Transportation Assessment TracAnalysis

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1 Transportation Assessment TracAnalysis Final Report Prepared for: Boulder Valley School District March 213

2 Table of Contents EXECUTIVE SUMMARY... 1 COMPARATIVE DATA... 3 ORGANIZATION AND STAFFING... 8 ROUTE PLANNING DISPATCH... 2 MAINTENANCE DRIVER RECRUITING AND RETENTION SAFETY AND TRAINING FACILITIES FLEET PLANNING BUDGET AND COST CONTROLS ROUTEYIELD ASSESSMENT IMPLEMENTATION OF KEY INITIATIVES Appendices A. T.E.A.M.S. B. Safety Climate Analysis C. Bus Inspection Worksheets D. Principal Evaluations E. Transportation Cost Allocation F. Comparable Financial Data G. Recaps of Routes by Program Type AM H. Recaps of Routes by Program Type PM I. Time & Capacity Utilization by School AM J. Time & Capacity Utilization by School PM K. Current Bell Time Tiers AM L. Current Bell Time Tiers PM M. Resource Utilization Timeline - AM N. Resource Utilization Timeline - PM

3 EXECUTIVE SUMMARY Management Partnership Solutions, Inc. was engaged to perform a comprehensive review of the Boulder Valley School District (BVSD) student transportation system. Over a period of two months the following functions were analyzed for performance and compared to common industry standards and best practices: Organization and Staffing Dispatch Maintenance Driver Recruitment Safety and Training Facilities Fleet Planning Route Planning Time and Capacity Utilization (RouteYield ) Budget and Cost Control Building Principal Satisfaction Operationally we found the management team to be very well organized with documented processes and procedures in place that meet or exceed industry standards. In particular, the driver recruiting, screening, and training was exceptional. Overall effectiveness was further demonstrated by a relatively high level of satisfaction among the building principals. The analysis revealed that BVSD operating costs are high when compared to other districts. In particular the cost per student and bus were high while the cost per mile was in the mid-to-high range of peers. The broad geographical area served in BVSD certainly lifts the per bus and per student costs yet the impact of this operating environment is further evidenced in the relatively satisfactory per mile cost. It is our judgment that two factors contribute to the high costs borne by the system: School opening and closing bell times Fleet related costs Bell Times The chart below depicts the wide variety of bell times employed by the district. The impact of such an array is that buses cannot be scheduled to serve multiple schools. We have taken the liberty of summarizing the various bell times as the buildings actually employ in excess of 5 unique times. Throughout the United States and Colorado commonly districts target buses to serve three schools in the morning and a corresponding three in the afternoon or triple-routed. This results in an overall rate achieved in many districts of 2.5 to 2.8 runs per bus. The runs per bus rate for BVSD is 1.76 per bus some 33% less efficient than most districts. Page 1

4 With the adoption of three distinct bell times for the district and properly balancing the number schools throughout the schedule it is estimated that about forty buses could be reduced resulting in operating cost reductions approaching $2,5, per year. Fleet Related Costs Our analysis of the fleet and its maintenance revealed relatively high costs. This is primarily the result of: Too many buses being maintained and insured Average fleet age of approximately 1 years An industry target for spare buses is 15% in excess of regularly routed buses and the average fleet age target is 7-8 years. The 15% allows for bus maintenance scheduling and school activity trips. The BVSD fleet exceeds the spare ratio target by 54 buses and the average age of the fleet is about ten years. Both factors create additional costs. Should BVSD adopt a lower number of spares the fleet costs would be reduced. Organization and Staffing The level of organization and the documentation of policies and procedures meet or exceed that which we find in other districts. In particular, we found the driver recruiting, screening and training to be very well organized. Recommendations will be found to help the team become more data-driven in its management and decision processes. Page 2

5 COMPARATIVE DATA The direct comparison of school district transportation systems can be very difficult. Rider eligibility polices, geographic challenges, nature of the community(s), labor market competiveness, etc., have significant cost impacts and can account for uncontrollable differences. However, some broad judgment may be made and therefore general comparative analysis provides for more informed decision making. Boulder Valley School District Operational Summary Transportation is provided to a service area of approximately 5 square miles serving the communities of Boulder, Gold Hill, Jamestown, Lafayette, Louisville, Nederland, Superior, Ward, and section of Broomfield, and Erie. Total enrollment is 27,387 students making the Boulder Valley School District the eighth largest district in the state. Over 1, students are scheduled to be transported daily to the District s 66 schools and programs. However only about 5,2 regular education and 41 special needs students were transported on the school day the bus system activity was measured. Service is provided on 182 route buses, 99 regular education and 83 special needs buses. A fleet of 264 school buses and Chevrolet Suburbans are available to serve the daily needs. Transportation services are self-managed with all managerial, operational, support, and fleet maintenance staff employed by the district. The department is managed by an administrative organization structure consisting of a Director, three terminal managers, four dispatchers, one payroll clerk, one extra trip clerk, one administrative clerk, and one Transportation Coordinator. Routing is managed by three full time employees with one each for regular education planning, one for special needs planning, and a specialist for the maintenance of the map. Safety training and oversight is provided one manager supported by three part-time trainers who also serve as route drivers. Buses are dispatched from the district s three terminals which are also responsible for the maintenance of the fleet assigned to their area. The fleet maintenance function staffed by a one Fleet and Service Manager, three lead mechanics, eleven mechanics, and five mechanics helpers or trainees. The department is supported by a one administrative clerk and two parts clerks. Regulatory and Policy Framework: Eligibility is determined by locally approved policies within the guidelines established by state law. Transportation is provided for students who meet the following criteria: Elementary students who live beyond a 1.5 mile distance from school; Middle school students who live beyond a 2. mile distance from school; High school students who live beyond a 2.5 miles distance from school; Students who would be exposed to hazardous condition conditions; Students whose school of attendance has been changed as a result of a change in boundaries; Elementary ESL/ELL students assigned to schools other than their neighborhood school; All special needs students as determined by their IEP. Pay Range for Bus Drivers: The 212/213 pay scale for bus drivers 1 ranged from a beginning wage of $14.96 to a high of $18.23 per hour. 1 Agreement: Boulder Valley Classified Employees Association 212/213 Salary Schedule Page 3

6 Cost of Services: Total expenditures as compiled by TransPar from information provided by the District found transportation services for the fiscal year to be $16,85,773 which included $3,471,424 of vehicle, buildings and grounds capital outlays. We utilized the pupil transportation cost and scheduled rider information from the Colorado Department of Education reports in order to make apples-to-apples comparisons with other school districts. Transportation service expenditures (excluding capital costs) for were $12,589, Transportation represents 7% of the District s FY 212 operating budget of $175,495, The number of pupils scheduled to be transported was 9,474. A cost recap is as follows: Measure Boulder Valley School District (212) Annual cost per route bus $ 69,173 Annual cost per student $ 1,329 Cost as percent of total district costs 7.2% 2 Colorado Department of Education Public School Finance/Transportation Operation Analysis 3 BVSD Revised and Adopted Budget 211/212 Page 4

7 Douglas County School District Operational Summary The Douglas County School District is Colorado s fourth largest district serving an area of approximately 926 square miles with a population of approximately 292,. District enrollment is over 63, students with transportation provided to over 31, out of 33, eligible students on approximately 225 active route buses to the district s 68 educational facilities. Transportation services are self-managed with all managerial, operational, support, and staff employed by the district. The department is managed by an administrative organization structure consisting of a Director, a Fleet Manager, three Terminal Managers, three Assistant Terminal Managers, six secretaries, a Field Trip Manager, a Scheduling/Project Manager, a Special Needs Manager, and a ZPass Coordinator. Buses are dispatched from the district s three terminals which are also responsible for the maintenance of the fleet assigned to their area. Regulatory and Policy Framework: Eligibility is determined by locally approved policies within the guidelines established by state law. Transportation is provided for students who meet the following criteria: Elementary students who live beyond a 1. mile radius from school; Secondary students who live beyond a 2. mile radius from school; Students who live in areas absent of safe walking routes; and All special needs students as determined by their IEP. Pay Range for Bus Drivers: The 212/213 pay scale for bus drivers 4 ranged from a beginning wage of $14.28 to a high of $22.49 per hour. Cost of Services: Total expenditures on transportation services for the fiscal year were $18,359,14. Transportation represents three percent of the District s FY 212 expenditures of $574,762, The number of pupils scheduled to be transported was 31,159. A cost recap is as follows: Measure Douglas County School District (212) Annual cost per route bus $81,596 Annual cost per student $589 Costs as percent of total district costs 3.2% Amalgamated Transit Union Agreement 5 Douglas County School District FY Financial Plan and Budget Page 5

8 Poudre School District Operational Summary Transportation is provided to a service area of approximately 1,85 sq. miles. Total enrollment is approximately 27, students making it one of the largest districts in the state. Nearly 12, regular education and special needs students are transported to the District s 5 elementary and secondary schools on approximately 15 buses. NOTE: The administrative and organizational structure has been requested. This section will be updated pending receipt of information from the district. Regulatory and Policy Framework: Eligibility is determined by locally approved policies within the guidelines established by state law. Transportation is provided for students who meet the following criteria: Elementary students who live beyond a 1. mile distance from school; Junior High students living beyond a 1.5 mile distance from school; Senior High students living beyond a 2. distance from school; Students who would be exposed to hazardous condition conditions; and All special needs students as determined by their ITP. Pay Range for Bus Drivers: The 212/213 pay scale for bus drivers 6 ranged from a beginning wage of $13.8 to a high of $19.31 per hour. Cost of Services: Total expenditures on transportation services for the fiscal year were $6,85,371. This represents two percent of the District s FY 212 expenditures of $32,536,343. The number of students scheduled to be transported was 11,81. A cost recap is as follows: Measure Poudre School District (212) Annual cost per route bus $4,569 Annual cost per student $515 Costs as percent of total district costs 2.% 6 Classified Hourly Salary Schedule H Page 6

9 St. Vrain Valley School District Operational Summary Transportation is provided to a service area of over 411 sq. miles serving all or portions of 13 different communities including parts of Boulder County and the community of Broomfield. Total enrollment is approximately 27, students making the district the ninth largest in the state. Approximately 11, regular education and special needs students are transported to the District s 51 elementary, secondary, and charter schools on approximately 118 buses 7. Transportation services are self-managed with all managerial, operational, support, and staff employed by the district. The department is managed by an administrative organization structure consisting of a Director, dispatch and scheduling personnel, lead drivers, and fleet maintenance mechanics 8. NOTE: This information is based on information available on the district s website. More specific and definitive information has been requested. Regulatory and Policy Framework: Eligibility is determined by locally approved policies within the guidelines established by state law. Transportation is provided for students who meet the following criteria: Half-day kindergarten students are eligible to either a ride to school or home providing they live beyond 1.5 miles from school; Full-day kindergarten to grade 8 students who live beyond a 1.5 mile distance from school; Senior High students living beyond a 2.5 distance from school; Students living in exception areas based on safety considerations; and Special needs students as determined by their IEP. In addition to distance based eligibility criteria, students who live within the walk zone may apply for space-available transportation from an established stop providing there is space on the bus. Pay Range for Bus Drivers: The 212/213 pay scale for bus drivers ranges from a beginning wage of $14.26 to a high of $2.52 per hour. Cost of Services: Total expenditures on transportation services for the fiscal year were $6,249,739. Transportation represents four percent of the District s FY 212 expenditures 9 of $164,173,637. The number of students scheduled to be transported was 1,938. A cost recap is as follows: Measure St. Vrain Valley School District (212) Annual cost per route bus $52,964 Annual cost per student $572 Costs as percent of total district costs 3.8% 7 Based on FY 29-1 District Information District Website Salary Schedule Classified Staff 9 St. Vrain Comprehensive Annual Report FY 212 Page 7

10 ORGANIZATION AND STAFFING Customer Service, Policies and Procedures Management of student transportation does not differ from any other department in that it is incumbent upon management to select, organize, maintain, and adjust staff to meet all demands. Establishing and reviewing action plans, developing people, adopting new methods and technologies are part of the ongoing efforts required to be efficient and successful. All pupil transportation systems are unique. This section reviews issues of quantity, use of staff assets, training of staff, demands, and overall productivity. The figure below briefly describes the functional responsibilities prevalent in all student transportation operations, regardless of size, scope, or relative complexity: Student Transportation Functional Responsibilities Capital / replacement planning Maintenance & repair Fueling Bus route development Operational analysis Technology support Fleet Management Routing & Analysis Administrative Support Operations Payroll Human resources Procurement & accounting Special trip admin Dispatch Bus operations On-road supervision Training & safety Page 8

11 The District provided the following organization chart dated 7/31/12: In working with more than one hundred school districts in over twenty states TransPar has developed a staffing guideline based upon the number of buses operated. Using the ratios for 182 route buses the staff members are forecasted and compared to the Boulder Valley staffing levels: Page 9

12 Transportation Department Staffing Guidelines* Staff: Route Bus Ratio Model (182 Buses) BVSD Function Position Operations Director 1:3 1 1 Terminal Manager 1: Dispatcher 1:5 4 4 Payroll Clerk 1: Extra Trip Clerk 1: Admin 1: Trans Coordinator 1.5 Bud/Ops Analyst 1:1-5 1 Subtotal Maintenance (add spares to ratios) Service Manager 1:3 1 1 Shop Foreman 1: Lead Mechanic 1: Mechanic 1: Mechanic Helper 4 Parts Clerk 1: Shop Clerk 1: Subtotal Safety/Training/Recruiting Manager/Supervisor 1: Lead Trainer 1:25 1 Trainers 1:5 4 2 Trainers 4 PT Drivers 2 Subtotal Routing/Planning Regular Ed Trans Router 1: Special Ed Trans Router 1: Tech Specialist/Supervisor 1: Subtotal 4 4 Total Staffing *(Source: TransPar Group, Inc. 213) The difference between the model and BVSD staffing is maintenance. The staffing model contemplates maintenance staffing for school buses only. As analyzed within the maintenance section of the report BVSD is properly staffed once the white fleet demands are taken into account. The organizational framework is established in three documents: The Transportation Operating Procedure Manual Operator s Vehicle Reference Operator s Handbook Page 1

13 FINDING: The above mentioned documents are comprehensive and appear to be continually updated. The material provides an easy to understand reference with meaningful information for new and veteran drivers alike. COMMENDATION: In our review of over 2 school districts nationwide, Boulder Valley School District s transportation manuals are the most functional we have seen. FINDING: Comprehensive job descriptions were found for all employees. COMMENDATION: Boulder Valley School District s job descriptions are professionally written, appear to be updated and are provided for all transportation employees. Data Driven Decision Making BVSD transportation has successfully developed and implemented operations policies and procedures. This solid management organizational framework readily lends itself to supporting a more robust data driven decision making environment. FINDING: While team meetings are held every two weeks, staff does not routinely gather and disseminate data in support of the organization s decision making process. The transportation department, having identified a challenge or concern, will embark on a process to objectively assess the situation and develop alternatives. However, as a matter of routine practice little operational data is formally assembled. Defining, implementing and measuring success within a pupil transportation system occurs within the following hierarchy of information: Page 11

14 RECOMMENDATION: Implement a formal data driven accountability system for the various functions/staff. By establishing measurements of success and tracking progress toward the goals action plans can be evaluated for effectiveness and performance evaluations become more objective. Increased communications between staff along with brainstorming sessions will help all concerned do their job more efficiently and allow management to get a full view of what needs are yet unfulfilled. A proven management system, T.E.A.M.S (Appendix A), is included to provide management a framework for performance measurement and service assessment. Alternative Transportation Unique to BVSD is its staff of two that facilitates finding students alternative means for getting to school. Focused primarily on students ineligible to ride, the team educates parents and students on transportation resources other than a school bus available in the community. A robust program encouraging the use of bicycles (BLAST) and the Federal program Safe Routes to School is being Page 12

15 maintained. The highly innovative Trip Tracker program utilizes contributions from local merchants to reward children who find a way to school other than their parents car. COMMENDATION: The alternative transportation function is a unique concept worthy of the pursuit of the grants to support it. Customer Service Principal Surveys (Appendix D) BVSD principals were surveyed to measure their perceptions of the various aspects of the transportation service. The results serve to establish benchmarks and guide the transportation department to improving customer service where opportunities are identified. This survey was conducted online beginning January 16 through January 23, 213. The Principal Survey was presented to 46 school principals at 46 school sites. We received 28 responses; 4 high schools, 6 middle schools, 14 elementary schools and 4 other. In general, the responses received were above average and provide ample information to draw conclusions. Moreover, studies show the no responses represent no related issues exist. We found the following results to be extremely favorable. Highlights of the survey show principals to be: Overall 75% of participants are satisfied to very satisfied with student management techniques and following of procedures. In general, 89% of participants are satisfied to very satisfied with the Transportation Department s responsiveness to complaints/issues. Overall the respondents were satisfied to very satisfied with the AM and PM routes being on time. Principals were for the most part satisfied to very satisfied with the customer service delivered by the drivers. Customer service received from the transportation staff was rated at 86% satisfied to very satisfied. Appearance of vehicles and drivers were viewed as positive. All respondents indicated that they have safe bus loading/unloading areas. (Industry safety results show that fatalities are most likely to occur in loading and unloading areas.) The written comment section shows a desire for additional student behavior training for the drivers. The results as to service satisfaction exceed the results we typically find. There was no definitive problem or weakness noted. Cameras on Buses The District is not utilizing video cameras on it vehicles. Video and audio systems are now widely accepted as an effective tool for maintaining student management and creating a safer environment within the buses. Page 13

16 FINDING: The District is not utilizing video cameras on it vehicles which has become standard operating procedure for most school districts and pupil transportation contractors. RECOMMENDATION: To the degree the investment can be made, the District should place a camera system on every daily bus. Drivers In the graph below may be found the distribution of drivers by seniority: It is quite common for districts to have, on balance, drivers with relatively few years experience. The nature of the job and its lack of hours are not attractive to career seekers. The distribution of BVSD fits the profile for the districts we review. The turnover rate for BVSD is in the range of 3-35% which, again, is typical for larger districts. Therefore, we conclude that the wage benefit package for BVSD is appropriate for the marketplace. Page 14

17 ROUTE PLANNING Systems generally rely on computerized routing software to aid in the process. Often these systems do not produce accurate and efficient routes unless they are constantly monitored and updated. This section speaks to the overall routing process. Continued training and monitoring is a must. Effectiveness of routing is measured by time and capacity utilization. The routing and scheduling function is second only to the safety area in determining the effectiveness of a transportation system. Routing determines the total number of routes, which in combination with scheduling of bell times for the various schools, dictates the total number of buses required. This total route bus count drives nearly every expense associated with transportation. The better the district routes the system, the more efficient it becomes. BVSD encompasses approximately 5 square miles covering 66 school sites. Over 1, students are eligible for and scheduled for daily transportation. The routing department is led by a Route Supervisor and assisted by a regular education Router, a special needs education Router and a Special Needs Liaison. The Routing Supervisor s main responsibility is maintaining the Edulog routing system and its associated functions of mapping and census management. The Routers provide for stop creation, student assignment to stops, timing of routes, stop order and the pairing of routes to buses. The Special Needs Liaison works closely with IEP teams, parents and special needs staff to assure appropriate accommodations of special equipment and vehicles are provided for students with special needs. The routing department currently routes 323 AM routes of which 129 routes are special needs and 194 are all others. In the PM there are 38 runs of which 127 are special needs and 181 are all others. Special needs routes represent approximately 4% of all routes. Routing parameters and eligibility requirements District policy establishes the eligibility criteria for students who will be transported aboard BVSD buses. The criteria are: Elementary students who live beyond a 1.5 mile distance from school; Middle school students who live beyond a 2. mile distance from school; High school students who live beyond a 2.5 miles distance from school; Students who would be exposed to hazardous condition conditions; Students whose school of attendance has been changed as a result of a change in boundaries; Students assigned to schools or programs as schools other than their neighborhood school; All special needs students as determined by their IEP. Bus stops are created along public roadways and public areas such as parks and school sites. Bus stops are created minimally 8 feet, or two blocks apart, where practical. Students may be required to walk the same distance to a bus stop as walkers must walk to school. Any hazardous areas along the paths to stops or schools are determined by the transportation department. The district does have a process in place where parents may appeal a determination by the department. Appeals are directed to the Director of Transportation with final appeal to the Superintendent. There are no written policies regarding length of ride times or number of students per seat on a bus. The ride time practice is to maintain a 3 minute ride time for regular education students and 6 minute ride time for students with special needs. The times are longer for special needs students as they are often transported to programs outside of their normal attendance areas. For seating on buses, the practice is to Page 15

18 load 2 students per seat. The seating can increase to 3 students per seat as needed with the exception of high school students when possible. Students who choose to attend a school other than the school of attendance based on residence may be provided transportation on a limited basis. Students may apply to ride a bus that services the chosen school of attendance but the student must access an existing stop on an existing route within the chosen attendance area and there must be room on the bus. Additional stops, routes or buses will not be added to accommodate these situations. FINDING: BVSD provides transportation to certain groups of walkers to several schools including Angevine MS, Casey MS, and Louisville MS. BVSD currently transports students to Angevine MS who live within two miles of the school that are not in or required to walk through an area that is deemed hazardous. These students originally walked to school and were provided transportation for a period of time due to a road construction project. That project has since been completed and there exists safe paths for the students to access the school as determined by transportation department personnel. The district has two buses dedicated to transport these otherwise ineligible students. Additionally, the high school feeder for Angevine MS, Centaurus HS, has requested transportation of these students continue once they reach high school. The area is also within walking distance to Centaurus HS. RECOMMENDATION: Board policy establishes that transportation personnel determine hazardous areas within the walk zone of schools. There is no known appeal to the Director of Transportation or the Superintendent that reversed this determination. The district should adhere to Board policy and return the students to a walker status and in turn remove two routes from the system. FINDING: BVSD provides transportation for two different high schools from the same areas. BVSD provides transportation from the Heatherwood, Gun Barrel and Boulder Country Club areas to students attending two different high schools, Boulder HS and Fairview HS. The school of attendance by residence is Boulder HS. Fairview HS, under Board policy, should be a school of choice and transportation offered from an existing stop and route within Fairview s attendance area, as with all other schools. Currently, students are allowed to choose which high school they wish to attend and are provided transportation to either. Transportation has two buses dedicated to transport students for this accommodation. RECOMMENDATION: Board policy is established with regard to transportation of students in a choice situation. The transportation of these students is from an unknown arrangement that dates back approximately 3 years. In absence of policy that provides for this accommodation and, in the interest of equality, the district should treat the students attending Fairview HS as choice students. Transportation should then be based on current policy for students attending schools outside of the area of attendance by residence. This action removes an additional two routes from the system. Page 16

19 FINDING: The attendance boundaries for some schools are separated. This may lead to transporting more students and transporting them more inefficiently than if they were consolidated and contiguous. RECOMMENDATION: Attendance boundary maps should be reviewed for irregularities and solutions discussed that could result in more straightforward student assignment and reduced transportation challenges. FINDING: BVSD assigns students to schools (or programs) other than their neighborhood schools such as choice, magnet, or special education programs. This creates incremental transportation demand and generally reduces transportation efficiency. RECOMMENDATION: Each school and program assignment practice that disrupts the neighborhood school transportation concept should be reviewed from the standpoint of its impact upon transportation cost and efficiency. Alternative assignments may be available that would mitigate such. FINDING: The Transportation Department reported that some special education students are transported to (or from) multiple or various destinations on different days. This creates transportation scheduling and service inefficiencies. RECOMMENDATION: Special education IEPs and education programs can cause for transportation schedules to vary for certain days of the week, and these must be accommodated by Transportation. However, if irregular pick-up and drop-off addresses are being mandated by IEP or otherwise, a policy should be established to define how exceptions will be addressed and approved, or disapproved. Software Assessment Transportation personnel facilitate their routing requirements using Edulog routing software that provides student transportation information to parents and district bus drivers. The Routing Supervisor maintains the system and associated maps. The original mapping from Edulog has been enhanced with the use of current county provided GIS mapping sources which has provided a map with higher functioning and more precise routing capabilities. Transportation also utilizes Google map overlays to provide better definition to street outlays to the core of the Edulog map. As with any routing software, route timing is often the most varied outcome due to varying traffic patterns during the day. In BSVD, route timing becomes even more difficult due to the mountainous region and the varying speeds in which vehicles can actually travel versus posted speeds. Transportation responded to these variances by creating different speeds within the map that vary depending on the area of travel as well as the direction of travel (ex., up or down mountains). Routing personnel work with dispatchers and drivers to manually refine the timing of the routes when conditions exist that cannot be Page 17

20 effectively corrected within the map for all applications. All users of the system are comfortable and knowledgeable with its use. FINDING: Census downloads present the most problems in the use of Edulog. Infinite Campus is the student information system (SIS) in place. The SIS does not provide for address matching at the time of student address entries at the school level. Many streets have different ways they may be spelled as well as local names for streets versus approved USPS spellings. Due to a combination of a lack of address ranges associated with street names within the SIS and misspelling of streets at the school level, transportation regularly experiences a 1% rate of error in geocoding students to the map. A student s eligibility for transportation is not determined by the SIS. Edulog determines the eligibility of the students within the software after a full census download. A 1% rate of error represents over 3 students that do not match the map. Students who do not match the map must be manually assigned. However, the mismatching replicates itself if the address coming out of the SIS is never rectified to match Edulog addressing. Any students who have been manually geocoded within Edulog become mismatched on the next download if a student record is changed for any reason as the system looks for all changes within the record in the SIS against what is within the Edulog record. For these reasons transportation only performs quarterly, full census downloads. Between the full downloads only new students are downloaded. However, this schedule does not provide for deletion of students who have moved out of the district or changes in student information in an automatic format. This results in the retention of records that no longer exist or may be incorrect. Transportation then provides an excel file every week back to IT personnel to populate the student record with bus stop location and time. IT personnel provide a file back to transportation that contains those students no longer attending or other reasons a student may not have loaded into the SIS. This process is only completed for regular education students due to the frequency of changes for special needs students. Students with special needs bus information is relayed directly to parents via bus drivers to coordinate changing schedules. RECOMMENDATION: Evaluate the addition of an address matching program within the student information system; create a process for automatic downloads/uploads between Edulog and Infinite Campus. District IT personnel should work cooperatively with the software vendors and the Routing Supervisor to establish a process whereby staff at the school level, when entering student address information, are provided with a method of verifying street address matching in the SIS using a uniform address database that meets the system requirements of Edulog. This allows for Edulog to perform an evaluation of additions, deletions and changes between its database and the SIS database in the background versus the partially manual process currently used. Once this process is in place a regular daily or other incremental download process can be established to provide the most up-to-date information to transportation and other users of the information. A report of new students can be generated within Edulog and assignments made by staff. FINDING: Special needs transportation information for routing is not performed timely. Transportation of special needs students is a time consuming process that requires multiple decisions regarding equipment and personnel in order to provide appropriate scheduling of transportation for students. Staff interviews indicate that their ability to effectively route this population is hampered by not receiving information in a timely fashion, particularly in the summer. The cause of late and/or poor information varies; Page 18

21 Late teacher input Outdated by the time school starts Approximately 5% of required information not received at all until teaching staff return to work the week prior to school starting Erroneous teacher input (sent the same form from the prior year) Pre-K students often not enrolled until the beginning of school Late homeless input RECOMMENDATION: The district should develop timely processes to provide special needs information to transportation. The routing of the special needs population necessitates significant resources in time and personnel. Board policy dictates that student information is to be delivered to the transportation department 2 working days in advance of the start of school. The district should work with special needs personnel to provide the information within the required time frame. FINDING: Breakfast program timing causes double runs to school from the same areas. There are numerous schools that have breakfast programs that start 1-15 minutes prior to bell time. The buses are scheduled to arrive early to accommodate the breakfast programs. However, for schools that also have pre-k and special needs programs, these students cannot be released from the bus as the staff (paraprofessionals) that accept these students are not on duty until 5 minutes prior to bell time. Consequently, transportation is providing separate rides for the pre-k and special needs students from many of the same areas so that these students do not have to sit on buses for the 1-15 minutes during the breakfast program. RECOMMENDATION: The district should evaluate revising the schedule by adjusting time or extending the workday for the paraprofessionals. This would allow for transportation to schedule pickups for the pre-k and special needs population at the same time as regular education students and reduce costs to transportation to cover the same areas twice. Page 19

22 DISPATCH Few functions within a pupil transportation operation are as important to asset utilization and customer service as the dispatch team. Superior communications, planning, and route knowledge are keys to success. Dispatch is in the position to track and quantify overall service performance. Effective dispatching is measured by on-time service. The process and procedures for attendance, absences, and call-offs are documented in the department s Transportation Operating Procedure Manual G-13. Drivers are instructed to call off 3 minutes prior to departure time or 6: AM whichever is earlier. Check-in time is 15 minutes prior to the AM route and 1 minutes for subsequent runs. Beginning the prior day the dispatchers build a spread sheet identifying open runs and scheduled absences. Early morning call-offs are taken from an answering machine. The substitutes are assigned from a list of relief drivers with scheduled show times. The absentee spreadsheet and the relief driver list are reconciled to assure all runs are covered. The absentee spreadsheet is copied to payroll as a record of absences. COMMENDATION: The department assigns relief driving to their most experienced drivers that wish to perform this duty. The practice of utilizing experienced staff and compensating accordingly is consistently recommended by TransPar as a best practice. The benefit is the mitigation of service shortfalls by utilizing drivers whose seniority and experience helps overcome their unfamiliarity with the route assigned. The Garage end of Shift Report keeps the dispatchers informed of buses that are being serviced. This report is complemented by the Spare Bus Log that is utilized to make bus assignments. A Daily Check-In Sheet is produced from the routing system. The sheet is organized in dispatch time order and includes the driver name, bus assigned, route number, and any variance in departure time based upon the day of the week. COMMENDATION: Drivers must receive their keys from the dispatcher in a face-to-face interaction. Again, this is best practice that TransPar recommends. The face-to-face process enables the dispatcher to judge the driver s fitness for duty in a non-threatening but consistent manner. For safety and liability reasons this practice should be maintained. FINDING: The dispatch office maintains descriptions and maps for every route. At the beginning of the year each driver is required to draw on a paper map the route he or she has been assigned. RECOMMENDATION: The routing system should be used to produce maps of the routes. While the exercise at the beginning of the year of drawing a map likely serves to familiarize a driver with the route it is difficult to maintain current and accurate maps as changes occur throughout the year. Page 2

23 Field Trips. Requests for field trips are received and recorded in an automated system known as TOMS. Drivers are required to submit and maintain their trip availability on a department form. Trips are assigned to drivers according to their seniority and their availability. Trips are not assigned that conflict with regularly scheduled routes. Failure to accept a trip could result in the drivers being removed from the trip eligibility list. The driver must complete a trip ticket to include the signature of the sponsor in order to be paid for the trip. The trip ticket becomes the source document for allocating the cost of the trip to the user. The Transportation Department contends that many field trips are scheduled during prime time morning and afternoon service periods and that to serve this demand many additional buses and bus drivers are assigned for daily service. Although school buildings are charged for all activity trips performed, the Department represented that the fees charged are well below the actual cost of performing these services. FINDING: The cost related controls over the quantity and extent of prime time activity and field trips may be ineffective and/or not leading to fiscally responsible decision making. RECOMMENDATION: The transfer pricing for school activity and field trip pricing should be set at the incremental cost per hour and per mile for the services performed. This would include a driver cost per hour (to include benefit and payroll tax load) and a bus cost per mile (to include fuel and parts). These rates should be increased by 25% during prime time service to thwart any unnecessary bus demands during those periods. Accordingly the base trip charge should be $3 per hour and 1. per mile; increased to $37.5 per hour $1.25 per mile for prime time trips. FINDING: No operational data is being recorded to determine the effectiveness of dispatch or the performance of the system in meeting the needs of principals, parents, and pupils. RECOMMENDATION: Dispatch should gather data to determine the system s performance. The data should be compiled daily and include: Total number of dispatches Late buses as reported by principals Accidents Breakdowns Driver absences Extra trips performed during route time This data becomes the basis for objectively determining the following key rates: On-Time Performance Rate (total dispatches-lates/total dispatches) Accident Rate (per 1, miles operated basis) Breakdown rate (per 1, miles operated basis) Page 21

24 Absentee rate (drivers absent/total drivers) determines total drivers required to meet regular routes Extra trip rate (total dispatches-trips/# of regular routes); along with the breakdown rate determines the number of buses and drivers required. Page 22

25 MAINTENANCE The Fleet Maintenance Department is charged with maintaining safe reliable vehicles in a cost effective and service efficient manner. Breakdown frequency, mechanically related accidents, maintenance cost per vehicle, parts inventory levels, state inspection pass rate, and fuel economy can measure performance. Systems and processes that routinely monitor for these activities must be utilized. Key and essential elements that are common to an effective and efficient fleet maintenance operation include: Technically trained and motivated fleet maintenance technicians and staff; An emphasis on safety; Adequate working facilities including dedicated work stations for each technician; Accessibility to equipment and tools; Efficient vendor support and a parts inventory system that ensures parts and supplies are readily available; An assigned workload that is consistent with industry standards; A methodology for tracking of services performed and scheduled; and A process for self-evaluation including key performance measurements. OPERATIONAL SUMMARY The Boulder Valley Fleet Maintenance Department is responsible for the maintenance and repair of all active route and spare school buses, and transportation support vehicles. In addition to the transportation department s vehicles, the department maintains over 23 of the district s white fleet vehicles and miscellaneous types of small equipment for other departments and programs. Examples of these include vehicles used by the Food Service, Maintenance, and Grounds Departments. The district operates three separate dispatch terminals with a maintenance facility co-located at each of the sites. The department is staffed by a one full time equivalent (FTE) Fleet and Service Manager, three lead mechanics, eleven mechanics, and five mechanics helpers or trainees. The department is supported by a one FTE administrative clerk and two FTE parts clerks. Fleet management as a functional responsibility has many interrelated components all of which must be well coordinated to support the effective and efficient maintenance of the fleet. This includes the use of systems or software to effectively schedule work, procure and supply parts, and track repairs. Equally important are systems that track maintenance expenditures to enable managers to better control costs, manage budgets, and to project replacement costs. The interrelation of these components is best illustrated in the following graphic: Page 23

26 Fleet Management Program Components Parts & Vendor Management Inventory management Parts & feul procurement Warranty administration Outsourced repair management Replacement scheduling Funding and financing Fuel data management Surplus property Fueling infrastructure Fleet Management & Fueling Preventive maintenance Scheduling and work order management Mechanic training Work quality assurance Safety inspections Maintenance & Repair FINDING: Fleet maintenance scheduling and tracking: For a fleet maintenance operation to be both cost effective and service efficient a system for the scheduling of maintenance and repairs and the tracking of completed work must be utilized. The data from a fleet management system is invaluable as it provides managers with necessary information to effectively schedule preventative and reactive maintenance, track employee productivity, track excessive costs by bus or model type, and to develop key performance indicators. The fleet maintenance function of the BVSD is aided by the use of FleetVision school bus management and maintenance software. All preventative and reactive maintenance work is scheduled and tracked with the use of the software. The software is also used to coordinate the procurement of parts and supplies to ensure that parts are available as buses are brought in for service. The system is effectively used to help manage annual inspections, preventive maintenance, work orders, driver identified defects, and quick fixes as described below: Annual inspections: The Fleet Manager forecasts and posts all buses due for their annual inspection for each of the next two months. This allows for the coordination of the ordering of parts based on past work and information stored in the system. As an example, tire tread depth is measured and recorded each time a bus is brought in for service. If it appears that a tire replacement will be necessary, the parts process ensures that tire replacements are inventoried or that they are readily available. This is true of other vehicle components such as braking or suspension systems. This process also promotes the effective use of the mechanic s time as they can proactively perform bus inspections as time in their schedules permit. Preventative maintenance: The district has implemented a 4, mile preventive maintenance standard which is well within the required 6, mile inspection standard required by the state. To ensure compliance with the schedule a calendar is created and updated as inspections are Page 24

27 becoming due. This process again supports the coordination of the procurement of parts and ensures that Dispatch and the drivers are appropriately notified. Work orders: As repairs are identified as a result of a mechanical failure or during an annual or preventative inspection, a work order is created to ensure that all services are being tracked. As work orders are being performed, reports are pulled to ensure the mechanic has all the work requested for that vehicle including driver identified defects. This helps to ensure that all repairs are completed at the time that a vehicle is brought into service improving the efficiency of the mechanic and reducing the inconvenience to the drivers. Vehicle defects: Drivers are provided with a Defect book for the recording of defects or mechanical issues during their pre-trip inspections or throughout the course of their day. A copy of the defect report is given the Dispatch Office. The dispatchers are responsible for entering the work request into FleetVision using a Low, Medium, High and Red Tag system of priority identification. While this process has required a commitment of training on how to accurately classify repair requests, the result of this is that all stakeholders have input and ownership of the maintenance process. The result of this is a more accurate description of the problem being provided which reduces the investigative time required during the repair process. Quick fixes: A process has also been established for the quick fix of minor issues such as lamp replacements or switches to ensure safety and eliminate the need to pull a bus from service. Performance measurement: The use of the system allows the Fleet Manager to effectively track the cost of maintenance per bus and other key performance indicators. These include cost per mile, miles per gallon by vehicle, and emissions tracking. The tracking of these measures helps to support the data driven decisions on which buses should be replaced and on what schedule. COMMENDATION: In a relatively short period of time, the Fleet Manager and the department have made a concerted effort in the re-implementation of the maintenance software to assist in both the scheduling of work and the tracking of performance. This benefits the entire operation as it supports the effective and timely repair of the fleet assets and also promotes effective communication between the maintenance and dispatch/driving functions. FINDING: Parts Inventory and Vendor Accessibility: Under the direction of the Fleet Manager, two FTE parts clerks are responsible for the procurement and inventory management of the parts for the department. A secure parts room is located at the Boulder Valley Terminal and serves as the primary location for the procurement and storage of parts and supplies. Limited parts storage is also maintained at the Lafayette and Nederland terminals under the control of the parts clerks. As the remote terminals require parts, drivers are used to transport parts reducing the impact to the mechanics in obtaining necessary parts and supplies. The process is supported by the efficient use of FleetVision and it parts management and inventory capabilities. As a work order or defect report is submitted the parts clerks coordinate the procurement and supply of parts to proactively have parts available as a bus becomes due for service. As an example, as a bus is due for either preventive maintenance or it annual inspection, a review of all current defects or deferred repairs is conducted to ensure that all necessary parts are available when the bus is brought in for service. This process reduces the potential down time of the bus and increases the efficiency of the process and the mechanic. An annual inventory process has also been implanted to better control what is Page 25

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