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National Transit Database: Reporting Changes and Clarifications Publication: Federal Register Agency: Federal Transit Administration Byline: Nuria I. Fernandez Date: 3 March 2023 Subjects: American Government  , Buses
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[Federal Register Volume 88, Number 42 (Friday, March 3, 2023)]
[Notices]
[Pages 13497-13508]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-04379]
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DEPARTMENT OF TRANSPORTATION
Federal Transit Administration
[Docket No. FTA-2022-0018]
National Transit Database: Reporting Changes and Clarifications
AGENCY: Federal Transit Administration, Department of Transportation
(DOT).
ACTION: Final Notice; response to comments.
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SUMMARY: This Notice finalizes and responds to comments on proposed
changes to the National Transit Database (NTD) reporting requirements
published in the Federal Register on July 7, 2022.
DATES: Some of the changes will take effect beginning in NTD Report
Year (RY) 2023 or 2024, which corresponds to an agency's fiscal year,
while others will take effect in calendar year (CY) 2023.
FOR FURTHER INFORMATION CONTACT: Thomas Coleman, National Transit
Database Program Manager, FTA Office of Budget and Policy, (202)-366-
5333, thomas.coleman@dot.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
A. Background................................................... 2
B. General Comments............................................. 2
C. New Sample-Based Monthly Data (WE-20)........................ 4
D. General Transit Feed Specification (GTFS).................... 19
E. Collecting Geospatial Data for Demand Response Modes......... 34
F. Emergency Contact Information................................ 41
G. Comments on Vehicle Fuel Type................................ 42
A. Background
The National Transit Database (NTD) is the nation's primary
database for statistics on the transit industry. Pursuant to 49 U.S.C.
5334(k), FTA published a notice in the Federal Register on July 7, 2022
(87 FR 40582), seeking public comment on five changes to NTD reporting
requirements. The comment period closed on September 6, 2022. FTA
received one hundred and ninety-five (195) comments from forty (40)
unique commenters.
The updates to NTD reporting requirements implement changes to
Federal transportation law made by the Bipartisan Infrastructure Law,
enacted as the Infrastructure Investment and Jobs Act (Pub. L. 117-58),
and are informed by input from the transit industry. These changes are
not related to safety and security (S&S) reporting, as FTA proposed S&S
changes in a separate Federal Register notice (87 FR 42539).
B. General Comments
FTA received four general comments on the proposed NTD reporting
requirements.
General: Additional Resources
Two comments indicated that States and rural and Tribal transit
agencies would need additional resources to comply with the proposed
requirements. One commenter noted that new, targeted funding would
likely be required and requested that State Departments of
Transportation be allowed to assist local agencies with reporting
requirements.
[[Page 13498]]
FTA Response: In the sections below, FTA has identified resources
and trainings that are already available, or will be made available in
the next year, to help agencies comply with the new reporting
requirements. FTA also believes that agencies can leverage existing
funding and existing FTA programs to meet the requirements finalized in
this Notice.
General: Uses of Data
One comment asked for additional detail on the current and future
purposes of the proposed requirements.
FTA Response: Since each reporting requirement finalized by this
Notice has a different use case, the purposes and uses of the data
collected are described more fully for each requirement below.
Generally, data collected through these requirements will provide FTA
and other stakeholders with more complete information on national
ridership trends, geographic service area coverage, and fuel usage.
General: Public Health Crisis
One comment indicated that making the proposed reporting changes in
the wake of the COVID-19 pandemic could be an overcorrection, as the
conditions that led to prior reporting challenges are unlikely to occur
again.
FTA Response: The COVID-19 pandemic was one of several factors
influencing the proposed reporting changes. The proposals also fulfill
statutory obligations and meet other identified reporting needs. For
example, FTA proposed the geographic service area coverage reporting
requirements, as described in sections D and E of this Notice, in
response to a statutory requirement under the BIL emergency contact
collection, described in section F, is relevant for all categories of
emergencies. Vehicle fuel type reporting is part of a longer-term
effort to improve fuel tracking and promote sustainability.
FTA proposed the WE-20 weekly reference reporting requirement in
part due to the need to have timely data during the COVID-19 pandemic;
however, its necessity is not diminished in the absence of a pandemic.
Timely data will always be necessary to inform decision-makers at the
Federal, State, and local levels about ridership trends, seasonal
patterns of demand, and ridership recovery. More detail on the WE-20
and its use cases is described in the following section.
C. New Sample-Based Monthly Data (WE-20)
Eighty-one (81) comments responded to FTA's proposal to collect
weekly reference data from a sample set of modal reporters for key
transit service metrics--unlinked passenger trips (UPT) and vehicle
revenue miles (VRM). Four comments supported the new reporting
requirement. One comment explicitly opposed the new reporting
requirement with no reason given. An additional comment opposed the
requirement for small transit providers but noted the potential
benefits of this data collection, including for longitudinal analysis.
WE-20: Administrative Burden
Eighteen comments indicated that this requirement would constitute
an administrative burden, particularly for smaller and rural reporters,
with some stating that the benefit does not outweigh the burden. Many
of these agencies (12 comments) cited staffing concerns as a potential
obstacle for WE-20 reporting, particularly for small and rural
agencies. One agency cited the burden created by validation of new
data. Another expressed concern about the burden on staff who may lack
technical expertise to meet the proposed requirements. Two comments
expressed concerns about resource constraints (i.e., non-staff
resources), with one commenter noting that such constraints have been
exacerbated by the COVID-19 pandemic. One comment expressed concern
about the unequal burden between sampled and non-sampled agencies.
FTA Response: FTA recognizes that the proposed requirements may
increase burden on transit agencies, and that smaller or rural
reporters may face additional challenges in meeting this new reporting
requirement. FTA is mitigating the administrative burden by pursuing a
sample-based approach for collecting these data. The goal of this
sample is to provide a representative nationwide snapshot of transit
ridership and transit service levels. Given the stratified random
sampling methodology, it is possible that only a small number of small
and rural reporters will be selected for the sample for any given
sampling period. If selected for the sample, a small reporter will be
required to report the data for a limited period of time, after which a
different set of small reporters will be selected for the sample.
Furthermore, as described in the initial proposal, FTA will make
``sampling adjustments as needed based on unavailable modes, reporters
without weekly data access, or other factors.'' If, for example, a
reporter is selected for sampling and is unable to meet the submission
requirements, the reporter may work with their NTD analyst to document
these challenges. The NTD may sample from other reporters that do not
face such challenges. FTA will work alongside these agencies to make
sure that the process of weekly reference reporting is as simple and
frictionless as possible, particularly where challenges exist due to
resource or system constraints.
In addition, FTA is committed to making sure that all agencies at
all levels have the support they need to comply with all NTD
requirements. For example, FTA provides technical assistance to rural
reporters through the National Rural Transit Assistance Program
(NRTAP). NRTAP provides webinars, resource guides, and technology tools
to assist rural and Tribal reporters with meeting NTD requirements.
When the WE-20 requirements take effect, rural and Tribal reporters can
take advantage of these resources to train staff and implement
procedures to meet reporting deadlines. FTA will work with rural
agencies, particularly those selected for the sample, to prioritize
resources that will aid in the completion of the WE-20 form. For larger
agencies, FTA regularly offers trainings on NTD reporting and will work
with sampled urban agencies on targeted training as well.
FTA understands the impact that the COVID-19 pandemic has had on
agency resources. In responses below, FTA details additional resources
available to agencies, and highlights that WE-20 reporting is on a
``best available data'' standard. Together with the change in the
reporting window (see below), FTA believes that WE-20 reporting will be
achievable for all sampled agencies. In addition, FTA will aim to
provide technical assistance to all sampled agencies.
WE-20: Reporting Window
Thirteen comments indicated that the proposed three business-day
window for sampled agencies to report weekly reference WE-20 data was
insufficient time to prepare accurate data, given transit agency
resource constraints and internal data processing timelines. The most
common suggested alternative was seven business days (six comments),
with three other comments requesting 10 business days, and one comment
proposing five business days. Three more comments expressed a desire
for a longer reporting window but did not specify an alternative.
FTA Response: The purpose of the new WE-20 weekly reference
reporting form is to provide timely, relevant data to understand
changes in the transit industry. To meet this objective, it is
necessary to prioritize the rapid delivery
[[Page 13499]]
of transit ridership and transit service data that is sufficiently
accurate to indicate trends. The WE-20 is meant to provide insights on
the current state of transit without the delays associated with the
more comprehensive monthly data collection, which in turn is reconciled
against the annual data that will ultimately be used for the
apportionment of formula grants.
FTA appreciates the commenters who noted that a three business-day
window may be insufficient for some transit agencies. FTA understands
that this may be particularly true for reporting weekly service data,
given resource constraints. In consideration of the comments received,
and in particular those regarding resource constraints, FTA will adopt
a reporting deadline of seven business days for WE-20 data. For
example, if the reference week ended on Sunday, July 16, 2023, the WE-
20 would be due on Tuesday, July 25, 2023.
Allowing seven business days to submit data gives transit agencies
additional time to meet the reporting deadline and should alleviate
some of the concerns raised by the commenters. Moreover, this
requirement should be easier to meet over time as agencies improve or
automate their data collection practices. In addition, FTA will give
agencies three months advance notice if they are selected as part of
the sample, allowing agencies time to train staff in the new
requirements before submissions are due.
WE-20: Relationship to Monthly Reporting
Eleven comments referenced the existing monthly reporting
requirement for full reporters. Six of these comments suggested that
the WE-20 would be duplicative because full reporters would still be
required to report monthly data on the MR-20 form. One commenter noted
that it would need to redesign existing systems that have been designed
for monthly reporting. Four comments questioned how FTA will reconcile
the monthly and/or annual submissions with the weekly reference WE-20
data, with one comment emphasizing that FTA should not seek to
reconcile the data, and another expressing hope that the WE-20 data
will improve FTA's validation processes. Finally, one comment suggested
that instead of creating the WE-20 sample process, FTA should move the
due date for monthly reporting from the 30th to the 15th of each month.
FTA Response: The WE-20 contains a week's worth of data and is
intended as a ``snapshot'' of current trends in service and ridership.
It is not intended to replace the monthly MR-20 reporting by urban
transit providers. The MR-20 is an authoritative record that is
reconciled against the annual report, while the WE-20 will be used to
develop estimates for service data primarily to indicate trends
relative to previous reports.
There is no requirement that agencies reconcile their WE-20 and MR-
20 data. The WE-20 is intended as a ``best available data'' standard,
reported consistently from month-to-month, in contrast to the more
robust MR-20 standards. FTA emphasizes that the WE-20 data is expected
to result in an estimate of ridership rather than a complete record.
This data could be preliminary or minimally validated. In some cases,
FTA may use WE-20 data as a validation check for future submissions but
with the expectation of some variance. For instance, once FTA has
multiple WE-20 submissions, FTA could look for anomalous values (e.g.,
zero, or a WE-20 indicating a -5% decrease in ridership in the same
month that the MR-20 indicates a 4% increase in ridership) that are
most likely due to human error rather than actual change in service
levels. This validation process is consistent with prior NTD data
validation procedures, as described in the NTD Policy Manual at page
14: ``[v]alidation includes, but is not limited to . . . [l]ogic checks
between data items on different forms[.]''
Because the metrics used for the WE-20 are the same as used in
monthly and annual reporting--that is, unlinked passenger trips (UPT)
and vehicle revenue miles (VRM)--agencies will be able to leverage
existing systems to collect and report this data. Reporters can use the
same collection and estimation procedures they would otherwise use (see
below for more information on estimation). Furthermore, FTA understands
that the same level of completeness and validation may not be possible,
and hence the WE-20 data will be reported as the agency's ``best
available'' estimate. Agencies therefore should not need to overhaul
existing systems, but rather should modify them to collect enough data
to estimate ridership for the reference week.
FTA believes that changing the due date on the monthly data from
the 30th to the 15th would not be sufficient to provide the information
that the WE-20 will provide. First and foremost, monthly reporting only
applies to full reporters, and therefore by design excludes ridership
information on rural and Tribal reporters. Furthermore, moving the
deadline to the 15th would still create a 15-day lag in ridership
information, which does not sufficiently increase the timeliness of
national ridership estimates. For these reasons, FTA believes that this
additional reporting requirement is not duplicative of existing NTD
requirements. FTA therefore will not adopt the suggestion to change the
monthly reporting deadlines as an alternative to the WE-20 form.
WE-20: Accuracy, Estimation, and Validation
Eight comments expressed concern about the accuracy or validation
of the weekly sample data, with several comments noting the compressed
reporting time frame and one noting varying ridership patterns. Other
comments supported FTA's proposal to adopt a ``best available data''
standard for the WE-20. Some comments expressed concern that because
the data may be minimally validated, it could result in incorrect or
misleading ridership estimates. Another commenter noted that the data
will not be as accurate as monthly data due to limited sampling size at
the agency. One additional comment sought clarification that weekly
reporting methods would rely on the same estimation methods as existing
requirements (i.e., monthly MR-20 ridership).
FTA Response: FTA recognizes that weekly sample data likely will be
less complete or less thoroughly validated than monthly and annual
reporting. The WE-20 is intended to provide a timely snapshot of
service and ridership data to assess trends at the national level. As
discussed above, FTA will check monthly reporting against weekly WE-20
reports as a form of validation, but anomalies can and will happen. FTA
believes that these inaccuracies will be minimal, and the benefit of
assessing timely ridership trends outweighs the risk of slightly
inaccurate sample data. Unlike the monthly ridership reporting, which
is meant to be authoritative, FTA understands that the weekly sample
data could be preliminary or minimally validated.
For estimation, FTA confirms that the same estimation methods will
be used for weekly reference WE-20 reporting, with the caveat that the
reporting standard for this form will be ``best available data,'' as
described in FTA's proposal. Estimation methods are described in the
NTD Reporting Manual, which can be downloaded here: https://www.transit.dot.gov/ntd/2022-ntd-reporting-policy-manual.
[[Page 13500]]
WE-20: Automatic Passenger Counters (APCs)
Four comments addressed the use of Automatic Passenger Counter
(APC) devices in data collection for the WE-20. Some of the comments
expressed that accurate data would be difficult to report because
transit agencies, or certain modes or vehicles, do not use APC systems.
One comment expressed support for the requirement and noted that
rigorous NTD reporting could result in improvements in APC system
quality. Another comment noted that raw APC data is imperfect, and
often needs to be extrapolated to generate ridership estimates. One
comment suggested that FTA introduce a longer adjustment period to
allow agencies to upgrade their APC devices and software. The final
comment on this subject stated that FTA should provide funding for
agencies to purchase APCs in order to comply with this new reporting
requirement.
FTA Response: FTA appreciates the comments regarding APC systems.
The use of APC devices can greatly aid reporting agencies in collecting
and then transmitting route and ridership data. It should be noted that
the use of an APC, however, is not required for an agency to comply
with new WE-20 reporting requirements. As long as agencies maintain
accurate records of their service in accordance with NTD sampling
standards, they will be able to supply consistent service data for the
WE-20.
With regards to the accuracy of APC systems: the NTD Reporting
Manual (available at https://www.transit.dot.gov/sites/fta.dot.gov/files/2022-09/2022-NTD-Full-Reporting-Policy-Manual-1-0_0.pdf) has
detailed instructions for the use of APCs, including guidance on
appropriate sampling methods and certification procedures. If an agency
adheres to these guidelines, FTA can be reasonably certain of the
accuracy of APC reporting, even with the understanding that estimation
methods may be required. Further, FTA acknowledges that the timeframe
for WE-20 reporting is shorter than that of the monthly MR-20, and FTA
therefore will accept the ``best available data'' on the WE-20, a lower
reporting standard than the more thorough validation used for monthly
reporting.
WE-20: Training and Resources
Three comments expressed the need for FTA to provide training and/
or identify available resources for transit agency staff to meet
reporting requirements. One comment asked for FTA staff to gain
additional technical capacity in order to publish timely data. The
other two comments asked FTA to identify tools and/or resources that
can be used to collect ridership data, particularly for small and rural
reporters.
FTA Response: FTA provides, and will continue to provide, ongoing
training for all NTD reporters based on their reporting module.
Beginning in 2023, FTA will expand those offerings to include the WE-
20, which will include targeted training for agencies selected for the
WE-20. Full virtual courses are offered through the National Transit
Institute, as well as webinars that are available live and with
recordings viewable at any time. A full list of existing training
programs is available at https://www.transit.dot.gov/ntd/trainings-and-conferences. FTA staff will continue to build its expertise and
technical skills to process and publish data in a timely fashion.
FTA's reporting manuals and trainings contain information on best
practices for ridership data collection. One option, discussed above in
this document, is the use of an automatic passenger counter (APC). This
is useful but by no means required. No novel technologies are required
to meet this new requirement. The four reported metrics for the WE-20
are identical to metrics reported on other forms--that is, vehicle
revenue miles (VRM) and unlinked passenger trips (UPT). Agencies can
use existing sampling methods to calculate these ridership metrics. As
such, the methods of collecting this data and the metrics themselves
are not new.
FTA emphasizes that given the stratified random sampling method, it
is possible that only a small number of rural reporters will be
selected for the WE-20 sample for any given sampling period. Further,
if selected for the sample, these reporters will be required to report
the data for the limited sample period of three years. FTA will work
closely with the selected small and rural agencies to ensure they are
capable of meeting this requirement.
WE-20: Unlinked Passenger Trips vs. Linked Passenger Trips
Two comments expressed a desire for FTA to change the reported
metric from Unlinked Passenger Trips (UPT) to Linked Passenger Trips
(LPT). In particular, these agencies highlighted the difficulty of
reporting UPT in the allotted timeframe, as some agencies may need to
perform complicated analyses to calculate UPT from raw ridership data.
FTA Response: FTA appreciates that the reporting timeframe for the
WE-20 is abbreviated. However, given that UPT are used in FTA's other
NTD reporting and data products, FTA believes that ridership reporting
should remain at the UPT level for the WE-20 for the sake of
consistency. As explained above, the WE-20 is meant to lead to an
estimate of service and ridership trends and need not be as precise or
audited in the same way as monthly data. Rather than change the
reporting metric to LPT, FTA encourages each agency to put forth the
``best available data'' for reporting UPT on the WE-20. This will
ensure consistency in dimensions with the NTD's existing data products
with the understanding that some variation will occur.
WE-20: Sample Selection and Size
Two comments expressed concern about the sample selection process
or the sample size. One comment stated that a sample of 400 is large
given that there are only approximately 500 full NTD reporters. The
other comment suggested that FTA limit the sample selection period to
less than three years, or alternatively, exclude smaller agencies
(e.g., agencies with 100 or fewer fixed-route vehicles) from the sample
selection.
FTA Response: With regards to the sample size, FTA is selecting 400
reporters out of all NTD reporters, not just the full NTD reporters.
There are over 2,000 NTD reporters from which the sample will be
selected, which includes but extends beyond the roughly 500 full
reporters. While many of the selected agencies may be full reporters,
the sample will not be entirely drawn from this subset. With that in
mind, FTA still believes that 400 is an appropriate sample size.
As discussed above, the sample is intended to provide a
representative nationwide snapshot of transit ridership and service
levels. As such, FTA will not exclude small agencies from the sample.
However, due to the stratified random sampling methodology, it is
likely that only a few small agencies (such as those with less than 100
VRM) will be selected for any given sampling period. The three-year
period was chosen because it gives agencies time to adapt and
standardize reporting, which can happen only on a sufficient time
horizon; any shorter sample period would create excess turnover and a
loss of institutional knowledge.
WE-20: Frequency of Reporting
Two comments voiced opinions on the frequency of reporting. One
comment stated that their agency's
[[Page 13501]]
service was ``not dynamic enough'' to necessitate weekly reference
reporting. In contrast, another comment expressed support for the
increased frequency of reporting under the proposed WE-20.
FTA Response: FTA does not expect that ridership will vary that
much at many agencies. However, as demonstrated by the COVID-19
pandemic, large shocks can and do affect ridership patterns, and those
shocks can last long after the initial event. For large urban transit
providers, the effects might be immediate but can take a very long time
to return to baseline. For smaller transit providers, the effects may
be less dramatic but persistent. Only by collecting timely and ongoing
data can FTA assess the impact of changes and the overall trends in
transit nationwide. Even for agencies where week-to-week variation is
minimal, the larger patterns still tell an important story about the
state of our nation's transit. For this reason, FTA agrees with the
commenter that supported more frequent ridership reporting through the
WE-20.
WE-20: Data Publication and Use
Two comments requested more information on how FTA plans to use the
sample data and when it will be released.
FTA Response: The primary use of the WE-20 sample data is to
project service and ridership trends on the national level. After
collecting the reference week's data, FTA will aggregate the measures
and construct a time series that will show increases (or decreases) in
service and ridership over time. The function of this time series will
be to provide stakeholders with a timely and well-supported ongoing
estimate of the state of transit, which may then be used to inform FTA
policy.
FTA will confirm its sampling methodology and notify the first
cohort of WE-20 sampled agencies. Notified agencies will be given three
months to prepare for their first WE-20 submission. FTA anticipates
that, with this window in place, the first WE-20 reporting will begin
in summer of 2023.
WE-20: Vanpool Mode Exemption
One comment suggested that vanpool providers be exempt from the WE-
20 reporting requirement, or to require vanpools to report vehicles
operating at maximum service (VOMS) only. The commenter noted that
vanpools face unique challenges in reporting because they rely on
vanpool members to report data.
FTA Response: With recognition that certain modes face unique
challenges, FTA will work alongside all reporters, including vanpool
operators, to accommodate agency or modal constraints as described
above. Given the unique nature of the vanpool mode, and the challenges
associated with reporting ridership, FTA will allow vanpool operators
to report vehicles operating at maximum service (VOMS) as an
alternative to reporting UPT and VRM. In cases where reporting the WE-
20 is entirely impossible for a sampled reporter, FTA encourages the
agency to work with their NTD analyst to document these challenges. FTA
may make sampling adjustments to find applicable replacement reporters
or modes as needed.
WE-20: Small and Rural Reporters
One comment sought clarification on whether the WE-20 reporting
requirement would apply to rural reporters that receive assistance
under 49 U.S.C. 5311. Another comment requested that FTA consider the
capacity of small transit agencies when implementing this proposal.
Several commenters expressed that small reporters may face
technological challenges in reporting the data, noting that many of
these providers still rely on paper or manual data entry formats. One
comment suggested that FTA exclude the smallest agencies in sample
selection.
FTA Response: FTA confirms that the WE-20 will apply to rural and
Tribal reporters as well as urban reporters. The intent of the WE-20
form is to create a representative nationwide sample of the annual NTD
reporting population--that is, of all users who report to the NTD--to
create accurate, ongoing records of transit trends. Due to the
stratified random sampling methodology, not every small or rural
transit agency will be a part of the sample. Nevertheless, all small
and rural agencies are eligible to be selected as sample WE-20
reporters. This extends to Tribal reporters who receive funding under
49 U.S.C. 5311. While FTA will not explicitly exclude the smallest
agencies, our sampling methodology will be designed to create the most
representative sample while also including sampling adjustments as
necessary to ensure agencies have capacity to meet this requirement.
With regards to technological challenges, FTA believes that
compliance with WE-20 reporting is achievable for all agencies. The
metrics collected--UPT and VRM--are already those reported to the NTD
on an annual basis, so agencies can use existing reporting
methodologies to produce these ridership estimates, including manual
data entry. FTA will work closely with sampled agencies, particularly
those in rural areas, to ensure staff are able to report these metrics.
For sampled agencies, this is a change in frequency of reporting and
not type of reporting; therefore, technological challenges should be
minimal.
WE-20: Pilot Programs
One comment suggested that FTA attempt a pilot implementation of
this program for States and Tribes before rolling it out nationwide.
FTA Response: The first sample of the WE-20 will, in many ways,
serve as the pilot of the program. FTA expects there may be challenges
and anomalies in reporting for the first few cycles, as with any new
NTD reporting requirement. However, by introducing a select but sizable
cohort of agencies, FTA and transit agencies will be able to build
institutional knowledge and provide the timely trend data that is
necessary. While FTA is not creating a pilot program per se, FTA
acknowledges that this reporting requirement will be an ongoing process
of refinement on the part of transit agencies and FTA.
WE-20: Optional Reporting
One comment indicated that the WE-20 form should be made optional
for agencies to complete.
FTA Response: Because the WE-20 form is intended to create a
representative nationwide sample of transit ridership and transit
service, this form cannot be made optional. Doing so would introduce
bias, given that agencies providing WE-20 data voluntarily may differ
systematically from agencies that would not do so voluntarily. In rare
cases where reporting the WE-20 is impossible, transit agencies should
contact their NTD analyst to document these challenges. FTA may make
sampling adjustments to find applicable replacement reporters or modes
as needed. FTA, therefore, is not adopting this suggestion.
WE-20: Real Time Data and Alternate Reporting Methods
One comment suggested that FTA should transition to using GTFS-
ride, an extension of the General Transit Feed Specification (discussed
in detail below), to track ridership. A related comment expressed that
FTA should use real time data streams, instead of relying on calculated
(derived) data points like UPT and VRM, while also noting that FTA
should require implementation of historical data standards.
FTA Response: Extensions to GTFS are discussed in more detail in
Part C
[[Page 13502]]
below. FTA notes that many GTFS extensions, including GTFS-ride,
require technical expertise beyond what is available to many agencies.
While agencies may use GTFS-ride or other real-time tracking software
for their own internal ridership tracking, FTA will not adopt this as
an alternative to conventional ridership reporting. It is necessary to
standardize reporting with methods that can be used by all transit
agencies, many of whom lack the capacity to create advanced tracking
mechanisms like GTFS-ride or other real-time reporting mechanisms.
At present, FTA is not proposing to reform historical data
reporting to conform to emerging standards. FTA will continue to
monitor these developments and evaluate them for future Report Years.
The NTD itself serves as FTA's historical record of service information
for agencies. The implementation of WE-20 reporting should not
materially impact historical data standards.
WE-20: Social Vulnerability Index
One comment suggested that FTA incorporate the types of detail
included in the Centers for Disease Control and Prevention (CDC) Social
Vulnerability Index (SVI) into the WE-20 and other NTD reporting.
FTA Response: FTA appreciates the work of all Federal agencies in
presenting comprehensive data on risks and vulnerabilities on a variety
of dimensions. The CDC is no exception, and the available data on the
SVI is a valuable resource for many stakeholders. However, in
presenting its data, FTA focuses first and foremost on transit
providers and the NTD. While FTA does not intend to create analyses
that explicitly merge with the SVI dataset, there is nothing preventing
end-users and stakeholders from accessing FTA's data and merging this
for analytical purposes. In fact, FTA encourages data users to do so.
To maximize available resources for FTA's strategic goals, FTA will not
adopt this suggestion at this time.
After consideration of the comments received, FTA will require the
weekly reference reporting WE-20 form as proposed with two changes: (a)
the reporting window will be extended to seven business days after the
close of the reference week, and (b) vanpool operators will be allowed
to report vehicles operated in maximum service (VOMS) as an alternative
to reporting VRM and UPT data. FTA will implement this requirement for
sampled agencies beginning in the second quarter of calendar year 2023.
D. General Transit Feed Specification (GTFS)
FTA received 67 comments on the proposal to require reporting of
static General Transit Feed Specification (GTFS) data for reporters.
Thirteen comments expressed support for the new reporting requirements.
One of these comments expressed support for adopting a single standard
to compare and contrast across agencies and expressed its belief that
the GTFS standard would be easier to create and maintain over time. A
separate comment expressed opposition to the new requirement but did
not specify a reason.
GTFS: Burden
Eight comments indicated that the GTFS requirement would impose a
burden on smaller agencies, including rural and Tribal reporters. Many
of these agencies reported concerns about insufficient staffing to
create the GTFS feed, with one commenter noting that resource
constraints have been exacerbated by the COVID-19 pandemic. Several of
these comments highlighted the fact that staff may lack the technical
expertise to create a GTFS feed, with one commenter noting that NRTAP's
GTFS Builder assumes familiarity with Excel, Google Maps, and Google
Earth. One comment indicated that creating a GTFS feed could be cost-
prohibitive.
One additional comment expressed concern that Rural Transit
Assistance Program (NRTAP) support is insufficient, as NRTAP is limited
to providing support to agencies that receive funding under 49 U.S.C.
5311.
FTA Response: FTA understands that this requirement may be
burdensome on transit agencies, especially small, rural, and Tribal
operators. However, reporting geographic service area coverage is
statutorily required under the BIL. As described in FTA's proposal, FTA
believes that GTFS is the best way to collect this data for fixed-route
service providers because it meets specific, practical needs in
communicating service information in a standardized and widely used
format. FTA further believes that the value of understanding the scope
and scale of the Nation's fixed-route transit network, even in small
urban, rural, or Tribal areas, outweighs the reporting burden. FTA will
mitigate this burden through resources and training, including through
the National Rural Transit Assistance Program (NRTAP).
NRTAP already has several resources available to help rural
agencies generate GTFS data. For instance, a resource guide for
creating a GTFS dataset is available at https://www.nationalrtap.org/Technology-Tools/GTFS-Builder. This also includes Excel templates that
will allow users to build GTFS data from existing transit schedules and
stop information with little to no additional technical expertise. FTA
has confirmed that NRTAP will make these resources available to all
reporters, not just rural reporters. This alleviates the concern that
NRTAP assistance is too limited.
The GTFS Builder provided by NRTAP does not require advanced
technological skills to create--it only requires the use of Microsoft
Excel, Google Maps and Google Earth. Microsoft Excel is a widely used
spreadsheet software which agencies will likely be familiar with, and
Google Maps and Google Earth are widely used as well. NRTAP's GTFS
Builder includes instructions on working with these latter two tools.
With the available training and guides from FTA and NRTAP, FTA expects
that the creation of a GTFS data set will be feasible for all
applicable agencies.
GTFS: Alternate File Specifications
Eight comments proposed that FTA begin to incorporate newer or
expanded GTFS versions. Two comments called for the adoption of GTFS-
Realtime, a standard which tracks service in real time. One comment
asked for the adoption of GTFS-ride, a GTFS extension used to track
ridership. Three comments called for the NTD to add the Cal-ITP
standard, a GTFS extension which incorporates GTFS-Realtime as well as
requiring contactless payments and other provisions. Two comments
recommended that FTA take an active role in developing and improving
GTFS and related standards, including ``staffing all GTFS standards
meetings.''
FTA Response: The impetus for the creation of new mandatory GTFS
reporting is the BIL's requirement that FTA must collect ``geographic
service area coverage'' data through the NTD. FTA believes that a
standard, static GTFS feed is the best way to meet this requirement.
Furthermore, FTA aims to limit the burden on smaller agencies, who may
be creating a GTFS feed for the first time. Adopting the basic, static
GTFS feed sets a reasonable standard that all agencies can meet. While
agencies are more than welcome to create additional GTFS extensions,
including GTFS-Realtime and GTFS-ride, FTA will not impose those as
requirements at this time. In particular, the creation of a GTFS-
Realtime feed requires software knowledge beyond the basics needed for
a static GTFS, and
[[Page 13503]]
many agencies have already noted that even the creation of a static
GTFS feed may pose an initial challenge.
Regarding the suggestion that FTA take an active role in the
development and updating of the GTFS standard: FTA will monitor and
review updates to the standard, but it will not at this time contribute
to ongoing standard development. GTFS is an open source developed
standard, and as such FTA will continue to allow the community to
discover and address needs and will only adopt modifications that are
germane to FTA's purposes.
GTFS: Training and Resources
Six comments expressed a desire for additional support in meeting
the GTFS reporting requirements, particularly for small and rural
reporters. Three of these comments expressed a desire for additional
training for transit agency staff, administered nationally by FTA and/
or through the National Rural Transit Assistance Program (NRTAP) or
State Departments of Transportation (DOTs).
Two further comments stated that FTA should provide technical
assistance and provide funding to agencies to develop GTFS feeds,
purchase related software and systems, and create in-house technical
assistance resources within State DOTs. One of these comments indicated
that FTA should provide guidance supporting GTFS and open data
standards in transit agency procurement.
The final comment expressed a desire for FTA to create a
partnership among NRTAP, State DOTs, State Transit Associations, and
Regional Planning Associations to share technical assistance resources
and promote training.
FTA Response: FTA already has many ongoing training opportunities
that reporters can utilize, which beginning in calendar year 2023 will
cover new reporting requirements including GTFS. Reporters can use
these trainings to gain the necessary background for NTD reporting
requirements. Full virtual courses are offered through the National
Transit Institute, as well as webinars that are available live and with
recordings viewable at any time. A full list of existing training
programs is available at https://www.transit.dot.gov/ntd/trainings-and-conferences.
For GTFS specifically, a variety of training resources are already
available through NRTAP on their ``GTFS Builder'' site. This includes a
written guidebook, links to FAQs, and video tutorials. The full list of
resources is available at https://www.nationalrtap.org/Technology-Tools/GTFS-Builder/Support.
While FTA will not directly issue NTD guidance to agencies on their
procurement related to GTFS, FTA encourages all agencies who contract
services to ensure a high standard of quality in collection and
delivery of GTFS data.
FTA notes that the only programs required to generate a GTFS feed
are Microsoft Excel and Google Earth, so the creation of a GTFS,
generally speaking, should not require any additional purchased
software. At this time, no additional sources of funding for software
purchases related to GTFS have been created.
While FTA does not have immediate plans to form formal partnerships
with agencies to pool technical assistance resources, FTA will continue
to direct agencies to existing resources, will continue to encourage
and foster agency training, and will serve as a repository of knowledge
and best practices. FTA will continue to consider how best to support
reporters, whether on GTFS specifically or in general, on an ongoing
basis.
GTFS: Validation
Six comments sought clarification on how NTD analysts would conduct
GTFS data validation. One comment inquired whether FTA would inspect
individual .txt files or simply confirm that all the necessary files
are present. Another comment stated that FTA should clarify its
expectations for the validity of GTFS data, such as recommending that
agencies use an available validator like the Mobility Data validator.
FTA Response: FTA and its contractors conduct extensive data
validation processes at all stages of the NTD. The submission of GTFS
data is no exception.
For the file specifications themselves, there are many online GTFS
validators, as detailed in the NRTAP guide to GTFS. One such service,
provided at no cost, can be found at https://reflect.foursquareitp.com/validator/. As noted by the commenter, the Mobility Data validator is
another open source, no cost option for validation, and can be found at
https://github.com/MobilityData/gtfs-validator. Note that this
validation does not necessarily check the content of the dataset but
does ensure that submissions meet the formatting and fields specified
in the GTFS guidelines. These steps can be completed by agencies pre-
submission. While FTA will not make this validation step mandatory,
agencies are encouraged to validate their GTFS feeds before submission
with the same rigor they would validate, for example, financial data
reported to the NTD.
In addition, FTA and its contractors will conduct validation of
GTFS data once it has been submitted to the NTD. The primary validation
check will be that all links to public GTFS are viable and current. The
Uniform Resource Locators (URLs) provided by agencies will be checked
periodically and agencies may be notified if a link they have provided
is broken. Further, as part of FTA's existing NTD validation
procedures, FTA can query the existing database of route information
and service to ensure that data reported is consistent across the GTFS
files and other elements of the NTD. This validation process is
consistent with prior NTD data validation procedures, as described in
the NTD Policy Manual at page 14: ``[v]alidation includes, but is not
limited to . . . [l]ogic checks between data items on different
forms.'' Validation analysts will also manually inspect files and
routes, particularly the shapes.txt file (if provided), as an
additional check on accuracy. Thus, FTA confirms that there will be
some auditing of individual .txt files, though not necessarily for
every submission.
GTFS: Reflecting Service Changes
Three comments sought clarification on how GTFS requirements would
be implemented if service provision or service areas change throughout
the year. Two of these comments suggested that planned service changes
be reflected in GTFS feeds, with one commenter recommending that
service changes be reflected no later than a week prior to the
implementation of such service changes. An additional comment noted
that there are challenges to maintaining an up-to-date inventory of bus
stops, noting that the agency has made frequent service changes due to
factors such as the pandemic, street closures, and detours. The
commenter asked if FTA requires agencies to archive previous GTFS feeds
when service changes.
FTA Response: FTA proposed that agencies establish and submit
``static'' GTFS data beginning in Report Year 2023. At minimum, then,
agencies would need to certify annually as part of their D-10
submission to the NTD that their previously submitted web links are up
to date. All fixed route service changes must be reflected in the web
link. Accordingly, agencies are expected to update their GTFS whenever
service changes. As noted in its proposal, FTA will monitor compliance
by periodically checking GTFS data to ensure that the web links are
viable and current, reflecting fixed
[[Page 13504]]
route stops, routes, and schedules. FTA therefore expects agencies to
maintain accurate, up to date GTFS data throughout the year. Agencies
that experience changes in service will need to update their data
accordingly. Given that this requirement extends to less-resourced
agencies, including Tribal and rural agencies, FTA is not requiring
agencies to update their feeds prior to service changes, nor will it
adopt a strict seven-day timeline for incorporating service changes
into the GTFS feeds. But through periodic validation and clear
communication, FTA will ensure agencies are reflecting service changes
in a timely fashion.
With regards to service changes, FTA notes that the requirement
that ``all fixed route service changes must be reflected'' should be
interpreted to include significant and long-term changes in routes or
services but not temporary disruptions. Street closures and detours
would not require changes in the feed so long as routes are not
adjusted on a long-term basis. Changes in service due to the pandemic,
however, would need to be reflected. Reporters should work with their
validation analysts to determine what service changes merit an update
to the GTFS feed.
FTA does not presently require the hosting of archival/historical
service information. The priority is to maintain accessible, up to date
GTFS feeds reflecting current service. Agencies are welcome to host and
maintain archival copies of GTFS feeds, but FTA will neither require
this nor conduct validation of such archives.
GTFS: ``Feed_info.txt''
Three comments sought clarification on whether one component of the
GTFS specification is required. Specifically, FTA proposed that the
``feed_info.txt'' file would be mandatory, yet the GTFS standard lists
this document as ``optional.''
FTA Response: The ``feed_info.txt'' is described as ``optional''
according to the GTFS standard, and FTA's requirements will conform to
the established GTFS standard as of May 2022. Thus, the
``feed_info.txt'' file will be optional. Agencies can submit a
``feed_info.txt'' file with their GTFS submission if they so choose,
but it will not be a mandatory part of the GTFS submission.
GTFS: Additional .txt files
Two comments noted that the GTFS feeds should include both
``Calendar.txt'' and ``Calendar_date.txt'' files. (FTA proposed that
agencies submit either of the two files.) One of the two comments also
asked FTA to provide additional text describing ``shapes.txt'', which
is listed as an optional part of the GTFS submission. This comment
suggested that FTA describe this file as ``highly recommended.''
FTA Response: As proposed, FTA is aligning its GTFS requirements
with the published GTFS standards as of May 9, 2022. In accordance with
those standards, FTA will only require one of the two Calendar files.
For most agencies, this will be sufficient to capture service. Agencies
are welcome to submit the second of the two files voluntarily, but
given that this requirement applies to a broad spectrum of reporters,
FTA will not require this second file.
FTA appreciates the added detail on the ``shapes.txt'' file. At
this time, ``shapes.txt'' will remain an optional part of the GTFS
submission, given that it requires some further technical skill to
produce.
GTFS: Public Information
Two comments discussed the benefits of sharing GTFS feeds in
publicly accessible formats. The first comment supported FTA's proposal
that all GTFS feeds submitted to the NTD will enter the public domain.
A related comment asked that FTA publish a list of GTFS URLs that
includes certain other information, preferably in comma-separate values
(CSV) format, for data users to access. The commenter further suggested
that FTA could post this CSV file to an open-data portal.
FTA Response: FTA recognizes the need to make this data publicly
available and is grateful for the support in that regard.
The GTFS feed information, like all other data collected by the
NTD, will be published in a publicly accessible format in one or more
of FTA's data products. These products are released annually at https://www.transit.dot.gov/ntd/ntd-data. Once FTA has collected and validated
the GTFS URLs, we will release those in a public and accessible format.
For ease of reference, this may not be in CSV format, as many of our
data users are more familiar with Excel sheets. However, FTA is
confident that end-users who wish to convert published files from Excel
to CSV will be able to do so relatively easily.
GTFS: Password Protection and Other Sharing Restrictions
Two comments expressed concerns about publicly sharing GTFS data.
One comment sought clarification on the requirement that the GTFS data
not be password protected, based on their use of an existing password-
protected application programming interface (API). The second comment
noted that some agencies have contracts that prevent them from sharing
GTFS feeds publicly.
FTA Response: The GTFS reporting requirements are intended to
fulfill the BILaw ``geographic service area coverage'' requirement and
will make transit route and service information accessible to the
public to the greatest degree possible. Prospective data users should
be able to go onto an agency's website and access GTFS information with
as few barriers as practicable. FTA recognizes that there are potential
information technology (IT) security concerns, including but not
limited to deliberate denial of service (DDOS) attacks. Transit
agencies must balance the need for IT security with the public
provision of GTFS data. Transit agencies can employ solutions other
than password protection for protecting their networks and still be in
full compliance with this requirement.
If an agency password protects or otherwise continues to use
credentialing as a barrier to GTFS data, they should notify their NTD
validation analyst, provide an explanation why this is needed, and
provide appropriate credentials to access the data. As described in
FTA's proposal, if an agency is not able to host their GTFS feed in a
web link accessible by FTA, they may submit it via alternative means,
including email.
As an alternative option to hosting the data directly, agencies can
submit their GTFS data to the National Rural Transit Assistance Program
(NRTAP), who will host their GTFS data in a public (non-password-
protected) format on their behalf. All agencies are eligible to have
NRTAP host this data, even if they are not rural reporters.
Agencies that are under contract for their GTFS feeds should work
with their validation analyst to determine the best option for hosting
their feed. If the contract allows, agencies can have their data hosted
on NRTAP, as described above. If not, FTA will work with the reporter
to determine an appropriate solution.
GTFS: Replacing Existing Requirements
Two comments sought clarification on whether the GTFS data would
replace any existing NTD requirements. One of these comments also asked
FTA to consider whether GTFS data could be used to cross-validate other
NTD data, such as directional route miles, and to consider developing
related tools for transit agencies.
FTA Response: The GTFS data is intended to supplement existing NTD
[[Page 13505]]
reporting. This reporting will fulfil the Bipartisan Infrastructure Law
``geographic service area coverage'' requirement and bring about
greater public access to transit route information. Because FTA has
existing validation protocols in place for other NTD data, including
directional route miles, FTA will not explicitly be using geospatial
data to audit non-geospatial metrics. However, agencies can and should
ensure that there is consistency between their reported metrics and
those reported in the GTFS feed.
Once fully implemented in Report Year (RY) 2023, compliance with
the GTFS requirement will be monitored via an additional certification
on the existing D-10 Form. NTD reporters will be responsible for
maintaining their GTFS data and certifying that the links are viable
and current. This will not supersede or replace any existing NTD
requirements.
GTFS: File Hosting
One comment requested that FTA allow the State to host GTFS feeds
on behalf of rural reporters in the State and provide those URLs
instead.
FTA Response: States are encouraged to support and assist rural
sub-reporters in whatever ways they can in meeting this new
requirement. If hosting agency GTFS feeds in a central location aids in
this process, FTA welcomes this option. Each agency must provide a URL
to their agency's specific GTFS feed, so unique links will need to be
generated, but these can all have the same host site.
GTFS: Optional Reporting
One comment stated that the GTFS submission should be optional.
FTA Response: FTA is required by the Bipartisan Infrastructure Law
to collect ``geospatial service area coverage'' from NTD reporters. As
such, this reporting cannot be made optional. After consideration of
comments received, FTA continues to believe that GTFS is the best way
to implement this statutory requirement for fixed-route service.
Accordingly, FTA is adopting GTFS reporting as a mandatory requirement.
GTFS: Open Data Standards
Two comments called for FTA to support ``open data standards''--
specifically the Mobility Data Interoperability Principles (available
at https://www.interoperablemobility.org/). The comments suggested that
DOT should fund programs, organizations, and infrastructure to further
open data standards. One of the commenters also suggested that FTA
should support interoperability in transit agency information systems.
FTA Response: FTA recognizes the value of having open, accessible
data. The NTD is a publicly viewable resource used by stakeholders and
researchers across the nation. The adoption of GTFS as the NTD's
geospatial standard for fixed-route service is both an acknowledgement
of the hard work that has been done to develop it as an open-source
tool, and a commitment to supporting and maintaining that standard.
However, the NTD must always balance the needs of its most
technologically advanced reporters with those that have more limited
resources and capacity. The adoption of GTFS would not be possible
without the resources identified elsewhere in this Notice, such as
NRTAP's GTFS Builder. The Mobility Data Interoperability Principles
contain many useful extensions that agencies can and should use if they
are capable of doing so; but the institutional support at transit
agencies for these advancing technologies is not at the same level as
for GTFS creation. As such, FTA will not be adopting further open data
standard changes at this time.
FTA will continue to monitor new and emerging technologies for
transit interoperability and assess agencies' capacity and needs. As
more interoperability standards become easier to implement, FTA may
implement new extensions to GTFS for future Report Years. In the
interim, all agencies that have the capacity to adopt more open data
standards are welcome to do so.
GTFS: Temporality of Reporting Requirements
One comment sought clarification on the temporality of reporting
requirements with regards to two elements. First, the comment asked
when FTA would harvest GTFS datasets. The second question asked whether
the GTFS should cover a minimum date range. A related comment suggested
that the NTD should extract the URLs used to host public facing GTFS
data frequently.
FTA Response: FTA will ensure compliance with GTFS requirements in
two ways. The first is for the agencies to certify on the D-10 form
(part of their annual NTD submission) that GTFS links are current and
viable. Agencies will provide their URL through this step, which will
be collected and aggregated by FTA. This is an annual requirement, as
it occurs as part of the existing NTD reporting schedule.
The second verification comes from FTA's inspection. These
inspections will happen ``periodically.'' The timing of these
inspections may vary from agency to agency. Agencies should ensure that
GTFS web links are in working condition throughout the year.
As for the time range described by the feeds, agencies will report
their start and end date in the ``calendar.txt'' file, in accordance
with GTFS standards. The file is set up to cover a week (seven days) of
service, with the expectation that service patterns will repeat for
subsequent weeks or week-to-week variation will be minimal. If there is
a change in service patterns such that one week differs significantly
from another, FTA expects that the agency will update their GTFS feed
accordingly.
GTFS: NTD ID Matching
Two comments requested that FTA clearly define how to handle data
irregularities around NTD ID to GTFS dataset matching, such as when
multiple NTD IDs match to a single GTFS feed. Specifically, the comment
highlighted that there exists a protocol when a single NTD ID
corresponds to several GTFS feeds, but does not define how to handle
when one GTFS feed reflects more than one agency/NTD ID.
FTA Response: FTA is working closely with the Bureau of
Transportation Statistics (BTS) to develop and improve our collection
of GTFS feeds. FTA and BTS are aware of the issue raised by the
commenter and believe it should only affect a small number of
reporters. FTA and BTS are working to resolve the issue promptly. By
the implementation of this reporting requirement in Report Year 2023,
FTA anticipates that the technical issue will be resolved, and will
require no change to the GTFS submissions as described. If agencies
encounter any issues with submission of their GTFS feeds, whether on
NTD ID matching or any other problem, they can contact their NTD
validation analyst.
After consideration of the comments received, FTA will require the
submission of GTFS feeds as proposed, with one change: the
``feed_info.txt'' file will now be considered an optional part of the
GTFS submission. FTA will implement this requirement in Report Year
2023.
E. Collecting Geospatial Data for Demand Response Modes
FTA received 28 comments on the proposal that beginning in Report
Year 2023 certain demand response modes must report geospatial data to
the NTD using a new form. Of these comments, six supported the new form
as proposed. One comment expressed opposition to the new requirements
but did not specify why.
[[Page 13506]]
Demand Response: Other Geospatial File Formats
Eight comments suggested that, either instead of or in addition to
requiring reporters to answer the questions proposed on the form, FTA
should require or allow agencies to submit geospatial files to identify
the areas they serve. The most commonly suggested geospatial file
format was GTFS-Flex, a GTFS extension. Others proposed the use of
GeoJSON files. One comment requested that FTA ask agencies to submit a
map of service areas; another comment suggested the use of geospatial
files but did not specify any file formats.
FTA Response: While FTA acknowledges that geospatial files are
helpful for generating quick views of areas served, the agency has
identified two reasons why allowing reporters to submit these files in
lieu of completing the proposed form would result in insufficient or
inconsistent data collection.
One limitation of requiring geospatial files for demand response is
that there is not a consistent specification or standard. At present,
the most commonly used tool for reporting geospatial data for demand
response modes is GTFS-Flex. However, while some transit agencies have
adopted this specification, not all agencies have done so, nor will all
agencies be able to generate these types of files for their demand
response services. At present, only approximately 100 transit agencies
out of hundreds that have adopted GTFS use GTFS-Flex for their demand
response services. Having multiple standards would make validation of
this data by FTA more difficult and would prevent uniform reporting of
NTD data.
Second, the questions on the new form capture information beyond
geographic areas serviced. The form, as described in FTA's proposal,
includes reporting of service dates, fares charged, and more. Thus,
providing just a geospatial file would not be sufficient to capture all
the information required by the new form. In the interest of ensuring
all reporters submit information in a compatible format, the optimal
solution is for all reporters to use FTA's geospatial form as proposed.
FTA will continue to track the development of specifications and
standards related to geospatial files representing non-fixed route
service for possible adoption at a point in the future.
Demand Response: Administrative Burden
Three comments indicated that this requirement would be unduly
burdensome, especially for small or rural reporters. One comment also
noted that, for larger agencies, the task of listing every census
designated `Place' served by demand response service would be
burdensome. One additional comment suggested that this requirement be
extended to Report Year 2024 to give smaller agencies more time to
prepare.
FTA Response: FTA is committed to providing support and assistance
to small urban, rural, and Tribal reporters. The primary method of
assistance is through the resources of the Rural Transit Assistance
Program (NRTAP). When this requirement takes effect, agencies will be
able to consult with NRTAP and use their tools to assist with training
staff and complying with the new geospatial data reporting
requirements.
For larger agencies, while FTA recognizes they serve a variety of
areas, this is in line with previous NTD reporting. Agencies will need
to list all the `Places' served. FTA notes that this is less cumbersome
than preparing a geospatial file for each of the locations and does not
require separate form submissions for each location. As such, it only
affects a single field on the proposed form, and therefore agencies
should be able to input all areas served in an efficient manner.
Additionally, FTA believes the Report Year 2023 time horizon is
sufficient for agencies to comply with this new requirement. Because
NTD submissions are due after the close of the fiscal year, the
earliest that an agency would have to submit this data is September
2024, with most agencies providing this data in January or April of
2025. This gives agencies between 18 and 24 months to prepare to meet
the new requirements. FTA is confident that all reporters will be able
to meet the new requirements by their required submission date for
Report Year 2023.
Demand Response: Multiple Service Providers
Three comments raised issues regarding the implementation of this
requirement when multiple services are available in an area. One
comment asked FTA to consider that agencies that operate multiple
demand response services will need to be able to report on multiple
services that could have varied funding sources. One comment presented
an alternate version of the form that allows agencies to record
different services on rows instead of separate form submissions. The
third comment suggested that demand response reporters be asked to
report what other modes serve their demand response service areas.
FTA Response: FTA appreciates that demand response service
operators may offer multiple and/or overlapping services. In designing
the form for Report Year 2023, FTA will take the comments regarding
reporting challenges for reporters of multiple services under
advisement. While reporters will need to separately enter information
for each demand response mode operated, the NTD will make the
submission of multiple entries as simple as possible. The intent of the
new form is to capture the requisite information in the most efficient
and useful way possible.
FTA will not require that agencies report other demand response
modes or fixed-route services serving their areas. Asking demand
response reporters to submit this information would be duplicative as
this information is already collected by NTD and can be aggregated and
compared using published data products.
Demand Response: Census Places
One comment sought clarification on the third question proposed to
be included on the new NTD geospatial data reporting form. This
question asks agencies to report Census `Places' served and whether
`Places' are partially or wholly served. An additional comment asked
FTA to consider requesting county-level data from reporters.
FTA Response: The U.S. Census Bureau defines `Places' to include a
variety of formally incorporated geographical areas (i.e., cities,
townships) and unincorporated communities. Because demand response
modes serve a variety of riders across many transit networks, FTA
determined that this flexible definition of place is the most useful
for determining areas served.
A guide to what constitutes a Census `Place' can be found at this
link: https://www.census.gov/content/dam/Census/data/developers/understandingplace.pdf. In many cases, the `Place' served may be the
same as the county served, so FTA will not need to create a separate
mechanism for county-level reporting. When implemented, the NTD form
for the submission of demand response geospatial data will allow users
to submit the appropriate `Places' served and to note whether the
`Places' are wholly served or partially served. For the purposes of
this form, ``wholly served'' refers to an agency that provides demand
response service for the entire area of the relevant `Place,' whereas
``partially served'' refers to an
[[Page 13507]]
agency that only serves a select area of the relevant `Place.'
Demand Response: Changes to Questionnaire
One comment suggested changes to question 4 on the new form. The
comment also provided feedback on how answer fields should be formatted
for questions 6 and 8 on the new form. Regarding question 4, the
comment suggested that FTA should add a follow-up question allowing
agencies to indicate demand response services they provide that are not
ADA paratransit service to capture cases where agencies provide both
complementary paratransit and other transit service. Regarding question
6, the comment suggested that FTA should ask agencies to provide
details on their different eligibility or terms and conditions of
service requirements. Regarding question 8, the comment suggested that
FTA allow multiple selections and an open text field so agencies could
fully describe populations served by demand response service.
FTA Response: FTA appreciates the comments on the proposed form.
FTA is in the process of developing the field entries on the electronic
form for this reporting requirement. Regarding the suggested addition
of a follow-up question to question 4, the intent behind this question
is to capture data on ADA paratransit services. At this time, FTA will
not be adding a follow-up question on other demand response services.
This will minimize burden on agencies completing this form. At present,
FTA is not proposing to collect additional information on question 6
regarding eligibility and terms and conditions, and will be collecting
only a yes/no response. FTA may revisit response options for this field
in the future. Regarding question 8, FTA agrees with the comment and
will work on creating a multiple-response or open text option to the
extent that such a format is consistent with NTD validation use.
Demand Response: ADA Questions
One comment suggested that human service transportation (HST)
rides, including vehicle service hours and miles, should be reported to
the NTD as well as ADA paratransit service. A related comment made
recommendations regarding NTD financial reporting requirements for ADA
paratransit rides that are contracted out.
FTA Response: These comments are outside the scope of the
proposals, so FTA will not address these issues in this Notice.
Demand Response: Technical Assistance
Two comments noted that small agencies may not have the technology
required to meet new geospatial reporting requirements, and such
providers and State DOTs would require assistance and new sources of
funding to meet technology and staffing needs.
FTA Response: FTA has attempted to design the geospatial data
collection form so that it is easy to complete. For example, completing
the form requires no additional technology. Agencies will be able to
input Census `Places' in the same manner as on existing NTD forms and
the data will be collected as text. Agencies will be able to consult
the Census Place website (linked above) to identify areas served.
Because the form does not require additional software or technical
expertise to complete, staffing impacts should also be minimal. FTA
will provide training on how to complete the form to all agencies. A
list of all available NRTAP resources for agencies, which is
continually updated and will be updated with geospatial reporting
information prior to reporting deadlines, is available at https://www.nationalrtap.org/Resource-Center/Resource-Library.
Demand Response: States Reporting on Behalf of Subrecipients
One comment inquired if State DOTs could answer these questions on
behalf of rural subrecipients instead of agencies filling out the forms
themselves.
FTA Response: In general, States complete NTD reports on behalf of
their rural subrecipients, as described in the NTD Reporting Manual.
This demand response form is no exception. State DOTs would therefore
not only be able to complete the forms on behalf of subrecipients, but
they would also be required to do so.
Demand Response: Simplified Reporting
One comment recommended that FTA develop a simplified reporting
process or portal, as well as a method to revise or update the reported
information, for agencies whose staff might have less technical
capacity.
FTA Response: FTA has designed the form to be as straightforward as
possible to reduce the burden on reporters. In addition, FTA offers
periodic trainings on how to report service to the NTD. After
publication of this final Notice, this training will include
information on how to complete this new form. In light of efforts taken
to develop the form, in addition to FTA trainings and resources
available to reporters, FTA does not believe that there is a viable
alternative reporting mechanism that would provide a simplified
process. FTA will adopt the form as proposed and will make every effort
to support agencies reporting their demand response services.
After consideration of the comments received, FTA will require the
submission of the geospatial data form for demand response modes as
proposed. FTA will implement this requirement in Report Year 2023.
F. Emergency Contact Information
FTA received seven comments on the proposal to require agencies to
submit emergency contact information on the P-10 form. Six comments
generally supported the proposal. One comment supported the proposal
noting that it would facilitate better communication during
emergencies.
FTA Response: FTA appreciates the support for this proposal and
agrees that this data will facilitate better communication during
emergencies.
Emergency Contact Information: Contractors
One comment sought clarification on whether the emergency contact
requirements would apply only to the reporter or if they would also
apply to contractors of a reporting agency.
FTA Response: This requirement will only apply to reporting
agencies. It will not apply to contractors. If a reporter contracts out
certain services, it should still provide emergency contact information
for an employee of the reporter who can be reached during emergencies.
After consideration of the comments received, FTA will require the
collection of emergency contact information as proposed. FTA will
implement this requirement in Report Year 2023.
G. Comments on Vehicle Fuel Type
FTA received eight comments on the proposal to extend vehicle fuel
type reporting requirements to all reporters. Six comments supported
the proposed change.
Vehicle Fuel Type: Transit Asset Management (TAM) Alignment
One comment suggested that vehicle fuel type data should be
collected in a way that is consistent with the existing protocols and
standards of the Transit Asset Management (TAM) Program.
FTA Response: FTA strives for consistency in all its data
reporting, through the NTD and other mechanisms. There is currently no
existing mechanism for fuel type
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reporting under the TAM Program. FTA will collect fuel type information
through the NTD from rural, Tribal, and capital asset-only reporters
that is consistent with the current NTD fuel type collection from full
and reduced reporters; the only reporting change is extending the
vehicle fuel type reporting requirement to new categories of reporters.
Vehicle Fuel Type: Fuel Categories
One comment suggested that FTA provide clear fuel categories on the
A-30 form, in light of new and emerging technologies.
FTA Response: For purposes of data validation, the new fuel type
reporting for tribal, rural, and capital asset-only reporters will
remain consistent with previous data collection for full and reduced
reporters. The expansion of vehicle fuel type reporting to new
categories of reporters will not, at this time, include an expansion of
the fuel categories. Currently, the vehicle fuel type categories
include options for both electric propulsion and electric battery.
While FTA may revisit fuel categories for future report years in order
to further incorporate new and emerging technologies, for the upcoming
report year (Report Year 2023) these categories will remain the same.
After consideration of the comments received, FTA will require the
submission of vehicle fuel type information as proposed. FTA will
implement this requirement in Report Year 2023,
Nuria I. Fernandez,
Administrator.
[FR Doc. 2023-04379 Filed 3-2-23; 8:45 am]
BILLING CODE 4910-57-P