HOME AND COMMUNITY CARE
Transport Strategy
May 1998
PREPARED BY:
TBA PLANNERS PTY LTD GRIMWOOD PTY LTD PLANNING INITIATIVES AND ANDREW O’BRIEN & ASSOCIATES
For the Department Of Human Services and the Department of Infrastructure Disclaimer
HOME AND COMMUNITY CARE TRANSPORT STRATEGY
This report has been prepared by TBA Planners jointly for the Department of Human Services and the Department of Infrastructure.
One of the objectives of this independent consultant study was to investigate how the required transport services are being delivered, and how this delivery could be made more effective and efficient. The report is not constrained by government policies or other planning or community goals, but provides an independent appraisal of how the delivery of community transport services may be improved.
The views expressed in the report are the opinions of the consultants and do not necessarily reflect the views of either Department. The report has not been considered by Government and has no official status. Table of Contents
ACKNOWLEDGMENTS...... I
GLOSSARY OF ABBREVIATIONS...... II
A. EXECUTIVE SUMMARY...... I
B. RECOMMENDATIONS...... 1
C. REVIEW AND ANALYSIS OF EXISTING SYSTEM...... 1
1. Study Background...... 1 1.1 Project Aim and Objectives...... 1 1.2 Study Area...... 1 1.3 Study Approach...... 2 1.4 HACC Transport Funding Arrangements...... 4
2. Existing Regional And Local Transport Systems...... 7 2.1 A Framework For Considering Transport Requirements...... 7 2.2 Access to Community Transport...... 9 2.3 HACC Transport Services...... 11 2.4 Taxis and Hire Cars...... 19 2.5 Transport Subsidies and Schemes...... 20 2.6 Public Transport Network...... 23 2.7 Case Studies In The Loddon Mallee Region...... 24
3. Relevant Studies and Programs...... 31
4. Loddon Mallee Region...... 38 4.1 Demographic Profile...... 38 4.2 Regional Settlement Pattern...... 43
5. Summary Of Issues...... 45
D. TRANSPORT MODELS...... 51
6. Framework For Development Of Transport Models...... 51 6.1 User Priorities...... 51 6.2 Markets For Local Transport...... 51 6.3 Planning and Co-ordination at Local Level...... 53 6.4 Innovative Features For Models...... 56 6.5 Transport Models for Loddon Mallee Region...... 60 6.6 Estimated Cost of Different Service Options/Models...... 65 6.7 Application of Models...... 66
APPENDICES A:...... DEMOGRAPHIC TABLES B:...... TRANSPORT ISSUES & OPPORTUNITIES BY L.G.A. C:...... BIBLIOGRAPHY D:...... PEOPLE & ORGANISATIONS CONTACT LIST HACC Transport Strategy for Loddon-Mallee Region
ACKNOWLEDGMENTS
TBA Planners in association with Grimwood Pty Ltd, Planning Initiatives, Andrew O’Brien and Associates wish to thank the Steering Committee for their valuable input and contributions in the bringing together of the final report HACC Transport Strategy for Loddon Mallee Region.
Steering Committee Members
• Mike Butcher Department of Human Services - Loddon Mallee Region • Dellice Coultas Department of Human Services - Loddon Mallee Region • Jeff Page Department of Infrastructure Ð Melbourne • Paul Vl_ek Central Goldfields Shire Ð Maryborough • Christine Scott HACC Advocacy Project Ð Bendigo • John Foley Victorian Taxi Association Ð Bendigo • Gerard José/ Joy Campaspe Shire Ð Echuca O’Donnell • Joan Doolan HACC Consumer - Dingee
Consultant Project Team
Trevor Budge David Robb Chris Fyffe Jeff McCubbery Jenny Hogan Andrew O’Brien
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GLOSSARY OF ABBREVIATIONS
ADASS Adult Day Activity Support Services
ABS Australian Bureau of Statistics
ATSIC Aboriginal & Torres Strait Islander Commission
BHCG Bendigo Health Care Group
CHC Community Health Centre
CRU Community Residential Unit
CSO Community Services Officer
CTO Community Transport Organisation
DAN Disability Action Network (Loddon Mallee)
DHS Department of Human Services
DOI Department of Infrastructure
DVA Department of Veteran Affairs
HACC Home and Community Care
H &CS Health and Community Services
LGA Local Government Area
LCOARN Loddon Campaspe Older Adults Recreation Network
MPTP Multi Purpose Taxi Program
NESB Non English Speaking Background
PTC Public Transport Corporation
SLA Statistical Local Area
VPTAS Victorian Patient Transport Assistance Scheme
VTD Victorian Taxi Directorate
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A. Executive Summary
General
1. Access to transport has been identified as a high priority in the Loddon Mallee Region in consultations undertaken for this Strategy and consultations undertaken as part of the Loddon Mallee Regional Aged Care Plan (1996). 2. Access to transport is a fundamental aspect of a sense of personal well being and independence. The HACC target group in the Loddon Mallee Region is often transport disadvantaged. Transport options may be either not available, unsuitable, not within the financial means of the HACC target group, or targeted to other priority groups as in the case of ambulances and Red Cross. Rural communities in the north of the Loddon Mallee Region are particularly disadvantaged. 3. For the purpose of this report community transport definition is about responding to the transport disadvantaged HACC target groups needs at local levels within local communities. These services need to be equitable, flexible and specialised transport services. 4. Community transport should be viewed as complementary to ‘mainstream public transport’ by catering for needs not met by public transport and providing links to public transport. The forms of community transport applicable to HACC programs include sharing of community vehicles, dedicated vehicles for specific organisations, contracting buses or taxis for specific services, and volunteer driver and support schemes. 5. HACC transport trips in the Loddon Mallee Region are predominantly for medical appointments (especially specialists) or for social and leisure activities. It can be argued that targeting transport services such as ambulances and Red Cross to other priority groups has resulted in increased use of HACC funded transport for medical appointments, which in turn is limiting the potential of the Social Support program.
Policy
6. There is no central co-ordination at State level or peak transport body for community transport. The Community Transport Organisation in New South Wales warrants further investigation. It is responsible for the distribution of HACC transport resources, has good links with government departments, and is able to negotiate appropriate insurance policies on behalf of its 120 community transport members. 7. There is inconsistency in HACC agency policies across the Region relating to eligibility for HACC transport and prioritisation of trips. 8. There appears to be a lack of prioritisation and guiding principles for the allocation of funding for transport services and it is not clear what criteria are being used to ensure that consumers transport needs are being met.
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Co-ordination of Community Transport
9. There are many components to an effective community transport service. They include eligibility assessment, efficient booking system, support and assistance, flexible hours of operation, flexibility to encourage informal transport arrangements, affordability, and physical access to the vehicle. 10. Community transport in the Loddon Mallee Region currently operates in an ad hoc manner with little co-ordination or forward planning. The HACC funding approach to transport is vehicle based and does not consider other options such as purchasing transport services. The effectiveness of the overall transport system and the potential for better co-ordination between service types is largely ignored. 11. There are good examples of services or system of services in this and other Regions that operate efficiently and are meeting individual consumer needs. eg Swan Hill taxi, Ballarat brokerage. These successful services can have wider application in the Loddon Mallee Region. 12. Impairments to co-ordination of HACC and other community vehicles identified in this Strategy and previous studies (Loder & Bayly, 1996) include lack of trust between agencies, legislation, vehicle use policy determined by agencies, finance not available, operational requirements, organisational possessiveness of vehicles, and perceptions about insurance and driver eligibility. 13. Provision of a HACC transport mode in isolation from the broader transport scene can make other forms of transport non-viable within a town or area. The viability of the Heathcote taxi service is reported to be affected by the operation of a HACC vehicle in Heathcote township. 14. Cost estimates of community transport are not easily obtained. The cost per kilometre has been provided for two community transport services - Mildura Sun Assist (sedan) $0.75/km - Mount Alexander Hospital (bus) $1.58/km. 15. Planning and co-ordination of HACC transport services needs to account not only for cross border issues which apply to Murray River municipalities but also overlapping services between some municipalities eg Gannawarra and Loddon, Swan Hill and Gannawarra. 16. A significant amount of transport in the Region relies on elderly volunteers. Volunteer numbers are likely to decline in the future. In some instances, strategies for volunteer recruitment are proving ineffective. Additional support has been identified as being required for volunteers drivers ie. mobile phones, two people are especially needed for long trips, out of pocket expenses, training and development (for example, first aid, lifting and transferring). 17. Inadequate resources are generally allocated to co-ordinate volunteer
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transport.
Planning
18. Planning for community transport on a Region wide basis needs to take account of demographic, economic and social trends including : • Growth in population is occurring in the Bendigo-Melbourne corridor and the key centres of Bendigo, Mildura, Echuca, Kyneton and Woodend. • Decline in population is occurring in municipalities and towns to the north and north west of the Region (Loddon, Buloke, Swan Hill, Gannawarra, Mildura). • Municipalities of Buloke, Mount Alexander, Loddon, Central Goldfields and Gannawarra and the urban centres of Castlemaine and Maryborough have high proportions of older persons (ie above 65 years) • There is a concentration of older persons with low incomes (ie below $10,400) in Loddon and Central Goldfields Shires. 19. Planning for community transport must address the implications of declining levels of services and population outside major towns in the north of the Region and the concentration of services in larger centres. These changes not only increase the need for more transport options but also mean there is a likelihood of less available family support and a declining pool of volunteers. 20. Mapping of community transport resources in the Region and establishing a community transport register based on the Department of Infrastructure’s Catalogue of Community Transport Services should be investigated.
Subsidy Schemes
21. Various subsidies available to HACC clients and other special needs groups (eg multi purpose taxi cards, VPTAS) need to be assessed in terms of their eligibility and procedural requirements. There is also a need to raise community awareness about the availability of schemes. Problems are experienced with general practitioners who do not complete forms and therefore do not properly reflect the consumers’ transport needs. 22. The Multi Purpose Taxi scheme is an extremely worthwhile scheme. In 1996/97 $ 27.0 million was spent on the MPT scheme in Victoria and $731,700 in Bendigo and the surrounding area.
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Taxis
23. Taxi services operate from all major centres in the Loddon Mallee Region and also from Dunolly. Generally speaking, taxi services are not available in towns located within the dryland areas north of Bendigo including municipalities of Buloke, Loddon, and parts of Gannawarra, Swan Hill and Mildura. 24. The role of taxis in the provision of community transport is currently restricted by legislation and regulations. The Victorian Taxi Directorate is examining options, including the opportunity for more flexible fare regimes with ability to charge per kilometre, by trip, or through a contract for all trips for a central agency. 25. Changes are required if taxis are to extend their role in a community transport system. Taxis must be affordable, drivers may need to be trained regarding the HACC target group, and drivers must be able to communicate with various consumers. Some taxis are clearly already able to satisfy these service requirements. Swan Hill taxi service operates as part of the Swan Hill transport network of services with advantages, including : 24 hour communication system, service operates with social support principles with an expectation that drivers perform this role, trip and cost sharing, and a 24 hour service.
Public Transport
26. Public transport provision in the Loddon Mallee Region is broadly characterised by : - Southern part of the Region (Bendigo - Melbourne corridor) serviced with an improved rail and road network, and bus services connecting smaller townships to larger centres, - North of the Region, (excluding Echuca and district) serviced at a basic level. There are few transport options beyond 40 to 50 kilometres of larger urban centres in the north and north west of the Region.
27. An extension of VLines’s role would require some changes including : - Buses would need to be physically accessible. - Train guards would need to be trained about the HACC target group. - Timetables that more adequately respond to consumers demand for travel between Regional and larger centres. - Provision of flexible pick up and drop off locations for buses
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Transport Models
28. A major issue is the potential style of service delivery. Is it to be a service of HACC, or is it to be a transport service by which HACC customers are served as a customer group by a wider service? This is particularly important in rural Regions with few transport options.
29. Transport models that may be suitable within the Loddon Mallee Region include :
Consumer based models where funds are provided directly to the consumer to be spent over a specified time. This model may be suited to isolated areas with no public transport and low population density, eg Buloke and Loddon, and more remote areas within Mildura, Swan Hill and Gannawarra, and parts of Campaspe, Central Goldfields, and Greater Bendigo.
Maintaining/Extending Volunteer Transport in areas that depend on strong volunteer base. This model would require the implementation of a training strategy and would be suitable in areas such as Buloke, Loddon and parts of Campaspe, Central Goldfields, Gannawarra and Greater Bendigo.
Integrated Bus Service is a model that would be viable in areas with larger population centres, higher population densities, high numbers of under-utilised vehicles, and economies of scale available for formal brokerage. This model could apply in larger urban centres and surrounding towns and communities such as Castlemaine, Bendigo, Kyneton, Maryborough, Swan Hill, Echuca and Mildura.
HACC Subsidised Taxi is a model that would be appropriate for townships with a population above 2000 persons, that have a district centre role and where there is capacity to expand taxi business. It would be dependent on good relations between the taxi operator and HACC provider. It may be applicable in, for instance, Kerang, Heathcote, Rochester, Cohuna and Donald.
Encouraging greater use of government and utility vehicles such as Australia Post vans, Department of Education buses and milk delivery vehicles. This type of service would be appropriate for isolated small urban settlements and rural communities within Buloke, Gannawarra, Loddon Swan Hill and Mildura.
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Improvements to public transport both in frequency and standard of services is an ongoing requirement that needs to be assessed against demand and the overall effectiveness of an integrated transport system. Opportunities are greatest in larger centres with established public transport, and in urban centres and communities located alongside or near to rail and bus networks. This would apply to the larger centres in the Bendigo-Melbourne corridor. Retention of existing rail and bus services in the north of the Region is of critical importance to communities in that part of the Region who consistently claim that services are too infrequent or inappropriately timetabled.
30. Coordination of community transport at the local level can best be achieved by adopting the municipal area as a planning area, coordination through a central agency (eg. municipal council) and the preparation of local community transport plans.
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B. Recommendations
A. Policy
1. That the Department of Human Services and Department of Infrastructure investigate the feasibility of funding community transport through HACC but within the Department of Infrastructure ie. along the lines of New South Wales. 2. That the Department of Human Services develop a HACC Fees policy in relation to transport. 3. That the Department of Infrastructure develop Standards for improving access to public transport. 4. That this HACC Transport Strategy report be submitted to the Family and Community Development Parliamentary Committee conducting an inquiry into Planning for Positive Ageing. 5. That the Department of Human Services in conjunction with the Department of Infrastructure develop a Statewide policy for HACC Transport and associated recurrent funding. The policy needs to address : -incentives for co-ordination of vehicles and transport services, -strengthening of local and personal networks, -integration with the public transport system, -training of staff and volunteers, and -specification of community transport co-ordinator’s role.
6. That HACC Transport Standards concerned with support and training (for volunteers and paid drivers) be developed by the Department of Human Services. 7. That the Department of Human Services enables Social Support to be distinguished from transport to enable more effective coordination of community transport. 8. That a HACC policy be developed by the Regional Office of the Department of Human Services, in consultation with relevant agencies in the Loddon Mallee Region, to identify a hierarchy of priority HACC transport trips in the Region.
B. Development and Co-ordination of Community Transport
1. That community transport be co-ordinated at the local level by the preparation of community transport plans which can be used as a basis for funding. The plans can be prepared for municipal areas by nominated organisations/groups eg Aged Care and Disability Advisory Committees.
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2. That the Department of Infrastructure, in consultation with the Victorian Taxi Association review relevant legislation to enable taxis to tender for transport services with other transport providers and negotiate alternative fare arrangements in smaller towns in rural Regions.
3. That the Department of Infrastructure investigate options to enable taxis to be used more flexibly including, for example • Ability to contract to provide transport services (to hospitals, hostels, etc) where the fare is arranged by agreement between the taxi operator and agency rather than determined by the taxi meter. • Ability to multi hire from various locations to a destination • Modifying the existing minimum distance of travel over which fares can be negotiated rather than by the taxi meter. 4. That the Department of Infrastructure, in consultation with the Victorian Taxi Association, introduce maximum taxi fares for distances under 80 kilometres in isolated areas of the State. 5. That the Department of Human Services, in consultation with service providers, develop a code for volunteer transport which aims to achieve policy consistency with respect to volunteer transport. 6. Volunteer transport services should be maintained and extended in areas of the Loddon Mallee Region where it is the most viable and effective transport option. This would apply especially to more isolated towns and rural areas in municipalities such as Buloke Shire.
C. Regional Co-ordination
1. The Department of Human Services and Department of Infrastructure should prepare a community transport directory for the Loddon Mallee Region. The Department of Infrastructure’s Catalogue of Community Transport Services, Draft 1997, will be an important information base for the preparation of the directory. 2. Regional co-ordination of community transport involving two or more municipalities is to be supported as a means to reduce overlap and duplication and promote better use of existing resources. Regional coordination should be promoted between Gannawarra and Swan Hill municipalities and Gannawarra and Loddon municipalities.
D. Funding
1. That the Department of Human Services, in conjunction with other government departments with responsibility for transport funding, should prepare a set of funding principles and objectives for the allocation of funds for transport services. 2. The administration and monitoring of HACC funding should be less orientated towards vehicles and more towards co-ordination, purchase
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of transport services and supporting various transport options. 3. Funding for HACC transport services needs to take account of recent demographic and Regional settlement trends identified in this Strategy, including population change, proportions of older persons, income levels and improvements and downgrading of the public transport system. 4. Funding formula for HACC transport needs to give more emphasis to the isolation factor, also taking into account other issues in isolated areas, including continued declining levels of population, volunteers and services, and the increasing need to travel to larger centres for services.
E. Integrated Transport System
1. A review of current timetables for VLine train and bus services to the north and north west of the Loddon Mallee Region should be undertaken by the Department of Infrastructure to ensure that existing services are providing optimum access and service for the Regional population. 2. That the Department of Infrastructure promote ongoing improvements to public transport for HACC clients, particularly improved physical access and training of staff. 3. Community transport funded by HACC should be co-ordinated wherever possible as part of an integrated transport system (ie all transport modes). A HACC funding incentive for co-ordination should be investigated.
F. Subsidies
1. The Department of Human Services in conjunction with other relevant departments should undertake a comprehensive review and assessment of subsidies available to HACC clients in terms of their eligibility and procedural requirements and the need to promote increased awareness of the availability of subsidy schemes eg Multi purpose taxi cards, VPTAS etc.
G. Transport Models
1. That the range of transport models proposed in this Strategy (Maintain/extend volunteer service, Consumer Based Model, Integrated Transport Service, HACC Subsidised Taxi, “Lucky Dip” and Improvements To Public Transport ) be used as a basis for community transport planning at the local level. This Strategy makes suggestions about the applicability of these models to different circumstances and areas within the Region. It is recommended that the selection of models is the responsibility of local communities and that this selection process should take place during the community transport planning stage, including the stage of preparing local community transport plans referred to in recommendation B1 above.
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2. That continued support be given to those services and community transport systems that are currently working well such as Mildura SunAssist, Campaspe Volunteer Service and Central Goldfields Volunteer Service.
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C. Review and Analysis of Existing System
1. Study Background
1.1 Project Aim and Objectives
This project is co-ordinated jointly by the Department of Human Services and the Department of Infrastructure.
The aim of the project is to:
Develop a Regional HACC transport strategy for the Loddon Mallee Region to assist in the future direction of transport funding and make specific recommendations for the 1997/98 allocation.
Project objectives include :
1. Review transport needs and current service provision to people eligible for HACC services in the Region. 2. Identify impacts on existing and potential public transport service providers of the provision of subsidised community transport services. 3. Investigate inter-departmental transport issues. 4. Develop integrated transport models for HACC consumers appropriate to local conditions in the Region which recognise the existing and potential public transport services. 5. In consultation with key stakeholders, develop a HACC transport strategy for the Region. 6. Make recommendations for the future funding of HACC transport in the Region.
1.2 Study Area
The Study area is defined by the Loddon Mallee Region and comprises the following municipalities:
Buloke Loddon Campaspe Macedon Ranges Central Goldfields Mildura Gannawarra Mount Alexander Greater Bendigo Swan Hill
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Figure 1: The Loddon Mallee Region
Mildura 1 Mildura (RC) 2 Swan Hill (RC) 3 Buloke (S) Robinvale 4 Gannawarra (S) 5 Loddon (S) 6 Campaspe (S) 1 7 Greater Bendigo (C) Ouyen 2 8 Central Goldfields (S) 9 Mt Alexander (S) Swan Hill 10 Macedon Ranges (S) Sea Lake 4 Kerang 3 Wycheproof Boort Echuca Kyabram Donald Wedderburn5 6 Inglewood7 Bendigo 8 Heathcote Maryborough 9 Castlemaine Kyneton 10 Gisborne
1.3 Study Approach
The study approach involved the following stages :
A. Review and Analysis
During this stage information was gathered on the operation and efficiency of the existing community transport system and public transport system, a general profile of users of HACC transport services was developed and relevant studies were reviewed in terms of their relevance to the HACC Transport Strategy.
B. Consultation with Stakeholders
Extensive consultation with representatives from service providers within the region and from other regions, funding bodies, relevant government departments was undertaken by telephone interviews and network meetings to establish who uses transport services, when vehicles are used, purpose of travel, distances travelled, agency policies in relation to use of vehicles, fees charged for transport services, and issues relating to access to services. Consumer views were represented through interviews, Reference Group participation, relevant advocacy and service provider consumer knowledge and satisfaction data, and review of many previous transport studies.
All organisations and individuals that were consulted during the project are listed in Appendix D.of Contents
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C. Identification of Issues and Opportunities
The two previous stages enabled the consultant team to clearly identify those issues that are in some way influencing the performance of the community transport system, including those that prevent greater efficiency and co- ordination and others affecting access to services by HACC clients. Opportunities to improve the existing system and alleviate current problems were also identified.
D. Development of Transport Models
Research was undertaken to identify models based on existing community transport systems in operation in the Loddon Mallee Region, in other country and metropolitan regions in Victoria and Australia. Models selected for further investigation included those considered to have some application to the Loddon Mallee region.
E. Development of Funding Options
Existing funding arrangements were assessed in terms of their effectiveness in meeting HACC criteria and optimising the use of existing transport resources. Alternative arrangements with potential for improvements on the existing arrangement were examined.
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F. Development of Transport Strategy
The Strategy was progressively developed and refined during successive previous stages. The final Strategy recommends a range of transport models, their applicability to different parts of the region, and systems to achieve better local area co-ordination. A set of recommendations has been put forward to improve the operation and effectiveness of the existing community transport and public transport systems within the framework of a total approach to transport for members of the HACC target group.
1.4 HACC Transport Funding Arrangements
State Policies
The HACC program is jointly funded by the State and Commonwealth Governments with local government and non-government agencies providing major financial contributions to the operation of the program in Victoria. It is administered by the Department of Human Services (DHS) in Victoria.
There is no expectation that HACC transport policy and practices are related to transport issues for the general public.
Department of Human Services currently has responsibility for annual funding rounds for one-off allocations for vehicles. Service providers are required to submit data , but this occurs out of context with transport patterns and needs in each locality. As the funding is restricted to vehicles, local providers are restricted in the solutions they nominate for the identified needs.
HACC Target Group
Frail elderly people and younger people with disabilities and their carers make up the HACC target group. (Service users profile in Loddon Mallee indicate that the majority of users are frail elderly, very few younger people with disabilities and people with psychiatric illness). Kooris are a special needs group in the Loddon Mallee region.
HACC Program Aims
The program assists people who are at risk of premature or inappropriate long term residential care, and their carers. The aim is to enhance the quality of life and independence of those ‘at risk’ people and their carers, by providing a comprehensive and integrated range of support services in peoples homes and local communities. An objective is to provide a greater range of services and more flexible service provision to ensure that services respond to the needs of the user.
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HACC Standards
The Guidelines for the Home and Community Care Program National Service Standards complement the State/ Territory service standards. They provide a common reference point for service agencies and a basis for evaluating the quality of services provided.
The necessity of taking into account the relative needs of consumers for services is a policy of the HACC program that has been agreed to by Commonwealth, State and Territory Governments. It is stated in the HACC Act 1985...’within available resources, priority is directed to persons within the target population most in need of home and community care.’ At all times, the level of need for HACC services to consumers must be related to the question of whether admission to long term residential care would be premature or can be avoided by the economical use of HACC resources.
Some of the common indicators of higher level need include: • Social contacts are limited or non-existent, living at home • Social and /or geographical isolation • Financially disadvantaged
HACC Policy Context For Transport
HACC standards emphasise that access to HACC services should not be restricted because of transport difficulties. Transport can be funded by HACC as part of the Social Support program and to provide transport to and from specific programs (for example, ADASS). In addition, vehicles are funded by HACC to ensure home based services for consumers.
However, there is no Statewide policy for HACC transport as a separate service independent from HACC programs which incorporates transport. Regional and more localised transport policies have developed (for example, priority trips, eligibility, volunteer guidelines, training requirements), and these vary across the Loddon Mallee region and across the State.
Currently HACC funding for transport occurs through submission-based funding rounds for vehicles. Funds for vehicles and upgrades have been provided on a one-off, non-recurrent basis, with no promise of ongoing funds. Funding of vehicles has occurred on an ‘ad hoc’ basis and without unit costing of transport within the HACC program.
Funding will only be considered when the vehicle is essential for the provision of HACC services and transport cannot be provided through mainstream public transport or other programs. The provision of general public transport services for all people, including members of the HACC target group, is the responsibility of the Public Transport Corporation.” (Capital Guidelines p4)
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• Providing information, advocacy, support and coordination • Providing transport when access to public transport is not possible • Providing support or assistance in escorting or transporting members of the HACC target group
The HACC program provides funds for services which utilise transport as part of their service delivery, or provides transport to clients.
While transport is provided through several HACC and Department of Human Service programs, it is only the Social Support program which includes the capacity to provide transport.
Social support is intended to promote the existence and quality of social relationships for people who are socially isolated. The issue is whether transport within the Social Support program can be distinguished from other social support activities. As it is funded at present, transport is entwined within Social Support.
One transport issue therefore is whether transport can be a separate, distinguishable function from Social Support functions and activities. That is, should it be simply a means to "get to" activities, or should transport contribute to the consumer outcomes from Social Support?
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2. Existing Regional And Local Transport Systems
2.1 A Framework For Considering Transport Requirements
2.1.1 Assessing the System
This project aim (refer 1.1) implies the need to assess the current transport system. There are three assessment criteria:
• What are the HACC consumers’ needs in relation to transport? • How effectively do the existing systems and procedures operate? • Are the current transport funding arrangements cost effective and how can this be meaningfully determined?
i Meeting HACC consumer needs.
Loder & Bayly (1994, p 3) contend that access to transport is a fundamental aspect of a sense of personal well being and independence.
HACC program guidelines emphasise the importance of transport in maximising use of community-based services and supports, and therefore minimising the risk of institutional care.
The HACC target group are often transport disadvantaged. Various forms of transport are either not available, unsuitable or are not within their financial means. Rural communities are generally not well provided with community and public transport. This is increasingly the case in the northern parts of the Loddon Mallee Region. Assessments to determine the extent to which HACC clients needs are being met must consider the broader issue of accessibility, including location and type of service.
ii Effectiveness Of Existing Systems, Procedures And Operations
In order to meaningfully review the provision of transport via the HACC program, it is useful to consider transport provision generally and under what circumstances subsidised or community transport can be most effectively and efficiently provided, both in terms of meeting the needs of the HACC target group and maximising the use of current and future resources.
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The transport system comprises many different types of services. The current approach to HACC funding for transport is agency based. The effectiveness of the transport system in its totality and the potential for better co-ordination between service types is largely ignored.
The various subsidies available to HACC clients and other special needs groups eg multi purpose taxi cards, VPTAS, also need to be assessed in terms of eligibility and procedural requirements and the general community awareness about their availability.
It is necessary to define an individual's transport requirements in order to realistically measure the effectiveness of existing transport arrangements. These requirements according to Loder and Bayly (1994) are a consequence of three inter-related dimensions:
• Characteristics of the person (for example, age, ability to pay, household structure, security needs, physical ability) • Type of trip (purpose, distance, regularity, time) • Nature of support required (for example: changes to public transport, subsidy to transport provider, subsidy to traveller, activity re-distribution/ landuse, delivery of personal services)
iii Are the current transport funding arrangements cost effective ?
The current HACC transport funding arrangement is the single most important factor determining community transport outcomes in the Loddon Mallee region. A meaningful assessment of existing transport arrangements will depend on funding ideologies and criteria on which the system is based.
The fact that this study has been commissioned suggests that there may be more effective funding arrangements than the current arrangement.
Competition between transport providers (eg taxis and HACC transport services) implies an overlapping of roles and the potential for co- ordination/co-operation and better use of resources.
2.1.2 Role of the community transport system
Existing transport arrangements can be broadly subdivided into community transport and public transport. The overall aim of community transport is to increase the transport options available to the community in a manner which is equitable, efficient and responsive to local needs (Community Transport Strategy, 1991).
Community transport should be viewed as complementary to "mainstream public transport" (ie fixed routes) in that it :
• Caters for needs not served by mainstream public transport.
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• Provides links to the public transport system. • Increases the likelihood of taxi use (in relation to subsidised vehicles) in the future by reducing social isolation and anxiety about travel.
Using this definition, there are various forms of community transport, all of which are applicable to HACC programs :
• Sharing of available community vehicles. • Dedicated vehicles for specific organisations. • Contracting buses or taxis for specific services. • Volunteer driver and support schemes.
An effective community transport service requires the following components:
• Assessment for eligibility - a specialist role which is best provided by HACC providers. • Booking system - a strength of taxis. • Support & assistance - can be provided in any vehicle, by the driver or a volunteer. • Hours of operation - a strength of taxis. • Flexibility- options extend beyond HACC vehicles and taxis (eg informal arrangements). • Affordability - perceived as a major drawback for taxis and potential strength for informal & subsidised arrangements. • Physical access.
An effective community transport system should build on the contribution of all providers whether they be paid or volunteer and or whether the service operates formally or informally.
2.2 Access to Community Transport
Community Transport. Who gets access ?
Access to community transport will typically involve making a series of decisions. The decision process is set out below.
A) A member of HACC target group requires transport.
Most people will: • Have their own car • Have access to private vehicle • Use a train or bus • Use a taxi
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B) In general, an individual's transport requirements could be met by:
• Provision of a driver (paid or volunteer) • Provision of a vehicle • Provision of aids/ equipment/information for existing vehicles to ensure access • Provision of funds • Provision of a support person (paid or volunteer)
C) Decisions need to be made about service delivery. • Changes to the location or delivery of transport services so they can be accessed • Changes to the location or delivery of services so transport is not required • or, a combination of these
D) Accordingly, an individual's transport requirements can be funded by the following approaches:
a) Direct subsidy to consumer This approach allows the consumer flexibility to negotiate transport arrangements. It assumes that the only impediment to access to a vehicle is additional funds.(Existing schemes: VPTAS, mobility allowance).
Advantages/Disadvantages of this approach include:
• Traveller can decide their best option. • Encourages use of informal and formal networks (eg reimbursement for neighbours). • If vehicle is not accessible (eg public bus), then access is not improved.
HACC currently provides no funding directly to the consumer for transport.
b) Subsidy to provider of public or community transport
Funds provided to transport provider to:
• Reduce the cost to the consumer: (existing schemes: HACC, MPT (taxis), Veterans affairs, rail concessions). • Increase physical access to the vehicle. (Existing schemes: HACC, MPT (taxis), PADP).
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Advantages/Disadvantages of this approach include:
• Administratively easier with monitoring of how transport resources are being used. • Possibility that taxis would be viable in more isolated parts of the region. • Less flexibility for consumer. • Transport arrangements may become "institutionalised"/ rigid if provider had only one form of transport. c) Subsidy to a co-ordinating transport broker
Existing schemes: Ballarat (HACC), Wellington (See Section 6).
Advantages/Disadvantages of this approach include:
• Coordination of transport resources/ systems, especially community transport. • Needs a flexible pool of dollars. • Booking and hours of operation need to be feasible over 24 hours. • Transport arrangements could be highly flexible if the broker negotiates appropriate transport provider to match consumers needs.
d) Combination of these, including a contribution from the consumer or community fund raising where appropriate.
2.3 HACC Transport Services
2.3.1 Community Transport Access Patterns
Consultations in the Loddon Mallee region identified that HACC client transport is usually accessed when a consumer has:
• support needs (related to the trip, related to social support); • no other family/ friend available to assist; • to travel to another town or city; • limited access to public transport (too expensive, physically, or there is none); • a multi purpose trip, long or broken trip; • no, or limited, access to alternatives for support or transport (eg family, Red Cross); • high priority circumstances (for example, over 85, isolated);
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• been identified (usually by another community services provider) as isolated from community services ie would not use a taxi or other public transport.
2.3.2 Purpose of HACC Transport Trips
Currently in the Loddon Mallee Region, HACC community transport within Social support, ADASS and other activities is used for:
• Medical, especially specialist, appointments (the predominant trip purpose); • Trips following discharge from hospital; • Social and leisure activities, both group and individual; • Extended family visits and important occasions; • To get to a service, regularly, irregularly; • For respite; • Client based activities.
It could be argued that the increasingly narrow of role of HACC transport (eg dominance of medical trips) and poor coordination of community transport has limited the potential of the Social Support Program.
Overlapping roles between taxis and community transport, particularly in relation to medical appointments is evident in parts of the Loddon Mallee region. This point of overlap may never totally disappear. In fact it is apparent that community transport, including subsidised taxis, can provide similar services and support. However, there is no mechanism in HACC for taxis to compete for a transport tender with community transport providers.
Cutbacks in areas such as ambulances have impacted on community transport in the Loddon Mallee region with HACC Social Support transport becoming the "default provider".
2.3.3 Support For HACC Clients
Providing physical and emotional support to HACC clients is an important component of community transport.
There is a widespread community perception in community transport that taxis do not have a responsibility or capacity to provide support during a trip. This is supported in the Mobility Improvement Strategy, 1991 and confirmed during consultation undertaken as part of the HACC Transport Strategy. This view was not supported in discussions with taxi operators.
The Victorian Taxi Directorate do provide a training program for licensed taxi
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operators. This is discussed in Section 2.4.
There are various options for the provision of support for HACC clients, including : • Support provided by volunteers in taxis and public transport. • Improved training programs for taxi operators and train and bus staff. • Maintaining and extending the existing support role provided by volunteers, with and without driving. • Maintaining and extending the support role of home care workers and other HACC staff.
If it is concluded that taxis and community transport have the capacity to provide transport, support and accessible vehicles, the issue becomes one of cost competitiveness. The future role of taxis is discussed in Section 2.4.
2.3.4 Coordination of vehicles
In addition to HACC funded vehicles, there are a range of community and government funded vehicles in each locality. Typically, these vehicles are not used to their maximum. Coordination of vehicle use would increase community transport capacity and range of trips.
There is a need for coordination of existing and future HACC and community vehicles. Such a co-ordination strategy is required regardless of any recommendations about improving the community transport system and its relationship with the broader transport network. Impairments to informal coordination were identified in the Loder & Bayly report (1994) and were identified during consultation for the HACC Transport Strategy. These are:
• Lack of trust between agencies • Legislation • Vehicle use policy determined by agencies • Finance • Operational requirements • Information attitudes
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HACC funding could provide the incentive for vehicle coordination within HACC and ultimately more broadly. Most DHS subsidised vehicles are for the HACC target group. The DHS Grampians region have adopted this approach to co-ordination in their most recent HACC funding round.
2.3.5 Role of volunteers in Community Transport including Social Support, ADASS and Home Care
Volunteers and agency workers may be drivers and/or provide support. Their role as drivers interfaces with that of taxis. Their role as support people interfaces with home carers and other HACC staff. That is, when should a volunteer/worker have the responsibility for driving and/or for client support.
It is important to acknowledge the contribution of volunteers, and also to note the personal satisfaction many people report from that role. Volunteering remains a way people derive considerable satisfaction for a "job well done". The impact of this on personal well being, while difficult to quantify, should not be disregarded.
Innovative uses of volunteer time can be explored eg. Ballarat scheme where volunteer driving is part of a CES work experience scheme.
To provide a driving and support role, a provider would need to: • Be affordable or be able to negotiate special fee arrangements. • Be knowledgeable regarding the HACC needs of the target group. • Be willing and able to transport people with high physical and emotional support needs including having a vehicle which is accessible. • Provide a support role (either from the driver, or in addition). • Be prepared to wait for consumers who are slow. • Know how to communicate with various consumers.
The debate about adequate support and the role of volunteer drivers and taxis is happening in the absence of standards for HACC transport, and definitions of adequate support or standards for driver training. If such standards were developed and HACC funding was more flexible, transport providers could compete on the basis of cost and service provided.
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2.3.6 Determining eligibility
Staff involved in assessment for HACC services varied in the extent to which they were inclusive or exclusive in their definition of the HACC eligibility guidelines. Some providers investigated all other options before providing community transport, including restricting trips to those “out of town”. Other providers adopted a more flexible interpretation of HACC eligibility criteria or the target group for community transport. This was particularly the case when funding for vehicles was not exclusively from HACC.
There is regional variability about eligibility for HACC services beyond issues of transport. Such variability determines the extent of need identified and also to what extent the same people receive service over time.
2.3.7 Cost of Community Transport
The cost of community transport is difficult to estimate. Most agencies express difficulties in estimating the costs of operating and maintaining a vehicle or transport service.
Reimbursement to volunteers varies in the region. Generally reimbursement is 20-30 cents per kilometre.
The operating and running costs and estimated cost/km of two HACC funded transport services (SunAssist, Mount Alexander Hospital) are provided in Table 1).
Costing of services need to be viewed in the wider context of optimum vehicle use (eg. vehicle down time) and the need to increase transport options for the HACC target group.
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Table 1: Cost Estimates for HACC Services (Sun Assist & Mt Alexander Hospital)
Sunassist Mt Alexander Hospital
Vehicle Type/No. Sedan Bus
Kilometres travelled 90,000 27,305
Direct Vehicle Costs $ 13,160 $ 9,017
Cost per km $ 0.37 n/a
Total Operation Costs $68,041 $ 43,235 including staff, admin. etc
Cost per km $ 0.75 $ 1.58
NB: In 1996/97 SunAssist made a total of 9,830 trips.
Taxis pay for their drivers which represents a cost that community transport providers don’t have. Providers do have the cost of a Social Support Co- ordinator of transport services. Both taxis and community transport providers have the potential capacity to offset costs in community transport with fees earned through vehicle hire (for community transport) or the normal operations (for taxis).
Other options for transport providers include leasing vehicles, rather than the restriction of vehicle purchase currently available through HACC.
Cost calculations ($/km) need to consider the various cost components:
• Purchase and change over price. • Sales tax exemption. • Running costs - Greater for more isolated areas (non recovery trips) Should be similar for taxis and HACC cars. • Administration Booking system. • Coordination of drivers. • Processing subsidies. • Profit margin. • Coordination of vehicles, bookings & volunteers.
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• Cost recovery - Assumes consumer can pay and then "no cost" to community (minus any subsidy arrangements) or capacity to offset part of costs to another part of transport service. Costs can also be recovered by donations and charging of fees. • Driver costs - Driver's wages/no driver's wages. • Transport co-ordination costs.
What is not apparent from cost per km calculations is:
* How often is the vehicle used? * How often is it not used? * How many people use the car at a time? * How geographically dispersed are consumers?
The more useful figure is probably total running costs. In the absence of a developed policy for transport, HACC has no indication on the unit cost for running subsidised vehicles.
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TABLE 2. COMPARISON OF HACC TRANSPORT SERVICES - TRANSPORT SERVICE No of vehicles Total Main Purpose Estim Re imburse Hire Other comments Trips of trips Operation ment to Fee for Costs volunteers/ non consumers HACC Buloke Volunteer Transport Service 2 buses door to door $5.00 local 40 1 sedan n/a specialist n/a contribution cents 30 volunteer medical /km Campaspe Volunteer Service 1 Bus 330 medical 11 cents km 1 Sedan (1/1 to social support n/a 1 s/wagon 31/8/97 Central Goldfields 1 Bus medical waived if meet Trips mainly 1 s/wagon 210 social support n/a costs Melbourne, 2 Sedan (10/96 to Ballarat and 10/97) Maryborough Local Gannawarra Volunteer transport volunteer medical n/a 20 cents/km 13 cents per km service n/a charged to HACC Soc Supp budget Cohuna Community Bus trips mainly to $700-$800 20 cents/km I bus n/a Echuca, per month Bendigo Greater Bendigo 1 bus medical, n/a No fee free for non profit. 1 wagon n/a therapy. $50 per day professional, otherwise social support Loddon Shire Council 2 s/wagons ADASS n/a $1.50 ADASS not for 1 sedan n/a medical $3/hr hire shopping Mildura Sun Assist 1 sedan Day care not for 1 s/wagon n/a medical $0.75/km hire 90,000 km 9 volunteers shopping, social travelled per year Mount Alexander Shire ADASS n/a $3 for weekly 58 2 buses n/a shopping shop trip cents hospital per km Rural City of Swan Hill Social medical 75 % n/a 20 cents /km No cost to HACC Support Service volunteer cars n/. social 25 % clients for medical appointments
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2.4 Taxis and Hire Cars
Taxi services in the region are shown in Figure 2.
Taxi depots are generally located in all major urban centres in the Loddon- Mallee region with population sizes over 2000 persons. A depot is also located in Dunolly. Taxis operators generally service urban areas and smaller townships within proximity of the larger urban centres.
Areas in the region that not well serviced include the municipalities of Loddon, Buloke and the more remote areas of Swan Hill and Mildura and Gannawarra. A taxi service operates out of Donald but generally services only the southern portion of Buloke Shire. A service operating from St Arnaud travels to Wedderburn.
Figure 2: Taxi Services
4 Depots Mildura 5 MPT
Robinvale
4 Depots 5 MPT Swan Hill
Sea Lake Kerang
Wycheproof Echuca Donald Rochester St Arnaud Bendigo 3 MPT Hire Cars Dunolly Heathcote Taxi Depot Maryborough 3 MPT
Gisborne
Hire cars operate in a similar way to taxis. They are situated in Wycheproof, Sea Lake and Cohuna. Hire cars typically operate from service stations, they are licensed and trips must be pre booked.
There appears to be a strong correlation between the distribution of taxi services and the viability of a taxi business. Presumably there are financial reasons why taxis are not currently servicing the central and western part of the region where smaller towns are more sparsely settled.
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Consumers who are eligible for wheelchair accessible taxis pay half of the metered fare. It should be noted that while this is an important subsidy for transport, for people on a pension who require regular or long trips, the subsidised fare may still be beyond their means.
Fee Structure
The following is the standard structure of taxi fares, however the Victorian Taxi Directorate has indicated that there may be a need to be more flexibility in country areas. The Directorate has expressed a willingness to consider proposals including a maximum charge for distances below the current limit of 80 kilometres.
Flagfall $2.60 Booking fee $1.00 (after midnight another $1.00) ($1.50 elsewhere in country Victoria). Detention rate 33 cents per minute Cost per kilometre 96 cents per km
Currently there is no capacity for taxi drivers to negotiate fares. The taxi directorate is investigating options, particularly for rural areas, such as: • Maximum Fares. • Taxis tendering for transport contracts with flexibility to charge per kilometre, by trip or through a contract for all trips for a central agency.
There are examples in this region and other regions where flexible fare arrangements have been negotiated. (eg Corangamite Community Transport Service, Golden Square Senior Citizens Transport Service and Swan Hill Taxi Service. Refer to Section 6)
2.5 Transport Subsidies and Schemes
Victorian Patient Transport Assistance Scheme. (1996) June
A Department of Human Services scheme which is used extensively in rural areas. VPTAS assists residents, predominantly in remote and rural areas with travel and accommodation costs incurred when travelling more than 100 kilometres (one way) to the nearest medical and /or dental specialist.
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Multi Purpose Taxi Program (MPTP)
The MPTP Taxi Transport Subsidy Scheme for the Disabled is a State Government funded subsidy program which provides a 50% discount on taxi fares (up to a maximum discount of $25 per trip) for eligible members. The purpose is to increase the accessibility of taxi transport for Victorians with severe, permanent disabilities which significantly restrict their mobility. The Victorian Taxi Directorate (VTD) administer the scheme. Some people with severe intellectual or psychological disabilities may also qualify.
The multi purpose taxis card scheme offers an extremely worthwhile community service. In 1996/97 $27 million was spent on the MPT scheme in Victoria and $731,706 in Bendigo and the immediate surrounding area.
There is no fee charged for loading/unloading and assistance for the client.
Veterans Affairs
War veterans are able to claim travel for medical treatment based appointments. It must be to the nearest suitable practitioner. Taxis are contracted to provide the transport to veterans, if no other form of transport is available and the disability is severe. In addition to this the DVA provide seeding grants and are involved in joint ventures in funding community buses in communities.
Mobility Allowance
Centrelink, (formerly Department of Social Security) provide a Mobility Allowance for clients with disabilities who are Newstart or Youth Allowance recipient and unable to use public transport. Criteria includes: a minimum age of 16, undertaking volunteer work with a recognised community program, and/or vocational training and/or employment for a minimum of 8 hours per week.
Red Cross
Transport services are provided with strict criteria that the person is quite disadvantaged: has no family/friends in the locality that can transport them, is financially disadvantaged and unable to access public transport. The service is for non-emergency medical appointments only. The transport is provided for 8 weeks and then reviewed. Priority for service (and ongoing service) is given to clients receiving cancer treatment. The service is free of charge and clients can make a donation to the service if able to.
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Ambulances
Emergency transport provider and also for non-emergency, if given direct medical authority. This is a free public transport provided to holders of pension cards. Inter-hospital transport services are now being contracted out to a number of private transport providers.
Department of Education
The Department provides a free of charge bus service for children with disabilities under 18 years, who attend Special Schools throughout the region. Within the Bendigo region the bus services are contracted out to the providers. In Echuca, Swan Hill and Mildura, the Adult Training Services are contracted out to provide the transport for students attending the special school in each area.
Conveyance Allowance
The Department of Education provide the travel allowance to students with a disability attending designated Special School settings, who are isolated geographically from the nearest Department transport providers. A yearly allowance is allocated for taxi travel to get to and from the school ($700), or a $300 allowance is provided to cover private transport travel to get to and from the bus pick up point.
Disability Day Program
A variety of transport services are provided under this program. In outlying regions buses may be provided clients are charged a fee to use the transport service. Some programs provide a door to door service.
Community Residential Units (Disability)
Provided through the Department of Human Services most supported residences have buses attached to their programs.
Concessions for Public Transport
Holders of a Pensioner Concession Card receive concessions on trams, trains, buses in metropolitan and V Line country areas.
Community Care Programs: ‘Making A difference’ and Linkages
‘Making A Difference’ is a program for children with disabilities up to the age of 18, and Linkages is for people of any age with disabilities. Most clients use the transport schemes such as VPTAS, MPTP and Department of Education. The programs are flexible enough to be able to reimburse the volunteer driver their petrol costs.
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2.6 Public Transport Network
Existing VLine rail and road coaches in the Loddon Mallee Region are shown in Figure 3.
The VLine rail service operating between Melbourne and Bendigo has improved in recent years, both in terms of the frequency and standard of service. There is an increasing demand for a morning commuter train service from Castlemaine and possibly Kyneton, connecting with Bendigo.
Figure 3: V-Line Passenger Services
Mildura
Robinvale
V-Line Bus Service
Ouyen V-Line Passenger Rail
Swan Hill Sea Lake
Kerang
Wycheproof Echuca
Donald Wedderburn Kyabram
Inglewood Bendigo
Heathcote
Maryborough Castlemaine
Kyneton Gisborne
Services to the north, particularly the north west, have declined in frequency. Opportunities may be available to improve timetabling. The level of service offered may improve with privatised transport and negotiation of standards and regulations relating to travel of government and commercial vehicles eg. DSE buses.
Bus services, both public and private, are generally available in the region’s larger centres (Bendigo, Mildura, Swan Hill, Echuca, Castlemaine, Maryborough, Kyneton and Woodend) with connecting services to outlying towns and rural communities. These services are however often inappropriate for the HACC target group due to infrequency, unsuitable timetable, or physical access problems.
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Public transport issues identified during consultation include:- • infrequent services operating north of Bendigo; • no train service to and from Mildura; • timetabling of buses to Mildura and Sea Lake could be improved; • lack of changing facilities/ rest rooms along major highways; • families of young people with disabilities are disadvantaged with buses leaving at 4 am; • impact of new VPTAS forms;
2.7 Case Studies In The Loddon Mallee Region
Heathcote
Heathcote is located 50 km from Bendigo. Situated within the City of Greater Bendigo, Heathcote is a self contained community, but depends on Bendigo for higher order services.
Community transport in Heathcote comprises a HACC funded community bus and sedan, and a taxi service.
The town and district have limited public transport. A bus service runs to and from Bendigo on Thursdays only and a return VLine road coach operates twice daily between Heathcote and Melbourne.
HACC Transport Service
Heathcote Hospital purchased a community bus in 1990 with Council and HACC funds. Prior to local government amalgamation, the former McIvor Shire Council had an arrangement with Heathcote Hospital regarding shared use of the community bus. The operation and administration of the service was undertaken by Council (ie booking and maintenance). The bus was housed at the hospital and used primarily to transport elderly people.
The Hospital took over total responsibility for the community bus service at the time of municipal amalgamation. The issue of who owns the bus is unclear. Heathcote is now within the municipality of Greater Bendigo.
Presently the community bus is used predominantly by the Hospital. Priority is given to HACC clients.
The existing bus has wheelchair and disabled access. Senior citizens now pay commercial rates to use the community bus service. Community groups are charged 70 cents per kilometre. Heathcote Hospital pays fuel costs.
Weekly usage is generally as follows :
Day Centre 3 days a week Senior Citizens 1 day a week
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Community organisations once a month
Discussions with the HACC Transport co-ordinator revealed that there is some local resentment that the bus now has limited community use, whereas previously community groups had good access to the vehicle.
The Hospital also operates a HACC funded community car driven by volunteers which is almost entirely used for medical appointments to Bendigo and Melbourne. Rates for use are :
$4.00 for local trips, $20.00 for trips to Bendigo $35.00 for trips to Melbourne
Heathcote Taxi Service
The Heathcote Taxi service commenced business in April 1985 in response to a perceived need, particularly amongst the increasing elderly population. The current operators received letters of support from the former McIvor Shire Council, the Heathcote Hospital and the Senior Citizens group to establish a taxi service.
A license was issued for the taxi service in 1985. A second vehicle was purchased in 1986 due to demand for the service, particularly out of town trips to Bendigo and Melbourne.
The taxi business has 4 drivers, with two drivers working at one time.
Trip Purposes and Destinations
The taxi service began to provide a regular Friday and Saturday night service to Bendigo for young people (15 - 20 year olds ) seeking nightlife entertainment in Bendigo. This part of the service dropped off almost entirely 5 years ago and now the after hour service has disappeared . Younger people have either left town in search of work or taken up work in Bendigo or Melbourne. Few younger people in Heathcote now have the disposable income for out of town trips.
Nowadays the service operates mostly around Heathcote township. The average fare is between $ 5.00 -$ 7.00. The majority of trips are for shopping purposes. Elderly people commonly shop once a week in Heathcote.
The length of the main street shopping strip requires more than one trip for elderly people who are unable to walk from shop to shop. The taxi operators provide the return shopping trip which includes waiting time and often helping unloading and depositing of groceries.
About 8 -10 trips are made to Bendigo each week and trips to Melbourne are made on average twice a month, usually to the airport.
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The taxi business estimates that regular clients comprise about 70 % of business and of those regular clients, approximately 50% are older people (ie over 65 years).
Impact of HACC Transport Service
According to the taxi business manager, the HACC funded sedan has affected the viability of the second taxi since June 1993. The taxi previously provided a service to elderly people delivering them to the Day Care Centre. This involved 8 -10 trips per day.
The manager of the taxi business believes that the: • taxi service is disadvantaged because it has to compete against a subsidised transport service. (A promotional strategy has recently been undertaken to offset this apparent disadvantage): and • taxi service and the HACC transport services can potentially co-exist, providing there is only a HACC bus operating in Heathcote to provide transport for groups of elderly and frail people.
Buloke Shire Case Study
The Shire covers an area of 8020 square kilometres with an estimated population of 8,769 in 1996 (Department of Infrastructure, 1996).
Buloke Shire has five major urban townships each with roles as service centres. These are Donald with a population of 1573 , Charlton (1177), Birchip (830), Wycheproof (776) and Sea Lake (796). It is uncharacteristic of a Shire in this region to have a large number of towns in this population range. In 1991, about 61% of the population lived in the five urban centres of over 200 people.
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Buloke Shire has a declining population base which is projected to decrease by about 820 persons by 2011. The Shire has a high proportion of aged persons compared with Regional Victoria. The declining population base has continued implications for the loss of facilities and services.
Figure 4: Buloke Shire
Sea Lake
Birchip
Wycheproof
Charlton
Donald
The Shire and its major towns are located within a reasonable distance from larger centres such as Horsham which serves the southern portion of the Shire, and Swan Hill serving the northern part of the Shire. These larger centres are important for community services, such as medical facilities.
The good road infrastructure makes for relatively easy travel times to larger regional centres including Bendigo. This tends to compound the issue of declining services by further reducing the demand for local services.
There are stated difficulties in providing access to HACC services and transport services in a Shire that covers an area of 8020 square kilometres.
Buloke Volunteer Transport Program
Buloke Volunteer Transport Program is administered by the Buloke Shire Council and funded by HACC as a Social Support program. The vehicle fleet includes:
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• Two (2) x 11 passenger seat buses (lowered step, hoist) based in Birchip and Charlton; • One (1) sedan (can carry wheelchair, swivel seat) based in Wycheproof;
The program operates with thirty vehicles owned by volunteer drivers. Eligibility to use the service requires the user to be a HACC client with no means of transport, no family support, and inability to access public transport due to timetabling or the need for physical assistance.
Approximately $25,000 is expended each year on the volunteer transport program and social support.
The bus is used to transport people on long trips to medical specialists predominantly in Bendigo and Horsham. Daily trips are also made to Swan Hill that generally takes 4 to 5 hours including waiting time at the doctor’s clinic.
Council does not have any policies in relation to the use of HACC funded vehicles.
Volunteers are reported to be increasingly reluctant to use their own vehicles due to depreciation costs, and often prefer to use the Council HACC funded vehicle.
Council staff contend that the volunteer transport program is a valued service in the Shire community and that patronage has increased with promotion of the service.
Who Uses the Service ?
The service is used by 36 clients who are either frail, aged or younger adults with a disability. The purpose of trips is predominantly to meet medical specialists’ appointments. There are no other social support activities provided.
Council staff acknowledge that greater use could be promoted through a booking system.
Fees
Charging of fees has recently been introduced. A $5.00 local contribution is made for the use of the transport program for out of town trips, whether they be to Swan Hill or Melbourne.
The buses are available for non HACC purposes. The bus is available for hire to community groups and individuals, with a charge rate of $0.40 /kilometre.
The HACC funded car is only used for trips within the Shire.
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Declining Volunteer Support
The existing and potential pool of volunteers is reported to be declining. This is due to the population drift, especially among the younger population to larger centres, including Bendigo and Melbourne. Family support for elderly people in the Shire is not as readily available as it was, due to increased participation of women in the workforce and the need for family members to work on farms and in other family businesses.
This appears to be a typical pattern for the future of volunteer services.
Public Transport
A VLine road coach operates between Bendigo and Sea Lake servicing towns along the Calder Highway. It is a twice daily service to Sea Lake on weekdays and Sunday and once on Saturday. The service in the morning is express to Sea Lake.
The road coach operates twice daily service from Sea Lake to Bendigo arriving at Bendigo at either 9.00 am or 11.00 am depending on the day, with pick ups along the way. The direct service arrives in Bendigo at 3.00 pm. An express service operates on Saturday and Sunday and an additional service, with pickups along the way, runs on Sunday.
The timetabling of the road coach service for arrival and departure from Bendigo is co-ordinated with VLine rail services to Melbourne.
There is no public transport (bus) between Sea Lake and Swan Hill. There is a poorly timetabled bus service operating within the townships of Sea Lake and Birchip.
Taxi Services
A taxi depot and service is located in the south of the Shire at Donald and hire cars operate out of Sea Lake and Wycheproof.
Issues
• Whole Shire has poor access to community transport and public transport. • Inadequate resources are allocated to co-ordinate volunteer transport. Only one hour per fortnight is provided for in Birchip. • Co-ordination is impeded by five districts based around the five key urban centres that do not work together. • It is Council’s view that two community buses for the whole Shire operating in the current manner is inadequate for a large municipality with long distances between towns. • HACC vehicles are often not available for specialist trips to Bendigo, resulting in several HACC volunteer trips being made to Bendigo in a day. • Transport problems in Sea Lake are reported to include no in-town service except for a VLine bus with unsuitable timetable, and there is a need for
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access to a bus or car with a wheelchair. • There is no vehicle to get people to Ballarat and Horsham from Birchip. It is difficult to access the car based in Wycheproof for use in Birchip.
Conclusions
• Co-ordination of car-pooling especially for medical trips to Bendigo needs to be actively encouraged. • Funding for co-ordination of volunteer transport service and a HACC funded vehicle to be based in Birchip should be investigated. • A community transport strategy prepared for the Buloke Shire would provide the means for better co-ordination and co-operation between the 5 major towns. The Strategy would need to address issues such as access to a vehicle fitted with swivel seat in Sea Lake for long distance trips, improved co-ordination of volunteer transport and more flexible arrangements for taxi services. • The opportunity for the Donald taxi operator to contract services under the HACC program should be investigated.
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3. Relevant Studies and Programs
The following recent studies and strategies provided valuable background information for the HACC Transport Strategy and assisted in the identification of relevant issues and strategies in the Loddon Mallee region, in other parts of Victoria, and interstate.
Loddon Mallee Regional Aged Care Plan 1997-2001. (Draft) 1996, Aged Care Planning and Advisory Committee
The Plan has been driven by the State Government’s 1993 reform strategy for delivery of more effective and efficient Aged Care services. The strategy is promoting a shift towards services being provided in the community.
The Loddon Mallee Aged Care Plan has been based on consultations with older people in the region, and is auspiced by Aged Care Planning & Advisory Committees in each of the Local Government areas.
Access to Transport rated a high priority throughout the consultations in every LGA. While it can be difficult to judge from consultations if the solutions identified are the only ways to address consumer needs, consumers identified the following issues for each municipality :
• Mildura - There is access to affordable, flexible transport, equitable service to outlying regions & equal access to specialist services/facilities for rural & remote areas, geographical distance, lack/limited access to public transport, wheelchair access. • Macedon Ranges - There is a lack of local transport, and lack of information about services. • Loddon Shire - Has a sparse population, requiring long distances to be travelled to provide services • Gannawarra - Transport/Social Support capital . • Central Goldfields - Transport. • Campaspe - Rural/remote access. • Buloke - Isolation & distance an issue in providing care, transport difficulty in accessing specialist services. • Greater Bendigo - Lack of cohesiveness with multitude service providers, Transport links - to access services/broader issues, lack of knowledge of who does what for whom. • Swan Hill - Transport, isolation - lack of services & transport. • Mt Alexander - Transport & isolation of people.
Other transport issues gleaned from these consultations were :
• A perception that there are limited transport services currently available in the region.
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• Existing community transport gives priority to providing transport to medical appointments. • Need for transport to remote areas and for reasons other than appointments (for example community entertainment, visiting family) was noted. • Much of the transport provided in the Region relies on older rather than younger volunteers. • Community transport services may need to diversify and involve the private sector to provide after hours transport.
The draft Age Care Plan suggested the following strategies to overcome these difficulties in transport services:
• Develop a regional strategic plan for the Aged Care funded transport services. • Extend the existing volunteer based transport services and better utilise the Home Care service. • Examine the eligibility of the Taxi Subsidy Scheme.
Review of Aged Care Services. Mildura Rural City Council & Mallee Aged Care Assessment Team. (March 1996), Davey L & Deacon D
The Commonwealth Department of Human Services & Health requested service provision requirements to be identified to assist the 1996/97 funding round. Findings relevant to this Transport Strategy are :
• Currently the funding formulae for HACC do not incorporate an isolation factor. • Border issues are an important consideration • More accurate population estimates are required for over 70 years age group. • Respite facility be made available for clients leaving hospital. • Better discharge planning is required to ensure support and transport are available for people leaving hospital.
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Victorian Home & Community Care (HACC) Program. Interim Fees Policy. (1996), Department of Human Services
The development of a fees policy had been a HACC Program commitment at both State & National levels. The recent federal budget committed the HACC program to finalise the National Fees Policy and to incorporate fee revenue from consumers into calculations to determine States/Territories HACC funding allocations.
Consultation on this Interim Victorian HACC fees policy closed last December. The policy will be adopted in the near future and will have implications for policy development and impact on future transport service provision.
There is currently no fees policy in relation to HACC funded transport.
Inquiry into Planning for Positive Ageing (1997). Briefing Paper, Family and Community Development Committee
The Family & Community Development Parliamentary Committee, is conducting an inquiry into Planning for Positive Ageing. The briefing paper requested submission and comments to be made to the Committee in September, 1996. The final report is to be tabled in November, 1997. Transport is one of the fundamental issues raised in submissions, particularly in rural areas. The committee is looking at Community Transport Systems and will recommend implementation of a number of transport models.
Parliamentary Inquiry Into Positive Ageing. (1996), Rogers, R.
The City of Greater Bendigo, Aged & Disability Business Unit made a submission to the Parliamentary Inquiry into Positive Ageing. Forums were conducted as part of the submission process.
Recommendations from the forum included:
• Need to rationalise the relationship between service providers within urban areas so consumers have one point entry or community transport. • Importance of maintaining viable & accessible infrastructure in rural communities, including provision of quality medical & hospital settings and accessible financial institutions. • Importance of social networks, transport options in rural towns and support programs which encourage the independence of older people. • Provide adequate public transport system, in particular rural settings. • Safe access to public buses with modified steps. • Automatic entitlement to half fare taxis - to encourage people 80 years of age to hand in license if needed without the loss of independence.
Transport Brokerage Scheme For Ballarat. Uniting Church Outreach Centre. (1994), Hibbert, P.
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An innovative Transport Brokerage model is being developed which encompasses cross regional boundary transport service agreements and networking. The report, commissioned with HACC funding, investigated the Do Care recommendation for a Transport Brokerage Scheme to be established. The Scheme is to provide free or at low cost transport for the frail aged and disabled people in Ballarat, by the pooling of vehicles owned by Ballarat community organisations when vehicles are not in use. The Scheme has demonstrated a dramatic increase in subsidised vehicle usage, numbers of people being transported and variety of social support activities being supported.
Transport Brokerage Scheme For Ballarat. Uniting Church Outreach Centre. (continued)
In addition the scheme has the capacity to provide transport to other transport disadvantaged groups.
Recommendations from the report include :
• Models combining HACC transport and other community organisations’ transport. • Auspicing organisation with expertise in transport coordination and brokerage. • Provision of a HACC grant to initially establish the scheme & maintain it into a second year. The scheme would provide a cost neutral system by reducing future demand for funding vehicles to HACC. • Organisations need to review policies due to restrictions often included in the ‘conditions of use of vehicles’.
Rural Community Transport A Model for HACC Best Practice, (August 1997), Wodonga Community Transport
HACC funded project to develop a model for rural Community Transport in the Wodonga, Upper Hume region. The transport services have been operating in isolation from each other with overlaps in services at times. Recommendations include implementation of a Community Transport Directory in the Upper Hume Region, with a second stage that develops a geographical information system. This is expected to relieve volunteer coordination time in organising transport services. It recommended that Wodonga Community Managed Transport be the coordinating agency for a transport booking service.
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An important component of the report looks at the need for a managed network of services, and for the development of accredited transport services training for staff and volunteers.
Transport Poverty. What is it? How to measure it? (1994) Loder and Bayly Consulting Group
The report was funded by the Social Justice Research Program on Locational Disadvantaged of the Department of Prime Minister & Cabinet and managed by the Victorian Public Transport Corporation. This report identifies the characteristics of people who experience transport poverty and models for responding to those transport needs. Some of the concepts used to describe transport needs and responses will be more fully described later in this document.
The report stresses the importance of ‘being able to get around’ as fundamental to quality of life and a personal sense of well being.
Transport Options for Over 50’s in the City of Greater Bendigo. (1997), Mulqueen, S.
Loddon Campaspe Older Adults Recreation Network Bendigo (LCOARN) promotes recreational opportunities for over 50’s in the Loddon Campaspe Region. The report states that ‘recreational opportunities which promote physical, mental and social well being are largely determined by personal mobility’. LCOARN commissioned the research to address transport issues with the City of Greater Bendigo. Issues and recommendations focussed :
• Lack of public transport outside the city centre. • Lack of services for older adults who do not drive but are not physically disabled, highlighting the need to improve transport as a total system. • Strict eligibility criteria limit Red Cross and Council services. • Lack of government commitment to improving services. • Reaching Out Through Recreation. Report of the Loddon Campaspe Recreation & Disability Project. (Nov 1994), Ford, F.
This document provides resources for future planning and evaluating of services. Issues relevant to the Transport Strategy include: • Lack of public transport in general. • Difficulty in making connections between services that do exist. • Lack of public transport accessible to people with physical disabilities. • Need to review eligibility requirements for the multi-purpose taxi card and improve awareness of the scheme.
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• Younger adults with disabilities (especially psychiatric disability and acquired brain injury) are significantly under-represented in the provision of HACC services.
Shire of Campaspe: Primary Health Care Strategic Service Plan Consultancy. (1997), Naylor R. & Co. Pty Ltd
Transport was reported as the major reason for restricted access to services, especially for youth, single mothers and the aged. The southern part of the Shire is poorly serviced with public transport. There is only one bus service a day to Echuca or Shepparton. Due to the bus timetabling it is difficult to undertake consultations with Primary Health Care staff. The report makes two recommendations :
i. That improved transport linkages occur in the southern part of the Shire to considerably improve access to services in the major town centres such as Echuca, Shepparton and Bendigo.
ii. These linkages occur by the provision of two mini buses plus drivers and each bus be attached to a primary health care service.
This recommendation does not take into account options which may arise with improved vehicle co-ordination.
Accessible Transport For People With Disabilities. An Action Plan For Victoria. (1988) Street Ryan & Assoc. Pty Ltd
Recommendations particularly relevant to the Transport Strategy include :
• User subsidies for taxis. • Review eligibility criteria of the Multi Purpose Taxi Program. Incentive schemes for operators of wheelchair accessible taxis (M50) are explored with practical suggestions such as a set of inducements or subsidies to the taxi industry. • Access to private vehicles is a significant factor in enabling people with disabilities to increase their transport independence. Practical solutions are provided such as driver training, education and vehicle modification and costs are explored.
Catalogue of Community Transport Services. Victoria. (1996), Victoria Community Transport Association
Department of Infrastructure and Victorian Community Transport Association in August 1995 received a grant to prepare a Catalogue of Current Community Transport Services in Victoria. It provides a list of customers, workers and vehicles and funding sources in current community transport services in Victoria. The responses develop a concept of community transport as a dynamic set of services, primarily concerned with closing the access gaps between people’s homes and their private and public destinations. The services rely heavily on unpaid workers, many of whom provide their own vehicles for varying re-imbursements. This catalogue provides a detailed
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description of each community transport provider, the number of vehicles, the range of alibility information, costs and fees.
Information on community transport services within the Loddon Mallee Region has been provided during the consultation process of the Transport Strategy.
Northern Metropolitan Community Transport Register: Transport Resources and Issues, (1996 December). Northern Care and Share
The report highlights the need for central coordination at a state level for all transport. The Department of Infrastructure is starting to look at Standards needed for Community Transport, as are HACC. There is an absence of a peak transport body. The need for such a body has been highlighted by individual agencies and in various reports.
The first stage of the Community Transport Register is now in place, and the data base and handling of requests is operating. The issues of insurance and membership are not in place yet.
Northern Metropolitan Community Transport Register: Transport Resources and Issues, (continued)
A community transport register has the advantage that member organisations represent a ‘consumer bloc’ that is able to negotiate an appropriate insurance policy. Insurance brokers are now negotiating with individual community transport agencies such as Wodonga Community Transport and providing flexible and comprehensive insurance to alleviate concerns being expressed in the field.
The report makes some very practical based suggestions on insurance policies, damage to vehicles, registration and licensing. These points remain major points of confusion and myth that prevent more efficient transport options within the Loddon Mallee region.
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4. Loddon Mallee Region
4.1 Demographic Profile
The demographic profile provides summaries of population change by Statistical Local Area and Local Government Area. The profile also indicates the proportion of persons over the age of 65 years, and annual income and income levels among persons over the age of 65 years by Statistical Local Area. More detailed information is provided in Appendix A .
4.1.1 Population Change
Population information has been obtained from ABS Preliminary Estimated Residential Population Counts, 1996.
Regional population trends in the period 1991-1996 can be summarised as follows:
• Population growth in regional centres, major urban centres and the area of the region now referred to as the Melbourne - Bendigo Corridor. • Population decline in municipalities and urban centres north of Greater Bendigo (with exception of Mildura and Echuca urban areas).
Local Government Area
Population growth between 1991 and 1996 has occurred in following municipalities :
Mildura 5.1% + Greater Bendigo 3.0% + Macedon Ranges 9.7% + Mount Alexander 2.4% + Campaspe 2.9% +
Population decline has occurred in the following municipalities :
Buloke - 14.3% Gannawarra - 3.3% Swan Hill - 3.06% Central Goldfields - 3.7% Loddon - 7.3%
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Urban Centres
Limited 1996 census information is available for urban centres in the region. Population change between 1991 and 1996 is available for the following cities and towns :
1991 1996
Mildura 39187 41167 5.1 % Swan Hill 9734 9483 -2.6 % Robinvale 7595 7457 -1.8 % Bendigo (greater area) 80807 84593 4.7 % Maryborough 8042 7750 -3.6 % Castlemaine (not incl outer areas) 7273 7097 -2.4 % Kyneton 7342 7719 5.1 % Echuca 9664 10,224 13.3 %
Summary of Population Change
• Population growth, mainly growth rates between 5% -10 %, in Statistical Local Areas within the Bendigo - Melbourne corridor, and in Echuca and Mildura urban areas.
• Population decline in Statistical Local Areas and municipalities to the west, north and north west of the region, with declines over 10 % in Buloke and Mildura municipalities.
Figure 5: Population Change, 1991-1996
Population Change 1991-1996 Over 10% 5% to 10% 0 to 5% -5% to Ð10% Decrease over 10%
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4.1.2 Proportion of Population Over 65 years
The municipalities with the highest proportion of persons over the age of 65 years are Buloke, Loddon and Mount Alexander. Municipalities with lower proportions include Macedon Ranges, Greater Bendigo, Swan Hill and Mildura.
Buloke 18.0% Mount Alexander 17.2% Loddon 17.1% Central Goldfields 16.0% Gannawarra 15.9% Campaspe 14.1% Mildura 13.5% Greater Bendigo 13.5% Swan Hill 12.9% Macedon Ranges 8.4%
Urban Centres and areas with high proportions of persons over 65 years include Castlemaine (21.3 %) and Maryborough (21.1%)
Proportions of the population over 65 years and over 75 years within Statistical Local Areas is shown diagrammatically in Figures 6 and 7.
Figure 6: Population Over 65 Years, 1996
Population Over 65 Years, 1996 (%)
21.8 to 26.6 20.2 to 21.8 17.4 to 20.2 16.0 to 17.4 8.5 to 16.0
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Figure 7: Population Over 75 Years, 1996
Population Over 75 Years, 1996 (%) 7.4 to 9.5 6.8 to 7.4 5.5 to 6.8 4.3 to 5.5 1.9 to 4.3
4.1.3 Income Levels
The proportion of individual annual income within Statistical Local Areas that are below $10,400 is shown in Figure 8. The proportion of persons over 65 years with an individual income below $10,400 is shown in Figure 9.
Municipalities with more than 40 % of individuals with annual incomes lower than $10400 include Loddon (southern part), Central Goldfields, Mount Alexander and Greater Bendigo (rural areas) and Campaspe (southern part).
When income levels are matched with the proportion of persons over 65 years the following picture emerges:
Highest concentrations of persons over 65 years with low incomes (below $10400) are in Central Goldfields, Loddon -southern part, Greater Bendigo - Strathfieldsaye SLA (61.4 to 65.4 %), Mount Alexander, Greater Bendigo - excluding Central SLA’s, and Campaspe - southern part (58.6 % to 61.4%).
The majority of persons over 65 years across the Loddon Mallee Region have annual incomes below $10400. Exceptions include Mildura municipality (not including Mildura regional centre), Buloke Shire, and Robinvale and District.
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Figure 8: Annual Income Below $10400pa
Annual Income below $10400 (%) 43.6 to 52.5 41.0 to 43.6 39.6 to 41.0 37.1 to 39.6 33.6 to 37.1
Figure 9: Income Below $10400pa, Population Over 65 Years 1996
Income Below $10400 (%) 61.4 to 65.4 58.6 to 61.4 55.4 to 58.6 53.1 to 55.4 44.9 to 53.1
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4.2 Regional Settlement Pattern
The regional settlement pattern and changes that have occurred to that pattern in recent years are characterised by two major changes - population growth in the Region’s major centres and population decline in the north and north west of the Region.
4.2.1 Regional Centre Growth
Analysis of population and demographic changes in the Loddon Mallee Region over the period 1991 to 1996 indicates that previous trends have continued which in turn has reinforced the changes that have been occurring in the regional settlement pattern. These changes include :
• Growth of major regional centres such as Bendigo with consolidation of its regional service role which encompasses an extensive area of the region from the Macedon Ranges municipality to north of Swan Hill. • Growth within the corridor between Melbourne and Bendigo which includes centres such as Castlemaine district, Kyneton, Gisborne and Woodend. Growth in this corridor is a result of factors such as the growth impulses of the regional centre of Bendigo and the Melbourne Fringe, and lifestyle attributes of these localities. • Growth in Mildura regional centre driven mainly by horticultural developments, tourism and retirement. The remoteness of Mildura is an important factor with Mildura having benefited from changes in service delivery methods.
Population growth in the Bendigo-Melbourne Corridor has created the demand for improved rail and road infrastructure. Improvements to the Calder Highway and the introduction of sprinter train services have reduced travel times within the corridor and improved access between Kyneton, Castlemaine and Bendigo.
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Table 3 Population Change : Bendigo - Melbourne Corridor, 1991-1996
Bendigo-Melbourne 1991 1996 Change % Change 1991-96 1991-96 Macedon Range (S) Balance 15653 17207 1554 9.93% Kyneton 7342 7719 377 5.13% Romsey 8110 9191 1081 13.33% Mt Alexander (S) Balance 9090 9648 558 6.14% Castlemaine 7273 7097 -176 -2.42% TOTAL 47468 50862 3394 7.15% Source: ABS Census Data Major employers in Bendigo and Mildura are the Health industry (Bendigo Health Care Group 1,991 employees and, Mildura Base Hospital 705 employees).
4.2.2 Isolated Rural Towns and Communities
The major challenge for any isolated rural community located 50 to 60 kilometres from a regional or large urban centre in the northern dryland areas is the maintenance and creation of a sustainable future.
The towns and rural communities within the broad geographical dryland area north of Wedderburn through to Ouyen are particularly susceptible to decline in population levels and services. This area falls within all or part of the municipalities of Loddon, Buloke, Gannawarra, Swan Hill, and Mildura.
Decline in both population levels and services poses access problems for the aged, frail and disabled people living in these smaller towns and rural areas. The isolation factor for the northern part of the region needs to be counter balanced in planning and funding of services, including transport services.
Areas to the north and northwest of the region have limited public transport and limited access to taxi services. The HACC funded volunteer transport services and vehicles currently perform vital transport services to the regional centre of Bendigo and to larger towns (eg Swan Hill, Echuca) with a more comprehensive provision of services.
Rationalisation of government services and the means in which these services are delivered in parts of the region is an important consideration. HACC funding and program planning for transport services and other program areas must address equity considerations arising from a changing settlement pattern characterised by factors such as the concentration of services and service delivery points in country regions.
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5. Summary Of Issues
Research and interviews undertaken for the Transport Strategy project has identified a range of issues and features that describe the existing situation in relation to HACC funded transport in the region.
5.1 Lack of Co-ordination
• The current community transport system is ad hoc with little co-ordination and based on historical arrangements. There are however many good examples of services or system of services that are meeting individual consumer needs • There is little local capacity (personnel, resources) for coordination between agencies. Some barriers to co-ordination and improved service include organisational possessiveness of vehicles, perceptions about insurance and driver eligibility that limit potential for improvements. • Generally there is no agency at the local level that has the role to improve the overall system. • Barriers to improved co-ordination and service including mechanisms to extend hours and service, results in under-utilised vehicles. • Approach to community transport is reactive with little forward planning beyond volunteer recruitment. In some instances, strategies for volunteer recruitment are proving ineffective. • Highly variable between communities in terms of what is offered, how much the consumer is charged and who uses the service. • HACC has become the default service in the interface between other transport funders and providers as other services scale down. • There appears to be "in principal" agreement for a coordinated/ brokerage system in larger population centres. There is a need to offset any new arrangements with concerns about "take overs" or reduced services.
5.2 Planning For An Integrated Transport System
• Provision of HACC transport often takes place without regard to non- HACC users and providers or even HACC clients outside 9-5 pm on weekdays. • It appears that there are many opportunities for integration of HACC and non-HACC community transport and even public transport.
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• There are many cost distortions in the provision of HACC transport. For example, it is apparent that the separate provision of a HACC-only transport mode can make alternative forms of transport non-viable within a town or area. (The Heathcote taxi service was one example provided). • Economics of integrated transport are generally better than a "gladbag" of independent services - particularly in a region with limited overall demand. • HACC is paying for capital investments in transport rather than purchasing services. Many of these investments may be counter-productive in the broader context of transport service provision. • There are many potential providers in the region - mostly with restrictions on their operations, and such restrictions generally cause inefficiencies when looked at in a broader context than that of the immediate client. • If public transport in small communities is the "picture" we wish to look at, then there are actions by HACC and others that detract from its provision and or cost-effectiveness. If HACC transport is the "picture" then there are probably worthwhile actions available to improve its cost-effectiveness. • If transport for all members of the HACC group is the picture - there are advantages in improving access to public transport, improving affordability of taxis, and improving co-ordination of community transports.
5.3 Lack Of Policy Consistency And Clarity
• Eligibility for HACC transport is not decided consistently across the region. • It is not clear what criteria are being used to ensure that consumers transport needs are being met. That is, what is a transport need? What options are available, etc? • There is a lack of objectives or guiding principles for the allocation of funding for transport services, eg. Is an objective to provide universal access for transport for HACC target group? Are some transport destinations more important than others et. medical appointments. Should one agency be responsible for provision of HACC transport in a local area. • Administration and monitoring of HACC funding could be improved. Systems that are less concerned with specific vehicles and more concerned with co-ordination with other services would be more effective.
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5.4 Regional Imbalance and Locational Advantage
The characteristics of the settlement pattern have important implications for the provision of transport services and the potential to improve existing provision. Some important issues include :
• Medical services are restricted to major towns increasing the need for transport to these larger centres. Medical/specialist transport support is not available in some towns. • People from more isolated areas often require transport to all medical appointments, including general practitioners. • More day to day medical procedures require transport back and forth in one day, often with an unwell or confused person at the end of the day. • Early discharge from hospitals with little notice (especially Friday afternoon) is occurring often when the person's condition may be unknown to the transport providers. • Younger people leaving rural communities reduces resident's options for family support, especially on a regular basis. • Declining public transport services, (train and bus services) especially in the north of the region. Train and bus services are often an unsuitable form of transport for many consumers because of problems such as physical access and timetabling. • Transport options shrinking, for example, less use of ambulance, Red Cross. • Transport brokerage schemes are suited to the larger centres, e.g. Bendigo, Echuca, Castlemaine, Maryborough etc.. • Consistent population growth in the south of the region has resulted in improved rail services.
5.5 Planning for community transport systems
• Transport issues vary across the region and sub regions. A standardised approach cannot be applied to all urban and rural communities. • Planning for transport services needs to be soundly based on existing communities with established infrastructure and resources. • Inadequate resources are generally allocated to co-ordinate volunteer transport. No resources go to volunteer transport, except as part of social support. • Planning needs to account for cross border issues. This not only applies to Murray River municipalities but also to some municipalities with overlapping services.
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• The capacity and effectiveness of any potential coordinating role is reduced to the north of the region due to large distances between population centres and fewer providers and consumers. • Strategies are required to strengthen and use local and personal networks as well as formal transport strategies. • Effective coordination of community transport varies across agencies between local areas. Co-ordination is often ad hoc. Degree of co- ordination generally depends on skills and commitment of local transport provider’s staff. • Access for children and adults is poor in all outlying areas eg for school, appointments etc.
5.6 Interdepartmental transport issues
• There has been no evidence of effective co-ordination between transport systems funded by different government departments. • There are major coordination limitations and expensive cross funding arrangements between various providers, especially Department of School Education, taxis and adult day programs for people with disabilities. • The role of local government as a provider of transport is not inconsistent. Some municipal councils contribute significant resources to their community transport service, beyond HACC funds.
5.7 Roles and Responsibilities of Volunteers
Volunteer drivers have significant responsibilities. There are many issues in relation to volunteers:
• Local government and agency policies with respect to volunteer drivers varies across the region. • The extent of responsibility put on volunteers also varies with different schemes. • A significant amount of transport in the region relies on older volunteers. Volunteer numbers are predicted to decline in the future. Planning for transport services needs to take account of this trend, particularly with an increased demand for transport services. • The nature of volunteer transport service is determined, in part, by what volunteers are prepared to do. For example, fewer volunteers are available for weekends and long trips or evenings. • There is lack of clarity about insurance for vehicles, volunteer driver eligibility and agency liability.
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• Consumers make donations to community transport which vary according to locality and agency, from no charge, donation, predetermined donation, set fee. Community providers believe this approach avoids the illegalities of arranging fees. • Additional support identified as being required for volunteers drivers ie. mobile phones. • Distinction between home carers' role and community transport seems generally clear. However, these roles will blur with increasing responsibility placed on volunteer drivers (including need/ request for training) and with higher support needs clients requiring transport. • Volunteers require support, such as two volunteers for long trips, mobile phones, out of pocket expenses, training (for example, first aid, lifting).
5.8 Role of Taxis
• In practice, the role for community transport is not necessarily distinguishable from taxis in relation to support. • Eligibility varies depending on condition of traveller (for example, arthritis, psychiatric disability). If "no public transport" is reason for eligibility then person can't have MPT card, eg trip to Melbourne. • If taxis are to extend their role in the community transport system, the following would be required: • taxis must be affordable; • drivers may need to be trained regarding the HACC target group; • support role would need to be provided; • role would need to include waiting; • ability to communicate with various consumers; • ability to negotiate special fee arrangements; • taxis must be perceived by HACC agencies as providing appropriate support; • Some taxis are clearly already able to satisfy these service requirements. • Accessible transport for disabled persons must address issues such as training of staff and volunteers about communicating and providing assistance. People with disabilities need to know how to use transport services.
5.9 Role of Public Transport • VLine services in the south of the region have generally improved, however a better service could be provided by regional timetabling rather than timetables that are determined primarily by Melbourne arrivals/ departures. • An extension of VLines’s role would require some changes : • Buses would need to be physically accessible.
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• Train guards would need to be trained about the HACC target group. • Timetables that more adequately respond to consumers demand for travel between regional and larger centres. • Provision of flexible pick up and drop off locations for buses. • Buses require accessible toilets.
5.10 Need For Central Coordination Of Community Transport
There is an absence of a peak transport body for community transport. The need for such a body has been highlighted by individual agencies and in various reports. The Community Transport Organisation in New South Wales is very strong and has good links with government and is responsible for the distribution of HACC transport resources.
5.11 Overcoming Constraints to Improved Efficiency
There are potential constraints to improving the efficiency of community transport services and public transport services - including HACC services, in rural areas. Many of these are institutionalised, but some are through a lack of coordination. Operational constraints associated with taxis have restricted the potential role that taxis can perform in the areas of community transport in smaller towns and rural communities.
5.12 Insurance
Insurance brokers are now negotiating with individual community transport agencies. There are advantages negotiating insurance policies where a community transport register exists. Member organisations in effect form a ‘consumer bloc’ with leverage to negotiate an appropriate insurance policy. The Community Transport Organisation (CTO) in NSW has negotiated insurance policies on behalf of its members.
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D. Transport Models
6. Framework For Development Of Transport Models
A framework for the development of transport models needs to give consideration to the following:
• User Priorities • Markets For Local Transport • Service Options and Costs • Mechanisms For Planning and Co-ordination
6.1 User Priorities
HACC Transport Charter
Models must address the greatest need according to the HACC charter. Greatest need may not necessarily equate the actual demand expressed in the purpose of transport trips. Currently the majority of trips are made for the purpose of meeting medical appointments, which in turn means that less transport is available for more traditional examples of social support activities.
It may be possible through better co-ordination, planning and matching of transport service options to specific localities and circumstances, that total transport trips could be better allocated according to need.
Individual providers in the region have established their own hierarchy of priority trips. HACC policy does not assist in this regard with the absence of a specific policy on transport. Members of the Project Steering Committee did not have a consistent view about priority trips.
It should be noted that the increasing demand for HACC community transport in some instances (especially medical trips) is related to the withdrawal of other transport services (eg ambulance and Red Cross)
6.2 Markets For Local Transport
The vision for the transport system (public transport, community transport and private transport ) in country regions is that all persons have access to some basic forms of transport. Planning for community transport must therefore be undertaken as part of overall system of services. Ironically the development of community transport, including that funded by HACC seems to have occurred out of context from the planning for public transport (trains and buses) and taxis.
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This Transport Strategy depends on the ability of potential transport systems to deliver basic transport needs to the smallest markets, both in terms of the geographic dispersion of people and the specific transport needs of the HACC target group for physical, financial and emotional support.
The vision for the transport system requires HACC Transport to meet the needs of the HACC target group and where possible support and strengthen transport options for the broader community at the same time.
In examining service provision, one needs to look at the direction of the service. Is it a vehicle and service provided from the HACC agent, or is it a local service which delivers customers to the HACC service? It may well be that there is a "cut-off point" where the optimum service changes from a HACC agent service to a local service. This may be dependent on town/regional population, and other demographic features such as density of population or percentage of people in a particular age group. Such characteristics may change over time, emphasising the importance of a total approach to planning transport systems.
Performance Criteria
A range of service delivery systems are possible in the Loddon Mallee Region which need to be evaluated using a set of Performance Criteria - performance criteria for users and for funders/providers.
Funders/Providers • HACC criteria - costs, priority to HACC users. • Department of Infrastructure criteria - costs, best coverage/service for given cost levels (ie. cost-efficiency), provide basic level of accessibility to community/health facilities for all of the community. • Local Government - provide community transport to the "transport needy", cost effectiveness. • Providers - cover costs, or make a profit (private provider).
Costs will include vehicle capital costs, vehicle operating costs, driver/assistant costs, and administration costs. Also training of drivers and volunteers, booking and communication systems.
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Service Users • Provide a useable, user-friendly service to meet their individual "public transport" needs. • Provide service for User Groups - eg. HACC users, community transport, young, elderly non-car users.
6.3 Planning and Co-ordination at Local Level
The Loddon Mallee Region is a large region with regional disparities and differences which have implications for planning, co-ordination, delivery and funding of community transport services. A regional perspective to community transport needs to consider the following regional characteristics:
• Bendigo regional centre with a population of 80,000 persons and a comparatively comprehensive range of transport service options. Bendigo has a service catchment area that encompasses the entire Region, with the exception of Mildura. Bendigo is the destination for many HACC transport trips, with the current emphasis on medical appointments. • A range of relatively independent sub regional centres (Mildura, Castlemaine, Echuca, Maryborough, Swan Hill) with a good range of community facilities and established transport systems. These centres service an area that generally covers a municipal area. In most cases these municipal areas represent ‘communities of interest’ • Areas of the region north and north west of Greater Bendigo that are more sparsely settled, lack urban centres of significant size, and are continuing to confront issues of maintaining service levels (Loddon, Gannawarra, Buloke, parts of Swan Hill and Mildura municipalities).
These regional characteristics will invariably require different responses in terms of planning, co-ordination and funding of HACC transport services. For instance, ignoring issues of agency resistance to coordination for the moment, it would be considerably easier to achieve co-ordination of HACC transport services and their integration with other service modes in Central Goldfields and Mount Alexander than it would be in Loddon and Buloke. This is due to more transport options being available, closer proximity to Bendigo and Melbourne and greater demands for transport from a larger population.
Consultation undertaken as part of this Strategy revealed that there are few examples of planned, co-ordinated or co-operative approaches to community transport in the Loddon Mallee Region. The potential for improved planning is hindered by the absence of consistent community transport policies across the three levels of government. Planning and co-ordination of community transport requires policy direction at the State level to provide a framework for local transport initiatives and the preparation of locally based community transport plans.
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Local Community Transport Plans
The preparation of local community transport plans is a strategic approach to co-ordinating community transport and optimising the use of existing resources.
Local government areas in the Loddon Mallee region generally constitute a useful geographic area for community transport planning. As a planning area, local government areas have the following advantages :
• A large urban centre that services outlying towns and rural communities. Major facilities such as hospitals and municipal councils are located in these centres which are also public transport hubs for an area that generally conforms to the municipal area. • Municipal councils are typically the organisation at the local level that is best equipped to perform a planning and co-ordination role. In many cases, the municipal council manages a HACC volunteer transport service.
An agency other than a municipal council may however be a more appropriate co-ordination agency in some regional localities.
Planning Principles
Some important principles for community transport planning at the local level include :
• Co-operation and co-ordination within co-ordinating agency and between participating agencies. • Central point for information and contact. • Protocols for shared use of transport resources • Commitment to co-ordination at wider sub regional and regional levels • Consultative and inclusive process in the preparation of community transport plans • Preparation of local community transport plans where municipal councils are the responsible organisation, would require good communication between departments/units within council and also good communication between adjoining municipal councils.
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Aims of Plan
The local community transport plan would have aims such as :
• formulate strategies to increase access to community facilities and activities, • determine client priorities for access to transport, and • develop a transport plan that integrates and co-ordinates all transport service types ie public transport, HACC vehicles, taxis, etc.
Matters to be Addressed
The local community transport plan would need to address a range of matters including :
• Establish the role and purpose of community transport. • Assessment of transport needs in the local area. • Attracting resources and encouraging sharing of resources to improve overall transport provision in the local area. • Develop transport policies (eg. training, support for HACC clients, fees etc.). In cases where municipal, council is the responsible authority, policies should be linked to the Corporate Plan. • Identify opportunities for community transport opportunities that transcend municipal boundaries. • Evaluate and implement suitable transport models. • Clearly set out legal obligations and operational requirements. • Provide strategic direction and longer term planning for community transport • Establish policy guidelines for access and use of vehicles. • Make recommendations for future community transport funding.
Role of Transport Co-ordinator
The role of the co-ordinator is critical to the effectiveness of local community transport systems or the preparation of a local community transport plan. The role of the co-ordinator will include :
• Developing a system for tracking costs associated with transport provision. • Establish process for management and administration of community transport system. • Develop and maintain liaison with other providers so as to maximise co- operation. • Determine eligibility for HACC transport. • Broker the best transport deal for the consumer.
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• Update and maintain community and voluntary transport directory • Coordinate voluntary transport systems • Maintain information about public transport systems • Maximise the relationship between public transport, taxis and community transport to minimise duplication of vehicles and maximise use of resources. • Establish formal communication links with all transport providers ie taxis, public transport, private services
6.4 Innovative Features For Models
Introduction
A review of existing transport services and models in the Loddon Mallee Region, Victoria and other states revealed some examples of services or components of a service that may be applicable to different areas, towns or sub regions within the Loddon Mallee region.
Central Co-ordination - New South Wales Model
Community managed transport programs have been funded in NSW since 1981. The Urban Transit Authority (UTA) employs a community transport team of four people to act as advisors to the Community Transport Organisation (CTO) program. The CTO & HACC and community transport funds are administered by the Department of Transport (DOT).
The CTO is the peak community transport body. Funds are distributed from the CTO to local agencies responsible for HACC community transport services.
The CTO has 120 community transport groups as members, and has developed a number of service models, including mini-bus brokerage services, shared taxi rides and charter buses for these agencies.
The CTO have strong links with different government departments and is able to set a direction across the State for community transport provision.
The CTO are an incorporated body with registered members, and have the capacity to negotiate appropriate insurance policies on behalf of its members.
Local Area Committees comprised of Government departments and service providers decide local transport priorities and plans.
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Regional Cooperation - Do Care Transport Brokerage - Ballarat (Victoria)
The Do Care transport brokerage scheme was launched in Ballarat in April 1996. It has received HACC funding since in 1994. Two cars are available through Do Care with 16 other vehicles available from over 20 local organisations participating in the scheme. Thirty (30) volunteers participate in the service to transport people in the HACC target group. An average of 1200 pick ups are made a month.
Funding is to be allocated in 1998 to establish a regional concept for coordinating community transport within and between four surrounding shires.
No fares are charged due to licensing requirements as stipulated under the Transport Act. Consumers are encouraged to make a donation to assist the service. The service does not experience any difficulties in recruiting volunteers. The program has set up clear aims/objectives and policies for vehicle usage, giving the lending agency priority use to the vehicles.
Establishing Registers and Mapping of Transport Resources, Northern Care & Share
Northern Care and Share Inc. is a non profit community organisation that services the Department of Human Service’s Northern Metropolitan Region of Melbourne, and provides an ‘Out and About Community Transport Program’. The organisation was granted funding to map community transport resources in the Northern Metropolitan Region and examine the feasibility of establishing a centralised register of these resources, a brokerage type model.
In the first stage a register of community transport resources on a centralised computer data base has been created. Organisations which are funded for vehicles under the HACC program are now required as part of the funding service agreement to contribute their vehicles to the Northern Community Transport Register. The next two stages would see the incorporation of a geographical Information Systems Database formed which would create the basis for a brokerage service to operate.
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Better Fleet Management and Co-operation - Central Wellington Health Service
The Central Wellington Health Service (CWHS) was set up in May 1995 under the Wellington Shire council and is based in Sale.
The transport service auspiced by CWHS was set up by:
• transferring HACC assets including three buses and one car; • secondment of a Loch Sport R.S.L. Club bus; • use of a bus from the Evelyn Wilson Nursing Home; • rationalising and centralising the prioritising and allocation of vehicles (although some use may be obtained through the local booking officer).
The CWHS aims to increase transport access through better fleet utilisation, programming, and cooperation. The prime function is to provide transport for the aged/frail and/or people with disabilities. Other organisations, clubs and individuals have access subject to availability.
Fleet
CWHS has access to four buses with wheelchair access (via a rear wheelchair lift), and one station wagon with a front swivel seat.
Management
The vehicles are managed by local committees at five locations. There is a central booking database funded by HACC, and all vehicle use and servicing is monitored. Bookings can be made through the local booking officer.
Priorities and Charges Priority A: Groups of Frail Aged and/or peoples with disabilities- petrol costs only paid for by HACC Social support or ADASS programs;
Priority B: Individual Frail Aged and/or person with disabilities - $0.50 in town, or petrol costs & $1/h (out of town);
Priority C: Senior citizens - $0.50 per person for groups, $1.50 for individual, $3/h plus petrol for out of town use;
Priority D: Junior Groups - $4/h plus petrol;
Priority E: Community Groups - $5/h plus petrol;
Priority F: Other Groups/Senior Sports Clubs - $8/h plus petrol;
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Volunteer Support - SunAssist, Mildura
Sunassist, Mildura is based in Mildura and services the Sunraysia area. The strength of the service is the large number of volunteers who provide driving and support for the HACC Target Group. All volunteers receive training, in addition to a formal volunteer manual of standards. Funding is provided from HACC (16%), Department of Infrastructure and community donations. The organisation maintains a high profile communications strategy with clients and volunteers informing them about services, standards, service plans, training etc.
Flexible Taxi Arrangements - Corangamite Council - Taxi’s Community Transport Taxi Service
Corangamite Shire Council has been operating a community transport service for a number of years and has recently expanded the service to HACC consumers.
A taxi service operating in Camperdown and Terang has been delivering the community transport service for the same remuneration as the reimbursement fee for volunteer transport drivers, that is at a rate of 58.3 cents per kilometre. Clients are therefore receiving a fare at around half the normal price. This fare can be reduced by 50% if clients hold a mobility discount card or a multipurpose taxi card.
Notwithstanding the lower fare, the taxi operator has found that overall business in a small town like Camperdown has increased significantly. The taxi manager’s philosophy is ‘we do not earn by sitting on the ranks’. The taxi service realises the importance of playing an active role in small communities.
Corangamite Shire holds a register of volunteer drivers. The register includes details such as days available, and insurance etc. A register of users is also held by Council. Drivers are matched to requests and location of users. Drivers submit travels claims at the end of each month and are reimbursed at 58 cents per kilometre.
The taxi operator in Camperdown and Terang is given first option on trips in those localities.
Council monitors the use of the service and considers that the incorporation of the taxi operator into the service has the advantages that there is a need to only ring and deal with only one person and that it is sometimes easier to deal with the taxi business than volunteers.
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Importance of Social Support - Swan Hill Taxi Service
Swan Hill Taxi’s service operates as part of the Swan Hill transport network of services. The advantages of the taxi service are: • 24 hour communication and transport system • The taxi service operates with social support principles as part of the service and drivers are expected to carry out these support roles (for example, assist people to the car and their appointment, bring in the washing if needed etc). The additional time to complete these support tasks is not charged for and is seen as fundamental to building a viable taxi service in rural areas. • The aim of the taxi service is maximum vehicle usage over 24 hours. In addition, opportunities for consumers to share the same vehicle and share costs are a feature.
6.5 Transport Models for Loddon Mallee Region There is a range of community transport models, some in use - others theoretical, and some of which are "integrated" models with each other and/or public transport and taxis. Models may have the options of paid drivers/operators or volunteer operators or combinations of both.
A major consideration in the development of transport models is the potential style of service delivery. Is it to be a service of HACC or similar, or is it to be a transport service by which HACC customers are served as a customer group by a wider service? An example of some of the options are:
• A HACC funded service provides a regional transport service for all its customers on a priority user basis - eg. a hospital bus/car picks up and drops off all its transport-disadvantaged customers. • Several towns operate volunteer "taxis", with partial funding by HACC, which provides amongst other services, a priority service to HACC customers in the town to a variety of local and regional services. • Low cost hiring of HACC vehicles to other community groups eg junior sporting teams, single parents, specific ethnic groups. • HACC contract taxis linking with the train service to larger population centres, with A HACC volunteer accompanying the individual in the train and taxi.
Research throughout the Loddon Mallee areas points to the need to maintain flexible and diverse range of transport responses and strategies to meet the identified needs of each local government area.
An effective community transport system should build on the contribution of all providers - paid, voluntary, formal, informal. Models can be developed around four categories - consumer, public transport, taxis, HACC Transport and integrated bus/vehicle services. These categories are not mutually exclusive. There are six basic model types recommended for the Loddon Mallee region. These are discussed below. The suitability of these models to urban areas, municipalities and sub-regions in the region is discussed in the
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Table 5.
6.5.1 Consumer based models
Funds can be provided directly to the consumer with the decision resting with the consumer as to how that money will be spent over a specified period of time. This approach depends on friends and relative networks and may be appropriate for isolated rural towns and areas eg. towns and communities in dryland areas of Buloke, Gannawarra and Swan Hill municipalities and northern parts of Loddon Shire. An allocation direct to the consumer may provide an incentive for neighbours/family to provide a transport service.
Examples of consumer-based models already exist with the Department of Social Security mobility allowance for people with disabilities and VPTAS.
Variations of the consumer based approach may also include :
• Sales tax exemption for eligible individuals for vehicles and vehicle adaptations. • Volunteers using the consumer’s car at certain times, with funds provided for petrol and running costs. • Promotion of informal networks eg key people who know someone and agree to pick them up in an emergency.
6.5.2 Building on Existing HACC Volunteer Transport The existing HACC funding system provides funds directly for the purchase and/or replacement of a vehicle or alternatively funds are provided to an agency to co-ordinate and operate a HACC Social Support Program that usually includes a transport (service) component.
The existing system can be improved through better co-ordination and use of existing resources. Improvements that build on the existing system include : • Coordination of existing vehicles to maximise usage, within HACC programs and with other government funded vehicles. • Ensuring transport needs are part of an integrated plan for support. • Recurrent funding to Social Support for transport. This would create the option to use HACC funding for the most appropriate and cost-effective transport option eg vehicle leasing, funds to consumer, reimbursement to volunteers for use of their car (including for delivered meals). • Integration of HACC services/ functions eg home carer also provides transport. • Co-ordinate trips amongst HACC and non HACC clients for regular trips, and doctor's appointments. • Shared use of vehicles.
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6.5.3 Lucky Dip
There are a range of possibilities to improve transport options, especially in rural areas, which relate to the use of government and special purpose vehicles and promotion of the other transport programs:-
• Coordination of transport policies across the Department of Human Services, especially with the Disability program. • Coordination of transport policies across and/or between government departments, including improved local planning and funding, especially between Department of School Education and Department of Human Services. • Use of utility vehicles (eg postal, bread) that regularly travel between towns/ localities, especially in more isolated areas. • Better promotion of other transport schemes (eg VPTAS, VetsAffairs). • Home delivery of services (eg banking, chemist, green grocer, general practitioners, etc). • Identify and respond to reasons why family members/ friends cannot transport individuals. It is possible that alternative arrangements could be made eg change timing of appointments, childcare, etc. • Extension of "disabled permit" to allow longer parking for rural people in provincial and metropolitan areas.
6.5.4 Integrated Bus Service (HACC bus and Commercial bus)
Under this model a HACC vehicle may be integrated with other vehicles including commercial vehicles. It includes brokerage systems and schemes where a HACC vehicle may be available for lease to other community groups.
The Central Wellington Health Service (CWHS) is an example of this model. Details of the CWHS are discussed earlier in Section 6.
The integrated model is based on a community transport service operating with volunteer drivers, or a paid driver. It could be available to the public at large at reduced fee scale for local trips. The vehicle would have a "base load" contract(s) with HACC and possibly other groups. Some features include:-
• Vehicle could be driven by trained volunteers and would therefore have minimal operator/driver costs - just those for ensuring proper training.
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• Capital (purchase and depreciation) costs, and fixed costs (registration and licensing) could be paid in part or in full by service contracts with the HACC provider, the council, or other bodies. It would be available for public hire outside the contract requirements servicing the community at large at the marginal operating costs ie. $0.20-$0.30/km. There may need to be a flagfall for bookings (say $0.50) to cover the costs of a mobile phone. • Vehicle could multiple hire - to take several patients to a nearby town to a doctor, to take a small elderly group to and from the supermarket etc. • It could take regular bookings. • It could possibly supplement a school bus service in a marginal school bus area - eg. if a school bus currently has to deviate say 20 kms to pick up 2 or 3 students, it may be more economical to hire taxi.
Transport Brokerage
There are two types of brokerage:
I_ A single transport provider is established with vehicles from other agencies used in downtime. II_ A central agency who negotiates best deal with various providers.
Transport brokerages are based on the premise that there are vehicles within HACC programs and other community programs that are under-utilised and /or difficult for other agencies to access. In a brokerage model a ‘go between’ Agency gets the funding to pool and match appropriate transport on behalf of and in consultation with clients.
Advantages of Brokerage option include: • Separation of consumer & provider (organisational) priorities perspectives • Improved consumer choices • More flexible service system • Capacity to focus on client needs wholistically • Optimum use and monitoring of resources/all vehicles at central point • Consistency of policy procedures and costs of transport services • Improved capacity to co-ordinate with other agencies on related functions.
Within a Transport Brokerage Model there are a number of options for transport pooling systems:
• Service providers - which are restricted to HACC funded organisations to provide services to HACC clients. Vehicle ownership remains with the agencies, but are pooled for use in their ‘down times’ and made available for use by other service providers. • Community transport - where community vehicles are pooled for community use. Membership of pool is not restricted to HACC services,
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but vehicle usage is restricted to organisations/individuals approved by the coordinator. • Community bus service - developing a community bus service from vehicles pooled during periods of vehicle non- use for HACC Clients.
6.5.5 HACC subsidised TAXIS
Under this model HACC pays for taxi on a "fee for service" or contract basis.
There are examples in this region and other regions where flexible fare arrangements have been negotiated.
This model may suit in areas where a larger vehicle is not necessary, and where a taxi service is viable or close to viable.
The success of a fee for service arrangements may depend on the agency giving priority to the taxi service in the town/s where they are based. The taxi operator would need to be prepared to accept a lower fare in return for the certainty of business. It is likely that a taxi operator would accept this arrangement in a smaller town where the commercial customer base in limited.
6.5.6 Improvements to Public Transport
Strengthening access by HACC target group remains a priority for this Strategy.
Public transport improvements that could be introduced or investigated further include:
• Introducing an additional service between Kyneton-Castlemaine and Bendigo to meet demand in the wider community for a morning commuter service to Bendigo. Any improvement in the public transport system can potentially be of benefit to HACC consumers.
• Improve timetabling of rail and road coaches to the north and north west of Bendigo. The need to improve timetabling of the Sea Lake bus service should be investigated.
• VLine and private buses stopping at requested stops in addition to scheduled stops. This could potentially be arranged through a community transport booking system.
• Specification of the access standards for privatised buses and trains (eg access to disabled toilets, physical access to vehicles, information about services).
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• Coordination of regular community transport loops with arrival and departure times of buses and trains. This would be possible in larger urban centres in the region.
• Increased concessions
6.6 Estimated Cost of Different Service Options/Models
To match potential service types to user and service provider criteria, service types will need to be assessed for their abilities to serve various markets. These markets will range from small townships to larger centres already serviced with public transport. Service options will have discrete costs and capacities - rather than a continuous cost and capacity variability.
Table 4. Estimated Costs of Different Service Modes
Mode Capital cost Driver Veh. Ops costs Admin. costs cost/ *Co- (incl. Capital & driver) ordination Community $30,000 $500/yr $0.45/km ($6000/yr + $1000/yr funded car $0.20 km) Commercial $30,000 $25,000 $0.85/km ($6000/yr + taxi $0.60 km) HACC car $30,000 $0 $0.45/km ($6000/yr + $2000 $0.20km) 2
HACC bus $60,000 $0 $0.85/km ($12000/yr + $4000 $0.60 km)
Community $60,000 $0 $0.85/km ($12000/yr + $4000 bus $0.60 km) Local route Local discount fare - $2000 bus $1/trip PTC bus/train Discount fare $2000 NB. These costings are estimates only and should not be quoted or used without prior discussion with the Department of Human Services. *Cost of co-ordination for HACC transport services not included. 1. Commercial taxi - depends on workload. 2. Commercial taxi - depends on area as agreed by Victorian Taxi Directorate. 3. Vehicle operation costs for HACC funded transport services and vehicles do not include costs such as co-ordination.
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6.7 Application of Models The following models are not mutually exclusive. A range of models could apply within a municipality or specific locality. The table does not make allowance for models based on informal arrangements. eg friends/relatives networks. Table 5 Prerequisites / Characteristics Municipalities/Areas Where Model Could/ Does Apply SERVICE OPTION/MODEL Improvements to Public Transport Locations along major rail and road links. Castlemaine and Kyneton - additional morning service to Larger centres with established public transport systems. Bendigo. Designated routes linking to train/bus station. Bendigo bus service Opportunity/demand for changes to timetables and routes. Booking special stops for bus eg Dingee, VLine Sea Lake to Bendigo service Bus services linking urban centres. Better timetabling for Sea Lake - Bendigo bus service. Maintain and Extend HACC Volunteer Depends on strong volunteer base Buloke, Central Goldfields, Gannawarra, Campaspe (eg Transport Service Training strategy and standards required. Echuca to Rochester), Central Bendigo (outer areas), Loddon Consumer Based Model Locations that cannot attract or maintain level of Particularly Buloke, Mildura, Swan Hill, Gannawarra, volunteers. Loddon and also more remote areas of Central Bendigo (eg Isolated areas, no public transport, low population density. Heathcote) and Central Goldfields. Integrated Bus Service (Fee for Service) High number of under-utilised vehicles. Mount Alexander (Castlemaine and surrounding towns. includes different types of brokerage schemes eg. Particular to areas that have hospitals and Local councils Greater Bendigo vehicle brokerage schemes, and informal and with fleets of vehicles. Kyabram (Aged Care facilities with buses) formal brokerage systems Economies of scale available for formalised brokerages. Macedon Ranges (eg Kyneton and surrounding areas. Not viable where vehicles and population are distances apart. HACC Subsidised Taxi Good relationship between taxi operator and Kerang Council/HACC provider. Cohuna - Echuca Small town with capacity for taxi business to expand. Heathcote. Willingness of operator to take it on. Donald - Wycheproof More concentrated urban settlement. Options for car pooling during trip. Lucky Dip Small towns and rural communities in more isolated areas eg government vehicles Isolated areas within Buloke, Mildura, Swan Hill, Gannawarra, Loddon. utility vehicles (post, milk delivery)
Prepared by TBA Planners Pty Ltd 66 CONTENT APPENDICES A: DEMOGRAPHIC TABLES B: TRANSPORT ISSUES & OPPORTUNITIES BY L.G.A. C: BIBLIOGRAPHY D: PEOPLE & ORGANISATIONS CONTACT LIST HACC Transport Strategy Loddon-Mallee Region
APPENDIX A
Loddon-Mallee Region - Population Change (1991 to 1996) and Selected Social Characteristics (1996) Estimated Estimated PopÕn % PopÕn Indigen Prop'n of Prop'n of Median Age Prop'n of Pop'n Median resident resident change change ous Pop'n of Pop'n (years) 65 years & Personal number of number of (1991 to (1991 to 1996) Origin Indigenous Speaking over Weekly persons 1991 persons 1996) Origin Other Income 1996 Language at Home
Mildura (RC) - Pt A 39187 41167 1980 5.1% 780 1.9% 8.7% 34 13.5% $248 Total Mildura RC Part A (SSD) 39187 41167 1980 5.1% 780 1.9% 8.7% 34 13.5% $248 Buloke (S) - North 4498 4025 -473 -10.5% 5 0.1% 0.6% 38 16.5% $253 Buloke (S) - South 4763 3914 -849 -17.8% 21 0.5% 1.1% 39 19.5% $237 Mildura (RC) - Pt B 5350 4684 -666 -12.4% 17 0.4% 2.2% 36 12.8% $286 Total West Mallee (SSD) 14611 12623 -1988 -13.6% 43 0.3% 1.4% 38 16.0% $259 Gannawarra (S) 13035 12564 -471 -3.6% 132 1.1% 1.3% 37 15.9% $245 Swan Hill (RC) - Central 9734 9483 -251 -2.6% 322 3.4% 4.5% 33 15.1% $267 Swan Hill (RC) - Robinvale 4207 3945 -262 -6.2% 356 9.0% 18.9% 31 11.2% $259 Swan Hill (RC) Bal 7595 7457 -138 -1.8% 70 0.9% 5.4% 36 12.4% $237 Total East Mallee (SSD) 34571 33449 -1122 -3.2% 880 2.6% 5.2% 35 14.3% $251
TOTAL MALLEE (SD) 88369 87239 -1130 -1.3% 1703 2.0% 6.3% 35 14.2% $251
Gr. Bendigo (C) - Central 21067 19155 -1912 -9.1% 172 0.9% 2.0% 33 16.4% $235 Gr. Bendigo (C) - Eaglehawk 8312 8611 299 3.6% 96 1.1% 0.9% 33 14.6% $222 Gr. Bendigo (C) - Inner East 20432 21135 703 3.4% 101 0.5% 2.7% 33 15.4% $251 Gr. Bendigo (C) - Inner North 7034 7765 731 10.4% 53 0.7% 1.2% 32 9.0% $260 Gr. Bendigo (C) - Inner West 11523 13148 1625 14.1% 86 0.7% 1.6% 32 10.2% $261 Gr. Bendigo (C) - S'saye 3715 4461 746 20.1% 9 0.2% 1.3% 33 6.2% $302 Total Greater Bendigo City Part 72083 74275 2192 3.0% 517 0.7% 1.9% 33 13.5% $248 A (SSD) C. Goldfields (S) - M'borough 8042 7750 -292 -3.6% 38 0.5% 1.3% 39 21.1% $204 C. Goldfields (S) Bal 5374 5169 -205 -3.8% 16 0.3% 2.4% 39 14.9% $188 HACC Transport Strategy Loddon-Mallee Region
Estimated Estimated PopÕn % PopÕn Indigen Prop'n of Prop'n of Median Prop'n of Median resident resident number change change ous Pop'n of Pop'n Age Pop'n 65 years Personal number of of persons 1996 (1991 to 1996) (1991 to 1996) Origin Indigen Speaking (years) & over Weekly persons 1991 ous Other Income Origin Language at Home Gr. Bendigo (C) - Pt B 8724 10318 1594 18.3% 62 0.6% 2.0% 36 12.0% $208 Loddon (S) - North 4100 3907 -193 -4.7% 13 0.3% 1.2% 37 16.2% $239 Loddon (S) - South 5717 5191 -526 -9.2% 23 0.4% 2.3% 41 18.1% $183 Mount Alexander (S) - C'maine 7273 7097 -176 -2.4% 52 0.7% 1.9% 39 21.3% $230 Mount Alexander (S) Bal 9090 9648 558 6.1% 77 0.8% 2.1% 37 13.1% $221 Total North Loddon (SSD) 48320 49080 760 1.6% 281 0.6% 1.9% 38 16.3% $207 Macedon Ranges (S) - Kyneton 7342 7719 377 5.1% 27 0.3% 2.5% 35 12.6% $266 Macedon Ranges (S) - Romsey 8110 9191 1081 13.3% 20 0.2% 3.1% 32 6.2% $310 Macedon Ranges (S) Bal 15653 17207 1554 9.9% 50 0.3% 4.1% 34 7.7% $336 Total South Loddon (SSD) 31105 34117 3012 9.7% 97 0.3% 3.5% 34 8.4% $307
TOTAL LODDON (SD) 151508 157472 5964 3.9% 895 0.6% 2.2% 35 13.3% $244
Campaspe (S) - Echuca 9664 10224 560 5.8% 273 2.7% 2.2% 36 16.8% $267 Campaspe (S) - Kyabram 12230 12389 159 1.3% 112 1.0% 3.6% 34 12.8% $263 Campaspe (S) - Rochester 7971 8263 292 3.7% 51 0.6% 1.7% 35 12.7% $259 Campaspe (S) - South 3872 3857 -15 -0.4% 13 0.4% 1.8% 37 14.2% $205
TOTAL CAMPASPE (S) 33737 34733 996 3.0% 449 1.3% 2.6% 36 14.1% $261
TOTAL LODDON-MALLEE REGION 273614 279444 5830 2.1% 3047 1.1% 3.7% 36 13.7% $250 Source: ABS Catalogue No. 3218.0 (Estimated Resident Population Data), ABS Catalogue No. 2015.2 (Selected Social and Housing Characteristics), the Total Loddon -Mallee Region data is calculated from this table or ABS Catalogue 2015.2, the Proportion of Population of Indigenous Origin and the Proportion of Population Speaking Other Language at Home columns are calculated from this table (ie. a combination of Estimated Resident Population and Enumerated Population data - PROPORTIONS ARE CALCULATED FROM ENUMERATED DATA AND MAY NOT MATCH ESTIMATED DATA). HACC Transport Strategy Loddon-Mallee Region
Loddon-Mallee Region - Population Change (1991 to 1996) and Selected Social Characteristics (1996) (organised into SLA groupings for comparison) Estimated Estimated Population Percentage Indigenous Prop'n of Prop'n of Median Age Prop'n of Median resident resident change (1991 population Origin Pop'n of Pop'n (years) Pop'n 65 Personal number of number of to 1996) change (1991 Indigenous Speaking years & over Weekly persons 1991 persons 1996 to 1996) Origin Other Income Language at Home
Mildura (RC) 39187 41167 1980 5.1% 780 1.9% 8.7% 34 13.5% $ 248 - Pt A Mildura (RC) 5350 4684 -666 -12.4% 17 0.4% 2.2% 36 12.8% $ 286 - Pt B TOTAL 44537 45851 1314 3.0% 797 1.7% 8.0% 35 13.4% $ 267 MILDURA (RC)
Buloke (S) - 4498 4025 -473 -10.5% 5 0.1% 0.6% 38 16.5% $ 253 North Buloke (S) - 4763 3914 -849 -17.8% 21 0.5% 1.1% 39 19.5% $ 237 South TOTAL 9261 7939 -1322 -14.3% 26 0.3% 0.9% 39 18.0% $ 245 BULOKE (S)
Gannawarra 13035 12564 -471 -3.6% 132 1.1% 1.3% 37 15.9% $ 245 (S)
Swan Hill 9734 9483 -251 -2.6% 322 3.4% 4.5% 33 15.1% $ 267 (RC) - Central Swan Hill 4207 3945 -262 -6.2% 356 9.0% 18.9% 31 11.2% $ 259 (RC) - Robinvale HACC Transport Strategy Loddon-Mallee Region
Estimated Estimated Population Percentage Indigenous Prop'n of Prop'n of Median Age Prop'n of Median resident resident change (1991 population Origin Pop'n of Pop'n (years) Pop'n 65 Personal number of number of to 1996) change (1991 Indigenous Speaking years & over Weekly persons 1991 persons 1996 to 1996) Origin Other Income Language at Home Swan Hill 7595 7457 -138 -1.8% 70 0.9% 5.4% 36 12.4% $ 237 (RC) Bal TOTAL 21536 20885 -651 -3.0% 748 3.6% 7.5% 33 13.4% $ 259 SWAN HILL (RC)
Gr. Bendigo 21067 19155 -1912 -9.1% 172 0.9% 2.0% 33 16.4% $ 235 (C) - Central Gr. Bendigo 8312 8611 299 3.6% 96 1.1% 0.9% 33 14.6% $ 222 (C) - Eaglehawk Gr. Bendigo 20432 21135 703 3.4% 101 0.5% 2.7% 33 15.4% $ 251 (C) - Inner East Gr. Bendigo 7034 7765 731 10.4% 53 0.7% 1.2% 32 9.0% $ 260 (C) - Inner North Gr. Bendigo 11523 13148 1625 14.1% 86 0.7% 1.6% 32 10.2% $ 261 (C) - Inner West Gr. Bendigo 3715 4461 746 20.1% 9 0.2% 1.3% 33 6.2% $ 302 (C) - S'saye Gr. Bendigo 8724 10318 1594 18.3% 62 0.6% 2.0% 36 12.0% $ 208 (C) - Pt B TOTAL GR. 80807 84593 3786 4.7% 579 0.7% 1.9% 33 13.3% $ 251 BENDIGO (C) HACC Transport Strategy Loddon-Mallee Region
Estimated Estimated Population Percentage Indigenous Prop'n of Prop'n of Median Age Prop'n of Median resident resident change (1991 population Origin Pop'n of Pop'n (years) Pop'n 65 Personal number of number of to 1996) change (1991 Indigenous Speaking years & over Weekly persons 1991 persons 1996 to 1996) Origin Other Income Language at Home C. Goldfields 8042 7750 -292 -3.6% 38 0.5% 1.3% 39 21.1% $ 204 (S) - M'borough C. Goldfields 5374 5169 -205 -3.8% 16 0.3% 2.4% 39 14.9% $ 188 (S) Bal TOTAL C. 13416 12919 -497 -3.7% 54 0.4% 1.7% 39 18.6% $ 196 GOLDFIELD S (S)
Loddon (S) - 4100 3907 -193 -4.7% 13 0.3% 1.2% 37 16.2% $ 239 North Loddon (S) - 5717 5191 -526 -9.2% 23 0.4% 2.3% 41 18.1% $ 183 South TOTAL 9817 9098 -719 -7.3% 36 0.4% 1.8% 39 17.3% $ 211 LODDON (S)
Mount 7273 7097 -176 -2.4% 52 0.7% 1.9% 39 21.3% $ 230 Alexander (S) - C'maine Mount 9090 9648 558 6.1% 77 0.8% 2.1% 37 13.1% $ 221 Alexander (S) Bal TOTAL 16363 16745 382 2.3% 129 0.8% 2.0% 38 16.5% $ 226 MOUNT ALEXANDER (S) HACC Transport Strategy Loddon-Mallee Region
Estimated Estimated Population Percentage Indigenous Prop'n of Prop'n of Median Age Prop'n of Median resident resident change (1991 population Origin Pop'n of Pop'n (years) Pop'n 65 Personal number of number of to 1996) change (1991 Indigenous Speaking years & over Weekly persons 1991 persons 1996 to 1996) Origin Other Income Language at Home Macedon 7342 7719 377 5.1% 27 0.3% 2.5% 35 12.6% $ 266 Ranges (S) - Kyneton Macedon 8110 9191 1081 13.3% 20 0.2% 3.1% 32 6.2% $ 310 Ranges (S) - Romsey Macedon 15653 17207 1554 9.9% 50 0.3% 4.1% 34 7.7% $ 336 Ranges (S) Bal TOTAL 31105 34117 3012 9.7% 97 0.3% 3.5% 34 8.4% $ 310 MACEDON RANGES (S)
Campaspe (S) 9664 10224 560 5.8% 273 2.7% 2.2% 36 16.8% $ 267 - Echuca Campaspe (S) 12230 12389 159 1.3% 112 1.0% 3.6% 34 12.8% $ 263 - Kyabram Campaspe (S) 7971 8263 292 3.7% 51 0.6% 1.7% 35 12.7% $ 259 - Rochester Campaspe (S) 3872 3857 -15 -0.4% 13 0.4% 1.8% 37 14.2% $ 205 - South TOTAL 33737 34733 996 3.0% 449 1.3% 2.6% 36 14.1% $ 261 CAMPASPE (S)
Source: ABS Catalogue No. 3218.0 (Estimated Resident Population Data), ABS Catalogue No. 2015.2 (Selected Social and Housing Characteristics) HACC Transport Strategy Loddon-Mallee Region
Figure 1. Population Change 1991-1996 by LGA (%)
10 %
5%
0%
-5%
-10%
-15% Buloke (S) Loddon (S) Mildura (RC) Campaspe (S) Swan Hill (RC) Gannawarra (S) Mount Alexander (S) Greater Bendigo (C) Macedon Ranges (S) Central Goldfields (S) HACC Transport Strategy Loddon-Mallee Region
Figure 2. Population Change 1991-1996 by SLA (%)
25%
20%
15%
10%
5%
0%
-5%
-10%
-15%
-20% Gannawarra (S) TOTAL REGION Buloke (S) - North Buloke (S) - South Loddon (S) - North Mildura (RC) - Pt A Mildura (RC) - Pt B Loddon (S) - South C. Goldfields (S) Bal Gr. Bendigo (C) - Pt B Campaspe (S) - South Campaspe (S) - Echuca Mount Alexander (S) Bal Swan Hill (RC) - Central Gr. Bendigo (C) - S'saye Gr. Bendigo (C) - S'saye Macedon Ranges (S) Bal Gr. Bendigo (C) - Central Campaspe (S) - Kyabram Campaspe (S) - Rochester Swan Hill (RC) - Robinvale Gr. Bendigo (C) - Inner East Gr. Bendigo (C) - Inner West Gr. Bendigo (C) - Eaglehawk Gr. Bendigo (C) - Inner North C. Goldfields (S) - M'borough Mount Alexander (S) - C'maine Macedon Ranges (S) - Romsey Macedon Ranges (S) - Kyneton HACC Transport Strategy Loddon-Mallee Region
Figure 3. Population Aged Over 65 Years, 1996 by LGA (%)
20%
15%
10%
5%
0% (C) (S) Buloke (S) (S) (S) Loddon (S) Mildura (RC) Campaspe (S) Swan Hill (RC) Gannawarra (S) Mount Alexander Greater Bendigo TOTAL REGION Macedon Ranges Central Goldfields HACC Transport Strategy Loddon-Mallee Region
Figure 4. Population Aged Over 65 Years, 1996 by SLA (%) 25%
20%
15%
10%
5%
0% Gannawarra (S) Buloke (S) - North Swan Hill (RC) Bal Loddon (S) - North Buloke (S) - South Mildura (RC) - Pt B Loddon (S) - South Mildura (RC) - Pt A C. Goldfields (S) Bal Gr. Bendigo (C) - Pt B Campaspe (S) - South Campaspe (S) - Echuca Mount Alexander (S) Bal Swan Hill (RC) - Central Gr. Bendigo (C) - S'saye Macedon Ranges (S) Bal Gr. Bendigo (C) - Central Campaspe (S) - Kyabram Campaspe (S) - Rochester Swan Hill (RC) - Robinvale Gr. Bendigo (C) - Inner East Gr. Bendigo (C) - Inner West Gr. Bendigo (C) - Inner Gr. Bendigo (C) - Inner North Gr. Bendigo (C) - Inner Gr. Bendigo (C) - Eaglehawk C. Goldfields (S) - M'borough Mount Alexander (S) - C'maine Macedon Ranges (S) - Romsey Macedon Ranges (S) Macedon Ranges (S) - Kyneton HACC Transport Strategy Loddon-Mallee Region
APPENDIX B TRANSPORT ISSUES AND OPPORTUNITIES BY L.G.A. - Loddon Mallee Region
SOURCE: Results from the HACC/DOI Transport Strategy Questionnaire to core sample HACC funded service providers in each of the LGAS
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted Mildura: • Brokerage transport provided in radius • Large geographical area 20,000 sq km - • DHCS funding to have weighting for of 35 km of Mildura - outlying areas not effects HACC budgets. Isolation experienced in remote areas • Bendigo Health Care Group as well serviced. • No V line train in Mildura, inadequate of LGA • Community Care Options, • Huge transport needs of people who do public transport: poorly designed, no • Community vehicles for Mildura not qualify for limited client load, Aged disabled toilets Murrayville/Underbool applied for in • Sunassist, Mildura Care Packages, or brokerage services. • Underbool and Murrayville no vehicle last HACC funding round • Mallee Track Community • HACC very responsive and client access for social support programs. High • Sunassist Transport charter/mission Health Services, Ouyen: focused, but over worked and under kms driven, volunteers reluctant to statement is client & volunteer (MTCHS)‘Community Links’ resourced drive/use own vehicles - reflected in focused with quality assurance & ADASS Ouyen region, mainly long distance poor response to ADASS programs. principles. Could use as education trips, community perception of HACC • Murrayville to Mildura, 400km return tool for other LGA’s transport is for medical needs only, not trip (primarily for medical trips) - • Regular co-ordination meetings with social support. Limited transport options places strain on volunteers & HACC major service providers have proved on weekends - need transport education vehicles clock up the kms. Big issue to be vital in developing transport for community/carers/volunteers to getting clients to appointments in linkages & services. increase support/transport options for Melbourne, especially older people or • Aged and disability forum is weekends. younger children excellent • No accessible public transport, direct • Comprehensive training, recruitment trains, planes, buses. Timetabling does and support within volunteer transport not match up resulting in long workers program connecting times and therefore • inconvenient for elderly & disabled. Clear set of criteria for client eligibility, level of transport Long distances from major centres & assistance and review process. hence remoteness of areas such as Murrayville. STD call rates to Ouyen limits booking of vehicles. HACC Transport Strategy Loddon-Mallee Region
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted Mildura Cont: • Murrayville: Group transport very • Ouyen area organising public open difficult to organize/expensive: long education days through Senior distances for excursions to other Citizens/ Guild meetings. centres, There is not a bus available. • Ouyen HACC Advisory service meet regularly with local service providers - no computer link up, but the area has a good people network. • A MTHCS fleet vehicle is currently stationed one week per month in Murrayville. There is coordinated use of District nurse vehicle. • MTCHS community link coordinators continue to educate community about existing services, booking procedures, They also advocate with medical sector/public transport to coordinate timetables and inform City Council of public survey. A toll free 1800 number has been introduced for the Murrayville community. Swan Hill: • Aboriginal Co Op bus conflict between • Problems with access to outlying areas: • Current train service from Swan Hill, different users - Education groups & Ultima, Manangatang. to Bendigo & Melbourne is a • Swan Hill Rural City Council HACC Social Support needs of Elders. • No volunteers in outlying areas strength. • Nyah West Bush Nursing • Lack of respite support for elders in • Taxis very good : MPTP set up with Hospital • Concern about privacy in some small Aboriginal Co Op to access Social towns disability agencies. • Swan Hill Hospital Aboriginal Support programs` • CSO well organised and lateral Health Liaison • Poor relations between Swan Hill & • lack of Coordination/networking thinker. • Robinvale Swan Hill Aboriginal Co Op. generally of HACC vehicles to • • Robinvale has no disability services Potential to link/coordinate Hospital • Murray Valley Aboriginal agencies transport system with City services • Co Op (Robinvale) V Line Commuter bus Tooleybuc to • Swan Hill, Long traveling time and Manangatang is well resourced. only returns late in evening. Resources are used with flexiblity. • Shire and Aboriginal Co Op to network transport, increase HACC Transport Strategy Loddon-Mallee Region
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted Swan Hill Cont: relationships with Rural City. Need for relief worker, respite/transport support and bus to target needs of elders should be researched. • Robinvale potential of a Taxi Model with voucher system. • Possible impact of Rural City proposal tendering out Social Support Program and charging fees. • Funding to coordinate training of volunteers campaign.
• Huge geographical area to service • Sea Lake geographically isolated -no • Review car usage & priorities of Buloke: 8000sq km Shire area. transport based in town. use. • Competing use of HACC car with CSO. • High mileage costs of 5 Shire • Encourage the continued • Shire Health & Community In Buloke Shire car only used for local Coordinators. coordination of car pooling to programs trips. • No public transport between Sea Lake specialist appointments. • Birchip Bush Nursing Hospital • Medical/specialist transport support & Swan Hill, & in Sea Lake other than • Buses are hired out to community • Sea Lake Hospital only provided in township of Sea Lake. poorly timetabled V Line bus (in both groups after hours. Extensive use of volunteer cars & Birchip & Sea Lake) • Base a car in Birchip. drivers - No social support program. • No CSO in the Shire. • • Funding to allocate coordination of Bus used to transport individuals on • Five districts do not work well together. volunteer drivers program in Birchip. long distance trips to specialist. • • Only two buses provided for whole Inadequate resources allocated to Shire. Coordinate Volunteer Transport Support • (one hour per fortnight in Birchip). Tighter guidelines for access to ambulance services. • Often HACC vehicles not available for specialist trips to Bendigo - clients forced to use multiple bus and taxi trips in one day - very expensive and tiring.
• MPTP inconsistencies in eligibility. • Major problem getting clients to • Jointly funded community bus HACC Transport Strategy Loddon-Mallee Region
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted Gannawarra: Emotionally, financially, socially, Melbourne. Drivers unwilling to drive in coordinated by the Shire, owned by • geographically disadvantaged consumers Melbourne or use own vehicles. a number of services including Cohuna District Hospital miss out. • HACC and based in Cohuna. ADASS Traveling to Melbourne by train is only • No fees are charged. There are concerns suitable if client is fairly mobile & not • ADASS in Cohuna have a driver & • Northern District Community about insurance limitations and liability. unwell. support person on bus to assist Health Services, Kerang • Community transport not reimbursed • General concern that transporting client. This is seen as good model. • Kerang & District Hospital with VPTAS. It is used close to border, disabled clients to bus stops will cease • Kerang HACC/Hospital bus willing 100Km from Bendigo. and community transport will be seen to cooperate for out of hours use of • Public bus trip too long and inflexible as being responsible. bus by other services. timetables do not match appointment • Concerns that charging fees for • Important to maintain trained staff times. Consumers reluctant to use Public community transport would reduce the for home visits in isolated areas to Transport when not used previously. number of users. provide support & monitoring of clients. • More access for clients to attend appointments at local centres ie Bendigo & Melbourne.
Greater Bendigo: • Difficult to find volunteer drivers. • Clients outside of urban Bendigo only • Central register of HACC vehicles attend activities if they provide their & coordination of use by all • Association for the Blind • Not having the funds to pay for drivers. own transport. Therefore they often agencies. • • Shire ADASS program Unclear about policies and criteria for remain isolated. • use of City Council HACC vehicles and Develop protocols & policies of • Anne Caudle Rehabilitation • who is eligible for services. Inconsistencies in eligibility of clients central transport co-ordination. for taxi cards. • • Good taxi system, but often expensive. Develop Impaired Drivers • Bus pick up points not targeting known Community & Health Program to • Social support service has declined. elderly settlement areas. provide alternatives for elderly Transport a major problem in Bendigo • people at risk to other drivers. without social support. Current taxi booking system of calling Melbourne is an issue. Clients have communication difficulties in dealing with an external contact. • Potential for brokerage of services. • City HACC & BHCG see themselves as separate - issue about future co- operation. HACC Transport Strategy Loddon-Mallee Region
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted • Central Goldfields: • Hospital HACC car used for other • Identified lack of transport services • There is an efficient pick up service reasons by non HACC staff.... between Dunolly & Maryborough (only around town. More volunteers and/or • Maryborough District Health a VLine bus which has one day trip into transport services are required to Services town). bring residents into town in • Association for the Blind - • Identified lack of services generally in afternoons and return late in day. Kalparrin Day Centre, outlying areas such as Talbot, Majorca. • Flexible social support. There is Maryborough • Cross Regional issues. coordination with other HACC services with aim to use all available vehicles.
• Cannot get volunteers • Cannot commute north (to Bendigo). • Transport resources within Shire Mt Alexander: • Maldon have more transport problems • Train/bus options: Maryborough, could be co-ordinated eg meals on (Maldon hospital has 4 buses). Kyneton, Castlemaine, Bendigo. Bus wheels, after hours outings/school Mt Alexander Shire Council use. • from Maryborough to Bendigo is not a Lack of consultation & co-ordination • Mt Alexander Hospital, Transport between local HACC services with daily service. More HACC dollars than any other Coordinator duplication of community bus services • Minimal fees for community transport. area - but not in the hospitals. Mt Mt Alexander Hospital ADASS in Castlemaine. It does not pay its way. Alexander Hospital is making a play for all community transport. Maldon Hospital ADASS • • Perceived competition between Outlying areas are poorly serviced. • commercial buses & hospital HACC. Maintain central point for all transport coordination within • Taxis only recommended for low hospital. Maximise human/transport support needs clients - not viable at resources through brokerage system. present for higher needs clients. • Improve services to regionally isolated areas. Needs survey of ADASS clients at Hospital could be undertaken. • Community bus coordination required to meet needs of isolated Harcourt clients. Macedon Ranges: • Competition for car use with Internal • Community buses & taxis are not • Need central co-ordination of HACC Health staff. affordable. transport services in the Shire. • Cobaw Community Health Centre - ADASS • Red Cross limited to high medical • An integrated health body to HACC Transport Strategy Loddon-Mallee Region
L.G.A. ISSUES AREA BASED ISSUES OPPORTUNITIES/STRATEGIES Organisations Consulted needs clients. There are gaps in service coordinate and share transport provision for clients needing to travel to resources between Cobaw, Kyneton Melbourne for medical/specialists & Macedon Health could be services. developed. • Patients Victorian Transport Scheme • Health Department to review current criteria for services is inadequate processes in funding guidelines and Processes are difficult for applicants to criteria, ie: 3 year contract or re- endure. current funding. APPENDIX C:
BIBLIOGRAPHY
Accessible Transport Consultative Council. (1991) November. Mobility Improvement Strategy. A report to the Minister for Transport by the Accessible Transport Consultative Council. Minister for Transport, Victoria.
Aged Care Planning & Advisory Committee. (1996) Aged Care Advisory Meetings in Local Government Areas in the Loddon Mallee region . Bendigo.
Ashby. J. et al. (1997) June. Getting There. The impact of Community Transport on the Home and Community Care Program and Service Users. Future Directions. Villamanta Publishing Service Inc. Geelong, Victoria.
Commonwealth of Australia, Home and Community Care.AGPS. 1993. Getting it right. Guidelines for the Home and Community Care Program National Service Standards . Australian Publishing Service, Canberra
Commonwealth of Australia, AGPS. Home and Community Care. 1992. The Victorian Home and Community Care Program Manual . Mockbridge, Bulmer Pty Ltd, NSW
Davey. L. & Deacon. D. (1996) March. Review of Aged Care Services . Mildura Rural City Council & Mallee Aged Care Assessment Team. Mildura
Department of Health & Community Services. (1996) Loddon Mallee Regional Aged Care Plan 1997-2001 . (Draft) Bendigo.
Department of Human Services. (1996) October. Victorian Home & Community Care (HACC) Program. Interim Fees Policy . Victorian Government Department of Human Services. Melbourne.
Disability Task Force. (1991) Discussion Paper on the additional costs faced by people with disabilities. Victorian Government Department of Social Security, Melbourne.
Ford. F. (1994 ). Reaching Out Through Recreation . Report of the Loddon Campaspe Recreation & Disability Project. Nov. Sport & Recreation, Bendigo.
Hibbert. P. (1994). Transport Brokerage Scheme For Ballarat . Uniting Church Outreach Centre, Ballarat.
Loder & Bayly Consulting Group. (1994) February. Transport Poverty. What is it? How to measure it ?, Final draft project report. Hawthorn, Melbourne.
Minister for Aged Care. Family & Community Development Committee. (1997). Inquiry into Planning for Positive Ageing Briefing Paper. Melbourne.
Mulqueen. S. (1997) May. Transport Options for Over 50’s in the City of Greater Bendigo . Loddon Campaspe Older Adults Recreation Network. Bendigo.
Naylor. R. & Co. Pty Ltd. (1997) April. Shire of Campaspe: Primary Health Care Strategic Service Plan Consultancy . Draft Document. Melbourne.
Bibliography Cont: Neverauskas. D. & Mollison. W. (1997) August. Rural Community Transport. A Model for HACC Best Practice in the Upper Hume Region . Globa Human Services Consultancy, Wodonga. Victoria. Nutbeam. Prof. D. et al. (1993) Goals and Targets For Australia’s Health In The Year 2000 and Beyond . Commonwealth Department of Health, Housing & Community Services. Sydney. (Chapter 2.4 ‘Health Environments)
Richardson. J. (1996) December. Northern Metropolitan Community Transport Register: Transport Resources and Issues. Northern Care and Share Inc. Melbourne.
Rogers. R. (1996) Parliamentary Inquiry Into Positive Ageing . City of Greater Bendigo Aged & Disability Business Unit. Bendigo.
Speilman. R. Community Projects Consultants. (1992) November. Footscray City Council Community Transport Review. Footscray City Council. Melbourne.
Street Ryan & Associates Pty Ltd. (1988) Accessible Transport For People With Disabilities. An Action Plan For Victoria . Melbourne.
Sunassist Volunteer Helpers Inc. (1997) Sunassist Service Information. Mildura. Victoria
The Resolutions Group Pty Ltd. (1994) Community Transport Report - City of Doncaster and Templestowe, August, 1994. City of Doncaster and Templestowe. Melbourne.
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Victorian Government Department of Human Services Promotions Unit. (1996) June. Victorian Patient Transport Assistance Scheme . Human Services Promotions Unit, Melbourne
Watters. S. (1994) Community Transport in the West of Melbourne. A report of two projects 1993 - Community Bus Brokerage Feasibility Study & Recreation and Transport Needs Study. Western Region Commission, Melbourne. APPENDIX D
LIST OF PEOPLE CONTACTED DURING THE PROJECT PERSONS AND ORGANISATIONS CONTACTED IN THE COURSE OF THE LITERATURE SEARCH
Robyn Adams, Wodonga Community Transport, Wodonga
Aged Care Planning & Advisory Committee, Bendigo
Jenny Ashby, Southern Region
Judy Baine, Camperdown Taxis
Neil Ballard, Grampians DHS, Ballarat
Allison Beckitt, Eastern Region DHS
Jill Burham, Macedon Ranges Shire
Iris Chappell, Loddon Shire
Community Care Options Program Care Packages, Mildura Northern Team
Debbie Coile, Wimmera
Jill Considine, Rural City of Swan Hill
Annie Constable, Central Goldfields Shire
Consumer Group, Central Goldfields Shire Forum
Shirley Croft, Swan Hill Taxi Operator
Pam Crosier, Project Development Officer, HACC
Mark Crouch, Mt Alexander Shire
Henriette De Jong, SunAssist, Mildura
David Denmark, Transport Planning & Management Consultancy, NSW
Christine Edwards & Clarie Mathieson, Rural City of Marong
Kim Ellerton, Australian Red Cross, Bendigo
Geoff Fawkner, Wattle House, Maryborough
Judy Flynn, Impaired Drivers Committee, Anne Caudle Centre
HACC Coordinators, Sunraysia
HACC Transport Strategy Study Reference Group Members
Peter Hibbert, Do Care, Uniting Church Program, Ballarat
Brian Hine, Loddon Mallee DHS Disability Accommodation Manager Contact List Cont:
Ken Hubbard, Kalianna School, Bendigo
Joolee Hughes, Interchange, Bendigo
Judy Jackson, Community Preparation Program, Bendigo
George Kirby, Robinvale & District Aboriginal Co Op
Robyn Langhorne, Mallee Track Health & Community Services, Ouyen
Loddon Mallee Disability Council & Advocacy, Disability Action Network Providers Forums:
Bendigo, Swan Hill, Mildura
Lindsay Lynch & Robyn Langworthy, Mallee Track Health & Community Services
Les Manson, Rochester & Elmore District Health, Echuca
Angela Monehan, Echuca Regional Health, Echuca
Geoff Mundy, Manager, Service Planning & Monitoring, HACC
Phil McCann, Aged Care, Loddon Mallee DHS
Jim McLean, St Arnaud Country Taxis
Anne McLennan, Macedon Ranges Shire
Marianne McKay, Loddon Campaspe Older Adults Recreation Network
Craig Nieman, Wedderburn Shire
Joy O’Donnell, Campapse Shire
Con O’Shea, Department of Human Services, Disability Residential
John Paton, Murray Human Services
Andrew Pipkoran, Ambulance Centre, Bendigo
Anne Richards, Wimmera Volunteers Incorporated, Horsham
John Richardson, Northern Care & Share
Rosalie Rogers, Adult Day Activities Support Services, City of Bendigo
St Lukes Family Care, Community Team, Psychiatric Disability Support, Bendigo
Graham Swanton, Department of School Education
Alex Taskis, Grampians Shire
Alan Taylor, Cobaw Community Health Contact List Cont:
Con Vassilakos, Department of Veterans Affairs, Bendigo
Wagga Wagga Transport Support Program
Fred Wachtel, Loddon Mallee Disability Program, DHS, Bendigo
Garry White, LANDS Community Transport Group, Queensland HACC TRANSPORT STRATEGY TELEPHONE QUESTIONNAIRE RESPONDENTS
Mildura:
Community Care Options - Helen Brown Mallee Community Links - Marilyn Smith SunAssist - Henriette De Jong Mallee Track Health & Community Services, Ouyen - Lyndell Pole
Swan Hill:
Nyah District Bush Nursing Hospital - Maria Mace Swan Hill Rural City - Shirley Bourke
Gannawarra:
Cohuna District Hospital - Eda Toma Northern District Community Health Services, Kerang - Tania Mitchell
Buloke:
Buloke Shire, Community Health Programs - Bill Cain Birchip Bush Nursing Hospital - Pam Wearner Buloke Shire - Estell Trimbath Sea Lake Hospital - Doug Wain
Campapse:
Rochester Hospital - Les Manson Echuca Regional Health - Judy Debney Kyabram Community Hospital - Robyn Bush Campapse Shire Council - Joy O’Donnell
Greater Bendigo:
Association for the Blind - Ruth O’Connell Greater Bendigo Shrie - Rosalie Rogers Anne Caudle Rehabilitation Centre - Julie Flynn
Central Goldfields:
Maryborough District Health - Bernie Waixel Association for the Blind, Kalparrin Day Centre - Pat Adam
Loddon Shire:
Boort Hospital - Robyn Moracey Inglewood Health & Hospital - Daryl Fish Inglewood Health & Hospital - Bev Vanstone
Macedon Ranges:
Cawbaw Community Health - Daniel McKenna