Draft Multimodal Center Feasibility Study

7/31/2019 Draft Multimodal Center Feasibility Study

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Jacksonville Area Multimodal

Center Feasibility Study

June 2012


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Executive Summary

Recent studies of public transit within the Jacksonville urban area suggest that the

efficiency and effectiveness of these operations could be significantly improved with the

establishment of a regional multimodal transportation center. Furthermore, state and

federal transportation policies encourage investment in these types of facilities to promoteaccessible, safe and efficient multimodal transportation. The purpose of this report is to

synthesize findings from a review of transportation system operations and policies into a

feasibility assessment for a multimodal transportation center in Jacksonville, North

Carolina.

Key findings of this study include:

Establishment of a multimodal transportation center in Jacksonville is consistent withlocal, state and federal transportation and land use policies.

A multimodal transportation center will serve as the focal point for publictransportation within the community, improving coordination among the systems,

resulting in greater operational efficiency and effectiveness.

A multimodal transportation center will expand the mobility of citizens within thecommunity and make travel seamless among all modes accommodated by the facility.

A multimodal transportation center will improve the convenience, comfort and safety ofpublic transportation by creating a facility where passengers can obtain information

about public transit services, await transfers among transportation systems and

rendezvous once reaching Jacksonville as a destination.

The multimodal center can be located and designed in a manner that will enable it togrow with Jacksonvilles transportation systems and potentially contribute to smart

growth patterns as well as the potential for redevelopment.

The local financial burden associated with the facility is minimal in proportion to thetotal project cost. Ninety percent of the development/construction expenses are eligible

for federal and state grants. Operating costs of the facility are also eligible for state and

federal funding; however, these costs may be offset by revenues generated from tenants

within the facility - potentially including OUTS, Greyhound, Amtrak and private

business.

Based on the findings of this study it appears that the creation of a Jacksonville multimodal

transportation center is feasible and represents a sound investment of public (federal, state

and local) funds to further quality of life within the Jacksonville community through

enhanced local and regional mobility.


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Table of Contents

Introduction 1

Public Transit in the Jacksonville Area 2

Other Public Transportation Systems in the Jacksonville Area 4

The Multimodal Center Concept 5

Local Plans and Policies Supporting a Jacksonville Multimodal Center 10

NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center 12

USDOT Plans and Policies Supporting a Jacksonville Multimodal Center 12

A Multimodal Transportation Center in Jacksonville 13


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Introduction

Jacksonville is a vibrant community that is committed to providing top quality services and

infrastructure for its business, visitors and especially its permanent residents. It is the

county seat of Onslow County, located in southeastern North Carolina, and has the benefit

of a significant military presence - the foremost being Marine Corps Base Camp Lejeuneand the Marine Corps Air Station New River. Jacksonville enjoys the distinction of having

the youngest median age population in North Carolina (23) and one of the youngest in the

country. Onslow Countys population continues to experience a high rate of growth, in fact,

the 2010 census indicates that

Onslow County grew by eighteen

percent over the previous decade, to

more than 177,000 permanent

residents. This likely is due to

growth aboard local militaryinstallations and its attractive

location on the North Carolina coast.

Population growth is expected to

continue in the future. Projections

completed by the State of North

Carolina in May of 2012 anticipate

that more than 250,000 residents

will live in Onslow County by 2030.

The Jacksonville City Council, Onslow County Board of Commissioners, North Carolina

Department of Transportation (NCDOT) and United States Department of Transportation

(USDOT) recognize the importance of regional mobility through multimodal travel and

have demonstrated their commitment to providing safe, reliable and attractive multimodal

transportation opportunities within the Jacksonville urban area. As a vital part of this

transportation network, public transit systems work tirelessly to ensure that members of

the community without private automobiles have the opportunity to access employment,

healthcare and other fundamental needs that enable them to live healthy and productive

lives. Furthermore, public transit along with safe highways, pedestrian and bicycling

facilities significantly contribute to the local economy, environment and, in general, upholdthe quality of life within the Jacksonville urban area.

Recent studies of public transit within the Jacksonville urban area suggest that the

efficiency and effectiveness of these operations could be significantly improved with the

establishment of a regional multimodal transportation center. Furthermore, state and

federal transportation policies encourage investment in these types of facilities to promote


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accessible, safe and efficient multimodal transportation. The purpose of this report is to

synthesize findings from a review of transportation system operations and policies into a

feasibility assessment for a multimodal transportation center in Jacksonville, North

Carolina.

Public Transit in the Jacksonville Area

There are two types of locally-operated public transit services in the Jacksonville area:

fixed-route service (vehicles operating routes with set schedules) and demand response

service (vehicles that pick-up and drop-off passengers at various times and locations upon

request). Public transit services in the Jacksonville area are provided by three entities:

Jacksonville Transit, Onslow United Transit System (OUTS) and the Camp Lejeune Base

Motor Pool. Each of these entities, including the services they provide, is described in more

detail below:

Jacksonville TransitJacksonville Transit is an urban

transit system operated by the

City of Jacksonville providing

local fixed-route bus service for a

large portion of the Jacksonville

area. Jacksonville Transit

operates two fixed-routes seven

days a week, with service

provided weekdays between 6:00 AM and 6:00 PM and weekends between 10:00 AM and

6:00 PM. In addition, Express Routes are operated on Friday evenings from 5:00 PM to 2:00

AM, Saturdays from 11:00 AM to 2:00 AM and Sundays from noon until 6:00 PM. Express

Routes are primarily designed to improve the mobility of military personnel stationed at

Camp Geiger, Camp Johnson and Camp Lejeune.

Jacksonville Transit maintains a fleet of eight buses and the system has been operated in its

current form since 2007. Jacksonville Transit is operated under a multiyear contract with

MV Transportation (a private transit management company) and OUTS.

OUTS Additional public transportation services within the Jacksonville area are providedby a local non-profit agency known as Onslow United Transit System (OUTS). OUTS has

served as the Countys coordinated public transportation operator since 1979 and along

with assistance from the City of Jacksonville, was the primary creator of the current fixed-

route system - Jacksonville Transit. Under a contracted service agreement with the City of

Jacksonville, OUTS provides demand response public transportation services for the

disabled within 3/4 of a mile of the Jacksonville Transit fixed-route network. These


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services complement the fixed-route system as required by the Americans with Disabilities

Act of 1990 (ADA). OUTS also operates a one-call center for Jacksonville Transit and serves

as the contracted transportation service operator for other programs within Onslow

County including:

Onslow County Senior Services Coastal Enterprises Onslow County Department ofSocial Services

Medicaid non- emergency medicaltransportation

Elderly and DisabledTransportation Assistance Program

Rural General Public ProgramOUTS also provides medical service

trips to destinations outside of the

Jacksonville area including: New Bern,

Moorhead City, Greenville, Wilmington,

Chapel Hill, Raleigh and Durham.

Connectivity between the Jacksonville Transit fixed-routes and OUTS services are

uncoordinated at this time, making it difficult for passengers to extend their range by

transferring between the two systems.

Camp Lejeune Base Buses Camp Lejeune offers shuttle services for military personnel and

their families within and amongst local military instillations. The Camp Lejeune base bus

system is operated by a private transit management company (Coach America) under a

contracted service agreement and is overseen by the Base Motor Pool.

Base Bus #1 operates exclusively on Camp Lejeune with a single bus assigned to an out-and-back alignment between the bus terminal, the Naval Hospital, French Creek and

Courthouse Bay. The round trip takes about 90 minutes to complete, but depending on

where the destinations are on the alignment, a bus passes by approximately every 30

minutes. Service begins at 7:00 AM and ends at 6:30 PM.

Base Bus #2 that shuttles between the Naval Hospital on Camp Lejeune, Camp Johnsonand Camp Geiger. Similar with Base Bus #1, the bus follows an out-and-back alignment

and is operated with a single vehicle. The route departs from the bus terminal roughly

every 105 minutes. The out-and back alignment means destinations are served twice


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within the 105 minute period, however, service is in a single direction only and not

evenly spaced. Base Bus #2 is available from 7:00 AM to 6:15 PM.

Base Bus #3, operates during winter months only (November 1 March 30) andconnects Camp Lejeune, Camp Johnson, Camp Geiger and the New River Air Station. A

one-way trip between Court House Bay on Camp Lejeune and the Air Station Exchange

Building takes between 60 and 70 minutes. There are roughly four round trips per day

that operate between 10:00 AM and 6:00 PM.

Connectivity between Jacksonville Transit and the Camp Lejeune base bus service is

uncoordinated at this time, making it difficult for passengers to extend their range by

transferring between the two systems.

Other Public Transportation Systems in the Jacksonville Area

Additional publicly-accessible transportation systems exist within the Jacksonville area

including:

Greyhound - Greyhound Lines, Inc. operates daily interacity bus service to Jacksonville

from a terminal located on Onslow Drive. This service provides connections to multiple

destinations throughout North Carolina and the United States; however, connectivity to

Jacksonville Transit, OUTS and the Camp Lejeune base bus system is very limited at this

time. Greyhound riders generally hail a taxi or walk from the terminal to extend their range

of mobility. Although limited connectivity currently exists among Greyhound and existing

public transit services, Greyhound staff has indicated a desire to improve coordination

among the systems by routing service through the Jacksonville multimodal center if/when

it is operational.

Amtrak - Amtrak is currently in the process of developing a regional shuttle that will

connect multiple urban areas in southeastern North Carolina to passenger rail service in

Wilson, North Carolina. It is expected that the shuttle will run between Wilmington and

Wilson via Jacksonville and Kinston, connecting local residents to an existing rail station in

Wilson. Amtrak riders will purchase a single ticket providing them access to the shuttle

service and the train. Program development staff with Amtrak has indicated a strong desireto coordinate the shuttle with existing local public transit systems when it goes into effect.

Furthermore, Amtrak has also indicated a desire to sustain coordination among the

systems in the future by routing service through the Jacksonville multimodal center

if/when it is operational.


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Bicycle and pedestrian network -

Jacksonville maintains an extensive

bicycle and pedestrian

transportation network including

miles of greenway trail, bicycle lanes

and sidewalks. A number of

improvements to this network are

planned in the coming years,

including several additional miles of

greenway trail. The infill of

sidewalks along major roadways

continues to be a priority and the

number bicycle lane miles will

increase substantially in the coming

years as the NCDOT restripes severalmain roadways to include these

facilities. Given the Citys existing and future network, if the Jacksonville multimodal center

were to be located in close proximity of the downtown area, users of the facility would have

safe and easy access to the bicycle and pedestrian system.

Albert J. Ellis Airport - The Albert J. Ellis Airport (OAJ) serves the Jacksonville area with

daily service provided by two carriers: Delta and US Airways. Although local public transit

does not currently serve OAJ, it remains a high priority of the Jacksonville Metropolitan

Planning Organization and transit service providers within the region. In the future, a

Jacksonville multimodal center could serve as the staging area for an airport shuttle. This

would allow for connectivity to existing transit services, greatly expanding the range of

travelers to and from OAJ.

Taxi Services - Taxi services are prevalent in Jacksonville and are commonly used by

military personnel and the general public to connect with destinations that are not

accessible by transit or within walking distance. While taxi services tend to be more

convenient for the user, they are much more expensive than public transit. Furthermore,

although taxi and public transit systems tend to compete for patrons, providing access to

taxis with the multimodal center would greatly expand the range of facility users to areasnot served by public transit.

The Multimodal Center Concept

As the name suggests, a multimodal center is a hub where numerous transportation

systems converge so that users have safe and convenient access to multiple travel options


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at a centralized location. In most cases, a multimodal centers primary function is to join

local public transit routes at a single transfer point where passengers can expand their

range by transferring among routes/systems. Other forms of transportation are typically

accommodated by a multimodal center as well, including walking, biking, private

automobiles, intra-city buses (Greyhound, Amtrak shuttle), ADA paratransit, taxis, airport

shuttles and in some cases passenger rail. When properly planned and designed, a

multimodal transportation center will provide safe and convenient access to all available

modes of travel and seamless transfer among them.

Multimodal transportation centers generally provide climate-controlled waiting areas,

bathrooms and security systems for passengers waiting to board or transfer. Real time

information on departures and arrivals is often provided within these waiting areas to

assist passengers in navigating the system and to make the experience of using public

transportation more predictable and enjoyable. These amenities not only enhance the

comfort and convenience of public transportation, they also help to help improve publicperception and attract new riders.

Multimodal centers often provide administrative office space for transportation agencies

and break/shift change areas for drivers. This provides transit operators the ability to

directly oversee all services at one centralized location and improves the connectivity

between administrative functions and system operations.

Multimodal transportation centers can also serve as visitor information centers by

providing information to travelers on local attractions, shopping and cultural points of

interest in the community. They are often designed as distinct, attractive structures that

serve as gateways to their community. In some cases, these facilities are also designed to

include leasable office space for accommodating other potential facility users (OUTS,

Greyhound and Amtrak for instance) as well as leasable space for businesses that support

passenger needs. Examples of businesses that commonly locate within multimodal centers

include restaurants, banks, coffee shops and convenience stores.

Pictured below are examples of multimodal transportation centers that have been recently

designed and/or constructed in communities similar to Jacksonville. The primary modes

that serve each of the facilities are referenced. Note that design features vary widely amongthe examples and facilities tend to vary in scale based upon need. Successful multimodal

facilities are generally designed and located to blend with the existing community fabric

and exude a positive image to the public. Cues from existing land features, architecture,

historical events and other influential aspects the community are often reflected in design

features and materials used to construct the facility. Given that these centers are public

spaces, design features and materials are also selected to maximize passenger safety, while


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minimizing the need for future maintenance. In accordance with federal guidelines, the

functional lifespan of a multimodal facility is expected to range 40 to 50 years. As a result,

these centers are designed to accommodate system growth during that time period

through pre-planned expansions.

JACKSONVILLE TRANSIT

Project ExamplesPetersburg, VA

Wendel

Modes: Intercity Bus, Intracity Bus, Taxi


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Project ExamplesGrand Rapids, MI

Wendel

Modes: Intercity Bus, Intracity Bus


Fredericksburg, VA

WendelDuchscherer

Modes: Intercity Bus, Intracity Bus

Kalamazoo, MI

WendelDuchscherer

Modes: Intercity Bus, Intracity Bus, Taxi, Passenger Rail

Project Examples


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Project ExamplesLynchburg, VA

Wendel

Modes: Intracity Bus, Taxi, Commuter Rail


Project ExamplesSavannah, GA

WendelDuchscherer

Modes: Intracity Bus, Intercity Bus, Taxi, Trolley, Bike Share, Bicycle


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Local Plans and Policies Supporting a Jacksonville Multimodal Center

Since Jacksonville Transits commencement in November 2007, numerous planning efforts

have been completed to ensure the growing demand for public transportation services are

met and that efforts to address these needs are regionally coordinated. Further, land use

plans completed during this timeframe also support the multimodal transportation concept

and the opportunity for using public facilities to foster smart growth and redevelopment.

Planning documents relevant to this feasibility study are summarized in chronological

order below:

Jacksonville & Onslow County Coordinated Human Services Transportation Plan (April 2009)

This plan provides a vision, goals and objectives for expanding and enhancing mobility

opportunities throughout the Onslow County region. It identifies opportunities for

Jacksonville Transit and OUTS to expand their role in providing human servicestransportation in addition to identifying operational and marketing goals and common

capital needs - including facilities such as the multimodal center.

Onslow United Transit System, Community Transportation Service Plan

(September 2009)

This plan reviews the current performance and organization of OUTS, recommending

strategies to improve operations and/or management to increase mobility options for

clients of social service agencies, citizens and commuters. The plan also identifies several

areas whereby OUTS and Jacksonville Transit should jointly pursue variousorganizational, marketing, capital and operations efforts in order to provide an integrated

regional transit system and allow the region access to federal funding sources that are

intended for such coordinated purposes.

New River Regional Transit Master Plan

(October 2009)

This plan provides Jacksonville Transit,

OUTS and the Jacksonville Metropolitan

Planning Organization with a short- andlong-term transit service and operations

plan to position the region to develop a

region wide transit system.


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Transportation Demand Management Plan, MCB Camp Lejeune/ MCAS New River

(June 2011)

Commissioned by the Military Growth Task Force, this plan provides recommendations for

reducing congestion and improving the efficiency of existing transportation systems in and

around Marine Corps Base Camp Lejeune. Recommendations promote the coordination ofservices among Jacksonville Transit, OUTS and the Camp Lejeune base buses.

City of Jacksonville Coastal Area Management Act Land Use Plan (July 2011)

The Costal Area Management Act (CAMA) Land Use Plan provides a short- and long-term

planning vision for the City addressing topics such as environmental protection, economic

development and growth, land use and transportation. Specifically pertaining to

transportation, the CAMA Plan encourages alternatives to single-occupancy automobile

trips in Jacksonville to reduce congestion and positively contribute to traffic flow. Further,

the plan advocates for the exceptional design of facilities to foster a vibrant mixed-use

downtown that retains the character of existing commercial and residential

neighborhoods. Creating this vibrant downtown can be complemented by designing and

maintaining governmental and civic facilities to serve as examples of the Citys

commitment to high quality development.

Jacksonville Transit System Development Plan

(September 2011)

The Transit System Development Plan (TSDP)

identifies service needs and opportunities, reviews

existing service performance and productivity and

uses this information to lay out a strategic plan to

address gaps and opportunities with the goal of

improving service delivery over a five-year

planning period. The TSDP calls for a multimodal

center among other capital investments.

The TSDP and the other plans indicate the potential

for significant growth in the services offered byJacksonville Transit and OUTS in the coming years.

As routes and services are added to the network, the TSDP recommends that they evolve

into a pulse system. With a pulse system, routes converge at a single location at the same

time, pause to allow passengers to transfer among the systems, then depart in a

coordinated manner. This type of service allows passengers traveling on one route/system

to access destinations served by the other routes/systems. A pulse operation is an effective


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way to link all origins and destinations within a transit system safely and efficiently. Not

only is a pulsing system more convenient for the user, but by coordinating services,

redundancies can be eliminated, potentially improving the cost effectiveness of all systems

accommodated by the center.

NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center

NCDOT plans and policies relevant to this feasibility study are established in several

documents including:

Strategic Prioritization of Transportation Projects (February 2012) Draft Statewide 2040 Plan (March 2012) Statewide Regionalization Study(May 2012)

All of these documents collectively identify regional mobility, multimodalism and theefficient use of resources through coordination as priorities for the State of North Carolina

with regard to public transportation.

Of particular relevance to this feasibility study, the Strategic Prioritization of

Transportation Projects identifies statewide transportation priorities based on objective

criteria derived from the aforementioned statewide goals and objectives. Through an

objective goal-driven prioritization process, the NCDOT ranked the Jacksonville area

multimodal transportation center as the seventh highest public transportation priority

statewide. This ranking was derived from a pool of more than 600 projects from both

urban and rural public transit operators throughout the state.

Very clearly, a multimodal transportation center for Jacksonville is consistent with NCDOT

plans and policies.

USDOT Plans and Policies Supporting a Jacksonville Multimodal Center

US Department of Transportation (USDOT) plans and policies relevant to this feasibility

study are most clearly set out in the federal Partnership for Sustainable Communities,

which was created in 2009 as a partnership between the USDOT, US Department of

Housing and Urban Development and the US Environmental Protection Agency. The

Partnership for Sustainable Communities identifies six core principles guiding future

federal investment.


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Clearly the first, third, fourth and sixth livability principles support the concept of a

multimodal transportation center in Jacksonville.

A Multimodal Transportation Center for Jacksonville

What could a multimodal center in Jacksonville be like?

A Jacksonville area multimodal center is expected to accommodate the operations of

various transportation agencies including: Jacksonville Transit, OUTS, the Camp Lejeune

base bus service, Greyhound and Amtrak. The center will also provide connectivity to other

modes of travel including taxis, walking, biking and other future transportation systems

servicing the region. Information Technologies (IT) will be an important asset in the

multimodal hub, providing the mechanism to communicate internally among operators andexternally with customers.

Another service that may be facilitated by the creation of a multimodal center is a weekend

shuttle between Jacksonville and Wilmington as a regional partnership with Wave Transit.

The center would act as an essential hub for passengers to board/depart and connect with

Partnership for Sustainable Communities

The Livability Principles

Provide more transportation choices. Develop safe, reliable and economical transportation choices todecrease household transportation costs, reduce our nations dependence on foreign oil, improve air

quality, reduce greenhouse gas emissions and promote public health.

Promote equitable, affordable housing. Expand location- and energy-efficient housing choices forpeople of all ages, incomes, races and ethnicities to increase mobility and lower the combined cost of

housing and transportation.

Enhance economic competitiveness. Improve economic competitiveness through reliable and timelyaccess to employment centers, educational opportunities, services and other basic needs by workers, aswell as expanded business access to markets.

Support existing communities. Target Federal funding toward existing communitiesthrough strategieslike transit oriented, mixed use development and land recyclingto increase community revitalization andthe efficiency of public works investments and safeguard rural landscapes.

Coordinate and leverage Federal policies and investment. Align Federal policies and funding toremove barriers to collaboration, leverage funding and increase the accountability and effectiveness of alllevels of government to plan for future growth, including making smart energy choices such as locally

generated renewable energy.

Value communities and neighborhoods. Enhance the unique characteristics of all communities byinvesting in healthy, safe and walkable neighborhoodsrural, urban, or suburban.

Source: HUD-DOT-EPA Partnership for Sustainable Communities.


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other forms of travel once they arrive in Jacksonville. Furthermore, the multimodal center

could also serve as a hub for a future shuttle service to OAJ.

Most importantly, the multimodal center will serve the everyday needs of passengers. Not

only will passengers have a centralized hub providing access to multiple transportation

services, the center will improve the convenience, comfort and safety of public

transportation by creating a facility where passengers can obtain information about public

transit services, await transfers among systems and rendezvous once reaching Jacksonville

as a destination. Needless to say, the multimodal center will greatly improve the users

experience with public transportation in Jacksonville.

It is envisioned that the multimodal center will house the administrative offices of

Jacksonville Transit, OUTS and the Jacksonville Metropolitan Planning Organization under

one roof. Additionally, the one-call center, dispatch and street supervisors will also be

located at the facility, with several other transit-related functions. Administrative staff forGreyhound and Amtrak could also potentially be housed within this facility.

How could a Jacksonville multimodal transportation center be paid for?

Multimodal transportation centers are eligible for funding under most USDOT grant

programs and in particular those administered by the Federal Transit Administration

(FTA). Federal funds typically support eighty percent of costs associated with developing

these types of projects.

Multimodal transportation centers are also eligible for state funds administered by the

NCDOT Public Transportation Division. The City of Jacksonville may approach NCDOT for

funding to support an additional ten percent of the project costs.

The local obligation for capital transit improvements is generally limited to ten percent of

the total project cost.

Why is a multimodal transportation center needed in Jacksonville?

Key findings of this study include:

Establishment of a multimodal transportation center in Jacksonville is consistent withlocal, state and federal transportation and land use policies.

A multimodal transportation center will serve as the focal point for publictransportation within the community, improving coordination among the systems,

resulting in greater operational efficiency and effectiveness.


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A multimodal transportation center will expand the mobility of citizens within thecommunity and make travel seamless among all modes accommodated by the facility.

A multimodal transportation center will improve the convenience, comfort and safety ofpublic transportation by creating a facility where passengers can obtain information

about public transit services, await transfers among transportation systems and

rendezvous once reaching Jacksonville as a destination.

The multimodal center can be located and designed in a manner that will enable it togrow with Jacksonvilles transportation systems and potentially contribute to smart

growth patterns as well as downtown redevelopment.

The local financial burden associated with the facility is minimal in proportion to thetotal project cost. Ninety percent of the development/construction expenses are eligible

for federal and state grants. Operating costs of the facility are also eligible for state and

federal funding; however, these costs may be offset by revenues generated from tenants

within the facility - potentially including OUTS, Greyhound, Amtrak and private

business.

Based on the findings of this study it appears that the creation of a Jacksonville multimodal

transportation center is feasible and represents a sound investment of public (federal, state

and local) funds to further quality of life within the Jacksonville community through

enhanced local and regional mobility.

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Draft Multimodal Center Feasibility Study

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