objectives and hire program management support staff.
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Resources & Funding: Identify resources needed and potential funding sources to support the Year 1-3 strategies and programs.
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Performance Measures: Establish key performance indicators (KPI) to measure the effectiveness and impacts of TMA programs and services.
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Planning for Years 4+: Outline additional considerations for TMA sustainability and growth beyond Years 1-3.
Figure 1
Proposed TMA Implementation Timeline
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2 BACKGROUND UNDERSTANDING & FRAMEWORK Downtown Memphis and the Memphis Medical District are experiencing challenges with respect to travel and parking demand and both are projecting significant growth that will add to these concerns. Recognizing that current travel behaviors will create considerable new travel and parking demand as development continues, the DMC and MMDC seek to develop a transportation management association (TMA) to coordinate transportation demand management (TDM) efforts on behalf of the employers, employees, students, residents, patients, and visitors Downtown and throughout the Medical District. A variety of active efforts aim to provide travelers with transportation alternatives; however, the vast majority of commuters to Downtown are still choosing to drive alone to work. There are a number of existing organizations and agencies supporting the incentives, programs, and policies of a future TMA already in place and operating within Memphis, including: ▪
Downtown Memphis Commission (DMC) / Downtown Mobility Authority (DMA): A subsidiary of the DMC, the DMA has a unique role in convening stakeholders and advocating for mobility and parking improvements in Downtown Memphis, while also ensuring adequate parking to support Downtown growth.
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Memphis Medical District Collaborative (MMDC): MMDC’s Transportation & Mobility Program is focused on improving transportation and mobility options for travelers to and within the Medical District. The program includes mobility implementation planning and support for its member institutions, traffic calming and streetscape programming, the Groove trip planning and tracking platform, and the Groove Shuttle.
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Innovate Memphis / Commute Options: The Commute Options program has a citywide focus, but has largely focused on areas of high employment concentration, including Downtown and the Medical District, where it has worked in partnership with both the DMC and MMDC to engage employers and deliver programs and educational services to employers, employees, and students.
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Shelby County Health Department’s Air Quality Improvement Branch: Shelby County facilitates the Memphis Area Rideshare program, which provides a database, social network, and incentives for commuters to organize carpools and vanpools and obtain information about biking, walking, or taking transit to work. The program also offers Emergency Ride Home vouchers for up to six free rides per year.
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Memphis Area Transit Authority (MATA): MATA is the public transportation provider for the Memphis area, serving customers in the City of Memphis and parts of Shelby County on fixed-route buses, paratransit vehicles, and vintage rail trolleys. MATA is actively pursuing a number of opportunities to expand mobility as a service (Maas) options to travelers in Memphis, with a focus growing mobility options for all travelers.
The opportunity exists to coordinate existing and new efforts under an association whose primary charge is to deliver TDM programs and services to travelers in these districts. Each of these agencies has an important role to play in the association, but also has potential capacity or program/scope limitations that might preclude successful operation of targeted transportation management programs and services for Downtown Memphis and the Medical District. A more expansive review of existing programs, organizations, regulations, and other foundational context is provided in Appendix A: Project Understanding & Framework.
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VISION & GOALS The mission, vision, goals, and objectives for the planned transportation management association (TMA) will address the following questions: ▪
Mission: What is the guiding statement for the TMA’s approach to its work?
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Vision: What is the future condition that the TMA will bring about?
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Goals: What values guide this work? What are the desired outcomes?
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Objectives: What specific actions will enable the TMA to achieve these goals?
The following mission, vision, and goals were developed in collaboration with DMC and MMDC, drawing from their organizational priorities, recent planning work, and the aspirations of the TMA initiative. A more thorough overview of mission and vision development can be found in Appendix B Vision & Goalsetting.
Mission Statement The [insert name] TMA supports growth, community health, and economic vitality in Downtown Memphis and the Memphis Medical District by coordinating transportation demand management (TDM) efforts on behalf of employers, employees, residents, students, patients, and visitors and by providing equitable mobility options that connect people to jobs, housing, health care, education, entertainment, and other opportunities.
Vision The [insert name] TMA is a recognizable and invaluable resource, convening a diverse and committed base of members and stakeholders to facilitate a growing, healthy, equitable, and prosperous Downtown Memphis and Memphis Medical District that is connected and accessed by convenient and attractive multimodal options.
Goals & Objectives The TMA’s goals translate the vision statement into a series of desired outcomes that reflect the values and priorities of the organization and its partners. The goals address broad categories of outcomes, while the objectives include more specific outcomes that can be linked to specific strategies, tactics and performance measures. The following goals and objectives are proposed to guide implementation of the TMA and its near-term workplan:
Deliver effective TDM programs. The TMA will provide a suite of programs and services that support the travel needs of employers, employees, residents, students, patients, and visitors. ▪
Increase awareness and use of existing transportation programs and travel options.
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Provide a transportation information clearinghouse that is easy to understand and accessible to all travelers
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Increase number and capacity of TDM programs and services.
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Develop/expand tools to engage different user groups to deliver programs and services.
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Change travel behaviors. Effective TDM programs will facilitate a change in travel behaviors, decreasing the share of travelers who choose to drive alone, reducing demand on existing parking supplies, and mitigating traffic congestion and air quality challenges, while improving network function for those who must or choose to travel by automobile. ▪
Increase the share of non-single-occupancy vehicle workforce commutes to/from the TMA service area.
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Increase ridership on MATA and other public transit services.
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Increase use of Explore Bike Share and other micromobility options in the TMA service area.
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Increase the share of walking and bicycling trips within the TMA service area and to/from adjacent neighborhoods.
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Reduce carbon emissions related to travel in the TMA service area.
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Reduce/eliminate traffic-related deaths and serious injuries
Support investment, growth & development. Improving access and mobility options will support existing and new businesses, residents, employees, students, and visitors with more affordable travel options, while enabling greater development intensity. ▪
Enhance Downtown and Medical District appeal as a place to live, work, shop, visit, learn, and heal.
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Increase density and intensity of new development in Downtown and the Medical District.
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Inform and enable progressive planning and development policies and practices.
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Establish mobility as a valuable amenity and key tool to support investment and growth in the TMA service area.
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Promote and support neighborhood residential options for those who live in or travel to Downtown and the Medical District.
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Support neighborhood businesses with convenient and affordable local travel options.
Improve parking efficiency. Effective TDM strategies will help to ensure that existing parking facilities are capable of serving parking demand, promoting more dependable availability and reducing the need for expensive construction of new facilities. Additionally, greater utilization of existing parking facilities could generate additional revenue that can be invested in mobility programs. ▪
Provide enough parking to support growth, without over-building or over-burdening public and private partners.
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Optimize use of existing parking supply through shared parking strategies, public information, and utilization tracking.
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Establish and promote a “park once” Downtown and Medical District by encouraging local travel by foot, bike, or transit.
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Improve access to remote parking via park-n-ride or shuttle services.
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Support implementation of a performance-based parking management program for the complete network of on-street and off-street parking facilities.
Reduce transportation inequities. Increasing travel options and amenities will reduce barriers to access and mobility in these employment and amenity rich districts. ▪
Address the unique needs of different user groups through targeted programs and services.
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Reduce/remove barriers to program access and network accessibility for all users.
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Work with community partners to address gaps and increase program support to vulnerable/disadvantaged communities.
Support the implementation of approved community plans. The TMA will work to bring about the changes recommended by Memphis 3.0, the Downtown Master Plan, the Downtown Parking Plan, MATA’s Transit Vision, and other recent planning efforts, including community plans in and around the TMA service area that promote neighborhood connections and walkability. ▪
Lead implementation of the Downtown Parking Plan.
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Support implementation of BuildDowntown, the Downtown Memphis Master Plan.
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Support implementation of the Downtown Retail Strategy.
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Support implementation of the Memphis 3.0 Comprehensive Plan.
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Support implementation of MATA’s Transit Vision.
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Support planning and implementation of the Memphis Innovation Corridor
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Support additional transportation planning efforts that promote multimodal access and mobility in the TMA service area.
Maximize human and financial resource capacity. Through its coordinating function, the TMA will promote the effective and efficient use of scarce community resources in pursuit of a sustainable multimodal transportation system. ▪
Collaborate with existing mobility and TDM service providers to promote efficient delivery and reduce duplication.
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Support capacity growth of DMC and MMDC staff, fiscal, and other resources.
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Promote and support strategic investment in public and shared use parking facilities.
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Promote smart investment in public and private transportation network infrastructure.
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Steward responsible and efficient use of sponsor, member, and donor funds.
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Coordinate with partners on fundraising and other efforts to cultivate community support.
These goals and objectives are representative of the current understanding of priorities and desired outcomes, but they are adaptable and should be revisited on a regular (annual) basis by the TMA and its partners. The following sections will link the above mission, vision, goals, and objectives to recommendations for the TMA’s organizational structure, administration, and workplan. The goals and objectives, in particular, will be linked to strategies, programs, and performance measures that will serve as a road map for TMA implementation over the next several years.
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3 ORGANIZATION STRUCTURE EVALUATION PROCESS The TMA’s organization structure is a critical consideration when setting the path toward achieving the above mission, vision, and goals. This study reviewed several options with the Downtown Memphis Commission (DMC) and Memphis Medical District Collaborative (MMDC) and included conversations with community partners, including the Memphis Metropolitan Planning Organization (MPO), Memphis Area Transit Authority (MATA), Shelby County Health Department (Memphis Area Rideshare), Innovate Memphis (Commute Options), Greater Memphis Chamber, and the Tennessee Department of Transportation (TDOT).
The consensus among these partners is that a coordinated effort is worth pursuing to improve clarity, efficiency, and delivery of TDM programs and services. Based on these conversations, the framework of existing programs, organizations, and available resources, and the mission, vision, and goals described above, the following options were explored with the greatest potential for achieving the mobility and access goals of a Downtown/Medical District TMA in the near-term: ▪
Downtown Memphis Commission (DMC) / Downtown Mobility Authority (DMA) / Center City Development Corporation (CCDC)
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Memphis Medical District Collaborative
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Innovate Memphis / Commute Options
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New Organization
Each option was assessed for its potential for effective TMA development, with the DMC’s Downtown Mobility Authority demonstrating the strongest results. Additional detail on the rationale behind this assessment is contained in Appendix A.
PREFERRED ORGANIZATION The DMC is a partnership between local government and the private business community and was created by the City of Memphis and Shelby County to drive planning, redevelopment, place management, and marketing in the region’s economic, cultural, and governmental core. The DMC’s mission is “to improve the economy of Memphis and Shelby County by coordinating an aggressive public/private program to promote the redevelopment and economic growth of the Central Business Improvement District (CBID).” The CBID is funded by an assessment of commercial property within a defined “Downtown” geography (see Figure 2), which includes the Downtown Core, the North and South Districts, and the Medical District, and is the sole source of revenue for the DMC. The DMC is staffed by 14 employees, serving administrative, finance, planning, development, operations, and marketing functions.
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Figure 2
Central Business Improvement District Boundaries
Image Source: Downtown Memphis Commission
The Downtown Memphis Commission includes five (5) affiliate boards that share common goals, while serving varying functions and holding different powers. The boards promote coordination and efficiency by operating with a single office and staff. They include: ▪
Downtown Memphis Commission (DMC)
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Center City Development Corporation (CCDC)
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Center City Revenue Finance Corporation (CCRFC)
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Downtown Mobility Authority (DMA)
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Design Review Board (DRB)
The DMC plays a role in managing transportation in the Downtown area through its ongoing planning efforts and promotion of multimodal travel options, including walking, bicycling, and public transit. The Downtown Mobility Authority (DMA) has a unique role in convening stakeholders and advocating for mobility and parking improvements in Downtown Memphis, while also ensuring adequate parking to support Downtown growth. The DMA establishes parking policies and coordinates Downtown parking management, contracting with private parking companies for day-to-day operations, monitoring, and strategic planning. The DMA currently owns and/or manages eight public parking garages and can issue bonds for construction or acquisition of additional parking facilities.
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The DMC has a 43-year history and a broad base of support from both the public and private sectors. The organization has a dedicated and sustained source of funding that is not reliant upon philanthropic grants or voluntary contributions from members. Through the DMA, the DMC has added capacity to raise funds to support mobility projects and programming, thanks in part to the DMA’s recent shift in focus from parking to more expansive Downtown mobility. The DMC’s relationships with Downtown property owners, employers, residents, and visitors positions them well for the types of communications and program implementation that are required to facilitate comprehensive TDM programming. In addition, the CCDC, a non-profit community development corporation of the DMC, has the ability to offer a wide range of programs, direct incentives, and tools to promote economic development and commercial vibrancy in Downtown Memphis.
The DMC and its affiliated agencies have the characteristics of a comprehensive planning, development, communication, management, and marketing organization that provide a strong position from which to fulfill the core functions of a transportation management association.
TMA SERVICE AREA The geographic boundaries of the TMA are another important consideration, with mission alignment, resource availability, and potential for impact factoring heavily in setting the appropriate service area. Further, while some TMA programs and services will need “hard line” boundaries or limits, others may naturally extend beyond a predefined geography. In the case of the Downtown/Medical District TMA, the initial proposed service area should be a combination of the CBID geography outlined above and the MMDC service area. Figure 3, below, illustrates this geography, which extends from the Mississippi River (west) into the Medical District, and from the Wolf River (north) to French Fort (south).
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Figure 3
Downtown/Medical District TMA Service Area
Deriving the TMA service area geography from an existing institutional context allows for alignment with the mission of both the DMC and MMDC. In this geography, the TMA would serve a familiar set of stakeholders, whose needs are well-established. With the recent and planned growth forecasted in these districts, the demand for transportation services will intensify. A TMA that concentrates its efforts in this service area stands to have a greater impact than one that is diffused more regionally, as it will be able to target programs and services to the region’s most dense concentration of employers, residents, health care, and visitor destinations. Further, this geography has the benefits of Memphis’s most robust mobility assets, including transit service, bicycle and pedestrian facilities, and other network amenities. While dedicated resources enable the DMC and MMDC to serve these constituents today, the TMA will need to expand upon them to deliver a new level of TDM programming that has not been possible to date. These resource needs and potential opportunities are explored further in the Workplan section of this document (Chapter 5).
IMPLICATIONS FOR EXISTING ORGANIZATIONS One of the greatest benefits of a TMA is the coordination of existing projects, programs, services, and resources across multiple organizations. The DMC and MMDC should continue to collaborate
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on a range of existing efforts that serve their unique and shared constituencies, but can combine efforts to expand TDM offerings that make a greater impact. The same can be said for coordination between the TMA and other agencies who are providing valuable transportation or TDM services, including MATA, Shelby County, and Commute Options.
Downtown Memphis Commission / Downtown Mobility Authority The DMC will bear the most significant changes in the formation of the TMA, with added responsibilities and expanded programs and services coming under their organization. This will require additional staff and financial capacity (described further in the next two chapters) dedicated to the mission, vision, and goals of the TMA. Structurally, no significant moves would need to be made to facilitate this growth, but the DMA should formalize its new role as a TMA by adopting these formative principles and establishing a TMA Advisory Committee. Doing so would be in line with the recent transition from a “parking” to “mobility” focused authority and will include a review of existing budgets and use of funds (to be explored further in Chapter 5). The core functions and potential members of this Advisory Committee will be described further in Chapter 4. The CCDC can also play a key role in this work by providing targeted financial incentive programs for private entities and individual commuters as part of the DMA’s comprehensive strategy to encourage a shift to travel behavior and reduce parking demand.
Memphis Medical District Collaborative The MMDC currently operates significant TDM programming on behalf of its seven anchor institutions. Two staff members are dedicated to the organization’s Transportation & Mobility Program and should continue to offer dedicated service to MMDC’s members. Their added capacity and ability to focus on the unique needs of Medical District travelers will enhance the ability of the TMA to reach all audiences in the service area. The TMA will add a new “umbrella” of TDM programs and services to MMDC’s efforts that have thus far been unavailable. MMDC will be one of the primary partners in the TMA and should have a prominent role in the advisory committee that guides TMA priorities and decision-making.
Collaborative opportunities with other local/regional agencies The other organizations and public agencies who are providing TDM programming in Memphis will be valuable partners to the TMA and should continue to facilitate these programs in the nearterm. For the most part, these services are being offered at a broader citywide or regional scale, beyond the scope of the TMA service area described above. The TMA stands to amplify the delivery and impacts of these services within the TMA service area, thereby increasing the capacity of the existing efforts without requiring their host agencies to identify new resources. However, as TMA capacity grows and funding or organizational decisions are made at each of these agencies, they should coordinate to identify strategic opportunities to improve operational efficiency or service provision. As with MMDC, organizations like Innovate Memphis, and public agency partners like MATA, Shelby County, and the MPO should be considered as potential TMA advisory committee members.
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4 ADMINISTRATION The administration of the TMA within the Downtown Mobility Authority (DMA) would be a combined function of existing and dedicated staff, the DMA Board of Directors, a TMA Advisory Committee, and potential third-party support. The following section highlights the key roles and responsibilities of each.
TMA STAFFING While existing DMC staff may be utilized to perform important administrative functions, such as human resources, accounting, and legal support, there is a clear need to increase staff capacity with dedicated transportation management personnel with special expertise and knowledge who can focus explicitly on TMA functions and program management. TMAs typically include a series of leadership, program management, and support staff. In some cases, depending on the role of the organization, additional positions can address explicit functions that include employee benefits management, parking operations, shuttle services, and other program specific functions. Parking operations and shuttle services may also be contracted to third-party firms rather than staffed in house. Based on the roles envisioned for the TMA during the first three years of operations in Downtown Memphis and the Medical District, the following core positions are recommended: TMA Director The TMA Director would be the lead staff member of the organization and the primary liaison between the DMA Board, TMA Advisory Committee, TMA staff, DMC staff, and the broader community. The Director would be responsible for executing the TMA’s Workplan, managing the budget, cultivating financial and political support, grant applications, reporting to various constituencies, and directing additional TMA staff. Transportation Program Manager The Transportation Program Manager would report to the TMA Director and manage/coordinate core TMA programs and services. The Manager would lead and/or support key marketing, communications, and reporting roles between the TMA, its partners, and the community it serves; work closely with partners to execute TDM initiatives; identify and pursue funding opportunities; and provide other relevant support to the Director. Transportation Program Associate The Transportation Program Associate would report to the TMA Director and Transportation Program Manager and would be responsible for much of the on-the-ground program support, including marketing, communications, and events; data collection and reporting; and other relevant functions key to implementation of TMA initiatives.
TMA ADMINISTRATION/GOVERNANCE The DMA Board is comprised of seven members, chartered by the State of Tennessee, and appointed by the City of Memphis and Shelby County governments. This board will play an important role in the administration and governance of the TMA, including ensuring the TMA
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mission and vision align with those of the DMA, and directing existing DMA resources to support TMA functions. As the DMA Board is a pre-established body with limited flexibility, the DMC and MMDC should also establish an Advisory Committee to actively direct and oversee the TMA. This Advisory Committee should be comprised of representatives from key organizational and funding partners, as well as key constituencies of the TMA’s services, including employers, employees, and residents. The TMA Advisory Committee could include the following: ▪
Downtown Memphis Commission (DMC)
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Memphis Medical District Collaborative (MMDC)
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City of Memphis – Division of Planning & Development (DPD)
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Memphis Area Transit Authority (MATA)
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Shelby County Health Department – Air Quality Improvement Branch
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Memphis Metropolitan Planning Organization
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Tennessee Department of Transportation – Air Quality Office
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Innovate Memphis – Commute Options
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Greater Memphis Chamber
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Downtown Mobility Authority (DMA)
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Center City Development Corporation (CCDC)
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Employer Representative (Medium-Large)
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Employer Representative (Small-Medium)
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Employee Representative(s)
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Resident Representative (Downtown)
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Resident Representative (Medical District)
Representation on the Advisory Committee would be voluntary, and limited-term positions could either be appointed by key agencies or open to public applications. Additional criteria can be established to promote equity goals, including ensuring representation from different economic, demographic, age, and ability groups. Subcommittees can also be established to offer additional oversight and guidance in key areas, including: ▪
TDM Programming
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Commuter Services
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Active Transportation
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Parking Initiatives
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Fundraising
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Data & Reporting
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Marketing & Outreach
At the onset, the TMA should focus on establishing a well-rounded, active, and engaged Advisory Committee to drive the key TMA initiation steps outlined in the next chapter. Additional committee structure can be added, as needed, as the TMA evolves.
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THIRD PARTY OPTIONS In addition to the roles that key TMA partners will continue to perform in the provision of TDM programs and services in Memphis, the TMA may also enlist the support of a third-party management or planning consultant to help shape, launch, and manage its operations. This relationship can be customized to suit the needs of the TMA, but could include general program development and administration or a more specific focus on delivery of specific programs and services. As the project partners proceed with TMA initiation, they should consider options for third-party support to help launch and/or sustain the TMA’s operations.
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5 WORKPLAN Implementation of the TMA will require a series of deliberate steps to formalize the organization, assemble resources, and begin operations. Several of these steps have already been completed or are in motion via this planning process. Others will take time to formulate and materialize. The following workplan outlines a detailed approach to TMA initiation and operation in years 1-3, followed by an overview of additional strategies and considerations that extend from years 4-10. The workplan includes the following components: ▪
TMA Initiation: Formalize the organization, establish the administrative structure, hire Director, create the Advisory Committee, and approve the TMA Workplan and budget.
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Strategies & Programs: Outline key strategies and programs the TMA will be responsible for in years 1-3 to address its mission, vision, goals, and objectives and hire program management support staff.
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Resources & Funding: Identify resources needed and potential funding sources to support the Year 1-3 strategies and programs.
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Performance Measures: Establish key performance indicators (KPI) to measure the effectiveness and impacts of TMA programs and services.
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Planning for Years 4+: Outline additional considerations for TMA sustainability and growth beyond Years 1-3.
TMA INITIATION The TMA initiation stage starts with the affirmation of the work completed to date throughout this study. Initiation includes the formalization of the TMA as an organization, establishment of its administrative structure and staff, approval of a workplan and budget, fundraising, and hiring. For the purposes of this Workplan, it is assumed that TMA initiation will take place prior to “Year One” of TMA operations.
Formalize the TMA within the Downtown Mobility Authority The first implementation step involves formalizing the TMA within the Downtown Mobility Authority (DMA). This does require adjustments to the bylaws of the DMC or DMA to establish a new program or division. The TMA should be documented in writing to create the proper avenue for administrative setup, staffing, resource procurement and allocation, and program development.
Amend DMA Board / Establish Advisory Committee While structural amendment of the DMA Board would be challenging, opportunities to fill openings with representative who are familiar with TMAs and/or TDM efforts should be pursued. More importantly, establishing the TMA Advisory Committee as a subcommittee of DMA, as described in Chapter 4, will set the stage for the remaining initiation steps, each of which will be critical to implementation and ongoing success of the TMA.
Adopt Mission, Vision, & Goals The first task of the newly formed Advisory Committee will be to review, amend, and adopt the TMA’s mission, vision, and goals. Both the composition of the Committee and their consensus
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around these formative statements and aspirations are critical to ensuring that the TMA meets the needs of the partners who will lead it and the community that it serves.
Review and Approve TMA Workplan The Advisory Committee will next review the draft Workplan, ensuring alignment with adopted goals and objectives. The Workplan will guide the near-term function and operations of the TMA, identify key strategies, programs, and services that the organization will lead, and inform resource and budgetary needs. With the TMA employing a Director/TMA Coordinator, their first action will be to review the draft Workplan and priority programs based on available funding and staff skillsets.
Adopt Budget & Identify Resources Once the Workplan has been established, the Advisory Committee will finalize and adopt a preliminary Year One budget to guide resource development and fundraising. In coordination with DMC and MMDC staff, the Advisory Committee will identify resource and funding opportunities and assist, to the extent possible, with procuring support for Year One TMA operations.
Hire Staff / Third-Party Support With initial funding in place, the TMA should hire a Director and additional Program Management and/or Associate support, as resources allow. The TMA may elect to hire fewer fulltime staff at launch and during the first year of existence as programs ramp up and supplement its capacity needs with third-party, consultant support. It is fully anticipated that staff currently working on TDM programs at MMDC and Commute Options would be integrated into the TMA within the first 12-24 months. With a Workplan and staff in-place, the TMA will be positioned to begin implementation of its initial strategies and programs. The following section describes a series of initial opportunities.
STRATEGIES & PROGRAMS As described previously, several transportation demand management (TDM) strategies and programs are already being implemented in Memphis. As such, a number of the following initiatives can be pursued prior to the formal establishment of the TMA. In fact, the initial focus of the TMA should be to heavily market and support the continuation of existing TDM programs and services conducted by Commute Options, MMDC, MATA, and the Shelby County Health Department while their funding remains in place. As the TMA matures, program participation and offerings can expand and some of these functions may transition to new entities, including the TMA. It is anticipated that the existing “Groove� program within MMDC would continue to operate within the Medical District as a subsidiary program of the TMA in part due to the existing marketing success and the specific operations of the Medical campus partners. The table in the Appendix C identifies tiered projects, programs, and services that can be led by the TMA, with partner support, as well as those that can be operated by partner organizations, employers, and/or property managers, with support from the TMA. Each identified program also includes descriptions of the following characteristics:
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Alignment with established goals and objectives
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Intervention type (operational/physical)
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Supporting partners
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Cost to implement
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Potential effectiveness at reducing vehicle trips or greenhouse gas emissions
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Year of implementation
The following list of strategies and programs aims to address the multitude of factors that affect travel decisions, including information, awareness, and availability of options, travel costs and pricing, convenience and safety, and land use contexts. The list is not exhaustive, nor is it meant to convey opportunities that will be feasible for the TMA to implement during its first three years. However, it should convey a fairly comprehensive “menu” of options for the TMA to consider. The table in the appendix identifies tiers of programs that should be prioritized before others.
Provide Transportation Information The TMA should serve as a leading provider of information to its service partners, participating employers, employees and other travelers on issues ranging from transportation conditions, service availability, local regulations, and transportation opportunities. By being the clearinghouse of travel advice and support services, TMAs influence transportation conditions by informing and educating a broad audience of employers, developers, public officials, commuters, and customers about transportation challenges and strategies that support travel choice. Marketing and outreach support of transportation alternatives and program offerings is a key ongoing strategy of any TMA, and is the top priority of the TMA once initiated. Commute Options, MMDC, MATA, and Shelby County each spend a portion of their funding on engagement with stakeholders to promote their services and advocate for increasing the use of transit, carpooling, bicycling, and walking to work. Recognizing the outsized importance of information as a resource, TDOT guidelines for CMAQ funding allow TMAs to continue to receive funding eligibility for education and marketing activities after five years, even though startup and operations funding is no longer subsidized. Marketing of TDM programs requires an understanding of consumer needs and preferences, crafting appropriate materials, consensus building, and promoting the most useful information. The TMA and its partners should employ targeted campaigns and ongoing dialogue with the community, public officials, employers, and service providers as employee turnover occurs. Strategies and programs include: A.1 One-stop website with TDM information The TMA can merge existing DMC, MMDC, and Commute Options webpages to provide updated information on all transportation components, including parking management and TDM programs as new elements become operational. This updated website should be released within the first year of the TMA and provide up-to-date information on any of the following TDM programs as they become established: ▪
Public parking facility locations, rates, and options, including options for electric vehicles and car seats
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Real-time transit information, such as that provided by MATA, and other shuttle services
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Micro-mobility vehicle locations, parking guidelines, and subsidized rates
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Ride-hailing information and subsidized rates for shared rides
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Local neighborhood walking and bike maps
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Links to regional TDM programs such as Memphis Rideshare, vanpool programs, and emergency ride home options.
A TMA website may also include other transportation content such as commuter challenges and promotional events (e.g. Bike to Work Day), commute tracking tools, and links to individual commute marketing services. With additional planning and resources, the TMA could create and manage a mobile app to deliver TDM program information seamlessly to employees, residents, and visitors. A.2 Annual Commute Challenge event Partnering with transit agencies, social service agencies, neighborhood groups, individual residential buildings, the local business community, senior centers, and health care providers to promote new transportation services can help broaden public exposure, especially among transitreliant individuals. Commute challenges and other semi-annual events—including mobile workshops and shared/open streets events—raise awareness towards new transportation options and programming. The TMA should continue hosting annual events that are currently sponsored by MMDC and Commute Options. Additional events could include Try It Days (to encourage new mode choices) or Meet your Match events (to bring together employees interested in carpooling or vanpooling to meet each other). A.3 Provide individual travel training Transit systems can be intimidating and seem complicated to new riders or potential riders. Employees of the Medical District and Downtown may be overwhelmed with navigating route maps and schedules, option to drive instead. Continuing the work of Commute Options and MMDC, the TMA can work with individual employers to create a customized report with transportation options and potential solutions, depending on contribution level. TMA staff can also provide “Lunch and Learn” sessions or Mobility Concierge services to educate employees on how to use and optimize various commute options. A.4 Conduct Employee Commute Surveys Commuter surveys are essential in understanding existing commuting patterns, finding out whether employees have the ability to shift to a different commute option, identifying preferences for alternative modes or arrangements, and identifying transportation motivations and barriers. The TMA, working with MMDC, should cConduct a baseline survey that includes commute mode, distance, hours, challenges, barriers, parking location (if applicable), parking cost (if applicable), and preferences related to a second-choice mode. ▪
Conduct follow up annual surveys to gauge customer satisfaction, receive feedback on programs offerings, program implementation, and incentive levels, or understand receptiveness to potential strategies.
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Analyze survey results to inform strategy mix and impact on behavior change, mode split, and VMT reductions.
A.5 Real-Time Transit/Transportation-Service Tracking Display Install mobility screens, such as TransitScreen, that provide real-time information on parking availability, transit arrivals and departures, and bikeshare in the lobby of major office, residential, or institutional buildings.
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Commuter Incentives or Benefits Programs Financial incentives are one of the most effective methods for influencing travel behaviors. Commuter benefits programs targeted at employees can be used to encourage the use of more sustainable modes of travel, including transit, walking, and biking. Employers – working with the TMA, Commute Options, and/or MMDC – can establish rules by which employees can qualify for financial incentives, such as logging and tracking commute trips to win prizes. Over time, the level of subsidy, the eligibility, and the number of participating employers can expand. In more urban areas, these benefits programs can encourage more use of transit or walking, whereas ridesharing becomes more common in suburban communities. These tools can help reduce transportation inequities and change travel behaviors. Strategies and programs include: B.1 Free or Subsidized Transit Passes Free or subsidized transit passes can increase residents’ or employee’s awareness of nearby transit options and can reduce the financial barrier by making it a more cost-comparable option between the cost of public transportation and the cost of parking. Especially for residents of affordable units or for low-income employees, this strategy can improve transit use, equity, mobility options, and further reduce the need for owning a car. The TMA can offer residents and employees of Downtown and the Medical District free or subsidized monthly FastPass cards, if they do not receive a separate subsidy from the workplace (currently some of the Medical District anchors do provide transit subsidies) or residential property manager. See Strategy G.2 (Support Transit Subsidies) for a description of employersponsored transit passes. Income eligibility limits can be set, based on a percentage of area median income. The TMA can pilot a low-income reduced fare program for the entire MATA service area. The TMA should partner with MATA, human service providers, hotel associations or unions, and institutional culinary service providers to market the availability of subsidized passes. The TMA can offer passes for six months at a time to encourage mode shift and should track the number of trips, demographics, and hotspot locations of distributed passes. B.2 Employee Parking Cash-out Employees who choose to give up their employer-provided parking spaces can be offered an equivalent payment that can be used to pay for transit or vanpool fares, to pay for bike purchases or maintenance, or be kept as cash. This strategy can be pursued as an alternative to charging for parking, should that it be proven infeasible. Cash-out can be implemented in conjunction with unbundling parking costs to make alternative modes more attractive compared to driving alone and parking. Parking supply and utilization monitoring completed by the TMA can determine the potential cost savings for institutions open to offering the benefit. The TMA can develop eligibility requirements for employers, including how often a parking spot must be foregone to receive the benefit. B.3 Mobility Wallet Mobility Wallets are a monthly credit provided to employees or residents for spending exclusively on transportation and can be used for any mode, including bike share, car share, transit, vanpools, personal bicycle repair, or parking. Providing a flexible stipend, rather than a specific transit pass, maximizes employees’ and residents’ transportation options by using a wider range of mobility services to meet a wider range of travel needs, and maximizes the chance of choosing
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non-driving options. The added flexibility allows employees and residents to choose the sustainable option that best suits their travel need at any given time, which may vary according to trip purpose, time of day, or other factors. Mobility wallets improve equitable access to the transportation system by making sustainable mobility options available at little to no cost for people with lower incomes, who are less likely than the average Downtown employee to have access to a personal vehicle. The TMA can promote the mobility wallet program to new residents or new employers through welcome packets, website materials, and other outreach activities. The TMA is responsible for monitoring the effectiveness of the program through its broader data collection/monitoring plan. B.4 Carpool Incentives Carpool incentive programs are a popular way to increase participation rates and include a full range of programs from preferred parking, subsidized parking to fiscal rewards for “poolers”. Assigning parking spots in premium locations to vehicles that are used in carpool and vanpool programs. The more visible and desirable these parking spot assignments are, the better! Visibility increases awareness and gets more people interested in participating. In Washington D.C. Pool Rewards is a program of Commuter Connections designed to encourage current drive alone commuters to try carpooling. If eligible you can earn $2 per day ($1 each way) for each day you carpool to work over a consecutive 90-day period. The maximum incentive for the 90-day trial period is $130 in exchange for going online and logging information about your new commute and for completing surveys about the experience.
Support Alternative Work Arrangements Alternative work arrangements can reduce peak-period commute travel causing congestion and help accommodate ridesharing and transit use. Telecommuting, which has grown exponentially during the current “stay-at-home” response to the COVID-19 pandemic, may become a more viable and accepted alternative work arrangement for more of the workforce. The TMA can advocate for flexibility in human resources policies, educate with successful examples, and provide resources and training for employers and employees to make the shift to these alternative arrangements. Strategies and programs include: C.1 Promote Telecommuting and Telework Support Telecommuting allows employees to work from home or another off-site location. It can be a permanent work option, but is typically done a few days a week in most companies or institutions. Telecommuting can provide flexibility to both the employer and employee, as well as reduce parking demand and the need for on-site workspace. For positions who could easily support working from home, which should be made clearer with COVID-19-related shutdowns, the TMA should encourage participating employers to revise and adopt formal human resources policies. Key elements should include: ▪
Consistent guidelines, such as employee eligibility and days allowed per week/month.
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Security and IT protocols
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Employee review protocols to ensure that telecommuters work performance is consistent, effective, and not a deterrent to departmental operations.
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Performance review processes and promotion criteria to identify and remove any bias for or against telecommuters.
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Management training for department leads to ensure consistent implementation across different departments and teams.
A question on the annual commute surveys could help identify employees who would like to telecommute but cannot do so currently. C.2 Promote Flexible Work Schedules Flexible scheduling, such as compressed work weeks, where employees work fewer but longer days (such as four 10-hour days or 9-hour days with one day off every two weeks), can reduce the total number of trips taken, thereby also reducing emissions, and can reduce the daily parking demand. HR guidelines and policies can be amended, similar to telecommuting. C.3 Advocate for On-Site Daycare Childcare and the need to pick up children is a major barrier for many in choosing an alternative to driving for commuters. On-site childcare reduces the need to make additional trips to other locations and reduces the concern to have a vehicle for emergencies.
Provide Bicycle Network Amenities Shifting from driving and parking to bicycling can reduce traffic congestion, road maintenance costs, and carbon emissions, and can increase public health. Programs promoting bicycling can benefit travelers of all income levels and can help reduce transportation inequities. Bike facilities include on- and off-street lanes and paths, as well as end-of-trip facilities where riders can park their bike in secure locations and clean up before reporting to their job or other destination.
The Association of Pedestrian and Bicycle Professionals (APBP) publishes industry standard guidelines for bicycle parking, bicycle facilities, and pedestrian facilities that should be observed during new development. Showers and lockers should be provided in new buildings for bicycle commuters in proportion with the observed bicycle commuter rates at institutions. Strategies and programs include: D.1 Install Additional Bicycle Parking (both outdoor and indoor bike racks or lockers) Investments in trip-end infrastructure should be prioritized to meet increasing demand and to encourage active transportation as a priority commute mode to their workplace or medical institution. New facilities should not only provide a safe, secure space for parking, but also incorporate and/or easily connect with showers and locker rooms. The TMA, with MMDC (such as one Dr. MLK Jr. Avenue), can work with facilities departments at medical institutions or major office buildings, to identify additional locations for indoor bike parking and lockers. Bike parking is most effective when placed near building entrances in visible, well-lit locations. Effective bike racks include inverted U racks or post and ring racks. Vertical and double-decker racks are most suited for use inside a bike room or cage. Demand and site prioritization can be determined through employee surveys. D.2 Install Bicycle Repair Station Compact bike repair stations can be purchased through manufacturers who also sell bike racks. These bike repair stations act as a stand to support the bike during repair. The repair stations also include an air pump and several tools to perform basic bike maintenance when needed. The TMA can facilitate installation at major employment locations, bicycle trails and transit centers. The commute platform can include discount offers or vouchers at local repair shops as rewards for logging bicycle commutes.
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D.3 Explore Bike Share Station Explore BikeShare provides an easy and accessible way for employees and residents to travel to, from, and around Downtown Memphis and the Medical District. Bike share supports bike commutes, shorter, midday trips, and first- and last-mile connections to transit. The Medical District, The Edge, and Uptown have fewer station locations than the core of Downtown. Locating another station can extend the reach of this option for many. Potential locations include north of Poplar Ave near Le Bonheur or the VA Medical Center, next to Southwest Tennessee Community College, and next to The Tennessee College of Applied Technology. The TMA or participating employers and institutions can support expansion as a corporate sponsor or station sponsor.1 D.4 Subsidize Bike Share Membership The TMA can offer one-time and ongoing enrollment incentives such as free helmets, biking gear, or one-time free memberships under the same eligibility criteria as discount transit passes. Bikeshare system use should be included as a mode option in a commute platform to ensure that trips are logged, incentivized, and rewarded. Some Medical District anchors do offer subsidized memberships to employees. D.5 Showers, Changing Facilities, and Lockers For people traveling 5+ miles to work, having a shower available is really important to encouraging bicycle use. In Memphis, the nature of the development and the location of existing employment results in many potential bike commuters traveling 5+ miles to work. Providing basic lockers for employees to store their items is an important and affordable way to support people to commute to work or school by bike. When considering lockers for professional offices and work places, choose a design that accommodates daily professional attire as well as a secure area for damp/wet bicycling clothing. The more thoughtful the locker/shower area design, the more employees may be encouraged to bicycle to work. D.6 Advocate for and Support Planning of New, City-Approved Bicycle Path TMAs, as well as providing programs and services, are also advocates for multimodal improvements such as bicycle paths and trails. TMA staff can provide planning support and outreach programming through their member and partner connections. D.7 Other Bicycle Programs (Skills and Safety Training, Valet, etc.) Other programs, including as bike skills and safety training to encourage cautious but curious potential bike commuters, can increase the percentage of commuters who choose to ride. The TMA can partner with local bicycle shops and clubs, such as the Revolutions Bicycle Cooperative, to host events or provide information about courses to interested employees. Workshops can include topics like: ▪
Safe route planning and wayfinding
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Skills and riding etiquette
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Basic bike maintenance
More information about station sponsorship opportunities can be found at: https://cdn01.bcycle.com/libraries/docs/librariesprovider72/sponsorship/2020_stationsponsor.pdf?sfvrsn=51dd29c5_ 2 1
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Potential attendees can self-identify within annual commute surveys or on a commute platform like RideAmigos.
Provide Pedestrian Network Amenities Akin to providing bicycle amenities, supporting pedestrian commutes by making the walking environment more safe, comfortable, and interesting can reduce vehicle trips and emissions and promote health outcomes. Complete streets, ground floor activation with storefronts and landscaping, and accessibility improvements are generally led by public agencies, but programs like MMDC’s Streetscape Improvements demonstrate the opportunity for the TMA to advocate, fundraise, and otherwise support implementation in priority locations and help planning efforts by identifying key issues and opportunities. Strategies and programs include: E.1 Wayfinding/Signage/Lighting Clear and consistent wayfinding, signage, and branding can help guide visitors, residents, and employees to the transportation options most suitable for their travel needs. The key objective of this strategy is to ensure that all residents, employees, and area stakeholders directed to coherent, easy-to-find, and well-organized sources of information so they can make informed travel decisions. The first objective of wayfinding, therefore, should be to reinforce information provided to drivers before they arrived, and direct them to their preferred mode, whether via a parking facility or micro-mobility station/hub. At the same time, effective wayfinding can provide visual information that suggests transportation options, and guides drivers toward their “right fit� options, even if they knew nothing of these options before arriving. A comprehensive wayfinding scheme requires up-front investment in infrastructure and technology and a commitment to maintenance and consistency in communications after the program is implemented. A wayfinding and branding program typically include both static and dynamic signs that have a consistent set of colors, fonts, and directional cues reflective of the character of the neighborhood. This visual identity can extend to smartphone apps and websites that describe transportation options, detail parking costs and regulations, and lay out where parking, transit, bike, and pedestrian facilities are located. Getting the private sector to adopt the new approach will likely require changes to signage regulations and/or incentives. The role of the TMA is to set the wayfinding, signage, and branding standards for Downtown and the Medical District, invest in physical displays where appropriate, create district-wide maps and parking/transportation guides, and coordinate with property managers and developers to ensure this information is broadcast effectively across all relevant channels. The TMA should begin by creating a master base map, then provide assistance to individual property managers for them to tailor this base map for installation on their sites. E.2 Streetscape Improvements That Improve Walking Conditions: Site Access Employees and downtown visitors indicated during the Downtown Parking Study that safety and weather are often a barrier to more walking or walking from more distant parking lots. The TMA can work with the DMC and MMDC to identify and evaluate critical walking gaps around institutions and major employers, with particular attention to interstates and mid-block crossings between parking facilities and visitor entrances. This program would expand the current program within the MMDC which has included Monroe Avenue, Manassas Street and MLK Jr. Avenue.
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E.3 Streetscape Improvements That Improve Walking Conditions: Traffic Calming In partnership with the City and County, the TMA can collect, map, and utilize collision and traffic data to identify hot spots for safety improvements like curb extensions at crosswalks, midblock pedestrian signals, retiming traffic signals for leading pedestrian intervals, lowering speed limits, etc.
Promote Environmentally Responsible Vehicle Commuting Services like rideshare, carpool, vanpool, and guaranteed ride home are already in place through MMDC and Shelby County programs. The TMA can promote and coordinate these services in the near-term, with a focus on the Downtown and Medical District geographies, while considering options to sustain or expand programming as funding opportunities arise. In addition, the TMA can work to increase the use of car share through the siting of additional vehicles and subsidizing memberships. These programs increase travel choices and affordability for commuters and other travelers and can reduce per capita vehicle mileage. Strategies and programs include: F.1 Car Share Parking Carsharing is a service that provides a network of cars that are rented by minute, hour, or day. Carsharing provides the mobility of a car without the expense of car ownership. The provision of carshare parking within parking structures or on-street is critical to enabling a carshare program to be successful. F.2 Vanpool Program Vanpools are like carpools—they consist of a driver and passengers with similar commute origins and destinations. However, the similarities end there since vanpools accommodate four to 15 passengers and must use a vehicle that has at least seven available seats. Vanpools are also considered transit by the federal government and vanpool participants can pay for their vanpool ride with a transit benefit. Shelby County currently operates this program within the region. Vanpools are most cost effective when they start at least 15 miles or more from their destination. The pricing for the van depends on the number of riders and the distance they are traveling. F.3 Car Share Membership Car-sharing service is a fee-based membership service, subject to a membership agreement, that provides all qualified drivers in the community access to a fleet of vehicles and is available to subscribers 24 hours a day, 7 days a week, 365 days per year at unattended self-service locations. TMAs through partnerships with carshare companies can offer discounted membership fees for TMA partners. F.4 Guaranteed Ride Home Guaranteed Ride Home (otherwise known as GRH) provides commuters who regularly (twice a week) carpool, vanpool, bike, walk or take transit to work with a free and reliable ride home when one of life’s unexpected emergencies arise. GRH is designed to rescue commuters who are worried about how they’ll get home when an emergency arises. Knowing there’s a guaranteed ride home allows one to use commuting options like transit and carpools with peace of mind and confidence.
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Commuters may take advantage of GRH up to an agreed number of times per year to get home for unexpected emergencies such as a personal illness or a sick child. GRH can also be used for unscheduled overtime when your employer mandates that you must stay late. The TMA should continue the GRH eligibility from the Shelby County and MMDC programs, reevaluating guidelines after twenty-four months. F.5 Rideshare Matching Ridesharing means two or more persons traveling together in an automobile or van. Ridesharing benefits include fuel cost savings, wear and tear on roads, reducing traffic congestion, HOV lane access, overall expense saving by minimized driving, reduced pollution and greenhouse gas emissions. Rideshare matching services enable commuters to find other individuals who want to carpool or vanpool and share similar commute routes and work hours. F.6 Install EV Chargers and Preferred Parking for Green Vehicles� Installing electric vehicle chargers in parking facilities and as well as designating parking spaces as preferred parking for green vehicles should be undertaken. Clearly identify and enforce for sole use by green vehicles. Distribute preferred parking spaces proportionally among various parking sections (e.g. between short-term and long-term spaces). Green vehicles must achieve a minimum green score of 45 on the American Council for an Energy Efficient Economy (ACEEE) annual vehicle rating guide.
Support Transit Network Improvements Transit improvements in line with the Memphis Transit Vision can improve the quality, reliability, and convenience of MATA service, increasing service speed, ease of access, and ridership to Downtown Memphis and Medical District employment and other destinations. While network improvements, such as bus route realignments, adjustments to service spans, and construction of park-and-rides must be implemented by MATA or local government agencies, the TMA can encourage bus ridership by offering discounted fare programs, investing in improved stops and stations in key locations, and improving rider information. Strategies and programs include: G.1 Shuttle/Connector Bus Service Resources can be combined to cost-effectively connect TMA member locations to transit stations or major residential area via shuttle services. The cost of these shuttles can be shared among participants. Member organizations can elect to establish new shuttles and/or connect to an existing shuttle route. G.2 Transit Subsidies (including discount passes offered by employers) An effective way for employers to promote the use of public transportation is to offer transit passes for sale at the worksite. The TMA can assist employers and/or sell the transit passes themselves (as in Strategy B.1). Employees can purchase transit passes with payroll deduction in pre-tax dollars and the employers can offer further discounts with subsidies of transit passes. The TMA can help determine the amount of the subsidy or allowance keeping in mind the maximum tax-free amount set by the IRS every year. G.3 Transit Improvements Successful TMAs develop and implement programs and services that are both needed and valued in a community. As the TMA becomes an asset to the community, stakeholders are more likely to
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fund TMA efforts. There is increasing community awareness of TMAs and the important role they play in transportation planning. TMAs are the conduit between local businesses/ communities and city, regional, and state agencies, voicing concerns about access and mobility issues for their respective areas. TMAs have a history around the world of being the impetus for improved transit service, increased use of alternative transportation, bicycle and pedestrian education, and infrastructure improvements.
Support Smart Parking Management Charging employees for parking, ideally daily, provides revenue and cost recovery for participating employers, encourages more efficient use of parking facilities, reduces daily vehicle traffic and parking demand, and encourages the use of alternative modes. In addition, a coordinated approach to district parking management and development, facilitated by a central organization like the TMA, can improve parking system utilization and efficiency and reduce the supply needed to meet the needs of these growing districts. Strategies and programs include: H.1 Facilitating Shared Parking Agreements (within public facilities and with private facilities and privately-owned facilities and private businesses) Shared parking agreements are a common tool for property owners to expand their effective parking capacities, when their need is at peak. Such agreements can be arranged between property managers whose parking needs peak at divergent times and/or days of the week. More often, owners whose parking needs are greatest during evenings and weekends seek an agreement with a nearby owner whose parking needs are minimum to non-existent at those times – with the former owner usually not able to offer any meaningful contribution toward meeting the latter’s peak parking needs. The TMA can help facilitate these agreements by brokering between potential partners to share parking resources and provide technical assistance or example agreements for private actors. Agreements should address liability, location, security and enforcement, utilities, maintenance, signage, insurance, termination of agreement and use of facilities (number of spaces shared and hours of sharing). H.2 Unbundle Parking The cost of constructing and maintaining the parking provided at new developments is rarely directly paid for by its end users, the employees and residents who use the spaces. Commercialspace occupants all pay for parking, through higher lease rates, affecting their operating costs, and thus the wages they can pay and/or the prices they must charge to stay in business. When parking is provided for free and baked into lease costs, it puts transit at a competitive disadvantage when employees, residents, or visitors make trip planning decisions. Making parking an optional, fee-based amenity is a simple means of leveling the costs associated with travel choices. By ensuring that the cost of parking is paid for by those that use it and based on how much of it they use, the total demand for parking spaces can be reduced and mode shifts may occur. Unbundling parking facilitates a more accurate assessment of parking demand, by removing the inflationary impact of free parking. H.3 Price Parking An effective way to reduce vehicle trips and parking demand is to charge employees for the parking space they occupy, ideally on a daily basis to reduce a sunk cost bias and maximize
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employee flexibility. Fees can vary by facility to encourage use of spaces with more availability. The TMA can convene stakeholders and facility managers across Downtown and the Medical District to encourage paid parking coordination. H.4 Preferred Parking for Carpools and Vanpools Dedicated nearby spaces for carpool or vanpool vehicles can be placed in premium spaces close to entrances, under shelter from weather, or near staircases/elevators in garages and can serve as visible advantages to the commute option. The TMA can assign these spaces in DMA garages and encourage participating employers to do the same in their own parking facilities. Enforcement may require use of a commute platform and logging trips as a carpool or vanpool to avoid ticketing.
Other Programs and Services The TMA’s coordinating role begins with its Advisory Committee, but it can also extend to working groups and resource development opportunities that respond to the unique needs of different groups of traveler groups. The TMA can perform a vital role as data collection, management, and reporting agency for Downtown and Medical District a host of transportation and mobility indicators. Additional programs that require a change in land uses and development projects to support a more walkable and bikeable environment cannot necessarily be led by the TMA directly. However, the TMA can advocate for more location-efficient development patterns that consist of residential, commercial, and retail development co-located and designed to maximize accessibility of essential services and goods reduce auto-dependency and increase affordability. Strategies and programs include: I.1 Institute a Transportation Management Working Group There is a role for a focused Transportation Management Working Group, not currently performed by any existing transportation organization. The role includes developing sub-regional consensus priorities for the TMA, especially in the allocation of federal and state funds. The group can focus on major transportation markets and traffic movements, and on helping the Memphis metropolitan area speak with one voice in discussions of regional transportation prioritization issues and financial resources. I.2 Coordinate Fundraising The TMA can act as an advocacy entity who can assist with outreach and planning support as well as coordinating fundraising platforms for program and infrastructure enhancements. I.3 Implement a Unified Commute Platform The TMA should manage a single, consolidated trip management platform for the TMA service area, extending the use of the RideAmigos platform by the MMDC and Commute Options. Commute platforms work by acting like a “Fitbit” for employee travel behavior. Logging and tracking commutes empower employees to make more informed and cost-effective travel choices and empower the TMA to incentivize lower emission modes. Trip management platforms allow for private networks (such as for individual residential developments, individual employers, or individual Medical District institutions) to be set up if desired, along with designated “network managers” such as building supervisors or on-site TDM coordinators. However, having a larger trip management platform is recommended because it
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makes ride-matching for carpools and other programs easier, increasing participation on the platform. Commute Platform Core Elements are: ▪
Commute calendar, allowing employees to log and track their trips.
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Payroll/HR Integration, allowing staff to streamline administration of transit passes, parking payments, and incentives.
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Incentives, gamification, and rewards, allowing staff to provide virtual, point-based, or direct cash for non-SOV commutes.
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Parking pricing and daily parking charges, connecting with existing and future parking access control and enforcement equipment and software. A commute platform will manage parking rules, rates, charges and credits, eligibility, and track other transportation/mobility assets. Therefore, the platform will need an employee roster file, single sign-on (SSO) for users, and payroll integration.
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Carpool matching, allowing employees to connect with others to share a ride.
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3rd Party App Integration, allowing employees to utilize third-party mobility apps (i.e. Lyft, Strava, public transit apps, etc.) to track their commute performance.
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One-stop shop for commuter information, which could include the TMA website, trip alerts, and announcement.
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Data feeds, providing TMA staff with ongoing data for multiple modes.
If the TMA expands access to the trip management platform, its responsibilities include the following: ▪
Identify some multimodal trip planners that meet community criteria, and conduct community-relevant promotion and outreach to increase adoption of these tools.
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Work with a commute management platform such as RideAmigos, Luum, Commutifi, or Rideshark, to expand service in Memphis, facilitating connections between the platforms and Downtown or Medical District property owners/managers.
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Work with platform to automate parking administration and customer processes to the greatest extent possible in order to transition to paid daily parking, charging employees only on the days they drive to work.
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Conduct community-relevant engagement/promotion to increase adoption.
For maximum effectiveness, the TMA should ensure that the widest possible range of transportation options are electronically synched with the trip-tracking platform. I.4 Data Collection, Management, & Reporting A robust monitoring program of employee commuting habits that allows the TMA to adjust offerings and incentive levels over time is key to the success. Monitoring will allow the TMA to better understand the effects and effectiveness of different measures on travel behavior and determine how programs are meeting the needs of residents and visitors. The objectives of an annual monitoring program are: 1.
To measure progress towards achieving all-day trip vehicle reductions to/from and throughout the TMA service area; and
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TRANSPORTATION MANAGEMENT ASSOCIATION | IMPLEMENTATION & WORKPLAN Downtown Memphis Commission & Memphis Medical District Collaborative
2. To pool the collective results of the various TDM strategies with suitable performance metrics, identifying the most and least effective TDM measures, so that the former can be strengthened and the latter can be replaced or significantly improved. Through a TMA-housed Transportation Program Manager, develop and analyze commuter surveys and monitoring to determine program effectiveness and opportunities for improvement. Performance Measures are identified later in the Workplan.Resources & Funding The resources and funding needed to implement the TMA’s core programs and services during Years 1-3 will be subject to validation and confirmation by the DMC, MMDC, and TMA Advisory Committee. The following section outlines the key elements that will be needed to support critical early TMA functions. Staffing & Administration The TMA should hire at least one full-time staff person to support launch and development of early programs and services. The TMA Director should have organizational leadership and project management experience. They should be familiar with TDM principles and have the interpersonal skills needed to initiate and grow relationships with key partners. Depending on the preferences of the Advisory Committee, the TMA should hire up to two more initial staff to fill Program Manager and Program Associate positions. Alternatively, the TMA may elect to fill staff capacity needs through a contract relationship with a planning, management and/or operations consultant. Existing staff at MMDC and Commute Options would continue to work on current programs before the integration of both staff and programs into the TMA. The TMA should also consider the need for office space and supplies and administrative support services to cover key functions, including accounting, human resources, and legal services. Ideally, these can be provided as in-kind services from the DMC. Program/service costs The 3-year Budget table included as Appendix D provides a draft outline of budget areas, estimates, and potential sources. There are a vast number of potential funding and revenue sources available for a variety of programs and services. Potential funding sources ▪
Downtown Mobility Authority – PILOT Extension Fund & Debt Service Proceeds
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Tennessee Department of Transportation (TDOT) – Congestion Mitigation and Air Quality Improvement (CMAQ) Program
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TMA Advisory Committee – Public Agency Member Contributions
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Center City Development Corporation (CCDC) – Program Budget
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Downtown and Medical District Employers – Partner and Member Fees
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Corporate and Philanthropic Partners – Sponsor and grant support
Downtown Mobility Authority Under the existing legislation the Downtown Mobility Authority (DMA) can provide funding for all programs associated with parking such as marketing and education. Additionally, the Center City Development Corporation (CCDC) and Center City Revenue Finance Corporation (CCRFC) are able to provide financial incentives for mobility either directly or through the various stakeholders within Downtown. With the proposed broadening of the Parking Authority Act via
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TRANSPORTATION MANAGEMENT ASSOCIATION | IMPLEMENTATION & WORKPLAN Downtown Memphis Commission & Memphis Medical District Collaborative
legislative action, additional funds to/from the Downtown Mobility Authority (DMA) could be used for programs others than for the parking and storage of vehicles. Congestion Mitigation and Air Quality Program Because Memphis is an air quality “maintenance” area, the region is eligible for Congestion Mitigation and Air Quality Improvement (CMAQ) funding, which is coordinated by TDOT. CMAQ is a viable source for supporting TDM and TMA initiatives. As recently as 2016, TDOT awarded more than $7.1 million to seven TDM projects across the state, including Innovate Memphis’s Commute Options program and the Memphis Area Ride Share program. Consolidating and coordinating this source of funding can be a significant resource for the future TMA. Public Agency Contributions As TMAs often mitigate congestion in key activity centers, facilitate public involvement and assist local jurisdictions in meeting overall transportation goals, local jurisdictions often set aside funds to support TMAs. Some cities, such as the City of Aspen, set aside parking revenues to help fund transportation alternatives. Other jurisdictions support TMAs by providing start up funds or special project funds to support innovative transportation alternatives such as a local circulator. Furthermore, some city and county governments are implementing development requirements to assist in mitigating the traffic impacts of future developments. These funds can provide additional revenues for TMAs. Additionally strong partnerships with developers enable the provision of funding and in-kind support to the TMA for both specific projects and services that benefit new residents, employers and employees. Partner and Member Fees The most accepted way to fund TMA programs is through membership dues. The dues are usually calculated, based on the number of employees. For example, an employer with 100 employees may be assessed a $500 annual fee, while an employer with 1,000 employees may be assessed a $1500 annual fee. TMAs that rely primarily on membership dues often represent vibrant public and private partnership organizations. At the same time, these TMAs are dependent on recruiting and retaining members, a process that can be very time-consuming. Specific fee by type of member is a structure based on a general membership category (e.g., employers, developers/property owners, local governments, nonprofit groups, business associations, etc.). This is an important distinction because TMAs offer different services and benefits to different kinds of groups. Some TMAs generate income from fee-for-service initiatives, which can be an important source of private funding. TMAs can use this arrangement to fund services that go beyond general membership services. Examples of services could include: conducting worksite employee surveys, developing customized trip-reduction plans, implementing a comprehensive telework program, and developing a parking management plan. The TMA could also offer some or all of these services to non-members at higher fees. Grant Support Few TMAs are able to support operation expenses such as shuttles and vanpools, demonstration projects or conduct special planning studies from general revenues. Instead, TMAs generally fund these services and activities through public grants and private contributions from employers and developers. Some public agencies offer grants for delivery of specific services, such as ridematching. The support can be provided as cash or in-kind donations. In other cases, public agencies contract with a TMA to perform services, such as bus pass sales and promotions. Public
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TRANSPORTATION MANAGEMENT ASSOCIATION | IMPLEMENTATION & WORKPLAN Downtown Memphis Commission & Memphis Medical District Collaborative
agencies also provide one-time grants, often funded through developer impact fees, other traffic mitigation funds, or tax revenues earmarked for transportation programs. Because the sources of these grant funds often restrict their use, most of these grants are used for planning or evaluation studies, purchasing capital equipment (e.g., shuttle buses), or marketing. Service operation grants are typically given for a short demonstration period rather than for ongoing operation. Private & In-Kind Contributions and Sponsors Employers, developers, merchants, and other businesses can also be sources for funding services. Contributions from private groups primarily take one of three forms: direct cash contributions, sponsoring of events or subsidies to employees or patrons through purchase of passes or other vouchers. Employers and developers can also fund special studies. Many TMAs also receive in-kind contributions from members, public agencies, business groups, and others. In-kind contributions can include: office space, furniture, equipment, postage, printing, clerical and professional services (legal, accounting, graphic design), and TDM planning assistance (local governments). Maximizing the use of in-kind services and donations aid in reserving cash resources.
PERFORMANCE MEASURES Identifying the right performance measures is key to setting a baseline and tracking how well TMA programs, policies, and incentives are working over time. Measures should be: ▪
Comprehensive – data should reflect economic, social, and environmental impacts of multiple transportation modes
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Consistent – comparable data collected in the same way and reported in the same way year after year, with the goal of tracking progress and identifying trends
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Available – drawn from existing data generated from core activities to the largest extent possible
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Timely – collected on a regular basis and routinely updated
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Reported – data must be recorded and shared with participating partners, service operators, and employers
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Useful – data collected and reported should be easily-understood and meaningful in helping inform progress and potential adjustments to programs, policies, and incentives
Many of the engagement and participation measures are already required to be tracked as part of the CMAQ application process for TDOT grantees. These counts of marketing, educational, and enrollment are already tracked by TMA partners, but the TMA should examine its role in coordinating this effort, in addition to measuring its own program outcomes. Besides engagement and participation data, successful TMAs need to collect a number of additional data points relative to transportation network and traveler behavior. Two data points from employers and their employees are particularly important: 1.
The percentage of employees who use a particular mode of transportation on their commutes (mode share).
2. The travel origins and, therefore, distances, of employee commutes.
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The best way to gather mode split and travel distance data is to administer an annual survey that asks employees how they get to and from work each day, as well as other questions about commute habits and propensity to choose alternatives. This annual commuter survey can also be used to gauge interest in potential incentives or programs offered by the TMA. A question about parking locations helps TMA staff learn other details for facilities management and the implementation of policies such as preferred parking, paid parking, or parking cash out. The survey can be administered by the TMA, by a partner like MMDC or Commute Options, by the enrolled employers themselves, or by a third-party pollster. Results, beyond informing grant applications or measuring progress, can be used to highlight successes in marketing materials. A growing range of cities and employers are using commute management platforms to track travel behavior of residents and employees and use targeted incentives to reward non-driving trips. Commute management platforms typically include trip/commute tracking, multimodal trip planning, and incentive/gamification tools. Some platforms are oriented to commuters and employers, while others target residents and their more locally oriented, discretionary trips. The MMDC uses the RideAmigos platform to administer its transportation programs. Additional performance measures that relate to the TMA’s goals, objectives, strategies, and programs are identified in the following Table of Performance Metrics in Appendix E. The TMA may choose to provide this monitoring and reporting as a coordinated service to its members, but this is not required. The annual report to the City should also include a brief aggregated summary of the TDM measures that were in place across the district during the preceding year, with an explanation of effectiveness, and any changes or new programs. Any new or ongoing performance or operations issues of the TDM programs reported by users should also be addressed in this report. The TDM Coordinator would be responsible for administering this report.
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TRANSPORTATION MANAGEMENT ASSOCIATION | IMPLEMENTATION & WORKPLAN Downtown Memphis Commission & Memphis Medical District Collaborative
6 NEXT STEPS This section will highlight critical next steps that should be taken by the local partners and supporting agencies to establish the TMA and begin implementation of the Workplan.
1.
DMA makes a determination to incorporate TDM strategies into their toolkit per the parking study recommendations. DMA decides that a TMA Committee is needed to focus on the work.
2. DMA creates a TMA subcommittee and fills the seats with relevant partner agency representatives. TMA meets monthly or at some appropriate frequency. 3. DMA could begin spending its resources towards implementing TDM strategies directly related to staffing, planning/data collection/research, and shared parking. 4. CCDC will be asked to establish and fund a grant program(s) that allows direct subsidy/incentive to commuters and private companies. 5.
The TMA committee would provide quarterly updates to DMA, CCDC, and DMC.
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