Polk Transit Consolidation and Transition Plan
Prepared for:
Polk Transportation Planning Organization 330 West Church Street Bartow, FL 33830 www.polktpo.com
Prepared by:
Tindale-Oliver & Associates, Inc. 545 North Broadway Avenue Bartow, FL 33830 Phone: (863) 533-8454
May 2012
TABLE OF CONTENTS
SECTION 1:
CONSOLIDATION AND TRANSITION PLAN DEVELOPMENT ............................. Consolidation and Transition Plan Approach ........................................................... Consolidation and Transition Plan Major Tasks and Milestones ...............................
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SECTION 2:
CONSOLIDATION PLAN GOVERNANCE STRUCTURES ..................................... Governance Structures ............................................................................................ Staffing Analysis ......................................................................................................
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LIST OF FIGURES Figure 1: Figure 2: Figure 3: Figure 4: Figure 5:
Polk Transit Consolidation and Transition Plan ............................................................. Status Quo Model .......................................................................................................... Polk Transit Authority (Independent Transit Authority) .................................................. Polk Transit Service Area .............................................................................................. Polk Transit Contracted Service ....................................................................................
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LIST OF TABLES Table 1: Table 2:
Consolidation and Transition Plan Implementation Schedule ........................................ NTD Staffing Analysis....................................................................................................
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SECTION 1 CONSOLIDATION AND TRANSITION PLAN DEVELOPMENT This report includes the Consolidation and Transition Plan for all transit services in Polk County, including Citrus Connection, Winter Haven Area Transit (WHAT), and Polk County Transit Services (PCTS) to the Polk Transit (PT) board. The approach used in developing the plan is briefly described, and an implementation matrix and schedule for execution of Consolidation and Transition Plan tasks is provided. In addition, the implementation matrix notes task responsibilities and due dates for activities in the Plan. CONSOLIDATION AND TRANSITION PLAN APPROACH The Consolidation and Transition Plan presented here sets the course of action for achieving the establishment of a dedicated transit funding sources and a new consolidated governance structure. A timeline and schedule have been prepared that will guide the execution of recommended Consolidation and Transition Plan tasks. Two different tracks were developed for the plan. The first track provides tasks to guide the transition to a new funding source and a new consolidated governance structure and a second track which provides guidance on consolidation efforts between the three transit systems and the two operating agencies. Consolidation and Transition Plan items can be generally summarized into the following four categories:
Major Tasks and Milestones – These represent significant achievements in the plan process and generally consist of completion or achievement of one or more previous major tasks, sub-tasks, and/or milestones in order to complete.
Sub-Tasks – Sub-tasks are consistent with one of the major tasks indicated and reflect some of the major components to be accomplished within the corresponding major task.
Alternative Funding Models – Various alternative funding models/contingencies are provided in the event that the recommended dedicated transit funding source is not secured. Flow charts for each of these alternatives are provided.
Transit Service Outcomes – Two possible outcomes resulting from the implementation of the governance structures presented and consist of service expansion and transit service within available funding.
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Each major task of the Consolidation and Transition Plan is described in the following section. Recommendations also are provided that will guide the execution of each of the activities in the plan. A matrix outlining task-by-task due dates and responsibilities also is provided. Figure 1 presents a flow chart for Consolidation and Transition Plan activities. In that figure, task categories are distinguished by color. The Consolidation and Transition Plan activities are discussed in detail on the following pages. CONSOLIDATION AND TRANSITION PLAN MAJOR TASKS AND MILESTONES TRACK:
Transition
Task/Milestone 1: MAP-21 Legislation Approval, June/July 2012 MAP-21 legislation includes an allowance for transit agencies operating in large urbanized areas that operate fewer than 100 vehicles in maximum service to use a portion of their FTA 5307 Urbanized Area formula grant funds for operations. This is significant in that both of the urbanized areas in Polk County, the Winter Haven Urbanized Area and the Lakeland Urbanized Area, exceeded the population threshold in the 2010 Census of 200,000 persons for use of the 5307 grant funds for operations. Under the legislation, agencies operating 75 vehicles or less during their peak service hours could use up to 75 percent of their 5307 funds for operations. Those agencies operating 76–100 vehicles during their peak service period are eligible to use up to 50 percent of their grant funds for operations. Implementing the entire Needs Plan would require less than the 75-vehicle threshold, which is a positive outlook for use of the 5307 grant funds through the planning horizon of the TDP. Service expansions and financial planning beyond the 2022 TDP planning horizon will have to be reassessed based on the MAP-21 legislation. Task/Milestone 2: My Ride Completion, July/August 2012 The My Ride effort is considered the roadmap that will guide the consolidation of transit services in Polk County, the improvement and expansion of transit services, and the transition to a dedicated local funding source and a new transit governance structure in the county. Specifically, the My Ride effort will result in the two major components, the Consolidation and Transition Plan included in this section and the TDP service plan. The My Ride effort is the culmination of months of public outreach and technical analyses, and the service plan will be used to help facilitate the voter education and marketing campaign that will be part of the referendum process.
Consolidated Transit Development Plan FY 2013 – FY 2022 Consolidation and Transition Plan
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Consolidated Transit Development Plan FY 2013–FY 2022 Consolidation Plan
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Task/Milestone 3: Voter Education/Market Campaign Process, January 2013 The voter education and market campaign plan developed for the pursuit of a successful referendum should be deployed as early as possible. To run an effective ballot issue in Polk County, it is recommended that the campaign process begin 20 to 24 months prior to the date of the referendum. The campaign strategy consists of two parts: (1) an education and information campaign developed and run by PT and, if this issue will be placed on the ballot, (2) an advocacy campaign that must be run by a Political Action Committee (PAC), as defined by Florida Election Law. PT can use public dollars to develop transit plans and proposals that would benefit from new funding, conduct survey research, and determine if and when to go on the ballot. Once the decision is made to put a transit funding referendum on the ballot, however, the campaign must be run using a PAC that is set up in Polk County. Both campaigns must be carefully coordinated to ensure that all campaign activities, expenditures, and communications are done properly and efficiently to educate or advocate to key groups and voters. It is recommended that a political consultant work to manage the coordination of the campaign, in conjunction with PT. Task/Milestone 4: Sales Tax Referendum, November 2014 Approval by a majority vote of the county’s electorate is required to levy the Charter County and Regional Transportation Authority Local Option Sales Tax. Referendum language needs to be approved by the Board of County Commissioners, and it is recommended that this occur six months prior to the referendum date. A successful sales tax referendum at the levels recommended in the financial plan section of this report will ensure for future growth and expansion of transit services in Polk County. Task/Milestone 5: Initiate Final Transit Authority Transition and Consolidation, December 2014/ January 2015 Once the sales tax is approved, final efforts to transition and consolidate capital and staff should be performed. PT is anticipated to be the umbrella agency, retaining ownership of facilities, vehicles, and all other capital and will be responsible for all of the administration, planning, and operation of the fixed-route transit services in the county. Consequently, policies, procedures, budgets, and ownership of assets should be phased to the PT if possible. Any interlocal agreements needed for temporary or long-term use and sharing of facilities should be prepared for approval by the appropriate governing boards. A staffing analysis has been provided to provide guidance to the PT in regard to appropriate staffing levels as the transition and consolidation efforts are conducted. That staffing analysis is presented at the end of this section. Final consolidation efforts are to be coordinated with the initial consolidation efforts presented in Task/Milestone 8. Consolidated Transit Development Plan FY 2013–FY 2022 Consolidation and Transition Plan
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Task/Milestone 6: Sales Tax Funding Available, March/April 2015 Sales tax revenues are collected on a calendar-year basis. Revenues associated with a successful sales tax referendum will begin to be collected in January following the referendum and are anticipated to be distributed back to Polk County by March or April of that same year. Service improvements or expansions can be implemented at that time or the PT can consider bonding to accelerate investments in capital infrastructure. TRACK:
Consolidation
Task/Milestone 7: Common Marketing and Branding, February 2012 The PT recently adopted a uniform logo design and color scheme to be used as the system brand. This effort represents one of many efforts to be performed to unify the three transit systems and the two operating agencies under one umbrella organization. Task/Milestone 8: Implement Initial Consolidation Efforts, February 2012–November 2014 There are a number of consolidation efforts that can and should be accomplished prior to the full transition to the transit authority governance structure. In addition to streamlining transit services and improving the overall efficiency of service delivery, these efforts will alleviate the amount of effort needed to be completed if and when a sales tax is approved and in place. Current key efforts have centered on efficiencies to help ensure that both agencies are doing the best they can with current resources, limit the potential impact of revenue shortfalls, and prepare for the eventual consolidation. Consequently, these ongoing efforts should continue at greater levels consistent with the progress toward one consolidated agency. It is important to note that even if a sales tax is not approved and/or if the PT is not endorsed to continue with its initial capacity, the alternative funding models shown in Figure 1 can also benefit from the consolidation efforts.
Consolidate Policies – There are a number of efficiencies to be gained through the consolidation of fare and operating policies. In addition, the major benefit may be gained by public transportation customers. Uniformity in call center operating procedures, fare policies, assessments, and demand response system service delivery procedures will make services more understandable, more user-friendly, and easier to use.
Align Fuel Contracts – Although not directly related to policies, fuel contracts should be aligned, as the current Lakeland Area Mass Transit District (LAMTD) contract for diesel fuel is considered to have better pricing than what PCTS is paying. The current LAMTD diesel fuel contract is a joint contract with Hillsborough Area Regional Transit (HART) and the Central Florida Regional
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Transportation Authority (LYNX), and consolidated efforts could result in better fuel pricing and long-term savings.
Consolidate Call Centers – At this time, LAMTD and PCTS are working to consolidate their call center operations to one location. The establishment of a mobility call center is considered a major milestone in terms of the overall consolidation of services and could be considered the first responsibility for the PT in terms of governance and administration. This effort is consistent with the effort to consolidate policies. An assessment of the call center is recommended within six months of commencement of the operation. That assessment should be based on a common set of performance standards agreed upon as part of the consolidation of policies. Decisions on staffing levels should also be determined at that time.
Implement Marketing and Branding Strategy – The recently-developed PT brand is being implemented in all PT marketing materials. Those efforts should continue and, as the transition to a unified system progresses, fixed-route published schedules, websites, and other materials created for public consumption should also be aligned and should contain the PT brand. These efforts are critical to end-users and can occur even before the full transition to the PT occurs. In addition, it has been indicated that marketing efforts should be coordinated with neighboring counties and other public transportation planning agencies such as HART, the Tampa Bay Area Regional Transportation Authority (TBARTA), and LYNX.
Eliminate Service Duplication/Maximize Service Efficiency – Every attempt to eliminate duplicative service should be conducted as the agencies unify. Elimination of service duplication does not include eliminating service on shared routes such as what occurs on WHAT routes 30 or 12 on Saturdays, where Citrus Connection and WHAT work together to operate the same service. Instead, streamlining of service should include the delegation of the entire operation of the corresponding service to one agency. This will minimize the work related to compiling performance statistics and, most importantly, will ensure that one operational center is managing all buses operating on the same line. Other duplicative services indicated by staff include those associated with demand response services. It is anticipated that the centralized mobility call center will assist in eliminating those service overlaps. In addition, a one-agency, one-fixed-route management strategy will alleviate coordination efforts associated with provision of complementary Americans with Disabilities Act (ADA) service.
Consolidate Capital Facilities – As indicated in Task/Milestone 5, all assets should be transitioned to the PT as appropriate. There are several interim steps that can be taken to facilitate a smooth transition and also integrate efficiencies into maintenance activities using shared capital facilities.
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Because of the size of the county, it will be critical to maintain multiple vehicle storage facilities, and separate dispatch and supervisory functions could be staged at each location. It would be beneficial for each storage location to include the opportunity for maintenance activities. In the short term, these functions can be accomplished using shared facilities and, ideally, shared County facilities. Maintenance contracts could be developed that could include the option to lease bus bays. This would ensure that transit agency vehicles receive priority maintenance and are serviced by trained maintenance personnel, thus reducing any liabilities to the facility owner. These steps are critical short-term steps and will serve as precursor to larger vehicle maintenance and storage facilities that could be constructed once full consolidation of services is accomplished and a dedicated funding source is secure. Table 1 summarizes the implementation schedule for the consolidation and transition plan. Table 1 Consolidation and Transition Plan Implementation Schedule Major Task/Milestone Transition Track 1 MAP-21 Legislation Approval 2 My Ride Completion 3 Voter Education/Market Campaign Process 4 Sales Tax Referendum 5
Initiate Final Transit Authority Transition and Consolidation
6 Sales Tax Funding Available Consolidation Track 7 Common Marketing and Branding Implement Initial Consolidation Efforts Consolidate Policies Consolidate Call Centers 8 Implement Marketing and Branding Strategy Eliminate Service Duplication/Maximize Service Efficiency Consolidate Capital Facilities
Consolidated Transit Development Plan FY 2013–FY 2022 Consolidation and Transition Plan
Duration/ Completion June/July 2012 July/August 2012 January 2013 November 2014 December 2014/ January 2015 March/April 2015 February 2012
February 2012 – November 2014
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SECTION 2 CONSOLIDATION PLAN GOVERNANCE STRUCTURES The preferred governance structure for Polk County public transportation services has been determined to be an independent transit authority. This section includes a series of illustrations that allow comparisons between the preferred governance structure, the status quo, and also alternative funding model contingencies noted below for the consolidation of services in the event that a sales tax referendum is not approved by the electorate. Although financial contingencies are not specifically addressed in this report, several opportunities for maintaining existing transit service levels are implied in each of the proposed alternative funding models presented here. GOVERNANCE STRUCTURES Four flow charts have been prepared to illustrate the Independent Transit Authority, the status quo, and two alternative funding models. Under each scenario (except the status quo), fixed-route and paratransit services (e.g., ADA, demand response, and CTC duties) would be the responsibility of the governing agency. Status Quo Currently, three transit services—Citrus Connection, WHAT, and PCTS—are administered by two different agencies, Polk County and LAMTD. As structured, the various services are either directly operated by the corresponding agency or contracted out to one or more service providers. Figure 2: Status Quo Model
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Polk Transit Authority (Independent Transit Authority) This is the recommended governance structure for transit services in Polk County. Under this governance structure, the PT would assume all public transportation administrative, policy, and operational responsibilities. An independent transit authority functions as an independent government body, setting region-wide policy for transit service and serving as the single designated federal and state transit funding recipient. The PT has been afforded funding powers, such as the assessment of ad valorem taxes, and may also receive sales taxes revenues from the county, issue bonds, and/or collect local funding contributions from the participating municipalities or entities in the region for service provided. An advisory board/committee of citizens would routinely provide input to the transit authority board and transit authority staff on service operation and governance administration issues. Figure 3 illustrates this governance structure. Figure 3: Polk Transit Authority (Independent Transit Authority)
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Polk Transit Service Area An alternative funding model in the event a sales tax failed would be to create a PT service area. The administration and operation of public transportation services under this option would function similar to how LAMTD currently oversees the Citrus Connection service. Those areas wishing to receive public transportation services could opt to be included within the PT service area. A process that determined the extent or inclusion in the service area would need to be created. Currently, inclusion into LAMTD is determined via referendum. The PT has the authorization to levy up to three mills in ad valorem assessments via referendum approval. Figure 4: Polk Transit Service Area
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Polk Transit Contracted Service Another option available for service consolidation would be to contract out all service to Polk Transit. All entities, municipalities, and areas in the unincorporated county wishing to receive public transportation services would negotiate terms for that service through an interlocal agreement. This is the option that is most similar to the status quo, and the major distinction is that the PT would serve as the single entity administering and operating all public transportation services in the county. A uniform PT brand could be applied to all fixed-route services. That brand could be the newly-created brand and logo for the PT. Figure 5: Polk Transit Contracted Service
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STAFFING ANALYSIS The staffing level assessment is based on a comparative analysis of WHAT and Citrus Connection staffing levels by major transit employment categories with staffing levels of other peer transit systems. Major employment categories are standardized employment categories defined in the National Transit Database (NTD) and include: 1. Administrative Employees - Full Time Equivalents (FTEs) 2. Maintenance Employees - Full Time Equivalents (FTEs) 3. Operating Employees - Full Time Equivalents (FTEs) The selected peer agencies are consistent with the peers used to conduct the peer review analysis performed for this Transit Development Plan Major Update. As a general industry practice, three performance variables are commonly used to allocate costs between administrative, maintenance, and operating functions. Those performance measures include peak vehicles, revenue miles, and revenue hours, respectively. Similarly, the same set of variables can be used to assess the level of administrative, maintenance, and operating employees. The latest available NTD data were used to perform the analysis, and performance statistics for Citrus Connection and WHAT were combined to created a consolidated system variable for Polk County. Table 2 includes the performance statistics and FTE employee information for all peers and Polk County and includes the peer group mean for each variable. The table also indicates the peer group mean for revenue hours, revenue miles, and peak vehicles per corresponding employees in each category. Salient conclusions from the analysis include the following:
The number of Polk County revenue hours per operating employees is lower than the peer group mean. This may be a function of the extensive service area for the fixed-route service and should be examined as part of the effort to streamline service. The analysis shows that Polk Consolidated services is operating short-handed in terms of maintenance staff, as revenue miles per maintenance employee is almost double that of the peer group mean. WHAT shares County staff for its maintenance duties, which may contribute to the reduced number of FTEs available for the fixed-route service. Administrative staffing levels are high in Polk County when compared to the peer group mean and may be a function of having two agencies operating three fixed-route services throughout the county. It is important to note that when revenue hours of service are divided by total employees, Polk Consolidated services records 852 revenue hours of service per FTE, whereas the peer group averages 1,137 revenue hours of service per FTE, 33 percent higher than Polk.
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As consolidation efforts progress, these performance statistic standards should be revisited to ensure that efficiencies are being maximized whenever possible. For example, administrative staff duties and responsibilities and their relationship to any grant funding being received by the agencies should be examined to ensure that duplicative efforts can be eliminated. In addition, it may benefit the agency to shift administrative positions to maintenance duties if it is the desire of the consolidated agency to conduct its own maintenance as opposed to contracting out this function.
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Table 2 NTD Staffing Analysis Measure
Chattanooga, TN
Revenue Hours
Pensacola, FL
Laredo, TX
Shreveport, LA
Northern Kentucky
WinstonSalem, NC
Polk Consolidated
Peer Group Mean
163,451
97,371
150,323
150,856
203,616
132,023
114,454
149,607
Operating Employees FTE
92.64
58.78
98.63
93.79
150.14
67.64
96.58
93.60
Revenue Hours per Operating Employee FTE
1,764
1,657
1,524
1,608
1,356
1,952
1,185
1,644
2,125,131
1,388,505
1,739,286
2,275,503
2,914,543
1,493,605
2,000,275
1,989,429
33.23
20.97
28.60
29.50
36.12
25.20
15.10
28.94
63,952
66,214
60,814
77,136
80,691
59,270
132,469
68,013
Vehicles Operated in Maximum Service
49.00
32.00
35.00
37.00
84.00
33.00
33.00
45.00
Administrative Employee FTE
14.33
6.73
5.75
4.65
11.12
11.61
22.69
9.03
3.42
4.75
6.09
7.96
7.55
2.84
1.45
5.44
Revenue Miles Maintenance Employees FTE Revenue Miles per Maintenance Employee FTE
Vehicles per Administrative Employee FTE
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