BALDWIN COUNTY
TRANSIT ASSESSMENT
October 2010
Prepared by
The Middle Georgia Regional Commission
175 Emery Highway Suite C, Macon, Georgia 31217
Telephone: 478-751-6160
Fax: 478-751-6517
Baldwin County
Transit Assessment
Table of Contents
INTRODUCTION .........................................................................................................1
DEMOGRAPHIC ANALYSIS .....................................................................................2
Regional Analysis .....................................................................................................2
Baldwin County Analysis .........................................................................................5
Summary ...................................................................................................................9
EVALUATION of EXISTING SERVICES ................................................................10
Section 5311 Rural Public Transit ..........................................................................10
DHS Coordinated Transportation System ..............................................................10
GC&SU Shuttle System..........................................................................................13
Private Transit Service ............................................................................................13
Miscellaneous Services ...........................................................................................14
DEMAND ESTIMATION and TRANSIT NEEDS ASSESSMENT .........................14
DHS Coordinated Transportation ...........................................................................14
Section 5311 Program .............................................................................................14
Transit Needs Assessment ......................................................................................15
GOALS and OBJECTIVES .........................................................................................17
TRANSIT ALTERNATIVES and RECOMMENDATIONS .....................................19
Ride Share ...............................................................................................................19
Expansion of Existing Programs .............................................................................19
Limited Fixed Route Service ..................................................................................20
Bicycle/Pedestrian...................................................................................................21
IMPLEMENTATION SCHEDULE ............................................................................23
SECTION 5311 CAPITAL IMPROVEMENT & OPERATING SUMMARY ..........24
SOURCES....................................................................................................................25
INTRODUCTION The Baldwin County Transit Assessment is a result of the efforts of the Baldwin 20/20 Community Committee. The Community Committee has made an examination of public transit its top priority, and in May 2010, requested the assistance of the Middle Georgia Regional Commission in conducting a comprehensive transit assessment for Baldwin County and the City of Milledgeville. Baldwin 20/20 is a community‐oriented organization intended to encourage long‐range planning and to build cooperation for countywide initiatives. It is comprised of representatives from the governments of Baldwin County and the City of Milledgeville, the Baldwin County Board of Education, Georgia College and State University, Georgia Military College, as well as other local organizations and agencies, to include the Milledgeville‐Baldwin Chamber of Commerce, the Milledgeville‐Baldwin County Convention and Visitors Bureau, Milledgeville Mainstreet and others. The primary purpose of this document is to serve as a preliminary needs assessment and planning tool for community leaders in regards to the provision of transit services in Baldwin County. The Transit Assessment is a strategic guide for public transportation in Baldwin County over the next five years. The assessment includes an evaluation of existing services, an examination of other relevant studies and plans, a review of demographic and travel behavior characteristics of the service area, the development of transit‐related goals and objectives, a demand estimation and needs assessment, proposed transit alternatives, enhancements and recommendations, and projected capital and operations costs. Public transportation is a vital component in most rural communities, with Baldwin County being no different. The availability of public transportation provides options to senior citizens, those without vehicles, and those who are physically or economically disadvantaged. The ability to provide a transportation alternative for those who live in a rural area is as important as for those who live in a high density metropolitan setting. The availability of reliable public transportation improves the quality of life in rural communities across the state by providing safe, efficient and economical service. It also serves as a vital component necessary for a healthy economy. The Baldwin 20/20 Community Committee recognizes that the next five years in Baldwin County are pivotal to shaping public mobility strategies to best help enhance the county’s continued future growth and economic opportunities. 1
DEMOGRAPHIC ANALYSIS Regional Analysis A regional demographic analysis was performed in order to gain a perspective on where Baldwin County “fits” within the Middle Georgia area. Many of the transit challenges facing Baldwin County and the City of Milledgeville are similar to those faced by neighboring communities. An area‐wide analysis is often helpful in identifying shared problems and regional solutions. The Middle Georgia Region is comprised of 11 counties. These include the counties of Baldwin, Bibb, Crawford, Houston, Jones, Monroe, Peach, Pulaski, Putnam, Twiggs, and Wilkinson. The current estimated total population of the Middle Georgia region is approximately 487,700 residents. Given a total land area of 3549.9 square miles, the current population density of Middle Georgia equals 137 persons per square mile. Special planning considerations will be necessary to ensure that the cities and counties of Middle Georgia will be able to continue to meet increasing infrastructure needs and demand for community services brought about by ongoing growth and expansion. Socio‐economic conditions will also continue to change as the area experiences additional development. Thoughtful consideration is necessary to anticipate the parameters and impacts brought about by these changes. The following table displays the compiled and predicted total population figures for the eleven Middle Georgia counties. Population Contributions by County County Baldwin 1980 1990 2000 2008 2010 2015 2020 2025 34,813 39,567 44,802 46,410 47,130 48,990 50,930 52,910 150,359 150,288 153,988 155,050 155,780 157,770 159,990 162,300 Crawford 7,611 9,030 12,550 12,700 13,130 14,230 15,360 16,510 Houston 78,157 89,662 111,328 133,600 138,810 152,040 165,570 179,320 Jones 16,681 20,798 23,662 27,740 28,770 31,400 34,080 36,810 Monroe 14,673 17,179 21,856 25,510 26,250 28,130 30,060 32,030 Peach 18,961 21,265 23,689 25,910 26,400 27,640 28,940 30,260 Pulaski 8,956 8,122 9,594 9,890 9,990 10,240 10,520 10,790 Putnam 10,360 14,261 18,892 20,460 20,880 21,960 23,090 24,250 Twiggs 9,360 9,832 10,597 10,340 10,460 10,770 11,090 11,430 Bibb Wilkinson 10,342 10,261 10,227 10,070 10,100 10,250 10,340 10,340 Source‐ Woods & Poole Economics, Inc. 2
Comparison of Population Density by County The following table depicts the population density for each of the Middle Georgia counties for the time period between 1980 and the most recent 2000 Census. Population Density by County Over Time County Baldwin Bibb Crawford Houston Jones Monroe Peach Pulaski Putnam Twiggs Wilkinson Total 1980 Population Density (persons /sq. mi.) 1990 Population Density (persons /sq. mi.) 2000 Population Density (persons /sq. mi.) Percent change since 1980 134.67 153.06 173.32 29% 601.44 601.15 615.95 2% 23.41 27.78 38.60 65% 207.42 237.96 295.46 42% 42.36 52.81 60.09 42% 37.08 43.41 55.23 49% 125.49 140.73 156.78 25% 36.20 32.83 38.78 7% 30.07 41.40 54.84 82% 25.97 27.28 29.40 13% 23.16 22.98 22.90 ‐1% 102.05 110.50 124.84 22% Data Source: Woods & Poole Economics, Inc. A significant trend, in terms of population density for Middle Georgia, is the foreseeable rise in total population density across the region. With an observed rise in total population over time, and a finite amount of land, it is only expected that density would increase. Changes in population density across the region mirror the changes in total population. Putnam County has grown the most in terms of density, followed by Crawford, Monroe, Houston and Jones Counties. Wilkinson County has shown a decrease with Bibb County and Pulaski County reflecting only a negligible rise in density. Baldwin County reflects an increase slightly above the regional average. These trends are expected to continue over the next decade. The total population of the Middle Georgia region as a whole is projected to grow by over 22% from 2000‐2025. While Bibb County will continue to constitute a significant proportion of the total population of the Middle Georgia region, Bibb County’s total impact will begin to become less significant given the stable growth rate predicted for the remainder of the region. Bibb County’s total population is only expected to increase by approximately 5% from 2000 to 2025. Houston County will continue to evolve as a major contributor in the region. The total population of Houston County is expected to increase 37.9% from 2000 to 2025. At this rate of growth, the total population of Houston County will begin to approach the total population of Bibb County in the near future. 3
Peach, Crawford, Jones, Putnam, and Monroe Counties are also expected to continue to grow at a significant rate (21.7%, 23.9%, 28.7%, 35.7%, and 31.7% respectively). Baldwin, Twiggs, and Wilkinson Counties, each located in the eastern portion of the region are all expected to grow at a more modest rate, 15.3% for Baldwin County, 7.2% for Twiggs County and just 1% for Wilkinson County. Growth and development in the Middle Georgia region has historically centered in the vicinity of Robins Air Force Base (RAFB) and Interstate 75. Hence, Bibb County and Houston County have received a majority of this development. Projected growth in the adjacent counties of Peach, Pulaski, Crawford, Jones, and Monroe Counties illustrates an increasing proclivity by residents to locate further from customary centers of development and a possible willingness to make longer commutes. Changes in county population levels are a result of natural causes (births and deaths) and the migration of individuals into and out of the community. According to the 2009 Georgia County Guide, between 1980 and 1990, most of the population increase in the Middle Georgia region (91%) was the result of natural increase, with only 9% attributable to net migration. Net migration gains were recorded in seven of the Middle Georgia counties, but the substantial net migration loss from Bibb County offset most of this gain. Other counties where net migration losses occurred were Pulaski, Twiggs and Wilkinson Counties. The components of population change for the Middle Georgia region were remarkably different between 1990 and 2000 from that found from 1980 to 1990. Instead of accounting for only 9% of the population increase from 1980 to 1990, net migration was responsible for over 50% of the population gain from 1990‐2000. The trends in net migration experienced between 1990 and 2000 will likely continue. The counties in the Middle Georgia region that are expected to experience the most growth (Houston, Jones, Monroe, Peach, Putnam and Baldwin) in the next 25 years should continue to see a large percentage of their population change derived from in‐
migration. Age Distribution The age distribution for the Middle Georgia region remained steady from 1980 to 2000. The most significant change was the 65 and older age group representing over 10% of the population in 1990 to 2000. Age distribution for the State of Georgia shows an aging population from 1980 to 2000. According to the Census Bureau, the increase is driven by the number of people born during the “Baby Boom” after War World II (1946‐1964). For example, the highest percentage of the population in 1980 could be grouped into the 44 and younger categories. In 1990, the larger percentage moved up to the 45 and older age groups. Finally, in 2000, the largest percentage of the population in Georgia was the 55 to 64 age group. 4
Baldwin, Bibb, Wilkinson, Pulaski, and Putnam Counties each have a significantly higher percentage of older residents than the other Middle Georgia communities. Thus, these communities will want to consider the potential for an aggregated increased demand for services and facilities related to this age group. To some extent, increases in the distribution of older citizens in these localities may represent a shift and migration of working age adults to other urban areas in search of improved employment opportunities. In the past, Houston County has demonstrated a relatively high proportion of working age adults and the young, together with a relatively small proportion of elderly residents. While Houston County continues to experience sustained rapid growth, this particular demographic trend has not persisted in more recent years. Working age people and their families continue to be attracted by employment opportunities at Robins Air Force Base and related economic activities. However, two factors have begun to mitigate the statistical impact of this demographic group. As the work force ages, an increasing number of residents are choosing to stay in their present or nearby locations upon retirement. In addition, employees report a greater willingness to engage in longer commutes. A proportion of these workers are now choosing to reside in adjacent counties. These facts portend an increasing burden on regional transportation infrastructure related to commuting patterns and an increased demand for senior related services and facilities. Commuting Patterns Over one‐quarter of Putnam County’s workforce comes from outside of Putnam County. Also, Wilkinson and Twiggs Counties attract larger percentages of non‐resident workforces than other counties within the region. More of the workforce of Houston and Baldwin Counties work within their resident counties than the other counties within the region. Potential reasons for the differences in this work force data include that the region’s workforce may consider Houston and Baldwin Counties as having a better quality of life as a place to live and work. On the other hand, Wilkinson, Twiggs, and Putnam Counties may not have the necessary, or affordable residential development to support additional workers living within their county and, therefore, these workers must commute. Baldwin County Analysis Demographic information such as total population, concentrations of disabled and elderly populations, poverty status, and household income were analyzed to help identify current and possible future transit needs in Baldwin County. In Middle Georgia, there is a distinct disparity between urban and rural communities. For example, Bibb and Houston Counties contain a fast‐paced, urbanized feel within a more densely populated area. Baldwin County, along with much of the region, is more 5
rural and more sparsely populated. However, as home to two institutions of higher learning, Georgia College and State University (GC&SU) and Georgia Military College (GMC), as well as the presence of a large state‐run facility, Baldwin State Prison, and a Regional Medical Center (Oconee Regional), the City of Milledgeville experiences many of the issues faced by urban communities. The challenge of providing adequate public transit service is one such issue. The 2009 estimated total population of Baldwin County is 46,337 residents according to the U.S. Census Bureau. Baldwin County’s total population grew significantly between 1980 and 2000, with a growth rate of 22.2%. Most of the growth took place in and around the City of Milledgeville and the Lake Sinclair area. Within the past ten years, data indicates that the rate has slowed, dropping to 4.9%. Future growth is expected to remain steady, with estimates indicating a rate of approximately 7.4% between present and the year 2020. The projected rate of growth for Baldwin County is expected to be higher than most surrounding counties. Transportation needs for a growing population base similarly build the case for possible expanded transit service in the county. The City of Milledgeville also experienced a notable rate of growth from 1980‐2000; going from 12,176 residents in 1980 to 18,757 in 2000. The increase is largely attributed to expansion of the city limit boundaries and increased enrollment at the two colleges. The U.S. Census Bureau estimates Milledgeville’s 2009 population at 20,703. Age Distribution The age distribution of the population and recent changes in that distribution has important implications for the demand for transit services. Historically, in Baldwin County, the largest percentage of the population has been in the 20‐to‐24‐year‐old age ranges. This is not surprising considering the presence of two colleges. The 18+ age groups make up almost eighty percent of the county’s total population. Equally important, from a transportation perspective, is the fact that 11 percent of the county’s population is 65 years of age and older. Eleven percent is statistically significant, and elderly persons frequently require transportation. Youth under the age of 15 are a group that tends to use transit services extensively where it is available, as they have not yet reached driving age, and transit offers a degree of independence from parents in accessing after school programs and recreational activities. For the most part, youth are not served by the current demand response service available in Baldwin County, but should be a key target population if fixed route service is eventually considered and implemented. Race and Ethnicity Slightly over one‐half (54.8%) of Baldwin County’s population is white, while just less than half (42.8%) are African‐American, with the rest being other races. The City of 6
Milledgeville’s racial composition is somewhat similar to the county; approximately 49% of the population is African‐American, while 48% is white. The most notable shift in ethnic composition in Baldwin County is the increase in residents of Hispanic ethnicity, with a 73.9% increase from 1990 to 2000. The increase in Hispanic population may be the result of a high number of seasonal, manual, and/or service‐related employment opportunities available in the county. Hispanic populations tend to live in areas where there is a variety of seasonal or service‐related jobs. Keeping track of the increase of Hispanic residents can aid the community in terms of determining what additional services may be necessary in order to support this growing demographic group. Income Levels Another strong indicator of transit dependency is income, as low‐income households are less able to purchase and maintain automobiles. A more specific measure of transit need is the population with income below the poverty level. According to the 2009 Georgia County Guide, annual per capita income in Baldwin County is $25,134 with 19.5% of the county’s population living in poverty. Additionally, U.S. Census data confirms that within Baldwin County, the African‐American population has the highest percentage of poverty at 25.2% with Hispanics close behind at 22%. Equally alarming is the almost 13% of county residents who are age 65 years and older who fall below the poverty level and the 27% of African‐Americans 65 years and older living in poverty. A high poverty rate translates into an increased need for various services, to include transportation. Commuting Patterns According to the Georgia Department of Labor, almost seventy‐five percent of Baldwin County’s workforce is made up of Baldwin County residents, with neighboring Hancock and Putnam County providing the highest number of workers commuting to Baldwin County for employment purposes. Additionally, only 20.4% of the workforce‐age residents of Baldwin County travel to other counties for their employment. Nearby Bibb County draws the highest percentage (5.3%) of Baldwin County workers. Elderly The elderly population is a category of individuals that have a higher dependence on transit services, as the ability to drive diminishes as individuals become older. Most Americans are going to live for a number of years after they cease driving. Transportation planning and coordination, supported with sufficient investment in transit alternatives, can help communities more effectively and efficiently meet the needs of their seniors and ensure their essential place in community life. According to the July 2003 Georgia State of the State’s Housing: Service Delivery Region 6 (GSSH) 7
produced by the Housing and Demographics Research Center at the University of Georgia, between 1990 and 2000 the 85 years old and older population in Baldwin County increased 36.8%. Measuring the potential impact of a rapidly growing elderly population may be useful in community transit planning. The availability of transportation services for the elderly is certainly a quality of life issue, as elderly residents who can access transportation services are able to more fully participate in the community. It is a health and safety issue as well, as elderly residents without cars must be able to access health care, and many elderly residents with cars would be safer in a public transit vehicle than behind the wheel. Finally, providing transportation services for elderly residents can be a matter of cost effectiveness, as providing services such as transportation that allow elderly residents to maintain independence and live in their own homes is less expensive than supporting them in a nursing home. Persons with Disabilities Disabled persons typically rely on a higher number of transit trips, since their disabilities often deny them the ability to operate an automobile. In addition, many disabled individuals require transit vehicles with specialized equipment and many require “door‐
to‐door” service with special assistance. The goal of any transportation system is to provide the mobility options that meet the travel needs of all community members, including those with disabilities. According to the 2009 Georgia County Guide, there were 7,542 persons aged five and older with a disability in Baldwin County in 2007, with the highest percentage (56.6%) being in the 75 years or older range. The second highest percentage (37.7%) falls in the 65‐74 age bracket. A significant percentage of disabled persons within a particular age bracket potentially indicates an increased need in services for those persons. For example, the large percentage of disabled persons that are aged 75 years and older may require additional care facilities as well as specialized transportation needs. Special Populations As mentioned previously, Baldwin County and the City of Milledgeville are home to Georgia College and State University (GC&SU) and Georgia Military College (GMC). The 2009 Georgia County Guide reports a total enrollment of 6,249 in 2007 for GC&SU and a 2007 total enrollment of 2,250 for GMC. The student body at these two institutions makes up a unique population within the community and presents the community with additional transportation‐related challenges. 8
Summary Analysis of demographic data indicates that Baldwin County is faced with many of the variables that would suggest the need for immediate and future transit planning. A steadily growing population, along with corresponding growth in the senior population, many of which have disabilities and no longer drive, an expanding student body at GC&SU and GMC, a significant low‐income population segment, and an influx of Hispanics lured by seasonal and service‐industry employment opportunities, all place a demand on existing community infrastructure and services. From a transportation perspective, mobility choices are often limited for lower income residents, the elderly and college students. Baldwin County and the City of Milledgeville have historically practiced thoughtful planning and are mindful of the additional growth that is anticipated to occur over the next five years. As evidenced by many of the action items identified in the Baldwin County/City of Milledgeville Joint Comprehensive Plan, both communities recognize the importance of planning now before demand outpaces resources. It is also important to note that the demographic analysis was accomplished using data primarily derived from the 2000 U.S. Census. Local officials are encouraged to update the demographic analysis, as well as other corresponding areas of the assessment, when 2010 Census data becomes available. Emphasis should be placed on examining rates of change for those specific demographic groups typically in need of transit services. 9
EVALUATION of EXISTING SERVICES Section 5311 Rural Public Transit Section 5311 is the name of the Federal funding program administered by the Federal Transit Administration (FTA) for the provision of rural public transportation service. The program provides formula funding to the states for the purpose of supporting public transportation in areas of less than 50,000 populations. The program has been instrumental in improving access to commercial businesses and community activity centers for rural residents. Funds can be used for capital assistance, operating assistance, planning, and program administration. The Georgia Department of Transportation (GDOT) currently administers the program for the State of Georgia. The Section 5311 Program has had a significant influence on mobility in rural communities around the state. Public transportation is currently available in Baldwin County through the Section 5311 Transit Program. The program provides limited service to residents of Baldwin County on a per trip basis and is not widely advertised. No wide‐ranging mass transportation is available for the general public. Baldwin County’s Public Transportation Department operates the Section 5311 Rural Transportation Program using one (1) extended, 18‐passenger van and one (1) 12‐
passenger mini‐bus with wheel chair lift. This fare‐based ($1.00 per passenger per one‐
way trip), on‐demand program (call–in basis) transports the county’s residents to a variety of shopping, medical, educational, employment and social destinations. In 2009, the Baldwin County Transportation Department provided a total of 11,662 trips covering 34,321 miles under the Section 5311 Program. Well over half of the trips (629) were for medical‐related appointments. Department of Human Services (DHS) Coordinated Transportation System Recognizing the importance of transportation in linking people with services and opportunities, the Department of Human Services (DHS) developed a statewide transportation system to meet the specialized transportation needs of its clients who are elderly, mentally and physically disabled and/or low‐income. The goal is to provide safe, efficient and cost‐effective transportation for these clients, allowing them access to essential services provided by the department. The DHS coordinated transportation system provides contracted services and oversight statewide. Transportation services are provided to clients served by the Division of Aging Services (DAS), Division of Behavioral Health and Developmental Disabilities (DBHDD), Division of Family and Children Services (DFCS), and the Division of Public Health (DPH). The system also provides transportation services to clients of the Department of Labor’s Vocational Rehabilitation Services Program (DOL/VRS). 10
Additionally, DHS partners with GDOT in order to coordinate services and provide transportation in a more efficient and effective manner. DHS’s coordinated transportation system is administered through DHS’s Office of Facilities and Support Services, Transportation and Services Section. Actual transportation services are provided through contracted vendors in each region of the state. Contractors may come from government entities, the private sector, or not‐for‐profit vendors. Eligibility for the service is determined locally by human service providers affiliated with various divisions of DHS. The Georgia Department of Human Services contracts with the Middle Georgia Regional Commission to administer the DHS Coordinated Transportation Program in the 11‐
county region including Baldwin County. Utilizing a third party provider, T&T Transportation, the program offers transportation services to Baldwin County residents who are clients of the Baldwin County Department of Family and Children Services, the Department of Labor Vocational Rehabilitation Program‐Milledgeville Hub, and the Baldwin County Senior Center. This coordinated service provided 8,715 trips to Baldwin County residents in FY 2009. Coordinated Transportation is an essential service in Baldwin County in that it allows for greater access to human services for the elderly, the disabled, and those with limited transportation options. Eligibility criteria and essential trip priorities are provided below for each DHS Division and for other programs eligible to be served by Coordinated Transportation in Baldwin County: Division of Aging Services (DAS) • Trips to and from Senior Centers • Trips to and from medical appointments • Trips for shopping • Trips to and from work/employment • Field trips • Trips to pay bills Division of Family and Children Services (DFCS) • Trips in support of Temporary Assistance to Needy Families (TANF) recipients (employment, job training, job search, etc.) • Trips to and from technical schools and adult education • Trips to and from work experience sites for food stamp recipients • Trips to and from medical appointments • Trips to and from mental health centers • Other non‐TANF trips • Trips to and from substance abuse treatment • Trips for social services • Miscellaneous trips 11
Division of Behavioral Health and Developmental Disabilities (DBHDD) • Trips to and from employment locations • Trips to and from day centers • Trips to and from mental health appointments • Trips to and from community training and integration activities • Trips to and from job training • Trips to and from medical appointments • Trips for social services • Miscellaneous trips Division of Public Health (DPH) • Trips for immunizations • Trips to and from Public Health Clinic and to and from stores • Trips for prenatal visits to clinics and other prenatal appointments • Trips to scheduled medical appointments Department of Labor Vocational Rehabilitation Services Program (DOL/VRS) • Trips to and from school • Trips to and from employment • Trips for job search and job placement • Trips to and from job training • Trips to and from workshops and assessment sites • Miscellaneous trips The human service providers are responsible for determining which consumers are appropriate for services under the coordinated system. The coordinated system may incorporate the use of taxi service, private van service or public systems where such service is available and based on local system designs. DHS seeks to provide the maximum amount of essential transportation services that can be accomplished with available resources. Eligibility criteria vary between the divisions within DHS. Information regarding eligibility determination, trip order process, etc. can be obtained by contacting the specific division/agency. By coordinating the requested trips from the various human service agencies, the DHS Coordinated Transportation program: (1) creates cost savings not otherwise available if provided by the individual human service provider; and (2) provides safe and quality service to the clients of these human service agencies. The biggest issue facing the DHS Coordinated Transportation Program is that associated costs to provide the service have increased over the last several years, while the funding for the program has remained constant or for some areas has been cut, thus making it very difficult to maintain the level of service to the DHS clients and for the transportation operators (which are few in number) to stay financially solvent. 12
GC&SU Shuttle Service Currently, GC&SU provides transportation to students by way of shuttle busses that run from peripheral parking areas to the main campus. Routes transit the Central Campus, West Campus and most remote parking lots on a daily basis. Full route service is available on weekdays from 7:15 a.m. to 5 p.m.; after 5 p.m. limited service is available until 11 p.m. Additionally, a weekend Shopping Shuttle is available on Saturdays and Sundays, departing various campus locations for the Milledgeville Mall and the Wal‐
Mart Supercenter. While no individual per‐trip fare is charged, students pay a mandatory parking and transportation fee each semester which allows for unlimited access to the University shuttle service. The service is not available to the general public. Private Transit Service There are ten (10) commercial taxicab companies located in and around the City of Milledgeville, with some providing only local service during limited hours and others offering out‐of‐town service and 24‐hour availability. Additionally, there are several commercial cab companies in surrounding communities (Greensboro and Macon) that provide limited service to portions of Baldwin County. The sizeable number of taxi companies located in Milledgeville is attributed largely to the two colleges situated in the city as well as the presence of Baldwin State Prison, the Youth Development Center (YDC) and Oconee Regional Medical Center. While these private companies provide a needed service to the community, they are not typically viewed as a viable means of transportation for most consumers. The rates charged are often cost prohibitive for daily or extended use. Miscellaneous Services Several special needs transportation providers are located in the Middle Georgia region and provide service to Baldwin County. These companies primarily offer transit service for medical needs (ambulatory, wheelchair lift, doctor visits, medical testing, etc.) on a fee based system. The Milledgeville & Baldwin County Convention and Visitors Bureau currently offers a Trolley Tour of Milledgeville’s landmark historic district. The trolley is tourism‐oriented, and at a rate of $10.00 per person, not cost effective as a means of transportation. 13
DEMAND ESTIMATION and TRANSIT NEEDS ASSESSMENT Demand Estimation ‐ DHS Coordinated Transportation Under DHS’s Coordinated Transportation system, transportation services are made available twenty‐four (24) hours per day, seven (7) days per week. Core hours are between the hours of 6:00 am and 6:00 pm, Monday through Friday; however, the contractor must provide scheduled trips beyond these core hours and days when demand warrants. Historical data from DHS’s Coordinated Transportation Service was utilized as a baseline in order to determine potential future demand. The table that follows reflects trip demand for the July 2008 – June 2009 reporting period. Human Service Agency
Total Number of Trips Baldwin County DFCS GDOL Vocational Rehab Program Baldwin Senior Center 3,207 2 5,506 Source: Middle Georgia Regional Commission In Fiscal Year 2009, a total of 8,715 one‐way trips were provided by T&T Transportation utilizing four vehicles. Baldwin County DFCS and Baldwin Senior Center were the recipients of the vast majority of the trips. While service is available to the GDOL Vocational Rehab Program, only two trips were utilized in Fiscal Year 2009. The total expenses of the DHS Coordinated Transportation Program in Baldwin County were $120,197 or an average of $13.79 per one‐way trip. A statewide DHS transportation needs assessment is performed annually, whereby the various human service providers (HSP) are afforded the opportunity to identify any unmet transit needs experienced by their clients. The results of the 2007‐2008 needs assessment reflects over 160 DFCS clients in Baldwin County currently unserved by the coordinated system. DHS estimates that these clients could potentially generate an additional 42,600 annual trips on the system. The assessment also reflects a need for in excess of 15,000 additional trips for non‐DFCS clients. Demand Estimation ‐ Section 5311 Program Baldwin County transit officials (Section 5311 Program) have indicated that demand for transit service has begun to exceed current capabilities and resources. The volume of unsupported requests for service has steadily increased. This has resulted in a tracking system being initiated in May 2010 to chart the number of unsupported requests as well as to identify affected geographic areas of the county. Data will be accumulated over a 14
6‐12 month period of time, and then evaluated and analyzed to determine possible needed resources to support increased demand. It is also important to note, this increase in demand is occurring without benefit of advertising or a marketing campaign. Informational fliers containing contact information, fares, and hours of service are available, but not widely distributed. This same information is also available on the Baldwin County website. It can be assumed that a great many Baldwin County residents are not aware of the public transit services available through the 5311 Program. It’s also not unreasonable to expect that initiating even a modest community wide marketing strategy would result in additional ridership demand. Transit Needs Assessment Despite the availability of transportation services provided under the 5311 Program, concern has been raised about inadequate transportation services for both the elderly and the student body population from the two colleges. This need is likely to multiply in coming years as the number of elderly persons age 65 and over is projected to increase and both colleges continue to increase enrollment. There are also concerns about a lack of transportation for residents in the Milledgeville area in need of transportation for employment purposes. This is a situation for which the rural transportation service may not be the best option. Users of the on‐demand, 5311 service are limited to certain hours of operation and a daily reservation requirement. Exploration of a fixed‐route type service with designated stops, or some other option, would possibly better accommodate this need. An additional element of the transit needs assessment was an evaluation of possible trip destinations and/or routes that would help address those needs. This evaluation included identification of major employers, shopping centers, schools, and medical facilities. Most of the larger employers, as well as schools and medical facilities, are located in or near the City of Milledgeville. The vast majority of large shopping/retail centers in Baldwin County are also located in or within close proximity to the City of Milledgeville. Analysis of existing and future land use plans are another element of the transit needs assessment. A review of future land use and projected future development in Baldwin County shows the vast majority of residential, commercial, industrial and public/institutional uses projected in and around the City of Milledgeville. Residential development outside of the Milledgeville city limits is random and sporadic. Commercial development in the unincorporated areas of Baldwin County is primarily general commercial uses such as convenience stores, gas stations, and businesses that cater to outdoor recreational activities. Most of the commercial development in Baldwin County is located in areas adjacent to the Milledgeville city limits. Land designated for industrial use is primarily located within the city limits of Milledgeville and industrial sites located 15
in the unincorporated areas of Baldwin County are typically extensions of the industrial land located within the city. With the exception of parks, recreation and conservation areas, most of the popular trip generators are located either within the City of Milledgeville or within close proximity. The growth rate of residential and commercial development in Baldwin County and the City of Milledgeville shows no sign of slowing. Additionally, input received from the identified human service providers, T&T Transportation (contracted DHS transportation provider), Baldwin County Transit (Section 5311 Program provider) and other local officials, indicates that the future level of demand is expected to increase as the county continues to grow. It is hoped that some of the transit alternatives and recommendations reflected elsewhere in this document will help to address the future transit demands within Baldwin County. 16
GOALS and OBJECTIVES Since 1995, public transportation ridership in the U.S. has grown by more than 23 percent, faster than highway travel. The American Public Transportation Association (APTA) estimates that approximately 33 million trips are taken each weekday in the U.S. People take public transportation for a variety of reason. For some, it is literally a lifeline. It not only benefits the people who use it, it also benefits the community as a whole. Some of the most significant benefits are: it eases traffic congestion; creates and sustains jobs; provides access to jobs; stimulates economic development; fosters more livable communities; provides mobility for seniors; improves air quality; and reduces energy consumption. With these benefits in mind, a series of transit‐related goals and objectives have been developed for Baldwin County and the City of Milledgeville. The goals and corresponding objectives are based on an assessment of existing conditions and services, feedback received during the assessment process, and a review of local planning documents. Goal #1: Ensure that all of the residents of Baldwin County have access to safe, reliable public transit service. Objectives: • Continued participation in the DHS Coordinated Transportation System and the Section 5311 Rural Transportation Program. • Engage in public education and awareness activities to increase transit use; market program availability to rural populations who may not be aware of service, as well as specific populations of need identified in demographic analysis (i.e., college students, elderly, low‐income households, etc.). • Budget appropriately to ensure maximum funding of transit service programs. Goal #2: Ensure that all of the residents of Baldwin County have access to the many recreational, educational, medical and retail facilities located within the county via public transit service. Objectives: • Conduct comprehensive transit needs survey to evaluate current level of service and assess potential future needs. • Identify and survey areas and/or population groups with an above average propensity to need and use transit services; use demographic analysis as baseline. • Conduct public transit forums to facilitate open discussion and information sharing. 17
Goal #3: Establish alternative modes of transportation such as bicycling and carpooling. Objectives: • Improve air quality by reducing traffic congestion through the use of alternative modes of transportation. • School system involvement. • Promote through the use of public education and awareness; institute encouragement and/or incentive programs. • Incorporate bicycle facilities into all community planning activities. These goals and objectives are grounded in realistic expectations of funding levels and other variables that may influence implementation, but are also aggressive enough to inspire confidence that the community’s public transit needs can be met. 18
TRANSIT ALTERNATIVES and RECOMMENDATIONS Ride Share Opportunities exist for establishing Ride Share or organized carpooling programs in Baldwin County. This consists of designating one or more areas, typically located near population centers (City of Milledgeville, Lake Sinclair area, etc.) and/or major highway corridors, where individuals can park their vehicles and then arrange to share a ride or carpool to a common location. According to the Georgia Department of Labor, seven of the ten largest employers of Baldwin County residents are located in Baldwin County; neighboring Putnam County, Washington County and Wilkinson County have one each (Haband Operations, Washington County Hospital and BASF Catalysts, respectively). In Baldwin County, Georgia College & State University, Baldwin State Prison, Oconee Regional Medical Center, and Mohawk Carpet Corporation all attract a significant portion of their workforce from within the county. Some of these large employers should be evaluated to determine if Ride Share opportunities are feasible. As a part of the evaluation, community leaders should seek to accomplish a commuter study/survey and to benchmark other communities where successful Ride Share systems are currently being utilized for possible local application. Additionally, employer contributions and related tax advantages should be explored where feasible. Establishing Ride Share programs usually involve minimal cost. The major obstacles encountered are typically locating and identifying suitable parking areas, and the time and manpower needed to properly conduct the necessary commuter/ridership surveys. These responsibilities are often best accomplished through creation of a committee and/or task force. Ride Share programs also address the objectives presented in Goal #3; specifically, helping to improve air quality by reducing traffic congestion through the use of alternative modes of transportation, and the use of encouragement and/or incentive programs. Expansion of Existing Programs DHS Coordinated Transportation ‐ The Georgia Department of Human Services, in conjunction with the Georgia Department of Transportation, is currently developing a statewide Coordinated Human Services Transportation (HST) Plan as well as preparing an assessment for each DHS region. The overall goal of the DHS coordinated planning process is to identify the need for, and gaps in transportation services, and to recommend strategies/projects to address the need. Baldwin County should evaluate any and all recommendations of the finalized DHS Region 6 Assessment and the statewide HST Plan for possible local application. In particular, combining Section 5311 19
operations with DHS coordinated services should be explored for feasibility and practicality. Section 5311 Rural Transportation Program ‐ The Section 5311 Rural Transit Program currently provides adequate demand‐responsive service for those Baldwin County residents that choose to utilize the service. Expanding the Section 5311 Program to include subscription work‐related trips as well as other trips should be investigated. As stated previously, future transportation demand associated with a growing senior population and an expanding student body at the two colleges may necessitate expansion of the program. Baldwin County officials are supportive of the Section 5311 Program, but are unable to invest in an expansion of the program due to limited local resources. The 50% required local share for increased operations, that would be associated with any expansion of service, would create a financial burden for the county. Even the 10% local share for vehicle procurements places a financial hardship on the county. Extensive marketing of the 5311 program would more than likely result in an increased demand for service, but the demand could not be met without a significant monetary commitment. While expansion of the Section 5311 Program addresses Goal #1 and its objectives, financial constraints are the primary obstacle towards implementation. Similarly, decreased funding for many of the human service providers that participate in the DHS Coordinated Transportation Program limits the ability of program managers to satisfy unmet demand for transit services. Limited Fixed Route Transit Service Community leaders have identified the need for local transit service in Baldwin County and the City of Milledgeville in their most recent (January 2008) Joint Comprehensive Plan update. Typically, extensive fixed route service is usually not practical or cost effective in an area with population densities as low, and development as dispersed, as much of Baldwin County is. However, this sort of service may well be effective in providing connections to employment, retail, and service centers not only within the City of Milledgeville and Baldwin County, but also to locations outside of the county, such as the City of Macon in nearby Bibb County. The level of resources needed to provide these connections will vary widely depending on the frequency of service provided. As with most communities, Baldwin County is composed of various “trip generators” with each trip generator serving as a destination. Some of the more obvious and popular destinations in Baldwin County center around the City of Milledgeville and include the city’s historic downtown area, GC&SU, GMC, Baldwin County High School, GC&SU West Campus and Athletic Complex, Central Georgia Technical College (CGTC) Milledgeville Campus, Oconee Regional Medical Center, the Milledgeville Mall and the many 20
restaurants and retail centers located along North Columbia Street in Milledgeville, to include the Wal‐Mart Supercenter. Many of these trip generators serve as possible destinations along a fixed transit route. Other possibilities include the utilization of electric, trolley‐like vehicles in and around the downtown area of Milledgeville with a fare‐based (.50 – $1.00) limited, fixed route service that would be utilized primarily by college students to get to and from the downtown area. Funding of the service could possibly be subsidized by one or both of the colleges. An ancillary benefit to establishing a limited fixed route transit system is help with alleviating a long‐standing parking problem in the downtown area of Milledgeville. This is a result of many of the students from the nearby colleges flooding the downtown area with automobiles. The availability of public transit should lessen the volume of automobile traffic in the downtown. A transit system that community leaders can look to as a benchmark is that which currently operates in the City of Fredericksburg, Virginia. The transit system is called the “FRED” and provides service to a number of nearby destinations and is extensively used by students from the University of Mary Washington and employees of MediCorp Health System. Goals #1 and #2 are addressed through the use of fixed route transit; however, prior to implementing such a service, a comprehensive ridership survey, a cost‐benefit analysis, and benchmarking of other successful systems will need to be accomplished. Additionally, an analysis of funding options to implement such a service is an essential step in the planning process. Bicycle/Pedestrian In the March 2005 Bicycle/Pedestrian Plan for the Middle Georgia Region, Baldwin County and the City of Milledgeville were identified as a pilot community for creation of a local bicycle/pedestrian plan. Baldwin/Milledgeville was selected because it was determined that they contain some of the important attributes (regional lake, colleges and universities, active downtown development, established historic preservation and greenway initiatives) that would be enhanced by the establishment of a local bicycle/pedestrian facility system. Additionally, both communities displayed the initial public and private support to implement recommendations that would emerge from the plan. The plan was created with the help of a local planning advisory committee comprised of community stakeholders. The plan lays out both short‐term and long‐range routes for bicycle and pedestrian facilities throughout the city and adjacent areas in the county. The Baldwin/Milledgeville Planning Advisory Committee decided to focus its efforts on 21
two signature projects—the Oconee River Greenway and the Downtown‐West Campus Connector. In both cases, the primary users of these facilities are college students, residents and tourists. Specific bicycle and pedestrian facilities are identified that link the major educational institutions in the community with major points of interest in order to reduce traffic congestion and parking problems and to provide pedestrian and bicycle linkage between downtown and the Oconee River Greenway. Another noteworthy bicycle/pedestrian initiative is the proposed development of a shared use path on an abandoned rail corridor that runs from Macon to Milledgeville. This facility would not only connect the two communities, but would connect the Ocmulgee Heritage Trail and Milledgeville’s Downtown‐West Campus Connector via Blandy Road, eventually connecting with the Oconee River Greenway. Goal #3 and related objectives are appropriately addressed through implementation of bicycle/pedestrian initiatives. 22
IMPLEMENTATION SCHEDULE Short Range (Year 1): • Quantify unmet transit needs using a variety of survey techniques and conducting a series of public forums. • Establish a local Transit Advisory/Guidance Committee. • Explore fixed route transportation options. • Examine feasibility of merging of existing systems (i.e. Section 5311 and DHS Coordinated). Benchmark other communities that have successfully combined the two programs. • Continue to pursue bicycle/pedestrian initiatives. Mid Range (Years 2‐3) • Develop and implement appropriate marketing strategies to make consumers/residents aware of available transit services. • Explore funding sources to expand transit capabilities in order to satisfy any unmet needs. • Aggressively pursue any identified funding sources. • Conduct appropriate benchmarking and/or feasibility study concerning Ride Share options. Long Range (Years 4‐5) • Implement appropriate transit alternatives to address unmet transit needs. • Implement Ride Share program – possibly on a trial basis to determine usage and feasibility. 23
SECTION 5311 CAPITAL and OPERATING SUMMARY The Georgia Department of Transportation is currently utilizing an 18 month capital improvement plan (FY 10/11) for the replacement of vehicles procured under the Section 5311 Rural Transit Program. Both the age and condition of the vehicles is evaluated in order to formulate a replacement decision. Under this plan, the required cost share for vehicle replacements is as follows: Federal (FTA) ‐ 80%; State (GDOT) – 10%; county (Baldwin) – 10%. Under the Section 5311 Program, local funding for operations is required to cover the non‐federal costs. Ten percent of the public transportation operating costs must be provided from fare income or other local dollars. The remaining 90 percent of the operating cost is considered the net operating deficit. Federal funding may be provided for up to 50 percent of the net operating deficit; the remaining 50 percent (or more) must be provided from local funds. FY 2009 FY 2010 Administrative Budget: $17,466 Administrative Budget: $17,800 Operating Budget: $89,575 Operating Budget: $68,350 TOTAL EXPENSES: $107,041 TOTAL EXPENSES: $86,150 Farebox Revenue: $10,704 Farebox Revenue: $10,510 Federal Share: $48,169 Federal Share: $37,820 Local Share: $48,168 Local Share: $37,820 FY 2011 Administrative Budget: $17,800 Operating Budget: $68,350 Capital Budget: $72,500 ($58,000 – Federal; $7,250 – State; $7,250 – Local) TOTAL EXPENSES: $158,650 Farebox Revenue: $8,615 Federal Share: $38,768 Local Share: $38,768 Baldwin County has budgeted for replacement vehicles in FY 2011. One (1) Standard Van at a cost of $26,500 and one (1) Shuttle Van with wheelchair lift at a cost of $46,000. The county’s 50% share for cost of operations is projected to remain somewhat stable, with minor fluctuations, over the five year planning period. 24
SOURCES
Publications:
Bicycle/Pedestrian Plan for the Middle Georgia Region, Middle Georgia Regional
Commission, Macon, GA, March 2005, www.middlegeorgiarc.org
The 2009 Georgia County Guide, Center for Agribusiness and Economic Development,
The University of Georgia, Athens, GA, January 2009, www.georgiastats.uga.edu
Georgia Department of Human Services (DHS) Transportation Manual, Atlanta, GA,
June 2007, www.dhr.state.ga.us
2008 Georgia State Profile, Woods & Poole Economics, Inc., Washington, DC, May
2008, www.woodsandpoole.com
Georgia State of the State’s Housing (GSSH): Service Delivery Region 6, Housing and
Demographic Research Center, The University of Georgia, Athens, GA, July 2003,
www.dca.state.ga.us
Joint Comprehensive Plan for Baldwin County and the City of Milledgeville, Middle
Georgia Regional Commission, Macon, GA, January 2008
The Middle Georgia Joint Regional Plan, Middle Georgia Regional Commission, Macon,
GA, June 2004, www.middlegeorgiarc.org
Web Sites:
American Public Transportation Association (APTA), www.apta.com
Community Transportation Association of America (CTAA), www.ctaa.org
Federal Transit Administration (FTA), www.fta.dot.gov
Fredericksburg Regional Transit, www.ridefred.com
Georgia College and State University (GC&SU), www.gcsu.edu
Georgia Department of Labor, www.dol.state.ga.us
Governor’s Office of Planning and Budget, www.opb.state.ga.us
United States Census Bureau, www.census.gov
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