Meeting_Body
OPERATIONS, SAFETY, AND CUSTOMER EXPERIENCE COMMITTEE
JUNE 18, 2025
Subject
SUBJECT: RESPONSE TO MOTION 48: ENHANCING THE EFFECTIVENESS OF THE LIFE PROGRAM
Action
ACTION: RECEIVE AND FILE
Heading
RECOMMENDATION
Title
RECEIVE AND FILE an update on the Low-Income Fare is Easy (LIFE) Program in response to Board Motion 48, Enhancing the Effectiveness of the LIFE Program.
Issue
ISSUE
The Low-Income Fare is Easy (LIFE) program provides subsidized fares to low-income riders on Metro’s transit system with the aim to ensure equitable access to transportation for individuals who may otherwise face financial barriers to mobility. While the majority of Metro's customers qualify for the program, utilization has been less than expected despite a significant increase in enrollment based on building partnerships with City and County agencies and community-based organizations, consistent in-person outreach, and a strong marketing communications campaign.
Since July 2023, LIFE Program sign-ups, per month, have grown 74%, but the number of active users of monthly LIFE benefits has not kept pace, only growing 35% in the same period. At the same time, LIFE Program participation has not been at the level it could be, with only 15% of enrollees still using the LIFE Program benefits 6 months after joining the program (LIFE and TAP databases).
In 2024, efforts were made to improve utilization rates which included:
• Deployment of E-mail Reminders
• Implementation of the first phase of Auto Monthly Benefits Redemptions
• Activation of Transformative Climate Communities (TCC) Grant, South Los Angeles
• Implementation of a Focused Marketing Campaign
To further address these challenges, on July 25, 2024, the Board passed Motion 48 (Attachment A) by Directors Mitchell, Bass, Dutra, Sandoval, Solis, and Dupont-Walker about the Low-Income Fare is Easy (LIFE) Program, which required staff to conduct a LIFE participant survey and report back about opportunities to expand and enhance the LIFE Program and customer utilization rates.
Background
BACKGROUND
On July 25, 2024, the Board passed Motion 48, Enhancing the Effectiveness of the LIFE Program by Directors Mitchell, Bass, Dutra, Sandoval, Solis and Dupont-Walker. The motion requested staff to evaluate the use of subsidies by LIFE riders and data collected from the Metro Free Monthly Pass Program underway with the Transformative Climate Communities (TCC) grant in South Los Angeles and the City of Pomona. The motion further directed staff to:
1. Conduct a survey among past and current LIFE participants to identify the greatest barriers and opportunities to increasing utilization of LIFE benefits.
2. Report back with a presentation on the survey key findings, provide an analysis of utilization data, and develop a plan for increasing utilization, including any programmatic adjustments based on the data and survey analysis.
3. Use the findings from the Metro Free Monthly Pass Program for the TCC grant in South Los Angeles and City of Pomona to evaluate and model more accurate projection of costs and benefits for an unlimited LIFE Program, including but not limited to potential ridership increases, influence over customer behavior and usage potential additional operational costs, quantified socio-economic and climate benefits, and projected regional impacts.
4. Direct the CEO to expand the Youth on the Move Program to all Transitional Age Youth, regardless of age or enrollment in the Independent Living Program.
Discussion
DISCUSSION
In response to the Board’s direction, Metro staff conducted a multi-phase research study from August 2024 through January 2025, to identify barriers to participation in the LIFE Program. The research aimed to understand LIFE member demographics, psychographics (attitudes and beliefs), fare payment behaviors, and obstacles to enrollment.
The research process began with staff reviewing existing data and studies, both internal and external and conducting interviews with key stakeholders (LIFE Program administrator, community-based organizations and Metro Staff). The information collected informed topics discussed with LIFE Members in in-depth interviews, including program familiarity, barriers to sign-up/usage, usage habits, appeal of program benefits, and social service usage. Staff also surveyed 2,128 active and inactive/past members (for a margin of error of ±4%) to understand their experience with the LIFE Program and barriers to LIFE program usage. The demographics of survey respondents largely mirrored the demographics of Metro riders who use LIFE as reported via our annual On-Board Survey. For example, the LIFE Member survey participants were 49% male, 48% female, and 3% non-binary/prefer to self-describe; and 59% Hispanic/Latino, 20% Black/African American, 12% White, 7% Asian, and 2% Other.
The research uncovered the top four barriers to using LIFE program benefits: confusion/frustration with monthly redemption process, forgetting they signed up and other on-boarding challenges, not being able to get answers to questions, and losing their LIFE TAP card.
The study also highlights the impacts recent improvements have begun to make on improving program usage and addressing some of the responses we received in the survey.
• Email reminders increased redemptions by 24%
• Auto-redemptions have increased the number of members redeeming monthly benefits by about 20,000
• Participants in the South LA TCC grant program who used the benefit increased their TAP’s by 68% relative to before the pilot. Early analysis suggests that the increased usage during the pilot does not hold after the pilot ends when unlimited free rides are no longer available.
Simultaneously, during the survey period, in November 2024, marketing launched a 7-month campaign to raise awareness of the LIFE Program and drive sign-ups and renewals. The campaign primarily targeted Spanish-speaking communities, with an awareness to English-speaking African American communities. Staff utilized trusted media channels, including newspapers, radio, billboards, digital, social media, and search, concentrating on areas with high public transit use but low program adoption. Follow-up ads were also used to re-engage individuals who visited the LIFE website but did not complete their sign up. These efforts were designed to increase awareness, engagement, and renewals among eligible riders.
As of April 30, 2025, the campaign has delivered:
o 20,742,014 total advertisements viewed
o 317,389 total advertisements clicked
o 163,000 arrivals to metro.net landing page
Since launch, the campaign has driven about 60% of LIFE webpage traffic.
Wildfire Recovery LIFE Enrollments
At the time the survey was completed and this report was being prepared, the Metro Board passed Motion 2025-0039, Eaton and Pacific Palisades, which modified the eligibility criteria for LIFE program to include individuals displaced by the wildfires and mobilize outreach teams to Eaton and Pacific Palisades evacuation centers, resource centers, workshops and other critical locations to assist in registration efforts.
As of May 16, 2025 the LIFE Program enrolled 5,533 participants into the program and attended over 85 Wildfire Recovery events. 2,288 participants are using LIFE benefits and have boarded transit 137,260 times. This makes up 41% of wildfire recovery enrolled users riding the system.
Key Findings
To better understand how Metro can work to increase usage, the LIFE Member survey asked inactive members why they never used their benefits or why they stopped. The proportions of inactive member respondents in the survey align closely with TAP card usage data:
• 43% of inactive members never used their LIFE benefits
• 48% only used the initial 90 days of free rides
• 9% used the monthly benefits and then discontinued
Barriers to Using LIFE Benefits
1. Needing to take action each month to get LIFE benefits.
The most commonly cited barrier to continued program use is the effort required to access monthly benefits. Nearly 70% of LIFE Members who stop using the program point to this challenge, highlighting the need to simplify or automate the process. Interviews underscored the sentiment of LIFE Program members who continue to use the program, and those who have discontinued the program.
Current Active Users stated:
“I had several experiences with different stores, that they didn't want to do it, that their machine didn't do it, that the card didn't work…that I had better call by phone, because they couldn’t do anything.” - Active User (Using monthly LIFE benefits)
“I've been told that you can do it online, but I couldn't figure out how.” - Active User (Using monthly LIFE benefits)
Users Who Discontinued using LIFE stated:
“Sometimes I would just take the loss and just spend the regular amount of riding, just because I didn't want to go through the hassle.” - Inactive LIFE Member (Stopped using monthly LIFE benefits)
“It can be annoying. Cause sometimes you have wait for an hour (by calling).” - Inactive LIFE Member (Stopped using monthly LIFE benefits)
“I thought the free rides would go automatically on the card, and I didn't know you had to activate them.” - Inactive LIFE Member (Lapsed after 90 days)
66% cite not knowing about the monthly benefits as a reason for not continuing to utilize LIFE.
“I thought that it was only for 90 days and that it was over.” - Active User (Using the 90 days)
“I just found that out yesterday about the 20 free rides.” - Inactive LIFE Member (Lapsed after 90 days)
2. Forgetting they signed up and other challenges with getting started
41% of new members don’t recall signing up, and 51% say they don’t fully understand how the program works. Additionally, 20% reported issues with their LIFE TAP card not functioning properly.
“I assumed that they would send you a card, or whatever, if you're approved for it, but I never did hear anything.” - Inactive LIFE Member (Lapsed after 90 days)
“They sent me a TAP card, but it didn't let me TAP. I haven't called them because I haven't had time. If I call, it's gonna take a long time. I have to look up where they have a station” - Inactive LIFE Member (Signed up, but never used LIFE benefits)
3. Not being able to get answers to questions
About 51% of members who signed up but never used or later stopped using LIFE said they couldn’t get answers to their questions.
"I tried calling (Customer Care) and didn't get an answer and didn't have the time to wait for a representative." - Inactive LIFE Member (Lapsed after 90 days)
“I haven't been able to figure out how the discount works or what's the discount.” - Inactive LIFE Member (Lapsed after 90 days)
4. Losing LIFE TAP card or mixing it up with other TAP cards
Card confusion is a notable barrier. About 43% of LIFE Members cite losing their LIFE TAP card as a reason for not continuing to use the program, while 52% of LIFE Members say they don’t know which TAP card has their LIFE benefits. Among LIFE Members, 28% have more than 1 TAP card, making it difficult to know which one was registered in the LIFE Program.
“Twice I lost the card and didn’t have a payment method [other than] coins.” - Active User (Using the 90 days)
“I lost the card, but I was supposed to get the benefits transferred. I don't know why exactly my benefits haven't transferred yet.” - Active User (Using the 90 days)
Usage Barriers by Subgroup
LIFE Members with any of the following characteristics report more barriers to using their benefits: those who speak limited English, are unbanked, lack internet access, and/or do not have a smartphone. While these individuals may have the greatest need for the program, they are also the hardest to reach and support through traditional sign-up methods.
Further Recommendations
The Customer Experience survey provides staff with important findings from LIFE participants to better understand where adjustments and updates need to be made to retain existing LIFE riders, while enhancing the effectiveness of the program moving forward. The data highlights a clear opportunity to reconnect with inactive members and strengthen ongoing participation in the program.
Based on the findings staff recommends making the following steps and adjustments to the LIFE Program:
1. Reducing/Eliminating Efforts to get monthly passes
• TAP 20-ride Autoload Expansion-Based on the increased redemption of LIFE 20 free rides within the last 8 months by program participants who call in to renew their benefits, TAP will expand the 20-ride autoload system to LIFE participants who activate benefits at TAP vendor locations, mobile app, and on taptogo.net. Additionally, riders who apply for the LIFE Program online, in person or at a DPSS office will be given an option to enroll in the 20-ride autoload system. Anticipated launch of these enhancements is July 2025.
• City and County Partnership Improvements-Offer valid EBT cardholders with a one-time, free LIFE 20-Ride benefit on a TAP card. EBT customers will be encouraged, via a printed link or QR code on the receipt, to sign up for the standard LIFE Program application process to continue receiving monthly benefits. Customers utilizing the one-time benefit will receive a complimentary new TAP card at the TVM or can apply online at Taptogo.net with EBT card number and TAP card number to receive the benefit. To ensure this program is a success, TAP and Customer Experience will conduct a marketing campaign in partnership with DPSS. Launch this enhancement by December 2025.
2. Strengthen Communications of LIFE Monthly Benefits
• Continue to refine the LIFE marketing campaign, focusing on high-transit areas with low LIFE adoption, optimizing media focus on higher-performing tactics, and introducing new strategies to act on key insights gained to date. The campaign will maintain a diverse media mix, with an increased investment in paid search to convert active interest into applications and drive higher enrollment.
• Strengthen partnerships with community-based organizations to engage underserved communities and ensure the program reaches those who would benefit most. Working with internal Metro departments and our multicultural marketing agency, Metro Marketing will expand our reach in underserved communities by balancing broad awareness media with hyper-local, grassroots community outlets. This approach will drive awareness in a more personal and impactful way. Multi-language ads, videos including Spanish, English, Chinese, Tagalog, and other key languages, will ensure accessibility, while collaboration with trusted local media partners will help amplify our message through familiar voices. By refining these efforts, staff aim to strengthen program visibility, improve access, and drive higher enrollment and retention.
• Enhance messaging to strengthen and clarify the LIFE Program value proposition. Metro’s wildfire recovery enrollment efforts demonstrated that clear calls to action and benefit-driven messaging significantly boosted awareness and prompted immediate action. Marketing staff will apply this learning to the next phase of the LIFE campaign by refining messaging to be more direct and focused on rider benefits and savings. Additionally, we plan to maintain an ongoing presence by posting static advertisements throughout our platforms and stations year-round, ensuring continuous visibility and keeping the program top of mind for riders.
• Continue monthly reminder emails as a method to reach program participants. In April 2024, TAP began emailing LIFE participants monthly reminders of benefits and this effort is deemed effective to increase benefit utilization.
• Pilot short message service (SMS) notifications to improve customer engagement and keep members informed about monthly benefits during onboarding, and after the first 90 days. TAP will implement SMS/texting services as a communication channel that will enhance the customer experience by December 2025.
3. Making Sure Members can get questions answered
• Expand trainings LIFE Administrators have with partner agencies to include quarterly informational workshops with TAP. These additional workshops will support agency staff’s ability to address customer inquiries about TAP, how to access monthly benefits and ride our system.
4. Improving Onboarding Experience of new members
• Add a LIFE QR Code Sticker on TAP Cards during in-person enrollments or mailed, that will direct LIFE participants to a TAP LIFE landing page. This effort will improve customers’ ability to stay aware and keep track of program benefits.
• Ensure new LIFE administrators are effectively promoting the program in South Los Angeles and San Fernando Valley through open houses and targeted advertisements. In December 2024, the Metro Board approved a new LIFE Administrator contract for the International Institute of Los Angeles (IILA). Since approval, IILA has opened two new offices in South Los Angeles and San Fernando Valley (Van Nuys). With IILA, Metro LIFE Program will be conducting open houses, a mailer, and targeted advertisements to ensure stakeholders are aware of enrollment centers in these communities.
5. Investing in Supportive Services
• Continue the South LA TCC Grant Program, which provides six months of free rides to LIFE-eligible participants and assesses the program’s financial and ridership impact to guide future decisions.
• Expanding the TCC grant program to Pomona in July 2025. Existing and eligible LIFE participants will be provided the same six-month unlimited use LIFE passes for a specified number of participants in the Pomona grant area.
Transformative Climate Communities (TCC) Grant Usage Analysis
The South LA TCC Grant Program was launched in mid-July 2024 and had 293 active participants out of 465 enrollees from inception through December 2024, with 50,115 total boardings. The average program participant boards about 38 times per month, including transfers compared to general LIFE participants in LA County that averaged 27 boardings during the same period. Participants who transfer do it at an average rate of 1.8 times per day. Below is the participant average boardings per month from August through December 2024:
Figure 2: Average Boardings Per Month by LIFE Participants in South LA Grant
Analysis of South LA TCC Grant Participants
The cost analysis below uses South LA TCC Grant Program participant ridership data to determine the potential cost of operating the entire LIFE Program with unlimited rides at no cost to participants. Factors considered in the LIFE Unlimited cost analysis are as follows:
• 284,019 total LIFE Monthly participants as of December 2024
• Average of 38 monthly boardings per South LA Grant participant
• $1.75 Full Fare and $0.75 Reduced Fare price per ride
Based on these factors and the current LIFE utilization rate of 18 percent, offering unlimited LIFE boardings would cost Metro over $37.5 million per year but could reach up to $104.3 million if half (50%) of the current participants start utilizing the program (see Figure 3 below).
Figure 3: Average Boardings Per Month by LIFE Participants in South LA
The current LIFE budget in FY25 is $33.5 million, which includes $28.0 million for fare subsidies to LIFE riders throughout the region, $2.0 million for administrative services and $3.5 million for taxi vouchers. Given the active utilization rate of 18 percent and the current LIFE subsidy budget of $28 million, an annual shortfall of $9.5 million is projected (see table below) if the 20-ride monthly cap is lifted for all LIFE participants.
This shortfall of $9.5 million would impact Metro’s limited operating eligible funding, translating to the cost of 39,270 Bus Revenue Service Hours (RSH) that could need to be cut, which will have an adverse effect on bus riders. Additional funding sources or reductions in the current operating budget would be required to sustain an expanded LIFE program.
Figure 4: Budget Impact of Implementing Unlimited Free Rides for all LIFE Participants
Challenges of offering unlimited free rides to all LIFE Participants
Changing the LIFE Program to unlimited free rides would pose regional challenges, as well. An unlimited-use LIFE Program would require consensus from all 16 participating operators (including Metro). Current LIFE participating operators are already having difficulties closing the revenue gap and have asked for an increase in reimbursement from Metro.
Changing LIFE to unlimited free rides would have a negative impact on the pass sales revenue for participating operators who offer LIFE discounts on monthly passes. Those operators depend on pass sales to sustain operations and create funding gaps that would need to be addressed. Without a dedicated funding source, the cost of an unlimited-use free LIFE program would likely be unsustainable. To sustain an expanded LIFE Program, trade-offs in the operating budget may be required, which could have adverse impacts on riders who depend on public transit. With current federal funding programs still uncertain, additional challenges may arise with less funding available.
The Pomona TCC grant is just starting in May 2025, so no data is available to analyze yet.
Solis Amendment - Youth on the Move
According to a California Policy Lab Study conducted in partnership with the Department of Children and Family Services (DCFS), 1,000 youth age out of foster care each year, and nearly 25% will experience homelessness due to a lack of support services.
The Youth on the Move Program (YOTM) is currently administered by the county’s Department of Children and Family Services (DCFS) for participants in the Independent Living Program (ILP), which provides training, services, and benefits to assist current and former foster youth in achieving self-sufficiency prior to, and after leaving, the foster care system. DCFS administers the program, including screening participants and processing applications, and Metro covers the full cost of the passes, which are EZ Regional passes to allow youth to access all of their necessary destinations. As of April 2025, 3,013 (75%) of 4,000 eligible youth in ILP are registered in the program and 1,082 (36%) of registered participants are actively riding.
Expanding YOTM would require both an organization to administer the program in the new area and the approval of the budget expense for Metro to cover the cost of the passes. Metro staff have been working with both DCFS and the Los Angeles Homeless Services Authority (LAHSA) to find an avenue to expand the program, and LAHSA has expressed interest, if they are able to resolve the pending issues listed below:
• LAHSA is determining staff availability to manage the program.
• LAHSA would also coordinate with the Department of Children and Family Services (DCFS) to ensure foster youth who already have a pass through the YOTM program do not receive an additional pass under the LAHSA program. Additionally, homeless youth eligible for programs such as GoPass or U-Pass, should remain enrolled in those programs and are not eligible for YOTM, unless they require a pass type not covered by those programs.
• Approval of the program cost from the Office of Management and Budget (OMB) and the Office of the Chief Executive Officer (OCEO). Based on the retail value of the EZ Annual Passes (see Figure 5 below), the estimated annual cost of the expansion would range between $434,000 and $1.3 million. However, the actual cost of boardings utilized by YOTM riders is much lower. Based on the FY25 projected cost per participant based on boardings, the projected cost for expanding this program to an additional 325 LAHSA users would be approximately $62,000. See additional information in Figure 6 below.
If approved, the expansion of the YOTM to include LAHSA would provide support to approximately 325 homeless youth between the ages of 18 and 22.
Figure 5: EZ Pass Retail Value by Zones:
Figure 6: LAHSA Youth on the Move Expansion Cost Estimate by Boardings:
In the interim, Metro will continue to promote GoPass, U-Pass, and LIFE programs to LAHSA staff to ensure all eligible youth who qualify for these programs are enrolled. Metro will also continue to work with DCFS to determine if there are other ways to expand the YOTM program.
Equity_Platform
EQUITY PLATFORM
Discounted fare transit programs, like LIFE, are Metro’s investment in social mobility and an important tool to assist in the fight against income and health inequality. These programs, which include enrollments, outreach, partnerships with Community-Based Organizations (CBOs), and taxi vouchers for individuals with short-term/immediate transit needs, make Metro more accessible to riders facing financial and other barriers, while providing financial relief from the ever-rising cost of living.
The 2024 LIFE survey results and analysis on the Transformative Climate Communities Grant in South Los Angeles, helps the program adjust program communications, refinement and expansion of LIFE marketing campaign, expand CBO partnerships, improve agency trainings to support customer experience and improve the effectiveness of the program moving forward by supporting TAP technology enhancements, additional free rides, new texting/SMS communication methods and awareness of administrator offices to improve rider access to LIFE enrollment centers to further reach marginalized communities, low-income households, people with disabilities, and Equity Focus Communities (EFCs).
Vehicle_Miles_Traveled _Outcome
VEHICLE MILES TRAVELED OUTCOME
VMT and VMT per capita in Los Angeles County are lower than national averages, the lowest in the Southern California Association of Governments (SCAG) region, and on the lower end of VMT per capita statewide, with these declining VMT trends due in part to Metro’s significant investment in rail and bus transit.* Metro’s Board-adopted VMT reduction targets align with California’s statewide climate goals, including achieving carbon neutrality by 2045. To ensure continued progress, all Board items are assessed for their potential impact on VMT.
As part of these ongoing efforts, this item is expected to contribute to further reductions in VMT. This item supports Metro’s systemwide strategy to reduce VMT through customer experience activities that will improve and further encourage transit ridership, ridesharing, and active transportation. Metro’s Board-adopted VMT reduction targets were designed to build on the success of existing investments, and this item aligns with those objectives.
*Based on population estimates from the United States Census and VMT estimates from Caltrans’ Highway Performance Monitoring System (HPMS) data between 2001-2019.
Implementation_of_Strategic_Plan_Goals
IMPLEMENTATION OF STRATEGIC PLAN GOALS
These programs support Metro’s Strategic Plan Goal 3) Enhance communities and lives through mobility and access to opportunity, and Goal 4) Transform LA County through collaboration and leadership. Metro will continue to work toward providing accessible and inclusive services for the residents of Los Angeles County.
Next_Steps
NEXT STEPS
Staff will proceed with implementing LIFE Program enhancements to address survey responses and explore additional efforts to increase benefit utilization and program awareness.
Attachments
ATTACHMENTS
Attachment A - Motion 48 - Enhancing the Effectiveness of the LIFE Program
Attachment B - LIFE Program Conversion Research Final Report
Prepared_by
Prepared by: Michael Cortez, Director LIFE Program, Fare Programs, (213) 418-3423
Robert Heavrin, Director, Customer Experience, (213) 418-3238
Carolyn Bufford Funk, Senior Transportation Planner, Customer Experience, (213) 418-3238
Devon Deming, Deputy Executive Officer, Fare Programs, (213) 922-7957
Monica Bouldin, Deputy Chief Customer Experience, (213) 922-4081
Reviewed_By
Reviewed by: Jennifer Vides, Chief Customer Experience, (213) 922-4060
