Appendix “A”
2010-2014 SPECIALIZED TRANSIT SERVICES REVIEW
Final Report
FEBRUARY 2010
IBI GROUP FINAL REPORT
TABLE OF CONTENTS
EXECUTIVE SUMMARY ...... 1
1. INTRODUCTION ...... 4
1.1 STUDY OBJECTIVES & WORK PROGRAM ...... 4
1.2 MOBILITY VISION – A WAY FORWARD ...... 5
2. PROFILE OF EXISTING HANDI-VAN OPERATIONS ...... 7
2.1 Key Statistics ...... 7
2.1.1 Handi-van Relative to Population Group Specialized Transit Services ...... 8
2.2 Services ...... 8
2.3 Functional Areas ...... 9
2.3.1 Funding and Oversight ...... 9 2.3.2 Eligibility and Registration...... 10 2.3.3 Reservation and Scheduling ...... 12 2.3.4 Service Delivery ...... 14
2.4 Handi-Van Fleet ...... 15
2.5 Handi-Van Service Standards ...... 15
3. TRAVEL DEMAND ...... 17
3.1 DATA SOURCES ...... 18
3.2 TRAVEL DEMAND AND TRIP RATES ...... 18
4. STAKEHOLDER CONSULTATION ...... 20
5. CONVENTIONAL TRANSIT SERVICES & ACCESSIBILITY PLANS ...... 22
5.1 OPERATIONS ...... 22
5.2 INFRASTRUCTURE ...... 22
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TABLE OF CONTENTS (CONT’D)
5.2.1 Transit Fleet ...... 22 5.2.2 Bus Stops, Shelters, Terminals ...... 22
5.3 Accessibility Plans ...... 23
6. RECOMMENDATIONS – A WAY FORWARD ...... 27
6.1 SERVICE STRUCTURE & OPERATIONS RECOMMENDATIONS ...... 27
6.1.1 HANDI-VAN Operations and Service Delivery ...... 27 6.1.1 Taxi Scrip Program ...... 28 6.1.2 Integration with Conventional Transit ...... 28
6.2 ELIGIBILITY & CERTIFICATION RECOMMENDATIONS ...... 29
6.2.1 ELIGIBILITY ...... 29 6.2.2 CERTIFICATION ...... 29 6.2.3 APPLICATION PROCESS ...... 30
7. HANDI-VAN SPECIALIZED TRANSIT 5-YEAR FINANCIAL PLAN ...... 32
APPENDIX A: Handi-Van Application Form
APPENDIX B: Specialized Transit Peer Review Data
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City of Burlington
2010-2014 SPECIALIZED TRANSIT Services Review
EXECUTIVE SUMMARY
IBI Group in conjunction with Burlington Transit has completed the 2010-2014 Specialized Transit Services Review (STSR). The objectives of the study were:
• Set strategic direction for specialized transit services over the next 5 years;
• Identify opportunities for the city to cost-effectively meet the mobility needs of Burlington’s elderly and disability communities including an integrated approach with the accessible fixed route Burlington Transit services;
• Review existing Handi-van policies, procedures, operations and organization to ensure the delivery of efficient, effective and fiscally responsible service delivery in compliance with the Province’s Accessibility for Ontarians with Disabilities Act (AODA); and
• Provide estimates of future demand for Handi-van services and access the implications of growth and increasing demand on operational and capital budgets.
Strategy/Process
The study included:
• The review of current ridership, travel markets and demand for specialized transit service to quantify the service gap that exists between the demand and supply of available resources;
• The review of census and demographic data and travel demand forecasts;
• Benchmarking Handi-van’s performance with other comparable specialized transit systems;
• Review of other specialized transit services within the community to determine if partnership opportunities could assist in meeting the demand for service; and
• Public and stakeholder consultation.
Recommendations
Table ES-1 below provides a summary of the recommendations and target date for implementation.
Table ES-1: Specialized Transit Service Review Recommendations and Target Dates
Functional Area Recommendation Target Date
OPERATIONS
Handi-van Service • Expand Handi-van service in 2010 and 2013* July 2010
Taxi Service • Increase funding for contracted taxi service April 2010
• Reduce subsidy rate from 40% to 25% for taxi scrip program July 2010
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Functional Area Recommendation Target Date
• Limit purchase of taxi scrip coupons to 3 books every 2 months July 2010
• Flat-line funding for taxi-scrip program at 2009 budget July 2010
Scheduling • Reduce advance booking requirement to 24 hours January 2011 Policies/Procedures
Technology • Implement PRESTO system on Hand-van subject to 2011 July 2011 Capital Budget Approval
• Develop on-line capacity to accept passenger trips confirmations and cancellations January 2011
Fare Policy • Implement same fare structure as conventional service January 2011
• Eliminate fares for personal care attendants January 2011
Hours of Service • Allow for same service hours as conventional service January 2012
Integration with • Encourage the use of accessible fixed route service by July 2010 Conventional Transit providing travel training
ADMINISTRATION
Dispatch/Scheduling • Additional personnel (.5 FTE) effective July 1, 2011, subject to July 2011 2011 Current Budget Approval
Eligibility & • Implement amended application form (reflecting “functional” July 2010 Certification limitation criteria)
• Consider applicant provisionally eligible within 7 days following Not addressed submission of application within timeframe of • Commence re-certification process (over 1 year period) for report those clients who may be able to use conventional transit for some of their trips, some of the time. Commence July 2010
* Staff have included a new expansion vehicle in 2013 of the proposed 2010-2019 Capital Budget and Forecast. The timing of this expansion vehicle may be adjusted based on the supply and demand for specialized transit in
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2010-2014 SPECIALIZED TRANSIT Services Review the community. In addition, the ongoing availability of contracted accessible taxis will be a factor in determining the timing for any proposed Handi-van expansion.
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1. INTRODUCTION
The delivery of specialized public transport such as that provided by Burlington Transit’s Handi-van creates strategic planning challenges and financial pressures. When coupled with the requirements of Accessibility for Ontarians with Disabilities Act (AODA), these challenges are unprecedented. The issue before the City of Burlington is to develop a plan to deliver public transit services to people with a disability that satisfies community requirements and expectations in a cost-effective manner.
The objective for the City in the near term includes the effective delivery of Handi-van and to accommodate the growing demand for public transit services by people with disabilities. To address this challenge, Burlington continues to develop an increasingly close relationship between accessible conventional transit services and the delivery of Handi-van specialized transit service.
The Review of the Handi-van found that specialized transit1 in the City of Burlington faces several challenges - growing demand, changing community expectations, demand for regional service (with trip destinations in the City of Hamilton, for example), accessible conventional/fixed-route transit services, and increasing costs - that present challenges in the delivery of specialized transit services.
In light of these challenges, the Review proposes a set of recommendations that would result in enhancements to the delivery of specialized transit service in Burlington, modeled on industry best practices and regulatory trends. At its heart, the recommended service model would ensure compliance with AODA, while simultaneously implementing demand management strategies to preserve the Handi-van service for those who truly need it and shifting some trips to more cost- effective transportation services. 1.1 STUDY OBJECTIVES & WORK PROGRAM
This 5-year Service Plan has been designed to achieve several key objectives, specifically:
• Set strategic direction for improvements to specialized transit services over the next 5 years;
• Identify opportunities and obligations of the City in cost-effectively meeting the mobility requirements of Burlington’s elderly and disability communities including a more integrated approach with the accessible fixed-route, Burlington Transit services;
• Review existing Handi-van policies, procedures, operations and organization to ensure the delivery of efficient, effective and fiscally responsible service delivery in compliance with the Province’s Accessibility for Ontarians with Disabilities Act (AODA); and
• Provide estimates of future demand for Handi-van services and access the implications of growth and increasing demand on operational and capital budgets.
Existing Handi-van specialized transit services provide tremendous benefits to people with disabilities, but because of increasing demands and high costs, it is important that the service be provided with maximum efficiency. Improving cost efficiencies will require review of current processes, and implementation of other creative and innovative solutions to best respond to
1 Specialized transit is a category of demand-responsive transit services intended for persons with disabilities. Also called paratransit, Handi-bus/transit/van.
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emerging specialized transit needs over the next five years. To this end current issues and financial realities have been addressed, including:
• Is the best service being provided, given the financial and operational resources available?
• How does Burlington Transit service latent and increasing demands, given fiscal and budgetary limitations?
• What efficiencies may be gained through enhancements to administrative and operating processes including eligibility and certification, advance booking, trip purpose policy, etc.?
• What is the most effective manner of providing specialized transit services given the differences in needs for persons with different functional disabilities and the range of service delivery options available?
• To what extent can the future accessible conventional transit services meet the mobility needs of persons with disabilities?
• What initiatives and policies can be implemented to promote the use of lower cost options, while providing quality service to customers?
• What opportunities exist to potentially coordinate, through a community collaborative effort, the operation and funding of transportation services for persons with a disability?
These issues and study objectives are subsequently translated into work program, which included:
• Data collection: (primary and secondary); - Profile of Handi-van services - Census data / Transport Canada’s TransAccess database - Operating and demographic data from the City
• Development of travel demand forecasts;
• A series of Stakeholder Consultations including the public, Handi-van customers, agencies/organizations representing Burlington’s elderly and disabled populations and City officials/staff including operations staff and drivers; • A review of existing Handi-van operating policies, service characteristics and budgets, and reservation, scheduling and trip management processes; and
• Development and analysis of alternate service strategies and related implementation. 1.2 MOBILITY VISION – A WAY FORWARD
Through multiple initiatives addressing quality of life considerations, the City of Burlington ensures a healthy, connected, supportive environment for its residents. It is within this spirit that the following guiding principals provide the foundation for the recommended Handi-van service plan strategies:
Universal access including an accessible infrastructure;
Flexible mobility options with a cost-effective mix of accessible shared-ride, public transportation services; and
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Maximize the utility and investment in accessible conventional transit (mobility management strategies) to encourage a shift from specialized to conventional public transit.
These guiding principals recognize the requirement for an accessible infrastructure including a commitment to the future procurement of accessible, low-floor transit buses.
As a transit provider, the City has facilitated a more integrated approach between accessible conventional transit services and specialized (Handi-van) transit services. Transit has created a user friendly, accessible conventional service that actually (voluntarily) attract rides with a disability away from specialized transit services. An accessible public transit system provides a higher degree of trip making flexibility and facilitates greater travel spontaneity and independence. A truly accessible transit system can become the preferred choice for many people with a disability.
In order to fully implement an effective 5-Year Service (Mobility) Plan, the City must build on its current successes in developing a corporate and community culture that recognizes and supports the strategic, social and economic benefits of a Mobility Plan. This culture must be fully accepted and supported by the City as well as Handi-van management and frontline staff. The longer term vision is to move towards the concept of universal access to conventional public transit services. While preserving the integrity of Handi-van specialized transit services for those with no alternatives, universal access to conventional transit services requires the need to address ancillary considerations including an accessible infrastructure, streetscape, audible signals, etc.
Further, consideration of opportunities to better coordinate through a community collaborative effort between the City and local social service/human service agencies such as the Red Cross for example is not feasible at this time given capacity constraints as well as significantly different fare policies and funding sources /parameters.
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2. PROFILE OF EXISTING HANDI-VAN OPERATIONS
The City of Burlington operates two public transit services, the conventional system, Burlington Transit, and the specialized system, Burlington Handi-van. Handi-van includes a taxi voucher/scrip program. The conventional system, operates fixed-route services throughout the city with nine of its eighteen routes designated as fully accessible using low-floor or lift-equipped buses. Handi-Van provides door-to-door, advanced booked, specialized transit service to passengers unable to access the conventional system due to a physical disability. These two systems complement each other to ultimately provide an accessible public transit system.
2.1 Key Statistics
Burlington Transit serves a population of approximately 164,000, with a service area size of 86.8 square kilometres. Burlington Handi-van serves a population of 170,100 with a service area of 97.8 square kilometres (includes rural area). Handi-van serves approximately 2,450 registrants, with 1,025 wheelchair users and 1,425 ambulatory. This represents about 1.5% of the service area population. In 2009, Handi-van accommodated 54,860 trips, of those, 38,350 were made on the dedicated service, while 9,005 were non-dedicated on contracted taxi services and 7,505 trips on the subsidized the Taxi Scrip program, which provides coupons for taxi use.
The 2009 Handi-van annual operating budget was $1.06 million, with total operating revenues of approximately $154,351. The operating subsidy is provided completely by the City of Burlington, and in 2009 was approximately $876,359, or approximately $15.97 per passenger trip. The operating expenses and revenues are outlined in Table 2-1.
Handi-van’s core operations are staffed by two full-time dispatchers, seven full-time operators, and three part-time operators.
Table 2-1: Burlington Handi-Van Actual Operating Revenues and Expenses, 2009
Expenses Revenues Operating Expenses Dedicated Service $ 856,359 Non-Dedicated Service – Contracted Taxis $ 104,887 Taxi-Scrip $ 69,464 Total Operating Expenses $1,030,710 Operating Revenues Passenger Revenue $ 110,370 Taxi-Scrip Revenue $ 43,985 Total Municipal Contribution (net operating cost) $ 876,355 Total Operating Revenues $1,030,710
Table 2-2 presents the results of analyzing a select sample of driver logs.
In terms of the length of time customer spend riding the Hand-van buses, close to twenty-five percent of trips are less than 10 minutes and close to seventy-five percent of trips are less than 20 minutes.
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Table 2-2: Travel Time
# of Minutes Spent on % of Total Trips Cumulative % Handi-Van Bus
<10 minutes 24% 24%
11 to 20 minutes 49% 73%
21 to 30 minutes 20% 93%
31 to 45 minutes 6% 99%
46 to 60 minutes 1% 100%
60+ minutes 0 -
2.1.1 HANDI-VAN RELATIVE TO POPULATION GROUP SPECIALIZED TRANSIT SERVICES
Appendix B presents 2008 operating characteristics and data for a select number of peer specialized transit services as well as the Population Group1 (>150,000) summary for general comparison. Based on 20082 operating data, salient observations include:
• Handi-van’s cost per passenger is 26.6% less than the Population Group average.
• The City of Burlington’s investment in specialized transit as measured as the cost per capita, of $6.67 is close to one-third that of the Population Group average of $18.14.
• The number of Handi-van registrants per capita is almost identical to the Population Group average.
• Handi-van averages close to 6,960 annual trips per peak hour vehicle compared with the Population Group average of 7,100 annual trips per peak hour vehicle (as measured by the number of peak hour vehicles and total annual trips), suggesting an overall system productivity on par with peer agencies.
• Handi-van’s use of non-dedicated services at close to 28% is marginally greater than the Population Group average of 22% of total specialized transit service delivery.
In short, Handi-van vehicle utilization relative to Population Group experiences suggests commendable performance and the City is realizing financial efficiencies through the use of non- dedicated services including supplemental taxi services and the taxi scrip program. 2.2 Services
Handi-van provides three main services to its registrants:
2 Ontario Specialized Transit Services Fact Book - 2008 Operating Data
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• Core Specialized Services – advance booking, door-to-door services provided by Burlington Transit using paratransit vehicles owned by the system and operated by Burlington Transit drivers. These services are provided at the same fare as the conventional system with similar hours of service. • Contracted Accessible Taxi Sedan Services – these are advanced booking, door-to-door services that are booked and coordinated through Handi-Van. The purpose of these services is to provide needed excess capacity on the system, particularly during busy periods. Like the core service, they are provided at the same fare and hours, but are assigned on a trip-by-trip basis at the discretion of the dispatcher. These services are provided on contract by Burlington Taxi. • Taxi-Scrip – The Taxi-Scrip program provides taxi coupons at a subsidized rate which provides registrants use toward trips on Burlington Taxi. This program allows for spontaneous, self- booked trips at a 40% discount over regular taxi fare. Each registrant is entitled to two coupon books per month, at a cost of $24 for $40 worth of coupons. Approximately seventy-two program participants (or less than 3% of the registrant market) purchase the maximum of two books of scrip coupons per month. This accounts for 95 percent of the coupon books sold.
2.3 Functional Areas
There are four main functional areas in the delivery of specialized transit service. They are as follows: • Funding and Oversight • Eligibility and Registration • Reservation and Scheduling • Service Delivery
The following sections describe each functional area as it pertains to Burlington Transit.
2.3.1 FUNDING AND OVERSIGHT
Handi-Van is a division of Burlington Transit, which operates under the Transit & Traffic Department in the City of Burlington’s municipal structure under the direction of the Director of Transit and Traffic. Within Burlington Transit’s management structure there is a Supervisor of Transit Policy, Planning and Specialized Transit, reporting to the Transit Manager.
The Burlington Transit Advisory Committee (BTAC) provides advisory input to public policy and operational considerations for both conventional and specialized transit services. BTAC has appointed a subcommittee to address accessibility issues.
In terms of funding, the current operating budget is funded through passenger fares and the local tax base. Capital costs are through program funding from the Federal and Provincial governments.
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2.3.2 ELIGIBILITY AND REGISTRATION
2.3.2.1 Eligibility Handi-van’s role in providing door-to-door specialized transit means that it requires a significantly higher subsidy to provide an equal level of mobility. As such, to be responsible to the integrity of service, eligibility requirements are put in place to ensure that people using the service have a true need for it.
Virtually every specialized transit service across North America incorporates varied eligibility criteria and registration processes before a person can become a registered customer.
Current Handi-Van eligibility criteria states that “special transit services are intended for persons who are physically unable to climb or descend steps used in conventional transit vehicles, or walk a distance of 175 metres”. Elderly persons, cognitively impaired, or visually impaired persons are not guaranteed eligibility unless there is a demonstrated physical disability that meets the eligibility statement. In addition, there are various criteria involved in the evaluation of the applicant, including:
• The ability for the applicant travel without care or the support of a companion or escort; and • The use of a mobility aid such as a wheelchair, scooter, walker, cane, or crutches.
These criteria must be evaluated by a health professional, who must fill out the application form.
2.3.2.2 Registration Process A relatively simple registration process is in place at Burlington Transit for admittance into the Handi-Van program. The applicant must submit an application form to Burlington Transit, which includes a section to be completed by a health professional. These applications go before the eligibility committee3, which meets the fourth Tuesday of each month to review all applications received that month. Once approved by the committee, the applicant can book trips immediately upon receiving an acceptance letter. This ensures the process is timely, but accountable to ensure eligibility requirements are met. Temporary approvals can be given in special cases, and are automatically given for applicants requiring a wheelchair or scooter for medical appointments only.
The registration process is outlined in detail in Figure 2-1.
3 The composition of the Eligibility Committee includes a retired nurse, a member of the disability community, a Handi-van customer, the administrator of Wellness House and an occupational therapist.
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Figure 2-1 Handi-van Registration Process
Approximately 50 applications are received monthly by Burlington Transit and are processed by BT administrative/operations staff. Four to six percent of applications (2 to 3 monthly) are denied. Denied applicants may “appeal’ by reapplying. Of approved applications, approximately 10-15% are required to travel with an attendant.
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2.3.3 RESERVATION AND SCHEDULING
Like most specialized transit systems, Handi-Van requires advanced booking for all trips taken by its registered users. In addition, subscription trip bookings are allowed for trips that are taken on a regular basis. The following section outlines the reservation guidelines and scheduling process undertaken by Handi-van in the provision of service to its customers.
2.3.3.1 Reservations There are two main streams of reservations on Handi-Van services.
• Subscription trips, which are trips that are made at least once weekly, at the same time and day, such as work trips or regular medical appointments, but can be for any purpose. • Basic advanced booking trips, which require a minimum 48 hours notice and also can be for any purpose, provided it is booked up to 30 days in advance and subject to availability. Trips can only be booked via telephone by reaching one of the two dispatchers that are available on weekdays only, during regular office hours. Trips are generally booked in real-time on the phone, with the dispatcher providing an option of trip times provided by the Trapeze scheduling system. Return trips are booked at the same time, with the exception of trips for surgical procedures, where the customer calls after the procedure is complete. Booked trips are confirmed at the time of reservation with no confirmation call required.
Dispatchers also note that there are a large number of open ended trip requests, where the customer asks when the service is available, particularly for discretionary trips, instead of requesting a specific time.
Trip cancellations are made by phone, either with a dispatcher during business hours, or left on voicemail outside of business hours.
Staff reports that no-shows and same-day cancellations are problematic given that they consume unproductive service hours. Current data suggest that these number approximately 3,065 trips per year or 6.3 percent of service. Passengers receive a letter from the Manager if they have a pattern of no-shows or near-term cancellations. Cancellations received at least one day in advance are less problematic as staff is able to effectively insert trips in available times.
The growth in the number of unaccommodated trips has become more of an issue. The number of unaccommodated trips has grown from 210 trips in 2008 to 640 unaccommodated trips in 2009 or a three fold increase.
The trip booking process is illustrated in Figure 2-2.
2.3.3.1.1 Out-of-town Transfers Handi-van connects to specialized transit services in Hamilton (DART) at Joseph Brant Hospital and Oakville (Care-a-Van) at Lakeshore Place. To book a transfer trip, the customer is required to book the origin trip first, then book the connecting trip based on the given arrival time at the transfer point by the originating agency. Handi-van contacts neighbouring agencies only in the case of no-shows or trips running ahead of schedule.
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Figure 2-2 Handi-van Trip Booking Process
2.3.3.2 Scheduling Trips are scheduled with the assistance of the Trapeze scheduling system, which automatically allocates trips based on the characteristics input by the dispatcher, such as desired departure or
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arrival times and location of trips. These attributes, combined with pre-set constants for road conditions and travel times, help to generate schedules and determine trip availability. In addition, the dispatchers conduct a manual review of schedules as trips are booked to ensure that there is sufficient time and logic to the run sheets given to the drivers.
Trip times provided to customers are provided within a thirty minute window, plus or minus fifteen minutes of the trip time. This provides flexibility to the schedule and to operating conditions. Drivers are instructed to wait a maximum of five minutes before departing and the trip is marked as a no- show.
Most trips are accommodated in the core specialized transit system – Handi-Van vehicles operated by Burlington Transit drivers. However, due to constraints in capacity or in trip characteristics, particularly during busy periods, a proportion of trips are diverted onto contracted taxis through Burlington Taxi. Services are provided on unmarked, non dedicated accessible sedans or vans and are separate from the Taxi-Scrip program, as they are booked by Handi-Van dispatchers as overflow capacity. Like Handi-Van, some taxi based trips are shared by multiple users during the same trip.
Schedules are typically finalized by the dispatchers by 3:30 p.m. the previous day and taxi requests are faxed to Burlington Taxi at that time. Drivers are provided paper manifests in the morning following the processing of last minute cancellations. Further cancellations are handled through radio calls.
2.3.4 SERVICE DELIVERY
Handi-Van is responsible for the delivery of the core specialized transit services on board paratransit vehicles. The Handi-Van fleet comprises of eight fully accessible vehicles, with seven in-service on weekdays, and two on weekends. As previously stated, additional capacity is provided by Burlington Taxi on a contract basis during busy times or when there is insufficient demand to warrant a full vehicle.
2.3.4.1 Operator Assignment Handi-Van shares its pool of operators with the conventional Burlington Transit services, with sign-ups for shifts approximately every two months, in order of seniority. There is currently a core group of operators consistently assigned to Handi-Van, with part-time operators filling in the balance of shifts. All operators are required to undergo Handi-Van training prior to their first shift on the service.
2.3.4.2 Day-to-Day Operations Based on interviews with drivers, the current method of service delivery is efficient and effective; however, there are concerns expressed that growing demand, trip distance, and traffic conditions are making it difficult to accommodate all trips in a timely manner. However, with minor changes to the schedule, such as the changing of pick up sequences, and swapping of pick-ups, operators are able to coordinate to ensure that they stay on-time. Under ordinary circumstances, almost all trips remain within the provided thirty-minute booking window and trip times rarely exceed one-hour. The ability of the operators to maintain their schedule is a key strength of the service today and stretches the overall efficiency of the system.
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2.3.4.3 Customer Service The front lines of Handi-van customer service are its drivers and extend to the dispatchers and other staff members. The general consensus received from customers and stakeholders is that they are highly satisfied with the current level of service. Although this gold standard of service is exemplary, the operator’s primary duty is to transport their customers from point A to point B (to and from inside the first set of accessible doors), and added tasks could delay operations and expose the system to potential liability. Moving forward, there should be an emphasis on clarifying the definition of the operator’s responsibilities – providing passenger assistance in boarding and alighting to and from the first set of accessible doors. 2.4 Handi-Van Fleet
There are currently eight purpose-built vehicles in the Handi-van fleet. Each vehicle can be figured in a variety of ways to accommodate wheelchairs and seated passengers and range as follows:
# of ambulatory / wheelchair (wc) Ramp or Unit # spaces Lift Make / Model Year
8082-02 11 amb / no wc 5 wc / 4 amb Ramp FORD ELF 2002
8083-03 6 amb / 3wc 6 wc / no amb Lift FORD GLAVAL UNI 2003/04
8084-03 6 amb / 3wc 6 wc / no amb Lift FORD GLAVAL UNI 2003/04
8085-03 6 amb / 3wc 6 wc / no amb Lift FORD GLAVAL UNI 2003/04
8086-03 6 amb / 3wc 6 wc / no amb Lift FORD GLAVAL UNI 2003/04
8087-03 11 wc / no amb 5 wc / 4 amb Ramp FORD ELF 2003
8088-07 8 wc / 3 amb 6 wc / no amb Lift GMC GLAVAL TITAN 2007
8089-07 8 amb / 3 wc 6 wc / no amb Lift GMC GLAVAL TITAN 2007
2.5 Handi-Van Service Standards
Table 2.3 presents current Handi-van program service standards and compliance. Changes are not recommended to the existing standards.
Table 2.3: Current Handi-van Program Service Standards
Service Characteristic Current Standard Trip Coverage/Trip Denials The Handi-van program should accommodate 100% of An unaccommodated trip is when Handi-van cannot all trips requested within the urban transit service area, schedule a trip within one hour before or one hour after by eligible registrants. the desired time of pick-up. A trip is denied if pick-up cannot be accommodated within this time window or if Currently accommodates 98.5% of trip requests the customer does not have the flexibility to travel at
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Service Characteristic Current Standard another time. It is important to recognize that accommodating 100% of trip requests includes the ability to accommodate using Handi-van, contracted taxi services or the Taxi Scrip program.
Span of Service Handi-van services will operate hours of service and days of the week comparable to the conventional service.
Currently non-compliant with early morning service
Transfer Connections When transferring to a neighbouring specialized transit service or to and from an accessible fixed-route service, Handi-van should be scheduled to be within 15 minutes of the scheduled arrival time of the connecting service.
Compliant within scheduling window
On-time Performance All vehicles should arrive at the pick-up points no earlier than 15 minutes before and no later than 15 minutes after the scheduled pick-up time, 95% of the time.
Compliant
Cancellations & No Shows The objective is to have no more than 8% of the scheduled trips cancelled by the passenger up to one hour before the pick-up, and to have no more than 2% no shows within 5 minutes of the scheduled pick-up time window.
Compliant (exceeds standard)
Complaints The objective is to keep complaints to an absolute minimum but not to exceed 1 complaint per 1,000 passenger trips on average on an annual basis.
Compliant (exceeds standard)
Service Utilization Standards The vans dedicated to the Handi-van service should achieve a minimum utilization or productivity level of 2.6 passengers per revenue hour on a daily basis on average.
Compliant (exceeds standard)
Cost Recovery Targets A minimum cost recovery of 10% based on a Handi-van fare identical to the regular adult cash fare on the conventional fixed route services.
Compliant (currently exceeds standard)
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3. TRAVEL DEMAND
Changing demographics (i.e., aging population), growth in population through migration, and changes in settlement patterns certainly affect the demand for transit, whether it be conventional or specialized transit services. These changes are, however, usually anticipated and, as such, are 4 included in the TransAccess database, the comprehensive database used for this study. The projections from 2010 to 2015 take into account things such as an aging population. There are however, issues that are not as easy to project, and are almost impossible to include in a transportation demand model. These issues are usually more socio/political in nature and affect the need and use of many kinds of transportation services. They include, but are not limited to: • Trends towards community-based living; • Expansion of adult day programs; • Health care restructuring; • Social policy framework; and • Changes to service standards and other operational policies. Recent research commissioned by the American Association of Retired Persons (AARP) suggests that the boomer generation, the first wave of which will be 65 years of age in 2011, will typically be “healthier” than that of previous generations. With greater expectations for mobility, this somewhat more affluent boomer generation will be a product of a more health conscious age group, while experiencing medical advances unprecedented in medical history. Future directions suggest the incidence of disability with aging will not escalate at the same rate that we have seen over the past quarter century. The increase in seniors does not necessarily indicate a proportionate need for the current mix of transit services. As the “baby boom” generation ages, the senior population will generally: • Be healthier and more physically fit • Have a higher level of education • Have a higher disposable income • Be less transit dependent with greater automobile ownership/access • Be living independently • Have a wider range of lifestyle preferences and higher mobility expectations This section provides baseline data on the transportation disabled community in the City and their existing and potential future use of transportation systems and services. The baseline data year is 2009 with projections for the years 2012 and 2015. Data includes:
• The number of persons in the City with a transportation disability;
• Types of functional disability and incidence; and
• Use of specialized and conventional transit.
4 TransAccess database uses data from the 1991 Health and Activities Limitations Surveys (HALS) undertaken by Statistics Canada and 1994 Statistics Canada Population Forecasts. TransAccess allows users to forecast the number of persons with disabilities and their characteristics at municipal (CMA), provincial and national levels.
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3.1 DATA SOURCES
This section reflects City population data and incidence of disability. Population (and projections) were calculated using 2006 census information and City of Burlington growth projections. Growth projections assume two percent annual growth from 2009 to 2011 and three percent annual growth from 2011 to 2015. Data specific to the incidence of disability is from Statistics Canada’s 2006 Participation and Activity Limitation Survey and to a lesser extent, the TransAccess database (based on Statistics Canada’s Health and Activity Limitation survey). 3.2 TRAVEL DEMAND AND TRIP RATES
This section profiles travel demand and trip rates specific to the transportation disabled populations in the City and Handi-van services.
One objective of this study was to develop demand estimates and travel trip rates for persons with disabilities. This data is to be used for transportation modelling and the development of operational and service delivery solutions to meet these demands.
Exhibit 3.1 profiles the travel demand for the years 2009 to 2014. The calculations use national incident rates for disabilities to estimate the future number of persons with disabilities in Burlington. The exhibit also illustrates the potential increase in demand for Handi-van service. The table assumes the trip request rate from 2009 will remain constant. As the population grows, the demand for Handi-van service will naturally increase. Overall trip requests will increase 29.4% by 2014. There is reason to believe the request rate many also increase due to a larger proportion of seniors in the community.
It is important to note that these calculations are based on recognized trip rates and comparisons of levels of service of communities of less than 200,000 population.
Exhibit 3.1: Handi-van Travel Demand
Year # of Transportation # of Handi-van Handi-Van Trips Disabled People5 Registrants
2009 7,200 2,665 54,860
2010 7,385 2,900 56,870
2011 7,570 3,150 60,400
2012 7,755 3,450 63,930
2013 7,940 3,800 67,460
5 Transportation Disabled People is based on a self-declaration of some functional limitation that makes it difficult to use or unable to use fixed route transit services.
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2014 8,125 4,200 71,000
Further these projections assumes various demand management strategies are implemented to ensure alternate mobility options for the City’s elderly and disability communities and for the City to ensure the provision of quality Handi-van services for registrants unable to use other options. In the absence of such interventions, specialized transit operations have experienced growth upwards of 10 percent a year or a doubling of travel demand in an eight year span.
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4. STAKEHOLDER CONSULTATION
An integral component of this Handi-van review and preparation of a 5-Year Service Plan for Specialized Transit was seeking input from key stakeholders.
Input was sought through a number of sources including:
• Multiple public meetings and focus group discussions having taken place throughout the study process specifically in June, July, September and October. Focus group participants included representatives from key agencies and organizations (including Carey House, Bethany Residence, CAMA Woodlands Nursing Home, MS Society, Joseph Brant Wellness House, United Way, Burlington Taxi, etc.) representing a wide range of community interests as well as members of the Handi-van Eligibility Subcommittee, Burlington Transit Advisory Committee (BTAC), BTAC Accessibility Subcommittee and Handi-van consumers;
• Solicitation of written comments from members of the community; and
• Meetings with City officials/staff including operations staff and drivers.
These consultative sessions were designed to solicit input from the community and other stakeholders. Topics of discussion included: conceptual service alternatives/approaches, trip making characteristics, demand management strategies, and general perceptions about service quality.
Much of the discussion with and comments received from both consumers as well as representatives of agencies and organizations representing older adults and the disability community focused on eligibility, trip purpose restrictions and other operating concerns. It is important to note that there was much praise for the quality of Handi-van service, staff and drivers. Further, operations staff are clearly proficient in their responsibilities and have established a favourable rapport with many of Handi-van customers contributing to a high level of customer satisfaction.
A summary of comments follows.
a) ELIGIBILITY:
• Preference for a ‘functional’ limitation criteria rather then the present “physical” definition.
• Refer to the functional need and not the medical ‘label’.
• May need to be more restrictive to ensure those with no alternatives will always be able to get a Handi-van trip
• Need to reflect the “safety” aspect especially for persons with a visual impairment
b) SERVICE
• Extended hours for specialized for evenings and weekend service
• Stricter policies for ‘no-shows’ and same day cancellations / recognition of the negative impact these have on service delivery
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• Reduce the advance booking time and provide some same day service to enable more spontaneous travel.
c) TAXIS
• Taxis could be good but there are a limited number of accessible taxis in Burlington and sometimes it is very difficult to book an accessible taxi for wheelchairs and scooters.
• Need for more accessible taxis.
d) GENERAL COMMENTS
• Community program agency staff time is excessive in researching and coordinating client transportation.
• Access to medical appointments is problematic for a number of reasons:
o Difficult to make same day bookings (spontaneous travel); o Lengthy travel times (on-vehicle times) for persons whose stamina may be limited; o Sometimes don’t know what time will be finished at the doctor and don’t know what time to book a return trip. • Regional travel is problematic in terms of trip bookings and the challenges in coordinating trips with multiple operators.
• Handi-van customers report that greater numbers of trip requests are denied and some do not attempt to make trip requests especially during some times of day or days of week.
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5. CONVENTIONAL TRANSIT SERVICES & ACCESSIBILITY PLANS 5.1 OPERATIONS
The City’s conventional services consist of 14 fixed routes, six of which convert to dial-a-ride during lower demand periods and one dedicated demand-response (dial-a-ride) service covering the urban area. Service is operated seven days a week from approximately 6AM to Midnight Monday to Friday, 7AM to 11PM Saturday and 8:30AM to 7PM on Sundays and statutory holidays. Service frequencies range from 15 to 30 minutes in peak hours to 30 to 60 minutes during the off-peak, evenings and weekends depending on the route. Approximately 145,000 revenue-hours of service are operated annually. Approximately 1.8 million revenue trips are taken on the service annually.
There are currently approximately 1,100 bus stops and 300 shelters installed throughout the city.
With the existing fleet (see fleet description below), fully accessible services are not able to be offered on all routes at all times although the City does assign at least one accessible bus to each route. As the number of accessible buses increases through the purchase of new vehicles, then the City will be able to expand the percentage of routes and trips that are accessible with the overall goal of full accessibility in 2012. 5.2 INFRASTRUCTURE
5.2.1 TRANSIT FLEET
The conventional transit fleet totals 52 units of which 38 (73%) are accessible, low-floor vehicles. Each of the accessible buses has two wheelchair positions featuring the easy-to-access rear-facing design immediately behind the front wheels of the bus. Mobility device access is through the front door using a ramp. There are also seats designated for seniors.
The City is committed to achieving full accessibility with its conventional transit fleet by 2012. The City’s 10-Year capital plan proposal includes eight accessible buses, to be purchased in 2010 and six in 2012 to replace the remaining high-floor, non-accessible buses. In addition to being accessible, all new buses are air-conditioned to enhance the ride comfort of all users. Subject to 2010 capital budget approval, by the end of 2010, ninety-two percent of the fleet will be accessible.
It is important to note that while currently approximately twenty-seven percent is not accessible, all vehicles providing mid-day, evening and weekend service are accessible. The non-accessible vehicles are only used for peak-hour service and as noted, will be replaced over the next two years.
5.2.2 BUS STOPS, SHELTERS, TERMINALS
The City has a program in place to upgrade all bus stops to ensure that they are accessible with a target completion date of 2011. The program includes installation of full-length concrete pads and curb cuts and the positioning of bus stop signage and street furniture to ensure the stop area is barrier-free to persons in wheelchairs. 757 of the stops have been upgraded thus far with the balance to be completed during 2010 and 2011. In addition to shelters, benches are also being installed at various stops particularly those without shelters.
Transit terminals at malls and downtown are also designed to meet the same accessibility standards.
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5.3 Accessibility Plans
To specifically address accessibility issues and particularly the requirements of the Accessibility for Ontarians with Disabilities Act (AODA), the City has as a staff person responsible for its corporate accessibility plan.
To meet both AODA and recent Ontario Human Rights requests for stop announcements, the City is planning to acquire a GPS-based automated stop announcement system for all its buses. This purchase has been included in the proposed 2010-2019 capital budget forecast and is proposed for purchase in 2011. In the interim, bus operators are calling out all stops. Transit supervisors regularly monitor this program to ensure compliance.
Future accessibility enhancements such as “next stop” signage at terminals and stops may be pursued as part of other GTA-wide programs or on specific routes such as the planned Bus Rapid Transit service along Dundas Street.
The Accessibility for Ontarians with Disabilities Act 2005 (AODA) provides for the development of standards in order to achieve accessibility for Ontarians with disabilities with respect to goods, services, facilities, accommodation, employment, buildings, structures, and premises on or before January 1, 2025.
The Minister responsible for the AODA has established a process to develop and implement the accessibility standards necessary to achieving the purposes of the Act. Within this process, standards development committees have been established by the Minister to develop proposed accessibility standards.
Standards to be developed under the Act include:
• Customer Service
• Information and Communication
• Employment
• Transportation
• Built Environment
The Customer Service Standard came into effect on January 1, 2010. The remaining four standards are currently being finalized.
The following table presents select elements of the proposed Transportation Accessibility Standards specific to fixed route and specialized transit, the timeframe for compliance and an indication of Burlington Transit’s status relating to compliance. It is important to note that the timeframe for compliance is within n (being the number of) years after the standard is adopted in regulation. The Transportation Accessibility Standards have not been adopted in regulation.
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Shall comply within n years after this BT’s current status Proposed Standard / Requirement standard is regarding compliance adopted in regulation Training: Including safe operation of accessibility equipment; transportable mobility aid 3 years Compliant securement systems; boarding and alighting assistance procedures; etc.
On board announcements of stops and Compliant connections (fixed-route) Currently manually Operator audibly announces (manual or announces. Audible 3 years electronic means) next major stops announcements proposed in 2011
Accessibility public transportation policy and planning Preparation of an accessible public Compliant transportation plan; maintain in consultation Required to update 3 years with a local accessible public transit advisory annually committee; identify and report actual results against performance measures; etc.
Type of service Deliver accessible origin to destination services considering the functional limitations 3 years Compliant of passengers
Time of service Exceeds requirement in Provide the same hours and days of service terms of catchment area as provided by fixed route public transit in the for specialized transit same catchment area 3 years Non-compliant with early morning service
Compliant with recommended approach Area of service Exceeds requirement in Specialized public transit service area be the terms of catchment area same catchment area as the fixed route for specialized transit transit catchment service area 3 years (Handi-van also operates in the rural portions of Burlington)
Reservations 24 hours in advance with Accept trip bookings between the opening of recommended approach 13 years the booking period the previous day and 3 with incremental hours prior to the published close of the improvement from the
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booking period the previous day current 48 hours
Shall comply within n years BT’s current status Standard / Requirement after this standard regarding compliance is adopted in regulation Pick-up times Where possible and practical notify eligible 3 years Compliant passengers of pick up delays
Fares Compliant – same cash Same base fare structure for all public transit fare services within a jurisdiction. Same fare media options. Concession fares to be 3 years addressed with Presto card (scheduled for Handi- van in 2011)
Personal care attendant fares Non-compliant Shall not charge a fare to personal care attendants, recognized by the transportation Compliant with provider, accompanying a passenger with a 3 years recommended approach disability. within prescribed timeframe
Trip restrictions Not restrict the number of trips an eligible passenger is provided or any operational 3 years Compliant practices that limits the availability of service.
Eligibility Shall provide specialized transit services to Non-compliant as current individuals with disabilities that prevents them eligibility is based on from using fixed route public transit physical limitations 6 only temporarily or permanently.
8 years Will be compliant with Consider eligible unconditionally (unable to recommended approach used fixed route), temporarily, or conditionally
(environmental or physical barriers limits
ability to consistently use fixed route transit).
Eligibility process Make eligibility application information Compliant 13 years available in accessible formats.
6 Current eligibility includes the ability to climb stairs on a conventional bus; the ability to walk distance of 175 metres to and from a bus stop; the ability for the applicant travel without care or the support of a companion or escort; and the use of a mobility aid such as a wheelchair, scooter, walker, cane, or crutches.
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Consider an applicant provisionally eligible if Currently non-compliant as an eligibility determination has not been made current Eligibility within 7 calendar days following submission of Committee meets once per the completed application. month
Establish an independent appeal process for Recommended approach eligibility decisions that are unfavourable to for amended eligibility and the applicant with a final decision rendered certification processes to within 14 calendar days upon receipt of an set the foundation for appeal future enhancements within prescribed May require additional assessments of the timeframe eligibility of temporary and conditional eligible passengers at reasonable intervals.
May establish an administrative process to Compliant suspend or remove the provision of specialized transit services to eligible persons who establish a pattern or practice of missing scheduled trips or no longer meet eligibility criteria.
Visitor service Make specialized transit services available to visitors. Consider as eligible, visitors who provide confirmation that they are eligible for Compliant 3 years specialized transit in the jurisdiction in which they reside or meet the eligibility requirements of the host jurisdiction.
Transportation between adjacent municipalities Where specialized transit services are provided in adjacent municipalities within a Compliant 3 years contiguous urban area, the transportation providers of both services shall facilitate connections between respective services.
Companions May allow companions to travel with an eligible passenger if space is available and 3 years Compliant will not result in the denial of service to other eligible persons.
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6. RECOMMENDATIONS – A WAY FORWARD
The following section presents a series of recommendations designed to:
• Preserve the integrity of Handi-van services for those persons with a disability who are unable to use accessible conventional transit;
• Maximize the utility of current and future investments made by the City in accessible conventional transit and accompanying infrastructure;
• Provide flexible mobility options with a cost-effective mix of accessible shared-ride public transportation services;
• Recognize the legislative guidelines of the Accessibility for Ontarians with Disabilities Act (AODA); and
• Be fiscally responsible and accountable. 6.1 SERVICE STRUCTURE & OPERATIONS RECOMMENDATIONS
6.1.1 HANDI-VAN OPERATIONS AND SERVICE DELIVERY
6.1.1.1 Area and Hours of Service Handi-van specialized transit is shared ride public transit requiring an equitable approach between Burlington Transit’s conventional or fixed route services and specialized. Consistent with the requirements of the AODA, Handi-van service shall migrate to the same area of service and hours of service by day of week as that of conventional transit services. Logistically, wherever and whenever conventional transit operates, Handi-van service shall be available to customers whose trip origin and destination are within the same catchment area as fixed route transit services.
It is recommended that Handi-van shall operate the same hours of service by day of week as that of conventional transit services. Handi-van service is currently provided in the rural area which exceeds the conventional transit service standard.
Comply by January 2012
6.1.1.2 Trip Booking/Advance Booking and Scheduling Requirements A trip booking requirement of 24 hours in advance (and up to seven days) will contribute to maximizing productivity without a degradation of service quality. The user defined parameters in the Trapeze scheduling software algorithm be amended to reflect marginal increases in maximize travel times in order to foster greater ridesharing. Ultimately, in compliance with AODA, 24 hours will be reduced to reflect three-hours prior to the published close of the booking period the previous day.
It is recommended that Handi-van booking requirement shall be 24 hours in advance (and up to seven days).
Comply by January 2011
It is recommended that Burlington Transit develop the on-line capability to accept passengers’ trip confirmations and cancellations.
Comply by January 2011
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6.1.1.3 Service Expansion The 5-Year Financial Plan reflects recommended service expansion including a 12 to 15 percent increase in Handi-van service hours in 2010 as well as one additional vehicle and operator. An additional vehicle is projected to be required in 2013 bringing the total number of Handi-van vehicles to ten.
In addition to expanding the number of revenue vehicle hours and the number of Handi-van vehicles, additional service expansion will take place with the expanded use of supplemental taxis.
6.1.1.4 Fare Policy – Personal Care Attendant Handi-van shall not charge for a fare for personal care attendants (as certified by amended application process.
Comply by January 2011
6.1.1 TAXI SCRIP PROGRAM
While relatively cost effective, the Taxi Scrip program detracts from the effectiveness of Handi-van service delivery by fragmenting the market for the shared ride services. Further, this user-side subsidy amounts to an income supplement not afforded the public at large.
Approximately seventy-two program participants (or less than 3% of the registrant market) purchase the maximum of two books of scrip coupons per month. This accounts for 95 percent of the coupon books sold. Based on the net cost of the respective programs, the subsidy for each scrip program participant is $354. vs. a net cost of $319. per person (based on number of registrants, not trips) for the Handi-van and taxi services.
It is recommended that the current subsidy for users of the Taxi Scrip program be reduced from the current level of forty percent to twenty-five percent. The cost for program participants will increase from $24. for $40. worth of taxi coupons to $30. for $40. worth of coupons. 7
Comply by July 2010
It is recommended that Taxi Scrip program participants be limited to the purchase of three (3) books of coupons every two (2) months (reduced from the current limit of 2 books per month)
Comply by July 2010
6.1.2 INTEGRATION WITH CONVENTIONAL TRANSIT
It is recommended that Burlington Transit encourage the voluntary use of accessible fixed route services for those Handi-van registrants able to use (possibly for some of their trips, some of the time) by providing referral and information dissemination services relating to travel training and in- house capabilities to provide trip planning.
Comply by January 2011
7 It is important to note that during the October public meeting, program participants did not concur with this recommended approach.
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6.2 ELIGIBILITY & CERTIFICATION RECOMMENDATIONS
Handi-van specialized transportation services provide a valuable service for people with a disability in Burlington. It remains imperative that there exists, however, nondiscriminatory access to accessible conventional services, when available, with Handi-van acting as a “safety net” for people who cannot use the conventional and community transportation services. Philosophically, specialized transportation is not intended to be a comprehensive system of transportation for individuals with disabilities but simply a system that can provide individuals with disabilities the same public transportation service opportunities everyone else gets. A key goal ought to be that of integration and ensure that persons with disabilities can use public transportation without encountering unnecessary barriers.
6.2.1 ELIGIBILITY
The city’s specialized transit services are public transportation for those persons unable to use an accessible public transportation system, not for those who find it more difficult or are reluctant or unwilling to use an accessible public transportation system. Similarly, it is important to determine an applicant’s need for an attendant including the need for such attendant care to function independently in the community as opposed to only for the purposes of transportation on Handi- van.
It is therefore critical that Handi-van services are reserved for those having no other public transportation option. Given the move towards a fully accessible conventional transit fleet, more people will be able to access these services.
Recognizing the broad range of disabilities, including how a person’s functional disability may affect their ability to use conventional transit services, the amended application form reflects three categories of specialized service:
Category I: Persons unable to board ride or disembark independently from a conventional or community bus vehicle, even if accessible.
Category II: Persons with a temporary disability.
Category III: Persons whose specific disability, or disability plus environmental barriers (e.g. distance, terrain, weather), prevents them from getting to the boarding location or from the disembarking location of a conventional transit vehicle.
It is important to recognize the transport needs of persons with a cognitive disability or mental illness where functional limitations may be less straightforward to assess. The application form drafted as part of this project reflects the requirements of those with a non-physical functional limitation. A copy is included as Appendix A.
6.2.2 CERTIFICATION
Certification is the process by which applicants confirm that the functional disability information conveyed in their application form is true and accurate. As discussed above, Handi-van service eligibility will be based on a functional, rather than medical model. Persons are not qualified or disqualified on the basis of a specific diagnosis or disability. An individual will be certified as eligible if there is any part of the conventional transportation system which cannot be used or navigated by that individual because of a functional disability. Alternate approaches to certify an applicant’s
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eligibility range from self-certification to having a doctor sign applications forms. The most common approach appears to include the latter but ought to include any medical practitioner including occupational therapists. Further, certification ought to include a process whereby applicants, specifically Category II and III eligible persons, are encouraged to participate in a travel or mobility training program. Various incentives may be provided ranging from travel training participants including free travel vouchers for use on conventional transit to frequent user (of conventional transit) programs when participants may accumulate points redeemable for free travel or other rewards.
6.2.3 APPLICATION PROCESS
The following provides a framework for a series of recommendations for an amended eligibility and certification process requiring: • An update of all client data; and • A revised paper application providing significantly more information relating to functional limitations.
In addition to the certification process related recommendations, a number of administrative related recommendations have been made. These address processes, roles and responsibilities. The comments in favour and comments against are based on discussions during stakeholder consultation.
Issue #1: Should current registrants be granted automatic eligibility rather than requiring all registrants to undergo a recertification process?
Stakeholder Comments in Favour Stakeholder Comments Against
“Grandfathering” (automatic eligibility for current Unfair to future applicants who would have to registrants) would be administratively simpler undergo a more comprehensive application process. Also unfair to current registrants who either choose to use Handi-van infrequently or are unable to use Handi-van more frequently but are unable to due to capacity constraints
Less likely to encounter community opposition The City needs to maintain an accurate client database. Client data will be required for any automation of the booking scheduling functions.
A proportion of the applicants would probably be As registrations continue to grow, the capacity of found eligible anyway the system to provide an adequate level of service will become increasingly constrained
Recommendation #1: Existing registrants will be “grandfathered” however all registrants will be requested to complete the application form in order for the City to develop and maintain a comprehensive client database. The recertification process should be completed within a one-year period.
Begin re-registration/certification by July 2010
Issue #2: Should the eligibility process continue to be limited to paper applications as opposed to incorporating an in-person interview?
Stakeholder Comments in Favour Stakeholder Comments Against
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Process is familiar Paper applications provide very limited information to make accurate determinations
Less expensive to implement in short-term Useful follow-up with professionals to verify certification can be just as time-consuming to staff as an in-person interview
Politically (potentially) less challenging to Agency does not have the opportunity to inform grassroots community as process won’t appear to applicants about other services and to accurately be significantly changed determine candidacy for mobility training
Possibly easier to administer Increased accuracy will result in far greater cost savings that could be used to enhance service to those who truly need it
In-person assessments can be intimidating to some applicants, particularly seniors or those with depression
Recommendation #2: Implement the use of a more detailed application form.
Implement amended application form in July 2010.
Issue #3: If a form of in-person assessment is selected, should all applicants (or those being recertified) be required to come in for the assessment rather than allowing some to be certified through a paper process?
Stakeholder Comments in Favour Stakeholder Comments Against
Requiring all current registrants to come in is more Some individuals have disabilities, which will equitable and avoids getting into arguments of why always prevent them from riding conventional one person’s application is more clearly eligible transit. Why put them through the bother of an in- than another’s person assessment?
Allows everybody to hear about other Universal in-person assessments is more costly (at transportation/transit services available to them least in the short term) than selective interviews
Handi-van eligibility is so valuable that it is not too It would lengthen the process of recertification to much to expect an individual to come in for one have everyone come in interview
If the person is unable to come in for an interview, how will they be able to use Handi-van service if they are found eligible?
Recommendation #3: A more comprehensive paper application process will preclude the requirement for all applicants to come in for an in-person interview or assessment. If additional information about the applicants disability and how if affects their use of Burlington Transit’s accessible fixed route transit services, an applicant may be requested to attend an in-person interview.
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The eligibility sub-committee will maintain their responsibility to review and approve/not approve Handi-van applicants.
7. HANDI-VAN SPECIALIZED TRANSIT 5-YEAR FINANCIAL PLAN
The following 5-Year Financial Plan represents:
• Handi-van vehicle expansion in years 2010 and 2013 as well as vehicle replacements of 1 to 3 vehicles in each year beginning in 2011.
• One additional operator and expansion vehicle in 2010 and 2013 as well as an increase of .5 (FTE) office/operations staff in 2011.
• A 40% increase in the number of trips during the 2009 to 2014 period.
• Increases in both the number of Handi-van revenue hours as well as the use of supplemental taxis.
• The use of supplemental taxis will increase from 16% of total trips to 28% of total trip volumes by 2014.
• Taxi Scrip trips will decline slightly from the 2009 figure of 14% of total trip volumes to 7% of total trip volumes over the next five years.
• Net operating costs are projected to increase by 40% between the years 2009 and 2014.
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Burlington Handi-van: 5-Year Financial Plan 2010-2014 Assumes interventions within a framework of demand management
Actual Budget Actual Five Year Projections 2008 2009 2009 2010 2011 2012 2013 2014
City Population 170,100 172,400 172,400 174,300 175,800 177,100 178,200 178,900
Vehicles (Handi-van) 8 8 8 9 9 9 10 10
Staff Resources Operators (FT/PT) 7/3 7/3 7/3 8/3 8/4 8/4 9/4 9/4 Admin.(Call-taking,Scheduling,Dispatch) 2 2 2 2 2.5 2.5 2.5 2.5
Revenue Vehicle Hours 14,036 14,400 14,400 16,275 16,600 16,600 18,300 18,300
Handi-van Registrants 2,404 2,450 2,665 2,900 3,150 3,450 3,800 4,200
Passenger Trips 48,707 52,460 54,860 56,870 60,400 63,930 67,460 71,000
Trips on Handi-van 35,075 35,800 38,350 41,800 42,400 42,500 45,900 45,900 Passengers/Hour 2.5 2.5 2.7 2.6 2.6 2.6 2.5 2.5 Trips on Supplemental Taxi 6,975 8,300 9,005 10,095 13,025 16,455 16,585 20,125 Trips by Taxi Scrip 6,657 8,360 7,505 4,975 4,975 4,975 4,975 4,975
Total Trips: Handi-van & Supplemental Taxi 42,050 44,100 47,355 51,895 55,425 58,955 62,485 66,025 % Trips / Handi-van 72% 68% 70% 74% 70% 66% 68% 65% % Trips / Supplemental Taxi 14% 16% 16% 18% 22% 26% 25% 28% % Trips / Taxi Scrip 14% 16% 14% 9% 8% 8% 7% 7%
Passenger Revenue (Handi-van & Taxi) $ 87,367 $ 105,000 $ 110,367 $ 133,141 $ 142,440 $ 151,515 $ 160,585 $ 169,685
Taxi Scrip Program $ 39,345 $ 35,000 $ 43,984 $ 27,600 $ 34,500 $ 34,500 $ 34,500 $ 34,500
Total Revenue $ 126,712 $ 140,000 $ 154,351 $ 160,741 $ 176,940 $ 186,015 $ 195,085 $ 204,185
Operating Cost Transportation Handi-van $ 906,558 $ 940,544 $ 856,359 $ 998,763 $ 1,049,300 $ 1,080,830 $ 1,227,200 $ 1,263,980 Cost/Hr $ 64.59 $ 65.32 $ 59.47 $ 61.37 $ 63.21 $ 65.11 $ 67.06 $ 69.07 Taxi Contract $ 79,064 $ 65,000 $ 104,887 $ 90,000 $ 105,730 $ 133,105 $ 141,085 $ 168,940 Cost/Passenger $ 11.34 $ 7.83 $ 11.65 $ 8.92 $ 8.12 $ 8.09 $ 8.51 $ 8.39
Taxi Scrip Program - gross cost $ 62,887 $ 46,000 $ 69,464 $ 46,000 $ 46,000 $ 46,000 $ 46,000 $ 46,000
Taxi Scrip Program - net cost $ 23,542 $ 11,000 $ 25,480 $ 18,400 $ 11,500 $ 11,500 $ 11,500 $ 11,500
Total Operating Cost $ 1,048,509 $ 1,051,544 $ 1,030,710 $ 1,134,763 $ 1,201,030 $ 1,259,935 $ 1,414,285 $ 1,478,920 Total Cost/Passenger $ 21.53 $ 20.04 $ 18.79 $ 19.95 $ 19.88 $ 19.71 $ 20.96 $ 20.83
Net Operating Cost $ 921,797 $ 911,544 $ 876,359 $ 974,022 $ 1,024,090 $ 1,073,920 $ 1,219,200 $ 1,274,735 Net Cost/Passenger $ 18.93 $ 17.38 $ 15.97 $ 17.13 $ 16.96 $ 16.80 $ 18.07 $ 17.95 Net Cost/Capita $ 5.42 $ 5.08 $ 5.59 $ 5.83 $ 6.06 $ 6.84 $ 7.13
Revenue/Cost 0.12 0.13 0.15 0.14 0.15 0.15 0.14 0.14
Capital Expenditures Vehicle Expansion $ 225,000 $ 225,000 Replacement Vehicles $ 225,000 $ 675,000 $ 225,000 $ 450,000 Number of Replacement Vehicles 1 3 1 2
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Appendix A
City of Burlington
Handi-van Revised Application Form
February, 2010
HANDI-VAN APPLICATION FORM INSTRUCTIONS
Handi-van service is intended for those persons who, due to a functional limitation, cannot board, ride or disembark from a fixed-route Burlington Transit bus.
If you have any questions or need assistance, please call Handi-van at:
(905) 639-5158
HOW TO APPLY FOR HANDI-VAN SERVICE:
• Fill out Part A of this application. • Take or send the application (Parts A and B) to your health care professional to have Part B completed. Both Part A and Part B must be completed in order for your application to be considered. • Return the completed application (Parts A and B) to Handi-van. • Handi-van will notify you of your eligibility. If we require additional information, you may be requested to come in for an interview to provide us with more information about your disability and how it affects your use of Burlington Transit’s accessible fixed-route transit services. • If you have not been notified within 30 days of submitting your application, please call us. • All information on this application form will be kept confidential. • Failure to completely fill out the application will delay the application process.
When you have completed Part A, take or mail Parts A and B to your health care professional. When Part B has been completed, mail parts A and B to:
Burlington Handi-Van 3332 Harvester Road Burlington, Ontario L7N 3M8
HANDI-VAN APPLICATION FORM - PART A PLEASE PRINT OR TYPE CLEARLY Section 1: Information
Name Date of Birth Last First Middle YY MM DD
Address # Street Apt City or Town Postal Code Daytime Evening TTY/TDD Number ( ) ( ) ( ) Phone: Phone: (for hearing Impaired)
Section 2: In case of an emergency, please notify (eg. family, friend, neighbour):
Name: Relationship: Telephone : ( )
Section 3: Check one box only: A. I can always get to and from a bus stop YES NO B. If you checked NO above, please complete: I can get to and from a bus stop only IF (check all that apply): I have an attendant with me I need to travel less than ______feet to or from a bus stop I am familiar with the area I receive travel training for the stops I use There is a sidewalk There are curb cuts along the route to stop The path is free of ice, snow or debris The ground is level or only slightly inclined I do not have to cross a busy street Other:
Section 4: Check one box only: A. I can generally wait outside at a bus stop. YES NO B. If you checked NO above, please complete: I can wait outside at a bus stop only IF (check all that apply): There is a bench The wait is no longer than ______minutes There is a shelter Other:
Section 5: Will you use any of the following when you ride Handi-van? Check all that apply: Manual Wheelchair Powered Wheelchair Oxygen Bottle Powered Scooter Walker Hearing Aid Guide Dog Cane Prosthesis Communication Board Crutches White Cane Other:
Section 6: Regarding the use of accessible Burlington Transit fixed route buses. Check ONE box only: A. I can independently recognize my destination and leave the vehicle. YES NO B. I cannot independently recognize my destination and leave the vehicle. YES NO C. I can recognize my destination and leave the vehicle only if: (check all that apply)
I receive travel training The driver announces my stop Other,
Section 7: I can ride a Burlington Transit fixed route bus only IF (Check all that apply) I have an attendant with me I do not have to cross a busy street I am familiar with the route There is a safe path of travel to and from the bus I receive travel training There are curb cuts along the route to stop Every bus on my route is accessible A seat is available Other:
Section 8: Do you require an attendant when you travel? YES NO
Section 9: A. Do you use a wheelchair or scooter? YES NO If you checked yes above: B. YES NO SOMETIMES Can you transfer to a car without assistance?
Section 10: How does your disability affect your ability to use Burlington Transit? (Please provide any information that you feel would help.)
Section 11: I hereby certify that to the best of my knowledge, the information given above is correct and I authorize the health care professional named in Part B to provide information to Handi-van. If Handi-van receives new information regarding a change in my functional ability, my eligibility status may be reviewed and changed.
Signature of Applicant Date of Birth YY MM DD
Section 12: If you are not the applicant, but have completed this application on the applicant’s behalf, you must provide the following information: Your Name: Daytime Phone: ( )
Address # Street City or Town Postal Code
Relationship to the Applicant:
I certify that to the best of my knowledge the information given above is correct.
Signature of Applicant Date of Birth YY MM DD
HANDI-VAN APPLICATION FORM PART B
PLEASE PRINT OR TYPE CLEARLY Section 1: I have read Part A in its entirety. YES NO
Section 2: I agree with the information in Part A. If NO, please explain: YES NO
Section 3: Condition Causing Disability: Please explain:
Section 4: Severity Mild Moderate Severe Profound
Section 5: Expected Duration of Disability
Temporary: Expected until: YY MM DD Permanent: Conditions with no expectations of improvement
Section 6: Is (are) there any other effect(s) of the disability that Handi-Van should be aware of?
Section 7: Profession (please check one) Licensed Physician Licensed Physical Therapist Certified Rehabilitation Specialist Nurse Registered Occupational Therapist Licensed Optometrist Certified Psychologist
Section 8: I hereby certify that the above information is true:
Print Name: Last First
License/Certification #: Stamp
Signature: Date: YY MM DD
Address: # Street City or Town Postal Code
Telephone: ( ) E-mail:
Please return this application to the person seeking Handi-van certification, or with the person’s permission, forward it directly to Handi-van at: Handi-van Registration Burlington Transit 3332 Harvester Road Burlington, Ontario, L7N 3M8 Appendix B
City of Burlington
Paratransit Review
Paratransit Overview
February, 2010
Paratransit Review Paratransit Overview
Introduction IBI Group has been engaged to conduct the Paratransit Review by the City of Burlington. The purpose of the study is to review best practices of other Canadian cities in dealing with paratransit issues. The following document, Paratransit Overview, summarizes operating data from the 2008 Canadian Urban Transit Association’s (CUTA) Ontario Specialized Transit Services Fact Book. The Fact Book contains operating statistics collected from over 75 CUTA member transit systems which provide transit services for persons with disabilities. It covers 2007 and 2008, although this review focuses on the 2008 data. This document focuses on the key operating characteristics (such as number of trips, revenue vehicle kilometres, and total operating expenses) from the paratransit services of 12 cities, as well as the Population Group 1 summary for general comparison. The review focuses on cities in Burlington’s general population range (100,000 to 500,000), and provides a guide for paratransit planning as Burlington deals with future growth.
CUTA Definitions Dedicated Service – Service provided in vehicles exclusively dedicated to the transport of persons with disabilities (e.g. vans, small buses). This service can be provided internally or under contract. Non-Dedicated Service (e.g. taxis) – Service available to persons with disabilities provided by non-exclusive vehicles, typically taxis under contract. Operating Data provides vehicle kilometres (revenue and total) and vehicle hours (revenue and total) for Dedicated Service, and total vehicle kilometres and hours for Non-Dedicated Service. Revenue vehicle kilometres (or hours) exclude deadheading, maintenance, training, charter travel, and non-dedicated services. Passenger Data includes eligible riders who used dedicated and/or non-dedicated (taxi) specialized transit service, as well as attendants/companions and other non-paying riders. A passenger trip is defined as a one-way trip from origin to destination. Passengers who request round-trip (two-way) service are counted twice. Passenger trips that are being delivered for free by volunteer services should NOT be counted in the annual passenger statistics. Trip Types • Subscription/Pre-booked – Regular pre-scheduled trips with no call-in requirements for daily work-trips or regular pre-booked trips (e.g. regular medical trips). • Reservations – Trips not taken regularly and requiring an advance call-in. Minimum and maximum early notice call-in times vary between municipalities, but minimum notice is typically 24 hours. • On-Demand/Day of Trip – Trips requested the same day as the trip is made, and accommodated as feasible.
February 2010 1 Paratransit Review Paratransit Overview
Financial Data – This document concentrates on total operating expenses, operating revenue, and net costs. • Total Operating Expenses – Includes administration expenses, internal operations expenses for dedicated services, contract expenses for dedicated services, contract expenses for non-dedicated/taxi services, expenses for the taxi scrip/fare reimbursement program, internal maintenance expenses, and fuel expenses. • Operating Revenue consists of passenger revenue and other operating revenue.
o Passenger Revenue – Fares received from dedicated and/or non-dedicated service.
o Other Operating Revenue – Charters, bank interest, tax rebates, etc. • Net Costs – Total operating expenses minus operating revenue. Vehicle Data details the number of vehicles (total and in the peak) operating the dedicated service. Vehicles used by volunteer services should NOT be considered as revenue vehicles and must not be included in the revenue vehicle statistics. Performance Indicators are calculated as follows: • Cost/Passenger = Total Operating Expenses/Total Passengers. • Cost/Capita = Total Operating Expenses/Population Served. • Passengers/Capita = Total Passengers/Population Served. • Registrants/Capita = Registrants/Population Served. • Passengers/Registrant = Total Passengers/Registrants. Population Group 1 is comprised of cities with a service area population of greater than 150,000.
February 2010 2 Paratransit Review Paratransit Overview
Table 1: Barrie – Niagara Region
City Barrie Burlington Guelph Hamilton Kingston Niagara Region Population Served 135,000 163,735 120,000 513,000 117,000 435,300 Registrants 2,614 2,404 1,410 12,153 3,209* 763 Barrie Accessible Burlington Accessible Niagara Community Guelph Transit Kingston Access Service Operator Transit Handi- Transportation Specialized Transportation Mobility Service Bus Van Services Transit Service Operating Data Rev Veh Km – Ded Ser 312,761 309,591 182,391 4,127,875 597,574 315,421 Tot Veh Km – Ded Ser 312,761 309,591 182,391 4,127,875 641,012 315,421 Rev Veh Hr – Ded Ser 20,260 14,036 9,888 186,378 30,695 12,128 Tot Veh Hr – Ded Ser 20,260 14,036 9,888 186,378 32,829 12,128 Tot Veh Km – Non-Ded Ser ------Tot Veh Hr – Non-Ded Ser ------Passenger Data Dedicated Service 37,478 35,075 33,550 422,208 84,502 8,099 Non-Dedicated Service 1,429 13,632 16,679 237,815 2,721 - Total Passengers 38,907 48,707 50,229 660,023 87,223 8,099 % Subscription/Pre-booked 30% 50% 19% 39% 58% 62% % Reservation 68% 49% 80% 25% 40% 38% % On Demand/Day of Trip 2% 1% 1% 36% 2% -
February 2010 3 Paratransit Review Paratransit Overview
City Barrie Burlington Guelph Hamilton Kingston Niagara Region Vehicle Data Total Dedicated Vehicles 11 8 7 86 21 5 Peak Dedicated Vehicles 9 7 5 73 18 4 Accessible Taxis 1 - 2 - - - Financial Data Total Operating Expenses $1,124,052 $1,091,929 $771,766 $14,525,284 $2,713,647 $619,374 Passenger Revenue $97,268 $87,367 $103,769 $1,774,528 $404,851 $43,776 Other Operating Revenue - $39,345 - $46,081 $196,247 - Net Cost $1,026,784 $965,217 $667,997 $12,704,675 $2,112,549 $575,598 Performance Indicators Cost/Passenger $28.89 $22.42 $15.36 $22.01 $31.11 $76.48 Cost/Capita $8.33 $6.67 $6.43 $28.31 $23.19 $1.42 Passengers/Capita 0.2882 0.2975 0.4186 1.2866 0.7455 0.0186 Registrants/Capita 0.0194 0.0147 0.0118 0.0237 0.0274* 0.0018 Passengers/Registrant 14.88 20.26 35.62 54.31 27.18* 10.61
*Kingston Access Bus did not report Number of Registrants for 2008; 2007 figures are included here as a rough guide.
February 2010 4 Paratransit Review Paratransit Overview
Table 2: Oakville – Windsor, plus Population Group 1
Waterloo Population City Oakville St. Catharines Sudbury Thunder Bay Region – Windsor Group 1 Urban Population Served 173,600 130,000 160,000 112,000 482,700 233,687 8,631,407 Registrants 1,381 1,517 4,311 5,085 6,030 2,914 112,853 HAGI GRT Paratransit Community Oakville Sudbury Handi MobilityPLUS 13 transit Service Operator System of St. Services for Handi-Transit Transit Transit (Urban Service systems Catharines Thunder Bay Area) Inc. Operating Data Rev Veh Km – Ded Ser 225,563 329,095 1,015,992 675,645 1,093,498 311,339 31,443,045 Tot Veh Km – Ded Ser 225,563 329,095 1,015,992 675,645 1,115,358 459,043 34,040,698 Rev Veh Hr – Ded Ser 11,702 18,382 45,034 32,039 53,687 20,799 1,534,125 Tot Veh Hr – Ded Ser 11,702 18,382 45,034 32,039 59,652 20,799 1,644,709 Tot Veh Km – Non-Ded Ser - 26,207 - - - - 2,853,713 Tot Veh Hr – Non-Ded Ser - 1,936 - - - - 110,590 Passenger Data Dedicated Service 26,352 34,835 113,040 78,094 132,790 53,631 3,988,700 Non-Dedicated Service 10,914 4,122 10,671 11,794 123,739 - 1,137,737 Total Passengers 37,266 38,957 123,711 89,888 256,529 53,631 5,126,437
February 2010 5 Paratransit Review Paratransit Overview
Waterloo Population City Oakville St. Catharines Sudbury Thunder Bay Region – Windsor Group 1 Urban % Subscription/Pre-booked 30% 5% 70% 43% 49% 42% 50% % Reservation 70% 93% 25% 55% 51% 56% 45% % On Demand/Day of Trip - 2% 5% 2% - 2% 5% Vehicle Data Total Dedicated Vehicles 6 11 14 24 27 12 814 Peak Dedicated Vehicles 4 8 14 17 24 11 722 Accessible Taxis 4 1 - - 7 - 199 Financial Data Total Operating Expenses $687,005 $1,199,333 $2,538,981 $2,066,858 $6,695,717 $1,107,488 $156,616,840 Passenger Revenue $75,305 $93,757 $241,719 $452,312 $488,511 $196,320 $10,286,642 Other Operating Revenue - - - $71,401 $272,995 $366 $416,406 Net Cost $611,700 $1,105,576 $2,297,262 $1,543,145 $5,934,211 $910,802 $145,913,792 Performance Indicators Cost/Passenger $18.44 $30.79 $20.52 $22.99 $26.10 $20.65 $30.55 Cost/Capita $3.96 $9.23 $15.87 $18.45 $13.87 $4.74 $18.14 Passengers/Capita 0.2147 0.2997 0.7732 0.8026 0.5315 0.2295 0.5939 Registrants/Capita 0.0080 0.0117 0.0269 0.0454 0.0125 0.0125 0.0131 Passengers/Registrant 26.98 25.68 28.70 17.68 42.54 18.40 45.43
February 2010 6