THE RESPONSES OF TAXI USERS To the draft report of the Victorian Taxi Industry Inquiry Report of the DARU/VCOSS Taxi Forum held Friday, 13 July 2012 About VCOSS The Victorian Council of Social Service (VCOSS) is the peak body of the social and community sector in Victoria. VCOSS works to ensure that all Victorians have access to and a fair share of the community’s resources and services, through advocating for the development of a sustainable, fair and equitable society. VCOSS members reflect a wide diversity, ranging from large charities, sector peak organisations, small community services, advocacy groups and individuals involved in social policy debates. About DARU DARU is a state-wide service established to resource the disability advocacy sector in Victoria. DARU resources the disability advocacy sector and disability advocates by: Making sure people with disabilities have their voices heard, can make decisions and participate fully in the community. Sending out weekly email updates with news relevant to advocates and people with disabilities, and maintaining a website with links to a range of resources. Developing a Code of Conduct so there are clear standards and principles for the sector to follow. Providing professional development and training opportunities to help disability advocates do the best possible job they can. DARU strives to ensure that all disability related courses taking place in TAFEs or universities contain information on advocacy. Supporting people with disabilities and their advocates to bring about positive changes in policy, legislation, practices and community awareness. Organising forums around the state to so that there is a coordinated approach to issues of concern. Providing links to broader social policy and generic advocacy. Offering a clearinghouse to support advocacy efforts. Providing a resource and equipment library for disability advocates. Victorian Council of Social Service Level 8, 128 Exhibition Street Melbourne, Victoria, 3000 +61 3 9235 1000 For inquiries: Llewellyn Reynders Sharon Granek Policy and Public Affairs Manager DARU Co-ordinator [email protected] [email protected] The responses of taxi users 1 Contents Introduction ............................................................................................................................................................. 3 1. Central booking service .............................................................................................................................. 5 2. Vehicle design and fittings .......................................................................................................................... 8 3. Affordability, fares and subsidies ............................................................................................................. 11 4. Role of taxi drivers ....................................................................................................................................... 13 5. Accountability, regulation and representation .................................................................................... 15 6. Rural and regional ...................................................................................................................................... 17 The responses of taxi users 2 Introduction This report documents the responses and feedback of taxi users to the draft report of the Victorian Taxi Industry Inquiry (the Inquiry). It is based on the information received at the DARU/VCOSS Taxi Forum, held on Friday, 13 July 2012 at the RACV club in Melbourne. The report builds upon an earlier report, ‘The Voices of Taxi Users’, held in conjunction with the Inquiry to allow for the input of taxi users, particularly those with disabilities. The forum began with an opening address by Professor Alan Fels AO, Chairperson of the Inquiry, followed by questions and a facilitated group discussion on the findings and recommendations of the Inquiry’s draft report. Group discussions were lead by staff members from the Taxi Industry Inquiry and VCOSS, as well as by volunteers from other organisations. Discussion notes were made by table facilitators, and collated to inform the content of this summary report. In addition, people were able to make individual comments on a handout accompanying the discussions, and the report also incorporates some e-mail input from people who were unable to attend. The summary provided in this report was generated by thematic analysis and synthesis of the comments received. It neither purports to represent the view of any particular person or organisation present at the Forum, nor would every attendee agree with every statement made in this document. Rather, the report seeks to provide a general perspective of the views of participants, and present their ideas in a logical format. The structure of the forum specifically asked questions about three key issues the Inquiry had identified as important for the feedback process: consumers’ responses to the recommendation of a central booking service for wheelchair accessible taxis (WATs); recommendations that would change the variety of vehicle designs available to consumers; and, the impacts of the proposed fare restructure. In addition to these issues, participants provided feedback on a further three general themes: the role, training and behaviour of taxi drivers; the impacts of accountability, regulation and representation on customer service; and, the role of taxis in rural and regional Victoria. This report will record the responses of participants on each of these issues in turn. Overall, forum participants generally welcomed the findings and recommendations. Participants welcomed the comprehensive, balanced nature of the report, and applauded a comprehensive and integrated reform package that went beyond the surface and addressed structural change in the industry. Some participants expressed concerns, including at some details of the package, or more broadly that the success of the recommendations would depend heavily on the government’s willingness to implement them, and how the implementation program was managed. The responses of taxi users 3 There was general support for the focus of the reform package on customers, and a specific comment that the opportunities for taxi users to provide input and feedback to the Inquiry were to be commended. The responses of taxi users 4 1. Central booking service Key messages 1.1 The central booking service (CBS) should have a critical role in improving service to people with disabilities, through improving availability, timeliness and customer service levels in the taxi industry for these users. 1.2 Key features of a CBS identified included: a service skilled in communicating with and understanding the needs of a diversity of taxi users a single contact phone number a variety of booking methods, including internet, SMS, and smartphone applications the capacity to retain customer information to avoid repeating information at each booking a role in monitoring and improving performance and service quality, including by providing feedback to customers. 1.3 There was concern that the CBS would be limited to WAT bookings in the Melbourne area. Participants called for broader coverage, including the possibility of operation beyond Melbourne and for a wider range of customers, including people with disabilities who do not require a WAT vehicle, Multi Purpose Taxi Program (MPTP) members and senior Victorians. 1.4 Participants were concerned that the CBS should not limit drivers’ ability to take bookings through alternative means, especially from individuals making direct bookings with known drivers. 1.5 Participants wanted the CBS to be independent and transparent. Several comments were received that the operator should not be linked to existing taxi operators or network service providers (NSPs), or the Taxi Directorate. A strong preference was demonstrated for utilising a not-for-profit organisation with good knowledge of disability issues and having significant consumer representation. Participants saw the CBS as valuable to the extent that it improves levels of service. Overall, people welcomed the service as a potentially useful improvement to the taxi service, depending on its implementation. For instance, one participant noted they would find the CBS useful as sometimes their regular drivers were not available. One discussion group, however, presented a negative view of the service, noting that previous attempts had failed, existing customer confidence is low, and submitting that poor service levels were primarily due to network concerns rather than booking systems. The responses of taxi users 5 Participants listed several problems they hoped a CBS would address. These included service availability, timeliness, dispatch of incorrect vehicles, and increased circulation of vehicles. As one participant commented, the CBS should eliminate the problem of people becoming stranded. Participants also listed a number of features they felt were important to the success of a CBS. This included a service that was skilled at communicating with people with disabilities, and had excellent knowledge of a diversity of needs and could provide advice about accommodating them. Most commonly, people asked for a service that would provide feedback on timeliness of the service and could guarantee that a requested service would arrive – and where a problem occurred would get in touch with the customer and inform them of the issue. Specific knowledge of a range of disabilities was also cited as important. Being able to understand the particular needs of a customer and communicating this to drivers was considered essential, such as the need to knock on the door to alert a customer to the taxi’s arrival, or providing assistance to carry shopping. In another example, one person identified knowledge of various mobility aids and the suitability of different vehicles to cater for them as an important service. A further suggestion was the service might provide brochures that could be carried in vehicles explaining the various options for access. Participants expressed support for there being a single phone number to make a booking. One example expressed exasperation at having to call different services in the hope of finding an available taxi. Similarly, being able to make bookings using different technologies was identified as important, such as requesting a service by SMS or smartphone application, particularly for people with hearing impairments or speech difficulties. People identified that the CBS should have the capability to store and retrieve passenger information so that people did not have to repeat their requirements at each booking. One discussion group, however, was concerned that retaining customer information might lead to drivers refusing bookings if a person’s requirements were too onerous. Further, participants believed the CBS should have a role in monitoring and reporting on performance. This included the ability to record drivers who refuse bookings, and to respond to failures to attend a booking. Similarly, one comment added that the CBS should be able to ensure that work was allocated to drivers who were experienced and were highly skilled. Several comments were made that the CBS should make regular reports on performance publicly available to demonstrate its progress in improving service levels. There was some concern about the extent of geographical coverage for the CBS. For instance, one group sought clarification that it would include the Frankston and Dandenong taxi zones, while another considered it should also include Geelong. A further comment pointed out that the CBS should be capable of booking trips to and from Melbourne, including from areas not in the metropolitan zone. Several participants concluded that the service should not solely be for WAT bookings, but should focus on a larger group of passengers that require additional attention or barriers to using the existing network service providers (NSPs). Suggestions were that the CBS be extended to cater for a The responses of taxi users 6 broader range of customers, including people with disabilities who did not require WATs (such as vision-impaired, hearing-impaired or deaf-blind passengers); all MPTP members; and to seniors. Participants were particularly concerned that the establishment of the CBS did not disrupt existing mechanisms of booking services. This was particularly the case for direct bookings with known drivers, which many people thought remained an important option, especially where they had built a rapport with particular drivers who understood their individual needs. One table also noted that drivers should continue to affiliate with existing NSP providers to maximise their sources of income. Another comment noted a current concern in a regional city where the NSP has recently instructed operators and drivers to cease accepting direct bookings, meaning passengers who had relied on this mechanism were fearful of using the NSP without any certainty that the driver would accommodate their requirements. It was strongly felt that the operator of the CBS should not be an existing NSP. Participants repeatedly stressed that the operator should be an independent and transparent organisation, and some further stipulated that it should operate at arm’s length from government. Participants believed that this structure would allow the service to focus on the requirements of passengers rather than the needs of taxi operators. A strong theme in responses was the operator should be a not-for-profit service, or a consortium of such services, preferably with existing skills and knowledge in meeting the needs of people with disabilities. Several comments revealed a desire for the CBS to have strong input from consumers, if not directly run by a consumer-lead organisation. Others similarly suggested that the organisation focus on recruiting appropriately skilled staff, including employing people with disabilities. One discussion group suggested that the service should be put out to an open public tender. The responses of taxi users 7 2. Vehicle design and fittings Key messages 2.1 There are two distinct approaches that consumers believe will improve accessible vehicle design, both of which have significant levels of support from participants: incorporating a variety of vehicles into the taxi fleet that meet differing accessibility needs of consumers, and intentionally producing a ‘universally accessible taxi’ which would progressively become the standard model for the entire taxi fleet. 2.2 Consumers identify a range of features that improve the accessibility of taxi vehicles, including: a means of easy entry to the vehicle for a range of users seating that is easy to reach and at the appropriate height access to the appropriate seatbelts and restraints for people to travel safely taxi meters that are highly visible and are capable of audibly announcing information smooth ride quality of vehicles a concern that security screens impede communication with drivers sufficient space, lighting and cleanliness. A key question that the Inquiry asked of consumers was their view of the proposal to relax design requirements for WATs so that a broader range of accessible taxis, such as London’s ‘black cabs’, could be introduced to Melbourne’s taxi fleet, which currently do not meet the current requirements of the Disability Standards for Accessible Public Transport (DSAPT). This would allow a broader range of vehicles to carry passengers with mobility aids, or require less expensive modification for some vehicles to carry mobility aids. Broadly, the consumer response generated two different ideas about how to improve accessibility. The first was generally supportive of the Inquiry’s proposal – allowing a broader range of vehicles that could provide different opportunities for accessible travel. As one comment put it: ‘variety is best’. Alternatively, others saw the opportunity for direct government involvement in producing a superior purpose-built accessible vehicle which would progress from the standard model of the taxi fleet, with the ‘universally designed taxi’ able to accommodate a wide variety of needs. Note that the two ideas need not be exclusive in that a universally designed vehicle might still be supplemented with other options (such as high occupancy vehicles) that could cater to needs not accommodated by the standard vehicle, such as the capacity to carry two wheelchairs or accommodate larger mobility aids. Those supportive of the first idea, of encouraging a wider range of options through relaxing accessibility requirements based on performance criteria rather than rigid standards, were generally supportive of the Inquiry’s proposal. Supporters welcomed the prospect of higher availability of accessible vehicles, more options for travel, and superior comfort and ride quality than is provided by some existing models (such as the Toyota Hiace, which some people disliked). The responses of taxi users 8 Some felt that trying to construct a ‘perfect’ vehicle was unlikely to succeed, and would likely come at considerable cost. Some support was pragmatic, stating that ‘anything that increases availability and flexibility while maintaining safety is beneficial’. Participants’ comments indicated that this group would not be concerned at relaxation of the DSAPT, so long as appropriate protections were in place to ensure access and safety. Conversely, those who supported the idea of a ‘universally-designed vehicle’ were somewhat sceptical of the impact of the Inquiry’s recommendation. This group generally looked towards the development of a ‘next-generation vehicle’, with one group commenting that the London ‘black cab’ is old technology. Similarly, there was concern that modified vehicles often had poor accessibility outcomes, such as poor ergonomics for passengers using wheelchairs. Supporters of this idea thought that a purpose-built vehicle could engage users in the design process, meet a wide variety of needs, and would be incorporated progressively into the fleet by setting targets for progress. This process might also involve looking at the inter-relationship of the DSAPT, Australian standards and the design of mobility aids to produce a more effective design framework. One person also suggested that the vehicle be locally manufactured. More generally (using either approach) there was significant support for moving towards a fully accessible taxi fleet. Participants were also keen to alert the Inquiry to the design features that required improvement in order to provide a more accessible service, or to form the basis of a universally-designed vehicle. At its core, participants stressed that vehicles need to be able to incorporate a wide variety of passengers and purposes. For instance, they need to be able to accommodate a variety of mobility aids safely and comfortably – not only a standard wheelchair. Some discussion pointed to the fact that part of the issue was the variety of mobility aids available, including some that had not been designed for carriage in a vehicle. Recent clarification by the Taxi Directorate of mobility aids suitable for carriage has caused much alarm among taxi users, as people were concerned that their aid would not allow them carriage. It was noted that the relevant standards committee has recently been in discussions about this problem. It was felt that vehicles needed better design to allow easier access and egress from the vehicle, particularly regarding the heights and sizes of doors, and the stability of and access to lifts. Similarly, the design, height, comfort and location of seating were considered important factors in easy access, with several people noting that seats in some WATs were very low. The provision of suitable seatbelts and restraints was also noted as essential. Regarding child access, there was approval of the Inquiry’s recommendation to require the provision of child restraints in taxis. There was significant approval for the installation of ‘talking taxi meters’ in vehicles. Several participants also drew attention to the poor visibility of the taxi meter for many passengers, including both its location in the vehicle and the small size of the display. This is particularly the case for passengers in wheelchairs, who cannot ride in the front of the vehicle. Additional suggestions included the ability for passengers to attach a braille machine for communication, whether an adaptation could be made to provide access for deaf-blind passengers, and whether taxi driver identification could be made larger for easier visibility. The responses of taxi users 9 Several other features were mentioned that could improve accessibility, including visibility from the vehicle, particularly so passengers in wheelchairs could see out to determine their location and route. Several people mentioned ride quality, noting that WATs often offer a ‘jolty’ ride, and that KIA models provided a more comfortable journey. Several people also mentioned that security screens in vehicles made communicating and transacting with drivers more difficult. Greater space and better lighting in taxis were also mentioned. A number of participants commented that the cleanliness of vehicles could be improved, perhaps by ensuring designs and fittings were easy-toclean. The responses of taxi users 10 3. Affordability, fares and subsidies Key messages 3.1 The impact of higher fares for short trips causes deep concern among many taxi users, although some are willing to bear the increase in return for lower fares on longer journeys and improved service. 3.2 Consumers propose a range of changes to fare structures that would improve the affordability of taxi services, or offset proposed increases in short fares. 3.3 Many consumers believe higher subsidy level for the MPTP is necessary to improve affordability, and support the extension of the program to seniors. 3.4 Participants continue to be deeply concerned about the affordability of taxi services, and see the issues and solutions including and going beyond fare structures. In responding to the proposed fare restructure, participants expressed strong concerns about the impact of increasing the cost of short trips. While some indicated a willingness to tolerate more expensive short trips if they were counterbalanced by cheaper fares for longer trips and better service (including eliminating short fare refusals), the majority of comments expressed concern. In particular, people suggested that passengers who experienced disadvantage or relied heavily on taxi services for mobility were likely to take a greater proportion of short trips, and therefore the impact of the change would be regressive. On other components of the Inquiry’s proposed fare restructure, participants welcomed the elimination of Tariff 3, with one group noting that it contributes to the incidence of fraud. A few people expressed concern that the increase of fares in ‘peak’ periods (that is, Friday and Saturday nights) could lead to reduced availability of WATs for people during these times, as they would be utilised by other users. One comment suggested that there should be additional incentives for drivers to prioritise disability work. A number of participants made suggestions they felt could improve the fare structure or offset any increase in fares for short trips. These included eliminating or reducing booking fees, reducing EFTPOS fees or replacing them with a flat fee, as well as removing the charges for use of tollways. One person queried whether the carbon tax would impact upon taxi fares. A further concern to participants was the current structure of the MPTP. Several discussion groups welcomed the proposal to extend the MPTP to Victorian seniors. However, the more pressing concern among participants was the MPTP subsidy was inadequate to make taxi travel affordable. In particular, a number of participants noted that other jurisdictions had a 75 per cent subsidy for taxi travel, and believed that Victoria should provide a similar level of subsidy in the MPTP. Similarly, there was some debate about the appropriateness of the cap, which some people considered to be too low, while others thought the subsidy rate was the higher priority. One discussion group The responses of taxi users 11 suggested that the ‘lifting fee’ paid to MPTP cardholders should be extended to an ‘assistance fee’, which included other people with disabilities who required additional assistance. One person raised the concern that interstate vouchers for the MPTP were problematic, with difficulty getting them accepted in other jurisdictions. Another person noted that there was still little clarity around the role of the NDIS in supporting accessible transport. Overall, respondents considered that taxi services continued to be expensive, especially for people who required frequent travel; for instance, to travel to work and back each day. There were other suggestions for improving travel affordability for disadvantaged groups, including a general decrease in the cost of taxi fares, increases in income support payments and increases in Centrelink mobility allowance. In contrast, one person commented that combining the MPTP and mobility allowance allowed a reasonable cost of travel compared with car ownership or full-fare paying passengers on public transport. The responses of taxi users 12 4. Role of taxi drivers Key messages 4.1 Participants welcomed the attention of the Inquiry to driver training and qualifications, however, some believed that the Inquiry’s draft recommendations could be improved. 4.2 Participants identified a range of areas of driver behaviour that required improvement to provide a more accessible service, including: improved disability awareness training, including skills in communicating with people with disabilities more comprehensive assistance to customers where required improved competency in securing mobility aids for transport better understanding of the needs of people travelling with assistance animals improved navigational skills and knowledge of local areas safe and professional driving skills a more courteous and responsive manner of interacting with customers 4.3 Participants supported improved pay, conditions and career structure for taxi drivers, noting this would have a positive effect on customer service. The attention paid to issues of driver quality and behaviour was warmly welcomed by participants. People wanted know that drivers would provide a professional, safe, courteous and understanding service in order to be more willing to use taxi services and queried whether the current curriculum and qualification was appropriate for the level of service and professionalism expected. One group suggested that the current qualification at Certificate II was too low, and thought that a Certificate IV would provide a higher level of service and an improved career path, such as being able to progress to other driving occupations such as patient transport or ambulance services. A different suggestion was that drivers should also hold a first aid certificate and a disability aid certificate. Another comment considered that a greater investment in training would yield a slower turnover of drivers, requiring fewer drivers to be trained as a result. It was also mentioned that people with disabilities should have a role in the provision of training. Participants provided significant feedback on the competencies and skills that required attention to improve service levels. Most commonly, people regarded disability awareness and communication skills as essential to provide a good service. This included a wide variety of disabilities and requirements, not only wheelchair access. For instance, representatives of the deafblind community felt that ‘lower incidence’ disabilities were not given the recognition they deserved. This included that disability awareness levels should be strengthened among the conventional taxi drivers, as many people with disabilities used conventional taxis, including people with vision impairments, hearing impairments, ambulant disabilities and deaf-blind users. Giving drivers different strategies for communicating was considered important, such as a more complete The responses of taxi users 13 relay of needs from the booking service, written communication and use of ‘communication boards’, as well as tactile methods such as tracing numerals on a person’s palm to communicate the fare. Competency in the English language was also raised as a concern. Another person suggested a more comprehensive disability awareness program across Victorian society, such as raising disability awareness in school. Forum participants generally regard the level and variability of assistance given by drivers as inadequate. Instances of drivers not alerting passengers of the taxi’s arrival by knocking on the front door were reported and ‘dumping’ luggage or purchases beside the vehicle for a person with a disability was considered unacceptable. Regarding WATs, there were continuing concerns that drivers did not have sufficient skills in securing mobility aids, including both wheelchairs with seated passengers and for mobility aids where the passenger was able to sit elsewhere. People reported having to instruct drivers to tie down mobility aids correctly, and that poorly secured mobility aids presented a danger to passengers. Participant also reported instances where assistance animals had been refused carriage, or inappropriately treated. One instance reported was that an assistance animal had been refused because it was not a typical ‘golden retriever’; while another instance reported the animal had been placed in the rear of the vehicle rather than with its owner. Participants commented that drivers needed a better understanding of navigation, journey planning and local area knowledge. While one person noted that use of GPS should improve navigation, others noted that GPS systems did not always produce the correct result. Several comments discussed instances where people had been dropped off at an incorrect location, or taxis had failed to arrive due to incorrect GPS navigation systems. Participants also raised concerns with driving skills of drivers, recalling instances where taxi speeds were unsafe and of drivers using mobile phones while driving. Several comments noted that drivers should be courteous and consider their passengers needs with respect. Participants noted instances where drivers did not identify themselves, failed to ask passengers about key trip details, or asked irrelevant questions such as their age or living arrangements. One person considered that passengers were often pressured to communicate within a short time-frame, rather than be allowed the dignity to take the required time to provide effective instructions. Participants generally welcomed the Inquiry’s initiatives to improve driver remuneration and working conditions, making the link between better pay and conditions and a better quality of service. A further comment considered that better career paths for drivers would assist in attracting and retaining good drivers. The responses of taxi users 14 5. Accountability, regulation and representation Key messages 5.1 Participants generally welcomed changes to increase vehicle numbers and encourage owner-drivers, although were concerned at the impact upon licence values. 5.2 Participants argued for a stronger regulatory framework that prioritised accountability and compliance to reduce fraud, respond to complaints and improve service quality. 5.3 Participants saw an increased role for people with disabilities in providing representation to government to identify concerns and improve services. Overall, taxi forum participants welcomed the regulatory changes proposed. Ultimately, respondents wanted a change in service quality and in public perceptions of the industry. One group suggested a change in livery might assist this transition. Regulatory change to increase the availability of licences and reduce costs for owner-drivers was generally welcomed. However, some people questioned the impact upon existing licence holders through loss of licence values, especially people who had purchased licences at high cost. Encouraging a greater proportion of owner-drivers in the taxi fleet was also welcome, although one person raised the concern that owner-drivers might be less willing to work unsocial hours, despite the requirements for transport at these times. Other related comments included that there had been insufficient attention to shared transport options, and that the needs of other vulnerable users had not been addressed, such as the role of taxis to transport people to dialysis treatment or for other health transport. Forum participants believed the regulator should have a greater capacity to enforce and monitor the industry to improve compliance. This was particularly the case in relation to cases of fraud and refusal of carriage. Participants noted instances of fraud, including overcharging by selecting incorrect tariffs and by choosing circuitous routes to increase the fare. One person commented that people with disabilities were particularly subject to this behaviour as drivers made (often incorrect) judgements about their capacity to realise or object. Similarly, people were concerned at the level of fare refusal, including for short fares, WAT bookings and refusal to carry assistance animals, and wanted these refusals monitored and reprimanded. Participants also wanted greater oversight of taxi availability, such as the ability to ensure drivers took available jobs and did not wait elsewhere for a potentially higher fare. A mention was also made of greater utilisation of spot checks as an enforcement mechanism. A related issue was the accountability of NSPs to ensure that booked services were actually provided. Participants welcomed the proposal that NSPs be held accountable for the failure of The responses of taxi users 15 taxis to arrive for bookings. At the same time, people required a stronger complaints mechanism that was more responsive and sought to provide feedback and enforcement where problems had occurred, including ensuring that drivers issued receipts. One suggestion was made that an ombudsman scheme was initiated to oversee complaints mechanisms in the industry. Finally, a number of participants believed that increased consultation and engagement of people with disabilities would help identify and lead to improvements in taxi service. Suggestions included increased use of advisory committees and public forums to highlight concerns. The responses of taxi users 16 6. Rural and regional Key message 6.1 Some participants raised continuing concerns about the availability and cost of taxi services in rural and regional Victoria. A number of participants felt that rural and regional services required additional improvements. In particular, the availability of taxis in rural and regional Victoria remains a significant concern. The cost of trips in rural areas was also mentioned, especially where people had to travel to a nearby town to access services. In these circumstances, one person considered that the MPTP still left people to pay very expensive fares for basic access. In addition, one comment mentioned that the Inquiry had not considered cross-border issues, and how the changes to the licensing system might affect the availability of services in boarder areas. The responses of taxi users 17
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