Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report (2012)

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ACKNOWLEDGMENT This work was sponsored by the Federal Transit Administration (FTA) in cooperation with the Transit Development Corporation. It was conducted through the Transit Cooperative Research Program (TCRP), which is administered by the Transportation Research Board (TRB) of the National Academies. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FTA, Transit Development Corporation, or AOC endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. DISCLAIMER The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research. They are not necessarily those of the Transportation Research Board, the National Research Council, or the program sponsors. The information contained in this document was taken directly from the submission of the author(s). This material has not been edited by TRB.

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CONTENTS LIST OF TABULATIONS AND ILLUSTRATIONS EXECUTIVE SUMMARY ............................................................................................ 1 Research Objectives ......................................................................................... 1 Information Package ........................................................................................ 3 Guidebook ....................................................................................................... 4 Keys to Sustainability ...................................................................................... 8 Key Findings .................................................................................................. 11 Challenges ..................................................................................................... 11 CHAPTER 1: Literature Review ............................................................................. 13 Works Reviewed ............................................................................................. 13 Previous Planning Projects ............................................................................. 21 Application to Current Research .................................................................... 22 References ..................................................................................................... 24 CHAPTER 2: Findings ............................................................................................ 27 Introduction .................................................................................................. 27 Methodology .................................................................................................. 27 Tribal Characteristics .................................................................................... 31 Purpose of Services Delivered ........................................................................ 39 Types of Service Delivery Schemes ................................................................. 48 Organizational Structures .............................................................................. 52 Cultural Issues .............................................................................................. 61 Environmental Issues .................................................................................... 64 Safety ...................................................................................................... 65 Barriers to Implementing Transit Service ....................................................... 66 Keys to Sustainability .................................................................................... 67 References ..................................................................................................... 71 CHAPTER 3: Funding Tribal Transit Programs ..................................................... 73 Introduction .................................................................................................. 73 State Funding Sources .................................................................................. 75 Innovative Approaches to Local Funding ........................................................ 75 Funding Difficulties and Challenges ............................................................... 84 CHAPTER 4: Mastering the Art of Transit ............................................................ 87 Introduction .................................................................................................. 87 Planning ...................................................................................................... 87 Funding ...................................................................................................... 88 Legal ...................................................................................................... 90 Organizational Structures .............................................................................. 91 Operational ................................................................................................... 93 Culture Integration ........................................................................................ 93 CHAPTER 5: Policy Issues ..................................................................................... 95 Introduction .................................................................................................. 95 Level of Funding for Tribal Transit ................................................................. 95 Grant Award Criteria ..................................................................................... 96 Training and Technical Assistance ................................................................. 97 Indian Reservation Roads (IRR) Funding Formula .......................................... 97

Coordination of Transportation Services ........................................................ 98 Consolidation of Federal Funds ..................................................................... 98 Tribal Employment Rights ............................................................................. 99 CHAPTER 6: Research Needs ............................................................................... 101 Introduction ................................................................................................ 101 Research Projects ........................................................................................ 101 Research Topics ........................................................................................... 106 REFERENCES APPENDIX A: Glossary APPENDIX B: Resources APPENDIX C: Bibliography APPENDIX D: Phase 1 Questionnaire APPENDIX E: Phase 2 Questionnaire

LIST OF TABULATIONS Table 2-1 Phase 1 Participating Tribes ........................................................... 28 Table 2-2 Phase 2 Participating Tribes ........................................................... 30 Table 2-3 Tribes That Were Visited ................................................................ 31 Table 2-4 Types of Service Operated by Tribes ............................................... 48 Table 3-1 Federal Funding for Tribal Transit Programs .................................. 74 Table 3-2 Menominee Indian Tribe – Wisconsin: Example of MRPT 5311 Partnership Fund Sources ........................................................ 78 Table 3-3 Southern Ute Tribe – Colorado: Example of Road Runner Partnership Fund Sources ........................................................ 79 Table 3-4 Coeur d’Alene Tribe – Idaho: Example of Citylink Partnership Fund Sources ........................................................ 83 LIST OF ILLUSTRATIONS Figure 2-1 Locations of Tribes Participating in Phase 1 Survey ........................ 32 Figure 2-2 Locations of Tribes Participating in Phase 2 Survey ........................ 33 Figure 2-3 Other Transportation Programs ...................................................... 40 AUTHORS’ ACKNOWLEDGMENTS: The research reported herein was performed under TCRP Project H-38 by LSC Transportation Consultants, Inc. along with AECOM USA, Inc., Colorado State University, Peter Schauer Associates, and Valerie J. Southern – Transportation Consultant, LLC. Dr. Albert T. Stoddard, P.E., Principal of LSC Transportation Consultants, Inc., was the Project Director and Principal Investigator. The other authors of this report are David Sampson and Jill Cahoon of AECOM, Ron Hall of Colorado State University, Peter Schauer of Peter Schauer Associates, Valerie Southern of Valerie J. Southern – Transportation Consultant LLC, and Tangerine Almeida of LSC Transportation Consultants, Inc. The work was done under the general supervision of Dr. Stoddard at LSC Transportation Consultants, Inc. The authors want to express appreciation and acknowledge the support and assistance of the tribes which participated in each phase of the research. The tribes which participated are men- tioned in Chapter 2 of the Research Report. Without their participation, the research would not have been possible and the Guidebook would not have contained the detailed information that was provided. The research team also gratefully appreciates the assistance and support of the TCRP Project H-38 panel who provided valuable guidance and input for the research effort. This document contains the contractor’s final report on TCRP Project H-38. Three additional products generated by Project H-38 are available on the TRB website at http://www.trb.org/main/blurbs/166797.aspx: (1) TCRP Report 154: Developing, Enhancing, and Sustaining Tribal Transit Services: A Guidebook, which provides an overview of the tribal transit planning process and detailed guidance about the various steps for planning and implementing a tribal transit system; (2) a 16-page full-color brochure, published in 2011 as Native Americans on the Move: Challenges and Successes, with an accompanying PowerPoint presentation; and (3) a PowerPoint presentation describing the entire project.