8. Policy and Program Options and Recommendations

People in rural areas may believe that personal mobility is more important to them than it is to people in more populated urban areas. This is, in fact, not the case; personal mobility is equally important to everyone. What is different in rural areas, however, is the way that these needs must be met.

Rural areas, by their very nature, involve lower population densities and longer travel distances. The need to be personally mobile is generally the same for both urban and rural residents. People need to get to work, medical appointments, shopping, social functions, etc., but different approaches are needed to satisfy these needs, depending on where each individual lives.

Personal automobiles, for example, may be more of a necessity in rural areas and transit systems need to function differently in rural vs. urban settings. Similarly, mobility factors such as snow removal are more of an issue in northern climates. Carpool lanes and parking may be important in urban areas while they are non-issues in rural communities. Traveling from place to place is universally important, but how that is done varies depending on each individual's mobility environment.

The steering committee that was established to oversee this study came to a consensus concerning levels of passenger transportation service that are required to satisfy the basic mobility needs of various segments of the state's population and different size population centers in the state. Related recommendations will be presented in this chapter.

The steering committee recognized that budget constraints limit the level of service that may be universally possible across the state. While the committee recognized that higher levels of service are desirable, presenting recommendations and designing programs that are financially unrealistic would be counterproductive.

The steering committee stressed that providing the base levels of service outlined herein would not, in fact, satisfy many of the mobility needs of state residents. Supplemental services would be required to satisfy more than base level needs. The committee believes, however, that providing higher levels of service should be a local decision and that related programs should be tailored specifically to meet local needs. Meeting some personal mobility needs may also be outside the realm of government responsibility.

Given this differentiation between basic and supplemental services, this chapter presents two sets of recommendations. The first set relates to universal mobility needs, state level goals, and the provision of base levels of service throughout the state. The second set involves supplemental services which address mobility needs tailored specifically to a particular city, county, region, or demographic group.

Regardless of whether a recommendation involves basic or supplemental services, the implementation of related programs will require a strong partnership between state transportation agencies and local facilitators. While state agencies may be able to provide guidelines and incentives to encourage the implementation of mobility programs, the true work must often be done at the local level.

In recognition of this fact, many of this study's recommendations promote mechanisms which facilitate state-local partnerships. Some of these mechanisms involve financial incentives which encourage local initiatives while others involve disincentives which also encourage local actions regarding existing services.

The need for local initiatives to establish many of the base level and supplemental services discussed herein does not mean that there is not a role for state transportation agencies in this process. Quite to the contrary, state leadership and technical and financial support may be crucial if related programs and services are to be created. Program success will be heavily dependent on state and local partnerships and ongoing coordination and cooperation.

This chapter's second set of recommendations regarding supplemental service programs is followed by a presentation of "best practices." The mobility programs discussed in these subsections have been designed and implemented in other parts of the country - areas which have low population densities and mobility challenges similar to those experienced in many parts of North Dakota. Hopefully this presentation will provide state and local leaders with ideas for programs which will help address special personal mobility needs which exist in various parts of the state.

In the final analysis, it must be recognized that personal mobility needs are, in fact, personal. These needs vary from person to person and there is no one solution that will satisfy everyone.

Given this fact, there is no single recommendation or program that will eliminate all of the state's personal mobility problems. Rather, addressing personal mobility needs must be done via a variety of approaches and programs, each designed to target needs that are common to various segments of the population (elderly, disabled, commuters, school-age youth, etc.). This is the approach that is taken in the following recommendation section.

8.1 Base Level Service Recommendations

As indicated in the preceding narrative, this chapter's first set of recommendations relates to base level mobility services and corresponding programs. These goals and programs are discussed in the following subsections. Recommendations related to supplemental local programs and initiatives are presented in the latter portion of this chapter.

8.1.1 Focus on basic access rather than service enhancements

Given their population densities, many states have relatively mature personal mobility systems that provide comprehensive mobility services and even a variety of service options. Some areas of North Dakota have comparable personal mobility services but the systems in place in many cities and counties leave area residents with limited or no options, other than private automobiles.

The literature review that was conducted regarding other state's mobility studies found numerous plans that addressed personal mobility factors such as travel times, commuter choices, cost of service, reliability, quality, and safety. While these mobility factors are certainly important, they are secondary in nature in areas which have no personal mobility options.

Given this fact, this study's steering committee felt that it is important to differentiate North Dakota's personal mobility plan from those of other states which have higher population densities and more mature personal mobility systems. Correspondingly, the steering committee recommends that North Dakota's personal mobility planning efforts focus on ensuring availability of and access to services. Once services are in place, related enhancement initiatives may be undertaken.

8.1.2 Implement recommendations of coordination study

In November 2004, SURTC completed a transit coordination study for the North Dakota Department of Transportation (Enhancing Passenger Mobility Services in North Dakota through Increased Coordination). The steering committee endorses that report's recommendations. In summary, those recommendations are:

• Issue a Governor's directive to encourage transit coordination efforts at the state, regional, and local level.
• Establish a state-level coordinating body to promote coordination and communications among state agencies that fund personal transportation.
• Establish regional transportation coordination boards and employ regional transportation coordinators.
• Provide state funding to support start-up and ongoing operations of regional transportation coordination boards.
• Provide training and technical assistance to regional boards.

The steering committee believes that the implementation of the remaining recommendations of this study would be greatly facilitated by the regional and state board concept outlined above.

It should also be noted that federal Executive Order No. 13330 mandates that federal agencies work together to coordinate their transportation programs, many of which were discussed in Chapter 4. State level efforts among key transportation agencies and related directives to local service providers would further this effort and lead to related cost savings and, more importantly, service enhancements and increased personal mobility.

8.1.3 Promote the provision of base level public transportation/personal mobility services in North Dakota

The steering committee recognized that economic realities prevent the provision of high levels of universal service to all areas of the state. To balance these realities with the needs of various geographic areas and demographic groups, the steering committee sought to identify base levels of required service for each of the groups and areas identified on the grid on the following page. The corresponding levels of prescribed service increase relative to the lack of personally provided mobility available within each demographic group and to the population density of each geographic area. The level of prescribed service therefore increases with need densities.

It is important to note that the services prescribed in the mobility goals grid are not necessarily capable of meeting all the mobility needs of state residents. As indicated earlier, these are services that will hopefully meet the basic needs of most state residents.

It should also be noted that the services identified in the grid are government-supported services. Some of these services are supported by state agencies such as the North Dakota Departments of Transportation and Human Services. Other services ("friends & family," commercial, faith-based, etc.) are needed to provide higher levels of service.

Many of the services identified in the mobility goals grid are already being provided in North Dakota. As indicated in Chapter 4, for example, there are 140 licensed ground ambulances services licensed to operate in the state. School transportation services are almost universally available in North Dakota and there are more than 800 entities registered to provide Medicaid-related transportation services. Each of the state's four largest cities already has fixed-route bus systems in place.

In some instances, however, services would need to be initiated to insure the provision of prescribed levels of service (e.g. taxi or more frequent dial-a-ride services in certain communities). Not all of the services identified in the grid would require a "free standing" service provider. One provider may, for example, be able to provide local taxi services plus all of the dial-a-ride services required within a county.

It should also be noted that an important underlying element of the services prescribed in the mobility grid is the availability of, at a minimum, weekly dial-a-ride services in all parts of the state. Chapter 6 presented a gap analysis which compared the services prescribed in the mobility grid with the services available around the state. Dial-a-ride services are available in some form in each of the state's 53 counties. Unfortunately, not all of these services provide comprehensive services to all parts of their respective county; corresponding service levels should be expanded to satisfy the prescribed service goal.

The analysis of vehicle miles of service per capita data indicates that the amount of service available to rural residents varies across the state. The reasons for this diversity include the capabilities of the providers (financial, equipment, management, etc.), the trip purpose priorities of the organization, and historic trip patterns. The most significant stimulus to improve the scope and level of rural transit services would be to implement the coordination plan recommendations (Recommendation 8.1.2). This would lead to increased efforts to identify and meet local mobility needs and to acquire and manage corresponding resources.

The capital and operating expenses associated with expanded rural services were estimated based on three optional levels of service. These expansions would allow operators with lower service levels to increase offerings to levels comparable to some of the state's higher-achieving paratransit operations. The service level increases would lead to expanded services for two-thirds of North Dakota's rural systems and involve operating expense increases of 25-50 percent above the 2004 levels (between $850,000 and $1.7 million). Capital costs for additional vehicles are estimated to be between $1.5 and $3.0 million.

These operating and capital cost figures are based on general approximations of need and the cost of responding to these needs. The next step in the process of improving mobility in rural areas will be to conduct the detailed regional needs and service planning studies recommended in the coordination study. As a part of these studies, the capabilities of current providers can be assessed along with the opportunities to increase utilization of existing services. These studies can also address the key question of funding, especially the availability of local matching funds.

Once the coordination plans are completed, the NDDOT may consider the development of funding programs that offer funding incentives for expanded services that provide for the base level mobility levels described in this study. It may also wish to consider funding for organizational development to assure that each region has an active brokerage program to match individual and agency needs with public transportation services.

The previous recommendations focus on the rural areas of the state because this study identified these areas as having the greatest need for additional mobility services. However, the urban areas also have needs and opportunities to offer greater mobility within their service areas.

The four urban areas with fixed-route systems, Fargo, Grand Forks, Bismarck, and Minot, all provide services that meet this study's criteria for bas-level service. Fargo's and Grand Forks' services are the most comprehensive while Bismarck has just started to receive fixed-route service and might be considered a work in progress. Minot's public transit service has the greatest need and opportunity to increase its services because the current service primarily focuses on one mobility sector, namely primary and secondary school students, and provides only limited service to the general public. The NDDOT should continue to encourage expansion of all four fixed-route services but pay particular attention to the development of the Bismarck fixed-route system and encourage a broader market focus for Minot.

North Dakota cities with populations of 4,500 to 20,000 generally have the infrastructure in place to provide the levels of service presented in the mobility grid. As is the case with counties, however, individual assessments should be done to tailor these services to local needs.

8.1.4 Promote provision of public transportation/personal mobility services to and within regional hubs

The preceding recommendation focuses on providing a base level of access to public transportation services. Access to transportation providers does not, however, create mobility if the services do not connect users with the services that they need to access.

Some of the essential mobility needs of state residents relate to medical services, shopping, social and religious activities, etc. Some of these needs may be met within the individuals' home county, but in many instances travel to a regional hub may be required to access needed services. Travel within the county may not, therefore, be sufficient; getting to and from the regional hub is a necessity.

The steering committee therefore recommended that service systems be designed in a hub and spoke manner to provide services within each county and that each county system be linked to that region's hub city. In many cases, regional systems are already in place to provide such services. It should be a goal of the state to implement such services on a state-wide basis.

Providing access to regional hubs will not satisfy related mobility needs if available services do not allow travelers to move within these regional hubs once they get there. In many instances, county and regional paratransit operators already provide these services to the people they bring in from outlying areas. Efforts must be undertaken, however, to ensure that these local mobility needs are satisfied.

Taxi services also play a vital role in North Dakota's personal mobility system. An earlier recommendation suggested that systems be established and maintained in all cities of 4,500 residents or more. At this time, only Grafton and Beulah-Hazen do not have taxi services. Both of these communities are near the lower end of the population spectrum which calls for such services. Local needs assessments should be considered to determine if these services are, in fact, needed and to what extent government assistance may be needed and available to support their operations.

These operations provide a vital service to the general population and specifically to individuals with special mobility needs. Many of the state's taxi operators receive capital and/or operating support from state or local government and coordinate their services with local dial-a-ride systems. The end result is longer hours of operation and higher levels of service for area residents.

Steps should be taken to continue and enhance this partnership. Including taxi services in the coordination recommendation presented earlier will further the achievement of this goal.

8.1.5 Pursue connectivity between regions (intra and interstate)

A logical extension of the "hub and spoke" system described in the preceding recommendation is the ability to travel between hubs. In some instances these hubs will be other regional centers in North Dakota but in some cases related travel would tie into interstate travel. This connectivity is required to access things such as specialized medical services, vacation travel, etc.

As discussed in Chapter 4, intrastate regional connectivity via commercial operators has diminished over the past two decades. Much of this connectivity was originally provided by passenger bus services. As reported earlier, the number of commercial intercity bus services in North Dakota has declined from 12 in 1981 to 3 in 2005.

Intercity commercial bus services are still available in seven of North Dakota's eight regional hubs and regional connections are also provided by some of the state's paratransit services. It is important, however, that these publicly supported paratransit connections not compete with commercial intercity carriers. Doing so would deprive marginally profitable operators of much-needed revenue. The state's paratransit services should coordinate with commercial operators to provide feeder services which bring passengers to them.

Like many other states, North Dakota is using Federal Transit Administration funding to support the operations of some intercity bus operations. A bus advisory task force should be created to promote discussions involving the bus industry, state transportation agencies, and paratransit operators. The state should also consider conducting a needs assessment study concerning the state's intercity bus industry. The future of this industry is essential if the state hopes to maintain and enhance connectivity between its regional hubs.

Five of North Dakota's eight regional centers also have access to Amtrak service. As reported in Chapter 4, Amtak services in North Dakota have been relatively stable for more than 20 years and passenger boardings have increased in recent years. Nonetheless, the future of Amtrak is tenuous at the national level and whatever happens there will dictate the level of service, if any, available at the state and local level.

Amtrak provides many state residents with a means of traveling to out of state destinations as well as a means of traveling between points within the state. It is, therefore, an integral part of the state's personal mobility system and should be maintained.

NDDOT has worked with North Dakota's congressional delegation to monitor federal proposals concerning Amtrak. These efforts should be continued to insure that services are continued. Recommendation 8.1.8 also recommends that Amtrak be included in the proposed Personal Mobility Task Force so that its services can, to the greatest extent possible, be coordinated with those of other area service providers. If Amtrak service is discontinued in North Dakota, aggressive action should be taken to provide commercial bus transportation between Williston and Minot and to thereby maintain the Williston region's connections to other major hub communities in North Dakota.

Air passenger and air taxi services in North Dakota fall under the jurisdiction of the North Dakota Aeronautics Commission. The commission has conducted extensive research concerning air passenger services as well as services related to air taxi and the industry's infrastructure within the state.

Air passenger services are vitally important to North Dakota and provide one of the primary links between the state's regional hubs and out of state destinations. These services have undergone a dramatic transformation since the airline industry was deregulated in the early 1980s. Fortunately, overall service levels have been at least maintained and passenger boardings have increased.

The Aeronautics Commission should continue in its leadership role regarding air services in North Dakota. Recommendation 8.1.8 also recommends that the Aeronautics Commission be a member of the proposed Personal Mobility Task Force so that air services can, to the greatest extent possible, be coordinated with those of other facilitators of personal mobility.

8.1.6 Establish uniform performance measures for publicly supported transportation services and reward "achieving" programs

The analysis of 2004 operating and financial data for the state's publicly supported transit systems revealed a wide range in reported performance on both efficiency and effectiveness measures. Some of this difference is due to differences in the types of services provided and the operating environment encountered by the systems. However, much of the difference is due to management and policy decisions that can change and lead to increased mobility for North Dakota residents. Furthermore, a review of the data suggests errors in understand and/or reporting so that the usefulness of the data is compromised.

The benefits of collecting and using performance data for local management, policy decisions, and state-level funding decisions are significant; efforts to improve the data and encourage performance monitoring would be rewarded with both more and better service. As a first step, NDDOT and other state transit agencies should, in collaboration with grantees (including the Dakota Transit Association), review existing data reporting requirements and implement changes which will result in the submission of accurate and meaningful statistics. This information is vital to local and state administrators and state policy makers. At a minimum, grantees should be required to keep and report vehicle hours – a very common transit operating statistic. As part of this review, a detailed listing of definitions should be developed so that all systems report comparable data.

Once the data elements are agreed upon, corresponding information should be disseminated to grantee staff via guidelines and instructions, on-line help, and hands-on training sessions. Grantees should also receive assistance to develop a local performance evaluation framework that would include 8-10 measures that track efficiency, service quality, and safety. SURTC-lead workshops could help in developing and implementing this recommendation.

Implementing this recommendation would also allow NDDOT to collect and verify consistent and relevant data and to publish related annual statistical reports and systems profiles. This is a common practice of many states. Concurrently, NDDOT could work with grantees to streamline data reporting via the Internet to minimize the administrative burden for both grantees and the state. NDDOT has already taken steps in this direction by providing grantees with computer equipment that could be used in the data collection and submission process.

Once transit systems and NDDOT are comfortable with the performance evaluation process and the accuracy of the data, NDDOT might consider developing performance bonuses to reward systems that perform to a high level or show substantial improvement. Other states have tried this approach with both success and failure so additional research may be warranted to determine what types of approaches produce desired results.

8.1.7 Survey state residents concerning unmet personal mobility needs and develop a personal mobility index to monitor changes in personal mobility

Much of the data in this study, as well as similar studies conducted in other states, depends on ancillary data related to the mobility needs of various segments of the population (senior citizens, disabled, low income, etc.). While this approach is supported by related research, first-hand information concerning residents' mobility needs would be superior.

It is also important to note that many national surveys and studies, such as the U.S. Department of Transportation's 2001 National Household Travel Survey, do not survey many rural states, including North Dakota. It is somewhat speculative, therefore, to extend related findings to all regions of the country.

Given these facts, it may be advisable to conduct occasional surveys of state residents concerning their existing mobility habits and unmet needs. The findings of such a survey would enable policymakers and program administrators to design and implement programs that better meet the unmet mobility needs of state residents.

Such a survey, if conducted on a regular basis over a period of years, could also be tied to the development of a personal mobility index that would assist with the monitoring of new and ongoing mobility enhancement efforts. Such an assessment would allow policy makers to determine if, in fact, the state's efforts were yielding the desired results. Program modifications could then be made based on the findings of such reviews.

8.1.8 Establish a personal mobility task force

Personal mobility would be facilitated if the insightful individuals, businesses, and agencies that are involved with it meet regularly to educate one another and to collectively pursue ways to enhance personal mobility in North Dakota.

It is recommended that the director of the North Dakota Department of Transportation establish a Personal Mobility Task Force comprised of at least the following:

• NDDOT director and transit personnel.
• NDDHS director and personal associated with Medicaid, TANF, Vocational Rehabilitation, Aging Services, etc.
• North Dakota Aeronautics Commission.
• North Dakota Department of Public Instruction.
• Small Urban & Rural Transit Center.
• Fixed-route city bus system representative.
• Multi-county paratransit system representative.
• Operators representing state taxi and intercity bus systems.
• Amtrak.
• Personal mobility advocacy groups.

This task force should meet at least semi-annually to proactively monitor trends related to personal mobility and the various modes of travel in North Dakota and to work together to maintain and enhance the personal mobility of state residents.

8.2 Supplemental Service Recommendations

As indicated at the outset of the chapter, implementing the base-level service recommendations outlined herein would facilitate the satisfaction of only the most basic mobility needs of the state's mobility impaired. Service enhancements and additional forms of service would be required to address a wider range of mobility needs.

Recommendations concerning supplemental mobility services are presented in the following subsections. This presentation will be followed by a section which discusses innovative mobility programs which have been implemented in other parts of the country. Some of these programs may warrant consideration in some parts of North Dakota.

Implementing these and other supplemental mobility services may require a considerable amount of local initiative. State encouragement and financial support may help jump start these efforts but long term success will require local involvement, insights, management, and commitment.

8.2.1 Provide state incentives to encourage local initiatives that facilitate the achievement of state personal mobility goals

Inevitably, the initiation and long-term operation of mobility-enhancing services will require local involvement. This is true not only for what might be considered state programs but also for local programs designed to provide enhanced levels of service.

Providing financial incentives to encourage and reward local initiatives would greatly facilitate the establishment of desired services. The Department of Transportation and the Department of Human Services, should, to the extent possible, utilize available funds to initiate and operate local and regional surface transportation services that address the state's personal mobility goals. Programs should also be considered to provide implementation funding for creative mobility programs conceived by local, regional, and state-level mobility interests.

These efforts should be coordinated through the state coordinating council that is discussed in Recommendation 8.1.2. The North Dakota Aeronautics Commission should be included in these discussions.

8.2.2 Promote coordination of public, social service, school, church, & commercial transportation services at the local, regional and state levels

As illustrated by Chapter 4, there are a numerous transportation services available to state residents. Some of these services are available to the public while others are client-specific; some are non-profit and some are commercial.

In many instances, these services are not coordinated with one another. In some cases, they may not even be coordinated despite the fact that their underlying funding sources are the same.

Efforts should be taken at both the state and local levels to coordinate all local transportation services. This coordination would result in lower aggregate operating costs and/or higher levels of service to area residents. This coordination would best be accomplished via the establishment and operations of state and local coordinating councils as described in Recommendation 1.2.

8.2.3 Promote "friends and neighbors" and "faith-based" approaches to satisfying as many mobility needs as possible, especially in rural areas

Automobiles satisfy the vast majority of North Dakotans' personal mobility needs. In many instances, unmet needs could also be satisfied with private automobiles if the vehicles' operators were aware of the unmet transportation needs of their relatives, friends, and neighbors. Using this existing form of transportation may be far more cost-effective than initiating other forms of service, especially in sparsely populated areas.

Efforts should be undertaken at state and local levels to identify local entities that are willing and able to serve as a clearinghouse to bring together volunteer drivers and persons in need of transportation. Clearinghouse candidates might include the regional coordinating councils discussed in Recommendation 1.2, some other existing transit service provider, or local churches, businesses, community action agencies, chambers of commerce, etc. This effort might be facilitated if the state developed a how to manual that could be used to promote the concept to potential operators.

Personal liability may be an issue in some instances. As will be discussed in the "best practices" section later in this chapter, sponsoring entities may wish to obtain supplemental liability insurance to provide additional insurance protection for both volunteer drivers and their passengers.

8.2.4 Encourage and facilitate ridesharing to help meet commuting-related transportation needs in both urban and rural areas of North Dakota

As indicated in Chapter 4, the North Dakota Department of Transportation had an active ridesharing program in the late 1970s and early 1980s. This program was designed to bring commuters together in carpools and vanpools. Declining interest rates and fuel prices contributed to the decline and ultimate cessation of the program in the mid-1980s.

The demographics of North Dakota's business community have changed greatly since the 1980s. Numerous employment centers have opened in rural areas and many rural residents are finding it more desirable to commute longer distances to larger cities rather than relocating. Under both scenarios, long commutes are common and, given the relatively low number of people who are making these trips, commercial commuter services are impractical.

Federal provisions that made highway funding available to encourage and support ridesharing programs in the 1970s are still in place today. This funding may be used to promote carpooling and vanpooling and even to provide low-interest loans to help purchase vanpool vehicles.

Additional federal incentives have been created to promote ridesharing. These incentives include features such as using flex comp programs to create tax incentives for commuters who rideshare or use transit. Employers are also eligible for tax benefits if they participate in eligible transit and ridesharing programs.

Efforts should be undertaken by the NDDOT to reestablish commuter ridesharing programs in North Dakota. These programs could be run at the state level or, as was the case with the volunteer driver programs discussed earlier, they could be promoted at the state level with actual programs being run locally by city or county governments, chambers of commerce, major employers, etc.

In addition to helping satisfy the mobility needs of state commuters, this program would help meet the workforce needs of employers and promote local economic development initiatives. Such a program would also reduce air pollution and help, in some instances, address local parking and traffic congestion problems.

8.2.5 Utilize transit-related ITS applications to enhance personal mobility and system efficiencies

Utilizing automatic vehicle location (AVL) technologies for transit buses and global positioning systems (GPS) technologies for rural addressing can greatly improve personal mobility throughout North Dakota. Two such endeavors in Vermont and South Dakota are highlighted in the following discussion.

The Vermont ITS strategic plan (University of Vermont, 2002) included a transit tracking technology package. This market package provides for an AVL system to track transit vehicle's real time schedule adherence and updates the transit system's schedule in real-time. Vehicle position may be determined either by the vehicle (e.g., through GPS) and relayed to the system office or it may be determined directly with communication devices. These devices include a two-way wireless communication link with the system office to relay vehicle position and control measures. Better tracking of buses within a transit system allows route planners and management to increase the efficiency of their operation.

The South Dakota rural ITS deployment study conducted by Castle Rock Consultants (2001) developed a project for rural addressing using geographic information systems (GIS). The South Dakota Department of Transportation already collected much of the data for rural addressing, but the data had not been implemented within a GIS framework. Geocoding addresses into a GIS program provides a statewide database of information that can be used by various state and local agencies to improve personal mobility throughout the state. The estimated cost of this project was $100,000 to contract for database development of counties within South Dakota. A similar technique could be used in North Dakota.

8.2.6 Encourage and facilitate pedestrian and bicycle transportation

As indicated in Chapter 4, 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). Chapter 4 also reported that the Federal Highway Administration has adopted a policy which requires 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.

Planning and operating facilities for pedestrian and bicycle travel are a formal part of the long range planning processes undertaken by NDDOT and each of the state's 13 largest cities. This process should be continued, both for the sake of persons who commute as pedestrians and via bicycle, and for those who use these forms of transportation for recreational and/or personal health reasons.

8.3 Best Practices - Mobility Programs That Work

A number of communities around the country have initiated innovative programs to enhance the mobility of area residents. The following pages present summary information on a few of these programs. Hopefully this presentation will spur discussions in North Dakota communities concerning innovative approaches that might help to meet the mobility needs of local residents.

8.3.1 Independent Transportation Network - Portland, Maine

ITN America / Independent Transportation Network operates within a 15 mile radius of Portland, Maine, but the concept is poised to expand nation-wide. Volunteer drivers use personal automobiles and, in some cases, accessible transit vehicles to provide local transportation services to area residents.

Riders are charged for services that they receive. The fare structure includes a pick-up and mileage charge. Riders are sent a monthly billing statement for services rendered.

Drivers are compensated for their services at a rate of 25 cents per passenger mile. They can either receive cash or they can receive a transportation credit which goes into their account. Their account balance may be retained until such time as the driver becomes a recipient of ITN services.

Drivers may also donate all or a portion of their account balance to other system users. Similarly, ITN sells gift certificates that may be credited towards user accounts. Park and Ride type credits may also be issued by local merchants who wish to encourage ITN users to patronize their businesses.

ITN America operates totally with monies generated from fares and grants. It also maintains volunteer insurance to supplement the liability insurance that must be maintained by volunteer drivers.

8.3.2 Volunteer Driver Program - Southeastern Minnesota

Semcac is a community action agency which serves several counties in southeastern Minnesota. One of Semcac's programs uses volunteer drivers to provide transportation services to senior citizens for medical and personal appointments. Riders must call at least 48 hours in advance to schedule a ride.

Riders are sent monthly letters requesting a donation to cover the cost of services provided. Local rides of 10 miles or less are $5.50 round trip. Longer rides are 76.5 cents per mile.

Volunteer drivers are compensated at a rate of $.375 per mile, plus parking and meal expenses. Semcac has supplemental auto and liability insurance in place for the protection of both riders and drivers.

8.3.3 School Districts Coordinating Services with Transit Systems - Iowa

The Iowa Department of Transportation conducted a study in 2003 regarding the coordination of public transit services and school transportation. This study described the efficiencies that could be obtained by coordinating transit management and maintenance systems in the areas of school transportation, public transit, and other forms of public transportation. The Center for Transportation Research and Education (CTRE) studied these issues and prepared the final report. CTRE conducted a survey of the 35 transit agencies in Iowa and school districts served by public transportation agencies to determine the extent of possible coordination. Findings showed that 23 transit agencies coordinate in some manner with more than 45 school districts (Andrle et al., 2003).

The report highlighted three main types of coordinated resources including capacity, specialized fleet equipped to serve passengers with disabilities, and infrastructure through which savings can occur. Capacity is the measure of seating room on a vehicle. Transit ridership often experiences sharp, directional peaks, leaving unused capacity available in the off-peak direction. Des Moines is a successful example of a community which has used this off-peak capacity for school transportation. Because transit vehicles must also be equipped with a lift to accommodate disabled riders, school districts can contract with public transit to transport students with special needs to school as well. Available infrastructure such as fueling stations, tire purchases and vehicle maintenance can be coordinated also. Iowa has some cases of transit-school coordination using this model (Andrle et al., 2003).

The study found that the greatest barrier to coordination in the eyes of the public was the perceived relative safety of school buses and transit vehicles. Safety data indicates that both services are excellent, but the issue becomes complicated by the many combinations of vehicle types and operating environments. Many school districts operate sedans, vans, sport utility vehicles and four types of school buses while transit agencies operate at least three classes of transit vehicles throughout a wide variety of street conditions. It was important to consider the applicable vehicle safety standards and operating conditions when evaluating safety issues while keeping strict record of driver qualifications for both school and transit buses.

8.3.4 State Supported Commuter Ridesharing - State of Utah

Utah has maintained a vanpool promotion program similar to the one that was in place in North Dakota in the late 1970s and early 1980s. Using Federal-aid highway trust funds, the Utah Department of Transportation makes interest-free loans available to companies or individuals to purchase new vans for use as vanpools. Vehicles must have a capacity of at least seven passengers and at least 70 percent of the vehicle's mileage must be used for work commutes.

To qualify, applicants must submit a qualifying application and pass a corresponding credit check. Two vehicle bids are required and program participants must make a 6.77 percent downpayment on the vehicle, plus applicable taxes and license fees. These expenses and subsequent loan payments and operating expenses are recovered via monthly fees charged to vanpool riders. Drivers typically ride free.

Vanpool riders typically experience reduced commuting costs (including related tax benefits), less stressful commutes, and increased riding comfort. Similar programs are offered by other states and by numerous transit authorities and government associations around the country.

8.3.5 Regional Coordination of Transit Services - Southwestern, North Dakota

North Dakota Economic Planning Region 8 is comprised of seven counties in southwestern North Dakota. It is in the process of planning a new regional coordination effort that includes both the rural and city populations. The Southwest North Dakota Transportation Committee set goals and hired Roosevelt-Custer Regional Council for Development to do initial research. This council is working with the county commissioners, senior groups, schools, and transit providers located in the seven counties. The committee is exploring the possibility of using the existing school and transit systems to provide rides to all rural and community residents in the region.

State highway maps were used to identify residential locations of everyone over the age of 65 in the seven-county area. The percent of residents that live in the rural areas ranged from a low of 13 percent in Bowman County to a high of 22 percent in Slope County.

The next step will be to determine if area school and transit vehicles can be coordinated to provide weekly services to a majority of rural and community residents in the region. It may be determined that some type of volunteer services providers' program may also be needed to accomplish the program's goals. The Small Urban & Rural Transit Center and the North Dakota Department of Transportation are working with the project's steering committee to develop a plan which will address some of the region's personal mobility needs.

8.4 Recommendations Involving Further Research

This study presents a wide range of recommendations regarding basic and supplemental levels of service, all of which would enhance the personal mobility of North Dakotans. Even though many of these recommendations are interrelated, most can be implemented exclusive of one another.

Some of these recommendations, both base service and supplemental, involve administrative and operational issues which may be implemented without additional research. Others, however, may require further research to achieve maximum benefits, efficiencies, and effectiveness.

Recommendations which involve additional research include:

• Coordination Implementation/Local Needs Assessments - implementing the recommendations of the coordination study will entail local needs assessments beyond what was done as a part of this state-wide personal mobility study. These assessments will allow local personal mobility services to be tailored to the needs of each respective city, county, and region.
• Regional Connectivity - pursuing implementation of this recommendation would include a needs assessment study concerning North Dakota's intercity bus industry.
• Performance Measures - this recommendation suggests a review of existing reporting requirements for local transit operators and the implementation of changes which will result in the timely submission of uniform, accurate, and meaningful statistics. Research could include the development of training materials to facilitate compliance by local transit operators and to instruct these operators on the use performance measures to manage their systems and report results to the public and their policy boards.
• Personal Mobility Index - this recommendation suggests that state residents be surveyed concerning their personal mobility needs and that a related personal mobility index be developed to monitor changes over time.
• Friends & Neighbors Transportation - the implementation of this recommendation would be facilitated by the development of a how to manual to facilitate the operations of local volunteer driver programs by churches, community action agencies, chambers of commerce, public-minded businesses, etc.

8.5 Summary

Personal mobility is vitally important to everyone. It facilitates personal livelihood and wellbeing and contributes to quality of life. This is true for North Dakotans and people everywhere.

North Dakota, given its rural nature, faces personal mobility challenges that are different than those of in many other states. While heavily populated states wrestle with traffic congestion, air pollution, high parking costs, frequency of transit services, etc., major issues confronting North Dakota and other rural states related to matters such as availability of service, sparse population densities, and aging populations.

North Dakota is fortunate because the vast majority of its residents have a high degree of personal mobility. Further, the state has physical and service infrastructure in place that are capable of satisfying many of the mobility needs of residents who do not have direct access to a personal automobile. System refinements are needed, however, to make this infrastructure more responsive to residents' unmet needs.

Unfortunately, there is no one program or action that will satisfy all unmet mobility needs. This should be expected, however, because personal mobility needs are, by definition, personal. Needs vary from person to person and each situation requires a relatively unique solution.

This wide array of needs and related solutions is reflected in the wide range of recommendations that are presented in this study. Fortunately, having such a large number of recommendations actually makes implementation easier because they can be undertaken on a piece-meal basis over time as budgets and other factors permit.

Implementation of each recommendation will address the mobility needs of certain segments of the state's population. As each of this study's recommendations is implemented, the personal mobility of state residents will increase and overall efficiency and effectiveness of North Dakota's transportation system will be enhanced.