Strategy Guide to Enable and Promote the Use of Fixed-Route Transit by People with Disabilities (2014)

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1 C h a p t e r 1 Goals of the ADA The purposes and goals of the Americans with Disabilities Act of 1990 (ADA) are set out in the preamble of the law (Section 2). The eighth paragraph of the preamble states: “The Nation’s proper goals regarding individuals with disabilities are to ensure equality of opportunity, full participation, independent living and economic self-sufficiency. . . .” (1) In keeping with these goals, a main tenet of Title II of the ADA is to provide public services in the most integrated setting possible. Separate programs designed just for individuals with disabilities are permitted to achieve equal opportunity, but mainstream, integrated services are to be used to the maximum extent appropriate. For public agencies that provide transportation services to the general public, the primary goal of the law is to make mainstream fixed-route bus and rail systems accessible to and usable by individuals with disabilities. The law recognizes, though, that some individuals with dis- abilities will not have an equal opportunity to benefit from public transit services even if bus and rail systems are fully accessible. To ensure equal opportunity for these individuals, the law requires that complementary paratransit service be provided. To prevent complementary paratransit service from becoming the primary service for peo- ple with disabilities, eligibility for this service was defined in detail in the law and in the imple- menting regulations issued by the United States Department of Transportation (U.S.DOT). The U.S.DOT ADA regulations also require that public entities establish a process for deter- mining eligibility for complementary paratransit service, and that this process “strictly limit ADA Paratransit Eligibility” to those individuals who meet the regulatory criteria. These pro- visions and requirements are intended to ensure that public transit is provided to individuals with disabilities using mainstream, integrated bus and rail systems to the maximum extent possible. Increased use of fixed-route transit service benefits both people with disabilities and the transit industry. Unlike complementary paratransit, which typically requires trips to be reserved the prior day, fixed-route transit allows for spontaneous travel and is far more flexible in meeting immediate travel needs. It is also less costly, with fares typically half of what is charged for complementary paratransit—and sometimes even less with reduced or free fare incentive programs. For transit agencies, the cost differences are also significant. Trips can be provided on fixed-route transit at a fraction of the cost of complementary paratransit. Introduction and Suggested Strategies

2 Strategy Guide to enable and promote the Use of Fixed-route transit by people with Disabilities ADA Implementation: Accessibility Improvements to Fixed-Route Transit Developing an appropriate balance between accessible mainline transit services and com- plementary paratransit services has been one of the most challenging aspects of ADA imple- mentation. Significant improvements have been made in the accessibility of bus and rail transit systems. In a 2010 paper marking the 20th anniversary of the passage of the ADA, the Federal Transit Administration (FTA) noted the following achievements in fixed-route transit access (2): • 98% accessibility of the nation’s fixed-route bus fleet. • Functional access to 648 of the 681 stations identified as “key stations” in the nation’s oldest rail systems. • Access to 84% of the nation’s light rail stations and 100% access to new rail systems built since 1990. Increased Demand for Complementary Paratransit Services Despite these improvements, demand for complementary paratransit service has increased since the passage of the ADA. The 2010 FTA paper estimates that 15 million rides were provided on complementary paratransit services in 1991. This increased to 45 million rides by calendar year 2000. In 2008, it was estimated that 67 million rides were provided to individuals deter- mined ADA paratransit eligible. There are likely many reasons for the growth in demand for complementary paratransit ser- vice despite the increased accessibility of the nation’s fixed-route transit systems. • First, as correctly envisioned by the ADA, some people with disabilities cannot use fixed- route transit even if it is fully accessible and even if the environment around stops and stations is accessible. Some of the growth in demand reflects the fact that these individuals are discovering and using ADA paratransit. With the implementation of the ADA, they hope- fully are also traveling more. • Second, a usable fixed-route transit system requires more than just accessible vehicles and major facilities. Bus stops must also be accessible and riders with disabilities must be able to reach these stops and facilities. Some transit agencies have proactively begun to identify and upgrade older inaccessible bus stops, and are also working with cities and towns to improve pedestrian infrastructure. However, it is likely that the lack of acces- sible paths of travel to stops and stations still prevents many riders from using fixed-route transit services. • Third, while many people with disabilities may have the ability to use fixed-route transit services, at least for some of their trips, they may have very limited experience (or none at all) traveling by bus or train. Prior to the passage of the ADA, some transit agencies opted not to provide accessible fixed-route transit service and instead provided only demand responsive service for persons with disabilities. In some areas, these demand responsive pro- grams were in operation for decades. Even though it has been 23 years since the passage of the ADA, it is likely that making the transition from demand responsive service to fixed- route transit service is still difficult for many. To assist in this transition, some transit agen- cies have implemented travel training programs and others have provided fare incentives to encourage use of fixed-route transit services. • Fourth, implementing effective ADA paratransit eligibility determination processes has been a challenge in many areas. Determining whether individuals with various types of disabilities and different levels of ability can, with a reasonable level of effort and risk, per- form all of the tasks needed to use fixed-route transit services is difficult. Each applicant is

Introduction and Suggested Strategies 3 unique and there is no simple “checklist” that can be used to make accurate and thorough decisions. Given that many applicants can use fixed-route transit services only under certain conditions, decisions must be detailed enough to allow these conditions to be identified and assessed. • Finally, more needs to be done to provide positive experiences to riders with disabilities who use fixed-route buses and trains. Vehicle operator training and consistent assistance with boarding, alighting, and securement appear to be ongoing issues. Properly accommo- dating all mobility aids in a safe and timely way also continues to be a challenge. Another issue for some riders with disabilities is the “attention” and perceived “disruption” to the ser- vice that results from inefficient or problematic boardings and securement. And more could probably be done to educate riders with disabilities about the increased accessibility and usability of fixed-route transit services. Without a concerted effort to provide public infor- mation and to reach out to riders with disabilities, past experiences and outdated perceptions are likely still keeping some from using buses and trains. 1.1 Research Goals and Approach The goals of this research were to: 1. Develop a better understanding of the current use of fixed-route transit by persons with disabilities. 2. Develop a better understanding of the factors considered by persons with disabilities when using fixed-route transit versus ADA paratransit services. 3. Identify efforts currently being made by transit agencies to enable and promote increased use of fixed-route transit by persons with disabilities. 4. Develop a practitioner’s strategy guide to enable and promote the use of fixed-route transit service by people with disabilities. To achieve these goals, the research team first conducted an extensive literature review. Applicable literature is cited throughout and a list of relevant references is included. To further achieve the first goal, input was obtained from persons with disabilities. Thirty interviews were conducted with selected individuals with disabilities from across the country to begin to define the issues and help with the preparation of a broader survey. A survey of people with disabilities was then prepared and distributed nationwide with the assistance of several national disability organizations. A total of 1,927 responses were received and analyzed. Input received is summarized in Chapter 2. More detailed documentation of the interviews and survey is provided in the final report for this project, available on the TRB website (http://apps.trb.org/ cmsfeed/TRBNetProjectDisplay.asp?ProjectID=3083). (3) A nationwide survey of public transit agencies was also conducted to identify efforts cur- rently being made to enable and promote use of fixed-route transit services. The survey was sent to all 674 transit agencies identified in the National Transit Database (NTD) as provid- ing both fixed-route transit and ADA paratransit services. Complete responses were received from 163 transit agencies. Key results from this survey are included throughout this strategy guide. A copy of the survey and a detailed tabulation of responses are included in this proj- ect’s final report. Five full and 32 mini case studies of successful implementation of programs and efforts to enable and promote increased use of fixed-route transit services were also conducted. Key findings from these case studies are included throughout this strategy guide. Full case study write-ups are included in the final report for this project.

4 Strategy Guide to enable and promote the Use of Fixed-route transit by people with Disabilities 1.2 Suggested Strategies for Enabling and Promoting the Use of Fixed-Route Transit by People with Disabilities Chapters 3 through 9 have been prepared to serve as a strategy guide for enabling and pro- moting use of fixed-route transit by people with disabilities. The strategy detailed in these sections is illustrated in Figure 1-1. There are several important “first steps” and then several options that can be considered. The suggested strategy starts with the following: • Developing an understanding of current use of transit services by people with disabilities and setting system-wide goals for accessibility; • Gathering data on current fixed-route transit as well as ADA paratransit use to provide a baseline of information and help assess the success of future efforts; and • Setting a system-wide policy and goals to ensure that the entire organization is working toward the same end of enabling and promoting greater use of fixed-route transit services by people with disabilities. Suggested approaches for gathering ridership data and setting system-wide goals are provided in Chapter 3. Another important “first step” in the strategy is to ensure that fixed-route transit services are accessible, usable, and reliable. This includes compliance with regulatory requirements STEP 1 • Develop Understanding of Current Use of Fixed - Route Transit and ADA Paratransit • Establish System - wide Goals STEP 2 • Ensure Fixed - Route Transit Service is Accessible, Usable, and Reliable STRATEGY A • Make Bus Stops and Pedestrian Environment as Usable as Possible STRATEGY B • Develop Marke€ng and Public Informa€on Materials • Offer Trip Planning and Travel Training Services STRATEGY C • Consider Fare Incen€ves STRATEGY E • Use ADA Paratransit Eligibility Determina€on Process to Iden€fy Travel Abili€es STRATEGY D • Consider Alterna€ve Transit Service Designs That Are More Inclusive and Serve All Riders Figure 1-1. Suggested strategies.

Introduction and Suggested Strategies 5 for accessible fixed-route transit, such as buying accessible vehicles, ensuring access to new or altered fixed-route transit facilities, maintaining equipment in good working condition, pro- viding backup service if there are in-service failures, announcing stops and identifying routes, and training employees to proficiency. Beyond these minimum regulatory requirements, the strategy also includes efforts to obtain the most usable equipment and programs to monitor the provision of service. Suggested strategies for ensuring that fixed-route transit services are accessible, usable, and reliable are included in Chapter 4. Following these “first steps,” there are several types of efforts and programs that can be con- sidered. One is to implement programs and efforts to enable people with disabilities to get to fixed-route transit stops and stations and board accessible vehicles. This includes making bus stops accessible and working with local, regional, and state agencies to make the pedestrian infrastructure in the area of stops accessible. Suggested strategies for improving bus stop acces- sibility and the pedestrian environment are provided in Chapter 5. A second strategy option is to provide people with disabilities with information about using fixed-route transit services. This includes public information and marketing materials as well as trip planning services. It also includes providing travel training to those who are interested. Strategies for providing public information, trip planning, and travel training services are out- lined in Chapter 6. The third suggested strategy option is to encourage increased use of fixed-route transit through fare incentives. In particular, offering free fares on fixed-route transit services to peo- ple with disabilities can encourage them to use these services when they are able. Chapter 7 describes the experiences of several transit agencies that have implemented fare incentive pro- grams and offers suggestions for implementing similar efforts. Another possible part of the strategy is to consider alternative service designs that can meet the needs of all riders. This includes flex-route services, community bus services, paratransit- to-fixed-route feeder services, and general public dial-a-ride services. These more inclusive service designs can be used to supplement traditional fixed-route transit and complementary paratransit services. Chapter 8 discusses these alternative service designs and references a com- panion study and other useful resources that provide more detailed information. Finally, increased use of fixed-route transit services can be encouraged and promoted by making thorough, accurate determinations of ADA paratransit eligibility. The eligibility deter- mination process can be used to identify the abilities of riders to use fixed-route transit services. Conditions under which fixed-route transit can be used can be identified as part of the process. Determinations can also be made about individual trips—whether trips can be made by fixed- route transit or if complementary paratransit is needed. Strategies for using the ADA paratransit eligibility determination process in these ways are presented in Chapter 9. While any one of the strategy options presented in Chapters 3 through 9 can be implemented, the research suggests that transit agencies can improve their success in encouraging fixed-route transit service by using and integrating multiple efforts. For example: • Travel training efforts tend to be more effective when integrated with eligibility determina- tion processes; • Fare incentive programs also can be more cost effective, and the unintended consequences limited, if implemented along with more thorough eligibility determination processes; and • Improvement to the pedestrian infrastructure can be more effective when priority stops are identified using information from travel training and eligibility determination processes. Transit agencies are encouraged to consider all of the strategies presented and to adopt a holistic, complete approach for encouraging and facilitating use of fixed-route transit services.