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    FORM GEN. 160 (Rev. 6-80) CITY OF LOS ANGELESINTER-DEPARTMENTAL CORRESPONDENCE

    Date: April 1, 2005

    From:

    The Honorable City Councilc/o City Clerk, Rm 395, City HallAttention: Honorable Antonio Vilaraigosa, Transportation Committee

    wf. :~ Tanda General Mangerent of Transportation

    To:

    Subject: COMMUNITY DASH NEED ASSESSMENT STUDY RECOMMENDATIONS(C.F. 04-0823-S1)

    SUMMARY

    The Community DASH Need Assessment Study, prepared by the Deparment of Transportation(LADOT) with the assistance of its consultant, Transportation Management and Design (TMD),has produced a raned/prioritized list of potential new Community DASH routes to beconsidered for implementation by the City, subject to available funding. The Study also includesrecommendations for remedial actions for those few existing Community DASH routes whichare currently performing poorly or marginally (as determined by the Council-adopted transitservice performance standards). The list of new DASH routes is intended to guide the growth ofthe DASH system, as fuding permits, over the next seven to ten years. Because of the curentand short-term future fuding constraints, and the context of the ongoing MTA MetroConnections planing exercise, additional recommendations are also hereby transmitted with theintent of maximizing transit funding while also preserving any enhanced fuding for purposes ofexpanding the supply of transit service to City residents.RECOMMENDATIONSThat the City Council:1. Adopt this report and attachments prepared by LADOT with the assistance of itsconsultant, Transportation Management and Design (TMD), as its report on this matter.2. Adopt the recommended prioritized list of Potential New Community DASH Routes

    Exhibit E-l) as the guide for future expansion of the Community DASH system, subject toavailable funding3. Consider inclusion of sufficient operating and capital funding in the City's FY 2005/06Budget for the implementation of the top one or two raned new DASH routes as listed in

    Exhibit E-l.

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    The Honorable City Council -2- April 1, 2005

    4. Resolve to include in the City s Legislative Program support for federal, state and localfunding for replacement of existing City transit vehicles, and for purchase and/oroperation of new transit vehicles for the top five recommended new or expandedCommunity DASH routes as listed in Exhibit E-l.

    5. Direct LADOT, in cooperation with affected Council Offces, to:(a) Initiate the public hearing process to implement the Study s cost neutral recommendations

    Exhibit E-2) concerning the restructuring of the existing marginal/poor performing DASHFairfax, DASH Hollywood/West Hollywood, DASH Beachwood Canyon and DASH VanNuys/Studio City services after the Department has pursued reasonable remedial steps(including additional marketing) to improve the performance of these services.

    (b) Implement expanded DASH Warer Center service to complement the opening of theMetro Orange Line in September, 2005.6. Direct the CAO, in cooperation with LADOT, to report back to the Transportation Committeeof Council regarding potential alternative DASH transit fuding sources, such asMICLAlonding, local Proposition C fuds and assessment districts for expansion of theCommunity DASH system.7. Adopt as a policy, in response to potential MTA bus service reductions within Cityboundaries, to not substitute Community DASH for cancelled MTA service unless the

    City is guaranteed on-going funding for the operation of that replacement DASHservice route, such as through inclusion of the route in the County Formula AllocationProcedure F AP).

    8. Adopt as a policy that the City, through its representatives on the MTA Board,aggressively pursue a fare reimbursement agreement for all DASH routes tohonor MT A passes.

    BACKGROUNDThis Deparment initiated the citywide Community DASH Need Assessment Study during FY2003-04, executing a contract (City Contract C-I06512) with a consultant team headed byTransportation Management and Design (TMD), in April 2004. The consultant team includesparicipation by the UCLA Deparment of Urban Planning/Institute of Transportation Studies inits Senior Advisory Committee.The two primar objectives of the Study have been to: (1) analyze the existing CommunityDASH services operating in Los Angeles and the communities in which they operate to make

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    The Honorable City Council -3- April 1, 2005

    recommendations for the implementation of new, viable service in areas of the City with goodtransit potential; and (2) recommend measures to improve existing Community DASH serviceswhich are under-performing in terms of productivity and cost-effectiveness based on the CityCouncil adopted transit performance standards. The overall Study goal was to produce aprioritized list of new and/or modified Community DASH services that the City may consider forimplementation, subject to available funding, over the next ten years.Note that the study area does not include Downtown Los Angeles (the area generally bounded bythe 101 Freeway/Los Angeles RRver/lO Freeway/110 Freeway). A Downtown DASHRestructuing Study is to be caried out by the Deparment during FY 2005/06

    DISCUSSIONStudy MethodologyThe consultant team produced a methodology to identify areas within Los Angeles (outside ofDowntown) of potential transit need/demand and to predict the Performance Index (PI) score ofany new proposed or restructured Community DASH service. The PI score is a composite ofthree factors (passengers per revenue hour; subsidy per passenger mile; operating ratio) which,per City Council-adopted policy (CF 98-1121), are utilized by this Deparment to evaluate transitservice performance on an annual basis. This predictive performance evaluation methodologyfollows a four step sequence:(1) Predict Community DASH Performance: For each existing Community DASH route,analyze the characteristics of the community or communities it operates in and develop a modelbased on those characteristics which predict each route s PI score.(2) Critical Factors Analysis: Identify bariers to performance success and other transitoperational factors to be considered for remedy as a condition of service implementation.3) Transit Service Supply and Unmet Transit Need/Demand: Identify areas of Los Angeles with

    an under-supply of transit service which therefore present potential unmet transit need/demand.Note that areas of Los Angeles with population densities of 5 persons or fewer per acre and/oremployment densities of 5 jobs or fewer per acre were excluded from the analysis; public fixedroute transit simply canot be provided in a cost-effective manner in those areas.(4) Community DASH Potential: Analyze areas with high levels ofunmet transit need/demandwhich also present higher predicted PI scores, resulting in a combined score which reflects anarea s potential for community-based transit (i.e., Community DASH-type service).

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    The Honorable City Council -4- April 1,2005

    A more detailed discussion of the steps in this sequence is presented on pp. 22 - 28 ofAttachment II.The resultant predictive model was then translated into a performance analysis for the screeningand evaluation of proposed new Community DASH routes as well as for evaluation of remedialmeasures for under-performing existing Community DASH routes. For this Study, proposals fornew DASH service were collected from City Council offices, residents and transit riders viapublic meetings and via our project website (ww.tmdinc.net/clients/LADOT). LADOT TransitBureau and MTA staff, previous (mid- to late 1990 s) transit restructuring studies (i.e.recommendations from those studies which have not been implemented to-date), earlier (1999/200112003 Biennial MT A Call for Projects Transit Capital project proposals, and from theconsultant team based on the findings of the Study analysis.There were over 100 route/service suggestions collected through this Study process. Out of theseapproximately 100 DASH route suggestions, 85 potentially viable proposed new service/modified curent routes were analyzed, along with several route/service modifications for anumber of curent Community DASH routes which are under-performing (annual PI scores .(0.70 . The complete list of potentially viable routes, in alphabetical order with commentary, ispresented in Attachment II. Our analysis has produced a list of 20 recommended viable new, orenhanced existing, Communty DASH service routes. These recommended new and enhancedDASH routes, scored and raned, are attached as Exhibit E-1.Public Participation

    A first round of public meetings was conducted during July 2004 at each of the seven City AreaPlaning Commission venues. Notification was provided through the numerous certifiedNeighborhood Councils (via e-mail) as well as through direct mail/e-mail/telephone contactswith interested individual or groups identified through previous transit planning exercises and byCouncil offces. Notices were also posted on our existing DASH bus fleet. Briefings, withsolicitation of input, were also presented to each of the three MT A Sector Governance Councilswhose territories are located in whole or in part within City boundaries in July and August of2004.A second round of six public meetings, and briefings to MT A Sector Governance Councils, wasconducted in Februar and early March 2005 to present preliminary Study findings. In addition tothe public meetings and briefings, the project website referenced above was established toprovide both information and downloadable Study maps/reports, as well as to provide anadditional opportunity for public input. For the under-performing current Community DASHroutes, focus group meetings with riders and community representatives were conducted;interviews were also conducted with bus operators assigned to the under-performing routes. Amore detailed discussion of the public outreach effort is found on pp. i 0 - 12 of Attachment III.

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    The Honorable City Council -6- April 1,2005

    DASH routes discussed in Exhibit E-3 attached), the Deparment wil pursue reasonableavailable steps to improve the performance of these services. Depending on the success of theseadditional remedial actions in improving performance, the Deparment may recommend in aseparate report) the cancellation of these and any other mature marginal performing transitservices with the objective of freeing up transit resources which could be re-allocated tofacilitate implementation of one or more of the new higher-scoring recommended DASH routes.This may involve an amendment to the existing Council adopted transit performance guidelinesto improve marginal services; these guidelines identify steps to improve service performance butdo not provide direction to cancel marginal services in the event that performance is notenhanced over time).Note that during the Study period, 2004 performance data became available which indicatedsignificant improvement for the DASH San Pedro and DASH Hollywood/Wilshire routes incomparison with their 2003 PI scores. DASH San Pedro improved from a 0.61 score to 0.82;DASH Hollywood /Wilshire improved from 0.47 to 0.71 - in both cases, sufficient improvementto move these routes up out of the marginal or poor performance range. Thus, substantialremedial actions for these two routes are no longer required. A sumar of the key findings forall existing marginal or poor performing DASH routes is provided in Exhibit E-3.Warer Center DASH / Orange Line Interface: A Special Case - DASH Warer Center, from itsinception, has performed poorly based on the anual transit service performance evaluations.However, DASH Warer Center iias never been truly comparable to the other Community DASHroutes in that it is a weekday, mid-day service only unlike the standard Community DASHservice span which is 7 am til 7 pm weekdays plus weekend service). The existing DASHWarer Center service utilizes Commuter Express Line 575 Simi Valley to Warner Center)vehicles which would otherwise simply be laying over through the mid-day awaiting earlyevening retur trips to Simi Valley from Warer Center.The commencement of Metro Orange Line busway service in September 2005 connectingWarer Center to the North Hollywood Red Line station) could create an effective demand forDASH service within and around Warer Center; and a local circulator appears to be essential forOrange Line riders to complete their trips to or from the Warner Center Transit Hub the westerlyterminus ofthe Orange Line). With a restructuring of Commuter Express Line 575 service, itwould be possible to establish standard Community DASH service for Warer Center to coincidewith the opening of the Orange Line if additional operating funds can be appropriated.The Department is currently evaluating the possibility of utilizing Warer Center Trust Fundmonies to help fund the enhanced DASH Warer Center service. A private development-fudedstudy is also planned subject to LADOT review) which wil expand upon the efforts of thisStudy to fuher refine the design of the DASH Warer Center route.

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    The Honorable City Council -7- April 1, 2005

    Critical BarriersThe Study also provides findings relative to critical performance bariers for Community DASHservice, takng into account past and current performance as well as projected performance.These critical bariers can be sumarized into three tyes:1) Fare Integration with MT A : Currently only five of our 27 Community DASH routes honorMT A passes, for which the City receives reimbursement from MT A. (Downtown DASH honorsMT A passes, but the City receives no reimbursement.) This lack of fare integration is a barier toincreased transit ridership. The Community DASH family of routes functions as a local circulatorsystem and a feeder system to regional MT A transit services (bus and rail). Due to its highercost, and the price sensitivity of Community DASH riders (over 70 of whom have anualincomes of less than 20,000), the Metro EZ Pass has not proven to be an effective fareintegration alternative for Community DASH. Unlike other municipal operators (Santa MonicaBlue Bus, Culver Citybus, Foothil Transit, etc.) with defined service areas distinct from MTAservice areas, the City's Community DASH operates wholly within the MTA service area andcomplements MTA bus and rail service. Fare integration (wherein Communty DASH honorsMT A passes, and MT A reimburses the City) has the potential to boost ridership on both systemsby facilitating transfers. This fare integration seems especially appropriate for those CommunityDASH routes which serve MT A rail or busway stations.(2) Transfer of Service from MT A to LADOT without Provision of Operating Funds: Based onthe performance records of those former failing SCR TD routes which were taken over byLADOT at the request of City Council (Beachwood Canyon (formerly RTD Line 208); Los Feliz(formerly RTD Line 203); San Pedro (formerly RTD Line 147)), poor-performing RTD/MTAroutes or segments of routes typically become poor-performing Community DASH routes,despite fare integration and a reduced fare (although DASH San Pedro has just recently climbedup above the marginal performance level). Therefore, the Department recommends that, if andwhen the MTA proposes to eliminate service due to low ridership (and/or due to MetroConnections transit restructuring), the City should not agree to inherit the service responsibilitywithout also assuming operating fuds from MTA. Cost savings which accrue to MTA fromelimination of its service should be shared with the City if LADOT is to provide replacement bustransit service; the City wil otherwise be locked in to utilizing our heavily-committedProposition A fuds toward replacement service (and thus no net gain in transit service to Cityresidents) rather than investing in expansion of the Community DASH system through thisStudy's recommended routes.(3) Operational Barriers: This Study concludes that certain operational factors have criticalimpact on the performance of a Community DASH route. Route length is one of these; if a routeis shorter in length than five miles, it typically canot connect enough desired destinations toattract sufficient ridership. A route may also be too long (in excess of 10 miles), traversing low

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    The Honorable City Council -8- April 1, 2005

    density neighborhoods, to perform well. Also, to the extent that Community DASH serviceduplicates other available bus service, this tends to negatively impact DASH performance. Theseoperational bariers can be compounded by land use/demographic factors.Note that based on 2004 data, the average DASH ridership is 47 passengers per hour per bus,with an average passenger trip length of slightly less than one mile. This fits the DASH profieof local circulator/feeder service characterized by short passenger trips and relatively rapidturnover in passenger load.Implementation Context / Funding ConstraintsAs previously reported to the Transportation Committee in November 2004, the Deparment hasprepared a 10-year projection of the City's Proposition A Local Transit Assistance (PALTA)transit fuds which indicates that identification of additional fuding sources and/or increasedcost savings wil be required for expansion of Community DASH program. The City's share ofProposition A fuds is the primar fuding source for the City s public transit program, includingits Community DASH services. Based on the conservative revenue projections utilized in ouranalysis, the continuing operation costs of our current family of transit services, along withscheduled vehicle replacement costs for our fleet of over 380 transit vehicles, wil leave minimalremaining Proposition A fuding for any expansion of the Community DASH system. TheDeparment estimated that only one or two new Community DASH routes could be implementedover the next ten years utilizing existing revenue sources. This assumes that curently unallocatedCity Proposition A funds are not utilized for other new projects. The Deparment estimates thateach new DASH route would require $1.5 milion in vehicle acquisition costs (four buses andone spare), and approximately $725,000 per year in ongoing annual operating expenses.Unlike the period between 1993 - 2001, it appears that the MTA Biennial Call for Projects wilnot be a reliable source of star-up (vehicle acquisition) funding for new DASH routes given thecancellation of the 2003 and 2005 Calls. Furher, implementing new DASH servicesimmediately based on the recommendations of this Study, would mean that the City would likelybe foregoing the possibility of obtaining capital grant fuding for these routes when it becomesavailable as the fuding is not reimbursable retroactively. The City needs to identify potentialnew revenue sources, whether it be from grant funding, City local Proposition C fuds, bonding,assessment districts, etc., in order to be able to substantially expand the Community DASHprogram.The curent MT A Metro Connections transit restructuring exercise must also be taken intoaccount. Metro Connections (formerly called hub-and-spoke ) wil tend to orient MTA busservice away from local (Tier 3) service to more narowly focus on hub-to-hub line haul (Tiers1 and 2) routes, with a resultant elimination of lower ridership local service and redeployment ofthese resources elsewhere. Elimination of MT A service within City boundaries has typically led

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    The Honorable City Council -9- April 1,2005

    to pressure for LADOT to fill the void by replacing the canceled MT A local service with DASH.As previously discussed, to the extent that the City Council chooses this option without securingadditional funding from the MT A the limited City Proposition A funding available for newDASH routes wil be further eroded.In recognition of the fiscal challenges the City is facing in order to expand the CommuntyDASH program, the Deparment is forwarding a number of policy recommendations related toaggressively pursuing additional transit funding from MT A and to exploration ofalternative/additional City funding for DASH transit services. These potential alternative sourcesinclude grant fuding Proposition C local retur and assessment districts - sources which havebeen suggested during previous Transportation Committee discussions of City transit fuding.

    COORDINATIONAs previously discussed the Deparment conducted a total of three rounds of Study briefings forCity Council Offce staff (June 2004; November 2004; January 2005). In addition, briefing/discussion sessions were conducted with individual Council offces by request. A Study update/status report was presented to the Transportation Committee at its Januar 26 2005 meeting.

    IMP ACT ON THE BUDGETThe recommendations in this report do not result in an increase in City costs relative to the FY2004-05 Budget. Therefore, there is no impact on the Budget. Funding for expanded DASHservice would require approval in the City s FY 2005-06 Budget.

    Exhibits:Exhibit E-1 - Recommended New and Expanded Community DASH RoutesExhibit E-2 - Cost Neutral Recommendations for Remedial ActionsExhibit E-3 - Remedial Actions to Improve Performance on Existing RoutesAttachments:Attachment I - Individual Recommended Route Maps (20)Attachment II - List of Route Proposals Evaluated (85)Attachment II - Study Executive Summar

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    Exhibit E-3 (Page 1 of 2)REMEDIAL ACTIONS TO IMPROVE PERFORMANCE ONEXISTING ROUTESVan Nuys/Studio City (200~erformance ndex of 0.70; peak vehic es: 6). Resource neutral refinement of existing route to improve performance onthe non-productive Studio City route segment is shown in Exhibit E-2 intwo parts:

    -- Studio City/North Hollywood Route Predicted Performance 1.12; 2peak vehicles)-- Van Nuys/Kester Route (Predicted Performance 0.77; 3 peak vehicles). Savings of 1 vehicle may be used on the new Van NuyslWhitsettRoute previously shown on Exhibit E-1), which serves, in part, some

    of the area previously served by the existing Van Nuys/Studio Cityroute

    Pueblo del Rio (2004 Performance Index of 0.61; peak vehicles: 1)Existing route is very short due to its origin; alternative to lengthen routeis included in new service recommendations in Exhibit E-1Rail connection requires fare integration

    Fairfax Route (2004 Performance Index of 0.60; peak vehicles: 4). Alternative route alignments requiring additional vehicles are included in

    Attachment II, but do little to improve overall performance. Option of expanding the existing shuttle route operated under the CityRideProgram for Park La Brea residents and replacing the remainder of theFairfax service with a new route alternative

    HollvwoodlWest Hollvwood (2004 Performance Index of 0.57: peak vehicles: 4). Seek operating funds from West Hollywood. Rail connection requires fare integration with the MTA. Alternative route alignments were evaluated but do little to improve

    performance. If the first two actions are not implemented and/or do not result inimproved performance, then consider route restructuring

    . Cancel route and use resources to implement the BeachwoodCanyon/Farmers Market route alternative

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    EXHIBIT E- 3 page 2 of 2)Los Feliz 2004 Performance Index of 0.54; peak vehicle: 1)

    . Alternatives to lengthen route are included in new service alternativespreviously shown in Exhibit E-1

    . Modification involves replacement of MT A Route 26 on Virgil

    . MT A Gateway Cities Service Sector has expressed opposition to thisalternative.Beachwood Canyon 2004 Performance Index of 0.40: peak vehicle: 1)

    . Seek MTA approval to include service in the Formula Allocation Programfor regional subsidies

    . Alternatives to combine with other routes and to serve new locations wereevaluated but do little to improve performance with one possibleexception:-- Restructure Beachwood Fairfax and Hollywood/West Hollywoodservices into a new Beachwood Canyon/Farmers Market route-- Currently, these three services require 9 peak vehicles compared to 5for the new alternative-- Predicted Performance Index of 0.80

    . Cancel route if the above alternatives are not feasible or fail to improveperformanceWarner Center 2004 Performance Index of 0.04: mid-day off-peak vehicle 1)

    . Various route alternatives are included in the routes evaluatedAttachment II), with one of the options showing some promise aspreviously listed in Exhibit E-1

    . Seek MTA funding for expansion to feed the new Orange Line and fareintegration

    . Seek funding from the Warner Center TMO / Trust Fund

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    ATTACHMENT I

    Individual Route Maps of the Recommended Routesin rank order - 20 maps)

    TT CHMENT I

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    ATTACHMENT II

    List of Route Proposals valuated

    in alphabetical order - 85 route proposals)

    ATTACHMENT II

  • 8/12/2019 LADOT Community DASH Restructuring Study

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    Aam

    P1o7

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    TDR

    EU

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    OWa

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    11Mum

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    48

    3Oaopoemoeeh5membos

    111

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    78

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    EPkBePk

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    3RnmdoboP2PcMn

  • 8/12/2019 LADOT Community DASH Restructuring Study

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    Aame

    P

    2o7

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    Pea

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    ReMieVce

    Se

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    08Hg

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    46

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    11

    EyaVeCe

    09Mum

    09

    12

    6Rnmedob

    oP

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    4

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    oP

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    Fairfax

    Alternative1

    06Hg

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    45

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    nc07oeere6

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    Aam

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    Aame

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    Alternative

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    ooesnoeern2aovceenmeo

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    Aame

    P

    5o7

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    RU

    EU

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    PredictedPI

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    Alternative

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    Aam

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    Aam

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    TT CHMENT III

    Community D SH Transit Need ssessment StudySummary Report Findings Rankings

    TT CHMENT III

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    COMMUNITYDATRANSIT

    NDA

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    ch22

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    -tnCI==.-~catn c:- -CI CI.- ~- -CI .. - c((. (. ca oo..- ca m c: 0~ 0 ~ ~ 0CI - :: .- C)

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    CmmuyDHSvcDnd

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    CmmuyDHSvcDnd

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    StuoAys

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    tn-caoC)~(.CD.~o..D.

    CD ~.~ 0) ~.. c: tn.- c:. s- cuo 0 s-- tJ.. ... CD tn -c.U) ~.s'~ ~ :8~ CD tT .-C) tJ f :g.2:: ~ cuo en c: 32i:.A cu ~o ~ E J: C 0) .. .. tnG) .c.. tnE.~ 0) . ~.. .. 0)cu .-.= o~o E cu .: ~.. E ~ 0- .-a 0 0) .. ~~ 0 0cu- 0 .. tn .. 0):~b~~E~ ~ ~.~ ~ 8ca i: .. m .~ ~c. CD ):: :: tn.2 tJo .u) ~ s-gtn "" tn ~D c. c: c w ..~ e. .C c..

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    l/..~--caI...l/~ooC)~--"~::LL

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    tn-cc:~'Ica-~Es.o'I- c:ca l-5 :E.. CI.- .tc ~-c .tca ~C) .-c: ~.S; -c.- CICI tn(. tn ~'I (.no .-c: -co C).. c:c. .-o~.

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    PoeAoh

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  • 8/12/2019 LADOT Community DASH Restructuring Study

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    C

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