An Assessment of Transportation Service Options: A Profile of the Grandview Walnut Heights Community

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1 An Assessment of Transportation Service Options: A Profile of the Grandview Walnut Heights Community Presented to Community Residents December, 1998

2 About This Report This report was produced at the University of Wisconsin-Milwaukee Center for Economic Development (UWMCED), a unit of the College of Letters and Science at the University of Wisconsin-Milwaukee. UWMCED was established by the College in 1990, with the assistance of a grant from the U.S. Department of Commerce, Economic Development Administration s (EDA) University Center program to contribute to the retention and expansion of Southeastern Wisconsin s employment base by providing university research and technical assistance to community organizations and units of government. In addition to support from EDA and College of Letters and Science, UWMCED is part of UWM s Community Outreach Partnership Center, funded by the U.S. Department of Housing and Urban Development. The analysis and conclusions presented in this report are solely those of UWMCED and do not necessarily reflect the views or opinions of UW-Milwaukee or any of the Center s funders. The authors of this report are Deborah Curtis, Justin First, Project Assistants, and Lauren McHargue, Policy Analyst. UWMCED strongly believes informed public debate is vital to the development of good public policy. This report is provided in the hopes that the information provided herein will contribute to informed decision-making relative to the pursuit of public policy that will address the employment-based transportation needs of the Grandview Walnut Height s residents. UWMCED publishes briefing papers, public policy proposal papers, as well as more detailed policy studies. In these ways, as well as in conferences and public lectures sponsored by the Center, we hope to contribute to public discussion on economic development policy in Southeastern Wisconsin. Readers interested in learning more about the UW-Milwaukee Center for Economic Development and its projects should contact the Center at or write to us at: P.O. Box 413, Milwaukee, Wisconsin Relevant information about UWMCED is available at our web site

3 Executive Summary In the city of Milwaukee, the unemployment rate for African Americans rose from 8.3 to 18.6 percent between 1970 and For the Grandview Walnut Heights community, more than 77 percent African American, the unemployment picture was far worse. In 1990, community residents were unemployed at a rate of 22.6 percent and more than 43 percent of families were earning less than $10,000 annually The Milwaukee economy lost 52 percent of its manufacturing jobs since From 1987 to 1992, manufacturing jobs within the city decreased by 11.1 percent, while increasing by 9.9 percent in the Milwaukee suburbs during that same period. As a result, city of Milwaukee residents, particularly African Americans, have faced declining job opportunities located within a reasonable commute from their homes. Labor market statistics reveal a mismatch between unemployed innercity workers and unfilled jobs located in suburban counties. Current unemployment rates in suburban counties such as Ozaukee, Washington and Waukesha Counties are 1.7, 2.1, and 2.0 percent respectively. Milwaukee County s overall unemployment rate is 3.1 percent, while the unemployment rate in the Grandview Walnut Height s neighborhood is 22.6 percent. Grandview Walnut Heights residents depend heavily on the public transit system to reach job opportunities. Residents report that existing public transportation services do not meet their needs, particularly in reaching jobs outside of the city of Milwaukee. Problems with existing public transportation included: too many transfers, long commutes, and limited and/or no service available for second and third shift workers.

4 Suburban employers with a large numbers of entry level positions indicate that increased public transportation services into industrial areas is vital to their success in attracting workers. Employers hardest hit by worker shortages are those with the largest numbers of entry level positions to fill. While some employers are working to address the transportation needs of employees, the majority report that finding solutions to transit-related problems is the responsibility of government and/or employees. A profile of local transit services revealed that there are a number of publicly- and privately-funded programs designed to help urban residents access job opportunities located outside of the city of Milwaukee. The majority of these programs, however, are not designed to serve as long-term transportation alternatives. Moreover, most services do address problems such as: long commute times; efficient second and third shift schedules; and flexibility.

5 Table of Contents Introduction... 1 Study Methodology... 3 Labor Market Information and Community Profile.. 4 Residents Forum on Transportation Services... 8 Suburban Employer Perspective/Survey Results Transportation Services Profile Recommendations Conclusion Appendices

6 Introduction Transportation services are vital to the economic health of a community. Without adequate public transit alternatives, a neighborhood s residents and business owners face restricted options, particularly in the areas of employment and economic development. In the city of Milwaukee, the Grandview Walnut Heights neighborhood is one community where residents depend heavily upon public transit to access employment. According to most recent Census figures, more than forty percent of the community s residents rely on some form of public transportation to travel to work. As a recent study completed by UWMCED revealed, unemployment for African Americans (within metro Milwaukee) more than doubled between 1970 and In the city of Milwaukee, the unemployment rate for African Americans rose from 8.3 to 18.6 percent. 1 In 1990, the poverty rate among African Americans in the city of Milwaukee was nearly four times the white rate. 2 For the Grandview Walnut Heights community, more than 77 percent African American, the unemployment picture was far worse. In 1990, community residents were unemployed at a rate of 22.6 percent and more than 43 percent of families were earning less than $10,000 annually. 3 While many factors contribute to unemployment within Grandview Walnut Heights neighborhood, the movement of jobs out to the suburbs has had a major impact on inner-city communities. With the loss of more than half of its manufacturing jobs and the movement of employment out to the suburbs, Milwaukee s inner-city residents have faced declining job opportunities located within a reasonable commute from their homes. As a result, inner-city workers seeking employment outside of the city have found their transportation options limited. 1

7 While the Grandview Walnut Heights long term strategy is to develop more employment opportunities within its boundaries by attracting new business and revitalizing older commercial strips, the issue of transportation services is an immediate and critical concern for community residents. Accordingly, this report will identify and examine the existing barriers, service gaps, and transportation service options available to Grandview Walnut Heights residents. 2

8 Study Methodology UWMCED gathered information for this report through a variety of research activities. Staff conducted five levels of research for this study. These include: providing a sketch of the Milwaukee metropolitan labor market and its impact on resident employment opportunities; preparing a profile of the Grandview Walnut Heights community and its residents using census and city of Milwaukee Community Block Grant Office data; meeting with Grandview Walnut Heights residents and neighborhood stakeholders to gather community input on transportation issues; interviewing employers and staffing agencies located in Milwaukee, Waukesha, Washington, and Ozaukee counties; conducting in-depth interviews with public and private transit providers. The objective of these research activities is to provide the community with a baseline profile of its transportation service options. As noted earlier, while many factors contribute to high rates of unemployment, the Grandview Walnut Heights community is particularly interested in examining the impact of transportation services on access to employment. Accordingly, the goal of this study is to: analyze and evaluate the existing transportation support systems servicing the Grandview Walnut Heights neighborhood; and to identify the needs, gaps, and barriers that may exist in these services. The study will focus on the mismatch associated with the location of entry-level job opportunities in surrounding communities and access to employment by inner-city job seekers. 3

9 Labor Market Information Since the 1960s, the metropolitan Milwaukee labor market has undergone significant transformation. The Milwaukee economy lost 52 percent of its manufacturing jobs since From 1987 to 1992, manufacturing jobs within the city decreased by 11.1 percent, while increasing by 9.9 percent in the Milwaukee suburbs during that same period. As a result, city of Milwaukee residents, particularly African Americans, have faced declining job opportunities located within a reasonable commute from their homes. Labor market statistics reveal a mismatch between unemployed inner-city workers and unfilled jobs located in the suburban counties. Currently, the majority of unfilled entry-level jobs are located in Waukesha, Washington, and Ozaukee counties (W.O.W counties). At the same time, most unemployed entry-level workers reside in Milwaukee s inner-city. Below is a chart that compares full-time job openings to unemployed adults in the W.O.W. counties, Milwaukee County and in Milwaukee (central city). W.O.W. Milwaukee Co. Milwaukee (Central City) Full-time Job Openings 7,584 10,905 1,764 Unemployed Adults 6,045 14,967 7,800 Surplus of Job Openings + 1,539 4,062 6,036 Source: University of Wisconsin-Milwaukee Employment and Training Institute, August As the figures above reveal, Milwaukee County, has 4,062 more workers than full-time job openings or 1.37 workers for every full-time job opening in the county. With 6,036 more workers than full-time job openings, the central city has an 4 workers for every available full-time job. While Milwaukee County and Milwaukee (central city) have shortages of full-time jobs, the W.O.W. counties have 1,539 more full-time job openings than workers to fill them. While the greatest demand is for workers with some type of certification, license, or experience, the 4

10 demand for entry-level workers in has increased by approximately 58 percent since The majority of these entry-level jobs, as the numbers above reveal, are located in the suburbs. Although the statewide unemployment rate has steadily declined over the past five years, Milwaukee County continues to lead the four county area in both unemployed and not in the labor force according to census data. The unemployed figure is often misleading because it includes only those individuals (aged 16 years old and older) who are actively looking for work. The figure, for example, does not include discouraged job-seekers who are unable to find work, but are no longer included in the count. Therefore, the Not in Labor Force figure provides a fuller picture of the employment profile within a community. The table below provides a comparison of employment/unemployment for the Grandview Walnut Heights community relative to the four county area. Comparison of Labor Force Participation % Employed % Unemployed % Not in Labor Force Grandview Walnut Heights Neighborhood 29.5% 22.6% 47.9% Milwaukee Co. 63.9% 2.7% 33.4% Waukesha Co. 78.2% 2.0% 19.8% Washington Co. 77.1% 2.1% 20.8% Ozaukee Co. 76.5% 1.7% 21.8% Source: Estimated from the Wisconsin Department of Administration Demographic Services Center, Official Population Projections: and WI DWD, BWI, Local Area Unemployment Statistics program. 5

11 Profile of the Grandview Walnut Heights Community As noted earlier, residents living in Milwaukee s inner-city have watched employment opportunities, particularly manufacturing jobs, leave their communities throughout the past two decades. A census profile of the Grandview Walnut Heights community reveal that a majority of the residents, nearly 60 percent, live at or below the poverty level and face numerous barriers to employment. With more than 48 percent of all residents (over 25) without a high school degree, access to entry-level employment is particularly critical. Grandview Walnut Heights Demographic Profile 22.6% Unemployed 47.9% Not in the labor force 43.3% Households earning less than $10, % Households earning $10,000 - $24, % Number of persons living below poverty level 52.4% Female Headed Households 62.2% Female headed households with children under % Persons over 25 years with no Hi School Diploma 1990 Source Census Data (figures complied by the City of Milwaukee Community Block Grant Office) Figures reported earlier in this study reveal that the majority of entry-level jobs are found in the suburban W.O.W. counties. The greatest barriers to accessing these suburban jobs, according to both residents and employers, are transportation and/or transportation-related childcare issues. The most persistent difficulty for the majority of poor families is the ability to afford and maintain a personal vehicle. On average, 92 percent of Milwaukee and W.O.W. county workers rely on personal vehicles to travel to and from work. In contrast, only 62 percent of inner-city residents have the same opportunity. According to the Wisconsin Department of 6

12 Workforce Development data, of individuals expected to find work under the W-2 program, only 3.3 percent own a vehicle. While a lack of vehicle ownership is a major problem in reaching employment opportunities, the costs associated with driver s license suspensions and revocations also pose a critical barrier for inner-city residents. According to a study conducted by the UWM Employment and Training Institute, low-income residents with no record of serious traffic offenses often lose their driving privileges (and access to work) for failure to pay fines and forfeitures. 5 The report reveals that while the driver s license suspension rate, generally failure to pay fines, is 30 percent for males in Milwaukee County, the rate climbs to 46 percent for males residing in Milwaukee s inner-city neighborhoods. Of the 54,747 recent driver s license revocations in Milwaukee county (usually for driving with a suspended license or no license), 53 percent resided in central city Community Development Block Grant neighborhoods in Milwaukee. 6 While these figures focus on males, a lack of personal vehicle and/or license revocation hurts working mothers in particular. 7 With more than half of all residents below the age of 17 within the Grandview Walnut community, families living in poverty face a particularly difficult set of circumstances. According to Census figures, the community has a large share, more than 52 percent, of female-headed households. Unlike workers who do not have to deal with child care issues, working mothers face a number of transportation-related difficulties. In addition to finding transportation to work, working mothers must also find a means to and from a day care provider and/or a child s school. This situation is made worse when the day care provider, school, and work locations are not in the same geographic area or on the same transit route. A national transportation survey revealed that on average working women in urban areas take 3.8 trips per day 12 percent more than men. 8 As more working mothers enter the labor force under W-2, transportation services will become a critical part of their efforts to secure permanent non-subsidized employment and care for their children. 7

13 Residents Forum on Transportation Services The most critical perspective on transportation services for the Grandview Walnut Heights community comes from its residents. To effectively identify gaps and barriers that exist in transportation services, UWMCED conducted two resident forums. While the groups focused on a range of issues, three core questions were considered: How much do you depend on public transportation to get to employment opportunities? Where do you feel you have the best chance of finding the employment opportunities? Do you feel that existing transportation services provide adequate transportation to these employment opportunities? If not, what suggestions do you have for addressing this situation? To complete the profile, UWMCED staff also interviewed a number of employers to gauge their reactions and responses to transportation-related problems faced by both current and prospective employees. In our employer interviews, staff focused on three core questions: Do you think that public transportation is a major factor in recruiting entry-level employees? From what geographic area do you feel you will be recruiting future entry-level workers? Do you feel that existing transportation services provide adequate transportation for this group of employees? If no, what efforts is your organization taking to remedy this situation? 8

14 Initial feedback from these groups defined the problem and provided the research staff with a framework for further information gathering and analysis. The two groups had overlapping concerns that helped shape the direction of the research agenda. The following section will focus on the feedback provided by community residents. 9

15 Findings from the Residents Forum on Transportation Barriers to Employment The majority of residents contacted depend daily on public transit systems to meet their transportation needs. In general, there was agreement that the public transit service does not currently provide adequate transportation to employment opportunities. Most residents agreed that the best employment opportunities, from a pay and benefits standpoint, are located in the suburbs and outlying areas. As one resident stated, there s no work in the inner-city. We all know that. You have to have a car because all the work is at the industrial parks and shopping centers. They should have the buses running out there. Neighborhood residents agreed that transportation is a major barrier for them in securing employment. It s crazy that we can t get people to jobs in Waukesha. There is decent money to be earned there, if you get there, one resident commented. Residents provided a wide-range of feedback regarding current transportation services. The majority of participants agreed on four key areas. These include: Numerous transfers and long commutes: transfer are valid for one hour, which is not enough time to get to suburban employment centers. Commutes out to suburban employers can take up to three hours each way; Quality of service: buses do not stop at every stop and do not stay on schedule. Drivers often pass up residents waiting at designated stops in an effort to stay on time. Inadequate number of buses: not enough buses operating during the evenings and on the weekends, particularly on Sundays when many routes do not operate at all. 10

16 Hours of service: the most convenient service is scheduled to accommodate commuters during regular business hours, typically between the hours of 8:00 a.m. to 5:00 p.m. Many service and manufacturing jobs require second and third shift work. Outside of peak commute times, most routes do not run as frequently, or at all. There were differences in opinion regarding how much time people would be willing to spend commuting to work. One resident argued that no one should have to spend more than an half-an-hour to get to a job. Another resident indicated that if the job provided a living wage, it did not matter how long the commute would take. This resident stated that he recently held a job that started at 6:00 a.m. requiring him to leave home before 4:00 a.m. to arrive on time. While opinions regarding reasonable travel-to-work time varied among individual residents, there is an upward limit on what constitutes a feasible and reasonable travel time to work, particularly if day care and other daily routines must be factored into the commute. A few residents discussed employers efforts to provide transportation for inner-city workers. One employer, at no charge to the employees, provided door-todoor van service to work. The service was discontinued, however, after a few months because the van was repeatedly pulled over by suburban police for minor traffic infractions according to a resident. A resident reported that one problem with employer-sponsored transportation occurs when an employee misses the shuttle, even if only by a few minutes. With no alternative transportation to work, an employee risks his or her job. One resident reported having to transfer to another work site because it was more accessible by public transportation. One participant detailed the following example of the obstacles that innercity residents face in commuting to work. A city church is successful in placing inner-city workers at a department store distribution center in the suburbs. Many residents are attracted to working there because it provides entry-level warehouse work that pays well. 11

17 All full-time workers have to work six days a week and the bus routes that reach the center only run on weekdays. When the buses do run, a worker generally has to take three buses to get there, taking about three hours each way. The employer believes that it is the employee s responsibility to get to work. They do attempt to notify employees who live in the same neighborhood so they can arrange carpools. If someone is depending on a carpool to pick them up, they are at the driver s mercy. If a driver is late or skips riders, those people are at risk for losing their jobs for something that is beyond their control. You have to depend on other people in a carpool. Not everybody is reliable. Based on discussions with residents at the focus group sessions and during phone interviews, there is anecdotal evidence suggesting that residents are dissatisfied with the transportation services available in their community. There were also numerous complaints about service within the city of Milwaukee that are not included in this report. Very few residents felt that the public transit system was a feasible way to get to employment opportunities in the suburbs. More importantly, many residents indicated that a lack of transportation options was a major obstacle in securing family-supporting jobs. 12

18 Suburban Employer Perspectives Results of Employer Surveys During the months of October and November 1998, UWMCED staff conducted telephone interviews with twenty-five medium to large employers located in the Waukesha, Washington, and Ozaukee areas. Survey questions focused on transportation-related issues and their impact on filling entry-level positions. For the purpose of this study, staff focused on employers that typically hire entry-level workers. As noted earlier, staff focused on three core questions: Do you think that public transportation is a major factor in recruiting entry-level employees? From what geographic area do you feel you will be recruiting future entry-level workers? Do you feel that existing transportation services provide adequate transportation for this group of employees? If no, what efforts is your organization taking to remedy this situation? Employers were asked whether they felt that transportation-related issues posed a barrier to recruiting and retaining entry-level employees. While some employers reported that they had experienced no difficulties, others indicated transportation services were a major concern. In general, transportation was a major issue for employers who: 1) had a large numbers of entry-level positions, and 2) were located the farthest from the city of Milwaukee. Of those employers who indicated transportation was a concern, staff asked if any had programs in place to assist entry-level workers with access to transportation alternatives (car, bus service programs). Many employers reported having modest car-pool programs in place. These program efforts ranged from linking perspective car-poolers via postings on a bulletin board to offering preferred parking spots to employees who participated in car-pooling. Roughly one-third of the employers 13

19 indicated that they were either currently paying half the cost of bus fare for commuters or were considering doing so in the future. Due to liability concerns, none of the employers surveyed were considering company sponsored (private) shuttle or van pool programs. While companies indicated they did not plan to initiate their own transportation programs, many indicated that they encouraged their respective county transit systems to subsidize shuttle service into industrial parks, areas previously not on regular public transit routes. The following north and western suburbs currently have service into industrial parks: New Berlin, Brookfield, Waukesha, Butler, Menomonee Falls, Mequon, Grafton, Cedarburg, Port Washington, Saukville and Fredonia. 14

20 Transportation Services Profile Based on the discussions with both residents and suburban employers, there is anecdotal evidence suggesting that current public transportation services are not meeting the needs of either group. To fully understand the various transportation services currently available to Grandview Walnut Heights residents, UWMCED staff complied a profile of public and private service options offering transportation to suburban employers and employment centers. As residents noted, most suburban transportation service options entail a lengthy commute. To shed additional light on this concern, staff examined travel times to various suburban centers. This information can be found at the back of this report. Quad Graphics In Waukesha County, Quad Graphics partially subsidizes two Milwaukee County Transit routes that provide service to the company s Sussex/Pewaukee and West Allis/New Berlin plants. Relying on private/public cost-sharing, Quad Graphics pays 40 percent of the cost with Milwaukee County and Waukesha County each paying 30 percent. Both routes are timed to service Quad Graphic s two 12- hour shifts of 7:00 a.m. to 7:00 p.m. and 7:00 p.m. to 7:00 a.m. The #6 route services the eastern half of the central city and the near south side and goes to the West Allis and New Berlin Plants, and the #8 route services the southeast side and the northwest side of the city and goes to Sussex and Pewaukee. The Quad Graphic s routes run seven days a week for both shifts. In addition, Quad Graphics has an interest-free loan program in place to help employees, who are in within certain income limits, purchase and/or repair a personal vehicle. 15

21 Staffing Agencies Many employers are using staffing services that provide both workers and transportation. In general, workers are employed by the staffing service, not the employer. In many cases, however, employers will hire temporary workers into permanent positions. A number of staffing services reported that they provide employees with door-to-door pick-up and drop-off transportation. One staffing agency indicated that its has scheduled pick-up and drop-off at locations within Milwaukee s inner-city. Using five to seven 47-passenger motorcoaches daily, the agency transports employees to jobsites located in Waukesha County (Genese, Jefferson and Eagle). Suburban Transportation Services There are several existing sources of public transportation designed to link workers to jobs in suburban communities. Waukesha, Washington, and Ozaukee Counties all have express route service bringing suburban workers to jobs in downtown Milwaukee and central city residents to jobs in these three suburban counties. While the in-bound routes are designed for suburban workers (97 percent of whom commute by car) commuting into Milwaukee, the outbound routes provide one transportation option to central- and inner-city workers employed at suburban job centers. As noted earlier in this report, key job growth centers exist in the northern and western suburbs. Accordingly, this report will highlight existing transportation serving to these areas. Wisconsin Coach Lines Express to Waukesha County Wisconsin Coach Lines is a privately-operated motorcoach carrier offering commuter service between Waukesha County and the cities of Milwaukee, Racine, and Kenosha. The westbound service out of Milwaukee begins in downtown 16

22 Milwaukee and makes stops along I-94. The first drop-off point is the Brookfield Square Shopping Center. At this location riders can transfer to the New Berlin Industrial Park Shuttle or to the Waukesha Metro Transit system. The route also accesses businesses along West Blue Mound Road in the town of Brookfield. The coach also stops at the Goerke s Corners Park & Ride where riders can transfer to the Highway 164/Highway J Industrial Park Shuttle or to the Metro system bus. The route continues along Highway 18 through the city of Waukesha, terminating in downtown Waukesha. The Wisconsin Coach Lines Express provides first shift and limited second shift service Monday through Friday, and limited service on Saturday, Sunday and holidays. The shuttle buses run from approximately 6:00 a.m. to 8:30 a.m. and 3:00 p.m. to 5:00 p.m. weekdays. Ozaukee Express Transit Service The Ozaukee Express Transit service is sponsored by Ozaukee County and funded by the Wisconsin Department of Transportation, the Federal Transit Administration, the Ozaukee County Economic Development Corporation, and Ozaukee County businesses and taxpayers. The service operates as a commuter route between Ozaukee County and downtown Milwaukee. The northbound service out of Milwaukee begins at South 16 th Street and West Greenfield Avenue making stops in downtown Milwaukee, along I-43 up to North Green Bay and West Capitol Drive. It also take passengers to various Park & Ride Lots along I-43. At the Park & Ride lots, riders can transfer to shuttle buses bound for businesses and industrial sites located in Mequon, Cedarburg, Grafton, Port Washington, Saukville and Fredonia. The service terminates at the Highway H/57 Park & Ride in the town of Fredonia. 17

23 The Ozaukee Express runs Sunday evening through Friday and serves all three shifts. Most of the connector shuttle buses also service provide service for all three shifts. Express Service to Washington County Beginning April 1, 1999, there will be a new transit service modeled after the Ozaukee Express. The new route will service Washington County and includes Germantown, Jackson, Slinger, Hartford and West Bend. One segment of the outbound service will shuttle passengers from the Mill Road Transit Center (N. 76 th St. & W. Mill Rd.) to the Germantown Industrial Park. Another segment will begin near South 6 th Street & West Lincoln Avenue making stops along Greenfield and National Avenues. It will travel north on 27 th Street to Fond du Lac Avenues (follows Fond du Lac to Hwy. 41/45). There will be a transfer point at the intersection of Hwy. 41/45 where workers can: 1) take a shuttle van to Jackson; 2) take a shuttle van to Slinger and Hartford; or 3) remain on the coach for two final stops in West Bend. While all of the service details have not been finalized, it will be similar to the Ozaukee Express with respect to schedule and fares. The Washington Express will serve two shifts and three for the Germantown shuttle. The Menomonee Falls Industrial Park MetroLink Shuttle The number 106 MetroLink is a Milwaukee County Transit route that originates at the Mill Road Transit Center (N. 76 th St. & W. Mill Rd.). Many regular MCT routes now run from the new transit center. The #106 runs northwest to many Menomonee Falls businesses and industrial sites. It roughly parallels Highway 145 and terminates at the Pilgrim Road Park & Ride. The Menomonee Falls Industrial Park Shuttle operates Monday through Friday from 5:30 a.m. to 7:00 a.m. and 2:30 p.m. to 4:00 p.m. 18

24 The Menomonee Falls/Butler Industrial Park Shuttle The number 9 Menomonee Falls/Butler service is a Milwaukee County Transit route sponsored by ten area employers. The route begins at the North Lovers Lane Road and West Silver Spring Drive. From Silver Spring, service extends to North Lilly Road and south to West Hampton Road terminating at North 124 th and West Capitol. The route is designed primarily to service the sponsoring employers, many of whom have entry-level jobs. The route provides service Monday through Friday serving first, second, and third shift workers. Government Funded Non-Transit Programs In addition to public transit programs, there are several state- and federallyfunded programs designed to help urban residents access job opportunities in outlying areas. While the majority of these programs are not designed to serve as long-term transportation alternatives, they do, however, provide new employees with assistance in meeting immediate transportation needs. These programs include: JobRide, Bridges to Work, Rideshare and the Milwaukee County s VanPool Program. JobRide JobRide, sponsored by the State of Wisconsin Department of Workforce Development, receives funding from the state and the employers/employees who use the service. The program is currently administered by the Private Industry Council of Milwaukee (PIC). This program currently links over 1400 Milwaukee County workers to employers in Ozaukee, Washington, Waukesha, Racine, and Kenosha Counties. Details of the program are provided on the following page. 19

25 JobRide provides transportation to and from employment interviews, drug screening, and other employment-related testing. JobRide can only provide transportation to businesses that are not accessible by public transportation. Riders must meet certain income and demographic eligibility requirements. Service is limited to a maximum of six months. JobRide offers free transportation to and from a new job until the rider receives his/her first paycheck. Passengers pays $2.00 per day thereafter. Riders are picked up at a central location and transported to the job site by a contracted (private) van provider. JobRide provides transportation for first, second and third shifts, seven days per week. JobRide offers a Guaranteed Ride Home service in the event of an emergency while at work. Participants are picked up at points easily accessible via public transportation. The program is not a job placement service. If an employee has an interest in a job that he/she that is not accessible by existing public transportation, he/she can call Job Ride and find out if the employer is a participating member of Job Ride. Bridges to Work Bridges to Work is funded by the U.S. Department of Housing and Urban Development (HUD). The program is available in five U.S. cities (including Milwaukee). This is the second year of a four year program. The program is currently administered by the Private Industry Council of Milwaukee (PIC). Bridges to Work provides transportation for workers to Ozaukee, Washington, Waukesha, Racine and Kenosha counties. Details of the program include: This is a job placement service that provides transportation to and from work. 20

26 Bridges provides transportation services for job interviews, drug testing, and any employment related testing. Participants must meet certain income and demographic eligibility requirements. Participants must have been employed within the past year. The riders are picked up at central locations and transported to the job site by a contracted (private) van provider. There is no charge for this service. This program guarantees worker a ride home in case of an emergency. In addition, the program provides support services like extended childcare, suburban orientation, and crisis resolution counseling services. Bridges jobs run first, second and third shifts; seven days per week. Rideshare Rideshare is sponsored by the State of Wisconsin Department of Transportation. It is designed to benefit any individual traveling by any mode of transportation, as well as their employers. The Rideshare computer data base can match potential car-poolers from counties throughout Wisconsin including: Milwaukee, Ozaukee, Washington, Waukesha, Racine, and Kenosha. The objectives of the Rideshare program are to reduce congestion and pollution, and provide a costsaving alternative for commuters. Rideshare participants must have a car. Services to participants include: car and van pool matches for workers on any shift; matching participants at a specific work site; Park and Ride lot information; and information on transit providers. Currently, the data system does not include many inner-city car-poolers. Milwaukee County Transit System VanPool Program A Milwaukee County Transit System van can be provided to qualified groups of employees from a single company or from a group of two or more companies 21

27 located near one another. The program is outlined below. The VanPool Program also has a number of selection criteria that each driver must meet. Selection criteria are listed in Appendix D at the back of this report. Two van sizes: 8 and 12 passenger. Driver is member of the van pool group and is not counted as a passenger. Either the origin or destination of each VanPool trip must be outside the regular MCTS service area. MCTS vans are restricted to the six-county area of Milwaukee, Waukesha, Ozaukee, Racine or Kenosha. Primary driver rides free. Parking costs are the responsibility of the VanPool. With the tax-free employer support program, VanPool participants can receive up to $65.00 a month to defray fees. ($65.00 per group). Guaranteed ride home if a VanPool participant s schedule changes or there is a personal emergency. Drivers are responsible for collecting monthly fees and submitting two brief monthly reports. Drivers get a free monthly personal mileage allowance of 150 miles. 22

28 Recommendations Based upon the issues raised in this report, there is anecdotal evidence suggesting that Grandview Walnut Heights residents interested in employment opportunities located outside of the city of Milwaukee face a number of transportation-related barriers. Both residents and employers recognize that there is a job accessibility gap for prospective employees residing in the inner-city. Three cores issues identified in this report include: high job-growth areas for entry-level employment are located in outer suburbs with many not accessible by public transit service; even when transit is available to a suburban job, the commute is often too long and/or requires several transfers; transit schedules and hours often do not effectively meet the needs of second and third shift workers. These issues do not include other barriers identified by residents such as infrequent and unreliable services; safety concerns; and day care-related travel logistics. Given the concerns outlined in this report, we recommend the following strategies to address transit-related problems for the Grandview Walnut Heights community. Short Term Recommendations Work with representatives from Milwaukee County Transit System on services innovations such as: flexible routing; and extended scheduling to accommodate off-peak work hours; 23

29 identify possible express routes in key corridors; identify possible route modifications and/or extend service beyond 124 th ; examine the feasibility of day care services at transit center/stations Work with private van pool services and suburban employers to devise transportation alternatives. According to a UWMCED study on New Berlin transit options, several private van pool operators have expressed interest in operating van pool service for people living in Milwaukee to suburban employment centers. Expand existing shuttle services to accommodate second and third shift workers, particularly suburban employers operating three shifts. Long-term Recommendations The existing barriers and gaps in transportation support services, particularly in light of welfare reform, ultimately require that transit authorities examine transit solutions across county lines. Based on information gathered for this study and from other cities around the country, inadequate transportation services create a job accessibility gap for inner-city workers. While a shortage of entry-level workers may prompt suburban employers to investigate transportation alternatives, there is no clear evidence that private firms will provide long-term solutions. As a result, public sector approaches, such as light rail and other mass transit alternatives, are more critical than ever (see, for example, a UWMCED study entitled Light Rail in Milwaukee: An Analysis of the Potential for Economic Development, May 1992). Accordingly, Grandview Walnut Heights residents and community leaders will need to aggressively lobby elected representatives concerning spending for mass transit services. 24

30 Litigation may also prove to be an effective long-term strategy. Within the past year, individuals have filed civil rights complaints asserting that the state s decision not to study mass transit plans for Milwaukee County (dedicating federal funds to highway reconstruction) amounts to racial discrimination. 9 It s uncertain what outcomes these efforts may yield, but the complaints may spur state public policy makers to reevaluate how federal transportation funding is allocated. 25

31 Conclusion The objective of this study was to research the current transportation support services available to the Grandview Walnut Heights neighborhood and to gauge residents perceptions about these services, particularly regarding access to employment opportunities outside of their community. While there are diverse viewpoints among government officials, employers, and residents regarding the causes of the high unemployment within the community, a profile of the local labor market reveals that many entry-level employment opportunities are now located in suburban locations. As a result, inner-city workers, without a personal vehicle, require comprehensive transit services that offer convenient, affordable, and dependable transportation to outlying suburban firms and employment centers. Although inter-county transportation services continue to expand, Grandview Walnut Heights neighborhood residents report that current transportation services do not sufficiently meet their needs, specifically in accessing employment opportunities outside of the community. Resident interviews reveal that the most critical concerns include: public transit routes often do not provide second and third shift service; transit routes often do not run on second and third shifts or do not accommodate workers who have to work overtime (often mandatory overtime); many transit routes do not provide service on weekends; many of the Milwaukee County Transit System routes do not start early enough in the morning for GWH s residents to make connections to the earliest suburban express services; no direct service from GWH to connect with the Waukesha County service; multiple transfers and tight connections are typical; many commutes are very long (1 ½ to 3 hours each way); with the exception 26

32 of the Quad Graphics routes; start point for route analysis (35 th & Lisbon) and other connection points along the perimeter of the GWH s neighborhood can be several blocks from residents homes (details provides at the back of this report); bus fares can be costly, particularly for entry-level wage-earners when transferring from Milwaukee County to other transit systems (some offer discounts with MCTS transfer and others do not); transfers are valid for one hour and often do not allow sufficient time for a passenger to connect from one route segment to the next. Driver s licensing problems and the high cost of maintaining a personal vehicle exclude many residents from the most convenient and flexible form of transportation in the metropolitan area. Moreover, local transit service often does not meet the challenges associated with childcare faced by many residents, particularly working mothers. Accordingly, residents report gaps in and barriers to transportation services that seriously hamper their ability to find and retain worthwhile, family-supporting employment. This study profiled a number of transportation options currently available to Grandview Walnut Heights residents. Many of these options, however, only provide a short-term solution to the current dilemma faced by unemployed inner-city residents and understaffed suburban employers. Based upon interviews with residents and employers, there is a consensus that the most meaningful solution to the problem is developing comprehensive transportation services. As one study of Cleveland concludes, the problems of transportation support services, particularly in light of welfare reform, ultimately requires that transit authorities examine solutions across county lines. Based on information gathered for this study and from other cities around the country, the problem of transportation services as a barrier to employment has not met with a market-based solution. As a result, public sector solutions, such as light rail and other mass transit alternatives, 27

33 are more critical than ever. As a report from Wisconsin s Department for Workforce Development concludes, in order to ensure that low-income individuals make a successful transition from W-2 to long-term labor force participation, public policies will have to be implemented to reduce transportation barriers

34 1 The Economic State of Milwaukee: The City and the Region, May, 1998, by Marc V. Levine, with Sandra J. Callaghan. p Economic State of Milwaukee, p It should be noted that 50.7 percent of community residents are under the age of 17 according to census figures complied by the Community Block Grant Office. 4 Economic State of Milwaukee, p Removing Transportation Barriers to Employment: Assessing Driver s License and Vehicle Ownership Patterns of Low-Income Populations, University of Wisconsin-Milwaukee Employment and Training Institute, July Ibid. 7 See Welfare Reform and Access to Jobs in Boston, U.S. Department of Public Transportation Bureau of Transportation Statistics, January Ibid, p See Hissom, Doug, Complaint Charges Racism in State Transit Planning, Shepherd Express, November, 19, Wisconsin Department of Administration Demographic Services Center, Official Population Projections: and WI DWD, BWI, Local Area Unemployment Statistics program. 29

35 Appendix A Milwaukee County 1990 Unemployment Ranking by Zip Code RANK % Unemployed (34.7%) (20.7%) (16.9%) (13.7%) (13.6%) (Grandview Walnut Heights falls within 53208) (13.4%) (10.9%) (9.3%) (8.2%) (7.9%) (7.6%) (5.6%) (5.4%) (5.0%) (5.0%) (4.7%) (4.6%) (4.5%) (4.4%) (4.3%) (4.0%) (4.0%) (3.8%) (3.7%) (3.7%) (3.6%) (3.6%) (3.5%) (2.8%) (2.4%) (2.4%) (2.4%) (2.4%) (2.3%) 30

36 Appendix B Metropolitan Milwaukee Population County 1990 Census 1997 Estimated Num. Change % Change MILWAUKEE 959, , OZAUKEE 72,831 79,436 6, WASHINGTON 95, ,629 15, WAUKESHA 304, ,338 36, Source: State of Wisconsin, Demographic Services Center 31

37 Area Counties: Milwaukee 3.1% Ozaukee 1.7% Washington 2.1% Waukesha 2.0% Cities: Brookfield 1.4% Greenfield 1.6% Menomonee Falls 1.5% Milwaukee 3.9% New Berlin 1.6% Waukesha 2.7% Wauwatosa 1.4% West Allis 1.6% Appendix C Local Area Unemployment Statistics December, 1997 Unemployment Rate Milwaukee Primary Metropolitan Statistical Area 3.1% Source: State of Wisconsin, Department of Workforce Development 32

38 Appendix D MCTS Vanpool Driver Selection Criteria Each VanPool has a primary driver and one or two back-up drivers. Must be at least 24 years old. Must be a permanent, non-probationary employee of current employer. Must have current unrestricted State of Wisconsin Driver s License and have driven for at least 3 years. Restrictions for glasses or contact lenses are acceptable. Applicant must be free of any physical condition that would be grounds for rejection as a Milwaukee County Transit System bus driver. Any condition which would impair a driver s ability to drive the van will result in rejection. MCTS may require a physical examination, if necessary, to make a determination. Cost for the physical will be the responsibility of the MCTS. Must possess, or be able to possess, minimum Wisconsin Collision and Comprehensive coverage on their own personal vehicle(s). Cancellation or non-renewal within the past 5 years will be closely analyzed. If the action is related to the applicant s driving behavior, this will result in rejection. Applicant will be rejected if he/she has ever been convicted of a felony or has ever had a license suspension or revocation related to reckless driving, hit and run, leaving the scene of an accident, driving under the influence of alcohol or controlled substances, driving while otherwise impaired, or concurrent violations of illegal lane usage. A preferred driver will be accident free for at least 3 years. However, an otherwise superior risk may have mo more than one not at fault accident within 3 years. Not more than one violation for the past 3 years (except parking citations). This will be confirmed by checking state records. An applicant may be rejected if he/she fails to pass a MCTS approved drug and alcohol test. An applicant who has to file a CRF (Certification of Financial Responsibility) due to his/her personal driving record will be rejected. Potential drivers must consent to a credit check and have a good credit history. Routine carrying of unrelated persons is not allowed (e.g. Cub Scout group, Little League, etc.). An applicant who expects to commit the van to such routine non-commuting use will be rejected. Driver are required to provide off-street parking at a private residence at the home end. All potential drivers must pass the MCTS VanPool Driver Training Course. Source: Milwaukee County Transit System 33