[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, [email protected].

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

[[Page 13508]]

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