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Practices in the Development and Deployment of Downtown Circulators (2011)

Chapter: Chapter Five - Case Studies

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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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Suggested Citation:"Chapter Five - Case Studies." National Academies of Sciences, Engineering, and Medicine. 2011. Practices in the Development and Deployment of Downtown Circulators. Washington, DC: The National Academies Press. doi: 10.17226/14499.
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28 INTRODUCTION The synthesis survey results provide an overview of the major issues regarding downtown circulators. Following a review of these results, seven agencies were chosen as case study sites. Personnel directly involved with these programs agreed to be interviewed by telephone. In some cases, more than one per- son at an agency either participated in the interviews or reviewed the draft summary of the case study. The case stud- ies provide additional details on innovative and successful practices, guidance in the form of lessons learned, and insights into how “success” is defined for a downtown circulator. The selection process for case studies had several criteria: (1) include transit agencies of various sizes in different parts of the country; (2) include agencies at various stages of the imple- mentation and operation of downtown circulators; (3) select a variety of agencies charged with operating or overseeing the operation of downtown circulators, including transit agencies, municipal DOTs, and a private-sector entity; (4) include at least one agency that has discontinued its downtown circula- tor to reflect real difficulties facing downtown circulators. Almost 80% of responding agencies offered to be interviewed as a case study. As shown by examples from non-case study respondents in chapters three and four, these agencies offered very interesting responses based on their experiences. Four of the seven case study agencies are located in the Northeast Cor- ridor, but each of these has had success in implementing a downtown circulator. The seven agencies chosen provide a representative overview of the current state of downtown circulators. Figure 2 in chapter one showed the location of the case study cities, which are: • Baltimore, Maryland: Baltimore City Department of Transportation • Hartford, Connecticut: CTTRANSIT • Los Angeles, California: Los Angeles Department of Transportation • Louisville, Kentucky: Transit Authority of River City • Philadelphia, Pennsylvania: Center City District • Washington, D.C.: District Department of Transportation • Austin, Texas: Capital Metro The case studies summarize survey responses and inter- view observations from each agency. The introduction to each case study includes a basic description of the system, with data taken from FY 2008 National Transit Database reports. The interviews explored issues raised by the survey responses in greater depth. BALTIMORE CITY DEPARTMENT OF TRANSPORTATION—BALTIMORE, MD Baltimore City DOT oper- ates the Charm City Circula- tor in downtown Baltimore. All other transit in Balti- more is the responsibility of the Maryland Transit Administration (MTA), the regional transit operator. MTA’s service area popu- lation is 2.1 million. MTA operates 521 peak buses directly and another 175 under contract, along with 54 heavy rail vehicles and 36 light rail vehicles. Annual ridership on all services operated is 117.7 million. Circulator Origins and Operation There have been three previous efforts to establish downtown circulators in Baltimore over the last 20 years. All efforts were reasonably popular, but faltered on the lack of a sustainable funding source. Thus, when a downtown business group approached the city with a new idea for a downtown circula- tor, the city would not agree without identification of a sus- tainable funding source. This most recent effort had a different outcome. The city’s parking tax was increased by 25%, and this revenue provides 85% of the operating cost for the circulator. The remainder is funded through development impact fees and advertising. The city issued a request for proposals that defined the type of service it was seeking. One route would not be enough to serve downtown Balti- more. Also, it was important to go beyond the traditional boundaries of the CBD to serve close-in residential neighbor- hoods that are very transit-oriented. With the urging of circu- lator advocates who did not want a typical bus, the Baltimore DOT insisted on a state-of-the-art hybrid bus for use on the circulator. For the first time, the DOT established bus lanes in CHAPTER FIVE CASE STUDIES

29 downtown along the heavily traveled Pratt–Lombard east– west, one-way pair served by the first circulator route. Finally, the DOT dedicated 5% of the budget for marketing. The Orange Route, serving 28 stops on its roundtrip between Hollins Market west of downtown and Harbor East via Pratt and Lombard Streets, began operation in January 2010. The Orange Route operates weekdays every 10 min from 6:30 a.m. to 9 p.m. (until midnight on Friday), from 9 a.m. to midnight on Saturday, and from 9 a.m. to 9 p.m. on Sunday. All routes in the Charm City Circulator network have the same fre- quency and service span. Figure 3 shows the route map. The Purple Route began service in May 2010. The imple- mentation schedule was affected by delays in the bus produc- tion schedule. The city was focused on “doing it right,” and accepted delays rather than compromise by using an interim vehicle. Circulator advocates adamantly supported using a vehicle other than a typical bus. The Purple Route is a north– south route operating primarily via Charles and St. Paul Streets, with 27 stops on its roundtrip between Penn Station (served by Amtrak and MARC commuter rail trains) and Fed- eral Hill south of downtown. The Green Route, which is not yet in operation as of July 1, 2010, will connect Baltimore’s City Hall with the historic Fells Point neighborhood and the John Hopkins East Baltimore campus, primarily via President and Aliceanna Streets and Broadway. The Green Route will make 25 stops. There is considerable overlap with routes operated by MTA in downtown, but the branding of the circulator buses clearly identifies them as circulators (see Figure 4). In addition, the riders of the circulator appear to be largely new users of pub- lic transportation. The city DOT and MTA have a good rela- tionship. MTA is willing to let the city take the lead on the downtown circulator and has taken a supportive attitude. An interesting aspect of the Charm City Circulator is that two free Water Taxi Harbor Connectors connect Fells Point with Tide Point and Canton Waterfront Park, thus extending the effec- tive service area of circulator routes. The city is working with a marketing firm that is more than willing to undertake attention-getting gambits using new media, including flashmobs, a Twitter phenomenon in which a message is sent out to meet at a certain time at a particular loca- tion along the circulator. Media coverage has been almost uni- versally positive. The media has raised questions of how the circulator can escape budget cuts affecting most departments in the city, but is coming to understand the concept of a dedi- cated funding source. Previous efforts attempted to serve multiple markets with long headways and circuitous routes. The city is committed to operating 10-min headways to encourage ridership. The DOT has emphasized simplicity and ease of understanding in designing linear routes with small loops at either end. Office workers will be a primary market during the day, visitors will be a primary market during evenings and weekends, and residents will be a market at all times. The circulator is free. All of these elements are part of a deliberate effort to change the culture of transit in downtown Baltimore and nearby neighborhoods. The Baltimore DOT expected ridership on the Orange Route to grow to 1,200 to 1,300 riders per day. After the first month of operation, daily ridership had risen to 1,600. On opening day of the 2010 baseball season at Camden Yards, the route carried 2,100 riders. Next-bus technology on the vehicles and at stops not only informs waiting passengers of the arrival time of the next bus but enables the DOT to track ridership in real time. Demand is fairly consistent throughout the day, with spikes at lunchtime (11:30 a.m. to 1:30 p.m.) and in the early evening (5:00 to 7:00 p.m.). The tourist and visitor market has been important for the circulator. The city’s new convention center hotel is not on heavily traveled routes; however, ridership at the circula- tor stop outside the new hotel has been quite good. One marketing technique is to park a circulator bus outside the convention center for the first several hours of each con- vention, thereby giving attendees a chance to see it and remember it when they find the brochure in their conven- tion packet. A major constraint cited by the DOT was the use of federal funds. Like many agencies that do not operate transit, the DOT viewed complying with federal rules and regulations as a major effort that inhibited its ability to respond quickly and flexibly as issues arose. As one example, the agency has had difficulty obtaining a clear answer regarding requirements for complementary (fare-free) ADA service. The city relied on local funding sources to begin the circulator, but the DOT recently received news that its application for capital funds for a proposed route to Fort McHenry has been approved. Benefits and Drawbacks The primary benefits of the Charm City Circulator are a pre- mium, easily recognizable service that appeals to choice rid- ers and a park-once option so that tourists and visitors do not have to drive to multiple destinations in downtown. The pri- mary drawback of the downtown circulator is the cost. Annual operating costs are projected at $5.6 million when all three routes are up and running, or approximately $1.85 million per route. The changing role of downtown definitely influenced the design and operation of the circulator. Although the tradi- tional CBD continues to thrive, new major activity centers, including two Bio-parks and Harbor East, a 24-h district in an old industrial area, are within a mile of downtown and are served by the circulator.

30 STEPHANIE RAWLINGS-BLAKE MAYOR FIGURE 3 Charm City Circulator route map.

31 FIGURE 3 (Continued)

Changes and Lessons Learned If the Baltimore DOT could change one aspect of the planning and implementation it might have been more cautious in announcing the implementation schedule. Three launch dates came and went owing to a delay in vehicle acquisition, which lessened confidence in the city’s ability to deliver the service. The agency is convinced that it was worth the wait to get things right at the outset, and the issue of confidence disappeared once service was up and running; however, if they had to do it over again, they would wait until the vehicles were onsite before announcing a launch date. The Baltimore DOT offers several lessons learned through its implementation and early operation of the Charm City Circulator: • Do not try to please everyone all of the time. The rout- ing did not please all stakeholders, but the DOT stood by its goal to “keep it simple.” • A stable, reliable funding source is important. A circu- lator based on voluntary contributions will not work, as shown by previous efforts in Baltimore. • Set aside a good amount of money for marketing. The DOT dedicated 5% of operating funds to marketing. The circulator service needs to be highly differentiated from other transit services. The Baltimore DOT’s advice to another agency trying to replicate its program is to first identify a reliable and sta- ble funding source. Without it, the circulator will not be sustainable. Success can be measured quantitatively, based on rider- ship and productivity. However, certain intangibles also need to be included in the definition of success. In Baltimore’s case, the intangibles included added confidence in downtown and the breadth of support from elected officials, downtown interests, and the transit agency. 32 CTTRANSIT—HARTFORD, CT CTTRANSIT is the statewide transit operator in Connecticut, including Hartford (the state capital). The service area popu- lation of the Hartford Division is 850,000. CTTRANSIT’s Hartford Division operates 193 peak buses directly, with an annual ridership of 13.8 million. Approximately 50,000 peo- ple work in downtown Hartford. Circulator Origins and Operation CTTRANSIT began operating a downtown Hartford circula- tor in September 2005. The state of Connecticut built a new convention center in Hartford, and the Convention and Visi- tors Bureau (CVB) was emphatic that there needed to be a downtown shuttle to allow it to compete with other cities for conventions. The stumbling block for two years was funding. In July 2005, Hartford’s congressman presided over a meet- ing of everyone involved and brokered a plan to implement the shuttle. Funding for the circulator comes out of the Connecticut DOT budget. As the local transit provider, CTTRANSIT had approximately six weeks to design the route, estimate the tim- ing, prepare schedules, and brand the vehicles. The transit agency worked with the convention center management, the CVB, and the Metro Alliance (the greater Hartford Chamber of Commerce) in adapting the Metro Alliance’s most recent campaign theme, “Hartford: New England’s Rising Star.” The downtown circulator was christened the Star Shuttle. Ini- tially, it was viewed as a 90-day demonstration project; how- ever, ridership exceeded expectations and therefore it was extended for one year. By September 2006, the Star Shuttle had established itself as part of the transit network in Hartford. The market for the circulator is clearly defined as tourists and visitors, and the convention center and downtown hotels are its major champion. The circulator is a one-way loop route 2.5 miles in length connecting the convention center and the hotels, most of which are four to seven blocks away. Figure 5 shows the route, which also serves the Amtrak train station. Running time is 18 to 20 min, and CTTRANSIT uses two 30-ft buses seating 25 passengers each. Circulator brochures do not include a timetable, but simply state that service oper- ates every 12 min. Service is provided from 7 a.m. to 11 p.m. weekdays and from 3 p.m. to 11 p.m. on Saturday. There is no Sunday service. The downtown circulator operates a consistent route and headway all day; there are no dotted lines on the map indicat- ing part-time service. This consistency and simplicity of oper- ation is seen as a plus, quickly orienting tourists and visitors to its ease of use. FIGURE 4 Charm City Circulator bus branding.

33 A lunchtime crowd was also envisioned as a secondary market, but it has not materialized because almost every major office building in downtown has some type of cafete- ria. Although downtown restaurants thrive during lunch hour, many employees appear to stay within their buildings for lunch. CTTRANSIT has witnessed the crowds in the building cafete- rias during transit fairs at office locations. Ridership is heavily dependent on convention center activ- ity. When events take place, daily ridership is typically in the 500 to 600 range, and can be as high as 1,500 for a large con- vention. When the convention center is “dark,” daily ridership is between 150 and 200, many of whom are parking at remote garages and lots and taking the circulator to the office. The Star Shuttle is free. This was more or less a given at the start of the service. The transit agency’s estimate is that a nominal fare would bring only about 10% of the $500,000 cost to operate the service, which is not seen as worth the bother of installing fareboxes and counting money. Similarly, ideas about selling targeted advertising to local restaurants and others inside and outside the bus have not been pursued owing to modest revenue forecasts. Instead, signs inside the bus promote Hartford and its downtown in keeping with the tourist destination theme. Figure 6 shows a Star Shuttle bus. CTTRANSIT is flexible in response to convention needs and will make modifications to the service on a case-by-case basis. The agency will begin service earlier on Saturday and operate on Sunday if there is a big weekend convention. The circulator will operate until midnight or 1:00 a.m. on days when there is extensive evening activity. CTTRANSIT has a 40-ft hydrogen fuel-cell bus that is used primarily on the downtown circulator route. Even though it is branded somewhat differently, the “green” bus presents a very positive image of the city and the convention center (see Figure 7). Friendly drivers are an important component of a down- town circulator. There was a clause in the agency’s union Union Station ? (2009) XL Ce nter Homewoo d Suite s STAR SHUTTLE ROUTE Free downtown shuttle operates approximately every 12 minutes, Monday through Friday beginning at 7:00 AM to 11:00 PM, and Saturday from 3:00 PM to 11:00 PM. FIGURE 5 Star Shuttle route map.

34 • Everyone has a better idea for the route. These usually involve a stop directly outside the person’s restaurant or hotel. The main downtown theater and Symphony Hall cannot understand why they are not on the shuttle route, even though a $5 door-to-door taxi trip appears to be the preferred mode for most playgoers and concertgoers. The circulator does serve downtown Hartford’s small entertainment district. • The idea of expanding or extending the route is fre- quently raised. The increased length of time on the one- way loop and the cost of an extra bus are not clearly understood. • The state DOT funds all of the service; however, stake- holders are free in their opinions of how DOT might spend its money. There has been talk of a second route; however, there is no consensus among stakeholders regarding places to serve that are not currently served. A second route would double the cost of service and most likely duplicate at least some of the current route. CTTRANSIT guards the circulator very dili- gently to avoid dilution of service and to keep the focus on its primary market. The primary benefits of the Star Shuttle are a free connec- tion between the convention center and downtown hotels, strong ridership during convention events, and providing the CVB with a sales tool to attract conventions to Hartford. The whole process of starting up and operating the downtown cir- culator has been positive for CTTRANSIT. The transit agency is structured as a private entity to operate transit throughout the state, with all policy directives coming from the state DOT. It has no dealings with the mayor or the city council. CTTRANSIT’s involvement with the CVB has made transit more a part of the business community and has created valu- able partnerships. The primary drawback of the downtown circulator is low ridership when the convention center is dark. The circulator is not designed to serve the regular transit customer, because most of the route does not overlap another transit route or stop. However, this has positive aspects of avoiding confu- sion for both circulator and regular riders. Given the market for the circulator, any changes to down- town have not affected operation. If the agency could change one aspect of operation, it might operate fewer hours. A span of service from 7:00 a.m. to 6:00 p.m. on weekdays would meet the overwhelming majority of demand, and service could be added as needed on weekday evenings and weekends. It might appear that it would be more confusing to market the circulator as operat- ing sometimes during evenings and weekends; however, each convention is its own market. There was an expectation that a Saturday night market would develop, taking people from hotels to dinner, but it has not happened. FIGURE 6 Star Shuttle bus. FIGURE 7 Hydrogen fuel cell bus used on the Star Shuttle route. contract that allowed for negotiation of rates and other agree- ments for nontraditional transit service. CTTRANSIT’s general manager indicated that the agency wanted to select outgoing drivers who could serve as ambassadors. The transit union agreed, noting that no one would want just any driver on that route. As it turned out, the senior drivers who bid on the circulator when it started were exactly the type of drivers the agency wanted; a self-selection process appeared to be at work. The CVB helps to train the drivers in how to be cus- tomer-focused with tourists, and the drivers enjoy chatting with people visiting Hartford from around the world. Some drivers go above and beyond, putting together visitor packets using various brochures and directing visitors on how to save the $30 taxi fare to the airport by taking local transit. The union has been very cooperative, and many visitors have taken the time to write to the agency commending the drivers. Several issues have arisen over the years, mostly in response to the Star Shuttle’s success:

35 CTTRANSIT offers several lessons learned through its implementation and operation of the Star Shuttle: • Define the target market, in this case tourists and visi- tors to downtown. • Try to connect as many “dots” as possible that would serve as destinations for the customers, but in a short route that allows for good frequency. • Provide service every 10 to 15 min, or 20 min at the longest. • Branding of the service and the buses to stand out from the regular transit fleet is a must, especially if the target market is nontransit users. • Obtain buy-in from the transit union to allow for a spe- cial selection of drivers who can be trained as community ambassadors/visitor guides. This is important for the tourist and visitor market. • No fare is ideal, or at most a nominal fare. • It helps to have supportive partners who are willing to lobby for the service. CTTRANSIT’s advice to another agency trying to replicate its program is to keep it simple; a short route that connects the dots, operates frequently and consistently, and is well- branded. Success is measured partly but not entirely on rider- ship, and the definition of success goes back to the reason for starting the service. The downtown circulator is an impor- tant sales tool for the CVB and provides it with an advantage in competing for convention business. CITY OF LOS ANGELES DEPARTMENT OF TRANSPORTATION—LOS ANGELES, CA The city of Los Angeles DOT (LADOT)operates the Down- town DASH network in Los Angeles, along with neighborhood DASH services and com- muter express routes throughout the city. LADOT’s service area population is 8.6 million. The agency operates 259 buses under contract. Annual ridership on all LADOT services is 30.9 million. Metro, the regional transit agency in Los Ange- les, operates an additional 2,085 peak buses directly and another 149 under contract, in addition to 70 heavy rail vehi- cles and 102 light rail vehicles. Annual ridership on all Metro services is 476 million. Downtown employment exceeds 200,000. Circulator Origins and Operation LADOT began operation of the Downtown DASH in 1985. Since that time, the downtown circulator system has grown to six weekday and three weekend routes throughout downtown Los Angeles and neighboring areas, and the DASH concept has expanded to include neighborhood circulators throughout the city. The six weekday routes operate from 5:50 a.m. to 7:00 p.m. Weekday headways vary between 5 and 10 min during peak periods and between 5 and 20 min in midday, depending on the route. Figure 8 shows weekday Downtown DASH Routes A through F. DASH Routes E and F operate on weekends, along with a Downtown Discovery route (shown as Route DD in Figure 9). The three weekend routes operate every 20 min between the hours of 10 a.m. and 5 p.m. with the exception of DASH Route E on Saturday, which begins service at 6:30 a.m. and operates every 6 min. The regular fare was originally 25 cents, but was recently increased to 35 cents (its first increase ever) and is scheduled to increase again to 50 cents in July 2011. Downtown DASH monthly passes are available for $9. LADOT worked with the Los Angeles County Metropol- itan Transportation Authority (Metro), the regional transit agency, when designing the original DASH routes and con- tinues to do so when making changes. Many Metro routes either terminate or travel through downtown; however, the agency recognized that its route structure and fare did not attract many riders traveling within downtown. Employees are the primary market for Downtown DASH; however, shoppers, downtown residents, and tourists are also served, and each route has a slightly different purpose. Route F travels south of downtown, serving the University of South- ern California and surrounding residential areas. Route E con- nects a residential area west of downtown with the Fashion District (known colloquially as the Garment District) and is the most productive of the Downtown DASH routes. Route D connects downtown with Union Station and Gateway Plaza, where many regional rail and bus lines terminate. The week- end Downtown Discovery route is designed for tourists, but is facing possible discontinuation as a result of tight budgets and low ridership. The primary funding source for Downtown DASH is Prop A, a local sales tax for transit. The three oldest DASH routes also receive federal formula funds through Metro; newer routes are funded entirely through Prop A funds. LADOT operates 58 Downtown DASH buses in peak ser- vice. Annual ridership is approximately 7.5 million per year (25,000 each weekday, 8,000 each Saturday, and 2,700 each Sunday). Figure 10 shows a DASH bus, which is branded to stand out from buses of the many other transit agencies serv- ing downtown Los Angeles. LADOT uses 30-ft buses, although it has received funding to purchase larger buses for Route E to address capacity problems. Each DASH bus stop is signed with the DASH logo. LADOT has worked with the same marketing firm since the inception of the

36 FIGURE 8 Downtown DASH weekday routes.

37 FIGURE 9 Downtown DASH weekend routes.

Downtown DASH to establish a clear identity for its buses and stops. A private contractor operates the Downtown DASH under contract to LADOT. A primary goal for this service is to be “a step above” other transit services in downtown and LADOT emphasizes the Downtown DASH operator’s role as an ambassador. LADOT has received letters of commendation for its drivers from visitors as far away as the East Coast and Canada. Benefits and Drawbacks LADOT rates its Downtown DASH as very successful. The chief benefits of Downtown DASH service include encourag- ing commuters to use regional bus and rail service by provid- ing a means to reach their employment sites in downtown; 38 allowing these commuters and others a means to get around downtown during the day; and providing downtown residents with an alternative to driving their cars for downtown trips. The primary drawbacks of the Downtown DASH are ris- ing operating costs in times of budget cutbacks and reliable, on-time operation on congested downtown streets with regu- lar service interruptions resulting from building construction, public works projects, filming, and street closures. The con- gestion causes bunching, especially on the very frequent routes. LADOT recently purchased a system with next-bus capabilities, so that riders can access next-bus information at the stop level through personal digital assistants, computers, or telephones. Dispatchers also see and use this information to track the buses and take corrective action as needed. The downtown has evolved since the Downtown DASH began, and downtown’s residential component has grown sig- nificantly. Service entertainment venues (Live LA near the Staples Center is one example) have also flourished. Route A in the Financial District and Route B in Chinatown experience a spike in ridership during lunch hour. LADOT has not been able to respond to all these changes as it would have preferred owing to budget issues, but it has added service to DASH routes in residential and entertainment areas. Ridership soared during a Metro strike, and the regional transit agency has been concentrating more resources on regional service, leaving DASH to serve downtown. A benefit of being part of city government is the ability to work closely with traffic engineers. There is now signal prior- ity for buses at a key downtown intersection, a bus-only lane along Figueroa Street in the morning peak, and an upcoming signal coordination project will also assist in improving bus travel in downtown. Changes and Lessons Learned If LADOT could change one aspect of the Downtown DASH implementation and operation it would have worked in closer collaboration with Metro to ensure that LADOT’s role and responsibility as the primary provider of downtown mobility dovetailed with the larger regional perspective. This collabo- ration is taking place now, but the dialogue and close collab- oration would have been useful at the very start. LADOT offers several lessons learned through its opera- tion of the Downtown DASH: • Take sufficient time to coordinate with other agencies and municipalities and clarify the role of the downtown circulator system. • Get feedback from large employers, visitors’ bureaus, convention centers, and hotels so that you clearly under- stand their needs. This allows you to plan effectively for service span, route alignment, and regional connections, FIGURE 10 Downtown DASH branding.

39 and to avoid duplication and ideally coordinate with pri- vate shuttle operators. • Build in a regular cycle of reviewing downtown circula- tor service to ensure that you capture changes to the downtown landscape. Changes in travel patterns and migration of employment centers can gradually affect location of demand and running times, but can be iden- tified through periodic reviews. LADOT’s advice to another agency trying to replicate its Downtown DASH is to provide short headways to minimize wait time for the circulator. Identify attractions and be clear on who your market is; make the circulator as easy to use as pos- sible; emphasize service quality, be “a step above” other tran- sit operators through clean buses, knowledgeable operators, and reliable on-time performance; and finally, develop a dis- tinctive brand for the service. Other factors play an important role, but LADOT views ridership as the best indicator of success, especially given its diverse customer base in downtown Los Angeles. If ridership falls off on a route or in a particular area, it is a sign that some- thing is not right. TRANSIT AUTHORITY OF RIVER CITY— LOUISVILLE, KY Transit Authority of River City (TARC) is the transit operator in Louisville, Kentucky, and the surrounding area. The service area population is 755,000. TARC operates 198 peak buses directly and another 7 under contract. Annual ridership on all services is 15.6 million. The history of trolleys in Louisville goes back to the 19th century. Fontaine Fox, the man who created the “Toonerville Trolley” comic strip, based it on the old Brook Street Line that served a Louisville neighborhood known then as Toonerville. The steel-wheel trolleys made their last trip on May 1, 1948. Almost 40 years later, the city of Louisville designed a revital- ization plan that included a pedestrian mall for 4th Street, a retail street in downtown Louisville with several theaters. TARC obtained federal funds to purchase Chance rubber-tired trolleys to operate along 4th Street. Free trolley service began in late 1987. Amid budget woes in 1994, TARC was planning to insti- tute a 10 cent fare on the 4th Street trolley and cut back service levels. A leading banker in Louisville assembled a downtown coalition that agreed to provide funds to keep the trolley oper- ating free for five years. TARC operated a downtown circulator bus route along Main and Market Streets, an east–west, one-way pair. When the Louisville Slugger Museum opened in 1996, TARC replaced the buses with trolleys on this route. This turned out to be a public relations coup, because all the hoopla surround- ing the museum opening included the new trolley route. It is not often that a transit general manager gets to share a stage with several Hall of Fame baseball stars. Figure 11 shows the two trolley routes that continue to operate today. The 4th Street Trolley operates every 7 to 10 min between 8 a.m. and 7 p.m. weekdays and every 20 min between 10 a.m. and 6 p.m. on Saturday. The Main/Market Street Trolley operates every 10 min between 6 a.m. and 8 p.m. on weekdays and every 15 min between 10 a.m. and 6 p.m. on Saturday. Weekday ridership is approximately 1,000 each day. The next evolution of the trolley occurred in 2001 when a group of artists and art gallery owners along Main and Mar- ket Streets proposed the First Friday Trolley Hop. Many of the galleries were scheduling art openings and events on the first Friday of each month, and it seemed natural to use the trolleys as transportation and as a great marketing tool. Restau- rant owners joined in, and together they provided funding for TARC to operate the trolley from 5 p.m. to 11 p.m. on first Fridays. This became a phenomenal success, thus encourag- ing more shops and galleries to stay open late. Free parking is available along the route, and ridership exceeds 3,000 in good weather. The galleries benefit by being connected to each other by means of a free, attractive, fun mode of transporta- tion, and TARC benefits by its association with a combined cultural event and very big block party. The success of the First Friday Trolley Hop inspired a sim- ilar service along the historic Frankfort Avenue corridor. On the last Friday of each month, galleries and businesses in the corridor sponsor the F. A. T. Friday Trolley Hop. Figure 12 displays the route. In a city the size of Louisville, transit can become part of the fabric of the community. TARC’s willingness to experiment with unconventional ideas served as a means to

40 5t h St . 3r d St . 5t h St . 3r d St . .tStekraM .tSniaM 1s t S t. 6t h St . Ar m or y Pl . 7t h St . 8t h St . R oy W ilk in s Br oo k St . Fl oy d St . Pr es to n St . Cl ay S t. Ja ck so n St . H an co ck S t. Sh el by S t. Palace Theatre Theater Square 4th St. Live Louisville Slugger FieldLouisvilleBallet Actors Theatre The Kentucky Center Metro Hall Louisville Slugger Museum Louisville Science Center Kentucky Museum of Art & Craft Muhammad Ali Center Frazier Historical Arms Museum Liberty St. Muhammad Ali Chestnut St. Jefferson St. Witherspoon St. Washington St. Washington St. Franklin St. 10 th S t. 10 th S t. 4t h St . 4t h St . Kentucky International Convention CenterLouisville Visitors Center Main & Market St. Trolley 4th St. Trolley 4th St. Special Event Route LEGEND 1st Friday Gallery Hop Ca m pb el l S t. FIGURE 11 Downtown Louisville trolley routes. P P P P P P P P P P P P Bi rc hw oo d Av e. Pe te rs on A ve . Ew in g A v e. Thompson A ve. Brownsboro Rd. Frankfort A ve. Frankfort Ave. Ja ne S t . Ke at s A v e. Hi te A v e . B a yl y Av e . Fr an ck A ve . V e rn on A ve . Ha ld em an A ve . Co ra l A v e . W av er ly C t. Po pe S t . St at e St . Me llw oo d A ve . Me llw oo d A ve . Sto r y A ve. E. Ma in St. Cl ift on A ve . P P Stilz Ave. Be lla ire A ve . Be lla ire A ve . Work the Metal (at Butchertown Market) eyedia, design it again Kaviar Forge & Gallery 2023 Mid-Century Modern Elizabeth's Timeless Attire Pottery Rowe Varanese Sister Dragonfly Gallery Mona & Lisa Margaret's Consignment & Collectibles Porcini Just Creations The Irish Rover Heine Brothers’ Coffee Crescent Hill Gallery The Wine Rack Quest Outdoors 2900 2800 2600 2500 2400 2300 2200 2100 2000 1900 1800 1700 17 00 16 00 16 00 15 00 14 00 1300 1200 1100 1 1 0 0 1 2 0 0 1 3 0 0 140 0 150 0 18 00 Third Lutheran Church El Mundo Friends Lapidary Jewelry & Beads Supply Sol Aztecas Grill & Cantina First Capital Bank of Kentucky S. Bayly Boutique Mariposa Place Celia’s @ Mellwood Gallery Janjobe Patti Cakes Cafe MELLWOOD ARTS & ENTERTAINMENT CENTER ARCHITYPE Gallery Davidson Design c.c. & company interiors It’s All Greek to Me! Conez & Coneyz Peacock Boutique Dressing Room 2700 Specialty Shops Galleries, Studios & The Arts Dining & Entertainment Business & Professional Services Neighborhood Attractions & Organizations Free Trolley Stop Free Parking Legend St. Mark’s Episcopal Church 2822 Frankfort Ave. Margaret’s Consignment & Collectibles 2700 Frankfort Ave. Alley between Bayly & Hite Crescent Hill United Methodist Church 201 S. Peterson Ave. & Frankfort Ave. Clifton Center 2117 Payne St. & Clifton Ave. Clifton Christian Church 131 Vernon Ave. Third Lutheran Church 1864 Frankfort Ave. American Printing House for the Blind 1839 Frankfort Ave. Mellwood Arts & Entertainment Center 1860 Mellwood Ave. & Delmont Butchertown Market 1201 Story Ave. either side of building Public Parking Between Bayly & Hite, behind Carmichael’s Bookstore Public Parking Franck & Frankfort Ave. Public Parking Alley between Ewing & Peterson, behind League of Women Voters Public Parking Corner of Keats & Frankfort Ave., next to The Irish Rover Free Parking Public Parking SM Trolley Free Trolley Stop FIGURE 12 Frankfort Area trolley route. do this. Interestingly, a private coach operator filed a com- plaint stating that the trolleys were charter service and should be put out to bid. The FTA ruled that the trolleys were regularly scheduled service and could continue to be operated by TARC. Fare policies have evolved over time. Originally free and remaining free through the efforts of local businesses, the trol- leys instituted a 25 cent fare in 2004. Social service agencies ministering to the homeless were located at either end of the Main/Market Street trolley, and a nominal fare was seen by many as a way to define the market for the trolley. The fare was raised to 50 cents in 2007. As with transit agencies around the country, TARC has faced major budget shortfalls and in the spring of 2010 announced a 10% to 15% cut in service. TARC’s proposal eliminated the 4th Street trolley and cut back the Main/Market Street trolley to peak hours only, essentially serving as a park- ing shuttle. As a result, Louisville’s mayor was concerned. After more than 20 years of operation, the trolleys had become a symbol of downtown’s vibrancy and activity and were

41 prominently featured in videos and brochures promoting the city. The Convention and Visitors Bureau noted that the trol- leys were an important selling point for visitors, even if they did not use them. The mayor’s staff convened a meeting of business and community leaders to explore options regarding the trolleys. TARC explained to the group that the 50-cent fare and less- ened frequency of service were stumbling blocks to trolley use; no fares and good frequency were necessary for success. At the next meeting, TARC proposed no fares, 7 to 10 min headways along 4th Street, 10 min headways all day along Main and Market Streets, a marketing campaign, and a survey of riders. TARC gave the group a price tag of $102,000 for the summer, and the Downtown Development Corporation agreed to fund summer operations, with the understanding that the group would reconvene after the summer to decide on a future direction. Benefits and Drawbacks A primary benefit of the Louisville trolleys was increased exposure to transit for community members that might not normally ride the bus. This exposure does not always benefit TARC, because some residents do not believe that the trolleys are part of the agency. The primary drawback of the trolleys is that they are slow; a result of downtown congestion. This is particularly true along Main and Market Streets; however, 4th Street has been opened to traffic and is no longer a pedestrian mall. The deci- sion to charge a fare discouraged ridership, but the trolleys were once again free in the summer of 2010. Changes and Lessons Learned If TARC could change one aspect of trolley operation it would implement a dedicated lane or signal priority for the trolleys to speed operation. TARC offers several lessons learned through its operation of the downtown trolleys: • Trolleys provide greater exposure to transit for commu- nity members who do not ride the bus. Residents who may not be aware of the bus network notice the trolleys downtown. • Appearances matter. People like the trolleys, whether they ride them or not. • Trolleys provide positive images congruent with the vision of civic leaders for their city and especially their downtown. The symbology of the trolleys builds sup- port for transit among key stakeholders. • Frequent service is necessary to attract riders. Current headways range from 7 to 10 min throughout the day. • An understanding of typical walking distances and atti- tudes toward walking is needed to gauge whether a downtown circulator will work. If residents and down- town employees are averse to walking, so much the bet- ter, as long as frequency is good. • The special Friday night trolleys are worth their weight in gold. These services associate the trolleys and TARC with the vibrancy of the community and thus change how transit is viewed. TARC’s advice to another agency trying to replicate its downtown circulator is to be clear with decision makers and stakeholders about what you are getting into—objectives, expectations, costs, and the role of the trolley. It is imperative to have the downtown business community and activity groups on board as part of the experiment, not as after-the-fact observers. The downtown circulator needs champions, within both the transit agency and civic groups. In Louisville, the trol- ley aided in the revitalization of downtown, although it is important to note that the trolley would not have achieved this by itself. The role of the trolley in downtown revitalization was not as the leader, but as a lever that made other things possible. Success is measured partly but not entirely on ridership; community acceptance and support is a big part of the equa- tion. One downtown business leader noted that the image conveyed by the trolley would be useful even if it was empty. Measuring success involves the answer to the question: why are we doing this? If the vibrancy and attractiveness of down- town is the answer, then develop metrics such as how many people come downtown. The trolley is part of the attraction, but lots of people and organizations can share credit for downtown’s vitality. CENTER CITY DISTRICT—PHILADELPHIA, PA Center City District is a Business Improvement District in Center City Philadelphia, whose mission is to enhance the vitality of Center City Philadelphia as a thriving 24-h down- town and a great place to live, work, and have fun. The Central Philadelphia TMA, affiliated with the Center City District, works to make travel within Center City efficient, reliable, pleasant, and safe. The TMA manages the downtown circu- lator, known as the Phlash. The regional transit agency in Philadelphia is the Southeastern Pennsylvania Transportation Authority (SEPTA), which operates 1,152 peak buses directly, along with 278 heavy rail vehicles, 127 light rail vehicles, 20 trolleybuses, and 315 commuter rail vehicles. SEPTA serves an area of 3.3 million and has an annual ridership of 341 mil- lion. Downtown employment is more than 200,000.

Circulator Origins and Operation The downtown circulator (the Phlash) in Center City Philadel- phia was the brainchild of then-Mayor Edward Rendell in the 1990s, a time when a new convention center and several new downtown hotels were opening. The mayor had witnessed something similar in Phoenix and thought that the concept would work in Philadelphia. SEPTA initially operated the downtown circulator under contract with the city. When the city (under a new mayor) could no longer afford to operate it, the TMA assumed the role of operator with the help of grants from the state. Mayor (later Governor) Rendell has been the lead champion of Phlash service. The TMA has been the stew- ard and operator of the Phlash. A contractor provides day-to- day operation. The market for the Phlash is clearly defined as tourists and visitors. Its main purposes are to support a “park once” concept for day visitors and to serve the convention center and hotels. Employees, shoppers, and downtown residents also use the Phlash. The Phlash operates along Market Street and Benjamin Franklin Parkway between Penn’s Landing and the Philadel- phia Museum of Art, and then extends west to the Centennial District with stops at the zoo and children’s museum. Figure 13 shows a streamlined route between tourist attractions that also serves a major business corridor. There are 27 Phlash stops. The original route was circuitous and confusing and took in residential, retail, employment, and tourist spots. As a 42 result of trying to please all markets, it was excessively long. When the TMA assumed operation, it focused on the tourist and visitor market and designed a simple, shorter loop, from the Delaware River waterfront to the Art Museum, passing the convention center and several hotels. Aside from minor changes, that route continues today. In 2009, the Philadelphia Zoo and the children’s museum, located west of the Art Museum, asked to participate, and the route was extended to its present configuration. SEPTA contributed funding to brand a new vehicle that was required for the extension to maintain the headway. The TMA also reached an agreement with the zoo and the chil- dren’s museum along the route extension that they would make up any funding shortfall as a result of the extension. Ridership skyrocketed, so the agreement was not needed. The Phlash operates every 12 min between 10 a.m. and 6 p.m., 7 days a week, between May 1 and October 31. Chance Historic Streetcars are the vehicles used on the Phlash, and these are branded with a distinctive color scheme, shown in Figure 14. The contractor purchases and main- tains the vehicles. Ridership is heaviest on the weekends, reflecting the Phlash’s tourist orientation. Saturday averages almost 2,000 riders, Sunday ridership is more than 1,600, and weekday ridership is slightly under 1,400. Senior citizens can ride free, and account for 23% of Phlash ridership. 16 # 23 9 12 11 26 68 14 10 1 25 20 2423 21 123 15 17 19 18 4 5 7 22 27 FIGURE 13 Phlash route map.

43 The Phlash charges a fare of $2.00. An all-day PhlashPass is available for $5.00 and an all-day Family PhlashPass costs $10.00. Seniors and children under five always ride free. In 2009, the Phlash began accepting SEPTA passes. There are several stops where passengers can transfer to a SEPTA bus. Also, the Phlash stops at downtown’s two multi-modal transit stations with access to regional rail, subway, and trolley lines. The TMA markets the Phlash extensively in various ways. It prints thousands of brochures and provides them to muse- ums, hotels, and the convention center. A Phlash video is shown in hotel rooms, at the convention center, and on the vehi- cles themselves (see the video at http://www.centercityphila. org/about/CPTMA.php). There are advertisements in WHERE magazine (distributed in hotels and elsewhere), website pro- motions, and special “Phlash Day” events throughout the sea- son, occasional press releases, and a Park ‘n Ride discount at various parking facilities. State grants of approximately $850,000 per year support the marketing efforts. Governor Rendell appointed an advisory group when the TMA assumed responsibility for the Phlash. After the first year of TMA operation, the group was convinced that the TMA could run the circulator. Members of the advisory group are now members of the TMA Transportation Committee. The TMA has occasionally received requests for weekend- only service or a shortened route serving the cultural institu- tions along the Benjamin Franklin Parkway and the zoo, but without additional financial support from these destinations, operating the Phlash between November and April is cost- prohibitive. Funding and the inability to identify a long-term funding source are the major constraints. There is concern regarding continuation of the state grants supporting the Phlash when Governor Rendell leaves office at the end of 2010. The TMA and SEPTA have discussed the possibility of the transit agency assuming responsibility, but no decision had been reached at the time of this review. The primary benefit of the Phlash is that it provides a low- cost, easy link aimed primarily at visitors, between downtown Philadelphia’s historic destinations and the city’s cultural attractions, a distance of approximately 2 miles. The addition of a “leg” from the cultural attractions to the zoo and chil- dren’s museum west of the downtown area has resulted in ridership increases. The primary drawback of the downtown circulator is fund- ing, with a significant subsidy needed from the state. Other drawbacks include its seasonal nature, with no service from November through April, and the difficulty meeting head- ways consistently owing to downtown traffic. Changes in downtown have not affected operation signifi- cantly. The TMA has adjusted Phlash stops to incorporate new destinations and extended the route, as noted earlier. The TMA would not change any aspect of the Phlash’s design and implementation. Funding is the major issue. The TMA offers a single lesson learned through its implementa- tion and operation of the Phlash; a subsidy is required for operation, because the circulator does not make money. The Central Philadelphia TMA’s advice to another agency trying to replicate its program is to identify a funding source to subsidize operation of the downtown circulator. Success is measured by ridership and also by the number of satisfied rid- ers. The TMA always has survey cards available on the street- cars and asks drivers to encourage passengers to fill them out and return them. The contractor continuously trains drivers on various aspects of customer service. Rider satisfaction is the TMA’s most important goal; making visitors to Philadelphia feel welcome and putting them at ease on how to get around to all the major attractions. DISTRICT DEPARTMENT OF TRANSPORTATION—WASHINGTON, DC The District DOT (DDOT) funds and oversees the DC Circu- lator network in Washington, D.C. The District of Columbia pays Metro (Washington Metropolitan Area Transit Author- ity) a management fee to manage the DC Circulator service, and Metro contracts out the actual 45-bus operation to a pri- vate contractor. Metro is the regional transit agency in the Washington D.C. area. It operates 1,261 peak buses directly and another 24 under contract, along with 830 heavy rail vehi- cles in a service area with a population of 1.3 million. Annual ridership on all Metro services is 425 million. FIGURE 14 Phlash vehicle.

Circulator Origins and Operation The DC Circulator began with the District of Columbia’s desire to provide better connections in downtown. The concept had been studied for years, and the Downtown Business Improve- ment District was interested. The National Capital Planning Commission was another early proponent of a downtown cir- culator. DDOT worked with Metro to identify potential fund- ing sources, and the DC Circulator began operation in 2005. The first routes focused on the core of downtown, Union Station, and Georgetown. In 2009, the DC Circulator system expanded to serve neighborhoods that are more residential in 44 character. Today’s circulator includes five color-coded routes, shown in Figure 15. • The Orange Route (Georgetown to Union Station) operates every day between 7 a.m. and 9 p.m., with late night service between Georgetown and downtown until midnight Sunday through Thursday and 2 a.m. Friday and Saturday. • The Green Route serves Woodley Park, Adams–Morgan, and the McPherson Square Metro station. This route operates every day between 7 a.m. and midnight, with late-night service until 3:30 a.m. on Friday and Satur- day nights. SW NW SE NE New York Ave Rhode Island Ave Eastern Market Union Station Shaw- Howard Univ U St/African-Amer Civil War Memorial/ Cardozo Mt Vernon Sq-7th St/ Convention Center Gallery Place - Chinatown Metro Center McPherson Square Capitol South Judiciary Square Federal Center SW Navy Yard Waterfront/ SEU Archives- Navy Mem'lFederal Triangle Pentagon Smithsonian L'Enfant Plaza Woodley Park-Zoo/ Adams Morgan Columbia Heights Dupont Circle Farragut North Farragut West Arlington/ Cemetery Foggy Bottom/ GWU Cleveland Park Georgia Ave/ Petworth Brookland- CUA Nationals Park 14th St N W 1s t S t N W S St NW Kenyon St NW Ontario Rd NW Kilbourne Pl NW Lamont St NW Ohio Dr SW Ohio Dr SW P St NW K St NE 4t h St N E 12 th S t N W R St NW Madison Dr NW Pat ton Dr 8t h St N E O St NW9 th S t N W L St SE 3r d St N E K St NW M St NW P St NW 31 st S t N W Ei se nh ow er D r 34 th S t N W 15 th S t N W M t Pleasant St NW 3r d St S E 2n d St N E Ohio Dr SW 4th St N W 4t h St S W A St SE New Jersey Ave NW P St SW Jefferson Dr SW 10 th S t N W 1s t A ve S W 7t h St S E 2nd St N W 28 th S t N W 18 th S t N W Tingey St S St NW 17 th S t N W 3r d St N E 6t h St S W 2n d St S W V St NW L St NW E St SE W St NW 5t h St N E U St NW 7t h St N E M ar sh al l D r I St SW Mem orial Dr 2n d St S E O St SW 4t h St N W 5t h St N W C St SW G St SE 30 th S t N W G St SW E St SW I St NW T St NW N St SW K St SE Q St SW I St NE 1s t S t N W 11 th S t N W L St NE 35 th S t N W 33 rd S t N W 1s t S t S W 5t h Av e SW N St NW 24 th S t N W Cathedral Ave NW 7t h St N E 8t h St N E Ordway St NW 13 th S t N W 15 th S t N W G eorgia Ave NW U St NW Q St NW Florida Ave NW Calvert St NW 4t h St N E Cleveland Ave NW 19 th S t N W 4t h St S E 6t h St N W New Jersey Ave SE 23 rd S t N W Maine Ave SW 6t h St N E 22 nd S t N W 29 th S t N W Q St NW I St SE Bryant St NW D St SW M St NW Columbia Pike R St NW T St NW Ve rm on t A ve N W E Capitol St NE Virginia Ave NW Florida Ave NE R St NW Q St NW M St SW 34 th S t N W Col um bia Rd NW Sherm an Ave NW Michigan Ave N W Park Pl NW Irving St NW W arder St NW Harvard St NW Franklin St NE Adams Mill Rd NW Macomb St NW Irving St NWPark Rd NW Park Rd NW New York Ave NE Constitution Ave NW Jefferson Davis Hwy Massachusetts Ave NW Rhod e Isla nd A ve NW 17 th S t N W Pennsylvania Ave NW Independence Ave SW Constitution Ave NW Massachusetts Ave NW Canal Rd NW Massachusetts Ave NE Lou isia na Av e N W K St NW 7t h St N W N Ca pi to l S t N E 14 th S t S W Logan Circle Ne w Ha mp sh ire A ve N W Washington Circle Columbus Circle H St NW Sheridan Circle C St NE Scott Circle Thomas Circle W as hi ng to n Bl vd 14 th S t N W 27 th S t N W Connecticut Ave NW 16 th S t N W Klingle Rd NW Whitehurst Fwy George W ashington M em orial Pky George Washington Memorial Pky Southeast Fwy Theodore Roosevelt Memorial Brg Ro ch am be au M em or ial B rg Fra nci s C ase Me mo rial Br gColumbiaIsland Theodore Roosevelt Island Little Island Potomac River Potom ac R iver Washington Channel Tidal Basin Reflecting Pool Anacostia River Ro ck Cre ek McMillan Reservoir Rock Creek Naval Observatory Washington Navy Yard Fort Lesley J McNair Oak Hill Cemetery Catholic University of America Arlin gton Mem orial Brg Kutz Brg CAPITOL HILL PENN QUARTER NATIONAL MALL CHINATOWNFOGGY BOTTOM WOODLEY PARK GEORGETOWN EMBASSY ROW ADAMS MORGAN U STREET/ CARDOZO SHAW KALORAMA HEIGHTS DUPONT CIRCLE SOUTHWEST/ WATERFRONT BROOKLAND/ NORTHEAST 66 395 395 395 395 50 50 1 1 1 1 29 29 244 27 110 110 50 50 VIRGINIA VIRGINIA DC DC The White House Effective October 2009 FIGURE 15 DC Circulator map.

45 • The Purple Route (Smithsonian to the National Gallery of Art loop) operates on weekends between 10 a.m. and 6 p.m. • The Red Route (Convention Center to the Southwest Waterfront) operates every day between 6 a.m. and 7 p.m. • The Blue Route (Union Station to the Navy Yard via Capitol Hill) operates weekdays between 6 a.m. and 7 p.m. Additional service is provided for Washington Nationals evening and weekend home games at Nation- als Park. The primary market for the DC Circulator is downtown employees. As the circulator system has expanded the mar- kets served have also changed. Employees are the predomi- nant market during peak commute hours and during lunch, but the focus shifts to entertainment at night. The DC Circu- lator’s main purposes are to encourage public transit use by employees, improve general mobility through downtown, provide a connection between Union Station and the down- town core, provide a way for visitors and tourists to get around, and serve residential areas in or near downtown. Each DC Circulator route operates every 10 min. Specially purchased Van Hool buses are used on Circulator routes. The original 29 buses are 40 ft in length, and the newer 14 vehi- cles are 30-ft buses that are easier to maneuver through resi- dential neighborhoods. The buses are branded, as shown in Figure 16. The city purchases the vehicles and the contractor maintains them. DDOT opted for the Van Hool buses because their dis- tinctive, modern appearance helps them to stand out in downtown. Feedback from riders has been very positive. The DC Circulator routes were designed to connect spe- cific destinations and thus have fewer stops than a typical transit route. This improves the speed of the service, and leaves the impression among riders that you can get any- where within 10 min. Ridership is heaviest on weekdays, with more than 13,500 riders on a typical weekday. Saturday ridership aver- ages almost 9,000 and Sunday ridership is 6,500. The DC Circulator has gathered information on the age and trip purpose of its riders, with the majority of riders between the ages of 25 and 49. Customers use the DC Circu- lator for multiple purposes, with recreation, shopping and din- ing, and work commute ranking highest among trip purposes The DC Circulator charges a fare of $1.00, less than the cash fare on Metro. DC Circulator passes and transfers are available, and the circulator also accepts Metro transfers, monthly passes, and SmarTrip cards. Several stops offer transfer connections to Metro. DDOT recognized early on that transit agencies are not marketing experts and has relied on the marketing expertise of its business community partners. Marketing efforts include use of the website, cross-promotion with area business improvement districts, where the buses have advertisements featuring local businesses, brochures, and partnerships with hotels and conventions. The 2009 expansion of service has created new stakehold- ers. The original routes were concentrated in two of the city’s wards, but current routes serve four wards. The city funds all costs of the DC Circulator and funding is subject to annual appropriation; therefore, a broader base of support is promis- ing in terms of funding stability. DDOT and the city have been aggressive in searching out unused capital funds for use on the circulator. Even so, funding is the major constraint. DDOT sees several benefits accruing as a result of the DC Circulator. Public perception toward transit has improved greatly owing to frequent service, strong branding, great cus- tomer service, and easy-to-understand routes. Linkages to downtown destinations have improved; it is much easier to travel between some of the most important activity centers without having to transfer. Cross promotions with business improvement districts has created a positive linkage between local businesses and transit serving those businesses. Busi- ness improvement district members are enthusiastic support- ers of the DC Circulator. The primary drawback of the DC Circulator is that it is a victim of its own success in terms of its popularity leading to requests for circulators in neighborhoods all over the city, whether or not the demand is sufficient to justify service. The changing role of downtown has definitely affected the design of the DC Circulator routes. The circulator’s primary market continues to be employees in downtown, but it has attracted a broader market that includes tourists, visitors, and residents. Each route has developed its own character, depend- ing on the neighborhoods and areas it serves. The one aspect of the DC Circulator’s design and imple- mentation that DDOT would change is that it would haveFIGURE 16 DC Circulator vehicle.

developed more specific criteria on performance levels and governance from the very beginning. The sometimes ad hoc decision making has led to difficulty as the Circulator has matured. There is no objective standard by which to judge the requests that come from all areas of the city. DDOT is vigi- lant about not diluting the circulator brand by extending new routes to areas that do not warrant service. Specific criteria would be of great use in this effort, and the usefulness of set- ting performance criteria and governance structures at the outset is one of the lessons learned. A principal lesson learned was the importance of building a strong brand with support from the business community. Possibly the most innovative part of the process of designing the circulator was to set up a separate nonprofit corporation with the business improvement districts and the Convention and Tourism Bureau to use the marketing expertise of the pri- vate sector in branding the service. Another important lesson is the need for frequent service. DDOT operates every 10 min for the entire span of service to make the DC Circulator simple to understand for those not familiar with consulting timetables for transit routes. The 10-min headway gets people talking about the service and draws choice riders who would not otherwise choose transit. DDOT is committed to protecting this headway at all costs, preferring to cut the span of service or route length to pre- serve frequent service. A final lesson learned is the use of unique, distinctive, high- quality buses painted to stand out visually. The buses used on the DC Circulator are not commonly seen in the United States and are very positively received by the riders. DDOT’s advice to another agency trying to replicate its program is to emphasize frequent service. Choice riders will not view a circulator as a reliable mode if they have to think about when the next one arrives. Also, turn the mar- keting and branding components over to experts in the field. Success is measured by ridership, which had been growing at an annual rate of 16% even before new routes were added. Success is also measured by riders’ preference for the circu- lator over other modes, and by the ability to attract choice rid- ers. DDOT attributes this to direct service connecting major activity centers, an attractive price, the limited number of stops, and distinctive, comfortable buses. CAPITAL METRO— AUSTIN, TX Capital Metro is the transit operator in Austin, Texas (the state capital), and the surrounding area. The service area population is 1.2 million. Capital Metro operates 225 peak buses directly and 46 another 122 under contract. Annual ridership on all services operated is 37.4 million. Circulator Origins and Operation This is the only case study of a downtown circulator that is not presently operating. The ‘Dillo, Austin’s downtown circula- tor, began operation during the 1970s as a parking intercept/ circulator service and went through several transformations as an iconic part of downtown before being discontinued in 2009 owing to budget issues. The old ‘Dillo logo is shown here, and Figure 17 provides examples of ‘Dillo branding. From the beginning through 2007 the ‘Dillo was free; Capital Metro paid for the entire cost of operation. The Downtown Austin Alliance and the State Legislature (Austin is the capital of Texas) were key supporters of the ‘Dillo at its inception and in its early years. In the 1980s, the ‘Dillo took on the character of a legislative shuttle, con- necting the Capitol with other downtown locations. At its peak, the ‘Dillo carried 5,800 riders per day. Through the efforts of a downtown task force, the ‘Dillo morphed again in the late 1990s into a series of five daytime and two late-night routes circulating through downtown. The daytime routes, named according to their colors, are shown in Figure 18. The five ‘Dillo routes were designed to maximize coverage and operated at different headways. Only the Silver ‘Dillo was a linear route, operating on the one-way pair along 5th and 6th Streets. ‘Dillo riders appeared reluctant to get on a loop or cir- cuitous route, perhaps not being sure they could find their way back. Capitol Metro received constant requests to extend the ‘Dillo routes beyond downtown into the nearby neighbor- hoods. Branding, the use of rubber-tired trolley replica vehi- cles, and no fares all set the ‘Dillo apart from regular transit routes; however, in functional terms the separation between regular and ‘Dillo routes was decreasing. FIGURE 17 Examples of ‘Dillo branding.

47 As noted earlier, the ‘Dillo’s purpose had evolved through the years, and the five routes served different markets. The Red and Gold ‘Dillos served the community college and county facilities on the west side. Students and young hipsters were the primary market on the Orange ‘Dillo, along with some Capitol workers. The state employee market changed after the terrorist attacks of September 11, 2001, when the ‘Dillo was rerouted to serve the periphery instead of operating within the Capitol grounds. The Blue ‘Dillo was a true circulator through down- town, and the Silver ‘Dillo served a transit-dependent neigh- borhood on the east side and a high school on the west side. In 2007, Capital Metro reconvened the stakeholder ‘Dillo task force in response to changes in the market for ‘Dillo routes noted earlier. The task force worked for more than 6 months to refashion the ‘Dillo. The task force based its recommendations on two principal concepts: • Shorter, more frequent, and linear routes; an emphasis on frequency as opposed to coverage; and • Downtown only; neighborhoods to be served by regu- lar fixed routes. Figure 19 presents the two ‘Dillo routes that resulted from the task force recommendations. The streamlining was intended to provide frequent service in the most important corridors in downtown. The north–south route serves Con- gress Street, looping around the State Capitol on its northern end. The east–west route serves the one-way pair along 5th and 6th Streets, but is shortened to stay within downtown. The headway on both routes was improved to between 5 and 10 min (depending on the time of day), although traffic congestion made it impossible to operate 5-min headways reliably. The possibility of adding another north–south route was left open. A final change in 2007 introduced a 50-cent fare. Before 2007, the ‘Dillo had been free. At this time, a $5 monthly pass was also introduced. FIGURE 18 Former ‘Dillo routes (late 1990s).

48 FIGURE 19 ‘Dillo routes (2007).

49 Ridership fell following these changes, as the economy slowed and gas prices fell. A strike by Capital Metro opera- tors did not improve the situation. By 2009, the two circula- tor routes carried only 1,000 riders per weekday, compared with 3,500 in 2006. Capital Metro concluded that ‘Dillo ser- vice was not essential and discontinued the ‘Dillo as a cost- reduction measure. Benefits and Drawbacks The chief benefit of the ‘Dillo was its ability to provide mobil- ity in downtown Austin. The iconic branding of the service also enhanced the image of transit in Austin. Even one year after discontinuation, residents still ask about the ‘Dillo and why they never see it anymore. The primary drawbacks of the ‘Dillo were the vehicles and the decision to charge a fare. Rubber-tired, replica trolley vehicles are attractive and attention getting, but uncomfort- able to ride and even harder to maintain. Introduction of even a nominal 50-cent fare went against one rule for attracting choice riders; as stated by the agency, nothing can be incon- venient or passengers will not ride. Changes and Lessons Learned If Capital Metro could change one aspect of the ‘Dillo opera- tion (aside from the timing of the 2007 changes as the econ- omy began its downturn) it would have taken greater care in introducing the fare. Having no fare was a significant factor in the branding of the ‘Dillo, and the adverse reaction from rid- ers was stronger than expected. Capital Metro offers several lessons learned through its operation of the ‘Dillo: • If a fare is charged, it needs to be easy to understand and pay. A major market for the ‘Dillo was young people in their first or second job, who would ride their bicycles as an alternative to the ‘Dillo. Paying electronically would have been second nature to this tech-savvy demographic group, who also would have welcomed the ability to purchase a monthly pass at convenient locations. Cash is an old-fashioned concept to this market. • Select iconic, comfortable vehicles. If the ‘Dillo were to re-start today, electric hybrid vehicles would be the choice. The replica trolleys were attractive but uncom- fortable. • Consider traffic patterns and flow. Congress Street is very congested and the ‘Dillo duplicated regular transit service in this corridor. The 2020 service plan envisions shifting regular transit buses to other corridors, and anti- cipates commuter rail. A reconstituted ‘Dillo would make more sense under this scenario. Capital Metro’s advice to another agency trying to repli- cate its downtown circulator is to pay attention to the anchor points of the routes in relation to the market for the circulator. A strong route will have anchors at either end. This is impor- tant in general transit planning, but is critical for downtown circulators. The ‘Dillo circulator experienced both success and failure. Its discontinuation was a result of low ridership and duplication with other routes. Measures of success included an enhanced image of transit in Austin as a result of the ‘Dillo’s branding and marketing and the support of a wide group of stakeholders who wanted it to succeed.

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TRB’s Transit Cooperative Research Program (TCRP) Synthesis 87: Practices in the Development and Deployment of Downtown Circulators explores the development, deployment, and sustainability of downtown circulator systems.

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