West San Leandro Shuttle Business Improvement District 2025 Annual Report Page | 1
West San Leandro Shuttle (LINKS)
Business Improvement District
2025 Annual Report
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West San Leandro Shuttle Business Improvement District 2025 Annual Report Page | 2
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Table of Contents
Background............................................................................................................ 3 LINKS Shuttle Service ............................................................................................. 3 BID Renewal........................................................................................................... 4 2024-25 Activities .................................................................................................. 4 2025-26 Planned Activities..................................................................................... 4 Dual Interlaced Loop.................................................................................................................................4 Outreach ...................................................................................................................................................4 Budget Stabilization ..................................................................................................................................5 LINKS Budget.......................................................................................................... 5 2022 Alameda CTC CIP Grant - $1,180,088...............................................................................................5 2024 Alameda CTC CIP Grant - $331,000.................................................................................................5 2026 Alameda CTC CIP Grant - $386,000..................................................................................................5 Business Improvement District Revenue ..................................................................................................5 Business Improvement District Authorization ........................................................ 6 Annual BID Rate Recommendation – 2026 Business Improvement District Assessment............................................................................................................ 6 Exhibit A: Ridership Statistics................................................................................. 7 Exhibit B: LINKS Shuttle Map.................................................................................. 9 Exhibit C: Budget.................................................................................................. 10 Exhibit D: Previous Business License Insert.......................................................... 11 Exhibit E: Summary of Annual Activities............................................................... 12 West San Leandro Shuttle Business Improvement District 2025 Annual Report Page | 3
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Background
In 2000, the City of San Leandro evaluated the feasibility of implementing a commuter shuttle service connecting west San Leandro employment sites with the San Leandro BART station. Based on the results of that study, the San Leandro Transportation Management Organization (SLTMO) and a Business Improvement District (BID) were formed to provide management and funding for the LINKS Shuttle program.
The SLTMO is a 501(C)4 non-profit corporation governed by a Board of Directors that includes representation from businesses included in the BID and the City of San Leandro. The SLTMO administers the LINKS Shuttle program.
Oversight of the BID is conducted by the West San Leandro Shuttle Business Improvement District Advisory Board (Advisory Board). The five-to-seven-member Advisory Board includes two City staff designees and three to five business representatives. The Advisory Board’s duties include annual review of the LINKS performance for submission to the City Council. The Ordinance authorizing the BID also provides that the City Council may increase the annual BID assessment in an amount not to exceed the increase of the Consumer Price Index as part of its review of the annual report.
LINKS Shuttle Service
The LINKS Shuttle provides free transportation from the San Leandro BART station to the industrial area west of I-880 and Marina Blvd., a major employment center of the City and the region. LINKS operates Monday – Friday during peak commute hours (5:45 – 9:45 am and 3:00 – 7:00 pm).
LINKS provides critical “first and last mile” connection between transit and employers in West San Leandro, serving major employers including Amazon, Walmart and Costco, as well as small employers. There are over 600 businesses and almost 15,000 employees in the LINKS service area. LINKS also provides transportation to commercial nodes including Marina Square Shopping Center and community services such as Davis Street Family Resource Center which serves 10,000 low-income people each year.
Participation in the LINKS BID service area helps businesses comply with the BAAQMD Commuter Benefit requirements. In 2014, the Bay Area Air Quality Management District (BAAQMD) implemented the Commuter Benefits Program that requires all employers with 50 or more full-time employees to provide commuter benefits to their employees. To comply with the Program, employers must select one (or more) of four commuter benefit options and register with BAAQMD. Participation in the LINKS BID satisfies Option 3 (“Employer Provided Transit”) under the requirements, allowing businesses to save time and money.
Historically, LINKS provided 200,000 rides per year with an average of 770 rides per day. Like all public transportation services, the number of rides has dropped since the COVID-19 Pandemic. In response to the reduced ridership levels and reduction in grant funding, in July 2022 the LINKS shuttle program implemented a Dual Interlaced Loop service, reducing the number of buses from four to two. Since the implementation of this new service configuration, LINKS has provided an average 90,000 per year with an average 331 rides per day. This represents a 45% pre-pandemic recovery, a trend consistent with BART’s recovery levels.
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BID Renewal
In 2015, the Business Improvement District was re-authorized for 15-years. When the BID was renewed, the service area was expanded providing more frequent service, shorter round-trip rides and connections to businesses that previously could not access LINKS. BID fees are collected through the City’s business license process.
2024-25 Activities
Over the past year, the SLTMO continued to provide reliable transportation for LINKS riders. The service maintained the Dual Interlaced Loop configuration implemented on July 1, 2022, in which two buses alternate between the North and South loops. This design allows passengers to travel directly between any two stops on either route without transferring between vehicles.
Before the COVID-19 pandemic, LINKS averaged approximately 770 daily riders. Like most public transit systems, ridership declined sharply during the pandemic, reaching a low of 200 rides per day in April 2020.
In response to reduced ridership and a decrease in grant funding, the LINKS program restructured service in July 2022 to the Dual Interlaced Loop, reducing the fleet from four buses to two. By the end of FY 2024– 25, LINKS averaged 331 daily rides, totaling 86,484 annually—representing a 45% recovery of prepandemic ridership levels. This recovery rate aligns closely with BART’s overall ridership trends.
Throughout the year, SLTMO continued to leverage established communication platforms such as social media, Google Maps, and the Transit App to provide riders with real-time service alerts, route information, and updates.
In a continued effort to enhance the passenger experience, LINKS launched a new real-time vehicle tracking system powered by Trakk. For riders, this system delivers more accurate, real-time bus tracking and service alerts through a branded, mobile-friendly interface—no app download required. For operations staff, the platform improves vehicle location accuracy and enables digital ridership tracking, supporting more detailed performance analysis, on-time reporting, and data-driven service planning.
In March 2025, SLTMO issued a Request for Proposals (RFP) for continued shuttle operations beginning August 2025. After a competitive procurement process that drew multiple qualified submissions, MV Transportation, Inc. was selected to continue operating the LINKS shuttle program, ensuring ongoing service continuity and reliability for the community.
2025-26 Planned Activities
Following is a summary of planned activities for FY 2025-26:
Dual Interlaced Loop
Continue to monitor and modify the service as needed to meet rider needs.
Outreach
SLTMO Management will increase outreach to employers and employees to promote LINKS ridership now that riders are coming back to public transportation. Management will continue to develop the SLTMO’s social media and digital presence to spread the word about LINKS.
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Budget Stabilization
Grants
Aggressively seek local, state, and federal grant and other funding opportunities. The Board will continue to work with the City of San Leandro and Alameda County Transportation Commission to secure critical funding. Historically, the City of San Leandro has served as the financial administrator and sponsor for grants, which are typically awarded to transit agencies and cities.
Revenue Diversification
Continue to diversify revenue sources by maintaining current contract with Marina Square (advertising) and seek other revenue generating opportunities.
Operations Diversification
The SLTMO is actively exploring potential service enhancements and operational alternatives aimed at reducing costs and stabilizing the program’s budget. These efforts focus on identifying strategies that maintain the LINKS shuttle’s core purpose—providing essential first- and last-mile connections to BART and AC Transit—while improving efficiency and long-term financial sustainability.
Possible approaches under review include optimizing route design, adjusting service frequencies to better align with demand, and exploring new technologies or partnerships that could lower operating expenses without compromising service quality or accessibility.
LINKS Budget
Funding for LINKS comes from the BID, grants, the City of San Leandro and advertising revenue from Marina Square Shopping Center, in which they purchase advertising space on the LINKS buses. 2022 Alameda CTC CIP Grant- $1,180,088
The SLTMO received a 2022 Alameda CTC CIP grant for the periods FY 2021-22 through FY 2025-26 in the amount of $1,180,088. Although the full grant request was allocated, the matching requirement for this grant cycle went from 50% to 75% reducing the allowable request and significantly impacting the LINKS budget.
2024 Alameda CTC CIP Grant - $331,000
In May 2023, the Alameda CTC approved the San Leandro Transportation Management Organization’s application through the 2024 Comprehensive Investment Plan, programming $331,000 for the San Leandro LINKS shuttle operations in FY 2027 and FY 2028. 2026 Alameda CTC CIP Grant - $386,000
In May 2025, the Alameda CTC approved the San Leandro Transportation Management Organization’s application through the 2026 Comprehensive Investment Plan, programming $386,000 for the San Leandro LINKS shuttle operations in FY 2029 and FY 2030.
Business Improvement District Revenue
BID revenue over the last five years (20/21 – 24/25) has averaged roughly $414,256 per fiscal year.
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Business Improvement District Authorization
The BID is a levied benefit assessment on businesses within the BID Area, the proceeds of which shall be used for the public purpose benefit of the businesses in the BID, pursuant to the Parking and Business Improvement Area Law of 1989 Section 36500 et seq. of Division 18 of the California Streets and Highways Code. All of the assessments imposed by the BID Ordinance shall be reviewed by the City Council annually based upon the annual report prepared by the advisory board appointed pursuant to Sections 36530 and 36533 of the California Streets and Highways Code. Pursuant to Section 36533(c), the City Council may approve the report as filed by the advisory board or may modify any particular contained in the report and approve it as modified.
The ordinance defines the boundaries of the BID, the amount of the annual assessment, the approved use of the assessment funds, and the effective period of the assessment. The Ordinance requires that an Advisory Board annually review the performance of LINKS for submission to the City Council. In addition, the Ordinance provides that the City Council may increase the annual assessment in an amount not to exceed the increase of the Consumer Price Index (San Francisco, Oakland, San Jose), as part of its review of the annual report.
Annual BID Rate Recommendation – 2026 Business Improvement District Assessment
To ensure that LINKS funding keeps pace with operating costs, it is recommended that the 2026 BID rate be adjusted based on the applicable Consumer Price Index (CPI).
Per the approved Ordinance, the BID per employee rate may be increased annually by the increase in the Consumer Price Index (CPI). For 2026 the applicable CPI factor is 2.1 percent. This would result in the BID per employee rate increasing from $29.65 to $30.27. Businesses with three or fewer owner/employees, landlords, and non-profits will continue to be exempt from the BID assessment. The CPI adjustment will raise approximately $16,811.
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Exhibit A: Ridership Statistics
Years of Service: 24
Total # of Rides Provided: 3,560,394
Monthly Total Ridership Daily Average Ridership
PreCOVID
Total
FY 19
Total
FY 24
Total
FY 25
+/- from
Previous
Year
% PreCOVID
Baseline
(FY 19)
PreCOVID
Average
FY 19
Average
FY 24
Average
FY 25
+/- from
Previous
Year
% PreCOVID
Baseline
(FY 19)
July 15,733 7047 7924 12% 50% July 749 336 345 3% 46%
August 17,585 8492 8157 -4% 46% August 765 369 371 0% 48% September 15,506 7479 7637 2% 49% September 775 356 364 2% 47% October 18,931 8584 8127 -5% 43% October 823 390 353 -9% 43% November 15,963 6989 6280 -10% 39% November 760 318 299 -6% 39% December 14,787 5540 6675 20% 45% December 739 264 303 15% 41% January 17,779 6712 7556 13% 42% January 773 292 329 13% 42% February 15,329 6446 6370 -1% 42% February 766 307 319 4% 42% March 16,188 7026 6777 -4% 42% March 771 335 323 -4% 42% April 17,420 8229 7154 -13% 41% April 792 374 325 -13% 41% May 17,327 8540 6852 -20% 40% May 753 371 311 -16% 41%
June 15,532 7376 6985 -5% 45% June 777 369 333 -10% 43% FY Total 198,080 88,460 86,494 -2% 44% FY Ave. 770 340 331 -3% 43% Fiscal
Year Jul Aug Sept Oct Nov Dec Jan Feb Mar Apr May Jun Total Avg/Mo Avg/Day FY 17 16,272 18,573 9,117 8,169 16,455 15,329 15,585 15,389 18,292 16,667 17,815 16,354 204,017 17,001 791 FY 18 16,582 18,746 17,134 18,642 16,732 14,136 15,381 14,519 15,491 15,046 15,777 15,681 193,867 16,156 757 FY 19 15,733 17,585 15,506 18,931 15,963 14,787 17,779 15,329 16,188 17,420 17,327 15,532 198,080 16,507 771 FY 20 16,811 17,344 16,817 19,463 14,465 14,501 15,593 14,633 9,918 4,506 4,888 5,575 154,514 12,876 647 FY 21 6,113 6,374 6,778 7,650 7,129 7,833 6,261 6,531 7,880 7,875 7,252 8,099 85,775 7,148 332 FY 22 7,983 8,537 8,682 8,626 8,651 8,425 8,282 9,131 10,454 10,634 11,838 11,645 112,888 9,407 439 FY 23 7,957 9,288 7,950 8,565 7,278 6,653 6,611 6,697 7,715 6,779 8,061 7,580 91,134 7,595 353 FY 24 7047 8492 7479 8584 6989 5540 6712 6446 7026 8229 8540 7376 88,460 7,372 340 FY 25 7924 8157 7637 8127 6280 6675 7556 6370 6777 7154 6852 6985 86,494 7,208 331 COVID Shelter in Place Order - March 16, 2020
Dual Interlaced Loop Service Started - July 1, 2022
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COVID Shelter in Place Order - March 16, 2020
Dual Interlaced Loop Service Started - July 1, 2022 35,778 109,869 121,721 146,032 173,509 209,690 160,130
145,066
142,507
177,645
193,570
191,646
165,109
173,217
199,676
204,017
193,867
198,080
154,514
85,775
112,888
91,134
88,460
86,494
-
50,000
100,000
150,000
200,000
250,000
FY 02 FY 03 FY 04 FY 05 FY 06 FY 07 FY 08 FY 09 FY 10 FY 11 FY 12 FY 13 FY 14 FY 15 FY 16 FY 17 FY 18 FY 19 FY 20 FY 21 FY 22 FY 23 FY 24 FY 25 Lifetime Fiscal Year Ridership
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Exhibit B: LINKS Shuttle Map
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Exhibit C: Budget
FY2020-21 FY2021-22 FY2022-23 FY2023-24 FY2024-25 FY2025-26 FY2026/27 REVENUE Actual Actual Actual Actual Budget Budget Budget BID Revenue 407,501 404,182 373,546 453,827 432,221 436,127 451,392 City Contribution 50,000 50,000 50,000 50,000 50,000 50,000 50,000 Grant Revenue 382,000 324,989 107,106 109,750 132,919 155,399 155,399 Other - Shuttle Services, Advertising 7,500 6,000 6,000 6,000 6,000 6,000 6,000 Misc./Interest 2,656 1,914 - - 13,611 9,159 6,000
Kaiser Shuttle & TDM Mgmt - - - - - - -
TOTAL REVENUE 849,657 787,085 536,652 619,577 634,750 656,685 668,791 EXPENDITURES Actual Actual Actual Actual Budget Budget Budget LINKS Shuttle Operations 711,128 741,527 453,533 478,593 528,049 617,996 617,996 NextBus 6,000 19,089 6,000 6,162 6,200 3,600 3,600
Management 59,760 59,860 74,331 76,602 79,020 79,412 81,997 Survey 29,505 4,500 - - -
Marketing, Advertising, Misc. Operations 7,192 680 2,160 - 5,000 3,000 3,000 Information Systems/Technology 270 630 731 700 720 720
Bank Charges, Non-Profit Fees, Misc. Admin 476 733 490 1,235 1,000 750 750 Insurance 2,260 2,412 2,346 2,366 2,500 2,500 2,625
Accounting/Tax Services 825 1,100 1,000 1,100 1,200 1,200 1,200 Legal - - - - 2,000 3,500 2,000
TOTAL EXPENDITURES 787,641 855,177 540,491 571,290 625,669 712,678 713,888 Beginning of Year Fund Balance 580,012 642,028 573,937 570,098 618,385 627,466 571,473 Balance 62,016 (68,092) (3,839) 48,287 9,081 (55,993) (45,097) End of Year Fund Balance 642,028 573,937 570,098 618,385 627,466 571,473 526,376 West San Leandro Shuttle Business Improvement District 2025 Annual Report Page | 11
Exhibit D: Business License Insert
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Exhibit E: Summary of Annual Activities
FY 2015-16 – The SLTMO focused on getting the expanded service up and running smoothly and updating the LINKS branding with new signage, brochure and website. Bus benches and new signs were installed.
FY 2016-17 – The SLTMO focused on stabilizing LINKS funding by applying for grants and renewing service contracts with Kaiser Permanente and Marina Square Shopping Center. LINKS received a five year Measure BB grant which helped to stabilize funding for the next several years.
FY 2017-18 – The SLTMO focused on further enhancing the service through the installation of NextBus technology. Using a mobile app, NextBus allows riders to find real time arrival predictions for nearby stops instantly, find stops and vehicles on a map, get walking directions and set alerts for favorite stops and times. NextBus also provides useful administrative reports including on-time performance and passenger count information. Google translate and transportation resources were also added to the website further increasing accessibility to riders.
FY 2018-19 – The SLTMO continued its focus on improved performance and rider experience, replacing the LINKS fleet with four new buses. The exterior bus branding was updated, signage on the bus exterior was improved and information racks added to the bus interior. Each bus was fitted with a drive cam which can record the interior and exterior of the bus in the event of an incident.
FY 2019-20 - The SLTMO focused on continuing service reliability, securing grants and responding to the Covid-19 pandemic. The SLTMO implemented a variety of safety protocols allowing the shuttle to continue to operate on its normal schedule during the uncertainty of the pandemic.
FY 2020-21 – The SLTMO continued to focus on providing reliable transportation to LINKS riders during the Covid-19 pandemic. Although ridership dropped, LINKS ridership rebounded much more quickly than larger transportation providers. As part of the reconfiguration of the San Leandro BART Station, the LINKS shuttle stops were permanently moved to a convenient location on San Leandro Blvd with access to cross walk and benches.
FY 2021-22 - The SLTMO identified a projected budget shortfall beginning FY 2022-23 resulting from funding decreases and cost increases. As a result the SLTMO contracted with a transit consulting firm to review the LINKS service and develop service options that would maximize service levels while reducing service costs.
FY 2022-23 – In response to the transit consulting firm’s recommendations, on July 1, 2022, the LINKS shuttle program implemented a Dual Interlaced Loop service, reducing the number of buses from four to two. The Dual Loop configuration maintained the existing North and South loops with the central stop at the San Leandro BART Station, where both routes meet.
FY 2023-24 – The STMO continued to focus on rebuilding ridership by implementing new digital marketing strategies to spread information about the program and grow ridership, as well as provide service alerts.
These strategies included the establishment of Social Media channels and publishing the route and schedule information on mapping services such as Google Maps and the Transit App.