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State of Florida 5 & 20 year transportation disadvantaged plan


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State of Florida 5 & 20 year transportation disadvantaged plan
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State of Florida five and twenty year transportation disadvantaged plan
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1 online resource (vi, 33 p.) : ill. ;
Florida -- Commission for the Transportation Disadvantaged
University of South Florida -- Center for Urban Transportation Research
University of South Florida, Center for Urban Transportation Research
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People with disabilities -- Transportation -- Florida   ( lcsh )
Older people -- Transportation -- Florida   ( lcsh )
Urban transportation -- Planning -- Florida   ( lcsh )
government publication (state, provincial, terriorial, dependent)   ( marcgt )
non-fiction   ( marcgt )


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by the Center for Urban Transportation Research, University of South Florida, College of Engineering.
General Note:
"Prepared for the Florida Commission for the Transportation Disadvantaged."
General Note:
"June 1997."

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oclc - 753021857
usfldc doi - C01-00390
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State of Florida 5 & 20 Year Transportation Disadvantaged Plan June 1997 Prepared for the Florida Commission for the Transportation Disadvantaged By the Center for Urban Transportation Research University of South Florida College of Engineering


State of Florida 5 &. 20 Year Transportation Disadvantaged Plan June 1997 Preparation of this report was funded by a grant from t he Florida Commission for the Transportation Disadvantaged FCTD Project Managers: jo Ann Hutchinson, Execut iv e Director Dene Dixon, Assistant Executive Director F l orida Commission for the Transportation Disadvantaged 605 Suwannee Stree t MS-49 Tallahassee, Florida 32399 (850) 488-6036 CUTR Project Team: Rosemary G. Mathias, Program Director jennifer A. Hardin, Res earch Associate Steven E. Maas, Research Associate Center for Urban Transportation Research University of South Florida College o f Engineering 4202 E. Fowler A v enue, CU T 100 Tampa, Florida 33620 (813) 974-3120


The Florida Commission for the Transporta tion Disadvantaged (FCTO) is ma n dated by Chapter 427, Florida Statutes, to oversee the coordination of t ransportation disadvantaged (TO) services in the sta t e of Florida. By statute, the Conunission is required to prepare a five-year plan to guide its coordina t ion efforts. The previous plan was adopted in 1992 This plan will replace the 1992 plan, and also serve as a long-range planning document as the TO P rogram prepares to move into the 21" century The new State of Florida 5 & 20 Year Transportation Disadvantaged Plan includes several ele ments, beg i nning with an introduction and overview of the Florida Coordinated T ra ns por tation System The overview includes projections of the number of persons eligib l e or potentially elig ibl e for TO service, as well as projections of the unme t demand for TO trips. Thi s plan also repor t s on the C ommi s sion's progress toward meeting the goals obje c tives and action pla n developed in the 1992 Florida FiveYear Transportati011 Disadvantaged Plan. It includes a review of the findings of the Florida Office of Program P lannin g and Go v ernment Accountability (OPPAGA), which reviewed the FCTD in 1 996. Next, the plan includes a d esc ri ption of the vis ion s ta tements adopted by the Commission for the five-year and long-term (20-year) plan ni n g ho ri zons. This section also includes a new set of go a ls and objectives, designed to mea sure the accomplishment s of the TO Program over the next five years. Executive Summary I Finally, this document includes an action plan. The actio n p lan is divided i n t o immediate actions, actions to be comp l eted i n the next five years, and actions to be completed over the long t erm. The act ion plan suggests ways in which the FCTO will be able to propel itself into the 21" Century. The action plan includes a variety of solutions using state-of-the -art technologies aimed at improving TO ser vices. Much has been accomplished in the p ast 18 years since coo r d ina ted trans port ation first began under the Florida Coordinating Council for the Transportation Disadvan taged; how ever, much re m ains to be done. More funds are n e eded to meet the unmet demand for TO tri ps More creative solutions a r e n eeded to increase system efficiency and effectiveness wit h ex i s ting resources. The TO Program i s poised a t the cus p of a new ge nera tion of affordable technologies, de s i gned to improve accountability, and enhance operating and reporting capabili t ies. The new vision sta t ements include an asser t ion of the benef i ts of incorporating Advanced Publi c Transportation Systems (APTS) technologies in t o the T O Program Like many other o r ganizations, the FCTD looks forwar d t o the next century, optimistic t hat one day its v i sion will be realized and mobility will be poss i ble for all perso n s who are tra nsportation disadvantaged. Sta t e of F l orida 5 & 20 Year 'l'r.UlS-port.1.ti<.ln Oi.SAdvMtaged Plan


I FCTD Commissioners I ;, FCTD Commissioners as of June 1997 Representing Elderly Persons Citizens Advocate (Rural) Citi zens Advocate (Urban) Disabled Persons Early Childhood Council Association for Community Action Community Transportation Coordinators Florida Transit Association Transportation Operators NonTransportation Business Community Agency for Hea lth Care Administration Dept. of Children and Families Dept. of Education Dept. of Elder Affairs Dept. of Labor and Employment Security Dept. of Transportation Dept. of Veterans Affairs Designee John Zimmerman, ChairF erson Peter Gianino, Vice Chair lerson Marilyn Baldwin DonWedewer Budd Bell Michael Georgini Boyd Thompson Ken Fischer Linda Adams NickCambas Ben Early Philip Morgaman Rober t A. Rob" Searcy Vacant John Barry Anthony Gonzalo Tim F Ireland Daniel R. Murphy, Sr. Robert Siedlecki Bill T Smith Maureen Hemrnerly Diana lincoln Bob Ballard Joyce Williams Tom DeLilla Ed Coven Frank Charles Buxton State of Florida S & 20 Yc:"r fr.m$porto1.ti0n Pl.aJl


Table of Contents I Exec ut ive Sununary . ............................................................ 111 FCTD Commissioners .................................. ... ........................ iv Introduction ............. ...... . ......................... ......................... 1 Florida Coordinated Transportation System ......... ..................... ............ 3 Five-Year Report Card .............................................................. 9 OPPAGA Review & Response ................. ..................................... 17 Our Commitment: Mobility ............. .................. ......................... 25 Action Plan ..................... .......... . . . . . .... . ......... ........ .... 31 State o f Florida 5 & 20 Year Transportation Dis;:tdvanta.gcd. Plan v


' ) SENIOR FRIENDSHIP CENTERS ... . .. : v i State of Florid. '\ 5 & 20 Year Transportation Disadvantaged P1an


I This State of Florida 5 & 20 Year Transportal tion Disadvantaged Plan was prepared in accordance with Chap ter 427, Florida Statutes, which requires the Florida Commission for the Transportation Disadvantaged (FCTD) to complete a five year plan for the statewide Transportation Disadvantaged (TD) Program This updated plan r eplaces an earlier five-year plan, published in 1992. The 1997 plan sets forth the FCTD' s goals and objectives for the delivery of t ra nsportation service to persons who are transportation disadvantaged. Strategies to meet the objec tives and achieve the goals are proposed. These strategies form the basis of an action plan, which FCID staff will use to develop an annual work plan. As required by Chapter 427.013, F .S., the fiv e year plan is coordinated with the Florida Department of Transportation's (FDOT' s) 2020 Florida Transportation Plan, local transit plans, and comprehensive plans. The intent of t he plan is to ensure that the most cost-effective and efficient method of p r oviding TO trans portation is programmed for development, taking advantage of the best available manage ment practices and technological innovations. Beyond planning for the five year time hori zon, this plan also considers the long-term development of the TO Program, looking ahead to 2015. Toward that end, the Commis sion adopted both five -year and long-range strategic visions for the statewide T O Program. This report is divided in t o five parts. The first-Florida Coordinated Tran s portation System-provides an overview of the TD Program, and describes the evolution of the Introduction I Commission and the roles of various players involved in the Florida Coordinated Transpor tation System (FCTS). The second part-Five-Year Report Cardincludes a review of how well the FCTD has achieved its goals in the past five years. The third part-OPPAGA Review-describes t he review conducted in 1996 by the Florida Office of Program Policy Analysis and Govern ment Accountability (OPPAGA) and resulting actions undertaken by the FCTD in response to that report. The fourth part-Our Commitment: Mobil ity-descr ibes the TO Program's goals, objec tives, and measures for TO coordination over the next five years. The final part-Action Plandescribes action i t ems to be undertaken to attain the stated visions for the FCTD in the immediate future, in subsequent years, and in the long-term Information for this plan was drawn from published reports including the 1996 Annual Performance Report, published by the Commis sion; Population mul" Demand Forecasts 19962015, prepared by the Center for Urban Trans portation Research; and other documents provided by the FCTD staff and consultants. In-depth interviews were conducted with many FCTD s taff members and Commission ers throughout preparation of this plan. Draft vision statements, goals, objectives, and mea sures were presented for public review and comment at several workshops and regional meetings. Stale of Florida 5 & 20 Year Transportation Disad\'antaged Plan 1


2 --.. -of Florid ., S & 20 YciU' Pla n


Florida Coordinated T ransportation System System Overview The Florida Coordinated Transportation I System serves two population groupsthe Potential TO Populntion (Ca t egory I) and the TO Population (Category II). The Potential TD Population includes persons who are elderly, disabled, or low -i ncome. The TD Population (a subset of the Potential TO Populatwn) includes only those persons who are transportation disadvantaged (including children at-risk) according to TD Program eligibility guidelines. Popula t ion Projection s Cat e g o r y 1996 2001 2015 Potent i al TO 5.52 6.07 8.25 Pop ulation mill i on million million (Category I) TO Population 1.19 1.31 1.75 (Category II) million million million Source: CUTR, Population and Demand Forecasts 1996-2015, 1996. Chapter 427 011, F.S., defines transportation disadvantaged as: T110se persons wlw becallse of physical or men tal disalrility, income status or age are unable to transport themselves or to purdmse trans portatWn and are, therefore, dependent upon others to obtain access to llealtlt care, employ mertt, eduCJ!tion, shopping, social activities, or other lifesu s taining activities, or children who are handicapped or high-risk or at-risk as defined in s. 411.202. Specialized transportation for persons who are transportation disadvantaged is generally referred to as paratransit or demand-respon sive service. These services provide origint o destination service on demand o r on a sub scription basis. Specialized transportation services are pro vided with a variety of vehicle types i n cluding automooiles, minivans, lift-equ ipped and standard vans, and small and large transit buses In some cases, school buses are used to transport TO-eligible persons when not trans porting students. Over time, Florida's 19 u rban fixed-route transit agencies have become an integral part of the coordinated system. By taking advan t age of existing fixed-route services through bus pass and ticket programs, community transportation coordinators (CTCs) are able to off e r more trips at a lower cost per trip. This practice is in keeping with the CTCs' mandat e to arrange for or provide the most cost-effec tive transportation services Trip Types There are two types of TD trips: program trips and general trips. Program trips are made by clients of social service agencies for the purpose of participat ing in programs of the agencies. Two examples of program trips are trips to congrega t e meals and Medicaid nonemergency transportation. Members of both TD population groups are


eligible for program trips The number of program trips varies directly with the amount of agency funding available for transportation. General trips are made by persons who are trans portation disadvantaged to destinations of their cho ice, not to agency programs. Exam ples of general trips are trips to work, grocery stores, and non-Medicaid medical trips. These trips may be funded by the TD Trust Fund. Only persons in the TD Population are eligible for general trips purchased through the TD Trust Fund. The number of general trips is limited by the amount of funding available locally, from the TD Trust Fund, fares, donations or other sources. The demand for gene ral trips far exceeds the supply. The projected total suppl y of trips includes trips provided t hrough the FCTD as well as trips provided by non-coordinated operators outside the TO Program. It is estimated that TD coordi nated trips account for 75% of the total trips supplied. Demand, Supply & Unmet Demand Projections 1996 2001 2015 Total 49.2 53.0 66.6 Demand million million million for Trips Total Supply 39.0 41.7 50.9 of Trips million million million Unmet 10.2 11.3 15.7 Demand million million million Source: CUTR, Population and Demand Forecasts 1996-2015, 1996. In addition to program and general trips, within the TO Program trips are commonly referred to as being either sponsored or non sponsored. These terms should not be con fused with program trips and general trips Spo11sored trips are subsidized by social ser vice agencies; IIOtz-sponsoretl trips are subsi dized by the TO Trust Fund. The terms, "program" and "general" refer to the purpose of a trip (i.e., trips to an agency program or to a destination of the person's choice). By definition, aU program trips are sponsored because they are trips funded by social service agencies for transportation to agency programs. General trips can be spon sored or non-sponsored. Florida Commission for the Transportation Disadvantaged In 1979, the Florida Legislature created the Coordinating Council for the Transportation Disadvantaged, part of the Florida Department of T ra nsportation (FOOT) The Coordinating Council was given responsibility for coordinat ing transportation disadvantaged services tluoughout the state. Ten years later, in 1989, the Coordinating Council was elevated to an independent com mission (called the Transportation Disadvan taged Commission), reporting directly to the Governor and the Legislature. The 1989 legislation also provided the Com mission with a dedica te d source of funding, which is deposited into the TO Trust Fund. The TO Trust Fund may be used for adminis trative activities, to subsidize trips, and as capital for transportatio n servi ces provided for persons who are transportation disadvantaged and not otherwise funded. Florida was the first state in the country to combine a dedicated funding source with independent commission level status. Now known as the Florida Commission for the Transportation Disadvantaged, the FCTD is responsible for addressing the mobility n eeds 4 State of Florida 5 & 20 Year Transportation Di.sad\,mt.lgOO Plan


of Florida's TD population to ensure these persons can access essential services. Further the FCI"D is charged with ensuring the ooordifLORIDA COMMISSION FOR THE Transportation Disadvantaged nation and delivery of TD transpor tation services are provided in a non-duplicated and cost-effective manner throughout the state The Commiss ion is composed of 27 members, representing state agencies that purchase transportation for their clients, FOOT, the Florida Association for Community Action, the F lorid a Trans it Associati on, citi ze n advocates, transportation providers, non-transportation business community representatives, and a representative of the community transpo rta tion coordinators. As specified in Chapter 427.013, F.S., the Com mission is responsible for developing a five year plan and es t ablishing state wide TD Pro gram objectives; assistin g comm unities in establishing coordinated tran spo rtation sys tems; and dev eloping standards covering the coordination, operation, costs, and use o f TD services. The FCfD also reviews and approves memorandums of agreem ent with agencies that provide coordinated services locally. Additiona lly, the Commi ss ion is r e sponsible for assur ing that state agenci es purchase all clien ts' trips from coordin ated s ystem opera tors, unless they can identif y a more costeffective provider or the coordina ted system cannot provi d e the needed service. Statewide Coordination Coordination of TD services i s accomplished through a local network of Commi ssio n--approved offi cia l planning agencies (OPAs), CTC s, local coordinating boards (LCBs ), and transportation operators. OP As arc usua ll y metropolitan planning organi za tions (or county planning units) or regional p l an ning councils, designated by the Co mmission. OPAs arc respo nsible for recomm e nding agencies to serve as local CTCs The p l anning agencies also appoint and s taff LCBs. CTCs are r espo nsible for coord inating TD services within their local service areas (a county or m u lti county area). A CTC may be a government entity, a trans i t agency, private notfor-profit agency, or a fo r-p rofit comp any. Operationally a CTC may be a sole so urce provider or it may broker part or all of the trips to another tran spor tation operator or provid er. CTCs may negotiate coordination contracts with o ther trans portation prov iders; however CTCs are ultimately responsible for ensuring that TD transportatio n serv i ces are coordina ted locally. For exampl e, a CTC m ay negotiate a coordination contract with an agency that receives TD fund s and perfonns some or all of its own transportation services, as well as transp ortatio n servi ces to others, when s hown to be mor e effec tive and more efficient from a total system perspective The LCB includes representatives appointed by the local official p l anning agency to provide assistance to the CTC relative t o the coordination of TD services. A local elected official chairs the LCB The LCB evaluates the local ere ann ually Tbe LCD al so ap points a grievance committee to medi ate if a complaint from an ag e n c y operato r o r citi zen esca lates to the grievance stage 5


6 Florida Coordinated Transportation System Provides Transportation to Disadvantaged Individuals STATE LEVEL Commission for the St

Summary Considerable progress has been made since 1979, when the Coordinating Council for the Transportation Disadvantaged was crea ted as part of FOOT. Since then, the Coun.cil has evolved into an independent, state-level Com mission, empowered to oversee the provision of TO serv i ces under Chapter 427, F.S. The Commission is supported at the local level by a network of community transportation coordinators, official planning agencies, and local coordinating boards, which function together to ensure that Floridians who are transportation disadvantaged receive needed services. Current l y, al l 67 count ies are in cluded in the coordinated system. Creation of the TO Trust Fund further en hanced the visibility and power of the Com mission. The TO Trust Fund also enhances the ability of CTCS to coordinate services locally and provides much needed revenue for CTCs, which are struggling to provide trips to persons who are dependent on their services. The next section is an update on how well the FCTD has accomplished the goals, objectives, and action plan i t set forth in 1992. Stat (If Florida S & 20 Year Transport ation Disadvantaged Plan 7


8 Stolte of F lorida 5 &: 20 Ye-ar Transporta l ion PL'\.1:1


I Five-Year Report Car d I 1992 Five-Year TD Plan In 1992, the Commission adopted the Florida Hve-Year Transportation Disadvantaged Plan which was prepared in accordance with requirements of Chapter 427, F.S. The 1992 plan set forth goals, objectives, and an action plan for the FCfD. The action plan and the rest of the five-year plan are part of a dynamic, continuing planning process for the Commis sion that includes performance reviews of community transportation coordinators, offi cial planning agencies, and the Commission itself. Th i s section of the 1997 State of Florida 5 & 20 Year Transportation Disadvantaged l'lan serves as a summary report card for the Commission to describe how well the TD Progr a m h as met its stated goals an d objectives, as well as accom plishments rela t ed to the five-year action plan prepared in 1992. Most of the materials for this section were drawn from the 1995 and 199qAnnual Perfor mance ]{eports, prepared by FCTD staff. Those reports include a state-level TD Program profi le, as well as county-level statistics. The 1996 Annual Performance Report also shows an impressive list of accomplishments during 1996, organized by statutory requirements. Additionalinformation was gathered from the Statewide Operations Report Fiscal Years 1990/91 and 1991/92. Updated population and trip demand esti mates were prepared in 1996, as part of this p l anning process. Those figures are available in the report titled, Populiltion and Demand Forecasts 1996-2015, prepared by CUTR for the FCTD. In addition, during 19%, the FCTD was for mally reviewed by the Florida Office of Pro gram Policy Analysis and Government Ac countability. The results of that review are included in the next section (see OPP AGA Review). 1992 Goals & Objectives The 1992 goals and objectives were devel1 oped after a 1991 review by the Florida Office of the Auditor General. That review included a recommendation for the Commis sion to: "Deve lop measurable objectives and reporting processes that would allow (the Commission) t o assess Program performance." The goals and objectives deve loped in 1992 form the basis for the Annual Performance Reports and Statewide Operations Reports. The Commission adopted five goals in 1992: Ensure availability of service to the transportation disadvantaged. Ensure that service i s delivered in the most effective and efficient manner. Ensure that quality serv i ce is attained. Ensure necessary funding to support the TD Program. Ensure program accountability. Nearly a hundred strategies were developed for achieving the 1992 goals and objectives. In preparation for this report, FCfD and CUTR s t aff reviewed each strategy. Included here is a general account of how well the FCfD fared over the past five years. State of Flo.rida 5 & 20 Year Tran!lportalion Disadvantaged Plan 9


For this section, many comparisons were made using data for the base year (FY 1992) and the most recently reported year (FY 1996). Although some of the information reported for FY 1992 may not be as reliable as FY 1996 data, it is the best available data for comparative purposes. This cautionary note reflects a common s itua tion for many programs as data collection and reporting techruques tend to evo lve and improve over time. The data comparison does reflect the level of improvement from FY 1992 to FY 1996, and demonstrates how much progress has been made over the five year period. Goal 1: Availability of Services Goal1 describes the leve l of service available to passengers participating in the coordinated system, whether funded by the T D Trust Fund, a state purchasing agency, local entity or other funding source OveralL the FCTD has done a good job of ensuring that services are avaHable by aggres sively wor king to increase the TD Trus t Fund allocation and ensuring that all counties in the state are under coordination plans. Fifty-four CTCs now compris e the Florida Coordinated Transportat ion System, covering all 67 coun ties. More than 750,000 individuals were provided transportation in FY 1996. By definition, TO passengers include senior citizens, persons w ith disabilities, children at-risk, and persons with low incom es. In FY 1996, seniors made up nearly 44% of the passengers, children ac counted for 20%, low-income reside n ts 18%, persons with disabilities 14%, and others 5%. In FY 1996, the number of oneway trip s p r ovided t hrough the coo rdinate d system had grown to 30,777,574, up 193% from FY 1992. Of the trips provided in FY 1996, almost 12% were funded through the TD Trust Fund. System Characteristics FY 1992 FY 0/o Measure 1996 Change cres 48 54 13% Counties* 65 67 3% Transpo r -N/R 441 N/A tatio n Operators Passengers N/R 750,971 N/A Served T otal Trips 10.5 30.8 193% million million Vehicle 49.8 110.5 122% M iles million million Operating $69.2 $165.9 140% Revenues million million Operating $70.0 $171.2 145% Expenses million million *FY 1992 does not include data for Monroe and Sumter counties; FY 1996 does not include data for Monroe County. N/R = not reported N/ A = not applicable Sources: CUTR, Statewide Operations Report Fiscal Years 1990/91 and 1991/92; FCTD, Annual Performance Report 1996. In FY 1996, mos t trips were for medical ap pointments (41 %) or educa tion and training (24%) Although the number of employment trips increased by 100% during tha t tim e, in FY 1996, they only accounted fo r 8% of trips overall. Nutrition site trips increased by 50%, while shopping trips decreased by 55% during the same time period. A more dramatic shift in trip purposes occurred between FY !995 and FY 1996, when medical trips increased from 27% to 41% of all trips. During the same two-year period, employment trips decreased by more than 50%. Shopping, and educa tion and 10 State of Flor id,, 5 & 20 Year Transportation Dtsadvant<1ged Pl.ut


training trips, also decreased slightly from FY 1995 to FY 1996. Tr i e Pure o s e FY FY "'o Category 1992 1996 Chan g e Medical 38% 41% 8% Education and 19% 24% 26% Training Nutrition 8% 12% 50% Employment 4% 8% 100% Shopping 9% 5% -55% Othe r 32% 10% -31% Sources: CUTR, Statewide Operations Report Fiscal Years 1990/91 and 1991/92; FCTD, Annull/ Performance Report 1996. These percentage shifts between FY 1995 and FY 1996 may reflect the effect of Medicaid funding cuts, which appear to have increased the demand for medical trips provided by the TD Trust Fund and other local sources. As n result, medical trips, which are almost always the highest priority for CTCs, may be supplanting trips witltlo wer priori ties (e.g., emp l oyment, shopping and other trips). Paratransit service has been the mainstay of the ID Program.lo FY 1996, paratransit (demand-response and advancedreservation) trips represented 56% of the one-way trips; fixed-route service accounted for 42% of the trips, of which 86% were fixed-route trips made i n Dade County. G r eater use of fixed-rout e services in urban areas, where available and appropriate, has resulted io cost savings on a system-wide basis as these trips are less expensive than door-to-door paratransit trips It also has resulted io iocreascd overall system capacity. In fact, the FCID now requires potential TD customers to demonstrat e why they cannot use fixed-route service if that service is available to them locally Goal 2 : Efficiency and Effective n e s s I mproving the efficiency of services can lead to an increase in the supply of services because r esources are being used more eco nomically. Improving the effectiveness of service can lead to an improvement in overall service quality as resources are being used more appropriately to meet the needs of passengers and other consumers of the service. Data used to measure accomplishment of this set of goals and objectives relate to servic e statistics, such as operating cost per passenger trip, operating cost per vehicle mile, passenger trips per vehicle mile, and others. Most perfor mance measures have shown improvement for the TD Program. Although the operating expenses per vehicle mile increased over time, some amount of increase is normal and a result of inflation and/ or the cos t o f increased perf ormance requirements At the same time, the average operating expense per passenger trip de creased as more trips were provided on a shared-ride basis or on fixed-route service The dramatic effect of the inclusion of fixed route trips can be seen when comparing the difference between the operating expense per passenger trip (including all modes) with the operating expens e per paratransit trip. Anotl1er factor contributin g to increase d effi ciency and effectiveness is the amount of expertise provided by FCTD staff in assisting local entities with coordination issues. During the pas t four years, the Quality Assurance and Program Evaluation Team has conducted a review of every ere, and has initiated a second round of evaluations.


Performance Measures FY FY Ofo Measure 1992 1996 Change Avg. Vehi cle 11.3 20.0 77% Miles I TO Ca-pita Avg. Total .17 .28 65% Trips I Vehicle Mile Percen t Fixed 22.5% 42.4% 88% Route Trips are of Total Tri ps Avg. Operating $1.08 $1.55 44% Expense I Vehicle Mile Avg. Operating NIR $9.65 NIA Expense 1 . ............ Parat r ansit Trip Avg. Ope r a ting $6.67 $5.56 -17% Expense 1 Passenge r Trip TO Popul ation 10.7% 13.6% 27% Served a s % of Potent i a l TO Population NIR = not repo rte d Nl A = not applicable Sources: CUTR, Statewide Operations Report Fiscal Years 1990/91 and 1991/92; FCTO, An -nual Performance Report 1996. Tra i ning p lays a key role in service e nhanc e ment. The FCTD staff has expanded its techni cal assistance and training for CTCs, OPAs, and LCBs Additionally the Commission's Technical Assistance and Training Team has developed a proac t ive action plan to assist CTCs in attaining better efficiencies and effec tiveness. Goal 3: Quality of Service Goa l 3 stresses the concep t of quality, which is close l y aligned with measures of efficie ncy and effectiveness. The FCTD e valua tes quality in a number of ways. The Evaluation Workbook for Community Tran sportation Coordinat ors and Providers, published in 1994, includes two modules designed to measure the quality of service provided locally, both in te rms of se rvice delivery characteristics and training programs. In 1994., the FCTD established a statewide Ombudsman Hotline, designed to monitor and handle complaints and questions from con sumers and advocates. The Ombudsman Hotline is managed by th e Commission's Qual it y Assurance and Program E v aluation (QAPE) Tea m During the last 12-month re porting period, more than 2,500 calls were received from cons u me rs and advoca tes re garding the TO Program, toll p ermits, and other related questions. All comp laints wer e resolved without resorting to formal grievanc e procedures. Specific quality measures incorporated into the 1992 goals and objectives pertained to acci dents and road calls. In FY 1996, ther e were 1.29 accidents per 100,000 vehicle miles, down 11% from FY 1995 During the same time, the number of vehicle miles between road calls increased by 10% to 20,452 The operating statistics associated with accidents and road calls are re l ated to training received by opera tors and mechanics. The FCTD has implemented an ongoing ag gressive training program, using the expe r tise of the University of Wisconsin-Milwaukee, t he Rural Transit Assistance Program (RTAP), CUTR, Mul ti systerns, and others. Training courses cover i ng planning and operations t opics have been offered to CTCs, planners, and LCB members. Since 1993, the FCTD has sponsored an Annual Conference. Th e t hree-day conference includes presentations on a wide variety of topics of 12 Stat e of Florida 5 & 20 Year Transportation Disadvanta ged Plan


value to CTCs, providers, OPAs, LCB mem bers, and others. Approximately 300 people attended the conference held in 19%. Further, in 1996, t he Commission developed a training module rel ating to integration of the Americans with Disabilities Act o (ADA) with the TD Program. Even though not all CTCs are covered by the ADA complementary paratransit service requirements, all CTCs must conform with the requirements of the ADA with respec t to providing equivalent service for persons with disabilities. Toward that end, the Conunission contracted with Multisystems, Inc., and its subcontractors, to provide training and technical assistance throughout the s t ate. Goal4: Funding Levels Funding plays a vital role in t he provision of TD transportation. Funding for TD trips comes from a variety of federal, state, and loca l sources From FY 1992 through FY 1996, total reported revenue increased by 1 40%. Funding Revenue FY 1992 FY 1996 % Source (millionsl (millionsl Chanse FCTD 295% FOOT/ $3.6 $12.0 233% US DOT AHCA 164% HRSLD HHS 106% DOEA 36% Local 83% Other p.7 328% Iatal S1!iS.2 Sour ces: CUTR, Statewide Operations Report Fiscal Years 1990/91 and 1991/92; FCTD, Annua/ P e rformance Report 1996. Florida was the first state in the country to have an independent state.-level c onuni ssion with a dedicated funding source to oversee coordinated transportation services. The TD Trust Fund is funded through vehicle registration fees, gas taxes, parking fees and other sources. Since its inc eption, the TD Trust Fund has provided more than 17 million one-way trips to Flor idians who are transportation disadvantaged. From FY 1995 to FY 1996, the TD Trust Fund increased by 31%, attributable, for the most part, to a $1.00 increase in the vehicle registra tionfee passed in 1994. An additional $40,000 was collec ted as of April 1997 through the voluntary vehicle registra tion checkoff. Those funds are being retumed to the lo cal area where coll ected. In FY 1997, more than $25 million was made available f rom the TD Trust Fund for direct services (trip and equipment grants, planning grants, and emergen cy grants) The FY 1998 estimated budget allocation is slightly higher than for FY > 1997. During the past two years, the Agency for Health Care Administration (AHCA), which administers the Medicaid program, placed spending cap s on CTCs and requ ired a 3% overall reduction. in expenditures and a $1.00 copay (deducted f rom the total cost of each one-way passenger trip). This actio n resulted in a 6% reduction in Medicaid revenues from FY 1995 to FY 1996, which represents the l oss of approximately $4 million in funding for trips. In FY 1997, AHCA required another 30% reduction in nonemergency Medicaid trans portation funds. The resul t s of that cut will be reflected in the 1997 Anm111l Performance Report. Goal 5: Program Accountability The FCTD has initiated a varie t y of tools to ensure program accountability. For examp le, S tate of florida S & 20 Year Transportation Oils;,tdva.otaged I'Jan 13


each year, the FcrD publishes its Annual Ptrfo nnance Report (formerly the Statewide Opemtions Report), which lists s t atistical inf or mation for the state and coun t ylevel TO Program. In addition_ the Annual Perfomtance R eport include s a description of progress the FCTD has made toward m eeting its 24 duti es mandated in Chapter 427, F.S. Th e QAPE Team also reviews and makes r ecomm endations to improve reporting prac tices at the local level. Th e Technical Assis tance and Training Team provid es additio nal lo ca l assista nce to CfCs, OPAs, and LCBs, as need ed, to ensure that TO reporting require m e nts are met with respect to the submission of TO Service Plans, M emorandums of Agree ment and othe r TO contra c t docu ments. In additio n the Commission hired an account i n g firm to review the financial records and documents of the TO Trust Fund to improve th e interna l control structur e r e lating to plan ning and trip/ equ ipment grants Procedural c hanges were made based upon the audit. The Commission will continue this effo rt by work ing t o improve accountabili ty at the local level as well. These effo rts are reported annually to the state Legislature and the Governor. 1992 Action Plan "'T'he 1992 Action Plan was divide d into three I stages: (1) actions during the first year, (2) actions during subsequent years, and (3) ac tions to be undertaken as funds and staffing permit. Symbols arc used to denote to what extent the actions were accomplish ed: t1 comp lete ongoing 14 -t = pending It = no action Actions During the Fir s t Year During the first year of the 1992 A ction Plan, th e Commiss ion undertook a vari e ty of strate g ies designed to reduce unrn e t deman d, de velop proced ures for implem enting Chapter 427, F.S., refine eligibility guidelines and collect data for performance evaluations D evelop strategi e s t o reduce unme t de m and: tl revie w current practic es for imple menting Chapter 427 eligibility guide lines; t1 recommen d procedur es for use in local areas to ensure that the most needed trips are programmed for d el ivery; and consider other stra t egies to regulate d emand and increase supply. Com ment: For this action ite m tlte FCTD r eviewed practices for implem e nting Chapter 427, F.S., eligibility guidelines and amtract.ed wit/! CUTR to produce guid e lines for develop ing trip priorities at lite local level. Other strategies to regulate demand (sudt as the use of fixed-rout e transit) are reviewed on an ongoing basis. t1 Develop procedures for implementing Chapter 427, F .S., eligibility guidelines Commmt: As described above, the FCTD adopted new eligibility guidelines in May 1997. Tlte g uidelines are being r eviewed for possible incorpomlion into Oznpter 427, F .S., instead of Rule 41-2, F.A.C. Collect data needed for local coordinator performance evaluation. Comment: The FCTD rollects data an11unlly from CfCsnnd OPAs for use in local coordina-


tor performance evaluat-ions. The FCTD also is moving tuward a system of joint monitoring 1uith local coordinating board evaluation com mittees. The QAPE Team also has evaluated all coordinators and continues to evaluate on a biannual basis. Actions During Subsequent Years Review goals, objectives, and strategies. Conduct commission and local coo rdina tor perfo rm ance evaluations. Partici p a t e in state comprehensive plan ning and transportation planning pro cesses. Comment: For these action items, the FCTD continues to review goals and objectives, as well as strategies for achieving the goals and objec tives on an ongoing basis. As part of these activities, tl1e FCTD participates actively with other state agencies to ensure that the TD Program is represented in relevant agenC!J planning documents, particularly FDOT and other member agencies of the Commission. D evelop and implement marketing out reach program. Comment : The FCTD retains the services of a university to assist with development of an ongoing marketing/outreach program. The contractor provides assistance with development of promotional and educational materials including t:he TD Connector and the voluntary dollar contribution. M onitor the impacts of ADA implementation by mass transit on demand for TD tra nsportation services. C omment: In 1993, the FCTD contracted with a consultant to provide a preliminllry assessment of the impact of the ADA on the demand for TO transportatio11 services. In FY 1996, the FCTD co11tracted with a team of consultants to provide o11going technical assistance relating to implementatio11 of the ADA arid its impact 011 the TD Program. Actions to be Undertaken as Funds and Staffing Permit Evaluate cost-effect i veness of different provider network types (e.g., brokered, single-provider, and multi-provider. Comment: In 1993, the FCTD hired a consul limt to analyze whether one ere structure resulted in more cost-effoctive service. Addi tional studies on this topic are being conducted through a11 FCTD committee. P eriodic all y identify unmet demand. Identify number of trips pfOvided outside of the co o r dinated system. C omme11t: !11 1996, CUTR updated the TD population, afld trip estimates, i11cluding a11 assessment of u.nmet demand. On a11 ongoi11g basis, the FCTD reviews the Annual Expenditure Reports for state agencies that fund TD services to ascertain their jundi11g levels for trips provided within and outside tJre Floridn Coordinated Transportatio11 System. K Implemen t insurance cos t -containment program Comment : In 1992, the Commission C011 tracted with CUTR to complete a study of i11surance practices and options for the Florida TD Program. No state-level action was other than referring various opportunities to local CTCs as a way to wwer costs. Since 1992, tl1e crisis has not continued. State of Florida 5 &20 Dbadvantaged Plan 1 5


* Continue to develop marketing programs to encourage volunteerism. Comment: Several efforts have been made to encourage the use of volunteers in tile TD Program. In 1996, a study completed by CUTR outlined the current use of volunteers in the state and provided "how-to" information for CTCs wishing to implement a volunteer program. Additional sh4dies on this topic are being conducted through an FCTD committee. -+ Check for duplication of effort at the state and local levels, and reduce duplication where appropriate. Comment: By july 1, 1997, staff will have compiled a list of potential duplication at tile state level, and will provide preliminary data on the cost of the duplication. The FCTD is expected to approve policy on this issue in 1997. Assist local coordinators in efforts to improve vehicle reservation and schedul-ing functions. Comment: The Commission contracted with a consultant to provide training in scheduling and dispatching techniques. Furtller, FCTD will continue to provide technical assistance and coordinate training efforts with FDOT's RTAP coordinator and other known training opportunities. Develop standard procedures for han dling trip requests that consider all modes and relevant costs. Comment: Tire Commission continues to work with crcs to devel.op and implement policies and procedures the ensure that litis occurs. Further, an FCTD committee is currently reviewing this topic as well. Assist in developing local fare structures. Comment: In 1992, the Commission contracted with a consultant to analyze tile fare structures used by CTCs and to recommend changes to standardize fare structures so that purchasing agencies would /maw up-front what tlteir costs would be to purchase trips. This information was used by CTCs to prepare tfre fare structure element of tire annual ser-uice plan (now attached to tile memorandum of agreement). Identify training needs and develop appropriate training programs. Comment: Throughout this period the Com mission has developed and provided training programs designed to meet tire needs of cres, OPAs, and LCBs. Further, the FCTD's Teclmi cal Assistance and Training Team will develop, provide, and coordinate future training for the TD Program. Summary Overall the FCTD has done a very good job of meeting its goals and objectives, and fulfilling its action plan as described in the 1992 Florida FiveYear TD Pltm Although many action items have been accomplished, a num ber are ongoing. New activities also have been added to the list since 1992. The results of this review will be used to help develop the new action plan for the 1997 State of Florida 5 & 20 Year Transportation Disadvantaged Plan. This plan will include action items for the immediate, five-year, and long-term time frames !6 State of Florida 5 & 20 Ye-ar Transportation Disadvantaged


During 19%, the Florida Office of Program Policy Analysis and Government Accountability conducted a review of the Trans portation Disadvantaged Program. The perfor mance audit was pr epared at the request of the 1996 Legislature, in accordance with Chapter 11.45(1)(), Florida Statutes. In its final report (Report No. 96-43), published January 29, 1997, OPPAGA stated that the purpose of the review was to determine: Cl The extent to which coordinated systems have been established in Florida to provide cost-effective service to transportation disadvantaged individuals. Cl The use of mass transit systems in serving the transportation disadvantaged and implementing pro visions of the federal Americans with Disabilities Act. a Whether effective reporting and monitor ing systems have been established to help ensure accountability for service quality and the us e of funds. The study also identified actions for the Legis lature to conside r in addressing the issues raised concerning the coordination of service for the TD Program. Findings Opp AGA' s major findings were focused in four areas: a Cost-effectiveness Under the Transportation Disadvantaged Program, local coordinated systems have OPPAGA Review I been established throughout Florida to serve the transportation disadvantaged However, it cannot be readily determined whether the Program is providing services in a cost-effective manner. a Use of mass transit Public mass transit sys tems are being used in some areas of the state to serve the trans portation disadvantaged and implement provisi ons of the federal Americans with Disabilities Act of 1990. This practice appears to save costs, but some social se rvic e agencies are reluctant to have their clients us e mass transit systems. Cl Program monitoring Program monitoting and reporting activi ties are fragmented. This in creases costs and limits agencies' abilities to assure accountability for performance and the use of funds. a Other issues Other issues affecting the coordination of services for the Transport ation Disadvan taged. Each finding is discussed in tum, along with the FCTD' s response. Cost-Effectiveness S ince 1992, a number of studie s have been conducted to determine whether the TD Pro gram is operating cost-effectively. These studies have found that costs vary considerably throughout the state Because of local varia tions, there appears to be no one "perfect" structure for a local TD Program coordinator. State of Florida 5 & 20 ):'ear Transportation Disadvantaged P lan 1 7


In its findings, OPPAGA cited differences in t h e size, population, demographics, service levels, administrative requirements, and com munity resources availabl e locally as factors contributing toward cost diff erences. OPPAGA stated: "Due to lack of a standard method for full cost allocation, service costs cannot be readily used to evaluate cost-effectiv eness either statew ide or between individ ual coun ties." ... It cannot be readily determine d whether the Progr

At the same time, the FCfD noted that only 22 of Florida's 67 counties have fixed route bus service. The Commission has since incorpo rated utilization of fixed route service into its TO Trust Fund eligibility requirements. How ever, for many rural areas in Flor ida paratran sit services remain the primary means of providing mobility for persons who are trans portation disadvantaged. Program Monitoring The OPPAGA report cited a variety of moni toring requirements typical for a CTC includ ing reviews by the FCTD, FOOT, other state agencies that purchase TD services, and l ocal agencies that purchase service or oversee the CTC: "These monitoring and reporting efforts are highly fragmented." In its report, OPP AGA noted that the level of monitoring and reporting increases administrative costs and reduces the effectiveness of monitoring. The FCTD responded: "The Commission concurs with the finding and has r e co gnized that program monitoring and reporting activi ties are fragmented." Two pilot projects -in Brevard County and Putnam County -wer e tested to determine how to improve reporting and monitoring requirements to reduce or eliminate duplica tion and fragmentation. As a result of the pilot projects and since publication of the OPPAGA report, the Com mission has adopted recommendations for a joint monitoring effor t on an optional basis with LCBs and purchasing agencies for FY 1998. Furthe r, the Commission's Quality Assurance and Program Evaluation unit already uses monitoring reports from other agencies such as FOOT when conducting biannual reviews of CTCs. In response, the Commission also cited i ts Ombudsman Program, which permits trans portation consumers to call a toll-free number to report complaints or obtain i nformation about TD services statewide The Ombudsman Hotline helps the FCfD to monitor the pro gram and ensure that high quality services are provided locally. The Hotline may be reached by calling 1-800-983-2435. Other Issues OPP AGA listed a number of other issues that affe c t the coordination of services for persons who are transportation disadvantaged. Differing agency requirements for client transportation. For example, Medicaid allows a two-hour pick-up window for its cl i ents; however, the Department of Elder Affairs requir es a shorter pick-up window. As a result, C TCs must apply d i fferent levels of service within the same s y stem. These differing service standards increase administrative and operating costs, and reduce a CTC s ability t o transport differState of Florida 5 & 20 Year Disadvantaged Plan 1 9


ent agencies' clients on the same vehicles. The FCfD concurred with this finding: "The Commission has developed stan dards, policies and procedures which should be utilized by all agencies ex pending transportation disadvantaged funds. The Commission has developed minimum statewide standards for the delivery of services and will continue to rev iew other standards that improve quality, cost, competition and other aspects of the delivery of service. State-level policies that limit abil ity to coordinate transportation needs. Based on its analysis, OPPAGA noted: "State policies related to provision of health care and other services (e.g., Medicaid) can inadvertently be a bar rier to developing more cost-effective and coordinated transportation sys tems." ... several crcs reported that clients a"re regularly assigned to physicians who are not the closest Medicaid provider. As a result, transportation costs are increased when the clients must be driven a longer distance for medical services. OPPAGA The FCTD concurred with this observation and will continue to moni tor state agencies to ensure that they adopt policies or standards that are cost-effective. Since publication of the OPP AGA report, the Commission has directed staff t o pro vide a short list of probable high-cost con flicting policies with the es timat ed system cos t of each. Action is expected in August 1997. In addition, the Commission directed staff by July 1, 1997, to discuss each instance of an agency operating outside the TD Pro gram with the agency representative serv ing on the Commission, exploring reasons and remedies for each situation Client eligibility screening. In its report, OPP AGA cited the fact that TO-eligibility screening practices vary throughout the state, and that the defini tion of a TO-eligible person found in Chap ter 427, F.S., makes it easy to qualify "Investing time and effort screening clients before they are accepted for assistance, as Broward County has instituted, can effect greater cost savings and help eliminate abuse of the Program." OPPAGA The FCTD concurred with this finding. Since publication of the OPPAGA report, the Commission has adopted new guide lines for determining TD eligibility, which should address most of the concerns de scribed by OPPAGA. At the same time, the FCTD r ecognizes that there are differing loca l concerns and has left some amount of discretion to the local TD Programs for implementation. 20 State of Florida 5 & 20 Year Transportation Disad\

TD Trust Fund Eligibility Criteria Adopted May 22, 1997 POLICY STATEMENT: It is the Intent of the Commission to set forth eligibility requirements for consumers of the Transportation Disadvantaged Program. At a minimum, each CTC shall set the following criteria to determi ne eligibility for Transportation Disadvantaged Trust Fund (TDTF) (nonsponsored) monies: No other funding available. A customer would not be considered elig i ble for TDTF when another purchasing agency is responsible for such transportation. No other means of transportation is available As specified by the LCB and CTC. Public Transit. If fixed-route public transit is availab le the customer must demonst rate why it cannot be used. Physical or mental disability. A disability as outlined In the Americans with Disabilities Act of 1990. Age As specified by the CTC and the LCB. Individual and household income status is a specified percent of the poverty level. As specified by the CTC and LCB. No self-declarations allowed. The CTC will use an enrollment p rocess that substantiates the i n dividua l's ability to meet the criteria l isted and any other CTC determine d criteria. Ability to pay. The CTC and LCB may establish an ability to pay policy for "nonsponsored" customers using a s l iding scale based on the customer's i ncom e and/or assets status. State o f l 'Jorida 5 & 20 Y(';,u-trnnsport.1.tion Disadvantagl PIAn 21


TO Funding Formula. OPPAGA recommended that the TD fund ing formula (which allocates fu nds from the TD Trust Fund each year) be reviewed, with consideration given to providing a base allocation of monies for all counties. Concern continues to be expressed regard ing whether the formula favors urban ove r rural service areas The FCTD concurred with the findings stated he. re Since publication of the OPPAGA report, the FCTD has adopted a new funding formula intended to address some of these concerns. commiss i on concurs there '. have been some concems . expressed about the funding .formula as the lack .of. available resources, especially in rural a teas, for transportation .. seryi9es .,. .; FCTO .. Size and composition of the Commission. 22 The OPPAGA study stated that many state and local-level stakeholders have asserted: "The Commission's large size reduces its effectiveness in carrying out its mis sion and the competing interests among Commission members makes it difficult to reach consensus on Program issues. T he F CTD disagreed with OPPAGA's interpretation of the potential ineffective ness of the 27-member Commission: "The enlarged Commission met first in August 1996 and twice since. Work in the expanded committees has gone forwa r d and appears to be moving wi t h increased cooperation." . : "This Is an effl.cient organization that has statewide responsibilities It also allows for better coordination of services prov ided with the many agencies who co/le<;tively expend over $165 million In transportation funds each year. This cooperatiOIJ and coordination has resulted in significapt-p_rogress over the years and should contin'ue to exist to af!dress those areas not yet achieved as identified In (the OPPAGA) report." FCTO Recommendations Based on its findings, OPPAGA recommended five actions t o the Legislature The FCTD concurred with mos t of the recom mendations, except as noted 0 Incorporate stringent eligibility criteria in the definition of transportation disadvantaged clients. Among other changes, OPP AGA r<:.><:om mended that the Legislature amend Chap ter 427.011, F.S., to require that agencies perform eligibility screening for individu als seeking T D services, thereby prohibit ing self-declaration of eligibility OPP AGA also suggested that the Legisla ture consider mandating that persons use transit bus pass programs instead of para transit services whenever poss ibl e


Although OPPAGA recommended Legislative changes to accomplish these recommendation. the FCtD believes that more stringent eligibil ity requirements can be incorporated without new legislation At its Ma y 1997 meeting, the FCTD adopted revised eligibility guidelines that addres s the i ssues cited in the OPPAGA report. 0 Examine the size, composition and role of the Commission f o r the Transportation Disadvantaged. The OPPAGA r e ported recommended that the Legislature consider amending Chapter 427.Q12, F.S., and Chapter 427.013, F.S., to modify the membership and mission of the Commission. In particular, OPPAGA rec ommended reducing the size of the Com miss i on, s t ating that it would make it easier for the Commission to address policy issues, and would reduce Commission travel and administrative costs. An alternative, according to OPP AGA, would be to elimina t e the Commission and replace it with a smaller advisory body to maintain a statewide forum fo r addressing TD issues. According to OPPAGA: "The rationale (for eliminating the Commission) would be that tire Commission has been successful in completing its primary tttission of establishing coordinated transsystems througllout the state ... The Legislature could transfer remaining Commission functions such as applying for federal grants tmd distributing transporta tion disadvantaged funds lc tJre Depart ment of Transportation, which already performs these tasks for other transporta tion monies." Further, OPPAGA suggested that current Commission functions, including identifi cation and elimination of barriers to coordi nation could be performed locally. Also, MPOs and RPCs already provide informa tion, which is another FCTD responsibility. The FCTD disagreed with OPPAGA's assessment in this area : "The Commission's independent status allows for a more fo cused program to be developed statew i de." 0 Streamline reporting and monitoring. OPPAGA recommended that the Legisla ture amend Chapter 42 7.0 147, F.S., to des ignate LCBs as the lead agency to work with other funding entities t o consolidate monitoring and reporting. A similar effort should be maintained by the Commission (or its successor entity) to work with fund ing agencies to consolidate statewide moni toring and reporting. The FCTD concurred with this recommen dation. At its May 1997 meeting the com mission implemented a joint monitoring program, to be offered initially on a volun t ary basis. Specifically, the LCBs will be used to moni tor the program by having representatives of all purchasing agencies serve on the LCB eva luation committee. The Commission's QAPE uni t and LCB review co1nmittee will perform joint monitoring of the local TD Program All agencies, except for FOOT, will be asked to accept the LCB evaluation in lieu of their own monitoring. State of Florida 5 &: 20 Year Transportation Disotdwmtaged Plan 23


A new reporting fo r mat will be developed that will s t andardize and consolidat e r e porting forms to avoid duplication. Staff al s o will rev iew sta tutory requirements to determine whether other r eporting efforts can be streamlined 0 El iminate conflicting policies that inhibit coordination efforts. OPP AGA recommended tha t the Legisla ture amend Chapter 427 0135, F .S., to re quire the Commission (or its successor a gency) to work with all agencies that prov ide o r purchase TO services to e l imi nate conflicting requirements. The Commission concurred with t his rec ommendation. I n fact, the FCTD had al r ea d y adopted a similar stanc e when i t developed its new goals and objectives (see nex t section). Also, at its May 1997 meeting, the Commis sion reaffirmed th is posi t ion when i t a greed to work close l y with purchasing agencies to iden tify and elim i nate conflict ing policies at the statewide level. D Modify the TD funding formula. The OPPAGA report suggested tha t ac t ions need t o be t aken to promote equi t y in the TO f u nding formu l a distribution. As an example, OPPAGA suggested that consid eration be given to incorpora t ing system service performance measures (e.g., trips per vehicle mile, trip l engt h ) in t o the fund ing formula. At its May 1997 meeting the Commission adopted a revised funding formu l a base by adding $15,000 per county to the previous base establishe d in 1993. As befo r e, after t he base allocation, additiona l TO T rust F u n d dolla r s will be distributed based on: 2 5% population 25% service a rea, 25% trips provided through the coordinated system and 2 5% m iles traveled th rough t h e coord i na t ed system. Summary In 1996, the Office o f Prog r a m Policy and Government Accoun t ability co n duc ted a review of t h e FCTO I n general, the Commis sion co nc u r red w i th OPPAGA's findings and recommendations concern ing the need to incorporate stringen t eligibility criteria in the defin i tion of transportation disadvantaged cl i ents, to streamline reporting and monitor ing, to eliminate conflicting p olici es that inhibit coordination and to modify the TO funding for mula. However, the Commission disag reed wit h OPPAGA 's recommendation to modifY the size and role of the Commission 24 Stale of F lori da 5 & 20 Ye

Our Commitment: Mobility I Strategic Vision 0 n June 7, 1995, the Commission adopted a new strategic vision for the Florida Coordinated Transportation Sys t em. Creation of a strategic vision-both for the longfares will be paid electronically, whether using Smart Cards, credit cards, debit cards or some other electronic fare medium. term and the short-term-underscores the Commission's ongoing commitment to universal access and mobility, especially for persons who are trans portation d isadv antaged. Long-Range Strategic Vision A key aspect of the Long-Range Stra t e gic Vision is coordination of a cost effective, multimodal and intermodal transportation system, which is accessi ble for all individuals, and is uniformly available throughout the state. Although no one can predict with certainty what the future will bring, FCTD envisions a community trans portation system that will be easy to use and of consistently high quality, whether an individual is traveling locally or in another region in the state. The Long-Range Strategic Vision calls for creation of a single uniform fund-Long-Range Strategic Vision Create a strategy for the Florida Commission for the Transportation Disadvantaged to support development of a universa l transportation system. with the following features: o A coordinated, cost-effective multlmodal t ra nsportation system delivered through p u blic-priva t e partnerships. o A single, uniform funding system with a s i ngle eligibility determination process. 0 A sliding scale of fare payment based on a person's ability to pay. 0 Use of electronic fare med ia for all passengers. 0 Services that are designed and imp leme nted reg ionally (both Inter county and inter-city) thro ughout the state. ing system, with a single eligibility process, thereby making it easier to determine who is eligible to receive specific services offered through the coordinated system T h e Commission foresees a system in which fares are calculated on a sliding fee basis, according to a person's ability to pay Also, At the same time, the FCTD charted a five-year course, designed to support its long-range vision for TD services. The FiveYear Strategic Vis ion will serve as a benchmark against which to measure progress toward mee ting the Long-Range Strategic Vision. of Florida 5 &: 20 Year Transportation Disadvantage d Plan 25


Five-Year Strategic Vision The Commission's Five-Year Strategic Vision stresses the need t o field test a number of new Advanced Public Transportation Systems ( APTS) technologies that promise to enhance reliability and improve accountability For example, Geographic Info rmation System (GIS) te chno l ogies allow sys t ems t o analyze service patterns and make decis ions about restructuring commun ity transpo rtation to accommodate th e travel needs of specific pop ula tions. Five-Year Strategic Vision Develop and field test a model community t ra nsportation system for persons w h o are tra nsportation disadvantaged i n corporat i n g the following featu res: 0 Statewide coor di natio n of community tra nsporta tio n services using Adva nced Public Transportation Sys tems (APTS) i n cluding Smart Trav ele r Technolo gy, Smart Vehicle Technology, and Smart Intermodal Systems. o Statewide coordination and consolidation of comm u n i ty tran sportation funding sources. 0 A statewide information management system for tracking passenger eligibility determina tion. o Integ r a t ion of Smart Vehicle Technology on a statewide multi modal bas is to imp rove vehicle and fleet plann i ng, scheduling, and operations This effort includes veh i cle and ridershi p data collection, electro n ic fare media, and geographic i nfo r mation systems (GIS) appl i cations. 0 Development of a multi modal t ransportation n etwork to optimize the transportation system as a whole, using Smart Intermodal Systems. T h is feature would b e available In all areas of the state via electronic access. Similarly Automatic Vehi cl e L ocation (AVL) technology allow s operators t o pinpoint th e e xac t locations of vehicles on a real-time basis. By knowing ex actly where vehicles are, schedulers and dispatchers can more effectively allocate trips and respond to cus t omer inquiries. A VL also enhances a system s abili ty to coord i nate transfers be t ween modes, such as fixed-route transit and paratransit. Onboard computerized data collection v.ill enable system s to track passenger and vehicle statistic s and to ensure a ccu rate billing for third -par ty payers s uch as Medicaid. Other elements of the FiveYear Strate gic Plan focus on the coordination and consolidation of community transporta tion funding sources availab l e for per sons who are transportation disadv an taged to streamline services and avoid duplication and fragmen t ation, and to enhance access and mobility by more efficiently using available resources. The Commission's vision is supported by goals and objectives, which are u sed to measure overall TO system efficiency and effectiveness. St.ttc of Florida S & 20 Yc.uTra.n$portation m .. Plan


Goals, Objectives & Measures An important aspect of any strategic plan ning process is the development of mean ingful goals and objectives. Goals and objec tives are used to measure system performance and provide an ongoing basis for assessing accomplishments and shortcomings. The first set of goals and objectives were devel oped for the Commission's 1992 Five Year Plan. Th e 1992 goals, objectives, and measures provided the basis for the revised goals, objec tiv es, and measures included in the 1997 Five Year Stra tegic Plan. Although most of the 1992 goals, objectives, and measures are included in the 1997 update, there are a few new items that reflect the availability of data not collected in the past. There are five main goals included in the new Five Year Strategic Plan: Goal1 Goal2 Goal3 Goal4 Enhance availability of transporta tio n services to persons who are transp ortation disadvantaged. Ensu re that TD transportation ser vice is delivered in the most effec tive and efficient manner. Ensure that safe and quality service is provided through the coordinated system. Secure necessary funding to support the TD Program. GoalS Ensure TD Program accountability. The objectives and measures used to support each goal are listed below. The measures will be collected and rev iewed annual y as part of the ongoing e valuation of the TD Program. Objective 1 Ac tively p r omote the provision of transportation services through the most effective mix of services that meets the demand for non-sponsored trips. Measure 1 number of non sponsored trips provided (i.e., trips purchased with TO funds) Measure 2 total budget for sponsored trips (change from previous reporting period and impact) Objective 2 Actively promote the provision of transpo rtation services through the most effective mix of servi c es that meets the demand for sponsored trips. Measure 1 number of sponsored trips Measure 2 total budget for sponsored trips (change from reporting period year and impact) State of Florida 5 &: 20 Year Transportation Dlsadvan1aged Pla.n 27


Objective 3 Support continuous improvement of TD planning and service delivery syst ems. Measure 1 n u mbe r of counties with Commission approved CTCs Measur e 2 number of counties with Commission approved service p l ans Measur e 3 number of local coordinating boards established Objective 4 A ct ivel y e ducate and involve policy-and decision-makers in the Florida Coo r d inated Transportation System. Measure 1 amount of additional resources or improved policies for U1e coordinated transportation system Goal 2 Ensure that TO transportation service is delivered in the most effective and e ffici ent manner Objective 1 Implement appropriate methods and p rocedures t o a ccomplish cost -effective service delivery. Measure 1 fvleasure 2 Measure3 average operating cost per passenger tri p averag e operating cost per vehicle mile average operating cost per driver hour Obj ective 2 Develop and implement policie s t o ensure effective p rogram administration. Measur e 1 numb e r of hours spent on Commission staff training Measure 2 number of onsite m onito r ing visits by Commission s t a f f Measure 3 number of t echnical assistan ce contacts by Commission staff Obj ective 3 Promote maximum use of servic e s provided based on the availability of funds. Measure 1 passenger trips per d river hour Meas ure 2 passenger trips per vehicle mile Measure 3 vehicle mil es per passenger trip (average trip length) Measure 4 v e hicle miles per und u plicated passe n ger Objective 4 Promot e use of the most cost-effe ctive transportation mode through the planning and fundin g o f coo r d ination and contractua l arrangements. 28 M eas ure 1 number of volunteer hours provided per year (by category of voluntee r ; percent of total personne l hours) Measure 2 perce n t and number of trips provided by each mode: para transit. fixed route, school bus, other Measure 3 percent and number of trips provided th r o ugh coo r dination contracts ol F1(>rid:s S & 2 0 Trnnsport;:ttion Oisadvomt"gcd Pl<'ln


Objective 1 Require courteous service and passenger satisfaction. Measure 1 number of p e rsons completing training programs (by training category) Measure 2 number of complaints per 1,000 completed trips Measure 3 number of grievances filed locall y 4 number of complaints received and resolved by the Commission Measure 5 number of grievances received by the Commission Objective 2 Actively support the provision of service that minimizes customer travel and wait times. Measure 1 percent on-time (pick-up/ drop-off) Measure 2 maximum ride time Measure 3 percent of trip requests denied Objective 3 Require safe and reliable service. Measure 1 number of accidents per 100,000 vehicle miles Measure 2 number of vehicle miles between road calls Objective 4 Develop and implement a proactive public involvement program. Measure 1 number of additional TO passengers Measure 2 amount of money spent on marketing/ public information Measure 3 number and types of opportunities for public comment 4 number of education program. provided by each CTC : Gb :t"4 . . a . . , Objective 1 Maintain or increase funding to meet more of the demand for non-sponsored trips. Measure 1 amount of money distributed from TO Trust Fund Measure 2 total funds collected ftom voluntary license tag donations Objective 2 Encourage public and private agencies to identify and allocate sufficient funds to meet the transportation needs of their program participants. State (If FJorida S &: 20 Year Trao.sportation Disadvl\l'l.taged Plan 29


Mea s ure 1 amount of transportation d ollars identified state agencies in the coordinated system Measure 2 percent difference between planned and actual CTC budget expenditures Objective 3 Maintain or i n c rease the level of local p rogra m fundi n g GoalS' O bjective 1 Measure 1 le v e l of T O transportation funds by source Meas u re 2 equivalent value of volunteers time .. ' Ensure TD Program accountability _ .-. _,, .... > Adher e t o sta t e and f e deral statut es, rul es, and regulati o n s for the TO Program. Measure 1 progress toward meeting mandates o f Chap t er 4 27.013 F$, an d Rule 41-2 F A C Measure 2 compliance with Americans with Disabil i ties Act of 1990 (ADA) and othe r federal mandates Measure 3 submission of annual performance report Objective 2 Requir e uniform, accurate, and timel y subm ission of invo ic e s, o perating reports, and contracts M easu r e 1 pe r cent of r eports and contracts received o n tim e from Commission contra c tors Objec ti v e 3 C ollect, c ompile, report, and m aintain dat a necessary for evaluat ion and management of the statewide TD Program 30 Measure 1 complet ion of annual performance evaluation per f or m ed by local coordinating boards Measure 2 pub lication of performance evaluations conduc ted by Commiss i on staff Measure 3 improve accur acy of operating da t a repor ted in annual op e rati n g reports Measur e 4 improve accuracy of e x pendi tur e report information Mea s ur e 5 percen t of CfCs using electron i c data re porting St:Jte Q{ Florida 5 & 20 Year Transportat i on Disadvantaged Plan


The Action Plan is div ided into three parts. I The fir s t I mmediate Action Plan-refers t o those activities that should be accomplished during the first yea r I n some cases, these activities may already be underway The second-Five-Year Plancovers the short range time frame required by Chapter 427, F .S. The third Long-Term Plan-refers to a more dis tant (i.e 20-year) planning horizon. These action items are intended to complement the vision statements developed for the overall Stale of Florida 5 & 20 Year Transporta tion Disadvantaged Plan. Flex i bility has been incorporated to allow for unanticipated eve n ts that will shape the future of the TO P r ogram. At the same time, structure is provided t o allow the Commission to keep its focus and its commitment to l ongterm mobility for persons who are transpor t a t ion disadvantaged. Immediate Action Plan The Immediate Action Plan is designed to I initiate activities related to the achieve m ent of the FiveYear Vision. Activities to be undertaken immediately include to u s e o f APTS/ ITS strategies, implementation of an information management system, creation of a statewide fund ing program, and development of a multimodal transportation network. APTS/ITS 0 S ecure a grant from th. e Federal Trans i t Administration t o fund a demonstration projec t integrating A VL and other intelli gent t ranspor t ation systems appl ications Action Plan I Information Management System 0 Implement new TO eligib i lity criteria. 0 Refine electronic information management system used to collect and analyze passenger and trip data. This informa t ion can be used t o evaluate eligibility and trave l char acter i stics of the population served Statewide Funding Program 0 Use data from the Annual Expenditure Reports to identify and track the use of transportation funds for coo rdinated and non-coordinated service. 0 Identify p ol icies and programs that create barriers and limit TO Program coordina tion. Identify the costs associated with these barriers and limitations. Multimodal Transportation Network 0 Continue to deve lop and implement bus pass and ticket programs with fixed route servi c e providers. 0 Continue t o develop and implement fixed route and flexible routing approaches for rur a l areas. 0 Develop and implement a strategy t o opti mize the mix of transportation services provided locally to include volunteer p r o grams, paratransit, p r ivate transporta tion service, school b uses, and fixed route ser vices, as appropria te. S!ate of Florida 5 &: 20 Year Transport ation PI."U'l 31


Five-Year Plan This part of the plan is designed to achieve I activities identified in the FiveYear Vi sio n Activities relate to use of APTS/ I TS strateg i es, implementatio n of an information managem e n t system, c r eation of a statewide funding p r ogram, development of a multimoda l transportation netwo r k, and ach i evement and maintenance of cost effe c tiveness and accountability. APTS /ITS 0 U s e the results from the automatic v e hicle location d e monst r ation p roject to dev e lop and implement a statewide coo r dination strate gy for implementing ITS/ APTS app li cations. Information Management System 0 Review TD eligibility dete r mi n ation p r o cesses used by CTCs to ensure a dher ence to statewide policy. 0 Complete i mplementation of an e l ectronic informatio n managemen t system for c ol l ec tin g and tracking passenge r and trip data. Statewide Funding Program 0 After iden t ifying barriers and limitations to coordinated/ consolid a ted fu nding a t the s t a te level, and develop a strategy for integrating s t a t ewide coordina tion of com munity tr a ns p o r tation fu n d in g Multimodal Transportation Network 0 Use geographic informa tion systems appli cations to evaluate service delivery options fo r providing integrated servic es 0 Continue t o i nve s tigate the efficacy o f route devia ti o n and other flexible routing s tr uctures to improve produc t ivity and be res ponsiv e to pas s enger trave l needs 0 Continue involvement with FDOT' s Main t enance Training Program and Vehicle Procurement Program t o ensure continuit y betw e e n FOOT and F CT D policies and procedures to optimize the transportation delivery system. Cost-Effectiveness & Accountability 0 Continue to identify ways to mainta i n or redu c e t h e cost of TO servi ces a n d u lti mately maximi ze trip dolla r s 0 Continue t o improve accountabili t y for all TO expenditures. 32 S t a te Qf F lor i da 5 & 20 Disadvantaged Plan


Long-Term Plan No one can predict exa ctl y how the F lorida Coordinated Transportation System will operate in the distant future Nonethel ess it is important to have a long-range vision in place to keep the FCTD on track. Toward that end, a set of statem e nts has been developed to guide the Commission over the nex t 20 years 0 In the long term, service providers will be included as part of an APTS data base with information regarding services available electronically through computer access, information kio sks, and other means. 0 In the long term there will be a uniform eligi bili ty process to enable passengers to move throughout U\e coordinated system. 0 In the long term, there will be a uniform structur e for ass essing and collectin g fares, based on a person's ability to pay. 0 In the long term, fares will be collected via electronic media. 0 In the long term service will be on an intrastate basis, allowmg TO-elig.ble passengers to travel between and among local o r regional systems. Conclusions The s ucces s of any program is directly I related t o fue convictions and the capabili ties of fue people that manage and staff it. Technologies such as APTS, ITS, GIS, and other electronic information systems are tools that should be used, where appropriate, to enhance service quality and cost-effectiveness. However, the FCTO remains firmly rooted in the belief that technology cannot substitute for good management and savvy operating skills. In the final analysis, a successful program will be judged not only on the basis of statistics, but also by the opinions of those "':ho use servic e. Thus, it is important to continue buld ing human resources ongoing training and skil ls enhancement, w1th a focus on the future, grounded by the experiences of the past and present. State ofF.kmda5 & 20 YeuTrAASpO.rtaUon OJ.Jadvanlaged Plan

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