2015 TRIENNIAL SAFETY REVIEW OF SAN FRANCISCO MUNICIPAL TRANSPORTATION AGENCY (SFMTA) RAIL TRANSIT SAFETY BRANCH SAFETY AND ENFORCEMENT DIVISION CALIFORNIA PUBLIC UTILITIES COMMISSION 505 VAN NESS AVENUE SAN FRANCISCO, CA 94102 November 10, 2016 Final Report Elizaveta Malashenko, Director Safety and Enforcement Division 2015 TRIENNIAL SAFETY REVIEW OF SAN FRANCISCO MUNICIPAL TRANSPORTATION AGENCY (SFMTA) ACKNOWLEDGEMENT The California Public Utilities Commission’s Rail Transit Safety Branch (RTSB) staff conducted this system safety program review. Staff members directly responsible for conducting safety review and inspection activities include: Daren Gilbert – Program Manager Stephen Artus – Program & Project Supervisor Steve Espinal – Senior Utilities Engineer, Supervisor Jimmy Xia – Utilities Engineer – SFMTA Representative Raed Dwairi – Utilities Engineer – Joey Bigornia – Utilities Engineer Mike Borer –Supervisor Sherman Boyd – Signal Inspector Debbie Dziadzio –Operations Inspector Adam Freeman – Mechanical Inspector Robert Hansen – Utilities Engineer – AirTrain Representative Howard Huie – Utilities Engineer – LACMTA Representative Claudia Lam – Senior Utilities Engineer, Specialist David Leggett – Senior Utilities Engineer, Specialist John Madriaga –Track Inspector James Matus – Mechanical Inspector Kevin McDonald –Track Inspector Arun Mehta – Utilities Engineer Paul Renteria – Bridge Inspector Rupa Shitole – Utilities Engineer Yan Solopov – Regulatory Analyst Colleen Sullivan – Utilities Engineer Michael Warren – Utilities Engineer ii TABLE OF CONTENTS Page 1. EXECUTIVE SUMMARY ..........................................................................................................1 2. INTRODUCTION ......................................................................................................................2 3. BACKGROUND .........................................................................................................................3 SFMTA MUNI Rail System Description .........................................................................3 SFMTA 2012 Triennial Review Recommendations Status ............................................5 4. SAFETY REVIEW PROCEDURE .............................................................................................6 5. FINDINGS AND RECOMMENDATIONS .............................................................................7 APPENDICES A. Abbreviations and Acronyms List .........................................................................................24 B. SFMTA 2015 Triennial Safety Review Checklist Index .........................................................27 C. SFMTA 2015 Triennial Safety Review Recommendations List ...........................................30 D. SFMTA 2015 Triennial Safety Review Checklists .................................................................35 iii 1. EXECUTIVE SUMMARY The California Public Utilities Commission’s (Commission) Safety and Enforcement Division (SED), Rail Transit Safety Branch staff (staff) conducted an on-site system safety program review of San Francisco Municipal Transportation Agency (SFMTA) in October 2015. The on-site review was preceded by a pre-review conference with SFMTA personnel on October 18, 2015. Staff conducted the 2015 SFMTA safety review from October 19, 2015 through October 30, 2015. The review focused on verifying the effective implementation of the system safety program plan. Staff held a post-review conference with SFMTA personnel following the safety review on March 1, 2016. Staff provided SFMTA personnel with a synopsis of the preliminary review findings and preliminary recommendations for corrective actions. The review results indicate that SFMTA has a comprehensive System Safety Program Plan (SSPP) and has made significant progress in executing that plan. However, staff noted exceptions during the review. These exceptions are described in the Findings and Recommendations sections of each checklist. Of the forty (40) checklists utilized, staff made forty-four (44) recommendations for corrective actions. These are distributed among the following departments: System Safety, Transit Division, and Industrial Safety. The Introduction for this report is presented in Section 2. The Background, in Section 3, contains a description of SFMTA rail system and a status of the corrective actions resulting from the 2012 safety review recommendations. Section 4 describes the review procedure. The review findings and recommendations are depicted in Section 5. A listing of the Abbreviations and Acronyms is in Appendix A. The 2015 SFMTA Triennial Safety Review Checklist Index and the Recommendations List are included, respectively, in Appendices B and C. The Triennial Safety Review Checklists are presented in Appendix D. 1 2. INTRODUCTION The Commission’s General Order (GO) 164-D, Rules and Regulations Governing State Safety Oversight of Rail Fixed Guideway Systems, and the Federal Transit Administration’s (FTA) Rule, Title 49 Code of Federal Regulations (CFR) Part 659, Rail Fixed Guideway Systems: State Safety Oversight, require the designated State Safety Oversight Agencies to perform a review of each rail transit agency’s system safety program at a minimum of once every three years. The purpose of the triennial review is to verify compliance and evaluate the effectiveness of each rail transit agency’s System Safety Program Plan (SSPP) and to assess the level of compliance with GO 164-D as well as other Commission safety requirements. Staff conducted the previous on-site safety review of SFMTA in October 2012. On September 18, 2015, staff mailed a letter to SFMTA’s Director of Transportation, advising that the Commission’s safety review had been scheduled for October 19, 2015 through October 30, 2015. The letter included forty safety checklists that served as the basis for the review. Six of the forty safety checklists outlined inspections of track, switches, signals, electric power systems, vehicles, tunnels, and bridges over which SFMTA’s LRVs travel over. Five checklists reviewed SFMTA’s policies and procedures. The remaining checklists focused on the verification of the effective implementation of the SFMTA SSPP. The 2015 SFMTA triennial safety review consisted of on-site physical inspections of trackways, switches, signals, grade crossing equipment, vehicles, electric power systems, tunnels, and bridges, observations of the day to day duties performed by SFMTA employees from various job classifications, and records review of SSPP elements, SFMTA standard operating procedures (SOP), and other SFMTA rules during October 19-30, 2015 time period. At the conclusion of each review activity, staff provided SFMTA representatives with a summary of the preliminary findings and discussed any preliminary recommendations for corrective action. 2 3. BACKGROUND The San Francisco Municipal Transportation Agency (SFMTA) is the public transportation system of the City and County of San Francisco. The San Francisco Municipal Railway (MUNI), along with the San Francisco Department of Parking and Traffic, became a part of the San Francisco Municipal Transportation Agency on March 1, 2000. A seven-member board, appointed by the mayor, governs SFMTA and the Director of Transportation serves as the agency’s senior management officer. SFMTA MUNI was the first publicly owned streetcar system in a major city of the United States and began operation in 1912. It has a relatively small service area of just 46.7 square miles. However, the combined rail transit modes average more than 179,000 weekday riders. SFMTA MUNI’s fleet of rail transit vehicles consists of the subway and surface operating light rail vehicles (LRV), surface operating Historic Streetcars (HSC), and cable cars. A. SFMTA MUNI Rail System Description SFMTA MUNI rail transit operations are carried out by the Green Metro and the Cable Car Divisions. The Green Metro Division is responsible for the operation of the LRVs and the HSCs. It operates LRVs on six different lines. The HSCs are operated on the surface and principally on one double track line. Trains in SFMTA MUNI Metro Subway and Twin Peaks Tunnel operate under the control of a fully automated communications-based train control system. The majority of rail operations are on the surface in semi-exclusive and mixed traffic right-of-ways, with up to a seven percent grade in some locations. The Cable Car Division is responsible for operation of the cable cars. It provides passenger cable car service on three surface lines and traverse grades of up to 21 percent. Operating in mixed traffic, cable cars and vehicular traffic sharing traffic lanes, the cable cars transport an average of over 21,900 riders on weekdays over narrow, congested streets. A moving cable, below the surface of the street, provides propulsion for the cable cars via a mechanical grip, extending from the cable car and down through a continuous slot between the running rails. All onboard propulsion and braking controls for the cable cars are mechanical and are hand or foot-operated by the cable car operator. Cable car operation and equipment has changed little since the late 19th century and relies heavily on human performance and craft. SFMTA MUNI Cable Car Division Lines The SFMTA MUNI Cable Car Division operates three lines. They include: Powell-Hyde Line Powell-Mason Line California Street Line 3 SFMTA MUNI Green Metro Division Lines The SFMTA MUNI Green Metro Division operates six light rail lines and one line devoted