APTA Comm Center Peer Review 2009

FINAL REPORT

OF THE

AMERICAN PUBLIC TRANSPORTATION ASSOCIATION

PEER REVIEW PANEL

FOR

PIERCE TRANSIT

Lakewood, WA

November 2009

A Service of theAmerican Public Transportation Association

FINAL REPORT

OF THE

AMERICAN PUBLIC TRANSPORTATION ASSOCIATION

PEER REVIEW PANEL

ON THE

COMMUNICATIONS CENTER

AT

PIERCE TRANSIT

PANEL MEMBERS:Olivia Jones

Christine KuennenMark Lonergan

Jeff HiottGreg Hull

Published by theAmerican Public Transportation Association

1666 K Street, NW, 11til FloorWashington, DC 20006William Millar, President

TABLE OF CONTENTS

I. INTRO DUCTI ON 1

II. OBSERVATIONS & RECOMMENDATIONS 3

III. CONCL USI 0 NS 8

APPENDIX 9

A - Peer Review RequestB - Peer Review AgendaC - Document List

APT A Peer Review ReportPierce Transit Communications Center/ Operations

I. INTRODUCTION

In August 2009, Ms. Lynne Griffith, Chief Executive Officer, Pierce Transit contactedthe American Public Transportation Association (APTA) to request a peer review of theagency's Communications Center and its operations. As Pierce Transit was in the midst ofaddressing a variety of challenges resulting from agency growth, and new communicationstechnology, it was felt that such a review could assist the agency to ensure that the transition tothe new Communications Center and Operations interface would be effected in a manner thatwould best support service delivery and emergency responsiveness.

Through discussions between APTA and Pierce Transit staff, it was determined thereview would be conducted November 2-5, 2009.

A panel of industry peers was assembled that provided expertise in bus transportation andspecifically in control operations. The peer review panel (panel) consisted of the followingtransit individuals.

Olivia JonesAssistant Transportation OfficerStar Tran I Capital Metropolitan Transit AuthorityAustin, TX

Christine KuennenTransit Control Center ManagerMetroMinneapolis, MN

Mark LonerganChief Operating OfficerSacramento Regional Transit AuthoritySacramento, CA

Jeff HiottSenior Program ManagerAPTA

Greg HullDirector, Security and Operations SupportAPTA

The panel convened in Lakewood, WA on November 5, 2009. Panel coordination andlogistical support was provided by APT A Staff Advisor Greg Hull. Mr. Hull also coordinatedpanel member input in the drafting of this peer review report. Dan Dzyacky, Director ofOperations provided agency liaison support.

APT A Peer Review ReportPierce Transit Communications Center! Operations

Methodology

The APTA peer review process is well established as a valuable resource to the industryfor assessing all aspects of transit operations and functions. The peer reviews are conducted on-site by highly experienced transit personnel who are selected on the basis of their subject matterexpertise. Through the benefits of on-site interviews of agency staff, review of relevantdocuments, and inspections the panel concludes its review with a summary of observations andrecommendations to the senior management team of the transit agency.

Scope of Report

The scope of this reVIew focused on evaluating the Communication Center and itsoperations. It was suggested the peer review team review staffing, roles & responsibilities,training & certification requirements, Union coordination, policies & procedures, dispatchprocedures, and interoperability in an effort. to identify opportunities for improvement inefficiency and effectiveness.

The panel conducted this peer review through operational observations, documentationreview, and a series of briefings and interviews were conducted with Pierce Transit staff. Theobservations and recommendations provided by this peer review are offered as an industryresource for consideration by Pierce Transit in support of the agency's goal to enhance theoperations of its Communications Center.

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II. FINDINGS AND RECOMMENDATIONS

Pierce Transit is commended for successful implementation and start-up of the ComputerAided Dispatch! Automatic Vehicle Locating system (CAD / AVL). The management team atPierce Transit is committed to engaging all employees to move the organization forward incontinual improvement.

1. STAFFING

It is the panel's view the number of Service Supervisors is high relative to theorganization's size. The panel also feels the number of manager / assistant manager positions inthe operational areas exceeds that found in comparable transit system.

The role of the Coordinator position in Operations was unclear to the panel. 'Theinstability and rotation of specialized Operations supervisory disciplines is detrimental toorganizational effectiveness.

A labor issue exists in considering separation of Operations supervisory disciplineswithin Service Supervisor functions, given the unionized status of those positions.

Recommendations

The panel suggests a review for possible efficiencies gained from reallocating mid-management staff, including the Coordinator.Pierce Transit should consider reallocating Service Supervisor assignments / shifts tosupport communication and dispatch disciplines.Pierce Transit is encouraged to develop a procedure that ensures proficiency in the reliefsupervisor role within the areas of communication and dispatch.

2. ROLES & RESPONSIBILITIES

It was noted by the panel that the roles and responsibilities of supervisory functions arenot well defined. There appears to be a need for separate job classifications. Pierce Transit staffconsensus is a need for role definition with the Communications Center, and between fieldsupervisors and security personnel.

The panel is not aware of any performance expectations or reviews for supervisors.There appears a lack of empowerment, with frequent requirements to contact management fordecisions. Management responsiveness to suggestions for improvement seems lacking.

There does not appear to be a strategy for the incremental approach to achieving fullfunctional capabilities of the CAD / AVL system, nor a strategy to manage the workload forCommunications Center staff.

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2. ROLES & RESPONSIBILITIES (continued)

Recommendations

The panel encourages Pierce Transit to conduct an in depth review and defining ofposition roles and responsibilities, to keep in line with operational needs and agencygoals.Pierce Transit should ensure that standardized performance measurements and reviewsare in place and applied for all supervisory and management positions.The panel suggests Pierce Transit define a clear separation of duties and responsibilitieswithin the specialized functions of the Communications Center, and between fieldsupervisors and security personnel.Pierce Transit management must ensure that supervisors are provided the authorityneeded for effective operations.The panel suggests initiation of a process to garner suggestions from all staff, and includea requirement for response and follow-up to staff suggestions / comments.The panel encourages development of an incremental strategy for implementation of theCAD / AVL system over the next 3-5 years.

3. TRAINING & CERTIFICATION REQUIREMENTS

The training provided for all supervisory positions does not appear adequate orconsistent, although the initial CAD / AVL training administered for operators was wellorganized.

There appears to be no in-service outreach on CAD / AVL for individual operators andother personnel also, there appears to be no system to assess skill levels and competencies.

Recommendations

The panel encourages Pierce Transit to reVIew the competencies and trainingrequirements for all supervisory positions. The agency should ensure that a formal,coordinated training program is developed for each supervisory function.Pierce Transit is encouraged to design and implement a follow-up refresher program forCAD / AVL training, for all relevant personnel.The panel also suggests development and implementation of an in-service trainingprogram for individual staff that require remedial CAD /AVL training.Pierce Transit should ensure that programs are based on actual, identified competenciesrequired when designing supervisory training programs.

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4. UNION REQUIREMENTS

It was observed that supervisors do not have the full capabilities needed for effectivesupervision (e.g. performance management), although these positions are required to direct theworkforce. The panel noted that supervisors are in the same bargaining unit as the positions theysupervise. This practice is not the norm in transit and presents barriers to effective supervision.

A comment on this topic was noted in the Staffing section of this report.

Recommendations

Pierce Transit should consider a review and identification of capabilities needed foreffective supervision by Service Supervisor positions, including performancemanagement.

5. POLICIES & PROCEDURES

The SOP structure within the Communications Center is not refined enough to addressthe required separation of duties and responsibilities within each supervisory discipline. It wasapparent to the panel there has not been an effective procedure in place for prioritizingemergencies or priority and routine calling procedures (e.g. PRTT, RTT) within the CAD / AVLsystem.

The panel observed that adequate training and reference materials are available to supportthe training requirements for CAD / AVL; however, there does not appear to be adequate clarityon expectations as to the equipment's use in daily functions. (See also the notes regardingincremental approach within the Training section of this report.)

A lack of strategy is apparent to effect data messaging versus voice communication. Theexisting canned messages are too numerous and too confusing, in particular for this stage of theCAD / AVL implementation.

The interpretation by Pierce Transit of the new state law pertaining to "hands free"communications has created significant operational problems with respect to communication.The panel noted there is not current means to coordinate and authorize security and policeresponse with the current Communications Center structure.

No current process for reporting status on dutyNextel usage confuses communication practices

This problem is viewed by the panel as a critical employee safety issue.

5


5. POLICIES & PROCEDURES (continued)

Recommendations

Pierce Transit is encouraged to seek legislative exemptions to the "hands free" law.Pierce Transit is also encouraged to maximize use of existing exemptions in the law foremergencies and accidents which are in the "hands free" legislation.The panel suggests development of SOPs to address required separation of duties andresponsibilities within each supervisory discipline.The panel also suggests development of procedures for the effective prioritizing ofemergency and priority and routine calling procedures (PRTT, RTT) in the CAD / AVLsystem.Pierce Transit should develop and communicate directions for Operators, to clearlyoutline the expectations of using the CAD / AVL equipment in daily functions.Pierce Transit is encouraged to refine and update the strategy for support and effectivetransi~ion to data messaging from reliance on voice communication.Pierce Transit is encouraged to review and reduce the current level of canned messagesused within the CAD / AVL system, to assist in creating a more user-friendly system.The panel strongly encourages Pierce Transit to incorporate security and policedispatching within a coordinated central Communication Center structure.

6. DISPATCH PROCEDURES

Where police functions exist within transit agency operations, it is common practice. tohave dedicated dispatching functions included in the agency's communication structure.Currently, the Pierce Transit police and security officers self-dispatch which the panel considersa critical employee safety issue.

Recommendations

Pierce Transit is encouraged to review the agency's Communications Center structureand determine how police / security functions can be included and coordinated withinthat structure effectively.The panel encourages Pierce Transit to also review how police and security officers cantransition from their current self-dispatch practice to one of being included within theCommunications Center.

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7. INTEROPERABILITY

It appears to the panel that Pierce Transit is aggressively pursuing strategies andfunctional relationships with local and regional emergency centers. The panel was made awareof the fact Pierce Transit has been and continues to be engaged in exercises to test theeffectiveness of coordinated emergency response and interoperable communications.

Recommendations

The panel encourages Pierce Transit to continue efforts towards strengthening functionalrelationships with local and regional emergency centers.Pierce Transit is also encouraged to continue the testing of emergency response andpreparedness capabilities through drills.

OTHER OBSERVATIONS

It was evident to the panel that all levels of personnel have a need for improved verticaland lateral communications. It was also noted that CAD I AVL presents a viable tool for aidingon time performance management. Pierce Transit may not have developed an effective strategyyet for utilizing the full capabilities of this system to address on time performance management.The panel encourages Pierce Transit to review technical staffing support for the CADI AVLsystems to ensure that at least one technician is dedicated solely to these activities.

Pierce Transit is encouraged to take advantage of existing programs to support skillstraining in the area of effective public safety communications. It appeared to the panel there is alack of adequate performance metrics. If such elements do exist, Pierce Transit staff are notaware of them.

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III. CONCLUSIONS

In conjunction with its strategy for the implementation of the new CommunicationsCenter and CADI AVL operations management system, Pierce Transit determined that it wouldbe in the best interest of the agency to engage industry peers to offer an external perspective forensuring a successful transition of this structure and technology. This initiative is clearlyindicative of a progressive and proactive transit agency.

As with the introduction of any new processes, the new Communications Center andCADIAVL technology requires the engagement of all stakeholders and challenges theorganization in re-visiting working relationships and support required to maximize the value ofthis new structure. The panel hopes the observations and recommendations provided through thispeer review proved to be of assistance to Pierce Transit in this transition and in theorganization's pursuit of operational excellence.

All the Pierce Transit staff encountered by the review panel regarded Pierce Transit asbeing a preferred place of employment. It is evident to the panel that the emphasis upon effectiveand quality service delivery is understood by Pierce personnel at all levels and provides theorganization with a mission will continue to strengthen the quality of services provided.

The panel stands available to clarify any questions with regard to any of its findings andrecommendations. Our appreciation is extended to all personnel for their professional andexcellent cooperation throughout the review. During all meetings and discussions, the staff ofPierce Transit provided the panel with comprehensive information that greatly assisted thereview process.

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APPENDIX


9

August 17, 2009

Mr. William Millar, PresidentAmerican Public Transportation Association1666 K Street NWWashington, D.C. 20006

Dear Mr. Millar:

Pierce Transit is requesting that APTA conduct a peer review of our Communications Center and its •operations. We recently completed installation of a Motorola 700MHz radio system with TMS CAD / AVL.A number of challenges have emerged as a result of Agency growth and technology insertions that areadversely affecting our service delivery and emergency responsiveness. As a result, we are requesting acomprehensive review of all aspects of our Communications Center be done. Areas of importance include,but may not be limited to, the following:

1. Staffing - Are levels of staffing adequate to provide support to a system of our size?2. Training and certification requirements - Do our technology insertions exceed the potentia.! of our

current employee population?3. Union requirements - Should the position of Communications Center Controller be a separate career

field in order to best meet the needs of our employees and our public?4. Policies and procedures - Do we have adequate training and reference materials available for our

employees to use in meeting the requirements of their positions and potential situations?5. Dispatch procedures - For the first time in our Agency's history, we are dispatching to Police and

Security Officers. Are we doing this in the most efficient manner possible?6. Interoperability - Are we capable of interfacing effectively with loca.! and regiona.! emergency

centers?7. Roles and Responsibilities - Do our Service Supervisors support and deliver the Comm Center's

direction and service solutions in the best possible manner? Are there efficiencies to be gained inthis area?

Members of my staff have spoken with Greg Hull about this peer review and we are aware of the PeerReview Guidelines. We are looking forward to the upcoming ADA Paratransit peer review. I realize thatscheduling a review of this type takes effort and time to coordinate but I cannot emphasize enough the.criticality of this review. If at all possible, we would like to target the early November 2009 timeframe for thisreview.

I have appointed Barb Hiatt as our lead in coordinating the schedules for this project. Her contactinformation is 253-983-3445 or [email protected].

3701 96th St SW Lakewood WA 98499-4431 - PO Box 99070 Lakewood WA 98496.0070 - 253.581.8080 - FAX 253.581.8075 - piercetransit.org

mailto:[email protected].

Page 2 of2

Please do not hesitate to contact me if you have any questions about this request. My direct number is 253-581-8010.

cc: Sam Desue, Vice President, Transportation ServicedDan Dzyacky, Director of Operations

APTA Peer Review- Communications CenterNovember 1-5, 2009 SCHEDULE

Appendix B

Focus of Peer Reviewhe primary focus of the APTA Peer Review will be on the supervisory functions of.he Control Center. In addition, a review of the functions of the operationsfield supervisors and particularly their interface with the acc. Areas ofimportance include, but may not be limited to, the following:

1. Staffing - Are levels of staffing adequate to provide support to a system ofour size?

2. Training and certification requirements - Do our technology insertionsexceed the potential of our current employee population?

3. Union requirements - Should the position of Communications Center Controllerbe a separate career field in order to best meet the needs of our employeesand our public?

4. Policies and procedures - Do we have adequate training and referencematerials available for our employees to use in meeting the requirements oftheir positions and potential situations?

5. Interoperability - Are we capable of interfacing effectively with local andregional emergency centers?

Below is the APTA ~eer Review Team's schedule. We should all approach theschedule with some flexibility in mind so that the APTA Peer Review Team orPierce Transit staff can make adjustments as needed.

ScheduleDate and Timeun, November 1

6:30 p.m.

Mon, November 28:30 to 9:00

a.m.

Location Attendees

Revised 10/13 1

Date and Time9:00 a.m. to

10:30 p.m.

10:30 a.m. to12:00 p.m.

12:00 to 1:00p.m.

1:00 to 2:30p.m.

2:30 to 3:00p.m.

3:00 to 5:00p.m.

Tues, November3

8:00 to 12:00p.m.

FocusOverview ofCommunicationsCenter and ServiceSupport

Tour ofCommunicationsCenter

LocationSt. HelensRoom andCommunicationsCenter

AttendeesDan Dzyacky, Director ofOperationsSylvia Daughtrey,Communications MgrRay Hawkins, Comm. Asst.ManagerRon Moyer, IT ProjectManagerKevin Bradley, ServiceSupport ManagerLaural Curry, ServiceSupport Asst. Manager

Revised 10/13 2

AttendeesIndividual InterviewsWith:Jay Peterson, CustomerServices MgrRick Falsetta, CustomerServices Asst. MgrJulie Clapham, CustomerService RepSHUTTLE, Customer ServiceRep

soIndividual InterviewsWith:Kelly Hayden, Director ofSched & Planning DanDzyacky, Director ofOperations

Dan Dzyacky, Director ofOperationsLiz Williams, Fixed RouteManagerEarl Fowlkes, DispatchAsst. Manager

LocationPossible atTDS, Commerce,orConf Rm 210

Conf Rm 210

DispatchOfficeand Conf Rm210

FocusInterviews wEmployees

Interviews wEmployees

Overview ofDispatch ServiceSupervisorFunctions

3:00 to 3:30p.m.

3:30 to 4:00p.m.

12:00 to 1:00p.m.

1:00 to 2:00p.m.

2:00 to 3:00p.m.

4:00 to 5:00p.m.

Date and Time10:30 a.m. to

12:00 p.m.

Wed, November 48:00 a.m. to

9:30 a.m.

Revised 10/13 3

Date and Time9:30 to 10:30

a.m.

10:30 a.m. to2:00 p.m.

2:00 to 5:00p.m.

Thurs, November5

FocusMaintenance

Interviews wEmployees

Panel Caucus

Location

Conf Rrn 210

AttendeesBIll S];hes, Director ofMaintenancestan Medeiros, LeadMechanicSteve Lamken, Lead Maint"MechanicIndividual InterviewsWith:Fred Nelson, Bus S&TManager1-2 Fixed Route AssistantManagersThree (3) TransitOperatorsDispatch ServiceSupervisorAPTA Peer Review Team

8:30 to 10:30 Exit Conferencea.m. P:PTA Peer Review Team

Lynne Griffith, CEOSam Desue, VPTransportation ServicesDan Dzyacky, Director ofOperationsSylvia Daughtrey,Communications MgrKevin Bradley, Servic~Support ManagerLiz Williams, Fixed RouteManagerRandy Hendrickson, Spec.Tran. ManagerRod Baker, Chief of PublicSafety

Revised 10/13 4

Appendix C

DOCUMENT LIST

1. OrbCAD CADIAVL Training Agendas

2. OrbCAD CADIAVL Training Practice Exercise

3. OrbCAD CAD/AVL Controller Training Manual

4. OrbCAD CAD/AVL Training Outlinesl Lesson Plans

5. OrbCAD CAD/AVL System- Executive & Management Training Slides

6. Accident report Form

7. Local Radio Log (9/29109)

8. ST Radio Log (9/29109)

9. Pierce Transit Rules 4320.25-.26; 4330.01, 4330.03-.04, 4330.09, 4330.12, 4330.15,

4330.20, 4330.22; 4340.01-.04, 4340.1 OA

10. Pierce Transit Controller Quick Reference Cards

11. Communication Center Emergency Guidelines Quick reference (10/7109)

12. Operating Manual- Communications Center (Rev 10109)

13. Astro XTS 2500 Portable Radio Training Tutorial

14. Motorola Radio Equipment Safety Manual

15. Nice (surveillance system) User Guide

16. Shuttle Communication Center Reference Guide

17. Shuttle Dispatcher Training Outline

18. Daily Outline- Special Duties for Supervisors Shift Areas

19. Pierce Transit Supervisors' Manual (10108)

20. Shuttle Passenger Assessment Form

21. Shuttle manifest Documentation Training

22. Shuttle Trip Observation Forml Site Investigation Requestl Special Event Reporting

Forml Waiting Area Checklist

Documents

APTA Comm Center Peer Review 2009