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

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Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 101 CHAPTER 6 Research Needs INTRODUCTION Through the course of this study we have identified additional topics of research related to tribal transit. These topic areas will help tribes in the future as they work to enhance and sustain transit programs and give a more in-depth understanding of some specific issues. RESEARCH PROJECTS Assessment of Technical Assistance Approaches The Tribal Transit Program - FTA Section 5311 (c) program was created under SAFETEA-LU to set aside a portion of rural public transit funding specifically for tribal transit programs. Federally recognized tribes would continue to be eligible for funds through state programs as well as through the tribal transit program. The number of tribes accessing this fund to start or enhance their public transit program has been increasing. The number of known tribal transit programs has grown from less than 20 prior to the program to well over 100 today. The need for funding has exceeded the amount of funding available. While not intended to be the only source of funding for tribal transit programs, many tribes have used only the Section 5311 (c) program or possibly one or two other sources of funding. The TCRP H-38 project clearly showed that successful, sustainable tribal transit programs obtained funds from multiple sources. The H-38 research effort found that in addition to using multiple sources of funding, tribes that had received technical assistance to develop a transit plan were more likely to have a sustainable program. There is an identified need to determine the appropriate type and level of technical assistance which should be made available to tribes for identifying potential revenue sources and seeking funding from multiple sources to develop or enhance their transit program. Products of H-38 include an information booklet and a guidebook to provide guidance, information, and resources for tribal planners to develop or enhance a transit program. The materials and processes described in the guidebook will help tribal planners to develop,

Research Needs Chapter 6 Page 102 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report enhance, and sustain their transit program, but many tribes lack the expertise to identify appropriate funding sources and obtain the necessary funding for a sustainable transit program. Research is needed to develop and evaluate technical assistance approaches to determine how best to assist tribes to have a transit program which is sustainable over a long period of time. The objective of the suggested research is to identify appropriate technical assistance approaches and evaluate the benefits of the tech- nical assistance. Tribes will be given assistance to identify funding sources and to seek funding from those sources. Existing funding will be leveraged to obtain additional funding for enhancement of the individual tribal transit programs. The success of the technical assistance will be determined based on enhancement of the tribal transit programs. The researcher will identify three to five tribes which have a transit system, but are relying on only one or two sources of funding. A peer system analysis will be completed to identify tribes which are peers to the selected tribes, but have developed sustainable transit programs using multiple sources of funding and have been able to leverage funding from a variety of sources. An initial workshop will be conducted with the selected tribes and the peers. The workshop will help the tribes to understand the benefits of using multiple sources of funding and will include a presentation of the variety of funding programs which are available for tribes. Each tribe will develop an action plan to seek additional funding and will identify the service which will be enhanced through use of the additional funds. Technical assistance will then be provided to the tribes as they identify specific funding sources they will seek and as they develop requests for the funding. Assistance may come from the research team or from the peer tribes, depending on the specific needs of each tribe. The technical assistance may include preparation of grant applica- tions, requests for funding, and development of funding agreements. The results of the technical assistance will be evaluated based on the success of each tribe in obtaining funding from new sources and the enhancements to the transit services. Measures to be evaluated may include increases in budgets, increased service availability, and changes in ridership.

Chapter 6 Research Needs Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 103 The deliverables of this research project would include the following: 1. Selection of appropriate peer tribal transit systems and com- pletion of a peer-to-peer workshop. 2. Technical assistance provided by peer tribes and members of the research team. 3. A research report documenting the overall process, the tech- nical assistance that was provided, and the results of the technical assistance. Develop Training Materials While this is not technically research, H-38 indicated a need for training materials to accompany the Guidebook. The Guidebook pro- vides information and guidance for tribes and planners to use to develop a service plan and financial plan. However, we see a need for training materials to help tribal transit planners and managers learn the material presented in the Guidebook so they may apply it to their specific situations. As part of H-38, “train the trainer” sessions were held. However, there is a need for more detailed training on each component of the Guidebook. There are many resources for transit already available to tribes. Our research indicates that the more successful tribes make use of these resources, but many other tribes are either not aware of the resources or fail to use them to their advantage. During the testing phase of the Guidebook, participants recognized the value of the Guidebook and saw a need for training to help tribes. Feedback from both the Tribal Technical Assistance Program (TTAP) staff and tribes indicated a need for training materials and the need for funding to develop train- ing materials. Training materials will help the TTAP centers reach out to tribes and build capacity among those working in tribal transit programs. This outreach will be particularly important for those tribes which are not proactive in using resources which may be available. This effort should also include an assessment of training needs among tribal transit programs. One specific area of training that is needed is in financial management. The Federal Transit Administration (FTA) is in the process of developing a training program related to grant com- pliance, and identification and development of training materials should not duplicate, but should supplement the training being developed by the FTA.

Research Needs Chapter 6 Page 104 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Tribal Transit Financial Management Financial management and grant compliance were found to be areas in which many tribes are weak. Tribes have not been funded for subsequent grants because Federal Transit Administration funds were not drawn from the grant. Other tribes have been successful in managing FTA and other grants. What are the best practices in the financial management of tribal transit systems? The study will examine the organizational and administrative environments in which the finance function is performed. It will review the qualifi- cations and training of personnel responsible for overseeing system finances and accounting. The study will identify software applications used by tribes that aid in the tracking of system revenues, expenses, and grants; methods for fare collection, cost accounting, audits, and quality control; processes for preparing system financial statements and annual financial plans; and methods used to effectively com- municate the financial health and timely needs of the transit operation to tribal leadership, system stakeholders, and the community-at-large. Rural Regionalism: An Emerging Concept in Tribal Transit The Coeur d’Alene Tribe Citylink transit service represents a regional partnership comprised of federal, state, county, city, and tribal gov- ernments. The no-fare free bus system serves the reservation and all of northern Idaho. With its expansion outside of the reservation, Citylink operations and maintenance costs have increased. Tribal leadership is seeking more funding partners, especially from the growing number of agencies and municipalities that benefit from Citylink but do not pay for it. The Coeur d’Alene service is an example of an emerging rural regionalism where local tribal operators are evolving into regional service providers. Other tribes participating in or considering rural transit organizations include the Southern Ute Tribe and the Fort Belknap Community. • At what point should the system be classified a regional service? • What performance indicators should trigger the need for a new or modified organizational, operational, and funding strategy? • How should the transition be timed, financed, administered, and structured? What management models and tools will optimize entry into the larger service market? • What are the legal, tax, insurance, and ownership implications and issues?

Chapter 6 Research Needs Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 105 • How can expansion be achieved without compromising the core mission of serving the tribal community? Case studies on tribal transit systems that have transitioned success- fully from local reservation bus services to regional transit delivery systems will be conducted. Best practices and lessons learned will be highlighted. Evolution of Transit Funding There are many uncertainties around federal funding of transit ser- vices while Congress works on reauthorization of the surface trans- portation programs. Many of the funding programs currently avail- able to tribes could change as a result of reauthorization. Following passage of the transportation bill, information on funding sources described in the Guidebook should be updated to reflect any changes which take place. Without an update, many of the funding source descriptions will be out-of-date and no longer useful to tribes. Information similar to that provided in the Guidebook should be provided for the funding programs which are established through reauthorization of the surface transportation bill. Guidebook for States Working With Tribes Many of the issues related to sovereignty of tribes are tied to agree- ments with state governments. While the current research effort looked at the question of tribal sovereignty, the focus was from the perspective of the tribe and ways in which tribes may maintain sovereignty while working with state and local governments. Various approaches were found such as creating a private nonprofit corporation to receive funds from the state. Tribes may also become direct recipients through FTA for funds received through programs administered by the states. This approach allows for a government-to-government agreement with FTA rather than with the state and may avoid some of issues related to waiving sovereignty. The relationships between states and tribes vary significantly from state to state. With such wide variation, there is no consistency. The National Cooperative Highway Research Program (NCHRP) Project 08-65 has the objective “to develop a Guidebook that provides practical strategies for communication, cooperation, and coordination between transportation agencies and tribal communities in order to facilitate successful transportation projects.” Neither the NCHRP project nor the current research address the issue of tribal sovereignty from the perspective of state governments and administration of FTA grant programs for which tribes are eligible. This additional research would look specifically at states and how they

Research Needs Chapter 6 Page 106 Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report work with tribes. States which have good working relationships with tribes and have avoided issues related to sovereignty in their grant process will be researched to determine how they have structured the grant agreements. The FTA Regional offices would be involved in the analysis of working relationships. Case studies of successful working relationships will be identified. All other states working with tribes will be evaluated to determine if the sovereignty concerns relate to state regulations, state laws, or constitutional issues. From this information, a guidebook will be developed to guide states in setting up grant agreements that protect the interests of the states while maintaining the sovereignty of the tribes. Ten workshops, one in each FTA Region, would be conducted over a two-year period. RESEARCH TOPICS A number of additional research topic areas have been identified through this research project and discussions of the Project Panel. These are topic areas and should be considered for development of research problem statements. • Selection and implementation of dispatching and reporting software for tribal transit systems. • Transportation needs of Native American Veterans. • Use of ferry boats, cable cars, and other forms of transit service. • Pedestrian and bicycle improvements needed to support tribal transit service and the safety implications of those improve- ments. • The effect of having different eligibility criteria for seniors and elders in different programs. • Impact of aging of Baby Boomers on tribal transportation services. • Feasibility of bus stops and shelters in rural areas. • Maintenance needs assessments. • Guidance for Handivans. • Use of seat belts and child restraints.

Chapter 6 Research Needs Developing, Enhancing, and Sustaining Tribal Transit Services: Final Research Report Page 107 • Effects of driving under the influence of alcohol and binge drinking among Native Americans. • Enforcement of traffic safety by Tribal Courts. • Staffing requirements and essential skills for transit leadership. • Feasibility of establishing a tribal transportation research program. • Use of Geographic Information Systems with the Indian Reservation Roads Program Road Inventory Field Data System (RIFDS). • Training strategies for tribal transit. • Considerations for use of alternate fuels. • Legal studies including negotiations and waivers, Tribal Employment Rights (TERO), and right-of- way issues including documentation, ownership, and jurisdiction. • Alternate ways for tribes to generate revenue such as tourism, contract maintenance, and advertising. • Analysis of household costs of transportation for Native American households. • Cost-benefit analyses for mobility. • Fare policies and technologies for fare collection. • Performance measures for tribal transit. • Use of safety counter measures by tribes. • Analysis of roadway fatalities on reservation road- ways including teen drivers, alcohol-related fatal- ities, vehicle conditions, and crash response times. • Status of driver’s licenses in Indian Country related to the authority and jurisdiction to issue licenses.

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