Student Transportation

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1 Overall, the School District of Hillsborough County (SDHC) has effective and efficient student transportation services. Current best practice initiatives in the district include automating routing and scheduling of transportation services, improving driver recruitment/retention and improving maintenance support operations. Conclusion The School District of Hillsborough County has a successful Transportation Department that safely transports thousands of students every day. The department does an effective job of delivering students on time, training drivers, controlling costs, and responding to community needs. The review team has identified four major areas of cost-savings and improvements that are detailed later in this report. During the course of this review, Gibson Consulting Group, Inc. identified a number of district accomplishments in the Transportation Department, some of which are included in Exhibit 12-1 below. Exhibit 12-1 Notable Accomplishments The department effectively incorporates technology into transportation operations and management. The district actively uses the Internet in responding to parents and the community about student transportation issues including bus schedules, late buses and complaints. The department has also committed to ensuring communication equipment and video cameras are on all buses to improve safety and reduce discipline problems. The school board adopted staggered school start times to help ensure that the district s buses can serve as many students as possible, achieve cost savings and provide for more efficient student transportation services while providing flexibility to adjust bell times. The department responds to bus breakdowns or accidents in a timely and efficient manner with personnel, equipment and necessary communications. The Transportation Department has implemented an effective shop safety and inspection program in addition to a monthly meetings initiative. Corrective actions are taken to eliminate maintenance deficiencies. The overall cleanliness and safety of maintenance facilities is commendable. The basic shop operations and maintenance support in the Transportation Department are efficient and bus drivers express confidence in the maintenance program. Performing student transportation services in a coordinated manner minimizes hardships to students by effectively and efficiently transporting the student population. Source: SDHC Transportation Department. Gibson Consulting Group, Inc. 12-1

2 Overview of Chapter Findings Gibson Consulting Group, Inc. reviewed the district s transportation system using the Best Financial Management Practices and associated indicators adopted by the Commissioner of Education. The consulting team employed several methodologies to develop chapter conclusions and action plans. For instance, the review team conducted on-site interviews with district level managers and staff and gathered information on Transportation Department activities. An overview of chapter findings is presented below. Student Transportation Services 1. The Transportation Department plans, reviews and establishes bus routes and stops to provide efficient student transportation services for all students who qualify for transportation. (Page 12-5) 2. The district ensures that all regular school bus routes and activity trips operate in accordance with established routines, and any unexpected contingencies affecting those operations are handled safely and promptly. (Page 12-12) 3. The district effectively and efficiently recruits and retains the bus drivers and attendants it needs. (Page 12-16) 4. The district trains, supervises, and assists bus drivers to enable them to meet bus-driving standards and maintain acceptable student discipline on the bus. (Page 12-18) 5. The district provides student transportation services for ESE students in a coordinated manner that minimizes hardships to students and accurately reports ESE students who receive state funding. (Page 12-21) 6. The district ensures that staff acts promptly and appropriately in response to any accidents that occur. (Page 12-24) 7. The district ensures that appropriate student behavior is maintained on the bus at all times. (Page 12-28) Student Transportation Functions 8. The school district has a process to ensure that a sufficient school bus fleet is economically acquired and will be available to meet the district s future transportation needs. (Page 12-29) 9. The district provides timely routine servicing for buses and other district vehicles, as well as prompt response for breakdowns and other unforeseen contingencies. (Page 12-33) 10. The district ensures that fuel purchases are cost-effective and that school buses and other vehicles are efficiently supplied with fuel. (Page 12-36) 11. The district maintains facilities that are conveniently situated to provide sufficient and secure support for vehicle maintenance and other student transportation functions. (Page 12-37) 12. Staffing reviews are conducted and appropriate changes are made. (Page 12-38) 13. The district maintains an inventory of parts, supplies, and equipment needed to support student transportation functions but could better balance the concerns of immediate need and inventory costs. (Page 12-39) 12-2 Gibson Consulting Group, Inc.

3 Managerial Oversight 14. The district provides management oversight to ensure that all student transportation functions run smoothly and are fully accountable to the public. (Page 12-42) 15. The district has established an accountability system for student transportation and regularly tracks and makes public reports on its performance in comparison with established benchmarks. (Page 12-42) 16. The district coordinates long-term planning and budgeting for student transportation within the context of district and community planning. (Page 12-44) 17. The district monitors the fiscal condition of student transportation functions by regularly analyzing expenditures and reviewing them against the budget. (Page 12-45) 18. The district provides the Florida Department of Education with regular, accurate and timely counts of the number of students transported as part of the Florida Education Finance Program. (Page 12-46) 19. The district has reviewed the prospect for privatizing student transportation functions, as a whole or in part. (Page 12-46) 20. The district periodically reviews the organizational structure and staffing levels to minimize administrative layers and processes. (Page 12-47) Fiscal Impact of Recommendations Four of this chapter s recommendations have fiscal impacts. These recommendations are to reduce the number of hazardous riders receiving transportation; discontinue courtesy rider bus service; pursue Medicaid reimbursement; and reduce the repair parts inventory. The district has a high number of students receiving transportation services due to hazardous conditions; there are opportunities to improve the program and reduce the number of riders provided transportation by at least 20 percent. A 20 percent reduction would result in an annual cost savings of $944,000 or $4.8 million over five years. Eliminating courtesy bus service will produce a cost savings of $1.9 million annually, or $9.5 million over five years. Until discovered by the review team, the district was not processing Medicaid funding for ESE students. Recent procedural changes correcting this deficiency should generate revenue for the district of $300,000 annually or $1.5 million over the next five years. The current repair parts inventory is high; establishing a repair parts inventory supported by demand data would result in a cost savings of at least $114,000 initially and $5,700 each subsequent year, or $136,800 over five- years. Exhibit 12-2 Four Student Transportation System Action Plan Recommendations Have a Fiscal Impact Recommendation Five Year Fiscal Impact Reduce the number hazardous riders receiving Net savings of $4,270,070 transportation Discontinue courtesy rider bus service Net savings of $9,500,000 Gibson Consulting Group, Inc. 12-3

4 Recommendation Five Year Fiscal Impact Pursue additional Medicaid reimbursement Net recoveries of $1,500,000 Reduce the repair parts inventory Net savings of $136,800 Source: Gibson Consulting Group, Inc. Background Among the most important functions or responsibilities of any school district is transporting our nation s children. Each day during the school year, the district s buses move thousands of students from towns, cities and rural areas to and from school. The primary mission of the School District of Hillsborough County (SDHC) Transportation Department is to transport all qualified students to school and return them to their point of origin or other designated location in a timely, safe and cost-effective manner. This is accomplished by maintaining a fleet of buses; employing, training and supervising bus drivers and bus driver attendants; ensuring that bus routes are efficient and that buses run on time; reducing and eliminating vehicle breakdowns; enforcing accident prevention and safety programs; ensuring special requirements are responded to in a timely and effective manner; and ensuring successful staff support of the transportation mission. The district s student enrollment for is 179,880 and the Transportation Department provides bus service for 83,240 students to 167 schools, special and adult centers and other district educational facilities. Though a majority of its students live in Tampa, in smaller towns, or in the suburbs, there are a significant number of students who reside in rural areas of the county. The Transportation Department carries regular and Exceptional Student Education (ESE) students daily and must meet and resolve a myriad of challenges to accomplish its mission. The general director of Transportation is the principle staff representative for SDHC for all school bus transportation matters. She reports to the assistant superintendent for Administration. Her primary assistant is a director of Transportation, however a Fleet Maintenance manager, a Transportation manager and other key staff members provide valuable staff assistance and support. With a current budget over $40 million; the Transportation Department has 1,248 buses and approximately 1,091 bus drivers. Current estimates project that buses in the district will travel over 25 million miles transporting students during the school year. The transportation function is conducted from a central facility and two satellite locations. The two additional facilities provide bus maintenance and repairs from their respective locations Gibson Consulting Group, Inc.

5 Student Transportation Services 1 The Transportation Department plans, reviews and establishes bus routes and stops to provide efficient student transportation services for all students who qualify for transportation. Route planning staff uses a systematic approach to create and update bus routes emphasizing bus occupancy without compromising safety. At the beginning of each school year, or when new students enter a school after the school year has begun, principals, administrators, parents, ESE staff, routing coordinators and other interested parties generate requests for student transportation. Ultimately, the Transportation Department processes these requests to provide transportation services for all regular and ESE students. Seven area routing coordinators perform routing and scheduling for all regular students authorized transportation services. Four ESE coordinators provide transportation routing and scheduling for ESE students by dividing the seven areas among them. Each routing coordinator and ESE coordinator performs routing and scheduling of regular and ESE students who are authorized transportation services. Other department staff assists the coordinators in completing regular and ESE routing and scheduling responsibilities. When a request is received, route coordinators determine where the student lives in relation to current routes. After verifying the accuracy of student information, the student is assigned a pickup point along a given route for transportation to and from the assigned campus. According to route coordinators, the process is mostly manual with limited computer assistance using wall maps on display in the offices of route coordinators and conducting computer routing and systematic reviews. Under this system, very little change is made in the methodology for routing and scheduling from year to year. Additionally, since there are seven areas for route and ESE coordinators who perform the same basic functions in each area, there is some duplication of effort that could be reduced or eliminated. Also, the district is no longer under court ordered busing of students to achieve racial integration of its public schools and this reduces routing and scheduling pressure on the district. The Transportation Department has begun implementation of Edulog software. Edulog is a software program designed to create an efficient system of bus routes and schedules within the guidelines of existing transportation policies. The objective is to design routes and schedules with the least number of buses and the shortest travel distances while still meeting the needs of the eligible student population. The 1997 MGT of America performance review recommended immediate implementation of the system. The study anticipated that implementation of an automated routing system would be accomplished with existing staff and generate an initial savings beginning in school year of $873,000. Subsequent savings from to anticipated that $3.49 million in cost savings would be achieved. The district s decision to implement the automated system incrementally, has not allowed these cost savings to be recognized according to the MGT of America timetable. Aware of challenges and difficulties encountered by other school districts in Florida with initiating the new system, the general director of Transportation is proceeding with a cautious and deliberate process. Visits to other school districts, including peer Pinellas County, revealed that it is not practical to cease immediately with the old system and implement the new. The general director estimates that that the district is at least two-years from full implementation of the automated system. Gibson Consulting Group, Inc. 12-5

6 The Transportation Department began the process by initiating a pilot program using Edulog automated routing and scheduling software. The pilot began in August 2001 in Area Three. Once Area Three has successfully implemented automated routing and scheduling, the remaining six areas are scheduled for subsequent implementation. Area Three currently provides transportation services using 91 buses to transport regular students and shares 53 buses equally (or 26 buses) with Area Two for a total of 117 buses. The average school bus has a capacity of 65 students. The district calculated that it spends $538 per student provided transportation. Previous studies conducted by the consultants and reported in technical literature on automation of district transportation systems that change from a manual to a computerized routing system have shown a five to fifteen percent reduction in the number of routes needed. School Bus Fleet Magazine and The Southeastern States Pupil Transportation Conference recommend automating bus routes as an important step in improving student transportation service and reducing the number of routes. Area Three is not considered a suitable candidate to generate an immediate cost saving due to automation of routes. The general director of Transportation presented data showing Area Three to be a high student population area with the highest projected growth in student population. Edulog automation of bus routes in Area Three should offset increased student population demands. While Area Three may not achieve initially any cost savings, it should achieve a cost avoidance because it will be spending less on transportation than in the past. In addition, the general director and other key staff in the district anticipate reductions and cost savings in the other six areas as they become automated and benefit from other networks such as magnet schools, ESE reductions and more efficient networking of buses. The initial phase of the implementation is designed to ensure a smooth transition from a manual to an automated process. By focusing on Area Three, routes can be determined more accurately by updating current maps and include growth, new roads and subdivisions. The other six areas will benefit from actions taken in Area Three and should result in greater efficiencies and subsequent cost savings. The general director reported that by fall 2002, the next phase would include a minimum of two clusters of regular education programs to be added to the system. Next will be magnet transportation to include transfer ramps. The final phase will include transportation for ESE students. During each phase-in period, operating dual systems is anticipated. To ensure safe, appropriate transportation for all students, each area and program will continue to run the existing method for routing and scheduling for comparison with the automated system. When assured that the system is responsive, final conversion will be completed. It is projected that the automated system should be implemented and completed in the other regions within two years. The district s implementation plan should consider lessons learned in Area Three with emphasis on how to take maximum advantage of opportunities to reduce the two-year projection for full district wide operation of Edulog. The sooner the automated system is in place, the sooner cost savings and other efficiencies are realized. Therefore, it is to the district s advantage to review transportation automation planning with a view to accomplish earlier implementation opportunities and reduce the two-year completion plan. Route planning staff responds promptly to complaints or suggestions received from campus staff, parents, or the general public about current or proposed bus routes or bus driver performance. The Transportation Department keeps on file all current complaints or suggestions received from parents, campus staff, or the general public about current or proposed bus routes or driver performance. A review of data compiling the Driving Complaint Form and Observation Report entries reveal a well-kept and 12-6 Gibson Consulting Group, Inc.

7 current system on complaints and suggestions. The director of Transportation and route planning staff use these reports as management tools to improve transportation services. They also serve as guidelines for route coordinators to improve and modify bus schedules and routes. Route planning staff maintain a detailed schedule and map that is readily available for all bus routes and can be used to provide guidance to substitute drivers or others about start time, route, bus stops, students, landmarks, route hazards, railroad crossings, and arrival times. The Transportation Department has an effective system, which ensures a copy of all routes, with directions, is available to assigned bus drivers and substitute bus drivers. The schedule and map for each bus provide an easy to read and understand graphic of the route. In addition, there are entries for each stop the bus is required to make along with stop and proceed times for each stop. The schedules also reflect any special requirements or conditions (if any) for each schedule. Route coordinators routinely review and update route cards with changes as they occur. Drivers receive instruction on the how to read and understand the map and schedule for each route. The importance of maintaining and meeting prescribed scheduled times is emphasized to drivers. In addition, parents are provided pertinent information about the bus their child is assigned, including the route and pickup point. This information about routes and schedules is posted on the district s website and in transportation newsletters and flyers. Route planning staff does not regularly review areas within two miles of the school to identify and document where hazardous walking conditions exist. The district is not in full compliance with Florida Statute The statute is designed to protect public elementary school students in grade 6 or below. It provides guidelines for hazardous walking conditions and each district develops its own plan. A hazardous walking condition checklist is used to determine which students qualify for transportation services due to hazardous walking conditions. The district maintains a hazardous walking condition report listing streets, roads, highways or other hazardous walking conditions. Transportation staff reported during the onsite review that on a weekly basis these listings are reviewed for subsequent reports that are submitted to the Florida Department of Education. The reports examined validate that students, to include Kindergarten students living within two miles of assigned schools, are provided transportation due to hazardous conditions. The Transportation Department has on file any modifications to hazardous routes and changes are posted as they occur. The manner in which the district develops criteria to determine if students qualify for transportation due to hazardous walking conditions is flawed. The number of hazardous walkers provided transportation in SDHC is high in comparison to peer districts. Transportation staff reported that the high numbers of students transported are due to changing characteristics of communities (such as new housing construction, new roads and other variables) that cause hazardous walking conditions. However, the transportation staff and route coordinators who implement and supervise the program report that as conditions improve, some students are allowed to continue using transportation assets. They also reported that some students who may have been given temporary hazardous condition classification may not be removed from the list when it is determined they no longer qualify for transportation Exhibit 12-3 presents the number of hazardous walkers in SDHC and its peer districts. The district had 8,785 hazardous walkers, or 10.8 percent, in That number increased to 9,015 in The Transportation Department would like to reduce those numbers if there is no compelling reason for students to be provided hazardous condition transportation. Gibson Consulting Group, Inc. 12-7

8 Exhibit 12-3 SDHC Has the Largest Percentage of Hazardous Riders when Compared to its Peers School District Eligible Students Transported Number of Hazardous Walkers Hazardous Walkers as Percentage of Total Riders Hillsborough 81,121 8, % Pinellas 44,038 2, % Orange 60,652 2, % Duval 53,761 2, % Broward 67,190 1, % Palm Beach 56, % Peer Average 56,480 1, % Source: Florida School District Transportation Profiles, The Quality Link Report, During a site visit, the review team found a number of inconsistencies contributing to the high number of students provided transportation due to hazardous conditions. They include: Route coordinators sign verification on walkways parallel to roads in which the traffic volume is less than 180 vehicles per hour, per direction between approximately 6:00 a.m. and 9:00 a.m. and 2:00 p.m. and 4:00 p.m. However, safety office personnel verify traffic volume. Examination of a random sample of applications found students that should be removed from the program because the hazardous conditions no longer exist; however, transportation is still being provided. District staff indicated that on many occasions they had reported that students in the program no longer qualified because the hazardous condition not longer existed. The review team verified from a number of applications kept on file, that continued transportation of unqualified students does exist. The district does not have a system to critically evaluate student riders in the program and take action to remove them when they do not qualify for bus transportation. Due to the significant number of hours needed to evaluate traffic volumes, an annual evaluation is not being accomplished for all of the 9,000 hazardous walkers. Reviews of transportation records, interviews with route coordinators and safety personnel and an evaluation of the district's Hazardous Conditions Checklist indicate that a significant reduction of the current 9,015 could be achieved. The review team recognizes that total elimination of the program is not possible. However, the district has the highest number of hazardous riders among its peer districts and the highest hazardous walking ridership in the state. Also, records examined during the site visits showed students recommended removal from the program are still being transported. Because of the above circumstances, a conservative estimate is that hazardous walking ridership could be reduced by at least 20 percent. The Transportation Department recognizes the problem and agrees that the number of hazardous walkers could be reduced. However, the department indicated that without the total support of key district officials and the school board to counter parental objections, little progress could be made in modifying the program. At this time, the district is reluctant to provide its benchmark percentage reduction for hazardous condition transportation and cost savings. During site visits, discussions were held with key leadership in the district on this issue. There were no serious challenges or objections to the 20 percent goal to reduce hazardous riders as a recommendation. However, all are cognizant that the possibility exists to exceed or 12-8 Gibson Consulting Group, Inc.

9 fall short of the recommended 20 percent goal. Therefore, the district should conduct a conscientious effort to achieve a 20 percent reduction and if the goal is exceeded or falls short, then the benchmark should be adjusted accordingly. Due to the above facts and circumstances, the district could establish a reasonable goal to achieve a 20 percent reduction in the number of hazardous riders. Because the current program has significant flaws to include: incorrect verification process; ineligible students not removed from the program; lack of an adequate system to check and purge flaws in the program, the 20 percent reduction could be accomplished resulting in a cost savings of $944,000 annually and a corresponding reduction in bus inventory. The district should take immediate action to eliminate the courtesy rider program. The District should eliminate its courtesy rider program. The number of courtesy riders in for the district was 3,222 students or 3.9 percent. For courtesy riders increased to 4,691 students or 5.4 percent. This increase of 1,469 students reflects a growing trend in the district that if unabated will become prohibitively expensive. Students in the program are transported as a courtesy; it is not a requirement. Hillsborough County has a higher percentage and number of courtesy riders than peer districts as shown in Exhibit The numbers of students who are provided transportation as courtesy riders is 1.8 percent higher than the peer average of 2.1 percent. Exhibit 12-4 SDHC Has the Highest Number of Courtesy Riders When Compared to Its Peers Courtesy Riders as a Percentage of Total Riders School District Eligible Students Transported Number of Courtesy Riders Pinellas 44,038 1, % Hillsborough 81,121 3, % Orange 60,652 2, % Broward 67,190 1, % Duval 53, % Palm Beach 56, % Peer Average 56,480 1, % Source: Florida School District Transportation Profiles, The Quality Link Report, The transportation staff believes that the most significant obstacles to reducing or eliminating the courtesy rider program are parents objections and subsequent political pressure. The review team could not verify if this belief was founded. However, the impact of these beliefs was evident during discussions with supervisors and staff both within and outside the Transportation Department and could lead to reluctance in eliminating the courtesy rider program. The district must pay all costs to provide funding to transport courtesy riders. The Transportation Department estimates the cost of transportation service at $538 per courtesy rider student. Transporting 4,691 courtesy riders costs the district $2.52 million annually. Over the five-year budget cycle this amounts to $12.6 million. Providing courtesy rider service is not required. Transporting courtesy riders incurs the same costs and obligations as transporting regular students. Because the district is not required or compelled to provide courtesy rider service, the program should be eliminated. Gibson Consulting Group, Inc. 12-9

10 The school board has adopted staggered school start times to help ensure that the district s buses can serve as many students as possible and maximize the district s average bus occupancy. The district is on a three-tiered system for school bus operations. In response to prior challenges with staggered school start times; the district has implemented corrective action to ensure that district buses serve as many students on time as possible. This process of using a three-tiered system has improved bus occupancy and transportation operations. Each year, bell times are re-evaluated to accomplish the most appropriate educational and most feasible transportation times for students. Each school is evaluated on an individual basis and uses input from principals and administrators. Any changes are reflected in the proposed bell times for the school year. These reports are kept on file and are provided to the board to assist in decision-making. The recommended bell times are approved by the board and made official policy. This evaluation ensures that bell times do not have any monetary impact on the district. The review team examined existing staggered school start times for the district and determined that they were reasonable and that school schedules were optimized and using a three-tiered system allowed buses to provide service for students in a timely manner. Recommendations ` We recommend that the district fully implement the EDULOG automated routing and scheduling program and reduce the two-year for full operation. We recommend that the district reduce transportation services provided to students due to hazardous conditions by 20 percent. We recommend that the district eliminate or minimize bus service for courtesy riders in the district. Action Plan 12-1 provides the steps needed to implement these recommendations. Action Plan 12-1 Fully Implement Edulog Automated Routing and Scheduling Software Strategy Develop benchmarks to fully implement and fund Edulog automated routing and scheduling within two-years. Action Needed Step 1: Assign responsibility of the program and development of benchmarks to a senior member of the administrative staff with sufficient authority to get the job done. Step 2: Review other Florida school districts automated routing system implementation plans and lessons learned. Step 3: Determine if milestones and objectives can be accomplished within the desired time frame. Step 4: Develop realistic milestones for each geographical area of the district scheduled for automation. Step 5: Evaluate the costs/benefits of the automation implementation process as they occur Gibson Consulting Group, Inc.

11 Action Needed Step 6: Place special emphasis on pilot initiatives in Area Three and determine the effectiveness of process, procedures, activities and lessons learned in Area Three and use them in expediting automated routing/scheduling in the remaining areas with the goal to compress or reduce the two-year time projected to fully implement district-wide automation. Step 7: Periodically review the progress and make adjustments as required. Who Is Responsible Assistant Superintendent for Administration Time Frame April 30, 2004 Fiscal Impact This recommendation can be completed with existing resources. Eliminate Transportation of Students Who No Longer Qualify for Hazardous Condition Transportation Strategy Reduce the number of hazardous riders by an estimated 20 percent by discontinuing services to students who no longer qualify for this transportation because the hazardous conditions have been resolved. Action Needed Step 1: Review guidelines of Florida Statute and ensure that: Step 2: Step 3: Step 4: Step 5: Policies and procedures of the district are in compliance with the statute. Procedures are revised as necessary in determining hazardous ridership qualification. Personnel conducting evaluations and supervising the program are aware of their duties and responsibilities. Modify and correct district procedures and policies as required. Evaluate and determine student eligibility. Eliminate those students who do not qualify for transportation. Provide the necessary required reports to DOE and continue to control the program. Who Is Responsible Assistant Superintendent for Administration Time Frame August 2002 Fiscal Impact In , the district had 9,015 hazardous riders. Reducing this number by 20 percent would result in the district transporting 1,803 (9,015 X 20%) less students. The transportation cost per student is $538. Assuming that transportation costs remain constant, a 20 percent reduction in hazardous riders would result in a cost savings of $970,014 (1,803 students X $538 per student) per year for , , , and The five-year savings would be $4,850,070 ($970,014 per year X 5 years). NOTE: Discussion on input from the district on this plan is on page of this chapter. Eliminate the Courtesy Rider Program Strategy Strategies to reduce the costs of the courtesy rider program should be phased in such a manner so as to cause minimum impact on students who are currently provided transportation. Action Needed Step 1: The School Board adopts policy to eliminate the courtesy rider program. Step 2: Conduct comprehensive evaluation of the program and determine benchmarks and milestones to reduce the cost of the courtesy rider program. Step 3: Determine a day or timeframe (preferably beginning or ending of the school year) to discontinue the program. Step 4: Ensure that the Public Affairs Office of the district is involved in the process and informs the community on why and how the program will be eliminated over time. Gibson Consulting Group, Inc

12 Step 5: Provide the superintendent and school board after-action reports. Who Is Responsible Assistant Superintendent for Administration Time Frame August 2002 Fiscal Impact The district transports 4,691 courtesy riders at a cost of $538 per student. Assuming the transportation cost per student stays constant, eliminating this program would result in a cost savings of $2,523,758 (4,691 students X $538 per student) per year for , , , and The five-year savings would be $12,618,790 ($2,523,758 per year X 5 years). Source: Gibson Consulting Group, Inc. 2 The district ensures that all regular school bus routes and activity trips operate in accordance with established routines, and any unexpected contingencies affecting those operations are handled safely and promptly. The district has an effective process for responding to bus breakdowns and it is clear who should be notified and when. The district has effective procedures for responding to bus breakdowns. The driver s handbook has a section devoted to actions that bus drivers are to take in case of emergencies, accidents or breakdowns. Procedures call for drivers to notify the radio room in the Transportation Department and indicate if there are any serious injuries (if an accident) and other pertinent circumstances. In case of accident or breakdowns, the radio room promptly notifies the responsible police jurisdiction and district officials including the general director of Transportation, affected principals, the superintendent and other key staff. If buses breakdown, service trucks and route coordinators are notified immediately. In addition, the radio room has five maintenance vehicles at its disposal that are dispatched in the county. Four additional maintenance vehicles, two each at the other maintenance facilities, with mechanics who are on call, assist in providing prompt service for any bus breakdowns. Each facility has sufficient buses to transfer students from a disabled bus and proceed with transporting them to or from school. Buses suffering a breakdown are either repaired on the spot, or, if necessary, towed to the nearest maintenance facility for repair. Procedures and notifications regarding responding to bus breakdowns are clear and identify who is to be notified and address the roles expected of bus drivers, operations staff, transportation maintenance personnel and school site personnel. The district has an effective process for bus drivers to report their intention to miss work as soon as possible and for operations staff to respond to these absences with substitute drivers or other solutions. Route coordinators are challenged daily with driver absenteeism and must respond with substitute drivers or other solutions. During site visits, the review team observed the process of driver intentions to miss work. Also, policies and procedures on absenteeism contained in the driver s handbook were examined, route coordinators were interviewed and their daily records examined. The Driver Handbook provides instructions for drivers to follow if they intend to be absent from work. When route coordinators receive driver intent, the route coordinators must take steps to fill the vacancy. Normally, substitute drivers are assigned to fill vacancies. However, since a shortage of substitute drivers Gibson Consulting Group, Inc.

13 in the district exists, promptly fill all vacancies is difficult. Additionally, route coordinators often do not receive sufficient notice of absences. The review team observed route coordinators being informed by bus drivers near the end of the day of anticipated bus driver absenteeism the following day. Route coordinators reported that on a daily average, they expect of the 1,081 bus drivers to be absent due to illness, family emergency or other reasons. Since substitute drivers are in short supply, route coordinators frequently spend considerable time in the evening balancing demands for student transportation with available bus driver supply. Quite often, the solution is to have bus drivers make extra runs or make double bus runs. Bus driver shortages are a national problem and most school districts are experiencing them. Low pay, lack of competitive benefits packages and nine-month employment are the most common complaints cited by bus drivers in a recent School Bus Fleet magazine article focusing on the problem nationwide in other bus fleets. Under the circumstances, the district performs a commendable job of meeting transportation demands caused by driver absenteeism. The district effectively responds to bus overcrowding situations. Responses address the immediate situation, and when appropriate, also provided for longer-term solutions, such as redesign of affected bus routes. An examination of transportation records revealed that overcrowding of buses occurred during the first week of school and was promptly corrected. Route coordinators and bus drivers reported that there are times during the school year that overcrowding may occur due to bus driver shortages. When shortages occur, drivers perform double trips to resolve the situation. The district is in compliance with Florida Statute policy on overcrowding and takes immediate steps to correct overcrowding when it occurs. Exhibit 12-5 shows the distribution of buses and bus drivers. Exhibit 12-5 Number of Buses, Bus Drivers, Substitute Bus Drivers and Bus Attendants Number of Buses in Daily Service Bus Drivers Substitute Bus Drivers Bus Attendants 1,095 1, Source: Florida School District Transportation Profiles, The Quality Link Report, The director of Transportation, route coordinators and bus drivers all indicated that some overcrowding on buses during the first week of school is expected because students may take the wrong bus, be on the wrong route or have not applied for student transportation. All children are transported and any problems associated with temporary overcrowding are resolved in about a week. As a result, there is tremendous emphasis to remedy overcrowding within the first week of school and as they occur during the school year. After reviewing transportation records, no indications of overcrowding situations existed during the site visits. Operations staff does not maintain records on the number of students who ride longer than the state ride time standard. The district has an effective program to determine bus arrival times at each stop and has a school bus daily log that details school arrival times. However, records are not maintained on the number of students exceeding established ride times. The district provided data indicating that 93 percent of its bus routes run on time. However, seven percent of buses are not running on time, resulting in some students riding Gibson Consulting Group, Inc

14 longer than state ride standards (not to exceed 50 minutes for elementary students and 60 minutes for middle and high school students). The district could not provide at the time of the onsite visits the actual number of students affected. Transportation staff reported that since they have reduced excess ride times to seven percent of routes, the issue is being addressed and under control. However, the district is not tracking the number of students experiencing longer ride times. The director of Transportation indicated that efforts are being made to compile data on the number of students who ride longer than the state ride time standards and to minimize or eliminate the problem. The district needs to implement procedures to determine the number of students who exceed ride times. Failing to account for the number of students does not meet requirements as set forth by DOE. The director of Transportation and her staff should develop accounting procedures to determine the number of students exceeding ride times and develop a plan to minimize or eliminate long ride times. The school board has adopted a policy regarding the circumstances under which a bus driver may discharge a student at any stop other than the one the student usually uses. The school board is very clear in letting transportation staff and bus drivers know that under no circumstances are they allowed to discharge any student at any other stop except the one designated for the student unless they have received written permission from the parents or legal guardians and authenticated by the principal of the school to which the student is assigned. The consulting team reviewed the bus driver handbook, bus driver orientation materials, workbooks and a video; all of these mediums make it clear to transportation staff and bus drivers that pupils are allowed to leave the bus only at their designated stops. The district does not have an effective process for campus staff to request and pay the costs of transportation for activity trips for both educational and extracurricular purposes. The district has processes and procedures for school staff to request transportation for activity trips for educational and extracurricular purposes. However, there is no documentation to show that costs for those transportation services are being fully reimbursed. It appears that there is misunderstanding regarding the reimbursement process. The basic criteria for activity trips for educational and extracurricular purposes are outlined in Chapter 8:00 Auxiliary Services of paragraph 8.11 of board policy. The entire process from requisition to payment is covered. The director of Transportation provided information that field trips are considered educational and are reimbursed. Activity trips on the other hand, refer to a broad range of activities for extracurricular purposes and according to the director of Transportation are not reimbursed. The Assistant Superintendent for Administration explained that for the most part, activity trips are provided for schools in the district that cannot afford reimbursement. Historically, it was pointed out that many of these schools in poor sections of the district would not be able to have activity trips unless they were free. The district provided 598,832 miles in activity trips at a cost of $2.14 per mile as shown in exhibit In view of the circumstances that this is a considerable expenditure, the School Board should review current policy of no reimbursement for activity trips and determine if costs for these trips should be reimbursed. Exhibit 12-6 details the performance indicators for activity trips for SDHC and its peer districts Gibson Consulting Group, Inc.

15 Exhibit 12-6 Performance Indicators for Activity Trips Compared to Peer Districts School District Total Miles Annual Activity Trips Percentage of Activity Trips Cost per mile Orange 16,269, , % $2.35 Palm Beach 11,288, , % $2.90 Duval 19,806, , % $1.96 Pinellas 11,316, , % $2.70 Hillsborough 23,964, , % $2.14 Broward 20,323, , % $3.14 Peer Average 15,800, , % $2.61 Source: Florida School District Transportation Profiles, The Quality Link Report, The district notifies bus drivers about forthcoming activity trips and outlines expectations and responsibilities for drivers who are to cover activity trips. These trips are assigned on an equitable basis and all drivers may volunteer. Operations staff maintains records for activity trip miles as a percentage of all bus miles. The operations staff maintains records for activity trips and keeps them on file for a period of five years. They record the total mileage and number of miles for each activity or extracurricular activity trip. Recommendations We recommend that the district determine the number of students who are currently exceeding state ride times, minimize the number and resolve long ride time situations. We recommend that the district review policy for activity trips and determine if costs for these trips should be reimbursed. Action Plan 12-2 provides the steps needed to implement these recommendations. Action Plan 12-2 Determine and Minimize the Number of Students Exceeding Ride Times Strategy Establish procedures to determine the number of students who exceed ride times and develop strategies to minimize that number. Action Needed Step 1: Conduct inventory to determine the number of students who exceed ride times. Step 2: Correct problems contributing to excess ride times. Step 3: Director of Transportation provides the assistant superintendent for Administration a quarterly report of students exceeding ride times and corrective actions to minimize and eliminate the problem. Step 4: Develop additional measures as required to ensure continued efficiency and effectiveness in reducing and eliminating excess ride time issues. Who Is Responsible Assistant Superintendent for Administrative Services. Time Frame May 2002 Gibson Consulting Group, Inc

16 Fiscal Impact This recommendation can be completed with existing resources. Determine Reimbursement for Activity Trips Strategy Eliminate inconsistencies for reimbursement of activity trips and develop a disciplined process to ensure reimbursement. Action Needed Step 1: Review polices and procedures for activity trips reimbursement. Ensure the district is in compliance. Step 2: School Board conducts review of current policy reimbursement for activity trips and determines if costs for these trips should be reimbursed Step 3: If School Board directs reimbursement for activity trips, then plans and procedures are implemented to ensure reimbursement. Step 4: Ensure that reimbursement occurs. Who Is Responsible Assistant Superintendent for Administration Time Frame May 2002 Fiscal Impact This recommendation can be completed with existing resources. Source: Gibson Consulting Group, Inc. 3 The district effectively and efficiently recruits and retains the bus drivers and attendants it needs. The Transportation Department places significant effort on recruiting and retaining bus drivers and attendants in order to meet student transportation needs. In spite of these efforts, the turnover rate is a cause of concern in the district. The Transportation Department, in defining bus driver and attendant turnover rates, includes resignations, retirements and terminations. Records reflecting these data were available. The review team conducted focus group surveys of bus drivers and attendants. Survey results were consistent with factors determined by the Transportation Department for personnel turnover. The turnover rate is a concern in the district and the Transportation Department is working to resolve the primary causes of driver and attendant turnover. Though the district assesses its turnover rate, it does not appear that it makes changes to practices that may be the cause for turnover. The major reasons for driver and attendant turnover as determined from the onsite focus group survey, transportation staff personnel and bus drivers are: Lack of a competitive benefits package. Low pay scale. Lack of a monetary incentive awards program. The review team found that the Transportation Department has a unique program to notify the public of job opportunities in the Transportation Department as drivers of attendants. The Transportation Department uses local newspapers, newsletters, magazines, flyers, the Internet, radio, television and other mediums to recruit. In addition, the Transportation Department explores what surrounding districts are doing and improves their offerings to meet local competition. Information on wages are compared and used to make the district offering more competitive. Exhibit 12-7 displays the results of a salary survey conducted for bus drivers and completed by the Employee Relations Department Gibson Consulting Group, Inc.