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5Based on the literature review, completed surveys, and later research, it was possible to confirm that at least 46 North American transit systems operate integrated services as de- fined in chapter one. This number includes systems for which no information (other than the existence of the ser- vice) was obtainable as part of this study. In the course of researching systems currently providing integrated services, a number of informants indicated that their system is con- sidering implementing these services but has not yet taken the first steps. The web search also suggested that many paratransit programs include feeder service as an option in their ridersâ guides, even though they do not implement this service. The 21 transit systems that responded to the survey with information about integrated services are located throughout North America, including 12 states and British Columbia. They operate in large urban, suburban, small urban, and rural areas. It is noteworthy that, despite the nation-wide reach of the survey dissemination and follow-up telephone research, western state transit systems, particularly in the northwest, appear to have taken a more proactive approach to integrating fixed-route and paratransit services than those in other parts of the country. Table 1 shows the transit sys- tems, any abbreviations, acronyms, or shortened names used to refer to them in this report, the principal city of each operator, and a brief description of their integrated services. Appendix C provides additional details about each of the in- tegrated services at the surveyed systems, apart from those that have been included as detailed case studies in the body of the report. TYPES OF INTEGRATED SERVICE Integrated service can be broadly defined to include all trans- portation models located on the transportation continuum between fixed-route services and paratransit. However, as stated in the Introduction, certain key modes within this con- tinuum have been extensively covered in TCRP Synthesis 53: Operational Experiences with Flexible Transit Services. (Koffman 2004). These include route deviation, point devia- tion, demand-responsive connector, flexible route segments, and zone routes. In contrast to the present report, TCRP Synthesis 53 did not focus on people with disabilities. How- ever, the report did find that half of the flexible services in- cluded in the survey sample coordinated in some fashion with paratransit services. To avoid duplication and add to the body of knowledge on integrated services, this synthesis focuses on feeder service, while mentioning other services to the extent that they meet the study objectives. The reader is encouraged to use this synthesis as a complement to TCRP Synthesis 53. There are a number of examples of feeder service that do not necessarily meet the studyâs objective of shifting para- transit riders. For example, in Orange County, California, the Orange County Transportation Authority (OCTA) provides route deviation for people with disabilities who live outside of the ADA paratransit service area. These riders are then trans- ported to the ADA service area where they receive paratransit service. While this expands the mobility options of those who live outside the service area, it does not result in the contain- ment of paratransit costs as it contributes to an increase in paratransit rides within the ADA paratransit corridor. Many systems that cover large service areas require trans- fers between two paratransit operators, often at jurisdictional boundaries such as county lines. Finally, the literature pro- vides numerous examples of general public feeder service into fixed-route, which is geared toward commuter trips. While presumably some number of commuters riding these services have disabilities, the absence of any planning with riders with disabilities in mind makes it difficult to quantify this market and determine any consequent reduction in ADA paratransit usage. Even within this focused definition of integrated services, a variety of models were identified by service respondents, including: ⢠Paratransit feeder service. Paratransit service exclu- sively for people with disabilities that feeds into fixed- route service (variations can include additional legs of fixed-route and paratransit service). ⢠General public demand-response feeder service. General public demand-response service that feeds into fixed- route service at bus stops, park-and-rides, and light rail stations. ⢠Route deviation feeder service. Fixed-route bus that de- viates for people with disabilities and older adults, and connects to the mainline fixed-route service. ⢠Community bus feeder/connector service. Community bus (service route model) in suburban and rural areas CHAPTER TWO STATUS OF INTEGRATED SERVICES
6Agency/Principle City Integrated Service Name Brief Description of Integrated Service Access Services, Inc. (ASI), Los Angeles, CA Other program: Fare Free Program Access Service clients can ride participating transit agencies for free. Access Services reimburses the transit agencies for the cost of the trip. ACCESS Transportation Systems, Pittsburgh, PA Feeder Service: ACCESS Transportation Systems Demand Responsive Connector: ACTA employer shuttles, ACTA "just in time" rides Community Bus: Work Link, Ship of Zion Route Deviation/Connector: Elder Express Feeder Service: Paratransit feeder to or from a fixed-route stop. Demand Responsive Connector: ACTA Employer Shuttles - Fixed feeder route to fixed-route services from remote employer locations; ACTA âJust in Timeâ Rides - Picks up passengers at suburban bus stops and takes passengers where they need to go within 1.5 miles of the fixed- route service. Community Bus or Circulator: Work Link and Ship of Zion - circulate through neighborhoods to trip generators and to fixed-route transit stops. Point/Route Deviation: Elder Express - follows a fixed-route and schedule but will deviate upon request. Madison County Transit, Granite City, IL Feeder Service: Agency for Community Transit Feeder service in small urban area: Paratransit service where passengers who are conditionally eligible or elderly are transported from a location not on a fixed-route to a transfer site to board a fixed-route bus. Amador Regional Transit System, Jackson, CA Point/Route Deviation: Amador Regional Transit System Point/Route Deviation: All routes allow for route deviation of up to 1/2 mile from the fixed route by request. Broward County Paratransit Services, Palm Beach, FL Community Bus: Community Bus Service Community Bus: 22 municipalities have partnered with Broward County Transit (BCT) for the provision of community bus service. All community buses connect to BCT fixed routes. The type of service provided (e.g., fixed-route, demand-response, deviated fixed-route, etc.), scheduled, routes, fares, etc. are determined by each city government. Island Transit, Coupeville, WA Point/Route Deviation and Feeder: Island Transit Point/Route Deviation: All routes allow for route deviation of up to 3/4 mile from the fixed route by request for persons with disabilities and older adults. Laketran, Painesville, OH Demand Responsive Connector: Dial-a- Ride Demand Responsive Connector: Dial-a-Ride passengers may book rides to park-n-rides and other bus stops to connect with commuter buses and local fixed-route buses. RideSource, Eugene, OR Feeder Service: RideSource (ADA paratransit) Fixed-Route Feeder to Demand Responsive Connector: Diamond Express Point/Route Deviation: Rhody Express Feeder Service: ADA conditional riders can use the paratransit service to make connections to fixed-route service at bus stops or transit stations. Fixed-route feeder to demand responsive connector: Diamond Express operates as fixed- route commuter service from rural community to downtown Eugene, where it switches to demand-response for elderly and disabled. Point/Route Deviation: Local small community circulator following a fixed route and operating on an hourly headway. The route will deviate up to two blocks from the fixed route by request. Mason Transit, Shelton, WA Demand Responsive Connector: Dial-a- Ride Point/Route Deviation: Mason Transit Demand Responsive Connector: Dial-a-Ride connects to regional fixed-route service to transfer passengers. Point/Route Deviation: Fixed routes deviate with two hour advanced notice. Mass Transportation Authority (MTA), Flint, MI Demand Responsive Connector: Your Ride Demand Responsive Connector: Curb-to-curb paratransit service provides connections with fixed-route system at end of the lines and the downtown transfer center. The service is available to the general public who do not live near a fixed route. Mountain Mobility, Asheville, NC Point/Route Deviation: Black Mountain and Enka-Candler Trailblazers Point/Route Deviation: When fixed-route service is not operating, passengers can request service from their location to connect to Asheville Transit routes for service outside of the Mountain Mobility service area. Oahu Transit Service, Inc. (OTS), Honolulu, HI Point/Route Deviation: Community Access Service Point/Route Deviation: Community Access Service routes operate on a fixed route and perform curbside pick-up within a quarter to half mile of the route for disabled and elderly passengers. Pierce Transit, Tacoma, WA Feeder Service: Demand Responsive Connector: Bus Plus Mid-County Point/Route Deviation: Bus Plus Feeder: Formal, mandatory, and extensive feeder program since early 1990âs. Demand Responsive Connector: Dial-a-Ride service will connect passengers to fixed-route transit at transfer points. Point/Route Deviation: Deviated fixed-route services follow a fixed route and schedule but will deviate into neighborhoods upon request to provide curb-to-curb service. Denver Regional Transportation District (RTD), Denver, CO Feeder Service on Access-a-Ride Demand Responsive Connector: Call-n- Ride Feeder Service: Access-a-Ride - The paratransit service occasionally connects with fixed-route transit services upon request by the passenger. Demand Responsive Connector: Call-n-Ride - Neighborhood based demand response service that connects with fixed-route services and other requested locations in the service area. Sacramento Regional Transit District (RTD), Sacramento, CA Feeder Service: Paratransit Community Bus / Point/Route Deviation: Neighborhood Ride Feeder Service: Sacramento Regional Transitâs paratransit service will provide connections to light rail stations upon request. The feeder service is not widely used or actively promoted, though light rail and bus usage by ADA paratransit certified is very significant. Community Bus & Point/Route Deviation: Nine general public fixed routes focused on neighborhood service are provided in Sacramento communities that provide deviations within 3/4 mile of the route for paratransit eligible individuals and seniors. San Mateo County Transit District (SamTrans), San Carlos, CA Feeder Service: RediCoast & Redi- Wheels Community Bus/Point/Route Deviation: Bayshore/Brisbane Shuttle Feeder Service: Informal and limited feeder service upon request to BART and CalTrain. Community Bus & Point/Route Deviation: The Bayshore/Brisbane Shuttle operates on a fixed route and schedule but will deviate upon request. TABLE 1 SUMMARY OF SURVEYED TRANSIT SYSTEMS (continued)
7that connects with fixed-route service and other commu- nity bus stops. ⢠Route or point deviations service. Fixed-route bus that deviates within specified corridors and at specified times of the day to pick up people with disabilities and older adults. ⢠Other integrated services. Assisted travel program that facilitates transfers between paratransit and fixed-route or two fixed-route modes at transit centers for those riders who would not be able to transfer unassisted; fare-free programs for paratransit registrants riding fixed-route service; shopping shuttles geared toward seniors and people with disabilities. Table 2 summarizes the integrated service models found in the systems that responded to the synthesis survey. Some systems used specific terms or service names in their responses that have been changed for the purpose of this synthesis in order to maintain consistency in the report terminology. For example, some services known as Community Bus operate on a demand-response basis and connect with fixed-route stops; these are included in the demand-response feeder category in the table. LENGTH OF EXPERIENCE Most integrated services in this synthesis were initiated within the past decade. One notable exception is the feeder service in Tacoma, Washington, which has operated since the early 1990s. A possible explanation for the more recent introduction of integrated services could be the trend toward a number of associated developments that support these ser- vices. One key trend is the increase in more accurate eligi- bility screening processes, particularly in-person assessments. These assessments provide the data needed to make trip screening determinations for feeder service. Another trend is the increased availability of travel training, which allows more people with disabilities to consider using fixed-route and route deviation services for at least part of their trip. The continued TABLE 1 (continued) Agency/Principle City Integrated Service Name Brief Description of Integrated Service San Joaquin Regional Transit District, Stockton, CA Point/Route Deviation: Hopper Point/Route Deviation: The RTD Hopper is a deviated fixed-route bus service connecting rural San Joaquin County communities to the urban and suburban communities. Most RTD Hopper routes will deviate up to 3/4 of a mile for ADA certified and elderly passengers Sarasota County Area Transit (SCAT), Sarasota, FL Demand Responsive Connector: SCAT- About Demand Responsive Connector: SCAT-About provided curb-to-curb service to passengers in the SCAT service area and connected passengers to the main south county transfer point upon request. Discontinued because not enough paratransit riders shifted. South Coast British Columbia Transportation Authority (TransLink), Vancouver, BC Feeder Service: HandyDART (now Custom Transit) Informal but extensive feeder service from paratransit to light rail, ferry, and bus. Utah Transit Authority (UTA), Salt Lake City, UT Feeder Service: Paratransit Point/Route Deviation: UTA Route F94, Brigham Lift Feeder Service: ADA conditional riders are required to use the paratransit service to make connections to fixed-route service at bus stops or transit stations. Point/Route Deviation: Two deviated fixed-routes targeted to seniors, disabled, and general public passengers in areas where local fixed-route services were reduced. The route will deviate up to a 1/2 mile. Whatcom Transportation Authority, Bellingham, WA Demand Responsive Connector: Safety Ne t Point/Route Deviation: FLEX Community Bus: Safety Net operates in rural, unincorporated areas of Whatcom County one or two designated days per week and connects passengers to main transit centers in Bellingham. Point/Route Deviation: FLEX is route deviation service with a fixed-route and schedule operated between Bellingham and several outlying communities in the county. The service will deviate upon request in specified areas. Type of Integrated Service No. of Transit Systems Paratransit Feeder 11 Demand-Response Feeder (or General Public Feeder) 9 Route Deviation Feeder 9 Community Bus Feeder/Connector 7 Route/Point Deviation 6 Other (Fare-Free Program, Transit Host, Shopper) 4 Total transit systems in Survey Sample 21 Total transit systems identified in study operating integrated service 34 Total service types reported 46 TABLE 2 TRANSIT SYSTEMS USING EACH TYPE OF INTEGRATED SERVICE
expansion of these trends suggests that more integrated ser- vice programs are likely to be implemented in the future. This is particularly true given that most transit agencies are experiencing severe budget pressures, and since they are al- ready in compliance with the paratransit requirements of the ADA, they are seeking compliant methods of containing spi- raling costs. REASONS FOR INITIATING INTEGRATED SERVICES A variety of reasons for integrating services were cited by survey respondents. To avoid the cost of providing separate fixed-route and ADA complementary paratransit services, a number of systems have chosen to provide fixed-route service that deviates for people with disabilities in compliance with ADA requirements. Those that have selected paratransit feeder service have partially been motivated by the cost savings accrued from shorter paratransit trips, but also to promote the independence of their paratransit registrants. Another reason for establishing integrated services occurs when transit agen- cies inherit pre-existing social service transportation programs and seek ways of consolidating the programs without disen- franchising existing riders. For example, Whatcom Trans- portation Authority (WTA) inherited a nonprofit operated transportation program for seniors and people with disabili- ties and, with the assistance of new sales tax funding, was able to maintain the essential deviated service elements while opening it to the general public. REASONS FOR DISCONTINUING OR NOT PURSUING INTEGRATED SERVICE In the course of researching possible feeder service case stud- ies, a number of examples emerged in which transit systems indicated that they had explored and rejected the possibility of implementing feeder service, or implemented an integrated service that they were forced to discontinue. A sample of these systems is described. Sarasota Performance insufficient to justify expense: In 2001, the Sarasota County Area Transit (SCAT) implemented a new general public dial-a-ride (GPDAR) service in a suburban area of the county know as Venice Island that was designed to feed into the fixed-route service at a centralized pulse point on an hourly basis. One of the objectives of this service was to shift ADA paratransit and transportation disadvantaged riders to a higher productivity GPDAR service, which pro- vided curb-to-curb service or service to the closest inter- section. SCAT-About, as the service was called, provided approximately 5,000 annual trips. However, it was discon- tinued in 2006 because the proportion of ADA paratransit riders who shifted off of the ADA paratransit service was lower than expected. Even though approximately half did 8 shift to SCAT-About, the productivity of three trips per hour and the resultant cost per trip were insufficient to justify run- ning both programs simultaneously. Calgary Lack of interest from riders: In 2003, Calgary Transit con- ducted a pilot study to determine the feasibility of implement- ing feeder service. The plan was to identify paratransit riders in a specific geographic area and offer feeder service to a nearby CTrain (light rail) station. One hundred seventy-five customers were contacted by telephone to assess their suit- ability and interest in participating in the trial feeder project, and not one indicated an interest in participating. The pri- mary reasons for this lack of interest were: a) they generally avoided traveling to the downtown destinations of the CTrain, b) customers felt unsure about how to ride the train, c) they were unable to walk long distances, d) variable health condi- tions and travel patterns were unpredictable, and e) they could not stand for long periods waiting for a train or while riding the train. The agency concluded that to effectively implement feeder service in the future, the screening criteria would need to be changed to include the whole service area and all times of the day, and that feeder service will need to be offered on a manda- tory basis. Access Calgary, the Calgary Transit paratransit provider, is considering exploring feeder again sometime in the future owing to the confluence of a number of trends. The city has recently annexed an additional 103 square kilometers, thus dramatically expanding the paratransit service area and re- quests for service from remote locations. Access Calgary also has overhauled the eligibility screening process to include an in-person component for most applicants. Finally, the agency is currently installing mobile data terminals on its paratransit vehicles. These factors are contributing to the reassessment of feeder feasibility. What remains to be seen is whether there is the political will to implement mandatory feeder service. New York City Implementation deferred: At the time of this report, Access- A-Ride had decided to hold off on implementation of feeder service after conducting extensive research with other pro- grams. A small feeder pilot program between Brooklyn and Manhattan was implemented in the early years of Access-A- Ride service, but gradually was phased out as call takers found it easier to simply schedule a paratransit trip for the full length of the trip. Whatcom Transportation Authority Replaced by fixed-route service: WTA, which serves the north-west corner of Washington State, has discontinued one of its deviated services and replaced it with fixed-route ser- vice. A number of respondents indicated that these services
9can serve as testing grounds to determine the feasibility of fixed-route service, and when the productivities reach a pre- determined level, the agency replaces the integrated service with fixed-route. Eugene Schedule adherence issues as a result of deviations: In Eugene a local circulator service that also provides deviations for people with disabilities is being replaced by regular ADA paratransit service because the demand for deviations made it difficult to adhere to the schedule. OTHER BARRIERS TO INTEGRATED SERVICE Only a few integrated services included in the survey sample had to be discontinued, usually owing to funding constraints or lower-than-expected productivities. However, even those agencies that currently provide services discussed barriers that needed to be addressed or barriers they faced that pre- vented them from implementing integrated services even when these appeared appropriate. One of the challenges that a number of transit agencies report is the need to educate customers on how to use integrated services, since these var- ied from the more familiar fixed-route/paratransit models. Since the motivation for implementing these services was frequently fiscal constraints, agency staff had to educate the public about the tradeoffs they considered when designing new services. Other challenges for transit agencies when implementing integrated services included: ⢠Developing a paratransit eligibility screening program that can accurately identify conditions that facilitate feeder service; ⢠Identifying transfer locations that are sheltered and safe; ⢠Ensuring that the deployment of paratransit vehicles to the integrated service did not impact the paratransit fleet capacity; and ⢠Explaining to consumers and policy decision makers why feeder service is consistent with the goals of the ADA. As a means of addressing some of these barriers, one sur- vey respondent emphasized the importance of involving ad- vocacy groups early on in the process of designing integrated services.
