4. Existing Means of Personal Mobility

A necessary component of the mobility needs assessment process is the identification of existing means of personal mobility. This chapter inventories all the major modes of personal travel available in North Dakota.

As is the case elsewhere, not all North Dakotans have access to all means of personal mobility. Therein lays the need to inventory available means of mobility, identify segments of the population which do not have access to adequate levels of mobility, and develop means satisfying unmet needs.

North Dakotans have 12 fundamental ways to get where they want or need to go for employment, medical appointments, school, social/recreational activities, etc. These means of personal mobility include:

• Private automobile
• Friends & family
• Carpools / vanpools
• School buses
• Intercity commercial bus services
• Taxi services
• Passenger trains
• Air passenger service
• Public transportation
  • Fixed route city bus services
  • Dial-a-ride / paratransit services
  • Other publicly supported services
• Other client-specific transportation
  • Nursing home buses
  • Developmental disabilities service providers
  • Ambulance services - ground & air
  • Volunteer drivers of private automobiles
  • Special purpose shuttles
• Car rental, charter buses, & air taxi services
• Pedestrian and bicycle transportation

There may be other ways that North Dakotans use to get from place to place, but the preceding list includes the primary modes available to facilitate personal mobility.

The following sections describe services currently available to North Dakotans via each of the mobility options outlined above. This information is presented from a state-level perspective but much of the data is also specific to various cities, counties, and regions. Additional local service information is available in the 2004 report, "Enhancing Passenger Mobility Services in North Dakota through Increased Coordination" (Small Urban & Rural Transit Center, 2004).

4.1 Private Automobiles

According to the 2000 Census, 87.7 percent of North Dakotans age 16 and older depend on private cars, trucks, or vans to commute to work; 77.7 percent ride alone while 10.0 percent rideshare. Only 0.4 percent use public transportation, including taxicabs. Virtually all of the remainder either walk to work (5.0%) or work at home (6.0%) (U.S. Census Bureau, 2004).

In 2002, North Dakota had an estimated population of 634,000. Based on 2000 census demographics, approximately 80 percent of these residents (507,000) were old enough to legally acquire a driver's license. With the actual number of licensed drivers at 456,300, approximately 90 percent of the state's residents who were old enough to acquire a driver's license were, in fact, licensed to drive.

With 580,000 licensed passenger vehicles (cars, pick-ups, etc.) in the state in 2002, there were approximately 1.27 licensed vehicles in North Dakota for every licensed driver. 2000 census data indicates that the average North Dakota housing unit had a total of 1.93 vehicles available for use. Counties with fewer than average vehicles per household are listed below in Table 4.1.

As Table 4.1 indicates, 11 counties have a lower-than-average number of vehicles per household. All eight of the state's regional centers are located in counties on this list; the three remaining counties on the list are the home to one of the state's Indian reservations (North Dakota State Data Center, 2003).

An important consideration concerning mobility is the number of housing units in the state that do not have any licensed vehicles, thereby reducing the household's immediate access to private transportation. In 2000, there were 257,152 housing units in North Dakota. Of these units, 17,030 did not have any vehicles available for use. This equals 6.6 percent of the state's housing units. Percentages vary widely from as low as zero in Billings County to 12.4 percent in Sioux County. Nationally, approximately 7.9 percent of all households do not have a vehicle (National Household Travel Survey, 2001). North Dakotans do, therefore, have greater direct access to personal automobiles than average U.S. residents.

As was the case with vehicles per household, the largest number of households without any licensed vehicles tends to coincide with the location of the state's largest cities and Indian reservations. Table 4.2 identifies counties which have more than 400 households without licensed motor vehicles:

Twenty-five of North Dakota's 53 counties have fewer than 100 households without a licensed vehicle (North Dakota State Data Center, 2003). There is, therefore, a relatively light concentration of related needs.

According to the 2000 Census, the average household in North Dakota had 2.41 residents. With 17,030 households having no vehicles available for use, it is estimated that approximately 41,000 North Dakotans do not have direct access to private automobile transportation. This equals about 6.5 percent of the state's population (U.S. Census Bureau, 2000).

Figure 4.1 presents information on the degree to which counties have housing units with no licensed motor vehicles.

Figure 4.1 North Dakota Households without Vehicle Access

Source: North Dakota State Data Center, 2003

4.2 Private Automobiles - Family & Friends Transportation

No specific data is available concerning the percentage of personal mobility needs that are satisfied by transportation provided by personal automobile operated by someone outside the individual's immediate household. Considerable related data indicates, however, that a significant amount of transportation is provided to non-drivers by "family and friends."

As indicated earlier, approximately 41,000 North Dakotans do not have direct access to a personal automobile. Nationally, non-drivers make an average of 2.6 trips per day. Applying this average to North Dakota, residents of households without vehicles make 106,600 trips per day, far in excess of the aggregate ridership of the state's public transportation services.

The 2001 National Household Travel Survey indicates that personal vehicles transport an average of 1.63 people per mile traveled. Conversely, vehicles being used for work and work-related trip carry only 1.14 and 1.22 passengers per mile, respectively. Other trips (personal, church, school, social, etc.) typically involve from 1.76 to 2.05 passengers per vehicle mile. Nearly 49 percent of all trips made with personal automobiles involve multiple passengers (National Household Travel Survey, 2001).

Many of these non-driver vehicle occupants are likely to be members of the driver's household. It is assumed, however, that many of the personal trips being made by members of households without vehicles are via personal automobiles being operated by "family and friends." If this is the case, a significant portion of North Dakotans' personal mobility needs are being satisfied in this manner.

4.3 Carpools & Vanpools

Ridesharing via carpools and vanpools is a way to increase mobility and reduce transportation costs, pollution, traffic and parking congestion, etc. Ridesharing is most frequently practiced in urban areas where commuting costs include toll roads and parking fees and where express lanes are available for multi-passenger vehicles. In rural areas like North Dakota where toll roads, air pollution, and traffic congestion are relatively non-existent, ridesharing is more likely to occur when fuel costs rise significantly and/or where long distance commutes are common.

Despite the lack of many of the incentives that urban areas experience, ridesharing can be an effective way to address mobility problems faced in rural and small urban areas, especially in instances where long commutes are common and where traditional transit systems are nonexistent. Typical North Dakota examples include:

Ridesharing undoubtedly does take place in many of these and other situations. There is not, however, an organized state effort to promote ridesharing to encourage conservation, reduce pollution, and increase personal mobility.

Such a program did exist in North Dakota in the late 1970s through the mid-1980s. The program involved the North Dakota Highway Department (now the Department of Transportation) and the State Energy Office / Federal Aid Coordinators Office (now part of the Department of Commerce). The Highway Department used federal highway monies to make interest-free loans to individuals who, in turn, purchased vans to be used for vanpooling. The owner of the vehicle operated the vanpool and collected monthly fees from riders. Rider fees were used to repay the vehicle loan and to cover operating and maintenance costs. Loan payment schedules were set for four years or 100,000 miles, whichever came first. Between 30 and 40 vanpools were eventually established but the program was discontinued when interest declined, along with fuel costs and interest rates.

Vanpool programs such as the one that existed in North Dakota are still in operation in many parts of the country. Some of these programs are promoted by state Departments of Transportation while others are sponsored by local metropolitan transit systems or metropolitan planning organization. There are also commercial entities which help organize vanpools and provide needed vehicles.

The federal government has also taken steps to create additional incentives to promote ridesharing. Employers, for example, may pay employee vanpool costs as a benefit. While this incentive may be offset with a corresponding reduction in salary, both the employee and the employer benefit by avoiding related payroll taxes.

Employees who have access to "flex comp" programs may also realize new ridesharing benefits by paying a major portion of their commuting costs via their employer's "flex comp" program. This approach allows commuting costs to be paid with pre-tax dollars and effectively reduces commuting costs by 25-30 percent.

While there is not an organized state-wide effort in North Dakota to promote ridesharing via carpools and vanpools, such a program might satisfy some residents' personal mobility problems. SURTC is currently conducting a related feasibility study with funding support provided by the North Dakota Department of Commerce.

4.4 School Buses

More than 106,000 of North Dakota's 634,000 residents are school age children (kindergarten through high school) who attend public schools. A major portion of the transportation needs of these children involve travel to and from school and school-related activities. School buses satisfy a large portion of these needs and may, therefore, rank second to only private automobiles in terms of providing for the personal mobility needs of North Dakotans.

In 2004, there were 213 school districts in North Dakota. All but 12 small districts provided some form of direct transportation services for students. Of the twelve districts that did not have district operated transportation, seven provided financial support to families that transport students to and from school.

With a state land mass of 70,665 square miles, the average school district encompasses nearly 332 square miles. Actual sizes vary greatly, however, with the Minot Air Force Base district having only 7 square miles while the McKenzie County district covers 1,450 square miles.

According to the North Dakota Department of Public Instruction (DPI), there are nearly 2,300 school buses in the state. Of this total, 123 are handicapped accessible. Except for the addition of special education-related equipment in recent years, the number of buses in the state has remained relatively stable (North Dakota Department of Public Instruction, 2001-02).

North Dakota school buses have an average capacity of nearly full-size 42 passengers. Of the 2,300 school buses in North Dakota, 1,854 are traditional coaches with average capacities of 49.8 to 52.4, respectively. The remaining 443 buses are special-use vehicles with smaller capacities.

DPI reports that North Dakota school buses traveled 23.6 million miles in 2003. They transported 43,249 students at a total cost of $32.9 million or $1.35 per mile. State government paid 55 percent of these costs; the remainder was paid by local school districts (North Dakota Department of Public Instruction, 2004a).

The cost of school bus transportation increased by 21 percent from 1995 to 2003 (from $26.3 million to $31.9 million). This increase came despite an 8 percent decline in the number of students being transported (from 47,105 to 43,249) and a 2 percent decline in the number of miles traveled (from 24.2 million to 23.6 million).

State funding to support local school transportation remained fairly constant at between $17.1 million and $17.9 million from 1995 to 2003. Disbursements to local school districts have been formula-driven based on miles traveled and rides given.

Enrollment in public schools declined from nearly 114,000 students in 1999 to just over 101,000 in 2004. DPI projects that state-wide enrollments will decline to 89,000 by 2010 and to approximately 77,700 by 2016. Approximately 43 percent of all students are transported to and from school by their respective district (North Dakota Department of Public Instruction, 2004b).

Student populations are also becoming more concentrated. In 1989, the state's 15 largest school districts accounted for approximately half of the state's students. In 2004, half of North Dakota's public school students were concentrated in the eight largest school districts. Smaller districts are losing student populations at a faster than average rate.

Excluding the seven small, previously-discussed, districts that pay families to provide their own transportation and special purpose routes for special and vocational education, etc., the state's school districts operate a total of 1,182 bus routes. Of this total, 1,016 are rural routes and 166 are in-city.

These 1,182 rural and in-city routes were operated an average of 354 times each, or twice a day for 177 days. Rural routes had an average length of 61 miles and transported an average of 29 students; the average maximum ride time equaled 61 minutes. DPI recommends that school districts route buses to limit student ride times to no more that one hour each morning and another hour in the afternoon. In-city routes had an average length of 10 miles and transported an average of 34 students; average maximum ride times equaled 25 minutes (North Dakota Department of Public Instruction, 2004c).

Given the fact that an average school bus has a capacity of more than 40 passengers and transports an average of less than 30 passengers per trip, North Dakota's existing fleet of school buses has the capacity to transport additional passengers.

Local school buses are typically used strictly to transport students. Local school districts may, however, allow these vehicles to transport non-students. However, doing so may raise liability concerns and related insurance issues.

4.5 Intercity Commercial Bus Services

The number of commercial intercity bus services in North Dakota has dropped significantly in the past 25 years. According to a North Dakota State Highway Department (N.D. Department of Transportation) report entitled "Inventory of Public Transportation in North Dakota," there were 12 intercity bus services operating in the state 1981. These carriers and their routes are identified in Figure 4.2. Services were available to 12 of North Dakota's 13 largest cities (Transportation Services Division, 1981).

Figure 4.2 1981 North Dakota Intercity Bus Routes

Source: Inventory of Public Transportation in North Dakota, North Dakota State Highway Department, 1981

There are four intercity bus companies operating in the state in 2005. While service is still available to 10 of the state's 13 largest cities, traveling by bus is no longer an option for residents of 19 cities with a population of 1,000 or more that had bus service in 1981. Cities which have lost intercity bus service since 1981 are listed in Table 4.3. All but two of these cities (Burlington and Casselton) lost population between 1981 and 2000.

There are another 15 North Dakota cities with populations of 1,000 or more which did not have intercity bus service in 1981 and which still do not have service in 2005. These cities include Belcourt (2,440), Beulah (3,152), Bottineau (2,336), Cavalier (1,537), Cooperstown (1,053), Hankinson (1,058), Hazen (2,453), Langdon (2,101), Lisbon (2,292), Park River (1,535), Rolla (1,417), Thompson (1,006), Wahpeton (8,586), Walhalla (1,057), and Wishek (1,122).

U.S. Department of Transportation's Bureau of Transportation Statistics ranks North Dakota last among the 48 continental states in terms of rural intercity bus coverage. According to the Bureau's April 20, 2004, report on "Scheduled Intercity Transportation: Rural Service Areas in the United States," 56.4 percent of North Dakota's rural residents live within 25 miles of a commercial bus service. Other low-ranking states include Nebraska (61.4 percent), South Dakota (65.7 percent), and Montana (68.6 percent). Nationally, 91.4 percent of the nation's rural residents live within 25 miles of a commercial intercity bus service (Bureau of Transportation Statistics, 2004).

The following paragraphs describe the four commercial bus services that are currently operating in North Dakota. The routes operated by these carriers in North Dakota are depicted in Figure 4.3.

Figure 4.3 North Dakota Intercity Bus Service

Source: Small Urban & Rural Transit Center, 2005

4.5.1 Rimrock Stages / Trailways Transportation System

Rimrock Trailways operates in North Dakota along Interstate Highway 94 between Fargo and Beach. Cities served include Fargo, Valley City, Jamestown, Steele, Sterling Corner, Bismarck, Richardton, Dickinson, Belfield, Medora, and Beach. Fargo is the eastern terminus for Rimrock's route; the western terminus is Billings, Montana. Rimrock operates one eastbound and one westbound bus daily.

Rimrock's route connects with Greyhound Lines, Inc., in Fargo and Billings to provide eastbound and westbound interstate service to Seattle, Minneapolis, Chicago, and a multitude of intermediate and more distant destinations. In some instances, schedule conflicts result in significant connection delays.

Rimrock's Fargo terminal also provides interline service with Jefferson Lines' north-south route along Interstate Highway 29. Northbound interline service via New Town Bus Line is available in Bismarck. Jefferson and New Town services are described in following subsections.

Rimrock has bus stops in 11 North Dakota communities. These bus stops and corresponding phone numbers are identified in Appendix B. Route and fare information is also available by phoning toll-free 1-800-255-7655 or by checking Rimrock's website at www.rimrocktrailways.com. Before August 2004, Rimrock's service territory in North Dakota was served by Greyhound Lines, Inc.

4.5.2 Greyhound Lines, Inc.

Greyhound Lines, Inc. serves strictly the city of Fargo. Daily service is available from Fargo to points east along Interstate Highway 94 to Minneapolis and points beyond. The Fargo terminal serves as an interchange point for Greyhound, Rimrock, and Jefferson Lines.

Greyhound has operated in North Dakota for more 70 years, but in June of 2004 it announced that it would discontinue service to all North Dakota cities except Fargo. This action was a part of a major restructuring which eliminated service to 260 communities in an area that reached from Chicago to Seattle and from Nebraska to the Canadian border. Greyhound also indicated that this was the first in a multi-year process to streamline its operations and to bring profitability to the company. Greyhound indicated that it had produced a profit in only three of the previous 18 years.

Greyhound route and fare information is available by phoning 1-800-231-2222 or by checking the carrier's website at www.greyhound.com.

4.5.3 Jefferson Lines

Jefferson Lines operates along the I-29 corridor between North Dakota's borders with Manitoba and South Dakota. This Jefferson Lines route extends north to Winnipeg and south to Kansas City and more distant points. Fargo, Grand Forks, and Pembina are in-state stopping points.

Jefferson operates one northbound and one southbound bus daily between Fargo and Winnipeg and two northbound and two southbound runs between Fargo and points south.

Jefferson Lines also provides daily bus service between Grand Forks and Minneapolis via Bemidji and Brainerd, Minnesota.

Until August 2004, this Minnesota route was operated by Greyhound. The route was discontinued as a part of the restructuring that was discussed in the preceding subsection. The State of Minnesota subsequently announced that it would provide Jefferson Lines with a Federal Transit Administration Section 5311 subsidy to insure continued service.

Jefferson Lines bus stops and corresponding phone numbers are presented in Appendix B. Route and fare information is also available by phoning toll-free 1-800-451-5333 or by checking Jefferson's website at www.jeffersonlines.com.

4.5.4 New Town Bus Line

New Town Bus Line operates along U.S. Highway 2 between Grand Forks and Minot in the northern tier of North Dakota and along U.S. Highway 83 between Minot and Bismarck in the central part of the state. New Town Bus Line also runs between Minot and New Town. In addition to local service, New Town Bus Line provides travelers with connections to destinations served by Rimrock Trailways via its Bismarck terminal and Jefferson Lines via its Grand Forks terminal.

New Town Bus Line runs one eastbound and one westbound trip daily between Minot and Grand Forks. Regular depot service or "flag/call" stops are provided to the intermediate cities/locations of Granville, Towner, Rugby, Leeds, Churches Ferry, Devils Lake, Lakota, Michigan, and Larimore.

New Town Bus Line operates one northbound and one southbound trip per day between Bismarck and Minot. Regular and "flag/call" stops are provided to the intermediate cities of Wilton, Washburn, Underwood, Coleharbor, Garrison, and Max.

Roundtrip service is also provided daily Monday through Friday between Minot and New Town. "Call stop" service is provided to the intermediate cities of Ryder, Makoti, Plaza, and Parshall.

In 1981, New Town Bus Line's current routes were operated by three different carriers. New Town Bus ran between Minot and New Town, Star Bus Line operated between Grand Forks and Minot, and Interstate Transportation Company, Inc. operated between Bismarck and Minot. New Town Bus Line eventually initiated operations between Grand Forks and Minot and between Minot and Bismarck when Star and Interstate ceased operations.

New Town Bus Line is a private, for-profit business but it does receive more than $100,000 per year in Federal Transit Administration Section 5311 financial support via programs administered by the North Dakota Department of Transportation.

New Town Bus Line's 23 bus stops and corresponding phone numbers are listed in Appendix B.

4.6 Taxi Services

There are 14 taxi cab operators in North Dakota. They all operate in cities with populations of 5,000 or more. All of the 12 cities that have a population of 5,000 or more residents have commercial taxi service available. These cities are identified in Figure 4.4.

The number of cities with taxi services has remained constant since 1981 except for the fact that Valley City and Wahpeton now have local service; they did not in 1981 (North Dakota State Highway Department, 1981). The number of taxi services in has increased from 9 to 14 since 1981.

Figure 4.4 North Dakota Cities Offering Taxi Service

Source: Small Urban & Rural Transit Center, 2005

Many of the state's taxicab companies receive either direct or indirect financial assistance via Federal Transit Administration programs, some of which are administered by the ND Department of Transportation. In some cases this support helps finance day-to-day operations while in other cases it is strictly to help finance capital acquisitions (i.e. vehicle purchases). Related support may also come from the ND Department of Human Services for providing Medicaid-related transportation services. The availability of these forms of public financial support may explain, at least in part, the increase in taxi operators since 1981. Bismarck / Mandan's taxicab company operates both the local taxi service and the cities' local transit operation.

North Dakota's 14 taxi operators are identified in Appendix C along with related provider information.

There are also numerous limousine services available in communities around North Dakota. These commercial operators provide special event transportation for weddings, anniversaries, birthdays, bachelor parties, school dances, sporting events, etc. Services are usually provided in oversized luxury automobiles with passenger capacities of 5 to 15 people.

Limousine services that operate across state lines with vehicles having seven or more seats, including the driver, must obtain operating authority from the Federal Motor Carrier Safety Administration. For interstate carriers based in North Dakota, they must also register with the North Dakota Department of Transportation. There are approximately 20 North Dakota-based limousine companies that have interstate operating authority.

This type of licensed interstate limousine authority also encompasses a specialized form of operation that provides service on a contract basis for railroads. These companies use passenger vans to transport train crews between trains and motels or bases of operation. This type service is very specialized and is not available for use by the general public (Laqua, 2004).

There are no state licensing requirements for limousine services that operate strictly on an intrastate basis and there is, therefore, no related listing of North Dakota intrastate limousine operators. An Internet search reveals, however, that services are generally available from multiple operators in virtually all major cities and even in smaller communities such as New Rockford (population 1,463), Minto (population 657), and Kindred (population 614).

Limousine services typically operate on an hourly rate, often in the range of $75 to $175 or on a per-person basis with a set number of hours and a minimum number of riders (e.g. $25 per person for 6 hours with a 6 person minimum).

Given the costs associated with this type service, limousines are not associated with satisfying individuals' day-to-day personal mobility needs.

4.7 Passenger Trains

Amtrak (National Railroad Passenger Corporation) provides intercity passenger railroad services in eastern and northern North Dakota via its "Empire Builder" route. The Empire Builder route extends eastbound to Minneapolis and Chicago and westbound to Seattle and Portland. Service is provided once per day, both eastbound and westbound. Boarding and deboardings are permitted at the stations shown in Figure 4.5.

The number of stations in North Dakota has remained unchanged since at least 1981 and service levels have increased from daily during the summer months and three days per week during other periods to daily service on a year around basis (North Dakota State Highway Department, 1981).

Figure 4.5 North Dakota Intercity Amtrak Rail Service

Source: Small Urban & Rural Transit Center, 2005

Until the 1970s, North Dakota was served by the existing route across the eastern and northern portions of the state plus a route (Hiawatha) across the southern tier through Fargo, Jamestown, Bismarck, and Dickinson. Federal cost cutting measures caused the elimination of the southern route and have repeatedly threatened the "Empire Builder" route. For now, however, service continues. As indicated on Table 4.4, North Dakota and the entire Empire Builder route generated ridership increases of 4.6 percent and 5.1 percent, respectively, in Fiscal Year 2004.

Amtrak ticket and schedule information is available by calling 1-800-872-7245 or on Amtrak's website at www.amtrak.com.

4.8 Air Passenger Transportation

Personal mobility includes three forms of air travel - travel by scheduled, fixed route airlines, travel via air taxi, and travel by private aircraft. The North Dakota Aeronautics Commission has conducted extensive research on air transportation in North Dakota and this study will not attempt to recite all the work done by the Aeronautics Commission. Rather, it simply calls attention to the work done by the Commission and focuses on information that pertains to personal mobility related to scheduled, fixed route air lines, taxi service, and personal aircraft. More detailed information on these and other air transportation matters is available from the Aeronautics Commission.

The U.S. Department of Transportation's Bureau of Transportation Statistics ranks North Dakota 45th among the 48 continental states in terms of rural air service coverage. According to the Bureau's April 20, 2004, report on "Scheduled Intercity Transportation: Rural Service Areas in the United States," 38.6 percent of North Dakota's rural residents live within 25 miles of a commercial airport. Other low-ranking states include Alabama (32.7 percent), Wyoming (35.3 Percent), Oklahoma (35.4 percent), Montana (40.6 percent), and South Dakota (42.7 percent). Nationally, 70.1 percent of the nation's residents live within 25 miles of a commercial airport (Bureau of Transportation Statistics, 2004).

According to the North Dakota Aeronautics Commission's website (www.state.nd.us/ndaero), there are 90 public airports in North Dakota. Eight of these airports support commercial, fixed route airlines; the remaining 82 are general aviation airports that are available for use by air taxi operators, private aircraft, etc. There are also 220 private airfields in North Dakota.

The number of commercial airports in the state has remained constant, due at least in part to federal "essential air service" funding provided to the airports in Devils Lake, Dickinson, Jamestown, and Williston. EAS funding is a frequent budget-reduction target in federal budgets; the loss of this funding could threaten air service in affected communities. North Dakota's eight commercial airports, as identified in Figure 4.6, are located in the state's eight largest cities.

Figure 4.6 North Dakota Commercial and General Aviation Airports

Source: North Dakota Aeronautics Commission, 2004

Figure 4.6 also identifies the locations of North Dakota's 82 general aviation airports. According to the Aeronautics Commission, 63 of these airports have paved runways and 19 have grass runways.

Twenty of North Dakota's general aviation airports have closed since 1970. The 2001 Economic Impact of Aviation in North Dakota study prepared for the North Dakota Aeronautics Commission by the Upper Great Plains Transportation Institute cited low activity, poor runway conditions, high operating costs, and liability risks as major reasons for closure. The study also identified 15 additional general aviation airports as being "at risk" to future closure.

As indicated earlier, eight North Dakota communities have airports served by airlines that operate regularly schedule flights between these cities and regional hub airports. While the number of commercial airports in the state has remained constant, the number of airlines serving these communities has been in a state of change since at least 1987. These trends have followed the national, post-deregulation trend of major airlines discontinuing service in small markets and the related trend of regional carriers subsequently entering these markets.

The 2001 Economic Impact of Aviation in North Dakota study referred to above identified air carrier changes at each of the state's eight commercial airports between 1987 and 1999. Table 4.5 updates this information and summarizes changes in air carrier numbers between 1987 and 2004.

Significant restructuring has taken place in the airline industry since it was deregulated in 1980. Generally, large national carriers have exited many small markets; in many instances they have been replaced with regional carriers that operate smaller aircraft. In other cases, national carriers have formed partnerships with smaller firms and provide seamless services with the smaller carriers delivering passengers into hub airports for travel beyond via the national carrier.

As the preceding list of airports and air carriers illustrates, North Dakota has not been immune from this trend. It appears, however, that the situation may be stabilizing. As of May 2004, there are 49 scheduled daily arrivals and departures by fixed route carriers at North Dakota's eight commercial airports.

Passenger boardings on scheduled, fixed route services have varied over the past 10 years. As Table 4.6 indicates, virtually all of North Dakota's commercial airports experienced boarding declines from 1994 to 1998. Since then, the airports at Bismarck, Dickinson, Fargo, Grand Forks, and Minot have produced steady or increased boardings. The most significant increases have occurred at Bismarck and Fargo. Bismarck boarding totals do not include those produced by Allegiant, which initiated service in 2004. Those totals will become available in the third quarter of 2005.

According to the 1981 North Dakota State Highway Department (N.D. Department of Transportation) report entitled "Inventory of Public Transportation in North Dakota," commercial airline boardings totaled 409,927 in 1980. Boardings, therefore, increased by nearly 33 percent from 1980 to 1994 and by more than 43 percent from 1980 to 2004.

North Dakota's eight commercial airports are located in Bismarck, Devils Lake, Dickinson, Fargo, Grand Forks, Jamestown, Minot, and Williston. Information on each of these airports, including servicing airlines, destinations served, and the number of daily flights, is presented in Appendix D.

According to the U.S. Department of Transportation's Bureau of Transportation Statistics 2003 State Transportation Profile, there were 1,122 private pilots in North Dakota in 2001 and 1,434 licensed general aviation and air taxi aircraft (Bureau of Transportation Statistics, 2003). Information on air taxi services in North Dakota is presented later in this chapter.

4.9 Public Transportation

There are two basic forms of publicly financed ground transportation service in North Dakota – those available to the general public and those restricted to specific clientele groups. Some services, such as fixed route city bus services and local / regional dial-a-ride (paratransit) services, may be available to both while others may be restricted and therefore not available for use by the general public. These mobility modes and a description of services available in North Dakota are presented in the following subsections. A complete list of all of North Dakota's publicly financed fixed route and dial-a-ride / paratransit operations is presented in Appendix E.

Concerning the level of funding provided to support public transportation, a 1991 study entitled "Report on Intermodal Transportation in North Dakota" stated that ". . . funding support levels through federal sources have been steadily declining. . ." (Gillett and Elbert, 1991). This trend has, however, been reversed and federal support for transit has risen significantly since the early 1990s.

According to the National Transit Database, federal spending on transit increased from about $3.5 billion in 1990, to $6.5 billion in 2001 (Federal Transit Administration, 2002). In 2004, the FTA expected to have $7.266 billion available to support transit programs around the country (Federal Transit Administration, 2004c). As will be discussed later, a significant amount of additional federal support is also available for transportation via programs administered by federal agencies including the Departments of Health and Human Services, Education, Labor, Agriculture, Interior, and Veterans Affairs. State funding to support local transit services has also increased.

4.9.1 Fixed-Route City Bus Services

Fixed-route bus service is traditionally defined as regularly scheduled bus service over a specified route using vehicles with a capacity of 12 to 40 passengers. North Dakota's four largest cities (Fargo, Bismarck, Grand Forks, and Minot) operate fixed-route bus systems. Fargo's system includes service to West Fargo and Moorhead, Minnesota, Bismarck's system extends to neighboring Mandan, and the Grand Forks system includes routes in East Grand Forks, Minnesota. The systems in Fargo, Grand Forks, and Minot have operated for several decades while Bismarck's system initiated service in May 2004.

North Dakota's fixed-route city bus services are operated with funding provided by each community, the state, and the Federal Transit Administration (FTA). Because of their populations, federal capital and operating funds flow directly to the bus systems in Fargo, Grand Forks, and Bismarck. Minot's capital improvement grants come directly from the FTA while its FTA operating grants come via the North Dakota Department of Transportation.

Federal operating grants (FTA Section 5307 funds for Bismarck, Fargo, and Grand Forks and Section 5311 funds for Minot) require a 50 percent local match. Section 5309 funds are used for capital improvements; these grants require a 20 percent local match.

Projected FY 2004 federal and state operating grants for North Dakota's four fixed route city bus systems are present in Table 4.7.

FTA capital improvement grants for North Dakota's public fixed-route bus systems are expected to total $2.95 million for FY 2004 (Federal Transit Administration, 2004a).

Table 4.8 presents a brief summary of key operating statistics for the fixed-route bus systems in Fargo, Grand Forks, and Minot for fiscal year 2004. Bismarck's fixed-route system did not commence operations until May 2004. A more detailed summary of system operating statistics is present in Appendix F.

In comparison, the National Transit Database reports that in 2002 the average subsidy per passenger in urbanized areas with populations of less than 200,000 was $2.74. Subsidies per rider tend to increase as population densities decrease (Federal Transit Administration, 2004b).

It should be noted that Minot's fixed-route bus system functions largely as a school bus system during the early morning and late afternoon. Traditional city-wide bus services are provided during the mid-day hours. This operating system facilitates student transportation and generates significant ridership which helps reduce the cost/subsidy per ride. Unlike the systems in Fargo, Grand Forks, and Bismarck, however, Minot's system is not designed to satisfy traditional commuter transportation needs.

4.9.2 Dial-A-Ride / Paratransit Services

Dial-a-ride or demand-response/paratransit bus services differ from fixed-route services in that they do not operate over a fixed route and they typically use smaller vehicles. These services often operate on an as-needed basis - almost like a taxi service. Unlike taxi services, however, the hours of operation may be limited and services may be restricted to specific clientele such as elderly or disabled.

There are 40 dial-a-ride / paratransit services in operation in North Dakota. As indicated earlier, a list of the existing services is presented in Appendix E. When combined with the fixed-route operations discussed earlier and the New Town Bus Line, which received federal operating support, there are 45 public transportation services in North Dakota; there were 55 in 1981 (North Dakota State Highway Department, 1981). While the number of operators has declined, primarily through consolidations, service levels have generally increased.

Some of these dial-a-ride services operate in conjunction with fixed-route bus systems in larger cities while others operate on a regional, multi-county basis. Some services operate strictly for the benefit of residents of single communities. Some coordinate with other area providers while others operate independently. These services are identified on the map in Figure 4.7; Appendices F & G provide a profile summary of each of these operations plus the fixed-route systems discussed in the preceding section.

Figure 4.7 North Dakota Multi-County Transit System Locations

Source: Enhancing Passenger Mobility Services in North Dakota through Increased Coordination. Small Urban & Rural Transit Center, 2004

The majority of these dial-a-ride services are either public or private, non-profit operations but some are commercial businesses which receive public operating subsidies. Most of these services are designed to transport elderly and disabled passengers but also provide transportation to the general public.

As Appendix G indicates, the percentage of subsidized operating costs varies greatly from one system to the next. On average, however, passenger fares cover only about 16 percent of the operating costs associated with a typical North Dakota dial-a-ride/paratransit service. The remainder of each service provider's budget is typically financed with support from the Federal Transit Administration (FTA), the state, the local community, and a variety of miscellaneous sources. In most cases, FTA and state funds are administered and dispersed by the North Dakota Department of Transportation (NDDOT). FTA funds may be available to cover up to 80 percent of capital improvement acquisitions (typically vehicles and buildings) and 50 percent of eligible operating costs.

Thirty-five of North Dakota's publicly supported passenger transportation systems receive operating support from the FTA's Section 5311 program. In 2004, program participants applied for nearly $927,000 in federal operating support (Section 5311) and nearly $42,000 for capital acquisitions (Section 5309). North Dakota also receives approximately $300,000 per year in FTA Section 5310 funding that is used primarily to purchase vehicles for elderly and handicapped transportation services.

State support for transit services is provided by a public transportation fund established by Chapter 39-04.2 of the North Dakota Century Code. Funding is generated via a fee on every motor vehicle license that is issued by the state. Monies generated go in to the public transportation fund that is administered by the NDDOT.

Public transportation fund monies are distributed to both the dial-a-ride/paratransit operators discussed in this subsection as well as to the fixed route city bus systems identified in the preceding subsection. The amount of money going to each eligible recipient is identified in Appendix G.

The public transportation fund was created by the 1989 Legislature. Prior to that time, there was no state support for the state's transit operations. The per license assessment was increased from $1 to $2 in 1997. The 2005 Legislature increased this fee to $3 per licensed vehicle effective August 1, 2005 (Senate Bill No. 2348).

With this fee increase, each of the state's 53 counties will see its annual state transit support payment increase from $12,200 to $18,300. If there is more than one eligible transit service provider in a county, this funding to divided equally among the operators.

In addition to these payments, each county is to receive approximately $1.50 per capita from the public transportation fund each year; the exact amount of these per capita payments depends on the amount of money that is in the fund each year. In 2003, per capita payments equaled $1.52 per county resident. In 2004, per capita payments declined to $1.40 per resident. Future per capita payments will depend on the number of motor vehicles licensed in the state each year. If there is only one service provider in the county, it receives all of the county's per capita money. If there are multiple services providers, the funds are distributed based upon each provider's annual elderly and handicapped ridership as a percentage of all such rides provided by all of the county's operators.

This funding mechanism had been generating approximately $1.5 million in annual collections. Collections had been declining, however, because of falling licensed vehicle numbers. It is expected that the 2005 fee increase will increase annual program funding to approximately $2.25 million. This money is important to local transit operators because it supports capital and operating needs and serves as a local match for federal transit grants.

Seven of the state's 40 paratransit systems receive operating support from the federal Older Americans Act Title III program administered by the North Dakota Department of Health (NDDHS). Fund disbursements for the transit portion of this program totaled $307,356 in fiscal year 2004; recipient agencies were required to provide a 15 percent non-federal cash match. To be eligible, service providers must provide supportive/nutritional services to people age 60 and older. North Dakota's Title III program has been relatively stable in recent years; no additional funds have been allocated to transit programs and the consolidation of existing service programs has been encouraged (Pfliger, 2005).

As discussed in the following subsection, transportation service providers are eligible to receive reimbursement for services provided if they are transporting Medicaid clients to related medical appointments and if the service provider is enrolled with NDDHS. A cross-check of public transit operations in North Dakota (Appendix E) and the operations which have received transportation-related reimbursement from Medicaid since 2002 (Appendix H) indicates numerous service providers have apparently not enrolled with NDDHS to be eligible to receive Medicaid reimbursement for services provided. Doing so may be financially beneficial for these service providers, thereby either reducing operating deficits or permitting service enhancements.

4.9.3 Other Publicly Supported Transportation Services

The Federal Transit Administration, within the U.S. Department of Transportation, has an annual budget of approximately $7.2 billion which is used to support transit services across the country. In addition to these FTA supported programs, there are numerous other sources of federal support for the provision of transportation services.

According to the U.S. General Accounting Office (GAO), there are 62 federal programs that fund transportation services. Some of these programs support transportation services available to the general public, like those discussed in the preceding subsections, but most are restricted to specific clientele groups.

In its June 2003 report entitled, "Transportation-Disadvantaged Populations," the GAO indicated that specific spending information was available on only 29 of these 62 federal transportation programs. These 29 programs incurred expenditures of $2.4 billion in fiscal year 2001. Fifty-two of the 62 programs are in the Departments of Health and Human Services (23), Labor (15), Education (8), and Transportation (6). Departments with a lesser role in transportation include Agriculture, Housing and Urban Development, and Interior (U.S. General Accounting Office, 2003).

Table 4.9 presents a list of transportation programs that the GAO identified as having spent more than $20 million in FY 2001. For the purposes of this study, Federal Transit Administration programs discussed in the preceding subsections on fixed route and dial-a-ride / paratransit were omitted from this list.

The narrative which follows this list describes each of these programs and the role that each plays in North Dakota's personal mobility system.

Via Executive Order No. 13330 dated February 24, 2004, President Bush ordered federal transportation agencies to identify and implement strategies for enhancing coordinated services across program and agency lines.

Medicaid. Medicaid is a federal program which provides health care for certain low income individuals. Primary beneficiaries include pregnant women, children and teenagers of low income parents, and low income people who are elderly, blind, or disabled. Each state is responsible for administering its own Medicaid program. North Dakota's program is administered by the North Dakota Department of Human Services (NDDHS). There are approximately 53,000 Medicaid recipients in North Dakota. This total represents about 8 percent of the state's population.

Federal regulation 42 CFR 431.53 requires that states provide assistance to insure that Medicaid recipients have transportation to and from medical appointments. Medicaid recipients and their families are expected to provide their own transportation if they are able to do so. Needs assessments and subsequent transportation services are handled by county social service offices.

Medical transportation may be to a nearby doctor but travel may also involve trips to more distant or even out-of-state locations for services that are not available locally. Related travel may be by bus, train, or air, depending on the medical needs of the traveler and available means of transportation. The cost of ambulance service may also be paid by Medicaid if a medical emergency exists.

When there is a proven need for transportation assistance, related services must be provided by an entity "enrolled" with NDDHS. Services are often provided by existing commercial operators, fixed-route bus systems, or local paratransit services but they may also be provided by individuals who have enrolled with NDDHS to provide Medicaid-related transportation services. Service providers are reimbursed based on a fee schedule established by NDDHS.

NDDHS records indicate that there are approximately 821 active Medicare transportation service providers that provide non-emergency medical transportation to Medicaid recipients. Fifty of these entities are commercial, public, or private, non-profit services; the remainder is individuals who provide occasional services to individuals in their area.

The location of the 50 primary services providers is presented in Figure 4.8. As this figure indicates, 47 of these providers are based in 16 North Dakota communities and three are based in communities in neighboring states. A list of these primary service providers, along with a list of ambulance services which received Medicaid payments in 2002, 2003, or 2004, is presented in Appendix H.

Figure 4.8 Medicaid Transportation Providers

Source: Enhancing Passenger Mobility Services in North Dakota through Increased Coordination. Small Urban & Rural Transit Center, 2004

NDDHS estimates that approximately $301,000 was spent on non-emergency, Medicaid-related transportation services in North Dakota in calendar year 2004. An additional $284,000 was spent on emergency ambulance services and related supplies (Gaardner, 2005).

Head Start. Head Start is a federal program designed to increase the social competence of children of low income families and children with disabilities. The program targets children ages zero through five, pregnant mothers, and their families. There were over 3,300 pre-school children and their families enrolled in Head Start programs in North Dakota in 2003 (North Dakota Head Start Association, 2004).

Federal Head Start monies flow directly from the federal government to local grantees. There are 14 grantees in North Dakota. These 14 grantees operate 71 Head Start centers in 59 communities around the state. The location of these centers is illustrated in Figure 4.9.

Figure 4.9 North Dakota Head Start Centers

Source: A Connection for Families & Agencies', North Dakota Head Start State Collaboration Office, 2004

Grantee organizations include a variety of entities including private non-profit organizations, tribal governments, a public school district, and a state university. NDDHS serves as a coordinator/collaborator to provide training and to help local sites comply with federal and state program guidelines. Federal funds cover 80 percent of program costs (North Dakota Department of Human Services, 2004).

According to the "School Transportation News" website (http://www.stnonline.com/ stn/headstart/), more than 857,000 children were involved with the national Head Start program in the year 2000. More than 500,000 of these youth were transported to Head Start programs using 11,000 vehicles that were owned and operated by Head Start grantees nationwide.

With the help of NDDHS, North Dakota's Head Start grantees were surveyed to determine the number of vehicles that they operate, the number of trips provided, etc. Six of the state's 14 Head Start grantees responded. These six grantees operate 45 of North Dakota's 71 Head Start centers.

The transportation services offered by respondents vary widely from center to center. One grantee with 13 local sites indicated that it does not provide any transportation services while two grantees reported that they each operate 10 vehicles. Some grantees reported that there is some degree of coordination between their operations and local public busing programs and taxi operators. Other grantees reported there is currently no coordination between their transportation services and other local service providers.

As indicated earlier, federal Head Start monies flow directly from the federal government to local grantees. NDDHS has a state-level Head Start coordinator but the services provided are largely in the form of training and technical assistance vs. state-level oversight and compliance.

Temporary Assistance for Needy Families (TANF). TANF is a federal block grant program which provides states with money to operate state-directed social welfare programs. Among other things, TANF monies may be used to provide transportation assistance to help program participants travel to work or related training.

TANF funds are not used to directly subsidize transit system operations. Rather, TANF monies are typically paid to program participants to cover related costs. The national Center on Budget and Policy Priorities indicates that about two percent of the federal TANF budget is used to facilitate participant transportation (Coven, 2003).

As is the case with Medicaid, North Dakota's TANF program is administered by NDDHS. During the 12-month period which ended June 30, 2004, NDDHS estimates that approximate $1.27 million was expended to reimburse program participants for transportation-related expenses. In urban areas these costs might involve things like city bus tickets while in more rural areas they might involve fuel costs for personal vehicles (Hougen, 2005).

North Dakota has also used TANF funds to support U.S. Department of Transportation Jobs Access & Reverse Commute programs (this federal program will be discussed below). Using TANF funds to augment this program can effectively reduce the local cost of related services to zero. As is indicated below, however, this program has been relatively small in North Dakota.

Veteran's Benefits. The federal Department of Veterans Affairs (VA) operates a fleet of passenger vans in North Dakota to provide eligible veterans with free transportation to veteran medical centers for medical services. North Dakota's only VA medical center is located in Fargo; some veterans in western North Dakota do, however, receive services from a VA center located in Miles City, Montana. VA clinic services are also available in Bismarck, Grafton, and Minot.

The VA operates a fleet of 10 vehicles in North Dakota. These vehicles are based in Fargo, Lidgerwood, Jamestown, Bismarck (2), Dickinson, Cavalier, Minot, Stanley, and Williston. The Dickinson and Williston-based vehicles cover their communities and points west enroute to the VA center in Miles City. The other vehicles serve their immediate area and intermediate points enroute to Fargo. Services are also provided to the three clinic locations identified earlier. Each van has designated pick-up and drop-off points; riders are responsible for finding their own means of transportation to and from these points.

VA vans are typically purchased either with donations from businesses, local service organizations, or veterans groups or with proceeds from the Veterans of North Dakota Trust Fund. The vehicles are then turned over to the VA, which is responsible for their operation and related costs. These vehicles are not equipped with special accessibility features such as lifts or ramps and are operated by volunteer drivers.

The vans in Bismarck, Stanley, and Cavalier operate on a weekly basis while the others are all on an as-needed basis. Except for the van that is based in Stanley, all the vans make the round trip to Fargo and back in one day; the trip from Stanley to Fargo and return requires two days. The vans traveling to Fargo carry an average of about 200 passengers per month.

For routing purposes, the Cavalier van, for example, leaves Cavalier and stops at other designated points (e.g. Grafton and Grand Forks) on the way to Fargo. A Bismarck van will stop at designated points along Interstate 94 (e.g. Jamestown and Valley City) on the way to Fargo. The Jamestown van will run only if the Bismarck van is full. The Minot van is used primarily for trips to the Minot Air Force Base. Minot veterans who need a ride to Fargo use the Stanley-based van.

In addition to these van transportation services, the VA also provides commercial bus transportation and mileage reimbursement for low income veterans. Assistance is also available to help equip disabled veterans' personal vehicles with special accessibility and operating equipment (Famias, 2004).

Jobs Access & Reverse Commute. The federal highway TEA-21 program provides the Federal Transit Administration with funding, ". . . to develop transportation services designed to transport welfare recipients and low income individuals to and from jobs and to develop transportation services for residents of urban centers and rural and suburban areas to suburban employment opportunities." Program funds are administered by the FTA and are available for both capital and operating purposes. Sixty percent of the program's $85 million budget is designated for urban areas with populations of over 200,000; 20 percent is for urban areas of less that 200,000 and 20 percent is for non-urbanized areas. The Federal/local share is 50/50 (Federal Transit Administration, 2001).

In 2001, North Dakota received approximately $79,000 in program funds to purchase a vehicle and provide related transportation services on the Standing Rock Indian Reservation in Sioux County. Subsequent years' funding was denied and related services reportedly ceased.

The Fargo-Moorhead Council of Governments received a grant in 2004 for $98,000 to coordinate transportation services in the Fargo-Moorhead urban area and to work with area employers concerning the mobility needs of their low income employees.

No other areas in North Dakota are currently participating in this program. Job Service North Dakota does, however, utilize the federal Workforce Investment Act to help meet the employment-related transportation needs of dislocated workers and low income individuals. Program funds are used to help eligible individuals with job preparedness, job search, and training activities. Transportation assistance includes, among other things, funds for car repairs and public transit. Nearly 2,500 individuals from across the state were served by this program during the 12-month period ending June 30, 2004. Transportation-related assistance expenditures during this time period totaled more than $18,000 (Lacher, 2005).

No Child Left Behind. The federal No Child Left Behind Act (NCLB) was passed by Congress and signed into law in January 2002. The act represented a sweeping overall of the nation's elementary and secondary education systems.

According to the North Dakota Department of Public Instruction, NCLB funds may be used to provide transportation services. Corresponding decisions would be made at the local level but would be a part of plans that would be submitted for state review.

If NCLB funding was used to support transportation services, it would probably be used to transport students within a district, or even between districts, to gain access to eligible programs or services that are not immediately available in the school where the needy student is enrolled. NCLB funds could also be used for professional development purposes to either transport instructors to training programs or to bring presenters to local offerings.

Presently, no significant NCLB monies are being spent on transportation-related services in North Dakota (Gallagher, 2004).

Older Americans Act. As indicated in the preceding subsection on dial-a-ride/paratransit services, seven of North Dakota's dial-a-ride/paratransit services receive Older Americans Act Title III operating support in a program administered by the North Dakota Department of Human Services. Fiscal year 2004 funding totaled $307,356. Each of these operations also received Federal Transit Administration operating support via the North Dakota Department of Transportation. These Title III monies are used to support transportation services that provide eligible riders with access to community facilities, activities, and services.

Vocational Rehabilitation. NDDHS also administers North Dakota's vocational rehabilitation program. This program assists people with disabilities to help them achieve independence and employment by providing rehabilitation services. Eligibility is determined by vocational rehabilitation counselors located in North Dakota eight human service centers (Fargo, Jamestown, Bismarck, Dickinson, Grand Forks, Devils Lake, Minot, and Williston). Program monies, 80 percent of which are federal, may be used to help program participants travel to and from related services.

During the federal fiscal year which ended 9/30/04, $106,321 was expended in North Dakota to pay for transportation-related costs incurred to help program clients get to and from needed rehabilitation services. These payments were made on a client-by-client basis and did not go directly to, for example, existing transit operations. Typically incurred costs include the cost of bus tickets, travel reimbursement to family members who provide transportation, monthly gas cards for client-owned vehicles, etc.

Actual transportation-related program expenditures may vary greatly from one year to the next, depending on the needs of clients who are currently receiving vocational rehabilitation services (Wescott-Wetsch, 2005).

Job Corps. Job Corps is an education and vocational training program administered by the U.S. Department of Labor (DOL). The program is free to low-income students age 16-24 and helps them complete their high school education, learn a trade, and find employment. There are 118 Job Corps sites nationwide: these centers are operated by private contractors under agreements with the DOL. The program graduates approximately 70,000 students per year. Post-graduate assistance is provided for up to 12 months to help students with their job search, transportation, housing, health care, and other necessities (Job Corps, 2004).

North Dakota's only Job Corps campus is located in Minot. The center has the capacity to house and educate 250 students and typically runs at or near capacity. Each student's program is tailored to his or her needs and starts whenever the student arrives on campus. Programs typically entail on-site stays of 8-12 months.

Job Corps has four local service centers in North Dakota. These centers are located in Fargo, Bismarck, Grand Forks, and Minot. Each center serves its quadrant of the state and transports potential enrollees to Minot in U.S. government vehicles for campus visits prior to enrollment.

Once a student is enrolled, Job Corps will provide transportation assistance to help eligible students return home for monthly visits. Transportation via Job Corps vehicles will not be provided unless it involves at least three students. Transportation may also be provided by commercial bus and Amtrak.

Job Corps' fleet of vehicles is also used to provide local travel for purposes such as trips to job sites, recreation, miscellaneous appointments, etc. Job Corps has a fleet of 18 vehicles which includes passenger cars, mini-vans, full size vans, and 44 passenger buses (Schobinger, 2004).

Job Corps will also help graduates access post-graduation jobs via commercial modes of transportation. Commuting to and from these jobs does, however, become the responsibility of each individual.

4.10 Other Client-Specific Transportation

The preceding subsections of this chapter inventoried the majority of the mobility modes available to North Dakotans. Many of these modes are available to the public while others, such as private automobiles, are not.

There is, however, another sector of transportation services that is available on a restricted basis to specific clientele. These non-public forms of assisted transportation include services such as:

• Nursing homes,
• Developmental disabilities care facilities,
• Ambulance services - ground & air,
• Volunteer drivers of private automobiles, and
• Special purpose shuttles.

These personal mobility facilitators will be discussed and inventoried in the following subsections.

4.10.1 Nursing Homes

There are three types of licensed facilities in North Dakota that provide housing for senior citizens and physically disabled individuals. These facilities provide resident care that ranges from apartment-like living (assisted living facilities) to individual sleeping quarters with congregate meals (basic care facilities) to complete care for residents with long-term medical needs (nursing homes). Each of these various types of facilities operates under licenses issued by NDDHS.

The following table identifies how many of each of these facilities there are in North Dakota and the capacity of each type facility.

The locations of these facilities are identified in Figure 4.10.

Nursing homes are required to provide non-emergency medical transportation services for their residents. There are no transportation-related requirements for other types of licensed senior housing facilities.

In an attempt to quantify transportation services that are provided to the residents of these various types of long term care facilities, licensees were surveyed to determine what transportation services are provided to residents. The overall response rate to this survey was 61.4 percent.

Figure 4.10 Nursing Home & Physically Disabled Housing

Source: Enhancing Passenger Mobility Services in North Dakota through Increased Coordination. Small Urban & Rural Transit Center, 2004

Table 4.11 on the following page identifies the county locations of all of North Dakota's licensed assisted living, basic care, and nursing home facilities. Vehicle numbers for each facility are based on survey responses. In summary, 61.4 percent of the licensed facilities responded to the survey and these respondents reported operating a total of 127 vehicles to transport their residents. Respondent nursing homes operate approximately three vehicles per home while basic care respondents reported operating an average of two vehicles per location. Assisted living respondents averaged half a vehicle per site.

The county-by-county information in Tables 4.12 and 4.13 is further tabulated to reflect regional totals as well as compilations for North Dakota cities with populations of 4,500 or more.

4.10.2 Developmental Disabilities Service Providers

NDDHS also licenses entities to provide residential services to developmentally disabled individuals in North Dakota. As of August, 2004, there were such 34 entities in the state. The location of these providers is depicted in Figure 4.11. These service providers operate a total of 101 residential group homes in North Dakota. Approximately 775 developmentally disabled individuals reside in these group homes. NDDHS estimates that licensees provide residential services for an additional 1,000 developmentally disabled individuals who live outside group homes. Many of these group homes provide transportation services for their residents and other clients.

Figure 4.11 Developmental Disability Service Providers

Source: North Dakota Department of Human Services, 2004

Group home operators receive Medicaid reimbursement through NDDHS for services provided. Each licensee purchases its own vehicles and amortizes related expenses into its operating budget, along with vehicle operating costs. The exact amount that is paid for transportation services is unknown since related costs are built into each licensee's overall cost of doing business. These costs are subject, however, to review and approval by NDDHS (Hendrickson, 2004).

All of North Dakota's developmental disabilities service providers were surveyed as a part of this study effort. Survey questions focused on the types of transportation services that are being provided, the number of clients served, and the number of trips provided.

Twenty-nine of North Dakota's 34 licensees responded to this survey (85 percent response rate). These survey respondents operate 74 of the state's 101 group homes and provide 3,995 clients with residential and other services. Most group homes have at least one vehicle at the home for resident/client use; the homes' vehicles are capable of satisfying the majority of their needs. Group homes do not keep a record of trip purposes. Many indicated, however, that employment and medical trips are the most frequented trips. Respondents indicated that they operate a total of 156 vehicles to provide transportation services to their clients.

A county-by-county listing of the location of reported developmental disability vehicles is presented in Table 4.14 on the following page. Tables 4.15 and 4.16 present regional totals and a subsequent listing which identifies vehicle locations by major city.

4.10.3 Ambulance Services - Ground & Air

As is the case with nursing homes and developmental disabilities service providers, NDDHS also licenses North Dakota's ground and air ambulance services. In some communities these are commercial operations while in others they are nonprofit entities staffed primarily with volunteers.

As of August 2004, NDDHS licensed 140 ground ambulance services; 135 of these services were based in North Dakota while five were based in communities just outside the state's borders. A map showing the location of licensed ground ambulance services is presented in Figure 4.12.

Figure 4.12 North Dakota Ambulance Service Providers

North Dakota's 140 ground ambulance services operate a total of 288 vehicles. Licensees in large communities such as Fargo may operate 10 or more vehicles while the state's smallest services may only have one vehicle. Most licensees do, however, have two vehicles available to provide emergency medical trips to area residents.

There are 45 hospitals in North Dakota; 18 of the state's 53 counties do not have a local hospital. Ambulance trips may, therefore, be quite long. Having a second service available for emergency service is considered important.

Of North Dakota's ambulance services, 121 are licensed to provide "basic life support" services (BLS); the remaining 19 provide "advanced life support" services. BLS service vehicles must be staffed with an emergency medical technician (EMT) and a driver who is trained in cardiopulmonary resuscitation. It is estimated that more than 90 percent of the state's EMTs are volunteers. NDDHS estimates that North Dakota's licensed ground ambulance services provide more than 50,000 emergency trips per year.

NDDHS also licenses air ambulance services. As of August 2004, there were four entities licensed to provide air ambulance services in North Dakota. These services are based in Fargo, Bismarck, Minot, and Aberdeen, South Dakota. Emergency services may be provided between points in the state or to more distant medical facilities in locations such as Minneapolis or Rochester, Minnesota (Myer, 2004).

Given the fact that there are 144 ground and air ambulance services licensed by NDDHS and only 126 ambulance services have requested Medicaid-related transportation reimbursement since 2002 (see Appendix H), there are apparently ambulance services that have not enrolled with NDDHS to receive Medicaid reimbursement for services provided. Doing so may be financially beneficial for these service providers.

4.10.4 Volunteer Drivers of Private Automobiles

Volunteer driver programs have the ability to satisfy transportation needs in areas where population densities do not warrant programs with dedicated vehicles and salaried drivers. Volunteer driver programs can also augment local transit and paratransit services.

Volunteer driver programs can be operated by local transit services but they may also be organized and operated by civic-minded businesses or as faith-based initiatives operated by local churches. Riders may be charged for services according to an established fee structure or services may be provided on a donation basis. Drivers are typically reimbursed for vehicle operating costs, incurred meal costs, etc.

Regional focus group meetings were held throughout North Dakota as a part of the 2004 transportation coordination study that SURTC conducted for the North Dakota Department of Transportation. These meetings revealed that there are a small number of volunteer programs around the state that assist local residents with their transportation needs. These programs focus on assisting specific clientele groups within their respective communities.

One such program is Faith in Action in Pembina County. This program focuses on taking mobility disadvantaged residents to medical facilities in nearby Grafton and Grand Forks for medical appointments.

Valley City's Road to Recovery program is geared for cancer treatment patients. This program's volunteer drivers take local cancer patients to Fargo for radiology and chemotherapy treatments.

In Benson County, the Go For It program on the Spirit Lake Reservation helps meet the local transportation needs of TANF recipients. In the Fargo area, Cass County Social Services uses volunteers to get children to Grand Forks to visit parents who are hospitalized or in alcohol treatment.

Liability insurance is a concern which must be addressed by volunteer driver programs. Volunteer drivers must have personal automobile insurance which satisfies prescribed state standards. This insurance may cover vehicle and property damage claims which result when the vehicle is being used to provide services on behalf of the sponsoring organization. This insurance may also cover personal injury claims for both the volunteer driver and riders. Exclusions may apply, however, if riders are being charged for services, if vehicle use for volunteer services is extensive, or if damage or injury claims exceed prescribed limits.

Program operators and volunteer drivers should not automatically assume that the drivers' personal automobile insurance will provide adequate coverage in case of an accident, especially if a fee is charged for the ride or even if the driver is reimbursed for expenses. It may be appropriate for program operators to consult with their insurance agent concerning supplemental insurance to provide related coverage for volunteer drivers.

4.10.5 Special Purpose Shuttles

Several forms of special service shuttles operate in North Dakota. These shuttle services take a variety of forms including:

• Local transportation services provided by motels to their guests;
• Local and intercity pick-up and return services offered to medical clients;
• Transportation offered by child care facilities, colleges, & universities;
• Child transportation services related to YMCA-type functions;
• Local and regional transportation related to Visitor & Convention Bureau activities; and
• Gambling casino excursion trips.

Some of these services may be provided on a contract basis by licensed charter bus operators or limousine services while others may be in-house operations. These services are very specialized and client-specific. They involve a very limited clientele and do not address personal mobility needs of the general public.

4.11 Car Rental, Charter Buses, & Air Taxi Services

Vehicle rental services, both car and bus, are available in many North Dakota cities. These modes of travel are typically utilized when individuals or groups do not have access to other forms of transportation or when other forms of transportation do not provide the required degree of flexibility.

4.11.1 Car Rental Services

Car rental services are typically located at airport terminals but some of these commercial enterprises are located away from airports or in communities that are not served by commercial airlines. Appendix I identifies 35 car rental services located in 12 of North Dakota's largest cities; others, to the extent that they exist, may be found in local telephone directories. The location of existing car rental companies is presented in Figure 4.13.

Figure 4.13 Cities Offering Rental Car Services

Source: Small Urban & Rural Transit Center, 2005

4.11.2 Charter Bus Services

Charter bus services are much like car rentals except the vehicles have greater capacities than cars or vans and come with drivers. Services provided may be in school-type coaches or in over-the-road transit buses. Transportation may be of a local nature for conventions, etc. or for long-distance trips or tours.

Charter bus companies are typically based in larger cities but they have the flexibility to pick-up and transport groups to and from virtually anywhere that is accessible by road. Therefore, all cities in North Dakota have relatively easy access to charter bus services, either as a trip origin, destination, or intermediate stopping point.

There were 17 charter bus operators in North Dakota in 1981; there are 10 today (North Dakota State Highway Department, 1981). While this number has remained fairly constant in recent years, there is significant pressure on operators due to high vehicle and operating costs and competition within the industry. New coaches cost more than $400,000 and insurance costs can approach $14,000 per vehicle per year.

The 10 charter bus companies that are located in 9 North Dakota cities or in bordering Minnesota communities are listed in Appendix J.

4.11.3 Air Taxi Services

Air taxi services are certified and regulated by the Federal Aviation Administration and are commonly referred to as on-demand charter operations. These operators are typically based at one of the state's eight commercial service airports but services are offered with origins and/or destinations at any of the state's eight commercial service and 82 general aviation airports.

Presently there are 10 licensed air taxi services (Federal Aviation Administration "135 Operators") in North Dakota. According to the North Dakota State Highway Department (N.D. Department of Transportation) report entitled "Inventory of Public Transportation in North Dakota," there were 29 such services in the state in 1981. According to the North Dakota Aeronautics Commission; further declines in operator numbers are anticipated, because of increased regulatory requirements and rising insurance costs (Federal Aviation Administration, 2004).

A list of North Dakota's 10 air taxi services is presented in Appendix K.

4.12 Pedestrian and Bicycle Transportation

Walking and bicycling are efficient modes of travel. Their viability is dependent on, among other things, the distances involved, the physical abilities of the traveler, weather, and related transportation facilities. As indicated in an earlier section, 2000 Census data indicates that 5 percent of all North Dakotans walk to work and that another 0.8 percent commute by some means other than by car or transit (partially by bicycle). By contrast, only 0.4 percent commute by public transportation, including taxicab. While these modes of travel are likely to be seasonal given North Dakota's sometimes harsh winter weather, adequate pedestrian and bikeway facilities promote both utilization and user safety during major portions of the year.

The Federal Highway Administration (FHWA) has adopted a policy statement concerning bicycle and pedestrian ways. The policy provides that corresponding facilities shall be included in all new and reconstruction roadway projects in urban areas unless doing so is prohibited by law, the cost would be excessively prohibited, or there is an indicated absence of need (Federal Highway Administration, 2004).

FHWA requires that related bicycle and pedestrian facilities included in roadway projects be designed in a manner that is consistent with commonly used guidelines and standards such as the Association of State Highway and Transportation Officials (AASHTO) "Guide for the Development of Bicycle Facilities" (1999). Related facilities may include features such as extra-width traffic lanes, designated lanes, sidewalks/shared use paths, accessibility curb-cuts, ramps, cross walks, traffic control devices, etc. Many of the amenities that are needed to encourage pedestrian and bicycle travel are also required by the Americans with Disabilities Act (American Association of State Highway and Transportation Officials, 1999).

As a part of the NDDOT urban, long-range planning process, each of the state's urban areas is required to consider bicycle and pedestrian traffic when building or upgrading arterial streets and roadways that are a part of the state or federal highway system. Cities included in this process are listed in Table 4.17.

AASHTO's design standards also apply to federally supported construction projects that are located outside the urban areas identified above.

AASHTO categorizes bicyclists as advanced, basic, or children. Individuals who use bicycles for commuting are considered advanced riders who are capable of sharing arterial roadways with vehicular traffic. Transportation planners must consider the level of bicyclists who will be using a facility when preparing corresponding designs. AASHTO has design standards for each of the types of bicycle roadways identified above.

Facilities should also be designed with anticipated levels of pedestrian traffic in mind. Unless constrained by available space or unreasonable costs, higher levels of usage warrant greater accommodations.

This study will not attempt to inventory available pedestrian and bicycle routes in North Dakota because these routes typically include all of these state's roadways. It is worth noting, however, that planning for pedestrian and bicycle facilities is a part of the planning process undertaken by NDDOT and each of the state's largest cities.

References

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