Title
Approve the City of Alameda Transportation Program Plan for Seniors and People with Disabilities for Fiscal Year 2023/2024
Body
To: Honorable President and Members of the Social Service Human Relations Board
Background
Alameda County Measure BB provides the City of Alameda (City) with a dedicated funding source for transportation programs serving people with disabilities and seniors. East Bay Paratransit (EBP) provides the Americans with Disabilities Act (ADA) required paratransit service for people who are unable to use AC Transit and BART’s fixed route services because of a disability or a disabling health condition. As required by the funding agency - the Alameda County Transportation Commission (Alameda CTC) - each jurisdiction must submit annually a paratransit program plan application to receive the local Measure BB funds for the next fiscal year, which is the purpose of this staff report.
Information about the City transportation services for seniors and people with disabilities is available at: www.AlamedaParatransit.com <http://www.AlamedaParatransit.com>. Currently, the City paratransit program includes the following locally developed components to address the mobility challenges of older adults and people with disabilities:
1. Free Alameda Loop Shuttle was discontinued on June 30, 2022 due to low ridership, as discussed below;
2. Free AC Transit Bus Pass Program is in the first of a three year pilot program for low-income residents of the City who are ages 65+ or are between the ages of 18 - 64 and have a certified disability. Passes are also provided for Alameda Point Collaborative residents;
3. Alameda Independent Mobility (AIM) has just completed the first of a three year pilot program offering curb-to-curb transportation network company (TNC) services through a third-party concierge service provider - Eden I&R, Inc. - for low-income Alameda East Bay Paratransit (EBP) members;
4. Travel Training provides community education in monthly Transportation 101 workshops, including trip planning and Transit App Training, as well as Hop on the Bus with Us providing introduction and experience taking public transportation;
5. Outreach including customer service, creating and distributing materials and promotions, and community presentations. Translated support documents to facilitate participation of non-English speaking residents;
6. Group Trips including monthly trips for Mastick Senior Center members. Leisure Club transportation for adults with developmental disabilities who meet twice a month and an annual picnic for Skilled Nursing Facility residents (paused and has not resumed since COVID-19 pandemic);
7. Capital Program, which paid for the replacement of five bus shelters; and
8. Project Management by City staff to manage the program.
In addition to this direct local distribution of Measure BB funding to the City and other local jurisdictions, the Alameda CTC offers an Emergency Wheelchair Service, which is provided by Easy Does It. The Fast Accessible Safe Transportation and Emergency Repair (FASTER) service funds a technician to troubleshoot wheelchair breakdowns, provide on-site repairs, and provide a ride home: Easy Does It Emergency Services (easydoesitservices.org) <https://easydoesitservices.org/>.
Discussion
City staff is recommending a total budget of $804,860 for the Transportation Program Plan for Seniors and People with Disabilities for fiscal year 2023-24, which is approximately $90,000 more than the current fiscal year because the City has accumulated reserve funding due to COVID travel restrictions.
FY 2022-23 Status Summary
For this current fiscal year, the City is experiencing a cautious return to activities as public health restrictions related to the pandemic are adjusted. There is still uncertainty due to the recent rise in RSV virus, the flu and rising number of COVID cases. A status summary is as follows:
1. Free Alameda Loop Shuttle was discontinued on June 30, 2022 due to low ridership. Staff reviewed and discussed the planned elimination of this service at its January 27, 2022 presentation to the Social Service and Human Relations Board (SSHRB). Staff informed shuttle users of the elimination both before and after City Council approval, which was on April 5, 2022. In January 2022, fliers were placed in the shuttles, at the Mastick Senior Center and in the libraries about the proposed elimination of the shuttle. A message of the proposed shuttle elimination also was recorded on the outgoing phone message of the Paratransit Coordinator, and was posted on www.alamedaparatransit.com <http://www.alamedaparatransit.com>. Staff addressed questions and concerns both in person and by phone or email, met with residents of Water’s Edge Lodge, and rode the shuttle. Information and discussion were provided in five Transportation 101 workshops, and in ten Hop on the Bus with Us! travel training sessions. The City contracted with a vendor to remove the shuttle signs, poles and schedules before the shuttle was discontinued.
2. Free AC Transit Bus Passes: Since 2017, qualifying residents living in Alameda Point Collaborative’s 167 units have received free AC Transit bus passes. In January 2020, the City provided 62 free bus passes to low-income Mastick Senior Center members. In June 2022, staff negotiated with AC Transit to formalize a pay-as-you-go model and launch the first year of a three-year pilot program after City Council approval on April 5, 2022. This pilot program also was expanded to include low-income adults with certified disabilities. Since June 2022, more than 290 new passes have been issued, which includes the Mastick Senior Center bus passes that were folded into this program. The average ride costs $1.34, but is free for the user. The program target is 10,000 rides per month. In November 2022, there were 146 unique users who took 4,931 trips using the Alameda Free AC Transit Bus Pass Pilot Program. Contrast this with April 2019 (pre-pandemic), which was the highest ridership month for the Alameda Free Loop Shuttle, where there was a total of 1,323 boardings. Figure 1 compares the first six months of the Free AC Transit Bus Pass Program and the top six months of the Alameda Loop Shuttle boardings from May 2019 - October 2019.
Figure 1: Monthly Boardings Comparison
AC Transit buses operate twenty-four hours and seven days a week, and has a more extensive network of routes that operate more frequently when compared to the Alameda Loop Shuttle. The Alameda Loop Shuttle operated three days a week between 8:30 am and 4:00 pm. AC Transit reports show that 40% of bus pass holders ride between 6:00 am - 8:30 am and 4:00 pm - 11:59 pm, when the shuttle did not run (Figure 2).
Figure 2: Time of Day Free Bus Passes are Used
Of the 159 paratransit survey responses, 102 survey respondents 64% said that they ride AC Transit buses, 54 survey respondents (34%) report using an Alameda Free AC Transit Bus Pass, 85 (53%) reported using a Senior Clipper Card, and 13 (8%) report using an RTC Clipper Card for persons with disabilities. When asked to rate their satisfaction with AC Transit bus service on a scale of 1 to 5, with one being the lowest, 66 respondents (65%) rated it as a 4 or better, and the average response was a 3.87. In the same paratransit survey, 86 respondents (85%) reported that they are likely to continue using AC Transit. 85 respondents (83%) reported that the drivers are courteous. 56 respondents (55%) said that the buses arrived on-time all or most of the time. 45 (44%) responded that bus arrive on-time some of the time. Exhibit 1 and Exhibit 2 provide a detailed summary of the survey responses.
3. Alameda Independent Mobility (AIM): On September 7, 2021, the City Council approved the City staff recommendation for the Transportation Network Company (TNC) concierge pilot program. In January 2022, Alameda launched the AIM Pilot Program. Eden I&R serves as the concierge service for TNC companies, Uber/Lyft, to provide on-demand, curb-to-curb transportation services for low-income residents who are fully enrolled in East Bay Paratransit (EBP). The target enrollment is 80 participants. City staff and the Eden I&R team designed the sign-up process including the application, procedures and a Tips for Safe Rides Using Uber & Lyft, and have sent two letters and applications to residents who are active EBP users. As of December 20, the program has vetted and enrolled 90 participants. As of November 30, 2022, the program has provided 472 rides, which averages 43 rides per month. Currently, there are 29 active riders (32%) out of 90 program participants (Figure 3).
The average cost to the rider is $4.53. 14 participants (16%) responded in the survey that they are AIM Program participants, and only 11 participants (12%) report using the service. Of the active riders, 8 respondents (65%) rate their satisfaction with a 4 or 5, on a scale of 1 to 5, with one being the lowest. Using the same scale, 82% of active riders report that AIM is an important service with an average rating of 4.27. 91% of respondents stated that the AIM representatives and Uber/Lyft drivers are courteous and helpful. 100% of active riders feel safe with the Uber/Lyft drivers and find the vehicles to be clean. Exhibit 1 and Exhibit 2 provides a detailed summary of the survey responses. Figure 3: Active AIM Participants
The number of rides and unique users are stable averaging 44 and 13, respectively, when considering the last eleven months (Figure 4). There have been two periods of decline, April and May, and more recently in October and November. In all four months, there was a reduction of service days due to employee training at Eden I&R in April (1), and holidays in May (1), October (1) and November (3). Compare this to the last twelve months of the Mr. TIP taxi program which had an average of 20 rides, and the Premium taxi program that had an average of 158 rides per month (Figure 5).
Figure 4: AIM Trends
Figure 5: AIM and Taxi Programs Comparison
To encourage those who signed up with the AIM Program, but have not yet used it, staff is reaching out by telephone, letters and emails, to understand why people are willing to sign up and then not use the program. This is a time-consuming process averaging 25 minutes per call. A series of reasons came out of the conversations (Table 1). Enrolled members are excited to try the program after better understanding it, yet some still express concerns about COVID and the health risks.
Table 1: Most Common Reasons Given for Not Using the AIM Program
|
Reason given for not using AIM Program |
Staff Explanation/Discussion with participant |
|
I haven’t had any medical appointments. |
AIM can be used to travel anywhere in Alameda County. It can be used to go shopping, visit family or friends, go to the movies. |
|
I’m not comfortable in a car with someone because of my health. |
Recommended what makes participants feel safe, such as wearing a mask, opening the window, and asking the driver to wear a mask too. |
|
I’m using East Bay Paratransit. |
EBP is a wonderful service, and sometimes it can be challenging or take a long time to return home. AIM offers the opportunity to call for a ride when you needed without needing to make a reservation beforehand. |
|
I’m not sure how to use it. |
Call 2-1-1 to schedule a call. They will tell the participant how much the ride will cost, the name of the driver, the color and type of the car. Then the driver will arrive to pick up the participant who needs to be able to wait outside. After the ride, the participant’s payment form on file will be charged the first $4 and anything more than $25, if applicable. |
|
Uber/Lyft cost too much money. |
The average ride is less than $5 for participants. |
The average monthly cost that the AIM Program pays per ride is $149, ranging from $68 to $209 (Figure 6). This calculation include $11,277 for the Eden I&R and the City Data Services program set-up costs. Deducting the set-up cost from the calculation, the average cost comes down to $123 for the cost per trip.
Figure 6: Monthly Average Cost of AIM Ride
The operational costs of Eden I&R are currently 82% of the total cost for the program
(Figure 7). Eden I&R is our vendor of choice since they are the provider of the 2-1-1 social services help line, enabling them to provide assistance to callers for other resources such as food and healthcare. Staff is currently renegotiating the operating costs of Eden I&R to reduce the cost per ride.
Figure 7: Division of Costs
4. Outreach: The outreach program includes distributing program materials, information mailings and press releases, listing programs and services in the quarterly City Recreation Guides, promoting the annual survey, assisting with the issuance of Clipper cards and EBP applications to seniors and people with disabilities. The paratransit coordinator assisted with 22 EBP applications and returned to in-person services at Mastick Senior Center with an average of 183 transportation contacts per month, an increase of 50%. Staff led 8 Transportation 101 workshops with 65 participants that included Transit App Training and a representative from Clipper Card, and 7 Hop on the Bus with Us! travel training with 23 participants. Upcoming presentations include: Electric or Hybrid Vehicles by Alameda Municipal Power, and Safe Driving for Seniors by Alameda Police Department. Free Bus Pass Program presentations were given to the Leisure Club and at 3 classes of AUSD Adult Program. AIM program fliers were created and distributed by Alameda Meals on Wheels, Jack Capon Villa, the Leisure Club, and Independence Plaza.
5. Group Trips: Mastick Senior Center resumed group trips in June 2022. Bus transportation was provided for four trips with a total of 164 round trip rides. The Leisure Club, which meets twice a month, provided transportation to and from 9 meetings, and provided a total of 198 one-way trips for adults with developmental disabilities, which represents fewer trips due to the lack of bus driver. The bus capacity has returned to pre-COVID capacity of 12 passengers. The driver position was vacant until a new driver was hired in October 2022. Due to COVID, an annual picnic for Skilled Nursing Facility residents was cancelled in 2020 and has not resumed due to COVID.
6. Capital Program: The City’s Measure BB paratransit reserve funds paid for the replacement of five bus stop shelters at the following locations: W. Midway Avenue at Orion Street, Main Street at Atlantic Avenue, Santa Clara Avenue at Grand Street, Santa Clara Avenue at Walnut Street, and Park Street at Otis Drive.
7. Project Management: This component covers City staff to support program development, administration and compliance including participation in Alameda CTC meetings. The program oversight ensures that the actions align with proposed and approved program.
PROPOSED PROGRAM FOR FISCAL YEAR 2023/24
City staff is recommending a similar paratransit program as the current fiscal year in that the two main programs - AC Transit Free Bus Passes and AIM - are both in the first year of three year pilot programs as approved by City Council.
The fiscal year 2023-2024 Plan is being developed with input from key stakeholders and program participants by conducting a survey in November 2022 and by reaching out to four City Commissions: Commission on Persons With Disabilities (February 9), Recreation and Parks Commission (February 12), Transportation Commission (January 25) and Social Service Human Relations Board (January 26). Exhibit 1 provides a summary of the survey results, which totaled 159 respondents.
1. Free AC Transit Bus Passes ($237,000, an increase of $37,000 from last year): Free AC Transit Bus Pass users expressed overwhelming satisfaction and gratitude for the program. Free AC Transit Bus Pass users commented that they “love the freedom” and that the pass is “Excellent,” “Superb” and it saves them money. One comment sums it up, “It [the Free AC Transit Bus Pass] is very convenient, and I can go out more frequently without worrying about how much money I need on my clipper card.” With the current budget of $212,000, estimating that a rider would take 4 round trips weekly, the program can provide for up to 375 active users and currently has 146 active users.
Currently, over 60% of Free AC Transit Bus Pass holders are non-English speaking, with the majority speaking Cantonese or Mandarin. Staff sat down with some of these pass holders and translated the survey individually for them, but this is not a fair representation of this group. Staff plans to have the survey translated for next year, and are currently in the process of translating all of the program literature and the updated application into Chinese, Spanish, and Vietnamese, and will make them available online.
Recommended changes: Staff recommends to continue the free bus passes for qualifying residents at Alameda Point Collaborative and to continue with the three-year pilot for the Alameda Free AC Transit Bus Pass Program for low-income seniors and adults with certified disabilities living in Alameda. Staff will also expand the program, as funds are available, to include eligible individuals (seniors and people with disabilities) at the City’s Homeless Day Center, Alameda Point emergency housing and Dignity Village supportive housing.
2. Alameda Independent Mobility (AIM) ($125,000, no change from last year) AIM is a curb-to-curb service to facilitate same-day trips for low-income residents who are enrolled in EBP. Eden I&R, Inc. provides concierge service Monday through Friday from 8:15 AM to 5:30 PM that arranges and monitors up to five Uber/Lyft trips per month within Alameda County. Eden I&R plans to expand their service to include Saturdays and Sundays with the same hours. Initially, applicants agreed to use this concierge service and pay the first $4 of each ride and any charge over $20 using a credit, debit or prepaid debit card. With the rising cost of fuel, the subsidy was extended to pay up to $25. To increase program participation and the average monthly rides, City staff/Eden I&R team will continue outreach to active EBP users as well as to inactive riders already enrolled in AIM. Since Eden I&R has translation services available to non-English speakers, translating the documentation for the AIM program will assist more non-English speakers to use the program. Eden I&R is the City’s vendor of choice since they are the provider of the 2-1-1 social services help line, enabling them to provide assistance to callers for other resources such as food and healthcare.
Recommended changes: Staff recommends continuing the three-year pilot program. Staff is currently renegotiating the operating costs of Eden I&R to reduce the cost per ride.Customer Service and Outreach ($16,200, a decrease of $8,800 from last year): The outreach program includes distributing program materials, informational mailings and press releases, listing services in the quarterly City Recreation Guides, presenting at Mastick Senior Center transportation program orientations and with other community members, translating to assist non-English speaking clients, assisting with the issuance of Clipper cards to seniors or people with disabilities and tabling at events. As a service to EBP customers, staff also sells EBP tickets. Staff is also available three days a week for telephone and personal appointments to assist with program applications, travel planning, and transportation needs.
Recommended changes: Staff recommends a lower outreach budget than the current fiscal year since materials are not needed for the Alameda Loop Shuttle.
3. Capital Program ($350,000, an increase of $50,000 from last year): Using the paratransit program reserves, staff will improve access to/from bus stops including sidewalk enhancements, bus benches, curb bulb-outs and bus islands.
Recommended changes: Staff recommends continuing the use of reserve funds for capital projects, which are one-time expenses.
4. Group Trips ($25,000, same as last year): The City’s program supports transportation for recreation programs run through Mastick Senior Center and Alameda Recreation and Park Department as follows:
• Mastick Monthly Trips: Provides financial assistance for the Mastick Senior Center’s monthly trip program with travel destinations to various Bay Area locations (i.e. San Francisco, Livermore, Napa, etc.).
• Leisure Club: Supports the driver and the shuttle bus maintenance for the Alameda Recreation and Park Department’s Leisure Club. The Leisure Club is a social recreation program offered for adults - 18 years or older - with developmental disabilities that meets twice a month.
• Crown Memorial Beach: Subsidizes the transportation expenses to/from Crown Memorial Beach for the Annual Skilled Nursing Facility Picnic, potentially resuming in 2023.
Recommended changes: Staff recommends providing the same services once COVID travel restrictions are lifted and COVID infection rates decline.
5. Program Management ($46,660, an increase of $8,600): The management component funds the part-time paratransit coordinator and the group trip driver as well as on-call experts. The program management includes providing program oversight, completing the Alameda CTC application and reporting requirements, reviewing program data and invoices, participating in Alameda CTC’s paratransit committees, renewing or establishing contracts and programs, conducting outreach and coordinating with transportation providers and City staff.
Recommended changes: Staff recommends a higher budget than the current fiscal year as a cost of living adjustment.
RECOMMENDATION
Approve the City of Alameda transportation program plan for seniors and people with disabilities for fiscal year 2023/2024.
Respectfully submitted by,
Gail Payne
Senior Transportation Coordinator
Katherine Kaldis
Paratransit Coordinator
Exhibit
1: Summary - Survey for Seniors and People with Disabilities - November 2022
2: Summary - Open-ended Comments Submitted for the Survey for Seniors and People with Disabilities - November 2022
3. 2022 City of Alameda Transportation Questionnaire Relating to Seniors and People with Disabilities
4: Presentation