CITY COUNCIL STAFF REPORT
February 20, 2024 {{section.number}}c
REPORT ON THE FREE SUMMER SHUTTLE PROGRAM
RECOMMENDATION:
Consider and receive report on the Free Summer Shuttle and provide direction for the Summer 2024 program.
BACKGROUND:
On November 21, 2023, staff provided an update on the Free Summer Shuttle (FSS) service, which has operated annually since 2013, replacing the Metropolitan Transit Service (MTS) bus route 904 between Memorial Day and Labor Day each year. The free summer shuttle service includes four beach-themed wrapped buses that operate on 15-minute intervals from 9:00am to 10:00pm Sunday through Thursday, and 9:00am to 11:00pm Friday and Saturday. Rides are free for all passengers.
Additionally, the free summer shuttle program includes a free holiday shuttle for Coronado Cays residents on the Fourth of July and offers free MTS PRONTO passes for Cays residents.
In 2020, the FSS service was cancelled due to the COVID-19 pandemic and San Diego County's Stay-at-Home Order. Service resumed in 2021 with an abbreviated operating schedule, but ridership remained substantially below historic averages due to the ongoing effects of the pandemic. Ridership rebounded in 2022 as the pandemic diminished, and it was anticipated that ridership would return to pre-pandemic levels in 2023. Unfortunately, a bus driver strike delayed the start of the FSS by approximately one month and precluded customary promotional efforts and bus driver trainings that collectively contributed to the lower ridership experienced in 2023.
ANALYSIS:
At the November 21 City Council meeting, staff was directed to identify and evaluate potential modifications to the FSS operations and to present the Council with options at a future meeting and before the 2024 FSS contract is considered. Staff subsequently evaluated historic ridership data, as summary of which is included as Attachment 1. Costs to operate the FSS program have increased by 194% over the ten-year period since its initial launch. City staff met with MTS staff to explore possible changes to the FSS schedule, service duration, number and size of buses, and frequency of stops with the goal of reducing the City’s cost per trip provided. These options are further detailed below.
Delay the start of FSS
If the FSS shuttle runs for the typical season of Memorial Day to Labor Day, May 24 through September 2, 2024, the season will include 101 service days. Based on historic ridership data, usage of the free summer shuttle has been relatively low in May and early June and is highest from mid to late summer with monthly ridership at a peak in July. This pattern can be attributed to various factors such as school summer vacations typically beginning in mid-June, increased tourism in Coronado beginning around Fourth of July, and a preference for warmer weather and outdoor activities in late summer.
2 If the City Council wishes to reduce the duration of the FSS service season, one option would be to postpone the start of service from Memorial Day weekend to Fourth of July weekend. This modification would reduce the operational period by approximately 40 days, from 101 days to 60 days, and would also reduce the City’s cost by approximately 40%.
Another option for a delayed schedule start would be to align with MTS’ “Summer Shake-Up” schedule, which begins on June 9. This schedule would address lower ridership observed in late May and early June, and would present an administrative benefit to MTS, allowing them to train the Free Summer Shuttle drivers together with all of their regional drivers for their summer season. With this option, the operational season would be reduced by 16 days, and result in an approximate cost savings to the City of 16%.
Reduced Daily Schedule
In addition to looking at monthly ridership, staff evaluated recent hourly usage data from MTS in order to evaluate the daily service schedule. The FSS currently operates from 9:00am to 10:00pm Sunday through Thursday and 9:00am to 11:00 pm on Fridays and Saturdays. 6 21
30 39 38
33 63
57 62
57 33 31
21 13
4 2
3 27
39 53
60 79 80
75 80 79
76 69
50 18
9 1
-
10 20
30 40
50 60
70 80
90 100
8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23
2023 Avg Riders 2022 Avg Riders
Free Summer Shuttle Average Hourly Riders
Number of Riders
8:00am through 11:00pm
3 The data shows a consistent pattern of peak ridership hours beginning mid-morning, with ridership sharply declining after 7:00pm. Reducing service hours during periods of documented lower ridership in early morning and late evening is an adjustment strategy that would reduce cost while maintaining service during the peak ridership hours. An example would be reducing the schedule by 4 hours per day Sunday through Thursday, running 10:00am to 7:00pm, and by 3 hours per day on Friday and Saturday, running 10:00am to 9:00pm. This would result in an approximate 30% reduction in service hours and cost on weekdays and 20% on weekends.
Reduced Bus Frequency
The Free Summer Shuttle originally operated in 30-minute intervals. For the 2015 season, the bus frequency was shortened to 15-minute intervals, and the free summer shuttle saw its highest ridership numbers in that season. The increased ridership beginning in 2015 suggests that the implementation of a 15-minute interval was successful and use of the Free Summer Shuttle was trending upward prior to the pandemic year of 2020, when no service was offered.
Staff discussed with MTS the idea of returning to the 30-minute interval, as an alternative to modifying the daily schedule and reducing cost. MTS noted that a 15-minute headway is the “sweet spot” for public transit, particularly in a small town like Coronado, where the length of the downtown business district can be walked in less than 30 minutes. Given the significant increase in ridership that was experienced following implementation of shorter 15-minute headways, reverting to 30- minute headways would likely result in a further decline in ridership and therefore does not appear to be a viable strategy to reduce the City’s cost per trip provided.
Number, Type and Size of Buses
Staff and MTS discussed the possibility of reducing the number of buses, using smaller buses, and converting to electric buses. MTS reported that they do not have any smaller buses or electric buses available for the FSS program and must maintain the existing fleet of 4 buses to provide 15-minute headways. Accordingly, it does not appear that there are any near-term options to modify the FSS fleet.
Combination of Service Reductions
Another option for the Council’s consideration is to reduce both the service duration by starting around the Fourth of July weekend and reducing the daily schedule.
Proceed with Existing, Unmodified FSS Program
The FSS experienced relatively consistent ridership between 2015 and 2019, providing between 115,038 and 154,026 total rides and 10.5 and 15 rides per trip, resulting in a cost of $0.80 and $0.97 per trip provided. The Covid-19 pandemic caused the cancellation of the 2020 FSS and an 4 abbreviated operating schedule in 2021. Although the effects of the pandemic were diminishing by summer 2022, local tourism and the use of public transit across the entire MTS system remained well below pre-pandemic levels. While FSS ridership was expected to rebound in 2023, the extended bus driver strike resulted in another anomalous year by truncating the operating period by approximately 30% and precluding standard promotional efforts and driver trainings, the latter of which is suspected to have resulted in a substantial undercount of riders. Recognizing that the FSS has not had a typical, uninterrupted operation since 2019, the City Council could consider maintaining the existing service for 2024 and reevaluate possible service modifications if ridership does not markedly increase following a full operational season with requisite driver trainings and promotional efforts.
Elimination of the FSS Program
The City Council could also consider eliminating the FSS altogether. With the anticipated launch of the Circuit Shuttle pilot program in Spring 2024, the City could cancel the FSS program and focus its efforts to promote the use of the smaller, electric-powered mini shuttles. While it is likely that the FSS and Circuit shuttles will compete for many of the same passengers, each service offers distinct advantages that are better suited for certain types of riders. For example, it is expected that Circuit’s door-to-door service model will appeal to many Coronado residents who travel between home and the business district. Conversely, the FSS provides room and capacity not offered by mini shuttles and can better accommodate larger groups of passengers, riders with surfboards and beach gear, and long queues of passengers during peak periods of demand. It is unknown how the introduction of another free public transit option will affect FSS ridership or how many potential passengers would forego public transit if the FSS were eliminated.
Renewed Marketing, Promotion, and Driver Trainings
The lack of usual promotional activities, such as media launch events and advertising may have contributed to the decrease in ridership in 2023. Additionally, the drivers’ strike precluded the standard driver training and it is suspected that some drivers did not accurately count passengers, resulting in a substantial undercount of total ridership.
If the City Council chooses to continue the FSS in 2024, City staff and MTS intend to renew and improve its marketing and promotional efforts with the goal of increasing awareness and ridership.
City staff would also work with MTS to ensure driver trainings are conducted prior to launch of the 2024 FSS with an emphasis on collecting accurate passenger data.
FISCAL IMPACT:
None.
ALTERNATIVE: The City Council may provide alternate direction or request additional research and option development from staff.
CALIFORNIA ENVIRONMENTAL QUALITY ACT:
This activity is not a project as defined by CEQA and is therefore exempt from environmental review.
PUBLIC NOTICE:
No notice required.
ATTACHMENTS:
1. FSS Overall Ridership and Cost
Submitted By: Community Development Department / Jasmine Bridges