Paratransit Peer Review

Paratransit Service is public transportation for people who have disabilities that prevent them from using the fixed route, non-commuter bus service some or all the time that is comparable to fixed route service. Paratransit must be available within ¾ of a mile from the fixed route service and rail stations, and it must operate on the same hours and days as the fixed route. It is required by the ADA for all public entities operating fixed route transportation services.

Requirements include:

• Base level curb to curb service -- RTD provides door to door as necessary based on the customer assessment, and when the operator can maintain visual contact with the vehicle.
• FTA considers pick up windows longer than 30 minutes to be unacceptable -- RTD provides 30-minute pick up windows.
• Paratransit fares may not exceed twice the fixed route fare -- RTD charges a fare that is $1 less than twice the fixed route fare.
• Agencies can establish a policy requiring operators to wait at least 5 minutes for riders to board the vehicle upon arrival -- RTD’s policy is to wait 6 minutes for the customer to board the vehicle.

Agencies may implement services that exceed ADA requirements. FTA 4710.1, 8.7 Exceeding Minimum Requirements (Premium Service) states:

“The following are examples of services that can be viewed as a form of premium service:

• Same-day trips
• ‘Will-call’ trips
• Trips beyond the defined service area
• Trips before or after the established service hours

Because premium services are optional under FTA § 37.131(g) and otherwise do not fall under the complementary paratransit requirements, transit agencies may charge higher fares for premium service trips. For example, agencies may charge higher fares for trips requested on the same day of service. The exact fare for this extra service is a local decision."

In February 2024, General Manager and CEO Debra A. Johnson commissioned a peer review of RTD’s paratransit service delivery, to be conducted by transit industry subject-matter experts. The American Public Transportation Association (APTA) convened a peer review panel of subject-matter experts from across the country. During the course of the months-long comprehensive review, the panelists leveraged their knowledge and professional experience to assess RTD’s Access-a-Ride and Access-on-Demand (AoD) premium supplemental paratransit services.

The overarching goal of the months-long peer review was to help the agency better understand the strengths and opportunities of RTD’s complementary paratransit service, as well as its premium supplemental on-demand services. The peer review was also conducted to note potential improvements that support long-term sustainability. The panelists also visited Denver and interviewed agency staff, contractors, paratransit customers, and community stakeholders.

1. Identify best practices employed by similar transit agencies, including for demand-response programs
2. Model program parameters, including responsible cost controls and sound customer-facing processes
3. Review software, hardware, and other tools to ensure optimal service performance and program cost-effectiveness

The final report, which was issued to RTD in August 2024, outlines several observations and recommendations for assessment and consideration. All observations and recommendations must be individually assessed to determine the viability within RTD’s operating environment. Any policy changes related to the agency’s paratransit service delivery will be brought to the RTD Board of Directors for its consideration.

Recommended Initiatives

• Develop a clearly stated vision for paratransit to guide priorities in the Access-a-Ride (AaR) and Access-on-Demand (AoD) services
• Refresh the AoD program structure to create a financially sustainable option that serves customer needs
• Leverage technology and process improvements to streamline daily work to improve staff efficiency, reallocate staff to more impactful work, deliver better service, and reduce costs

Recommended Actions

1. Empower staff and contractors to set boundaries on the AoD service in alignment with service mission
2. Create a technology and data strategy
3. Reduce compliance exposure by evaluating service area “donut holes,” reevaluate enabling legacy customers outside the ¾-mile fixed-route service area, and review the fare policy to the airport
4. Evaluate AaR reporting standards for on-time performance, conduct regular checks on data/parameters used for key performance indicators
5. Identify an “empowered owner” of paratransit who can get into details and lead on policy
6. Implement software that can automate tasks, including trip caps across all AoD providers and reduce manual oversight of the program
7. Review contractor management processes and requirements to improve service and streamline operations

RTD launched a robust communication and outreach plan to directly engage with registered paratransit customers. As part of the outreach efforts, staff hosted in-person and virtual feedback meetings with customers and community stakeholders, as well as completed customer feedback surveys and provided feedback tools.

In November 2024, staff will share all customer and community feedback with the RTD Board of Directors. At that same time, policy recommendations and operational modifications will also be shared with the Board. A second round of feedback meetings will be held in November and December to solicit input about staff's recommended changes. Board action is expected to take place in February 2025, following the conclusion of the second round of feedback.

All approved paratransit operational adjustments and policy changes will be implemented in May 2025.

RTD staff will continue to host virtual and in-person meetings to solicit input and answer questions. Dates, times, and locations of future meetings for the second round of customer and community feedback will be added shortly.

As part of the comprehensive feedback process, RTD created and disseminated two separate customer surveys. Both surveys focused on soliciting input from paratransit customers about potential operational adjustments and proposed recommendations. The first survey was open to all customers, and the second survey was sent to a random sampling of 3,000 active paratransit customers. The surveys have both closed, and the results are now being tabulated for inclusion in the final report. The final report will be shared with RTD's Board of Directors in November and made publicly available.

The peer review was commissioned by the agency to better understand the strengths and opportunities of RTD’s complementary paratransit service and its premium, on-demand service. The peer review was also conducted to note potential improvements that support the long-term sustainability of RTD’s paratransit services.

All members of the community are invited to ask questions, share comments, and provide feedback. However, RTD is specifically focused on receiving feedback directly from currently registered paratransit customers.

All observations and recommendations must be individually assessed to determine the viability within RTD’s operating environment. No final decisions will be proposed or made until after the conclusion of the feedback process.

In December 2023, all registered Access-on-Demand (AoD) customers received a communication from RTD announcing the discontinuation of the previous multi-stop option. The multi-stop option, while certainly convenient, was only available to all customers who utilized RTD’s supplemental premium, on-demand paratransit service. The option was also not available to Access-a-Ride (AaR) customers who utilized the agency’s ADA complementary paratransit services on RTD-branded paratransit vehicles. The paratransit vehicles are fully accessible to all customers. By not providing a multi-stop option for all paratransit customers, RTD created a disparity between customer groups. The practice was not equitable and had unintended consequences for other paratransit customers.

The Paratransit Peer Review panelists recommended that RTD focus on making structural program changes to the agency’s on-demand supplemental premium service to ensure its long-term sustainability. As noted in the peer review report, the AoD program should augment traditional AaR services, and the program structure needs to be refreshed. As part of the outreach and engagement process, RTD will solicit feedback from current customers, explore the recommendations, and propose options that best support long-term sustainability.

RTD has provided multiple communications to currently registered paratransit customers about the engagement process. Over the last six months, information and updates have been emailed to customers and provided using the agency’s interactive voice response (IVR) telephone system. IVR allows customers without access to email to receive a phone call with a pre-recorded message. Additionally, the RTD has provided updates during Board meetings and posted information on its website at rtd-denver.com/paratransit-peer-review.

Paratransit customers are encouraged to review information and updates shared with them to learn about upcoming feedback opportunities. Also, customers are invited to share feedback using the online form that is currently available on this webpage. In late September, RTD sent a survey to a sampling of registered paratransit customers who actively use the services to solicit their feedback.

The customer feedback and public engagement period will close in mid-October. In late October, RTD staff will develop final policy recommendations for the Board’s consideration. At that time, all recommendations and implementation timelines will be made available on RTD’s website and shared with paratransit customers.

RTD is required to provide ADA complementary paratransit service. The agency is not federally required to provide the supplemental on-demand premium service. This option, introduced as a pilot project, was adopted in 2020. Its intent was to provide a premium transportation option for paratransit customers who demonstrated a need for an increased level of service, while alleviating demand for RTD's paratransit services.

A survey was administered to a sample of nearly 3,000 active paratransit customers in late September. Survey recipients were selected using a statistically random process. Conducting the customer survey via a random sampling provides statistically valid results, with a calculated margin-of-error, for RTD to assess when making recommendations. The survey has since closed, and staff is now tabulating the results.

Complementary, in the context of paratransit, is a service that exists in an effort to enhance the level of service provided by transportation agencies.