The Centers for Disease Control and Prevention reported that drug overdose deaths involving opioids exceeded 80,000 for the third consecutive year in 2023 (1). Nearly 70% of these overdose deaths involved synthetic opioids, primarily fentanyl (1). To address drug overdose mortality, in 2021, the U.S. Department of Health & Human Services (DHHS) released an Overdose Prevention Strategy, which aims to support four strategic priorities: primary prevention, harm reduction, evidence-based treatment, and recovery support (2). Within the evidence-based treatment strategies, two FDA-approved medications for opioid use disorder (MOUD), buprenorphine and methadone, are effective in reducing opioid use and overdose among individuals with opioid use disorder (OUD) (3). However, uptake of these life-saving medications is low with estimates suggesting that only around 25% of individuals with OUD receive MOUD (4,5). Moreover, retention in MOUD care is poor and discontinuing treatment increases the risk of relapse and overdose (6).
Access to transportation is one of the most widely cited barriers to engaging in healthcare, and lack of transportation is a key barrier to MOUD retention (7–15). People with chronic diseases, such as OUD, are disproportionately impacted by transportation barriers (16–19). Individuals with OUD are often required to visit opioid treatment providers daily or near daily, or physician offices multiple times a week, especially in the first few weeks of recovery, to setup their treatment plans and calibrate medication dosages (20). These requirements, while important to prevent relapse, exacerbate the transportation burdens many individuals face as a result of limited vehicle access/reliability or required travel time through public transit (21,22). Transportation barriers are especially common among rural populations, where fewer than 40% of MOUD providers are within walking distance of any form of public transportation and rural residents may spend five times longer traveling to a medical appointment compared to urban residents (21,23).
Efforts to address transportation challenges for people with OUD are poorly documented and therefore not well understood. In this study, we explore this critical knowledge gap by evaluating the costs and reach of a transportation assistance program for individuals with OUD that was implemented as part of the HEALing (Helping to End Addiction Long-term®) Communities Study (HCS). HCS was a multi-site study in four states (KY, OH, NY and MA) focused on implementing evidence-based practices (EBPs) to significantly reduce opioid-related overdose fatalities in 67 urban and rural counties (24). As part of this study, to address barriers to the uptake of and retention in MOUD treatment, EBPs were implemented to improve delivery of OUD services across counties. The overall HCS KY barrier relief initiative targeted numerous community needs, including transportation, housing and rental assistance, cell phones, healthcare and legal services. Because lack of access to affordable and reliable transportation was one barrier frequently reported, HCS KY designed and implemented a Transportation Assistance Program (TAP) to improve transportation options within collaborating partner agencies in healthcare and behavioral health settings (19). This paper first describes the HCS KY TAP and then provides results of the cost analysis of this program and the number of individuals impacted through measures of program reach.
Background
Determination of Transportation Needs and Community Resources
The implementation of the HCS KY TAP within MOUD partner agencies was led by HCS KY implementation facilitators. Partner agencies primarily consisted of Opioid Treatment Providers or Office-Based Opioid Treatment facilities within each county. These individuals conducted small group interviews with each partner agency to determine the specific obstacles faced by the populations served, including challenges to access and retention in MOUD treatment programs. During these interviews, sixty-six of the seventy-six employees (86.8%) from thirty agencies interviewed identified transportation as a key barrier to patient retention. After the interview, the implementation facilitator summarized key barriers to retention and forwarded interview transcripts to HCS KY leadership. Based on responses to these interviews, HCS KY leadership determined which types of assistance would be offered to each agency. From these recommendations, thirty partner agencies were identified to receive transportation barrier relief services through the HCS KY TAP (25).
Following the implementation facilitator interviews with partner organizations, the HCS KY team explored various methods to improve client transportation access. Public transportation and Medicaid transportation services were surveyed earlier during a landscape analysis conducted prior to the HCS intervention implementation, which helped to establish contacts and standard operating procedures for accessing public transportation passes or scheduling ride services. The HCS KY team also identified churches, local taxi services, and third-party ride service transportation vendors as potential options for local agencies. The HCS KY team prioritized pre-paid public transportation passes, fuel, and Uber gift cards to partner organizations due to difficulties in the payment process when working with local taxi services and ride service vendors.
Based on the interview findings and available local resources (which differed considerably among communities), a tiered funding model was developed for partner agencies. This model considered the number of clients served by each organization as a primary factor in determining financial allocation, with larger patient volumes considered reflective of greater transportation needs. Organizations were eligible for up to $1,000 per month if fewer than 100 MOUD patients were seen, $2,000 per month for 101-200 patients, and so on. These tiers were used for agencies in both rural and urban locations.
The implementation facilitator arranged meetings to discuss these services with partner agencies. HCS KY team members discussed agency contractual responsibilities and provided workflow information for orders and replenishments. Once an agency accepted the offer of transportation assistance, HCS KY established contracts with those agencies and relevant third parties to provide the agreed upon mix of transportation options. Implementation facilitators worked with organizations to design internal client protocols and organizational support for working with the HCS KY team. The HCS KY TAP team managed the logistics of organizing the purchase, delivery, data collection, and troubleshooting of transportation programs.
Transportation Program Design and Administration
The HCS KY TAP was composed of two mechanisms to provide funding for individuals in need. First, fuel cards, bus passes, rideshare reimbursement, and/or funds were issued to a partner agency to provide transportation directly to their clients (“partner agency model”). Second, recovery coaches from Voices of Hope – Lexington (VOH), trained individuals with lived experience, and care navigators from Bluegrass Care Navigators (BCN), certified social workers or nurses, who were placed at partner agencies through HCS KY, were able to request transportation-related funds to cover expenses that would support individuals in accessing or continuing treatment.
In the partner agency model, clinical staff working in partner organizations identified individuals experiencing transportation barriers and offered them support. Clients receiving MOUD retention services or initiating treatment (e.g., first appointment) at any of the partner agencies in the eight HCS KY counties were eligible to receive HCS KY TAP services. There were no client income limitations in place for transportation assistance requests. For those with access to a vehicle, support included fuel cards. For participants without a vehicle, solutions included public transportation passes (bus passes), transportation service financing (transportation service vendor invoicing and funding for vehicles leased by agency partners), and rides arranged by partner agencies (e.g., Uber gift cards).
For partner agencies, data collection and governance methods were employed to track transportation assistance and barrier relief efforts, including demographic breakdowns and service types provided. These data served two functions: collecting data on the reach of our transportation services and reporting to the university regarding the use and management of grant funds.
A Transportation Request Tracker was implemented using Smartsheet™ to collect data submitted by agencies for replenishments or reimbursement for transportation services provided to their clients and the cost of those services. This tracker collected data on the type of assistance being requested by the agency, quantity of cards/passes (if applicable), the request submission date, and whether it was approved by the HCS KY Team.
In the second model, recovery coaches and care navigators implementing retention-related services within MOUD partner agencies could access funding that addressed patients’ transportation needs as well as other social needs. Recovery coaches and care navigators were embedded in multiple MOUD partner agencies to provide patient recovery support and targeted assistance for those most in need of retention services. Transportation support included bus passes and fuel cards like the HCS KY TAP, but also included funds for acquiring driver’s licenses, car title expenses, purchasing non-motorized vehicles, and a new ride service program where clients could ride with recovery coaches to and from MOUD appointments, later referred to as direct delivery (26). To be eligible to receive assistance through the HCS KY TAP, clients had to be 18 years of age or older and receive services in one of the eight HCS KY counties or from an approved Opioid Treatment Provider in a nearby county.
The recovery coaches and care navigators implementing the transportation assistance program surveyed clients to collect additional information at the time of the transportation assistance request to identify barriers preventing or creating challenges for MOUD treatment program participation. Of the barriers identified, transportation was most commonly cited and was reported as a barrier for 813 of the 958 individuals completing the survey (84.9%). Recovery coach and care navigator partners fielded 1,362 requests for barrier relief services submitted by 958 individuals, of which 262 of the 958 (27.3%) individuals made 377 of the 1,362 (27.7%) requests for assistance to address transportation needs. Across all barriers among this sub-population, transportation requests were second only to housing-related needs. The most common transportation service sub-types were the need for vehicle repairs, bus passes, or a recovery coach driver to transport that individual directly to MOUD treatment.