Last month, the City of Alexandria took the bold step to eliminate all fares on its DASH bus system. Behind the scenes, the National Capital Region Transportation Planning Board's (TPB) Transportation Land-Use Connections (TLC) program played an important role in making that change happen.
A TLC study released earlier this year looked at three scenarios for reducing the cost of riding DASH. The study found that the most wide-sweeping option, a complete elimination of fares for everyone, would benefit the most people – including low- and moderate-income DASH riders. That option was ultimately adopted.
Although zero fares were proposed independently from the study, the TLC analysis provided evidence to support the proposal and instilled confidence among decision makers to move forward, according to Jen Slesinger, a planner with the City of Alexandria. “During the budgeting process, a lot of questions from the city council were asked and the study was very helpful.”
The TLC Program provides short-term consultant services to local jurisdictions for small planning projects that promote mixed-use, walkable communities and support a variety of transportation alternatives. The program provides consultant assistance for projects ranging from $30,000 to $80,000.
Focusing on essential workers
Alexandria’s new zero-fare policy has gotten a lot of regional, and even national, attention, as transit systems across the country grapple with the effects of the pandemic.
During the worst days of the COVID outbreak in 2020, bus ridership in the region remained higher than train ridership, and it has rebounded more quickly this year. And bus services have been vital for many essential workers– caretakers, cleaners, and other service workers–who often work odd hours and don’t have the luxury of working from home. Many essential workers are lower-income and many do not have access to a car.
The timing of the TLC study was fortuitous. The city submitted the application for TLC in early March 2020–just days before the nationwide COVID lockdowns began. The title of the project was “City of Alexandria Low-Income Fare Pass Assessment” and it was originally intended to look only at subsidized passes for lower-income riders.
“We’re glad that COG was flexible enough to adjust the project scope to add a scenario before it started that looked at complete fare elimination,” said Slesinger.
“During the pandemic, it made a lot of sense to stop collecting fares,” said Alanna McKeeman from Foursquare ITP, the firm that conducted the TLC study. Since fares had been eliminated, at least temporarily, city planners felt it was urgent to know what the effects would be for a permanent zero-fare policy. “We really hustled to get it done.”
One year later, in March of this year–and a couple of months ahead of schedule–the TLC study’s draft report was released. The analysis looked at three scenarios: 1) free fares for all riders on DASH services; 2) free fares for low-income residents on DASH and WMATA services; 3) half-price fares and passes for low-income residents on DASH and WMATA services.
Of the three scenarios, the study found that free fares for all DASH riders (Scenario One) would benefit the most people (including all low- and moderate- income DASH riders), result in the largest increase to DASH ridership, and have the lowest administrative costs and complexity.
Fare-free service has broad benefits
The study found wide benefits from a fare-free service, and in fact, the benefits for low-income people are greater than they otherwise would have been with a means-tested subsidy. There are several reasons for this. First, a subsidized program would use a qualifying determinant (the TLC study suggested providing subsidies to those qualified for the federal Supplemental Nutrition Assistance Program–or SNAP), which would inevitably leave some low-income people out.
More broadly, the simplicity of a completely free bus system would induce more people to use transit even if they otherwise might have qualified for a subsidized ride. The study found that in other cities, low-income people who are eligible for subsidized fares often do not take advantage of the programs, which require them to sign up in advance.
“The estimated benefits of a simple fare-free program helped to convince many decision-makers who were otherwise on the fence about it,” said Slesinger.
At the same time that the fare-free policy was implemented, the DASH system realigned the entire bus network throughout the city and increased the frequency of service. Reactions have been positive. Not only is the new system fare-free but it is more frequent, which is perceived to be an important combination.
Jen Slesinger highlighted the opportunity to attract more “choice” bus riders–people who have the option to drive, but choose to take transit. This will help to build the lobby for bus services more broadly throughout the region and throughout the country. She also stressed the convenience and cost savings for families with kids.
“The cost of family travel is a huge factor keeping people from using transit,” she said, “As parents weigh the costs of paying four or five fares versus everyone jumping in a car.”
Study’s impact was unusually direct
The TLC program, which has funded 156 projects over the last 15 years, typically performs work offering longer-term and more indirect impacts. But the Alexandria fare study shows how small technical assistance efforts can make a big and immediate difference in policy making.
“It was a real privilege to have done this study,” said Alanna McKeeman from Foursquare. “It was one of the most impactful things I’ve had the chance to work on in recent years.”
Alexandria used the study to support an application for state funding from the Transit Ridership Incentive Program, a new statewide grant program dedicated to improving transit’s regional connectivity in urban areas and reducing barriers to transit use by supporting low income and zero fare programming.
The TLC study was in fact part of a larger national conversation about equity and transportation that is reflecting on experiences from the pandemic along with potential opportunities for new funding at the federal and state levels.
At the TPB’s October meeting, staff released a white paper on equity issues related to bus services throughout the region, along with a memorandum summarizing national and local transit fare relief initiatives and experiences.
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Transportation Land-Use Connections program
City of Alexandria Low-Income Fare Pass Assessment - Final Presentation
City of Alexandria Low-Income Fare Pass Assessment - Final Report