Improving Loading, Ticketing, and Community Relations for

ImprovingLoading,Ticketing,andCommunityRelationsfortheWashington

StateFerries’TriangleRoute

December2018(Revised12/20/18)

DanielJ.EvansSchoolofPublicPolicy&Governance

UniversityofWashington

AlisonCullen,StephenPage,ZaneGustafson,ZachKearl,EmilyScott,andShelbyBishopThomas

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ACKNOWLEDGEMENTSThisstudybenefitedfrominput,data,andassistancefrommanyindividualsandorganizations.WeareparticularlygratefultotheWashingtonStateLegislaturefortheopportunityandfundingtoconducttheproject.Inaddition,manymembersoftheFauntleroy,Southworth,andVashoncommunitiesprovidedvaluableinputandinformedperspectives.CommunityrepresentativesservingontheTriangleTaskForceandthelocalFerryAdvisoryCommitteesweregenerouswiththeirtimeandinsights.WealsothankthestaffandmanagementofWSFforbackgroundinformation,first-handinterviews,andtoursoftheTriangleRoute’sterminalsandvessels.AlisonCullen,Professor([email protected])StephenPage,AssociateProfessor([email protected])ZaneGustafsonZachKearlEmilyScottShelbyBishopThomas

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TABLEOFCONTENTS

ExecutiveSummary

Introduction 1Background 3 TheTriangleRoute 3 CommunityCharacteristicsandDescriptionProfiles 3 SystemCharacteristicsandDescription 6

StudyApproach 15 InformationAssemblyandDataExtraction 15 Criteria 16EvaluationandAssessment 22 OperationalAlternatives 22

• StatusQuo 23• ImplementGoodToGo!System 27 • ReinstituteBypassLane 30• ImproveWiFi/ScannerConnectivityandImplement

UpstreamMobileTransactions 32• ImproveTraining,Management,andRetentionof

TriangleRouteStaff 34• StaffaSecondTrafficOfficerDuringRushHour 35

EnvironmentalSustainability-ACross-cuttingCriterion 37 OverallAssessmentonaCriterion-by-CriterionBasis 38 System-wideConsiderations 39

Recommendations 51 TicketingandLoadingRecommendations 51 Cross-cuttingRecommendations 54

Conclusion 59

References vii

Appendices xii

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FiguresFigure1 StakeholderMap 4Figure2 DockDiagramatFauntleroyTerminal 7Figure3 MapofFauntleroyNeighborhoodandTerminal 9Figure4 PopulationofCommunitiesServedbytheTriangleRoute 10Figure5 BaseYearComparisonofTriangleRouteRidership

OverTime 11Figure6 RidershipChangefrom2012–2017 12Figure7 TotalRidershipOverTime,byLeg 12Figure8 ChangeinWestboundTravelPatternsfrom2006–2013 14Figure9 AssessmentofAlternativesforTicketingandLoading

OperationsfortheTriangleRoute 23Figure10 FullnessofBoatsDepartingFauntleroybyDepartureTime 24Figure11 Boxplots–ObservedAvailableSpacesRemainingon VesselsleavingFauntleroy 25Figure12 FareboxRecoveryRateforTriangleRoutefrom

FY2012–FY2017 27Figure13 IdealDwellTimeatFauntleroy 31Figure14 ObservedAvailableSpacesRemainingonVessels

LeavingFauntleroy 45Figure15 FullnessofBoatsDepartingFauntleroybyBoatPosition 46

TablesTable1 Criteria 17Table2 ProportionofVehiclesThatUseMulti-rideCards 32Table3 SummaryStatistics:ObservedAvailableSpacesfor

On-timeDepartures,LateDepartures,andAllDeparturesbetween1415and1905 xxii

Table4 SummaryStatistics:ObservedAvailableSpacesforOn-timeDepartures,LateDepartures,andAllDeparturesbetween1600and1905ONLY xxii

ImagesImage1 FauntleroyDock 6

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EXECUTIVESUMMARYTheFauntleroyferryterminalinWestSeattlehasoneoftheoldestandsmallestdocksintheWashingtonStateFerries(WSF)system.Amongitsconstraints,thedocklackscapacitytostageenoughvehiclestofilleventhesmallestvesselservingtheroute.VehiclesinexcessofcapacityqueueupstreamofthetollboothinaholdinglanethatrunsnorthalongFauntleroyWay.BecausetheFauntleroyterminalservestwodestinationsonWSF’sTriangleRoute,carsboundforVashonIslandandSouthworthareintermixedinthesingle-lanequeue,whichfurthercomplicatesticketingandloading.Thesephysicalconstraints,alongwiththerequirementthatallvehicles,pre-ticketedornot,passthroughoneoftwotollbooths,slowloadingandcontributetodelaysandoccasionaldifficultiesfillingvesselsduringpeaktravelperiods.WhiletheFauntleroydockisslatedforarebuildbeginningin2025,ferryridersandcommunitymembersviewtheStatusQuoasundesirableandunsustainableintheshortrun.The2018WashingtonStateLegislatureapprovedappropriationsfortheUniversityofWashington’sEvansSchoolofPublicPolicyandGovernancetoconductanindependentanalysisofoperationalalternativestoimproveticketingandloadingattheFauntleroyterminal.Inaddition,ourresearchteamdevelopedrecommendationsforimprovingcommunityengagement,whileWSFstaffworkedtoimprovesailingschedulesandtoimplementalong-rangeplanthatincludesupgradingthedockatFauntleroy.StudyApproachandResearchMethods:Ourapproachgaugespotentialgainsassociatedwithticketingandloadingchangesagainstaconsistentsetofcriteriafordefiningsuccess,whilerecognizingexistinginfrastructureandtechnologyconstraints.Wealsoexploretradeoffsandconstraintsrelatedtoengagingthecommunity.Theresearchwasinformedbypubliclyavailablequalitativeandquantitativeinformation;WSF’sresponsestoourdatarequests;targetedinterviewswithcommunitymembersandWSFstaff;attendanceatpublicmeetingsandopenhouses;anddirectobservationsatallthreeterminalsandonboatsservingtheroute.Combiningsystematicanalysisofavailableempiricaldatawithfieldobservationsandinterviews,thereportexaminesthechallengesandpossibilitiesforimprovingticketingandloadingatFauntleroyintheshortrun,whilesuggestingimplicationsforlong-runimprovementsaswell.Recommendations:OurresearchconfirmedthateasyfixestotheticketingandloadingchallengesatFauntleroyareelusiveintheshortrun.Weexaminednumerousalternativessuggestedbyothers,andthebarriersthathavethwartedtheirimplementationtodate.Ouranalysisrevealsthatsomeofthesealternativesholdpotentialtoimproveticketingandloading,andwouldbefeasiblewithadequatesupportandfunding.Specifically,thereportrecommendsimprovementsintechnology,training,publicengagement,anddatacollectionandanalysis,whilestressingthatsuccessfulandsustainablechangewillrequirenewresourcesandtargetedinformationtosupportimplementation:

EXECUTIVESUMMARY

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• Inthelongrun,theLegislatureshouldprovidefundingforWSFtorebuildtheFauntleroydockwiththecapacitytoincorporateWSDOT’sGoodToGo!tollingtechnologytocollectfares.TheWashingtonStateTransportationCommissionshouldsupportthischangebyfactoringGoodToGo!’sfare-collectioncapabilitiesandlimitationsintotheupcomingfarerestructuringeffort.

• Intheshortrun,theLegislatureshouldprovidefundingforWSFtoexperimentwithcombinationsofadditionalstaff,upgradestoWiFicoverage(ormobiledataaccess),anddevicestoenablemobileticketsalesandvalidationintheholdinglane.

• Tosupporttheimplementationoftheserecommendations,theLegislatureshouldprovidefundingforWSFto:

○ improvestafftraining,management,andretentionatFauntleroy;

○ expanddatacollectionandanalysistomeasuretheimpactofchangestoticketingandloadingatFauntleroyandtoimprovethequalityofinformationWSFreportspublicly;and

○ engagetheservedcommunitiesmoreconsistentlyandthroughawidervarietyofapproaches.

• TheLegislatureshouldreviseWSFperformancemeasurestobetterreflectservicedeliveryconsiderations.Suchachangecould1)allowcrewstobemoreresponsivetoreal-timeoperationalchallengesofticketingandloading,and2)increaseWSF’sabilitytocollectanddisseminatemeaningfulinformation,increasingtrustandimprovingcommunitysatisfaction.

Inconductingourresearch,weworkedcloselywithWSFstaffandstakeholdersinthecommunitiestheTriangleRouteserves.ThestaffweinterviewedatWSFheadquarters,onthedocks,andonboardtheferriesrecognizetheopportunitiesandchallengesofimprovingticketingandloadingatFauntleroy.Thecommunitymembersweinterviewed,includingmembersoftheTriangleTaskForceandFerryAdvisoryCommittees,recognizetheconstraintsandlimitationsWSFfacesandsuggestedavarietyofsolutions.Despitetheirdifferencesofperspectiveandopinions,everyonewespokewithisdedicatedtoimprovingoperationsatFauntleroyaswellastheTriangleRoutemoregenerally.AlthoughourprimaryaudienceistheWashingtonStateLegislature,whichcommissionedourstudy,thesefindingscanalsoinformtheworkofWSFstaffandmanagement,aswellasimproveunderstandingamongallstakeholders.

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INTRODUCTIONThe2018WashingtonStateLegislatureapprovedappropriationsfortheUniversityofWashington’sEvansSchoolofPublicPolicyandGovernancetoanalyzealternativestoimproveticketingandloadingproceduresatWashingtonStateFerries’FauntleroyterminalinWestSeattle,giventheconstraintsofthedock’ssize,configuration,anditsfunctionasadual-destinationterminal.TheFauntleroyterminalispartofathree-destinationroutecommonlyreferredtoastheTriangleRoute.TheFauntleroydockisoneofWashingtonStateFerries’(WSF)oldestandsmallestinoperation.1Overthepastfiveyears,WSFhasreplacedsmallervesselswithlargeronestoaddressgrowingdemandinthecommunitiesservedbytheroute,whichhasexposedkeyweaknessesintheTriangleRoute’soperations-especiallythoseattheFauntleroydock.OperationsattheFauntleroyterminalarecomplexcomparedtothoseatotherWSFterminals.Amongitsconstraints,thedockdoesnothavethecapacitytoholdenoughvehiclestofilleventhesmallestofthreevesselsontheroute.AdditionalvehiclesqueuebeyondthetollboothinaholdinglanethatrunsnorthupFauntleroyWay.BecauseFauntleroyservestwodestinations-VashonIslandandSouthworth-carsboundforVashonandSouthwortharemixedinthesingle-lanequeue,whichfurthercomplicatesanddelaysticketingandloading.Thesephysicalconstraints,alongwiththerequirementthatallvehicles,pre-ticketedornot,passthroughoneoftwotollbooths,slowsloading,contributingtodelaysandoccasionaldifficultyfillingvesselsduringpeaktravelperiods.Lengthywaittimescoupledwiththeperceptionthatboatsroutinelydepartlate,ordeparton-time,butwithavailablespacesdespitewaitingcars,havecreatedpalpabletensionbetweenferryriders,WSFemployeesandmanagement,andresidentsoftheFauntleroycommunityconcernedwithdisruptionstotheneighborhoodfromcarsqueuedonFauntleroyWay.Allpartiesacknowledgethatchangeisnecessary,andtheStatusQuo,undesirable.TofulfilltheLegislature’sdirective,thisstudyexplorespotentialoutcomesandconsequencesassociatedwithalternativeproceduresforticketingandloadingatFauntleroy,whileWSFstaffworktoimprovesailingschedulesandimplementalong-rangeplantoupgradethedockatFauntleroy.ConsistentwithourchargefromtheLegislature,thisreportfocusesonalternativeprocedurestoimproveticketingandloadingattheFauntleroyterminalrelativetocurrentoperations.WealsorecommendwaystoimproveunderstandingamongridersandcommunitystakeholdersoftheoperationalchallengesandopportunitiesthatWashingtonStateFerriesfacesoperatingtheTriangleRoute.

1Gutman,D.(2018,January24).Study:Half-emptyferriesleaveFauntleroyascarswaitinline.TheSeattleTimes.

INTRODUCTION

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Ourresearchwasinformedbypubliclyavailablequalitativeandquantitativeinformation;responsestodatarequests;targetedinterviewswithcommunitymembersandWSFstaff;attendanceatpublicmeetingsandopenhouses;anddirectobservationsatallthreeterminalsandonboatsservingtheroute.Indevelopingourfindings,weworkedcloselywithWSFstaffandstakeholdersinthecommunitiestheTriangleRouteserves.TheWSFstaffthatwespokewithatheadquarters,atthedocks,andonboardtheferriesrecognizetheopportunitiesandchallengesofimprovingticketingandloadingatFauntleroy.ThecommunitymemberswespokewithrecognizetheconstraintsfacingWSFandthestructurallimitationsofthecurrentdockandexpressedavarietyofideasforimprovement.Despitetheirdifferencesofperspectiveandopinions,everyonewespokewithisdedicatedtoimprovingticketingandloadingatFauntleroyaswellastheoveralloperationsoftheTriangleRoute.AlthoughtheprimaryaudienceforthisreportistheWashingtonStateLegislature,whichcommissionedthestudy,ourfindingscanalsoinformtheworkofWSFstaffandmanagementandimproveunderstandingamongtheTriangleRoutestakeholders.

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BACKGROUNDWSFisamongthelargestferryoperatorsintheworldandcarriesmorepassengersthananyferrysystemintheUnitedStates.2Twenty-threeferriesontenroutesservetwentydifferentportsofcallacrossthePugetSoundanditsinlandwaterways,includinganinternationalroutetoSidney,BritishColumbia(seeAppendixA,MapofWSFRoutes).Theferrysystemtransportedalmost25millionpassengersin2017withanaverageof450sailingseachday.3

I.TheTriangleRouteThetriple-destinationroutethatrunstoandfromFauntleroyinWestSeattle,thenorthendofVashonIsland,andSouthworthontheOlympicPeninsula,iscommonlyknownastheTriangleRoute.Inthecurrentscheduleconfiguration,threevesselsservetheroute,makingbothsingleanddualdestinationtripsbetweenthethreeterminals.TheTriangleRouteservesthreedistinctcommunitiesspreadacrosstwolegislativedistricts(District34andDistrict26)andgovernedbymultiplemunicipalauthorities(KitsapCounty,KingCounty,unincorporatedKingCounty,andtheCityofSeattle).WSFisrequiredtocollaboratewithseveralgoverningbodiesandlocal/regionaltransportationpartnerstocoordinateservice(seeFigure1:StakeholderMap).Thegeographic,cultural,andpoliticaldiversitysurroundingtheTriangleRoutegivesrisetomyriadperspectivesandpressuresontheoperationsoftheroute.Furthermore,therouteexhibitsuniquecharacteristicswithintheferrysystem:

1. RidershipontheSouthworth-Fauntleroyleggrewfasterin2017thanthatonotherlegsinthesystem;

2. theVashonroutehasthehighestpercentageofsingleoccupancyvehicles(SOVs)intheentiresystem;and

3. theFauntleroydockistheoldestandsmallestdockinthesystem.

II.CommunityCharacteristicsandDescriptionProfilesThefollowingcommunityprofilesareadaptedfromstakeholderinterviewsandfirst-handobservations.Commonthemesfromourinterviewsandobservationshavebeenaggregatedandsynthesized.

2Lester,J.T.(2015,March).A2015ComparisonofOperationalPerformance:WashingtonStateFerriestoFerryOperatorsWorldwide.3WashingtonStateDepartmentofTransportation.(2017,January).FY2016WSDOTFerriesDivisionPerformanceReport.

BACKGROUND

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VashonTheferriesarewidelyseenasalifelinethatconnectsVashonIslandresidentstonecessarygoodsandservices.Vashonstakeholdersprioritizefrequent,reliableservicewithboatsfilledefficientlytosupportmovementbetweenhome,work,andrecreation.Vashonhastwoferryterminals,oneonthenorthendthatprovidesservicetoandfromFauntleroyandSouthworth,andoneonthesouthendthatconnectstheislandtoPointDefiance,inTacoma.Vashonresidentsrelyontheferriestotransportfuel,food,constructionmaterials,employeesoflocalbusinesses,and,notably,peopleinneedofemergencymedicalcare.Overthelastnineyears,Vashonhashad,onaverage,68evacuationsand500medicalpriorityloadingseachyear,withthenumberofmedicalpriorityloadingsincreasingmorethan100%overthattime.4

SouthworthForSouthKitsapCountyresidents,theferriesprovideanimportantconnectiontohigherpayingjobsandurbanamenitiesintheSeattlemetroarea.StakeholdersfromSouthworth 4WashingtonStateFerriesSailingScheduleRevisionPublicMeeting,October23,2018.

Figure 1: Stakeholder Map

BACKGROUND

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prioritizeareliableferryschedulethataccommodatesthearea’scommutersandaccessibilitytoSeattleandotherdestinations.FerryridershipontheFauntleroytoSouthworthlegofthetriangleroutegrew8.2%from2016to2017,thehighestrateofgrowthinthesystem.5Ridershipforecastsexpectthisfastgrowthtocontinuethrough2040,whiletheothertwolegsarelikelytoseemoremodestgrowth.6TravelersgoingfromsouthernKitsapCountytoSeattlecaneithertakeoneoftwoferries(fromBremertontoSeattleorfromSouthworthtoFauntleroy)orusethehighwaysystemtocrosstheTacomaNarrowsBridgeandentertheI-5corridor.KitsapresidentscommutingtodowntownSeattlecanalsoridetheTriangleRouteasfootpassengersfromSouthworthtoVashonandtaketheKingCountyWaterTaxifromVashontodowntown.

FauntleroyInWestSeattle,thecoexistenceofaferryterminalandtheresidentialneighborhoodofFauntleroyisalong-standingfeatureoflife;immediatelyadjacenttothedockareresidentialhouses.TheFauntleroycommunityprioritizesminimizingsafetyriskscausedbyferrytrafficandcongestiononFauntleroyWay,aswellasprotectingtheirneighborhoodfromthreatstopropertyvalues,environmentaldegradation,orqualityoflife.ManyinFauntleroyexpressconcernthattheirneighborhoodissimplya“pass-through”forferryuserswhohavenovestedinterestinpreservingthecommunity.In1997,theFauntleroyCommunityAssociationandotherneighborhoodgroupssuccessfullylobbiedtheSeattleCityCounciltoadoptaresolutionrequestingthatWSF1)initiatenoexpansionoftheFauntleroyferrydock,and2)takeallpracticablestepstoreduceexistingferrytrafficandmitigatetheimpactsoftheferrydockonthesurroundingneighborhood.7(However,WSFisnotboundtoSeattleCityCouncilresolutions.8)ThoughthemajorityofFauntleroyresidentswetalkedtocaredmoreaboutthephysicalimpactoftheterminalandoperationsonthecommunitythanaboutthequalityofserviceforferryriders,hundredsofyouthfromWestSeattleandsurroundingareascommutetoVashonschoolsviatheTriangleRouteeveryweekdayduringtheschoolyear.

ImplicationsConflictinginterestsandperspectivesamongthethreeTriangleRoutecommunitiescomplicateWSF’sattemptstomakeappreciablechangestooperationsattheFauntleroyterminal.ThoughWSFandinterestedstakeholdershavemadeeffortstobringrepresentativesfromthethreecommunitiestogether,ourresearchuncoveredageneralperceptionthatwhenonecommunitybenefitsfromachangeinferryschedulesoroperations,anothercommunitynecessarilyloses.

5WashingtonStateFerries.(2017,January-2018,September).On-timePerformanceReports.6WashingtonStateFerries.(2018,September).2040LongRangePlan:DraftPlan,p.27.7CityofSeattle.(1997,April28).ResolutionNumber:29566.8OfficeoftheCityClerk.(2018).TypesofCouncilAction.

BACKGROUND

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III.SystemCharacteristicsandDescriptionFigure2isarepresentationofoperationsandsystemfeaturesattheFauntleroyFerryTerminal.PleaserefertothisdiagramasavisualaidaswedescribehowfeaturesoftheinfrastructureandWSFoperationscontributetoorconstraintheoverallticketingandloadingprocess.

A.Infrastructure

DockCapacity(Figure2,D)TheFauntleroydockistheoldestintheWSFsystem,andcurrentlymaintainsthesamefootprintaswhenitwasconstructedalmostsixtyyearsago.Thedockhasfourloadinglanes,withatotalcapacityofabout80vehicles(dependingonlength),andtwoexitlanesforunloadingferries,oneofwhichissometimesusedforstagingadditionalvehiclesafterthearrivingferryhasfinishedunloading.

Fleet(Figure2,B)

In2014,WSFbeganretiringitsaging90-vehiclevesselsthatservedtheTriangleRoute,replacingthemwithlarger124-vehicleIssaquah-classferries.Atthetimeofthisreport,twoofthethreevesselsontheTriangleRoutehavebeenreplaced,withthelastonetobereplacedin2019.WSFrecommendsthatadock’scapacityshouldequaloneandahalftimesthevehiclecapacityoftheferriesthatthedockserves;however,theFauntleroydock

Image 1: The Fauntleroy Dock (image from West Seattle Blog, March 19, 2018)

BACKGROUND

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Figure 2: Dock Diagram at Fauntleroy Terminal

Note: The diagram is not to scale and is meant only to help readers understand current Fauntleroy dock operations and procedures.

BACKGROUND

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lacksspacetoholdeventhe90-vehiclecapacityofthesmallestvesselservingit.9Mechanicalissuesareachronicproblemwithvesselsreachingtheendoftheirlifetime,causingdelaysandevencancellationsoftripsontheroute.InFY2018,approximately91.5%ofsailingswereontime,andover600oftheroughly40,000sailingsontheTriangleRoutewerecanceledduetotheuseofanemergencytwo-boatschedulewhenoneoftheroute’sthreevesselswastakenoutofservicetemporarilyforrepairs.Thesefiguresforon-timedeparturesandcancellationsbothunderperformedWSF’sannualgoalsforon-timeperformanceandservicereliability.10,11

HoldingLaneonFauntleroy(Figure2,H)

ThesingleholdinglanefunctionsasaparkinglaneforFauntleroyresidentsandvisitorsformostoftheday.SDOTprohibitsparkinginthelaneduringpeaktraveltimes,from2pm-7pm,toallowcarstoqueueforthenextferryandkeepthemainroadwayclearforlocaltraffic(seeFigure3:MapofFauntleroyNeighborhoodandTerminal).Duringthesehours,thelineofvehicleswaitingintheholdinglanecanstretchasmuchas1.5milesnorthupFauntleroyWay.Occasionally,parkedcarsintheholdinglaneblocktheferryqueueanddisrupttrafficflow.Duringpeaktraveltimes,acontractedofficerfromtheSeattlePoliceDepartment(SPD)helpsdirecttrafficattheterminal’sentrance.SometimestheofficerwalksalongtheholdinglanetopulloutVashon-orSouthworth-boundcarstofillasingledestinationboat.ThisprocedurecreatesunsafetrafficconditionsonFauntleroyWayandattheterminalentranceasdriversmergebackandforth.Neighborhoodresidentsandqueuedferryridersshareconcernabouttheheightenedriskoftrafficaccidents.

Walk-on(Foot)Passengers(Figure2,A-B)

Unlikeotherferryterminalsindenselydevelopedenvironments,theFauntleroyferryterminalhasnograde-separatedwalkwayforfootpassengers.FootpassengerswhodeparttheterminaltoconnecttoKingCountyMetrobusserviceonthefar(east)sideofFauntleroyWaymustcrossthestreetwhileferrytrafficunloadsandlocaltrafficfiltersthrough.Duringpeakhours,thecontractedSPDofficerfacilitatesthesepedestriancrossings.Whenlargegroupsoffootpassengersdisembark,thetimerequiredtounloadincreases,whichcandelaytheloadingofvehiclesontothenextsailingandholduplocaltrafficonFauntleroyWay.

B.WSFOperations

TicketingandLoadingProcedures(Figure2,C,D,E,F,andG)

TwoticketboothsarelocatedattheeastendoftheFauntleroydock(seeFigure2,E).Insummer2018,everycarstoppedatoneoftheticketboothstoeitherpurchaseaticketorto 9WashingtonStateFerries,personalcommunication,July2018.10WashingtonStateDepartmentofTransportation.(2018,March).GrayNotebook:QuarterlyperformanceanalysisofWSDOT'smultimodalsystemsandprograms,Edition69.11WashingtonStateFerries.(2017,January-2018,September).On-timePerformanceReports.

BACKGROUND

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validateaprepaidticket.Thespeedatwhichcarsareprocessedthroughtheboothsislimitedbytechnologyatthetollboothandthetransactionbetweencustomerandtollboothoperator.Becausethecapacityofthevesselsexceedsthecapacityofthedock,theprocessingspeedatthetollboothisalimitingfactorinloadingtimes.

FareStructure

FurthercomplicatingticketingisWSF’sfarestructure,whichfeaturesdozensofpossiblefaresforriders.Faresaredesignatedbydestination,modeoftransport(vehicle,walk-on,bicycle,motorcycle,vanpool),numberandageofpassengersinavehicle,vehiclelength,vehicleheight,andwhetherornottheriderqualifiesforsenior/disability/Medicarediscounts.12Occasionally,thetollboothattendantwillhavetomeasureavehicleorverifypassengers’agesinordertoapplythecorrectfare,addingextratimetotheticketing

12CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport,p.38.

Figure 3: Map of Fauntleroy Neighborhood and Terminal

BACKGROUND

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process.Travelersunfamiliarwiththefarestructureortheticketingandloadingprocesscanfurtherslowtheflowofvehicles.

Staffing

TwosetsofWSFstaffadministerticketingandloadingatFauntleroy:

1. Theterminalstaffhandleticketing,initiateloading,anddirectdisembarkingvehicles.Theyinclude:terminalsupervisor(Figure2,A),stagingemployees(C),tollboothoperators(E),terminaldirector(E),trafficsplitter(F),trafficofficer(G-H).

2. Thevesselstaffcompleteloadinganddirectvehiclesintospecificlanesonthevessel,operatethevesselbetweenports,andmanageunloadingfromtheboat.Theyinclude:ferrycaptain(B),able-bodiedseaman(B).

ForpositiondescriptionsseeAppendixB,DockDiagramTable.

C.PopulationandRidershipTrendsThePugetSoundregionhasexperiencedrapidpopulationgrowthinthepastdecade,althoughgrowthhasnotbeenuniformlydistributed(seeFigure4:PopulationofCommunitiesServedbytheTriangleRoute).SeattleandKitsapCounty’spopulationshavegrown20%and6.4%,respectively,since2010,whilethepopulationonVashonIslandhasdeclinedby7.3%.13,14,15

Figure 4: Population of Communities Served by the Triangle Route

13WAStateOfficeofFinancialManagement,ForecastingandResearchDivision(2018,July).2018PopulationTrends.14UnitedStatesCensusBureau.(2018).QuickFacts:VashonCDP,Washington.15DataUSA.(2018).Vashon,WA.

BACKGROUND

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Theregionhasalsoseenhousingpricesrisedramaticallyinrecentdecades,commensuratewithincreasingpopulationandeconomicgrowth.InKitsapCountyandotherareassurrounding Seattle,populationgrowthisdriveninpartbybuyersseekingaffordablehousingwithincommutingdistanceoftheSeattlecore.16,17ThesedynamicshaveaffectedridershipontheTriangleRouteoverthepastdecade.RidershipfellinthewakeoftheGreatRecessionbuthassteadilyincreasedastheeconomyrecoveredandpopulationincreased(seeFigure5:BaseYearComparisonofTriangleRouteRidershipOverTime).However,vehicleridershipinrecentyearshasnotreturnedtoitspeakin2003,whentheTriangleRoutetransportedover1,840,000vehiclesperyear.In2017,WSFtransported1,761,762vehiclesontheTriangleRoute,a5.2%increasefromthe1,674,168vehiclestransportedin2012.18

Figure 5: Base Year Comparison of Triangle Route Ridership Over Time

Inthepastfewyears,theKingCountyWaterTaxihastakensomecommutertrafficawayfromtheTriangleRoute.TheWaterTaxitransportswalk-onpassengersbetweenVashonanddowntownSeattleduringthemorningandafternoonrushhours.Thewatertaxiserved221,546passengerstoandfromVashonin2016,and224,023passengersin2017.19,20TravelbetweenFauntleroyandVashoncurrentlyconstitutesroughlytwo-thirdsofoverallvehicletrafficoutoftheFauntleroyterminal,ofwhichapproximately40%areSOVscarryingonlyadriver.21In2017,65.8%ofvehiclestransportedfromFauntleroywentto 16Rosenburg,M.(2017,June6).Noescapeforpriced-outSeattleites:Homepricessetrecordforhourdriveineverydirection.TheSeattleTimes.17Stanford,J.(2018,April6).KitsapCountyhomepricesreachfive-yearhigh.KitsapSun.18WashingtonStateFerries.(2002-2017).TrafficStatisticsRiderSegmentReport.19KingCounty.(2017)2016KingCountyWaterTaxiFactsandFigures.20KingCounty.(2018).2017KingCountyWaterTaxiFactsandFigures.21WashingtonStateFerries.(2013).WSF2013Origin-DestinationTravelSurveyReport.Page7-8.

BACKGROUND

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Figure 6: Ridership Change from 2012 – 2017

Note: The width of each arrow represents each leg's proportion of the total ridership.

Vashonand34.2%wenttoSouthworth.However,overthelastfiveyears,growthinridershipontheTriangleRouteisattributabletoincreaseddemandfromSouthworthcustomers.From2012to2017,Fauntleroy-Southworthridershipincreasedby88,170vehicles(18.6%);Southworth-Vashonincreasedby14,380vehicles(15.8%)(seeFigures6and7).TheSouthworthtoFauntleroyleghasthehighestrateofone-wayridershipontheTriangleRoute:ferryriderstake25%moretripstravelingeastboundthanwestboundasaresultoftheoptiontoreturnbyroad.22

Figure 7: Total Ridership Over Time, by Leg

22CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport,p.35,62.

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WSFstaffaretakingtheseridershipanddemographictrendsintoconsiderationwhenplanningfuturechangesinserviceontheTriangleRoute.TherecentincreaseinSouthworth’sshareofridershiptoandfromFauntleroyhasdirectimplicationsforticketingandloadingprocedures,becauseitischangingthemixofVashonandSouthworthcarswaitingonthedockandinthequeueonFauntleroyWay.

D.RiderOriginsandDestinationsToevaluatetrafficpatternsandidentifyopportunitiestoreducecongestionatFauntleroy,WSFconductsanorigin-destinationsurveyfortheTriangleRouteeverysevenyears.Thetwomostrecentsurveyswereconductedin2006and2013.Thesedataonriders’originsanddestinationsprovidefurthercontexttothechallengesofmanagingdemandatFauntleroybeyonddemographictrends.TheOrigin-DestinationsurveydataindicatethatvehicletraffictoandfromtheFauntleroyDockdoesnotcomefromanyoneregion(seeFigures8aand8b).Amongwestboundtravelers,thosedepartingfromdowntownSeattleconstituteonly14%ofVashon-boundridersand20%ofSouthworth-boundriders.Abouthalf(49%)ofVashon-boundridersoriginatefromdowntownSeattle,WestSeattle,Sea-Tac,andtheIndustrialArea;45%ofSouthworth-boundridersoriginatefromdowntown,WestSeattle,andtheIndustrialArea.23ThemajorityofridersdepartingfromFauntleroyoriginatefromotherareas,includingRenton,Bellevue,NorthSeattle,andSouthKingCounty.ThisheterogeneityamongridersmakesprovidingefficienttransportationconnectionsandalternativesforcustomersoftheTriangleRoute difficulttoplanandimplement.

23 Washington State Ferries. (2013). WSF 2013 Origin-Destination Travel Survey Report.

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Figure 8a: Fauntleroy - Vashon Afternoon Origin Patterns

Figure 8b: Fauntleroy - Southworth Afternoon Origin Patterns

Figure 8: Change in Westbound Travel Patterns from 2006 to 2013

These plots depict weekday afternoon traffic departing from Fauntleroy dock to Vashon (panel 8a) and Southworth (panel 8b). The proportion of riders leaving downtown Seattle for both Southworth and Vashon decreased between 2006 and 2013, while the proportion originating in West Seattle and bound for these destinations increased.

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STUDYAPPROACHThisstudyanalyzesandcomparesalternativesforimprovementsinticketingandloadingattheFauntleroyterminalgivenitsconstraints(whichincludethedock’ssize,configuration,anditsfunctionasadual-destinationterminalwithboatsboundforVashonIslandandSouthworth).Wealsoexplorewaystoimproveriders’andcommunitystakeholders’understandingoftheoperationalchallengesofticketingandloadingatFauntleroydock.Thestudywasdesignedandexecutedinphases:

• Assembleinformationandextractdata

• Developcriteria

• Identifyoperationalalternatives

• Comparealternativesbasedoncriteriaandexploretradeoffs

• Considerimplicationsofrelaxingvariousconstraints

• Identifysystem-wideconsiderationsandstructureswithimplicationsforticketingandloading

I.InformationAssemblyandDataExtractionThisstudy,andthedevelopmentofticketingandloadingalternativesandthecriteriabywhichtheyarecompared,wasinformedbyqualitativeandquantitativeinformationobtainedthroughpublicsourcesanddatarequests;interviewsandconsultations;directobservationsarounddocksandterminals;attendanceatpublicmeetingsandopenhouses;andreviewofpriorstudies,publicdocumentsandothermaterials.OurinformationbaseisdescribedbelowwithadditionaldetailprovidedinAppendixC,InformationAssembly.

A.On-siteObservationsandTargetedCommunication/ConsultationTheresearchteamobservedandconsulteddockcrewandWSFstaffregardingterminalandferryoperationsonfourseparateoccasions.Fortwoofthesevisits,membersoftheresearchteamgatheredindependentobservationsandontheotheroccasionstheywereaccompaniedbyWSFstaff.AppendixC,InformationAssembly,enumeratesthefocusofeachvisit.

B.KeyInformantInterviewsandConsultationwithWSFAdministrativeStaffInterviewswithWSFsenioradministrativestaffprovidedhistoricalcontextandinformationaboutcurrentissuesfortheferrysystemasawhole,theTriangleRoute,andFauntleroydockoperations.ThestaffdescribedthechallengesandconstraintsfacingimplementationofeachalternativeatFauntleroy.

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C.AttendanceatTriangleTaskForceandLongRangePlanPublicMeetingsTheTriangleTaskForce(TTF)convenedmonthlyoverthesummerof2018todeliberateonproposedschedulechangesforSummer2019.TheresearchteamattendedthesemeetingsinordertoobserveWSFcommunityengagementefforts.Ononeoccasion,July19,2018,theresearchteamledanactivitywithtaskforcememberstogleaninsightonthefavorabilityofspecificticketingandloadingalternatives,aswellastolearnthecriteriaforoptimalperformanceasseenfromthecommunityperspective.

D.InterviewswithCommunityRepresentativesDuringJulyandAugustof2018,theresearchteaminterviewedfourteenindividualswhoarepartoftheTTFand/oroneoftheroute’sthreeFerryAdvisoryCommittees(FAC)(seeAppendixD,InterviewProtocol).Theinterviewshadtwopurposes:1)tobetterunderstandtherelationshipbetweenWSFandtheTriangleRoutecommunities,and2)togainhistoricalandtechnicalperspectiveontherelativesuccessesandfailuresofpastattemptstoaddressthechallengeswithticketingandloadingattheFauntleroyterminal.WefoundthatTTFandFACmembershaveabroadanddeepunderstandingofthechallengesontheroute,andthateachofthethreecommunitiesrepresentedhasuniqueandwell-definedpriorities(seeCommunityProfilessectiononpages3-5).

E.KeyDocuments,Reports,andDataSourcesOurstudywasinformedbyreports,datasources,memos,anddirectivesproducedbyWashingtonStateagenciesandindependentparties.ThesedocumentsarelistedinAppendixC,InformationAssembly.Wedidnothavefullaccesstotheunderlyingdataforeveryreport,and,evenwheredatawereaccessible,therewerelimitationsrelatedtosamplingandmeasurementapproaches.Inalatersection,DataLandscape,onpages48-50,wehighlightdatalimitations,aswellasneedsandopportunitiesforadditionaldatacollectionthatwouldenableimprovedanalysisofspecificchangestoticketingandloadingprocessesandtheirexpectedimpactatFauntleroy.

II.CriteriaToevaluateandcomparealternativestoimproveticketingandloadingontheTriangleRoutethisstudyappliedatargetedsetofcriteria(seeTable1:Criteria).Thedevelopmentofcriteriaforthisanalysiswasinformedandshapedby1)ourchargefromtheLegislature,2)WSF’sexistingperformancemeasureslaidoutinstatedirectives,and3)themanyapproaches,observationsandsourcesdetailedintheabovesection,InformationAssemblyandDataExtraction,onpages15-16.AsetofclearandconsistentcriteriaagainstwhichtoassesstherelativedesirabilityofalternativestotheStatusQuoisessentialforsystematicanalysis.Developingsuchcriteriaischallenging,however,sincereasonablepeoplemayviewtheimportanceofvariouscriteriadifferently,andevenhavedifferentexpectationsaboutwhatimprovementsmightberealizedalongspecificmarginsinimplementingonealternativeoranother.

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Table 1: Criteria

CommunitySatisfaction

ThiscriterioncapturesthepublicperceptionofWSFanditsabilitytoeffectivelyandtransparentlycommunicatewithridersandthecommunityatlarge.Itscomponentpartsarecustomersatisfaction,customerunderstandingofprocess,andtherelationshipbetweenWSFandcommunities.

AbilitytoMeetDemand

Thiscriterioncapturesoperationalefficiency.Componentpartsareshorterlines,usedcapacityonboats,timespentgettingthroughthetollbooth,andon-timeperformance.

EquityThiscriterionisdefinedbyfairnessandaccesstoserviceacrossconstituentcommunitiesproportionatetodemand.Componentpartsareequityoffares,service,andwaittimes.

Safety

Thiscriterionincludesconcernforpotentialriskofinjurytoferrypassengers,WSFemployees,neighborhoodresidentsandvehicleoccupantsontheFauntleroydockandneighboringroadwaysimpactedbyferrytraffic,aswellasphysicalandsecurityconcernsforinfrastructure,watercraft,andmotorvehicles.

FareboxRecovery

ThiscriterionrepresentscostcontainmentandrevenueconsiderationsforWSF.Componentpartsareimpactonrevenue,upfrontcost,andongoingcost.

EnvironmentalSustainability

Thiscriterionencompassescarbonfootprintrelatedtovehicletraffic,vesselspeeds,publictransitconnectionsandotherelements.Alloftheparticularsofticketingandloadingareexpectedtoimpactenvironmentalsustainability;wediscussthiscriterionholisticallyinsectiononpages37-38,lookingacrossallofthealternativesweconsidered.

Todevelopcriteriaforassessingticketingandloadingalternatives,wefirstexaminedWashingtonStateDepartmentofTransportation(WSDOT)systempolicygoalsaslaidoutinRCW47.04.280:

a) Economicvitalityb) Preservationc) Safetyd) Mobilitye) Environmentf) Stewardship

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WSDOT'ssixgoalsformthebasisfortheWSFperformancemeasures,whichappearinRCW47.64.360.Since2011,RCW47.64.360hasmandatedthatWSFcompleteamanagementandaccountabilityperformancereportassessingitsperformanceon17performancemeasuresdeterminedbycomparisonwithfinaldatafrom2009-2011.Theyincludemeasuresofsafetyperformance,costcontainment,capitalprogrameffectiveness,andserviceeffectiveness(seeAppendixE,PerformanceMeasures).WeinterviewedWSFstaffatalllevelsabouttheirinterpretationsandprioritiesfortheseperformancemeasures,aswellastheconflictsandtradeoffsthatsomeofthempresent.WhileWSFterminalstaff,vesselstaff,andmanagementemphasizedslightlydifferentprioritiesamongthemeasures,theonesweheardaboutmostpertainedtoon-timedepartures,theabilitytomeetdemand,andsafetyontheTriangleRoute.ToidentifythemostprevalentprioritiesamongTriangleRoutecustomersandcommunities,theresearchteaminterviewedcommunityrepresentativesandfrontlinestaff,attendedpublicmeetings,andreviewedpubliccommentsfromtheWSTCFROGsurveys.Theperformancemeasuresmostcommonlycitedininterviewswerereliabilityandabilitytomeetdemand(fillingboatstocapacityandon-timeperformance),althoughmanyothermeasureswereraisedatleastonce(seeAppendixF,CriteriaPresentedatTTFMeeting).InJuly2018,theresearchteamledbreakoutgroupsonpotentialcriteriawithTriangleTaskForcemembers,duringwhichTTFmemberswereshownaninitiallistofcriteriaandwereaskedtoidentifythosethatweremostimportanttothemasindividualsandtotheircommunities.TTFmemberswerealsoaskedtosuggestadditionalcandidatecriteriathattheyfoundtobemissing.Thepurposeoftheactivitywastogleancommunity-wideperspectiveonWSFperformanceandhowitshouldbemeasured.Thisactivitygeneratedadditionalperformancemeasuresrelevanttothecommunities,specificallyequityofserviceandfares,aswellas,environmentalandsafetyconcerns.ItisimportanttonotetheheterogeneousnatureofpublicperceptionofWSFperformance,aswellashowtoassessit,bothbetweenandwithineachcommunity.Inordertoevaluateticketingandloadingalternativeseffectively,ourresearchteamdistilledthemanymetrics,measures,andprioritiesweheardaboutrelativetoWSFperformanceintoafocusedsetofcriteria.Theanalysisbelowdrawsonthedataextractionandinformationassemblydescribedabove,aswellasdeliberationandjudgment.Aftersubstantialdiscussionabouthowtobestreflectvariationacrossstakeholders,wearrivedatthesetofsixprincipalcriteriaenumeratedinTable1:Criteria,whichweapplytoassessandcomparetheticketingandloadingalternatives.Eachcriterionencompassesanumberofsupportingobjectivesthatcanbemeasuredorinductivelyreasonedsubjecttoavailabledata.Asisthecasewiththe17performancemeasuresonwhichWSFiscurrentlyevaluated,therearetradeoffsamongcriteria,andnoteverycriterioncanbesimultaneouslysatisfiedbyanyonealternative.Further,alternativesriseorfallinimportancedependingonanindividualstakeholder’sperspectiveandpriorities.Thesixcriteriareflectthemanyperspectivesexpressedduringourteam’sdocumentreviews,interviews,andfieldobservations,makingthemarobustsetfortheassessmentofticketingandloadingalternativesthatfollows.Takentogether,thecriteriareflectWSF’s

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centralmission,vision,andcommitmentstoitsstakeholders.24Theyalsocapturestate-levelinitiativesandprioritiessuchasenvironmentalsustainabilityandthecarbonfootprintofstateoperations.Thefollowingparagraphslaythegroundworkforapplyingthecriteriatoticketingandloadingalternatives.WedescribeeachcriterionaswellastheTriangleRoute’scurrentchallengesandopportunitiesinfulfillingthem.

A.CommunitySatisfactionCommunitysatisfactionisavitalconsiderationforanypublicservice.InoperatingtheTriangleRoute,WSFseekstosatisfynotonlyregularandoccasionalferrypassengers,butalsotheresidentsofthethreecommunitiestherouteserves.Satisfyingcommunitymembersrequirespredictableanduser-friendlyferryservice,courteousandprofessionalinteractionsbetweenpassengersandstaff,transparentinformationandexpectationmanagementaboutdelaysorchangestoservice,andthemitigationofnegativeimpactsofservicedelaysorchangesonpassengersaswellascommunityresidentswhoseneighborhoodisaffectedbyferrytraffic.TheTriangleRoutecurrentlyhasthehighestproportionofdissatisfiedcustomersofanyroutethatWSFoperates.25Communitysatisfactionwithferryservicedependssubstantiallyonthequalityandreliabilityofsailingsandtheexperienceofpassengersduringticketingandloading.ThedailyinteractionsbetweenWSFdockandterminalstaffandferryridersthereforehaveaconsiderableimpactoncommunitysatisfaction.ThedesignofthedockandthecurrentticketingandloadingproceduresatFauntleroyneverthelesscreatesubstantialchallengesforthestaffworkingontheferries,attheterminal,andonthedock.Thebehavioroftheoccasionalfrustratedpassengeronlyexacerbatesthesechallenges.BecausetheFauntleroydockprovidesagatewaytoandfromthebulkofthemetropolitanSeattleregionforVashonandSouthworthdrivers,itwouldbeapotentialflashpointforthedifferentneeds,concerns,andsensibilitiesofthedriversfromthosetwocommunitiesevenifitoperatedatpeakefficiency.ThecurrentchallengesofticketingandloadingatFauntleroyexacerbatethetensionsbetweenthepreferencesofthedriversfromthosetwocommunities.Inaddition,andequallyimportant,thequeuingandmaneuveringofcarswaitingtoenterthedockonFauntleroyWaycreateadditionaltrafficanddisruptionfornearbyWestSeattleresidents.

B.AbilitytoMeetDemandAbilitytomeetdemandisacorecriterionforperformanceforanytransitsystem.OntheTriangleRoute,WSFseekstomeetdemandbyprovidingadequatecapacitytocarrythosewhoneedferrytransit,whileavoidinganoversupplyofservice(whichresultsinunfilledboats).Todoso,WSFmustrespondtofluctuationsofdemandthroughouttheday,the

24WashingtonStateDepartmentofTransportation.(2011,June18).WSFMission,Vision,Commitments.25WashingtonStateTransportationCommission.(2017).WSF2017WinterPerformanceFinalReport,p.11.

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seasonandtheyear.Inshort,thiscriterionrepresentsoperationalefficiency,becauseitrequiresappropriatefrequencyofsailingwithwell-calibrateddwelltimes,suchthatticketingandloadingoperateefficiently-minimizingthetimepassengersspendwaitinginlineandnavigatingthetollingsystem.MeetingdemandhasbeenachallengeontheTriangleRouteinrecentyearsasoutlinedinPopulationandRidershipTrendsonpages10-13.Insufficientdwelltimes(theperiodsoftimeduringwhichavesselisdocked)cancreateconcernabouttradeoffsbetweenfillingavailablespaceonboatsanddepartingontimeduringpeakhours,despiteadditionalvehicleswaitingintheholdinglane.Overtime,trendsinpopulationandridershiphaveonlyexacerbatedthesituation,whilepassengersandneighborhoodresidentswhofeelincreasinglyill-servedandfrustratedhavecalledonWSFtomodifyloadingproceduresortochangethescheduletobettermeetpresentdemand.AbilitytomeetdemandreflectstheTriangleRoute’sabilitytocarrythosewhowishtotravelwithreasonablefrequency,tominimizewaittimes,andtoloadvehiclesefficientlywithinavailabledwelltimestomaintainapredictableschedule.

C.EquityToachieveequityistodeliverservicetoallcustomersfairly,inawaythatmeetstheneedsofeachindividualorcommunity.EachofthethreeTriangleRoutecommunitieshasaslightlydifferentdefinitionoffairandequitableferryservice(seeCommunityProfilessectiononpages3-5)whichhasledtotensionsbetweenWSFandeachconstituentcommunity,aswellasamongthecommunitiesthemselves.Inthisreport,weuseequityasacriteriontomeasureoperationalalternativesattheFauntleroyFerryTerminalfromseveraldifferentperspectives;equityinservice,fares,andwaittimes.Forexample,analternativethatscoreshighinequitableservicewouldoffercomparablesailingstoeachdestinationcommunitybasedonthepercentageoftravelersboundforeachcommunity.

D.SafetySafetyisamulti-facetedcriterioncharacterizedbyconsiderationofriskonthewaterandontheland.Itincludesthemanagementofpotentialphysicalharmtopeople,motorvehicles,ferryboats,smallcraft,docksandneighborhoodinfrastructure.Withthenumberofpeople,vehiclesandvesselsthatmustmoveefficientlythroughlimitedspacesduringqueuing,loading,passage,andunloading,maintainingsafetyontheTriangleRouteisahighlycomplexundertaking.WSFstaffdeemsafetytheirtoppriorityforsailings,acknowledgingthatoperatinglargecarferriesonopenwaterinalltypesofweather,andinthepresenceofabroadrangeofsmallcraft,posesnumeroussafetychallengesforwhichstaffplanandtakeresponsibility.In2013,theWSFimplementedaCoastGuardapprovedsecurityprotocol,handledbyWashingtonStatePatrol’sVesselandTerminalSecurity(VATS)division,whichfallsunderHomelandSecurity.26,27Thisprotocolincludespassengerheadcountandvehiclescreeningviaavideomonitoringcenter,relativetoa 26WashingtonStateDepartmentofTransportation.(2018).SecurityatWashingtonStateFerries.27WashingtonStatePatrol.(2016,May13).ACloserLookattheWashingtonStatePatrol’sVesselandTerminalSecurityDivision[weblogcomment].

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specifiedsetofrestrictions.Finally,residentswholiveandworkinproximitytodocks,andferrypassengersalike,stronglyprioritizeconcernforsafety.TheFauntleroydock,queuinglane,andloadingoperationposespecialsafetyconsiderations,including:

1. limiteddockspacethatputsstaff,walk-onpassengers,andbicyclesinvehicletrafficlanesduringloadinganddisembarkingprocedures;28

2. thepresenceonneighboringroadwaysandonthedockofdriverswhomayhurryandexhibitaggressiveorrecklessbehavior,includingsuddenlanechangesorlineinterruptions;and

3. theoccasionalpresenceofstalledorparkedcarsonFauntleroyWay,whichcanblockdrivewaysordivertneighborhoodtrafficflow.

E.FareboxRecoveryFareboxrecoveryreferstotheratioofoperatingexpensesthatarecoveredbythefarespaid.ThemajorityofWSF’soperatingexpensesgotopayroll,pensions,vesselmaintenance,andfuel.29Overtheyears,WSF’ssystem-widefareboxrecoveryratiohassteadilyincreasedto75.8%inFY17.Decliningfuelpriceshavehadalargeimpactonthefareboxrecoveryratio,sincefuelexpenseisalargepercentageofWSF’soperatingbudget.30TheTriangleRoutefacesparticulardifficultieswithfareboxrecoveryduetoitsshortroutesandsmallervesselsizes(whichlimitthenumberofpassengersandhencefaresthatWSFcancollectoneachsailing).

F.EnvironmentalSustainabilityWSFhasafirmandlong-standingcommitmenttoenvironmentalsustainability,supportedandencouragedbyWashingtonstate.Wedefinethiscriteriontorefertobothshort-andlong-termmetricsrelatedtothehealthofair,waterandwaterways,ecosystemsandthehumanpopulationswholiveinanddependonthesesystems.Thesemetricsincludeshorttermincentivesanddirectivesrelatedtoticketingandloading,suchasthosethatleadtoreductionsinconsumptionoffossilfuelbybothferriesandpassengervehicles.ExamplesincludeoperationalperformancemeasuresforWSFandcustomerincentivesincludingfarestructures,transitconnectionsandconsumerefficiencygainsonpublictransit.Inaddition,thiscriterionencompassestheshort-andlong-termimpactsrelatedtothepresenceoftheFauntleroyterminaladjacenttothePugetSound,involvingvehicles,vessels,docks,roadwaysandparkinglanes.

28In2017,therewere6.8OSHArecordedcrewinjuriesper10,000revenueservicehoursand0.7passengerspermillioninjured,system-wide(per2017performancemeasures).29WashingtonStateDepartmentofTransportation.(2017,December).2017-2019WSDOTEnactedBudgetBook,p.43.30WashingtonStateFerries.(2017,December15).RouteStatementsforFiscalYears2012to2017,p.2.

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EVALUATIONANDASSESSMENT

I.OperationalAlternativesThissectionreviewsticketingandloadingalternativesthattheresearchteamcomparedusingthecriteriaestablishedabove.ThealternativesdescribeactionswhichWSFanditspartnerscouldtaketoimproveticketingandloadingproceduresontheTriangleRoute.Manypreviouslyidentifiedalternativeswereavailablefortheresearchteamtoconsider.Forexample,WSFemployeeshavespentconsiderabletimedevelopingandexperimentingwithalternatives.Also,theTriangleTaskForce,theWSF’scitizenadvisorygroupfortheTriangleRoute,wasoriginallyformedtorecommendwaystoimproveserviceatFauntleroy.Finally,manyreportsandcommunitycommentshaveconsideredalternativesforvariousaspectsofWSFoperations.Thus,wegatheredacomprehensivesetofalternativesfromawiderangeofsources,includingwrittenreports,interviews,consultations,publicmeetings(andmeetingrecords),andon-the-groundobservationsasdescribedintheabovesection,DataAssemblyandInformation,onpages15-16.WeinitiallyidentifiedapproximatelythirtydifferentalternativesandpresentedthemtotheTriangleTaskForceinJuly2018forinput.Theyincludedchangesinticketing,loading,queuing,fares,operations,andcommunication(seeAppendixG,Alternatives).Alternativeswiththepotentialtoimproveticketingandloadingwereidentifiedforfocusedconsiderationbasedonfeedbackfromtaskforcemembers,WSFstaffandthecommunity,aswellasdeliberationswithintheresearchteam.Throughthisprocesswenarrowedthelistofalternativestoasetofsixforcomparisonagainstourestablishedcriteriaformeasuringperformance,includingtheStatusQuowhichservesasabaseline(seeFigure9).Theimpactsoflonger-termconsiderationsonticketingandloading--suchaspotentialupdatestoinfrastructureandschedule,bothofwhichareongoingactivitiesofWSFindependentofthisstudy--arediscussedseparatelybelow,alongwithseveralotherimportantsystem-wideconsiderations.Figure9summarizestheresearchteam’soverallassessmentofeachcriterionbasedonouranalysis.Thesub-sectionsthatfollowdescribethealternativesandexplaintheassessments.

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Figure 9: Assessment of Alternatives for Ticketing and Loading Operations for the Triangle Route

Note: Green cells in the matrix represent satisfactory attainment relative to the criterion, yellow cells indicate partial attainment, and red cells indicate a lack of attainment.

1.StatusQuoTheStatusQuoalternativereflectsthecurrentticketingandloadingprocessfortheTriangleRoute.TheTriangleRouterequiresWSFstafftocoordinateadiversesetoffunctionstomovelargenumbersofpassengersandcarsacrossacomplexroute.ForanoverviewoftheticketingandloadingintheStatusQuo,seeSystemCharacteristicsandDescriptionaboveonpages6-14.

CRITERIA

MaintainingtheStatusQuoisthesimplestpathinthenearfutureandrequiresnoextraresources.


CommunitysatisfactionwiththeStatusQuoisverylow;nearly40%ofrespondentstothe2017FROGsurveysaythattheyaredissatisfiedwiththeTriangleRoute.31Thisisprimarilyduetolongwaittimesduringpeakhoursandinefficienciesinticketingandloading

AbilitytoMeetDemand

TheStatusQuomeetsdemandinsofarascustomerseventuallymakeittotheirdestination.However,waittimestendtobeextremelylong,especiallyduringpeakhours,andWSFoccasionallystrugglestofullyloadferriesduetoslowticketprocessingattollboothsandalackofvehiclestagingspaceonthedock.Forexample,duringpeaksummertravelperiods,

31WashingtonStateTransportationCommission.(2017).WSF2017WinterPerformanceFinalReport.


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vehiclesroutinelywaitoveranhourtoloadand,despitebackloggeddemand,ferriesarereportedtosometimesdepartwithavailablevehiclespacesinordertostayonschedule.32TogaugetheStatusQuo’sabilitytomeetdemand,weanalyzeddatafromobservationsmadebyWSFstaffofavailablevehiclespacesonboatsdepartingFauntleroy.Sevenhundredsixteenobservationswereprovidedtous,frombetweenthe1415sailingandthe1905sailingonweekdaysinthesummerof2017,June19toOctober2.SeeAppendixHforasummaryofdatesmissingfromtherawdataset.Afterremovingsailingsthatoccurredduringuseofa“two-boatschedule,”andobservationsthatconsistedofnon-numericinformation,629observationssailingsremainedinthedataset.Althoughthesedatadonotincludecriticalinformationaboutwhetheranycarswerewaitinginlinewhenthevesselsailed,andaresubjecttootherlimitations,theyprovidesomeinsightintotheefficiencyofticketingandloadingduringpeaksummerhours.

Figure 10: Fullness of Boats Departing Fauntleroy by Departure Time Destination color codes: *VO (purple) = Vashon only for vehicles, but includes foot passengers for Southworth; Both (green) = dual destination vessels; SO (blue) = vessels bound for Southworth only; and VO (red) = vessels bound for Vashon only

Figure10depictstheinstanceswhendepartingboatswerefoundtobefullornot.33Eachpanelrepresentsasingledeparturetimeasindicatedintheheader(e.g.,1415isthe2:15PMsailing).Theheightofeachbarrepresentsthefrequencyofthedeparturestatus.Within 32Gutman,D.(2018,January24).Study:Half-emptyferriesleaveFauntleroyascarswaitinline.TheSeattleTimes.33WashingtonStateFerries.(2017).FauntleroyTollBoothRedemptions.


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eachpanel,bar-clustersrepresentthefrequencyofon-timedepartures(darkcoloredbar)andlatedepartures(lightcoloredbar).Instancesinwhichthedepartingvesselleftpartiallyfullareplottedintheleftbar-clusterofeachpanel,whileinstancesinwhichthedepartingvesselleftfullareplottedintherightbar-cluster.Missingbarsorclustersindicateanabsenceofrelevantobservationsandcolorsrepresentvessels’destinations.Wefindthatgenerally,sailingsafter5:00PMareobservedtobeatcapacitymoreoftenthanprecedingsailings.Thisfigurealsoshowsthatdual-destinationsailingsaremorefrequentlyatcapacitythansingle-destinationsailings.Still,itshouldnotbeassumedthatdual-destinationloadingisalwaysmoreefficient,asthehigherfrequencyoffullsailingsmaybeattributedtoelevateddemandafter5:00PM.Figure11comparestheestimatednumberofavailablespaces(verticalaxis)foron-timeversuslatedepartures(darkandlightbars)foreachscheduledsailingtime.Weobservethatforthemajorityofdeparturetimes,themediannumberofavailablespacesissmallerforon-timedeparturesthanforlatedepartures(themedianisplottedasahorizontalblacklineineachcoloredbox).Therearemarginallymoreavailablespacesobservedonvesselsthatdepartlate.Wereporttheseresultswhileacknowledgingthelimitationsoftheanalysisduetosmallsamples,missingobservationsovertheobservationperiodandtheinconsistenciesoftherecordkeeping,aslaidoutonpages48-50andinAppendixH.

Figure 11: Boxplots - Observed Available Spaces Remaining on Vessels Leaving Fauntleroy

Notes: 1) The centerline in each boxplot represents the median number of available spaces while the box itself represents the interquartile range. Several boxplots draw on extremely small sample sizes, see Figure 14. 2) Destination color codes:

*VO (purple) = Vashon only for vehicles, but includes foot passengers for Southworth; Both (green) = dual destination vessels; SO (blue) = vessels bound for Southworth only; and VO (red) = vessels bound for Vashon only


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Figures10and11explorethecommunityperceptionthatWSFprioritizesbeingon-timemorehighlythanfillingboats.Withintheobserveddatatransmittedtousforsummerseasonweekdaypeaktraveldeparturesin2017(subjecttothelimitationsmentionedearlier)on-timeboatsarenomorelikelytocontainavailablespacesthanlateboats.34Werecommendimproveddatacollection(pages48-50)ascriticalforthefuturesincedatalimitationsresultinaninabilitytodrawconclusionsaboutthisperceptionmorebroadly.AdditionalsummarystatisticsforavailablespacesareincludedinAppendixH.Acrossallsailingsbetweenthe1415departureandthe1905departure,WSFobservedandrecordedanestimated13availablespacespersailing,onaverage.Thisoverallaverageismadeupofapproximately13availablespacesonaverageassociatedwithon-timedeparturesandapproximately14availablespacesonaverageassociatedwithlatedepartures.Alternatively,lookingatmediansacrossallsailings,wefindthathalfofthesailingsinthistimewindowwererecordedasleavingwith7orfeweravailablespaces,i.e.,amediancomposedof7orfeweravailablespacesforon-timeand6orfewerforlatedepartures.Acrosssailingsscheduledtodepartbetween1600and1905inclusive(asubsetofthedatarestrictedtoreflectthepeakofrushhour),wefindthatonaveragetheon-timeboatsleftwithapproximately8availablespaceswhilelateboatsleftwithapproximately9availablespaces,foranoverallaverageof8estimatedspacesonallsailingsinthismorerestrictedtimeperiod.Halfofthesedepartureswererecordedasleavingwith2orfeweravailablespaces.AdditionalanalysisofthespacecountdataappearsbelowintheSchedulesectionofSystem-wideConsiderationsonpages44-47.

Equity

Overall,serviceprovidedundertheStatusQuoissomewhatequitable.RidershipbetweenVashonandFauntleroyisroughlydoublethatofSouthworthandFauntleroy,soconsequentlymoresailingsgotoVashoneachday.VashonandSouthworthweekdaypassengersreportedwaittimesofgreaterthan30minutesatroughlyequivalentpercentages(20%)in2013.35However,demandfromSouthworthisincreasing,asdiscussedinPopulationandRidershipTrendsonpages10-13,andallotmentsshouldberesponsivetothat.

Safety

SafetyattheFauntleroydockisapriorityforWSF,andundertheStatusQuosafetyisadequate.WSFterminalstafffacesomesafetyriskwhennavigatingthroughtrafficlanestodirectvanpoolsandotherpre-ticketedvehicles,aswellastomanagemisdirectedvehiclesandsometimesaggressivedriverswhoareeagertoboardafterwaitinginline.Thereisalsoconcernforfootpassengerswholoadandunloadincloseproximitytovehicles.However,alotofriskisalleviatedbycurrentticketingandloadingprotocolsrefinedovertime.Nonetheless,thepublicperceivesthatsafetyatFauntleroysuffersfromuneventrafficflowduringloading.Intheabsenceofadock-specificevidence-basedanalysis,werefertoWSF’s 34WashingtonStateFerries.(2017).FauntleroyTollBoothRedemptions.35WashingtonStateFerries.(2013).WSF2013Origin-DestinationTravelSurveyReport.


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aggregaterecordofanyoccurrenceofaccidentsandsafetyinfractionsthatresultininjury,whichreportsfewincidentsacrosstheentireferrysystem.36

FareboxRecovery

Overthelastfiveyears,theTriangleRouteconsistentlyrecovered50to60%ofitsoperationcoststhroughpassengerfares--substantiallybelowWSF’ssystem-wideaverage(seeFigure12:FareboxRecoveryRateforTriangleRoutefromFY2012-FY2017).37Theroutecostsabout$33millioneachyeartooperateandiscurrentlyrunningatadeficitof$13-$15millionperyear.ReductionsinfareboxrevenuebelowtheStatusQuoarelikelytoraiseconcerns.

Figure 12: Farebox Recovery Rate for Triangle Route from FY2012 - FY2017

2.ImplementGoodToGo!SystemAGoodToGo!(GTG)systemcouldsubstantiallyreduceticketingandloadingtime.GTGisanelectronictollingsystemdevelopedbytheWashingtonStateDepartmentofTransportation(WSDOT)andcurrentlyusedonsomeWashingtonstatehighways.ImplementingGTGatWSFdockswouldenabledirectloadingofvehicleswithouttheneedtostopfortollcollection.AtFauntleroy,wherestoppingatthetollboothslowsthepaceofloading,GTGcanincreaseboththeloadingrateofvehiclesandthetotalnumberofvehiclespersailing.AdoptingGTGneverthelessinvolvessubstantialupfrontcosts,planning,design,andimplementationchallenges,includingcomplexdecisionsaboutfarestructureandcollectionaswellascamerascanningtechnologyandcapabilities.Toavoidinstallationbothbeforeandafterthedockrebuild,investmentinpermanentGTGinfrastructureshouldbetimedtodovetailwiththeplanneddockreplacement.InterimortemporaryGTGoptions

36AccordingtoWashingtonStateFerries(2016)PerformanceMeasuresReport,passengerinjuriespermillionpassengerswas.42andOSHArecordablecrewinjuriesper10,000revenueservicehourswas5.6.37WashingtonStateFerries.(2017,December15).RouteStatementsforFiscalYears2012to2017,p.12.


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couldalsobeexploredbeforethedockreplacement.Belowwehighlightjustafewexamplesofissuesthatafullscopingwouldneedtoinclude,eachofwhichwouldcarrycosts.GTGcurrentlyoperatesonstatehighwaysunderaflatfarestructure,withoutregardtothepassengersinthevehicle.Thesystem’scamerasaredesignedtoonlyreadatransmitteronthevehicle’swindshieldorphotographitslicenseplate.UsingGTGtocollectWSFfareswouldthereforerequirechangestoWSF’sfarestructureaswellasthedevelopmentofanapproachtosatisfyneedsregardingpassengerheadcount:

• Farestructure:Currently,adriverboardingaferryatFauntleroypaysaccordingtoacomplexfarestructurethatincorporatesthelengthandheightoftheirvehicle,thenumberofpassengers,andanydiscountsthatmayapplybasedonageordisabilitystatus.ExistingGTGtechnologycanadjustfaresbasedonvehiclesize,butnotbasedonthenumberoruniquenessofpassengers.ImplementingGTGwouldthusrequirethattheWSTCsimplifyWSF’sfarestructure.

• Securityheadcountandvehiclescreening:TheU.S.CoastGuardsecurityprotocolandHomelandSecurityprovisionsrequireaheadcountandalsovehiclescreeningforallsailings.IntroducingGTGwouldrequirecarefulconsiderationoftheseprovisionsandperhapsadjustmenttothemeansofimplementation.3839

AlternativecamerascanningtechnologybeyondGTG’scurrentcapabilitiesmayneverthelessbeonthehorizon.IncorporatingsuchtechnologyintoaGTG-typesystemcouldconceivablygenerateanaccurateheadcount(althoughperhapsnotdistinguishpassengerdiscounts)withineachvehicle,therebyallowingWSFtoretaindifferentiatedfareassignments.ThereareadditionalchallengestoImplementGTG:Thesystemisdesignedtooperateonvehiclesmovingathighwayspeeds,thustrialsassessingtechnologyeffectivenessatlowerspeeds,andwithvehiclesmovingincloseproximitytooneanother,isanimportantcomponentofplanning.EarlierscopingofGTGforferrydockuseassumedthattollboothswouldremaininplace,makingitnecessarytoconsiderthetradeoffsbetweenmaintainingatollboothasbackup(forinstanceswhereGTGdevicesfail)andremovingtollboothscompletely.GTGhasnotbeendeployedatanyWSFterminaltodate;however,the2012FareMediaStudyprojecteditasviabletocomeonlinein“PhaseTwo(2018orbeyond)”.40TheWSFJointTollFeasibilityStudy(2014)alsofoundthesystemtobeafeasibleoptionwhoseimplementationwouldrequireaplanningstagetooccurinconjunctionwiththeupcomingendoflifecyclefortheticketingandtollingcustomerservicecenter.41 38WashingtonStateDepartmentofTransportation.(2018).SecurityatWashingtonStateFerries.39WashingtonStatePatrol.(2016,May13).ACloserLookattheWashingtonStatePatrol’sVesselandTerminalSecurityDivision[weblogcomment].40CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport. 41WashingtonStateDepartmentofTransportation.(2014,January30).JointTollandFerryCSCFeasibilityStudy.


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CRITERIA

GTGscoreswelloncommunitysatisfactionandabilitytomeetdemand.InresponsetoCedarRiver’srecommendationtoimplementGTGontheTriangleRoute,WSFvoicedconcernsoverequityimplicationsandtheriskofdecreasedrevenues.42Theseconcernslikelyremain,particularlyasafareincrease,assumingaflatfarestructure,isonewaytooffsetGTG’simplementationcostsandanyfareboxrecoverydecrement.


TheefficiencygainsexpectedfromimplementingGTGatFauntleroyshouldbenefitcommunitysatisfactionsubstantially.Removingthetransactionatthetollboothwouldsimplifycustomers’interactionwithWSFfortheregularcommuter’sbenefit.Anewfarestructure,however,couldbeexpectedtogenerateawiderangeofcommunityresponses.Satisfactionwouldvarybasedonhowanychangeinfaremightaffecttransportationcostsforindividualsaswellaswholecommunities.

In2012,whentheJointTransportationCommitteeconductedasurveytoinformtheCedarRiverfaremediastudy,64%ofhouseholdsrespondedthattheuseofGTGonferrieswas“somewhat”to“very”importanttothem.43TenyearshaveelapsedsinceWSDOTdebutedGTGontheTacomaNarrowsBridge,andGTGhassinceexpandedtootherstatehighwaysinthePugetSoundregion.GTGservedover763,000customersandprocessedover50milliontransactionsinFY2017.44WSFcustomersarenowundoubtedlymorefamiliarwithitstechnologythantheywerein2012,andperceivedinnovationandefficiencygainswouldreflectpositivelyontheorganization.

AbilitytoMeetDemand

ImplementingGTGandintroducingasimplerfarestructurewouldmitigatecurrentprocessingchallengesstemmingfromscanningdifficultiesandhumanerror,allowingtraffictoenterthedockandloadvesselsdirectlyfromtheholdingqueueonFauntleroyWay.Asaresult,thetimeassociatedwithtollboothprocessingorscanningpre-purchasedticketswouldbevastlyreduced.

Equity

BecausecurrentGTGtechnologycannotcountthepassengersinavehicleprecisely,WSTCwouldlikelyneedtoincreasevehiclefarestoaccountforlostrevenuestemmingfromGTG’sinabilitytocollectfaresforadditionalpassengers.Theburdenofafareincreaseislikelytofalldisproportionatelyonsingleoccupancyvehicles(SOVs),particularlycommuters.SOVdriversmakeupagreaterproportionofVashonferryridersthantheproportioninanyothercommunityinWSF'ssystem.Ahigherpricesignalforthesedriverswouldprovideanincentivetoleavethecarbehindanduseconnectionstoothertransitinstead.Butgiventherangeof destinationstowhichtheVashonSOVdriversareheaded,

42CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport,p.80-81.43CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport,p.5.44WashingtonStateDepartmentofTransportation.(2017,December).TollDivisionAnnualReportFY2017,ppii-iv.


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thistypeofswitchwouldbemorefeasibleforsomethanothers.Alternatively,SOVsgoingtoandfromSouthworthalwayshavetheoptiontodrivethroughTacomaratherthanusetheTriangleRoute;however,theyfaceincreasingtrafficcongestionandcreateenvironmentalexternalitieswhendoingso.

Safety

ItisunclearhowGTGmightaffectsafetyattheFauntleroyterminal.GTGwouldimprovetrafficflowduringloadingatthedocksandintheholdinglanealongFauntleroyWay,astrafficwouldmovemoreconsistentlythanwhenvehicleshavetostopatthetollbooths.Itispossiblethatincreasedspeedwouldbeassociatedwithincreasedsafetyincidents.Alternatively,reducedconfusionandfrustrationabouttrafficflowmayimprovesafetyandreduceaccidents.

FareboxRecovery

Long-termfareboxrecoveryforWSFwouldbeunchangedbyimplementingGTG,despiteup-fronttechnologycosts,duetoarevenueneutralrequirement.Specifically,anymodificationstothefarestructuremust“generatetheamountofrevenuerequiredbythebiennialtransportationbudget”(i.e.berevenueneutral)(RCW47.60.29).CedarRiverestimatedup-frontcostsat$3.4millionin2012dollarsifGTGwereimplementedsystem-wide.Thisestimateshouldberevisitedwithafullscopingofthetechnologyandsystemadaptedtodockusage,suchasthepossibilityofmultiplecameras/readersgivenvehicleflowparameters,programdevelopmentcostsforbuildingoutaback-officesystemcompatiblewithfarestructures,andtransactionfees,etc.45Further,ongoingmaintenancecostswouldincreaseandnecessitatetheadjustmentoffarestoaccountforchangesinterminaloperatingexpenses.

3.ReinstituteBypassLaneAbypasslaneallowsdriverswithpre-purchasedticketstoavoidtheholdinglaneonFauntleroyWayandloadontothenextdepartingboat.Thiseffectivelycreatesathirdpointofentryforvehiclesontothedock(theothertwobeingthetollbooths).Thiswayofenteringtheterminalcanonlybesafelyutilizedafterdisembarkingvehicleshaveclearedtheexitlanesofthedock,orifoff-loadingtrafficwererestrictedtoonelane,whichwouldsignificantlyslowunloadingtime.ProcessingbypasslanepassengersrequiresaWSFemployeetoscanticketswithamobilescanner.Abypasslanestrategywasusedforseveralyearsbefore2008,atwhichpointitwasdiscontinuedprimarilybecauseofsafetyconcerns.46ExpansionoftheFauntleroyterminaldockwouldrenderthebypasslaneunnecessaryastrafficflowthroughthetollboothsiscurrentlyfastenoughtoprocesssufficientvehiclestofillavesselbetweenscheduleddepartures,assumingthatthedockhasadequatecapacity.Atpresent,vehicleprocessingbecomesabottleneckonlyafterthedockhasreachedcapacity. 45CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport,p.76.46WashingtonStateFerries,personalcommunication,November2018.


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CRITERIA

AnadditionaltrafficlaneenteringtheFauntleroydockcouldmarginallyimprovevehicleflowgiventhedock’scurrentsizeconstraints.However,itnegativelyimpactstwoperformancemetrics:fareboxrecoveryandsafety.


Sincethebypasslanewasdiscontinued,Vashonridershavelobbiedforitsreturn.Reinstatingthebypasslanewouldincreasesatisfactionofpre-ticketedriders,whoholdmulti-ridecardsorhavepurchasedtheirfareonlineatWave2Go.

AbilitytoMeetDemand

Abypasslaneofferingathirdpointofentryontothedockcouldincreasethenumberofvehiclesprocessed.Basedonridershipdata,roughlyhalfofdriverstravelingontheTriangleRouteusemulti-ridecardsandcouldutilizeabypasslaneforprepaidticketholders.However,thetimewindowinwhichthisalternativecouldbeusedisshort.Baseduponidealdwelltimesof16minutes,WSFallotssixminutesforloading,threeorfourofwhichareallottedtoloadthecarspresentlyonthedock(seeFigure13:IdealDwellTime).Asaresult,abypasslanecouldallow8-12additionalcarstoboardaferrywithoutimpactingitsdeparturetime,assumingthevehicleprocessingrateis15secondspercaronaverage.

Figure 13: Ideal Dwell Time at Fauntleroy

Equity

Abypasslaneonlyservescustomerswithmulti-ridecardsorprepaidtickets.Basedonhistoricaltrends,thisalternativefavorsVashonridersbecauseagreaterproportionofVashon-boundvehiclesholdamulti-ridecardcomparedtoSouthworthdrivers(seeTable


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2).47In2017,roughly68%ofVashon-boundvehiclesusedapre-paidticket,incontrastwith39%ofSouthworth-boundvehicles. Table 2: Proportion of Vehicles That Use Multi-ride Cards

2013 2014 2015 2016 2017

F-V 72.4% 71.7% 70.6% 69.8% 68.3%

F-SW 44.1% 44.6% 41.9% 40.8% 39.8%

SW-V 61.0% 53.6% 51.6% 61.6% 59.9%

Weighted Average 59.2% 56.6% 54.7% 57.4% 56.0%

Safety

AthirdlineoftrafficenteringtheFauntleroyterminalisacauseforsafetyconcernsforWSFstaff,especiallyconsideringthecurrentinfrastructure.ThisalternativerequiresaWSFstaffmembertostandbesidethetollboothtoscanpre-paidtickets,whichposesacertaindegreeofrisk.Reinstitutingabypasslanetodaywouldalsoraisetheriskoftrafficaccidentsduetoanincreaseinthenumberofvanpoolssincetheformerbypasslanewasdiscontinuedin2008.(Vanpoolscurrentlyemployaversionofthebypasslane,enteringthedockonceexitlaneshaveclearedofoff-loadingtraffictostageinfrontofothertraffic.)

FareboxRecovery

AbypasslanerequirestheuseofmobilescannersandanadditionalWSFstaffmember.Inadditiontoincreasedoperatingcosts,abypasslanemaythreatenoverallrevenueduetoofflinefarevalidation.Thisoccurswhenthemobilescannerisunabletodetectinvalidticketsbecauseitistoofarfromawirelessrouter.48Revenuelosscouldberemediedbyimprovingwirelessconnectivityonthedockorbyusingmoreadvancedmobilescannersthatarecapableofconnectingtowirelessfromgreaterdistancesorthroughcellulardataplans.

4.ImproveWiFi/ScannerConnectivityandImplementUpstreamMobileTransactionsThisalternativewouldimprovewirelessonlineconnectivitytoprovidereliableconnectionsformobiletransactionsupstreamofthetollbooth,eitherviamobilescannersorupgradeddevicescapableofticketsales.WiFiboostersatthetollboothscouldstrengthenthewirelesssignalandpermitthelong-rangeuseofmobiledevices.Tooptimizevehicleprocessing,aWSFstaffmemberwalkingupstream(east)ofthetollboothscouldvalidatepre-ticketedcustomersorpossiblysellfares.Tomitigatethesafetyriskofmakingmobiletransaction,theWSFstaffmembercouldremainonthepedestriansidewalkalongFauntleroyWayandconducttheirtransactionsthroughvehicles’passengersidewindows.Upstreammobiletransactionscouldexpediteprocessingvehiclesatthetoll 47WashingtonStateFerries(2002-2017).TrafficStatisticsRiderSegmentReport.48WashingtonStateFerries,personalcommunication,July2018.


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boothatthedock’sentranceandcouldeliminatetheneedforsomevehiclestostopatall.Atpresenttherearemobilescannersforpre-paidticketvalidationonthedock;however,issueswithWiFisignalstrengthhavecompromisedtheirusabilityandintegrity.Mobiledevicesforsellingticketsarenotcurrentlypartofthesystemandwouldrequirenewinvestmentsaswellasplanninganddesign.

CRITERIA

Thisalternativecouldimprovecommunitysatisfactionandabilitytomeetdemand.Impactsonsafety,equityandfareboxrecoveryarelikelytobeminimal.


Becausethisalternativegivesprepaidcustomersanopportunitytoexpeditepassagethroughthetollbooths,weexpectitwouldimprovecommunitysatisfactionrelativetotheStatusQuo.

AbilitytoMeetDemand

Mobiletransactionswouldimprovetheflowoftraffic,becausepre-validatedvehiclesareabletopassthetollboothswithoutfurthertransaction.GainsfromthisalternativeincreasethefurtherupthelineaWSFstaffmemberisabletoscanorselltickets.Ataminimum,implementingthisalternativewouldmarginallyimprovefare-processingtimes,enhancingabilitytomeetdemandatFauntleroy.

Equity

Thisalternativeislikelytohaveaminimalimpactonequity.Itisdifficulttodeterminewhichridersmightbenefitmorefromthedecreasedwaittime.Themobilevalidationalternativerewardsthosewhopurchasepre-paidtickets,butoveralltrafficflowwillimprovemarginallyforallriders.Thefullymobilealternativewithticketsalesandvalidationwouldbenefitallriders.

Safety

ThisalternativecarriesmodestriskfortheWSFstaffmemberconductingmobiletransactionsalongFauntleroyWay.Byremainingonthepedestriansidewalk,theWSFstaffmemberlessensthedangerofwalkingintraffic.

FareboxRecovery

Currently,inconsistentnetworkconnectionformobilescannersrunstheriskofofflinevalidationofmulti-rideticketsthathavenocreditleft,asdescribedinthebypassalternative.Suchofflinevalidationshavecontributedtosubstantiallostrevenueinthepast,asbecameevidentwhenWSFexperimentedwithapre-ticketedlanein2016.49Improvedonlineaccessand/orupdatedmobilescannerscouldrectifythisproblem.WSFhasreceivedagranttoinstallhigh-speedconnectivityattheFauntleroyterminal,with

49WashingtonStateFerries,personalcommunication,2018.


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completionexpectedin2019.50WiFiboostersandupdatedmobilescannersposeupfrontcostswhichwouldrequireadditionalresourcesfromtheLegislature,butongoingcostsareexpectedtobeminimalandhavelittleimpactonfareboxrecovery.

5.ImproveTraining,Management,andRetentionofTriangleRouteStaffImprovingstafftraining,management,andretentionwouldenhancetheinstitutionalknowledge,performance,andefficiencyofthedockstaffanddeckhands.Front-linestaffandsupervisorswithadequatetrainingarebetterequippedtomanagethechallengesofticketing,loading,schedulemanagement,andcustomerrelationsatFauntleroy.ConversationswithWSFstaffandmanagersindicatethattraining,management,andretentionofstaffhavesufferedontherouteinrecentyears,forseveralreasons:

● ThecomplexitiesandchallengesofticketingandloadingatFauntleroypromptmanystafftotakeadvantageofWSF’smonthlybiddingprocessforopenpositionstotransfertootherroutes.Therefore,managementattheFauntleroydockmustfrequentlyonboardandtrainnewstaff.

● Serviceishamperedbyashortageofqualifiedlinemanagers.Abouteightyearsago,WSFmadeabudget-relateddecisiontostopreimbursingdockandboatcrewfortuitionandtimespentgoingtoschooltoqualifyforpromotiontodeckofficerorengineerpositions.51Thisdecisiondisincentivizesjuniorstafffromrisinguptheranks.TheresultingshortageofexperiencedandinvestedlinemanagersdisproportionatelyaffectsFauntleroybecauseofitsoperationalcomplexitiesandchallenges,coupledwiththetendencyofmoreexperiencedstafftotransferawaywhentheopportunityarises.

● In2018,WSFwasunabletohireandtrainnewstafffortheTriangleRouteinadvanceofthesummerpeak–astheyhaddoneintherecentpast.

● Systematictrainingandretrainingofdockanddeckcrewsinloadingproceduresonlyoccurinfrequently,whenanewboatisintroducedintoservice.Thissystem-widepolicyinhibitstheaccumulationofinstitutionalknowledgeanddisproportionatelyimpactsoperationsattheFauntleroydockbecausestafftendtocyclethroughquickly.

Addressingthesechallengesrequiresovercomingtwoissues:

1. TheWSForganizationalstructurelacksmid-levelmanagementbetweenthelinesupervisors(ChiefMatesandTerminalSupervisors)andthehighertierofmanagementatWSFheadquarters(thePortCaptainandtheTerminalManager).Thisleaveschallengesrelatedtostaffing,personnel,andoperationsinthehandsoflinesupervisorswhoareoftenpreoccupiedwithimmediateconcernscenteredaroundindividualsailingsatFauntleroy.AsymptomofthisconstraintisthatWSF

50WashingtonStateFerries,personalcommunication,2018.51WashingtonStateFerries.(2018,September).WSF2040LongRangePlan:DraftPlan.


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sometimesstrugglestocommunicateandimplementoperationaldecisionsmadeatheadquarterstothefront-linestaffontheTriangleRoute.52

2. Anyreadjustmentofstaffhours,pay,oreducation-compensationpoliciesmustbecollectivelybargainedwiththeunions.

CRITERIA

Improvedtraining,management,andretentionoftheTriangleRoutestaffwouldlikelybenefitourcriteriaofcommunitysatisfactionandabilitytomeetdemand.Itwouldhaveamarginaleffectonsafetyandanegativeimpactonfareboxrecovery.


Bettertrained,moreexperiencedstaffwillproducemoreconsistentloadingandunloading,moreappropriateandconsistentresponsestoanomaliesandemergencies,andfewerhumanerrors.Theseimprovements,inturn,arelikelytoreducetensionsandmisunderstandingsbetweenridersanddockworkersandimprovecustomersatisfaction.TrainingfocusedexplicitlyoncustomerservicecouldbeparticularlybeneficialforcommunitysatisfactionwithserviceatFauntleroy,giventhetensionsandmisunderstandings.

AbilitytoMeetDemand

Well-trained,experienceddockandvesselcrewsshouldbeabletoloadthedockandtheferriessomewhatmoreefficiently,gettingafewmorecarsoneachboat,slightlyfaster.

Equity

ThisalternativewouldlikelyhavelimitedimpactonequityacrossthecommunitiesontheTriangleRouteoramongpassengersofdifferentmeans.

Safety

Improvingstafftraining,management,andretentioncouldincrementallyimprovesafety.Bettertrainedstaffmightbemoreawareandbetterequippedtofollowsafetyprotocolsfordirectingtrafficanddeescalatingtenseinteractionswithdissatisfiedcustomers.

FareboxRecovery

Thisalternativewouldincreaseoperationalcosts,inwhichterminalanddeckcrewtrainingisincluded,andnegativelyaffectthefareboxrecoveryratio.53Trainingcostsmoney,andmoreexperiencedstaffearnmorethanlessexperiencedstaff,onaverage.

6.StaffaSecondTrafficOfficerDuringRushHourCurrently,thereisasingletrafficofficeratFauntleroyWaywhodirectstrafficand,whenable,walksalongtheholdinglinetoidentifyvehicleswaitingforsingledestinationboats 52WashingtonStateFerries,personalcommunication,2018.53WashingtonStateFerries.(2017,December15).RouteStatementsforFiscalYears2012to2017.


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andsendsthemdownthelinetoload.Anadditionaltrafficofficerassignedduringpeaktraveltimescouldmanagetrafficflowattheentrancetothedock,whiletheotherofficerprimarilywalksuptheholdinglaneonFauntleroyWaytopullvehiclesoutofline.Thisalternativewouldrequirebudgetingforthesecondofficerduringpeakperiodsbutotherwisecouldworkwithinthecurrentconstraints.(Note:fordualdestinationsailings,asecondofficerisnotnecessarytoexpeditevehiclesfromtheholdinglanetoboardvesselsboundforspecificdestinations.)

CRITERIA

TheprimarybenefitsofhavingasecondtrafficofficerarethatabilitytomeetdemandandsafetyimprovecomparedtotheStatusQuo.LoadingvehiclesfromtheholdinglaneonFauntleroyWaywillbecomemoreefficientwithoneofficerwalkinguptheline,whiletheotherofficerremainsattheentranceofthedocktodirecttraffic.Still,thisalternativewouldcomeatacosttofareboxrecovery.


Anadditionaltrafficofficerwouldbeavisiblechangethatmightfurtherdissuadelinecuttersandexpeditepullingsingledestinationdriversoutofline--twochangesthatmanycustomerswouldliketosee.

AbilitytoMeetDemand

Thisalternativewillresultinamarginalincreaseintheabilitytomeetdemandondirectroutes.(Itwillhavenobearingondualdestinationroutesbecauseallvehiclescanloadontoanydockingvessel).AnofficerdedicatedtopullingvehiclesoutoflineforsingledestinationboatswillbeabletoidentifymorecustomerswaitingintheholdinglaneonFauntleroyWay,allowingafewadditionalvehiclestoloadontoanearlierboatifspaceisavailable.

Equity

BecausetheFauntleroy-Vashonleghasthemostsingledestinationsailings,thoseriderswouldbenefitmostfromasecondtrafficofficerpullingcarsoutoftheholdinglineforsingle-destinationroutes.Otherwise,thisalternativedoesnotaffectequity.

Safety

Thepresenceoftwoofficerswouldincreasesafetyforferryriders,vehicles,andneighborhoodresidents.Adedicatedwalkingofficercouldmanagesafetyconcernsupthelineintheholdinglanewhileastationedofficerattheterminalentrancecontinuestodirecttraffic.Attentiontoofficersafetywouldremainapriority.

FareboxRecovery

Addingasecondtrafficofficerwillnotaffectrevenue.However,theofficer’ssalarywillfactorintooperatingcostsandlowerthefareboxrecoveryratioslightly.


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II.EnvironmentalSustainability-ACross-cuttingCriterionThissectionconsolidatesourassessmentoftheenvironmentalsustainabilitycriterion,givenitsoverarchingnature.UndertheStatusQuo,thereisalotofpositiverecentprogresstoreportregardingenvironmentalsustainability.GovernorInslee’sJanuary2018ExecutiveOrder18-01,StateEfficiencyandEnvironmentalPerformance,andWSF’sApril2018FleetAdvisorytocaptains,FA000518,OperationalEfficienciestoReduceFuelConsumption,havebroughtaboutremarkablesavingsofbothfuelandfunds.54,55Specificallyasaresultofusing‘handle8’vesselspeedsforregularoperations(and‘handle10’onlytomakeuptimewhennecessary),WSFsaved234,033gallonsoffuelsystem-widefortheperiodApril-August2018relativetoApril-August2017.Thisisa2.9%reductioninfueluseandrepresentsasavingsofalmost$500,000,and2270MTofCO2equivalent,overafive-monthperiodduringthesummerpeak.WSFnotes:

“Thesesavingsareverysubstantial,particularlysinceridershipduringthisinitialfivemonthswasatthehighestlevelsseeninfifteenyears...AswetransitionintoFallschedulewiththeassociatedreductioninridershipandreducedstressonourschedules,thereisanopportunityforevengreaterfuelsavings.“

Consideringthealternativesforticketingandloadingpresentedabove(andsomealternativesnotrelatedtoticketingandloadingperse),wemakethefollowingobservations:

• Withmoreefficientprocessingofcars,e.g.,withGTGorabypasslane,therewillbelessidlingandlesstimeinline,whichtranslatestolessfuelconsumedandlesscarbonemitted.

• GTGandthebypasslaneshouldalsoattractmoreindividualstochoosetosailratherthandrivearound,garneringbothgreenhousegasemissionreductionsandpersonalmonetarysavings.56

• Improvementsinstafftraining,management,andretentionmaymakesmalldifferencestothetimerequiredtopassthroughtheticketingandloadingstep,buttheseareexpectedtoberelativelysmallwhencomparedtotheenvironmentalgainsfromGTGorpre-ticketingoptions.

Althoughoutsideofourimmediatescopeofticketingandloading,wenotethatthefollowingsystemicchangesallhavethepotentialtodecreasecarbonfootprintandincreasefuelsavings:

1. SchedulechangesthatimproveontimeperformanceanddecreasethelinesonFauntleroyWay.

54Inslee,J.(2018,January26).ExecutiveOrder18-01:StateEfficiencyandEnvironmentalPerformance.55Faust,G.,vonRuden,M.,andCirkovich,S.(2018,April12).WSDOT-WSFFleetAdvisoryNumber000518A-OperationalEfficienciestoReduceFuelConsumption.56WashingtonStateDepartmentofTransportation.(2012,October).Driveorsail:comparingcost,time,andgreenhousegasemissions.


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2. Electrificationofthefleet,whichisatransitionplannedandinitsinitialstages.3. Incentivestorideferriesratherthandrivearound,includingpubliceducationabout

thepersonalcostsavingsandgreenhousegasreductionsofdoingso.4. Incentivestosailasfootpassengersratherthaninavehicle,furtherenabledbythe

plantobeginserviceofafootferryfromKitsapPeninsulaandimprovementstopublictransitconnectivityingeneral.

5. Infrastructurechanges,includingdockcapacityimprovementsandfoot-passengerwalkwayswhichareexpectedtostreamlinequeuingandloading/unloading,butwhichalsohaveimplicationsfortheecosystemstheyoccupy.

III.OverallAssessmentonaCriterion-by-CriterionBasisInadditiontothemulti-criteriaassessmentofoperationalalternativesabove,wecarriedoutasecond,morefocusedassessmenttoconsidereachcriterionindividuallyandgaugeitsimpactontherelativedesirabilityofticketingandloadingalternatives.Theresultsareoutlinedbelow.Thiscriterion-by-criterionanalysisallowedustostepawayfromtheinherenttradeoffsbetweencriteria.Singlecriterionassessmentisoftenthebestwaytocapturetheperspectiveofanindividualstakeholderwhofocusesheavilyononecriterion.

CommunitySatisfactionNearlyeveryalternativeconsideredislikelytoimprovetheStatusQuo,reflectingcurrentcommunitydissatisfaction.

AbilitytoMeetDemandWithafocussolelyonabilitytomeetdemand,fouralternativesexcel–GoodToGo!(GTG);theBypassLane;ImprovingConnectivityandImplementingUpstreamMobileTransactions;andaSecondTrafficOfficer.

EquityNoneofthealternativesarelikelytosubstantiallyimprovetheroute’scurrentstandingrelativetoequity.TheintroductionofGTGtechnologycouldevendecreaseequity,unlesscarefulattentionispaidtofarestructure.(ToimplementGTGwithoutupdatedtechnologyallowingheadcountswithincarswouldrequireflatfareticketingandlikelyincreasedfaresforsingleoccupancyvehicles(SOVs),disproportionatelyaffectingtheVashoncommunitywithitsmanySOVsridingferries,althoughvehicleswithmanypassengersmightseereducedfares.)ImprovingConnectivityandImplementingUpstreamMobileTransactionscouldalsoimpingeonequityfordriversunabletouseacreditordebitcardtopurchaseaticketintheholdinglane,thoughthosedriverscouldpaycashatatollbooth.


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SafetySafetyisalwaysahighpriorityforWSF,andseveralofthealternativesshouldincreasesafetyovertheStatusQuo,especiallythosethatleadtomoresmoothandorderlytrafficflowandincreasedstaffpresence.TheseincludeGTG;Training,Management,andRetention;andtheSecondTrafficOfficer.SafetywouldsufferwiththeBypassLane,however,unlessWSFalsoaddedtheSecondTrafficOfficer,duetothenecessaryweavingofcarsthroughmultiplelanesontothedock.EvenwiththeSecondTrafficOfficer,thatindividualwouldfacepersonalsafetyrisk.

FareboxRecoveryFareboxrecoveryismodestontheTriangleRoutecomparedtootherpartsoftheWSFsystem,andnoneofthealternativesareanticipatedtoimprovethiscriterion,astheyallrequireresourcestoimplement.Still,withappropriatesupportandattentiontofarestructure,WSFcanmitigatethisconcern.

EnvironmentalSustainabilitySeveralofthealternativesexaminedshouldimproveontheStatusQuo,withreducedfossilfuelconsumptionasaresultoflessidling-theseincludeGTG;Training,ManagementandRetention;andtheSecondTrafficOfficer.Anumberofthesystem-wideconsiderationsoutlinedinthefollowingsection(communityunderstanding,performancemeasures,infrastructure,schedule,financeandbudget,anddatalandscape)alsohaveasignificantimpactonEnvironmentalSustainabilityandmanyoftheothercriteriaaswell.

IV.System-wideConsiderationsOuranalysisoftheticketingandloadingalternativesrevealedsixsystem-wideconsiderationsthataffecttheimplementationandperformanceofthealternatives:communityunderstanding,performancemeasures,infrastructure,schedule,financeandbudget,anddatalandscape.Eachoftheseconsiderationsmeritsattentiontounderstandthelogicandthesensitivityofourrecommendationstochangesinthem.

A.CommunityUnderstandingThequalityofcommunityunderstandinginfluencesticketingandloadingatFauntleroyintwoways:1)Itaffectshowsmoothlydriversandpassengerspurchasetickets,queue,andboardsailings,and2)itshapespassengers’andresidents’satisfactionwiththeticketingandloadingprocess.TogaugeandaddresscommunityunderstandingandsatisfactionontheTriangleRoute,WSFusesanumberoftools:

● TheCustomerServicedepartmentfieldsthousandsofemailsandphonecallsperweekaddressingbothgeneralandsite-specificconcerns;


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● therearemultipleplacesforridersandcommunitymemberstoleavecommentsontheWSFwebsite;

● WSFusesaTwitteraccountandemailortextnotificationsforgeneralannouncementstothepublicandterminal-specificalertsaboutservicedelays;

● WSFrepresentativestraveltocommunitiesservedforproject-specificopenhousesandpublicforums;and

● WSFhasaccesstotheWSTC-administeredFerryRiders'OpinionGroup(FROG)Surveydata.

AsubstantialportionoftheTriangleRoute’sridershipneverthelessfeelsunder-informedandfrustratedwithWSF’spolicies,procedures,practices,andperformance.Forseveralreasons,thetoolslistedabovehaveonlyamodestimpactontheunderstandingandsatisfactionofthecommunitiestheTriangleRouteserves.WSF’sregularpublicoutreachandcommunityengagementeffortsarelimitedtoproject-specificinitiativessuchasthedevelopmentofitsLongRangePlan,dockexpansion,orotherconstructionprojects.WSFhasfewongoing,site-specificcommunityengagementefforts,withtwoexceptions:thereisaFerryAdvisoryCommittee(FAC)ineachcommunityitserves(includingeachofthethreeTriangleRoutecommunities),andtheTriangleImprovementTaskForce(TTF),whichistemporaryandspecifictotheTriangleRoute.

FerryAdvisoryCommittees

PerWALegRCW47.60.310,theappropriatecountylegislativeauthorityappointsaFerryAdvisoryCommittee(FAC)foreachoftheTriangleRoutecommunities.57EachcommunityFACincludesthreevolunteermembers.Theirrolesascommunityrepresentativesarecurrentlylimitedbyseveralfactors.First,thestructureandlevelofengagementofindividualcommitteesvariesbylocationandcommitteemember.Second,interviewswithFACmembersindicatealackofstructuredonboarding.Theyreceiveverylittleinformationabout1)thehistoryofWSFandthecommunitiesitserves,or2)trainingorstrategiesforhowtoserveasaliaisonbetweenWSFandthepublic.Third,becausecountiesappointtheFACmembers,WSFhaslimitedinfluenceovertheirselectionandoperations.

TriangleTaskForce

TheTTFconsistsofninevolunteermembers-threefromeachofthecommunitiesservedbytheTriangleRoute,includingonememberofeachcommunity’sFerryAdvisoryCommittee(FAC).TheTTFwascreatedinFall2016toworkwithWSFstafftogenerateshort-termchangestoimprovepeakhouroperationsattheFauntleroyTerminal.TheTTF’sinitialeffortsresultedinaplanto1)improvevehicleprocessingattheFauntleroytollbooths,inordertogetmorevehiclesthroughatpeaktime,and2)apublicinformation

57WashingtonStateFerriesonbehalfoftheTriangleTaskForce.(2017,December–2018,June).


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campaigntoeducatedriversaboutstepstheycantaketosavetimewhileusingtheroute.58Thepreciseimpactsofthesechangesonticketingandloadingareunclear;WSFstaffandTTFmembersreport,informally,thatimprovementshavebeen,atbest,marginal.Thesamecanbesaidfortheinformationcampaign,whichin2018,theTTF’sfocusshiftedfromshort-termfixestoconsultationonthe2019TriangleRoutesailingschedule,the2040LongRangePlan,andtheFauntleroyTerminalProject.TheTTFhasimprovedsomemembers’understandingofthechallengesandopportunitiesattheFauntleroydock.TheyexpressrespectforthededicationofmostoftheWSFstaffandrecognizetheconstraintsanddifficultiesofthedocksize,theFauntleroyWayholdinglane,andrecentchangesinridershippatterns.Atthesametime,manyTTFparticipantsraisedpointedconcernsabouttheTriangleRoutescheduleanditsproposedredesign,unexpecteddelaysinsailings,thedelayedimplementationofGTG,andotheroperationaldifficulties(includingthediscontinuationoftheFauntleroybypasslane)onbehalfofthecommunitiestheyrepresent.Further,manyTTFmembershaveexpressedfrustration,bothduringTTFmeetingsandduringinterviewsforthisstudy,aboutWSF’sperceivedinstitutionalinertia.BeyondtheninemembersoftheTTF,theunderstandingandknowledgethatothercommunityresidentshaveabouttheTriangleRoute’soperationsvaryconsiderablyandaresometimesdistortedbymisinformationfromsocialmediaorwordofmouth.SignificantpublicdiscussionabouttheTriangleRouteoccursontheVashonFerryRidersForumFacebookpage.PerWSDOTpolicy,neitherWSFnorWSFemployeescancreateaWSF-specificFacebookpagetoproactivelydisseminateinformation,replytocommentsonotherFacebookpages,orviewFacebookcontentrelatedtoWSForitsoperations.Thispolicyenablesthespreadofunofficialand,attimes,misleadingorfactuallyincorrectinformationabouttheTriangleRoute’soperationsandWSF’sintentionsandefforts,contributingtothecurrentlackoftrustbetweenWSFandtheTriangleRoutecommunities.Changesincommunityengagementandunderstandingcouldaffecttheperformanceofseveralofthealternativesweexaminedinthisreport.Improvedcommunityengagementandunderstandingcould,inturn,improvethepotentialofouralternativestoenhancecommunitysatisfaction,theTriangleRoute’sabilitytomeetdemand,andsafety.Achievingimprovementsincommunityengagementandunderstandingisatallorder,however.TheRecommendationssectionbelow(onpages51-58)proposessomepossibleapproaches.

B.PerformanceMeasuresPerRCW47.64.355,WSDOTisaccountabletotheWALegislatureforannualreportingon17performancemeasures“establishedtomonitorprogressinprovidingcitizenswiththebestvaluefortheirtransportationsystemdollars”(seeAppendixE,WSFPerformanceMeasures).Themeasuresareorganizedintofourcategories:1)SafetyPerformance,2)ServiceEffectiveness,3)CostContainment,and4)CapitalProgramEffectiveness.WSDOT

58WashingtonStateDepartmentofTransportation.(2017).2017archives:improvingserviceontheFauntleroy/Vashon/SouthworthRoute.


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isrequiredtoreporttotheLegislaturebyDecember31ofeachyearonitsperformanceforall17measuresforthefiscalyearendingJune30ofthatyear.ThemeasuresthatmostdirectlyaffectticketingandloadingatFauntleroyare#16and#17–“on-timeperformancelevel”and“servicereliabilitylevel.”ThesemeasuresrepresentkeyoperationalprioritiesforWSF,andperformanceforthesemeasuresistrackedandpublishedinWSDOT’squarterlyperformancereport,theGrayNotebook.On-timeperformance,countedasthepercentageoftripsdepartingwithin10minutesofthescheduledtime,isthemeasurethatseemstocarrytheheaviestweightamongstWSFcrew,andisthemostprevalentinpublicperception.Thisobservationisbasedondockobservations,interviewswithWSFstaff,andobservationsofpubliccommentsincommunitymeetingsandonlineforums.CurrentconstraintsatFauntleroy,includinginsufficientdockspaceandthebottleneckatthetollbooths,combinedwiththecrew’smotivationtomeettheon-timeperformancegoalof95%,resultinsomevesselsdepartingFauntleroywithspaceforvehiclesstillavailable.59BoatsleavingthedockwithavailablespaceswhilevehicleswaitonFauntleroyWayhaveincreasedtensionsbetweenWSFandferryriders.Morebroadly,manyinWSFleadershipfeelthattheseventeenperformancemeasuresdonotallowfront-linestaffenoughdiscretiontooptimizeserviceonthefly,orfortheorganizationtoprovideaccurateanddigestibleresponsestocustomerrequestsfordataonperformance.Someoftheexistingmeasuresarecorollaryandshouldnotbeconsideredindependentofeachother(e.g.,#15,averagevesselout-of-servicetime,and#17,servicereliability).Further,WSFleadershiphasexpressedfrustrationaboutthedisconnectbetweenrequiredperformancemeasuresandactualservicedelivery,andthegeneralpublicisskepticalaboutwhatdataWSFcollectsformeasurementandhowitusesthosedata.AsWSF’sLongRangePlanstates,“WSF’scurrentperformancemeasuresdonotconveythefullcustomerexperience,andmeasuressuchasqueuelengths,vehiclewaittimes,orthenumberofcustomerswhocouldnotobtainareservationforagivensailingmightbemoreusefultoWSF.”60RevisingtheperformancemeasurementsforwhichWSFisaccountablecould1)affectoperationsattheFauntleroyTerminalbyallowingdockandboatcrewtobemoreresponsivetoreal-timeoperationalchallengesofticketingandloadingtoimproveWSF’sabilitytomeetdemand,and2)increasetheabilityofWSFadministrationtocollectanddisseminatemeaningfulinformationaboutavailablespace,waitingtimesandotheraspectsofoperationstothepublic,potentiallyimprovingtrustandcommunitysatisfaction.

59WashingtonStateDepartmentofTransportation.(2017,January).FY2016WSDOTFerriesDivisionPerformanceReport.60WashingtonStateFerries.(2018,June29).2019-2040LongRangePlan-StatusReporttoLegislature,p.5.


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C.InfrastructureAsoutlinedintheSystemCharacteristicssectionabove,existinginfrastructureatFauntleroy–encompassingthedocksizeandstructure,thevehicleholdinglane,ferrycapacities,andinadequateWiFicoverage–posespecialchallengesforticketingandloading,aswellasforthealternativesassessedinthisreport.Thevehicle-holdingcapacityofthedockissmallerthanthecapacitiesofanyofthethreeferriesthatservetheroute(whichcurrentlyaccommodate90,124,and124vehicles,respectively),whileWSFcites“avesselandahalf”capacityasbestdesignpracticefordocks.61Thismismatchprecludesstagingfullloadsofvehiclesonthedock,necessitatingloadingfromtheholdinglaneonFauntleroyWayoncecarsonthedockhaveloaded.Thetwo-lanerampconnectingferriestothedockrequiresfootpassengersandvehiclestoloadseparately.Loadingfootpassengersandvehiclessimultaneously(e.g.,loadingfootpassengersinonelaneandvehiclesintheother)introducessafetyconcernsandlimitstheabilityofWSFtoincreaseefficiency.Adedicatedfootbridgeforloadingandunloadingfootpassengerswouldallowforsimultaneousloadingofbothvehiclesandwalk-ons.Theabsenceofagrade-separatedwalkwayforfootpassengersoverFauntleroyWay,moreover,addstothedemandsonthetrafficofficer,whomustnotonlycontroltheconvergenceofoff-loadingtrafficandthroughtraffic,butalsodirectfootpassengerssafelyacrossthestreet.Directingfoottrafficcanbequitetimeconsumingonafternoonsduringtheschoolyear,becauseofthenumberofWestSeattlestudentswhoattendschoolonVashonandreturntoFauntleroyinthemid-afternoon.CurrentlyspottyWiFiwith“deadspots”onthedockcompletestheinfrastructure-limitationspicture,thwartingeffectiveuseofhand-heldscannerstospeedloadingproceduresforpre-ticketedvehiclescomingfromtheholdinglaneonFauntleroyWay.Whilethecurrentinfrastructuredefiesshort-termsolutions,changeisafoot:1)thedockisslatedforarebuildbeginningin2025;2)WSFwillreplacethesingle,90-vehicleferryontheroutewitha124-vehicleIssaquahclassferryin2019;and3)earlieranalysesrecommendedthatWSFshifttoGoodToGo!ticketing.62,63Thesechangesprovidechallengesandopportunitiestoaddressthemismatchbetweendockandferrycapacities.Wirelessinternetconnectivityremainsavexingissue.ITpersonnelhaveassessedthedocktoreducethepresenceof“deadspots;”however,deckcrewreportthattheissuepersists.64Thealternativesexploredinthisstudyaresensitivetoinfrastructureconstraints,andindeedourassessmentofseveralwouldchangeiftheinfrastructureofthedockandenvironswerechanged.Forexample,improvedWiFiwouldmakehandheldscannersmorefunctionalandpre-ticketingmorefeasible,bothofwhichcouldreduceloadingtimesandmarginallyimproveabilitytomeetdemandandcustomersatisfaction.Further,ifthe

61WashingtonStateFerries,personalcommunication,June2018.62WashingtonStateDepartmentofTransportation.(2014,January30).JointTollandFerryCSCFeasibilityStudy.63CedarRiverGroup.(2012,January).WSFFareMediaStudy,FinalReport.64WashingtonStateFerries,personalcommunication,2018.


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vehiclecapacityofthedockwereincreased,severalalternativeswouldaddlessvalueovertheStatusQuothaninouranalysisabove.Specifically,withalargerdockforstagingvehicles,theBypassLanewouldnotnecessarilyimproveabilitytomeetdemandbecausedockspacewouldaccommodatemorevehiclesandreducecongestionintheholdinglane.Similarly,neitherGTG,norImprovedConnectivityandUpstreamMobileTransactionswouldmakeanappreciabledifferenceinloadingtimesandhenceinabilitytomeetdemand.Conversely,thedocksizeconstraintwouldnolongerhamperloadingasseverelyasitcurrentlydoesifWSFimplementedGTG,ImprovedConnectivityandImplementedUpstreamMobileTransactions,orReinstitutedtheBypassLane.

D.ScheduleTheferryschedulehasavarietyoflatentimpactsandimplicationsforticketingandloadingatFauntleroy.UnchangedsincetheerawhensmallervesselsservedtheTriangleRoute,thecurrentscheduledoesnotallocateenoughtimeforloadinganadditional30+vehiclestomaximizethelargercapacityoftheIssaquah-classvesselsoperatingtoday.Asaresult,duringpeaktravelperiodsWSFmustsometimesgrapplewiththetradeoffbetweenfillingaboatanddepartingontime.Adelayedsailingnotonlyputsthedelayedboatbehindonitsownsailingschedule,butitoftendelayssubsequentboatsfromdockingatFauntleroywhiletheywaitoffshoreforthedelayedboattodepart.Thus,onelatedeparturecangeneratefurtherdelaysacrosstheTriangleRoute.AsdescribedaboveintheassessmentoftheStatusQuoalternative’sabilitytomeetdemand,weanalyzedtherelationshipbetweenon-timedeparturesandtheassociatedavailablespacecounts.65Tosummarizethoseearlierfindings,usingtheavailabledatasetwhoselimitationsareoutlinedonpages48-50,weobservethatfornearlyeverysailinginthepeaktravelperioddeparturesduringsummerof2017,themediannumberofavailablespacesissmallerforon-timedeparturesthanforlatedepartures.ThisanalysisremainsinconclusiveregardingbroaderinsightsaboutWSFpriorities,duetodatalimitations–butitrepresentsaninitialstepwhichweexplorefurtherintherestofthissection.Belowwepresentanalysisexploringthistradeoffanditsimplicationsforthedesignoftheschedule.Recallingthateachscheduledsailingtimerepresentseitheradualdestinationorsingledestinationtrip,weexploretherelationshipbetweenthenumberofavailablespacesonagivensailingwithsingleordualdestinationtripstatus.AsplottedinFigure11thethreedualdestinationsailingsincludedintheanalysis(e.g.,1710,1745and1835)arecharacterizedbyloweravailablespacecounts,whilethesingledestinationsailingshavehigheravailablespacecounts.Possibleexplanationsforthesefindingsincludeinsufficientdemandforthesingle-destinationsailingsgiventhestructureofthecurrentscheduleorinsufficientprocessingspeedforthesesailings,althoughotherfactorsnotrepresentedinthelimitedavailabledatamayalsoapply.Figure14disaggregatesthedatafurther.EachpanelofthisfigurerepresentsonescheduledsailingtimewhileeachpointrepresentsoneobservedsailingoutofFauntleroy

65WashingtonStateFerries.(2017).FauntleroyTollBoothRedemptions.


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duringtheobservationperiod(i.e.,aparticulardateandtime).Latedeparturesappearasreddots,whileon-timedeparturesappearasgraydots.Thehorizontalaxisofeachpanelrepresentscalendardate,whichrunsfromJune19toOctober2,2017.Theverticalaxisdepictsthenumberofavailablespacesoneachdepartingvessel.TheseplotsomitinstanceswhentheTriangleRouteoperatedanemergencytwo-boatschedule.Thisfiguresuggeststhatlatedeparturesarenotassociatedwithhigherorloweravailablespacecountsthanon-timedepartures.Bothon-timeandlatedeparturesareassociatedwitharangeofavailablespacecounts;however,anin-depth,panel-by-panelanalysisisnotviableduetothesmallnumbersoflatedepartures(reddots)recorded(i.e.,smallsamplesize)andmissingdata.

Figure 14: Observed Available Spaces Remaining on Vessels Leaving Fauntleroy

AnadditionalanalysisofavailablespacesispresentedinFigure15Thisfigureplotsthefrequencyofon-timeversuslatedepartures,forpartiallyfullboats(leftbar-cluster)andfullboats(rightbar-cluster)by“boatposition”,i.e.,whetheravesselisdesignated#1,#2or#3intheschedule.Notethatvessel#2isthe90-carvessel,while#1and#3are124-carvessels.Figure15suggestsnorelationshipbetweenthecarryingcapacityofavesselandwhetheritdepartsfull.Specifically,theproportionofvesselsleavingpartiallyfullversusfulldoesnotappeartodifferaccordingtoboatsize.Exogenouschallengestomaintainingtheestablishedscheduleincludeadverseweather(e.g.,heavystorms,fogaffectingvisibility),unanticipatedvesselrepairs,whales,ormedicalemergencies.ByfarthemostdisruptionsofthiskindareduetomechanicalissuesaswellasemergencyserviceandmedicalpriorityloadingsfromVashon.Becauseoftheirgeographiclocationonanisland,Vashonresidentswhoneedseriousmedicalattention


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requireferrytransportationtoSeattleorKitsapmedicalfacilities.Insuchcases,WSFprioritizesloadingprocessesandsailingstotransportpatientsdirectlytotheirdestinations,overridingtheexistingTriangleRouteschedule.

Figure 15: Fullness of Boats Departing Fauntleroy by Boat Position Note: #1 and #3 are 124-car vessels while #2 is a 90-car vessel. Within each of the three panels, partially full departures are represented in the left bar-cluster while full departures are represented in the right bar-cluster.

LatedeparturesandscheduledelayshaveimplicationsforWSF’sperformancereportstotheLegislature—on-timedeparturesareoneoftheperformancemetricsonwhichWSFisjudged.Theycanalsoaffecttheoveralloperatingbudget.DrivenbyGovernorInslee’sExecutiveOrder18-01(StateEfficiencyandEnvironmentalPerformance),WSFissuedaFleetAdvisorytoitscaptainstoreducefuelconsumptionbyreducingsailingspeedsforgreaterfuel-efficiency,savingover200,000gallonsoffuelandnearly$500,000inthefirstfivemonthsoftheinitiative.However,ferrycaptainsmayusediscretionandincreasespeedsinordertomakeuplosttimefollowingdelayeddepartures,therebydetractingfromthesecostsavingsandenvironmentalgains.Whendelayeddeparturesleadcaptainstoincreaseboatspeed,fuelconsumptionincreasesaswell.WSFhasproposedchangestotheschedulebeginningin2019toaccommodatelongerdwelltimes,withtheaimofimprovingtheTriangleRoute’scapacitytomeetdemandwhileadheringtotheschedule.Aswewrotethisreport,WSFwasactivelyseekingpubliccommentsonitsproposedschedulechanges.Afewcommunitygroupshaveproposedalternativeschedulechanges,themostelaborateandwell-developedofwhichisa


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“pendulum”schedule,inwhicheveryboatsailingbetweenFauntleroyandSouthworthstopsatVashon.WSFstaffreportthattheyhaveanalyzedthesealternativeproposalsbutfoundthatnoneofthemmeetsalltheircriteriatoservetheroute’sneeds.AccordingtoWSF,ensuringadequatedwelltimesgivenexistingtechnologyandinfrastructureisoneofthemostsignificantchallengesindesigninganewschedule.Increaseddwelltimesinanewscheduleshouldimprovetheroute’son-timeperformanceevenwithoutchangestoticketingandloadingproceduresatFauntleroy,therebyincreasingcommunitysatisfaction.Manyofthealternativesanalyzedabovethatareanticipatedtoboostefficiencyinprocessingatthetollboothmaymarginallyreducetheneedtoexpanddwelltimetofillvessels,whileimprovingtheprospectsformaintainingon-timedepartures.SchedulechangeswouldofcoursecarryimplicationsforthevehicleallotmentscurrentlyinplaceforsomedualdestinationsailingsontheTriangleRoute.AllotmentsaregenerallyusedtoaddressequityconcernsandaffectWSF’sabilitytomeetdemandinanefficientandstreamlinedmanner.Anyspecificallotments,numbersoradaptationprocesseswoulddependontheultimatedesignoftheTriangleRouteschedule.

E.FinanceandBudgetFinanceandbudgetallocationplayaprominentroleineverydecisionWSFmanagementmakes,whetherrelatedtocapitalprojectsoroperations.Severalfactorshaveleftstatewidetransportationagencies,includingWSF,severelyshortoffunds.Theseinclude:1)theeliminationofthestateMotorVehicleExciseTax(MVET)in1999,2)decliningfueltaxrevenue,3)reducedpurchasingpoweroffeesandchargesthatarenotindexedtoinflationoradjustedannually,and4)thenegativeeffectsofthe2008recessiononsales-taxrevenues.Additionally,thirteenWSFvesselsarescheduledtoreachorbeneartheendoftheirlifespanby2040,puttingseverestressonWSF’sfinancesandabilitytoprovidereliableservice.Comparedtotheloomingfinancialrealitiesoflargecapitalprojectsinthenearfuture,ticketingandloadingimprovementsattheFauntleroyFerryTerminalentailrelativelysmallupfrontorongoingcosts.InvestingintheseprocessescanimproveefficiencyandincreasetheTriangleRoute’sfareboxrecovery.Thatsaid,duringformalinterviews,WSFuppermanagementquestionedthelogicofinvestingsubstantiallyinshort-termfixeswhendockupgradeswouldchangetheirconstraintsandrendersomealternativesobsolete.BecauseWSF’scurrentresourcesarefullyallocated,anytrialsorimprovementsatFauntleroyrequireadditionalfundingfromtheLegislature.Ofthealternativesanalyzedinthisreport,somewouldneedtobeimplementedsystem-wide,whileothersarelocationspecific.Thescopeofeachalternativewilldramaticallyaffectthecost.TheTriangleRoutealreadyhasabelow-averagefareboxrecoveryrate--animportantconsiderationwhenanalyzingalternativesthataffectrevenue.66

66WashingtonStateFerries.(2017,December15).RouteStatementsforFY2012–FY2017.


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The2017-2019WSDOTEnactedBudgetallocates$486million(27%oftheoverall$1.8billion)foroperatingcoststoferries.Theoperationsbudgetmaintainscurrentferryservicelevelsthroughthecontinuedtransferoffundsfromothertransportationaccounts.Ofthesystem’stenroutes,theTriangleRoutehasthehighestallocationfordeckcrewinthebiennialbudgetat$20,099,057,whichis15.2%ofthetotal.67WSDOTallocates$351million(9.6%oftheoverall$3.9billion)forWSFcapitalprograms.Thecapitalbudgetisdedicatedtopreservingandimprovingexistingferryterminals,vessels,andbuildingnewterminalsandvessels.FerryimprovementsarebasedonWSF’sLongRangePlanandseektoincreasethecapacityoftheferrysystem;provideferryriderswithconnectionstoalternativemodesoftravel;addresscustomerneedsandservicedeliveryrequirements;andgeneraterevenueandcostsavings.$254millionisearmarkedforterminalinvestments.68WhilethemajorityofthatamountisdedicatedtoterminalprojectsatMukilteoandSeattleandtocompletingthefourth144-carferry,trestleandtransferspanreplacementattheFauntleroyTerminalisonthelistofcapitalprojects.

F.DataLandscapeandNeedsforAdditionalDataCollectionInordertoadvanceevidence-baseddecisionmakingfortheTriangleRoute,andinparticularforticketingandloadingatFauntleroy,wehaveidentifiedasetofdatalimitationsandgaps.Inthissectionwefirstpresentseveralcriticaldatainconsistenciesandlimitationsthatweencounteredduringouranalysis.Next,weidentifyexistingdataneedsandmakesuggestionsforaddressingtheminsupportoffutureanalysis--suchasassessingtheimpactofoperationalchangesonWSF’sabilitytomeetdemandoronrevenueandfareboxrecovery.Thesesuggestionsrepresentastartingpointandseektoinspirefurtherdatacollectionandanalysisefforts.

DataInconsistenciesandLimitations

Toascribecauseforunmetdemandintheafternoonrushhour,weanalyzedobservationdataprovidedbyWSF,asdescribedintheAbilitytoMeetDemandsectionoftheStatusQuooperationalalternativeonpages23-26andintheSchedulesectiononpages44-47.69However,thesedata,collectedduringtherush-hourperiodonweekdaysduringthesummerof2017,weresubjecttoconsiderablehumanerror.Terminalstaffweredirectedtorecordtheirobservationsbyhandonaformthataskedwhetherdepartingboatswerefullandforestimatesofthenumberofavailablespacesonthem.Throughouttheobservationperiod,differentterminalstaffdocumentedtheirobservations,insomecasesaddingnotesabouttruedeparturetimesandinotherinstanceskeepingincompleteorinconsistentrecords.Forinstance,oftheoriginal716observations,68offerednonumericaldatapointsandanother11hadconflictinginformationabouttheboat’sfullnessascomparedtoavailablespacesonthevessel.Whilethedataonavailablespacesspanned

67WashingtonStateFerries.(2017,October).2017-19OperatingProgramBudget.68WashingtonStateDepartmentofTransportation.(2017,December).2017-2019WSDOTEnactedBudget,p.62.69WashingtonStateFerries.(2017).FauntleroyTollBoothRedemptions.


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June19,2017toOctober2,2017,sailingsonallweekendsandon16weekdayswereabsent,includingtwofederalholidays(IndependenceDayandLaborDay).Despitetheseshortcomings,theavailablespacecountobservationswerethemostillustrativeandcomprehensiveatourdisposal.TheresearchteamalsoexaminedWSFsalesdataforsailingsontheTriangleRoute;however,thesewerealsoincomplete.Thesalesrecordscontaineddataforonlyasingleweekinthreedifferentseasonsfor2017and2018.Inisolation,theywereinsufficienttoascertaintrendsorinefficienciesinticketingandloading.Finally,animportantlimitationinthecurrentinformationbaserelatestotheOriginandDestinationsurvey.Thissurveyiscarriedoutona7-yearcyclewiththenextreleaseslatedfor2020;themostrecentsurveydataset(2013)isalreadyoutofdate.Havingmoreup-to-datesurveydatawouldinformthedevelopmentofresponsivetransitconnections,thuspromotingwalk-onpassengersandotheralternativemodesoftransportation.

DataNeeds

Amorecomplete,accurate,andstandardizedinformationbaseisnecessarytoprovidefurtherinsightintothedynamicsofunmetdemandandlatedepartures.Specifically,weidentifythefollowingissuesandopportunitiesrelatedtoimprovingWSF’sdatacollectionandanalysis:

• DataNeed:Improvedaccuracyofdataregardingon-timeanddelayeddepartures.

Purpose:Thesedatawouldaddressthelimitationsdiscussedabove,underdatainconsistencies,andcouldinformrevisionstoschedulesorloadingpolicies.

• DataNeed:Trackthenumberofvehiclesandthelengthoftheholdinglane,aswell

asthedistributionofwaitingtimes,foreachdestination,bysailing.

Purpose:Thesedatawouldprovideanaccuratemeasureofdemandinexcessofcurrentcapacityandallowassessmentoftrendsovertime;however,WSF’sdecisionsaboutdualvs.singledestinationschedulingmaymitigatethisdataneed(unknownasthisreportgoestopress).Inaddition,wait-timedatawouldsupportconsiderationofchangestoperformancemeasuresanddevelopmentofasmartphoneappthatwouldprovidereal-timeinformationaboutwaitsandtripduration.

• DataNeed:Arobustempiricalormodeledtimecomparisonforpassagethroughthe

tollboothsofdirectlyloadedvehicles(e.g.,pre-ticketedandGTG)versusvehiclesticketedatthetollbooths.Wehaveseenasampleanalysiswhichconcludes540secondsfor40carsthroughtollbooth,assumingamixtureofonsiteandpre-ticketingvehicles,butwehavenotseentheunderlyingdatasetormodel.70Amodelassumingsolelydirectloadingvehicleswouldcompletethiscomparison.

70WashingtonStateFerries,UniversityofWashingtonclassroompresentation,May2018.


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Purpose:Thesedatawouldenableanalysisofthemarginalimpactofdirectloadingontollboothspeedandinformthepotentialtimesavingsofadirectloadinglane.

• DataNeed:Revenuesensitivityanalysisforpotentialalternativesforticketingandloading(includingchangingfarestructures,alteringpassenger-tollboothinteraction,andothers).

Purpose:Thisinformationwouldenableassessmentofimpactsonrevenuesandfareboxrecovery,aswellastheupcomingreviewoffarestructures.

• DataNeed:Accuratecostdataforpotentialinfrastructureandstaffingchanges

(includingpurchaseandmaintenanceofmobilescanners,GTGequipmentandsoftware,wirelessinfrastructure,andlabor).

Purpose:Informationaboutthesecostscouldinformdecisionsabouttheimpactofeachalternativeonfareboxrecovery.

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RECOMMENDATIONSBasedontheforegoinganalysisanddiscussion,thissectionpresentstwobroadsetsofrecommendations.AllrecommendationsaimtoimproveticketingandloadingatFauntleroy,thougheachentailsitsowntimeline,budgetandimplementationstrategy.Thefirstsetofrecommendationspresentstwocoursesofactionthatdirectlychangeticketingandloadingprocedures:apermanentsolutiononcetheFauntleroydockisrebuilt,andpackagedshort-runchangesthat“fasttrack”loadingmoreincrementally:

1. LongRun:DirectlyloadvehiclesbyimplementingGoodToGo!system2. ShortRun:“Fasttrack”viaenhancedtechnology,connectivity,andstaff

Giventheshort-runchallengesofticketingandloadingatFauntleroy,weurgeWSFtopilottrialsanddatacollectiononourshort-runrecommendationsassoonasfeasible.Thesub-sectionsbelowelaborateontheseinlightofouranalysisabove.Thesecondsetofrecommendationsincludesfourcross-cuttingactionsthatwillgenerateincrementalgains,regardlessofwhichchangestoticketingandloadingareimplemented:

A. Improvestafftraining,management,andretentionfortheTriangleRouteB. ReviseWSF’sperformancemeasuresC. ImprovedatacollectionandanalysisD. Refinecommunityengagement

TheserecommendationsdovetailwiththeemphasesinWSF’sLongRangePlanonupgradingtechnology(includingimplementingGoodToGo!),improvingstafftrainingandqualifications,revisingperformancemeasures,expandingdatacollectionandanalysis,andincreasingpublicunderstandingandengagement.AnyrecommendationsthatWSFpursues--whetheronapilotorpermanentbasis--willrequirecarefulplanningandimplementation,aswellasadditionalfundingfromtheLegislaturegivenWSF’scurrentfinancialcircumstances.

I.TicketingandLoadingRecommendations

1.LongRun:DirectlyLoadVehiclesviaGoodToGo!NothingoffersmorepotentialtoreducethecurrentcongestionattheFauntleroyterminalthandirectloading.Itallowstraffictocontinuouslyflowfromtheholdinglaneontothedockforstagingandimmediateloading.GTGisthealternativethatmostcloselyconformstodirectloading.WithGTGinplace,carscancontinuestraightontotheboatasdirectedbyWSFstafffordualdestinationsailings.Forsingledestinationsailings,carsboundforthatboat’sdestinationcanloaddirectlyontotheboat,whilestaffcandirectallothervehiclesto

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queueonthedock,therebyrelievingthebottleneckoftheholdinglaneonFauntleroyWay.AnalternativethatweconsideredbutdidnotfullyanalyzewasremovingtollingentirelyfromFauntleroy;however,thisapproachiscomplicatedsubstantiallybythecurrentlackoffarecollectioncapabilityanddockstagingcapacityonVashon.ToimplementGTG,WSFwouldneedtoadoptthetechnology,adjustfarestructures,andaccommodatepassengersecurityrequirements.RealizingthatadockreplacementplanningprocessandrebuildareonthehorizonweadditionallyrecommendthatadesignwhichincorporatesGTGtechnologybeincludedinthesetofalternativesassembledforevaluation.

2.ShortRun:“FastTracking”Giventheconstraintsoftheexistingdockandtherelateddockrebuildonthehorizon,short-runsolutionstothechallengesofticketingandloadingatFauntleroyareelusive.Nevertheless,WSFmayrealizeincrementalgainswithbundled“fasttrack”packagesinvolvingadditionalstaffingandtechnologyupgradesdrawnfromthealternativesweexaminedabove.Abasicfasttrackpackagecouldbestructuredwithmobilevalidationofpre-ticketedvehiclesupstreamofthetollbooth.Thiswouldallowpre-ticketedvehiclestoavoidatransactionatthedockentranceandmodestlyexpeditetheholdinglane.Alternatively,amoreambitiousfasttrackpackagecouldbestructuredtoincludefullymobileticketsalesandvalidationintheholdinglane.Thislatterpackagewouldallowacontiguouslineofwaitingvehiclestobeticketedandvalidatedinadvanceofreachingthetollbooth,sothattheycoulddrivedirectlyontoaloadingvesselasagroupfollowingthestagedvehiclesonthedock.Bothofthesefasttrackpackageswouldbeinfeasiblewithoutadvancestotechnologyandincreasedstaffingasoutlinedbelow.WerecommendthattheLegislatureprovidefundingforWSFtoruntrialstoestimategainsassociatedwithfasttracking,inordertoinformdecisionsmovingforward.Possiblefasttrackconfigurationstoexploreincludethefollowingthreeiterations:1. Upstreamvalidationofpre-ticketedcars.WSFcouldcreateanewstaffposition--inthis

casearoving“scanner”whowouldwalkupthesidewalkalongFauntleroyWayandvalidatepre-purchasedticketswithamobilehandscannerthroughthevehicle’spassengersidewindow.Thisstaffmembercouldindicateavehicle’svalidationwithareceiptorvisualcue,enablingittopassdirectlyontothedockwithoutstoppingatthetollbooth.Vehiclesvalidatedupstreamwouldstillhavetowaitinlinebehindcarsneedingtomaketollboothtransactions,thustimesavingswouldbeonlymarginalandincremental.Thisconfigurationwouldrequire:

• strong,consistentWiFiconnectivityviaeitherWiFiboostersorcoveragerelatedtoadataplanextendingnorthonFauntleroyWay,

• upgradedmobilescanners,and

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• arovingstaffmemberauthorizedtowalkupthepedestriansidewalkandcarryouttransactionsthroughthepassengersidewindowofvehicles.

2. Upstreamvalidationwithexpeditedpassagetodock.Thisfasttrackconfigurationfollows

theprocessoutlineddirectlyaboveandalsoincorporatesexpeditedpassagetothetollboothafterupstreamvalidation.ThiswouldentailWSFhiringanadditionaltrafficofficerduringpeaktraveltimestotrailtherovingscannerandpullvehiclesoutoftheholdinglaneaftervalidation,directingthemdowntothetollboothsoncethestagedcarsonthedockbeginloading.(IfWSF’snewschedulefortheTriangleRoutemakesallsailingsdualdestinationduringpeaktraveltimes,sortingcarsintheholdinglanebasedondestinationwouldbeunnecessary,thusfreeingupatrafficofficer.)Inthisscenario,theofficeratthedockentranceandtheofficerwalkingtheholdinglanecouldcoordinatetimingviawalkie-talkiesuchthateachvalidatedvehiclepulledfromtheholdinglanecansafelyentertheterminalwithoutblockingtraffic.Theoverallresultwouldbetoexpeditethepassageofupstreamvalidatedvehiclesontothedock,ratherthanleavingthemtowaitbehindcarsstillneedingtopurchaseticketsatthetollbooth.Thisinnovationwouldfurtherincreaseloadinggainsandthusfillavailablespacesonvesselsevenmoreefficientlythanthepreviousconfiguration.Thispackagewouldrequire:

• strongconsistentWiFiconnectivityviaeitherWiFiboostersorcoveragerelatedtoadataplanextendingnorthonFauntleroyWay,

• upgradedmobilescanners,

• arovingstaffmemberauthorizedtowalkupthepedestriansidewalkandcarryouttransactionsthroughthepassengersidewindowofvehicles,and

• anadditionaltrafficofficer.3. Upstreamticketingandvalidation.Inthisfinalrefinementtofasttracking,theroving

staffmemberwouldcarryamobileticketingdevicethatcouldexecutebothmobileticketsalesandvalidation,thusactingasamobiletollboothwhenthedockisfullofstagedcarsprecludingtollboothpassage.ThisalternativeopensupthepossibilityofacontiguouslineofcarsdrivingdirectlyfromtheholdinglaneonFauntleroyWayontothedockandontotheferryfillingavailablespacesonthedockedvessel(i.e.,withnostopsatthetollboothfortransactions),oncethestagedcarshavebeenloaded.Becauseticketpurchasetransactionstakelongerthanaquickscantovalidateapre-purchasedticket,thetimetradeoffbetweentransactiontimecostsandfasttrackloadingtimesavingswouldneedtobeexploredtoestimatethenetimpactofthisapproach.Thispackagerequires:

• strongconsistentWiFiconnectivityviaeitherWiFiboostersorcoveragerelatedtoadataplanextendingnorthonFauntleroyWay,

• mobileticketingdeviceswithcapabilitiesbeyondthecurrenthandscanners,

• arovingstaffmemberauthorizedtowalkupthepedestriansidewalkandcarryouttransactionsthroughthepassengersidewindowofvehicles.

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WSFdockcrewandmanagementshouldcollectdataorcarryoutsimulationsforeachconfigurationduringpre-settrialperiods,relatingto1)vehiclewaittimesavings,2)ticketingandloadingtimecostsandsavings,3)reductionsinavailablespacesonvessels,and4)bottlenecksintrafficlanesordocklanes.

II.Cross-cuttingRecommendationsThefollowingcross-cuttingrecommendationscanbeimplementedseparatelyorinanycombinationandwouldsupporttheintroductionofchangestoticketingandloading.TheymayalsoproduceincrementalimprovementsintheStatusQuo,particularlyinlightofthechangesWSFisproposingtotheTriangleRouteschedule.

1.ImproveStaffTraining,Management,andRetention

• WSFshouldcompletehiringofnewstaffseveralmonthsbeforethesummertoensuretheyaretrainedandpreparedfortheincreaseinpassengersandvehiclesduringpeaktravelseason.

• GiventhechallengesandcomplexitiesatFauntleroydock,stafftrainingshouldincludecustomerserviceandconflictde-escalationtechniquesinadditiontooperationalproceduresandefficiency.

• AslongasTriangleRoutestaffingcontinuestosufferrapidturnover,theTerminalManagerandPortCaptainshouldmakeregularvisitsandcoachingeffortstoimprovethefront-linesupervisionandmoraleofthedeckanddockcrews.

• TheTerminalManagerandPortCaptainshouldexplorewaystoretainfront-linestaffandsupervisorsontheTriangleRoute.Ideascouldincludeeffortstoincreaseintrinsiccrewmotivationandcohesionbyofferingopportunitiesforinformalleadershipormentoring.

• TheOperationsDepartmentshouldincreaseeffortstoaddresstheshortageofqualifiedcrewmembersbyfindingcreativewaystosupportandpromotejuniorstaffinmakingthetransitiontomanagerialpositions.

2.RevisePerformanceMeasuresRevisingWSFperformancemeasurescould1)allowterminalandvesselcrewstobemoreresponsivetoreal-timeoperationalchallengesofticketingandloading,and2)increaseWSF’sabilitytocollectanddisseminatemeaningfulinformationtothepublic,increasingtrustandimprovingcommunitysatisfaction.PerformancemeasuresthatbetterreflectservicedeliverywillincreaseWSF’sabilitytoreportonpositiveornegativeoutcomes.Forexample:

• Prioritizingaperformancemeasurerelatedto“peopleandvehiclestransported”--ratherthan“on-timedepartures”--wouldallowstaffandmanagerstofocusonmeetingdemandasatoppriorityandlikelycorrelatewithrevenuecollected.

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• Addingameasurefocusedon“vehiclewaittimes”woulddemonstrateanexplicitconcernforacrucialaspectofcustomersatisfaction.Moreover,itwouldprovidedatathatWSFcouldmakepubliclyavailableinrealtimeviaasmartphoneapp,toenabledriverstoanticipatehowlongtheferryportionoftheirtravelislikelytotake(seeRefineCommunityEngagementsectionbelow).

3.ExpandDataCollectionandAnalysisAnexpansionofdatacollectionandanalysiswouldhelpdiscernthepotentialimpactofchangesinticketingandloading.Expandingtheinformationbasethroughtrialsofsufficientlengthtogaugegainsislikelytobeparticularlyvaluabletoinformthedesignandpotential“FastTracking”strategies,becausetheirimpactswouldbemoremarginalthanthegainsfromGoodToGo.BasedonthediscussionintheDataLandscapesectionabove,werecommendthecollectionandanalysisofthefollowingtypesofdataattheFauntleroydock:

• Moreaccurateobservationsregardingon-timeanddelayeddepartures;

• NumberofvehiclesandlengthoftheholdinglinealongFauntleroyWay,aswellasthedistributionofwaitingtimesforeachdestination,bysailing;

• Arobustempiricalormodeledtimecomparisonforpassagethroughthetollboothofpre-ticketed,pre-validated,andGTGvehicles,versusthoseticketedorvalidatedatthetollbooths;

• Revenuesensitivityanalysisforpotentialalternativesforticketingandloading(includingchangingfarestructures,alteringpassenger-tollboothinteraction,andothers);

• Accuratecostdataforpotentialinfrastructureandstaffingchanges(includingpurchaseandmaintenanceofmobilescanners,GTGequipmentandsoftware,wirelessinfrastructure,laborforanadditionaltrafficofficerandincreasedstafftraining).

4.RefineCommunityEngagementImprovedcommunityunderstandingoftheTriangleRoute’soperationsiscriticallyimportantforthelegitimacyandcredibilityofWSFbutwouldrequireaugmentingWSF’scurrentcommunityengagementpoliciesandpractices.WerecommendWSFconsiderthefollowingpossibilities:

A.Customizecommunityengagementtoindividualcommunities:

SpecificconstraintsandoperationalnuancesexistfromoneferryterminalcommunitytothenextthroughoutthePugetSound.Forthisreason,site-specificcommunityengagementontheTriangleRoutecouldimprovebothoperationsandtrustbetweenWSFandthecommunitiestherouteserves.WerecommendallocatingfundsinWSF’sbiennialbudgetto

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enablestafftoattendcommunityeventsandconductlocation-specificsurveysregardingtheTriangleRoute.

B.Constituteacross-communityconsultativebodythatextendstheTTF’swork:

OurinterviewswithcommunityresidentsandwithWSFmanagementsuggestthedesireforarichercross-communitydialoguetoimproveeachcommunity’sunderstandingoftheothers’needsandpriorities.WSFmightusetworelatedapproachestoestablishandmaintainsuchadialogue:workingwiththeLegislaturetorevisethelegislationauthorizingtheFACsandconveningcross-sitedialoguesamongthethreecommunitiestheTriangleRouteserves.

1. DespiteeffortstomaintainfrequentandaccuratecommunicationbetweenWSFandtheFACsontheTriangleRoute,therearediscrepanciesbetweenandwithintheFACsinthethreeTriangleRoutecommunitiesregardinginstitutionalknowledge,WSF’shistoryandpurpose,andeffectivecommunityengagement.Thecommunity-specificmembershipoftheFACsfurtherreinforcesdifferencesofperspectivesandinterestsacrossthecommunitiesthatWSFserves,ratherthanfocusingtheFACsonthechallengesandneedsofentireferryroutes.WSF’sauthoritytoimprovetheunderstandingandfunctioningoftheFACsislimitedbythelegislationauthorizingtheFACs,whichgivescountiestheauthoritytoappointFACmembers.Changestothecomposition,functioning,androlesoftheFACsneverthelesscouldimprovethetwo-wayflowofaccurateinformationbetweenridersandWSFstaff.Improvedinformationflows,inturn,couldimprovecommunitymembers’understandingofWSF’seffortsandconstraintsinoperatingtheTriangleRoute.ToreconstituteandrevisetheworkoftheFACs,therefore,werecommendthattheLegislatureworkwithWSFtorevisethelegislationauthorizingtheFACs,withinputfromtheFACsthemselves.Therevisionsshould:

• GiveWSFtheauthoritytoappointtheFACs,toensureabalanceofperspectivesandexpertise;

• ChangethestructureoftheFACssothateachonerepresentsasingleferryroute(suchastheTriangleRoute),ratherthananindividualcommunitythatWSFserves;

• BudgetforWSFtostaffandtraintheFACs;

• ProvidefundsforWSFtoworkwithaconsultantandexistingFACmemberstodevelopanFAC“Toolkit”thatcontainscomprehensiveinformationonWSF’sinstitutionalknowledge,andbroaderpurpose,whileofferingcustomizablebestpracticesforcommunityengagement(e.g.structureofcommunitymeetings,interactionswithlocalnewsmedia,etc.);and

• CreateaFACchartertobesignedbynewFACmembersuponappointmentbytheapplicableLegislativeormunicipalofficial.

2. WhiletheFauntleroyterminal-redesignprocesswillincludeacross-community,

three-sitedialogue,werecommendthatWSFbeginsuchadialoguerightaway.To

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buildunderstandingandtrustamongthethreeTriangleRoutecommunitiesandWSF,theLegislatureshouldallocatefundingforWSFtoconveneaseriesofbroad-baseddiscussionsfacilitatedbyaneutralparty.WhiletheTTFhasbroughttogether communityrepresentativestoproposeandreviewideasforshort-runchangesatFauntleroy,ourinterviewsdocumentedpersistentmistrustacrossthethreeTriangleRoutecommunitiesandbetweensomecommunitymembersandWSF.ToaddressthismistrustandimprovecommunityunderstandingasWSFimplementstherecommendationslistedabove,aneutralfacilitatorcouldconvenediscussionsamongstakeholders.Thediscussionscouldincludejointfactfinding,developingacommoninformationbase,exploringissuesandinterests,anddevelopingacommonunderstandingofproblemsandissues.Theparticipantswouldthenbeequippedtoco-designthegroundrulesfortheTriangleRouteFACs,thecommunityengagementprocessfortheFauntleroyterminalredesign,oranewTTF-typeentity.

C.ExpandWSF’ssocialmediapresence:

In2018socialmediaplaytheroleoftabloid,credibleprimarynewssource,andpublicforumallatonce.ConsistentwithWSDOTpolicy,WSFcurrentlylacksitsownuniquesocialmediapresenceonFacebook,whereseveralTriangleRoutecommunitieshavepagesdedicatedexplicitlytodiscussingferryserviceandadvocatingforimprovements.WSFwouldbenefitgreatlyifWSDOTpermitteditsstafftomonitor,proactivelypostto,andrespondtocommentsonsocialmediaplatforms,includingFacebook.AmoreproactiveWSFpresenceonsocialmediacouldreducethetensionandincreasedialogueandtrustbetweenWSFanditsconstituents,orattheveryleastlimitthespreadofmisinformation.

D.IncreasepublicinformationandoutreachonTriangleRoutevesselsandterminals:

OnepersonweinterviewedsuggestedthatWSFthinkabouttheferriesasacommunitymeetingplace--likeapark--inadditiontoamodeoftransport.WSFmightconsiderinstitutingregularcustomeroutreachandengagementbyregularlyassigningcustomerserviceoroutreachstafftorideTriangleRoutesailingsandtalkwithpassengersabouttheirexperiences.Anotherpossibilitymightbetoworkwithlocalschoolstocreateactive-learningopportunitiesforstudents,tohelpchildrenfromtheTriangleRoutecommunitieslearnabouttheferrysystem,thechallengesandcomplexitiesoftheFauntleroydock,andthewaysinwhichtheTriangleRouteservesthethreecommunities.Currently,allthreeboatsontheTriangleRoutehavescreensthatdisplaypre-recordedvideosaboutsafetyprotocol.WSFcouldintegrateinformationaboutupcomingevents,plannedroutechangesandcommunitymeetingsintothesevideoloops.SignsandpostersattheTriangleRouteterminalscouldprovidesimilarinformation.

E.Developasmart-phoneappwithreal-timeestimatesofwaittimes:

WerecommendthatWSFdevelopandmakeavailableanappthatenablesdriverstoanticipatehowlongtheferryportionoftheirtravel--includingwaittime--islikelytotakeonanygivenday.ThisrecommendationbuildsontherecommendationsabovethatWSFaddaperformancemeasureandcollectdatarelatedtovehiclewaittimesandisconsistentwithWSF’sintentionsinitsLongRangePlan.Ridersarecurrentlyabletosignupfortextor

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emailnotificationsfromWSFthatestimatewaittimeswhentherearescheduleinterruptions.Theseestimatesareofteninaccurate,however,andarenotcustomizedbasedondestination.Alocation-drivensmart-phoneapp,bycontrast,couldestimatewaittimesbeforeariderleavesherhouse,whilesheisenroutetoaferryterminal,andoncesheisintheholdinglane.TheappcouldbebuilttointegratewithGoogleMapsandothertravel-planningapps,enablingferryriderstoplantheirentiretripsusingasingleapp.Ridersusingsuchanappwouldlikelyfeellessconfusionandfrustrationthantheycurrentlydo;widespreaduseoftheappcouldthereforereducesomeofthetensionsthatTriangleRouteriderscurrentlyfeeltowardWSF.

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CONCLUSIONCommissionedbythe2018WashingtonStateLegislature,thisreportoffersanindependentexaminationofthecomplexoperationsattheFauntleroyFerryTerminalandpotentialsolutionstocurrentticketingandloadingchallenges,alongwithsuggestionstoimprovecommunityengagementrelatedtotheTriangleRoute.Theanalysisisinformedbyavailableempiricalandobservationaldata,andbythecollectionofprimarydataontheperceptions,preferences,andperspectivesofstakeholders.Ourapproachgaugespotentialgainsassociatedwithticketingandloadingchangesagainstaconsistentsetofcriteria,whilerecognizingexistinginfrastructureandtechnologyconstraints.Alloftherecommendedchangeswouldrequiresupportandresourcestofullyscopeandimplement.SummaryofFindings

• WSFstaffareworkinghardamidstfinancialscarcityandoutdatedtechnology.EasyfixestotheticketingandloadingchallengesatFauntleroyareelusive.Communityengagementfacesseriouschallenges,butweidentifyopportunitiesforchange.

• WerecommendnewlegislativeinvestmentstosupportimprovementsinWSF’stechnology,training,publicengagement,anddatacollectionandanalysistostreamlineticketingandloadingatFauntleroy.

○ Intheshortrun,additionalstaff,upgradestoconnectivity,andmobileticketsalesandvalidationhavepotential.

○ Inthelongrun,buildinganew,largerdockwithWSDOT’sGoodToGo!technologyholdsthemostpotentialtostreamlineticketingandloading.

• Toenablethesechanges,werecommendcross-cuttingchanges,including:

○ improvingstafftraining,management,andretentionatFauntleroy;○ expandingdatacollectionandanalysistomeasuretheimpactofchangesto

ticketingandloading;

○ engagingtheservedcommunitiesmoreconsistentlyandeffectively.

• WealsorecommendthattheLegislatureworkwithWSFtoreviseWSFperformancemeasurestobetterreflectservicedeliveryrealitiesandconsiderations.

Despitedifferencesofperspectivesandopinionsbetweenstakeholders,everyonewespokewithisdedicatedtoimprovingoperationsatFauntleroy,aswellastheTriangleRoutemoregenerally.Wehopethattheseoverallsharedaims,incombinationwithourfindingsandrecommendations,canhelpunifytheTriangleRoute’sstakeholderstosupportWSFstaffandtheLegislatureindevelopingsustainablesolutionstothechallengesofticketingandloadingatFauntleroy.

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Cooper,J.,andEicher,T.S.(2018,January23).StateRevenueImplicationsofFerryCapacityUtilization:ACaseStudyofTheFauntleroyFerryTerminal.Retrievedfromhttps://faculty.washington.edu/te/triangle/WSF_Cooper_Eicher.pdf.

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Lester,J.T.,(2015,March).A2015ComparisonofOperationalPerformance:WashingtonStateFerriestoFerryOperatorsWorldwide.Retrievedfromhttps://www.wsdot.wa.gov/research/reports/fullreports/750.2.pdf.

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Rosenburg,M.(2017,June6).Noescapeforpriced-outSeattleites:Homepricessetrecordforhourdriveineverydirection.TheSeattleTimes.Retrievedfromhttps://www.seattletimes.com/business/real-estate/no-escape-for-priced-out-seattleites-home-prices-set-record-for-hour-drive-in-every-direction/.

Stanford,J.(2018,April6).KitsapCountyhomepricesreachfiveyearhigh.KitsapSun.Retrievedfromhttps://www.kitsapsun.com/story/news/local/2018/04/06/kitsap-county-home-prices-reach-five-year-high/491645002/.

TriangleTaskForce.(2018,January18).TriangleImprovementTaskForceCharter.Retrievedfromhttps://www.wsdot.wa.gov/sites/default/files/2016/10/28/Signed_2018_Charter.pdf.

UnitedStatesCensusBureau.(2018).QuickFacts:VashonCDP,Washington.Retrievedfromhttps://www.census.gov/quickfacts/vashoncdpwashington.

WashingtonStateDepartmentofTransportation-FerriesDivision.(2018,August17).OrganizationChartDraftforReview.Providedinresponseto2018datarequest.

WashingtonStateDepartmentofTransportation.(2011,June18).WSFMission,Vision,Commitments.Retrievedfromhttp://www.wsdot.wa.gov/NR/rdonlyres/B3103014-8247-40F3-8942-3E815A7E9D7A/0/WSFMissionVisionCommitments2011_0618.pdf.

WashingtonStateDepartmentofTransportation.(2012,October).Driveorsail:comparingcost,time,andgreenhousegasemissions.Retrievedfromhttps://www.wsdot.wa.gov/NR/rdonlyres/F56C7AB2-304B-466D-9274-788D9203454C/0/Drive_Or_Sail_Folio_102512_singlepage.pdf.

WashingtonStateDepartmentofTransportation.(2014,January30).JointTollandFerryCSCFeasibilityStudy.Retrievedfrom

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WashingtonStateDepartmentofTransportation.(2017).2017archives:improvingserviceontheFauntleroy/Vashon/SouthworthRoute.Retrievedfromhttps://www.wsdot.wa.gov/ferries/outreach/triangle-archives.

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WashingtonStateDepartmentofTransportation.(2017,November16).Fauntleroy/Vashon/SouthworthRouteFrequentlyAskedQuestions.Retrievedfromhttps://www.wsdot.wa.gov/sites/default/files/2017/05/30/2017_FVS_Public_Comment_FAQ_final_.pdf.

WashingtonStateDepartmentofTransportation.(2017,December).FY2017WSDOTFerriesDivisionPerformanceReport.Retrievedfromhttp://www.wsdot.wa.gov/publications/fulltext/LegReports/17-19/FY2017WSFPerformanceMeasuresReport.pdf.

WashingtonStateDepartmentofTransportation.(2017,December).2017-2019EnactedBudgetBook.Retrievedfromhttps://www.wsdot.wa.gov/sites/default/files/2018/01/12/Budget-Enacted2017-19-BudgetBook_0.pdf

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WashingtonStateDepartmentofTransportation.(2018,March).GrayNotebook:QuarterlyperformanceanalysisofWSDOT'smultimodalsystemsandprograms,Edition69.Retrievedfromhttps://www.wsdot.wa.gov/Accountability/GrayNotebook/gnb_archives.htm.

WashingtonStateFerriesonbehalfoftheTriangleTaskForce.(2017,December-June2018).Retrievedfromhttps://www.wsdot.wa.gov/ferries/outreach/triangle

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WashingtonStateFerries.(2017,October).2017-19OperatingProgramBudget.Retrievedfromhttps://www.wsdot.wa.gov/sites/default/files/2017/10/26/Ferries-Greater-Level-Detail-2017-19_5.pdf.

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WashingtonStateFerries.(2017,December13,January18,2018,andMarch29,2018).TriangleTaskForcePresentation.Retrievedfromhttps://www.wsdot.wa.gov/ferries/outreach/triangle

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AppendixA:WSFRouteMap

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AppendixB:DockDiagramTable

Position(LocationonDockDiagram)

Duties

TerminalSupervisor(A) TheterminalsupervisorcoordinatescommunicationbetweentheFerryCaptainandtheTerminalDirector,relayinginformationsuchashowmuchlongertheCaptainwilldwellforloading.

FerryCaptain(B) TheFerryCaptaincommunicateswithotherCaptainsontheroutetomakesuretheystayonschedule.TheCaptainhasabirds-eyeviewofthedockandultimatelydecideswhentodepart.TheCaptaincommunicateswithallboatstaffviaradio.

Able-bodiedSeamen(B) AteamofABSdirectvehiclesandwalk-onsthroughtheferrysideofunloadingandloadingprocedures.TheycommunicatewitheachotherandtheCaptainviaradio.Theycommunicatewiththestagingemployeesregardinghowmanymorevehiclesareexpectedand,ondualdestinationsailings,howmanyaredestinedforVashonorSouthworth.

StagingEmployees(C) Theseemployeesdirectvehiclesandwalk-onsthroughthedocksideofunloadingandloadingprocedures.Stagingemployeesdirectvehiclestothecorrectholdinglaneaftervehiclesdrivethroughthetollbooth.Ondualdestinationsailings,thisisparticularlyimportantastheboatmustbeloadedVashonfirst.TheycommunicatewiththeABSteamtomakesuretheboatisloadedasefficientlyandfullaspossible.Duringpeakhours,thereisanadditionalemployeeassistingloadingandscanningofmotorcycles.

TollBoothOperators(E) Tollboothoperatorssellandscantickets.

TerminalDirector(E) TheTerminalDirectorwatchesthedockfromthewestofthetollbooths.Fromthisvantagepoint,theycommunicatewiththeTerminalManager,TrafficSplitters,andTrafficOfficer.TheTerminalDirectormakesdecisionsregardingdockstagingandwhentostopsendingvehiclesthroughthetollboothsbeforeadeparture.Duringpeakhoursthedirectoris

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assistedbyanadditionalemployeewhoscansanddirectsvanpooltraffic.

TrafficSplitters(F) TheTrafficSplittersdirectvehiclesfromtheholdingareaalongFauntleroyWaytooneofthetollbooths.TherearesignificantsafetyrisksforthispositionastheSplittersstandverynearoncomingtraffic;theywearbrightvestsasasafetyprecaution.TheTrafficSplitterscommunicateandcloselyworkwiththeTrafficOfficertokeeptrafficandtheholdinglinemovingsmoothly.

TrafficOfficer(G-H) TheTrafficOfficeralternatesbetweendirectingtrafficwhenvehiclesunloadandwalkingthelineonFauntleroyWaytodirectvehiclestomoveaheadinlineasdictatedbyeachvehicles’destinationandthespaceonthedock.Therearesignificantsafetyrisksfortheofficerastheofficereitherstandsinthemiddleofanintersectionorwalksupthesideoftheroadnexttooncomingtraffic.ThetrafficofficerispaidthroughWSFand,currently,partiallythroughtheLegislature.

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AppendixC:InformationAssemblyDirectSiteObservationsatFauntleroyFerryTerminal

June20,2018

ObservationoftollboothoperationandworkbysplitterandpoliceofficeratFauntleroyduringafternoonrushhour.

June21,2018 IntroductiontoterminalstaffandgeneralobservationofFauntleroyduringrushhour.

June28,2018 ObservationofboatloadingprocessanddockoperationsatFauntleroyduringafternoonrushhour.

July5,2018 TourofthefullTriangleRoute,includingintroductiontoterminalandboatcrew,observationsfromthewheelhouse,andobservationofboatoperationanddockoperationsatSouthworthandVashon.

TriangleTaskForceMeetings,LRPOpenHousesandScheduleUpdateMeetings

June21,2018 TTFMeeting:EvansResearchTeamintroductionsandpresentationofscopeofwork,observedTTFdiscussionofnewscheduleoptions

July19,2018 TTFMeeting:Observedpresentationanddiscussionofnewscheduleoptions.Evansteamledgroupbreak-outsessionstopresentanddiscussfulllistof“criteria”and“alternatives”forticketingandloadingatFauntleroy

August15,2018 TTFMeeting:Observedpresentationofnewscheduleoptions

Sept.12,2018 ObservationofWSFledLongRangePlanOpenHouseatVashonHighSchool

Sept.13,2018 ObservationofWSFledLongRangePlanOpenHouseatHarperEvangelicalChurch,Southworth

Oct.23,2018 ObservationofWSFledScheduleChangeOpenHouseatFauntleroyChurch

Oct.24,2018 ObservationofWSFledScheduleChangeOpenHouseatVashonHighSchool

Oct.25,2018 ObservationofWSFledScheduleChangeOpenHouseatHarperEvangelicalChurch,Southworth.

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KeyInformantInterviews

Name Affiliation Date Type

CharlesSawyer FAC-Fauntleroy 9-Aug-18 phone

FrankImmel FAC-Fauntleroy 14-Aug-18 phone

AndrewHamilton FAC-Southworth 25-Jul-18 in-person

EricBeckman FAC-Vashon 1-Aug-18 in-person

JustinHirsch FAC-Vashon 14-Aug-18 phone

GregBeardsley FAC-Vashonchair 1-Aug-18 in-person

GaryDawson TTF/FAC-Fauntleroy 17-Jul-18 in-person

TimO'Mahony TTF/FAC-Southworth 16-Jul-18 in-person

KariUlatoski TTF/FAC-Vashon 11-Jul-18 phone

KathleenStephanick TTF-Fauntleroy 10-Jul-18 in-person

MargaretClements TTF-Fauntleroy 10-Jul-18 in-person

KymShepherd TTF-Southworth 16-Jul-18 in-person

RichSinger TTF-Vashon 16-Jul-18 phone

StevenMerkel TTF-Vashon 17-Jul-18 phone

AmyScarton WSF-AssistantSecretary 15-Aug-18 in-person

StephanieCirkovichWSF-DirectorofCommunity

ServicesandPlanning 31-Jul-18 in-person

HadleyRoderoWSF-StrategicCommunications

Manager 15-Aug-18 in-person

TrevorSharpWSF-CentralSoundTerminal

Manager 14-Aug-18 in-person

GregFaust WSF-DirectorofOperations 24-Sept-18 in-person

RayDeardorf WSF-SeniorPlanningManager 24-Sept-18 in-person

SteveStockett/RickWallace VashonResidents 17-Oct-18 in-person

CarlWinge VashonResident 17-Oct-18 phone

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ConsultationswithWSFAdministrativeStaff

ColinMcCann WSF-LegislativeAnalyst

JohnVezina WSF-DirectorofGovernmentRelations

JustinResnick WSF-ServicePlanningManager

KevinBurchett WSF-FauntleroyTerminalDirector

GenevieveRucki WSF-DesignEngineeringManager

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AppendixD:InterviewProtocol(Interviewquestionswereadaptedformembersofdifferentorganizations)InterviewQuestions:(formembersoftheTriangleTaskForce)1. Acknowledgingthateachofthecommunitiesonthetrianglerouteisuniquein

demographicsandingeography,howdoestheferrysystemserviceaffectyourspecificcommunity?Howdoesthatdifferfromhowitaffectingeachoftheothercommunities?

2.Asarepresentativeof______community,whatactionsordecisionsmadebyWashington

StateFerries,specificallyrelatedtotheTriangleroutehaveshapedyourcommunity’sattitudetowardferrysystemmoststrongly(positivelyornegatively)?

3.Whatsuggestionswouldyouofferferriestoimprovecommunicationwithinyourcommunity?(Whatarethemost/leasteffectivewaystodisseminateinformationinyourcommunity?Howdoyouseeindividualresidentscommunicatingwitheachotherandhowdoseeoutsidegroupscommunicatingwithresidents?Howcouldoutsidegroupsbettercommunicatewithyourcommunity?)

4.Whatisyourexperiencewithorunderstandingofhowferriesreceivesandhandlescomplaintsifandwhentheyaremade?

5.We’velearnedalotaboutthetrianglerouteferryserviceandhaveheardofmanydifferentwaystojudgesuccess.Whatisthemostimportanttoyouaboutferryoperationsandservice,inotherwords,whatcriterionwouldyouusetogaugesuccessfuloperation:i)frequencyofboats,ii)ontimeperformance,iii)reasonablefares,iv)minimizingwaittimeinline,v)other.

6.WhatdoyouseeasthebiggestchallengesrelatedtoferryoperationsontheTriangleroutes?

Followup:Towhatextentdoyouthinkotherparties,suchascommunitymembersnotinvolvedinthetaskforce,newsmedia,andferriesstaffunderstandthosechallenges?

7.Whatdothinkaresomepossibilitiesforimprovementstoaddressingthechallengesyou

justmentioned?Follow-up:Doyouseeanypotentialconstraintsorbarrierstoimplementingthoseimprovements?

8.Whatdoyouthinkaresomeofthestrengthsandlimitationsofproblem-solvingefforts

to-date?

9.Whatquestionsorsuggestionsdoyouhaveforourresearchteam?

10.Whoelseshouldwetalkto?

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AppendixE:2016WSFPerformanceMeasures

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AppendixF:CriteriaPresentedatTTFMeeting7/18/18CandidateCriteriatoGaugeValueofEachAlternative

• AbilitytoMeetDemand• TimeSpentgettingthroughTollbooth• ImpactonWSFRevenue• Cost• On-timePerformance• UnusedCapacity(availablespacesonboats)• CustomerSatisfaction• CustomerUnderstandingofProcess• Technicaland/orTechnologicalFeasibility• EquityinServicebyCommunity• EquityinWaitTimes• SafetyforPassengers• SafetyforWSFStaff• SafetyofTrafficOfficer(s)• RelationshipbetweenWSF&communities• EcosystemHealth• OtherEnvironmentalImpacts

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AppendixG:AlternativesPresentedatTTFMeeting7/18/18Ticketing/Loading/QueuingAlternatives

• IncreaseFauntleroyterminalstaffingduringrushhour• RevisitspaceallocationforSWdualdestinationboats• Changeloadinglayoutfordualdestinationboats• Unloadcarsbeforefoottraffic• Institutepre-ticketingdedicatedlane• ImplementwirelessaccessondockandalongFauntleroyWay• Bicycleorotherfortrafficofficer• Re-institutebypasslane• Redefinepeaktimeas1-7pm• Vehiclemobileticketsalesondock• On-vesselvehicleticketsales• Implementvehiclereservations• ImplementGoodToGo!system• ExpandintegrationwithORCAsystem• Updatehandheldscanners

Fares/Operations/CommunicationAlternatives

• Coordinatew/transitconnections• Re-routesomeV/SWferriestodowntownSeattle• Incentoversizevehicletriptiming• Increasevehiclefarestoincentwalk-ons• Flatrateforcaranddriveronly• Preferentialfaresfordualdestinationriders• Reduceoreliminatewalkonfares• Optimizeschedule(perWSFscheduleplanner)• Chargeeastbound• Educatedriversrequeuingandnavigatingtollbooth• CommunicatewaittimetoFvehiclesinrealtime• Educateridersretransitconnections• Educateridersrepre-ticketing• Reconsider/prioritizeperformancemetrics• Train&RetainTriangleRoutestaff

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AppendixH:SummaryStatisticsTable 3: Summary Statistics - Observed Available Spaces on Vessels for On-time Departures, Late Departures, and All Departures while operating on the regular schedule between 1415 and 1905 (June 17, 2017 to October 2, 2017)71

Table 4: Summary Statistics - Observed Available Spaces on Vessels for On-time Departures, Late Departures, and All Departures while operating on the regular schedule between 1600 and 1905 ONLY (June 17, 2017 to October 2, 2017) 72

Note: The underlying data for this table are a subset of those presented in Table 3.

ThesedatawerecollectedbetweenMonday,June19-Monday,October2byWSF.Therewere716observationsintherawdatasettransmittedinresponsetoourdatarequest.Observationswereonlytakenduringtheweekdaysandovertheafternoonhours(~2-7pm).OurunderstandingbasedonquestionstoWSFisthatdatesmissinginthedatasetrepresentgapsintherecord.Weekdaysnotaccountedforinthedatatransmittedinclude:

Friday,June23Tuesday,July4(IndependenceDay)Thursday,July27Wednesday,August9Wednesday,August23Friday,August25Friday,September1Monday,September4(LaborDay)Wednesday,September6Thursday,September7EntireweekofSeptember11-15Monday,September25

Further,anumberofobservationsrecordednon-numericdatapointsfortheestimated#ofavailablespacesleftover,suchas"n/a,"or"noline,"or"notraffic."Theseobservationswereremovedbecausetheycouldnotbeinterpretedquantitatively.

71 Washington State Ferries. (2017). Fauntleroy Toll Booth Redemptions 72 Washington State Ferries. (2017). Fauntleroy Toll Booth Redemptions