City Council
Report
City Council Meeting: July 9, 2024
Agenda Item: 11.A
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To: Mayor and City Council
From: Anuj Gupta, Director of Transportation, Department of Transportation, Transit Planning & Performance
Subject: Approval of Big Blue Bus Comprehensive Operational Analysis (COA) Recommendations
Recommended Action
Staff Recommends that the City Council:
1. Adopt a finding of statutory exemption pursuant to Section 21080.25(b)(5) of the California Environmental Quality Act (CEQA).
2. Approve the proposed Brighter Blue five-year service plan for Big Blue Bus.
Summary
On January 24, 2023, the City Council awarded a contract to Transportation Management & Design, Inc. (TMD), to conduct a comprehensive operational analysis (COA) of Big Blue Bus's system. Santa Monica’s Department of Transportation (DOT) had not conducted a comprehensive review of Big Blue Bus to assess how it can better serve the community since 2015. The analysis has resulted in the development of a five-year service plan that responds to work and travel behavior changes since the COVID-19 pandemic, new development in the region, and in anticipation of new Metro Rail lines that will begin operating in the near future.
The comprehensive operational analysis, named Brighter Blue, took place over a period of 18 months. Based on an extensive analysis of the existing service, and heavily influenced by feedback from customer surveys, stakeholder focus groups, and public workshops, the Brighter Blue five-year service plan proposes to:
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1. Improve frequencies on most routes, including the identification of a high frequency network with service every 10 minutes or better on select corridors;
2. Expand service hours so that most routes start earlier in the day, end later at night, and operate on weekends; and
3. Ensure connections to new or expanded transit services from partner agencies in the region, such as the opening of the LAX/Metro Transit Center and Metro Rail D Line extension, as well as to essential destinations such as the Culver City Transit Center.
Staff recommends that City Council adopt the enclosed Brighter Blue five-year service plan consisting of route-by-route recommendations (Attachment A) that will guide DOT in restoring Big Blue Bus to pre-pandemic service levels and to better meet the needs of current customers and attract new transit riders by offering more frequent, reliable, and accessible service. The proposed service plan is consistent with the Big Blue Bus Service, Design, Performance, and Evaluation Guidelines adopted by City Council in 2018. Implementation of the Brighter Blue service plan advances the City Council’s strategic priorities of Sustainable & Connected Community and Justice, Equity and Diversity.
Background
The last comprehensive operational analysis of Big Blue Bus, known as Evolution of Blue, was conducted in 2015, in anticipation of the Metro E Line (known then as Expo) light rail opening in Santa Monica. In the nine years since that analysis was conducted, there have been significant changes in the transit and mobility environment in the Big Blue Bus service area.
New mobility options such as ride-hailing (i.e., Lyft and Uber, and more recently robotaxi service by Waymo) and shared scooters and bikes gained traction during this period and continue to be popular modes of transportation that both compete with and complement fixed-route transit service.
Ridership challenges were present long before the pandemic, with Big Blue Bus and national transit ridership steadily declining since 2013. The pandemic exacerbated the 3 of 26
ridership losses and Big Blue Bus, like most transit agencies, was forced to drastically cut service and reduce frequency. While slowly rebounding since the onset of the pandemic, Big Blue Bus will carry 8.7 million customers in FY2023-24, about 70 percent of pre-pandemic ridership levels. The restoration of Big Blue Bus service levels has been gradual, hampered by a shortage of motor coach operators, and remains at about 80 percent of pre-pandemic service levels. The pandemic also led to an increase in remote working and flexible schedules, creating new travel patterns, to which Big Blue Bus continues to adapt.
However, there is also much to be excited about that will have a positive impact on transit in the region in the years to come. More students than ever participate in free fare transit programs. K-12 students at participating schools (including Santa Monica High School) now have fare-free access to transit, made possible by the regional GoPass program. Virtually all students at UCLA now have fare-free access to Big Blue Bus and other transit systems because of student-led referendums, and Santa Monica College students continue to ride Big Blue Bus for free through the City’s Any Line, Any Time agreement with the college.
Several regional transit projects are scheduled to open within the next five years which will further integrate Big Blue Bus with the Metro Rail system. These projects include the opening of the LAX/Metro Transit Center, and the Metro Rail D Line extension to the Westside. The passage of Measure HLA by City of Los Angeles residents in March of 2024 also provides opportunities for additional transit and mobility improvements in Los Angeles.
The FIFA World Cup will be held throughout North America in 2026, with Los Angeles planning to host games at SoFi Stadium in Inglewood. The much-anticipated LA 2028 Summer Olympics will be held in venues throughout the Big Blue Bus service area.
DOT continues to make progress towards achieving a zero-emission, battery electric bus fleet by 2030, per Council direction. Recent grant awards will fund phases 2-4 of the battery electric bus charging infrastructure at the Big Blue Bus facility and allow at least another 84 battery electric buses to be placed into operation and charged daily. 4 of 26
These changes and opportunities prompted staff to initiate a comprehensive operational analysis of Big Blue Bus service.
Discussion
DOT issued a request for proposals on September 2, 2022, seeking the services of a firm to conduct a comprehensive operational analysis of Big Blue Bus’s system. The scope of work included technical analysis, customer outreach and stakeholder engagement, and a five-year service plan as a key deliverable. On January 24, 2023, City Council awarded a contract to Transportation Management & Design, Inc. (TMD) to conduct the comprehensive operational analysis.
The analysis, named Brighter Blue—Moving Communities Forward (Brighter Blue) was conducted over 18 months in 2023 and 2024. Brighter Blue focused on the following:
• Current service conditions given the impacts of COVID-19 • Changes in daily travel behavior emerging from the pandemic • Adapting to changes in the region and operating environment (e.g. regional rail expansion)
• Big Blue Bus’s ongoing transition to a zero-emission fleet With the assistance of subcontractors, such as Arellano Associates and Fehr & Peers, TMD delivered the following:
• Route-by-Route Proposed Changes to be implemented over a five-year period (Attachment A).
• A Brighter Blue Final Report summarizing the public outreach & stakeholder engagement process, Title VI analysis, route changes, and tentative implementation plan (Attachment B).
• A comprehensive bilingual public outreach and stakeholder engagement process, summarized in the Public Outreach Summary Report (Attachment C). • An Existing Conditions Report containing four sections: Big Blue Bus Planning Context, Market Assessment, On-Board Survey Findings, and Service Evaluation (Attachment D).
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Public Outreach & Stakeholder Engagement
As part of Brighter Blue, extensive customer outreach and stakeholder engagement was conducted to solicit feedback on Big Blue Bus improvements. The following outreach and engagement efforts were conducted:
• On-Board Customer Survey with over 1,100 responses
• Focus group meetings and/or presentations with the following diverse group of stakeholders:
o Big Blue Bus motor coach operators, supervisors, and trainers o UCLA students, staff, and faculty
o SMC students, staff, and faculty
o Members of Santa Monica Neighborhood Associations
o Transit and mobility advocacy groups
o GoSaMo Transportation Management Organization (TMO)
o Local parent groups
o Metro’s Westside Central Service Council
o Metro, Culver CityBus, and LADOT staff
o Disabilities Commission
• Project website providing key information and milestone dates:
www.brighterbluebbb.com
• A dedicated e-mail address to receive feedback and respond to general inquiries ([email protected])
• Online survey with over 400 responses
• Two (2) public workshops
o Virtual held on March 6, 2024
o In-Person held on March 7, 2024, at Santa Monica Main Library • Two (2) public hearings
o Virtual held on April 16, 2024
o In-Person held on April 20, 2024, at Virginia Avenue Park • One-hundred twenty-one (121) public comments and 339 online surveys received during the public comment period ending May 24, 2024. 6 of 26
The public workshops and public hearings were widely advertised on social media, via text and email, pamphlets on buses, and flyers at many public counters in the service area. The public hearings were also advertised in the Santa Monica Daily Press, Santa Monica Mirror, Daily Bruin, and the Santa Monica College Corsair.
Every effort was made to provide information and allow participation by Spanish speakers, such as creating a Spanish version of the website and feedback surveys, translating all informational materials into Spanish, and having a Spanish translator available at the workshops and hearings to provide live interpretation of all content and feedback.
Brighter Blue Bucks
At the public workshop held at the Main Library on March 7, 2024, attendees were given ten (10) “Brighter Blue Bucks” as they arrived. Attendees were asked to allocate them in bins representing service enhancements such as more frequent service or new demand response service. The activity was designed to demonstrate the trade-offs that are sometimes necessary in planning service enhancements and to understand the public’s priorities. Representative of the feedback received throughout the customer outreach and stakeholder engagement process, the Brighter Blue Bucks activity reinforced that customers prioritize greater frequency, shorter travel times, and an expansion of service hours.
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Summary of Proposed Brighter Blue Five-Year Service Plan Through customer surveys, stakeholder focus groups, and written feedback, customers consistently emphasized the importance of the following:
• Improved frequency
• Expanded service hours, and
• Greater connectivity to new rail lines and essential destinations The table below summarizes the Brighter Blue proposed changes by route, to be implemented over the next five years. The proposed changes incorporate updates made to the draft route recommendations presented at the April 2024 Public Hearings, and after reviewing public comments received through the May 24, 2024, comment period.
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Route Corridor or
Route Name
Summary of Proposed Change(s) Tentative
Implementation
Timeline
1 Santa Monica
Blvd/ Main St
Earlier and later service on weekdays and
weekends. Re-route through UCLA
campus.
Aug ‘26
2 Wilshire Blvd Increase peak frequency from 20 to 10
minutes with opening of Metro D Line at
Westwood/VA Hospital Station in 2027.
Earlier and later service on weekdays and
weekends. Re-route through UCLA
campus.
Aug ‘26 (UCLA)
Aug ‘27 (D Line)
3 Lincoln Blvd Increase peak frequency of Route 3 from
13 to 10 minutes with opening of
LAX/Metro Transit Center in late 2024.
Earlier and later service on weekdays and
weekends.
Dec ’24
R3 Lincoln Blvd Discontinue Rapid 3 and reinvest
resources to provide more frequent Route
3 service.
Dec ‘24
5 Olympic Blvd Increase peak frequency from 60 to 30
minutes. Earlier and later service on
weekdays and new weekend service.
Discontinue Century City to Palms segment
and discontinue service west of Santa
Monica College.
Aug ‘25
7 Pico Blvd Increase peak frequency of Route 7 from
14 to 7.5-10 minutes. Earlier and later
service on weekdays and weekends.
Aug ‘25
R7 Pico Blvd Discontinue Rapid 7 and reinvest
resources to provide more frequent Route
7 service.
Aug ‘25
E7 Pico Blvd Discontinue Express 7 and reinvest
resources to provide more frequent Route
7 service.
Aug ‘25
8 Ocean Park Blvd Increase peak frequency from 30 to 20 minutes. Earlier and later service on
weekdays and weekends. Minor re-routing
in Downtown Santa Monica and new
terminus at UCLA Gateway Plaza.
Aug ‘26
9 Pacific Palisades Increase peak frequency from 20 to 15 minutes. Earlier and later service on
weekdays and weekends. Extend northern
terminus to PCH and Sunset, pending new
bus turnaround.
Aug ’25
TBD (extension)
R10 Downtown LA
Freeway Express
No changes proposed. N/A
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Route Corridor or
Route Name
Summary of Proposed Change(s) Tentative
Implementation
Timeline
R12 Westwood Blvd Increase peak frequency from 12 to 10 minutes. Earlier and later service on
weekdays and weekends.
Aug ‘26
14 Bundy Dr/
Centinela Ave
Increase peak frequency from 20 to 15
minutes. Earlier and later service on
weekdays and weekends. Discontinue
service to Inglewood. New southern
terminus in Culver City. Re-route northern
terminus to Metro Rail’s Westwood/VA
Hospital D Line Station, when opened in
2027.
Dec ’24 (Culver City)
Aug ’27 (D Line)
15 Barrington Ave Increase peak frequency from 60 to 30 minutes. Re-route to serve Metro Rail’s
Westwood/VA Hospital D Line Station,
when opened in 2027.
Aug ’25
Aug ’27 (D Line)
16 Wilshire Blvd/
Bundy Dr - Playa
del Rey
Earlier and later service on weekdays and
new weekend service. Extend northern
terminus to serve Metro Rail’s
Westwood/VA Hospital D Line Station,
when opened in 2027.
Aug ‘25
Aug ’27 (D Line)
17 UCLA –VA
Medical Center –
Sawtelle Ave -
Palms
Increase peak frequency from 20 to 15
minutes. Earlier and later service on
weekdays and weekends.
Aug ‘26
18 UCLA - Montana
Ave – 4th St -
Venice - Marina
Del Rey
Increase peak frequency from 30 to 20
minutes. Earlier and later service on
weekdays and weekends. Re-route through
UCLA campus. Extend further south into
Marina peninsula, pending completion of
bus turnaround.
Aug ‘26
TBD (extension)
41 SMC & Montana
Ave & 14th St &
20th St
Increase peak frequency from 20 to 15
minutes. Earlier and later service on
weekdays and new weekend service. Reroute to serve Ocean Park Blvd./Sunset Park neighborhood and discontinue service
to SMC Performance Arts Center.
Aug ‘25
42 SMC & Montana
Ave & 14th St &
20th St
Discontinue Route 42 and reinvest
resources to more frequent Route 41
service.
Aug ‘25
43 San Vicente Blvd
& 26th St
Extend northern terminus to San Vicente
Blvd. and 7th St.
Aug ‘25
44 SMC Connector Extend and reroute to serve Santa Monica College Performance Arts Center.
Aug ‘25
The following are brief summaries of the factors considered for the changes:
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Peak Frequency Improvements and High Frequency Network
Brighter Blue proposes that peak frequency be improved on almost all routes, except for Routes 1, 16, Rapid 10, and 43. Frequency improvements were the most prioritized enhancement requested during the customer outreach and stakeholder engagement process.
As proposed, Routes 1, 2, 3, 7 and Rapid 12 would operate every 10 minutes or better on weekdays, and every 15 minutes or better on weekends, and constitute Big Blue Bus’s High Frequency Network. These routes on Santa Monica Blvd., Wilshire Blvd., Lincoln Blvd., Pico Blvd., and Westwood Blvd., respectively, would increase the percentage of customers on corridors with 10-minute or better service on weekdays from 40 percent to 70 percent. This level of service creates a high-quality transit experience where customers do not have to always refer to schedules to plan their trips.
For most of the day, customers could arrive at a stop on one of these corridors, and a bus would, on average, arrive within 5 minutes on weekdays and every 7.5 minutes on weekends.
Other notable improvements in peak frequencies include:
• Route 5 and 15 – every 30 minutes (currently 60)
• Route 8 and 18 – every 20 minutes (currently 30)
• Route 9, 14, 17, and 41 – every 15 minutes (currently 20) 11 of 26
Expanding Service Hours & New Weekend Service
Brighter Blue proposes expanding service hours (also known as span of service) on all routes except for Rapid 10. After frequency improvements, customers and stakeholders prioritized expanding service hours, noting that some routes start too late in the morning, end too early in the evening, or do not operate at all on weekends. The existing service hours of some routes have been in effect since the onset of the pandemic when hours were significantly reduced to match rider demand. For many customers, the proposed increase in service hours will allow them to use Big Blue Bus more fully for their mobility needs.
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The following charts note the proposed expansion of service hours (or span) by route and service day:
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While most routes already operate on the weekend, some do not. Brighter Blue proposes new weekend service on Routes 5, 16, and 41 at the following frequencies:
• Route 5 – every 30 minutes
• Route 16 – every 30 minutes
• Route 41 – every 20 minutes
Route 5
Brighter Blue proposes increasing frequency from every 60 minutes to 30 minutes and introducing new weekend service. Additionally, the plan proposes eliminating the segment between Century City and Palms and eliminating the segment west of the 17th St/SMC Station. The result is a route that operates primarily on Olympic Blvd. between Santa Monica College and Century City. Route 5 has been the lowest performing route even before the pandemic as it runs parallel to the Metro E Line for much of its current alignment. By eliminating those segments, Route 5 could operate every 30 minutes using the same resources. The proposed changes seek to maintain service on the core of the Olympic Blvd. corridor, with potential ridership growth stemming from a new anchor at Santa Monica College and the opening of the Metro Rail D Line in Century City in 2026.
Rapid 10
Brighter Blue is not proposing any changes for Rapid 10. When the Westwood/VA Hospital Station opens in 2027, staff will determine the viability of Rapid 10 considering both Metro Rail’s D Line and E Lines would provide high quality transit alternatives for commuting from the Westside to Downtown LA.
Route 14
Brighter Blue proposes changing the southern terminus of Route 14 from its current Inglewood location to the Fox Hills neighborhood in Culver City. In December 2022, Route 14 was extended from Playa Vista to the Westchester/Veterans Station in Inglewood following the opening of the Metro Rail K Line. Unfortunately, because of delays in the opening of the LAX/Metro Transit Center Station (now expected late 2024), 14 of 26
ridership between the extended Playa Vista and Inglewood segment of Route 14 has not met expectations. Re-routing the southern terminus to Downtown Inglewood or LAX were alternatives considered. However, Culver City was determined to be the best terminus for Route 14 given its proximity to the current route, and its access to Metro and Culver CityBus services. Customers and stakeholders were also very supportive of Big Blue Bus providing service directly to the Westfield Culver City shopping center.
DOT is working with partners Culver CityBus and Metro to access the Transit Center at Westfield Culver City, facilitating transfers to Culver CityBus Lines 3, 4 and 6, and Metro Lines 108 and 110.
Route 41 & 42
Brighter Blue proposes re-routing Route 41 to serve Ocean Park Blvd. and the Sunset Park neighborhood, new Route 41 weekend service, and discontinuing service to the SMC Performing Arts Center (1310 11th Street) as Route 44 would provide this service.
Additionally, the plan proposes discontinuing Route 42 and reinvesting those resources into higher frequency on Route 41. During customer outreach and stakeholder engagement, many expressed interest in better north-south connectivity in the middle of the City. The new routing is reminiscent of the former “Crosstown” service in Santa Monica, but with a deviation to serve the 17th St/SMC Metro E Line Station, which did not exist back then.
Santa Monica College (Routes 41, 43, 44)
Brighter Blue proposes reinstating Route 44, which connects the Santa Monica College Main and Bundy campuses, and extending the route to serve the SMC Performing Arts Center. Route 44 has been suspended since the onset of the pandemic. In the past, a significant segment of ridership on Route 44 consisted of students parking for free at the Bundy Campus and traveling to the Main Campus. The reinstatement of Route 44 would reestablish crucial connectivity between its campuses. The proposed extension of Route 44 to the SMC Performing Arts Center would further solidify its role as an essential campus connector. Route 41 would no longer serve the SMC Performing Arts Center.
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Route 43 and Route 16 serve as connectors between the Main Campus and the SMC Center for Media & Design (1660 Stewart Street). Brighter Blue proposes maintaining Route 43 as currently routed and adding service mid-day.
LAX/Metro Transit Center, C Line & K Line Extensions
Brighter Blue proposes that Route 3 terminate at the LAX/Metro Transit Center when it opens in late 2024 instead of its current terminus at the Aviation/LAX Station on the Metro Rail C Line (formerly known as the Metro Rail Green Line). This would reduce the route’s distance and running time and allow time savings to be reinvested in frequency improvements on Route 3. The brand new LAX/Metro Transit Center Station will be a major transit hub for Big Blue Bus and other transit agencies in the region to connect to both Metro Rail’s C and K Lines. Additionally, the Automated People Mover (APM) is projected to open in 2025 to shuttle passengers and employees between the LAX/Metro Transit Center and the airport terminals.
UCLA (Routes 1, 2, 8, R12, 17, and 18)
Brighter Blue proposes two major changes in and around UCLA. First, all UCLA-serving routes (1, 2, 8, R12, 17, and 18) are proposed to operate through campus. The most significant benefit of this re-routing is having more stops on campus. Additionally, all Big Blue Bus routes would now serve the UCLA Medical Plaza in both directions.
The second proposed change is re-assignment of termini at UCLA. With the proposed routing through campus as described above, Parking Structure 2 would replace Hilgard Terminal as the primary terminal on the eastern side of campus. For many years, Parking Structure 2 has served as an alternative to Hilgard Terminal due to its restricted operating hours (i.e., closed nights, weekends, and holidays). The table below shows the proposed terminus assignments by route:
Terminus Route(s)
Charles E Young Drive E / Parking Structure 2 1, 2, 18
UCLA Gateway Plaza 8, R12
UCLA MacGowan Hall 17
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The re-assignments are intended to group routes headed in similar directions to start and end at the same location on campus. For example, customers traveling to the Westwood/Rancho Park Metro E Line Station (and future UCLA Research Park on Pico Blvd & Westwood Blvd) could take either Route 8 or Rapid 12 from UCLA Gateway Plaza since both operate on Westwood Blvd. Similarly, customers traveling towards Santa Monica could take either Route 1 (Santa Monica Blvd), Route 2 (Wilshire Blvd), or Route 18 (Montana Ave) from Parking Structure 2. Route 17, which has its own unique route and ridership base, will continue to terminate at MacGowan Hall at UCLA.
Some members of the UCLA/Westwood community raised concerns regarding the proposed changes, primarily the removal of service at the Hilgard Terminal, and on Gayley Ave. between Strathmore Dr. and Landfair Ave. However, the analysis concluded that the proposed changes would best serve the overall community by offering more direct and frequent service and simplifying Big Blue Bus routing for customers, all within the resources available to serve the area.
Metro D Line Extension to Westwood/VA Hospital Station (Routes 2, 14, 15, 16, 17, 18) The Metro Rail D Line will be a high-frequency heavy rail line (subway) running under Wilshire Blvd. (apart from a slight deviation in Century City), serving about a dozen stations. Once opened, the highly anticipated extension of the D Line will take just under half an hour to travel from Westwood to Downtown LA. Brighter Blue proposes increasing peak frequency on Route 2 from 20 minutes to 10 minutes, and re-routing Routes 14, 15, and 16 to connect to the Metro Rail D Line at the Westwood/VA Hospital Station when it opens in 2027. This re-routing ensures connections from this significant addition to the regional rail network and the greater Westside. The following routes will serve the western terminus of the D Line, with the deviations being made (if any) to make this possible:
Route Change or Impact to Routes serving Westwood/VA Hospital Station 2 No change; will serve the station at the current Wilshire/Bonsall bus stops 14 Northern end will be re-routed to serve and terminate at (or near) the Westwood/VA Hospital Station
15 Will deviate from Barrington Ave. between Santa Monica Blvd. and Wilshire Blvd., instead routing through Sawtelle Blvd. and the VA campus to serve the Westwood/VA Hospital Station
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Route Change or Impact to Routes serving Westwood/VA Hospital Station 16 Northern end will be extended from current terminus near Wilshire Blvd. & Bundy Dr. to serve and terminate at (or near) the Westwood/VA Hospital Station 17 No change; will serve the future Westwood/VA Hospital Station as currently routed 18 No change; will serve the station at the current Wilshire/Bonsall bus stop(s) Consolidating Rapid, Express and Local Routes (3, R3, 7, R7, E7) Brighter Blue proposes discontinuing Rapid 3, Rapid 7, and Express 7, and reinvesting those resources to provide more frequent service on Routes 3 and 7. An analysis of the current operation of these Rapid routes found that, when considering wait time at the bus stop and walk time to/from the wider spaced Rapid bus stops, there is no significant difference in total travel time (wait time + walk time + time on bus) between the local route and Rapid route. Reinvesting those resources to create more frequent local service would shorten total travel time and improve the customer experience. Metro came to the same conclusion in their recent NextGen Study and are implementing their own “Frequent Local” lines.
Figure 1 illustrates the current total travel time difference between local and Rapid service on a particular trip, and how a more frequent local service would compare:
Figure 1 Comparison of Total Travel Times for Local, Rapid, and "Frequent Local" Service Route Extensions Pending Infrastructure Projects (Routes 9 and 18) Brighter Blue proposes extending Route 9 to Pacific Coast Highway (PCH) and Sunset Blvd., and Route 18 to the southern end of the Marina Del Rey Peninsula, pending the completion of two separate infrastructure projects. Both projects are being led and will be owned by entities outside of the City.
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A proposed project at the Gladstones Restaurant site at PCH and Sunset Blvd. would redevelop the site with a new Wolfgang Puck restaurant and includes a reconfiguration of the site’s surface parking lot to allow buses to stop for passengers, layover, and turn around. This project would allow Route 9 to be extended from its current northern terminus at Sunset Blvd. and Marquez Ave. to PCH and Sunset Blvd., providing direct beach access and a new connection with Metro Line 134, which travels on PCH from Santa Monica to Malibu. DOT staff is working with stakeholders to ensure that the desired bus infrastructure is in place when this project is completed.
Another new project to reconfigure the existing Parking Lot 13 in Marina Del Rey (4601 Via Marina) would give buses the ability to turn around there, making it possible to extend Route 18 further south in the peninsula. While Metro currently serves the entirety of the Marina Peninsula with their Line 108, they noted in their NextGen Study plans to discontinue service there, pending the assurance of an alternative service (such as Big Blue Bus’s Route 18) to serve the southern end of the peninsula.
Demand Response Service
Brighter Blue is not proposing any new demand response service as there was very little interest from customers and stakeholders for this type of service. Demand response service is a type of public transit service that is not on a fixed route or schedule. Customers request a ride by calling or using an app and a vehicle is dispatched to them (or near them), and they are transported to their desired location (or near it), possibly sharing the vehicles with other passengers taking trips in similar direction along the way. Examples include the City’s own Mobility on Demand Every Day (MODE) program, which provides demand response service to older adults and those 18 and older with a disability, and Metro’s Micro service that operates throughout the County. Instead of launching new demand response service in Santa Monica, customers and stakeholders prefer to invest limited resources towards improving frequencies, travel times, and expanding hours of operation on Big Blue Bus’s fixedroute service.
Title VI
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The Federal Transit Administration requires transit agencies perform a Title VI Service Equity Analysis on proposed “major service changes” (defined by each agency) to ensure they do not place a disproportionate burden on low-income populations or a disparate impact on minority populations. Under the Big Blue Bus Title VI Program, a major service change includes changes to existing routes that result in an increase or decrease in route revenue miles or route miles that are equal to or greater than 25 percent of the existing service. The Brighter Blue proposed changes constitute a major service change and therefore subject to a Title VI Service Equity Analysis.
The Big Blue Bus Title VI Program defines a disproportionate burden or disparate impact as occurring when the impact to disadvantaged populations is 15 percent higher than the impact to non-disadvantaged populations. As of the 2022 Big Blue Bus Title VI Program, Route 7, Rapid 7, Express 7, and Rapid 10 are the only designated disadvantaged routes.
The Service Equity Analysis found that the proposed plan:
• Decreases weekday revenue miles on disadvantaged routes by 22.1 percent; • Increases weekday revenue miles on non-disadvantaged routes by 7.8 percent; and
• Results in a 29.9 percent difference, greater than the 15 percent threshold.
While the Title VI analysis indicates a disproportionate burden and disparate impact on disadvantaged communities, the Brighter Blue proposals for the designated disadvantaged routes provide both necessary context and mitigation measures:
• With the proposed elimination of Rapid 7 and Express 7, service on Pico Blvd., which currently includes both Route 7 and Rapid 7, would decrease slightly overall; however, the proposed changes to Route 7 would result in service every
7.5 minutes at peak times, the highest frequency of any route. Additionally, the proposed Route 7 would greatly enhance the frequency of service for those people boarding at Route 7 stops where Rapid 7 does not currently stop. 20 of 26
• The proposed plan would increase frequencies on almost all Big Blue Bus routes, building a network of 10 minutes or better on major corridors and ensuring no route operates less frequently than every 30 minutes during the day, facilitating transfers with Route 7.
• Service on Rapid 10 is not proposed to be restored to pre-pandemic levels due to shifts in commuting patterns, and high-quality rail alternatives already exist with the current Metro Rail E Line and opening of the D Line in 2027.
Tentative Implementation Plan
Implementing the Brighter Blue Service will happen over a five-year period. Changes require continued hiring and training of motor coach operators, developing timetables, installing new bus stops, and communicating to the public. Some are dependent on the timely opening of new Metro Rail stations. All changes are tentatively scheduled to be implemented by 2027 when the Metro Rail D Line is extended to the Westwood/VA Hospital Station. Below is the tentative implementation plan.:
Timeline Proposed Change(s) Routes
December 2024 Changes impacted by the opening of the
LAX/Transit Center
3, R3, 14
August 2025 Changes to SMC serving routes 5, 7, R7, E7, 9, 16, 41, 42, 43, 44
August 2026 Changes to UCLA serving routes 1, 2, 8, R12, 17, 18 August 2027 Changes impacted by the opening of the
Westwood/VA Hospital Station
2, 14, 15, 16
2028 Remaining frequency and expanded service
hour changes (if any)
TBD
Marketing & Community Engagement Activities During Implementation DOT will develop and implement a robust, multilingual marketing and community engagement plan to support the full implementation of Brighter Blue. The plan will include targeted activities intended to raise awareness of service and rider experience enhancements, increase ridership, and encourage a broader shift in transportation modes.
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To reach and attract a diverse audience, staff will employ paid media and inbound marketing tactics, such as social media, video, and display advertising, email marketing, sponsored content, and public relations. Staff will also seek to engage current, lapsed, and prospective riders by deepening and expanding partnerships with local schools and businesses, transit advocates, community groups, and other key stakeholders in Big Blue Bus’s service area, hosting community events (e.g. educational workshops, open houses, pop-ups, ride alongs, etc.), and conducting regular customer satisfaction surveys to measure service impact and sentiment.
Corridors Targeted for Travel Time and Reliability Improvements Congestion impacts the travel time, reliability, and on-time performance of many Big Blue Bus routes. Brighter Blue identified the corridors in Santa Monica and Los Angeles where buses are most negatively impacted by congestion. DOT will work with stakeholders in the region to advance street design and operational measures that will foster travel time and reliability improvements on these corridors. Below is a prioritized list of corridors to target, along with which routes they are serviced by:
Corridor Segment City Route(s)
4th Street Wilshire Blvd. to Colorado Ave. Santa Monica 1,2,3,7,9,18 Bundy Dr Wilshire Blvd. to Ocean Park Blvd. Los Angeles 14,15 Lincoln Bl Rose Ave. to Mindanao Way. Los Angeles 3
Ocean Park Bl 25th St. to Centinela Ave. Santa Monica 8,44 Ocean Park Bl Centinela Ave. to Bundy Dr. Los Angeles 8,44 Pico Bl 16th St. to Centinela Ave. Santa Monica 7
Pico Bl Centinela Ave. to Sepulveda Blvd. Los Angeles 7,17 Pico Bl Ave. of the Stars to Crenshaw Blvd. Los Angeles 7 Santa Monica Bl Centinela Ave. to Westwood Blvd. Los Angeles 1 Wilshire Bl Bundy Dr. to Westwood Blvd. Los Angeles 2,17,18 The specific street design and operational measures to improve travel time and reliability for each of these corridors could vary. Measures include peak hour or all-day bus-only lanes, queue jumps, transit signal priority (TSP), bus stop placement, or some combination of these measures.
Two Caltrans-led projects scheduled to be completed in the coming years will implement peak hour bus-only lanes on Lincoln Blvd. (Route 3) and Santa Monica Blvd. 22 of 26
(Route 1) within the City of Los Angeles. The project on Lincoln Blvd. would connect with and extend the peak hour bus-only lanes that currently exist on the same corridor in Santa Monica. Caltrans is the lead agency as both corridors are state highways within the City of LA (State Route 1 and State Route 2, respectively). DOT is actively working with Caltrans to have these bus lanes operational at the earliest possible time.
A promising development in efforts to improve travel time and reliability was the passage of Measure HLA by City of Los Angeles voters in March 2024. The measure mandates that the City of Los Angeles implement its 2035 Mobility Plan (as opposed to simply treating it as a guide), which identified corridors that would belong to a Transit Enhanced Network. The Network includes Big Blue Bus corridors (many listed above) that would be enhanced to include peak hour or 24-hour dedicated bus lanes.
Another promising development is the recent passage of Assembly Bill 917, which is helping cities keep cars out of bus lanes and bus stops, which will limit unauthorized hinderances to buses and allow for their movement and service relatively unimpeded.
AB 917 allows cameras on buses to capture cars illegally parked in bus lanes and bus stops for the purposes of issuing citations. The enhanced ability to enforce the proper usage of bus lanes will improve travel times and reliability on existing bus lanes and those installed in the future. Metro, in partnership with the City of LA, is close to implementing their program on select corridors, including Wilshire Blvd. where Big Blue Bus Route 2 operates. DOT will be bringing a recommendation for an automated bus lane enforcement program to City Council for approval in FY2024-25.
DOT Initiatives to Support the Brighter Blue Service Plan Safety and Security
While the Big Blue Bus system remains safe and secure overall, customers indicated throughout the customer outreach and stakeholder engagement process that they still see room for improvement. DOT is taking such concerns seriously and launched a Transit Safety Officer Program in March 2024 to enhance safety for customers and employees. This new program deploys unarmed security guards across the system where their services are most needed, as part of a multilayered approach to enhance 23 of 26
comfort and safety for Big Blue Bus riders and employees. DOT is also advancing other measures that would enhance safety and security both off and on-board the bus (e.g., improved lighting at bus stops).
100 percent Zero Emission Fleet and Charging Infrastructure To implement the proposed Brighter Blue service plan and to meet City Council’s mandate to transition to a 100 percent zero emission fleet by 2030, DOT continues to make progress towards the purchase of battery electric buses and building the charging infrastructure required to operate them effectively. In 2023, the California State Transportation Agency (CalSTA) announced that DOT would receive a $22.9 million grant to develop infrastructure to support on-site charging of at least 84 more buses.
The funding will help DOT complete Phases 2 through 4 of its Fleet Electrification Master Plan. The award will support electric utility and charging equipment upgrades at Big Blue Bus, including construction of a large canopy with overhead reel charging dispensers. The grant will create green jobs and provide over 1,100 hours of advanced, high-voltage safety training for its staff in partnership with the California Transit Training Consortium.
DOT currently has 19 battery electric buses in operation with an additional 15 battery electric buses to be delivered starting in March 2025. Later this year, DOT will seek Council approval for the purchase of an additional 30-35 battery electric buses. The new buses will have a longer range than those currently in service. This is significant as the longer range will be needed to operate the expanded service hours proposed in the Brighter Blue service plan as cost effectively as possible.
Recruiting and Retaining Motor Coach Operators
Recruiting and retaining motor coach operators (MCOs) has been one of, if not the, biggest challenge to returning service to pre-pandemic levels. The challenge is not unique to Big Blue Bus, but one that transit agencies nationwide have been grappling with since the onset of the pandemic. DOT has prioritized filling motor coach operator vacancies and has implemented strategies to recruit and retain these essential workers.
Job openings are widely advertised through online and social media channels, at 24 of 26
events, on posters and advertisements, and on the buses themselves. The hiring process has been streamlined and most operators now achieve full time status in about a year, an improvement from the several years it took pre-pandemic. These efforts have yielded positive results, with about 245 full time and 40 part-time motor coach operators currently employed. However, to reach the 317 full-time and part-time motor coach operators budgeted and needed to restore pre-pandemic service levels, DOT intends to continue its enhanced motor coach operator recruitment and retention efforts in the coming years.
Past Council Actions
Meeting Date Description
01/24/2023 (Attachment E) Award Contract for Big Blue Bus Comprehensive Operational Analysis to Transportation Management &
Design, Inc.
12/10/2019 (Attachment F) Strategies to Increase Big Blue Bus Ridership by Improving Travel Times
10/09/2018 (Attachment G) Modifications to BBB Service, Design, Performance, and Evaluation Guidelines
04/28/2015 (Attachment H) Big Blue Bus/Expo Service Integration Plan Public Hearing and Adoption of Service Plan
Implementation of City Council Priorities
Implementing the proposed Brighter Blue five-year service plan enhances public transit in Santa Monica and the Westside and supports the following City Council priorities:
Sustainable & Connected Community: Ensure that City policies and programs enhance our resources, prevent and remedy harm to the natural environment and human health, and benefit the social and economic wellbeing of the community for the sake of current and future generations.
Justice, Equity and Diversity: The city is committed to advancing racial equity, justice and social diversity to improve the wellbeing of people who live, work, learn, play and do business in Santa Monica and to create a community where 25 of 26
differences in life outcomes cannot be predicted by race, class, gender, disability or other identities.
Environmental Review
The adoption and implementation of the Brighter Blue service plan is exempt from the California Environmental Quality Act (CEQA) pursuant to Section 21080.25(b)(5) of CEQA, which exempts “a pubic project for the institution or increase of bus rapid transit, bus, or light rail service… on existing public rights-of way or existing highway rights-of ways whether or not the right of ways is in use for public mass transit. The project shall be located on a site that is wholly within the boundaries of an urbanized area or urban cluses as designated by the United States Census Bureau.” Implementation of the service plan would increase fixed-route bus service levels on existing rights-of-way within the urbanized City of Santa Monica. Therefore, the service plan is exempt pursuant to Section 21030.25.
Financial Impacts and Budget Actions
There is no immediate financial impact or budget action necessary as a result of the recommended action. Increases are expected over the FY2025-27 Biennial Budget period as increased service hours will result in increases to repair parts and materials, outside bus repair cost, and staff labor. Staff will return to Council if specific budget actions are required in the future.
Prepared By: Barbara Andres, Customer Experience and Innovation Administrator
Approved Forwarded to Council
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Attachments:
A. Attachment A - Route by Route Recommendations
B. Attachment B - Brighter Blue Final Report
C. Attachment C - Outreach Summary
D. Attachment D - Existing Conditions Report
E. Attachment E - January 24, 2023 Staff Report Award of COA Contract to TMD F. Attachment F - December 10, 2019 Staff Report Strategies to Increase Ridership G. Attachment G - October 9, 2018 Staff Report BBB Service Design Guidelines H. Attachment H - April 28, 2015 Staff Report Adoption of Evolution of Blue I. Written Comments
J. PowerPoint Presentation