TRANSIT SERVICE
GUIDELINES
MARCH 2025
1 Overview ...............................................................................................................................................................2 Figure 1: Service Standard Components ...........................................................................................................2 2 Service Design......................................................................................................................................................3 Figure 2: Components of Service Design...........................................................................................................3
2.1 Service Categories.........................................................................................................................................3 Table 1: Service Categories.................................................................................................................................3
2.2 Fixed Route Design........................................................................................................................................4
2.3 Service Frequency .........................................................................................................................................4
2.4 Connectivity ...................................................................................................................................................5
2.5 Span of Service ..............................................................................................................................................5 Table 2: High Ridership Corridor Span of Service..............................................................................................5 Table 3: Low Ridership Corridor Span of Service ..............................................................................................5
2.6 Bus Assignment .............................................................................................................................................6
2.7 Stop Spacing, Placement, and Amenities ...................................................................................................6 Table 4: Stop Area Dimensions...........................................................................................................................7 Table 5: Amenities Based on Stop Activity.........................................................................................................7
2.8 Passenger Loads................................................................................................................................................8 Table 6: Passenger Load Standard .....................................................................................................................8 3 Service Performance Monitoring .............................................................................................................................9 Figure 3: Service Performance Monitoring.........................................................................................................9
3.1 Passengers per Revenue Hour .....................................................................................................................9
3.2 Farebox Recovery ..........................................................................................................................................9
3.3 On-Time Performance...................................................................................................................................9
3.4 Data Needs...................................................................................................................................................10 Table 7: Systemwide Data Needs .....................................................................................................................10 Table 8: Route-Based Data Needs....................................................................................................................10
3.5 Performance Monitoring and Reporting Schedule....................................................................................11 4 Service Evaluation...................................................................................................................................................11 Figure 4: Service Evaluation ..............................................................................................................................11
4.1 New Service Evaluation...............................................................................................................................11 Table 9: New Service Compliance....................................................................................................................12
4.2 Changes to Existing Service........................................................................................................................12 Table 10: Passengers per Revenue Hour .........................................................................................................13
4.3 Title VI Service Equity Analysis ...................................................................................................................14 1 4.4 Public Input & City Council Approval.........................................................................................................15
4.5 Annual Transit Service Plan .......................................................................................................................15 Table 11: Annual Service Plan Schedule..........................................................................................................15
4.6 Comprehensive Operational Analysis .......................................................................................................15 5 Appendices.........................................................................................................................................................16
5.1 Appendix A....................................................................................................................................................16 Santa Monica Department of Transportation Annual Report – Big Blue Bus KPIs............................................16
5.2 Appendix B ...................................................................................................................................................16 Public Hearing Procedures for Major Service or Fare Changes .........................................................................16
5.3 Appendix C...................................................................................................................................................16 Brighter Blue Five-Year Service Plan City Council presentation ........................................................................16 2 1 Overview
Since 1928, Big Blue Bus has been the primary transit provider for the City of Santa Monica as well as many surrounding portions of West Los Angeles. Service is provided to many major area destinations and transit centers, namely Downtown Santa Monica, UCLA, Santa Monica College, the LAX/Metro Transit Center, eight (8) Metro E Line Stations, Culver City Transit Center, and Downtown Los Angeles. Big Blue Bus operates on major corridors, including Santa Monica Blvd, Wilshire Blvd, Pico Blvd, Lincoln Blvd, Bundy Dr, and others.
The Big Blue Bus Transit Service Guidelines provide a framework to regularly monitor and evaluate the service and, when necessary, make modifications to ensure Big Blue Bus adapts to the evolving transit system and meets the needs of its riders. The service standards have three main components that can be divided further into integral parts related to service planning, as seen in Figure 1:
Figure 1: Service Standard Components
The Service Design standards outline how Big Blue Bus service should be designed and operated.
The Service Performance Monitoring standards describe the metrics by which Big Blue Bus will be monitored to ensure the highest possible levels of performance in terms of service effectiveness, efficiency, and quality for riders.
The Service Evaluation process analyzes and updates service plans while keeping riders, employees and visitors informed of changes.
Big Blue Bus service is planned and operated by the City of Santa Monica’s Department of Transportation (DOT). The Service Guidelines are consistent with USDOT’s Title VI Regulations, which prohibit discriminating on the basis of race, color, or national origin.
Service
Design
Service
Performance
Monitoring
Service
Evaluation
3 2 Service Design
Service design standards refer to how transit service is designed, implemented, and operated on the street, from route alignment and stop spacing to frequency and span of service. The standards outlined in this section are not intended to be absolute, but guidelines to develop an efficient, effective transit network.
Figure 2: Components of Service Design
2.1 Service Categories
Big Blue Bus service can be grouped into the following categories:
Table 1: Service Categories
Category Network Role Routes*
LOCAL Provides fixed route service along major and secondary corridors and serving larger local destinations and intermodal connections. 1, 2, 3, 5, 7, 8, 9, 14, 15,
16, 17, 18, 41, 43, 44
RAPID Provides limited-stop fixed route service between destinations of strong regional importance.
R12
COMMUTER Augments the local network with additional peak-hour fixed route service to key destinations.
R10
DEMAND
RESPONSE
Provides shared curb-to-curb rides for areas where regular bus routes are impractical and for seniors and people with disabilities.
MODE
OTHER
SERVICES
Supplemental fixed route service such as school-specific trips, or “trippers,” to alleviate overcrowding or to accommodate specific school travel patterns.
9-Pali High Express
14-Paul Revere
Trippers
*Routes reflected are the result of services recommendations identified in the five-year service plan (2024 – 2029) adopted by the City Council in July 2024.
Each category of service may have different standards and expectations based on the types of markets served and the operating protocols required.
Corridors With Multiple Services – Big Blue Bus currently operates one Local/Rapid service pairings on the same corridor – Westwood Blvd. (Route 8/Rapid 12). To determine whether additional corridors may warrant Local/Rapid service, the following criteria should be met:
• Performance - Operating multiple service requires a significant investment in resources and should only be implemented on very high-performing corridors. Per section 3, Service Performance, corridors which perform at 150% of system average or better may be candidates for Rapid/Local service.
Service
Frequency
Connectivity Fixed Route
Design
Service
Categories
Service
Categories Bus Assignment
Stop Spacing,
Placement, and
Amenities
Passenger Loads
4 • Major stops - Corridors which have several high-volume stops interspersed with lower volume stops are good candidates for Rapid/ Local service, as the Rapid will serve a majority of ridership by making only the major stops.
• Corridors shared with another provider – For example, LA Metro operates service along Wilshire and Santa Monica boulevards. In cases like these, Big Blue Bus should evaluate and determine appropriate levels of service.
2.2 Fixed Route Design
The alignment of each route is a key factor in its ability to successfully serve riders’ mobility needs. Route design refers to route directness, connections to key origins and destinations, and how the route interfaces with other transit services. Big Blue Bus route design falls into four categories:
• Direct – Routes should be designed to serve origins and destinations via direct pathways, minimizing out-of-direction movements. This provides a faster service for riders while minimizing cost. • Arterial – Routes should be designed to serve major arterial streets, avoiding smaller neighborhood streets. The exception is when a route is intentionally designed to serve a neighborhood or destination. • Grid Based – Routes should be designed in a grid-based structure, with higher frequency routes serving major corridors and connecting on-street rather than deviating to serve transfer hubs. A limited number of exceptions are hubs forming the beginning or end of routes and/or serving major destinations, namely Downtown Santa Monica, UCLA, Pico/Rimpau Transit Center, and Metro Rail stations at LAX, Culver City, and along Wilshire Boulevard. • Interagency Connectivity – Big Blue Bus service should connect with other transit agencies operating on major corridors and the Metro Rail network, which today includes the Metro E Line on the Westside and the upcoming opening of the Metro D Line extension.
2.3 Service Frequency
Service frequency is defined as how often the bus arrives and results in how long riders must wait for the bus.
With higher frequencies, riders will wait on average less time for a bus, which helps make the service more useful to riders. At the same time, however, higher frequencies can significantly increase costs by requiring more buses and drivers.
High frequency Service is defined as:
• 10-minute frequency or better on weekdays during most of the day. • 15-minute frequency or better on weekends during most of the day.
The following are minimum frequency standards.
• Local routes should operate at a minimum frequency of every 30 minutes during most of the day. o Could operate at every 60 minutes at night to provide extended service hours. o When supported by ridership, service should be provided at higher frequencies such as every 20 minutes, 15 minutes, 12 minutes, 10 minutes, up to every 7.5 minutes. • Rapid routes should operate at every 15 minutes or better. • Commuter route frequency should be tailored to demand volumes.
Whenever possible, service frequency should be designed as “clock-facing” where service operates every 5, 10, 12, 15, 20, or 30 minutes –divisible by 60 – where the same times repeat each hour. 5 This makes service easier for riders to remember and use without consulting schedules. Exceptions are permitted where a route (usually with less frequency) will be operationally inefficient (e.g., require an additional vehicle resource) with a clock-facing schedule.
2.4 Connectivity
Connectivity refers to facilitating ridertransfers to and from other routes and services. Transfers can take place at major transit hubs such as the LAX/Metro Transit Center or on-street at major intersections.
Routes cannot always provide riders with a one-seat ride to their destination, thus the need for convenient transfers. High frequency service on major corridors facilitates convenient transfers by minimizing wait time for riders transferring to and from other services. Designing service to enable convenient transfers allows Big Blue Bus to minimize service duplication (overlapping).
2.5 Span of Service
Span of service defines how many hours each day a certain route will operate. A longer span of service allows a route to serve more riders throughout the day for a wider variety of purposes. Longer span of service also results in more operating costs.
Span of service is based on rider demand and the corridor served rather than on the category of service (Local, Rapid, etc.). For example, a Local route serving a major corridor with high ridership may operate more hours in the day than a Local route serving a smaller, secondary corridor with lower ridership. When determining span of service, connecting routes should be coordinated to maintain transfer connections.
Table 2: High Ridership Corridor Span of Service
Weekday Weekend
Start Time End Time Start Time End Time
5am-6am Midnight 6am-7am Midnight
Table 3: Low Ridership Corridor Span of Service
Weekday Weekend
Start Time End Time Start Time End Time
5am-6am 10pm 6am-7am 9pm
Span of Service Guidelines:
• Consider extending service span when first/last trip carries 20+ passengers per hour. • Consider reducing service span when first/last trip carries 10 passengers or less per hour. • Consider operating similar service on Friday/Saturday based on demand. • Commuter service spans should be tailored to demand patterns. • Service may need to be adjusted on certain routes depending on the operating hours of connecting services such as the Metro Rail.
• During off peak hours, span of service may be reduced on routes with low ridership, where riders can access another nearby parallel running route with extended span of service. 6 2.6 Bus Assignment
The Big Blue Bus fleet contains three sub fleets that are assigned by service type as follows:
• 40-foot buses
o The 40-foot buses make up over 80 percent of the Big Blue Bus fleet and are assigned to most of the service.
• 30-to-35-foot buses
o The 30-to 35-foot buses are assigned to routes with low ridership and/or to routes that use local and residential streets. Some 30-to 35-foot buses may also be assigned to routes that primarily use 40-foot buses, specifically at times when ridership is expected to be low, such as nights or weekends.
• 60-foot articulated buses
o The 60-foot articulated buses are assigned to routes and vehicle blocks with both higher average passenger loads and stops with sufficient curb space to physically accommodate the bus.
To ensure fair distribution of fleet quality, propulsion system (CNG, battery electric, etc.) and age across the system, buses should not be permanently assigned to specific routes. All routes should be serviced by the entire range of buses in the fleet whenever possible.
2.7 Stop Spacing, Placement, and Amenities
Stop Spacing and Placement – This standard involves the distance between bus stops. Wider stop spacing allows for less stops minimizing travel time for riders on the bus but requires some riders to walk further to access service. Different service types have different spacing standards. For example, local stops are spaced closer together than Rapid or Commuter stops.
• Local Bus Stop Spacing – For Local services, stop spacing from 1,000 feet up to ¼ mile (roughly 1,300 feet) is desirable. Very dense neighborhoods or smaller streets can have more closely spaced stops (since trip distances are usually shorter) while stops on major corridors can be spaced out at the farther range of the spacing standard (i.e., ¼ mile). Existing stops with consistently low usage may be consolidated with other stops or removed altogether to increase service speed and reliability. • Rapid Bus Stop Spacing – Rapid bus routes on corridors also served by Local routes should have stops spaced a minimum of ½ mile apart, and should be placed at major destinations, intersections, and transfer points. Rapid stop placement should be considered based on stop spacing and ridership. • Commuter Service Stop Spacing - Commuter services can use either Local or Rapid stopping patterns depending on the type of service and passenger needs. • Stop Placement – Placing stops on the far side of an intersection is recommended wherever possible.
Far side stop placement improves bus travel times as well as pedestrian and bicycle safety (since they will cross the street behind instead of in front of the bus). • Stop Removal - Any stop with less than five (5) total average daily weekday boardings plus alightings will be considered for elimination after a review of stop distances and consideration of impact on the affected riders. Stop spacing, route frequency, and span of service will be considered as part of this review. In cases where removal is necessary because of this analysis or safety concerns, the revised stop spacing distances may deviate from the recommended standards. • Stop Design – The length of a stop is based on several factors including size of bus serving stop, number of routes serving stop, space to merge back into traffic, and distance from crosswalk.
Although not always feasible due to limited curb space, the following is the ideal stop lengths that should be implemented when possible. See Table 4.
7 Table 4: Stop Area Dimensions
Bus size Merge In and
Out Length
Buffer distance
from crosswalk
Total Stop
Length
Two (2) or
more buses
expected at
any one time.
30-ft or 40-ft 25-ft + 25-ft 10-ft 90-100-ft 140-150-ft 60-ft 25-ft +25-ft 10-ft 110-120-ft 180-190-ft
• Stop Amenity Placement – When placing new amenities, considerations include the existing site conditions at the stop, nearby amenities (especially when considering real-time information signs), ridership (Table 5), nearby connections, places of interest, environmental and demographic factors.
Table 5: Amenities Based on Stop Activity
Average Daily
Boardings Bus Stop Classification Amenities Provided
ALL STOPS All stops Printed public information kiosk plus adequate lighting 20 OR MORE
BOARDINGS
Low volume or more Above plus seating
50 OR MORE
BOARDINGS
Medium volume or more Above plus shelter or shade
100 OR MORE
BOARDINGS
High volume or more Above plus real-time signage. Waste receptacles (optional).
750 OR MORE
BOARDINGS
Very high volume Above plus multiple shelters or extra-large shelter. • Bus Stop Amenities – The Big Blue Bus service area includes the City of Santa Monica. Big Blue Bus works with various City Departments on the installation of bus stop amenities within the city. At these stops, amenities are allocated based on volume of average daily stop activity. • Accessibility Compliance – In 2025, the updated Public Right-of-Way Accessibility Guidelines (PROWAG) were adopted and became law. They require Transit Agencies to comply with technical guidelines when siting Transit Stops and Transit Shelters. These guidelines only apply to new projects initiated after January 17th, 2025. PROWAG stipulates:
o Boarding and alighting areas at sidewalk or street-level transit stops must serve each accessible vehicle entry and exit.
o Boarding and alighting areas shall have a clear length of 96 inches (2440 mm) minimum, measured perpendicular to the face of the curb or street edge, and a clear width of 60 inches (1525 mm) minimum, measured parallel to the street.
o The slope of boarding and alighting areas measured parallel to the street shall be the same as the grade of the street. The slope of boarding and alighting areas measured perpendicular to the street shall be 1:48 (2.1%) maximum.
o In alterations, boarding and alighting areas and boarding platforms shall be connected to existing pedestrian circulation paths by pedestrian access routes. o Transit shelters shall be connected by pedestrian access routes. o Transit shelters shall provide a minimum clear space complying with R404 Clear Spaces; entirely within the shelter. Where seating is provided within transit shelters, the clear space shall be located either at one end of a seat or so as to not overlap the area within 18 inches (455 mm) from the front edge of the seat.
o Subject to section R410.10 Height from Ground Surface, Visual characters on signs shall be 40 inches (1015 mm) minimum above the ground surface.
8 o Protruding objects within transit shelters shall comply with R402: Protruding Objects and Vertical Clerance.
▪ Objects with leading edges more than 27 inches (685 mm) and less than 80 inches (2030 mm) above the walking surface shall not protrude horizontally more than 4 inches (100 mm) into pedestrian circulation paths.
Where objects are mounted on a single post or pylon and the objects are more than 27 inches (685 mm) and less than 80 inches (2030 mm) above the walking surface, the objects shall not protrude into the pedestrian circulation path more than 4 inches (100 mm) measured horizontally from the post or pylon or more than 4 inches (100mm) measured horizontally from the outside edge of the base where the base height is 2 ½ inches (64 mm) minimum.
Bus stop amenities outside of the City of Santa Monica generally fall under the standards of their respective jurisdictions, such as the City of Los Angeles. Big Blue Bus has limited authority over the amenities at these stops but will work with those jurisdictions to advance improvements to the bus stop experience for its riders.
2.8 Passenger Loads
Passenger Loads – This standard specifies the acceptable average number of riders on a bus at any given time.
Overcrowding should be avoided whenever possible. Guidelines related to passenger loads are based on Big Blue Bus vehicle capacities and transit industry standards, and are designed to balance safety, passenger comfort, and operating efficiency.
• Passenger Load Methodology – Passenger loads are calculated by taking the number of passengers onboard a vehicle divided by the seated capacity of the vehicle. For example, a vehicle with 38 seats carrying 38 passengers would have a passenger load of 100 percent.
The maximum passenger load is calculated at the busiest point on the route during the busiest hour.
For instance, if a service operates at a 15-minute frequency, then 4 buses would pass the busiest point in an hour. The average number of passengers for these 4 buses should not exceed the maximum passenger load standard shown below, even though one bus may be more crowded than the average.
If the standard is consistently exceeded, Big Blue Bus should evaluate options to alleviate overcrowding. However, the standards are designed to allow standees during peak periods on a regular basis.
Table 6: Passenger Load Standard
Time of Day Service Type
RAPID LOCAL EXPRESS/COMMUTER
Average Maximum Passenger Load (percent of seated capacity by service type) PEAK WEEKDAY 120% 120% 120%
ALL OTHER TIMES 100% 100% 100%
Addressing Overcrowding – If the maximum passenger load standards are consistently exceeded, two different techniques could be implemented to alleviate overcrowding: First, assigning a larger vehicle (when possible) to match passenger loads, and second, providing more frequent service to disperse passengers across multiple buses.
9 3 Service Performance Monitoring
Service performance standards are necessary to ensure that all services are fulfilling their roles in the transit network and contributing to the overall financial sustainability of Big Blue Bus. Performance should be measured regularly to identify trends over time, and to allow prompt changes to be enacted if necessary. The following performance metrics and standards help ensure that Big Blue Bus services are useful to riders as well as cost-effective for the agency. Service performance should be monitored quarterly and after every schedule change, but major service change decisions should be based on annual data.
Figure 3: Service Performance Monitoring
3.1 Passengers per Revenue Hour
Passengers per Revenue Hour (PRH) is a measure of service effectiveness or productivity based on ridership (unlinked boardings) generated for each hour of service operated. It is the primary metric used to determine whether modifications should be made to a route. When this metric either 1) does not meet or 2) exceeds certain thresholds, Big Blue Bus should consider service changes that utilize resources more effectively based on rider demand.
Some seasonal fluctuation in performance is to be expected, as ridership to schools and colleges may be lower during the summer, and recreational ridership may be higher. But overall, the thresholds outlined in the Service Evaluation section of this document provide guidelines for corrective action to take based on the passenger per revenue hour performance of each service.
3.2 Farebox Recovery
Farebox Recovery is an indicator that measures the amount of service operating costs that is recouped through farebox revenue and is expressed as a percentage. The higher the percentage, the higher the amount of cost that is covered by farebox revenue. Farebox recovery considers the cost of operation, the number of riders, and the average fares that customers pay. It’s important to note that due to the high number of transfers at Big Blue Bus, individual Farebox Recovery ratios should not be the sole reason for a service reduction but rather a consideration along with additional factors.
Big Blue Bus will monitor farebox performance to ascertain ridership trends and fare media choice. In the event of a proposal to change fare types or institute a fare increase or decrease, staff will perform a Fare Equity Analysis to determine the impacts, if any, on low-income and minority riders.
3.3 On-Time Performance
On-Time Performance defines a minimum threshold that Big Blue Bus should meet regarding the percentage of total daily trips and timepoints that are recorded as on time. On-time performance reflects both the quality and reliability of service.
Passengers
per Revenue
Hour
Farebox
Recovery
On-Time
Performance Data Needs
Performance
Monitoring
10 Big Blue Bus defines “on time” as one (1) minute before to five (5) minutes after the scheduled timepoint, disregarding early arrivals at the final timepoint.
The goal of 85% on-time performance system-wide is a common industry standard, which allows for some level of service variability while maintaining the reasonable expectation of reliability for riders.
3.4 Data Needs
The performance measures discussed above require the regular collection, cleaning and evaluation of the following data points:
• Ridership - Total boardings and alightings.
• Fare Revenue - Amount of fare and other revenue.
• Operational data - Number of runs, buses, revenue miles, and revenue hours per route by day type. • Operating Costs - The cost of operating the service.
• On-Time Performance - Departure times at each timepoint (and arrival at final timepoint). • Customer Feedback – Comments collected from City of Santa Monica 311 reporting system, Motor coach operator, community events, or partner jurisdiction input. • Demographics – Rider demographics including proportion of riders belonging to low-income households, identifying as minority, seniors, and people with disabilities will be collected primarily by on-board customer surveys. Additionally, U.S. Census or American Community Survey data will be used to identify these groups and their geographic relationship to Big Blue Bus routes. • Partnerships – Collect ridership, revenue and costs, and any other data to satisfy any partnerships agreements such as those with employers, educational institutions, and government.
When presenting data, staff should consider if the analysis done is from a systemwide or route-based perspective.
This distinction is important when determining what data needs to be gathered. Tables 7 and 8 below provide overviews of typical data needs for both systemwide and route-based analysis.
Table 7: Systemwide Data Needs
Systemwide
Total Ridership:
• Average Weekday,
Saturday, and Sunday
Passengers
Miles
Traveled
Vehicles Revenue
Miles (VRM)
Vehicle Revenue
Hours
Passengers per
Revenue Hour
Passenger Feedback On-Time
Performance
Total Operating
Costs
Operating Cost
per VRH
Operating Cost per
Passenger Mile
Operating Cost per
Passenger
Fare Revenue Average Passenger
Fare
Subsidy per
Passenger
Farebox Recovery
Ratio
Table 8: Route-Based Data Needs
Route based
Ridership by Route
• Average Weekday,
Saturday and Sunday
On-Time Performance by Route Passengers per Revenue Hour by Route Farebox Recovery by Route Cost per Passenger Boarding by Route On-Time Performance by Route 11 Comprehensive
Operations
Analysis
Annual Transit
Service Plan
Public Input
and Council
Approval
Title VI Service
Equity
Analysis
Changes to
Existing
Service
New Service
Evaluation
3.5 Performance Monitoring and Reporting Schedule
Performance will be monitored on a quarterly, service change, and annual basis, and will be reported on an annual basis. See Appendix A for a sample Santa Monica Department of Transportation Annual Report. 4 Service Evaluation
Service evaluations should be conducted to analyze the need for new Big Blue Bus services or significant changes to existing services. These evaluations aim to enhance service design and productivity while maintaining a consistent, user-friendly transit system.
Figure 4: Service Evaluation
4.1 New Service Evaluation
New Service – As ridership needs, transit options, and development patterns change, Big Blue Bus will analyze the need for new services. New services will be evaluated with respect to design standards and consistency with adopted policy principles.
Planning and implementing new transit service requires an examination of certain characteristics of the proposed service area. The densities and demographic characteristics of a given service area, as well as destinations served and integration with the surrounding transit network, are key parts of transit success. It is important to note that new service implementation is not dependent on any one factor below but arises from a combination of each of these factors. To determine whether an area warrants new transit service, Big Blue Bus will analyze the following characteristics of a proposed service area:
• Population Density - A minimum level of density (approximately 3,000 persons per square mile) needs to be present in each area to support regular bus service. In general, higher density areas are more conducive to effective bus service than low density areas due to greater demand and potential ridership. Density of the proposed new service area will be compared to the densities of existing service areas.
• Demographics – Neighborhoods and census tracts with higher-than-average proportions of seniors, people with disabilities, students, low-income individuals and households without automobiles should be considered for service expansion.
12 • Parking - There are several neighborhoods and destinations in Santa Monica and Los Angeles where free or inexpensive parking is in short supply. These sites may have a higher propensity for transit ridership than similar sites with ample free parking.
• Transit Demand Management - Several schools and businesses in Santa Monica and Los Angeles offer subsidized transit passes and other programs to encourage their constituents to use transit.
Depending on the program features, these programs can lead to an increased demand for bus service. • Key Destinations - Connecting residents with key destinations such as employment centers, hospitals, schools, shopping, and entertainment is a key factor in designing bus service. • Network Integration - Any new service should avoid duplicating existing service (see service spacing guidelines) and should connect to the existing transit network. • Projected Performance - To ensure continued maintenance or improvement of Big Blue Bus service productivity, the new service should be projected to perform at levels that meet or exceed the system metrics outlined in the Service Performance Monitoring section. If the evaluation does not project those levels, Big Blue Bus should reconsider or modify the proposed new service until it does.
New services depend on budget availability and can only be initiated when funding allows, either through resource reallocation, additional fare revenue, or new outside funding. Introduction of new services are subject to a trial period of one year to meet minimum performance standards commensurate with service category using the following process:
New Service Productivity
New transit service should be evaluated for up to two (2) years to determine long term viability. During this time staff should monitor new routes based on their compliance with the guidelines referenced in Table 7 below.
Table 9: New Service Compliance
Timeframe 6 months 12 months 18 months 24 months
% Min. compliance with passenger per revenue hour
metric (Guideline 3.1)
50% 75% 90% 100%
New services will be examined at the intervals above to assess whether they are meeting minimum service effectiveness metrics.
If the new service does not meet the minimum service metric at the conclusion of the two (2) year period or during any preceding six-month period identified above, the new service will be subject to a corrective action plan. New service that does not meet minimum productivity metrics for passengers per weekday revenue hour following implementation of a corrective action plan will be subject to discontinuation.
4.2 Changes to Existing Service
Passengers per Revenue Hour Thresholds
Table eight provides recommended corrective action plans for existing routes failing to meet certain passenger per revenue hour thresholds. Routes in the low or high thresholds may warrant more significant corrective actions, while routes in the middle are adequately fulfilling their roles in the network. The following are passenger per revenue hour thresholds and recommended service changes when not met or exceeded. 13 Table 10: Passengers per Revenue Hour
Passengers per Revenue Hour Recommended Action
10 OR LESS Eliminate trips or route
11-14 Reduce service to minimum frequency
15-29 Maintain service levels
30 OR MORE Increase service to or above goal frequency
Low-Performing Service (carrying 14 or fewer passengers per hour) If a route consistently does not meet the minimum thresholds for passengers per revenue hour, the service is subject to a Corrective Action Plan.
These routes will be evaluated to determine their potential for improvement. Evaluation and potential corrective actions include the following:
• Segment Level Analysis - A segment level analysis of a low-performing service may highlight a specific portion of the route that significantly reduces the overall performance, causing it to perform below the threshold. If a low-performing segment is identified, it can be modified to attempt to increase productivity for the route. If the results of a segment level analysis turn out to be inconclusive, however, modifications to the entire route should be considered. • Operational Analysis - Realigning service to cover only critical segments or eliminating unnecessary delay (e.g. deviations) are ways to reduce travel time and potentially improve productivity and performance.
• Change in Service Levels - Adjusting the service levels of a low-performing route – by any combination of frequency, span, or day of week changes – may improve the service for riders and make the route more productive and higher performing.
• Cost Sharing - Exploring cost sharing or public-private partnerships can reduce the amount of subsidy required on low-performing services. This is applicable for routes which do not meet minimum performance standards yet serve a need identified by businesses, schools, attractions, or other organizations that may be willing to assist with funding operations to continue service. • Targeted Marketing -Marketing can help to raise the public awareness of a low performing route. Poor ridership may be a result of a lack of public knowledge of a route, and investing in marketing can reverse this trend. Employment centers, shopping districts, schools, hospitals, agencies, and other major entities can be targeted for marketing of the service. • Rider Outreach - Onboard surveys and rider interviews are methods for gaining valuable information on how a route can be improved. These methods can reveal information about popular destinations that a route may bypass, or other aspects of a service that may not be useful to riders.
Using this information, Big Blue Bus will create a Corrective Action Plan for improving performance.
The Corrective Action Plan will be formally implemented in the next feasible service change window given the limitations in place regarding public process, public hearing (if required), and the Annual Service Plan process.
Once a Corrective Action Plan is implemented, the performance of the route will be monitored to ensure it meets minimum thresholds. Once a route reaches at least minimum performance thresholds, the process of Corrective Action is deemed concluded and any subsequent low performance is treated as a new event. 14 • Discontinuation - This is the final option for a low-performing route that does not meet minimum performance thresholds. It can be applied to a route segment or the route as a whole. If none of the corrective actions are successful in raising its productivity, discontinuation may be considered to ensure optimization of resources. Any decision to discontinue service will consider impacts on riders.
Average-Performing Service (carrying 15 to 29 passengers per hour) Routes in this category are adequately fulfilling their roles in the transit network, and no corrective action is required. These routes will be monitored on an on-going basis to determine whether their performance improves, decreases, or remains steady. While no action is necessary, ranking in this category does not preclude service adjustments at the discretion of Big Blue Bus. • Actions - Routes with average performance may be consistent throughout or may combine very high and low performing segments or trips. These routes in this category should undergo detailed analysis at the trip and segment level to identify any areas of significantly high or low performance. Individual trips or segments that qualify as low or very high performing will be subject to in the corresponding service adjustments in those sections.
High-Performing Service (carrying 30 or more passengers per hour) Routes with high performance may indicate a need for greater investment, as their performance may signal overcrowding, capacity constraints, and unmet rider needs. The following course of action should be followed for high-performing routes:
• Increase service levels - To maintain a high quality of service, significant vehicle overcrowding should be prevented. Big Blue Bus should improve the service’s frequency, span, or days of week served.
Maintaining and Improving On-Time Performance
Routes not meeting the on-time performance standard will be subject to an evaluation and corrective actions.
Updating schedules, so that timetables reflect actual performance, may improve reported on-time performance without significant operational changes. If the evaluation finds that additional resources (i.e., buses) are needed to improve a route’s on-time performance, it should only be considered within the context of the entire service planning process to determine its priority.
4.3 Title VI Service Equity Analysis
A Major Service Change will require that a Title VI Service Equity Analysis be conducted. A Title VI Service Equity Analysis is conducted to determine any potential disparate impacts on minority populations or disproportionate burdens on low-income populations stemming from the proposed service change. If the analysis results in potential disparate impact and/or disproportionate burdens on these populations, Big Blue Bus will seek to mitigate those impacts by modifying the proposed service change. The following are considered Major Service Changes:
• A route change that impacts 25 percent or more of a route’s linear mileage. • Service span or frequency changes affecting 25 percent or more of a route’s revenue hours. • Proposed changes that are anticipated to be contentious with the public. • Proposed service that is expected to be operated more than twelve (12) months, including pilot programs.
• Elimination of a route has been operated for more than twelve (12) months, including pilot programs. • Any combination of proposed route changes that cumulatively impact 5 percent or more of the total system revenue hours.
• Any permanent fare or fare media change (subject to a Fare Equity Analysis). 15 4.4 Public Input & City Council Approval
Big Blue Bus will conduct public outreach prior to any route change. For minor adjustments made during regular schedule changes, Big Blue Bus will notify riders and the public of upcoming changes. For Major Service Changes, Big Blue Bus will follow the procedures set forth in the “Public Hearing Procedures for Major Service or Fare Changes.”
Major service changes must be approved by the Santa Monica City Council before implementing.
4.5 Annual Transit Service Plan
Big Blue Bus will develop an Annual Service Plan for the subsequent calendar year (starting in 2026). This Annual Service Plan is the culmination of service planning efforts throughout the year and provides Big Blue Bus staff and the public a framework in which to track service changes, provide and digest feedback, and to adjust any potential proposed changes to the service network. The following schedule outlines how the Annual Service Plan will be developed over the course of the year:
Table 11: Annual Service Plan Schedule
Timeframe Responsible Party Tasks
January – March Planning,
Communications,
Finance, Operations
• Propose service plan and changes for subsequent
year.
• Analyze existing conditions.
• Preliminary Title VI Service Equity Analysis (If
necessary).
• Creation of maps, tables, and social media copy.
April - June Planning,
Communications
• Outreach and Engagement period, present draft
service plan at community events, social media,
stakeholder channels.
• Receive and document external and internal
feedback on plan.
July - September Planning,
Communications,
Operations
• Analyze feedback.
• Finalize network and frequency changes.
• Final Title VI Service Equity Analysis (if necessary).
October - December Planning,
Communications,
Operations
• Approve final service plan for upcoming year.
• Acquire City Council approval if necessary.
• Share plan with riders’ and community stakeholders.
4.6 Comprehensive Operational Analysis
Big Blue Bus should conduct a comprehensive operational analysis (COA) as needed to ensure the service is meeting the needs of its riders and responding changes in its service area. The COA should consist of the following:
• On-board customer survey
• Public outreach & stakeholder engagement
• Route by route analysis
• Title VI analysis
• Public meetings and hearings (if necessary)
• List of recommended actions
The most recent COA was adopted by Santa Monica City Council on July 9th, 2024. An overview of the recommendations adopted by the City Council can be found in Appendix C below. 16 5 Appendices
5.1 Appendix A
Santa Monica Department of Transportation Annual Report – Big Blue Bus KPIs
5.2 Appendix B
Public Hearing Procedures for Major Service or Fare Changes
5.3 Appendix C
Brighter Blue Five-Year Service Plan City Council presentation
SANTA MONICA’S BIG BLUE BUS
PUBLIC HEARING PROCEDURES FOR MAJOR SERVICE
OR FARE CHANGES
1. BACKGROUND
Santa Monica’s Big Blue Bus (BBB) is required by the Federal Transit Act, as amended through 1992, to establish a policy which defines a process to solicit and consider public comment prior to raising fares or implementing a major reduction of transit services.
2. BBB POLICY
A. It shall be the BBB’s policy that public comments be solicited prior to:
1. A route change that impacts 25 percent or more of a route’s linear mileage.
2. Service span or frequency changes affecting 25 percent or more of a route’s revenue hours.
3. Proposed changes that are anticipated to be contentious with the public.
4. Proposed service that is expected to be operated more than twelve (12) months, including pilot programs.
5. Elimination of a route has been, operated for more than twelve (12) months, including pilot programs.
6. Any combination of proposed route changes that cumulatively impact 5 percent or more of the total system revenue hours.
7. Any permanent fare or fare media change (subject to a Fare Equity Analysis) .
B. It shall be the BBB’s policy that the following shall be exempt from public comment and public hearing:
1. A minor change in fare or service. Examples would be temporarily reduced, experimental or promotional fares, minor reroutes, or minor temporary reroutes due to street construction(s) or minor schedule changes.
2. Experimental, seasonal or emergency service or fare changes expected to exist fewer than one hundred and eighty (180) consecutive days in service. If these changes ultimately continue to remain in effect for more than one hundred and eighty (180) consecutive days, they will be the subject of public comment and public hearing.
3. PUBLIC NOTIFICATION
When required, the public comment process will begin with the publishing of a legal notice seven calendar days in advance of the public hearing date in the local newspapers of general circulation. This notice will set a specific place, date and time for one or more public hearings. Written comments will also be accepted on the proposed changes seven calendar days beyond initial publishing of the legal notice.
Legal notices will inform the public of the proposed actions that initiated the public comment process. Press releases will also be prepared and sent to the local media.
4. SCHEDULING PUBLIC HEARING(S)
The public hearing(s) will be scheduled and conducted by the City of Santa Monica City Council at a time, date and place to be designated. The facility utilized for public hearings will be accessible to persons with disabilities. Special arrangements will be made for sight or hearing impaired persons if requested at least three days prior to the meeting.
5. PROCEDURE FOR CONDUCTING PUBLIC HEARING
Forms will be available to attendees to register their presence and desire to speak.
Public hearings will begin with a reading of the public notice, purpose and proposed action that necessitated the public hearing. After an explanation of the proposed action is completed, the public will be invited to offer their comments. The City Council will determine the amount of time the public has to comment during the public hearing. After all registered persons have commented, a final opportunity will be offered for any additional public comment. This offering will precede the close of the public hearing.
6. DOCUMENTATION OF PUBLIC HEARING
Official records of BBB public hearings on fare or service adjustments will be generated by:
A. Affidavits of newspaper publications of public notices.
B. Press releases conveying information on upcoming public hearings.
C. Digital recordings and transcripts of proceedings.
7. ADDRESSING PUBLIC COMMENTS RECEIVED
All relevant comments received verbally, digitally, or in writing at a public hearing, or as otherwise conveyed to BBB prior to the established deadline, will be entered into the public record of the comment process. Subsequent to the public comment period, staff will evaluate and analyze all relevant comments received and prepare a written report for consideration by the Santa Monica City Council.
8. CITY COUNCIL
The City Council will be notified by the City Manager of all written public comment solicitations in advance of all scheduled public hearings on fare and service adjustments. A summary of public feedback received will be provided to the City Council along with staff recommendation for final disposition of the issues. Upon review by the City Council, the City Manager will be directed accordingly to proceed with or amend the recommended service and/or fare adjustments.
Approval of Brighter Blue
Five Year Service Plan for
Big Blue Bus
City Council Meeting
July 9, 2024
What is Brighter Blue?
Comprehensive Operational Analysis
Analysis of Existing Service
Public Outreach and Stakeholder Engagement
Five Year Service Plan
From January 2023 to June 2024
Transportation Management & Design, Inc
Arellano Associates
Fehr & Peers
Deliverables
Five Year Service Plan
(Route by Route Proposed Changes)
Brighter Blue Final Report
Public Outreach Summary Report
Existing Conditions Report
Public Outreach & Stakeholder Engagement
On-board customer survey
Online surveys
Focus group meetings
Project dedicated website and e-mail
Public workshops & hearings, virtual and inperson, live Spanish interpretation Meetings, flyers, surveys, etc., in English & Spanish Public Outreach (cont.)
“Brighter Blue Bucks” Results
Brighter Blue Service Plan Summary
Improve frequencies on most routes including 10
minutes or better service on select major routes
Expand service hours so most routes start earlier,
end later, and operate on weekends
Ensure connections to the new LAX/Metro Transit
Center and Metro Rail D Line extension, and
other essential destinations
Frequency Improvements - Weekday
Proposed Service Hours - Weekdays
Proposed Service Hours - Weekends
Route by Route
Proposed Changes
Route by Route Proposed Changes
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
1 Santa Monica
Blvd/
Main St
Earlier/later service on weekdays & weekends. Minor re-route at UCLA. Aug ‘26 2 Wilshire Blvd Increase peak frequency from 20 to 10 minutes in 2027. Earlier/later service on weekdays & weekends. Minor re-route at UCLA.
Aug ‘26 (UCLA)
Aug ‘27 (D Line)
3 Lincoln Blvd Increase peak frequency from 13 to 10 minutes. Re-route at LAX. Earlier and later service on weekdays and weekends.
Dec '24
R3 Lincoln Blvd Discontinue Rapid 3; reinvest resources on Route 3. Dec ‘24 Local vs. Rapid Travel Time Comparison
Route 5
Proposed
Changes
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
5 Olympic Blvd Increase peak frequency from 60 to 30 minutes. New weekend service. Discontinue Century City to Palms segment and discontinue service west of SMC.
Aug ‘25
Route by Route Proposed Changes (cont.)
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
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; reinvest resources on Route 7. Aug ‘25 E7 Pico Blvd Discontinue Express 7; reinvest resources on Route 7. Aug ‘25 Route by Route Proposed Changes (cont.)
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
8 Ocean Park Blvd Increase peak frequency from 30 to 20 minutes. Earlier/later service on weekdays & weekends. Minor re-route in DTSM and UCLA.
Aug ‘26
9 Pacific Palisades Increase peak frequency from 20 to 15 minutes. Earlier/later service on weekdays & weekends. Extend northern terminus to PCH and Sunset, pending new bus turnaround.
Aug ’25
TBD (extension)
R10 Downtown LA
Freeway Express
No changes currently proposed. N/A
R12 Westwood Blvd Increase peak frequency from 12 to 10 minutes. Earlier/later service on weekdays & weekends.
Aug ‘26
Route 14
Proposed
Changes
Route Corridor
or Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
14 Bundy Dr/
Centinela Ave
Increase peak frequency from 20 to 15 minutes. Discontinue service to Inglewood. New southern terminus in Culver City. Re-route to Westwood/VA Hospital Station in 2027.
Dec ’24 (Culver City)
Aug ’27 (D Line)
Route by Route Proposed Changes (cont.)
Route Corridor
or Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
15 Barrington Ave Increase peak frequency from 60 to 30 minutes. Re-route to serve Westwood/VA Hospital D Line Station in 2027.
Aug ’25
Aug ’27 (D Line)
16 Wilshire Blvd/
Bundy Dr –
Playa del Rey
Earlier/later service on weekdays. New weekend service. Re-route to Westwood/VA Hospital Station in 2027.
Aug ’25
Aug ’27 (D Line)
17 UCLA –VA –
Sawtelle - Palms
Increase peak frequency from 20 to 15 minutes. Earlier/later service on weekdays & weekends.
Aug ‘26
18 UCLA - Montana Ave –
4th St -
Marina Del Rey
Increase peak frequency from 30 to 20 minutes. Earlier/later service on weekdays & weekends. Minor re-route at UCLA.
Aug ’26
TBD (extension)
Route 41
Proposed
Changes
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
41 SMC & Montana Ave
& 14th St & 20th St
Increase peak frequency from 20 to 15 minutes. Earlier/later service on weekdays. New weekend service. Re-route to serve Ocean Park Blvd./Sunset Park neighborhood.
Aug ‘25
Route by Route Proposed Changes (cont.)
Route Corridor or
Route Name Summary of Proposed Change(s)
Tentative
Implementation
Timeline
42 SMC & Montana Ave
& 14th St & 20th St
Discontinue Route 42. Reinvest resources on Route 41. Aug ‘25 43 San Vicente Blvd
& 26th St
Extend northern terminus to San Vicente Blvd. and 7th St. Aug ‘25 44 SMC Connector Re-route to serve Santa Monica College Performing Arts Center. Aug ‘25 Ridership Impacts
Approx. 650 customers (~2% of
all customers) will now be more
than 1/4 mile from a bus stop.
About 520 of those board at
Aviation/LAX Station but will
now board at the new LAX/Metro
Transit Center.
The remaining 130 (~0.6% of all
customers) will need to walk
further or use another service.
Title VI Service Equity Analysis
Determine disparate impacts or
disproportionate burdens on
disadvantaged populations
Proposed changes exceed thresholds in
BBB’s Policies
Final service plan proposes mitigations &
provides rationale (e.g., Route 7 service
frequencies)
Tentative Implementation Timeline
Timeline Proposed Change(s) Routes
December 2024 Changes impacted by opening of the LAX/ Metro Transit Center 3, R3, 14 August 2025 Changes to SMC service 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 to Westwood/ VA Hospital Station serving routes 2, 14, 15, 16 2028 Remaining frequency & service hour changes (if any) TBD Corridors Targeted for Improvements
Corridor Segment City Routes(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 Blvd Rose Ave. to Mindanao Way Los Angeles 3
Ocean Park Blvd 25th St. to Centinela Ave. Santa Monica 8,44 Ocean Park Blvd Centinela Ave. to Bundy Dr. Los Angeles 8,44 Pico Blvd 16th St. to Centinela Ave. Santa Monica 7
Pico Blvd Centinela Ave. to Sepulveda Blvd. Los Angeles 7 Pico Blvd Ave. of the Stars to Crenshaw Blvd. Los Angeles 7 Santa Monica Blvd Centinela Ave. to Westwood Blvd. Los Angeles 1 Wilshire Blvd Bundy Dr. to Westwood Blvd. Los Angeles 2,17,18 DOT Initiatives Supporting Plan
Safety and Security including
new Transit Safety Officer
Program
Transition to Zero Emission
Fleet & building of charging
infrastructure
Recruitment and retention of
Motor Coach Operators
Financial Impacts & Budget Actions
• No immediate financial impact or budget action necessary. • Increases related to labor and maintenance expected over FY2025-27 Biennial Budget period.
• Staff will return to Council if budget actions are required in future.
Recommended Action
Staff Recommends that the City Council:
1. Adopt a finding of no possibility of significant effect pursuant to Section 15061(b)(3) (Common Sense Exemption) of the California Environmental Quality Act (CEQA) Guidelines.
2. Approve the proposed Brighter Blue five-year service plan for Big Blue Bus.
UCLA Route Changes
• Decision primarily made to directly serve UCLA campus and Medical Center (Routes 1, 2, 8, R12, 17, 18). • All UCLA-serving routes would operate on campus, instead of periphery of the campus, where Hilgard Terminal is located. • Routes would terminate at:
o Gateway Plaza (Route 8 and Rapid 12), Macgowan Hall Terminal (Route 17), or Parking Structure 2 (Routes 1, 2 and 18). • Feedback from North Westwood Neighborhood Council (NWNC) and others incorrectly suggests that Big Blue Bus is removing service from the North Campus. Route 17 still serves North Campus. • Seating and real-time information signs do exist at Parking Structure 2. Staff has received assurances from the UCLA Transportation office to work on adding more amenities if the changes are approved. • Notably, Hilgard Terminal is inaccessible to people with disabilities; accessing campus from this stop requires taking stairs. • Restroom facilities at Parking Structure 2 are available and preferred by our motor coach operators • In our survey, 72 percent of riders prefer a longer walk if it means more frequent service. From Gayley/Strathmore:
• 5-minute walk to UCLA Gateway Plaza gets riders access to Big Blue Bus service that will operate every 6.7 minutes • 8-minute walk to the UCLA Medical Center gets riders access to Big Blue Bus service that will operate every 2.3 minutes. • As an alternative, riders can still take Metro Line 602 at Gayley/Strathmore to reach Westwood Village.