TRANSIT DEVELOPMENT PLANfor

BALDWIN COUNTY

June 2015

Prepared byThe Middle Georgia Regional Commission

175 Emery Highway – Suite C, Macon, Georgia 31217Telephone: 478 751 6160

Fax: 478 751 6517

“The contents of this publication reflect the views of the author, who is responsible for the facts andaccuracy of the data presented herein. The opinions, findings, and conclusions in this publication arethose of the author and do not necessarily reflect the official views or policies of those of theDepartment of Transportation, State of Georgia or the Federal Highway Administration. This publicationdoes not constitute a standard, specification or regulation.”

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TABLE OF CONTENTS

EXECUTIVE SUMMARY 01

DEMOGRAPHIC ANALYSIS 02

Regional Analysis 02Baldwin County Analysis 05Summary 08

EVALUATION OF EXISTING SERVICES 09

Section 5311 Rural Public Transit 09Department of Human Services (DHS)

Coordinated Transportation Services 09Private Transit Services 12

DEMAND ESTIMATION ANDTRANSIT NEEDS ASSESSMENT 13

Demand Estimation 13Transit Needs Assessment 14

COMMUNITY VISION 16

GOALS AND OBJECTIVES 17

TRANSIT ALTERNATIVES AND RECOMMENDATIONS 20

Rideshare 20Expansion of Existing Services 20Limited Fixed Route Transit Service 21Bicycle and Pedestrian 22

IMPLEMENTATION SCHEDULE 24

CAPITAL IMPROVEMENT AND FINANCIAL SUMMARY 25

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APPENDICES

Appendix A: Maps 27

Appendix B: Georgia College & State University Shuttle Routes 30

Appendix C: City of Milledgeville Bicycle and Pedestrian Facilities 32

LIST OF TABLES

Table 1: Population of Middle Georgia Counties 02

Table 2: Population Density by County Over Time 03

Table 3: Regional Commuting Patterns by County 04

Table 4: Work Commute Mode Share in Georgia by Income Level 06

Table 5: Baldwin County DHS Coordinated Transit Trips 13

Table 6: Baldwin County 5311 Transit Historical Activity 14

Table 7: Baldwin County 5311 Transit Funding Breakdown 25

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EXECUTIVE SUMMARY

The primary purpose of this document is to serve as a needs assessment and planningtool for community leaders in regards to the provision of transit services in BaldwinCounty. The assessment examines existing conditions within Baldwin County, providesanalysis of existing and future transit demand levels, and presents various transitalternatives and recommendations on how best to achieve several identifiedtransportation goals and objectives

According to the Community Transportation Association of America (CTAA), more thanone third of America’s population lives outside of urbanized areas. Nearly 40 percent ofthe country’s transit dependent population – primarily senior citizens, persons withdisabilities and low income individuals – resides in rural areas. Yet in many ruralcommunities, public and community transportation is extremely limited or absent. Thedemographics, mobility needs, and resources of rural areas are much different thanthose of urban areas.

This Transit Development Plan (TDP) is the strategic guide for public transportation inBaldwin County over the next five years. The TDP includes an evaluation of existingservices, an examination of other relevant studies and plans, a review of demographicand travel behavior characteristics of the service area, the development of transitrelated goals and objectives, a demand estimation and needs assessment, proposedtransit alternatives, enhancements and recommendations, and projected capital andoperations costs.

Public transportation is a vital component in most rural communities, with BaldwinCounty being no different. The availability of public transportation provides options tosenior citizens, those without vehicles, and those who are physically or economicallydisadvantaged. The ability to provide a transportation alternative for those who live in arural area is as important as for those who live in a high density metropolitan setting.

The availability of reliable public transportation improves the quality of life in ruralcommunities across the state by providing safe, efficient and economical service. It alsoserves as a vital component necessary for a healthy economy. The Baldwin 20/20Community Committee recognizes that the next five years in Baldwin County are pivotalto shaping public mobility strategies to best help enhance the county’s continued futuregrowth and economic opportunities.

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DEMOGRAPHIC ANALYSIS

Regional Analysis

A regional demographic analysis was performed in order to gain a perspective on whereBaldwin County “fits” within the middle Georgia area. Many of the transit challengesfacing Baldwin County and the City of Milledgeville are similar to those faced byneighboring communities. An area wide analysis is often helpful in identifying sharedproblems and regional solutions.

The middle Georgia region is comprised of 11 counties. These include the counties ofBaldwin, Crawford, Houston, Jones, Macon Bibb, Monroe, Peach, Pulaski, Putnam,Twiggs, and Wilkinson. The current estimated total population of the middle Georgiaregion is approximately 488,399 residents. Given a total land area of 3,549.9 squaremiles, the current population density of Middle Georgia equals 136 persons per squaremile.

Special planning considerations will be necessary to insure that the cities and countiesof Middle Georgia will be able to continue meeting increasing infrastructure needs anddemand for community services brought about by ongoing growth and expansion.Socio economic conditions will also continue to change as the area experiencesadditional development. Thoughtful consideration is necessary to anticipate theparameters and impacts brought about by these changes.

The following table displays the historic and predicted total population figures for the 11middle Georgia counties.

Table 1: Population of Middle Georgia CountiesCounty 1990 2000 2008 2010 2015 2020 2025 2030

Baldwin 39,567 44,700 46,410 45,720 45,840 47,620 49,350 50,970

Crawford 9,030 12,495 12,700 12,630 13,610 15,020 16,520 18,120

Houston 89,662 110,765 133,600 139,900 147,990 153,060 157,890 162,330

Jones 20,798 23,639 27,740 28,669 30,440 32,980 35,650 38,400

Macon Bibb 150,288 153,887 155,050 155,547 158,950 161,970 164,630 166,760

Monroe 17,179 21,757 25,510 26,424 28,370 30,670 33,070 35,540

Peach 21,265 23,668 25,910 27,695 28,820 30,070 31,310 32,480

Pulaski 8,122 9,588 9,890 12,010 11,980 12,270 12,540 12,770

Putnam 14,261 18,812 20,460 21,218 22,640 24,310 26,010 27,700

Twiggs 9,832 10,590 13,340 9,023 8,900 9,050 9,170 9,270

Wilkinson 10,261 10,220 10,070 9,563 9,530 9,620 9,680 9,720

Source U.S. Census Bureau / Woods & Poole Economics, Inc.

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Comparison of Population Density by County

The following table depicts the population density for each of the middle Georgiacounties for the time period between 1990 and the most recent 2010 Census.

Table 2: Population Density by County Over Time

County

1990Population

Density(persons /sq.

mi.)

2000Population

Density(persons /sq.

mi.)

2010Population

Density(persons /sq.

mi.)

Percentchange since

1990

Baldwin 153.06 173.32 177.28 13.7%

Crawford 27.78 38.60 39.02 28.8%

Houston 237.96 295.46 373.17 36.2%

Jones 52.81 60.09 73.60 28.2%

Macon Bibb 601.15 615.95 622.69 3.5%

Monroe 43.41 55.23 67.08 35.3%

Peach 140.73 156.78 183.41 23.3%

Pulaski 32.83 38.78 48.58 32.4%

Putnam 41.40 54.84 61.86 33.1%

Twiggs 27.28 29.40 25.05 8.9%

Wilkinson 22.98 22.90 21.43 7.2%

Total 110.50 124.84 137.58 19.7%Source: Woods & Poole Economics, Inc.

A significant trend, in terms of population density for Middle Georgia, is the foreseeablerise in total population density across the region. With an observed rise in totalpopulation over time, and a finite amount of land, it is only expected that density wouldincrease. Changes in population density across the region mirror the changes in totalpopulation. Putnam County has grown the most in terms of density, followed byCrawford, Monroe, Houston and Jones counties. Wilkinson County has shown adecrease with Macon Bibb County and Pulaski County reflecting only a negligible rise indensity. Baldwin County reflects an increase slightly above the regional average. Thesetrends are expected to continue over the next decade.

The total population of the middle Georgia region as a whole is projected to grow byover 16 percent from 2010 2035. While Macon Bibb County will continue to constitute asignificant proportion of the total population of the middle Georgia region, Macon BibbCounty’s total impact will begin to become less significant given the stable growth ratepredicted for the remainder of the region. Bibb County’s total population is onlyexpected to increase by approximately 5 percent from 2010 to 2035. Houston Countywill continue to evolve as a major contributor in the region. The total population ofHouston County is expected to increase 26.2 percent from 2010 to 2035. At this rate ofgrowth, the total population of Houston County is projected to surpass the totalpopulation of Macon Bibb County in the near future.

Twiggs, Crawford, and Jones counties are also expected to continue to grow at asignificant rate (22.9%, 28.2%, and 24.1%, respectively). Baldwin, Monroe, and Putnam,

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are all expected to grow at a more modest rate, all still besting the regional average(17%, 18.7%, and 16.5%, respectively). Wilkinson (8.5%) and Peach (15.4%) are expectedto grow at a slower rate than the region as a whole, while the population of PulaskiCounty is expected to decline ( 10.2%).

Age Distribution

Age distribution for the middle Georgia region mirrors that of the State of Georgia anddepicts a steadily aging population. According to the U.S. Census Bureau, the increase isdriven by the number of people born during the “Baby Boom” after War World II (19461964). For example, the highest percentage of the population in 1980 falls into the 44and younger categories. In 1990, the larger percentage moved up to the 45 and olderage groups. Finally, in both 2000 and 2010, the largest percentage of the population inthe region and the state is the 55 to 64 age group.

Baldwin, Macon Bibb, Wilkinson, Pulaski, and Putnam counties each have a significantlyhigher percentage of older residents than the other middle Georgia communities. Thus,these communities will want to consider the potential for an aggregated increaseddemand for services and facilities related to this age group. To some extent, increases inthe distribution of older citizens in these localities may represent a shift and migrationof working age adults to other urban areas in search of improved employmentopportunities.

Commuting Patterns

Table 3 below shows the commuting patterns for each county within the middle Georgiaregion. Data for this table was pulled from the US Census “On the Map” website. Asshown in the table, the majority of working residents within the region commute out oftheir home counties and into one of a few regional employment hubs. Macon BibbCounty is the largest regional employment hub, while Houston County is a close second.Regionally, just over 42 percent of the workforce is employed in their home county, andnearly 58 percent commute outside of their home county. This statistic shows the needfor inter county transit connectivity, especially for those counties which have a low incounty commuter percentage.

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Baldwin County Analysis

Demographic information such as total population, concentrations of disabled andelderly populations, poverty status, and household income were analyzed to helpidentify current and possible future transit needs in Baldwin County.

In Middle Georgia, there is a distinct difference between urban and rural communities.For example, Macon Bibb and Houston counties contain a fast paced, urbanized settingwithin a more densely populated area. Baldwin County, along with much of the region,is more rural and more sparsely populated. However, as home to two institutions ofhigher learning, Georgia College and State University (GC&SU) and Georgia MilitaryCollege (GMC), as well as the presence of Baldwin State Prison, the Baldwin Countyexperiences many of the issues faced by urban communities. The challenge of providingadequate public transit service is one such issue.

The 2015 estimated total population of Baldwin County is 45,840 residents according toWoods and Poole Economics, Inc. Baldwin County’s total population grew significantlybetween 1980 and 2010, with a growth rate of 31.3 percent. Most of the growth tookplace in and around the City of Milledgeville and the Lake Sinclair area. Futurepopulation estimates indicate that post recession growth may level off over the nextfive years. The projected rate of growth for Baldwin County is expected to be higherthan most surrounding counties at 11.2 percent over the next 15 years. Transportationneeds for a growing population base similarly build the case for possible expandedtransit service in the county.

The City of Milledgeville also experienced a notable rate of growth from 1980 2010;going from 12,176 residents in 1980 to 17,715 in 2010. The increase is largely attributedto expansion of the city limit boundaries and increased enrollment at the two colleges.The U.S. Census Bureau estimates Milledgeville’s 2014 population at 19,155.

Age Distribution

The age distribution of the population and recent changes in that distribution hasimportant implications for the demand for transit services. Historically, in BaldwinCounty, the largest percentage of the population has been in the 20 to 24 year old ageranges. This is not surprising considering the presence of two colleges. The 18+ agegroups make up 80 percent of the county’s total population. Equally important, from atransportation perspective, is the fact that 12.8 percent of the county’s population is 65years of age and older. This is particularly significant, as elderly persons frequentlyrequire public transportation.

Youth under the age of 15 are a group that tends to use transit services extensivelywhere it is available, as they have not yet reached driving age, and transit offers adegree of independence from parents in accessing after school programs andrecreational activities. For the most part, youth are not served by the current demand

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response service available in Baldwin County, but should be a key target population iffixed route service is eventually considered and implemented.

Race and Ethnicity

Slightly over one half (56.2%) of Baldwin County’s population is white, while just lessthan half (41.3%) are African American, with the rest being other races. The City ofMilledgeville’s racial composition mirrors that of the county; approximately 41.1percent of the population is African American, while 54.5 percent is white.

The most notable shift in ethnic composition in Baldwin County is the increase inresidents of Hispanic ethnicity, with a 274 percent increase from 1990 to 2013. Theincrease in Hispanic population may be the result of a high number of seasonal, manual,and/or service related employment opportunities available in the county. Hispanicpopulations tend to live in areas where there is a variety of seasonal or service relatedjobs. Keeping track of the increase of Hispanic residents can aid the community in termsof determining what additional services may be necessary in order to support thisgrowing demographic group.

Income Levels

Another strong indicator of transit dependency is income, as low income householdstend to be more reliant on public transportation and other modes, in their workcommute patterns. Table 4 below illustrates this fact with US Census data for the Stateof Georgia. A more specific measure of transit need is the population with incomebelow the poverty level. According to the 2014 Georgia County Guide, annual per capitaincome in Baldwin County is $28,533 with 29 percent of the county’s population living inpoverty. Additionally, U.S. Census data confirms that within Baldwin County, theHispanic population has the highest percentage of poverty at 61.7 percent with AfricanAmerican close behind at 38.4 percent. Equally alarming is the almost 14.8 percent ofcounty residents who are age 65 years and older who fall below the poverty level. Ahigh poverty rate may translate into an increased need for various services, which couldinclude transportation.

Table 4: Work Commute Mode Share in Georgia by Income Level

Commute Mode Below 100 percentof the poverty level

100 to 149 percentof the poverty level

At or above 150 percentof the poverty level

Drive Alone 69.4% 73.5% 86.0%Carpool 18.2% 16.7% 9.9%Public Transportation 4.9% 3.9% 1.8%Walk 3.6% 2.6% 1.0%Taxi, Motorcycle,Bicycle, or Other 3.9% 3.2% 1.3%

Work from Home 3.7% 3.1% 4.9%Source: US Census – ACS 2013 5 Year Estimates – Table B08122

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Commuting Patterns

According to the Georgia Department of Labor, almost 73 percent of Baldwin County’sworkforce is made up of Baldwin County residents, with neighboring Hancock andPutnam County providing the highest number of workers commuting to Baldwin Countyfor employment purposes. Additionally, only 20.4 percent of the workforce ageresidents of Baldwin County travel to other counties for their employment. NearbyMacon Bibb County draws the highest percentage (5.3%) of Baldwin County workers.

Senior Population

The elderly population is a category of individuals that have a higher dependence ontransit services, as the ability to drive tends to diminish as individuals become older. Asa community ages, there is an increased need for public transportation services.According to US Census data, between 2000 and 2010, the population of persons 65years old and older in Baldwin County increased 16.1 percent. Woods and PooleEconomics, Inc., projects a 67 percent increase in that same group by the year 2030, fora total 65+ population of 9,170. Measuring the potential impact of a rapidly growingelderly population may be useful in community transit planning.

Another useful measurement is the community’s dependency ratio. The Georgia Stateof the State’s Housing Report from 2003 GSSH defines the dependency ratio as thenumber of children younger than 18 years plus the number of elderly persons 65 yearsold or older per 100 persons, ages 18 to 64 years. According to the 2014 US Censuspopulation estimates, Baldwin County’s dependency ratio stands at 31.7 percent, whichis somewhat lower than the middle Georgia region’s and that of the State of Georgia asa whole (37.8% and 35.7%, respectively). It should be noted that this ratio is defined interms of the age of the population; there is no relationship between it and the receipt ofgovernment aid. A low dependency ratio indicates that there may be lesser currentdemand for housing, transportation, and related services for families with youngchildren and/or older adults.

The availability of transportation services for the elderly is certainly a quality of lifeissue, as elderly residents who can access transportation services are able to more fullyparticipate in the community. It is a health and safety issue as well, as elderly residentswithout cars must be able to access health care, and many elderly residents with carswould be safer in a public transit vehicle than behind the wheel. Finally, providingtransportation services for elderly residents can be a matter of cost effectiveness, asproviding services such as transportation that allow elderly residents to maintainindependence and live in their own homes is more cost effective than supporting themin a nursing home.

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Persons with Disabilities

Disabled persons are typically more reliant on public transportation. In addition, manydisabled individuals require transit vehicles with specialized equipment and manyrequire “door to door” service with special assistance.

The goal of any transportation system is to provide the mobility options that meet thetravel needs of all community members, including those with disabilities. According tothe 2013 US Census 5 year estimates, there were 5,506 persons aged five and older witha disability in Baldwin County, with a large number of these persons having anambulatory disability (3,049). A significant percentage of disabled persons with anambulatory disability potentially indicates an increased need in transit services for thosepersons. Additionally, the large number of disabled persons that are aged 65 years andolder (2,135) may require additional care facilities, as well as specialized transportationneeds.

Special Populations

As mentioned previously, Baldwin County and the City of Milledgeville are home toGeorgia College and State University (GC&SU) and Georgia Military College (GMC).GC&SU reports a total enrollment of 6,551 in 2013, with 2,041 students living oncampus. GMC reports 2,277 students enrolled on at least a part time basis. At GMC,student housing is reserved for cadets enrolled in the Cadet/ROTC Program. The studentbody at these two institutions makes up a unique population within the community andpresents the community with additional transportation related challenges andopportunities.

Summary

Analysis of demographic data indicates that Baldwin County is faced with many of thevariables that would suggest the need for immediate and future transit planning. Asstated above, the following factors contribute to demand on the existing transitinfrastructure and services: a steadily growing population, along with correspondinggrowth in the senior population, many of which have disabilities and no longer drive, anexpanding student body at GC&SU and GMC, a significant low income populationsegment, and a significant increase in the Hispanic population driven by seasonal andservice industry employment opportunities. From a transportation perspective, mobilitychoices are often limited for lower income residents, the elderly and college students.Baldwin County and the City of Milledgeville have historically practiced thoughtfulplanning and are mindful of the additional growth that is anticipated to occur over thenext five years. As evidenced by many of the action items identified in the BaldwinCounty/City of Milledgeville Joint Comprehensive Plan, both communities recognize theimportance of planning now before demand outpaces resources.

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EVALUATION of EXISTING SERVICES

Section 5311 Rural Public Transit

Section 5311 is the name of the federal funding program administered by the FederalTransit Administration (FTA) to provide assistance for rural public transportation. Theprogram is instrumental in improving access to commercial businesses and communityactivity centers for rural residents. Federal funds are allocated to the states on a formulabasis, and can be used for capital assistance, operating assistance, planning, andprogram administration. The Georgia Department of Transportation (GDOT) isresponsible for administering the program. The Section 5311 Program has had asignificant influence on mobility in rural communities, providing necessary mobility tonon urban local areas. The success of the program will continue to influence mobility forBaldwin County’s rural residents.

Public transportation is currently available in Baldwin County through the 5311 TransitProgram. The program provides limited service to residents of Baldwin County on a pertrip basis, advertised primarily through its county website. While the county hasprovided this service for many years, there is always a concern for possible reductions inthe level of service from rising fuel prices and possible budget cuts. The relatively highlocal match (50% local match, plus 10% of total budget from fare box receipts) requiredto obtain the 5311 funds increases the strain of the program on the county’s budget.

Baldwin County’s Public Transportation Department operates the Section 5311 RuralTransportation Program using one van and one mini bus with a wheel chair lift. Thisfare based ($3.00 per passenger per one way trip), on demand program (call–in basis)transports the county’s residents to a variety of shopping, medical, educational,employment and social destinations. In state fiscal year 2014, the Baldwin CountyTransportation Department provided a total of 10,980 trips under the Section 5311Program.

Department of Human Services (DHS) Coordinated Transportation System

Recognizing the importance of transportation in linking people with services andopportunities, the Department of Human Services (DHS) developed a statewidetransportation system to meet the specialized transportation needs of its clients whoare elderly, mentally and physically disabled and/or low income. The goal is to providesafe, efficient and cost effective transportation for these clients, allowing these personsaccess to essential services provided by the department.

The DHS coordinated transportation system provides contracted services and oversightstatewide. Transportation services are provided to clients served by the Division ofAging Services (DAS), Division of Behavioral Health and Developmental Disabilities(DBHDD), Division of Family and Children Services (DFCS), and the Department of PublicHealth (DPH). The system also provides transportation services to clients of theDepartment of Labor’s Vocational Rehabilitation Services Program (DOL/VRS).

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Additionally, DHS partners with GDOT in order to coordinate services and providetransportation in a more efficient and effective manner. DHS’s coordinatedtransportation system is administered through DHS’s Office of Facilities and SupportServices, Transportation and Services Section. Actual services are provided throughcontracted vendors in each region of the state. Contractors may come from governmententities, the private sector, or not for profit vendors. Eligibility for the service isdetermined locally by human service providers affiliated with various divisions of DHS.

The Georgia Department of Human Services contracts with the Middle Georgia RegionalCommission to administer the DHS Coordinated Transportation Program in the 11county region including Baldwin County. Utilizing a third party provider (TransitionsCommute Solutions in FY 2015; Quality Transportation beginning July 1, 2015) theprogram offers transportation services to Baldwin County residents who are clients ofthe Baldwin County Department of Family and Children Services, the Department ofLabor Vocational Rehabilitation Program Milledgeville Hub, and the Baldwin CountySenior Center. This coordinated service provided 18,459 trips to Baldwin Countyresidents in state fiscal year 2014.

Coordinated Transportation is an essential service in Baldwin County in that it allows forgreater access to human services for the elderly, the disabled, and those with limitedtransportation options. Eligibility criteria and essential trip priorities are provided belowfor each DHS Division and for other programs eligible to be served by CoordinatedTransportation in Baldwin County:

Division of Aging Services (DAS)Trips to and from Senior CentersTrips to and from medical appointmentsTrips for shoppingTrips to and from work/employmentField tripsTrips to pay bills

Division of Family and Children Services (DFCS)Trips in support of Temporary Assistance to Needy Families (TANF) recipients(employment, job training, job search, etc.)Trips to and from technical schools and adult education programsTrips to and from work experience sites for food stamp recipientsTrips to and from medical appointmentsTrips to and from mental health centersOther non TANF tripsTrips to and from substance abuse treatmentTrips for social servicesMiscellaneous trips

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Department of Behavioral Health and Developmental Disabilities (DBHDD)Trips to and from employment locationsTrips to and from day centersTrips to and from mental health appointmentsTrips to and from community training and integration activitiesTrips to and from job trainingTrips to and from medical appointmentsTrips for social servicesMiscellaneous trips

Department of Public Health (DPH)Trips for immunizationsTrips to and from Public Health Clinic and to and from storesTrips for prenatal visits to clinics and other prenatal appointmentsTrips to scheduled medical appointments

Department of Labor Vocational Rehabilitation Services Program (DOL/VRS)Trips to and from schoolTrips to and from employmentTrips for job search and job placementTrips to and from job trainingTrips to and from workshops and assessment sitesMiscellaneous trips

The human service providers are responsible for determining which consumers areappropriate for services under the coordinated system. The coordinated system mayincorporate the use of taxi service, private van service or public systems where suchservice is available and based on local system designs.

DHS seeks to provide the maximum amount of essential transportation services that canbe accomplished with available resources. Eligibility criteria vary between the divisionswithin DHS. Information regarding eligibility determination, trip order process, etc. canbe obtained by contacting the specific division/agency.

By coordinating the requested trips from the various human service agencies, the DHSCoordinated Transportation program: (1) creates cost savings not otherwise available ifprovided by the individual human service provider; and (2) provides safe and qualityservice to the clients of these human service agencies. The biggest issue facing the DHSCoordinated Transportation Program is that associated costs to provide the service haveincreased over the last several years, while the funding for the program has remainedconstant or for some areas has been cut, thus making it very difficult to maintain thelevel of service to the DHS clients and for the transportation operators (who are few innumber) to stay financially solvent.

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Private Transit Service

A relatively recent trend in college oriented communities is the provision of privateshuttle services between private student housing complexes and campus. InMilledgeville, the trend is just beginning. Currently, only one private complex operatesa shuttle service. Magnolia Park apartments provides trips between the apartmentcomplex and the Georgia College & State University and Georgia Military Collegecampuses. The shuttle service runs during school hours, Monday through Friday, with atrip frequency of every 20 minutes. On Thursday nights, a “Party Shuttle” is alsooffered. While this service is helpful to the residents who are served, the services arerestricted from use by the general public. As such, they do not provide the same level ofbenefit or equity to the community as a whole as do the existing public transit systems.

In addition to private shuttles, there are a number of private taxicab companies locatedin the City of Milledgeville, with some providing only local service during limited hoursand others offering out of town service and 24 hour availability. The sizeable number oftaxi companies located in Milledgeville is attributed primarily to the two collegessituated in the city as well as the presence of Baldwin State Prison, the YouthDevelopment Center (YDC) and Oconee Regional Medical Center.

While these private companies provide a needed service to the community, they are nottypically viewed as a viable means of transportation for most consumers. The ratescharged for the private taxis and the exclusivity of the private shuttles prohibit regularridership by the general public.

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DEMAND ESTIMATION and TRANSIT NEEDS ASSESSMENT

Demand Estimation

Under DHS’s Coordinated Transportation system, transportation services are madeavailable 24 hours per day, seven days per week. Core hours are between the hours of6:00 am and 6:00 pm, Monday through Friday; however, the contractor must providescheduled trips beyond these core hours and days when demand warrants.

Historical data from DHS’s Coordinated Transportation Service was utilized as a baselinein order to determine potential future demand. The table that follows reflects tripdemand for state fiscal years 2011 to 2014, as well as the estimated trips for fiscal year2015.

In state fiscal year 2014, a total of 18,717 one way trips were provided by theMilledgeville Community Action Agency. Baldwin County DFCS and Baldwin SeniorCenter were the recipients of almost all of the trips. While service is available to theGDOL Vocational Rehab Program, only 258 trips were utilized in fiscal year 2014. Thetotal expenses of the DHS Coordinated Transportation Program in Baldwin County were$325,766 or an average of $17.40 per one way trip.

For 5311 public transit, FY 2014 saw a total of 10,980 trips utilized throughout BaldwinCounty. The total cost of these trips was $93,330, for an average cost of $8.50 per trip.The cost per trip has been rising steadily over the past four years, rising $0.73 since FY2011. Table 6 on the following page shows the change in trip volume, passenger milestravelled, and total cost since FY 2011. Note, data is unavailable for FY 2012.

Table 5: Baldwin County DHS Coordinated Transit TripsHuman Service Agency FY 2015

EstimatedTrips

FY 2014ActualTrips

FY 2013ActualTrips

FY 2012ActualTrips

FY 2011ActualTrips

Baldwin County DFCS 16,863 15,736 25,917 15,463 4,890Milledgeville – VocationalRehabilitation Program 250 258 274 363 579

Baldwin Senior Center 2,778 2,723 3,153 3,534 4,492TOTAL 19,891 18,717 29,344 19,360 9,961

Source: Middle Georgia Regional Commission

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Table 6: Baldwin County 5311 Transit Historical Activity2011 2012 2013 2014

Cost per Trip $7.77 *** $8.21 $8.50Number of Trips 11,091 *** 11,500 10,980Total Vehicle Miles 71,718 *** 79,000 70,560Cost per Passenger Mile $1.20 *** $1.19 $1.32Total Cost $86,150.00 *** $94,452.00 $93,330.00

* Data unavailable for 2012Source: Baldwin County/Middle Georgia Regional Mobility Manager

Transit Needs Assessment

Despite the availability of transportation services provided under the 5311 program,concern has been raised about inadequate transportation services for both the elderlyand the student body population from the two colleges. This need is likely to multiply incoming years as the number of elderly persons age 65 and over is projected to increaseand both colleges continue to increase enrollment. There are also concerns about a lackof transportation for residents in the Milledgeville area in need of transportation foremployment purposes. This is a situation for which the rural transportation service maynot be the best option. Users of the on demand, 5311 service are limited to certainhours of operation and a daily reservation requirement. Exploration of a fixed routetype service with designated stops, or some other option, would possibly betteraccommodate this need.

An additional element of the transit needs assessment was an evaluation of possible tripdestinations and/or routes that would help address those needs. This evaluationincluded identification of major employers, shopping centers, schools, and medicalfacilities. Most of the larger employers, as well as schools and medical facilities, arelocated in or near the City of Milledgeville. The vast majority of large shopping/retailcenters in Baldwin County are also located in or within close proximity to the City ofMilledgeville.

Analysis of existing and future land use plans are another element of the transit needsassessment. A review of future land use and projected future development in BaldwinCounty shows the vast majority of residential, commercial, industrial andpublic/institutional uses projected in and around the City of Milledgeville (see AppendixA for the existing land use and transportation network maps).

Development PatternsResidential development outside of the Milledgeville city limits is random andsporadic.Commercial development in the unincorporated areas of Baldwin County isprimarily general commercial uses such as convenience stores, gas stations, andbusinesses that cater to outdoor recreational activities.

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Most of the commercial development in Baldwin County is located in areasadjacent to the Milledgeville city limits.Land designated for industrial use is primarily located within the city limits ofMilledgeville.Industrial sites located in the unincorporated areas of Baldwin County aretypically extensions of the industrial land located within the city.With the exception of parks, recreation, and conservation areas, most of thepopular trip generators are located either within the City of Milledgeville orwithin close proximity.

The number of residential housing units within Baldwin County grew by 7.4 percent(1,380 units) between 2007 and 2013, though commercial sales were relatively flat overroughly the same period (referenced by a change of 2.1 percent in total establishmentsbetween 2006 and 2012). Additionally, input received from local stakeholders indicatesthat existing transportation services are currently operating at or near maximumcapacity, even as the demand continues to grow. The transit alternatives andrecommendations reflected in this plan address the future transit demands withinBaldwin County.

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COMMUNITY VISION

As stated in the Baldwin County Comprehensive Plan Community Assessment, thecommunity “should offer transportation alternatives such as mass transit, bicycleroutes, and pedestrian facilities.” In the coming decades, the community, made up ofthe incorporated and unincorporated areas within Baldwin County, aspires to developsustainable transportation opportunities, which will help strengthen the vitality of thecommunity and the region.

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TRANSIT DEVELOPMENT PLAN GOALS and OBJECTIVES

Since 1995, public transportation ridership in the U.S. has grown by nearly 40 percent,faster than highway travel. According to the American Public Transportation Association(APTA), transit ridership is at its highest level in five decades. APTA estimates thatapproximately 40 million trips were taken each weekday nationwide during 2012.People take public transportation for a variety of reason. For some, it is literally alifeline. It not only benefits the people who use it, it also benefits the community as awhole. Some of the most significant benefits are: it eases traffic congestion; creates andsustains jobs; provides access to jobs; stimulates economic development; fosters morelivable communities; provides mobility for seniors; improves air quality; and reducesenergy consumption.

Goals and objectives are an integral part of any transportation plan because theyprovide a strategic framework to achieve the community’s vision for the future. BaldwinCounty identified the following goals and corresponding objectives based on anassessment of existing conditions, feedback received during the communityinvolvement process, and a review of local planning documents during the previous2010 planning process. The table below documents actions taken in support of thestated goals and objectives.

Looking ahead into the 2016 2020 planning period, Baldwin County will continue tofocus effort on the same goals and objectives. The partnerships and initiativesdeveloped over the past five years will continue to expand in reach, allowing all citizensof the county to enjoy a progressing community.

The tables on the following pages show the Goals and Objectives of the Baldwin CountyTransit Development Plan. The right hand column shows those actions taken toimplement the objectives during the 2011 2015 planning period.

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Goal #1: Ensure that all of the residents of Baldwin County have access to safe, reliablepublic transit service.

Objective Actions Undertaken 2010 2015Continued participation in the DHSCoordinated Transportation System andthe Section 5311 Rural TransportationProgram.

Baldwin County has successfully operateda 5311 Rural Transportation Programduring the 2010 2015 planning period, andexpects to continue to do so for 20162020.

Engage in public education and awarenessactivities to increase transit use; marketprogram availability to rural populationswho may not be aware of service, as wellas specific populations of need identifiedin demographic analysis (college students,elderly, low income households, etc.)

Baldwin County maintains a website forthe 5311 Rural Transportation Program(http://www.baldwincountyga.com/publictransportation/).

Budget appropriately to ensure maximumfunding of transit service programs.

Baldwin County includes line item fundingwithin its annual budget for the localmatch requirement for 5311 RuralTransportation assistance.

Goal #2: Ensure that all of the residents of Baldwin County have access to the manyrecreational, educational, medical and retail facilities located within the county viapublic transit service.

Objective ActionConduct a comprehensive transit needssurvey to evaluate current level of serviceand assess potential future needs.

Postponed pending future action.

Identify and survey areas and/orpopulation groups with an above averagepropensity to need and use transitservices; use demographic analysis asbaseline.

Postponed pending future action.

Conduct public transit forums to facilitateopen discussion and information sharing. Postponed pending future action.

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Goal #3: Establish alternative modes of transportation such as bicycling and carpooling.Objective Action

Improve air quality by reducing trafficcongestion through the use of alternativemodes of transportation.

Groups such as the Baldwin County Boardof Education, the Baldwin County Board ofCommissioners, Georgia Military College,and Georgia College and State University,and others actively promote the use ofalternative modes of transportation.

School system and college/universityinvolvement.

Coordination between local partners hasled to five schools being labeled “Bronze”partners in the Safe Routes to Schoolprogram and the formation of the LiveHealthy Baldwin Initiative, which promotesalternative transportation as onecomponent of a healthy lifestyle.

Promote through the use of publiceducation and awareness; instituteencouragement and/or incentiveprograms.

The combined efforts of Baldwin County,educational partners, and the Live HealthyBaldwin Initiative, resulted in the county’sdesignation as a Bronze level Bike FriendlyCommunity by the League of AmericanCyclists.

Incorporate bicycle facilities into allcommunity planning activities.

The City of Milledgeville adopted a“Complete Streets” ordinance centeredaround a Complete Streets Blueprintdeveloped for the city by the MiddleGeorgia Regional Commission.

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TRANSIT ALTERNATIVES and RECOMMENDATIONS

Ride Share

Opportunities exist for establishing Ride Share or organized carpooling programs inBaldwin County. This consists of designating one or more areas, typically located nearpopulation centers (City of Milledgeville, Lake Sinclair area) and/or major highwaycorridors, where individuals can park their vehicles and then arrange to share a ride orcarpool to a common location.

According to the Georgia Department of Labor, seven of the ten largest employers forBaldwin County residents are located in Baldwin County; neighboring Wilkinson Countyhas the largest employer (BASF Corporation), while Washington County (Oconee FallLine Technical College) and Hancock County (SGD Manufacturing) each house one of thetop ten employers for Baldwin County residents. In Baldwin County, AW Holdings, Inc.,Georgia College & State University, the Georgia Department of Behavioral Health andDevelopment Disabilities, Baldwin State Prison, Georgia Military College, OconeeRegional Medical Center, Triumph Aerostructures, LLC, United Veteran Services ofGeorgia, Mohawk Carpet Corporation, and Walmart all attract a significant portion oftheir workforce from within the county.

Some of these large employers should be evaluated to determine if Ride Shareopportunities are feasible. As a part of the evaluation, community leaders should seekto accomplish a commuter study/survey and to benchmark other communities wheresuccessful Ride Share systems are currently being utilized for possible local application.Additionally, employer contributions and related tax advantages should be exploredwhere feasible.

Establishing Ride Share programs usually involve minimal cost. The major obstaclesencountered are typically locating and identifying suitable parking areas, and the timeand manpower needed to properly conduct the necessary commuter/ridership surveys.These responsibilities are often best accomplished through creation of a committeeand/or task force. Ride Share programs also address the objectives presented in Goal#3; specifically, helping to improve air quality by reducing traffic congestion through theuse of alternative modes of transportation, and the use of encouragement and/orincentive programs.

Expansion of Existing Programs

Baldwin County’s Section 5311 Rural Transit Program currently meets the demand forthis service for those Baldwin County residents that choose to utilize the service.Expanding the Section 5311 Program to include subscription work related trips, as wellas other trips could be further investigated. As stated previously, future transportationdemand associated with a growing senior population and an expanding student body atthe two colleges may necessitate expansion of the program.

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The Georgia Department of Human Services, in conjunction with the GeorgiaDepartment of Transportation, is currently developing a Public Transit – CoordinatedHuman Services Plan for each DHS region. The overall goal of the DHS coordinatedplanning process is to identify the need for, and gaps in transportation services, and torecommend strategies/projects to address the need. Baldwin County should evaluateany and all recommendations of the finalized DHS Region 6 Plan for possible localapplication.

Baldwin County officials are supportive of the Section 5311 Program, but are unable toinvest in an expansion of the program due to limited local resources. The 50 percentrequired local share for increased operations, that would be associated with anyexpansion of service, would create a financial burden for the county. Even the 5 percentlocal share for vehicle procurements places a financial hardship on the county. Extensivemarketing of the 5311 program would result in an increased demand for this servicethat is already operating near full capacity, but the demand could not be met without asignificant financial commitment.

While expansion of the Section 5311 Program addresses Goal #1 and its objectives,financial constraints are the primary obstacle towards implementation. Fundingconstraints for many of the human service providers that participate in the DHSCoordinated Transportation Program may limit the program’s ability to satisfy futurelevels of demand for transit services.

Limited Fixed Route Transit Service

Community leaders previously identified the need for local transit service in BaldwinCounty and the City of Milledgeville in the Joint Comprehensive Plan. Typically,extensive fixed route service is usually not practical or cost effective in an area withpopulation densities as low, and development as dispersed, as much of Baldwin Countyis. However, this sort of service may well be effective in providing connections toemployment, retail, and service centers not only within the City of Milledgeville andBaldwin County, but also to locations outside of the county, such as nearby Macon BibbCounty. The level of resources needed to provide these connections will vary widelydepending on the frequency of service provided.

Currently, GC&SU provides transportation to students by way of shuttle buses that runfrom peripheral parking areas (West Campus dormitories, athletic complex) to the maincampus. Appendix B includes a map of current routes as shown on the NextBus app,which displays real time transit location information to potential riders. Additionally,the private shuttle service operates on a fixed, timed route. However, no wide rangingmass transportation is available for the general public.

As with most communities, Baldwin County is composed of various “trip generators”with each trip generator serving as a destination. Some of the more obvious and populardestinations in Baldwin County center around the City of Milledgeville and include thecity’s historic downtown area, GC&SU, GMC, Baldwin County High School, GC&SU West

22

Campus and Athletic Complex, Central Georgia Technical College (CGTC) MilledgevilleCampus, the Milledgeville Mall and the many restaurants and retail centers locatedalong North Columbia Street in Milledgeville, to include the Wal Mart Supercenter.Many of these trip generators serve as possible destinations along a fixed transit route.

An ancillary benefit to establishing a limited fixed route transit system is help withalleviating a long standing parking problem in the downtown area of Milledgeville. Thisis a result of many of the students from the nearby colleges flooding the downtown areawith automobiles. The availability of public transit should lessen the volume ofautomobile traffic in the downtown.

A transit system that community leaders can look to as a benchmark is that whichcurrently operates in the City of Fredericksburg, Virginia. The transit system is called the“FRED” and provides service to a number of nearby destinations and is extensively usedby students from the University of Mary Washington and employees of MediCorpHealth System.

Goals #1 and #2 are addressed through the use of fixed route transit; however, prior toimplementing such a service, a comprehensive ridership survey, a cost benefit analysis,and benchmarking of other successful systems will need to be accomplished.Additionally, an analysis of funding options to implement such a service is an essentialstep in the planning process.

Bicycle/Pedestrian

In the initial 2005 Bicycle and Pedestrian Plan for the Middle Georgia Region, BaldwinCounty and the City of Milledgeville were identified as a pilot community for creation ofa local bicycle/pedestrian plan. Baldwin/Milledgeville was selected because it wasdetermined that they contain some of the important attributes (regional lake, collegesand universities, active downtown development, established historic preservation andgreenway initiatives) that would be enhanced by the establishment of a localbicycle/pedestrian facility system. Additionally, both communities displayed the initialpublic and private support to implement recommendations that would emerge from theplan.

The plan was created with the help of a local planning advisory committee comprised ofcommunity stakeholders. The plan lays out both short term and long range routes forbicycle and pedestrian facilities throughout the city and adjacent areas in the county.

The Baldwin/Milledgeville Planning Advisory Committee decided to focus its efforts ontwo signature projects—the Oconee River Greenway and the Downtown West CampusConnector. In both cases, the primary users of these facilities are college students,residents and tourists. Specific bicycle and pedestrian facilities are identified that linkthe major educational institutions in the community with major points of interest inorder to reduce traffic congestion and parking problems and to provide pedestrian andbicycle linkage between downtown and the Oconee River Greenway.

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Another noteworthy bicycle/pedestrian initiative is the Central Georgia Rails to Trailsdevelopment, which proposes a shared use path on an abandoned rail corridor that runsfrom Macon Bibb to Milledgeville. This facility will not only connect the twocommunities, but would connect the Ocmulgee Heritage Trail and Milledgeville’sDowntown West Campus Connector via Blandy Road, eventually connecting with theOconee River Greenway.

Finally, the Milledgeville City Council formally adopted a Complete Streets ordinance inMay 2013, which promotes the use of Complete Streets concepts where applicablewithin the city. The ordinance prompted the development of the MilledgevilleComplete Streets Blueprint, which was formally adopted in late 2014. This plan outlinesthe implementation strategy for Complete Streets concepts within the City ofMilledgeville. The plan identifies specific actions for streets within the downtown area,as well as provides documented concepts for streets to be considered for “road diets”or other strategies going forward. Appendix C contains a map of the existing andproposed bicycle and pedestrian facilities which are identified in the 2015 update to theMiddle Georgia Regional Bicycle and Pedestrian Plan.

Goal #3 and related objectives are appropriately addressed through implementation ofbicycle/pedestrian initiatives.

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IMPLEMENTATION SCHEDULE

Short Range (Year 1)

1. Quantify unmet transit needs using a variety of survey techniques, including a modesurvey of downtown businesses to adequately measure future mode shift.

2. Establish a local Transit Advisory/Guidance Committee.

3. Implement action items present in Complete Streets Blueprint.

4. Continue to pursue bicycle/pedestrian initiatives.

Mid Range (Years 2 3)

1. Explore funding sources to expand transit capabilities in order to satisfy any unmetneeds.

2. Aggressively pursue any identified funding sources.

3. Conduct appropriate benchmarking and/or feasibility study concerning Ride Shareoptions.

Long Range (Years 4 5)

1. Implement appropriate transit alternatives to address unmet transit needs.

2. Implement Ride Share program – possibly on a trial basis to determine usage andfeasibility.

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CAPITAL IMPROVEMENT / FINANCIAL SUMMARY

Under the GDOT Section 5311 Program, local funding for operations is required to coverthe non federal costs. Ten percent of the public transportation operating costs must beprovided from fare income or other local dollars. The remaining 90 percent of theoperating cost is considered the net operating deficit. Federal funding may be providedfor up to 50 percent of the net operating deficit; the remaining 50 percent (or more)must be provided from local funds. The information below reflects data from fiscal year2014; future costs are projected to remain somewhat stable, with minor fluctuations,over the five year planning period.

Baldwin County officials are supportive of the Section 5311 program, but are realistic interms of their ability to invest in an expansion of the program due to limited localresources. The 50 percent required local share for increased operations that would beassociated with any expansion of service, would create a financial burden for thecounty. Even the ten percent local share for vehicle procurements places a financialhardship on the county. The Georgia Department of Transportation considers both theage and condition of system vehicles when formulating a replacement decision. Underthis plan, the required cost share for vehicle replacements is as follows: Federal (FTA)80%; State (GDOT) – 10%; County (Baldwin County) – 10%.

The following table shows the financial breakdown of the Baldwin County Section 5311rural transit program to the regional average for Middle Georgia (Crawford, Jones,Peach, Pulaski, Putnam, Twiggs, and Wilkinson Counties). Based on this data, collectedfor FY 2014, Baldwin County currently operates at a lower cost per trip than the regionas a whole.

Table 7: 5311 Transit Funding Breakdown – FY 2014Baldwin County Regional Average

Vehicles in System 2 vehicles 2.5 vehiclesFederal Share $93,330 $150,829Local Share $93,330 $150,829Fare Revenues $20,740 $33,517Trips per Year 10,980 8,739Miles per Year 70,560 69,426Cost per Passenger Trip(Local Share) $8.50 per trip $17.26 per trip

Cost per Passenger Mile(Local Share) $1.32 per mile $2.17 per mile

Vehicle Hours 3,968 4,634Hours per Day 8 hours per vehicle VariesOperational Days 248 per year Varies

Source: Middle Georgia Regional Mobility Manager

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Baldwin County currently budgets for transit services one year in advance, based ontheir current budget cycle – as with most Georgia counties. This creates a real challengefor rural communities to project out over a five year period. With continually fluctuatinggas prices, increasing insurance rates, aging vehicles, and ongoing maintenance costs,the county works diligently to cut costs where possible. System revenues, in the form offares, cannot make up for the cost burden the county has had to assume to providetransit services. Baldwin County would like to see increased financial support fromGDOT in capital and operating funding levels to make a larger impact and betteraccommodate the growing needs of the community.

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Appendix A

Maps

Existing Land Use

Major Road and Highway Network

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30

Appendix B

Georgia College & State University Shuttle Routes

Georgia College and State UniversityShuttle Routes

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Appendix C

City of Milledgeville Bicycle and Pedestrian Facilities

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