When transit service is substandard, can we plan for capital expansion?

» New Orleans fantasizes about new streetcar routes as its buses barely make the grade.

Public transportation expenditures are typically divided into two buckets: One for operations expenditures — the money that goes primarily to pay the costs of gas, electricity, and driver labor — and the other for capital investments, which sometimes means maintenance but often means new vehicles and system expansions. Because of the way in which these two buckets are funded, a transit agency that may be in dire straights in terms of paying for system expansions may be providing excellent, well-funded daily services. Or the opposite could be true. This is a consequence of the fact that federal transportation grant support, and also often local system revenues, are required to be spent in one of the two areas, with little ability to transfer funds between them. The division between capital and operations funding produces some strange dynamics and perverse incentives for transit agencies, and the results are not always ideal for the typical rider.

Take the example of New Orleans. Before Hurricane Katrina, New Orleans was one of the most transit-reliant cities in the country, with more daily rides per capita on its transit system than Philadelphia, Seattle, Baltimore, or Portland. Of commuters, 14% took transit to work on an average weekday in 2000. By 2010, the figures had been slashed; just 7.5% of commuters took transit to work, according to the Census. The following map shows that this change occurred across the city.

Drag vertical line from left to right to see before and after (if this does not work for you, view the article in a web browser). “Before” image is from 2000, “after” from 2010. Images from Social Explorer.

The change in transit use has a lot to do with the changes in the city’s demographics before and after the storm; it has become slightly whiter and wealthier. But it also has a lot to do with the terrible transit service that the city has provided. A recent report from local transit advocacy group Ride New Orleans notes that only 36% of the transit trips offered in 2005 were available in 2012, despite a population that was 86% as large as it was in 2005. While in 2005, 80% of routes had scheduled headways of 30 minutes or less during peak hours (and 28% had peak headways of 15 minutes or less), in 2012, only 24% of routes were offered every at least 30 minutes and just 9 percent at least every fifteen minutes.

The result is the following map of service levels, from Ride New Orleans, which demonstrates clearly that service is simply unacceptable. The red routes in the map illustrate routes that serve customers with headways of more than 30 minutes. Only the green routes — which are the Canal-Cemetery and St. Charles Streetcar routes — come at least every fifteen minutes. Most of the city has truly insufficient transit options. Non-white neighborhoods have been particularly hard hit.

But people are streaming back into the buses and streetcars nonetheless. Trips per revenue hour, which measures service efficiency, are now almost as high as they were in the early 2000s and continue to rise. In fact, the New Orleans system now beats out what are considered respectable transit agencies in Miami, Minneapolis, and St. Louis on that count. And ridership continues to grow. Fortunately, Veolia — a private-sector* transport provider that runs New Orleans’ transit system under contract — has been expanding service to meet demand. In January, it added some new routes; in September, it is restoring service to an additional 13 routes. Things are looking up on the operational front, but the system will still be far less effective than it was before Katrina. Yet the city’s transport planners are also laying out plans for a different type of improvement: Many more streetcar lines running throughout the city, as illustrated in the map at the top of this article.

Last month, local planners revealed a $3.5 billion expansion plan that is contingent on securing funding from a number of sources. The proposal suggests 34 track-miles of new streetcar service by 2030, going far beyond the “Desire” streetcar that is currently partially under development along Rampart Street north of the French Quarter. A new line would extend north to the University of New Orleans; another east through the Lower Ninth Ward; a couple would flow through the central business district; and a connection would be made between the Canal and St. Charles Streetcars. It’s an appealing vision, particularly when combined with three new bus rapid transit and two light rail lines planners have also envisioned. And, like most U.S. regions, New Orleans’ transit investments so far have been substandard, so planning for the future is reasonable.

But it’s also a plan that comes across as incongruous with the rather disappointing state of the day-to-day bus services that most people rely upon. New Orleans’ plans for new transit expansions are in many ways the consequence of federal guidelines that guarantee that capital expansions will be pushed through whatever the state of regular operations. Because transit support from Washington, D.C. explicitly prevents spending on operations for most cities, it would be a mistake for New Orleans to pass up on the funds available for new construction.

Indeed, from a budgetary perspective, there is nothing about plans for new transit expansions that either prevent better operations or encourage it; operations and capital budgets might as well be coming from different agencies altogether. The Canal Street Streetcar is only ten years old, but its City Park/Museum branch only has trains operating every half hour, even at peak. The Loyola-UPT Streetcar, which opened last year, only provides service every 20 minutes, including at peak, not enough to allow people to rely on transit without having to consult a schedule, which should be a goal of transit operations planning.

What is the point of making the substantial investments in these capital projects if the city cannot guarantee that service on those lines will be offered acceptably? How can we be sure that all these new lines being proposed won’t receive similar mistreatment for the day-to-day user? New Orleans’ situation is not unique. Because local and state governments are expected to fund transit operations, the provision of service throughout the U.S. is highly inequitable; indeed, evidence suggests that poorer regions like New Orleans are simply unable to pay for the kinds of excellent day-to-day transit services that wealthier regions can. But both rich and poor regions are able to invest new lines, because the federal government commits to those projects. Whether these lines are funded to actually serve the people nearby, though, is another question.

One appropriate federal policy response might be to require that transit agencies receiving funds for major capital expansions guarantee that service on those new lines meets some minimum, such as headways of ten minutes or less during peak hours and fifteen minutes or less off-peak, as long as other system operations are not negatively affected. If transit agencies respond by suggesting that projected ridership doesn’t justify such service levels, perhaps such lines shouldn’t be funded at all.

* Confusingly, Veolia is a subsidiary of the French company Transdev, which is 50% owned by the French Caisse des Dépôts and 50% owned by Veolia Environnement. The Caisse is effectively a public bank controlled by the French government, and Veolia Environnement, which has some private investors, is also owned in part by the French state and in part by… the Caisse (9.3%). Which means that New Orleans’ public transit, oddly enough, is operated by a company whose primary owner is the French state. Globalization is confusing.