TSPR Killeen ISD - Chapter 10

This chapter reviews the Transportation Services Department of the Killeen Independent School District (KISD) in five sections:

A. Privatization

B. Organization and Staffing

C. Safety

D. Routing and Scheduling

E. Fleet Maintenance

FLEET MAINTENANCE
The Transportation Services Department maintains an active fleet of 229 buses. Of the total fleet, 48 buses are gasoline-fueled, 35 can be fueled with either gasoline or compressed natural gas, and the remainder are diesel buses.
In 1997-98, the KISD school bus fleet included 34 pre-1977 buses. Lack of funds several years in a row prevented the district from replacing older buses. Exhibits 10-16 and 10-17 compare the relative age of the KISD fleet with peer districts.
Exhibit 10-16
KISD and Peer School District Regular Education Bus Fleet Age Distribution
1997-98

Percentage of Regular Education Bus Fleet in Age Category

District 1 to 5 Years 5 to 10 Years 10 Years to April 1, 1977 Prior To April 1977

Temple 36% 64% 0% 0%

Ector County 36% 28% 64% 0%

Plano 22% 14% 36% 0%

Round Rock 21% 9% 69% 0%

Corpus Christi 0% 36% 44% 20%

Peer Average 19% 30% 43% 4%

Killeen 43% 22% 16% 19%

Source: TEA School Transportation Route Services Report 1997-98.
Exhibit 10-17
KISD and Peer School District Special Education Bus Fleet Age Distribution
1997-98

Percentage of Special Education Bus Fleet in Age Category

District 1 to 5 Years 5 to 10 Years 10 Years to April 1, 1977 Prior To April 1977

Ector County 34% 32% 33% 0%

Round Rock 32% 39% 30% 0%

Plano 27% 15% 58% 0%

Temple 26% 74% 0% 0%

Corpus Christi 0% 23% 53% 11%

Peer Average 24% 37% 35% 2%

Killeen 8% 24% 67% 0%

Source: TEA School Transportation Route Services Report 1997-98.
The typical bus in the fleet averages 11,300 miles a year.
The maintenance team is comprised of 12 experienced mechanics, most of whom have military experience. Six of the mechanics are classified as skilled, and six are semi-skilled. Each semi-skilled mechanic is partnered with a skilled mechanic.
Transportation Services employs an appropriate number of mechanics to maintain the district's bus and vehicle fleet, but the productivity of mechanics is limited by their daily assignments to drive school buses. On average, 11 of 12 mechanics drive a school bus route approximately four hours per day. On average, each mechanic works about 12 hours of overtime each week to keep up with vehicle maintenance work orders.
Transportation Services owns a vehicle maintenance information system (VMIS capable of tracking maintenance statistics and inventory. The VMIS is not linked to the parts inventory system in the Purchasing and Warehousing Department, and the records are not reconciled with Purchasing and Warehousing. The fueling system is automated, but does not have a control for valid miles entered. The fueler can enter bogus miles for each vehicle, and the system will accept the entry. The fuel system is not tied to VMIS.
FINDING
In 1998-99, the district spent $1.8 million to replace 34 pre-1977 buses. Fifteen of 34 new buses had arrived at the district as of May 1999. According to the director for Transportation Services, all pre-1977 buses will be retired by the end of the 1999-2000 school year. Exhibit 10-18 demonstrates the average age of the KISD fleet once the 34 oldest buses are retired.
Exhibit 10-18
Active Fleet Inventory By Model Year
1999

Year Regular Special Education Total

1977 10 0 10

1979 10 0 10

1980 3 1 4

1983 2 2 4

1984 10 0 10

1985 3 4 7

1986 11 2 13

1987 8 2 10

1988 8 3 11

1990 6 11 17

1991 5 5 10

1992 17 13 30

1994 4 5 9

1995 25 1 26

1996 9 0 9

1997 12 3 15

1998 34 0 34

Total Fleet 177 52 229

Average Age in Years 8 9 8

Source: KISD Transportation Services vehicle inventory and miles report dated August 3, 1998; KISD Transportation Services special needs buses report dated May 4, 1999.
COMMENDATION
KISD identified and replaced the pre-1977 buses in its fleet.
FINDING
Each driver is expected to conduct a pre-trip inspection of the school bus before each route. Drivers complete a vehicle inspection report and turn in any exceptions as a request for repair to the maintenance department. There also are 10 drivers (2 positions vacant) who work four hours per day driving school buses and four hours fueling buses. The driver/fueler is expected to check all fluids and perform an additional visual inspection of each school bus during the daily fueling cycle.
Each year, each school bus is inspected by a mechanic twice. Once each summer, each bus undergoes a thorough inspection and repair program. Also, once each year on a rotating monthly cycle, each bus is inspected for a safety sticker. Other than these two inspections, there is not a preventive maintenance inspection program for school buses. Mechanics rely upon the daily driver and fueler identification of needed repairs.
The lead mechanic said the mechanics do not have time to perform preventive maintenance inspections because on average, each mechanic drives a school bus route at least four hours per day.
Recommendation 102:
Institute a regular preventive maintenance program for school buses.
A regular preventive maintenance program with an inspection of every school bus every 3,000 miles should be implemented as soon as possible.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The lead mechanic should research and recommend a preventive maintenance program, including inspection forms and procedures for inspections. October 1999

2. The director for Transportation Services and the lead mechanic should modify the vehicle management information system to prompt preventive maintenance on a mileage or calendar basis. November 1999

3. The director for Transportation Services should terminate the use of mechanics to drive school bus routes. January 2000

FISCAL IMPACT
There is no incremental cost for a quality preventive maintenance program. Mechanics are spending time appropriately inspecting and making preventive maintenance repairs rather than dealing with mechanical failures and major repair. A quality preventive maintenance program should reduce the costs of maintenance over time.
FINDING
With the exception of the $1.8 million purchase in 1998-99, the district typically sets aside $500,000 a year for bus purchases. This allocation is sufficient for less than 10 school buses per year and provides for replacement of less than 5 percent of the fleet. Without additional purchases, buses in the fleet could be in service for as many as 20 years. The director for Transportation Services proposed to the assistant superintendent for Business Services a vehicle procurement and replacement plan for a 20-year bus replacement cycle. The plan has not been presented to the school board.
TEA recommends a 10-year cycle for bus replacement for the following reasons:

Newer buses have better safety records. This is in part a function of the wear and tear on older buses that can result in compromises to the structural integrity of the bus, and newer buses have more safety features.
School bus purchasing specifications include a 10-year useful life for school bus structural integrity.
Most school districts can maximize the surplus value of the bus when it is sold after retirement. Resale prices typically drop sharply after the eleventh year of service.
The useful life of a school bus also can be defined as 200,000 miles, which often is near 10 years of service.

An average bus in the KISD fleet operates 11,300 miles per year. If the life of a bus was defined based on miles alone, a bus could be retained in the active fleet for 20 years. However, other factors and the cost of preventive maintenance also should be considered in establishing a district policy on replacement of buses. KISD does not have an aggressive preventive maintenance program, so a 20-year procurement program is not appropriate.
The recommended KISD policy is to place the regular and special education school bus fleet on a 15-year replacement cycle. The average bus will be replaced at between 150,000 and 170,000 miles of service. Exhibit 10-19 shows the spare bus ratio by fleet type. The spare bus ratio for regular route and trip buses should not exceed 20 percent of daily route buses. Given the small size of the special education fleet, a spare bus ratio of 30 percent is not unreasonable.
Exhibit 10-19
KISD Bus Fleet Spares Ratio
1999

Bus Use Regular Education Special Education Total Number of Buses

Total Buses 180 48 228

Buses in Daily Service 128* 34 162

Over-the-Road Coaches 14 0 14

Spare Buses 38 14 52

Spares as Percent of Daily Buses 30% 41% 32%

Source: TEA Transportation Services Operations Report, 1997-98; KISD Transportation Services Vehicle Usage Report, dated April 16, 1999; KISD Transportation Services special needs buses report dated
May 4, 1999.
*Includes special needs routes transporting students in alternative, bilingual, and dyslexic programs since these routes do not require special education buses
Of the 38 spare buses for regular education, 29 buses are designated as trip buses by the director Transportation Services. With the over-the-road coaches, a total of 43 buses are identified as trip buses. Of the 43, ten are new 1999 air-conditioned buses that were purchased for future growth in the number of regular and special needs routes.
Recommendation 103:
Develop and adopt a 15-year bus procurement and replacement program and reduce the spare bus ratio.
A regular procurement and replacement program that anticipates future growth should be a part of the district's capital planning program. The number of spare buses for regular education should be reduced by 11 buses, and the number of spare buses for special education should be reduced by three buses.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The director for Transportation Services revises the fleet procurement plan. January 2000

2. The assistant superintendent for Business Services presents to the superintendent and school board the proposed fleet procurement plan for approval. February 2000

3. The spare buses in poorest condition are sold for salvage value at auction. October 2000

4. The director for Budgetary Services reflects the fleet procurement plan in the capital budget. Fiscal Year 2000-2001

FISCAL IMPACT
The number of daily route buses required is 163 (excluding trip buses). Assuming a 20-percent spare bus ratio for regular buses and a 30-percent spare bus ratio for special education buses, the total fleet size required is 200 buses. A 15-year procurement cycle calls for replacement of 13 buses per year. At $52,000 each, the annual procurement cycle will require $676,000. The district typically sets aside $500,000 a year for bus purchases.
The value of the oldest spare buses in the fleet is assumed to be $1,500 each. The sale of 14 buses will earn approximately $21,000 at auction

Recommendation 1999-2000 2000-2001 2001-2002 2002-2003 2003-2004

Develop and adopt a 15-year bus procurement and replacement program. $0 ($176,000) ($176,000) ($176,000) ($176,000)

Reduce the number of spare buses. $0 $21,000 $0 $0 $0

Total Savings/Costs $0 ($154,000) ($176,000) ($176,000) ($176,000)

FINDING
All maintenance work is performed through a well-documented work order process. Each request for repair is transferred to a work order. Each work order is completed by a mechanic and includes all labor, parts, and related material used to complete the repair. A copy of each completed work order is filed by bus vehicle number in the lead mechanic's office. A second copy of each completed work order is sent to the fleet service supervisor for data entry into the department's VMIS. For two years, all work orders have been entered into the VMIS. All labor hours, parts, and materials are entered and recorded with calculation of related costs. The database is excellent and includes the ability to track warranty repairs for the 34 new school buses.
However, the VMIS data is not available to the mechanics. The lead mechanic says all mechanics rely upon the hard copy files and never see data from the automated database. The fleet analyst enters the data and ensures accuracy, but he does not know how to produce reports. Apparently, only the director for Transportation Services knows how to prepare reports from this wealth of information. He has prepared a report that summarizes costs for vehicle maintenance by department. Costs for each department are reported for labor hours, labor cost, and parts cost.
Recommendation 104:
Make the VMIS system available to mechanics and produce regular management reports and cost analyses.
A VMIS system provides maintenance personnel a way to obtain information on the fleet quickly, but limited knowledge on the part of the fleet analyst and mechanics' lack of accessibility prevent the VMIS from fully benefiting fleet maintenance.
A terminal should be installed in the lead mechanic's office. Mechanics should be trained to enter data from each work order in progress each day. The VMIS data should be available to the mechanics to pull information such as daily reports on which vehicles are due for inspection or the maintenance history of a specific vehicle.
Management reports that track fleet maintenance indicators, such as cost per vehicle by labor, parts, and materials, should be developed regularly and analyzed to monitor the cost of vehicle maintenance. The fleet analyst should be trained to produce these reports.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The director for Transportation Services should request two computers to be installed in the vehicle maintenance area and networked to the VMIS system. January 2000

2. The director for Transportation Services should design management information reports for vehicle maintenance. February 2000

3. The Technology Department should assist in providing adequate training for mechanics and the fleet analyst. March 2000

FISCAL IMPACT
This recommendation could be implemented with existing resources; however, some training for the fleet analyst and mechanics may be required. Assuming 16 hours of training for the lead mechanic who makes $14.32 and hour and 11 mechanics who average $9.34 an hour, training to use the system will cost $1,873. Providing a week of training for the fleet analyst who makes $17.62 will cost $705.
Two computers with printers should be installed in the vehicle maintenance area to give mechanics access to the VMIS system. Computers can be purchased for $700 each, and printers can be purchased for $150 each. The one-time investment for new equipment will be $1,700.

Recommendation 1999-2000 2000-2001 2001-2002 2002-2003 2003-2004

Make the VMIS system available to mechanics and produce regular management reports and cost analyses. ($4,278) $0 $0 $0 $0

FINDING
The mechanics responsible for school bus maintenance also are responsible for repairing all other district vehicles. There is no preventive maintenance program for these general service vehicles. Each department is expected to monitor vehicles and take responsibility for scheduling vehicles for repair and safety inspection. Although the data is available in the VMIS, there is no system to monitor costs of vehicle maintenance.
Recommendation 105:
Use the VMIS to monitor district vehicles and coordinate with other departments to ensure maintenance is performed on time and to track maintenance costs for general service vehicles.
The VMIS system provides an easy way to monitor each vehicle in the district to ensure maintenance is performed in a timely manner. Reports can be printed each week and given to other departments to inform them when vehicles should be scheduled for maintenance. Tracking other district vehicles also will help fleet maintenance anticipate workload and keep track of the cost of maintaining district vehicles.
The cost of student transportation reported to TEA may include the cost of labor for maintaining all district vehicles, not just school buses.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The director for Transportation Services instructs fleet analyst to update the inventory for general service vehicles and develop criteria for preventive maintenance inspections. January 2000

2. The fleet analyst updates the inventory for general service vehicles to reflect current use (miles or hours) for the vehicles and establishes a schedule for preventive maintenance. March 2000

3. The fleet analyst generates reports for required preventive maintenance inspections and sends to the director for the responsible department. May 2000

4. The assistant superintendent for Business Services announces the responsibility of each director to see that general service vehicles are presented for inspection on time. September 2000

5. The lead mechanic implements assignments and procedures for mechanics to perform preventive maintenance on general service vehicles. August 2000

FISCAL IMPACT
This recommendation could be implemented with existing resources.
FINDING
Transportation Services has a five-bay maintenance facility. One bay only can be used for small vehicles. Two mechanics work in a bay at once, so each bay supports 16 hours of maintenance a day, or 4,160 hours of maintenance per year. The KISD bus and vehicle fleet require 20,834 hours of maintenance per year. Five bays are adequate to provide this level of maintenance.
The maintenance facility also houses an area for repairing upholstery and an area for storing tires. The upholstery area and tire storage restrict the work area in two bays. The lead mechanic said that mechanics using these bays sometimes must work with their backs up against the tire or upholstery supplies.
KISD uses modular buildings. Most of the modular buildings measure 24 feet by 32 feet. The lead mechanic estimates a modular building would provide sufficient space for storing tires and housing the upholstery equipment. Modular buildings are available for industrial use.
Recommendation 106:
Erect a modular building to house upholstery repairs and store tires.
Transportation Services should erect a modular building to house the tire inventory and upholstery supplies. Moving these items will eliminate the cramped conditions in the maintenance work area and allow more freedom of movement, making the job of the mechanics easier and safer and allowing full utilization of the capacity of the five bays.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The director for Transportation Services and the assistant superintendent for Business Services recommend installing a modular building to the superintendent and school board. October 1999

2. The superintendent and school board approves the request to install a modular building. November 1999

3. The director for Purchasing Services solicits price quotes from qualified vendors. January 2000

4. The selected vendor installs the building. March 2000

5. The lead mechanic relocates tire storage and upholstery repair to the modular building. April 2000

FISCAL IMPACT
The supervisor for Maintenance Services said the last time KISD purchased a modular building about four years ago, it cost approximately $20,000. Assuming a rate of inflation of approximately 1.07, based on US Department of Labor, Bureau of Labor Statistics data, a 24-foot by 32-foot modular building would cost $21,400.

Recommendation 1999-2000 2000-2001 2001-2002 2002-2003 2003-2004

Erect a modular building to house upholstery repair and store tires ($21,400) $0 $0 $0 $0

FINDING
Most mechanics have years of experience in vehicle maintenance. Specific training for school bus maintenance is limited. Most mechanics have obtained school bus training on the job. The Texas Association for Pupil Transportation (TAPT) sponsors classes each summer. KISD usually sponsors two mechanics to attend the classes. The lead mechanic encourages on-site training by vendors that is provided without cost.
A national program to test the skills of school bus mechanics has been established by the National Institute for Automotive Service Excellence (ASE). A series of eight School Bus Technician tests cover such areas as body systems, diesel engines, the drive train, brakes, suspension and steering, and electrical systems. These exams are offered in May and November every year at centers across the country, including Fort Hood. One KISD skilled mechanic has (ASE) certification. Two additional mechanics have earned certification in specific steps toward ASE certification.
The ASE program is a testing-only program that certifies the knowledge and the skills a mechanic already possesses. It is not a training program. To maintain ASE certification, a mechanic needs both initial and continuing training. Central Texas College (CTC) has an Industrial Technology Department that offers training in automotive, diesel, and automotive repair to ASE requirements.
The Texas Association of School Bus Technicians (TASBT) has just announced a state certification program for school bus technician certification. Texas joins other states with certification program, including Colorado, Florida, Louisiana, Mississippi, and Hawaii. The TASBT offers four classifications: preventive maintenance inspector, technician specialist, technician, and master technician. The classifications require a technician to complete a maximum of from 14 hours to 78 hours of classroom and hands-on instruction. The curriculum includes several TAPT approved courses and the required TASBT or ASE equivalent certification test.
Training for a Commercial Driver's License (CDL) is not readily available. Driver positions also are hard to fill because of the requirement for a CDL.
Recommendation 107:
Establish cooperative business and mechanic training program with Fort Hood and Central Texas College.
Transportation Services also could coordinate with Central Texas College and Fort Hood to offer a CDL training class on a regular basis. A CDL program accessible to the community should help create a pool of qualified candidates for school bus drivers.
Killeen has 12 mechanics, which is not enough to justify an in-house training program. By coordinating with the Industrial Technology Department of CTC, a training course that leads to ASE certification could be developed for use by KISD, other school districts, Fort Hood personnel, Industrial Technology students at CTC, and the general public.
To encourage participation in the program, the district should pay all course fees for its mechanics and offer to pay a bonus for mechanics who successfully complete the certification.
IMPLEMENTATION STRATEGIES AND TIMELINE

1. The director for Transportation Services approaches representatives of CTC and Fort Hood to propose a cooperative training program. January 2000

2. The training specialist works with CTC and Fort Hood representatives to develop a proposed curriculum and budget. February 2000

3. The director for Transportation Services makes a recommendation for the cooperative training programs to the assistant superintendent for Business Services and the superintendent. March 2000

4. The superintendent recommends for approval the cooperative training program and budget to the school board. April 2000

FISCAL IMPACT
This recommendation could be implemented with existing resources.

Percentage of Regular Education Bus Fleet in Age Category
District	1 to 5 Years	5 to 10 Years	10 Years to April 1, 1977	Prior To April 1977
Temple	36%	64%	0%	0%
Ector County	36%	28%	64%	0%
Plano	22%	14%	36%	0%
Round Rock	21%	9%	69%	0%
Corpus Christi	0%	36%	44%	20%
Peer Average	19%	30%	43%	4%
Killeen	43%	22%	16%	19%

Year	Regular	Special Education	Total
1977	10	0	10
1979	10	0	10
1980	3	1	4
1983	2	2	4
1984	10	0	10
1985	3	4	7
1986	11	2	13
1987	8	2	10
1988	8	3	11
1990	6	11	17
1991	5	5	10
1992	17	13	30
1994	4	5	9
1995	25	1	26
1996	9	0	9
1997	12	3	15
1998	34	0	34
Total Fleet	177	52	229
Average Age in Years	8	9	8

1.	The lead mechanic should research and recommend a preventive maintenance program, including inspection forms and procedures for inspections.	October 1999
2.	The director for Transportation Services and the lead mechanic should modify the vehicle management information system to prompt preventive maintenance on a mileage or calendar basis.	November 1999
3.	The director for Transportation Services should terminate the use of mechanics to drive school bus routes.	January 2000

Bus Use	Regular Education	Special Education	Total Number of Buses
Total Buses	180	48	228
Buses in Daily Service	128*	34	162
Over-the-Road Coaches	14	0	14
Spare Buses	38	14	52
Spares as Percent of Daily Buses	30%	41%	32%

1.	The director for Transportation Services revises the fleet procurement plan.	January 2000
2.	The assistant superintendent for Business Services presents to the superintendent and school board the proposed fleet procurement plan for approval.	February 2000
3.	The spare buses in poorest condition are sold for salvage value at auction.	October 2000
4.	The director for Budgetary Services reflects the fleet procurement plan in the capital budget.	Fiscal Year 2000-2001

Recommendation	1999-2000	2000-2001	2001-2002	2002-2003	2003-2004
Develop and adopt a 15-year bus procurement and replacement program.	$0	($176,000)	($176,000)	($176,000)	($176,000)
Reduce the number of spare buses.	$0	$21,000	$0	$0	$0
Total Savings/Costs	$0	($154,000)	($176,000)	($176,000)	($176,000)

1.	The director for Transportation Services instructs fleet analyst to update the inventory for general service vehicles and develop criteria for preventive maintenance inspections.	January 2000
2.	The fleet analyst updates the inventory for general service vehicles to reflect current use (miles or hours) for the vehicles and establishes a schedule for preventive maintenance.	March 2000
3.	The fleet analyst generates reports for required preventive maintenance inspections and sends to the director for the responsible department.	May 2000
4.	The assistant superintendent for Business Services announces the responsibility of each director to see that general service vehicles are presented for inspection on time.	September 2000
5.	The lead mechanic implements assignments and procedures for mechanics to perform preventive maintenance on general service vehicles.	August 2000

1.	The director for Transportation Services and the assistant superintendent for Business Services recommend installing a modular building to the superintendent and school board.	October 1999
2.	The superintendent and school board approves the request to install a modular building.	November 1999
3.	The director for Purchasing Services solicits price quotes from qualified vendors.	January 2000
4.	The selected vendor installs the building.	March 2000
5.	The lead mechanic relocates tire storage and upholstery repair to the modular building.	April 2000

1.	The director for Transportation Services approaches representatives of CTC and Fort Hood to propose a cooperative training program.	January 2000
2.	The training specialist works with CTC and Fort Hood representatives to develop a proposed curriculum and budget.	February 2000
3.	The director for Transportation Services makes a recommendation for the cooperative training programs to the assistant superintendent for Business Services and the superintendent.	March 2000
4.	The superintendent recommends for approval the cooperative training program and budget to the school board.	April 2000