The Regional Municipality : of Hamilton- Wentworth
HAMILTON PUBLIC LIBRARY
Disabled and Aged | M Regional Transit System AR 13 1987 GOVERNMENT DOCUMENTS
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Disabled and Aged Regional Transit System
Review of D.A.R.T.S. Operation
PINAL REPORT
JANUARY 1987
APPENDIX A - RESULTS OF DARTS CONSUMER SURVEY
TABLE OF CONTENTS
EXECUTIVE SUMMARY
INTRODUCTION
DESCRIPTION OF DARTS DARTS Background
DARTS Services and Operations DARTS Ridership
PSsEsOMENT OP ADEQUACY Policy and Operating Guidelines
Potential for Coordination with Other Agencies
Comparison with Other Cities' Systems Future DARTS Travel Demands Assessment of DARTS Services Operational Efficiency
DARTS Relationship to the Region
Summary of Current Issues
DEVELOPMENT OF DARTS SERVICE PLAN Assessment of Service Strategies
Service Policies and Performance Guidelines Five Year Plan Alternatives
Basis for Future DARTS Expansion
ORGANIZATIONAL REVIEW
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EXECUTIVE SUMMARY
DARTS (Disabled and Aged Regional Transit System) is a transportation service provided to disabled residents of the Region who are unable to use regular public transit. The review of the DARTS operation was initiated by Regional Council to assess the adequacy of the existing operation and to
develop a plan for efficient and effective delivery of the services in future.
DARTS services have expanded rapidly during the past several years with annual costs and system ridership roughly doubling between 1981 and 1985, During 1985, DARTS provided 193,000 rides to approximately 3,500 registered users. At the end of 1985, an additional 300 applicants were on a waiting list
for DARTS services.
In 1982 and again in 1985, DARTS conducted consumer surveys of agencies whose clients used DARTS and of users of DARTS services. The results of these consumer surveys are summarized in Appendix A. Fifteen (15) agencies participated in the 1985 survey and 356 users responded to the survey. Generally, the agencies and users participating rated the different aspects of DARTS services favourably in both 1982 and 1985.
A detailed survey of DARTS users, conducted in March, 1986, indicated that about 80% of the respondents have major mobility problems, about 10% have little or no mobility problem and the remaining 10% are visually impaired, retarded or frail-elderly persons with unclear mobility problems. The analyses of ridership indicated that future DARTS ridership levels will be directly related to eligibility policy. A relatively high portion of the Regional population in wheelchairs and with major physical disabilities is currently well served by DARTS and significant increases in ridership in future will likely result from increased service to blind, retarded or frail-elderly mobility
handicapped persons by DARTS.
DARTS services were compared with the services provided in four other urban areas (London, Peel Region, Winnipeg and Ottawa). The main findings of this
comparison are:
The level of service provided by DARTS in 1985 on a per capita basis is roughly equivalent to that in Ottawa and significantly greater than
the other systems.
DARTS operating efficiency and financial performance compares very favourably with other systems. This is largely related to DARTS extensive use of taxis and the higher revenues from agency-sponsored
trips.
Through the assessment of the existing DARTS operation, the following major
issues identified were:
Eligibility policy
Agency service cost recovery
Specific service policies
Relationship of DARTS and the Region.
In response to these issues the study has recommended a number of service
policies and guidelines, as follows:
Eligibility
DARTS services shall be provided to residents of the Region who are unable to
use regular public transit with dignity due to a disability.
Registration
All applicants meeting the DARTS eligibility criteria and other requirements
of the application process shall be immediately registered to use the services by DARTS.
Agency Services
DARTS will implement a program to recover the full net operating costs
associated with accommodating agency program trips.
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Regular Fares
DARTS fares shall be equivalent to the non-discounted single adult fare on the
regular transit system.
Trip Refusal Rates
DARTS shall attempt to accommodate 99% of all trip requests made more
than 24 hours in advance and 90% of all trip requests for service on the same
day.
Service Guidelines
DARTS should operate services within 15 minutes of scheduled pick-up
and drop-off times at least 95% of the time.
Travel times for passengers on DARTS vehicles should not exceed 75
minutes 95% of the time.
Service will be provided from 6:00 a.m. to 11:00 p.m. from Monday to
Friday and from 9:00 a.m. to 11:00 p.m. on weekends and holidays.
DARTS shall provide regular services within the boundaries of the
Regional Municipality of Hamilton-Wentworth.
Performance Targets
DARTS will schedule its services to achieve a vehicle productivity target of 2.0 passengers per hour and a vehicle utilization target of 3.0
vehicle kilometres per trip by 1991.
DARTS will operate its services to achieve a cost efficiency target of an average operating cost, expressed in 1986 dollars, of $10.50 per passenger trip on DARTS vehicles and $4.25 per passenger trip on
taxis.
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Forecasts of DARTS ridership and associated costs have been prepared for the
five year period to 1991 as summarized below:
1986 DARTS 1991 Forecasts
Operation
(Estimated) Scenario A Scenario B Annual Ridership 225,000 274,000 335,1.000 Annual Expenditures (1986 Dollars) $ 2,128,000 S$ 2,491,000 S$ 2,536,000 Annual Revenues (1986 Dollars) S$ 420,000 S 470,000 $ 392,000 MTC Subsidy (1986 Dollars) $ 1,138,000 S-1,372,000 S. 1,485,000 Region Subsidy (1986 Dollars) S 600 ,000 S 649,000 S 659,000 DARTS Vehicle Requirements Pas) 33 30
Scenarios A and B illustrate the range of probable DARTS operting conditions to 1991. Scenario A is based on ridership estimates derived from demographic forecasts and a DARTS ridership survey with the current methods of operation continued to 1991. Scenario B is based on greater increases in future ridership on DARTS combined with further increases in the use of taxis to accommodate trips by ambulatory persons. In both cases, the impact on the Regional subsidy is similar and would indicate that future DARTS cost increases to the Region, will be mainly cost inflation. It shold be noted that these forecasts are based on continuation of current MTC funding and that any changes to this funding
could impact the Regional subsidy.
Specific changes to the current organizational structure which are
recommended are as follows:
DARTS should provide quarterly reports on its operations to Regional
Council through the Transportation Services Committee.
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The Region should consider incorporating the recommendations of this Study in the current operating agreement between DARTS and the Region.
The existing level of Regional representation on the DARTS Board of Directors should not be changed but, in future, the Region's representative should be a member of the Social Services Sub- committee for the Disabled or the Transportation Services
Committee.
DARTS should not be integrated with the Region but specific changes to the Region's and DARTS' responsibilities have been identified which could effectively allow the Region a greater role in the delivery of DARTS services.
However, these changes are not felt to be warranted at the present time.
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l. INTRODUCTION
In July, 1985, Regional Council initiated a review of DARTS (Disabled and Aged Regional Transit System) in response to concerns related to the level of service and overall cost-effectiveness of the system. The DARTS Board of Directors welcomed and encouraged this study. The intent of the study is to assist the Region and DARTS to continue to respond in an effective and efficient manner to current and mid-term transportation needs of disabled residents of the Region. Specifically, the study has responded to the following
issues:
The potential to improve the appropriate level of service to be
provided. The determination of the appropriate level of service to be provided.
The organizational requirements for efficient and effective delivery of
DARTS services.
The study has been conducted by a working group consisting of staff of the Regional Transportation, Finance and Social Service Departments as well as the Ministry of Transportation and Communications (MTC) and DARTS. At important milestones during the study, the Working Committee reported to and received direction from a Steering Committee comprising the Regional Administrator, Regional Commissioners of Transportation, Finance and Social
Services and members of the DARTS Board of Directors.
The study has been conducted in two phases. PhaselI has focussed on developing an understanding of the existing DARTS system and the travel needs of the disabled population of the Region. At the conclusion of this Phase, the main issues to be addressed in Phase II were identified. Phase II of the study has developed plans for the provision of DARTS services over the next five years and has specifically addressed the need for DARTS service policies, operational performance and level of service for the next five years
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Section 2 of this report provides an overview description of DARTS services and an assessment of the existing DARTS operation is provided in Section 3. Development of a five year service plan for DARTS is outlined in Section 4 and the recommended organizational changes for successful implementation of the plan are presented in Section 5. The detailed technical reports for each of
the study tasks are provided under separate cover.
Zs DESCRIPTION OF DARTS
DARTS is a special transportation service provided to physically disabled residents of the Region who are unable to use regular public transit. A summary of the major characteristics of DARTS is given in Table 2.1 and
further information is provided in the following sections.
Zol DARTS Background
DARTS is a private, non-profit corporation established in 1976 to "promote the integration and development of transportation services within the Regional Municipality of Hamilton-Wentworth for those disabled persons of any age but who are handicapped in using the public transportation system". The affairs of DARTS are managed by a Board of Directors, one of whom is appointed by
Regional Council.
DARTS is funded through MTC subsidies and a Regional grant, as well as passenger revenues. An operating agreement has been established between the
Region and DARTS which covers the following:
DARTS operational responsibilities Region responsibilities
General service characteristics Passenger fares
DARTS Board of Directors
On a day-to-day basis DARTS is managed and operated independently of the Region. Each year, DARTS submits a proposed budget and funding request to the Region for approval. Also, DARTS prepares quarterly subsidy claims to enable the Region to prepare subsidy applications to MTG,
Table 2.1
DARTS OVERVIEW FOR 1986
Total Expenditures:
Total Passenger Revenues: MTC Subsidy:
Region Subsidy:
Type of Service Provided:
Area Served:
Hours of Service:
Number of DARTS Vehicles:
DARTS Vehicle Trips: DARTS Taxi Trips:
Total 1986 Trips:
S$ 2,128,000 S 420,000 S 1,138,000 S$ 600,000
Pre-scheduled and demand responsive door-to-door
service on vans and taxis. All areas of Region. 6:00 AM to 11:00 PM Weekdays 9:00 AM to 11:00PM Weekends and Holidays 23 vans, 2 large buses 110,000 trips 115,000 trips
225,000 trips
Dee DARTS Services and Operations
DARTS provides services to disabled residents of the Region who are unable to use regular public transit and who have been registered by DARTS to use the services. At the end of 1985, there were about 3,500 registered users and an additional 300 persons were on a waiting list for DARTS services. These persons were being held on a waiting list as DARTS service capacity was not adequate. In April, 1986 all persons on the waiting list were registered to use
the service.
The level of service provided by DARTS has the following generai
characteristics:
Service is pre-scheduled and/or demand responsive door-to-door
service by vans or taxis. Charter service is also provided for groups. Area served includes all of the Region.
Service is provided from 6:00 AM to 11:00 PM weekdays and from 9:00 AM to 11:00 PM on weekends and holidays.
Fares for regular trips are equivalent to the regular adult HSR fare
while agency-sponsored trips are charged a higher, negotiated fare.
DARTS operations are based at a leased facility in the west end of Hamilton.
Some of the significant features of the operation are as follows:
DARTS uses a computer-based system for client registration, trip
reservation, scheduling functions, monthly reports and statistics.
About 50% of DARTS trips are accommodated on DARTS vehicles
while the remaining 50% are carried by taxis under contract to DARTS.
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DARTS staff consisted of 15 office staff and 32 drivers in 1985. The
drivers are members of C.U.P.E.
DARTS costs have increased substantially over the past 5 years. A summary of DARTS operating trends from 1981 to 1985 is provided in Table 2.2.
ape DARTS Ridership
The ridership on the DARTS services has grown about 115% from 1980 to 1985, with 193,000 passenger trips provided in 1985. Approximately half of the current ridership is carried on DARTS vehicles and the balance is carried on taxis under contract to DARTS. In 1985, about 22% of DARTS trips were to programs sponsored by other agencies. These agencies paid DARTS a special
negotiated fare for the sponsored trips.
In March, 1986 a survey of DARTS registrants was undertaken as part of this study. This survey included DARTS registrants and persons on the DARTS service waiting list. In total, over 3,700 persons were surveyed and the overall response rate to the survey was 30% (1,163 responses). Main highlights of the
survey results are as follows:
80% (about 930 responses) of the respondents indicated major mobility problems while about 10% (about 160 responses) indicated little or no problems. The remaining 10% (about 100 responses) represent blind/retarded and frail-elderly persons with unclear mobility
problems.
Half of the respondents are over 65 with 20% over 80 years of age.
About a quarter of the respondents had not travelled in the past 30 days.
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Of the total trips reported by the respondents for a 30 day period, about 65% were by DARTS vehicles and taxis, about 14% by driving themself or riding with family or friends, about 8% were provided by other agencies, about 7% were on regular taxis and about 5% were on HSR buses.
80% of the trips recorded are to or from the lower Hamilton area, half
of which are completely in this area.
54% of DARTS trips are for work, school and medical purposes.
Respondents indicated a DARTS trip rate 3 times the average trip rate for DART > users:
Desired trips indicated by respondents would represent a 16% increase in demand over the actual DARTS trips recorded if all of the desired trips were accommodated on DARTS. This estimate may be subject to
over reporting, however.
3. ASSESSMENT OF ADEQUACY
The assessment of DARTS adequacy is directed towards an evaluation of DARTS capability to continue to respond effectively and efficiently to the
current and future transportation needs of mobility handicapped residents of the Region. This assessment is based on the findings of various tasks
conducted during Phase I of the investigation.
3.1 Policy and Operating Guidelines
The development of policy and operating guidelines for DARTS is an important step in the Study as it provides a basis for planning future changes and the ongoing monitoring of DARTS services. In Phase I of the study, the Working Committee discussed DARTS objectives and identified the range of policy and operating guidelines which should be developed in Phase II]. These cover the
following areas:
Eligibility
Service guidelines
Fares and recovery of costs Service efficiency targets
Reporting requirements
An important consideration was whether or not the DARTS guidelines should be directly comparable to the HSR service guidelines in areas such as hours of service, areas served, reliability and so forth. The major differences between the two services are the door-to-door level of accessibility provided by
DARTS, as well as the clientele served.
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3.2 Potential for Coordination with Other Agencies
An extensive review of other agencies serving disabled people in the Region was Carried out to assess the opportunities for combining the transportation services operated by these agencies with DARTS. Over 40 other agencies
were contacted and at least 16 of these agencies provide some form of transportation service to their clients. The majority of the transportation
services, however, are those provided by the School Boards in the Region.
It was concluded that there is not a great potential for extensive coordination of transportation of services with DARTS which would result in significant
costs savings or service improvements, for the following reasons:
In many cases, the persons served by these agencies do not fully meet
the DARTS eligibility criteria.
These agencies receive funding from a variety of sources, including other government jurisdictions such as Ministry of Community and
Social Services. The main transportation services are provided by the School Boards with travel activity during peak periods when DARTS is already heavily utilized. It is recognized, however, that there may be specific instances where trips could be coordinated with DARTS and these would have to be considered on an individual basis.
3.3 Comparison with Other Cities' Systems
A review of four other transit systems for disabled persons in similar sized
cities was conducted, as follows:
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London (Paratransit) Peel Region (Transhelp) Winnipeg (Handi-Transit)
Ottawa (Para Transpo)
In comparing these systems with DARTS, several areas were noted where the DARTS operation differs from general trends within the industry, as outlined
below:
Only DARTS has created a waiting list of applicants (from time to time) who are eligible for service but are not allowed to use the system due to insufficient capacity. Peel and Winnipeg occasionally have a number of registrants waiting for specific subscription trip
times.
DARTS is the only system which handles trips to other agency programs at special fares paid by the agencies. About 20% of DARTS trips are agency-sponsored trips. Also, DARTS has a significantly more favourable revenue/cost ratio (0.22 compared to 0.04 to 0.13)
than the other systems investigated.
DARTS and the Ottawa systems carry two to three times as many daily passengers as the other three operations even though both Peel
and Winnipeg have a larger service area population than DARTS.
Only DARTS makes extensive use of taxis for trips. Peel makes some limited use of taxis while London and Ottawa operate some cars as
part of their vehicle fleet.
The overall system cost per capita (an indicator of the level of service provided) for DARTS ($4.07 in 1985) and Ottawa (S4.60 in 1985) is significantly greater than the other systems (between $1.53 and $2.87 in 1985). This indicates that the services are more extensive in
Hamilton-Wentworth and Ottawa-Carlton.
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The average cost per passenger trip on the DARTS system including taxis ($8.94) is significantly lower than the other systems (between $11.58 and $20.64) except London, which is $8.37 per trip.
The average cost per passenger trip on DARTS vans, excluding taxis, is $11.45. The productivity on DARTS vans (1.73 passenger trips per hour) is lower than the other systems (1.88 to 2.12 passenger trips per hour). In 1986, the productivity on DARTS vans has improved to 1.98
passenger trips per hour.
3.4 Future DARTS Travel Demands
An analysis of the mobility disabled population in the Region and their potential travel demands was conducted and a forecast prepared to 1991. This analysis is based on data obtained through the DARTS Ridership Survey as well as Statistics Canada. In preparing the estimates of mobility disabled persons,
four different categories of mobility disability were utilized, as follows:
Persons relying on wheelchair or walker for mobility. Persons with other specific physical disability condition.
Persons who are blind (visually impaired) or mentally retarded with no
other disability condition.
Persons who are frail-elderly with no other disability condition.
Persons in the wheelchair/walker category would generally all be unable to use regular transit services while most of the persons in the frail elderly category
may be able to use regular transit.
Data provided by the Regional Planning Department indicates that the total Regional population will grow about 6% in 1991 as compared to 1982 (i.e., from 415,000 persons to 439,000 persons). However, due to the aging of the population, it is estimated that the segment of the population with mobility handicaps will grow about 12% over the same period (i.e., from 10,000 persons in 1982 to 11,200 persons in 1991).
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Using the travel data from the Ridership Survey, the weekly trips on DARTS were estimated for each disability category, as shown in Table 3.1. These
estimates incorporate the following assumptions:
Trip-making activity would increase about 15% from 1986 to 1991, on
a per person basis. Market penetration would increase for all disability groups.
Persons with unclear disabilities currently registered on DARTS would
be allowed to continue using the service.
About 5% of all trip requests would be unable to be accommodated.
The resulting estimate of 1991 ridership is 5,270 trips per week or 274,000 trips annually. This is a 22% increase in ridership over 1986 (i.e., 225,000 trips
annually).
Table 3.1 FORECASTS OF DARTS RIDERSHIP TO 1991
Estimated 1991 Weekly Trips
Persons in Wheelchairs and Walkers 2,400
Persons with Specific Physical Disability 20
Person who are Blind, Retarded or Frail-Elderly
Only 450 Persons with Unclear Disabilities 600 Subtotals , 52550
Estimated Trip Requests Not Accommodated (i.e., Refusals) 280
Total 1991 Weekly Ridership oT AY)
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5) Assessment of DARTS Services
The assessment of DARTS services focussed on DARTS service policies and
the level of service provided.
Several concerns related to DARTS service policies have been identified, as
summarized below:
The DARTS eligibility guideline (i.e. disabled persons who are unable to use regular public transit) is somewhat broader than the MTC eligibility guideline (i.e. disabled persons unable to board a regular transit vehicle). The implication of this difference is that some DARTS trips may not qualify for the MTC per passenger trip subsidy ($2.70 per trip) in the future, resulting in an increase in the Regional
subsidy requirement for DARTS.
The policy of maintaining eligible applicants for service on a waiting list until major service expansions are implemented appears to unnecessarily restrict access to the service. The approach in most other systems is to register eligible applicants and to make the system capacity available on a first come, first served basis. Even if the system is fully utilized during peak periods, there are still opportunities for new registrants to obtain some service during off-
peak periods when the system may not be fully booked.
The results of the travel survey indicated that a significant percentage (i.e., over 10%) of the persons currently registered to use DARTS are able to use regular public transit. This would indicate that some existing system capacity is being used by persons who may not be
eligible under the stated eligibility guideline.
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Provision of services for trips to other agency programs, albeit at a higher fare level, utilizes a significant portion of the DARTS service capacity. This arrangement provides increased revenues to DARTS but it also implies that DARTS accepts responsibility for providing these trips. If other medical and social agencies increase the number of day programs for persons living at home, increased travel demands will occur. At the same time, the agencies may resist payment of higher fares for trips to their programs. This situation requires a policy regarding DARTS responsibility for providing trips to agency programs
and a basis for establishing fare levels.
The overall level of service provided by DARTS is comparable to that in the other cities investigated. In terms of the level of expenditure, on a per capita basis, DARTS is only exceeded by the Ottawa-Carleton system. Service is available 7 days a week with slightly different hours of service than the H.S.R. The regular DARTS fare is equivalent to the regular adult cash fare on the H.S.R. services. The area served by DARTS is the full area of the Region while the H.S.R. serves a smaller area defined as the Urban Transit Area. The current level of service refusals is about 1% which is equal or better than other similar sized systems. Over the last 5 years the service has expanded considerably and would appear to be reaching maturity for those persons in
wheelchairs or walking aids and those with specific physical disabilities.
3.6 Operational Efficiency
In most respects, the operational efficiency of DARTS compares favourably
with other similar sized systems. The main areas noted are as follows:
DARTS has maintained a relatively low cost of service delivery through extensive use of taxis under contract. The overall operating cost per passenger trip on DARTS is lower than all the other comparison systems except London. The lower cost per passenger in London can be largely attributed to the significantly lower wage rates
of the drivers there.
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DARTS has developed and uses a microcomputer-based system for handling user registration files, trip reservations, daily trip schedules and generating operational reports. This system provided efficiencies in the current operation and also provides flexibility to accommodate
increased demands in future.
Maintenance and servicing of DARTS vehicles is performed through a maintenance contract arrangement. This arrangement provides DARTS with the opportunity to obtain these services at competitive
prices.
In reviewing that segment of the DARTS operation provided by the DARTS vehicles only (i.e. non-taxi services) it would appear that there may be some scope for improvements in productivity. In 1985, the number of passenger trips provided per vehicle hour (including charter services) was 1.73 which was a significant decrease from previous years (2.1 in 1984 and 2.3 in 1983). This is lower than the other comparison systems which range from 1.88 passenger trips per vehicle hour in London to 2.12 passenger trips per vehicle hour in Ottawa and Winnipeg. This lower productivity for the DARTS vehicle operations is related to the specific scheduling of trips and may be the result of shorter trips being scheduled on the taxi services and longer trips being scheduled on the DARTS vehicles. This aspect of the DARTS operation was considered by DARTS staff and has resulted in an improved productivity of
1.98 passenger trips per vehicle hour in 1986.
PTs DARTS Relationship to the Region
In comparing DARTS to other similar operations, it was noted that each system was organized differently. However, in each of the other systems, the municipality played a role in management of the system through a municipal department or transit commission. At the same time, in 2 of the 4 systems (London and Ottawa) the on-street operation is the responsibility of a private contractor. DARTS is unique in that it is the only system which is both managed and operated at "arms length" from the municipality. An advantage
of a private agency or contractor operating the service is that various
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efficiencies are achieved which are more difficult for a municipal government department to achieve. Also, with an agency such as DARTS, considerable volunteer time is received by persons on the Board of Directors and others which greatly assist the system. There is also greater potential for charitable donations. A disadvantage in the system being at "arm's length" from the municipality is that the basis for setting and administering policies may not coincide with Regional objectives and the accountability for public funds spent
on the service may be less direct.
In the current relationship between DARTS and the Region, the process for
establishing major policies is not clear. This relates to such areas as:
: Determining guidelines for eligibility for DARTS services and
administering these guidelines.
Holding eligible applicants for DARTS services on a waiting list until sufficient capacity is deemed to be available to accommodate these
persons.
Provision of services for trips to programs provided by other agencies
and the fare levels for these services.
The present organizational structure has enabled DARTS to operate an efficient and effective service. If the Region chose to take a more active role in formulation of service policies it would require a change in the
organizational structure and current agreement.
3.8 Summary of Current Issues
At the conclusion of Phase I of the study, a number of issues related to the
existing DARTS system were identified. These are summarized below:
ety ae
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Eligibility Policy The current DARTS eligibility policy is broader than the MTC funding
policy guidelines. Also, future ridership needs for DARTS services are
directly dependent on eligibility policy.
DARTS Waiting List
The current practice of holding eligible applicants on a waiting list is
felt to unnecessarily restrict access to the service.
Service to Agency Programs
Provision of service for agency trips at negotiated rates provides increased revenue to DARTS, thereby reducing Regiona! subsidy requirements. However, there is not currently a clear policy for
negotiation of rates and services with these agencies.
Fare Policy
Under the current MTC funding policy, passenger revenues for DARTS service directly affect Regional subsidy requirements. The current policy of fares being equivalent to regular adult HSR fares results in
about 11% of service costs being recovered through fares.
Future Level of Service
DARTS services have increased significantly during the past five years. The study should address the need for future service levels
including the area to be served and hours of service.
Operational Performance
Current DARTS operational performance is high in most areas although there is some scope for improved DARTS vehicle operating efficiencies. For ongoing planning and monitoring of services,
operational performance targets will be helpful.
aye
= =
Organizational Structure
The organizational structure should be reviewed to ensure it facilitates the efficient delivery of services in accordance with agreed on policies. The respective roles of DARTS and the Region should be
well clarified.
-19-
4. DEVELOPMENT OF DARTS SERVICE PLAN
Development of a plan for DARTS services over the next five years
encompassed the following:
An assessment of alternative DARTS service strategies.
Formulation of recommended DARTS service policies and performance
guidelines.
Development of five year programs for DARTS including ridership,
financial impacts and operating requirements.
Alternative five year DARTS programs are outlined, representing different
approaches to future development of the services.
4.1 Assessment of Service Strategies
A range of general service strategies was investigated, reflecting the
following:
Different levels of ridership resulting from different eligibility
guidelines in 1991. Different fare strategies for regular users and agency services.
Different areas and hours of service for DARTS.
The evaluation of this range of strategies for 1991 resulted in the following
findings:
The overall costs of DARTS services to 1991 are directly related to the eligibility guidelines that are adopted and the resulting levels of ridership.
Reduction of the DARTS service area to the urban transit service area would reduce ridership by about 5% and overall costs by about 6% to
8%. However, the outlying areas of the Region which would lose
200.
DARTS services have about 10% of the Regional population. Therefore, it is not felt that a reduction of the DARTS service area is
warranted.
Minor changes to the current DARTS service hours or to the evening and Sunday services do not significantly impact DARTS costs or subsidies. Therefore, it is not felt that specific changes to DARTS
service hours should be further considered.
The Regional share of the DARTS deficit is strongly impacted by fare and revenue policies. Under the MTC funding policy, increased DARTS revenues directly offset the Regional grant to DARTS. The charges for agency trips currently are roughly equivalent to the full net operating costs (i.e., operating costs less MTC per trip subsidy) of the service provided so there is no scope for increased revenue from the agencies. However, revenue policies which increased fares for regular passenger trips would provide a mechanism to limit the rate of
increase of Regional subsidies to DARTS.
Through this investigation, two strategies were identified for further analyses,
as follows:
A Trend Strategy which would accommodate DARTS ridership to 1991 for those persons unable to use regular public transit with all existing users being "grandfathered" (i.e., permitted to continue using DARTS
regardless of their physical condition).
A Restraint Strategy which would limit the annual increase in the Regional subsidy to DARTS to 34% by gradual increases in the fares
for regular trips on the system.
4.2 Service Policies and Performance Guidelines To guide the ongoing development of DARTS services and as a basis to monitor
performance, the following service policies and performance guidelines are
recommended by the Working Committee.
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4.2.1
Service Policies
Recommended service policies with supporting comments are outlined below.
Eligibility
DARTS services shall be provided to residents of the Region who are unable to
use regular public transit with dignity due to a disability.
This policy is consistent with the current intent of the DARTS service. It is, however, broader than the existing MTC policy of funding services to persons unable to board regular transit vehicles. If MTC were to strictly enforce their current policy in future, this policy could result in a loss of MTC funds in the order of $100,000 to $150,000. In implementing this policy, it is intended that all existing DARTS users would be permitted to continue using the services. Also, it is intended that DARTS would provide reciprocal service to users
registered with a similar service in other cities.
Registration
All applicants meeting the DARTS eligibility criteria and other requirements
of the application process shall be immediately registered to use the services by DARTS.
This policy is intended to eliminate any waiting lists and to make the services available on an equitable "first come, first served" basis. In the case of new users, they would have opportunities to use the services in off-peak periods if the peak period services were fully booked. j
Agency Services
DARTS will implement a program to recover full net operating costs
associated with accommodating agency program trips.
- 22 -
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This policy will provide a basis for DARTS to negotiate charges for agencies requesting services for their programs. Under current MTC funding policy, DARTS cannot charge more than operating costs less the MTC per trip subsidy. This policy would be phased in by DARTS
over the next 2-3 years.
Regular Fares
DARTS fares shall be equivalent to the non-discounted single adult fare on the
regular transit system.
This policy is a continuation of current practice which equates DARTS fares to H.S.R. fares. In future, if DARTS costs increase more rapidly than other costs, it may be necessary to establish a cost-recovery fare policy (e.g., fares set at 15% of costs) to control the impact on the Region subsidies to DARTS.
Trip Refusal Rates
DARTS shall attempt to accommodate 99% of all trip requests made more
than 24 hours in advance and to accommodate 90% of all trip requests for
service on the same day.
This policy provides a basis to determine if the capacity of DARTS services is adequate in relation to service needs. Also, this policy recognizes the the greater priority associated with accommodating trips requested in advance. Presently, DARTS accommodates 99% of all trip requests while other similar systems accommodate 97% to 99%
of trip requests.
Service Guidelines
DARTS should operate services within 15 minutes of scheduled pick up and
drop-off times at least 95% of the time.
eae
Travel times for passengers on DARTS vehicles should not exceed 75 minutes 927601 the time:
Service will be provided from 6:00 a.m. to 11:00 p.m. from Monday to Friday
and from 9:00 a.m. to 11:00 p.m. on weekends and holidays.
DARTS shall provide regular services within the boundaries of the Regional
Municipality of Hamilton-Wentworth.
These service guidelines are consistent with existing services provided by DARTS and the assessment of alternative service strategies concluded that changes are not warranted. DARTS may occasionally provide charter service outside the Region and this should be on a
cost-recovery basis.
Performance Targets
DARTS will schedule its services to achieve a vehicle productivity target of 2.0 passengers per hour and a vehicle utilization target of 8.0 vehicle
kilometres per trip by 1991.
DARTS will operate its services to achieve a cost efficiency target of an average operating cost, expressed in 1986 dollars, of $10.50 per passenger trip
on DARTS vehicles and $4.25 per passenger trip on taxis.
These performance targets represent minor improvements over current performance levels on DARTS but are felt to be reasonable targets. Performance targets provide a basis for monitoring services and identifying potential areas for improvement. It should be noted that operating costs do not include DARTS overhead and depreciation
costs.
4.3 Five Year Plan Alternatives
Three alternative plans for development of DARTS services to 1991 have been
investigated, as follows:
Trends Plan which focuses on accommodating forecast travel demands
for DARTS services. Eoin
Restraint Plan which would limit the annual increases in Region
subsidies for DARTS to 32%. DARTS Plan, prepared separately by DARTS, which is based on
generating substantially increased ridership to 1991 through increased
penetration of the mobility disabled market.
A summary comparison of these alternatives for 1991 is provided in Table 4.1
and a description of each is provided below.
Trends Plan
This plan would accommodate a 22% increase in DARTS ridership to 1991 which is the forecast ridership for those persons unable to use regular public transit with all existing DARTS users being grandfathered.
In 1991, about 51% of DARTS rides would be accommodated on taxis.
In 1986, about 51% of DARTS rides were carried on taxis.
The service policies incorporated in this plan are those presented in
Section 4.2.
The current MTC funding policy would be continued to 1991 with all trips receiving the per trip subsidy. If MTC restricted this subsidy to only those trips unable to board regular transit (about 85%) about $110,000 of the MTC subsidy could be shifted to the Region.
Total system expenditures would increase about 17% and the Region
subsidy would increase about 8% in constant 1986 dollars.
Restraint Plan
Ridership accommodated is same as the Trends Plan.
Regular DARTS fares would be incréased to about 15% of operating
costs (from about 10% in 1986) to increase system revenues. MTC funding policy assumptions are same as Trends Plans.
Total system expenditures would increase about 17% and Region
subsidy would decrease about 9% in constant 1986 dollars.
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If average cost inflation over the five year period is 5%, Region subsidy increases would be about 3%% annually.
DARTS Plan
4.4
This plan was prepared by DARTS and would represent further expansion of the mobility disabled market served by DARTS.
This plan would accommodate a 47% increase in DARTS ridership to
1991 as compared to 1986.
In 1991, about 57% of DARTS rides would be accommodated on taxis as compared to 51% in 1986. This is assumed to reflect an increasing
use of the service by ambulatory persons.
Revenues projected by DARTS increase ridership more rapidly than
revenues, representing reduced revenue per trip in 1986 dollars.
Financial projections are reduced to 1986 dollars using an assumed inflation rate of 5% annually. Total system expenditures would increase about 19% and Region subsidy would increase about 10% in
estimated 1986 dollars.
As a result of the increased use of taxis in this plan, costs increase
less rapidly than ridership.
MTC funding assumptions are same as Trends Plan. If MTC restricted the per trip subsidy as noted early, there would likely be a larger
amount of the subsidy shifted to the Region than with the Trends Plan.
Basis for Future DARTS Expansion
One of the main issues related to future DARTS operations is the level of
subsidy required to provide the service. As-illustrated by the range of five
year plan alternatives, the level of subsidy required is directly dependant on
the following:
Level of ridership accommodated
Method of operations
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. Revenue policies
The Trends Plan and the DARTS Plan provide two scenarios of different ridership levels and operating methods to 199!. These two scenarios are described in more detail in this section to provide a basis for future DARTS
expansion.
Scenario A is outlined in Table 4.2. This scenario has a ridership increase of 22% to 1991, as compared to 1986, based on demographic forecasts and the results of the DARTS ridership survey. In this scenario the mix of wheelchair and ambulatory person trips is estimated to remain relatively constant. Asa result the method of operation is based on continuing the current level of taxi utilization, Scenario B is outlined in Table 4.3. This scenario represents a ridership increase of 47%, as compared to 1986. The number of trips able to utilize taxis in this scenario is forecast to increase sigificantly, enabling greater use of taxis in the DARTS operation. As a result, operating costs would not increase as rapidly as ridership and the increase in the required
DARTS subsidy over Scenario A is relatively low (i.e. about 6%).
In both of these scenarios it is assumed that the existing MTC funding policy will continue to 1991. If MTC were to change this policy by limiting the annual amount of the subsidy or by limiting the funds to persons meeting the MTC eligibility criteria, there could be further increases in the Regional subsidy required. Also, if the increased utilization of taxis assumed in Scenario B can not be achieved, the overall costs and subsidy requirements could increase. Scenarios A and B represent the likely range of ridership and fiscal resources required for DARTS over the next five years. These are
intended as forecasts rather than fixed plans.
ole
Ridership Vans and charters
Taxi trips
Annual Ridership
Annual Expenditures (1986 Dollars)
Annual Revenues (1986 Dollars)
Total Subsidy Required
(1986 Dollars)
MTC Subsidy (1986 Dollars)
Region Subsidy
(1986 Dollars)
Fleet Requirements In service vehicles
Spare vehicles
FIVE YEAR PROJECTION: SCENARIO A
Table 4.2
_— ——— —————— —————
115,000
120,000
235,000
$2,198,000
S$ 430,000
$1,768,000
$1,185,000
Ss) 583,000
22
120,000
t25,.000
245,000
$2,272,000
§ 440,000
$1,832,000
Siy2372,000
§ 600,000
26
IONS
125,000
130,000
255,000
$252 30.000
S$ 450,000
$1,880,000
$1 42785000
§ 602,000
Fail
129,000
135,000
264,000
$2,414,000
$ 460,000
$1,954,000
$1,325,000
S$ 629,000
28
1971
——
134,000
140,000
274,000
$2,491,000
§ 470,000
$2,021,000
Si 3/29000
5 649,000
29
Ridership Vans and charters
Taxi trips
Annual Ridership
Annual Expenditures (1986 Dollars)
Annual Revenues (1986 Dollars)
Total Subsidy Required
(1986 Dollars)
MTC Subsidy (1986 Dollars)
Region Subsidy
(1986 Dollars)
Fleet Requirements In service vehicles
Spare vehicles
FIVE YEAR PROJECTION: SCENARIO B
Table 4.3
115,000
123,000
238,000
$2,239,000
S 410,000
$1,829,000
$1,197,000
S 632,000
22
1297000
135,000
264,000
522.07 000
S$ 413,000
$1,904,000
i279, 000
$ 625,000
Zi
Ache
135,000
150,000
285,000
$2,383,000
§ 403,000
$1,980,000
$1,349,000
S 631,000
28
1395000
168,000
307,000
$2,450,000
$ 397,000
$2,054,000
$1,412,000
S$ 642,000
30
143,000
188,000
$31,000
$2, 536,000
56392000
$2,144,000
$1,485,000
$ 659,000
30
de ORGANIZATIONAL REVIEW The existing organizational structure related to DARTS services was reviewed to determine appropriate changes for effective delivery of the planned
services. The findings are discussed below.
Integration of DARTS with Region
Integration of DARTS with the Region organization is not recommended at present. While such a change would provide Regional Council with increased control over DARTS operations, it is unlikely to improve the operational efficiency of the existing system and it would involve a major change to an
established organization.
Region Assumes System Management Function
Although many municipalities do maintain system management responsibility for special transit services while having operations provided under a contract, it is not recommended that the Region consider assuming DARTS system management functions at the present time. Such a change would likely increase overall administrative costs and would still involve significant
changes to an established organization.
Region Assumes User Registration Responsibility
The function of user registration involves the specific interpretation and administration of the DARTS eligibility policy. The transfer of this responsibility to a Regional Department would provide an effective means for the Region to have greater control over the demands for DARTS services without significantly disrupting the existing organizational structure. However, for the Regional Department involved, additional staff would be required and they would have to develop appropriate experience to carry out the responsibility. In the view of the Working Committee, this change is not
currently warranted.
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Regional Representation on DARTS Board of Directors
At present, one member of the DARTS Board of Directors is appointed by Regional Council. The existing level of representation does not require a change. It is recommended that in future, the Region's representative should be either a member of the Social Services Sub-committee for the Disabled or
the Transportation Services Committee. Reporting to Region
It is recommended that DARTS provide quarterly reports on its operations to Regional Council through the Transportation Services Committee. These
reports should include:
Financial performance in relation to approved budgets.
Statistics, Of “registration, ridership, ‘trip refusal rates; vehicle
productivity, vehicle utilization and cost efficiency.
The necessary data is currently available for these reports and no additional
expenses are anticipated.
DARTS - Region Operating Agreement
The Region should consider incorporating the recommendations of this study in the current agreement between DARTS and the Region. Revisions to the agreement should include DARTS service policies and guidelines, fare and revenue policies, responsibilities and procedures for user registration and
reporting requirements.
Internal DARTS Organization
No changes are recommended to the internal organization of DARTS. The
overall level of administrative costs is reasonable in comparison to other
cous
Th ots sink’ oe) aevennl ant
re tL : j a fo: | : Phane
systems and the current organization can accommodate future service
requirements without major changes.
933 °—
Appendix A
RESULTS OF DARTS CONSUMER SURVEY
Table A.1
EVALUATION BY AGENCIES
Raw Numbers and Percentage of Sample: - (1982 in parenthesis)
Satis- Good Factory Poor % of % of % of Service No. Total No. Total No. Total Punctuality 5) 20.0 8 D362 4 26rd (29.4) (47.1) (23.5) Client time in vehicle 7 50.0 Zu 50.0 0 O* (3 7a 5s) (37 <d) (250) Vehicle Appearance tet 78.6 2 la53 1 Tal (64.7) (29,4) (5.9) Loading/Unloading [2 80.0 e| 20.0 0 O* (Cee: (33.9) ee), Ramp/lift safety 11 78.6 3 21.4 0 O* (37.5) (43.8) (13.7) Safety equipment 11 78.6 3 21.4 0 O* (28.6) (50.0) (21.4) DARTS' Drivers Attitude Np 78.6 2 14.3 | ira. (5259) (29.4) C1756) Helpfulness ») 64.3 4 28.6 1 re Nis (58.8) (29.4) (11.8) Knowledge of city 8 Gites 4 30.8 l Lea (66.7) (3333) (0) Operation of vehicles je oA 4 l Se, 0 OF (71.4) (21.4) (7,2) Loading/unloading i S57 ie 14.3 0 0* procedures (43.8) 7) (1337) Taxi/Livery Drivers Attitude D sy, 6 50.0 1 8.3 Helpfulness 6 50.0 5 Ole? 1 8.3 Knowledge of city 7, 63.6 3 OH LOE: l Dak Safety 4 44.4 4 44.4 1 11.2 Office Staff ; Attitude 8 ee re) 6 40.0 1 yy hea (42.9) (42.9) C1652) 8 52.2 6 40.0 1 C7 Helpfulness (42.9) (50.0) eee Knowledge of agency OA aes CD meee Re. requirements (38.5) ‘
The evaluations overall tend to range from good to satisfactory, with one | category (punctuality) receiving a poor rating by more than 20% of the agencies.
* Indicates 11 out of 14 categories have shown improvement since 1982.
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