Submitted by - bcag.org Triennial Performance Audits/… · 2010 P AGE 7 E XECUTIVE S UMMARY This...
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Final Report
SUBMITTED TOBUTTE COUNTYASSOCIATION OFGOVERNMENTS (BCAG)
A u g u s t 2 0 1 0
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BUTT E COUN TY ASSO CI ATI ON OF GOVERN MEN TS TRI EN N I AL PERFORMA N CE AUDI T
FINAL REPORT AUGUST 2010 PAGE 1
TA B L E O F C O N T E N T S
TABLE OF TABLES _______________________________________________ 3
TABLE OF FIGURES ______________________________________________ 4
EXECUTIVE SUMMARY ____________________________________________ 7
OVERVIEW _______________________________________________________________________________ 7
Compliance ________________________________________________________________________ 8
Prior Audit Recommendations _________________________________________________________ 8
Performance Measures & Trends ______________________________________________________ 9
Functional Review ___________________________________________________________________ 11 RECOMMENDATIONS _____________________________________________________________________ 16
Recommendation 1 __________________________________________________________________ 16
Recommendation 2 __________________________________________________________________ 17
Recommendation 3 __________________________________________________________________ 17
INTRODUCTION _________________________________________________ 19
AUDIT SCOPE & METHODOLOGY ___________________________________________________________ 19
DESCRIPTION OF BUTTE REGIONAL TRANSIT (B-LINE) _________________________________________ 20
Transit Center ______________________________________________________________________ 21
Transit Modes _____________________________________________________________________ 22
Fare Structure _____________________________________________________________________ 25
COMPLIANCE REPORT ____________________________________________ 27
PRIOR AUDIT RECOMMENDATIONS _________________________________ 31
Prior Recommendation 1 _____________________________________________________________ 31
Prior Recommendation 2 ____________________________________________________________ 32
Prior Recommendation 3 ____________________________________________________________ 33
Prior Recommendation 4 ____________________________________________________________ 34
Prior Recommendation 5 ____________________________________________________________ 35
Prior Recommendation 6 ____________________________________________________________ 36
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PERFORMANCE MEASURES & TRENDS _______________________________________________________ 39
TDA Required Indicators ____________________________________________________________ 39
Tables & Graphs ____________________________________________________________________ 41
FUNCTIONAL REVIEW ____________________________________________ 98
GENERAL MANAGEMENT & ORGANIZATION __________________________________________________ 98
Service Planning ___________________________________________________________________ 104
Scheduling, Dispatching & Operations _________________________________________________ 114
Personnel Management & Training ___________________________________________________ 114
Administration _____________________________________________________________________ 115
Marketing & Public Information ______________________________________________________ 119
Contract Management ______________________________________________________________ 124
Maintenance ______________________________________________________________________ 125
FINDINGS & RECOMMENDATIONS _________________________________ 130
SUMMARY OF FINDINGS __________________________________________________________________ 130
Compliance _______________________________________________________________________ 131
Prior Audit Recommendations ________________________________________________________ 131
Performance Measures & Trends _____________________________________________________ 131
Functional Review __________________________________________________________________ 134 RECOMMENDATIONS ____________________________________________________________________ 141
Recommendation 1 _________________________________________________________________ 141
Recommendation 2 _________________________________________________________________ 143
Recommendation 3 _________________________________________________________________ 144
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TA B L E O F TA B L E S
Table 1: B-Line Recommendations.........................................................................................................................18
Table 2: Change in B-Line fixed route fares ..........................................................................................................26
Table 3: TDA Compliance Chart ............................................................................................................................28
Table 4: Performance Measures & TDA Performance Indicators, Fixed Route Services .............................43
Table 5: Performance Measures & TDA Performance Indicators, Paratransit Services ................................44
Table 6: Performance Measures & TDA Performance Indicators, All Services .............................................45
Table 7:10-Year Performance Trend Analysis, Urban Fixed Route ..................................................................46
Table 8: 10-Year Performance Trend Analysis, Rural Fixed Route...................................................................47
Table 9: 10-Year Performance Trend Analysis, All Fixed Route Services .......................................................48
Table 10: 10-Year Performance Trend Analysis, Urban Paratransit .................................................................49
Table 11: 10-Year Performance Trend Analysis, Rural Paratransit ...................................................................50
Table 12: 10-Year Performance Trend Analysis, All Paratransit Services ........................................................51
Table 13: 10-Year Performance Trend Analysis, All Services Combined ........................................................52
Table 14: Operations Contractor Turnover Rates ............................................................................................. 115
Table 15: B-Line Grants ........................................................................................................................................ 117
Table 16: Marketing as a Percent of Budget and Operating Expenditures ................................................... 121
Table 17: Complaints by Service Type ................................................................................................................ 123
Table 18: B-Line Complaints and Compliments by Issue ................................................................................ 123
Table 19: CHP Inspection Results. ...................................................................................................................... 128
Table 20: Table 20: B-Line Recommendations .................................................................................................. 145
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TA B L E O F F I G U R E S
Figure 1 Butte Regional Transit is also known as B-Line ..................................................................................... 7
Figure 2: B-Line began operation in 2005. .............................................................................................................. 8
Figure 3: B-Line's Rural Fixed Route experienced the greatest amount of ridership growth. ......................10
Figure 4: B-Line began operation July 5, 2005. .....................................................................................................19
Figure 5: This new transit center opened on February 20th, 2008. ...................................................................21
Figure 6: The Urban Fixed Route and Urban Paratransit services serve the City of Chico .........................22
Figure 7: B-Line bus shelters and transit station shield riders from the elements. .........................................23
Figure 8: B-Line Paratransit is a shared ride service. ............................................................................................24
Figure 9: Operating Costs, All Services, 10-Year Trend (Constant $) ..............................................................53
Figure 10: Fare Revenue, All Services, 10-Year Trend (Actual $) ......................................................................55
Figure 11: Passengers, All Services, 10-Year Trend .............................................................................................57
Figure 12: Vehicle Service Hours (VSH), All Services, 10-Year Trend ............................................................58
Figure 13: Vehicle Service Miles (VSM), All Services, 10-Year Trend ..............................................................59
Figure 14: Full-Time Equivalent (FTE) Employees, All Services, 10-Year Trend..........................................60
Figure 15: Passengers, Urban Fixed Route, 10-Year Trend ................................................................................62
Figure 16: Operating Cost per VSH, Urban Fixed Route, 10-Year Trend .......................................................63
Figure 17: Operating Cost per VSM, Urban Fixed Route, 10-Year Trend ......................................................64
Figure 18: Operating Cost per Passenger, Urban Fixed Route, 10-Year Trend ..............................................65
Figure 19: Passengers per VSH, Urban Fixed Route, 10-Year Trend ...............................................................66
Figure 20: Passengers per VSH, Urban Fixed Route, 10-Year Trend ...............................................................67
Figure 21: VSH per FTE, Urban Fixed Route, 10-Year Trend ..........................................................................68
Figure 22: Farebox Recovery Ratio, Urban Fixed Route, 10-Year Trend ........................................................69
Figure 23: Fare Revenue per Passenger (Actual $), Urban Fixed Route, 10-Year Trend ..............................70
Figure 24: Passengers, Rural Fixed Route, 10-Year Trend..................................................................................71
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Figure 25: Operating Cost per VSH, Rural Fixed Route, 10-Year Trend ........................................................72
Figure 26: Operating Cost per VSM, Rural Fixed Route, 10-Year Trend ........................................................73
Figure 27: Operating Cost per Passenger, Rural Fixed Route, 10-Year Trend ................................................74
Figure 28: Passengers per VSH, Rural Fixed Route, 10-Year Trend .................................................................75
Figure 29: Passengers per VSM, Rural Fixed Route, 10-Year Trend ................................................................76
Figure 30: VSH per FTE, Urban Fixed Route, 10-Year Trend ..........................................................................77
Figure 31: Farebox Recovery Ratio, Rural Fixed Route, 10-Year Trend ..........................................................78
Figure 32: Fare Revenue per Passenger (Actual $), Rural Fixed Route, 10-Year Trend ................................79
Figure 33: Passengers, Urban Paratransit, 10-Year Trend ...................................................................................80
Figure 34: Operating Cost per VSH, Urban Paratransit, 10-Year Trend..........................................................81
Figure 35: Operating Cost per VSM, Urban Paratransit, 10-Year Trend .........................................................82
Figure 36: Operating Cost per Passenger, Urban Paratransit, 10-Year Trend .................................................83
Figure 37: Passengers per VSH, Urban Paratransit, 10-Year Trend ..................................................................84
Figure 38: Passengers per VSM, Urban Paratransit, 10-Year Trend .................................................................85
Figure 39: VSH per FTE, Urban Fixed Route, 10-Year Trend ..........................................................................86
Figure 40: Farebox Recovery Ratio, Urban Paratransit, 10-Year Trend ...........................................................87
Figure 41: Fare per Passenger (Actual $), Urban Paratransit, 10-Year Trend ..................................................88
Figure 42: Passengers, Rural Paratransit, 10-Year Trend ....................................................................................89
Figure 43: Operating Cost per VSH, Rural Paratransit, 10-Year Trend ...........................................................90
Figure 44: Operating Cost per VSM, Rural Paratransit, 10-Year Trend ...........................................................91
Figure 45: Operating Cost per Passenger, Rural Paratransit, 10-Year Trend...................................................92
Figure 46: Passengers per VSH, Rural Paratransit, 10-Year Trend....................................................................93
Figure 47: Passengers per VSM, Rural Paratransit, 10-Year Trend ...................................................................94
Figure 48: VSH per FTE, Urban Fixed Route, 10-Year Trend ..........................................................................95
Figure 49: Farebox Recovery Ratio, Rural Paratransit, 9-Year Trend ...............................................................96
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Figure 50: Fare Revenue per Passenger (Actual $), Rural Paratransit, 10-Year Trend ...................................97
Figure 51: BCAG/B-Line Organization Chart .................................................................................................. 101
Figure 52: Figure 52 BCAG's revised website .................................................................................................... 102
Figure 53: The new Transit Center is powered by solar energy ...................................................................... 102
Figure 54 B-Line's current bus facility ................................................................................................................. 106
Figure 55: Flow Chart for the Development of the Market Based Transit Study ........................................ 107
Figure 56: BCAG provides general administration and support. .................................................................... 116
Figure 57: An agreement with Stott enabled B-Line to build 50 new bus shelters. ..................................... 118
Figure 58: Example of B-Line advertising. ......................................................................................................... 120
Figure 59: B-Line marketing material carries the green and gold branding................................................... 121
Figure 60: BCAG's website informs the public of any upcoming meetings or schedule changes. ............ 122
Figure 61: At the time of the Audit, BCAG was negotiating a new contract with CSUC .......................... 125
Figure 62: Mechanic assignments for bus maintenance. .................................................................................. 126
Figure 63: Separating cash may aid in reporting. ............................................................................................... 132
Figure 65: It is B-Line personnel who make the service efficient and effective. .......................................... 138
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FINAL REPORT AUGUST 2010 PAGE 7
E X E C U T I V E S U M M A RY
This chapter summarizes key findings and
recommendations developed during the Triennial
Performance Audit (TPA) of the Butte County
Association of Governments (BCAG), as the
operator for Butte Regional Transit (B-Line). This
report covers a three-year period ending June 30,
2009. The California Public Utilities Code requires
all public transit agencies to conduct a Triennial
Performance Audit (also herein referred to as a
TPA) in order to be eligible for Transportation
Development Act (TDA) funding.
The Performance Audit was conducted in
accordance with the processes established by the
California Department of Transportation, as
outlined in the Performance Audit Guidebook
for Transit Operators and Regional
Transportation Planning Entities (3rd edition,
September 2008) issued by the California
Department of Transportation (Caltrans), and the
Standards for Audit of Governmental
Organizations, Programs, Activities, and
Functions (2007 Revision), published by the
United States General Accounting Office and the
U.S. Comptroller General.
The Performance Audit has four elements:
1. Evaluation of compliance with relevant statutes and
regulations;
2. Follow-up to determine status of prior Performance Audit
report recommendations;
3. Verification and analysis of performance indicators;
4. Identification and review of functions and activities;
5. Delineation of key findings and recommendations for
improvement.
Figure 1 Butte Regional Transit is also known as B-Line
OVERVIEW B-Line (Butte Regional Transit) provides fixed
route and paratransit services to Butte County and
its Cities and Town.
B-Line, which began operation July 5, 2005,
was formed from the consolidation of six transit
services in Butte County: Butte County Transit
(BCT), Chico Area Transit (CATS), Chico
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Figure 2: B-Line began operation in 2005.
Clipper, Oroville Area Transit (OATS),
Oroville Express, and Paradise Express.
B-Line is operated by Butte County
Association of Governments (BCAG), a JPA
between the County and its Cities and Town.
BCAG is also the County’s RTPA and MPO. The
BCAG Board of Directors is the policy-making
authority for B-Line.
BCAG contracts with a private operator,
Veolia Transportation, for B-Line’s operation.
B-Line service is divided into four modes:
Urban Fixed Route;
Rural Fixed Route;
Urban Paratransit;
Rural Paratransit.
During FY 2006/07, adjustments were made
to multiple local and regional routes, including
time changes, interlining, route/stop changes and
service additions. Fares for all paratransit services
were raised to $2 one way in July of 2006.
In FY 2007/08, fixed route vehicles were
equipped with GFI Odyssey fareboxes that use
magnetic stripe tickets and passes.
Based on a presentation at the April 2009
BCAG Board meeting, new higher fixed route
fares went into effect August 1, 2009. These will
be analyzed in the following Audit period.
COMPLIANCE
BCAG, as the transit operator, administers
Transportation Development Act (TDA) laws and
regulations in an efficient and effective manner,
and is in full compliance with TDA rules and
regulations, with three exceptions:
1. The Farebox Recovery Ratio for Urban and Rural Paratransit services were each below the
10% TDA requirement for transportation
services for the elderly and disabled in the last
two of three years of the Audit period;
2. The State Controller’s Report was submitted beyond the specified timeframe in FY
2008/09 (PUC 99243);
3. The Fiscal and Compliance Audits were completed and submitted beyond the
specified timeframe in FY 2007/08.
PRIOR AUDIT RECOMMENDATIONS
BCAG, as operator of B-Line, has
demonstrated exceptional progress in improving
the efficiency and effectiveness of transit
operations by fully or partially implementing all six
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of the recommendations from the prior Triennial
Performance Audit of B-Line.
Of the six, two are fully implemented, one is
in progress to be completed within the next Audit
period, and three were partially implemented;
these will be carried forward in whole or in part in
this Audit’s recommendations:
1. Develop a Short-Range Transit Plan to guide B-Line growth. (In Progress; due
for completion by July, 2010.)
2. Provide the Board and the public with an annual report on B-Line performance,
with quarterly updates. (Fully
Implemented.)
3. Develop an Annual Marketing Plan and regularly assess progress toward achieving
marketing goals. (Partially
Implemented. This recommendation
will be carried forward.)
4. Continue to monitor system performance on a monthly basis to determine
productivity improvements. (Fully
Implemented.)
5. Work with contractor to ensure that all performance measures are correctly
reported. (Partially Implemented.)
6. Ensure definitive separation of BCAG as the RTPA from BCAG as the transit
operator. (Partially Implemented. This
is a valid recommendation and will be
carried forward with modification.)
PERFORMANCE MEASURES & TRENDS
Performance measures are accurately collected
and reported, with one minor exception:
inconsistent calculation of Full-Time Equivalents
(FTEs); some concern may also exist regarding
whether all fares and/or passengers have been
correctly captured during the Audit period.
Operating Costs, which were obtained
from fiscal audit reports and not
independently validated, increased
approximately one percent per year in
constant dollars.
Fare Revenue collection and cash
management appears to be consistent
with industry guidelines for a transit
operation of B-Line’s size and scope. The
new GFI fareboxes appear to correct the
issues with the previous fare collection
system.
Vehicle Service Hours and Miles (VSH
and VSM) are correctly reported and held
relatively steady over the Audit period.
Full Time Equivalents (FTEs) reported
on the State Controller’s Reports (SCRs)
were not consistent with internal reports
from the contractor. Supporting
documentation was not available to
determine the source of the SCR-reported
numbers, and BCAG internal staff
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allocated to B-Line management and
administration may have been omitted.
Based on internal reports, FTEs for the
system increased 12.4% over the Audit
period.
Ridership grew each year of the Audit,
to 1,390,881 in FY 08/09. Fixed Route
services gained riders in each year,
while Paratransit services lost
ridership.
Figure 3: B-Line's Rural Fixed Route experienced the greatest amount of ridership growth.
Performance measures provide insight as to the
efficiency and effectiveness of B-Line’s
operations. TDA has five required performance
indicators:
Cost efficiency, as measured by increases in
Operating Cost per VSH and VSM1,
declined for the system and each
service mode over the Audit period.
1 Operating Cost per VSM, while a measure of
cost efficiency, is not a TDA-required performance
indicator.
Cost effectiveness, as measured by Operating
Cost per Passenger, improved for the
system and the Fixed Route services
over the Audit period, while cost
effectiveness for Paratransit service
weakened.
Service effectiveness or productivity, as
measured by Passengers per VSM and
Passengers per VSH, improved
significantly for both fixed route services,
but declined for both paratransit services
over the Audit period.
System productivity, as defined as VSH
per FTE, declined for the system and for
each service over the Audit period.
FAREBOX RECOVERY
While not a TDA-required indicator, a
Farebox Recovery Ratio of 20 percent is required
for transit systems serving urban areas. A ratio of
10 percent is required for systems serving rural
areas and systems for exclusive use of the elderly
and persons with disabilities.
Both Fixed Routes services increased during
the Audit Period. In FY 2008/09 Urban Fixed
Route achieved a Farebox Recovery Ratio of
22.8%, and Rural Fixed Route achieved a ratio of
18.9%.
The Farebox Recovery Ratios for both Urban
and Rural Paratransit fell below the mandated 10
percent in both FY 2007/08 and FY 2009/09.
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FUNCTIONAL REVIEW
GENERAL MANAGEMENT & ORGANIZATION
The JPA for BCAG was most recently signed
in July 2005 for the continuation of BCAG for a
ten-year period, and to assign responsibility for B-
Line (Butte Regional Transit)—then newly created
by consolidating six previous transit operations in
Butte County into BCAG.
This is the first Triennial Performance Audit
in which B-Line has been in existence for each of
the three years of the Audit period.
B-Line policy guidance is provided by the
BCAG Board of Directors, which is advised by
the Transit Administrative Oversight Committee
(TAOC). The TAOC includes administrative and
other staff representatives from the County,
Cities, Town and BCAG.
Overall, Board members were satisfied with
B-Line’s operations and management. Board
members expressed a desire for increased
frequencies and more inter-county connections,
but were cognizant of funding and revenue
limitations. The poor economy and the high rate
of unemployment in Butte County were major
concerns; environmental issues were also
considered important.
B-Line is administered by BCAG staff,
headed by an Executive Director (who also serves
as BCAG’s Chief Operating Officer) selected by
and reporting to the Board. B-Line’s operations
are managed by two Senior Planners, Transit
Administration and Transit Operations, with the
support of an Assistant Planner, a new position in
FY 2007/08. These three positions report to the
Executive Director.
Other BCAG staff members provide
administrative and financial management support
to B-Line.
CHANGES & ACCOMPLISHMENTS
Major accomplishments and program changes
were made during the Audit period:
FY 2006/07
Contract to provide Americans with
Disabilities Act (ADA) eligibility
determinations.
FY 2007/08
Addition of Assistant Planner position;
Bus Stop Improvement Plan completion;
Opening of the Chico Transit Center;
Improvement of webpage;
Installation of GFI electronic fareboxes.
FY 2008/09
Completion of On-Board Survey;
Initiation of the Market-Based Transit
Study;
Publication of a new Paratransit Rider’s
Guide;
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Update of Fixed Route collateral;
Approval of interior advertising;
Negotiations based on an RFP for
installation and maintenance of shelters;
Replacement of older vehicles;
Public outreach for the 2009 fare increase;
Implementation of Phase I Homeland
Security Grant to install cameras;
Instillation of Phase I for Automatic
Vehicle Locator/Geographic Positioning
System (AVL/GPS) for Fixed Route
dispatching.
After the Audit period, in FY 09/10, other
improvements were achieved or begun—including
installation of stop-specific schedule holders and
maps; wrap-up of the design phase for the Oroville
Transit Center; a fare increase of approximately
40%; and approval to obtain appraisals for a new
administration and maintenance building, with
three locations under review.
SERVICE PLANNING
BCAG has not developed a formal strategic
or long-range plan for public transportation. The
agency has moved forward in realizing a strategic
vision for B-Line in both integrating advanced
technology and improving facilities.
Long-range transportation projects over the
next 20-plus years are outlined in the Regional
Transportation Plan (RTP), which is also the
basis for the Federal Transportation Improvement
Program (FTIP) and Regional Transportation
Improvement Program (RTIP).
The RTP’s goal for transit is:
“…to provide an efficient, effective, coordinated
regional transit system that increases mobility for
urban and rural populations, including
transportationally disadvantaged persons.”
It includes four objectives:
1. Meet all transit needs that are “reasonable to meet”;
2. Increase transit ridership that exceeds annual population growth rate for Butte
County;
3. Promote citizen participation and education in transit planning and
operations;
4. Maintain a reliable transit system.
BCAG has already made significant progress
toward achieving the goals, objectives and actions
delineated in the RTP.
Market-Based Transit Study
The Market-Based Transit Study initiated
during the Audit period represents a major
planning achievement. BCAG. Objectives
included identifying market needs, determining the
most cost-effective routing and scheduling to
meet these needs with available resources, and
improving and/or maintaining other specific
aspects of system performance. Four Working
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Papers have been completed—the final one after
this Audit period
BCAG has taken steps to make improvements
in areas identified by the On-Board Survey:
information at the stops and shelters, and on-time
performance. BCAG has installed stop-specific
signage, and is contracting to install new shelters.
The completion and implementation of the Study
should also improve on-time performance.
The Community Telephone Survey and E-
Survey, both conducted in the spring of 2009,
provided valuable data about potential rider
markets that can be used in planning routing and
scheduling.
In addition to outreach for the Study, BCAG
has implemented multiple media to support public
participation with B-Line.
Also, during FY 07/08, BCAG developed a
Coordinated Public Transit-Human Services
Transportation Plan, discussed in detail in the
separate BCAG Audit.
PERFORMANCE MONITORING
B-Line management reviews and monitors key
indicators by route, maintaining a spreadsheet for
each route in order to decipher trends. Evaluation
has been thorough though informal.
Staff may want to consider comparing
performance to minimum and desired standards.
Standards should include those for on-time
performance, Passengers per Revenue Hour,
Farebox Recovery, and complaints per x number
of passenger trips per month.
SCHEDULING, DISPATCHING & OPERATIONS
BCAG contracts with a private provider,
Veolia Transportation, for B-Line’s operation.
Drivers bid on their work schedules, based on
seniority, on a quarterly basis.
One dispatcher for Fixed Route and two to
three dispatchers for Paratransit are on duty
during service hours. Paratransit dispatchers use
Trapeze software.
PERSONNEL MANAGEMENT & TRAINING
BCAG’s Personnel and Administrative
Manager oversees all human resources issues,
including hiring for BCAG transit administration
employees, who are subject to BCAG employee
policies.
Drivers, dispatchers, customer service
representatives, maintenance personnel and
operations management are employees of the
operations contractor, Veolia Transportation.
Veolia recruits through the website and postings;
applicants also apply directly.
Drivers, dispatchers, mechanics, and customer
service representatives belong to Teamsters 137,
and union contract terms apply.
Drivers and maintenance technicians receive
comprehensive, regular training:
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New driver training is extensive and
includes classroom instruction, pre-
driving skills and behind-the-wheel
training and observation. It is provided by
two FTA-certified trainers.
Drivers’ ongoing safety training meets
state requirements.
Maintenance technicians receive regular
training from Veolia corporate offices and
original equipment manufacturers.
The turnover rate has decreased substantially
over the Audit period. The 2007 turnover rate was
29%, compared to 20% in 2009.
ADMINISTRATION BCAG’s Chief Financial Officer (CFO),
helped by the administrative assistant, oversees
budgeting, financial management, and accounts
payable, reviewing payment claims before
forwarding them to the County Treasurer.
BCAG’s Personnel and Administrative Services
Manager monitors accounts payable and receivable
and payroll, and develops and maintains purchasing
and contract procedures.
BCAG has been successful in securing and
administering multiple federal and state grants
over the Audit period.
FACILITIES MANAGEMENT In FY 08/09, after a bid process, BCAG
negotiated with Stott Outdoor Advertising for
amenities and maintenance at stops, as well as
outdoor, on-bus, and at-stop advertising.
BCAG sold or relinquished three of its four
Compressed Natural Gas (CNG) fueling systems
throughout the county, which it had gained upon
consolidation, to the entities that own the facilities
where the systems were located. These entities had
also been using the systems, which were no longer
funded and required costly ongoing maintenance
and repairs. The system at the County maintenance
yard remains under BCAG’s ownership.
BCAG has begun research to build a new B-
Line Operations and Maintenance Facility. The
current Facility, at 326 Huss Street, is leased and
maintained by Veolia. For the new Facility, BCAG
is reviewing three possible property locations.
MARKETING & PUBLIC INFORMATION
MARKETING
Maps and schedules are well designed, and
carry the yellow and green color scheme
throughout.
A spreadsheet including predicted marketing
expenditures is prepared each year as part of the
Annual Transit Service Plan and Budget. The
spreadsheet provides guidance on media, but does
not fully meet the requirements of a marketing
plan.
Overall marketing objectives and strategies
have not been defined. Ad campaigns do not
appear to be focused, and a clear brand image is
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not evident—although the ads in various media
are creative and memorable, with spots that use a
consistent jingle.
Marketing expenditures were approximately
1.1% of each year’s Operating Costs, which is
below the recommended levels of 2% to maintain
ridership or 3% to 5% to grow it.
PUBLIC INFORMATION
BCAG makes information regarding B-Line
available through multiple media, and solicits
public input.
B-Line information is available as a tab on the
BCAG website, or by automatic transfer from
www.BlineTransit.com; BCAG plans to develop a
separate website for B-Line. Information on the
B-Line web pages is comprehensive and easy to
access; its appeal would be enhanced by a more
graphically rich home page.
CUSTOMER RELATIONS
The kiosk at the new Chico Transit Center
puts a human face on B-Line’s customer service.
A representative is available for questions,
comments/complaints, and pass sales: in person
during regular business hours, and by phone on
evenings and weekends.
BCAG reviews, addresses as necessary, and
responds to all comments and complaints. However,
these are not classified or reviewed for trends;
quarterly analysis of this information could help to
improve service.
CONTRACT MANAGEMENT
The Project Manager, which is either of the
two Senior Planners as relevant, is primarily
responsible for contract negotiation and
management; however, both Senior Planners are
involved to some degree. BCAG’s Personnel and
Administrative Services Manager provides key
assistance with contract development, compliance,
and review.
The contract with Veolia for operation of B-
Line, signed upon consolidation in 2005, is for
five years with two one-year options; the BCAG
board approved a two-year contract extension in
May 2010. During negotiations, staff reduced the
option years’ contracted rate increase.
The Senior Planner, Transit Administration is
responsible for approval and validation of invoices
for the operations contractor, though three BCAG
personnel are involved in the review.
BCAG staff reviews and charts performance
indicators each month, and works with the
contractor to improve these. Recent focus has
been on paratransit losses, improving service
effectiveness, and identifying any system errors in
counting fare revenues due to farebox changes.
During the Audit period, BCAG had a five-
year contract with California State University,
Chico to provide transit for the students, staff and
faculty, using school identification card as a swipe
passes in order to track rides and bill for them. In
FY 09/10, BCAG began negotiating a new
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contract, which would provide unlimited rides for
a flat fee.
MAINTENANCE
The five-bay maintenance facility is leased by
Veolia as part of the operations contract. It
includes two drive-through bays, and all required
safety equipment—including a CNG monitor.
The facility is open nearly 20 hours each
weekday, and 12-15 hours on weekend days. The
routine is to perform minor repairs during
weekdays, and conduct major repairs and
inspections on evenings and weekends. Vehicle
cleaning occurs weekly.
A Maintenance Manager, seven utility workers,
and eight technicians (two Class A, four Class B
and two Class C) compose the maintenance staff.
Veolia uses RTA maintenance software to track
mileage, repairs and inspections. Daily and weekly
reports are prepared, and reports and files are
reviewed regularly by Veolia regional management.
Maintenance files and records appear to be in
excellent order.
Drivers inspect the vehicles before pull-out,
using a Daily Vehicle Inspection form. Vehicles
with critical safety issues are held out of service
until they can be inspected further and repaired.
The Preventive Maintenance Inspection
schedule varies by make and model, using a form
tailored to each manufacturer’s requirements.
During the Audit period, BCAG and the
contractor improved the Preventive Maintenance
(PM) Program, improving the rate of completion
within guidelines from 60% to 70% of PMIs at
the beginning of the period to a rate of
approximately 98% in 2009.
Most work is done in-house, including minor
maintenance of GFI fareboxes, which are covered
by warranty for major issues. Examples of
outsourced work are bodywork, glass and
alternators.
RECOMMENDATIONS
RECOMMENDATION 1
DEVELOP AN ANNUAL MARKETING PLAN
AND REGULARLY ASSESS PROGRESS TOWARD
ACHIEVING MARKETING GOALS.
This recommendation is carried forward from
a recommendation in the prior Performance
Audit. An allocation of between two and three
percent of the operating budget for marketing and
public information purposes is considered
appropriate for growing a ridership. B-Line’s
marketing budget averages about one percent,
which is below the recommended amount to
sustain ridership (2%).
In addition, an evaluation mechanism should
be built into each marketing program and
campaigns. For a small transit marketing budget,
the impact is often cumulative. Each program and
campaign needs to build on the previous one, with
a common look and feel among all collateral and
ads.
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RECOMMENDATION 2
ENSURE DEFINITIVE SEPARATION OF
BCAG AS THE RTPA FROM BCAG AS THE
TRANSIT OPERATOR.
This recommendation is to be carried forward
from a recommendation in the prior Performance
Audit. During this Audit period, BCAG made
considerable progress in separating BCAG as the
RTPA from BCAG as the transit operator on the
staff level. The two Senior Planners who are
responsible for the transit operations no longer
report to the Program Manager, who is
responsible for processing TDA claims. Both
now report to the Executive Director, along with
the Assistant Planner, who supports ADA and
paratransit services.
Discussion with BCAG management indicate
that more definitive separation of the transit
operations from the RTPA responsibilities is
planned over the next several years. BCAG will
continue to provide Butte Regional Transit with
administrative support. However, a distinct
separation between the BCAG, the RTPA, and
BCAG, the transit operator, diminishes any
likelihood that a conflict of interest might be
perceived regarding the RTPA’s oversight
responsibilities.
Although a separation of the Board’s dual
responsibilities is preferred, BCAG is not disposed
to form a separate joint powers authority (JPA) to
oversee public transportation at this time. While it
respects and understands the need for separation
of responsibilities, the added administrative
burden and complication of two separate entities
is not considered necessary.
RECOMMENDATION 3
ENSURE THAT ALL FINANCIAL AND
PERFORMANCE DATA IS CORRECTLY
REPORTED ON THE STATE CONTROLLER’S
REPORTS AND THAT SUPPORTING
DOCUMENTATION IS MAINTAINED FOR A
MINIMUM OF FOUR YEARS.
Complete documentation was not available to
determine how performance measures and Full
Time Equivalents (FTE) were collected and
reported during the Audit period. Documentation
had to be recreated, and the source documents for
the original report were not available.
At a minimum, both hard copies and
electronic files should be retained for all source
documents used in compiling the State
Controller’s Reports. Any calculations and/or
assumptions also need to be documented.
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Table 1: B-Line Recommendations
Recommendation Priority Responsibility Timeframe 1 Develop an Annual
Marketing Plan and
regularly assess progress
toward achieving
marketing goals.
Medium Senior Planner,
Transit Operations
FY 2011-12
2 Ensure definitive
separation of BCAG as
the RTPA and BCAG as
the transit operator.
Medium Executive Director FY 2012-13
3 Ensure all financial and
performance data is
correctly reported on the
State Controllers Reports
and supporting
documentation is
maintained for a minimum
of four years.
High Senior Planner,
Transit
Administration
FY 2010-11
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I N T R O D U C T I O N
This report of the Triennial Performance Audit
for Butte County Association of
Governments (BCAG), as operator for Butte
Regional Transit (B-Line), covers a three-year
period ending June 30, 2009. The California
Public Utilities Code (PUC) requires all public
transit agencies to conduct a Triennial
Performance Audit in order to be eligible for
Transportation Development Act (TDA)
funding.
Figure 4: B-Line began operation July 5, 2005.
The Audit is designed to be an independent
and objective evaluation of BCAG, as the transit
operator. The Audit has four objectives:
1. Assess compliance with TDA regulations;
2. Review improvements that have been implemented and progress
toward goals;
3. Evaluate the efficiency and effectiveness of B-Line operations;
4. Provide sound, constructive recommendations for improving the
efficiency and functionality of the
operations.
AUDIT SCOPE & METHODOLOGY
The Performance Audit was conducted in
accordance with the processes established by
the California Department of Transportation, as
outlined in the Performance Audit Guidebook for
Transit Operators and Regional Transportation
Planning Entities, as well as Government Audit
Standards, published by the U.S. Comptroller
General.
The Performance Audit is a high-level
review evaluating the efficiency, economy, and
effectiveness of the transit operations. While the
primary purpose of the Audit is to ensure
compliance with Transportation Development
Act requirements, it should also provide BCAG
with practical and useful recommendations to
improve the efficiency and effectiveness of its
transit operations. The Audit of B-Line
operations comprised the evaluation of four
elements:
1. Compliance with TDA requirements and regulations;
2. Implementation of recommendations contained in prior
Performance Audits;
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3. Methodology for calculating performance indicators and
significant performance measures;
4. Major functions performed by BCAG to support its public
transportation operations,
including−
General management and
organization;
Service planning;
Scheduling, dispatching, and
operations;
Personnel management and
training;
Administration;
Marketing and public information;
Maintenance.
The Audit presents conclusions and
recommendations to address opportunities for
improvement based upon analysis of the
previous four elements.
The methodology for this Audit
encompassed interviews with key personnel
from BCAG and the operations contractor; site
visits; verification of data sources; examinations
of financial and statistical reports; and reviews
of relevant planning documents and reports.
The Audit Report comprises four sections:
1. Executive Summary
A brief summary of the key findings and
recommendations developed during the
Performance Audit processes.
2. Introduction
Methodology of the Audit and pertinent
background information.
3. Audit Results
In-depth discussion of findings surrounding
each of the major elements of the Audit:
Compliance with statutory and regulatory requirements;
Progress in implementing prior Audit recommendations;
Performance measures and trends;
Functional review.
4. Findings and Recommendations
A delineation of the key findings of the
Performance Audit, and recommendations for
improving the efficiency and effectiveness of B-
Line transit service operations, and a timeline
for implementing the recommendations.
DESCRIPTION OF BUTTE REGIONAL TRANSIT (B-LINE)
Butte Regional Transit, or B-Line, provides
fixed route and paratransit services to the cities,
town, and Butte County. The Butte County
Association of Governments (BCAG) Board of
Directors is the policy-making authority.
BCAG is a Joint Powers Authority (JPA)
operating under a Joint Powers Agreement (also
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a JPA) between the County of Butte and the
incorporated cities of Chico, Gridley, Biggs,
Oroville, and the Town of Paradise. BCAG is
the state-designated Regional Transportation
Planning Agency (RTPA) and the federally
designated Metropolitan Planning Organization
for Butte County.
Prior to this audit period, all transit systems
in Butte County, with the exception of Gridley
Golden Feather Flyer, were consolidated as
Butte Regional Transit or B-Line. B-Line service
began in July 2005, although administrative
consolidation took place in January 2005.
BCAG contracts the operation of B-Line to
a private contract operator, Veolia
Transportation Services.
TRANSIT CENTER
The Chico Transit Center is the city's hub
for Butte Regional Transit. It is located at
Second and Salem in the former site of the
Hotel Oaks. All buses that serve Chico,
including regional service from Chico to other
cities such as Oroville, pulse at the center.
In 2007, the transit center was temporarily
moved to 2nd Street and Normal Avenue to
facilitate construction of the new center at a
cost of $1.2 million. This new center was
constructed by the City of Chico.
Figure 5: This new transit center opened on February 20th, 2008.
The facility has three shelters for travelers,
as well as benches and public bathrooms. In
addition, it is powered by solar energy, collected
from the tops of the shelters. The bus hub's
central location directly across the street from
California State University Chico makes taking
the mass transportation ideal for students,
downtown workers, and shoppers. However,
one complaint about the new center is that
regional travelers are still out in the winter rains
and summer sunshine on the Normal Avenue
side of the center.
B-Line customer service representatives are
available at the Center’s kiosk from 8:00 a.m. to
5:30 p.m., Monday through Friday. Riders may
purchase passes, lodge complaints or leave
compliments, and obtain information about B-
Line routes and schedules at this location.
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TRANSIT MODES
B-Line service is divided into four service
modes:
1. URBAN FIXED ROUTE (Routes 1-10)
2. URBAN PARATRANSIT
3. RURAL FIXED ROUTE (Routes 20 and over)
4. RURAL PARATRANSIT
URBAN FIXED ROUTE SERVICE
Figure 6: The Urban Fixed Route and Urban Paratransit services serve the City of Chico, which is the only urbanized area in Butte County.
The Urban Fixed Routes serve the City of
Chico. These routes operate from 6:50 a.m. to
9:45 p.m. Monday through Friday, and 8:50 a.m.
through 6:15 p.m. on Saturdays. The routes are
based on timed connections from the Transit
Center at Second Street and Salem in downtown
Chico. Eight routes operate year round:
Route 1: Bi-directional hourly service
between downtown and Sycamore Glen
(Ceres and Lassen) via Esplanade and
Lassen;
Route 2: Bi-directional hourly service
between downtown and Sycamore Glen
(Ceres and Lassen) via Mangrove
Avenue;
Route 3: Bi-directional hourly service
between downtown and North Valley
Plaza via Nord Avenue and East
Avenue;
Route 4: Bi-directional service every
half hour between downtown and
North Valley Plaza via East First
Avenue and East Avenue;
Route 5: Bi-directional service every
half-hour between downtown and
Chico Mall via Eighth Street;
Route 6: Bi-directional service every
half hour between downtown and
Chico Mall via Park Avenue and Dr.
Martin Luther King Jr. Parkway;
Route 7: Bi-directional hourly service
between Chico Mall and Pleasant Valley
High School via Bruce Road and
Manzanita Avenue;
Route 10: Bi-directional hourly service
between downtown and Highway 99
along the Esplanade.
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Two student shuttles operate on weekdays
only during the California State University
Chico school year when classes are in session.
The services are open to the general public:
Route 8: Student shuttle service every
half hour between the downtown
Transit Center and West Eighth
Avenue and Nord Avenue;
Route 9: Student shuttle service every
half hour between Seventh Street and
Hickory Street, and Fourth Avenue and
Cedar via the downtown Transit
Center.
CHANGES TO FIXED ROUTE
The following changes were made during the
2006/07 fiscal year:
Route 1 Times adjusted. Interlined with
route 2 at Ceres/Lassen.
Route 2 Times adjusted. Northern
portion of route changed. Interlined
with route 1 at Ceres/Lassen.
Route 7 Times adjusted. Northern
portion of route changed for better on-
time performance.
Route 8 Interlined with route 9.
Route 9 Times adjusted. Interlined
with route 8.
Route 24 Added deviation by Wal-Mart
upon request, and added a new stop
location for return trip.
Route 41 Saturday service added
between Magalia and Paradise.
Paradise Transit Center Moved from
Skyway/Foster to Almond/Birch.
Figure 7: B-Line bus shelters and transit station shield riders from the elements.
URBAN PARATRANSIT SERVICE
The Urban Paratransit service provides
paratransit service for the elderly (65 years or
older) who live more than a quarter mile from
the nearest bus stop, as well as individuals
certified by the Americans with Disabilities Act
(ADA) in order to complement the fixed route
service in the greater Chico area.
RURAL FIXED ROUTE SERVICE
The Rural Fixed Route service provides
local service within the City of Oroville (routes
in the 20s) and intercity routes connecting
communities within Butte County (routes in the
30s and 40s). One route also operates within
the town of Paradise.
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Four routes operate Monday through Friday
from 6:46 a.m. to 5:28 p.m. in the City of
Oroville and surrounding area:
Route 24: Bi-directional service every
two to three hours between Oroville
Transit Center (Mitchell and Spencer)
and County Center via Thermalito;
Route 25: Clockwise service every hour
between Oroville Transit Center along
5th and Mitchell;
Route 26: Clockwise service every two
hours between Oroville Transit Center
and Oroville Hospital with bi-
directional service along Olive Highway
from Foothill Boulevard to Tyme;
Route 27: Bi-directional service every
two hours from Oroville Transit Center
and Las Plumas High School.
RURAL PARATRANSIT SERVICE
The five intercity routes include—
Route 20: Bi-directional hourly service
between Chico and Oroville, between
the hours of 5:50 a.m. and 7:20 p.m.
Monday through Friday;
Route 30: Four trips each way Monday
through Friday, and four trips each way
on Saturday—between Oroville,
Palermo, Gridley and Biggs;
Route 31: Morning commute service
from Paradise to Oroville, with an
afternoon return;
Route 40: Bi-directional service
between Chico and Paradise every two
hours, Monday through Friday, with
limited hours of operation on Saturday
and Sunday;
Route 41: Bi-directional service
between Chico and Paradise
Pines/Magalia, every two hours on
weekdays, with limited hours of
operation on Saturday.
One route operates within the Town of
Paradise:
Route 46: Weekday service in the
Town of Paradise between Almond and
Birch Streets and Feather River
Hospital.
Figure 8: B-Line Paratransit is a shared ride service designed to meet the needs of seniors and persons with qualifying disabilities who are unable to use the B-Line fixed route services.
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B-Line’s Rural Paratransit service provides
paratransit services in the Oroville area and
Paradise area seven days a week. The service is
available to riders who are age 65 or older and
live more than a quarter mile from the nearest
bus stop, and to riders who have an ADA-
certified disability.
FARE STRUCTURE
B-Line fixed route fares have a two-tier
structure:
Local Fares for travel within a single
local jurisdiction (Chico, Paradise,
Oroville, or Gridley/Biggs);
Regional Fares for intercity travel
from one local jurisdiction to another.
Up to two children under the age of six may
ride free with each paying adult. Free transfers
are available.
One-way regular local fares maintained a
rate of $1.00, and one-way regular regional fares
maintained a $1.25 fare during this audit period.
Regional transfers are valid for two hours from
the time issued. Local transfers are valid for one
hour. A local pass, ticket or transfer may be
upgraded for use on a regional bus by paying
the fare difference of 25 cents (or ten cents on
discount).
Fares for all paratransit services were raised
in July of 2006. B-Line one-way fare for both
Urban Paratransit and Rural Paratransit services
is $2.00. A non-discounted 10-ride ticket book
is available for $20.00.
All B-Line fixed route buses are equipped
with GFI Odyssey fareboxes. The fareboxes use
magnetic stripe tickets and passes. Although the
old B-Line paper tickets are no longer sold, they
are still valid for rides.
At the April 2009 BCAG Board of
Directors meeting, BCAG staff presented a
proposed fare increase for B-Line. The
proposed fare increase was recommended to
take effect at the beginning of the 2009/10 FY
and is the result of:
Increased operating costs;
Declining farebox recovery
revenues;
Recent state funding cuts for
transit.
New transit fares went into effect on
August 1, 2009 and will be analyzed during the
following audit period.
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Table 2: Change in B-Line fixed route fares
FARE TYPE LOCAL SERVICE REGIONAL SERVICE LOCAL SERVICE REGIONAL SERVICE
THROUGH JUNE 2009 CURRENT FARES CASH CASH
Regular $1.00 $1.25 $1.40 $1.80 Discount $0.50 $0.60 $0.70 $0.90 Student (6-18) $0.75 $1.00 $1.00 $1.30 Child (under 6) 2 free 2 free 2 free 2 free
2-RIDE PASS 2-RIDE PASS Regular $2.00 $2.50 $2.80 $3.60 Discount $1.00 $1.20 $1.40 $1.80 Student (6-18) $1.50 $2.00 $2.00 $2.60
10-RIDE PASS 10-RIDE PASS Regular $9.00 $11.00 $12.60 $16.20 Discount $4.50 $5.00 $6.30 $8.10 Student (6-18) $6.50 $8.50 $9.00 $11.70
30-DAY PASS 30-DAY PASS Regular $30.00 $37.50 $35.00 $43.00 Discount $15.00 $18.00 $18.00 $22.50 Student (6-18) $20.00 $25.00 $25.00 $30.00
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C O M P L I A N C E R E P O R T
This section examines BCAG’s compliance
with the Transportation Development Act (TDA)
and relevant sections of the California Code of
Regulations. An annual certified fiscal audit
confirms TDA funds were apportioned in
conformance with applicable laws, rules, and
regulations. Although compliance verification is not
a TPA responsibility, several specific requirements
concern issues germane to the Performance Audit.
Compliance was determined through interviews
with BCAG staff and the operation’s contractor
(Veolia) and through inspection of relevant
documents including fiscal audits, planning
documents, performance reports, and other related
documentation.
BCAG administers TDA laws and regulations
related to the operation of Butte Regional Transit,
B-Line in an efficient and effective manner and is
in compliance with TDA rules and regulations with
three exceptions.
1. The paratransit service for the exclusive use of elderly and
handicapped persons, has
maintained the required fare ratio of
10 percent for only two of the three
years (FY 2007/08 and FY 2008/09)
The other two exceptions are minor
administrative issues:
2. The State Controllers Report was submitted beyond the specified
timeframe in FY 2008/09 (PUC
99243);
3. The Fiscal and Compliance Audits were completed and submitted beyond
the specified timeframe in FY 2007/08.
The TPA compliance findings and related
comments are delineated in the table on the
following pages.
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Table 3: TDA Compliance Chart
REFERENCE REQUIREMENT COMPLIANCE COMMENTS
PUC 6754 (A) (3) If the operator receives State Transit Assistance funds, the operator makes full use of funds available to it under the Urban Mass Transportation Act of 1964 before TDA claims are granted.
In Compliance B-Line has applied for and received federal transit assistance grants:
FY 06/07—$1,876,344;
FY 07/08—$2,023,731 and $1,600,000 CMAQ grant;
FY 08/09—$2,089,603.
PUC 99243 The transit operator annually reports to the RTPA, based upon the Uniform System of Accounts and Records established by the State Controller, within 90 days of the end of the fiscal year.
Exception Noted
State Controller’s Reports were filed within the 90-day window (110 days for filling electronically) with the exception of FY 08/09:
FY 06/07 filed 10/1/07;
FY 07/08 filed 9/24/08;
FY 08/09 filed 10/28/09 (ten days later than the deadline when filling electronically).
PUC 99245 The operator has submitted annual fiscal and compliance audits to its RTPA and to the State Controller within 180 days following the end of the fiscal year, or has received the appropriate 90-day extension allowed by law.
Exception Noted
Fiscal and Compliance audits have consistently been completed within the 180-day window with the exception of FY 07/09. Only FY 08/09 was submitted within the required timeframe:
FY 06/07 completed 11/6/07, filed 2/20/07;
FY 07/08 completed 1/20/09, filed 3/3/09;
FY 08/09 completed 12/18/09, filed 12/29/09. The audit conforms to all TDA requirements.
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PUC 99251 The CHP has, within the 13 months prior to each TDA claim submitted by an operator, certified the operator’s compliance with Vehicle Code Section 1808.1 following a CHP inspection of the operator’s terminal.
In Compliance Satisfactory CHP Terminal Reports were completed:
3/13/07
3/20/08
3/11/09
PUC 99261 The operator’s claim for TDA funds is submitted in compliance with rules and regulations adopted by the RTPA for such claims.
In Compliance Claims are submitted by the individual jurisdictions.
PUC 99264 The operator does not routinely staff two or more persons with public transportation vehicles designed to be operated by one person.
In Compliance Vehicles are staffed appropriately.
PUC 99266 The operator’s operating budget has not increased by more than 15% over the preceding year, nor is there a substantial increase or decrease in the scope of operations or capital budget provisions for major new fixed facilities unless the operator has reasonably supported and substantiated the charge(s)
In Compliance Operating budgets were analyzed excluding depreciation, contingency, and capital reserve. During the three years of the Audit, operating budgets did not increase by more than 15%:
FY 06/07—(1.7%)
FY 07/08—4.2%
FY 08/09—0.0%
PUC 99268.2, 99268.3, 99268.12, 99270.2
If the operator serves an urbanized area, it has maintained a ratio of fare revenues to operating costs at least equal to one-fifth (20 percent), unless it is in a county with a population of less than 500,000, in which case it must maintain a ratio of fare revenues to operating costs of at least equal to three-twentieths (15%), if so determined by the RTPA.
In Compliance Farebox Recovery Ratio for Urban Fixed Route service was consistently above 20%:
FY 06/07—20.7%
FY 07/08—21.3%
FY 2008/09—22.8%.
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PUC 99268.2, 99268.4, & 99268.5
If the operator serves a rural area, it has maintained a ratio of fare revenues to operating costs at least equal to one-tenth (10 percent).
In Compliance Farebox Recovery Ratio for Urban Fixed Route service was consistently above 20%:
FY 06/07—14.6%
FY 07/08—15.1%
FY 2008/09—17.9%
PUC 99268.5 If an operator’s services are for the exclusive use of elderly and handicapped persons, it has maintained a fare ratio of at least one-tenth (10 percent).
Exception Noted
Farebox Recovery Ratio for combined paratransit services was below 10% for two of the three years of the Audit:
FY 06/07—10.9%
FY 07/08—9.9%
FY 2008/09—8.9%
PUC 99271 The current cost of the operator’s retirement system is fully funded with respect to officers and employees of its public transportation system or the operator is implementing a plan approved by the RTPA, which will fully fund the retirement system within 40 years.
In Compliance B-Line employees with BCAG are covered by PERS. Contract employees are under the contractor’s (Veolia’s) retirement system.
PUC 99314.5 If the operator receives State Transit Assistance funds, the operator is not precluded by contract from employing part-time drivers or from contracting with common carriers.
In Compliance The operator is not precluded from employing part-time drivers.
CCR 6634 Operator funding provided through the Transportation Development Act makes up no more than 50% of operating, maintenance, capital, and debt service requirements.
Not Relevant Butte Regional Transit meets the farebox recovery ratio requirements.
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P R I O R AU D I T
R E C O M M E N DA T I O N S
The implementation of the prior Triennial
Performance Audit recommendations provides
a measure of each transit operator’s efforts to
improve its efficiency and effectiveness.
During the last year of the prior Audit
period, the operations of four entities and six
transit services were consolidated as Butte
Regional Transit, known as B-Line.
Recommendations focused on optimizing this
new system.
The prior Audit had a total of six
recommendations, four of which were
considered high priority, and two of which were
considered medium priority. Two of the six
addressed planning, three addressed reporting,
and one addressed organizational structure.
PRIOR RECOMMENDATION 1
RECOMMENDATION: Develop a Short-
Range Transit Plan to guide B-Line growth.
STATUS: In Progress; due for completion by
July, 2010.
RATIONALE: The prior Audit recommended
short-term planning as fundamental to effective
resource use and development of a transit
system to meet Butte County’s future needs.
The Audit noted that Butte County
Association of Governments (BCAG) had
elected to incorporate a Short Range Transit
Plan (SRTP) and a Long Range Transit
Plan as elements of the Reg ional
Transportation Plan (RTP), and that this
could allow for a more efficient use of planning
funds and better integration between short- and
long-term objectives.
However, the prior Audit recommended
that the RTP should still provide the same level
of detail normally found in a stand-alone SRTP,
including:
5. Overview of existing transit system; 6. Transit demand analysis; 7. Goals, objectives, measures, and
standards;
8. Service and system evaluation; 9. Operations plan; 10. Operations budget; 11. Capital Improvement Program.
The prior Audit also noted potential state
and federal funding sources for this purpose.
This recommendation was considered a
high priority for FY 2007/08, under the likely
supervision of the Senior Planner, Transit
Administration.
DISCUSSION: In November 2008, BCAG
released a Request for Proposals to perform a
Market Based Transit Study for the Butte
Regional Transit System. Proposals were
submitted in December of 2008. A consultant
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was selected, and the study commenced in
February of 2009.
The approach has five key components:
1. Market research; 2. Gather and illustrate facts on existing
conditions;
3. Develop and evaluate four alternatives; 4. Extensive public outreach; 5. Recommend preferred alternative.
Four working papers have been completed:
Working Paper I: Survey Results
Working Paper II: Existing
Conditions
Working Paper III: Four
Alternatives
Working Paper IV: Preferred
Alternative
The Study is in the final stage of
incorporating the last series of public comments
into the plan for implementing the preferred
alternative.
Although the Market Based Transit Study is
not in the format of a traditional Short Range
Transit Plan or Transit Development Plan, the
Study presents a plan for the most effective use
of resources in providing a transit system to
meet Butte County’s current and future transit
needs. The plan does not address capital needs
and fleet replacement. This element could be
addressed as part of the budget development.
Longer term projections of capital requirements
would assist the jurisdictions in understanding
budget allocations including the capital reserve
requirement.
PRIOR RECOMMENDATION 2
RECOMMENDATION: Provide the Board and
the public with an annual report on B-Line
performance, with quarterly updates.
STATUS: Fully Implemented.
RATIONALE: This recommendation was a
carryover from the then-previous BCAG
Triennial Performance Audit. The most recent
prior Audit noted that since BCAG has become
the transit operator, as well as the Regional
Transportation Planning Agency (RTPA),
this reporting recommendation had become
more appropriate than it had been previously.
The prior Audit noted that, although
BCAG staff receives and analyzes performance
data on a regular basis, B-Line performance is
not reported to the Board or member agencies.
The Audit recommended an Annual Report
with quarterly updates to provide accountability
to the Board and the public, and suggested an
outline for the Report and updates to include:
1. Annual/quarterly accomplishments; 2. Ridership compared to prior year; 3. Key performance indicators compared
to prior year and to adopted standards.
The Audit noted that such a Report would
provide valuable information to key officials and
the public, and that it could be submitted as part
of the B-Line Annual Transit Service Plan
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and Budget, with the addition of performance
data to provide a more complete overview of
operations.
This recommendation was considered a
medium priority for FY 2007/08, also under the
likely supervision of the Senior Planner, Transit
Administration.
DISCUSSION: BCAG implemented an Annual
Report in FY 2007/08. The Report covers all
BCAG responsibilities, in addition to B-Line
operations.
The Message from the Executive states: “Looking
back at the past year, the sole intention is not to
focus on what was accomplished as much as to
look at where we’re headed, based on the type
of planning that is being developed to help
guide our future here within the region.”
The Report provides an overview of BCAG and
a summary of major projects. In the FY
2007/08 Report, one page addresses B-Line
accomplishments and one page is devoted to
the B-Line financials and changes in ridership.
In the FY 2008/09 Report, two pages are
devoted to B-Line accomplishments, including
information on the Market Based Transit Study,
and one page on B-Line financials.
In FY 2009/10, staff began preparing quarterly
reports for the Board. The quarterly reports
highlight key performance and operational
statistics, along with accomplishments for the
quarter.
PRIOR RECOMMENDATION 3
RECOMMENDATION: Develop an Annual
Marketing Plan and regularly assess
progress toward achieving marketing goals.
STATUS: Partially Implemented. This
recommendation will be carried forward.
RATIONALE: The prior Audit noted that B-
Line’s marketing was on a program-by-program
basis, and recommended that a marketing plan
be developed as the foundation for a marketing
program that would effectively achieve ridership
and outreach goals.
The Audit recommended that this
marketing plan should contain:
Long-term marketing and positioning
goals;
Objectives regarding ridership and
public awareness;
Strategies, including branding and
positioning, to provide focus;
Tactics defining the message and media
for implementing the strategies;
Program descriptions and schedules,
including milestones (or control points),
and budgets;
Monitoring and evaluation mechanisms,
including measures and standards, for
each strategy, tactic, and program.
The Audit noted that B-Line’s marketing
budget had been averaging about one percent,
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which was below the recommended amount to
sustain ridership (2%). The Audit suggested
that an allocation of three to five percent of the
operating budget be made for marketing and
public information purposes—an amount that is
generally considered appropriate for an
established transit operation to grow ridership.
This recommendation was considered a
high priority for FY 2007/08, under the likely
supervision of the Senior Planner, Transit
Operations.
DISCUSSION: As part of the development of
the Annual Transit Service Plan and Budget,
an Excel spreadsheet is prepared each year with
all predicted marketing expenditures delineated.
During the year, the Senior Planner, Transit
Operations, tracks actual expenditures to budget
projections. The spreadsheet provides some
guidance as to tactics with respect to media, but
not message. Many of the ads are very creative
and memorable; the jingle provides a consistent
hood for television and radio.
The plan does not appear to included “earned”
or “bartered” media or public relations that
might support the advertising campaign.
The B-Line marketing includes sponsorship of
the athletic program at Cal State Chico, and
adds in several specialized publications, such as
101 Things to Do…in and Around Butte
County and The Source, as well as local
newspapers, including the Chico Enterprise
Record and the Paradise Post.
The marketing programs and campaigns do not
appear to be evaluated on a regular basis.
During FY 08/09, a strategic decision was made
to shift television advertising dollars from cable
to network using broad rotators. The decision
was based on the greater reach afforded with
network television, although no formal analysis
of reach/frequency/cost appears to have been
made.
Overall marketing strategies, including branding
and positioning for B-Line, have not been
clearly defined to support marketing objectives
regarding ridership and public awareness.
PRIOR RECOMMENDATION 4
RECOMMENDATION: Continue to monitor
system performance on a monthly basis to
determine productivity improvements.
STATUS: Fully Implemented
RATIONALE: The prior Audit noted that major
changes in a transit system, especially in
conjunction with a fare increase, often have a
temporary negative effect. The Audit
recommended that BCAG staff and the
contractor regularly monitor performance and
schedule adherence, and make adjustments as
required.
Areas of concern noted by the prior Audit,
based on the first year of consolidation (FY
2005/06), included:
Increased Operating Cost per VSH and
VSM (particularly for Urban services);
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Increased Operating Cost per Passenger;
Decreased Passengers per VSH and
VSM;
Decreased Farebox Recovery Ratio,
with the Ratios for both Urban and
Rural Paratransit services below the
10% required ratio.
The Audit noted that BCAG had worked
with the operations contractor’s general
manager to increase service effectiveness for the
paratransit services during FY 2005/06, with
good success. The recommendation was made
that BCAG staff continue working with the
contractor to determine where improvements in
productivity and further efficiencies could be
instituted.
This recommendation was considered a
high priority for FY 2006/07, also under the
likely supervision of the Senior Planner, Transit
Operations.
DISCUSSION: BCAG receives performance data
from its contractor on a monthly basis in both
hard copy and electronic formats. The data is
reviewed by both Senior Planners and the
Assistant Planner for accuracy and performance.
Data is examined on a route-by-route basis. In
addition, key performance measures are tracked
on a monthly spreadsheet to determine trends
and outliers.
Questionable data is reviewed with the
contractor on a regular basis, and the contractor
appears willing to provide any additional reports
as requested.
PRIOR RECOMMENDATION 5
RECOMMENDATION: Work with contractor
to ensure that all performance measures are
correctly reported.
STATUS: Partially Implemented.
RATIONALE: The prior Audit found minor
discrepancies in the reporting of TDA
performance measures:
Vehicle Service Miles and Hours did not
include figures for backup buses for
Route 2;
Employee counts rather than employee
hours were used to calculate Full-Time
Equivalents (FTEs).
The Audit noted that corrections were made
as soon as the miscalculations were brought to
the attention of the contractor and BCAG staff.
The Audit recommended that BCAG staff
review the TDA definitions of VSM, VSH,
FTE, and Passenger counts with the contractor
annually when the State Controller’s Report
is being prepared, in order to ensure that
performance continues to be correctly
calculated.
This recommendation was considered a
medium priority for FY 2006/07, under the
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likely supervision of the Senior Planner, Transit
Administration.
DISCUSSION: Both the contractor and BCAG
staff are conscientious about reporting
performance measures and indicators correctly.
However, a discrepancy was noted in the
reporting of Full Time Equivalents, and
documentation supporting the numbers on the
State Controller’s Report were not readily
available.
Some of the issues noted in this Audit may be
due in part to turnover in staff at BCAG, and
with the operations contractor.
PRIOR RECOMMENDATION 6
RECOMMENDATION: Ensure definitive
separation of BCAG as the RTPA from
BCAG as the transit operator.
STATUS: Partially Implemented. This is a
valid recommendation and will be carried
forward with modification.
RATIONALE: The prior Audit found that the
effect of incorporating B-Line’s operation into
BCAG was that the separation between BCAG as
the Regional Transportation Planning Agency
(RTPA) and BCAG as the transit operator was
blurred.
The Audit noted that maintaining a division
between these two roles provided some checks
and balances, because they have very separate and
different responsibilities:
B-Line, as the transit operator, is
responsible for the delivery of effective
and efficient public transportation in
Butte County;
BCAG the RTPA is responsible for
regional intermodal transportation
planning and the administration and
oversig