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Item M4 BOARD OF COUNTY COMMISSIONERS AGENDA ITEM SUMMARY Meeting Date: November 20.2001 Division: County Administrator Bulk Item: Yes ---X- No Department: County Administrator AGENDA ITEM WORDING: Acceptance of report from the Florida Commission for the Transportation Disadvantaged analyzing Monroe County's Social Service Transportation system. ITEM BACKGROUND: In previous budget years, the Administration and Commission have been concerned with the costs associated with operation of the Social Service Transportation system. The Board and the Administration determined to have an evaluation done concerning the operation of the system and costs involved. PREVIOUS RELEVANT BOCC ACTION: Approval for the State agency to proceed with the evaluation. CONTRACT/AGREEMENT CHANGES: N/A STAFF RECOMMENDATIONS: Acceptance of report. TOTAL COST: -0- BUDGETED: Yes No COST TO COUNTY: -0- REVENUE PRODUCING: Yes No X AMOUNTPERMONTH_ Year J' APPROVED BY: County Atty _ DIVISION DIRECTOR APPROVAL: OMB/Purchasing _ Risk Management _ J_~ James L. Roberts DOCUMENTATION: Included X To Follow_ Not Required_ AGENDAITEM# /-7'1Y' DISPOSITION: REPORT OF FLORIA COMMISSION FOR THE TRANSPORTATION DISADVANTAGED The Board of County Commissioners and the Administrator have been concerned about the per trip cost, etc. in reference to the operation of the Social Service Transportation Program. These costs appeared to be high but there was no comparative docwnentation with which to compare. The possibility of utilizing an outside consultant was considered. Fortunately, the New Jersey Commission for the Transportation Disadvantaged has a technical assistance program which serves to do similar analyses for local programs. Enclosed IS a copy of the Commission's report. You will note that the Commission has gone far beyond the original request and looked at a wide variety of aspects of the program. There are comments and recommendations which should serve the County well as it looks to improve the operation. Overall, the comments about the Transportation Program were positive and recommendations were more for improvement of the current program rather than for major changes. In reference to the cost issues, the Board is referred to pages 7 and 8 for discussion of the findings. On page 8, it is clear that the cost per trip in Monroe County is at the high end of costs for similar programs in the State. In addition, the labor component of the budget is at a significantly higher percentage than for other programs. .J It must be noted however, as it is noted in the report, that there must be consideration for unique local circwnstances and that the evaluation should not just be a dollar to dollar companson. The Administration is pleased that overall the evaluation is a positive one. ~e~e are some areas that need to be reviewed and adjusted. Many of these can be done administratively and a review will be undertaken with changes to be forthcoming. In reference to costs, there will be an analysis of how to bring those costs more in line with similar programs. The Board does not need to take any formal action unless it wishes to accept this report and express its appreciation to the Florida Commission for the Transportation Disadvantaged. If you have any further questions, please let us know. J TtCnNICAL ASSIST ANCt OPtRA TIONAL STUDY MONROt COUNTY TRANSPORTATION Prepared by: Idward I. 6riffin Technical Assistance and Training Team Administrator Commission for the Transportation Disadvantaged 5eptember Z8, ZOOl Mr. James Malloch, Monroe County Community Services Director, requested a technical assistance operational study of Monroe County Transit (MCn, a division of Monroe County Social Services. Mr. Malloch had been working with CTD staff to arrange the study since early this year, but budgetary and workload constraints precluded staff from conducting the study until this time. Mr. Malloch indicated that Monroe County Commissioners as well as the County Administrator were looking at ways to make MCT more efficient and cost- effective, and were looking for technical assistance to aid them in this effort. Edward Griffin, Technical Assistance and Training Team Administrator, had conducted an Operational Study of the Community Transportation Coordinator (CTC) system for Monroe County, the Guidance Clinic of the Middle Keys, in April of2000. By conducting this study, Mr. Griffin was able to gain some insight into the delivery system for Monroe County, but there was little interaction or information gathered from the Monroe County Transit system to gauge how that system played into the total delivery model. Several officials had read this study and suggested that having this exercise conducted for the MCT system would provide them with additional insight as they made decisions regarding its future. Mr. Griffin conducted a brief study of the Monroe County Transit system on August 20-22, 2001.The primary issues examined in this study include the following transportation areas that deal with operations efficiency and effectiveness, as well as an examination of the internal and external communication of system operations between administrative staff, drivers, passengers, agencies, and advocates. · Staffing and General Office Administration · System Operations Structure Overview · Billing and Contracting! Budgetary Issues . Medicaid! TD Eligibility · Transportation Management Software . Drivers - Work Assignments · Reservations, Dispatch and Scheduling Process . Road Supervision . Vehicle Management · Coordination with Community Transportation Coordinator! Agencies · Emergency Management Procedures · Mass Transit Relationship! Utilization · Communications and Public Relations . Exit Interview · Summary and Concluding Observations The following report is a brief synopsis of this study, and should be used to guide in the planning process as changes are being considered and implemented. Monroe County Transit Operational Study - September 28, 2001 2 A. Staffing and General Office Administration Observations: For purposes of organizational understanding, Monroe County Transportation (MCT) is contained within the structure of the Community Services Division of Monroe County government, which is overseen by Mr. James E. Malloch, Director. Within that division is the department of Social Services, which is overseen by Mr. Louis LaTorre, Senior Director. The organization chart of MCT is as follows: Louis LaTorre Senior Director Social Services Jerry Eskew Sr. Administrator, Transportation Delli Albury Special Needs Coordinator April Cine Administrative Assistant Carol Smith Transportation Specialist Carie Baso Dispatcher! Reservationist Janet Di'Jirgilio Driver - ~ Nikki Valdes Abra Campo Dispatcher! Dispatcher! Reservationist Reservationist Ken Nelson John McGill Driver - MK Driver - PK Dan Davenport Ed Campbell Driver - MK Driver - PK Ciiff Nelson Wayne Cohen Driver - MK Driver - PK On-Call - MK On-Call - PK Driver - Vacant On-Call PK Driver Dn-Call - MK On-Call PK Driver - Vacant Driver - Vacant Dn-Call - MK On-Call PK Driver - Vacant Driver - Vacant Harry Russell Driver - ~ Benny Dayao Driver - ~ OnCall-~ Driver - Vacant On Call ~ Driver - Vacant On Call ~ Driver - Vacant Monroe County Transit Operational Study - September 28, 2001 3 Our initial impression of the administrative offices of the system was that it was a well- organized office where staff worked independently and were well versed in their particular functions. Unlike some systems, even those of this relatively small size, we were struck by the calm environment and the lack of "chaos' in the dispatch area, even during morning and afternoon crunch times, although the close proximity of the dispatcher to the reservations and administrative staff can be somewhat disconcerting with the radio noise from communication with drivers. The specific functions of the Dispatcher/ Reservationist staff will be discussed in a later section of this study. A majority of the time spent conducting this study, gathering information and making various site visits was spent with Mr. Jerry Eskew, Senior Administrator of MCT. Mr. Eskew is responsible for the day-to-day operation of the system, as well the oversight for administrative issues such as budget development, compilation of statistical and management reports, direct supervision of all staff, including drivers, representation on the Transportation Disadvantaged Local Coordinating Board (LCB), coordination of procurement and maintenance of vehicles, grant administration, and interaction with all local and state officials and agencies that have relationships with MCT. Mr. Eskew has over 9 years service with Monroe County, including 6 years in his current position. Mr. Eskew has an undergraduate degree in Accounting, and is currently enhancing his professional development by working toward a Masters Degree in Business Administration (MBA). Mr. Eskew has also received training for testing to complete certification for Certified Community Transportation Manager (CCTM) status. Mr. Eskew displays a keen enthusiasm for his job, but even more importantly, recognizes that the mission of his system is to serve the transportation disadvantaged members of the community, an important social service. His compassion for those individuals is evident. Ms. April Cine is the administrative assistant for the office, and supervises all staff in Mr. Eskew's absence. She takes care of grants, agendas for County Commission meetings, Medicaid billing and accounting, fuel reports, quarterly reports for the CTC, correspondence and other administrative functions as needed. The staffing of the office was staggered so that there would be adequate coverage for over eleven hours, ensuring that early morning and late afternoon passengers could be accommodated and that dispatching and communication with drivers was functioning while vehicles were in service. Staff Hours were as follows: Dispatcher/ Reservationist 6:45 - 2:45 Dispatcher/ Reservationist 8:00 - 5:00 Dispatcher/ Reservationist 9:00 - 6:00 Administrative Asstistant 8:00 - 5:00 Senior Administrator 8:00 - 5:00 Special Needs Coordinator 8:00 - 5:00 Monroe County Transit Operational Study - September 28, 2001 4 A key area concerning the administrative functions of the office is the impending relocation of staff to another building in another area of Key West. Our impressions were that most staff viewed this as a positive move, in that they were involved in the planning process in the construction of the specific office configurations, which will include segregating dispatch! reservations and scheduling from other office staff. There would be less noise with this arrangement, offering a more professional facility and atmosphere. It is our understanding that this move will take place in November of this year. Improvement Action Plans: We certainly applaud Mr. Eskew for his continuing efforts toward professional development. The CCTM exam is offered each year at the Commission for the Transportation Disadvantaged (CTD) Annual Training and Technology Conference. The next conference is tentatively scheduled for July or August 2002 in Orlando. We strongly encourage Mr. Eskew to register for the exam and attend the conference. We recognize that the relocation should be positive for staff, particularly the enclosed dispatch area to keep down noise and provide for a more professional environment. In concert with the move, we would recommend that the staffing levels be looked at for the Dispatcher! Reservationist area. We will be looking at this area in a later section of this study, but felt it was appropriate to mention that this may be an area to review functions and time more closely to ascertain the viability of three full-time positions to this function. It is our observation that most systems of this size (roughly 200 trips per day) would have three positions staffing the administrative areas dealing with reservations, scheduling and dispatching, customer service, billing, etc. In this case the positions would include the administrative assistant, which would leave MCT with four, rather than three positions dedicated to these functions. We discussed this briefly with Mr. Eskew; however, he expressed concerns that absenteeism and scheduled time off would cause significant problems if the staffing was reduced by one position. This certainly is a viable concern, and it would need to involve human resources to investigate whether a part-time position could be employed to serve in one of the positions. Another consideration is that the system could take on additional responsibilities in the future, which would provide additional workload to justify the current staffing level. This situation will also be addressed in a later section of the study. B. System Operations Structure Overview Observations: Monroe County Transit operates system vehicles from 7:00 a.m. to 6:00 p.m. Monday through Friday. Service is not provided on Saturday or Sunday, and arrangements for this type of after-hours service is not required of the system since MCT is not the Community Transportation Coordinator (CTC) for Monroe County, but only serves as a coordination contractor for the CTC system. Although MCT does provide some service for the Medicaid program through the coordinated system, they are not available to provide service beyond Monroe County Transit Operational Study - September 28, 2001 5 normal operating hours. It is our understanding that the CTC, (Guidance Clinic of the Middle Keys), contracts with private operators within the county to accommodate' these requests. MCT provides service to the county in a zone system-scheduling environment utilizing nine routes as follows: Routes: 3- Lower Keys (Key West) 3- Marathon (Middle Keys) 3- Plantation (Upper Keys) In discussions with Mr. Eskew and an examination of the operating statistics, it was determined that the system provides on an average of 185 trips per day based on yearlong calculations. Recent tallies completed indicated that 170 trips per day were provided in June 2001, (slow month), and that some days during season (October through April) could have over 200 trips per day provided. The makeup of the type of trips provided can have an impact on staffing levels from both an administrative and operational (drivers) standpoint. In the MCT system, averages indicate that approximately 55% of the trips scheduled are Demand Response, and that 45% are Standing Order trips, (those that have a recurring pattern for a passenger, such as dialysis, adult day care, meal sites, etc.) The split of demand response and standing orders is a fairly reasonable makeup of ridership, and is consistent with requirements of Americans with Disabilities Act (ADA) complementary paratransit service that allows for no more that 50 % of standing orders in the scheduling environment for a system if there are capacity constraints within the system. Obviously, from a scheduling and service delivery standpoint, the more standing orders, the more consistent the service is and the less administrative time necessary to prepare schedules. MCT takes reservations for next day transportation requests from 8:00 a.m. until 3:00 p.m. daily, which allows for individual demand-response requests. Requests beyond those hours and same day requests are accommodated as can be depending on schedules. Most trips are local, or within each of the three geographic zone areas. The average trip length for all three areas was 6.13 miles, and although some long distance trips are provided, they do not exceed 45-50 miles maximum. Improvement Action Plans: With the geographic make up of Monroe County, the construct of a three-zone system makes the most sense from a passenger service and cost-effective perspective. Obviously, movement between zones is necessary, and this is one area where there is a delivery "breakdown", although the responsibly and authority to create this system does not fall fully Monroe County Transit Operational Study - September 28, 2001 6 to MCT. It was our understanding during our previous Operational Study of the CTC that since they provide long distance service between zones, that MCT could be used as a feeder service for that system, and passengers of the MCT system could receive expanded options by transferring to the CTC vans. From a complete system delivery perspective, this would be an ideal arrangement. Mr. Eskew indicated that there were discussions of this arrangement, but that nothing has been designed as of this date. As a coordination contractor in the CTC system, we strongly recommend that the feeder system with the CTC be given a priority in the development of the Transportation Disadvantaged Service Plan (TDSP) for the county. This will have to be a coordinated effort through the Local Coordinating Board (LCB), and will take the efforts of Monroe County, the CTC and all participating agencies. In the event that Monroe County would give consideration of becoming the Community Transportation Coordinator, it would be expected that this type of service be developed to accommodate not only "county" passengers, but those of other participating agencies such as Medicaid. This would also allow for increased options for passengers that are using the Transportation Disadvantaged Trust Fund (TDTF) to sponsor their trips. C. Billing and Contracting/ Budgetary Issues Observations: Since MCT is not the Community Transportation Coordinator for the county, the revenue streams for this system are limited to service provided to the Medicaid Program, and farebox revenue from county residents that are using the system. For the three month period of 4/2001 - 6/2001, the revenue for the system was as follows: Medicaid County 70S trips 9,967 trips $12,324.00 $ S, 184 in farebox As a Medicaid provider in the coordinated system, the service delivered is primarily trips that fall within a zone and is scheduled during regular service hours. In many systems where a contracted operator or coordination contractor is used to provide some of the service for the CTC, the calls, eligibility checks, and actual registration and scheduling and billing is handled by the CTC. In this case, however, MCT takes all of the calls, checks eligibility, receives prior-authorization if necessary from local Medicaid staff, schedules and reconciles trips, and bills directly to the Medicaid fiscal agent for services provided. MCT charges $3.00 mil with a $S.OO minimum charge per trip. Ambulatory and W/C trips are billed the same, and there is no charge for PCAs or escorts. These charges are different than those billed by the CTC and other subcontractors providing service for Medicaid. $17.48 is the average cost per trip billed to Medicaid by MeT. MeT Budget Issues For the FY of 10/2000 - 9/2001 the budget for MCT was $810,000. This amount includes Monroe County Transit Operational Study - September 28, 2001 7 an annual budgeted amount of $100,000 for vehicle purchases. To figure the costs of services for the system, we took figures from 10/2000 through 6/2001, and - had expenditures of $603,701 (which includes $100,000 for vehicle purchases which had not yet been made). 32,602 trips were provided during this time, which gave us $18.52 per trip. If you were to eliminate the $100,000 for vehicle purchases, the cost per trip would drop to $16.33. For the purposes of this Operational Study, in order to cover as many operational issues as possible, we did not have time to do an exhaustive analysis of the specific line items of expenses and how they compare with other systems of comparable sizes. While there is often a danger in comparisons because of the vast differences in systems in spite of their size relative to trips delivered annually, (geographic area mandating trips of significantly greater distance, local standards imposing additional expenses, labor markets that dictate hire wages, etc.), we compared the cost per trip to systems of similar size, delivering roughly the same amount of trips annually. The seven systems we identified had per trip costs ranging from $7.01 per trip to $15.50 per trip, which still puts MCT at the high end of this curve, even using the $16.33 figure. Once again, we would caution making blanket comparisons, as many circumstances can contribute to the costs for service delivery that make sometimes significant variances between systems. The high cost of living in Monroe County would be one example that could cause differences in costs. For MCT, labor expenses as a percentage of the total budget represent 65%, and that figure rises to 75% if the $100,000 for capital purchases (vehicles) is removed. We recognize that this is significant part of the total budget. From information gathered from the CTD's Annual Performance report, we once again compared this figure to systems of similar size, delivering roughly the same amount of trips annually. The percentage labor expenses represented as a part of total expenses ranged from 41 % to 57% for the seven systems identified. We had discussed this with Mr. Eskew during our visit, as we asked general information about driver salaries and benefits provided. As a rule of thumb, driver salaries in small rural systems run somewhat below the range paid by MCT, and a benefit package with the range and depth provided to MCT employees is not necessarily standard practice, as many systems have small not-for-profit agencies as the parent rather than county government. We would continue on this subject to warn against making a general conclusion regarding salaries and benefits. The type of transportation service provided by MCT is certainly a specialized service, as it is designed to serve the most disadvantaged members of the community. Driver training is extensive, (this is covered later in this study), and it is important to have continuity and low turnover in order to provide consistent quality service to passengers. Low wages and no benefits can lead to poor employee prospects and high turnover, which can have a significant negative effect on system performance. Another point that Mr. Eskew emphasized was the need for drivers to be prepared and available during evacuations. Low paid contracted employees may not have the dedication to Monroe County Transit Operational Study - September 28, 2001 8 provide service during serious evacuation efforts. In addition, MCT drivers require CDL-B licenses in order to assist in evacuation efforts, and this is a requirement that is more stringent than in most systems. This can also contribute to higher operational costs, but may be a necessary expense that cannot be compromised. Improvement Action Plans: Specifically for Medicaid billing, it is required that "invoices" for services be delivered in a particular format designed by Consultec, the Medicaid fiscal agent. This can be done via a paper form, or preferably, in an electronic submission format. Consultec provides to all vendors, free of charge, the Win-ASAP 2000 software program for providers to enter information for billing. For MCT, the problem is that staff has to re-enter all of the information, because the Trapeze transportation management software program does not have an interface to allow for quick data capture and billing transmission. We have contacted this vendor, and are working with them to encourage the development of this feature as a standard feature, as several Florida properties use the product. As it stands with MCT, staff does a "clean-up" of the trips, reviewing to see if they are compensable services, and then re-enters all of the information into the WinASAP program and bills. At the time we were there, they were behind in the billing, in large part because considerable effort and time is required for this process. It is our opinion that for the cost of the product and annual maintenance fee, a billing interface should be available to save re-entry of data. For much larger systems this can be a considerable expense, so we are working to resolve this for all Florida systems using the product. For the record, many software programs do have this interface written into their programs. A Medicaid trip has an average billing of$17.48 through MCT. A 31-Day Bus pass through the Key West fixed-route system is only $20. If MCT was the CTC and held gatekeeper assessment responsibility, they could control this and save the program considerable dollars. This is discussed at length later in this report. In the current scenario, MCT receives funding for operation of the transportation from only three sources: (1) the County, (2) farebox contributions, and (3) what limited revenue is garnered by providing service to the Medicaid Program. Unless the situation changes, there is little hope that the funding contribution will change, however, there are different ways that the county could approach this. Although there is funding in the way of Florida Department of Transportation (FDOT) capital assistance in purchasing vehicles, this is coordinated through the CTC in each county, and must have the approval and buy off from the CTC before going to the FDOT review board for award of vehicles. MCT has received vehicles from this process in the past, however, if the system were serving as the coordinator of all services, there may be justification for additional vehicles to be awarded to the system, eliminating the need for the county to budget for replacements at the same level. This is discussed in more detail in a later section. In addition, in operating as the CTC, the TD Trust Fund would be available for use to subsidize trips to transportation disadvantaged individuals of the county. Currently, MCT does not receive any of these Monroe County Transit Operational Study - September 28, 2001 9 funds to sponsor trips for any of their passengers. Besides Medicaid, there are other social services agencies receiving funding through the Department of Elder Affairs, Children and Families, Health etc., that could purchase service through the system. D. TD/Medicaid Eligibility Observations: The Monroe County Transit system is considered general public transportation. Everyone in the county is entitled to use the system and schedule service within the constraints of what the system can offer regarding location, hours of service, etc. There is no eligibility for services, as it is open to the general public. Granted, roughly 66% of the riders are elderly, and by design the service is meant to serve those with special needs and those that can be classified as transportation disadvantaged, however, it must be understood, that for 50 cents per trip, anyone can ride. Everyone requesting service is registered, (getting personal demographic information and addresses), and staff asserts that they have the capacity to take all trips without denials. The eligibility verification process for Medicaid clients was discussed in a previous section. Improvement Action Plans: When administering the Transportation Disadvantaged Trust Fund (TDTF) as a Community Transportation Coordinator, it represents a fixed grant amount that must be budgeted in order to best meet the needs of passengers while striving to provide as much service as possible. Eligibility requirements have some general state guidelines, but it is up to the Local Coordinating Board (LCB) at the local level to set specific eligibility guidelines for use of the funds as well as priorities for scheduling of trips. As a CTC, the management of several eligibility criteria for various funding streams and agencies can be trying and difficult, however, the use of sophisticated software management tool can aid in this process. As will be discussed, MCT is in a very good position to take on additional roles and responsibilities, based not only on staff but available technology. E. Transportation Management Software Observations: One ofthe best assets ofthe MCT system is the transportation management software that is being used for reservations, scheduling, billing and reporting. The Trapeze product has a long-standing reputation as one the finest products available for this type of application. MCT is currently using the latest Windows version, and went live on November 4, 1998, representing nearly three years of successfully using the product for management of the system. . Monroe County Transit Operational Study - September 28, 2001 10 The Trapeze product is a sophisticated mapped-based relational database. With a mapped-based product, all addresses for passengers and receiving locations ate geo- coded to exact locations based on longitude and latitude. There are several advantages of this feature. Mileage for any particular trip can be determined at the time ofthe reservation, which can aid in determining costs for a trip "upfront" if the system bills on a mileage basis (as in done by MCT for Medicaid). Another advantage is the opportunity for real-time scheduling, and announcement of pick up windows to clients shortly after they make their trip request. Accountability through accurate calculations and capturing of data through an application as this goes a long way in earning the faith of passengers and those agencies purchasing service through the system. Perhaps the most important feature as it relates specifically to Monroe County is the geo- coding of addresses as it relates to the special needs coordination and evacuation of those citizens of the county. Locations can be exactly determined for those clients, and the scheduling and coordination of vehicles involved in this process can be done quickly and accurately at a time when speed and accuracy is of the essence. Another advantage of computer-assisted scheduling using a true map database is that patterns of travel with the system can be easily analyzed and placement of vehicles in a zone environment or the determination of placement of stops in a deviated service route environment can be designed using real data and then visualized on a map so that the design of a cost-efficient route can best meet the needs of passengers and at the same time offering an alternative to a more expensive demand response model. If the county would ever consider being a total mobility manager by accepting the role of Community Transportation Coordinator, they have the management tools in place to develop delivery models that could best meet that challenge while being as efficient and cost-effective as possible. Monroe County paid roughly $65,000 for the product three years ago, and pays $10,000 in an annual maintenance fee for 4 User licenses. All of the user licenses are being used on site, as there are no staff or computers located in remote locations. The system has the capability of doing that if so desired. Improvement Action Plans: The resolution of the Medicaid billing interface was discussed at length in a previous section, and should be a priority item. As was emphasized earlier, this is something that should be coordinated with Technical Assistance staff from the CTD, as we are trying to have this issue resolved in behalf of all users of the product statewide with as little cost among users as can be negotiated. MCT staff could calculate the hours and costs associated with the task of re-entry of information for Medicaid billing and weigh this against any costs associated with obtaining this module from the software vendor, and cost this out over an extended period to capture the true long-term savings. Monroe County Transit Operational Study - September 28, 2001 11 F. Reservations, Dispatch and Scheduling Process Observations: As was mentioned earlier, one of the benefits of the sophisticated transportation management software application is the ability to provide accurate and timely information to customers. Reservations staff take the appointment time, then relate the pickup time to the passenger with a 15 minute window + or -. This is possible because the software allows for real-time scheduling, by which the request is circulated through the system based on pre-defined parameters for vehicle location and capacity constraints, and the trip is placed within the existing scheduled routes based on a combination of efficiency and responsiveness to passenger time requests. The on-time performance of the system for the period of January through March 2001 was 82%, which is somewhat below industry standards. Mr. Eskew stated that although it was a system goal to improve on that figure, the overall focus and mission is to accommodate all passenger requests, even if it hampers overall on time performance. Obviously this is a management decision, and all factors should be weighed in reaching an acceptable "happy medium". The communications infrastructure is somewhat problematic, and this is of concern because there is continual conversation between drivers and with the dispatcher in the central office in order to record information into the software database. Staff indicated that there are often dead pockets when drivers cannot reach base, and connections are often interrupted. The good news is that the Monroe County Sheriff's Department has put in an entire new communications infrastructure, which MCT will be able to use, and the costs to the system will be no higher than the existing system. It is anticipated that the new system will be on-line in February 2002. Perhaps even more important than improving the current situation with communications is the possibilities that will be open up for additional uses of technology to increase system efficiency, responsiveness to passenger needs and assist in timely movement of vehicles during evacuation exercises. It has been our experience in managing an Intelligent Transportation Systems (ITS) project and participating in workgroups at the state and national level that problems with communications systems are often the major barrier in implementing peripheral technology such as Automated Vehicle Locators (AVLs) and Mobile Data Terminals (MOTs). It is very encouraging that MCT has the transportation management software capable of interfacing with these devices and a state of the art communications infrastructure to accommodate it as well. We will work with MCT staff to help identify grant opportunities for purchasing additional technology, as well as providing technical assistance in the procurement and implementation of these devices. In spending time in the reservations/dispatch area, it was evident that procedures were well thought out and organized and that staff had a very firm grasp on the use of the software. Ms. Nikki Valdes was responsible for primary dispatching duties for the majority of the service day, and had over two years using the Trapeze product and was extremely Monroe County Transit Operational Study - September 28, 2001 12 proficient in its use. Training was going on for the new reservations person to cross train in the position of dispatch as well as the finer points of manifest development and clean up. The dispatcher and both reservations staff work on cleaning up the manifests for the following day in their down time, so that when the call intake time ends, they will be in good shape to get the manifests completed timely. For the purpose of manifest review, up to three screens are open at a time so they can look, drag and drop to move trips around for efficiency. Taking trip requests for the next day until 3:00, then tweaking schedules and taking "last minute requests", is a sound process. An excellent feature of the Trapeze product is the violations feature. After a trip is scheduled and appears on a manifest, this is a red flag that warns that this probably is not a good trip, prompting the scheduler to rethink the selection. Manifests are printed at 6:00 p.m. to remote locations that are on the County network. We should look closely at the fact that there is a shared network, and the folks in the Middle and Upper Keys can print their manifests at a remote location. This could have positive communication options in the future. .The dispatcher has the responsibility of recording time and mileage on pull-out from depot via communication from driver, and then the driver calls in each pick-up and drop of. The Trapeze software automatically records the time so this is entered for the purpose of on- time performance. If the driver is delayed in calling the time in, they can give the time, and the dispatcher can actually adjust to the correct time. For those that are not ready, they will "re-schedule " for a later time that is agreed upon, and then act on it as a will call. Reservations staff does schedule return trips, which is very important, and a practice that is often not done in systems that negatively affects system performance. Reservations staff is responsible as the first order of business each morning to check voice mail for cancellations and other requests after hours, to be sure that the information is dispatched to drivers in a timely manner to avoid unnecessary trips. This is a good procedure, however, we can assume that there are no "after hours" trips available to Medicaid and that you can't get a ride dispatched after everyone has left. For a new client calling in to get registered, the reservations staff takes down the SS#, DOB, etc., and asks if the client is on Medicaid, particularly if it is a call from an agency. Medicaid eligibility is then checked immediately. All standing order Medicaid trips are checked at the beginning of month to ensure that the billing will be valid. Ifthe passenger is not on file, they transport and assume the cost as a county trip. Improvement Action Plans: The reservations and scheduling process under the current structure runs very smoothly, and staff should be recognized for their performance. We would stress that as the system grows and takes on additional responsibilities, including analysis of routes and Monroe County Transit Operational Study - September 28, 2001 13 development of service route scheduling, the use of A VLs and MOTs will play an impo~ant role in this process. We stand ready to offer technical assistance in this area if the county is ready to move forward in this process. G. Drivers - Work Assignments Observations: Comprehensive training is a big part of the driver hiring and retention process for MCT. The Road Supervisor (see next section) was working with a new hire while we were there. We were provided the driver training manuals that were used, and shown copies of several of the videotapes that were used in the process. A new hire that is Part Time can come in with a Class 0 license, but they require a Class B for Full Time, or any driver (even Part Time) that is transporting a vehicle capacity of 16, including the driver. It is imperative to have drivers ready to operate vehicles including buses for the Hurricane evacuation. MCT staff was adamant that having Full Time drivers is imperative for use in the emergency evacuation. If they had private operator routes there would be little or no commitment or obligation to be available during evacuations, and there may be no one would be there to drive the vehicles. Drivers receive 2 weeks of training before they drive - both in-house and riding with veterans. The Personnel Department of Monroe County handles the background screening. We did not get to meet with these staff to ascertain how extensive the checks were. MCT staff indicated that it involves 2 business and 1 personal reference, but they were not clear if it involves criminal checks. We should note here that if MCT was involved in operating a coordinated service that included the transportation of individuals with cognitive disabilities that were funded by the Department of Children and Families, extensive background checks would be mandatory given the vulnerable nature of the passengers being served. The MCT system has 9 full time drivers, with 1 sub in Marathon, and 1 sub in Plantation. Mr. Eskew indicated that he generally served as the sub for Key West, or if necessary, the Road Supervisor could be used in that role. Other than the new driver just recently hired, the range of seniority of was from 3 - 8 years (The new driver of less than one year experience replaced an eight year veteran driver). Improvement Action Plans: With the tenure of the drivers in the system, it would appear that this is an area that runs with little administrative intervention. The pay scale and benefits are an issue, but this was addressed in an earlier section. One small suggestion would be to provide picture 1.0. cards for all drivers in the system. This offers the passengers a sense of safety in knowing that a professional is transporting them, and also gives a sense of pride to the drivers. Monroe County Transit Operational Study - September 28, 2001 14 H. Road Supervision Observations: Ms. Carol Smith is the Transportation Specialist for MCT responsible for road supervision. Ms. Smith is responsible for tracking insurance, monitoring fleet maintenance schedules, safety inspections, and driver training, which includes all areas of protocol, as well as Passenger Assistance Training. She also conducts spot inspections of vehicles for interaction with drivers, and follow-up. A large part of her job involves interaction with agencies and facilities, including responding to incidents and complaints of service delivery quality. Ms. Smith comes from her base in Marathon to Key West on Tuesdays and Thursdays. to provide input and report to her supervisor, Mr. Eskew. While in the area, she can be an operator since she has a back up vehicle. This has often proven to be beneficial on busy days. We met with Ms. Smith and Mr. Eskew, and were impressed with her thorough approach to training, monitoring of vehicle and trip quality. and commitment to the program. Improvement Action Plans: This area appears to operate quite effectively. and we have no recommendations at this time. I. Vehicle Management Observations: Vehicles used in the Key West area are parked at the county facility housing the transportation administration staff, and the county maintenance facility is nearby. For those vehicles used in the Middle and Upper Keys, they are parked at county offices when not on duty. They shuttle vehicles in for preventive maintenance and repairs at maintenance stations located in each zone area. They gas up at these facilities as well, but there is at times a bottleneck and they fall behind schedule because they are in the same line with police and emergency vehicles, and therefore take a lower priority. Manifests are placed inside manila envelopes that have the daily trip inspection sheets embossed on it. This is a very nice feature, and shows excellent organization. Administrative staff looks at each log it when it comes in at end of day and log in any issues on the chart in the office. and schedule repairs as necessary. The 4000 mile interval seems to turn so quickly, and preventive maintenance (PM) takes most of a day, so MCT has 2 backups for each set of three vehicles. Staff indicated that in addition to PM. most down -time is for Air Conditioning units going out. The weather is brutal on these units, and people absolutely cannot travel if the AC is not functioning. Monroe County Transit Operational Study - September 28, 2001 15 . J. . County garages appeared small, and perhaps understaffed, but MCT was adamant that they do a good job. -. - Currently. there are 9 vehicles operating daily, with 7 backups. Staff talked about this at length. that in the past, they did not have backups, and did not procure vehicles regularly, so they were up against a wall with an aged fleet and had to make major expenditures over a short period to update. This is the reason that they have budgeted for replacements annually to prevent a crisis like they faced before. Most vehicles in the system are the 8 ambulatory /2 wheelchair cutaway configuration, however, they have some configurations that are larger to accommodate needs for feeder service, etc. during evacuations and other large group requests, including shopping. In conversations with staff they indicated that they were thinking about 2 smaller vehicles (W/C minivans) to throw into the vehicle mix for Key West. Smaller units would be able to buzz into smaller and narrower areas. offering quicker response to dialysis clinics and other medical facilities. We would support this as a money-saving idea. not only in original capital expense, but also on-going maintenance and fuel costs that would be attained by operating a smaller more efficient vehicle. In discussions with staff, it was clear that this would be considered a viable option in Key West only. Improvement Action Plans: Administration and other staff have indicated that the large number of backup vehicles could be contributing to what has been perceived as high cost for the MCT system. As a general rule, many larger systems look at a 1:6 ration for backup per vehicles in service for larger systems, but smaller systems might look at a figure closer to the 20% - 25% range. The current makeup of 7 backup vehicles for a fleet of nine service vehicle routes could be viewed as excessive, but given the past history of ensuring that the age and condition of vehicles were kept current, we would caution moving too far in the other direction in considering the number of backup vehicles. It is our understanding that the county currently budgets $100,000 per year for replacement vehicles. If the county was able to receive at least one vehicle for the year through the FOOT 5310 capital assistance program and move to smaller, more versatile vehicles for some of the fleet composition, this figure could easily be cut in half, offering a significant savings to the transportation budget, while still maintaining the quality of the fleet and passenger service. The use of county maintenance facilities and staff as opposed to private facilities is a decision that is strictly up to the county. We did not have the time or resources for the purposes of this study to make any comparison regarding the efficacy of either option. We suggest, however, that county accounting staff could look at the options and costs under Monroe County Transit Operational Study - September 28, 2001 16 both scenarios to see if this represented an area where cost savings could be attained while still maintaining a good response time and service. If the service was "farmecfoue, it may require MCT to obtain a vehicle maintenance tracking software so that staff could be in control of this function. J. Coordination with Community Transportation Co ordina tor/ Agencies Observations: As was related in an earlier section it was thought that a hub and spoke feeder type relationship was to be developed with the CTC, but in reality, that is not happening, and there is little if any coordination in this area. From a total mobility management perspective and attempting to provide as responsive service as possible, the ability to navigate between zones should be given careful consideration, particularity if the county is entertaining coordinating services county wide. Another resource that could be used is the Veterans Van Program that provides service to Monroe County residents into Dade County. They have three vehicles. traveling five days per week. The Federal government (Veterans Administration) sponsors the capital rolling stock and operations, however the County provides the drivers. We recognize that the vans are often full with limited spots available, but it should be investigated whether Medicaid recipients and other passengers could be accommodated for these long distance trips in order to be more cost effective. Grants associated with Workforce Initiative (formerly WAGES) were responsible for the funding of an express route of the Miami-Dade Transit Authority serving the Keys. This is discussed at length later in this report and should be considered strongly in coordination efforts. Another resource in that same vein would be the Greyhound system. If offering full coordinated services, this should be looked at more closely, particularly for Medicaid trips going to major clinics. A federal grant has been used in the past in other areas for subsidizing trips using Greyhound; this could help underwrite costs for long distance trips. It has been our experience that they will adjust their stops to accommodate Jackson clinic, etc. and other common destinations. Improvement Action Plans: All of the above were improvement actions, but we would also like to suggest the acquisition of Ride-Sharing Software. This would be a community services project of the county to work to reduce traffic congestion, particularly as it relates to residents of Big Pine Key coming into Key West. As property prices escalated, full-time residents were forced to find more affordable housing in this area, and it has consequently caused a traffic management problem. This could be a proactive move by the county that could help the transit system indirectly while meeting the needs of the entire community. Monroe County Transit Operational Study - September 28, 2001 17 " . K. Emergency Management Procedures Observations: Emergency management is a major function of MCT. At the time of our visit the database contained 385 special needs people that the county is responsible for. The county Emergency Management Services (EMS) handles transportation of some Nursing Home and hospital residents, and there are currently 61 EMS clients active. Private Nursing Homes are responsible for transport of their own clients, but MCT is responsible for the databases for all. Ms. Dottie Albury is the full time Special Needs Coordinator. There are over 25,000 elderly and disabled residents in Monroe County. mergency evacuation is considered separate, yet part of the transportation unit and b dget. Ms. Albury uses Microsoft Access for a database of the clients, but all people are eo-coded and placed onto the Trapeze system. People listed include nursing home residents, hospice, visitors, nutrition, and in-home services clients of the county. Soci I services interfaces in this process since many of their clients will also need current tra~sportation needs, and will already be registered into the MCT system. Ms. Albury atten~s several agency meetings, and has a lot of coordination with agencies. ! ! MCT takes people to staging areas during evacuations, and they are always olcall when evacuations are pending. They do all evacuations for small scale, and for large cale, they take passengers to a staging area where the school buses can take them to th . mainland and out of danger. ! Improvement Action Plans: Part of the Transportation Disadvantaged Service Plan (TDSP) that is constructe jointly by the Community Transportation Coordinator (CTC) and the Designated Official Planning Agency deals with the process for emergency management, and what role the TC plays in the transportation of individuals in an evacuation. Even if the county choose to remain in its role as a coordinated contractor within the coordinated system, it is imp rtant that staff designated for Emergency Management be very involved in the develo ment and coordination of these services within the coordinated system, ensuring tha the most vulnerable residents are accounted for and that a thorough plan is in place. For the record, we were very impressed with the system the county has inl place for emergency evacuation procedures, tracking and planning, particularly as it rei tes to the most vulnerable citizens, the transportation disadvantaged. The use of so histicated mapped-based transportation management software can be critical in assisting in locating individuals during this hectic time, and ensuring that everyone has been accoun ed for. By co-locating this position in the transportation department, it shows a commitm nt by the county toward total mobility management. Monroe County Transit Operational Study - September 28, 2001 18 L. Mass Transit Relationship/ Utilization Observations: It took us some time to truly understand the relationship that the county run system has with the fixed-route system operated by the City of Key West. We had the opportunity to meet with Ms. Myra Hernandez, Manager, Department of Transportation, for the city of Key West, in charge of the fixed-route service operating within the city. The system has recently received eight new Gillig buses, and we had the opportunity to tour them. The system has four major routes, with an express route serving as a connector between "Old Town" and "New Town". It was our understanding after conversations with Ms. Hernandez that she estimates the system has between 600-800 boardings per day, although that figure can double during the season. From further research we have ascertained that the system has approximately 250,000 boardings annually. Our reason for obtaining these figures was to gauge the use of complementary paratransit services within the community, and the affect that this has on Monroe County Transit. We obtained the paratransit application for the Special Transportation Outreach Program, (STOP), which addresses the obligation of the fixed-route to provide equivalent service for those not able to use the service under the provisions of the Americans with Disabilities Act (ADA). In our conversations with Ms. Hernandez, she indicated that they provide on an average of three trips per month through this service, and that the trips are provided during evenings and weekends. In comparison to other fixed-route systems in the state, this is a very low figure. The LYNX system in Orlando for example, provides paratransit trips of 1.2% compared to their fixed-route boardings. To extrapolate this out for the Key West system, one would expect at least 3000 paratransit trips annually, or 250 trips per month, compared to the three estimated to be provided currently. In comparing these figures, one can only make the assumption that the Monroe County Transit system is fulfilling this obligation by offering the door-to-door service to all residents, with no real eligibility process. The farebox for MCT riders has been 50 cents since 1994. The farebox for the fixed-route system is 75 cents, and although a reduced fare is offered for senior citizens and students, the MCT system would offer a more personalized service at a cheaper fare in many cases, so it would be natural for passengers to chose this service. The situation just described poses two problem areas. First, if in fact the MCT system is providing the ADA service for Key West Transit "by default", it would seem that there should be some sort of formal contractual relationship between the two entities to make it clear that the level of service expected under federal guidelines was, in fact, available and being provided. Secondly, this brings up some issues offunding, which we were asked to address in this study. In addition to funding for the system by a local gas tax, the system receives assistance through the Florida Department of Transportation through the federally sponsored 5311 program that provides operating assistance to rural areas. The MCT system is currently not receiving any of this funding, due in part to the limited scope of Monroe County Transit Operational Study - September 28, 2001 19 '. ~ services and areas served. As we stated earlier in this report, it would serve County staff well to contact the appropriate FOOT staff and to learn whether or not these funds could be used to subsidize some of the paratransit service being provided by MCT or if some other mechanism existed to compensate MCT for this service. Information on contacts is provided in the following suggested improvements section. Another aspect of the Key West system to consider is how it should play into the coordinated delivery system. Although it is recognized that MCT is not the Community Transportation Coordinator at this time, they do provide many trips for the Medicaid Program. During season, only 17% of the MCT ridership was WIC passengers, so an argument could be made that with screening and assessment several could be transferred to the fixed-route system. This could save the Medicaid program considerable funding, while serving as additional revenue for the fixed-route system. If MCT was coordinating services for all funding streams, other agencies could be purchasing bus tickets and passes in lieu of more expensive paratransit services, including the TO Program. A monthly bus pass is $20, while the average Medicaid trips is over $15 per one-way trip. Finally, concerning fixed-route service, it should be noted that the Miami-Dade Transit Authority (MOTA), has express bus service that comes as far as Mile Marker 98, and is slated to expand as far down the Keys as Mile Marker 50. The service was designed and funded in part to serve Workforce Initiative trips for employment. In an environment of total coordination, it would be hoped that Medicaid and other funding agencies needing service into the Miami-Dade area could be coordinated with this service when appropriate. The cost savings, again, could be considerable for the Medicaid Program and others, and offers a more complete service for county residents. Improvement Action Plans: There are several issues that have been raised by examining the role that Key West Transit plays in the overall service delivery model. One question that was raised by staff concerned the funding that is distributed through the Florida DOT to Key West Transit and the question of whether or not any of that could be available to Monroe County Transit, either in its current role, or if it chose to accept designation as the Community Transportation Coordinator. The Commission for the Transportation Disadvantaged is not responsible for that funding stream. That program is administered through the Department of Transportation and the contact is: Mr. Rene Rodriguez Public Transportation Manager Florida DOT District 6 601 S. Miami Ave. Miami, FL 33130 (305) 377-5913 Monroe County Transit Operational Study - September 28, 2001 20 The other question that was raised was how Key West Transit is providing the ADA complementary service, and if there are funding and contractual issues that sho'ufd .be addressed between that agency and Monroe County. These are answers that only county officials can find, and we are only providing information so that they may better understand the questions that could be raised. Finally, we recognize that MCT looks at itself as primarily providing service to elderly and disabled passengers that need assistance. However, if all services were coordinated through the CTC and Key West Transit was a viable partner in the coordinated system, one could infer that many of the trips being provided to ambulatory (and some wheelchair) passengers could be provided through the fixed-route system, which could be a win-win situation for all involved. M. Communications/ Public Relations Observations: We recognize that any decisions that will be made regarding Monroe County Transit have implications that will affect several agencies municipalities, and divisions within the county government structure. The City of Key West, with a population of 30,000 people is an incorporated area, and thusly has its own independent structure. There have been recent incorporations in Islamadora and Marathon, and apparently more to come in Big Pine, Plantation, and Tavanier. It is important for the county to take a holistic approach to transportation service delivery to avoid fragmentation and duplication of services and to reduce overall costs for providing this service. Funding is very limited and a coordinated system is the best way to ensure consistent quality service as well as using the funding efficiently. N. Exit Interview Observations: An exit interview was held in Key West with following Monroe County government staff: James L. Roberts James E. Malloch Louis LaTorre Jerry Eskew County Administrator Community Services Division Director Senior Director of Social Services Senior Administrator, Transportation Our opening statements included a sincere thank you to all of the Monroe County staff that helped arrange and facilitate the visit, particularly Mr. Jim Malloch. All of the staff were extremely accommodating and very open and honest in their conversations and sharing of information. Major points covered were: Monroe County Transit Operational Study - September 28, 2001 21 ~ A reminder to Mr. Roberts and in turn to local elected officials of our efforts to secure additional funding for the Transportation Disadvantaged Program,' and a sincere request for support. ~ Recognition of the positive impact of Mr. Jerry Eskew in his position. We were particularly impressed with his positive attitude and great relationship with his staff by empowerment, and his goals for furthering his education and professional certification. ~ Recognition of MCT as being on the cutting edge of technology for a small rural system. We stated that they were in a very enviable position to experience growth in the system and to adapt to new innovations that could improve productivity and accountability, such as AVLs and MOTs. ~ We felt that the move to the new location would have a positive influence on the staff and the system. ~ We stressed the importance of addressing the relationship with the current CTC and try to complete the interlink between areas and to provide for a better system and more choices for consumers ~ Acknowledged that if the county were to consider the designation as the CTC, they could be eligible for several grants, including Transportation Disadvantaged Trust Funds, possible DOT capital assistance and operating funds and Service Development Grant opportunities, which could be used in the development of service routes, and other opportunities for expansion. ~ Conversations should be opened with Key West Transit to discuss the understanding of their ADA complementary obligation, and to ascertain if MCT is in fact providing that service without any formal agreement, process, or compensation. After our briefing regarding our initial observations, Mr. Roberts indicated that the administration is looking at options to their current way of delivering service, and that taking on more coordination of services, including the designation as the Community Transportation Coordinator, was open for discussion. Mr. Roberts said that the perception among many Commissioners was that trips were costly, and he viewed what would come out of the report as a comparative study with other comparable systems with quantitative measures indicating how the MCT system stacks up from a statewide perspective. He felt that the vehicle backup ratios were high and that this is an area where the county could make cost savings. Monroe County Transit Operational Study - September 28, 2001 22 It was clear that both Mr. Roberts and the County Commissioners wanted a cost-effective and efficient system, and that anything that could be addressed in the report regarding cost-effectiveness, including any and all ideas (even if not popular), about doing it cheaper would be appreciated. Improvement Action Plans: In preparing the Operational Study, we have attempted to incorporate information that Mr. Roberts indicated would be useful to the County Commissioners as they made decisions regarding the future of Monroe County Transit. It should be recognized that with our limited scope and involvement, we attempted to identify areas of concern and those worthy of further investigation by county staff. With our expertise and experience with several other systems throughout the state, we have given some comparisons, with the understanding that additional research is often necessary before coming to clear conclusions. O. Summary and Concluding Observations We would like to thank all of the staff of Monroe County Transit as well as Monroe County government officials for inviting Commission staff to provide technical assistance and conduct this Operational Study. Our key observations are summarized as follows: ~ Monroe County Transit has been providing services to the transportation disadvantaged since 1970. The system has a long history with county residents that depend on this service to maintain their independence. The continuation and growth of this system is vital to the community. ~ Review the staffing level at the administrative level, and continue the professional development of key personnel. ~ Readdress the relationship with the Community Transportation Coordinator (CTC) in order to develop a more comprehensive delivery system that would include connecting service between each of the zones operated within the MCT system. ~ Work with Commission staff to obtain the Medicaid billing module for the transportation management software (Trapeze). ~ Work with Commission staff to investigate the future use of technology such as Automated Vehicle Locators (AVLs), Mobile Data Terminals (MOTs) and other peripheral devices that could enhance the accountability of the system and the quality of service. ~ Obtain photo I.D. cards for all drivers in the system. Monroe County Transit Operational Study - September 28, 2001 23 t ,,\ ~ ~ Research the availability of funding from FOOT to help finance replacement vehicles for the system, and look to smaller configurations in some areas to provide more responsive service and reduce expenses. ~ Resolve relationship with Key West Transit regarding provision of paratransit service and use ofthis service for Medicaid clients and other passengers that could use the fixed-route. ~ Consideration of expansion of the MCT in its role of coordination of services, including provision of service to Medicaid recipients. Thank you very much for the opportunity to visit your system and offer guidance as you enter these exciting and challenging times. We stand ready to offer additional technical assistance as requested to ensure the continuing success of this program. Monroe County Transit Operational Study - September 28, 2001 24