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TRANSIT
TCRP
SYNTHESIS 60
COOPERATIVE
RESEARCH
PROGRAM
Sponsored by
the Federal
Transit Administration
Practices in No-Show
and Late Cancellation Policies
for ADA Paratransit
A Synthesis of Transit Practice
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TCRP OVERSIGHT AND PROJECT TRANSPORTATION RESEARCH BOARD EXECUTIVE COMMITTEE 2005 (Membership as of July 2005)
SELECTION COMMITTEE
(as of February 2005) OFFICERS
CHAIR Chair: John R. Njord, Executive Director, Utah DOT
SHARON GREENE Vice Chair: Michael D. Meyer, Professor, School of Civil and Environmental Engineering,
Sharon Greene & Associates Georgia Institute of Technology
Executive Director: Robert E. Skinner, Jr., Transportation Research Board
MEMBERS
LINDA J. BOHLINGER MEMBERS
HNTB Corp.
ROBERT I. BROWNSTEIN MICHAEL W. BEHRENS, Executive Director, Texas DOT
Parsons Brinckerhoff Quade & Douglas, Inc. ALLEN D. BIEHLER, Secretary, Pennsylvania DOT
PETER CANNITO LARRY L. BROWN, SR., Executive Director, Mississippi DOT
Metropolitan Transit Authority--Metro North DEBORAH H. BUTLER, Vice Pres., Customer Service, Norfolk Southern Corporation and Subsidiaries,
Railroad Atlanta, GA
GREGORY COOK ANNE P. CANBY, President, Surface Transportation Policy Project, Washington, DC
Ann Arbor Transportation Authority JOHN L. CRAIG, Director, Nebraska Department of Roads
JENNIFER L. DORN DOUGLAS G. DUNCAN, President and CEO, FedEx Freight, Memphis, TN
FTA NICHOLAS J. GARBER, Professor of Civil Engineering, University of Virginia, Charlottesville
NATHANIEL P. FORD ANGELA GITTENS, Consultant, Miami, FL
Metropolitan Atlanta RTA
GENEVIEVE GIULIANO, Director, Metrans Transportation Center, and Professor, School of Policy,
RONALD L. FREELAND
Parsons Transportation Group Planning, and Development, USC, Los Angeles
FRED M. GILLIAM BERNARD S. GROSECLOSE, JR., President and CEO, South Carolina State Ports Authority
Capital Metropolitan Transportation Authority SUSAN HANSON, Landry University Professor of Geography, Graduate School of Geography, Clark University
KIM R. GREEN JAMES R. HERTWIG, President, CSX Intermodal, Jacksonville, FL
GFI GENFARE GLORIA J. JEFF, Director, Michigan DOT
JILL A. HOUGH ADIB K. KANAFANI, Cahill Professor of Civil Engineering, University of California, Berkeley
North Dakota State University HERBERT S. LEVINSON, Principal, Herbert S. Levinson Transportation Consultant, New Haven, CT
JOHN INGLISH SUE MCNEIL, Director and Professor, Urban Transportation Center, University of Illinois, Chicago
Utah Transit Authority MICHAEL MORRIS, Director of Transportation, North Central Texas Council of Governments
ROBERT H. IRWIN CAROL A. MURRAY, Commissioner, New Hampshire DOT
British Columbia Transit MICHAEL S. TOWNES, President and CEO, Hampton Roads Transit, Hampton, VA
JEANNE W. KRIEG C. MICHAEL WALTON, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin
Eastern Contra Costa Transit Authority LINDA S. WATSON, Executive Director, LYNX--Central Florida Regional Transportation Authority
CELIA G. KUPERSMITH
Golden Gate Bridge, Highway EX OFFICIO MEMBERS
and Transportation District
PAUL J. LARROUSSE MARION C. BLAKEY, Federal Aviation Administrator, U.S.DOT
National Transit Institute JOSEPH H. BOARDMAN, Federal Railroad Administrator, U.S.DOT
DAVID A. LEE REBECCA M. BREWSTER, President and COO, American Transportation Research Institute, Smyrna, GA
Connecticut Transit GEORGE BUGLIARELLO, Chancellor, Polytechnic University, and Foreign Secretary, National Academy
CLARENCE W. MARSELLA of Engineering
Denver Regional Transportation District THOMAS H. COLLINS (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard
FAYE L. M. MOORE
JENNIFER L. DORN, Federal Transit Administrator, U.S.DOT
Southeastern Pennsylvania Transportation
Authority JAMES J. EBERHARDT, Chief Scientist, Office of FreedomCAR and Vehicle Technologies,
MICHAEL H. MULHERN U.S. Department of Energy
Massachusetts Bay Transportation Authority EDWARD R. HAMBERGER, President and CEO, Association of American Railroads
STEPHANIE L. PINSON JOHN C. HORSLEY, Exec. Dir., American Association of State Highway and Transportation Officials
Gilbert Tweed Associates, Inc. EDWARD JOHNSON, Director, Applied Science Directorate, National Aeronautics and Space Administration
ROBERT H. PRINCE, JR. ASHOK G. KAVEESHWAR, Administrator, Research and Innovative Technology Administration, U.S.DOT
DMJM+Harris RICK KOWALEWSKI, Deputy Director, Bureau of Transportation Statistics, U.S.DOT
JEFFREY M. ROSENBERG BRIGHAM McCOWN, Deputy Administrator, Pipeline and Hazardous Materials Safety Administration, U.S.DOT
Amalgamated Transit Union WILLIAM W. MILLAR, President, American Public Transportation Association
BEVERLY SCOTT MARY E. PETERS, Federal Highway Administrator, U.S.DOT
Sacramento Regional Transit District SUZANNE RUDZINSKI, Director, Transportation and Regional Programs, U.S. EPA
PAUL P. SKOUTELAS JEFFREY W. RUNGE, National Highway Traffic Safety Administrator, U.S.DOT
Port Authority of Allegheny County ANNETTE M. SANDBERG, Federal Motor Carrier Safety Administrator, U.S.DOT
KATHRYN D. WATERS
WILLIAM G. SCHUBERT, Maritime Administrator, U.S.DOT
Dallas Area Rapid Transit
JEFFREY N. SHANE, Under Secretary for Policy, U.S.DOT
EX OFFICIO MEMBERS CARL A. STROCK (Maj. Gen., U.S. Army), Chief of Engineers and Commanding General, U.S. Army Corps
WILLIAM W. MILLAR of Engineers
APTA
ROBERT E. SKINNER, JR. TRANSIT COOPERATIVE RESEARCH PROGRAM
TRB
JOHN C. HORSLEY Transportation Research Board Executive Committee Subcommittee for TCRP
AASHTO JOHN R. NJORD, Utah DOT (Chair)
MARY E. PETERS JENNIFER L. DORN, Federal Transit Administration, U.S.DOT
FHWA MICHAEL D. MEYER, Georgia Institute of Technology
WILLIAM W. MILLAR, American Public Transportation Association
TDC EXECUTIVE DIRECTOR
ROBERT E. SKINNER, JR., Transportation Research Board
LOUIS SANDERS
APTA MICHAEL S. TOWNES, Hampton Roads Transit, Hampton, VA
C. MICHAEL WALTON, University of Texas, Austin
SECRETARY LINDA S. WATSON, LYNX--Central Florida Regional Transportation Authority
ROBERT J. REILLY
TRB
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TRANSIT COOPERATIVE RESEARCH PROGRAM
TCRP SYNTHESIS 60
Practices in No-Show
and Late Cancellation Policies
for ADA Paratransit
A Synthesis of Transit Practice
CONSULTANT
ROSEMARY G. MATHIAS
TranSystems Corporation
Norwich, Vermont
TOPIC PANEL
ALEX CISNEROS, New Jersey Transit
MARILYN GOLDEN, Disability Rights Education and Defense Fund
JAY A. GOODWILL, University of South Florida
JAMES LAUGHLIN, Metropolitan Transit Authority of Harris County (TX)
JAMES F. McLAUGHLIN, Urbitran Associates
TOBY OLSON, Washington State Governor's Committee on Disability Issues and Employment
ROBERT RIZZO, Massachusetts Bay Transportation Authority
PETER SHAW, Transportation Research Board
ANTONIO STEVENS, Washington Metropolitan Area Transit Authority
NANCY ODY, Federal Transit Administration (Liaison)
S UBJECT A REAS
Public Transit
Research Sponsored by the Federal Transit Administration in Cooperation with
the Transit Development Corporation
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2005
www.TRB.org
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TRANSIT COOPERATIVE RESEARCH PROGRAM TCRP SYNTHESIS 60
The nation's growth and the need to meet mobility, environ- Project J-7, Topic SB-11
mental, and energy objectives place demands on public transit ISSN 1073-4880
systems. Current systems, some of which are old and in need of ISBN 0-309-09751-7
upgrading, must expand service area, increase service frequency, Library of Congress Control Number 2005926686
and improve efficiency to serve these demands. Research is nec-
essary to solve operating problems, to adapt appropriate new © 2005 Transportation Research Board
technologies from other industries, and to introduce innovations
into the transit industry. The Transit Cooperative Research Pro- Price $16.00
gram (TCRP) serves as one of the principal means by which the
transit industry can develop innovative near-term solutions to NOTICE
meet demands placed on it.
The need for TCRP was originally identified in TRB Special The project that is the subject of this report was a part of the Transit
Report 213--Research for Public Transit: New Directions, pub- Cooperative Research Program conducted by the Transportation Re-
lished in 1987 and based on a study sponsored by the Federal search Board with the approval of the Governing Board of the Na-
Transit Administration (FTA). A report by the American Public tional Research Council. Such approval reflects the Governing
Transportation Association (APTA), Transportation 2000, also Board's judgment that the project concerned is appropriate with re-
recognized the need for local, problem-solving research. TCRP, spect to both the purposes and resources of the National Research
modeled after the longstanding and successful National Coopera- Council.
tive Highway Research Program, undertakes research and other The members of the technical advisory panel selected to monitor
technical activities in response to the needs of transit service provid- this project and to review this report were chosen for recognized
ers. The scope of TCRP includes a variety of transit research scholarly competence and with due consideration for the balance of
fields including planning, service configuration, equipment, fa- disciplines appropriate to the project. The opinions and conclusions
cilities, operations, human resources, maintenance, policy, and ad- expressed or implied are those of the research agency that performed
ministrative practices. the research, and while they have been accepted as appropriate by
TCRP was established under FTA sponsorship in July 1992. the technical panel, they are not necessarily those of the Transporta-
Proposed by the U.S. Department of Transportation, TCRP was tion Research Board, the Transit Development Corporation, the Na-
authorized as part of the Intermodal Surface Transportation Effi- tional Research Council, or the Federal Transit Administration of the
ciency Act of 1991 (ISTEA). On May 13, 1992, a memorandum U.S. Department of Transportation.
agreement outlining TCRP operating procedures was executed by Each report is reviewed and accepted for publication by the tech-
the three cooperating organizations: FTA, the National Academy of nical panel according to procedures established and monitored by
Sciences, acting through the Transportation Research Board the Transportation Research Board Executive Committee and the
(TRB); and the Transit Development Corporation, Inc. (TDC), a Governing Board of the National Research Council.
nonprofit educational and research organization established by
APTA. TDC is responsible for forming the independent govern-
ing board, designated as the TCRP Oversight and Project Selec-
tion (TOPS) Committee. Special Notice
Research problem statements for TCRP are solicited periodi-
cally but may be submitted to TRB by anyone at any time. It is The Transportation Research Board of The National Academies,
the responsibility of the TOPS Committee to formulate the re- the Transit Development Corporation, the National Research Coun-
search program by identifying the highest priority projects. As cil, and the Federal Transit Administration (sponsor of the Transit
part of the evaluation, the TOPS Committee defines funding Cooperative Research Program) do not endorse products or manu-
levels and expected products. facturers. Trade or manufacturers' names appear herein solely be-
Once selected, each project is assigned to an expert panel, ap- cause they are considered essential to the clarity and complete-
pointed by TRB. The panels prepare project statements (requests ness of the project reporting.
for proposals), select contractors, and provide technical guidance
and counsel throughout the life of the project. The process for
developing research problem statements and selecting research
agencies has been used by TRB in managing cooperative re- Published reports of the
search programs since 1962. As in other TRB activities, TCRP TRANSIT COOPERATIVE RESEARCH PROGRAM
project panels serve voluntarily without compensation.
Because research cannot have the desired impact if products are available from:
fail to reach the intended audience, special emphasis is placed on
disseminating TCRP results to the intended end users of the re- Transportation Research Board
search: transit agencies, service providers, and suppliers. TRB Business Office
provides a series of research reports, syntheses of transit practice, 500 Fifth Street, NW
and other supporting material developed by TCRP research. Washington, DC 20001
APTA will arrange for workshops, training aids, field visits, and
other activities to ensure that results are implemented by urban
and rural transit industry practitioners. and can be ordered through the Internet at
The TCRP provides a forum where transit agencies can coop-
eratively address common operational problems. The TCRP results http://www.national-academies.org/trb/bookstore
support and complement other ongoing transit research and train-
ing programs. Printed in the United States of America
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The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished schol-
ars engaged in scientific and engineering research, dedicated to the furtherance of science and technology
and to their use for the general welfare. On the authority of the charter granted to it by the Congress in
1863, the Academy has a mandate that requires it to advise the federal government on scientific and techni-
cal matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Acad-
emy of Sciences,
The National as a parallel
Academy organization
of Sciences of outstanding
is a private, nonprofit,engineers. It is autonomous
self-perpetuating society of in its administration
distinguished schol-
andengaged
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in scientific members,
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granted engineering
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of the National AcademyAcademy of Engineering.
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services of eminent
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advising the federal government. The National Academy of Engineering also sponsors engineering programsown initiative,
to identify
aimed issues national
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encourages and education. Dr. Harvey
and research, V. Fineberg
and recognizes issuperior
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engineers. Dr. William A. Wulf is president of the National Academy of Engineering.
The National
The Institute Research
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was established by the
in 1970 byNational Academy
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of Sciences toto associate
secure the
the broad community of science and technology with the Academy's purposes of furthering
services of eminent members of appropriate professions in the examination of policy matters pertaining knowledge and
advising
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the health of the government. Functioning
public. The Institute acts in accordance
under with general
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given determined
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its congressional the principal
to be an operating
adviser to agency of both
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on its own ofinitiative,
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to identify issues Academy
of medical of care,
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research, inand
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education. services to the government,
Dr. Harvey V. Fineberg the public, and
is president the
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scientific and engineering
Institute of Medicine. communities. The Council is administered jointly by both the Academies and
the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. William A. Wulf are chair and vice chair,
The National
respectively, Research
of Council
the National was organized
Research Council. by the National Academy of Sciences in 1916 to associate
the broad community of science and technology with the Academy's purposes of furthering knowledge and
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advising Research Board
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results broadly and encourages their implementation. The Board's varied activities annually engage more
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than 5,000 engineers, Research
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private sectors and academia, all of whom contribute their expertise in the public interest. The program is is to promote
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excellence; provides expert advice on transportation policy and programs; and disseminates research
results broadly and encourages their implementation. The Board's varied activities annually engage more
www.national-academies.org
than 5,000 engineers, scientists, and other transportation researchers and practitioners from the public and
private sectors and academia, all of whom contribute their expertise in the public interest. The program is
supported by state transportation departments, federal agencies including the component administrations of
the U.S. Department of Transportation, and other organizations and individuals interested in the
development of transportation. www.TRB.org
www.national-academies.org
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TCRP COMMITTEE FOR PROJECT J-7 COOPERATIVE RESEARCH PROGRAM STAFF
ROBERT J. REILLY, Director, Cooperative Research Programs
CHAIR CHRISTOPHER W. JENKS, Manager, TCRP
FRANK T. MARTIN EILEEN P. DELANEY, Director of Publications
PBS&J, Tallahassee, FL
TCRP SYNTHESIS STAFF
MEMBERS STEPHEN R. GODWIN, Director for Studies
DEBRA W. ALEXANDER and Information Services
Capital Area Transportation Authority, Lansing, MI JON WILLIAMS, Manager, Synthesis Studies
DWIGHT FERRELL DONNA L. VLASAK, Senior Program Officer
The Ferrell Group, Richardson, TX DON TIPPMAN, Editor
MARK W. FURHMANN CHERYL KEITH, Senior Secretary
Metro Transit, Minneapolis, MN
ROBERT H. IRWIN
British Columbia Transit, Victoria, BC, Canada
PAUL J. LARROUSSE
National Transit Institute, New Brunswick, NJ
WADE LAWSON
South Jersey Transportation Authority, Atlantic City, NJ
DAVID A. LEE
Connecticut Transit, Hartford, CT
DAVID PHELPS
Consultant, Moneta, VA
HAYWARD M. SEYMORE, III
Laidlaw Transit services, Inc., University Place, WA
PAM WARD
Ottumwa Transit Authority, Ottumwa, IA
JOEL R. WASHINGTON
Washington Metropolitan Area Transit Authority, Washington, DC
FTA LIAISON
KAREN FACEN
Federal Highway Administration
TRB LIAISON
PETER SHAW
Transportation Research Board
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FOREWORD Transit administrators, engineers, and researchers often face problems for which in-
By Staff formation already exists, either in documented form or as undocumented experience and
Transportation practice. This information may be fragmented, scattered, and unevaluated. As a conse-
Research Board quence, full knowledge of what has been learned about a problem may not be brought to
bear on its solution. Costly research findings may go unused, valuable experience may be
overlooked, and due consideration may not be given to recommended practices for solv-
ing or alleviating the problem.
There is information on nearly every subject of concern to the transit industry. Much
of it derives from research or from the work of practitioners faced with problems in their
day-to-day work. To provide a systematic means for assembling and evaluating such use-
ful information and to make it available to the entire transit community, the Transit Co-
operative Research Program Oversight and Project Selection (TOPS) Committee author-
ized the Transportation Research Board to undertake a continuing study. This study,
TCRP Project J-7, "Synthesis of Information Related to Transit Problems," searches out
and synthesizes useful knowledge from all available sources and prepares concise,
documented reports on specific topics. Reports from this endeavor constitute a TCRP re-
port series, Synthesis of Transit Practice.
This synthesis series reports on current knowledge and practice, in a compact format,
without the detailed directions usually found in handbooks or design manuals. Each re-
port in the series provides a compendium of the best knowledge available on those meas-
ures found to be the most successful in resolving specific problems.
PREFACE This synthesis documents current and innovative practices of U.S. transit agencies in the
development and implementation of passenger no-show and late cancellation policies for
paratransit programs operated under the regulatory requirements of the Americans with
Disabilities Act of 1990 (ADA). It describes how some policies are administered, the com-
munity response, and their effectiveness in small, medium, and large transit agencies sur-
veyed. It examines policies both as a way to improve system productivity, efficiency, and
capacity, and as a means to better serve riders with disabilities who may experience diffi-
culties with the advance reservation aspect of most ADA complementary paratransit oper-
ations. This topic is of interest to transit agencies that are responsible for providing ADA
complementary paratransit that is efficient, cost-effective, and responsive to customer
needs. It is also of interest to the disability community and other stakeholders who are con-
cerned about having access to transportation services that are efficient, cost-effective, and
appropriate for customer needs.
A detailed on-line survey was conducted to gather information from U.S. transit agen-
cies that are responsible for providing ADA paratransit services. Based on survey results,
topical case studies were developed to highlight specific policies and practices. These were
combined with a comprehensive overview of ADA regulatory requirements, supplemented
by a review of published FTA findings in some recent compliance reviews, to offer useful
information.
A panel of experts in the subject area guided the work of organizing and evaluating
the collected data and reviewed the final synthesis report. A consultant was engaged to
collect and synthesize the information and to write the report. Both the consultant and
members of the oversight panel are acknowledged on the title page. This synthesis is an
immediately useful document that records the practices that were acceptable within the
limitations of the knowledge available at the time of its preparation. As progress in re-
search and practice continues, new knowledge will be added to that now at hand.
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CONTENTS
1 SUMMARY
3 CHAPTER ONE INTRODUCTION
Background and Objectives, 3
Scope and Methods, 3
Report Organization, 3
4 CHAPTER TWO CURRENT STATUS OF FEDERAL REGULATIONS
Federal Regulations, 4
Recent Federal Transit Administration Guidance and Interpretations, 5
Other Resources, 8
Summary, 9
10 CHAPTER THREE SURVEY OF TRANSIT AGENCIES
Characteristics of Survey Respondents, 10
Overview of Survey Results, 10
Summary, 23
24 CHAPTER FOUR REVIEW OF NO-SHOW AND LATE CANCELLATION POLICIES
No-Show and Late Cancellation Policy Overview, 24
Highlight 1: Passenger Incentives, 24
Highlight 2: Alternative Approaches, 25
Highlight 3: Technology as a Tool, 26
Highlight 4: Documentation and Record Keeping, 28
Highlight 5: Beyond the Rider's Control, 28
Highlight 6: Passenger Information, 30
Summary, 31
32 CHAPTER FIVE FEATURES TO CONSIDER WHEN DEVELOPING NO-SHOW
AND LATE CANCELLATION POLICIES
Policy Development, 32
Policy Content, 33
Policy Implementation, 33
Summary, 34
35 CHAPTER SIX CONCLUSIONS
39 REFERENCES
40 GLOSSARY
42 APPENDIX A SURVEY QUESTIONNAIRE
48 APPENDIX B TRANSIT AGENCIES RESPONDING TO SURVEY
