TCRP Synthesis 19

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TRANSITCOOPERATIVERESEARCHSPONSORED BYThe Federal Transit AdministrationTCRP Synthesis 19Passenger Transfer SystemReviewA Synthesis of Transit PracticeTransportation Research BoardNational Research CouncilPROGRAM

TCRP OVERSIGHT AND PROJECTSELECTION COMMITTEETRANSPORTATION RESEARCH BOARD EXECUTIVE COMMITTEE 1996CHAIRMANMICHAEL S. TOWNESPeninsula Transportation Dist Comm.OFFICERSMEMBERSSHARON D. BANKSAC TransitLEE BARNESBarwood IncGERALD L. BLAIRIndiana County Transit AuthoritySHIRLEY A. DELIBERONew Jersey Transit CorporationROD J. DIRIDONInternational Institute for SurfaceTransportation Policy StudySANDRA DRAGGOOCATALOUIS J. GAMBACCINISEPTADELON HAMPTONDelon Hampton & AssociatesEDWARD N. KRAVITZThe Flxible CorporationJAMES L. LAMMIEParsons Brinckerhoff, Inc.PAUL LARROUSSEMadison Metro Transit SystemROBERT G. LINGWOODBC TransitGORDON J. LINTONFTAWILLIAM W. MILLARPort Authority of Allegheny CountyDON S. MONROEPierce TransitPATRICIA S. NETTLESHIPThe Nettleship Group, IncROBERT E. PAASWELLThe City College of New YorkJAMES P. REICHERTReichert Management ServicesLAWRENCE G. REUTERWMATAPAUL TOLIVERKing County Dept of Transportation/MetroFRANK J. WILSONNew Jersey DOTEDWARD WYTKINDAFL-CIOEX OFFICIO MEMBERSJACK R. GILSTRAPAPTARODNEY E. SLATERFHWAFRANCIS B. FRANCOISAASHTOROBERT E. SKINNER, JR.TRBTDC EXECUTIVE DIRECTORFRANK J. CIHAKAPTASECRETARYROBERT J. REILLYTRBChair: JAMES W. VAN LOBEN SELS, Director, California Department of TransportationVice Chair: DAVID N. WORMLEY, Dean of Engineering, Pennsylvania State UniversityExecutive Director: ROBERT E. SKINNER, JR., Transportation Research Board, National Research CouncilMEMBERSEDWARD H. ARNOLD, President & CEO, Arnold Industries, IncSHARON D. BANKS, General Manager, Alameda-Contra Costa Transit District, Oakland, CaliforniaBRIAN J. L. BERRY, Lloyd Viel Berkner Regental Professor, Bruton Center for Development Studies,University of Texas at DallasLILLIAN C. BORRONE, Director, Port Department, The Port Authority of New York and New Jersey (PastChair, 1995)DWIGHT M. BOWER, Director, Idaho Transportation DepartmentJOHN E. BREEN, The Nasser I Al-Rashid Chair in Civil Engineering, The University of Texas at AustinDAVID BURWELL, President, Rails-to-Trails ConservancyE. DEAN CARLSON, Secretary, Kansas Department of TransportationRAY W. CLOUGH, Nishkian Professor of Structural Engineering, Emeritus, University of California, BerkeleyJAMES C. DELONG, Manager of Aviation, Denver International AirportJAMES N. DENN, Commissioner, Minnesota Department of TransportationDENNIS J. FITZGERALD, Executive Director, Capital District Transportation AuthorityDAVID R. GOODE, Chairman, President, and CEO, Norfolk Southern CorporationDELON HAMPTON, Chairman & CEO, Delon Hampton & AssociatesLESTER A. HOEL, Hamilton Professor, University of Virginia, Department of Civil EngineeringJAMES L. LAMMIE, President & CEO, Parsons Brinckerhoff, Inc.ROBERT E. MARTINEZ, Secretary of Transportation, Commonwealth of VirginiaCRAIG E. PHILIP, President, Ingram Barge CompanyWAYNE SHACKLEFORD, Commissioner, Georgia Department of TransportationLESLIE STERMAN, Executive Director of East-West Gateway Coordinating CouncilJOSEPH M. SUSSMAN, JR East Professor and Professor of Civil and Environmental Engineering, MIT (PastChair, 1994)MARTIN WACHS, Director, University of California Transportation Center, Berkeley, CaliforniaMIKE ACOTT, President, National Asphalt Pavement Association (ex officio)ROY A. ALLEN, Vice President, Research and Test Department, Association of American Railroads (exofficio)ANDREW H. CARD, JR., President & CEO, American Automobile Manufacturers Association (ex officio)THOMAS J. DONOHUE, President and CEO. American Trucking Associations, Inc. (ex officio)FRANCIS B. FRANCOIS, Executive Director. American Association of State Highway and TransportationOfficials (ex officio)DAVID GARDINER, Assistant Administrator, Office of Policy, Planning, and Evaluation, U.S. EnvironmentalProtection Agency (ex officio)JACK R. GILSTRAP, Executive Vice President, American Public Transit Association (ex officio)ALBERT J. HERBERGER, Maritime Administrator, U.S. Department of Transportation (ex officio)DAVID R. HINSON, Federal Aviation Administrator, U.S. Department of Transportation (ex officio)T.R. LAKSHMANAN, Director, Bureau of Transportation Statistics, U.S. Department of Transportation(ex officio)GORDON J. LINTON, Federal Transit Administrator, U.S. Department of Transportation (ex officio)RICARDO MARTINEZ, Administrator, National Highway Traffic Safety Administration (ex officio)JOLENE M. MOLITORIS, Federal Railroad Administrator, U.S. Department of Transportation (ex officio)DHARMENDRA K. (DAVE) SHARMA, Administrator, Research & Special Programs Administration, U.S.Department of Transportation (ex officio)RODNEY E. SLATER, Federal Highway Administrator, U.S. Department of Transportation (ex officio)JOE N. BALLARD, Chief of Engineers and Commander, U.S. Army Corps of Engineers (ex officio)TRANSIT COOPERATIVE RESEARCH PROGRAMTransportation Research Board Executive Committee Subcommittee for TCRPLILLIAN C. BORRONE, Port Authority of New York and New JerseyDENNIS I. FITZGERALD, Capital District Transportation AuthorityLESTER A. HOEL, University of VirginiaGORDON J. LINTON, U.S. Department of TransportationROBERT E. SKINNER, JR, Transportation Research BoardJAMES W. VAN LOBEN SELS, California Department of Transportation (Chair)DAVID N. WORMLEY, Pennsylvania State University

TRANSITCOOPERATIVERESEARCHPROGRAMSynthesis of Transit Practice 19Passenger Transfer SystemReview.RICHARD STERNBooz Allen & Hamilton, Inc.TOPIC PANELCARM BASILE, Capital District Transportation Authority, Albany, New YorkFRED M. GILLIAM, Metropolitan Transit Authority of Harris County, Houston, TexasRANDALL H. KRESLEY, Lehigh and Northampton Transportation Authority, Allentown, PennsylvaniaSTEPHEN OLLER, Riverside Transit Agency, Riverside, CaliforniaRICHARD PAIN, Transportation Research BoardSEAN RICKETSON, Federal Transit AdministrationRICHARD L. RUDDELL, Toledo Area Regional Transit Authority, Toledo, OhioTransportation Research BoardNational Research CouncilResearch Sponsored by the Federal Transit Administration inCooperation with the Transit Development CorporationNATIONAL ACADEMY PRESSWashington, D.C. 1996

TRANSIT COOPERATIVE RESEARCH PROGRAMThe nation's growth and the need to meet mobility,environmental, and energy objectives place demands on publictransit systems. Current systems, some of which are old and inneed of upgrading, must expand service area, increase servicefrequency, and improve efficiency to serve these demands.Research is necessary to solve operating problems, to adaptappropriate new technologies from other industries, and tointroduce innovations into the transit industry. The TransitCooperative Research Program (TCRP) serves as one of theprincipal means by which the transit industry can developinnovative near-term solutions to meet demands placed on it.The need for TCRP was originally identified in TRB SpecialReport 213--Research for Public Transit: New Directions,published in 1987 and based on a study sponsored by the FederalTransit Administration (FTA). A report by the American PublicTransit Association (APTA), Transportation 2000, also recognizedthe need for local, problem-solving research. TCRP, modeled afterthe longstanding and successful National Cooperative HighwayResearch Program, undertakes research and other technicalactivities in response to the needs of transit service providers. Thescope of vice configuration, equipment, facilities, operations,human resources, maintenance, policy, and administrativepractices.TCRP was established under FTA sponsorship in July 1992.Proposed by the U.S. Department of Transportation, TCRP wasauthorized as part of the Intermodal Surface TransportationEfficiency Act of 1991 (ISTEA). On May 13, 1992, amemorandum agreement outlining TCRP operating procedureswas executed by the three cooperating organizations: FTA, theNational Academy of Sciences, acting through the TransportationResearch Board (TRB), and the Transit Development Corporation,Inc. (TDC), a nonprofit educational and research organizationestablished by APTA. TDC is responsible for forming theindependent governing board, designated as the TCRP Oversightand Project Selection (TOPS) Committee.Research problem statements for TCRP are solicitedperiodically but may be submitted to TRB by anyone at anytime. Itis the responsibility of the TOPS Committee to formulate theresearch program by identifying the highest priority projects. Aspart of the evaluation, the TOPS Committee defines funding levelsand expected products.Once selected, each project is assigned to an expert panel,appointed by the Transportation Research Board. The panelsprepare project statements (requests for proposals), selectcontractors, and provide technical guidance and counselthroughout the life of the project. The process for developingresearch problem statements and selecting research agencies hasbeen used by TRB in managing cooperative research programssince 1962. As in other TRB activities, TCRP project panels servevoluntarily without compensation.Because research cannot have the desired impact if productsfail to reach the intended audience, special emphasis is placed ondisseminating TCRP results to the intended end-users of theresearch: transit agencies, service providers, and suppliers. TRBprovides a series of research reports, syntheses of transit practice,and other supporting material developed by TCRP research. APTAwill arrange for workshops, training aids, field visits, and otheractivities to ensure that results are implemented by urban and ruraltransit industry practitioners.The TCRP provides a forum where transit agencies cancooperatively address common operational problems. TCRPresults support and complement other ongoing transit research andtraining programs.TCRP SYNTHESIS 19Project J-7, Topic SA-06ISSN 1073-4880ISBN 0-309-06005-2Library of Congress Catalog Card No. 96-061036Price 14.00NOTICEThe project that is the subject of this report was a part of theTransit Cooperative Research Program conducted by theTransportation Research Board with the approval of the GoverningBoard of the National Research Council. Such approval reflects theGoverning Board's judgment that the project concerned isappropriate with respect to both the purposes and resources of theNational Research Council.The members of the technical advisory panel selected tomonitor this project and to review this report were chosen forrecognized scholarly competence and with due consideration forthe balance of disciplines appropriate to the project. The opinionsand conclusions expressed or implied are those of the researchagency that performed the research, and while they have beenaccepted as appropriate by the technical panel, they are notnecessarily those of the Transportation Research Board, the TransitDevelopment Corporation, the National Research Council, or theFederal Transit Administration of the U.S Department ofTransportation.Each report is reviewed and accepted for publication by thetechnical panel according to procedures established and monitoredby the Transportation Research Board Executive Committee andthe Governing Board of the National Research Council.Special NoticeThe Transportation Research Board, the Transit DevelopmentCorporation, the National Research Council, and the FederalTransit Administration (sponsor of the Transit CooperativeResearch Program) do not endorse products or manufacturers.Trade or manufacturers' names appear herein solely because theyare considered essential to the clarity and completeness of theproject report.Published reports of theTRANSIT COOPERATIVE RESEARCH PROGRAMare available from:Transportation Research BoardNational Research Council2101 Constitution Avenue, N.W.Washington, D.C. 20418Printed in the United States of America

PREFACEA vast storehouse of information exists on many subjects of concern to thetransit industry. This information has resulted from research and from the successfulapplication of solutions to problems by individuals or organizations. There is acontinuing need to provide a systematic means for compiling this information andmaking it available to the entire transit community in a usable format. The TransitCooperative Research Program includes a synthesis series designed to search for andsynthesize useful knowledge from all available sources and to prepare documentedreports on current practices in subject areas of concern to the transit industry.This synthesis series reports on various practices, making specificrecommendations where appropriate but without the detailed directions usuallyfound in handbooks or design manuals. Nonetheless, these documents can servesimilar purposes, for each is a compendium of the best knowledge available on thosemeasures found to be successful in resolving specific problems. The extent to whichthese reports are useful will be tempered by the user's knowledge and experience inthe particular problem area.FOREWORDBy StaffTransportationResearch BoardThis synthesis will be of interest to transit agency general managers, and agencystaff in customer service, operations, budget, marketing, and financial divisions. Itoffers user information on a variety of transit agencies' approaches to transferprograms. Policy and operational issues, service design, and transfer automation arediscussed, based on the experience of transit agencies in the United States and inEurope.Administrators, practitioners, and researchers are continually faced with issuesor problems on which there is much information, either in the form of reports or interms of undocumented experience and practice. Unfortunately, this informationoften is scattered or not readily available in the literature, and, as a consequence, inseeking solutions, full information on what has been learned about an issue orproblem is not assembled. Costly research findings may go unused, valuableexperience may be overlooked, and full consideration may not be given to theavailable methods of solving or alleviating the issue or problem. In an effort tocorrect this situation, the Transit Cooperative Research Program (TCRP) SynthesisProject, carried out by the Transportation Research Board as the research agency, hasthe objective of reporting on common transit issues and problems and synthesizingavailable information. The synthesis reports from this endeavor constitute a TCRPpublication series in which various forms of relevant information are assembled intosingle, concise documents pertaining to a specific problem or closely related issues.This report of the Transportation Research Board documents a wide diversity inimplicit transfer policies and many different approaches used at selected transitagencies. It covers practices dealing with restricting or allowing back riding orstopovers, fare levels, and alternatives to transferring.To develop this synthesis in a comprehensive manner and to ensure inclusion ofsignificant knowledge, available information was assembled from numerous sources,

including a number of public transportation agencies. A topic panel of experts in the subject area was established toguide the researchers in organizing and evaluating the collected data, and to review the final synthesis report.This synthesis is an immediately useful document that records practices that were acceptable within thelimitations of the knowledge available at the time of its preparation. As the processes of advancement continue, newknowledge can be expected to be added to that now at hand.

CONTENTS1SUMMARY3CHAPTER ONEINTRODUCTIONOrganization, 3Background, 34CHAPTER TWOTRANSFER POLICY ISSUESNeed for Transfers, 4Transfer Policy, 4Fares and Transfer Pricing, 7Fraud Experience, 10Alternatives to Transfers, 12Transfer Documents, 1617 CHAPTER THREE SERVICE DESIGNRiders' Willingness to Transfer, 17Increasing Transfer Convenience, 17Transfer Facilities, 1922 CHAPTER FOURTRANSFER AUTOMATIONTransfer Printers, 22Advanced Transfer Handling Systems, 2226 CHAPTER FIVECONCLUSIONS27 BIBLIOGRAPHY28 APPENDIX ARESPONDENT QUESTIONNAIRE34 APPENDIX BRESPONDENT PROFILE

TCRP COMMITTEE FOR PROJECT J-7CHAIRJACK REILLYCapital District Transportation AuthorityMEMBERSGERALD BLAIRIndiana County Transit AuthorityKENNETH J. DUEKERCenter for Urban StudiesALAN J. GIBBSNational Transit InstituteHENRY HIDECole Sherman & Associates, Ltd.MAXINE MARSHALLATE/Ryder ManagementFRANK T. MARTINMetro-Dade Transit AgencyPATRICIA V. McLAUGHLINLos Angeles County Metropolitan TransportationAuthorityBEVERLY G. WARDCenter for Urban Transportation ResearchCOOPERATIVE RESEARCH PROGRAMS STAFFROBERT J. REILLY, Director, Cooperative Research ProgramSTEPHEN J. ANDRLE, Manager, TCRPGWEN CHISHOLM SMITH, Project Manager, TCRPTCRP SYNTHESIS STAFFSTEPHEN R. GODWIN, Director for Studies and InformationServicesSALLY D. LIFF, Manager, Synthesis StudiesDONNA L. VLASAK, Senior Program OfficerLINDA S. MASON, Associate EditorTRB LIAISONPETER L. SHAWTransportation Research BoardACKNOWLEDGMENTSRichard Stern, Booz Allen & Hamilton, Inc., wasresponsible for collection of the data and preparationof the report.Valuable assistance in the preparation of this synthesiswas provided by the Topic Panel, consisting of Carm Basile,Director of Information, Capital District TransportationAuthority, Albany, New York; Fred M. Gilliam,Deputy General Manager, Transit Services, Metropolitan Transit Authority of Harris County, Houston,Texas; Randall H. Kresley, Manager, Route Developmentand Contract Service, Lehigh and NorthamptonTransportation Authority, Allentown, Pennsylvania; StephenOller, Superintendent of Transportation, Riverside TransitAgency, Riverside, California; Richard Pain, TransportationSafety Coordinator, Transportation Research Board; SeanRicketson, Transportation Program Specialist, Federal TransitAdministration; and Richard L. Ruddell, General Manager,Toledo Area Regional Transit Authority, Toledo, Ohio.The Principal Investigators responsible for the conductof the synthesis were Sally D. Liff, Manager, SynthesisStudies, and Donna L. Vlasak, Senior Program Officer. Thissynthesis was edited by Linda S. Mason.Valuable assistance to the Topic Panel and the synthesisstaff was provided by the TCRP Committee for Project J-7and by Gwen Chisholm Smith, Senior Program Officer,Transit Cooperative Research Program, TransportationResearch Board.Information on current practice was provided by manytransit agencies. Their cooperation and assistance were mosthelpful.

PASSENGER TRANSFER SYSTEM REVIEWSUMMARYThe various elements of a transfer system, for example, policy, operating characteristics, cost,and time are often subjects of concern for transit customers, bus operators, and managers. Issuessuch as transfer charges and rules, convenience, and transfer instruments need to be considered byagencies in developing policies appropriate to their goals and objectives.In the ideal world, transfers would be a continuation of the journey, not an inconvenience.Transfer rules would be well understood and accepted. In the real world, however, transit agenciesmust compromise between passenger convenience, operating requirements, and cost.This synthesis of practice regarding transfer programs provides information to the industry ona variety of approaches used by transit agencies. A survey of selected transit agencies in theUnited States and Canada provided information on the following issues: Agency policy with regard to use, implementation and control of transfers, includinggoals and objectives, How transfer policy is developed, Fare structures and cost of transfers, Fraud experience, Design and format of the transfer instrument, Elapsed time of transfer period, Stopover policy, Service design to minimize difficulty in transferring between vehicles, Convenience to customer, such as the distance customer has to walk, and Automa

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