Transportation System Design Contract - Carter Gobel Inc.
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CITY OF DUBUQUE, IOWA
MEMORANDUM
February 25, 1999
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT:
Innovation Zone - Recommendation to Issue Contract to Carter Gobel
Associates, Inc., Columbia SC, for Transportation System Design
Proposals were received for consulting services to design a community
transportation system. The proposal review committee consisted of:
Tim Moerman, Assistant City manager
Duane Pitcher, Finance Director
Mark Munson, Transit Division Manager
Connie Booth, Transportation Clerk
Steve Jacobs, Project Concern/RT A
Connie Johnson, Alternative Services
Steve Williams, ECIA
The committee is recommending hiring Carter Gobel Associates, Inc., at a cost of
$60,000.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
I1t 1 rc: I/O/
l.t. h.-, '- 'i 1'],1 !lX.,
Michael C. Van Milligen
MCVM/j
Attachment
cc: Barry Lindahl, Corporation Counsel
Tim Moerman, Assistant City Manager
Keyline Transit
2401 Central Avenue
Dubuque, Iowa 52001-3302
(319) 589-4196
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February 22, 1999
TO: Michael C. Van Milligen, City Manager
FROM: Mark A. Munson, Transit Manager 1'1\/\
SUBJECT: Innovation Zone - Recommendation to Issue Contract to Carter Gobel
Associates, Inc., Columbia SC, for Transportation System Design
Purpose
The purpose of this memo is to update you on the RFP selection process for consulting
services to design a community transportation system, and to make recommendation to
award contract to Carter Goble Associates, Inc., Columbia, Sc.
Background
On September 15, 1998, you concurred with my recommendation to initiate a process to
hire a consultant to assist the Innovation Zone Committee on Transportation System
Design and approved establishment of an RFP Review Committee consisting of the
following members:
Tim Moerman, Assistant City Manager
Duane Pitcher, Finance Director
Mark Munson, City of Dubuque, Transit Division Manager
Connie Booth, City of Dubuque, Transportation Clerk
Steve Jacobs, Project Concern/RT A
Connie Johnson, Alternative Services
Steve Williams, ECIA (replacing Dave Leary, Iowa Workforce Development)
On November 30, 1999 the RFP was published in Passenger Transport, and sent to a
vendor list provided by Barbara Singleton, Associate Director for Community
Transportation Association of America (CT AA). A total of eight firms responded with
proposals to our invitation;
Carter Goble Associates Inc., Columbia SC
LKC Consulting Services, Houston, TX
McDonald Transit Associates, Ft. Worth, TX
The Corrandino Group, Indianapolis, IN
RLS and Associates, Dayton, OH
Jenkins and Quinn, Johnstown, PA
Nelson/Nygaard, Portland, OR
Abrams-Cherwony, Philadelphia, P A
Service
People
In tegri ty
Responsibility
Innovation
Teamwork
Upon review of the evaluation criteria established in the RFP documents, the RFP Review
Committee selected Carter Goble Associates, Inc., LKC Consulting Services, McDonald
Transit Associates and Abrams-Cherwony for interviews.
The firms not selected for interview were eliminated on the basis of a lack of previous
similar experience in designing a coordinated transportation system or for planning to use
less experienced staff for critical elements of the study.
After conducting the four interviews February 8-11, 1999, the RFP Review Committee
agreed that the proposal and presentation submitted by Carter Goble Associates, Inc.
revealed strengths in the areas of:
-knowledge and familiarity with review, analysis, planning and assessment of
management and operations of urban fixed route and rural transit operations.
-experience in planning and developing functional coordinated transit systems.
-experience in developing employment transportation systems.
-specific design approach
-relevant skills and abilities of staff proposed for the project.
The all-inclusive maximum price to design a community transportation system from Carter
Goble Associates, Inc. is $60,000. The Innovation Zone Committee on Transportation
System Design has received a $30,000 grant from the Iowa Department of Transportation
and matching funds totaling $30,000 from DMATS. Should you approve of this
committee's recommendation, the design study would begin in March of 1999 with a final
draft report due in the summer of 1999.
Action Requested
I respectfully request your consideration of the recommendation by the RFP Review
Committee to award a contract to Carter Goble Associates, Inc. for the Design of a
Community Transportation System.
cc: RFP Review Committee Members
Michael Koch, Public Works Director
Barbara Singleton, CT AA
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Carter Goble Associates, Inc.
a Technical Proposal to
DESIGN A COMMUNITY
TRANSPORTATION SYSTEM
REVISED STUDY APPROACH
AND COST PROPOSAL
.....,
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submitted to:
KeyLine Transit
proposal due on:
February 18, 1999
submitted by:
Carter Goble Associates, Inc.
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CGA Consulting Services, Inc.
1619 Sumter Street
Columbia, South Carolina 29201
(803) 765-2833 · (803) 779-8518 - FAX
e-mail: cgateamOaol.com
www.cartergoble.com
January 18, 1999
Mark A. Munson, Transit Manager
2401 Central Avenue
Dubuque, IA 52001
Dear Mr. Munson:
Carter Goble Associates, Inc. is very glad that you have selected our
team as the preferred firm to design a community transportation system
for the City and County of Dubuque. We also appreciate having the
opportunity to submit a revised proposal so that we might reach your
budget goal. For your convenience we have used the "strike through"
feature to highlight what we would like to delete. Additions are in italics
and within brackets ([....]). We have deleted the costs associated with
the technical assistance Task 11. Also, we would rely on local staff for
completing portions of some tasks. Thus, the final product would be of
the same quality as was intended in our original submission.
If we have deleted any item that you believe is important, please let us
know. We would want an opportunity to see how we might make other
adjustments that would be satisfactory to you.
Sincerely yours,
~1;'~
Robert T. Goble, A.I.C.P
Principal
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INTRODUCTION
Carter Goble Associates, Inc. understands that numerous organizations in the City and County
of Dubuque desire to make comprehensive efficiency improvements in the passenger
transportation services they operate. The key goal is to achieve maximum resource utilization
and effectiveness. A collaborative process involving agencies, the private sector, citizens, and
other local officials has resulted in a consensus that a transit system that provides greater
flexibility than now exists is needed. This is a result of the many societal, cultural, and
economic changes in the area. A balanced and well-planned mix of transportation modal
alternatives that meets the needs of citizens is the desired end product.
Towards improving the level of transit service available to all county residents, the stakeholders
have already conducted a significant amount of work. Some market research is complete and
data on existing transportation services has been collected. The current focus is on the design
of the "system," and how the new transit network would be governed. Task forces were
established to address these issues. The Design Study task force concluded that a consulting
firm should be retained to develop the system design.
The narrative in this section describes the consulting team's proposed approach and
methodology for completing this efficiency study. The tasks were developed based on our
understanding of the scope of services as set forth in KeyLine Transit's Request for Proposals
(RFP), issued on November 30,1998 as amended on December 17, 1998 and January 7,1999.
Carter Goble Associates remains flexible to amend our proposed approach and/or emphasis, if
local study participants believe that such would enhance the final product.
The proposed work plan is organized by task. For each task the purpose is first summarized.
Next, details about the proposed methodology are explained. At the end of each task the
products that would result are noted as well as the key milestones when meetings in Dubuque
would be held.
TASK 1: PROJECT ACTIVATION
Purpose
. Organize the work effort to ensure maximum on-site productivity;
. Assess information needs;
. Request and review available information;
. Initiate information gathering process; and
. Schedule interviews.
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Methodology
Subtask 1.A - Project Activation. Upon notification of contract award, Carter Goble
Associates' Project Manager (PM) would contact the appropriate staff of KeyLine Transit and/or
the City of Dubuque (as may be appropriate) via telephone. The following items would be
discussed: 1) contract execution and official project start date; 2) possible amendments to this
proposed scope of work; a) protocol for contacting local officials and [names of contact persons
of transportation} agencies; 4) date for the initial on-site meetings; and 5) issues about which the
consulting team may be unaware.
During this initial conversation, the PM would [want to understand the extent of the information
already compiled by local staff. [In the event that sufficient information is not available, the
consulting team would prepare a list of additional information desired.} [This may involve local
staff conducting one-on-one interviews with} requeet a liet of selected local officials and
stakeholders (key policymakers) to bo interviewed. Included would be persons representing the
following kinds of governments and organizations: City of Dubuque; Dubuque County; Iowa
Department of Transportation; East Central Intergovernmental Association; Greater Dubuque
Development Corporation; and officials of the larger communities in the study area. Involving
these persons early in the planning process produces several results: Officials become informed
about the planning work; they become educated about the potential benefits of coordination /
consolidation; and the coneulting team [all persons involved with the planning process} develop
an awareness of areas of particular interest. The team is then prepared to create strategies
designed to enhance support as well as to overcome opposition. By including the ideas of local
officials into the plan, more stakeholders are secured.
A comprehensive list of all known public, private non-profit, and private for-profit entities which
eitRef provide directly or (:)urehase transportation services would be requested. I ncluded would
be the public (and private) schools in the county.
In addition to policymakers, the consulting team would request assistance in identifying
operations staff (e.g. transportation directors, supervisors, dispatchers, drivers, etc.) of the
larger providers whose input would be valuable in framing the conceptual service design. It
would also be important to meet with representatives of organized labor so that their concerns
are taken into consideration. [Members of the consulting team would conduct these staff
interviews.}
The PM would discuss what specific information might already be available relative to the
services being provided and about the completed market research. Copies of relevant findings
would be requested.
Subtask 1.8 - Prepare Questionnaires and Cover Letters. The consulting team may require
more information about existing services then was recently collected. For example, the exact
routing patterns for subscription services being operated by human service agencies along with
the schedules would be needed in order to design the coordinated system so that it continues to
meet agency needs. Vehicle utilization by time of day would also be critical information.
Additionally, it is important to differentiate between transportation provided for a residential
institution (group homes) from services operated to day programs (since these homes typically
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require immediate access to a vehicle 24 hours per day, 7 days per week). The consulting team
would lead this data collection effort.
The data collection instruments along with appropriate cover letters must be carefully worded
and designed. Carter Goble Associates' information collection instruments would be adapted
for use in this planning assignment. Adaptation would entail eliminating requests for information
already obtained during the collaborative process.
Sinoe numerous Gonsulting to am members Vlould be[Since local staff would be] conducting the
local official interviews, [the consulting team would develop] a questionnaire would also 130
proparod. The instrument would ensure that toam membors [local staff] ask consistent
questions. The perceptions on various coordination/consolidation and needs topics would be
secured.
The PM would oversee the development of the information collection instruments and cover
letters. Copies would be sent to KeyLine for review prior to mailing. Design Study Committee
input could be obtained at the discretion of KeyLine staff.
Subtask 1.C - Organize Initial On-Site Work. The consulting team would request that the
finalized data collection instruments and cover letters be mailed to each identified provider on
the appropriate local letterhead (e.g. City of Dubuque or KeyLine, etc.). A mail morge of 3.genoy
addrossoe would bo eont to tho mailing party '.'ia overnight deli1.'ory on oomputer diskette (or
tranemitted via 0 mail) to minimize the time roquirod looally to prepare tho mailing.
Transportation provider agencies would be asked to assemble pertinent data and information
prior to the interviews. This would allow more time during the interviews for the consulting team
to probe other issues.
Letters to other stakeholders and policymakers would also be mailed on the appropriate local
letterhead. The questionnaire would not be mailed but would be used by [local staff]
interviewers to ensure that consistent questions are asked. A few days after the letters are
mailed, a member of the consulting team would contact each [transportation provider] porcon to
schedule face-to-face interviews. [Local staff would be requested to schedule their interviews
with the local officials.]
Product(s) I Meetings
1. Data collection instruments to compile any needed information would be designed.
2. Cover letters to selected persons would be provided for mailing on the appropriate
local letterhead.
3. Interview schedules would be established.
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TASK 2: INITIAL MEETING AND INTERVIEWS
Purpose
. Meeting of Innovation Zone core group and Design Study Committee;
. Obtain input from local officials, policymakers and others;
. Obtain input from transportation providers ami transportation purchasers;
. Document available services and resources; and
. Confirm facts and the views/opinions of policymakers [to be completed by local staff].
Methodology
Subtask 2.A - Initial Meetings. One purpose of the initial meeting would be to review the
goals, objectives, and responsibilities for this work program. An open dialog between the
Innovation Zone core group\ Design Study Committee\ and the consulting team would help
clarify and refine the proposed work program and schedule. Design team participants would be
asked to express their ideas and expectations for the study. This would result in all parties
having an understanding of issues important to other study participants. Such would also ensure
that the final design provides a meaningful, realistic, achievable, and efficient service delivery
plan.
While on site for the initial work activities, the consulting team would be available to participate
in public meetings, if additional public input is needed. The consulting team would coordinate
with the appropriate local staff to organize the initial and future public meetings.
Subtask 2.8 - Interview Local Officials I . Following the schedules developed
during Project Activation in Task 1, consulting team momboFs [local staff] would conduct one-
on-one executive interviews with the selected local officials The consulting
team [Local staff] would [be asked to] complete the questionnaires during the course of the
interviews. Perceptions about the existing public transit service, human service transportation,
coordination, school pupil transport, and the current and future provision of public funds to
support such services would be recorded. Local official ideas concerning the services of which
they are aware would be secured, as would their perceptions of unmet needs.
[Local staff would be requested to prepare the narratives and confirm the information relative to
stakeholder impressions, opinions, and issues. The consulting team would provide an example
of the information that should be in the interview narratives.]
Subtask 2.C - Meet with Dubuque County Transportation Providers. Meetings with all
transportation providers would be held during the week the consulting team is in Dubuque for
the initial meetings. The meetings would primarily be a tool to confirm or update each agency's
1 Meetings could be joint or separate at the option of local participants.
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transportation program (including school transportation systems that are interested in
participating). The following provides a few examples of the kinds of information that would be
compiled:
. Organizational and management structure;
. Vehicle inventory (accessibility, age, condition, seating capacity, communications
equipment, ownership, funding sources, etc.);
. Service volumes (e.g. vehicle miles and hours, annual/daily passenger trips, etc.);
. Annual expenditures on transportation;
. Transportation support facilities (administrative, operations, maintenance, dispatch,
etc.);
. Route descriptions and maps;
. Service area;
. Itemization of expenses (administration and operating);
. Funding and amounts by source;
. Number of operating staff by position classification;
. Planned new services or changes in service;
. Populations served;
. Eligibility criteria;
. Required driver training;
. Policies on escorts/aides;
. Service availability restrictions;
. Labor agreements; and
. Perceived unmet demand.
Ideally, all providers would have completed most of the survey in advance of the interviews. The
survey would be reviewed with each spokesperson. Missing or incomplete information would be
requested during the interview. The consultant would want to capture sufficient information in
order to design a Community Transportation System that meets the needs of participant
organizations as well as the public. Thus, the consulting team would need to know exactly what
services are being provided. Also, a portion of the survey would be devoted to unmet needs and
coordination perceptions.
Items such as brochures, job descriptions, current schedules, route diagrams, operating policies
and procedures, existing plans/planning documents, and similar items would be collected at
these meetings.
Subtask 2.0 - Compile Information on Providers in Surrounding Counties. In some
instances there are providers from other counties who transport across county lines. If this is
the case, there may be opportunities to coordinate the Dubuque County service with these out-
of-county providers. Through an initial telephone query [to be completed by local staff], a
determination would be made as to whether or not there are providers from other counties who
are transporting into Dubuque. Should such be discovered, information about those services
would be requested from those providers that express an interest in coordinating with Dubuque
County. For services that appear to have potential, the route patterns, schedules, days/hours of
service, fares and pass programs, etc., would be requested [by local staff]. This information
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would be included in the first technical memorandum. [The narratives about other regional
transportation services prepared by local staff would be requested by the consulting team.}
Subtask 2.E - Interview Narratives and Confirmation. Following the one-on-one interviews,
the consulting team [and local staff} would prepare [their respective} interview narratives. For
policymakers, the following kinds of information would be documented: their opinions about
available services; interest in public and agency transit services; perceptions about
coordination; perceived needs; willingness to support (philosophically and financially) a
coordinated and/or consolidated transit system; their ideas; their concerns; opinions about
possible organizational and management structures; and similar topics.
The provider specific narratives [to be prepared by the consulting team} would describe each
agency's transportation program. Tables would be used to convey financial and statistical
information. Graphics would be developed for showing all routes and services.
Persons interviewed would receive a copy of their individual narratives for review. Requested
changes/corrections would then be made. The consulting team has used this practice for many
years as it ensures that information, data, opinions, and the issues raised by those interviewed
are accurate before publication. The practice also helps build confidence in the planning
process, while avoiding the inadvertent release of erroneous or embarrassing information.
Product(s) I Meetings
1. From the data collected through the survey and interview process, the consulting
team would prepare an inventory for each provider for inclusion in the first technical
memorandum. The profiles would include the following kinds of information:
. Organizational nature of agency;
. Primary mission;
. Base of operation and service area;
. Transportation support facilities;
. Maintenance services;
. Dispatching services;
. Administration and management;
. Vehicle inventory including seating capacity, ownership and description;
· Vehicle utilization by time of day and week;
. Availability of radio communications equipment;
. Accessibility;
. Service schedules;
. Destinations / trip generators;
. Annual service volumes (e.g., trips, miles, hours);
. Ridership composition and number of passenger trips to specific destinations;
. Eligibility requirements;
. Trip priorities;
. Revenues and sources;
. Expenses;
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. Current coordination activities;
. Planned capital improvements including vehicle replacement and expansion
plans; and
. Planned changes to existing services.
2. For fixed route and subscription services2 the following additional details would be
described in narrative or by graphics as appropriate in the first technical
memorandum:
. Name of route;
. Time and place vehicle begins its run on each service day;
. Normal route path;
. The destination of the route;
. The time the vehicle arrives at the destination;
. The time the vehicle departs the destination to return patrons to where they were
first picked up;
. The time the vehicle arrives at the last drop off point;
. The time the vehicle arrives back at its storage location (unless the vehicle then
goes on another route);
. The days of the week or month the route is operated;
. The seating capacity of the vehicle assigned to the route;
. The number of seats which are normally filled; and
. The nature of persons served on the route (e.g., elderly, persons with disabilities,
low income, etc.).
3. The consulting team would prepare comprehensive GIS maps of all fixed
transportation-related services in the study area. A narrative summary would
describe features of each provider's transportation system. Such features would
include the days and hours of service, service schedules, donation or fare structures
(if any), vehicle capacities and available seats, and similar information. Service
overlaps by time of day would next be identified. This information would be a part of
the first technical memorandum.
TASK 3: ESTIMATES OF DEMAND AND TRIP GENERATORS
Purpose
. Determine areas of low, moderate, and high demand for transportation services;
. Define demand by market segment (e.g. general public, low income, elderly, persons
with disabilities).
2 "Subscription services" transport mostly the same persons each operating day and therefore closely
resemble a fixed or route deviation service.
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. Use results to determine vehicle geographic deployment needs/vehicle size; and
. Map the locations to which people need and want to travel.
Methodology
Subtask 3.A - Demand Estimates. Estimating demand for transportation services has
historically been problematic for transportation planners. Many of the modeling programs work
reasonably well in large urban areas but are unreliable in smaller urban and rural areas. In
addition, many modeling programs result in estimates for all person trips, including those taken
by private automobiles. Consequently, in using those models numerous assumptions must be
made. Such assumptions frequently result in unreliable demand estimates.
Recognizing the demand estimation dilemma, in the late 1970's Carter Goble Associates
developed a proprietary demand estimation model. That model incorporates actual ridership
statistics of transportation programs from throughout the United States. No other plannina
aroup can offer this estimatina process. The model, which has been refined over the years, was
designed to recognize differences in geographic and demographic characteristics unique to
communities, counties, and regions. Actual age cohort and poverty data from the Census of the
Population for the study area is compared to actual observed ridership patterns of the transit
programs which comprise the model's database. The model has a track record of holding up
extremely well under scrutiny by numerous demand forecasters at the local, regional, and state
levels.
There are two important features of the CGA demand estimation model. First, the model
recognizes that actual ridership is dependent upon the available service supply. Simply put, the
more service that is provided up to the point of diminishing returns, the higher the ridership
since as supply increases, so does convenience. Secondly, the CGA demand model accounts
for the overlap in population market segments. For example, an elderly person may also be low
income and disabled. The model completes an assignment process whereby persons fitting
into two or more market segments are assigned to the most transportation dependent
population segment. Duplication in demand is therefore avoided.
The model's output is measured in one-way trips per service day. Because of the range of
service supply considerations, estimates for Dubuque County would be generated at three
levels: low, moderate, and high.
Subtask 3.8 - Map Major Trip Generators. Having a map showing the locations of the trip
generators in the county would be important during the service design phase of this work plan.
Assistance from study participants would be requested in locating the region's major
destinations. The consulting team would [request local staff to] tReR map the generators. This
information would graphically show where persons need and want to travel. The following
provide examples of typical destinations:
. Medical and health facilities;
. Human service agency activity centers;
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. Major employment sites;
. Industrial parks;
. Education and training centers;
. Government and judicial centers;
. Shopping districts and malls; and
. Recreational areas.
A master list would be [requested] proparod identifying the major trip generators by name. Each
[should] weYki be numerically coded on a map for quick identification.
Product(s) I Meetings
1. Population concentrations by market segment for each Block Group or Census Tract
in the city and county would be generated in table format.
2. Maps showing the geographic concentrations of the population and the
transportation disadvantaged by market segment (elderly, low income, disabled)
would be prepared.
3. The number of one-way trips per day for each Block Group or Census Tract in the
City and County would be generated in table format.
4. Maps would be generated showing where the highest areas of demand in the study
area are located.
5. A list of trip generators (by name) would be provided.
6. A map showing the location of the trip generators would be created.
TASK 4: PREPARE TECHNICAL MEMORANDUM #1 AND LOCAL MEETINGS
Purpose
. Provide all study participants with a complete understanding of what services are
available and how those services are being provided;
. Enable study participants and the consultant to discuss opportunities for coordinating
services and the degree of coordination that appears to be feasible; and
. Enable study participants to begin prioritizing service improvements relative to
available funding and the Innovation Zone Collaborative Process.
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Methodology
Technical Memorandum #1 would include documentation of the work completed in the first three
tasks [inclusive of those elements completed by local staff]. It would set forth goals and
objectives for this planning work, provide a profile of the study area, describe all transportation
services being provided, and set forth the results of the interviews with policymakers, agency
providers, and local officials. The demand estimates would also be included. In addition, the
following information would be in the memorandum:
. Level of transportation service available to the public;
. Existing coordination activities (formal and informal);
. Service inefficiencies and/or efficiencies;
. Duplication in administration, on-street service, maintenance, etc.;
. Regional travel destinations;
. Service gaps or deficiencies;
. Trip purposes;
. Trip generators;
. Number and types of vehicles;
. Vehicle utilization;
. Transportation support facilities;
. Maintenance services;
. Dispatching and scheduling services;
. Administrative and management practices; and
. Policies and procedures including transportation eligibility requirements, no-shows,
cancellations, onboard ride time limits, etc.
Product(s) I Meetings
1. Ten (10) copies of Technical Memorandum #1, along with a camera-ready copy for
meeting additional reproduction needs have been budgeted. The copies would be
submitted to KeyLine for distribution to the appropriate persons.
2. Allowing about one week for review, the consulting team would meet with study
participants to present the information contained in the technical document.
3. While on site for the presentations, a second public meeting to inform the general
public about progress on the plan would be held if so desired.
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TASK 5: IDENTIFICATION AND EVALUATION OF ALTERNATIVES TO ADDRESS
TRANSPORTATION DEFICIENCIES
Purpose
. Provide study participants with service concepts that would integrate agency and
public transportation services in the most efficient way;
. Provide conceptual design that would meet existing needs and address needs not
now being met (e.g. employment transportation particularly for those persons
impacted by the Family Investment Program);
. Set forth coordination alternatives;
. Provide alternatives for organization, management, and operations; and
. Provide local participants with a method to evaluate alternatives.
Methodology
Subtask 5.A - Determination of Service Design Needs and Choices. While on-site for
presentation of the first technical memorandum, the consulting team would spend time traveling
around the study area, especially areas served by fixed route service. By traveling throughout
the study area, the consulting team would assimilate geographic and other pertinent features
that impact alternative service designs.
The input from study participants and stakeholders, the results of the market research already
completed, the demand forecasts, the assessment of existing transit services, and our team's
visual inspection of the study area, would all be taken into consideration in developing
alternative service concepts. The alternatives would be designed to integrate agency and public
transportation services for connecting the greatest number of persons to the region's major trip
generators, while continuing to serve existing customers. Traditional and innovative options for
meeting journey to work (JTW) trips would be set forth, including ways to address late shift
employment issues. How the alternatives would interrelate to the whole community would be
described.
In completing this subtask, it would be the consulting team's goal to examine the transportation
services for opportunities to eliminate redundancy and inefficient use of capital, to improve
services for existing customers, and to address the unmet demand.
For each service concept the following would be provided: service parameters including days
and hours of service; potential fare structures; vehicle requirements; and preliminary conceptual
route and service plans along with preliminary cost projections.
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Subtask 5.B - Alternative Coordination Concepts. The optimum Community Transportation
System for an area needs to be based on each community's specific needs and resources. The
extent to which the transportation services of many agencies can be consolidated under the
same umbrella, determines the level of coordination that can be achieved. The level of
coordination that can be achieved depends on the willingness of agencies and their customers
to accept change.
A single point of contact for transportation customers is one coordination goal mentioned in the
RFP. Study participants would have the opportunity to share other goals with the consulting
team early in the work program. This subtask would therefore focus on defining the
coordination options that would meet the goals and objectives of local study participants. It is
envisioned that service and non-service coordination and/or consolidation alternatives would be
evaluated. In setting forth the options, all functional areas of a transportation system would be
considered. The advantages and disadvantages of one option over another would be
described. Completing this subtask would result in setting the level of coordination that is
considered feasible by study participants.
Subtask 5.C - [Review of Iowa Statutes). OptioRal OrgaRizatioRal, MaRagemeRt, and
OperatieR& Medels. Thoro 3re numorous organizational, managoment, and oporating
structures. The ohoioos hinge on tho level of coordination desired and looal preferenoes. For
oach sorvioe option under oonsideration by local study participants, the organizational,
managemont, and operatin€l ohoioes would be providod. Tho pros and cons of o3oh, along I:..ith
a rango of tho projeotod ooste, would bo etated. I\ny potontbl institutional barriers to a speoific
structure would be definod.
In the completion of this subtask, a review of Iowa statutes may be necessary relative to the
legal capacity of a particularly attractive organizational structure. Should this occur, tho Carter
Goblo Associatos toam [local staff} would [be requested to} conduct the needed research to
ensure that proper actions are followed during implementation.
Subtask 5.D - Application of Technology to Defined Options. Based upon the service
design options under consideration (and the organization and management of those
alternatives), opportunities to incorporate current technologies (Intelligent Transportation
Systems or ITS) would be defined within the description of each option. Included would be
smart card technology, global positioning systems (GPS) and automatic vehicle locators (AVL) ,
geographic information systems (GIS), scheduling software, onboard data terminals, and other
less sophisticated technologies. The links between particular technologies and specific
alternatives would be explained, and the value of such linkages would be clarified.
Subtask 5.E - Alternative Funding Opportunities. For each of the models being considered,
the consulting team proposes to identify any unique opportunities to secure new/additional
funding. An example may be special federal funds for an ITS linked project or funding through
the Federal Transit Administration's (FTA) Jobs Access Program.
Subtask 5.F - Evaluation of Options. The consulting team would prepare evaluation matrixes
for the service design alternatives and for the organization, management, and operations
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options under each design. A range of evaluation criteria would be developed including the
degree to which each alternative meets the goals/objectives of local participants, how each
would interrelate with the entire community, the ease of implementation, cost, and similar
criteria. Evaluations would then be conducted for each of the following: 1) service design
concepts; 2) appropriate level (degree) of coordination; 3) organizational structure; 4)
management mechanism; and 5) operating structure.
Study participants would be invited (through a mail-out invitation) to conduct their individual
evaluations using either the criteria developed by the consulting team or their own. If study
participants want to complete the evaluations, tho consulting team [local staff] would [be
requested to] tabulate the results for inclusion in the second technical memorandum.
Product(s) I Meetings
1. Preliminary conceptual service improvement alternatives would be prepared.
2. A description of the coordination options would be completed.
3. A description of the organizational, management. and operations alternatives would
be developed.
4. An evaluation matrix with evaluation criteria would be created.
5. Unique new funding opportunities would be identified.
6. The results of the evaluations would be compiled.
TASK 6: PREPARE TECHNICAL MEMORANDUM #2 AND LOCAL MEETINGS
Purpose
. Ensure that study participants understand the service, coordination, organizational,
management, and operations alternatives so that the best structures for the new
Dubuque transit network are chosen; and
. Reach a decision through the Innovation Zone Collaborative Process on the desired
options.
Methodology
Technical Memorandum #2 would include documentation of the work conducted in Task 5. It
would focus on service design alternatives with the intent being to reach a consensus of opinion
among local study participants on: 1) the best service design; 2) level or degree of coordination
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to be included in the final Community Transportation System; and 3) the best organizational,
management, and operating structures.
Allowing sufficient review time, the consultant would meet with study participants to explain the
alternatives and answer questions. Following the on-site meeting, tho oonsultant [local staff]
would [be requested to] prepare a brief memorandum. Copies of the memorandum would be
provided to Keyline for distribution [distributed by KeyLine staff] to study participants. This
document would provide a summary of the discussions held at the meeting and would outline
the alternatives preferred by study participants. This would be important to ensure that the
decision made at the meeting is well documented. Because Tasks 7 and 8 are major work
efforts and cannot be repeated within the budget, the memorandum would provide a checkpoint
prior to significant work on the detailed service plan. Study participants would have a week to
contact KeyLine should there not be unanimous support for the preferred level of coordination,
the service design concepts, and organizational, management, and operations alternatives.
Product(s) I Meetings
1. Ten (10) copies of Technical Memorandum #2, along with a camera-ready copy for
meeting additional reproduction needs have been budgeted. The copies would be
submitted to KeyLine for distribution to the appropriate persons.
2. After allowing about one week for review, the consulting team would meet with the
study participants to present the information contained in the technical document.
3. While on site for the presentations, a third public meeting to inform the general public
about the progress on the plan and to obtain feedback would be held if so desired.
4. A consensus on the transportation program parameters would have been reached.
5. A summary of the consensus (prepared by tho oonGulting toam [local staff]) would be
submitted (through KoyLino) to study participants as a control measure prior to
developing the detailed plan.
TASK 7: DETAilED SERVICE PLAN
Purpose
. Provide a blueprint of the services that are to be implemented including routes,
schedules, fares, operating days and hours, possible contract rate structure, and
other needed details;
. Define the system needs in terms of personnel and capital;
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. Prepare an implementation action plan, responsibility matrix, and activation
schedule; and
. Provide other products as specified herein.
Methodology
Subtask 7.A - System Design. Having reached a consensus on what services are to be
included in the new Community Transportation System, the Carter Goble Associates team
would develop operating details sufficient to enable local staff to proceed with implementation.
For services involving scheduled services, graphics of the route along with sorvioo c:ohodules
would be prepared. Note that in the case of the route graphics, these would be prepared in GIS
format. Tho c:ohodulec: would be propamd in a formula dri':en sproadsheet. The routes aM
schodulos would be provided to the appropriate party at the study's conclusion in electronic
(computer) format. Thic: v:ould onablo looal staff to mako rovisions to tho route pattorns ::mdlor
scheduloc: with minimal offort (as such m'/iEions am nooded in the future). [Route headways
would be recommended.]
For each service area, the days and hours of service would be recommended. For
neighborhood and/or rural sector services, a recommended functional service schedule for
demand response services would be provided should such be a part of the final plan. These
may be necessary to concentrate demand in order to maximize system efficiency. Some of
these demand response services may also take the form of route and/or point deviation
operations.
The design may also include the need for a fare structure and rates for fairly allocating operating
costs among participants. The proposed consulting team has significant experience in
developing fare systems (including tickets, tokens, and coupons). The team also has a great
deal of experience developing agency payment mechanisms that are equitable.3
Subtask 7.8 - Identify Number and Types of Vehicles (and Other Capital) Needed to
Provide Service. Having defined what services are to be operating, the required capital to
support operations can be identified. Included would be the number, types, and sizes of
vehicles necessary to implement the preferred service alternative(s). The vehicle fleet
necessary to implement and maintain services will be directly linked to both the service design
and service frequency. In addition, the extent to which the system is able to maximize the
passenger boardings per vehicle hour will also impact the required number of vehicles, as well
as the geographical coverage area and peak hour requirements (if any).
For route services, the number of vehicles needed to maintain operations would be defined. For
demand response services, the required number of rolling stock would be computed based
upon actual industry experience as to the number of one way trips per day that a vehicle can be
3 In some transportation programs, the first person picked up often must travel much further than if they
went directly to their destination. This is due to the way a route is designed to pick up multiple persons on
a single run. In some payment methods, the first person picked up would be charged for their
inconvenience. Carter Goble Associates' fare and agency payment mechanisms eliminate this inequity.
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expected to provide and the expected daily trips to be provided via this mode, all based on the
level of coordination to be implemented. The fleet composition (sizes) would be recommended
based upon Carter Goble Associates' 1990s survey of other system fleets and discussions with
managers about their "preferred" fleet compositions. Other considerations would include the
condition and suitability of the highway structures to accommodate particular kinds of vehicles,
peak capacity requirements, and travel time considerations.
Once the required vehicles are itemized, a comparison would be made to existing agency
vehicles that may be a part of the initial coordinated operations. Depending on the useful life of
such equipment, a master list of needed new vehicles (replacement and expansion) would be
generated.
It would also be important to identify other capital equipment that may be needed. For example,
services that are open to the general public may necessitate the purchase of fareboxes. A radio
communications system may also be needed. For demand response modes, the consulting
team may recommend the purchase of automated software for scheduling trips, handling
billings, and/or for creating reports. Technology improvements may also be a part of the service
design. These items would all be included in the capital needs assessment and capitalization
plan.
Subtask 7.C - Human Resource Needs and Organizational Plan. Based on the level of
coordination/consolidation, the details relative to how the system would be organized would
have been decided, as would the management structure and operating plan. It will then be
possible to develop a statement of human resource needs. This statement would identify
position titles of persons who would need to oversee system implementation and to maintain on-
going operations. A short general description of the duties for each staff position would be
included as would suggested salary ranges (with input from KeyLine staff on typical salaries in
Dubuque).
Subtask 7.0 - Operating and Administrative Costs. Based on the service design, the total
annual vehicle miles and hours of service would be estimated. Using vehicle miles and hours of
service, the operating costs would be projected. To compute operating costs, the cost structure
of the local provider that appears to have the most comprehensive itemization of expenses
would serve as the base. All fixed administrative and management costs would first be
removed from the cost per mile and hour. The operating costs would then be computed using
the most appropriate unit rate (operating cost per hour or mile).
The administrative and management costs would be computed separately based on the
evaluation of the human resource needs assessment completed in Subtask 7.C. The
administrative/management expense projections would include all expenses (e.g. salaries,
fringe benefits, audit, attorney fees, travel, marketing, etc.).
Subtask 7.E - Facility Assessment. Having defined what services are to be provided, the
level of coordination, the management plan, how maintenance is to be performed, the number
of vehicles, and staffing, gross estimates on the size of a facility needed to house the system
would be computed. Assuming study participants want to fully consolidate transportation
services under a single provider, the estimates would be for a facility that would house the
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following functions: 1) administration and management; 2) dispatch/reservation taking; 3)
operations including driver break room; 4) maintenance; 5) tire and parts storage; 6) vehicle
fueling and cleaning; 8) vehicle storage; 9) vehicle circulation; and 10) parking. Once the total
gross square foot requirements are known, a preliminary cost estimate for constructing a new
facility would be provided (although an existing facility might be available).
Note that this task is not a full facility feasibility study or architectural space program, but the
product would provide guidance on the approximate cost and the total building area necessary
to house the planned system for the next 20 to 25 years. It would serve as the basis for
applying for grants.
If selected for this assignment, based upon the current services, short term expansions, and
longer term service plans, our proposed Facilities Consultant would conduct a preliminary
evaluation as to the facility requirements. This would include the probable magnitude of the
capital project budget required as it relates to the new Community Transportation Program.
Carter Goble Associates offers a unique combination of professional expertise in transportation
planning and facility assessments. In addition to our urban and rural transit planning practice,
our firm also has a major customer base for facilities planning. Over the past few years we
have completed transit facility plans for Advance Transit in Vermont (constructed), Spartanburg
Transit (in A&E phase), Gatlinburg, TN (in pre-construction phase), Rockland County, NY (ready
for or under construction), and Jackson, TN (conceptual plan undergoing final revision).
Subtask 7.E - Implementation Schedule. It is noted that coordination programs and service
improvement changes are not implemented overnight. They are typically implemented in stages
with each added service building on services previously implemented. The purpose of this
subtask would be to create a logical progression for the implementation of the services. It would
also provide the public with a realistic understanding of the implementation time period.
Subtask 7.F - Capitalization Plan. Based on the age of current equipment that may become a
part of the initial system and new (expansion) capital to be purchased and implementation
schedule, a capitalization and replacement schedule (and associated budgets) would be
developed. The plan would cover one complete replacement cycle of all vehicles. The
schedule would be based on useful life standards as defined in Iowa. Traditional and potential
new funding sources would be a part of each year's capital program.
Subtask 7.G - Cost Effectiveness. The consulting team would generate estimates of
ridership relative to the level of service that would be operating once the system is fully
implemented. Anticipated performance measures would be projected. The expected cost
effectiveness could then be computed.
Product(s) I Meetings
1. The routes and schedules would be redesigned and/or realigned with possible mode
changes.
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2. Route maps and schedules would be provided in camera-ready copy plus on disk.
3. Recommendations on days/hours of service, geographic specific modes, and fare
structure would be made.
4. An itemization of vehicles required to operate all services inclusive of seating
capacities and special features would be developed for each mode and service.
5. An itemization of other needed capital equipment would be provided.
6. The master list of needed equipment would be categorized as either replacement or
expansion.
7. Human resource requirements including job titles, a summary description of duties,
and salary ranges would be recommended.
8. Administrative costs would be itemized by line item and operating expenses would
be estimated.
9. An assessment of facility needs would be made and estimates for the cost of new
construction would be provided.
10. The implementation schedule would show the sequence in which new services
would be activated.
11. A capital plan cpanning one oomJ'lleto replaoomont oycle [covering that period of time
until all of the initial agency vehicles are replaced and the full recommended fleet
acquired] of all '.'ohioles would be prepared.
12. Estimates of the total system's cost effectiveness would be prepared.
TASK 8: FINANCIAL PLAN
Purpose
. Explore funding sources that would be new to the Dubuque area;
. Identify potential revenue sources for operations and capital; and
. Compute amount to be paid by participants, local governments, etc.
Methodology
The costs to secure the necessary capital and projections of the costs to maintain service(s)
would have been developed in Task 7. This task would focus on where and how the funds to
capitalize and support the system would be obtained.
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It was noted in Subtask 7.F that coordinated programs are not activated overnight. Rather, new
coordination programs are typically implemented in stages. Adding new services is also done in
stages. The entire process can take anywhere from 6 to 18 months. Thus, while the full capital
and operating costs would be known, it would be important to correlate the funding plan to the
implementation schedule as developed in Task 7.
For the service plan developed, the consulting team would therefore provide a plan for obtaining
the needed revenue that would correspond to the implementation schedule. Thus, those who
are responsible for implementation will have a more realistic picture of the activation costs.
Also, the revenue plan would be useful for purposes of programming funds at the local level
through the Transportation Improvement Plan (TIP) process.
Having a staged implementation program, especially one that spans two or more fiscal periods,
is beneficial in other ways. For example, this helps to ensure that the system and staff are not
initially overwhelmed. Should this occur, participants could quickly become disenchanted. Also,
the implementation costs are not necessarily lumped into a single fiscal year. Thus, startup
funding can be easier to secure.
In addition to providing cost projections, sources of funds for capital and operations would be
identified and explained. Included would be traditional transit funding sources and new funding
through the Federal Transit Administration and U.S. Department of Labor for welfare reform
related transportation expansions. Recommendations on the funding to be applied for would be
included.
Product(s) I Meetings
1. The annual expense and revenue requirements through full implementation would by
developed by type of service.
2. Recommendations on potential funding sources would be made.
TASK 9: PREPARE TECHNICAL MEMORANDUM #3 AND LOCAL MEETINGS
Purpose
. Ensure that study participants concur with the detailed service plan;
. Discuss and perhaps amend the implementation schedule; and
. Secure input from the public.
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Methodology
Technical Memorandum #3 would include documentation of the work effort and results of
completing Tasks 7 and 8. Ten (10) copies of the memorandum, along with a camera-ready
copy for meeting additional reproduction needs, would be submitted to KeyLine for distribution
to study participants. The service plan would provide a description of the service configurations,
modes, specific routes and schedules, fare structure, human resource plan, expenses to
maintain the system, a capital program/plan, and facility needs in sufficient detail so that
participants would be able to visualize how each would operate. The financing plan would be
developed in consideration of the implementation schedule (time frame).
Allowing time for receipt and review of the third memorandum, the consultant would meet with
study participants to secure input. The consultant would be available to provide presentations
to other groups as well and to present the plan at a public meeting.
Product(s) I Meetings
1. The third technical memorandum would be prepared and delivered to KeyLine for
distribution as may be appropriate.
2. A presentation would be provided to study participants and other groups by the
consultant
3. Memorandum #3 would be refined to reflect study participant, citizen, or other
input on the service design and financing plan.
TASK 10: STRATEGIC IMPLEMENTATION PLAN
Purpose
. Provide guidance to local staff involved with implementation as to how best to
proceed; and
. Identify organizations that need to be involved in the implementation process.
Methodology
The strategic implementation plan would provide the framework for local staff to initiate
activation. Strategic actions would be presented in the form of a step-by-step action agenda.
The parties involved with each step (e.g. political leadership, agency boards, labor
organizations, transportation providers, staff, etc.) as well as the entity responsible for
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completing each step would be included. The steps would be listed in the approximate order in
which each should be taken.
In addition to the action steps, a time line for completing each step would also be provided. This
will be important since as previously noted, coordination and change take time. Participant
agencies, their customers, the general public, stakeholders, policymakers, and others need to
have realistic expectations relative to the activation time frame. Otherwise, impatience could
threaten the implementing organization and jeopardize the project.
The final element of the strategic implementation plan would include recommendations for the
formation of appropriate implementation committees. For example, many details concerning
operating policies (e.g. consequences for no-shows, handling cancellations, required driver
training, etc.) will need to be adopted. There will be insurance issues to resolve. Decisions will
need to be made concerning fare policies. Grant applications may be needed. By creating
committees, the implementation process can be more effectively conducted since responsibility
does not fall on only one person.
Product(s)
1. A strategic action plan would be developed in the form of a step-by-step action
agenda.
2. The party or parties responsible for the completion of each step would be specified.
3. The implementation schedule would be provided in the form of a monthly or quarterly
time line, whichever is the most appropriate given the service improvements.
4. Recommendations would be provided on the creation of implementation committees.
TASK 11: TECHNICAL ASSISTANCE
Purpose
. Provide technical af:f:istance and facilitate the dovelopmont of policios and
proceduros for administoring, operating, controlling, and maintaining tho f:Yf:tom;
. Dofino data procossing neodf: and rolatod equipmont and software roquiromonts;
aAG
. Be available for consultation through the implementation process.
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Methodology
Sl:Iotask 11.A Development of Administrati'Je, Reporting, Prosl:Irement, and Fissal
Palisies and ProGedl:lres. The consulting toam would faoilitate the development of
adminiGtrative, roporting, procuromont, and fiscal poliGies and procedures by collecting rolated
policios and proceduros from oach agenoy f3rovider dl:Jring the Task 1 on sito work activitieG.
Tho policies that appear to be a good fit with tho planned system would l;)e rocommendod by the
conGultant. ThiEl would provido for some continuance of existing practice through the tranGition
period.
The consulting toam v:oulc:i provide KeyLino (or othor ontity responsil:llo for implementation)
oxampleG of f3olicios ans procedures blEed in other coordinatod transportation programs for
those aroas not adequately addresses l:ly oxisting provider policies. In thoso caGOS the
consulting team would provise guidanoe and rocommendations on developing new policies and
procedures that meet tho GYGtom's neods.
Sl:Iotask 11.8 Data ColleGtion, COFRpilatian, and Reporting. A mothod for collecting and
roporting financial and oporational data would be providod. For finanoial managemont, the
consultant \\'ould provide a uniform chart of accounts, including a description of the line items.
.^. Gpreadsheet that computeG porformance moaGures (from baGic data entorod on the
sproadsheet) would also be provided on diskette.
Basod upon tho data collection and procesEling roquiromontG and reporting rOGponGibilitios, tho
consulting team v:ould de'.'elop a list of any special and uniquo equipment that may be noeded.
Subtask 11.C fA] - Availability of Consulting Team. The Carter Goble Associates team
would be available to facilitate implementation through telephone communications with the
persons responsible for activating the project. The team would be responsive to requests for
example documents as needed (e.g. inter-governmental agreements, maintenance and safety
plans, revenue control procedures, etc.). Consulting time to create new items, expenses
associated with preparing and delivering products, on-site technical assistance, and similar
expenses that may be incurred would be billed at cost.
Product(s) Meetings
1. Tho consulting team would advise local staff on neesod policies in the functional
aroaG of administration, managoment, fisGal, operations, maintenance, dispatching,
otc. as deomod necoGsary.
2. ExamploEl of policieG for adaptation to the now systom would bo obtainod by tho
consulting to am and provided to the appropriate party (on diGk whon such is
availablo).
d. Equipmont and Goftwaro neess would bo Gpocified.
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4. The consulting team would be available to provide continued technical consulting
support and advisement through implementation.
TASK 12: DRAFT AND FINAL REPORTS
Purpose
. The Draft Final Report provides study participants, citizens, stakeholders,
policymakers, and others one final opportunity to offer comments; and
· The Final Report provides documentation of the planning process and contains the
implementation guide and plan.
Methodology
Subtask 12.A - Draft Final Report. The consulting team would consolidate the contents of
Technical Memoranda #1, #2, and #3 along with the products and results of Tasks 10 and 11
into a single document, which would become the Draft Final Report. Ten (10) copies of the draft
document would be provided to the City of Dubuque, along with a camera-ready copy. Note
that requested changes to the three memoranda would have been made prior to issuing the
Draft Final Report. Thus, study participants will be able to concentrate of the results of Tasks
10 and 11.
Subtask 12.8 - Final Presentations. Allowing sufficient time for the Draft Final Report to be
distributed and reviewed by study participants, the consulting team would present the draft
report in Dubuque to study participants and others in a group meeting to be determined by
study participants and/or the City of Dubuque. Carter Goble Associates' PM would address any
questions, and otherwise receive comments on the draft document. During this visit, a public
meeting could be held to present the draft plan to the general public if desired. Large graphics,
color overheads, and a handout summarizing the final plan would be used for these
presentations. Significant comments and/or questions would be addressed at this meeting and
incorporated into the final document.
Subtask 12.C - Final Report. After allowing sufficient time for the receipt of all comments, the
necessary revisions would be made and the Final Report prepared. Ten (10) copies of the Final
Report would be provided. A camera-ready copy for making additional copies would also be
provided. In addition, a diskette containing pertinent items developed during the planning
process (e.g. route graphics, service schedules, financial plan, capital plan, etc.) would also be
provided.
CGA CARTER GOBLE ASSOCIATES, INC.
4C-23
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4-C
SPECIFIC DESIGN STUDY ApPROACH
Subtask 12.0 - Executive Summary. At the completion of the planning work, the consulting
team would prepare an Executive Summary. The Executive Summary would contain all of the
requirements of the RFP, including a brief account and overview of the: project goals and
objectives; focus of technical assistance efforts; project tasks and key areas of focus; findings
from which recommendations were provided; potential implementation barriers/solutions; and
projected social and economic direct and indirect benefits. Ten (10) copies, along with a
camera-ready copy for meeting additional reproduction needs, would be provided.
Product(s)
1. The Draft and Final project reports would be issued (10 copies each plus a camera-
ready copy).
2. The project manager would provide presentations on the Draft Final Report in
Dubuque.
3. An Executive Summary would be provided (10 copies plus a camera-ready copy).
4. Disks containing the schedules, route patterns, capital plan, and similar products
developed during the work program would be provided to the appropriate local
agency/organization at the conclusion of the study.
TIME SCHEDULE
A proposed study time schedule is provided on the following page.
CGA CARTER GOBLE ASSOCIATES, INC.
4C-24
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