CITY COUNCIL STAFF REPORT
March 18, 2025 {{section.number}}f
REPORT ON THE 2024 ISLAND EXPRESS ELECTRIC SHUTTLE PROGRAM RECOMMENDATION:
Receive the report on the 2024 Island Express Electric Shuttle Pilot Program and provide direction on potential next steps.
BACKGROUND:
The City of Coronado initiated the six-month Island Express electric mini shuttle pilot program on June 4, 2024. The service provided free, door-to-door transportation services for residents and visitors traveling within the Village and Coronado Cays. The program was operated by Circuit and utilized six electric mini shuttles in the Village and two eight-seat electric passenger vans in the Cays. Service hours were 10 a.m. to 9 p.m. Sunday through Thursday and 9 a.m. to 10 p.m.
Friday through Saturday.
On November 5, 2024, staff presented an interim report on the mini shuttle program for the period between June 4 and September 30. At that meeting, the City Council decided not to extend the pilot program and directed staff to return with a final report following completion of the program.
ANALYSIS:
This report documents the entire six-month pilot program operating period between June 4 and December 4, 2024. Overall, the pilot program contract with Circuit cost the City a total of $561,509, including $534,608 for operating the service in the Village and Cays, $13,901 for the call center, and $13,000 for vehicle wrapping. The program provided a total of 29,903 rides serving 58,596 passengers.
In the Village, costs averaged to $13.97 per ride or $7.00 per passenger. Rides originating to/from the Coronado Cays averaged to $48.72 per ride or $29.00 per person. A summary of key program metrics is shown in the following table and graphs:
Village Rides 26,539
Cays Rides 3,364
Total Rides 29,903
Village Passengers 52,945
Cays Passengers 5,651
Total Passengers Served: 58,596
Village Cost/Ride $13.97
Cays Cost/Ride $48.72
Village Cost/Passenger $7.00
Cays Cost/Passenger $29.00
Total Program Cost: $548,509*
*Does not include $13,000 vehicle wrapping expense, City marketing costs, or City staff time
0.0 50.0
100.0
150.0
200.0
June July August September October November December
Total Rides/Day Village Rides/Day Cays Rides/Day
Rides/Day
0.0 50.0
100.0
150.0
200.0
250.0
300.0
350.0
400.0
June July August September October November December
Total Passengers/Day Village Passengers/Day Cays Passengers/Day Passengers/Day
3,349
4,962
5,103
5,404
5,304
5,250
531
5,120
6,588
4,510
4,682
3,615
2,655
251
1,544
1,932
1,797
1,818
1,688
1,546
143
2,491
3,327
1,888
2,028
1,927
1,109
108
J U N E J U L Y A U G U S T S E P T E M B E R O C T O B E R N O V E M B E R D E C E M B E R Completed Rides Incomplete Rides Canceled Rides Missed Rides
RIDES BY MONTH
13.2 17.2
23.2 24.8 23.6
25.8 34.3
37.3 31.2 31.6
29.2 27.8
35.8 9 1 0 1 1 1 2 1 3 1 4 1 5 1 6 1 7 1 8 1 9 2 0 2 1
AVG RIDERS PER HOUR
9.92 9.13 8.72 8.24 8.4 8.4 7.93
11.19 10.4 9.26 8.79 8.94 8.3 7.44
20.72 19.35 18.25 17.41 17.93 17.16 15.59
J U N E J U L Y A U G U S T S E P T E M B E R O C T O B E R N O V E M B E R D E C E M B E R Average Ride Time Average Wait Time Average Total Trip Time
WAIT AND RIDE TIMES
$0.00
$10.00
$20.00
$30.00
$40.00
$50.00
$60.00
$70.00
$80.00
$90.00
June July August September October November December
Village Cost/Ride Village Cost/Passenger Cays Cost/Ride Cays Cost/Passenger Monthly Cost/Ride & Cost/Passenger
1548
1515
1453
1142
619
500
406
378
324
318
304
294
257
244
189
185
159
Hotel del Coronado
Coronado Marriott
Coronado Ferry Landing
Coronado Shores
Bayside at Coronado
Spreckels Park West/Library
Panera
Coronado High School
Starbucks
Vons
Coronado Plaza
Stake Chophouse
Navy Housing Silver Strand
The Henry
Private Residence F Ave
Bank of California
Spreckels Park East
TOP PICKUP LOCATIONS
2310
1982
1741
1003
609
443
441
433
419
409
371
362
302
246
230
207
166
Coronado Ferry Landing
Hotel del Coronado
Coronado Marriott
Coronado Shores
Bayside at Coronado
Panera
Vons
Starbucks
Stake Chophouse
Spreckels Park West/Library
Navy Housing Silver Strand
The Henry
Coronado High School
Coronado Plaza
Bank of California
Spreckels Park East
Private Residence F Ave
TOP DROPOFF LOCATIONS
Island Express Greenhouse Gas (GHG) Reduction
The City’s adopted Climate Action Plan (CAP) included the electric mini shuttle program as a GHG reduction measure and estimated that implementation of the program could result in an annual reduction of nine metric tons of GHG emissions by eliminating 30,010 vehicle miles travelled with traditional gas-powered cars. A nine metric ton reduction in GHG emissions represents approximately .02% of the City’s overall 2030 GHG reduction target of 47,319 metric tons. By comparison, a 10-kilowatt residential rooftop solar system can save up to four metric tons of GHG emissions per year. A typical 10-kilowatt residential rooftop solar system provides enough power for a 2,000-square-foot home in the United States.
According to Circuit, the pilot program resulted in 45.3 metric tons of GHG savings; however, Circuit’s estimate appears to rely on a number of assumptions that substantially overstate GHG reductions. To determine potential GHG reductions of an electric mini shuttle program, the City’s CAP relied on SANDAG’s Vehicle Miles Travelled (VMT) tool that applies a .000299 metric ton emission reduction per mile driven. Conversely, Circuit applied a .00056 reduction factor, which is 47% higher than SANDAG’s VMT tool.
Additionally, and based on data supplied by Circuit, the pilot program included a cumulative total of 80,201 vehicle miles travelled, of which 37,339 (47%) were miles driven to deliver passengers to their destination. It appears Circuit used the total number of miles driven in their calculation that includes trips for passenger pick-ups and cancelled rides, neither of which represent displaced vehicle trips. Accordingly, this assumption likely inflates their reduction estimates by approximately 53%.
Finally, Circuit assumed that 100% of rides provided displaced a gas-powered vehicle trip. This is also an incorrect assumption because some percentage of people would have chosen to walk, bike, or drive an electric or hybrid vehicle. According to the City’s survey, 30% of respondents indicated that they would have driven their own car if not for the Island Express.
If the pilot program removed 37,339 VMTs by gas-powered vehicles as reported by Circuit, the total GHG reduction based on SANDAG’s reduction factor would be 11.16 metric tons. If 30% of riders would have chosen to use another mode of emission-free transportation as suggested by the City’s survey, the total GHG reduction would be closer to 7.8 metric tons.
Island Express Traffic Reduction
The Island Express provided 29,903 total rides. Although there is no way to know with certainty how passengers would have travelled if not for the mini shuttle program, 30% of survey respondents indicated they would have driven their car. If that data is representative of actual user behavior, approximately 8,971 traditional vehicle trips would have been displaced by the program. Replacing traditional vehicle trips with mini shuttle trips, however, does not remove trips from the road or reduce overall traffic volume. Moreover, it is possible that the service adds traffic by providing a free transportation option to people who might otherwise walk or bike to their destination.
Island Express Effect on Parking
A number of survey respondents noted that they liked using the Island Express because they didn’t need to worry about parking in the Village. It is assumed that the program resulted in some reduction in parking demand; however, in order to accurately quantify the effect on parking, the City would need to conduct a parking study to establish the baseline parking setting and then actively monitor parking capacity and usage during program operation to assess the parking impact. Nonetheless, it can be concluded that the program’s overall effect on parking supply in the Village would be negligible given the average number of completed rides per hour (13 – 37) and the fact that some percentage of riders would not otherwise drive to their destination.
Island Express Survey Results
Users of the mini shuttle program were invited to complete a non-scientific survey after they used the service. A total of 695 unique users submitted responses. Of these respondents, 54% stated Coronado residency, 33% from out of state, 7% from elsewhere in California and 5% from San Diego County. 1% of respondents were from the United Kingdom or provided an invalid zip code.
A complete breakdown of survey results is included in Attachment 2 and a summary of key questions and responses is provided below:
• 89% of users responded that they were very satisfied with the service. Less than 5% of respondents reported an unsatisfactory experience.
• 77% of respondents said they would pay a small fee to use the service. The survey did not ask how much users would be willing to pay.
• 98% reported that they either felt safe or very safe using the service. • The most common reported destination for users was “leisure” at 47%, followed by “dining” at 25%, and “other” at 9%. Only 4% reported using the service for work or business. • 80% of respondents reported a 10-minute or less wait time, 13% between 10-15 minutes, and 5% reported a greater than 20 wait time.
• When asked how they would have travelled if the mini shuttle program were not available, 30% responded that they would have driven their car; 39% said they would have walked, biked, or rode a scooter; and 31% said “other”.
Survey respondents were also encouraged to provide other comments. Some of the common themes were appreciation for the service and its convenience, commendations of shuttle drivers, and complaints about long wait times, cancelled rides, or difficulties with the Circuit app.
Potential Cost Saving Measures
There are a number of potential program modifications the City could make to reduce costs should the City Council wish to reinstate an electric mini shuttle program in the future:
1. Release a Request for Proposals (RFP). Issuing an RFP could provide a greater range of service options from professional transportation providers for the City’s consideration while also inviting cost competitiveness. The RFP process would also allow staff to negotiate program terms and costs with one or more firms for the City Council’s consideration. At least one other electric vehicle ridesharing company (Via Transportation) has initiated service in the City of San Diego since the pilot program ended and Coronado Cab has previously expressed interest in the program.
2. Require Passenger Fares. The 2024 pilot program offered fare-free door-to-door rides. Adding a modest passenger fare would reduce the City’s cost and would likely reduce the high number of cancelled and unfulfilled rides that occurred during the pilot program. Although passenger fares would offset the City’s operational costs, it is assumed that there would be an approximate correlation between higher fare rates and decreased ridership demand. It is unknown how incremental prices increases may affect ridership demand and resultant program revenue. The following tables project program costs if various fare rates were imposed on both a per-ride and per-passenger basis. Estimates are based on 2024 ridership data and operating costs minus vehicle wrapping and call service expenses.
Fare Rate/Ride $1 $2 $3 $4 $5
Fare Revenue $29,903 $59,806 $89,709 $119,612 $149,515
Operating Cost w/Fare $504,705 $474,802 $444,899 $414,996 $385,093 Cost/Ride $16.88 $15.88 $14.88 $13.99 $12.88
Fare Rate/Passenger $1 $2 $3 $4 $5
Fare Revenue $58,596 $117,192 $175,788 $234,384 $292,980 Operating Cost w/Fare $476,012 $417,416 $358,820 $300,224 $241,627 Cost/Ride $15.92 $13.96 $12.00 $10.04 $8.08
The following tables show potential program costs with fares for Village service only:
Fare Rate/Ride $1 $2 $3 $4 $5
Fare Revenue $26,539 $53,078 $79,617 $106,156 $132,695
Operating Cost w/Fare $344,164 $317,625 $291,086 $264,547 $238,008 Cost/Ride $12.97 $11.97 $10.97 $9.97 $8.97
Fare Rate/Passenger $1 $2 $3 $4 $5
Fare Revenue $52,945 $105,890 $158,835 $211,780 $264,725 Operating Cost w/Fare $317,758 $264,813 $211,868 $158,923 $105,978 Cost/Ride $11.97 $9.98 $7.98 $5.99 $3.99
3. Eliminate or Modify Cays Service. Service to the Cays had substantially less ridership and was significantly more expensive due to lower passenger volumes and higher vehicle costs (vans vs GEM cars). Eliminating service to the Cays altogether would reduce overall operating costs by approximately 31% ($163,904 of operating total $534,608).
Alternatively, the City could retain service to the Cays, but reduce operational costs by changing from eight-person passenger vans to electric sedans and/or changing the doorto-door service to a fixed route with limited daily stops. For example, a program could be established whereby a shuttle makes four daily stops at designated times to pick-up and drop-off passengers at Cays Park rather than offering on-demand, door-to-door service.
4. Eliminate Call Center Service. The City’s cost to provide a call center was $13,901 and was used to provide a total of 223 rides over six months of service.
5. Advertising. Circuit offered an advertising option that would have shared revenue proceeds with the City. It is unknown how much potential revenue an advertising option may generate.
6. Reduced Hours. The hours of operation could be abbreviated to reduce overall operation costs; however, this option would also likely reduce overall passenger participation. Based on 2024 data, early morning services between 9-10 am experienced the lowest ridership.
7. Smaller Fleet. The pilot program operated with six electric GEM vehicles, one of which was ADA accessible, to serve the Village and two passenger vans to serve the Cays. Reducing the number of vehicles would reduce the overall program cost, but may also result in fewer passengers being served.
8. Potential Grant Funding. Staff understands that SANDAG will offer competitive grants sometime later in 2025 for member cities to fund electric vehicle rideshare programs. The potential grant value and timing remains unknown, but the City can apply once the application period is opened. Staff will be attending a SANDAG meeting the week of March 10th to gather information on potential grant funding and will provide information to City Council at the meeting on March 18. Staff has also explored other potential state or federal funding sources, but has not identified any opportunities to date.
FISCAL IMPACT:
There is no fiscal impact to the City in association with this report on the Island Express Pilot Program. The City’s total cost to operate the pilot program was $561,509, which was below the not-to-exceed contract value of $628,295.50. Outside of the contract cost, the City also spent approximately $9,000 in marketing and promotion of the City’s free transportation service programs. The in-kind costs included substantial City staff time to administer the contract, coordinate with Circuit, promote the service and analyze data.
ALTERNATIVE:
The City Council may choose to receive and file this report, acknowledging the completion of the Island Express Electric Shuttle Pilot Program with no further action. Alternatively, the Council may provide direction on potential next steps, such as exploring modifications to the service model to improve cost-effectiveness.
CALIFORNIA ENVIRONMENTAL QUALITY ACT:
Not Applicable.
PUBLIC NOTICE:
No notice required.
ATTACHMENTS:
1. Monthly ridership graphics provided by Circuit
2. Survey Results Breakdown
Submitted By: Community Development Department / Richard Grunow