CHAPTER FOUR

SURVEY OF TRANSIT OPERATORS

SURVEY METHODOLOGY AND RESPONSE RATE

A number of transit agencies providing a variety of transportation services in the United States and Canada were selected to be surveyed using the following criteria:

• Size of operation and modes of transportation,
• Geographic location,
• Population of city or service area or annual ridership, and
• Funding sources.

On the basis of these criteria, 63 transit agencies from 29 states and 4 Canadian provinces were selected for the survey. The general manager or appropriate person for each transit agency was first contacted by telephone, introduced to the TRB project, and then sent the survey questionnaire. To increase the response rate and obtain better representation, follow-up phone calls were made to selected operators who did not initially complete the survey. Of the 63 transit agencies receiving surveys, 19 (16 from the United States and 3 from Canada) responded, a response rate of 30 percent. The list of transit agencies surveyed is presented in Appendix B.

CHARACTERISTICS OF SURVEY RESPONDENTS

Table 1 presents key characteristics about the transit agencies that responded to the survey. In general, 1998 budgets ranged from $6.6 million to $1.3 billion. Approximately 40 percent of the agencies spent 1 percent or less of their budget on communicating with persons with disabilities, and 10 percent spent more than 3 percent of their budget in this area.

     Annual ridership for these agencies ranged from 3.3 to 387 million passengers. Seniors and persons with disabilities represented from 2 to 47 percent of the annual ridership.

     Thirteen of the transit agencies operate at least two of the following modes of transit: bus, commuter rail, heavy rail, vans, paratransit service, or ferry service. Two agencies operate only commuter or heavy rail, and four operate only bus service.

     All of the transit agencies provide access to multimodal facilities, with 13 connected to a rail facility, 13 to an airport, 15 to a bus facility, and 5 to a ferry service.

SUMMARY OF SURVEY RESULTS

Reason for Improving Communication

Two-thirds of the respondents indicated that the most important reason for improving communication methods for persons with disabilities was the benefit it provided to all riders. Government legislation was the reason given by approximately one-third of the agencies, whereas one-quarter indicated that such improvements would attract more customers to their services. Some agencies stated that it would be more cost-effective to transport persons with disabilities on conventional transit and, thus, there is a need to make conventional transit more accessible. Only one agency indicated that their improvements to communication systems were a result of public demand.

Methods of Communicating

Transit agencies were asked to identify and rank their current methods of communicating with persons with disabilities. The ranking options were: very effective, effective, somewhat effective, ineffective, and very ineffective. Each option was assigned a score of from one to five, with five being very effective, and the totals were tabulated to determine the methods identified as most and least effective. The number of times each option was identified by a survey respondent was tabulated and identified as the frequency. Table 2 provides a summary of the results.

     Telephone information service was identified by transit agencies as the most effective method of communicating with persons with disabilities. Other methods of communication with high scores were customer training, providing web-based information, and the operator calling out stops.

     The communication methods that were most frequently identified as very effective were:

• Telephone information service
• Fax information service
• Male/female voice for direction
• Detectable warning (e.g., surface treatments)
• Specialized signage for the visually impaired
• Flashing warning lights
• LED destination signs.

     Methods of communication most frequently identified as being effective included:

• Automated telephone information service
• Customer training
• Trip planning
• TTY phone information service
• Symbols for persons with visual impairments
• Passenger information at bus stops.

     Transit agencies responded most frequently that the following methods were somewhat effective:

• Web-based information service
• Call out stops (voice)
• Call out stops (electronic)
• Automated information kiosks (touch screens).

     Braille cards were identified most frequently as being ineffective.

     The communication methods identified by the transit agencies are all documented in the literature. The ranking of the braille card as an ineffective method of communication appears to be consistent with the recommendations in the literature that braille should be used in conjunction with another method of communication.

Communication Methods at Connecting Intermodal Terminals

Transit agencies were asked if they investigated the communication methods available at connecting intermodal facilities. Approximately one-half answered no. Explanations were that it was not within their jurisdiction to do so, they lacked the resources to examine intermodal facilities, or that passengers have not requested or complained about communication systems at these facilities. The remaining agencies indicated that they investigate the communication methods available at connecting facilities by:

• Utilizing surveys, research, site visits, or conducting audits;
• Investigating complaints received from customers; or
• Asking members of their Advisory Committee to ride the system.

     Once these transit agencies complete their investigations, the information is distributed to passengers on board the vehicles, at bus stops, and through their travel information centers. This information is in the form of TTY, flyers, e-mail, mail-outs, rider alerts, and news releases. The information is also posted in ride guides and distributed through public service announcements.

     The provision of appropriate communication methods to connecting intermodal facilities is an important component of the trip planning decision for passengers with disabilities. If the necessary communication mechanisms are not available, passengers either will not travel or will choose an alternate method of transportation. In either case, it is an added hardship for those needing to make a connecting trip.

Problems Identified with Current Communication Methods

The problems identified by individual transit agencies with their current methods of communication were derived from their experience and complaints from passengers and special interest groups.

     A frequent problem concerned operators not calling out major stops on a consistent basis. Other related problems included passengers requesting individual talk boxes for each platform and that audible destination messages are disrupting some neighborhoods late at night.

     Problems were identified with the real-time aspects of the communication system. Transit agencies indicated information was not being effectively relayed and that the systems do not have an audio component.

     Problems related to signage and literature included passengers requesting information in another language or in braille. A lack of proper identification of tracks and station platforms was also reported.

     Accessibility-related problems include:

• Web-site information needs to be developed to meet the concerns of persons with visual disabilities,
• Operators not being able to quickly accommodate detours/irregular routing requests,
• Route and schedule information not being accessible by telephone to passengers who are deaf,
• The lack of a single communication method that meets everyone's needs, and
• Difficulties conducting accessibility and safety audits, including the examination of communication access.

     Several of the communication techniques and devices described in chapter 3 could address the problems identified by the transit agencies. Potential solutions for the audio-related problems could include:

• Driver training for announcing stops,
• Electronic stop announcements,
• Talking signs on platforms, and
• Implementation of an audio component with ALV.

     To address signage and literature:

• Electronic signs could be displayed in vehicles and on platform areas and
• Schedule and route information could be provided in other languages and in braille.

     To address electronic accessibility:

• Develop an accessible web site,
• Accommodate flexible routing requests, and
• Make TTY devices available.

Methods Used to Determine the Communication Requirements

To determine the communication requirements of persons with disabilities:

• Thirteen transit agencies consult with organizations representing persons with disabilities,
• Ten transit agencies use customer surveys and focus groups,
• Nine transit agencies use field observations and unsolicited input from passengers, and
• Four transit agencies indicated that they have formed their own advisory committees to recommend appropriate communication methods.

Planned Improvements for Current Communication Methods

Communication techniques and technologies that transit agencies are planning to implement covers a large segment of the communication methods available. Transit agencies' plans are heavily focused on expanding Internet-based information and announcing stops. These two methods of communication were ranked as the most effective methods of communicating with persons with disabilities. Other forms of communication improvements include:

• Staff Training

• Train staff on the use of TTY equipment,
• Continue driver training on serving passengers with disabilities, and
• Implement a focused retraining program for fixed-route operators concentrating on ADA compliance.
• Information

• Provide web page formatting based on customer requirements;
• Implement a web site for customers;
• Improve and expand the web site;
• Provide an automated transit itinerary planning service on the web site;
• Feature accessible routes, stations, and so forth in system literature (ride guide);
• Improve communications in subway stations and trains through the use of fiber optics; and
• Reorganize phone systems (automated) to make it easier for customers to choose appropriate topics.
• Signage

• Install electronic signage and audio communication at key stations on all lines and
• Develop braille and tactile maps for persons who are visually impaired.
• Stop Announcement

• Place voice enunciators in every bus to announce bus stops, major intersections, major attractions, and the end of the line;
• Complete installation of next-stop audible and captioning systems;
• Experiment with automated stop-calling devices as part of the Intelligent Bus System program;
• Make calling out stops a requirement (with disciplinary action for noncompliance); and
• Implement electronic stop announcements.
• Computerization

• Implement AVL/Global Positioning System;
• Implement new scheduling and dispatching software to allow for the use of interactive voice response to confirm trips, pick-up times, and to make cancellations; and
• Continue to research adding the audio component to display terminals at the transit centers.

Factors Determining the Priorities for Improving Communication

Factors affecting agency priorities for improving communication with persons with disabilities were prioritized by the transit agencies as follows:

• Feasibility of implementation,
• Government legislation,
• Cost,
• Number of requests for improvements,
• How the proposed communication improvement fit into overall agency plan, and
• Integration with the needs of the general riding public.

Effective Ways of Marketing to Persons with Disabilities

The transit agencies prioritized the most effective marketing methods as follows:

• Transit promotional material
• Radio
• Television
• Electronic signs
• Internet.

Newspapers and magazines were identified as the least effective marketing methods.

Calling Out Stops

Calling out stops was rated as a somewhat effective method of communicating with persons with disabilities, and all transit agencies indicated that they have a procedure for announcing transit stops. The majority of the agencies however do not have an automated system for announcing stops, and for these agencies the calling out of major stops is the responsibility of the operator. Calling out stops, transfer points, major intersections, and destinations, as well as at sufficient intervals along a route, to permit individuals with disability to orientate themselves, is a requirement of the ADA. As a result, a greater responsibility has been placed on the operator, and ultimately the transit administration, to ensure that the act is being followed consistently and comprehensively.

Electronic Display

Two-thirds of the responding transit agencies reported that they currently use electronic displays as a method of communication. The electronic displays typically transmit information about vehicle schedule, vehicle location, stop requests, fares, safety, special events, news, and weather. The electronic display system is typically located on transit vehicles, within bus waiting areas, within the transit terminals, and on train or bus platforms.

Audio System

Approximately one-half of the responding transit agencies indicated that they currently use a PA system as a method of communication. Several agencies with electronic display systems also have an audio system associated with it.

Employee Training

All respondents indicated that their agency provides special training to front-line personnel to familiarize and educate them about the communication needs of persons with disabilities. Specific training provided includes:

• Customer and sensitivity training,
• Use of TTY and TDD,
• Lift operation training,
• Active listening techniques,
• Training dedicated to ADA,
• Transit Ambassador Program,
• Bus operator training and retraining classes,
• Disability awareness training for supervisors and drivers, and
• Passenger assistance training for all operators, dispatchers, and office personnel.

The training identified by the transit agencies included that recommended in the literature.

SELECTED EXAMPLES OF APPLICATION FROM TRANSIT AGENCIES SURVEYED

The following are examples of the types of communication methods that have been used by the surveyed agencies.

Miami–Dade Transit Agency (MDTA)

The MDTA provides transit services to the city of Miami and Dade County in Florida. This area encompasses approximately 315 square miles, with a population of approximately 2.1 million. In 1998, MDTA carried approximately 81 million passengers.

     To accommodate and encourage persons with disabilities to use the rail and bus systems, the MDTA introduced a number of assistive devices on its equipment (rolling stock) and at its stations.

Specialized Signage for the Visually Impaired

On all MDTA buses, route identification and destination signs use large, oversized optic yellow lettering to assist passengers who are visually impaired. (The agency has chosen optic yellow over other available colors because it presents a superior recognition format in the Miami environment).

Digitized Voice Message

To assist the visually impaired to use the People Mover System, the agency has installed a digitized male and female voice message system to announce the approach of the next transit vehicle arriving at the station. A male voice is used for a vehicle travelling in one direction, and a female voice is used to indicate a train traveling in the opposite direction.

Detectable Warning

The MDTA has installed detectable warning strips along the leading edge of all of its rail and people mover stations. The warning strips are tactile tiles; 12-in.-wide rubber-finished tiles set flush with the surrounding surface, installed prior to the ADA legislation.

     Double-width (24-in.) tactile tiles are also positioned opposite the vehicle door opening locations along the station platforms, thus enabling both persons who are visually impaired and persons who use wheelchairs to line themselves up at the appropriate location on the platform before the arrival of the next train. This facilitates the train loading process and helps maintain schedules.

     MDTA personnel have also used these detectable warning devices as a visual tool to teach both seniors and school children to distinguish between safe and caution areas on MDTA station platforms.

ADA Training

As part of its orientation training for new bus operators, the MDTA has created a 1-day ADA sensitivity training course designed to assist operators in identifying and transporting individuals with disabilities. These courses are also incorporated in driver retraining programs run by the agency.

Alameda–Contra Costa (AC) Transit

AC Transit operates surface transit routes in a 375-square-mile area centered on Oakland, California. The service area population is approximately 1.5 million and AC Transit carried 63 million riders in 1998.

Tactile Pathway Review

AC Transit has developed new guidelines for the design of its bus centers that include provisions to accommodate persons with disabilities. One of these provisions is tactile pathways. The pathway or "induction line" is a way-finding or guiding device that is used to assist visually impaired or blind persons to negotiate their way through transit centers and to locate bus stops within these facilities.

     AC Transit is currently conducting a 3- to 6-month demonstration of Tactile Pathway Systems at the El Cerrito Plaza BART Station. This demonstration uses a 6-in.-wide bar tile "induction line" that runs from the fare gates at the entrance to the bus platform along a predetermined tiled pathway terminating at a bus stop pole on the platform where the bus would normally stop to allow passengers to embark. The patron following the "tactile pathway" is made aware of the bus stop pole position through the introduction of a 24-in.-wide cross-path bar tile, which intersects the induction line. This demonstration also included the placement of additional "cross-paths" preceding stop poles at other locations on the opposite side of the bus platform. In this instance, no induction lines were inlaid on the platform surface to guide the user to the bus stop pole. This demonstration project will help AC Transit evaluate the merits of each type of tactile pathway system and will influence the type of system recommended for other bus centers in the AC Transit network.

King County Metro

King County Metro Transit in Seattle, Washington, provides public transit service in about one-third of the county's 2,100-square-mile area. The population served is approximately 1.7 million. In 1998, Metro Transit carried 84.2 million passengers on its fixed route, paratransit, and vanpool services.

Web-Based Information Services

King County Metro Transit is currently updating its web site to make it more accessible to persons with disabilities. Transit information will be stored in a common database with consistent content. Users will then have the option to choose the format they wish to use to view this information (e.g., persons with visual impairments might choose a format with text only). The authority can also e-mail route alerts to riders who have signed up for this service. Route information is available in scheduled and real-time formats through various support programs.

Automated Traveler Information System (ATIS)

For trip-planning purposes, riders can also receive assistance from Metro Transit through a program known as ATIS. This is a geo-based trip-planning program providing origin and destination data to the transit agency. Transit riders can obtain trip-planning information that will include up to three alternative routings (including the walking distance) for using public transit. This information is obtained by inputting existing routes and schedules and the origin and destination information into the ATIS program, which in turn creates the routing alternatives. ATIS currently provides travel information related to scheduled time rather than real time, which is appropriate for current purposes. Automated traveler information is currently available in numerous transit properties in the United States, such as Portland, Oregon.

Toronto Transit Commission (TTC) Wheel Trans

The TTC serves a 244-square-mile area that contains a population of approximately 2.3 million. In 1998, the TTC and its paratransit division (Wheel Trans) carried 389 million passengers on its surface, subway, light-rail transit, and paratransit services.

Customer Training

With the arrival of sufficient quantities of low-floor and lift-equipped buses, TTC has been able to identify a number of its surface routes as accessible. Wheel Trans has undertaken a customer training initiative designed to familiarize its clients with the accessible equipment assigned to these routes. For its customer training program, Wheel Trans has selected an area located in the northwest quadrant of Toronto, which has several accessible routes feeding into subway stations on both the north–south Yonge and Spadina lines. The program seeks customers living within the study area as volunteers to be trained in using the accessible routes and the various features of the low-floor and lift-equipped buses assigned.

     For the training program, Wheel Trans provides assistance using either Wheel Trans customer service personnel or light duty operators, whose task it is to help the volunteers negotiate the interior of the buses and secure the assistive devices. The TTC will assess the effectiveness of the program following the completion of the test period.

Mentor Program

Wheel Trans intends to introduce a mentor training program following the initial customer training program. This program will provide training on equipment, access, and familiarization for human and social service representatives, and friends or relatives of Wheel Trans clients. This will ultimately allow the Wheel Trans customer service personnel and light duty operators to return to their regular tasks within the organization.

Sensitivity Training

The Operations Training Center (OTC) at TTC provides a special training course for new drivers, teaching them to understand the needs of riders with disabilities. Sensitivity training is also given to operators scheduled for refresher training by OTC. In addition, every driver signing up for an accessible route must now be trained on how to use the accessible features provided on the bus.

Calgary Transit

Calgary Transit is a multimodal transit authority operating in a 418-square-mile service area in and around the city of Calgary, Alberta. Calgary and environs contain a population of approximately 850,000, and its transit system (Calgary Transit) carried in excess of 70 million riders in 1998 on its rail and bus services.

Travel Training

In 1998, Calgary Transit implemented a travel training program for senior citizens and persons with disabilities. The program provides outreach services to agencies and individuals, and informs people about the accessible services available through the transit agency. Through individualized coaching, including arranging for the use of a low-floor bus for practicing embarking and disembarking safely, the program enables customers to use accessible Calgary Transit services and increase their independence.

     A Calgary Transit travel trainer teaches clients the necessary skills required to use Calgary Transit by means of instructional aids, including videos, route maps, and schedules. Thus, by understanding how to use the system, they gain confidence in traveling and accessing the community-based services.

     There is no cost to clients who participate in this travel-training program. The program covers trip planning, using Calgary Transit resources, and safety and security, while providing clients with direct experience on the transit system. The personalized instruction is self-paced and matches a schedule that meets each individual's needs.

     Participating in travel training provides opportunities by increasing community awareness and offers a choice in transportation options. Since its inception, Calgary Transit has worked with a variety of clients including:

• Persons with physical disabilities,
• Persons with visual impairments, and
• Persons with cognitive disabilities.

Metra

Metra is a commuter rail service operating within a 3,000-square-mile area surrounding the city of Chicago, Illinois, and its suburbs. The total population of Metra's service area is 7.9 million, and the line carried 76.2 million riders in 1998.

     Metra is currently in the process of improving its ability to communicate with persons with hearing and visual impairments through the increased use of audio and visual devices. These devices include "Talk Boxes," which will activate speakers when a person is within a certain distance of the device. The Talk Box will then provide information such as track numbers, train arrival, and direction. Over the next 3 years, electronic signage, with accompanying audio enhancements, will provide further assistance to the hearing impaired.

     Metra is also playing an active role in training both its employees and the disabled community. The employee training program focuses on how to accommodate persons with disabilities, whereas the training for the disabled community focuses on how to use the "assistive equipment" that Metra provides on its rolling stock and at its stations.

     A recent example of the Metra commitment in serving persons with disabilities is its cooperative endeavor with Easter Seals Project ACTION. Metra is preparing a film designed to teach "travel trainers" how to recognize and use the various devices that Metra has made available to assist persons with disabilities in using its commuter rail system. Travel trainers, after viewing the film, will then be able to instruct and advise their clients with disabilities on how to access the Metra rail system.