Cape Cod Transit Task Force DRAFT Five- Year Public Transportation Plan November, 2001 Prepared By : U.S. Department of Transportation Research and Special Programs Administration John A. Volpe National Transportation Systems Center Prepared For: Cape Cod Regional Transit Authority On behalf of the Cape Cod Transit Task Force Digitized by the Internet Archive in 2015 https://archive.org/details/draftfiveyearpubOOcape PREFACE Momentum has been building over the past twenty months to address transportation, growth, development and quality of life issues on Cape Cod and the Islands. Starting with the Cape Cod Transit Summit in February 2000 and the formation of the Cape Cod Transit Task Force, region-wide priorities regarding public transportation on Cape Cod and the Islands, and goals and objectives for guiding short-range planning have been identified. There is consensus that improved public transportation services are needed both to mitigate seasonal traffic congestion and to meet the mobility needs of the year-round transit- dependent population. However, there is also wide ranging opinion on the characteristics and qualities of an ideal public transportation system for Cape Cod. Translating broad statements of goals and objectives into specific policies, investments, and services is a challenging process that requires an understanding of competing interests and varying points of view, as well as the trade-offs associated with decisions concerning growth, resource protection, and transportation. The U.S. Department of Transportation's Voipe National Transportation Systems Center has been working in cooperation with the Cape Cod Regional Transit Authority, the Cape Cod Commission, and other organizations participating on the Cape Cod Transit Task Force to develop this short-range five-year plan for public transportation to, from, and within Cape Cod and the Islands. The recommendations incorporated in this plan result from an extensive public process that involved approximately 50 public meetings, two large-scale summits, and a summit focused on outer-Cape transportation issues. The findings from this five-year plan are anticipated to be deployed for the existing transportation network, and would also serve as an initial basis for a subsequent, more comprehensive, longer-range (25-year) plan. This five-year planning effort encompasses both operational and initial capital improvements, and builds on current plans and proposals. The vision this plan sets forth is to provide a comprehensive, accessible, and integrated public transportation system that allows the traveler to say "/ CAN get there from here... WHEN I want to go!" DRAFT: Cape Cod Five-Year Public Transportation Plan Page i DRAFT: Cape Cod Five-Year Public Transportation Table of Contents Section Page 1. INTRODUCTION 1-1 1.1 BACKGROUND 1-2 1.2 PLAN FRAMEWORK 1-3 1.3 PLANNING EFFORTS AND SUCCESS TO DATE 1-3 2. EXISTING CONDITIONS AND TRENDS 2-1 2.1 AUTO TRAVEL - A HISTORICAL PERSPECTIVE 2-1 2.1.1 Cape Cod Commuters 2-2 2.2 DEVELOPMENT PATTERNS 2-3 2.3 LAND USE PLANNING 2-3 2.4 DEMOGRAPHICS 2-3 2.5 INCOME LEVELS 2-5 2.6 THE CAPE COD HOUSEHOLD TRANSPORTATION SURVEY 2-6 2.6.1 Most Common Modes of Transportation 2-7 2.6.2 Frequent On-Cape Destinations and Trip Types 2-7 2.6.3 Public Transportation System Usage 2-7 2.6.4 Knowledge of Public Bus Stop Locations 2-8 2.6.5 Time of Day for Employment Trips 2-8 2.6.6 Suitability of Vehicle Available 2-8 2.6.7 Taxicab Service 2-9 2.6.8 Public Transportation Perceptions 2-9 2.6.9 Public Transportation Needs 2-9 3. EXISTING CAPE COD AND ISLANDS TRANSPORTATION SYSTEM 3-1 3.1 OVERVIEW 3-1 DRAFT: Cape Cod Five- Year Public Transportation Plan Page iii Table of Contents (cont'd) Section Page 3.2 PUBLIC GROUND TRANSPORTATION ON CAPE COD AND THE ISLANDS 3-2 3.2.1 Cape Cod Regional Transit Authority Routes and Services 3-2 3.2.1.1 SeaLine Route 3-2 3.2.1.2 Hyannis to Orleans Route 3-3 3.2.1.3 Villager Route 3-4 3.2.1.4 CCRTA Summer 2000 Services 3-5 3.2.1.5 CCRTA Intelligent Transportation Systems 3-6 3.2.1.6 Demand Responsive Transportation 3-6 3.2.1.7 Hyannis Transportation Center 3-9 3.2.1.8 Nantucket Regional Transit Authority 3-9 3.2.1.9 Martha's Vineyard Transit Authority 3-10 3.3 PRIVATELY OPERATED BUS SERVICE 3-11 3.3.1 Plymouth and Brockton Street Railway Company 3-1 1 3.3.2 Bonanza Bus Lines, Inc 3-12 3.4 RAIL TRANSPORTATION 3-13 3.4.1 Cape Cod Central Railroad and Bay Colony Railroad Company 3-14 3.4.2 Passenger Rail to the Cape Proposals 3-14 3.5 FERRIES 3-17 3.5.1 Travel between the Mainland and Provincetown 3-18 3.5.2 Travel between the Cape and the Islands 3-18 3.5.3 Travel between Mainland and Island Points, and Island-to- Island Points 3-19 DRAFT: Cape Cod Five- Year Public Transportation Plan Page iv Table of Contents (cont'd) Section Page 3.6 AIR TRANSPORTATION 3-20 3.6.1 Barnstable Municipal Airport 3-20 3.6.2 Provincetown Airport 3-22 3.6.3 Nantucket Memorial Airport 3-22 3.6.4 Martha's Vineyard Airport 3-23 3.7 BICYCLES 3-23 4. FIVE-YEAR VISION AND PLAN 4-1 4.1 FIVE-YEAR VISION 4-1 4.1.1 Adopting the Transit Summit Goals and Objectives 4-1 4.1.2 Making the Vision a Reality: Transportation Services in Five Years 4-2 4.1.2.1 Coordinating Service tiirougti Transportation Centers.... 4-2 4.1.2.2 increasing Mobility and Capacity with ITS 4-3 4.1.2.3 Enabling Car-Free Travel 4-4 4.1.2.4 Raising Awareness 4-4 4.1.2.5 Mitigating Seasonal Car Traffic 4-4 4.1.2.6 Contributing to Human Sen/ices 4-4 4.1 .3 Achieving Our Goals: Planning and Programming 4-5 4.2 PUBLIC TRANSPORTATION SERVICE ISSUES 4-6 4.2.1 CCRTA Public Transportation 4-6 4.2.2 Private Transportation Carriers 4-8 4.2.3 Transportation Centers 4-8 4.2.4 Ferries 4-9 4.2.5 Health and Human Services 4-9 4.3 TRANSPORTATION IMPROVEMENTS AND COST ESTIMATES 4-9 DRAFT: Cape Cod Five- Year Public Transportation Plan Page v Table of Contents (cont'd) Section Page 4.3.1 Local Transit 4-10 4.3.1.1 Fixed Route Sunday Service 4-11 4.3.1.2 Additional Fall and Winter Service on the Hyannis to Orleans Route 4-11 4.3.1.3 Bourne to Falmouth (New Sen/ice) 4-11 4.3.1.4 Bourne to Barnstable Village (New Service) 4-12 4.3.1.5 Orleans to Provincetown (New Service) 4-12 4.3. 1.6 Whale Watch Shuttles (New Service) 4-13 4.3.1.7 Fleet Management Study 4-13 4.3.1.8 Satellite Parking Centers 4-14 4.3.2 Inter-Regional Transit 4-14 4.3.3 Aviation 4-15 4.3.4 Travel Management 4-15 4.3.5 Facilities 4-16 4.3.5.1 CCRTA Maintenance and Operations Facility 4-16 4.3.5.2 Local Transportation Centers 4-17 4.3.6 Bicycles 4-18 4.3.7 Rail 4-19 4.3.8 Waterways 4-20 4.3.9 Human Services 4-20 4.3.10 Professional Development 4-21 4.4 COORDINATION OF SERVICES 4-22 4.4.1 Development of a Public/Private Transportation Coordination Council 4-22 4.4.2 Coordination between Island and Cape Transit Services.. 4-23 4.4.3 Human Service Coordination 4-24 4.5 TRANSPORTATION IMPROVEMENTS 4-25 4.5.1 Near and Long-Term Cost Estimates 4-27 DRAFT: Cape Cod Five- Year Public Transportation Plan Page vi Table of Contents (cont'd) Section Page 5. THE MARKETING AND IMAGE OF TRANSPORTATION SERVICE ON CAPE COD 5-1 5.1 MARKETING - ITS IMPORTANCE 5-1 5.1.1 Current Marketing Efforts of the CCRTA 5-1 5.2 DEVELOPING AND IMPLEMENTING A MARKET PLAN 5-3 5.3 MARKET STRATEGIES 5-4 5.4 LISTING OF NEAR TERM, LOW COST MARKETING- ORIENTED IMPLEMENTATION ACTIONS 5-6 6. PLANNING CONSIDERATIONS 6-1 6.1 PERFORMANCE EVALUATIONS 6-1 6.2 STAFFING 6-4 6.3 COORDINATION OF STAKEHOLDERS 6-4 6.4 INSTITUTIONAL BACKDROP 6-5 6.4.1 Current Structure 6-5 6.4.2 Funding Opportunities for Transportation Improvements on Cape Cod 6-8 6.4.2. 1 Federal Funding 6-8 6.4.2.2 Discretionary Programs 6-8 6.4.2.3 State Funding 6-8 6.4.2.4 FoHA/ard Funding 6-9 6.4.2.5 Direct Income 6-9 6.4.2.6 Financing Opportunities 6-10 6.5 PRIVATE/PUBLIC SERVICE DELIVERY INNOVATIONS 6-11 7. NEXT STEPS 7-1 APPENDIX A: Evaluation of Proposals to Re-Introduce Passenger Service to Cape Cod DRAFT: Cape Cod Five-Year Public Transportation Plan Page vii Table of Figures Figure Page 1.1 Cape Cod Regional Transportation Links 1-2 2.1 Weekday Bridge Traffic 2-2 2.2 Cape Cod Population Estimates 2-4 2.3 Cape Cod Population Over 65 Years of Age 2-4 2.4 Income Distribution on Cape Cod 2-5 2.5 Recent Public Bus Usage on Cape Cod 2-8 3.1 Cape Cod Public Transit Map 3-1 3.2 SeaLine Route 3-3 3.3 Hyannis to Orleans Line Route 3-3 3.4 Villager Bus Route 3-4 3.5 Annual Ridership 3-4 3.6 Annual Trolley Ridership 3-5 3.7 Hyannis Transportation Center 3-9 3.8 Sea and Air Routes for Cape Cod and the Islands 3-18 3.9 1 999 Monthly Passenger Volume at Barnstable Airport 3-21 3.10 Yearly Passenger Volumes at Barnstable Airport 3-21 4.1 Large Information Display Board and Traffic Camera 4-16 DRAFT: Cape Cod Five- Year Public Transportation Plan Page viii List of Tables Table Page 3.1 CCRTA Summer Schedule 3-5 3.2 CCRTA Contract Services 3-7 3.3 Round-Trips by Location 3-20 3.4 Existing Bicycle Facilities on Cape Cod 3-23 4.1 Annual Cost Estimates by Proposed Service Enhancement 4-12 4.2 Proposed Bicycle Improvements on Cape Cod 4-18 4.3 Near-Term (Years 1-2) Improvements by Category and Time Frame 4-25 4.4 Long-Term (Years 3-5) Improvements by Category and Time Frame 4-26 4.5 Near and Long-Term Cost Estimates by Category 4-27 5.1 Near-Term Implementation Actions 5-6 6.1 Examples of Typical Criteria Associated with Work and Recreational Trips 6-2 DRAFT: Cape Cod Five- Year Public Transportation Plan Page ix List of Acronyms and Abbreviation AVL Automatic Vehicle Location BCHS Barnstable County Human Services CACO Cape Cod National Seashore CCCRR Cape Cod Central Railroad CCC Cape Cod Commission CHAMBER Cape Cod Chamber of Commerce CCRTA Cape Cod Regional Transit Authority CMAQ Congestion Mitigation and Air Quality DEP Department of Environmental Protection EOTC Executive Office of Transportation and Construction FAA Federal Aviation Administration FHWA Federal Highway Administration FRA Federal Railroad Administration FTA Federal Transit Administration GATRA Greater Attleboro Taunton Regional Transit Authority GIS Geographical Information Systems HOV High Occupancy Vehicles ITS Intelligent Transportation Systems JPO Joint Program Office MBTA Massachusetts Bay Transportation Authority MHD Massachusetts Highway Department MPO Metropolitan Planning Organization MVC Martha's Vineyard Commission NOAA National Oceanic and Atmospheric Administration NRTA Nantucket Regional Transit Authority NPS National Park Service P&B Plymouth and Brockton Street Railway Company RDCs Rail Diesel Cars RPP Regional Policy Plan SSA Woods Hole, Martha's Vineyard and Nantucket Steamship Authority TMA Transportation Management Association USDOT United States Department of Transportation VRTA Martha's Vineyard Regional Transportation Authority DRAFT: Cape Cod Five-Year Public Transportation Plan Page X Acknowledgements This Cape Cod 5- Year Public Transportation Plan was prepared by the U.S. Department of Transportation John A. Voipe National Transportation Systems Center under the supervision of Terrence M. Sheehan, through the guidance and critical review of the members of the Cape Cod Transit Task Force. The following is a listing of the Task Force members and their affiliation(s). • Congressman William Delahunt's Office - Mark Forest (co-chair) • Massachusetts Executive Office of Transportation and Construction - Tom Cahir (co-chair) and Ed Carr • Cape Cod Commission - Margo Fenn • Cape Cod Central Railroad - John Kennedy • Barnstable County Human Services - Len Stewart • Cape Cod Chamber of Commerce - Wendy Northcross and Dan Wolf • Southeastern Massachusetts Private Motor Carriers Association - John Greene • Barnstable Co. Assembly of Delegates and Lower/Outer Cape Community Coalition - Mary Lou Petitt • Massachusetts Highway Department - Doug Kelleher • Cape Cod National Seashore - Ben Pearson • Woods Hole, Martha's Vineyard and Nantucket Steamship Authority - Armand Tiberio and James Swindler • Cape Cod Regional Transit Authority - Robert Parady In addition, special acknowledgments are offered to individuals who are not formal members of the CCTTF, but contributed significantly to the development of this Five- year Plan: • Angela Gompert, Martha's Vineyard Transit Authority • Charles Clifford, Martha's Vineyard Commission • Paula Leary, Nantucket Regional Transit Authority • J.B. Riggs Parker, Woods Hole, Martha's Vineyard and Nantucket Steamship Authority Board Chair • Christopher Lovelock, interested citizen B. Clay Schofield of the Cape Cod Commission and Joseph Potzka of the Cape Cod Regional Transit Authority provided principal assistance and management support for this effort. Chip Bishop Communications and Management performed communications and public relations activities. The following VoIpe Center staff assisted in the development of this plan: Bob Casey, Judy Schwenck, Bob Hallett, Jackson Royal, Gary Baker, Melissa Laube, David Spiller, David Spiewak, and Mike Jacobs. The following on-site EG&G Technical Services staff also provided technical support under the direction of Bob Brodesky: Kate Chang, Scott Peterson, Randy Clarke, Nathan Grace, and Deidre Herring. DRAFT: Cape Cod Five-Year Public Transportation Plan Page xi 1. INTRODUCTION This five-year plan calls for easily implemented improvements within the context of the existing public transportation network. It encompasses both operating and limited capital improvements, and builds on current plans and proposals, forming the basis for a more comprehensive, longer-range 25-year plan. The focus of this plan began with improving public transit. However, alleviating congestion on Cape Cod requires a multi-modal system-wide approach that addresses both intra- and inter-regional travel and considers public policy and institutional issues. Another critical component to planning the Cape's public transportation resources is consideration of its geographical and economic relationship to Martha's Vineyard and Nantucket. The growth in travel to and from the Islands requires the implementation of effective strategies, which will result in the efficient management of public transportation resources both on and off the Cape, to move people more efficiently and result in less congestion. As with any public transportation plan, challenges exist specific to the area or region, which must be addressed. For Cape Cod, its unique geography along with its historical and environmental conditions require that this plan address: • Providing traveling choices to meet the needs of a rapidly expanding year round population; • Facilitating connections between various travel modes; • Supplying alternative services between Cape Cod and other regions, including the Islands of Martha's Vineyard and Nantucket; • Ensuring that any infrastructure investments are in keeping with the character of Cape Cod and the Islands, and are supported by a majority of the public; and, • Meeting Health and Human Services mobility needs for access to employment, healthcare, social services, family support tasks, and education. The plan focuses on meeting intra-regional and inter-regional travel requirements. It is vital to recognize that planning for Cape Cod and the Islands must be undertaken to include a larger regional context as shown in Figure 1.1, including Boston, New England and the New York City metropolitan area. This distinction is made to ensure that the mobility needs of Cape Cod and the Islands' year round residents are addressed while planning is conducted to help alleviate the increasing levels of congestion, as more people have discovered Cape Cod and the Islands as year-round retirement, and vacation destinations. DRAFT: Cape Cod Five-Year Public Transportation Plan Cape Cod Transit Task Force November 2001 Page 1-1 CHAPnRONE INTRODUCTION Figure 1.1 Cape Cod Regional Transportation Links 1.1 BACKGROUND Momentum for this five-year plan began with the Cape Cod Transit Summit I, which was convened in February 2000. Sponsored by the Cape Cod Regional Transit Authority (CCRTA) and the Cape Cod Chamber of Commerce, the purpose of the Summit was to develop a community consensus on the future of public transportation on Cape Cod. More than 100 people attended, including Congressman William Delahunt, Executive Office of Transportation and Construction Secretary Kevin J. Sullivan, CCRTA Advisory Board Members, stakeholders, and the public. Various views were expressed regarding public transportation needs and priorities for the Cape. There was consensus that improved public transportation services were needed both to mitigate seasonal traffic congestion, and to provide mobility options for the year-round population. However, there was wide ranging opinion on the characteristics and qualities of an ideal public transportation system for Cape Cod. The Cape Cod Summit resulted in the formation of the Cape Cod Transit Task Force (Task Force) in October 2000 by Executive Office of Transportation and DRAFT: Cape Cod Five- Year Public Transportation Plan Page 1-2 CHAPTER ONE INTRODUCTION Construction Secretary Kevin J. Sullivan. Soon after, the Task Force contracted with the U.S. Department of Transportation's John A. Voipe National Transportation Systems Center (VoIpe Center) to examine the region's public transportation system and prepare a plan that identified actions to be implemented incrementally during the five-year planning pehod. A second Transit Summit was convened in March 2001 to report on what progress had been made, and to solicit public input. The Task Force is the main advisory committee for the 5- Year Cape Cod Public Transportation Plan being conducted by the VoIpe Center. The Task Force consists of stakeholders representing federal, state, and local officials, social service providers, as well as public transportation providers for the Cape Cod region. Members of the Task Force are cited by name in the acknowledgements section. 1.2 PLAN FRAMEWORK The sections of this Plan include: • A description of existing socioeconomic conditions and trends, • The current public transportation system, • Recommendations for near- (1-2 years) and long-term (3-5 years) projects with cost estimates by mode, • Marketing strategies, • Possible funding sources, and • Institutional options for ensuring effective management of Cape Cod's public transportation resources. This plan is intended to be a routemap for improving public transportation services. It considers all modes other than automobile, using an identification of service issues and limitations as a basis for determining a set of remedies that are consistent with the Task Force's goals and objectives, as well as the values that have been historically important to Cape Cod residents. The consensus of the Task Force was to be realistic in public transportation planning, and to consider solutions with available funding and resources. 1.3 PLANNING EFFORTS AND SUCCESS TO DATE The VoIpe Center was instructed by the Task Force in October 2000 to produce "implementable" action items that would be presented at Transit Summit II (in March 2001) for implementation during the 2001 summer season, in addition to producing this Five-Year Public Transportation Plan. The VoIpe Center presented the following recommendations at Transit Summit II: • Implement schedule coordination of all public transportation modes; CA'f con TRANSIT DRAFT: Cape Cod Five-Year Public Transportation Plan Page 1-3 CAr-r cor. TRANSIT CHAPTER OME INTRODUCTION Introduce Relax and Ride - a motorcoach from the Rt. 128 commuter rail parking lot to Woods Hole with a one-price ticket for bus, steamship, and the Martha's Vineyard Transit Authority (VTA); Develop a targeted marketing campaign to increase awareness of CCRTA routes and services; Introduce Sunday CCRTA service on the SeaLine, Hyannis to Orleans, and Villager fixed routes, in part to facilitate 'car-free' Cape weekends, and reduce congestion levels; Discontinue the Falmouth-Mashpee Trolley, the Hyannis Area Trolleys, the Hyannis Park & Ride Shuttle, and the Dennis Trolley due to low ridership and high costs; Shift the early morning CCRTA Hyannis to Orleans bus to trip to a late afternoon trip; Add three daily round trips to the CCRTA SeaLine schedule, and Add two summer evening bus round trips from Hyannis to the Dennisport shopping area (via Patriot Square) along the Hyannis to Orleans route to substitute for the elimination of the evening Dennis Trolley sen/ices. Thus far, the results have been encouraging. The following actions have been taken since Transit Summit II: • Several schedule coordination meetings were held between transportation service providers, and they have agreed to a yearly schedule coordination summit before schedules are printed; • The Relax and Ride service was initiated for 10 weekends commencing on July 4"^ weekend and ending Labor Day weekend. Although evaluation activities are currently being conducted, Massachusetts Congestion Mitigation and Air Quality (CMAQ) funds have been earmarked for the summer 2002 season; and • The under-performing trolley services were cancelled, and the operating funds from these sen/ices were used to fund the recommended route proposals and Sunday Service. These actions were approved and implemented by the CCRTA Advisory Board. This led to a summer 2001 CCRTA ridership increase of 25 percent over the same period in 2000. Ridership on the Hyannis to Orleans route was up 1 1 1 percent, the Provincetown/Truro Shuttle was up 48 percent, and the SeaLine bus route was up 26 percent. This dramatic increase in ridership is directly related to the Voipe Center early implementation recommendations, and other innovative measures undertaken by the CCRTA staff, including an extensive marketing campaign throughout the summer\ CCRTA staff in conjunction with Chip Bishop Communications and Management coordinated the summer 2001 marketing efforts, discussed in more detail in Chapter 5. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 1-4 2. EXISTING CONDITIONS AND TRENDS An understanding of existing conditions and trends provides an opportunity to define the public transportation problems facing Cape Cod. It also provides the context for formulating programmatic recommendations and implementing strategies. The fact is that Cape Cod's roadways have become increasingly congested, and continued auto dependency by year-round and in-season populations must be limited to avoid permanently damaging Cape Cod's natural allure and its economy. Another concern is enhancing and/or introducing mobility options that serve the needs of the growing number of Cape Cod's elderly and low-income populations who cannot drive or afford to own an automobile, and shifting full- time residents commuting to off-Cape sites to high occupancy modes. The extent of the transportation problem is tied to demographics, income levels, and suburban-like development patterns. The planning challenge goes beyond expanding available public transportation resources to meet increases in travel demand. Planned public transportation services must be consistent with Cape Cod's interests in preserving its historical, human-scaled rural villages and seacoast, as well as its natural resources - the sea, sand dunes, salt marshes, and clean air. 2.1 AUTO TRAVEL - A HISTORICAL PERSPECTIVE The scope and scale of change on the Cape over the past half-century has been dramatic. With the country's increasing dependence on automobile travel, along with the construction of a highway network that facilitates intra- and interstate travel, the Cape has become far more accessible to people living in the Boston and Providence metropolitan areas, Connecticut, New York, New Jersey and Pennsylvania. Cape Cod, which had historically been geographically distinct and sparsely populated with only a few service centers, has become increasingly more suburbanized. It has also become a popular vacation destination along the east coast, is an attractive place to live and retire, and an attractive year-round residence for Boston-area workers. These changes have seriously affected traffic levels over the last 25 years. As illustrated in Figure 2.1, which contrasts average annual and summer weekday bridge crossings from 1985 to 1998, average annual traffic levels at the Sagamore and Bourne Bridges now exceed levels experienced 15 to 16 years ago at the height of the summer. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 2-1 CHAPTER 1W0 EXISTING CDNDITIflNS AND TBENDS Cape Cod Average Weekday Bridge Crossings 140000- 120000- 100000- 80000- 60000- 40000- 20(K)(). O 1985 a 1990 ■ 1995 a 1998 Annual Summer Average Annual 1998 Volumes Exceed Summer 1985 Traffic FIGURE 2.1 Weekday Bridge Traffic Besides the tremendous growth in year-round residents, the Cape and the Islands have become very popular tourist destinations from May through October. The regional population is estimated to triple during the summer^, and as many as 5 million people visit the National Seashore each year^. Traffic levels on the Cape are compounded by the fact that most people traveling to the islands must connect with either air service at Barnstable Municipal Airport or ferry services located in Hyannis and Woods Hole. 2.1.1 Cape Cod Commuters The most recent census data available for Cape Cod commuters is for 1990. The data indicates that of the 81 ,779 year round Cape residents who held a job, 10,446 or 12.8 percent commuted to a job outside of Barnstable County. Of this number, 2,01 1 or 19 percent commuted to the Boston area, and 1 percent commuted to the Islands, and the remaining 80 percent traveled to other off Cape job locations. While figures from the 2000 Census are not currently available, the expectation is that the commuting patterns of year-round residents have changed significantly since 1990, with a larger number of residents commuting to the Boston area. The introduction of the Old Colony Commuter Rail Line with extensions as far south as Kingston and Middleboro has attracted a number of commuters who drive to either of these rail locations, park their cars and catch a train destined for South Station. The intercity bus ridership has also increased along with the frequency of service. According to the 1990 census, only 371 of the Boston bound commuters used the bus. Bus ridership counts for 2000 indicate that an average of over 1 ,000 commuter round trips are made from the Cape to the Boston area every weekday. In addition to this number, an average of 375 one- ^ Source: Cape Cod Commission, 2000 ^ Source: Cape Cod National Seashore, 2000 DRAFT: Cape Cod Five- Year Public Transportation Plan Page 2-2 CHAPHRTWO EXISTING CONDITIONS AND TBENDS way trips per day are made on the Logan Direct service operated by Plymc ^' and Brockton Street Railway Bus Lines. 2.2 DEVELOPMENT PATTERNS Automobile dependency has paved the way for sprawling suburban growth throughout the country. As witnessed by long-time Cape residents, suburbanization generates more automobile travel, which then stimulates more land development and traffic. The acreage devoted to farming on the Cape declined by more than 50 percent over the last 50 years. At the same time, residential acreage more than tripled, followed by almost an equal rate of change in land dedicated to commercial development. 2.3 LAND USE PLANNING The Regional Policy Plan (RPP) prepared by the Cape Cod Commission, asserts that transportation and land use planning should be coordinated to: • Manage growth in line with the carrying capacity of the environment • Concentrate growth in preserved or newly-created village centers • Prohibit strip development outside designated growth centers • Protect natural resource areas One of the Commission's key implementation tools is its "village-style" model bylaws/ordinance. It channels new development into growth centers and historic villages. The densities that are encouraged by the RPP and the model bylaw or ordinance improve the viability of public transportation. Public transportation works best as an alternative to the automobile - from both a service and financial perspective - where passengers can walk to a bus stop, transit station, or terminal and to their destinations. 2.4 DEMOGRAPHICS From 1970 to 2000, the population residing in Barnstable County, Martha's Vineyard, and Nantucket more than doubled from 106,547 to an estimated 246, 737^ The rate of growth in the 1970s was over 50 percent; it then slowed to about 26 percent in the 1980s, and 21 percent in the 1990s. Projections for the next 10 years, as shown in Figure 2.2, call for a 24.5 percent growth rate or an increase of about 52,000 people. Some of the segments that have grown the fastest include retirees and racial/ethnic minorities, many of whom can no longer drive or afford to own an automobile. In 1990, 22 percent of Barnstable County's population was over 65 years old, compared to a statewide average of 14 "The U.S. Census Bureau has developed these estimates and projections. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 2-3 CHAPnRIWO EXISTIHC CONDITIONS AND TRENDS percent. As shown in Figure 2.3, the year round population over 65 years old will grow to 60,000 residents by 2010. Year Round Cape Cod Population 272,504 1980 1990 Estimated Projected 2000 2010 FIGURE 2.2 Cape Cod Population Estimates 58,526 1980 1990 2000 2010 Estimate Projection FIGURE 2.3 Cape Cod Population Over 65 Years of Age The median age of Barnstable County residents rose by almost 9 years to 39.5 from 1960 to 1990. By 2010, the median age is projected to increase to 44 as "baby boomers" retire and move to the Cape. Employment in Barnstable County grew from 51,400 in1980 to 88,600 in 2000, a 72 percent increase. The retail sector employed the largest percentage of Cape residents, representing approximately 66 percent, followed by government services at 14 percent. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 2-4 CHAPHRTWO EXISTING CONDITIONS AND TRENDS ^ 2.5 INCOME LEVELS Average household income in Barnstable County rose from $31,766 in 1989 to $40,791 in 1997, or a 28.4 percent increase. A study conducted by The Economic Policy Institute, a Washington DC research group, ranked the Barnstable- Yarmouth area as the fifth most expensive place to live among 400 regions studied nationwide because of high energy costs, expensive housing and the high cost of child care.^ Barnstable-Yarmouth living costs ranked between those of Washington, DC and San Francisco, CA. The average salary varies significantly depending on the industry. The resort industry, employing about 22 percent of the year-round workforce, pays the least, with residents earning an annual average salary of $17,401 . Residents working in the high-tech industry, in contrast, earn an annual average salary of $40,696. As shown in Figure 2.4, the Barnstable County Affordable Housing Needs Analysis determined that 13 percent of Cape residents have extremely low incomes (less than 30 percent of the median Cape income). The Economic Policy Institute study showed that 29 percent of working families with one to three children under age 12 do not earn enough income to meet basic family needs. Since 51 percent of the Cape's population has annual income 80 percent less than the median, owning and maintaining an automobile must be financially onerous, suggesting demand must exist for alternative, more reasonably priced public transportation options. Low Income Households on Cape Cod 49% 17% □ Extremely Low Income (less than 30% of Cape median) ■ Very Low Income (less than 50% of Cape median) □ Low income (less than 80% of Cape median) □ hcome greater than 80% of Cape median Source: Barnstable County Affordable Housing Needs Analysis, 1999 FIGURE 2.4 Income Distributions on Cape Cod ^ See "Hardships in America: The Real Story of Worl} AQUAIUUM . -.wAS HOU DOCKS FIGURE 3.2 SeaLine Route 3.2.1.2 Hyannis to Orleans Route The Hyannis to Orleans bus route provides service along Route 28 from Hyannis to Orleans, with detours to supermarkets and shopping centers in Yarmouth, Dennis, and Harwich as seen in Figure 3.3. Winter weekday service starts at 5:55 am from Orleans with the last bus at 4:27 p.m. The first two weekday runs from Orleans begin near the Mobil station in Orleans Center and end at the P&B terminal in Hyannis. During the rest of the day, buses leave from the Stop & Shop near the Route 6 and 6A rotary in Orleans. o KTMOVTM •.BMCirraH MSTOMM I coo HosnTAL a«Pinu.fiD. OCMMH o CHAMBER Of COMMERCE mom ItOAD o o o MORTON KOAD CMM1UM FIGURE 3.3 Hyannis to Orleans Line Route DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-3 CHAPnR THREE EXISTING CAPE CflO AND ISIANDS PUBilC TRANSPOBTilTION SYSTEM CAPE COD TRANSIT 3.2.1.3 Villager Route The Villager bus route provides, year-round service from the Senior Center in the west end of Hyannis through the center of Hyannis to the Barnstable County Complex with detours to the Steamship Authority and Hy-Line Cruise docks (upon request), to the shopping malls and plazas along Route 132, and the Cape Cod Community College as seen in Figure 3.4. Winter weekday service starts from the Senior Center at 7:10 am with the last bus at 6:07 p.m. BARMSTABlTO UARMSTASLE COUMTY O COURTMOUtf COMPUX CAM COO COUMf CANCOe nsnVALHAU. Q_ MMITHWIND HAZA _ BARMSTABU moon eiMTtiL CAPCCOO Q^«e«mAi HY-UMf CfUMWS S>JJ AUTHORITY I B«*rt«i Way Sliuttt* FIGURE 3.4 Villager Bus Route Figure 3.5 summarizes the demand for each of the fixed route services over the past 4 years. Annual Ridership on Fixed Routes 50,000 40,000 30,000 20,000 10,000 0 DSeaLine ■H20 Line D Villager Line FY'97 FY'98 FY'99 FY'OO FIGURE 3.5 ANNUAL RIDERSHIP DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-4 CHAPTER THREE EXISTIHC CAPE COD AND ISiAHOS PUBLIC TRAHSPORTATIOH SYSTEM 3.2. 1.4 CCRTA Summer 2000 Services During the summer of 2000, CCRTA operated seven trolley and shuttle routes. Except for the free Hyannis Park and Ride Shuttle, fares were $1.00 with children under 5 riding for free and 50 cents for seniors, Medicare cardholders, and persons with disabilities. The following table lists the highlights for each service. TABLE 3.1 CCRTA Summer Schedule Service name Dates of operation. Days of operation Average fare collected Service begins Service ends Frequency at peak Woods Hole Trolley May to Sept 7 $0.67 9:30 am 7:30 p.m. 30 min Mashpee Trolley June Labor Day 7 $0.68 9:30 am 7:30 p.m. 60 min Hyannis Downtown/Malls June - Labor Day 7 $0.49 10:00 am 9:30 p.m. 30 min Hyannis Parking Shuttle June - Labor Day 7 6:00 am 8:30 p.m. 30 min Yarmouth Trolley June Labor Day 7 $0.74 9:00 am 5:00 p.m. 30 min Dennis Trolley June Labor Day 7 $0.75 9:15 am 11:05 p.m. 60 min Provincetown Shuttle Late June - Oct. 7 $0.98 7:15 am 12:15 am^ 20 min The following figure 3.6 illustrates the passenger demand for each of the trolley/shuttle lines. Annual Ridership of Summer Trolleys 60,000 -, :j ..1.1 ,r r 1 FVgS FY'96 Pt"97 FY'98 FY'99 FY'OO FY'01 □ Coach of Dennis O Hyannis Area Trolleys ■ Hyannis Park&Ride Shuttle □ Mashpee Trolley □ Woods Hole Trolley O Yarmouth Easy Shuttle ■ Provincetown/T ruro Shuttle FIGURE 3.6 Annual Trolley Ridership The Provincetown Shuttle terminates during the summer at 12:15 am, and terminates at 8:15 pm Monday through Thursday, and Sundays, during the Fall. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-5 CHAPnR THREE EXISTING CAPE CDP AND ISIANDS PUBLIC TRANSPORmiON SYSTEM 3.2.1.5 CCRTA Intelligent Transportation Systems The Cape Cod Intelligent Transportation System (ITS) program is a public-private partnership between the Cape Cod Regional Transit Authority, the GeoGraphics Laboratory at Bridgewater State College, First Transit, the Cape Cod Commission, the Cape Cod Chamber of Commerce, the Massachusetts Executive Office of Transportation and Construction, the Joint Program Office for Intelligent Transportation Systems (JPO/ITS) of the Federal Highway Administration (FHWA), and the Federal Transit Administration (FT A). Currently, the following types of ITS are being used on the Cape: • A geographic information system (GIS)- based decision support system on a local area network environment • Global Positioning Systems-based automatic vehicle location (AVL) for all CCRTA's paratransit and fixed route services • Upgraded paratransit scheduling and management information capabilities based on GIS technology • Mobile data computers for on-board vehicle data collection, downloading of paratransit schedules, and two-way messaging. • Emergency alarms, integrated with AVL • CCRTA and the GeoGraphics Laboratory at Bridgewater State College are cooperating on the development and deployment of a low-cost Web-based Advanced Travel Planner using state-of-the art GIS technology applied to tourist travel information and itinerary trip planning for access to jobs for individuals transitioning off welfare. CCRTA has equipped all of its fixed route and b-Bus vehicles with automatic vehicle locators and mobile data computers. Using the vehicle location information, the CCRTA Web site (www.capecodtransit.org) provides potential customers with the opportunity to see where CCRTA buses are in real time. The mobile data computers have the capability of accepting both magnetic stripe and smart cards for fare payment. CCRTA also uses computer assisted dispatching for their b-Bus system. 3.2.1.6 Demand Responsive Transportation The Cape Cod Regional Transit Authority provides door-to-door, ride-by- appointment accessible service for people of all ages for trips of any purpose. Called the 'b-Bus,' trips must be reserved by 1 1 a.m. at least a day in advance by calling 1-800-352-7155 (385-8326 locally) for weekday rides, and on Friday for weekend and Monday service. Elderly and disabled riders receive priority. Service is available at either 7 a.m. or 8 a.m., and terminates at either 4 p.m. or 7 p.m. (7:17 p.m. in Chatham) depending on the town. Weekend service encompasses fewer hours. In addition to general-purpose travel between any two points, there are regularly scheduled trips between locations from each town. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-6 CHAPTER THREE EXISTING CAPE COD AND ISIAHDS PUBIIC TRANSPORTATIOH SYSTEM The b-Bus service is mainly provided using mini-buses, although there are several vans available for particular situations. Fares for adults and children 6 and older are $2, plus 1 0 cents per mile for general purposes, $1 .50 for medical trips, and one-half off these stated fares with a payment of a $1 0 monthly Frequent Rider Program fee. Seniors and persons with disabilities pay one-half of the adult fares. Private and public organizations or programs pay for some trips. In FY'2000, b-Bus service carried 190,421 passengers at a net cost per trip of $11.49.^ The CCRTA provides medical service to Boston once a week through their Boston Local Transportation (BLT) program. Riders using this service can pick up this bus at park-and-ride locations from Wellfleet to Sagamore. The CCRTA has supplied vans and mini-buses to Councils on Aging in Bourne, Brewster, Chatham, Falmouth and Provincetown with a new request pending in Truro, due to the rapid growth of the aging populations. On July 1 , 2001 , the CCRTA became the Human Service Broker for Cape Cod and the Islands for the Massachusetts Departments of Medical Assistance, Mental Retardation, and Public Health. A goal of the program is to provide services more cost-effectively. Descriptions of significant CCRTA contract transportation services with State and local human service agencies are described in Table 3.2. TABLE 3.2 CCRTA Contract Services CCRTA Service Recipient Service Type Service Span Number of Vehicles Used Habilitation assistance Corporation Provide transportation to Bourne Day Rehabilitation for Massachusetts Department of Mental Retardation clients Monday- Friday, Year-round Six (6) vehicles Connmunity Connections, Inc. Provide transportation to Lower Cape Day Habilitation - Cape and the Islands Intensive Day in Dennisport for Massachusetts Department of Mental Retardation clients Monday- Friday, Year-round Four (4) vehicles Nauset, Inc. Provide transportation to Nauset Workshops for Massachusetts Department of Mental Retardation clients Monday- Friday, Year-round Three routes operated to each site In order to judge the level of efficiency of the b-Bus, the b-Bus cost per trip was compared to those reported by other agencies in the 1998 National Transit Database. The cost per trip for agencies operating between 30 and 60 demand response vehicles, and with service area and population size somewhat similar to that of the Cape, averaged $14.33. Agencies operating between 30 and 60 demand response vehicles without any service area or population restriction averaged $14.81 per passenger trip. The comparable figure reported by CCRTA for 1998 was $10.24. Consequently, the b-Bus service efficiency appears to be better than the average demand response system. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-7 CHAPTER THREE EXISTING CAPE COD AKD ISIANDS PUBIIC TRANSPORTATION SYSTEM CCRTA Service Recipient (CONT'D) Service Type Service Span Number of Vehicles Used Massachusetts Department of Medical Assistance Brokerage for medical trips for Medicaid trips for the Massachusetts Department of Medical Assistance As-needed As-needed Palmmith Hn«;nital Provlrip traiT^nnrtatinn tn 1 1 W V 1 \J \^ 11 Ol 1 0 Wl Lull \J 1 1 l\J individuals needing rides to Falmouth Hospital, JLM Care Ppnter Visitino Nursp Association of Upper Cape, and the offices of Falmouth hospital physicians Monriav- Friday, Year-round Two vphirlps in the summer, one vehicle for the rest of the vear Dpnartmpnt of Transitional Assistance Provirip transnortation to work for clients transitioning off of Welfare Ac.npprjpH Ac_nppHpH 1 \\J 1 1 Vif U Va^ U Department of Public Health Provide transportation to Early Intervention Program for pre-school children and parents Monday- Friday, Year-round As-needed Elder Service of Cape Cod and the Islands Provide transportation for seniors to hot lunch programs at Senior Centers Service varies by town As-needed In addition, there is a large network of social service organizations that also provide demand response transportation. These services vary in every aspect such as vehicle type, eligibility requirements, fares, areas of coverage, and times of operation. Some of the services are coordinated with each other, but the majority operates independently and duplicates service in some areas while other areas experience service gaps. The following profit and non-profit/service providers organize some form of transportation for their clients: ■ American Cancer Society ■ American Red Cross ■ Angel Flight New England ■ Cape Cod Ambulance Services, Inc. (a for-profit organization) ■ Chatham FISH ■ Community Connections ■ Disabled American Veterans ■ Easy Rider of Lower Cape Cod (a for-profit organization) ■ Housing Assistance Corp. Of Hyannis ■ Helping Our Women ■ Interfaith Council for the Homeless ■ NausetFISH ■ Provincetown Aids Support Group and Habilitation Assistance Group ■ Van Go (a for-profit organization) ■ We Go (a for-profit organization) ■ Well Run Transportation (a for-profit organization) ■ Wheelchair Transit (a for-profit organization) DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-8 CHAPTER THREE EXISTING CAPE COD AND ISLANDS PUDLIC TRANSPORTATION SYSTEM <:ap[ TRANSIT 3.2.1.7 Hyannis Transportation Center The Hyannis Transportation Center, now under construction in a rail yard in the East End of Hyannis, is the physical representation of a coordinated, regional approach to transportation envisioned for the region (shown in Figure 3.7). When it opens in the summer of 2002, the center will become the transportation hub for year-round residents and visitors. The 17,000-sq. ft., two-story center will be home to CCRTA buses and trolleys, intercity buses, airport and ferry shuttles, facilities for Cape Cod Central Railroad passengers, and visitor amenities. It will have parking for 220 cars on a landscaped, eight-acre lot. Construction is being underwritten by $5.6 million in federal capital grants, state land and state road improvement funds, along with RTA cash reserves. It will be owned and managed by the CCRTA. As part of its marketing initiative, the CCRTA will work in cooperation with the Cape Cod Chamber of Commerce to promote awareness of the center and its services to those living and working on Cape Cod, as well as to travelers off Cape. With knowledge of a new, central facility for non-auto arrivals and departures and links to other modes of transportation. Cape-bound travelers should be more inclined to make auto-free travel choices, and thus aid in the reduction of traffic congestion. Additionally, the CCRTA is investigating options to allow vehicle rental companies serving nearby Barnstable Municipal Airport to make their vehicles available in a convenient way to travelers using the transportation center. Figure 3.7 Architects Rendering of the Hyannis Transportation Center 3. 2. 1.8 Nantucket Regional Transit Auttiority The Nantucket Regional Transit Authority (NRTA) was created in 1995 after over 10 years of planning. Its first operating season extended for 100 days from June DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-9 CAPF COD TRANSIT ^ i CHAPTER THREE 0m EXISTING CAPE CO D AND ISEANDS PUBLIC TRANSPORTATION SYSTEM 8 through September 15, 1995. During its no-fare inaugural season, the shuttle system transported 139,364 passengers utilizing two loops, which connected the downtown core district with densely developed areas and parking lots along the fringe of the Core. It has grown substantially since this time. For the 2001 Shuttle Season, the Nantucket Regional Transit Authority (NRTA) expanded its season from May 25 - October 8, 2001 , to include Columbus Day weekend. All fixed route sen/ice remained the same: Mid Island Loop, Miacomet Loop, Madaket Route, Sconset via Polpis Road, Sconset via Old South Road, Sconset via Milestone Road, Jetties Beach, and Surfside Beach. New fare and pass categories were added for seniors, the fare was established at half fare and a season pass was available for $25.00. Season passes rates (student, season, and commuter) were increased by $5.00 and fares on the fixed route and beach service remained on changed. The Commuter Solution program was offered a $10 discount was offered to businesses that purchased passes for their employees^°. Park and Ride lots were once again provided along the shuttle routes for added convenience. Benches and bike racks have been located along the shuttle routes. The NRTA has 14 mini-buses in its fleet, operating 1 1 during the season, with 3 buses utilized as spares. Valley Transportation Services, Inc (VTS) of Wilmington, Vermont, operates the system. In order to ensure a sufficient number of drivers to operate the system, VTS opened its application process internationally, which has greatly benefited the system and the Shuttle service that is provided to the community. The NRTA in conjunction with Visitor Services and the Nantucket Planning and Economic Development Commission (NP&EDC) sponsored the 3"^^ Annual "Do the Ride Thing." This promotion encourages people to use alternative modes of transportation. Participants in the weeklong event are eligible to win prizes donated by local businesses. The NRTA, Nantucket Elementary School, the Athenaeum, and Friends of Nantucket Public Schools once again offered the Ride to Read program. This program encouraged elementary aged school children to continue their reading skills throughout the summer by taking the bus to the library. The NRTA participates in the Commonwealth's Bikes-n-Transit program. All Nantucket bike paths are accessible along the Shuttle routes. The NRTA also participated in TEAM Nantucket. On July 2, 2001, the NRTA began providing door-to-door van service called Your Island Ride to elders and person with disabilities. 3.2.1.9 Martha's Vineyard Transit Authority The Martha's Vineyard Transit Authority (VTA) was created in 1980. In the early years, the VTA primarily provided dial-a-ride services. In the mid 1980's, the VTA began running two seasonal intra-town shuttles. In 1994 the VTA added one more seasonal intra-town fixed route. While these services were adequate in the mid 1980's they were not given the growth the Island had been experiencing. ^° in 2000, the NRTA won the American Public Transportation Association marketing award for the Commuter Solution program DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-10 TRANSIT i CHAPTER THREE 4^ 7 EXISTIHG CAPE COD AHD ISIAHDS PUBLIC TRANSPORTATION SYSTEM Preserving the rural character of Martha's Vineyard has long been a common regional goal. In the 1980's and 1990's, the rapid increases of population, tourism, seasonal use and related traffic reached levels that clearly threatened the region's rural character. Recognizing that the increasing numbers of automobiles threatened to destroy the rural quality of life, the six Island towns supported a substantial expansion of the VTA fixed route sen/ices in 1999. The VTA's transit services are an integral part of the region's transportation network. The growing use of the VTA's services helps increase traveler safety, protect and enhance the Island's rural character, provide new economic opportunities, and reduce noise, pollution and energy use. It also has the benefits of protecting and enhancing property values and other positive economic impacts. Prior to expansion, the VTA operated three (3) seasonal fixed routes. In FY 1998 the VTA expanded to six (6) seasonal fixed routes. In FY 1999 the VTA operated thirteen (13) seasonal fixed routes carrying 173,681 passengers, which resulted in a 49 percent ridership increase. In FY 2000 the VTA operated the same routes, increased frequency and ran three (3) off-season buses and carried 271,842, resulting in a 57 percent ridership increase. In FY 2001 the VTA carried 364,146 passengers resulting in a 34 percent passenger increase. In FY 2002 the VTA added three more routes, bringing the total number of routes to sixteen (16). This produced 252,519 people in the month of July alone. The VTA is projecting ridership to surpass 650,000 riders in FY 2002. 3.3 PRIVATELY OPERATED BUS SERVICE Bonanza Bus Lines, Inc. and the Plymouth & Brockton Street Railway Company (P&B) offer year-round service to Cape Cod. They are the only regularly scheduled land-based public transportation available to the Cape from mainland locations. Both are private for-profit companies, operating standard 45-foot long coaches with a 55-passenger capacity. Currently, it is not possible to use credit cards on the Cape to purchase tickets from either company. Both companies supply their drivers with means of communicating with their operations centers. 3.3.1 Plymouth and Brockton Street Railway Company The privately owned P&B serves 25 cities and towns from Boston to Cape Cod, and is partially subsidized by the Massachusetts Bay Transportation Authority, (MBTA), MassPort and the CCRTA. The P&B web site is located at www.p- b.com. Its Hyannis Elm Street terminal is the central hub. Many of the buses are wheelchair lift-equipped. The company operates two principal services to Cape Cod, a semi-express running from Orleans/Hyannis to Logan Airport and Boston, and a local run from Provincetown to Hyannis. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-11 CAPF COD ^ TRANSIT ^ i CHAPTER THREE EXISTINB CAPE COD AND ISUIHDS PUBUC TRANSPORTATION SYSTEM ^ P&B operate two round trips from Provincetown to Hyannis during the off- season, and five round trips during the summer. Connections can be made in Hyannis with Bonanza Bus Lines services to New Bedford and Fall River, MA, Providence, Rl, and New York City. Some connections can also be made with CCRTA fixed local routes and P&B's service to Boston and Logan Airport. One- way fares range from $3 from Provincetown to Truro to $9 from Provincetown to Hyannis. P&B's express service offers 35 round trips each weekday and 20 round trips Saturdays, Sundays, and holidays with extra trips added during the summer months. The route runs along Routes 132 and 6 on Cape Cod and Route 3 and the Southeast Expressway into Boston. Sixteen of these trips are "Logan Direct," providing hourly access from Hyannis to Logan Airport starting at 3:15 am. These trips begin at the Hyannis P&B terminal, and most stop at lots in Barnstable and Sagamore, the P&B terminal in Plymouth, the lot in Rockland, South Station in Boston, and finally Logan Airport. A few skip Rockland and/or South Station. P&B provides Boston commuter-oriented service from Orleans and Hyannis on weekdays starting at 4:45 am and ending either at South Station or Park Square in Boston with returns in the afternoon. Fares vary between $16 and $27 each way depending on the length of the trip. Discounts are available through the purchase of a ten-ticket book. Between November 1999 and October 2000, ridership on the Provincetown- Hyannis route was 27,095, averaging 74 passengers per day. For the Orleans and Hyannis to Boston routes beginning November 1999 and ending October 2000, annual ridership on the non-Logan Direct trips was 368,881 and on the Logan Direct trips, 136,739, an average of 1,385 passengers per day. Ridership during the summer months is about 20 percent higher than during the rest of the year. Compared to figures for the previous year, ridership increased 10 percent on the non-Logan direct trips and 23 percent on the Logan Direct trips. 3.3.2 Bonanza Bus Lines, Inc. Bonanza Bus Lines, Inc. is a regional carrier operating in New England and the New York City metropolitan area, and is owned by Coach USA of Houston, TX^^ The Bonanza web site is located at www.bonanzabus.com. It offers two unsubsidized routes to Cape Cod, New York to Hyannis, and Boston to Woods Hole. The company adds service during the summer months. Bonanza Bus Lines maintains a 50-car parking lot in Bourne. One-way fares range from $5.75 for the Hyannis to Bourne route, to $49 for the Hyannis to New York City route. Bonanza Bus Lines run eleven (11) daily round-trips between Woods Hole/Falmouth and Boston during the summer season. Outside of the summer season, there are eight daily services northbound from Woods Hole/Falmouth to Coach USA is a subsidiary of Stagecoach PLC of the United Kingdom DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-12 CHAPTER THREE EXISTIHB CAPE COD AND ISLANDS PURLIC TRANSPORTATION SYSTEM Boston, and nine southbound. Many of these services have connections to Logan Airport. There are five daily round trips between the Port Authority bus terminal in New York and Bourne, except on Fridays when there are six round- trips. Buses from Hyannis to New York do not stop anywhere else on Cape Cod (even though they pass the Barnstable Park & Ride Lot). Buses from Woods Hole/Falmouth to Boston stop in Bourne, and passengers can connect there to the New York City service. Also, most New York buses make stops in New Bedford and Fall River, but not in downtown Providence as the Providence bus depot is several miles outside of downtown. Bonanza transported approximately 61 ,000 passengers on its New York to Hyannis service between November 1999 and October 2000. This represents a 13 percent increase over the same period as the previous year. On the Boston to Woods Hole route, 188,187 passengers traveled on Bonanza service between November 1999 and October 2000. This represented a 13 percent annual increase over the same period as the previous year. 3.4 RAIL TRANSPORTATION All rail lines and structures from Rhode Island through Southeastern Massachusetts, with the exception of the Cape Cod Canal Railroad Bridge in Bourne, through to Hyannis are owned by the Commonwealth of Massachusetts. The vertical-lift railroad bridge is owned, operated and maintained by the U.S. Army Corps of Engineers, and is currently undergoing major rehabilitation.^^ This bridge is normally left in the "up" position for access of the Canal by marine traffic, and is lowered for rail traffic as needed. Marine traffic has statutory right- of-way over rail traffic. While the tracks to Falmouth, Yarmouth and Hyannis still exist and are in useable condition, all of the tracks beyond Yarmouth have been removed and the right-of-way has been converted to the Cape Cod Rail Trail. Bicyclists and pedestrians use the trail, mainly for recreational purposes. Year round passenger rail service ended in 1959 due to decreased ridership and competition from the automobile. Various amounts of seasonal service operated throughout the 1980's. From 1986 until 1996, Amtrak operated under contract with the Commonwealth of Massachusetts a weekend-only summer train known as the "Cape Codder" between New York City and Hyannis. It was discontinued due to low ridership, in part caused by low customer awareness due to a limited marketing campaign. Initially, the trains operated as a direct service between New York and Hyannis, with intermediate stops at Wareham, Buzzards Bay, and Sandwich. During the 1988 summer season, sen/ice also operated between New York and Falmouth, but lasted only one season due to the unavailability of continued state subsidies. it is possible to connect from the bus depot to TF Green Airport, but it is time-consuming. 13 This rehabilitation effort is occurring in large part through $25 million in Federal funds secured through the office of Congressman William Delahunt. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-13 CHAPTER THREE EXISTING CAPE COD AND ISLANDS PUBLIC TRANSPORTATION SYSTEM During the final two seasons of service (1995-96), Amtrak operated trains as far as Providence on the Northeast Corridor, with passengers forced to transfer to another train which utilized MBTA commuter equipment to make the final leg to Hyannis. Ridership during these final two seasons dropped nearly three-quarters, due mainly to the cumbersome change required. Efforts were made by EOTC and members of the Task Force to restore some form of 'Cape Codder' service to Cape Cod for the Summer 2001 season. Due to financial and equipment constraints, as well as a lack of subsidy, Amtrak stated that resumption of this service is not economically feasible for the foreseeable future. 3.4.1 Cape Cod Central Railroad and Bay Colony Railroad Company The only excursion rail service on Cape Cod is the Cape Cod Central Railroad (CCCRR), which uses the EOTC right of way. The CCCRR operates three daily scenic rail rides except on Mondays, between Hyannis and the Cape side of the Bourne Railroad Bridge from late May through October with stops in West Barnstable and Sandwich. The CCCRR website is located at www.capetrain.com. They also offer an evening dinner train with a lounge car starting in the early spring running through the end of the calendar year, and a Tuesday family supper train during summer evenings. The Hyannis station is currently used by the CCCRR for boarding tourist and dinner train passengers selling tickets, dispensing information, and administrative offices. Adjacent to the single main track station is the Hyannis rail yard and maintenance facility. The service is geared primarily for tourists. During the 2000 season, 50,000 passengers rode the rails, representing a 300 percent increase from the 16,000 passengers in 1999. The operator projects 65,000 passengers in 2001. The regular round-trip fare is $13. The Bay Colony Railroad Company (BCLR), a freight railroad, uses the tracks over which the CCCRR operates on a year-round basis. The BCLR leases tracks between Middleborough and Hyannis, as well as some additional small branch lines, from EOTC. This lease is in effect until 2006. The BCLR has the responsibility for maintaining the tracks in compliance with certain Federal Railroad Administration guidelines, as well as dispatching all trains. On the Cape, the BCLR's operates trains containing trash to the SEMASS facility in Rochester, MA in the morning, and returns these trains empty in the evening. Upon request, BCLR provides freight rail service to the Massachusetts Military Reservation. 3.4.2 Passenger Rail to the Cape Proposals While at the present time there is no passenger rail service to Cape Cod, the feasibility of re-introducing rail passenger service is being explored to identify its role in meeting the goals of transportation planning on Cape Cod, including the potential to: DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-14 CHAPTER THREE EXISTIHG CAPE COD AND ISLANDS PUBLIC TRAHSPORTATIOH SYSTEM TRANSi • Offer rail passenger service as part of an enhanced transportation plan providing for greater mobility options; • Divert people traveling by private auto to and from the Cape (to/from Boston, New York, New Jersey); • Intercept people traveling by private auto (originating in Boston, New York, Rl, CT, on-Cape) to abandon their cars partway through the journey before coming onto the Cape; • Provide an accessible, (e.g. ADA, elderly, youth) environmentally friendly alternative mode of travel to the private automobile; • Create a fully integrated, intermodal rail passenger service in the Greater Cape Cod region, and • Make better use of a Commonwealth-owned asset. There are two proposals for rail passenger service presently being evaluated by a rail consultant. Transit Safety Management of Georgetown, MA, under contract to EOTC on behalf of the Task Force^"*, which may be consistent with these goals. These are: (1) Cape Cod Feeder Rail Passenger Access , March 30, 2001 presented by George C. Betke, Jr., John F. Kennedy, and Alfred Michon^^. (2) A Locally Initiated High Quality Passenger Rail Connection from Cape Cod, the Islands and Capeway Communities to Amtrak's Hi-Speed Acela Express Sen/ice - A CMAQ Proposal, presented by the Cape Cod Regional Transit Authority and the Greater Attleboro-Taunton Regional Transit Authority, with The Moakley Center for Transportation of the University of Massachusetts at Bridgewater. The Cape Cod Feeder Rail Passenger Access proposal describes the implementation of a four-phase rail passenger service between Boston and Cape Cod over a 36-month period, operating a daily, year-round sen/ice. Stage 1 is intended as a temporary demonstration phase, since trains would originate/terminate at Buzzards Bay, MA, a village in the town of Bourne located on the north side of the Cape Cod Canal. Trains would not cross the Cape Cod Canal Railroad Bridge during the period of bridge rehabilitation. Stage 1 assumes 25-minute schedule running time^^ between Middleborough and Buzzards Bay. Note that as part of the planning process, direct Amtrak service between New York City and Cape Cod has also been suggested. However, Amtrak has not submitted a detailed proposal for this service for evaluation. Mr. Betke is the Chief Executive Officer of Farmrail System Inc., an employee-owned holding company for Class III Railroads in New York and Oklahoma. Farmrail has several Rail Diesel Cars (RDCs), which would be used to provide this service. Mr. Kennedy is the president of the Cape Cod Central Railroad, which currently operates a tourist and dinner train railroad out of Hyannis. Mr. Michon is a resident of North Falmouth and has an extensive career in the private railroad industry. Schedule Running time is the actual time required to travel the distance plus a recovery time, typically 6 to 8 percent of the travel time and station dwell combined. Recovery time provides DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-15 CAPF COO ^ TRANSIT ^ i CHAPTER THREE |M EXISTINB CAPE COD AND ISiAHDS PUBIIC TRANSPORTATIOH SYSTEM -j. Stage 2 would extend the service 25 miles east from Buzzards Bay, over the Cape Cod Canal Railroad Bridge to Hyannis on the Cape Mainline Track. Stage 2 assumes 25-minute schedule running time between Middleborough and Buzzards Bay and assumes 50-minute schedule running time between Buzzards Bay and Hyannis. Stage 3 would extend service 14 miles south from Buzzards Bay to Falmouth, on the Falmouth Line Track. Stage 3 assumes 35-minute schedule running time between Buzzards Bay and Falmouth, in addition to the running times assumed in stage 2. The proposal mentions a possible Stage 4 extending the service from Middleborough to Attleboro to connect with Amtrak service. The reguirements, economic performance, and implementation of Stage 4 are not discussed in detail in the proposal, as it is in the nascent stage. This proposal would utilize seven (7) self-propelled Rail Diesel Cars (RDCs) to provide seven daily peak and off-peak round trips between Buzzards Bay and Middleborough along the Cape Mainline. The proposal calls for the 1 8-mile track segment to be upgraded from its current FRA Class 2 track standards to Federal Railroad Administration (FRA) Class 4, limited to 60 mph. It also calls for repair of a collapsed culvert and a section of defective rail that currently impose speed restrictions. The proposal indicates that some work is required to allow trains to operate at 40 mph on the Cape, however it is not specific beyond mentioning work on drainage and switches. The RDC feeder trains would connect with the MBTA's Boston-bound commuter rail trains at Middleborough. All stations are ADA compliant. The stated intent of the proposed three-year demonstration project is "to determine the feasibility of restoring permanent rail passenger service between Cape Cod points and Boston's South Station.. ." The Locally Initiated High Quality Passenger Rail Connection from Cape Cod, the Islands and Capeway Communities to Amtrak's Hi-Speed Acela Express Service proposal involves a collaboration of the Cape Cod Regional Transit Authority (CCRTA) and the Greater Attleboro-Taunton Regional Transit Authority (GATRA), with technical assistance provided by Bridgewater State College^^. It is intended to use Congestion Management/Air Quality (CMAQ) funding to initiate and operate this project in the near-term. It involves the operation of a seasonal rail connection between Cape Cod and the islands of Nantucket and Martha's Vineyard, "Capeway" communities, and the urban regions of Attleboro and Taunton with Amtrak's Northeast corridor high-speed Acela trains. The project proposes to use MBTA commuter rail equipment that has ended its scheduled run on the MBTA's Boston to Providence line. This equipment would time for events that cannot be foreseen or planned (delays) and is a component of reliable operation. The sponsorship of this plan by the CCRTA and GATRA has since been withdrawn; representatives of the RTA's have indicated that they do not want to be the lead agency in this rail effort, as the EOTC has the requisite rail expertise to do so. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-16 CHAPnR THREE EXISTING CAPE COD AKD ISUINDS PUBLIC TRANSPORTATION SYSTEM be operated Friday night from Providence, (wliere it would normally be stored in the equipment layover facility). After connecting with the northbound Amtrak Acela Express train at Providence, the train would operate to Attleboro on the Northeast Corridor, then over the Middleborough Secondary Track from Attleboro to Middleborough; the Cape Mainline from Middleborough to Buzzards Bay; and the Cape Mainline from Buzzards Bay to Hyannis Depot. Another connector train is proposed to run from Providence to Hyannis on Saturday at noon. Return trips would be operated on Saturday morning and Sunday afternoon, running from Hyannis to Providence to meet the southbound Acela trains to New York and Washington, D.C. Trains are proposed to operate at a maximum speed of 59 mph between Attleboro and Hyannis, with passenger station stops at Attleboro, Middleborough, Buzzards Bay, and Hyannis. All stations are ADA accessible. At the present time, the Massachusetts EOTC cannot provide operating subsidies for transportation services without specific legislative approval and funding^^. EOTC is providing capital infrastructure improvements at the Hyannis Rail Yard, and is reviewing other capital rail improvements. Proposals for passenger service should be viewed as self-supporting, and EOTC has stated that any passenger rail service proposals may include a fee to EOTC to operate over the state-owned right-of-way. The terms and amount of the fee have not yet been identified. 3.5 FERRIES Barnstable County's long coastline and its proximity to Martha's Vineyard and Nantucket make travel to, from and among Cape Cod destinations by ferry a natural transportation alternative, if not a necessity. The numerous existing options for ferry travel, as shown in Figure 3.8, can be grouped into three main categories: • Travel between Mainland points and Provincetown • Travel between Barnstable County and Island points • Travel between Mainland and Island points, and Island-to-island points It should be noted that there are no ferry services between Barnstable County points, and between mainland points and mid or upper Cape locations. The only Commonwealth entity that can provide operating subsidies is the MBTA. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-17 FIGURE 3.8 Sea and Air Routes for Cape Cod and the Islands 3.5.1 Travel between the Mainland and Provincetown Four operators offer seasonal passenger service between mainland locations and Provincetown: Bay State Cruise Company, Boston Harbor Cruises, Captain John Boats, and Gloucester to Provincetown Boat Express. During the height of the summer season, three of the companies offer daily service. During the shoulder season^^, service is limited to weekends. To Provincetown visitors, these ferry services offer the advantages of substantially shortening the trip distance and travel time, avoiding traffic congestion along the way, and avoiding parking hassles in Provincetown. Ridership figures are not available for individual services. A 1999 survey of Provincetown ferry riders sponsored by the Cape Cod Commission indicated that the final destination of 85 percent of the riders was Provincetown, with the remainder heading to Truro or Wellfleet.^° 3.5.2 Travel between the Cape and the Islands Five primary operators offer ferry service from the Cape to Nantucket and Martha's Vineyard. The largest of these, the Woods Hole, Martha's Vineyard and The 'Shoulder Season' is described as mid-April until Memorial Day in the spring, and Labor Day until late October in the autumn. ^° "Cape Cod Ferry Service Draft Research Report", September 1999, Cape Cod Commission. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-18 TRANSIT CHAPTER THREE - EXISTIN6 GAPE COD AHD ISLANDS PURLIC TRAKSPORTATION SYSTEM ^ - g Nantucket Steamship Authority (SSA) provides the only year-round passenger and vehicle ferry service to the Islands from Hyannis and Falmouth. The Massachusetts Legislature established the SSA in 1949 for the purposes of: • Establishing regulations for ferry service policies; • Operating ferry sen/ice, managing and regulating all other for-profit ferry service and, • Managing the demand for transportation to the islands. The SSA owns all of the dock facilities it uses, and most of the parking lots it uses. A 1997 survey of SSA passengers showed that about one third originate on Nantucket and Martha's Vineyard. In 1998 about 15 percent of traffic on Route 28 in the summer was generated by the SSA, slightly higher on weekends and lower on weekdays. Hy-Line Cruises has been operating passenger ferry service since 1971. Most of Hy-Line's service is seasonal from May to October. On regular passenger ferry service during the height of the season, they offer four daily trips to Martha's Vineyard and five to Nantucket. They estimate ridership to be 350,000 during the peak traveling season to Nantucket and about 150,000 to Martha's Vineyard.^^ On a summer weekend day, it is estimated that around 2,500 passengers use their Hyannis facility. The Island Queen, with a capacity of 600, runs regular passenger ferry service from Falmouth Harbor to Oak Bluffs from May to October, with seven to eight daily round trips during the height of summer. Since Falmouth is the closest Cape ferry port to the Vineyard, the trip takes only 35 minutes each way. The Falmouth-Edgartown Ferry Service also operates a seasonal ferry to Martha's Vineyard, and is the only one to call at Edgartown. Operating on weekends only during the shoulder season, they run five to six round trips daily from June to September. The Freedom Cruise Line offers seasonal passenger ferry service from May to October aboard the Freedom, from HanA/ich Port to Nantucket. They offer three daily round-trips during the summer months and one in the spring and fall. 3.5.3 Travel between Mainland and Island Points, and Island-to-lsland Points There are a number of limited services currently in operation from New Bedford to Cuttyhunk and Martha's Vineyard, from Connecticut and Long Island to Martha's Vineyard, and from Gloucester to Nantucket. Cuttyhunk Boat Lines SSA 1997 Onboard Passenger Survey database, SSA Passenger Data 97.xls. "Falnnouth Ferry Traffic Study - Draft Interim Report", July 26, 2000, The Cape Cod Commission. Conversation with Hy-Line Cruises Director of Operations, December 1 1 , 2000. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-19 CHAPTER THREE EXISTING CAPE COD AHD ISLAHDS PURIIC TRAHSPORTATIOH SYSTEM operates year-round passenger service from New Bedford to Cuttyhunk. The frequency of service ranges from one round-trip per week during the winter months to ten round-trips a week during the summer months. The SSA now runs seasonal passenger service from New Bedford. They offer parking in New Bedford near the dock and a 90-minute trip to Oak Bluffs. In May and October there is one daily round trip, and during the height of summer there are four. Fox Navigation, an affiliate of Foxwoods Casino, transports passengers from the State Pier area in New London, Connecticut to Vineyard Haven in 3 hours. Service is available Friday through Monday from May to October offering one to two round-trips per day. The Yankee Fleet operating out of Gloucester offers an unusual overnight service to Nantucket aboard the MA/ Yankee Freedom, a "Super Cruiser" yacht. Passengers may opt to spend the night (7-hour trip) in cushioned booths or book air-conditioned sleeping accommodations. The vessel arrives in Nantucket early Tuesdays and Fridays around 4:30-5:00 a.m.; passengers may sleep on board until 9:30 am. The vessel returns on Tuesday and Friday evenings and arrives back in Gloucester early Wednesday and Saturday mornings. 3.6 AIR TRANSPORTATION Commercial air service on Cape Cod uses Barnstable Municipal Airport and the Provincetown Municipal Airport. Both airports are general aviation fields that service private planes as well commercial airlines. Air service to and from the Islands is mainly through Nantucket Memorial and Martha's Vineyard Airports. They are also general aviation fields servicing private and commercial airlines, as well. A third of Nantucket air traffic is military- related. 3.6.1 Barnstable Municipal Airport Most scheduled air service to and from Cape Cod utilizes the Barnstable Municipal Airport, the major aviation center on Cape Cod. The airport is served by four passenger airlines offering scheduled service: Cape Air, Island Airlines, Nantucket Airlines, and US Airways Express (operated by Colgan Air). Non-stop service is offered to five destinations: Boston, Nantucket, Martha's Vineyard, Providence, and New York. Frequency of service varies with the season. Table 3.3 lists by location the number of scheduled round-trips. TABLE 3.3 Round-Trips by Location Destination Boston Vineyard Nantucket Prov./NYC December 1999 4 round trips 5 round trips 28 to/29 from Varies July 2000 1 1 round trips 7 round trips 30 to /31 from Varies DRAFT: Cape Cod Five-Year Public Transportation Plan Page 3-20 CHAPnR THREE EXISTING CAPE COD AND ISUINDS PUBIIC TRANSPORTATION SYSHM Total 1999 passengers by month are shown below in Figure 3.9. The seasonal variation is quite significant. The July total is almost two and one-half times the February total. Total passenger volume has grown continuously since 1992, except for 1996. 60000 50000 40000 30000 20000 ^-\ 10000 0 c (U < 03 3 D < o (/) > o z o Q FIGURE 3.9 1999 Monthly Passenger Volume at Barnstable Airport The number of passengers increased from 240,338 in 1992 to 428,967 in 1999 as demonstrated in Figure 3.10. 1992 1993 1994 1995 1996 1997 1998 1999 FIGURE 3.10 Yearly Passenger Volumes at Barnstable Airport DRAFT: Cape Cod Five- Year Public Transportation Plan Page 3-21 CHAPnR THREE EXISTING CAPE COS AMD ISIANDS PUBilC TBANSPOBTATION SYSTEM Passenger counts indicate tliat over 70 percent of air travel to and from Vr\e airport is between Hyannis and Nantuclf c;tnr>«; vv/ith chpltorc Personal safety from crime. Route Directness Shouldn't be more than 20% longer than a car trip. Spacing between Routes Minimum of 1 mile between routes in low-density areas. Route Length Shouldn't exceed 25 miles or 2 hours. Loading Limits Shouldn't exceed 150% in peak 30 minutes. Service Reliability During Peak: 80% of arrivals less than 8 minutes late. Stop Frequency Average 2 to 6 stops per mile for buses. Source: Transportation Planning Handbook, Institute of Transportation Engineers (ITE): 1992, and MBTA Service Quality Report, June 1997. (The criteria for screening demand are dependent on the type of trip purpose that is being served. Work, recreational, and shopping trips can use the criteria in Table 6.1, but the health and human services need more demographic detail from census data to establish routes that can serve this market.) • Data Collection depends on manual and automated data collection (for example, passenger counts), surveys, focus groups, and interviews for existing projects, as well as planned projects. Data collection should also be a critical activity during project planning stages to screen alternatives. • Implementation and Final Report consists of digesting the analysis resulting from applying the performance measures. Special attention must be given to problems or changes that occurred during implementation that might have influenced findings and the project's performance. The final report must document the history and effects of a project, as well as providing a basis for comparing the effects of a particular project component with those of other similar projects. This should lead to suggestions on possible modifications, and predicting the effectiveness and utility of the project components in other localities. This phase not only generates information on which the final assessment of the demonstration is based, but also provides feedback relative to ongoing public transportation/transit operations. The ongoing evaluation activities, while adding to the cumulative body of quantitative and qualitative information regarding project impacts, provide interim indications of costs and functions, and the preliminary effects of these components on system performance. These interim findings may be DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-3 CHAPTER SIX PLANNING CONSIDERATIONS useful to the local agency responsible for implementing and operating the demonstration by suggesting the need for operational modifications.^"* 6.2 STAFFING A full-time transportation planner could oversee the design and implementation of an evaluation plan. This individual would be charged with coordinating stakeholders, evaluating projects and services, developing planning policies, and identifying and programming projects. This service could be secured through a consultant contract with an individual or firm, or by hiring a planner directly (possibly as a Cape Cod Commission employee'^ ). 6.3 COORDINATION OF STAKEHOLDERS The success of the full-time transportation planner will depend greatly on an ability to work closely with the public. Cape Cod institutions, state agencies/offices, such as the Executive Office of Transportation and Construction, the Massachusetts Highway Department, and state and congressional delegations. Given the importance of public transportation on Cape Cod, many organizations need to be involved in the planning process - many of which are critical to project programming and funding. Stakeholders include: the federal government, state government, regional authorities, local governments, and public groups or organizations. The list below identifies many of the agencies and private transportation providers that are key to sustaining the planning process. Federal Government • Amtrak • Environmental Protection Agency (EPA) • Federal Transit Administration (FTA) • Federal Aviation Administration (FAA) • Federal Highway Administration (FHWA) • Federal Railroad Administration (FRA) • Joint Program Office (JPO) • U.S. Army Corps of Engineers Commonwealth of Massachusetts • Executive Office of Transportation and Construction • Department of Environmental Protection/MEPA It is also recommended that an annual 'report card' be developed that addresses In a time- series manner how well projects and services have been implemented, and recommendations on how to further improve them. 35 Other Massachusetts regional planning agencies perform planning work for the RTA operating in their geographic area of responsibility. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-4 CHAPTER SIX PLANNING CONSIDERATIONS • Massachusetts Highway Department (MassHighway) • Massachusetts Port Authority (MassPort) • Massachusetts Office of Tourism • Massachusetts Aeronautics Commission • Woods Hole, Martha's Vineyard and Nantucket Steamship Authority Regional Authorities • Cape Cod Commission • Massachusetts Bay Transportation Authority (MBTA) • Cape Cod Regional Transit Authority (CCRTA) • Old Colony Planning Council • Southeastern Regional Planning and Economic Development District • Nantucket Planning and Economic Development Commission • Martha's Vineyard Commission Local • All municipalities of Cape Cod • Local airport commissions • Municipalities in Southeastern Massachusetts • Private Ferry operators • Local Demand Response Providers, including many nonprofit's • Various Private Bus Carriers, including P&B and Bonanza • Cape Cod Central Railroad/Bay Colony Railroad • Air service providers • Martha's Vineyard Transit Authority • Nantucket Regional Transit Authority 6.4 INSTITUTIONAL BACKDROP 6.4.1 Current Structure Oversight of current regional public transportation issues for Cape Cod and the Islands are the responsibility of three Regional Transportation Authorities: the Cape Cod Regional Transit Authority (CCRTA), the Nantucket Regional Transit Authority (NRTA), and the Martha's Vineyard Transit Authority (VTA). The Cape Cod Commission provides planning input to these RTA's. These RTA's are the outcome of Chapter 161 B of the General Laws of the Commonwealth of Massachusetts passed in 1973 and made effective in early 1974. The law allows for towns within a certain defined geographic region to join together to address public transportation issues and to administer transit. Towns vote on a ballot measure to join the RTA and can consequently vote, via a ballot measure in either a regular or special election, to be removed from the RTA. Towns cannot vote against the creation of the RTA, only whether to join it or not. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-5 CHAPTER SIX PLANNING CONSIDERATIONS RTA's are staffed by an administrator, deputy administrator and several professional staff. Oversight is provided by an Advisory Board made up of town managers, selectmen or their designees of the member towns. Each member town has a weighted vote derived from its U.S. Census population data. Communities who are RTA members must make a conscious decision to support the provision of public transportation, recognizing the fact that public transportation is a service that is provided to the community, and that it cannot be supported solely by fare-box revenues. The creation of a RTA (such as the CCRTA) is also an attempt by communities to band together to solve a regional problem at a regional level. The goal of the RTA law was to create a simple bureaucratic structure with the administrator overseeing day-to-day operations and the advisory board overseeing budget matters. Administrators were expected to be the transit planners or public administrators already involved in local government. By law (Ch. 161 B), the administrator is the sole decision-maker and the advisory board approves or disapproves his or her plans. The power of a RTA's is its contracting for transit services. It cannot provide services directly as an owner/operator, but it can award exclusive contract rights to private providers. Additionally, a RTA cannot enter into negotiations with employees of the provider of the service, as that is a matter between the contractor and its labor force. The law further stipulates that bonds can be issued equal to the cost of service and can be used for capital improvements. Should the RTA derive income in excess of the cost of providing services, the surplus must either be disbursed back to the towns or placed in a reserve fund, which is not to exceed 3 percent of the prior year's reserve. A RTA is also enabled under Chapter 161 to act on behalf of the region to take all necessary action to secure federal funding and assistance for transit operations. It is therefore incumbent upon the RTA to be aware of what sources of funds and assistance are available from budget cycle to budget cycle, and to act apply for these funds. If received, the RTA's must also comply with all program-reporting requirements. Funding for RTA's come from three distinct sources, the federal government, state government, and the member towns. Funds from the federal government are administrated as program grants and formula based operating assistance. State funds match all but roughly 25 percent of the operating costs incurred by the CCRTA. The state in turn pays the net cost of sen/ices minus Federal funds and the town assessment. Town assessments are calculated using a formula Glacel, Barbara Pate, Regional Transit Authorities: A Policy Analysis of Massachusetts . New York, Praeger Scientific, 1983, pp 124. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 6-6 CHAPTER SIX PLANNING CONSIDERATIONS CAPF COD '^X TRANSIT^ 1 based on route and population. The assessment is not separated from the total assessment levied on the towns by the state for state services; it is part of the State's "cherry sheet". This makes it very difficult to determine what part of the overall assessment is actually for transit. The CCRTA receives input from the Cape Cod Commission (CCC) on an informal basis. Part of the charter of the CCC is to oversee public transportation and transit issues. The CCC was established as a regional planning and regulatory agency to prepare and implement a regional land use policy plan for all of Cape Cod, excluding the Islands. The Commission is a department of the county government, Barnstable County, and is funded through a variety of sources. The Commission is made up of volunteer members, representing each of the Cape's 15 towns and minority populations along with an appointee by the Governor (this seat is currently vacant). In turn, a professional staff with specific area expertise supports the Commission, including public transportation. The role of the Commission is to direct professional staff assignments and as such to represent the views and concerns of the constituencies they represent. While conducting research on public transit, popular journalists Mssrs. Alan Lupo and Edmund Fowler found that although public transportation decisions are unquestionably political, there is strong speculation that the political process works well in making them. Public transportation decision-making in metropolitan areas is characterized by: 1) Absence of public or private leaders concerned with the whole urban area, 2) Consideration of issues only when they reach a crisis, and do not directly threaten the loss of autonomy by municipalities, 3) A tendency of individual units to compete rather than to cooperate, and 4) A tendency of suburbs to hold the central city in suspicion, increased by differences in political parties, ethnicity and other divisive factors. Despite the fact that Cape Cod is generally considered to be a rural area, the challenges found by Mssrs. Lupo and Fowler in metropolitan areas are certainly applicable to the Cape today. In several analyses of the Cape, and the challenges to the region as it deals with its explosive growth, the issue of conflicting or absent central decision-making and who should ultimately take responsibility, continues to be a central issue. Lupo, et. al., Rites of Way: The Politics of Transportation Policy in Boston and the U.S. City . Boston, Little Brown, 1971. 38 Most recently, this absence of central decision-nnaking appeared in the 2001 updated Draft Regional Policy Plan. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-7 CHAPTER SIX PIANNING CONSIDERATIONS CAPF COD TRANSIT^ JI 6.4.2 Funding Opportunities for Transportation Improvements on Cape Cod The Task Force can take advantage of multiple funding and financing options available to help pay for the capital and operating expenses associated with the public transportation system. The three main funding sources are federal funding, state funding and direct income, which can be supplemented by innovative financing mechanisms through public-private partnerships. 6.4.2.1 Federal Funding The Commonwealth receives federal appropriations for public transportation purposes principally from the Federal Highway Administration, the Federal Transit Administration, the Federal Aviation Administration and the Federal Railroad Administration. Some of this funding is flexible and can be used to meet whatever public transportation needs state and regional decision-makers identify, and the remainder earmarked for particular public transportation modes and projects. A portion of the federal gas tax, currently set at 18.4 cents, is the primary source of this funding. In FY 1997 $939.6 million was collected in Massachusetts and the state received $991.9 million in public transportation funding. This funding is not project specific. 6.4.2.2 Discretionary Programs To implement many of the recommendations for improved public transportation sen/ices mentioned in this plan, the Task Force will need to investigate a variety of Federal discretionary funding sources. The process of obtaining a Congressional budget earmark is beyond the scope of this report. It should be noted, however, that there would need to be a high degree of coordination between local interests and Congressional representation in seeking federal funding. Other sources of federal funds will be available through various policies adopted by public transportation agencies, such as Federal Highway Administration or the Federal Transit Administration. These organizations work closely with the Commonwealth on programming and disbursing funds for projects that meet various policy goals. To secure these funds, the RTA's must pay close attention to agency goals and to work closely with the Commonwealth of Massachusetts EOTC. 6.4.2.3 State Funding State public transportation funding is derived from several sources: gasoline taxes, fees, bond proceeds, annual appropriations, sales tax and local assessments. The gasoline tax is the principal source of public transportation revenue in Massachusetts. The revenue from this tax is distributed to the Highway Fund, the DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-8 CHAPTER SIX PLANNING CONSIDERATIONS General Fund and a variety of environmental funds. Fees include charges to drivers for licenses, registrations, and plates. The revenues created by fees are credited to the Massachusetts Highway Fund. Bond proceeds issued by the Commonwealth, MassPort, Massachusetts Turnpike and MBTA are how Massachusetts finances most of its share of the capital improvement program. The Commonwealth also has the option of providing an annual appropriation through the general operating budget to finance capital improvements. 6.4.2.4 Forward Funding Prior to July 2000, the share of expenses paid by the Commonwealth for the operations (and in some cases fixed capital charges) of the MBTA and the 14 Regional Transit Authorities expenses, were reimbursed through the legislature up to 18 months after the close of that particular accounting year. This meant that the legislature had little control over actual authority spending, but was responsible for paying expenses long after they occurred. As of July 2000, the MBTA became the first transit authority in the Commonwealth required to submit a budget that would accurately convey the scope and breadth of the operations for the fiscal year, and be held accountable for any overages that may occur. To help pay down the backlog of prior expenses and to 'forward fund' budgeted expenses for the 2001 fiscal year, a dedicated funding source of one-fifth of sales tax revenue or 1 percent of sales of taxable goods, is now earmarked for the MBTA State and Local Contribution Fund. At the present time, negotiations are ongoing to require the fourteen (14) RTA's to forward fund their operations as well. Although it is not clear at the present time what the ramifications are for CCRTA, it would appear that this contribution fund could be a stable funding source for future CCRTA operations. Whether this funding environment will help or hinder the implementation of the recommendations from this plan is an issue that needs to be addressed before forward funding mechanisms are put in place. The effect of RTA "Forward Funding" upon RTA operations remains to be defined and addressed. 6.4.2.5 Direct Income Direct Income revenue consists of several sources including fares, parking fees, advertising, concessions, rent and non-operating revenues. Fares generated by ferries, planes and buses help pay for their operation. Parking fees can be collected at park-and-ride lots that serve transit stations or highway locations are another possibility. Concessions and rental fees at transit stations and park-and- ride lots can help defray some of the costs of operating them. Non-operating revenue is income earned on investments or the sale of property. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-9 CHAPTER SIX PLANNING CONSIDERATIONS 6.4.2.6 Financing Opportunities There are several methods used by the Commonwealth and by local/regional entities to form partnerships between government and the private sector to help share the costs associated with maintaining or improving the public transportation system. Some examples of these are Lease-to-Own options by the local public transportation agency, Design-Build-Operate"^^, Incentive Zoning, Impact Fees, and Regional Tax Base Sharing. The Lease-to-Own approach is feasible when a new facility is being built and is projected to generate enough revenue to provide investors with a competitive return. Design-Build-Operate allows for the design, construction, and operation of a public transportation project to be handled by one entity. This would translate into a time and cost savings. Incentive Zoning allows the communities to relax their zoning policies to induce in-kind benefits on the infrastructure. Impact fees allow municipalities to charge developers a fee to help mitigate any transportation-related impacts. Regional Tax Base Sharing grants the right for all of the communities within a public transportation agency to share in a percentage of the proceeds generated by the regional tax base. Unfortunately, much of the CCRTA's Federal operating funds are derived from formulas that are based on the region's year round population. This does not take into account the influx of the seasonal population and the associated transportation needs. At the present time, it is recommended that the federal and state funding formulas be modified to include seasonal population increases to provide equitable and realistic funding to implement many of the recommendations contained in this plan. Moreover, it will help relieve the inequitable funding and congestion burdens imposed on year round residents during tourist season. The National Park Sen/ice Cape Cod National Seashore is interested in leveraging NPS Alternative Transportation Systems into tangible transportation related improvements that benefit both the Park and the region. Presently, the Seashore has earmarked $100,000 for a Cape Cod Long-range Regional Plan, provided other entities at least match this amount. In 2000, the Seashore allowed the CCRTA the use of 5 propane buses worth approximately $500,000 to operate on the Provincetown-Truro Shuttle. Based on recommendations in this plan, as well as other planning currently being conducted by the Voipe Center, the NPS may be able to provide targeted funding for designated capital projects that can benefit both the Park and the region. Barnstable County is a "donor" county to the state in terms of the Motel/Hotel room tax (the portion of this tax for 2001 that went to the state from Barnstable County was $12 million). The per capita share of gasoline and sales tax collected Design-Build and Design-Build-Operate require Massachusetts Legislature exemption from Chapter SOB, which currently restrict these methods. DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-10 CHAPTER SIX PLANNING GONSIDEBATiONS in Barnstable County is also expected to be disproportionately high for the Cape's year round population. The Task Force has proposed that some of these revenues that flow from Barnstable County to the state be considered as funding that could be made available for transit and roadway needs. The Task Force has started the process of looking at these inequities, and the potential for capturing some of these revenues to fund the suggested improvements and make effective public transportation for Cape Cod sustainable into the future. 6.5 PRIVATE/PUBLIC SERVICE DELIVERY INNOVATIONS In some areas of the United States, transportation planners have created and implemented Transportation Demand Management measures that focus on ways to make better use of existing transportation infrastructure without constructing new roads through public/private partnerships. By developing alternate methods of transportation, fewer vehicles are needed to transport the same number of people. Public and private parties have organized through a proven approach to addressing and managing transportation needs through the formation of Transportation Management Associations (TMAs). The rationale behind the formation of a TMA lies in the synergy of collective actions, i.e., multiple businesses and the public sector accomplishing together what one business, or public entity could do alone. TMAs can help solve transportation problems by providing services directly to members, or providing a means for organized private sector involvement in decision-making, public sector planning, and projects. While there is no precise blueprint for forming a TMA, the funding mechanisms, purpose, membership, and size of proposed Cape Cod TMAs would need to be tailored to local Cape needs. TMAs can provide a wide array of service delivery innovations to its members, including but not limited to: Information and Assistance • Carpooling/Ride matching • Transit Route Information • Transit Scheduling information • Computerized Matching Assistance • Personalized Matching Assistance • Professional Transportation Coordinators Program Operations • Vanpool Programs • Bus pool Programs • Guaranteed Ride Home • Fleet-pool Programs • Commuter Choice Tax Benefits Alternative Work Schedules • Flexible Work Hours DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-11 CHAPTER SIX PLANNING CONSIDERATIONS • Staggered Work Shifts • Adjustable Hours for Ridesharing • Compressed Work Weeks Convenience Incentives • Carpool Preferential Parking • Vanpool Preferential Parking • On-site Transit Pass Sales • Shuttle Buses for midday use • Fleet vehicles for midday use It is proposed that three TMAs be formed throughout Cape Cod around the corridors of Hyannis/Barnstable, FalmouthAA/oods Hole, and Orleans/Outer Cape. The area around the county government offices and judicial facilities in Barnstable Village would be a likely candidate to commence a larger Hyannis/Barnstable TMA. This would demonstrate the county's willingness to tackle transportation problems created at county facilities, and plant the seed for the larger TMA encompassing the Hyannis/Barnstable area. All proposed TMAs could facilitate ways to efficiently and effectively transport seasonal and year-round workers to the various tourist, business, and health and human service entities in their area. The Hyannis/Barnstable, FalmouthA/Voods Hole and Orleans/Outer Cape TMAs would ultimately have to be supported through substantial private sector management and financial support to be successful. In Massachusetts, the statewide commuter services organization is CARAVAN for Commuters, Inc., a private non-profit organization affiliated with the Massachusetts Highway Department and the USDOT. CARAVAN provides assistance to commuters, companies, and transportation management associations throughout the Commonwealth, CARAVAN works with corporate leaders considering formation of TMAs to focus on business benefits, and to develop recommendations for employers and business groups on transportation demand management initiatives and TMA organizational alternatives. CARAVAN provides training, guidance, and technical assistance in operating a TMA, including program and financial management, board participation, and providing direct commuter services to employees of TMA member companies. Also, CARAVAN administers the TMA Assistance Program, which provides Congestion Management and Air Quality (CMAQ) funds to develop value-added, pilot transportation projects at the worksite for TMA member companies. Funds granted to a TMA are generally for administrative, planning, marketing and operational purposes only. To be eligible for funding, a TMA must provide a detailed action plan that includes articles of incorporation as a private, non-profit corporation, bylaws, geographic boundaries, trip management goals, a financing plan, institutional structure, and potential membership estimates. Working together with CARAVAN, the Cape Cod Chamber of Commerce, Massachusetts CAPr COD TRANSIT DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-12 CHAPTER SIX PLANNING CONSIDERATIONS Department of Environmental Protection, County of Barnstable, and major employers are the likely entities to initiate TMAs around Cape Cod. In the near term, the following TMA work plan activities should be pursued in each of the three corridors: 1 . Mission Statement Development , which is a concise statement stating the reason for the TMAs existence and outlining the general goals of the organization. 2. Goals and Objectives , which define measurable targets or goals for the first year of operation. 3. Detailed Marketing Plan , as the means for promoting the TMAs services and activities to the commuting public. 4. Detailed Budget , identifying sources and uses of funds necessary to accomplish the goals and objectives. 5. TMA Services , identifying what the TMA will be providing. 6. Monitoring/Evaluation , to establish performance measures and a means to evaluate the effectiveness of the TMAs activities. 7. Membership and Dues Structure, to ensure the viability and sustainability of the organization. TRANSil DRAFT: Cape Cod Five-Year Public Transportation Plan Page 6-13 CAPF con TRANSIT . CHAPTER SIX PLANNING CONSIDERATIONS DRAFT: Cape Cod Five- Year Public Transportation Plan Page 6-14 7. NEXT STEPS This Cape Cod Five-Year Public Transportation Plan provides a foundation for limiting congestion, improving public transportation services, and achieving greater integration among public transportation modes. Implementation of the recommendations contained in this plan is an important tactical step in shaping the overall direction of public transportation strategy on the Cape. Capturing public feedback is also critical to reaching a consensus and maintaining momentum for continued improvements in public transportation services. Evaluation of the recommendations contained in this report, as well as maintaining the dialogue for continual improvements of Cape public transportation strategy, should be a basis for staging a Transit Summit III in the spring of 2002. Besides considering the numerous improvements identified in the plan, important implementation elements include: developing and adopting a comprehensive marketing plan, hiring staff to coordinate and advocate for Cape Cod public transportation services and improvements, and considering the institutional changes that are needed to provide an "acceptable level" of public transportation services. This includes developing funding and implementation strategies to make the recommendations included in this report sustainable over the long- term. While this plan is the seminal product of the Cape Cod Transit Task Force, its work should not end here. Finding ways to ensure the ongoing viability of the Task Force should be a key policy objective of senior officials at every level of government, and in the private sector. This can lead the way to the important next step of initiating and assembling substantial funding for the commencement of a 25-year public transportation plan. DRAFT: Cape Cod Five-Year Public Transportation Plan Page 7-1 APPENDIX A Evaluation of Proposals To Re-introduce Rail Passenger Service to the Cape Cod Region Prepared for the Cape Cod Transit Task Force NOTE: THIS REPORT WILL BE AVAILABLE THROUGH THE CAPE COD COMMISSION ON DECEMBER 15, 2001 Prepared by Transit Safety Management, Inc. One East Main Street Georgetown, MA 01833 September 2001 i ■i