Achieving Universal Access to Accessible Transportation

How can it be that decades after the advent of the independent living and disability rights movements, transportation remains the number one issue for people with disabilities living in rural areas? We live in an era when society is finally trying to open all doors to all people, with every kind of impairment or limitation. Yet, most people with disabilities who live in Rural America continue to be isolated, frustrated, and cut off from any possibility of going to work or school, visiting family or friends, participating in community life, or tending to their health needs, all because of the lack of adequate transportation. Independent living is a hollow concept for someone who is limited to the space of their own home or nursing home, or who must ask family or friends for assistance with activities in the outside world. The lack of affordable accessible transportation for the rural consumer effects every area of his or her life.

The beauty of Rural America—its rugged mountains, vast deserts, jagged coast lines, the endless roads through the heartland—are the same features that have made transportation a nearly impossible problem to solve. The rustic charm of small town USA usually lacks curb cuts and sidewalks. Roads remain unpaved and public transportation minimal, if any. Astronauts ride to the moon, but a woman in southern New Mexico can’t get to a town ten miles away because she lives “too close” to be able to use a wide area van service. For residents with disabilities in Cape County, Missouri, a weekend life outside the home is non-existent. Their van service does not operate on week-ends.

In small towns across America, people with disabilities receive only a few precious “coupons” for limited rides around town from various programs. These rides must usually be arranged twenty-four hours in advance. In most cases, available transportation is limited to only certain kinds of trips, usually to work or a medical appointment. However, the person next door can hop into his car for a midnight trip to Taco Bell.

Doors may be opening to people with disabilities who choose to live in larger cities, but in the rural areas, the transportation door is still closed. Cabs and vans don’t cross territorial lines, drivers don’t assist their passengers with disabilities getting in or out of the vehicle, and they often have limited knowledge about tie downs and other safety devices. We have reports from throughout the country about how people with disabilities, especially those with developmental disabilities, are treated rudely by both drivers and dispatchers. Response time is slower, and sometimes people are left stranded, never picked up.

In many cases transportation service hours are limited, as is the extent of travel within a certain area. A woman in southern New Mexico reported that she experienced problems when a new Medicaid Managed Care program opened in her area. The local pharmacist quit filling her prescription because it was too costly for him to set up an account with the new Medicaid program. She would have to go into El Paso, Texas, the nearest large city, to get her medicine. However, the van service, a Medicaid-paid provider, could not take her out of state with her New Mexico Medicaid card.

Laws Address the Issues

At the federal level, the Transportation Act recognizes both rural transportation problems and the problems faced by people with disabilities. Section 5310 provides funding to assist people with disabilities, and Section 5311 provides funds to create transportation in rural areas. However, these two provisions are not well connected. Unfortunately, only 5% of transportation dollars are allocated to serve the 27% of the population that lives in Rural America, a disproportionately large number of which are disabled.Other federal legislation, like the Americans With Disabilities Act, the Workforce Development Act, Title XIX of the Social Security Act, and the Older Americans Act call for accom- modations at the work place and access to public services and facilitates. There is the presumption that people with disabilities, particularly those living in rural areas, can get to these locations in the first place. There seems to be little connection between Section 5310 and these other laws. On the state level, each state plans how to use their federal dollars with minimal federal guidelines. Unless advocates are numerous, energetic, aware, and well informed on how to influence program policy and funding decisions; current problems will no doubt persist.

Communities Address the Issues

In the characteristic pioneering spirit of Rural America, communities try to take on the problem themselves. Small groups, ad hoc committees, and transportation coalitions around the country are meeting to address transportation issues. Advocates with and without disabilities are joining forces to find solutions and resources that will provide more and better transportation to their constituents. Each group struggles, seemingly in a vacuum, to come up with answers to the problems that loom as large as ever. How can transportation be provided across America to every individual?

It is time that rural community advocates, transportation providers, county planners, people with disabilities, and other constituents (i.e. the aging community, welfare mothers, etc.) join together to address rural transportation issues. The Association of Programs for Rural Independent Living (APRIL) and the World Institute on Disability’s Research and Training Center on Independent Living and Disability Policy (WID’s RTC-ILDP), along with the University of Montana’s Research and Training Center on Rural Rehabilitation (RTCRural), are joining forces to begin a campaign that will educate community leaders, legislators, and government officials about these critical issues.

For years, participants in APRIL’s annual meetings have discussed the kinds of research needed, as well as community and technical developments necessary to achieve transportation goals. The Rehabilitation Research and Training Center on Rural Rehabilitation has contributed its expertise. Long term solutions must involve creativity and flexibility. In addition to these criteria, a central theme in rural transportation discussions is equity between urban and rural areas. Policy makers and researchers must be encouraged to develop methods and measures for evaluating and monitoring the allocation of 5310 funds between these two areas.

During APRIL's discussions of the need for increased government support for rural accessible transportation, some people suggest that coordination of services is equally as important as subsidies. Thinking outside the box, they argue that the common assumption that transportation for disabled people must be subsidized may be misguided. Many disabled people may be able or willing to pay more than planners typically assume for the optimum accessible transportation solution. Whereas, practically, they realize that subsidies usually come with the necessity of accepting less than optimal solutions. However, there is no evidence to support either view. These are the insights that merit inquiry.

Future needs assessment and evaluative constituent-driven research can examine the effects of various rate charges on transportation for people with disabilities. It can also be used to identify and disseminate information on innovative models of rural service provision that work well and can be replicated. (i.e. coordinated models with shared vehicles, volunteer systems, voucher models, etc.). By using an open and informed approach to the dilemma, rural residents with disabilities can move forward into an era of equality of opportunity.

APRIL’s Transportation Task Force

At the 1997 APRIL annual meeting, transportation was chosen as APRIL’s first priority policy concern. The Transportation Task Force was formed with Brian Atwood of Kansas and Mary Ann Gudermuth of Missouri as its co-chairs.The Task Force identified needs for policy development based on the following specific goals:

• to work with Congress and the Department of Transportation to equalize the funds allocated between urban and rural areas through a process of increasing the overall funding allocation,
• to ensure that disability and transportation legislation, regulations, and implementation strategies are consistent and coordinated, and that both general transportation and general disability legislation consider the full complexity of issues of accessible rural transportation, and
• to promote intergovernmental cooperation, identify unrealized opportunities, expand resources, and reduce conflict.

APRIL 1998 Survey Results

To encourage further debate at the 1998 APRIL annual meeting, the Task Force informally surveyed members about transportation. Of 84 responses, 45% have NO public transportation in their area. We then asked the 50% who have a fixed route system to rate key features, none fared well. “Hard” features such as availability and allowable service area are the most problematic. "Soft" features, dependability and driver attitude toward and knowledge of disability got higher scores. Understanding and implementation problems pale against the simple adequacy of coverage.

Satisfaction with Features of Fixed Route Systems
Rating	Availability	Dependability	Service Area	Driver Knowledge
Excellent	3%	3%	3%	9%
Good	13%	30%	11%	34%
Fair	24%	32%	24%	31%
Poor	61%	35%	62%	24%

In addition, of all respondents, 40% say that their community has some kind of "model" system. However, only two respondents rated the model system as working "very well." Respondents generally felt that their knowledge of transportation problems was good with 23% rating their knowledge as excellent, 69% rating it good, and 9% as poor. Generally, staff training is still needed. Transportation is clearly a priority. Of the 84 respondents, 45% come from Centers for Independent Living (CILs) that offer some kind of transportation service. Of these 48% have transport only for CIL activities. Six report that Staff members personally assist consumers with rides. Eight have limited services for Medical appointments or other purposes or have taxi script or vouchers to distribute. Perhaps most surprising of all, three respondents report "full" services. In summary, 89% of 1998 respondents feel that transportation is a very serious problem.

Transportation Policy Destinations

Through its 1998 survey, consultation with other consumer organizations, conference participation, and teleconferences APRIL has begun to outline an advocacy campaign that will seek to work collaboratively with other rural transportation constituencies.While the eventual goal is to develop policies to promote comprehensive universally accessible rural transportation services, Task Force members look forward to influencing the 2003 reauthorization of the federal Transportation Act as an interim step. We invite you to join in this process.

* The APRIL Task Force on Transportation played a significant role in the development of this Issue Brief. Members include: Linda Gonzales, Lynne Johnson, Miki Gudermuth, Devva Kasnitz, Mike Schafer, Troy Cole, Mike Mayer, Tom Seekins, Brian Atwell.

Authors

Linda Gonzales, M.A. is the National Coordinator for the Association of Programs for Rural Independent Living (APRIL),and has been involved with the independent living movement since 1981. She is a former director of a CIL in Santa Fe New Mexico and was instrumental in establishing other CILs throughout that state.Through her work with APRIL,she has taken a lead role in organizing annual conferences that have grown to over 200 participants from across rural America.

Tom Seekins, PhD, a psychologist, is the Director of the Research and Training Center on Rural Rehabilitation Services at the University of Montana.

Devva Kasnitz, PhD,trained as an anthropologist,Devva was the Director of a rural CIL,a founding member of APRIL,and is the Research Director of the Research and Training Center Independent Living and Disability Policy at the World Institute on Disability.

Resources

Linda Gonzales, National Coordinator
Association of Programs for Rural
Independent Living
5903 Powdermill Road
Kent, OH 44240
Voice: 330-678-7648
Fax: 330-678-7658
E-mail: LGonz21800@aol.com

Tom Seekins, Director
Rehabilitation Research and Training
Center on Rural Rehabilitation
Montana University Affiliated Rural
Institute on Disabilities
52 Corbin Hall
Missoula, MT 59812
Voice: 888-268-2743
E-mail: ruraldoc@selway.umt.edu

This research is made possible through the support of The National Institute on Disability and Rehabilitation Research (Grant # H133B50005).

The RRTC-ILDP is charged with conducting research and disseminating findings about policy issues that impact the lives of disabled people and the progress of the independent living disability rights movement. Specifically, the RRTC examines policy barriers to independent living goals in the areas of health care, housing, transportation, and employment. The Center seeks to demonstrate and facilitate collaborations between Centers for Independent Living, other community groups, and governments in forming and implementing public policies that respond to the needs of disabled people and improve the health of communities for all residents.

As a beginning, we offer this new series of Issue Briefs Independent Living and Disability Policy.

Staff of RTC-ILDP, Formerly of WID

Deborah Kaplan
Executive Director

Devva Kasnitz, Ph.D
Research Director

Elissa Berrol, MEd
Training & Dissemination Coordinator

Linda Mona, Ph.D
Research Associate

Jackie Gross
Managing Editor

Karyl Eckels
Program Administrator

Alaine Perry
Policy Analyst