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Jacksonville Area Multimodal
Center Feasibility Study
June 2012
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Executive Summary
Recent studies of public transit within the Jacksonville urban area suggest that the
efficiency and effectiveness of these operations could be significantly improved with the
establishment of a regional multimodal transportation center. Furthermore, state and
federal transportation policies encourage investment in these types of facilities to promoteaccessible, safe and efficient multimodal transportation. The purpose of this report is to
synthesize findings from a review of transportation system operations and policies into a
feasibility assessment for a multimodal transportation center in Jacksonville, North
Carolina.
Key findings of this study include:
Establishment of a multimodal transportation center in Jacksonville is consistent withlocal, state and federal transportation and land use policies.
A multimodal transportation center will serve as the focal point for publictransportation within the community, improving coordination among the systems,
resulting in greater operational efficiency and effectiveness.
A multimodal transportation center will expand the mobility of citizens within thecommunity and make travel seamless among all modes accommodated by the facility.
A multimodal transportation center will improve the convenience, comfort and safety ofpublic transportation by creating a facility where passengers can obtain information
about public transit services, await transfers among transportation systems and
rendezvous once reaching Jacksonville as a destination.
The multimodal center can be located and designed in a manner that will enable it togrow with Jacksonvilles transportation systems and potentially contribute to smart
growth patterns as well as the potential for redevelopment.
The local financial burden associated with the facility is minimal in proportion to thetotal project cost. Ninety percent of the development/construction expenses are eligible
for federal and state grants. Operating costs of the facility are also eligible for state and
federal funding; however, these costs may be offset by revenues generated from tenants
within the facility - potentially including OUTS, Greyhound, Amtrak and private
business.
Based on the findings of this study it appears that the creation of a Jacksonville multimodal
transportation center is feasible and represents a sound investment of public (federal, state
and local) funds to further quality of life within the Jacksonville community through
enhanced local and regional mobility.
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Table of Contents
Introduction 1
Public Transit in the Jacksonville Area 2
Other Public Transportation Systems in the Jacksonville Area 4
The Multimodal Center Concept 5
Local Plans and Policies Supporting a Jacksonville Multimodal Center 10
NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center 12
USDOT Plans and Policies Supporting a Jacksonville Multimodal Center 12
A Multimodal Transportation Center in Jacksonville 13
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Introduction
Jacksonville is a vibrant community that is committed to providing top quality services and
infrastructure for its business, visitors and especially its permanent residents. It is the
county seat of Onslow County, located in southeastern North Carolina, and has the benefit
of a significant military presence - the foremost being Marine Corps Base Camp Lejeuneand the Marine Corps Air Station New River. Jacksonville enjoys the distinction of having
the youngest median age population in North Carolina (23) and one of the youngest in the
country. Onslow Countys population continues to experience a high rate of growth, in fact,
the 2010 census indicates that
Onslow County grew by eighteen
percent over the previous decade, to
more than 177,000 permanent
residents. This likely is due to
growth aboard local militaryinstallations and its attractive
location on the North Carolina coast.
Population growth is expected to
continue in the future. Projections
completed by the State of North
Carolina in May of 2012 anticipate
that more than 250,000 residents
will live in Onslow County by 2030.
The Jacksonville City Council, Onslow County Board of Commissioners, North Carolina
Department of Transportation (NCDOT) and United States Department of Transportation
(USDOT) recognize the importance of regional mobility through multimodal travel and
have demonstrated their commitment to providing safe, reliable and attractive multimodal
transportation opportunities within the Jacksonville urban area. As a vital part of this
transportation network, public transit systems work tirelessly to ensure that members of
the community without private automobiles have the opportunity to access employment,
healthcare and other fundamental needs that enable them to live healthy and productive
lives. Furthermore, public transit along with safe highways, pedestrian and bicycling
facilities significantly contribute to the local economy, environment and, in general, upholdthe quality of life within the Jacksonville urban area.
Recent studies of public transit within the Jacksonville urban area suggest that the
efficiency and effectiveness of these operations could be significantly improved with the
establishment of a regional multimodal transportation center. Furthermore, state and
federal transportation policies encourage investment in these types of facilities to promote
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accessible, safe and efficient multimodal transportation. The purpose of this report is to
synthesize findings from a review of transportation system operations and policies into a
feasibility assessment for a multimodal transportation center in Jacksonville, North
Carolina.
Public Transit in the Jacksonville Area
There are two types of locally-operated public transit services in the Jacksonville area:
fixed-route service (vehicles operating routes with set schedules) and demand response
service (vehicles that pick-up and drop-off passengers at various times and locations upon
request). Public transit services in the Jacksonville area are provided by three entities:
Jacksonville Transit, Onslow United Transit System (OUTS) and the Camp Lejeune Base
Motor Pool. Each of these entities, including the services they provide, is described in more
detail below:
Jacksonville TransitJacksonville Transit is an urban
transit system operated by the
City of Jacksonville providing
local fixed-route bus service for a
large portion of the Jacksonville
area. Jacksonville Transit
operates two fixed-routes seven
days a week, with service
provided weekdays between 6:00 AM and 6:00 PM and weekends between 10:00 AM and
6:00 PM. In addition, Express Routes are operated on Friday evenings from 5:00 PM to 2:00
AM, Saturdays from 11:00 AM to 2:00 AM and Sundays from noon until 6:00 PM. Express
Routes are primarily designed to improve the mobility of military personnel stationed at
Camp Geiger, Camp Johnson and Camp Lejeune.
Jacksonville Transit maintains a fleet of eight buses and the system has been operated in its
current form since 2007. Jacksonville Transit is operated under a multiyear contract with
MV Transportation (a private transit management company) and OUTS.
OUTS Additional public transportation services within the Jacksonville area are providedby a local non-profit agency known as Onslow United Transit System (OUTS). OUTS has
served as the Countys coordinated public transportation operator since 1979 and along
with assistance from the City of Jacksonville, was the primary creator of the current fixed-
route system - Jacksonville Transit. Under a contracted service agreement with the City of
Jacksonville, OUTS provides demand response public transportation services for the
disabled within 3/4 of a mile of the Jacksonville Transit fixed-route network. These
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services complement the fixed-route system as required by the Americans with Disabilities
Act of 1990 (ADA). OUTS also operates a one-call center for Jacksonville Transit and serves
as the contracted transportation service operator for other programs within Onslow
County including:
Onslow County Senior Services Coastal Enterprises Onslow County Department ofSocial Services
Medicaid non- emergency medicaltransportation
Elderly and DisabledTransportation Assistance Program
Rural General Public ProgramOUTS also provides medical service
trips to destinations outside of the
Jacksonville area including: New Bern,
Moorhead City, Greenville, Wilmington,
Chapel Hill, Raleigh and Durham.
Connectivity between the Jacksonville Transit fixed-routes and OUTS services are
uncoordinated at this time, making it difficult for passengers to extend their range by
transferring between the two systems.
Camp Lejeune Base Buses Camp Lejeune offers shuttle services for military personnel and
their families within and amongst local military instillations. The Camp Lejeune base bus
system is operated by a private transit management company (Coach America) under a
contracted service agreement and is overseen by the Base Motor Pool.
Base Bus #1 operates exclusively on Camp Lejeune with a single bus assigned to an out-and-back alignment between the bus terminal, the Naval Hospital, French Creek and
Courthouse Bay. The round trip takes about 90 minutes to complete, but depending on
where the destinations are on the alignment, a bus passes by approximately every 30
minutes. Service begins at 7:00 AM and ends at 6:30 PM.
Base Bus #2 that shuttles between the Naval Hospital on Camp Lejeune, Camp Johnsonand Camp Geiger. Similar with Base Bus #1, the bus follows an out-and-back alignment
and is operated with a single vehicle. The route departs from the bus terminal roughly
every 105 minutes. The out-and back alignment means destinations are served twice
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within the 105 minute period, however, service is in a single direction only and not
evenly spaced. Base Bus #2 is available from 7:00 AM to 6:15 PM.
Base Bus #3, operates during winter months only (November 1 March 30) andconnects Camp Lejeune, Camp Johnson, Camp Geiger and the New River Air Station. A
one-way trip between Court House Bay on Camp Lejeune and the Air Station Exchange
Building takes between 60 and 70 minutes. There are roughly four round trips per day
that operate between 10:00 AM and 6:00 PM.
Connectivity between Jacksonville Transit and the Camp Lejeune base bus service is
uncoordinated at this time, making it difficult for passengers to extend their range by
transferring between the two systems.
Other Public Transportation Systems in the Jacksonville Area
Additional publicly-accessible transportation systems exist within the Jacksonville area
including:
Greyhound - Greyhound Lines, Inc. operates daily interacity bus service to Jacksonville
from a terminal located on Onslow Drive. This service provides connections to multiple
destinations throughout North Carolina and the United States; however, connectivity to
Jacksonville Transit, OUTS and the Camp Lejeune base bus system is very limited at this
time. Greyhound riders generally hail a taxi or walk from the terminal to extend their range
of mobility. Although limited connectivity currently exists among Greyhound and existing
public transit services, Greyhound staff has indicated a desire to improve coordination
among the systems by routing service through the Jacksonville multimodal center if/when
it is operational.
Amtrak - Amtrak is currently in the process of developing a regional shuttle that will
connect multiple urban areas in southeastern North Carolina to passenger rail service in
Wilson, North Carolina. It is expected that the shuttle will run between Wilmington and
Wilson via Jacksonville and Kinston, connecting local residents to an existing rail station in
Wilson. Amtrak riders will purchase a single ticket providing them access to the shuttle
service and the train. Program development staff with Amtrak has indicated a strong desireto coordinate the shuttle with existing local public transit systems when it goes into effect.
Furthermore, Amtrak has also indicated a desire to sustain coordination among the
systems in the future by routing service through the Jacksonville multimodal center
if/when it is operational.
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Bicycle and pedestrian network -
Jacksonville maintains an extensive
bicycle and pedestrian
transportation network including
miles of greenway trail, bicycle lanes
and sidewalks. A number of
improvements to this network are
planned in the coming years,
including several additional miles of
greenway trail. The infill of
sidewalks along major roadways
continues to be a priority and the
number bicycle lane miles will
increase substantially in the coming
years as the NCDOT restripes severalmain roadways to include these
facilities. Given the Citys existing and future network, if the Jacksonville multimodal center
were to be located in close proximity of the downtown area, users of the facility would have
safe and easy access to the bicycle and pedestrian system.
Albert J. Ellis Airport - The Albert J. Ellis Airport (OAJ) serves the Jacksonville area with
daily service provided by two carriers: Delta and US Airways. Although local public transit
does not currently serve OAJ, it remains a high priority of the Jacksonville Metropolitan
Planning Organization and transit service providers within the region. In the future, a
Jacksonville multimodal center could serve as the staging area for an airport shuttle. This
would allow for connectivity to existing transit services, greatly expanding the range of
travelers to and from OAJ.
Taxi Services - Taxi services are prevalent in Jacksonville and are commonly used by
military personnel and the general public to connect with destinations that are not
accessible by transit or within walking distance. While taxi services tend to be more
convenient for the user, they are much more expensive than public transit. Furthermore,
although taxi and public transit systems tend to compete for patrons, providing access to
taxis with the multimodal center would greatly expand the range of facility users to areasnot served by public transit.
The Multimodal Center Concept
As the name suggests, a multimodal center is a hub where numerous transportation
systems converge so that users have safe and convenient access to multiple travel options
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at a centralized location. In most cases, a multimodal centers primary function is to join
local public transit routes at a single transfer point where passengers can expand their
range by transferring among routes/systems. Other forms of transportation are typically
accommodated by a multimodal center as well, including walking, biking, private
automobiles, intra-city buses (Greyhound, Amtrak shuttle), ADA paratransit, taxis, airport
shuttles and in some cases passenger rail. When properly planned and designed, a
multimodal transportation center will provide safe and convenient access to all available
modes of travel and seamless transfer among them.
Multimodal transportation centers generally provide climate-controlled waiting areas,
bathrooms and security systems for passengers waiting to board or transfer. Real time
information on departures and arrivals is often provided within these waiting areas to
assist passengers in navigating the system and to make the experience of using public
transportation more predictable and enjoyable. These amenities not only enhance the
comfort and convenience of public transportation, they also help to help improve publicperception and attract new riders.
Multimodal centers often provide administrative office space for transportation agencies
and break/shift change areas for drivers. This provides transit operators the ability to
directly oversee all services at one centralized location and improves the connectivity
between administrative functions and system operations.
Multimodal transportation centers can also serve as visitor information centers by
providing information to travelers on local attractions, shopping and cultural points of
interest in the community. They are often designed as distinct, attractive structures that
serve as gateways to their community. In some cases, these facilities are also designed to
include leasable office space for accommodating other potential facility users (OUTS,
Greyhound and Amtrak for instance) as well as leasable space for businesses that support
passenger needs. Examples of businesses that commonly locate within multimodal centers
include restaurants, banks, coffee shops and convenience stores.
Pictured below are examples of multimodal transportation centers that have been recently
designed and/or constructed in communities similar to Jacksonville. The primary modes
that serve each of the facilities are referenced. Note that design features vary widely amongthe examples and facilities tend to vary in scale based upon need. Successful multimodal
facilities are generally designed and located to blend with the existing community fabric
and exude a positive image to the public. Cues from existing land features, architecture,
historical events and other influential aspects the community are often reflected in design
features and materials used to construct the facility. Given that these centers are public
spaces, design features and materials are also selected to maximize passenger safety, while
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minimizing the need for future maintenance. In accordance with federal guidelines, the
functional lifespan of a multimodal facility is expected to range 40 to 50 years. As a result,
these centers are designed to accommodate system growth during that time period
through pre-planned expansions.
JACKSONVILLE TRANSIT
Project ExamplesPetersburg, VA
Wendel
Modes: Intercity Bus, Intracity Bus, Taxi
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JACKSONVILLE TRANSIT
Project ExamplesGrand Rapids, MI
Wendel
Modes: Intercity Bus, Intracity Bus
JACKSONVILLE TRANSIT
Fredericksburg, VA
WendelDuchscherer
Modes: Intercity Bus, Intracity Bus
Kalamazoo, MI
WendelDuchscherer
Modes: Intercity Bus, Intracity Bus, Taxi, Passenger Rail
Project Examples
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JACKSONVILLE TRANSIT
Project ExamplesLynchburg, VA
Wendel
Modes: Intracity Bus, Taxi, Commuter Rail
JACKSONVILLE TRANSIT
Project ExamplesSavannah, GA
WendelDuchscherer
Modes: Intracity Bus, Intercity Bus, Taxi, Trolley, Bike Share, Bicycle
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Local Plans and Policies Supporting a Jacksonville Multimodal Center
Since Jacksonville Transits commencement in November 2007, numerous planning efforts
have been completed to ensure the growing demand for public transportation services are
met and that efforts to address these needs are regionally coordinated. Further, land use
plans completed during this timeframe also support the multimodal transportation concept
and the opportunity for using public facilities to foster smart growth and redevelopment.
Planning documents relevant to this feasibility study are summarized in chronological
order below:
Jacksonville & Onslow County Coordinated Human Services Transportation Plan (April 2009)
This plan provides a vision, goals and objectives for expanding and enhancing mobility
opportunities throughout the Onslow County region. It identifies opportunities for
Jacksonville Transit and OUTS to expand their role in providing human servicestransportation in addition to identifying operational and marketing goals and common
capital needs - including facilities such as the multimodal center.
Onslow United Transit System, Community Transportation Service Plan
(September 2009)
This plan reviews the current performance and organization of OUTS, recommending
strategies to improve operations and/or management to increase mobility options for
clients of social service agencies, citizens and commuters. The plan also identifies several
areas whereby OUTS and Jacksonville Transit should jointly pursue variousorganizational, marketing, capital and operations efforts in order to provide an integrated
regional transit system and allow the region access to federal funding sources that are
intended for such coordinated purposes.
New River Regional Transit Master Plan
(October 2009)
This plan provides Jacksonville Transit,
OUTS and the Jacksonville Metropolitan
Planning Organization with a short- andlong-term transit service and operations
plan to position the region to develop a
region wide transit system.
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Transportation Demand Management Plan, MCB Camp Lejeune/ MCAS New River
(June 2011)
Commissioned by the Military Growth Task Force, this plan provides recommendations for
reducing congestion and improving the efficiency of existing transportation systems in and
around Marine Corps Base Camp Lejeune. Recommendations promote the coordination ofservices among Jacksonville Transit, OUTS and the Camp Lejeune base buses.
City of Jacksonville Coastal Area Management Act Land Use Plan (July 2011)
The Costal Area Management Act (CAMA) Land Use Plan provides a short- and long-term
planning vision for the City addressing topics such as environmental protection, economic
development and growth, land use and transportation. Specifically pertaining to
transportation, the CAMA Plan encourages alternatives to single-occupancy automobile
trips in Jacksonville to reduce congestion and positively contribute to traffic flow. Further,
the plan advocates for the exceptional design of facilities to foster a vibrant mixed-use
downtown that retains the character of existing commercial and residential
neighborhoods. Creating this vibrant downtown can be complemented by designing and
maintaining governmental and civic facilities to serve as examples of the Citys
commitment to high quality development.
Jacksonville Transit System Development Plan
(September 2011)
The Transit System Development Plan (TSDP)
identifies service needs and opportunities, reviews
existing service performance and productivity and
uses this information to lay out a strategic plan to
address gaps and opportunities with the goal of
improving service delivery over a five-year
planning period. The TSDP calls for a multimodal
center among other capital investments.
The TSDP and the other plans indicate the potential
for significant growth in the services offered byJacksonville Transit and OUTS in the coming years.
As routes and services are added to the network, the TSDP recommends that they evolve
into a pulse system. With a pulse system, routes converge at a single location at the same
time, pause to allow passengers to transfer among the systems, then depart in a
coordinated manner. This type of service allows passengers traveling on one route/system
to access destinations served by the other routes/systems. A pulse operation is an effective
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way to link all origins and destinations within a transit system safely and efficiently. Not
only is a pulsing system more convenient for the user, but by coordinating services,
redundancies can be eliminated, potentially improving the cost effectiveness of all systems
accommodated by the center.
NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center
NCDOT plans and policies relevant to this feasibility study are established in several
documents including:
Strategic Prioritization of Transportation Projects (February 2012) Draft Statewide 2040 Plan (March 2012) Statewide Regionalization Study(May 2012)
All of these documents collectively identify regional mobility, multimodalism and theefficient use of resources through coordination as priorities for the State of North Carolina
with regard to public transportation.
Of particular relevance to this feasibility study, the Strategic Prioritization of
Transportation Projects identifies statewide transportation priorities based on objective
criteria derived from the aforementioned statewide goals and objectives. Through an
objective goal-driven prioritization process, the NCDOT ranked the Jacksonville area
multimodal transportation center as the seventh highest public transportation priority
statewide. This ranking was derived from a pool of more than 600 projects from both
urban and rural public transit operators throughout the state.
Very clearly, a multimodal transportation center for Jacksonville is consistent with NCDOT
plans and policies.
USDOT Plans and Policies Supporting a Jacksonville Multimodal Center
US Department of Transportation (USDOT) plans and policies relevant to this feasibility
study are most clearly set out in the federal Partnership for Sustainable Communities,
which was created in 2009 as a partnership between the USDOT, US Department of
Housing and Urban Development and the US Environmental Protection Agency. The
Partnership for Sustainable Communities identifies six core principles guiding future
federal investment.
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Clearly the first, third, fourth and sixth livability principles support the concept of a
multimodal transportation center in Jacksonville.
A Multimodal Transportation Center for Jacksonville
What could a multimodal center in Jacksonville be like?
A Jacksonville area multimodal center is expected to accommodate the operations of
various transportation agencies including: Jacksonville Transit, OUTS, the Camp Lejeune
base bus service, Greyhound and Amtrak. The center will also provide connectivity to other
modes of travel including taxis, walking, biking and other future transportation systems
servicing the region. Information Technologies (IT) will be an important asset in the
multimodal hub, providing the mechanism to communicate internally among operators andexternally with customers.
Another service that may be facilitated by the creation of a multimodal center is a weekend
shuttle between Jacksonville and Wilmington as a regional partnership with Wave Transit.
The center would act as an essential hub for passengers to board/depart and connect with
Partnership for Sustainable Communities
The Livability Principles
Provide more transportation choices. Develop safe, reliable and economical transportation choices todecrease household transportation costs, reduce our nations dependence on foreign oil, improve air
quality, reduce greenhouse gas emissions and promote public health.
Promote equitable, affordable housing. Expand location- and energy-efficient housing choices forpeople of all ages, incomes, races and ethnicities to increase mobility and lower the combined cost of
housing and transportation.
Enhance economic competitiveness. Improve economic competitiveness through reliable and timelyaccess to employment centers, educational opportunities, services and other basic needs by workers, aswell as expanded business access to markets.
Support existing communities. Target Federal funding toward existing communitiesthrough strategieslike transit oriented, mixed use development and land recyclingto increase community revitalization andthe efficiency of public works investments and safeguard rural landscapes.
Coordinate and leverage Federal policies and investment. Align Federal policies and funding toremove barriers to collaboration, leverage funding and increase the accountability and effectiveness of alllevels of government to plan for future growth, including making smart energy choices such as locally
generated renewable energy.
Value communities and neighborhoods. Enhance the unique characteristics of all communities byinvesting in healthy, safe and walkable neighborhoodsrural, urban, or suburban.
Source: HUD-DOT-EPA Partnership for Sustainable Communities.
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other forms of travel once they arrive in Jacksonville. Furthermore, the multimodal center
could also serve as a hub for a future shuttle service to OAJ.
Most importantly, the multimodal center will serve the everyday needs of passengers. Not
only will passengers have a centralized hub providing access to multiple transportation
services, the center will improve the convenience, comfort and safety of public
transportation by creating a facility where passengers can obtain information about public
transit services, await transfers among systems and rendezvous once reaching Jacksonville
as a destination. Needless to say, the multimodal center will greatly improve the users
experience with public transportation in Jacksonville.
It is envisioned that the multimodal center will house the administrative offices of
Jacksonville Transit, OUTS and the Jacksonville Metropolitan Planning Organization under
one roof. Additionally, the one-call center, dispatch and street supervisors will also be
located at the facility, with several other transit-related functions. Administrative staff forGreyhound and Amtrak could also potentially be housed within this facility.
How could a Jacksonville multimodal transportation center be paid for?
Multimodal transportation centers are eligible for funding under most USDOT grant
programs and in particular those administered by the Federal Transit Administration
(FTA). Federal funds typically support eighty percent of costs associated with developing
these types of projects.
Multimodal transportation centers are also eligible for state funds administered by the
NCDOT Public Transportation Division. The City of Jacksonville may approach NCDOT for
funding to support an additional ten percent of the project costs.
The local obligation for capital transit improvements is generally limited to ten percent of
the total project cost.
Why is a multimodal transportation center needed in Jacksonville?
Key findings of this study include:
Establishment of a multimodal transportation center in Jacksonville is consistent withlocal, state and federal transportation and land use policies.
A multimodal transportation center will serve as the focal point for publictransportation within the community, improving coordination among the systems,
resulting in greater operational efficiency and effectiveness.
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A multimodal transportation center will expand the mobility of citizens within thecommunity and make travel seamless among all modes accommodated by the facility.
A multimodal transportation center will improve the convenience, comfort and safety ofpublic transportation by creating a facility where passengers can obtain information
about public transit services, await transfers among transportation systems and
rendezvous once reaching Jacksonville as a destination.
The multimodal center can be located and designed in a manner that will enable it togrow with Jacksonvilles transportation systems and potentially contribute to smart
growth patterns as well as downtown redevelopment.
The local financial burden associated with the facility is minimal in proportion to thetotal project cost. Ninety percent of the development/construction expenses are eligible
for federal and state grants. Operating costs of the facility are also eligible for state and
federal funding; however, these costs may be offset by revenues generated from tenants
within the facility - potentially including OUTS, Greyhound, Amtrak and private
business.
Based on the findings of this study it appears that the creation of a Jacksonville multimodal
transportation center is feasible and represents a sound investment of public (federal, state
and local) funds to further quality of life within the Jacksonville community through
enhanced local and regional mobility.
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