Measuring and Managing Fare Evasion (2022) / Chapter Skim
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A-1 A P P E N D I X A Case Studies
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A-2 C O N T E N T S A-3 Introduction A-4 Bay Area Rapid Transit A-12 King County Metro A-19 Los Angeles County Metropolitan Transportation Authority A-28 Massachusetts Bay Transportation Authority A-33 Metro Transit A-38 Metropolitan Transit System A-47 New York City Transit A-56 Regional Transportation District A-63 Sacramento Regional Transit A-69 San Francisco Municipal Transportation Agency A-81 Sound Transit A-91 Sun Metro A-95 The Rapid A-99 TransLink A-103 TriMet A-116 Toronto Transit Commission A-135 Valley Metro A-145 Washington Metropolitan Area Transit Authority
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Case Studies A-3 Introduction The research team compiled case studies on the fare enforcement practices of the 18 transit agencies shown in Figure A-1. The case study for each agency was developed based on an initial phone survey with key agency personnel followed by additional communications, as warranted, and a review of agency-provided documents and other available information, including audit reports, legislative codes, court cases, websites, etc.
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A-4 Measuring and Managing Fare Evasion in Table A-1. These summary tables are meant to provide a high-level understanding of each agency's fare collection and enforcement approach for easy comparison across agencies.
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Case Studies A-5 Bay Area Rapid Transit (BART) , San Francisco Bay Area, CA Overview of Agency BART operates a gated heavy rail system in the San Francisco Bay Area.
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A-6 Measuring and Managing Fare Evasion required prominent signage in all stations stating that being in the paid area without proof of payment was a citable offense. This information was also incorporated into the Code of Conduct posted in stations and on trains.
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Case Studies A-7 only apply within the District's political boundaries. As a result, BART cannot enforce the proof- of-payment ordinance in San Mateo and Santa Clara counties without the adoption of the ordinances by those counties' boards of supervisors.
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A-8 Measuring and Managing Fare Evasion fare inspectors can ask every passenger as they get off the escalator or elevator for proof of payment. In the case of crush loads on station platforms where inspection of all passengers cannot occur, fare inspectors will adjust their approach accordingly, such as by switching to riding trains and performing onboard inspections or redeploying to a different station.
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Case Studies A-9 civil citation, which can be issued by a fare inspector. For the third or subsequent proof-ofpayment violations within a 12-month period by an adult, a BART police officer will issue a criminal citation.
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A-10 Measuring and Managing Fare Evasion One such design shift has been minimizing the number of service gates. BART analyzed egress locations across the system and evaluated the amount of egress necessary.
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Case Studies A-11 Station, for instance, BART piloted a stacked configuration fare gate that added an upper set of paddles to the existing fare gate paddles. BART also piloted a higher barrier concept to reduce push-throughs and jumping at Fruitvale Station.
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A-12 Measuring and Managing Fare Evasion BART has made changes to its fare policies for its Clipper program to help reduce fare evasion: • BART no longer allows a negative balance. Once BART installed add-value machines at all stations, it no longer allowed Clipper cardholders to carry a negative balance.
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Case Studies A-13 King County Metro, Seattle, WA Overview of Agency King County Metro (Metro) operates water taxi and bus services, including bus rapid transit (BRT)
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A-14 Measuring and Managing Fare Evasion Transportation and the Link light rail and Sound Transit Express bus services operating in King County on behalf of Sound Transit. In 2009, Metro and six other transit providers in the Seattle region launched the ORCA cardbased fare collection system that allows passengers to use a smart card to pay their fares.
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Case Studies A-15 streets. To optimize service while operating on surface streets, Metro introduced all-door boarding with proof-of-payment inspections and off-board payment on the rerouted buses.
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A-16 Measuring and Managing Fare Evasion Metro's contract with the security firm that provides the fare enforcement personnel includes minimum training requirements for FEOs. FEOs undergo 2 weeks, or 80 hours, of classroom training.
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Case Studies A-17 citations issued between 2015 and 2017 and that these individuals may not have the ability to pay a $124 citation. The findings from the audit were a major catalyst in changing Metro's violation and fare enforcement approach to find a "right-sized" resolution for fare evasion and align the penalties for fare evasion with the infraction of not paying a $2.75 fare.
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A-18 Measuring and Managing Fare Evasion concluded that meaningfully addressing the issue of affordability for its most impoverished and vulnerable passengers is a community concern, not just a transit issue. Community Engagement Many of Metro's public education efforts have been developed in conjunction with longstanding community partners.
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Case Studies A-19 receive a warning or a notice of violation if they are inspected and cannot produce valid proof of payment. However, because the fare enforcement database is network-based rather than cloudbased, FEOs must call dispatch and ask dispatch to look up a passenger in the database to determine the individual's fare evasion history and whether the individual should receive a warning or a notice of violation based on previous interactions with fare enforcement.
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A-20 Measuring and Managing Fare Evasion Los Angeles County Metropolitan Transportation Authority (LA Metro) , Los Angeles, CA Overview of Agency LA Metro is a multimodal transportation agency that operates bus, light rail, heavy rail, and BRT services in Los Angeles County.
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Case Studies A-21 Fare Evasion The Metro Customer Code of Conduct adopted in 2010 and amended in 2018 defines fare payment requirements as follows: • Patrons who ride Metro vehicles or use Metro services must pay all applicable fares and fees • Patrons shall show proof of payment of fare upon request by a Metro representative The Code of Conduct expressly prohibits fare evasion and further defines fare evasion as including the following: • Boarding a Metro vehicle or entering a Metro facility platform or other fare-required zones, without proof of valid fare media or without paying the fare upon boarding a Metro bus; • Duplicating, counterfeiting, altering, or transferring any nontransferable fare media without Metro authorization; • Placing anything other than valid fare media into a farebox, ticket machine, pass reader, or other fare validation or collection device; • Falsely representing oneself as eligible for a waiver or a special or reduced fare, or obtaining fare media by making a false or misleading representation; • Refusing to show proof of valid, validated, unexpired fare media upon request by a Metro representative; patrons shall show identification upon request for accurate completion of citation data entry per posted policies; • Misusing fare media with the intent to evade payment of a fare; • Unauthorized use of a discount ticket or failing to present upon request by Metro or within 72 hours thereafter, acceptable proof of discount eligibility to use a discount ticket and show identification per posted policies; • Boarding through a rear bus door to avoid payment of fare; • Entering a Metro vehicle or facility when any penalty, fee, or assessment for violation of the code is past due or during any exclusion period; and • Entering a Metro vehicle or facility in such a way as to bypass or avoid any fare-required zone barriers such as media collection or validation machines or Metro representatives collecting fares. Los Angeles County Metropolitan Transportation Authority (LA Metro)
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A-22 Measuring and Managing Fare Evasion The Code of Conduct also establishes a penalty schedule for offenses for specific fare violations, which are discussed below under the Fare Evasion Penalties. Fare Enforcement by Mode LA Metro operates four types of bus services: Local, Rapid, Express, and BRT.
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Case Studies A-23 section)
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A-24 Measuring and Managing Fare Evasion to provide fare enforcement in areas patrolled by LAPD and LBPD. It also allowed law enforcement to focus exclusively on police work.
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Case Studies A-25 preference and practice are to work with passengers to change their behavior and encourage them to pay fares, not to initiate court proceedings. Fare Evasion Adjudication Process LA Metro implemented an administrative process for adjudicating fare violations in 2012.
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A-26 Measuring and Managing Fare Evasion from the responsibility for issuing citations. The Hearing Unit of the Transit Court has always reported to the Office of the Inspector General.
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Case Studies A-27 date of the administrative hearing decision to the superior court (Level 3)
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A-28 Measuring and Managing Fare Evasion Homeless Action Plan As a result of the crisis among individuals experiencing homelessness, the number of individuals and families seeking shelter on Metro rail and buses and at stops and other properties has increased notably. Several organizations have reached out to Metro to provide outreach at transportation hubs, intending to get people off the street and into programs.
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Case Studies A-29 Massachusetts Bay Transportation Authority (MBTA) , Boston, MA Overview of Agency MBTA operates bus, BRT, light rail, heavy rail, commuter rail, and ferry services.
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A-30 Measuring and Managing Fare Evasion use the onboard farebox to pay by cash, magnetic stripe ticket, or smart card. For commuter rail, passengers can purchase a ticket from a station agent, a TVM, the mobile ticketing application, retail locations, or from a conductor on board the vehicle.
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Case Studies A-31 Under Fare Transformation, surface light rail, BRT, and bus services will move to all-door boarding where passengers may board and pay their fare at any door. By allowing customers to board at rear doors, MBTA will eliminate the ability of bus and light rail operators to ensure that everyone has paid.
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A-32 Measuring and Managing Fare Evasion Fare Transformation, MBTA is planning several other changes to the way it handles fare evasion. However, these changes require legislative approval.
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Case Studies A-33 They are usually located near the TVMs so they are close by if passengers encounter any issues purchasing a fare or entering the system or if they have questions. Transit ambassadors are primarily responsible for passenger education efforts, not fare enforcement.
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A-34 Measuring and Managing Fare Evasion Metro Transit, Minneapolis–Saint Paul, MN Overview of Agency Metro Transit operates bus, BRT, light rail, and commuter rail services. Fare Collection Overview Passengers pay on board the bus and in advance of boarding BRT, light rail, and commuter rail services.
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Case Studies A-35 In 2007, Metro Transit launched the Go-To card-based fare collection system that allows passengers to use a smart card to pay their fares. In 2016, Metro Transit introduced the Metro Transit App, a separate mobile ticketing application for fare payment.
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A-36 Measuring and Managing Fare Evasion For special events, Metro Transit police officers check fares as passengers are arriving or departing the event. Passengers are funneled through a queue area created by removable gates to have their fares checked.
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Case Studies A-37 Fare Evasion Data Analysis Metro Transit regularly analyzes various fare inspection and evasion data. On board buses, bus operators have a farebox key that they press to tally the number of passengers who do not pay or who short pay their fare.
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A-38 Measuring and Managing Fare Evasion could be completed during a CSO's regular shift, rather than dedicating staff to conduct the survey. Before the use of CSOs to conduct fare check surveys, Metro Transit has used survey firms.
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Case Studies A-39 Metropolitan Transit System (MTS) , San Diego, CA Overview of Agency MTS operates bus, Rapid bus, and light rail (Trolley)
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A-40 Measuring and Managing Fare Evasion In 2014, SANDAG transitioned Compass management and operations to MTS. In 2017, Compass launched stored value, Compass Cash, and a new mobile ticketing app, Compass Cloud.
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Case Studies A-41 Code compliance inspectors and security officers report to MTS headquarters, which is the central point for the Trolley system. MTS does not have a contractual arrangement with local jurisdictions for law enforcement.
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A-42 Measuring and Managing Fare Evasion Train Team Deployment Train Teams are deployed randomly to increase visibility and provide a security presence. Train Teams are deployed to four sectors and assigned smaller beats (three to five stations)
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Case Studies A-43 Fare Enforcement on Bus Fare enforcement is not typically conducted on the bus. Bus operators observe fare payment at the farebox and make sure passengers have proper fares or pay cash.
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A-44 Measuring and Managing Fare Evasion one code compliance inspector supervisor, for most special enforcement details, leaving the other Train Teams on the lines to perform their regular duties. MTS conducts controlled and noncontrolled special enforcement details.
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Case Studies A-45 September 1, 2020, certain fare violation citations may be resolved directly with MTS within 120 days through its new diversion program. After 120 days, unresolved citations are still transmitted to the court for adjudication.
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A-46 Measuring and Managing Fare Evasion In preparation for launching the Phase 1 Pilot, the MTS Legal Department has been working with the MTS Marketing Department to determine how to advertise the program. The focus of the marketing and education has been valid fare is required; here are the options if cited so you can resolve the citation without it going to court.
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Case Studies A-47 MTS investigates complaints and conducts a proactive review of all use-of-force incidents. For example, if handcuffs are used to restrain an individual that was combative and force was used to gain control of the subject, both a use-of-force report and an incident report are required.
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A-48 Measuring and Managing Fare Evasion New York City Transit (NYCT) , New York, NY (Continued )
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Case Studies A-49 the entire duration of the trip. Once prepaid, passengers may board through any door.
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A-50 Measuring and Managing Fare Evasion role has changed over the years, as key issues on NYCT have shifted, and now many Eagle Teams focus on fare enforcement. Fare inspectors are civilians and are not sworn peace officers; however, they do receive New York State security guard training.
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Case Studies A-51 warning or summons. MTA Bridge and Tunnel officers and fare inspectors undertaking fare enforcement on RBS are in plain clothes.
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A-52 Measuring and Managing Fare Evasion safety needs and F5 farebox key data used to log fare evasion. As with NYPD police officers, MTA police officer and MTA Bridge and Tunnel Authority officer responsibilities are not limited exclusively to fare enforcement and include safety and security responsibilities.
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Case Studies A-53 in court regarding the presumed use of facial recognition software. NYCT removed the "tracking boxes" and has publicly clarified that no facial recognition software has been used at any point in time.
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A-54 Measuring and Managing Fare Evasion The BFE survey also uses a stratified cluster sample design but has historically included stratification to report evasion by borough. The sample design involved traffic checkers riding on selected routes in both directions and recording types of paid, partial payment, and unpaid boardings.
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Case Studies A-55 statistically valid survey methods may be materially different from MTA's current $225 million loss estimate. Because the Office of Management and Budget's updated fare revenue loss method relies on the updated SFE and BFE survey methods, updates to the revenue loss method are being finalized but likely will not be implemented until sometime after the COVID-19 pandemic has subsided and some form of normalcy has returned to NYCT operations.
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A-56 Measuring and Managing Fare Evasion When issuing TAB and OATH summons, no demographic information on the passenger is collected or recorded on the summons. Approximately 50% of TAB summons are paid.
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Case Studies A-57 Regional Transportation District (RTD) , Denver, CO Overview of Agency The Regional Transportation District (RTD)
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A-58 Measuring and Managing Fare Evasion mobile ticket/pass or a paper pass product present the fare to the bus operator for visual validation. Payment with a smart card involves tapping the smart card on the validator.
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Case Studies A-59 With the introduction of mobile ticketing on RTD's proof-of-payment rail system, the agency has also had to address the added challenge of fare purchases that occur in the middle of a journey, after a passenger has boarded a vehicle and sees a TSO. According to the Colorado Revised Statute, passengers are required to provide "proof of prior fare payment," requiring that fares be paid before boarding a vehicle.
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A-60 Measuring and Managing Fare Evasion RTD previously deployed some plainclothes police officers; however, the decision was made to revert to mostly uniformed inspections and patrols. With uniformed officers, the perception is that officers are more visible and that fare enforcement is being undertaken.
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Case Studies A-61 same zone, TSOs are provided discretion on which lines to inspect but are encouraged to board whichever trains arrive first to maximize contact with passengers. RTD designs the deployment plan based on levels of service and expected ridership levels for each zone.
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A-62 Measuring and Managing Fare Evasion Fare Enforcement Technology TSOs are provided with an iPhone with apps to validate different fare media. One app can inspect smart cards.
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Case Studies A-63 tracks warnings and citations separately and a warning must be issued before a citation, monthly statistics do provide an aggregate assessment of repeat violations. Fare Evasion Citations The Colorado Revised Statute on fare evasion was changed in 2012, changing fare evasion from a criminal violation to a civil traffic violation.
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A-64 Measuring and Managing Fare Evasion Sacramento Regional Transit District (SacRT) , Sacramento, CA Overview of Agency The Sacramento Regional Transit District (SacRT)
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Case Studies A-65 limited exceptions. The transit agents were temporary new employees hired specifically to fight fare evasion and to provide safety and security by their presence on trains.
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A-66 Measuring and Managing Fare Evasion applicable SacRT policies. Field training serves to familiarize transit ambassadors with the light rail trains, the nomenclature used in transit and the field, and SacRT's stations.
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Case Studies A-67 educate a passenger on SacRT's fares and then have the passenger buy fare either through the mobile app or from an FVM at the next station, rather than cite them. SacRT sees the transit ambassadors' focus on educating the public on fare media and fare policies as particularly important considering that SacRT has many different fare media.
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A-68 Measuring and Managing Fare Evasion built before and after the selected trip to maximize the sample size and efficient use of surveyor staffing. The scheduling supervisor would review recent surveys to determine whether it would be more beneficial to build the surveyor schedule to be more heavily weighted with trips before or after the randomly selected trip.
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Case Studies A-69 San Francisco Municipal Transportation Agency The San Francisco Municipal Transportation Agency (SFMTA) is a department of the City and County of San Francisco responsible for the management of all ground transportation in the city.
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A-70 Measuring and Managing Fare Evasion Definition of Fare Evasion The San Francisco Transportation Code defines proof-of-payment as "a fare collection system that requires transit passengers to possess a valid fare receipt or transit pass upon boarding a transit vehicle or while in a Proof-of-Payment Zone, and which subjects such passengers to inspections for proof of payment of fare by any authorized representative of the transit system or duly authorized peace officer." The code defines Proof-of-Payment Zone as "the paid area of a subway or boarding platform of a transit system within which any person is required to show proof of payment of fare for use of the transit system." The following sections of the San Francisco Transportation Code establish the actions that constitute transit fare-related violations: 7.2.101 -- Fare Evasion Regulations: a. To fail to display a valid fare receipt, transit pass, Clipper card, Limited Use ticket, or electronic fare media at the request of any authorized representative of the transit system or duly authorized peace officer while in or about any public transit station (including an outdoor high-level boarding platform or station operated by the Bay Area Rapid Transit District)
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Case Studies A-71 b. To knowingly use or attempt to use any illegally printed, duplicated, or otherwise reproduced token, card, transfer or other item for entry onto any transit vehicle, Proof of Payment area, or into any transit station with the intent of evading payment of a fare.
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A-72 Measuring and Managing Fare Evasion Muni has also introduced MuniMobile, a mobile application (app) that allows passengers to purchase mobile tickets using a credit/debit card, PayPal account, or Apple Pay and Google Pay.
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Case Studies A-73 SFMTA's Proof-of-Payment Unit. They are employed by SFMTA and responsible for enforcing proof-of-payment fare policies on bus, streetcar, and light rail services.
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A-74 Measuring and Managing Fare Evasion As fare enforcement returns to Muni services in the fall of 2020, SFMTA is "reimagining" fare enforcement and inspections, as discussed below in Reimagined Fare Enforcement. Before SFMTA implemented all-door boarding and proof of payment on all bus and streetcar lines, a zone structure model was used to deploy fare inspectors to a line segment, a platform, or a stop (i.e., a light rail line and segment, a downtown Metro station platform, or a bus stop as part of a pilot of all-door boarding and proof of payment on buses)
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Case Studies A-75 on the line (e.g., inbound or outbound)
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A-76 Measuring and Managing Fare Evasion a low-income fare program, such as Clipper START, Lifeline Pass, or Free Muni for youth/ seniors/people with disabilities within 30 days of receiving a citation. Rather than working in groups of two, fare inspectors are working in teams of three.
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Case Studies A-77 Effective February 2008, fare evasion was decriminalized for adults with the objectives of reducing the severity of the punishment, reducing the number of fare evasion citations on traffic court dockets, and increasing the collection of fine revenue. Handling the fare citations administratively in-house enables SFMTA to minimize encounters of cited individuals with the court system, offer a reduced penalty for early payment, and implement a lower effective fine because it does not include court fees.
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A-78 Measuring and Managing Fare Evasion accepts community service as an alternative to paying a fine and offers payment plans and an appeals process. (These alternative options are discussed in detail below.)
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Case Studies A-79 payments based on the total amount of the citations enrolled. The timeline for completion is also based on the total amount enrolled (see Table A-3)
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A-80 Measuring and Managing Fare Evasion and after implementing all-door boarding systemwide, as shown in Table A-4. The most recent survey, conducted in 2019, was designed to provide data needed to diagnose the reasons for and the impact of fare evasion, to determine how to recover fare revenue losses.
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Case Studies A-81 Point checks have had some limitations, especially for a survey intended to support efforts to estimate revenue losses. Survey teams could not determine whether passengers who displayed a valid transfer or fare receipt had paid the appropriate fare, and they could not distinguish which passengers had entered through the back door.
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A-82 Measuring and Managing Fare Evasion Sound Transit (Central Puget Sound Regional Transit Authority) , Seattle, WA (Continued )
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Case Studies A-83 Fare Enforcement Personnel Sound Transit's Public Safety Office is responsible for fare enforcement on all of Sound Transit's commuter and light rail. RCW 81.112.210 authorizes Sound Transit to designate personnel, including contracted personnel, to exercise all the powers of an "enforcement officer," as defined in RCW 7.80.040.
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A-84 Measuring and Managing Fare Evasion 12 months to properly understand the fare system. This practice is a manifestation of the policy of giving passengers the benefit of the doubt on their first fare evasion offense.
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Case Studies A-85 During the inspection, the FEO boards the train, informs the conductor that fare enforcement will be occurring on that trip, and then starts inspecting at one end of the train. The FEO moves from one end of the train to the other, beginning by inspecting the fare of the first passenger in that path and continuing to inspect every passenger in order until encountering a fare evader.
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A-86 Measuring and Managing Fare Evasion Fare Enforcement Personnel Training FEOs must complete training before being sent out into the field. Initial hire training and most follow-up training are conducted by the contractor, not Sound Transit, although the Sound Transit Public Safety Office does have input and insight into the training process.
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Case Studies A-87 When the loss per transaction is multiplied by total ridership, it provides Sound Transit with an estimate of the total revenue loss due to fare evasion. For example, if light rail's annual ridership was 25 million passengers per year, then Sound Transit would multiply $0.045 (from above)
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A-88 Measuring and Managing Fare Evasion Sound Transit does not track whether fines have been paid because fines are paid to the District Court. However, Sound Transit can request these data as needed from the court and has done so recently as part of a workgroup effort to evaluate fares and fare evasion.
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Case Studies A-89 Sound Transit Fare Enforcement Action Plan (Continued) The Fare Enforcement Action Plan presented in March 2020 included the following proposals for near-term implementation (i.e., within the next year)
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A-90 Measuring and Managing Fare Evasion Sound Transit Fare Enforcement Action Plan (Continued)
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Case Studies A-91 Sun Metro The Sun Metro Mass Transit Department, or Sun Metro, provides public transit services to the 250-square-mile area surrounding El Paso, Texas. Sun Metro is a department of the City of El Paso, the sixth largest city in Texas, situated across the Rio Grande from the Mexican city of Ciudad Juárez.
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A-92 Measuring and Managing Fare Evasion Sun Metro, El Paso, TX Overview of Agency Sun Metro is a department of the City of El Paso that operates bus, BRT, and streetcar services. Fare Collection Overview Passengers pay on board at the farebox on the bus or streetcar.
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Case Studies A-93 Fare Evasion Citations As Sun Metro prepared to launch Brio in 2014, staff anticipated there would be a need for fare enforcement due to the barrier-free, honor system nature of BRT. Staff had planned to issue civil citations and prepared a fare enforcement policy, including a three-tier escalation policy for repeat offenders, but it was never put into place.
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A-94 Measuring and Managing Fare Evasion When boarding a vehicle to inspect fares, light-duty operators used all three doors of the vehicle and then proceeded through the vehicle asking all passengers systematically for proof of payment. At terminals, light-duty operators would ask passengers for proof of payment as they boarded the vehicle to help ensure all passengers were asked for proof of payment.
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Case Studies A-95 significant issues with fare evasion on board bus and streetcar, when it does occur, vehicle operators are encouraged to report the fare dispute to dispatch. In particularly challenging situations or for known repeat offenders, the vehicle operator may ask that a transit supervisor be dispatched to help resolve the issue.
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A-96 Measuring and Managing Fare Evasion The Rapid (Interurban Transit Partnership) , Grand Rapids, MI Overview of Agency The Rapid operates bus and BRT services.
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Case Studies A-97 Fare Enforcement Officer Deployment and Procedures The overall objective of fare enforcement is to deter fare evasion, and each FEO interprets that for their own approach to fare enforcement. The Rapid gives the FEOs considerable discretion in how they work, and each FEO develops their own approach to deployment and inspection.
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A-98 Measuring and Managing Fare Evasion Passengers without proof of payment do not receive a citation or any other written materials while on board the vehicle. The reason for tracking fare evasion contacts and issuing citations after the encounter is twofold.
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Case Studies A-99 along the corridor. During these efforts, many passengers have commented that the observable presence of fare enforcement makes them feel safer and provides a "visual cue of authority." The Rapid has even heard this positive perception from immigrant communities, even though these communities are especially sensitive to the presence of uniformed law enforcement, in particular ICE agents.
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A-100 Measuring and Managing Fare Evasion TransLink (South Coast British Columbia Transportation Authority) , Vancouver, British Columbia Overview of Agency TransLink operates bus, limited stop rapid bus, medium capacity rail, commuter rail, and ferry services.
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Case Studies A-101 TransLink's commuter rail system is largely open platform with card readers on the platforms. Prior to boarding the train, passengers must tap their Compass electronic fare media, contactless credit card, or mobile device with NFC payment.
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A-102 Measuring and Managing Fare Evasion focus on directly observed evasion at the fare gates to avoid perceptions of targeting or bias toward specific passengers. On commuter rail, transit police will generally perform fare checks at the gate line at Waterfront station, because the vast majority of journeys originate/terminate at that single station.
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Case Studies A-103 sampling plan was an appropriate size to yield statistically valid results across modes, days of the week, and times of day. The initial focus of the pilot was to identify easily observable instances of fare evasion, including fare gate jumping, passengers closely following each other through the fare gates, and zero payment on buses.
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A-104 Measuring and Managing Fare Evasion TriMet (Tri-County Metropolitan Transportation District of Oregon) , Portland, OR Overview of Agency TriMet provides bus, light rail, and commuter rail service.
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Case Studies A-105 Fare Enforcement Personnel -- Types and Responsibilities Bus operators serve as "fare informers" and instruct passengers to validate their fare using the Hop validator upon boarding. The bus operator console alerts the operator when someone boards with a reduced fare and specifies the type (e.g., "Honored Citizen," youth)
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A-106 Measuring and Managing Fare Evasion helped spur TriMet to begin regrowing its dedicated fare enforcement program in the last few years. Today, fare enforcement is primarily focused on its bus and rail services and at transit centers.
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Case Studies A-107 TriMet also uses contracted, unarmed TSOs to patrol the system, providing a security presence. They are not able to issue citations or exclusions but do try to verbally enforce TriMet Code.
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A-108 Measuring and Managing Fare Evasion between enforcement and safety, and the idea that greater TriMet presence on the system means that passengers will have a more pleasant, safer experience. Fare Enforcement Personnel -- Training TriMet has recently worked to expand and enhance its training programs for fare enforcement personnel.
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Case Studies A-109 Fare Enforcement Personnel -- Deployment Strategies TriMet does not have a target inspection rate. The goal instead is to conduct as many inspections as possible, as the agency believes this strategy provides the greatest impact.
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A-110 Measuring and Managing Fare Evasion doors and working toward the ends; or (3) inspecting those near to the doors working toward the middle.
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Case Studies A-111 Warnings are documented in TriMet's citation system so that fare inspectors can see any previously issued warnings for a specific individual. Prior warnings can play a role in a fare inspector's decision as to whether the passenger should be issued a citation.
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A-112 Measuring and Managing Fare Evasion TriMet is exploring next-generation fare inspection devices that would allow the agency to reduce the number of devices fare inspectors are required to carry. TriMet is also hoping that the next generation of inspection devices will allow the fare inspectors to see more detailed transaction information so they can make more informed decisions.
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Case Studies A-113 If the citation has not been resolved within 90 days of issuance, TriMet's citation system automatically sends the ticket to the court system. Fare evasion citations that make it to the court system are subject to the presumptive fine of $175 up to the maximum fine of $250.
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From page 336... ...
A-114 Measuring and Managing Fare Evasion Customer Perception and Engagement Different members of the public feel differently about fare evasion and fare inspection. Although there is a vocal part of the population that supports nothing short of a fare-free system, TriMet receives several customer comments every day asking for more fare enforcement.
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From page 337... ...
Case Studies A-115 Longer-range recommendations include using technology, such as a smartphone app with real-time reporting functionality, to support passengers and employees, maintaining and upgrading system infrastructure with features like improved lighting to create safer and more welcoming environments, and improving communication, accountability, and reporting on safety and security initiatives. TriMet plans to implement the recommendations over the short, medium, and long term.
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From page 338... ...
A-116 Measuring and Managing Fare Evasion open, "honor system" design. In the third more recent case that occurred in Multnomah County (State of Oregon v.
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From page 339... ...
Case Studies A-117 Overview of Agency TTC operates bus, subway, and streetcar services. Fare Collection Overview On bus and streetcar, passengers pay on board.
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From page 340... ...
A-118 Measuring and Managing Fare Evasion the TTC system and to issue warnings and citations. In addition to fare inspectors and special constables, other TTC uniformed staff (e.g., station agents and station supervisors)
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From page 341... ...
Case Studies A-119 there is significant coordination between the departments. The Revenue Protection Department develops the deployment plans for fare enforcement and directs special constables on where to focus efforts.
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From page 342... ...
A-120 Measuring and Managing Fare Evasion The Special Constable Training Program and Field Training Program is longer. The classroom training program is 8 weeks with additional training at the City of Toronto Police College.
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From page 343... ...
Case Studies A-121 Streetcar Deployment Streetcars have all-door boarding and operate as proof-of-payment environments. Fare enforcement on streetcars is conducted by fare inspectors and special constables.
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From page 344... ...
Source: TTC Revenue Protection Strategy, Presentation to TTC Board, February 25, 2020. Figure A-6.
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From page 345... ...
Case Studies A-123 Subway Deployment TTC's subway system is gated. TTC uses various staff to assist with monitoring the fare line.
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From page 346... ...
A-124 Measuring and Managing Fare Evasion doors, enabling all-door boarding and promoting social distancing. All TTC buses are equipped with PRESTO validators at all doors.
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From page 347... ...
Case Studies A-125 Part I Notices Part I infractions are subject to a set fine amount, to which the Province of Ontario adds a victim fine surcharge that is not specific to fare evasion. The victim fine surcharge, which is typically 20% of the set fine, is deposited into a special fund to help victims of crime.
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From page 348... ...
A-126 Measuring and Managing Fare Evasion Misuse of a Child PRESTO card accounted for 13% of the fare evasion matters within the court system in 2019. Although there is not a specific offense for the misuse of a Child PRESTO card, 2.3a Invalid Fare Media is commonly used to issue a ticket for this type of fare evasion.
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From page 349... ...
Case Studies A-127 false pretense or fraud, unlawfully obtains transportation by land, water or air is guilty of an offense punishable on summary conviction." The offense carries a maximum penalty of up to 6 months in jail and a criminal record. As with any fraud-related offense, which is a crime of dishonesty, it can have a severe, permanent negative impact on a person's reputation, travel, and employment opportunities.
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From page 350... ...
A-128 Measuring and Managing Fare Evasion As noted earlier, revenue protection personnel are consistently deployed to the same times, lines, and zones, providing an opportunity for fare inspectors and special constables to get to know TTC customers. This also provides an opportunity to identify passengers who continually fare evade and to progress from education to warnings to citations, when appropriate.
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From page 351... ...
Case Studies A-129 TTC's contract with Metrolinx and the completeness of PRESTO revenue transaction data. TTC accepted the recommendations of the City of Toronto Auditor General and continues to implement the recommendations.
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From page 352... ...
A-130 Measuring and Managing Fare Evasion Special constables only issued warnings to maximize the number of observations for the study. However, a zero-tolerance approach (i.e., issued ticket instead of warning)
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From page 353... ...
Case Studies A-131 Anti-Racism Strategy and Racial Equity Impact Assessment The TTC is committed to promoting and supporting diversity and inclusion and is actively responding to concerns that have been raised regarding racial profiling, anti-Black racism and racial inequities, including the performance of fare enforcement by special constables and fare inspectors. TTC is actively engaging with the City of Toronto's Indigenous Affairs Office and CABR Unit, racialized communities, legislative authorities, and other experts and leaders in addressing systemic racism.
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From page 354... ...
A-132 Measuring and Managing Fare Evasion Experts from the University of Toronto will be conducting information sessions, focus groups, public town halls, and surveys to enable the public and community groups to share their experiences with special constables and fare inspectors. Community engagement provides an opportunity to obtain input with respect to race/ethnicity-based data collection and ideas to eliminate bias and improve community relations.
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From page 355... ...
Case Studies A-133 include pulling video from the vehicle if a complaint is filed within 72 hours. Although all complaints related to fare inspectors and special constables will be initially received by the Unit Complaints Office, complaints that involve the misconduct of a special constable are sent to the Toronto Police Services division for review in accordance with the requirements under TTC's Special Constable Agreement.
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From page 356... ...
A-134 Measuring and Managing Fare Evasion Stations Fare Line Controls In 2019, TTC implemented a number of initiatives to better control fare lines. This was achieved through enhancements to fare gate software and hardware (e.g., gates close faster to reduce tailgating)
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From page 357... ...
Case Studies A-135 These campaigns have ranged from encouraging fare payment to shaming fare evaders. In response to the marketing campaigns, TTC has received varied feedback from customers.
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From page 358... ...
A-136 Measuring and Managing Fare Evasion Valley Metro, Phoenix, AZ Overview of Agency Valley Metro is the regional public transportation agency that provides and coordinates multimodal transit options in the Greater Phoenix region, including fixed-route bus, light rail, and alternative transportation programs for commuters, seniors, and people with disabilities. Fare Collection Overview On local, express, and RAPID bus services, fares are collected on board at fareboxes.
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From page 359... ...
Case Studies A-137 in teams of two to perform fare inspections, with a goal of providing as much coverage of the system as possible. Security officers provide coverage during Valley Metro Rail service hours and extend coverage to nonoperating hours to patrol stations and infrastructure.
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From page 360... ...
A-138 Measuring and Managing Fare Evasion Valley Metro is having conversations about how it might leverage a new fare collection system to help address fare evasion, especially misuse of reduced fares, although implementation of the new system is still several years away. Evolution of Fare Enforcement Responsibilities The initial segment of Valley Metro light rail served 28 stations in Phoenix, Tempe, and Mesa, with those three jurisdictions sharing the operating costs.
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From page 361... ...
Case Studies A-139 working in one of the five fare zones would secure a station platform by checking everyone on the platform for proof of payment. They would then do a cursory inspection for code of conduct violations on the next two trains arriving at the station, each time returning to the station platform to check the fares of any new arrivals.
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From page 362... ...
A-140 Measuring and Managing Fare Evasion Fare Inspection Process, Tracking, Citations, and Penalties Security officers are usually deployed in teams of two to conduct fare inspections on light rail vehicles. Normally, security officers board separate cars of a train, announce that they are going to do a fare inspection, and ask everyone to get out their passes.
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From page 363... ...
Case Studies A-141 is not required to ride public transit) and cannot be properly identified, and a police officer is not available, a warning may be given.
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From page 364... ...
A-142 Measuring and Managing Fare Evasion no fare at all. Staff 's main concern is passengers who purchase reduced fares that they are not eligible to use, as noted in the discussion of compliance issues below.
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From page 365... ...
Case Studies A-143 required to check eligibility as passengers board. Valley Metro's security contract requires security officers to check for eligibility as they conduct fare inspections on rail.
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From page 366... ...
A-144 Measuring and Managing Fare Evasion to tap is much more difficult on light rail than on bus because light rail passengers do not interact with an operator. Some passengers think of their passes as flash passes that only need to be visually displayed, not tapped.
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From page 367... ...
Case Studies A-145 of reduced fares at TVMs and retail outlets to control fraudulent purchase and use of reduced fares, whether intentional or unintentional. As part of this new fare system, Valley Metro is also interested in consolidating the number of devices security officers must carry to perform their duties.
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From page 368... ...
A-146 Measuring and Managing Fare Evasion Washington Metropolitan Area Transit Authority (WMATA) , Washington, DC Overview of Agency WMATA operates bus, BRT, and heavy rail service in Washington, DC, and the surrounding counties and cities in Maryland and Virginia.
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From page 369... ...
Case Studies A-147 police officers to provide safety and security, not for fare enforcement. WMATA does not contract with local law enforcement.
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From page 370... ...
A-148 Measuring and Managing Fare Evasion requests proof of ID and then conducts an NCIC check for any outstanding warrants, missing persons reports, etc. prior to issuing a citation.
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From page 371... ...
Case Studies A-149 processes and fine schedules. These complexities limit WMATA's ability to issue citations electronically.
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From page 372... ...
A-150 Measuring and Managing Fare Evasion quarterly and annual reports for the WMATA Board of Directors on the number of citations and arrests. The reports focus on the number of occurrences, with actual evasion rates provided only for bus.
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