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PUBLIC UTILITIES COMMISSION OF THE STATE OF CALIFORNIA
Consumer Protection and Safety Division Rail Transit Safety Section |
Resolution ST-99 September 18, 2008 |
RESOLUTION ST-99 GRANTING APPROVAL OF THE FINAL REPORT ON THE 2008 SAFETY & SECURITY REVIEW OF THE SACRAMENTO REGIONAL TRANSIT DISTRICT (SRTD)
This resolution approves the Consumer Protection and Safety Division (CPSD) final audit report titled, "Triennial On-Site Safety & Security Review of the Sacramento Regional Transit District," dated August 14, 2008. SRTD is ordered to implement the recommendations contained in the report and to provide monthly progress reports.
Commission General Order No. 164-D, "Rules and Regulations Governing State Safety Oversight of Rail Fixed Guideway Systems" requires staff to conduct on-site safety reviews of transit agencies operating Rail Fixed Guideway Systems at least once every three years.
The Rail Transit Safety Section (RTSS) conducted an on-site safety and security review of SRTD beginning April 7 and concluding April 11, 2008. Staff conducted a post-audit exit conference with SRTD management on Monday, April 28, 2008.
The methods used to conduct the audit included:
a. Interviews with SRTD employees at all levels from rank and file through SRTD management;
b. Reviews of design, construction, procurement, testing, training, operation and maintenance programs;
c. Reviews of records and procedures;
d. Observation of operations and maintenance activities; and
e. Inspections of equipment and facilities.
A full description of the audit, including the scope, results, and recommendations, is contained in the final audit report which is attached to this resolution as Attachment A.
The results of the audit show that SRTD is in compliance with its System Safety & Security Program. However, some program deficiencies were identified during the audit. These deficiencies, along with recommendations for corrective actions, are described, where applicable, in the Findings/Comments/Recommendations section of each checklist and in the body of the final report. A complete listing of recommendations for the correction of each identified deficiency is contained in Appendix B of the report.
Staff provided a preliminary report of the audit to SRTD for a 30-day review and comment period on June 20, 2008. SRTD confirmed the factual accuracy of the report in a letter dated July 16, 2008.
The final report, "Triennial On-Site Safety & Security Review of the Sacramento Regional Transit District", dated August 14, 2008, is included as Attachment A. It is based on staff findings and includes staff recommendations.
SRTD has stated to staff that it is working to develop corrective action plans for the deficiencies identified in the report and has initiated actions on some plans. SRTD will provide regular monthly updates concerning the status of its corrective actions until they are completed.
CPSD recommends that the Commission approve the final audit report titled, "Triennial On-Site Safety & Security Review of the Sacramento Regional Transit District," dated August 14, 2008. CPSD also recommends that the Commission order SRTD to:
· Submit a report to the RTSS, which includes the status of the corrective actions for safety and security program deficiencies identified during the audit;
· Submit plans and schedules for implementing and completing the recommended corrective actions contained in the report;
· Implement the recommendations in accordance with the plans and schedules submitted; and
· Provide the RTSS with monthly reports on the status of the corrective actions until they are completed and implemented.
Public Utilities Code Section 311(g) (1) provides that this resolution must be served on all parties and subject to at least 30 days public review and comment prior to a vote of the Commission.
Resolution ST-99 was mailed to SRTD on August 14, 2008. SRTD had no comments and waived the 30-day review and comment period as required in Public Utilities Code Section 311(g) (1).
Therefore, IT IS ORDERED that:
1. The Consumer Protection and Safety Division's request for approval of the final audit report titled, "Triennial On-Site Safety & Security Review of the Sacramento Regional Transit District," dated August 14, 2008, is granted.
2. The Sacramento Regional Transit District (SRTD) shall submit to the Rail Transit Safety Section (RTSS) plans and schedules for implementing all recommended corrective actions contained in the final audit report. Those plans and schedules shall be submitted no later than 45 days from the effective date of this resolution.
3. SRTD shall complete and implement all recommended corrective actions contained in the report, in accordance with plans and schedules submitted to the RTSS.
4. SRTD shall prepare and provide monthly status reports, beginning on January 1, 2009, to the RTSS. The reports shall contain detailed information on the implementation of all remaining recommended corrective actions contained in the final audit report. Monthly status reports shall continue to be provided until all recommended corrective actions are completed and implemented.
5. This resolution is effective today.
I certify that this resolution was adopted by the Public Utilities Commission at its regular meeting held on September 18, 2008. The following Commissioners voting favorably thereon:
/s/ PAUL CLANON
PAUL CLANON
Executive Director
MICHAEL R. PEEVEY
President
DIAN M. GRUENEICH
JOHN A. BOHN
RACHELLE B. CHONG
TIMOTHY ALAN SIMON
Commissioners
2008
TRIENNIAL ON-SITE
SAFETY AND SECURITY REVIEW
SACRAMENTO REGIONAL TRANSIT DISTRICT (SRTD)
RAIL TRANSIT SAFETY SECTION
RAIL TRANSIT AND CROSSINGS BRANCH
CONSUMER PROTECTION AND SAFETY DIVISION
CALIFORNIA PUBLIC UTILITIES COMMISSION
505 VAN NESS AVENUE
SAN FRANCISCO, CA 94102
August 14, 2008
Final Report
Richard W. Clark, Director
Consumer Protection and Safety Division
2008 TRIENNIAL ON-SITE SAFETY AND SECURITY REVIEW
SACRAMENTO REGIONAL TRANSIT DISTRICT (SRTD)
ACKNOWLEDGEMENT
The California Public Utilities Commission's Rail Transit Safety Section, with the assistance of the Commission's Railroad Operations Safety Branch, conducted this system safety and security programs review. Staff members directly responsible for conducting safety and security review and inspection activities include:
Raed Dwairi, Lead Reviewer |
Erik Juul |
Joey Bigornia |
Noel Takahara |
Ni Liu |
Dain Pankratz |
Rupa Shitole |
Arun Mehta |
Anton Garabetian |
Vincent Kwong |
Jimmy Xia |
Howard Huie (Observer) |
TABLE OF CONTENTS
Page
1. EXECUTIVE SUMMARY 1
2. INTRODUCTION 2
3. BACKGROUND 3
SRTD Rail System Description 3
2005 On-Site Safety Audit Result 4
4. REVIEW PROCEDURE 5
5. FINDINGS AND RECOMMENDATIONS 6
APPENDICES
A. SRTD 2008 Triennial Safety Review Checklist Index 13
B. SRTD 2008 Triennial Safety Review Recommendations List 15
C. SRTD 2008 Triennial Safety Review Checklists 16
1. EXECUTIVE SUMMARY
The California Public Utilities Commission's (Commission) Consumer Protection and Safety Division (CPSD), Rail Transit Safety Section staff (staff), with assistance from the Railroad Operations Safety Branch and Utilities Safety Branch staff (staff), conducted an on-site safety and security review of Sacramento Regional Transit District's (SRTD) system safety program in April 2008.
The on-site review was preceded by a pre-review conference with SRTD personnel on April 7, 2008.
Staff conducted the 2008 SRTD on-site safety and security review from April 7 to April 11 and April 18, 2008. The review focused on verifying the effective implementation of the system safety and security program plans.
Staff held a post-review conference with SRTD personnel following the on-site safety and security review on April 28, 2008. Staff provided SRTD personnel with a synopsis of the preliminary review findings and possible recommendations for corrective actions.
The review results indicate that SRTD has a comprehensive System Safety Program Plan (SSPP) and has effectively carried out that plan. SRTD was also found to have a strong detection and deterrence program and is well prepared to respond effectively to natural and human caused security threats. However, exceptions were noted during the review. These are described in the Findings and Recommendations section of each checklist. Of the 32 checklists, staff made nine recommendations for corrective action. These are distributed among the Engineering, Operations, Wayside and LRV Maintenance departments.
The Introduction for this report is presented in Section 2. The Background, in Section 3, contains a description of SRTD rail system and the 2005 on-site safety review results. Section 4 describes the review procedure. The review findings and recommendations are depicted in Section 5. The 2008 SRTD Triennial Safety Review Checklist Index and the Recommendations List are included, respectively, in Appendices A and B. The Review Checklists are presented in Appendix C.
2. INTRODUCTION
The Commission's General Order (GO) 164-D1, 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 and system security plan 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 System Security Plan (SSP) and to assess the level of compliance with GO 164-D as well as other Commission safety requirements. The previous on-site safety review of SRTD was conducted by staff in June 2005.
SRTD General Manager was advised by letter dated March 7, 2008 that the triennial review was scheduled for the week of April 7, 2008. The letter included 32 checklists that served as the basis for the review. Four of the 32 checklists outlined inspection of track, signals, electric power systems, and vehicles. The remaining 28 checklists focused on the verification of the effective implementation of the safety and security program plans.
On April 22 and 23, 2008 staff from the Commission's Rail Operations Safety Branch conducted inspections of SRTD's track and signals. Vehicle inspections were conducted on April 21, 2008. Staff conducted a pre-review conference on April 7, 2008 with SRTD executives and department managers.
Staff conducted the on-site safety review and records review from April 7, 2008 to April 11, 2008. At the conclusion of each review activity, staff provided SRTD personnel a summary of the preliminary findings and discussed any preliminary recommendations for corrective actions.
On April 28, 2007, staff conducted a post-review exit meeting with SRTD's executives and department managers. Staff provided the attendees a synopsis of the findings from the 32 checklists and discussed the need for corrective actions where applicable.
3. BACKGROUND
SRTD is governed by an 11-member Board of Directors comprised of members of the Sacramento, Rancho Cordova, Citrus Heights, Elk Grove, Folsom City Councils as well as the Sacramento County Board of Supervisors.
SRTD Rail System Description
SRTD currently operates approximately 39 miles, covering a 418 square-mile service area and 47 Stations. Light rail trains operate from 4:30 AM to 1:00 AM daily with service every 15 minutes during the day and every 30 minutes in the evening. Weekday ridership averages 52,000 passengers.
SRTD began operations in 1973 with the acquisition of the Sacramento Transit Authority. Over the next decade, SRTD continued to expand its bus service while a cooperative effort emerged among city, county and state government officials to develop a light rail system. In 1987 the 18.3-mile light rail system opened linking the northeastern (Interstate 80) and eastern (Highway 50) corridors with downtown Sacramento. SRTD completed its first light rail expansion in 1998 with the opening of the Mather Field extension. Additional system extensions are as follows:
South Line Phase I
The 6.3-mile South Line Phase I began service in September 2003 and extended the system from Downtown Sacramento to Meadowview Road. Seven new stations were added serving a minimum of 10,500 daily passengers.
South Line Phase II
The 4.9-mile light rail addition to Phase I will extend the system further south to the City of Elk Grove. This project is in its Preliminary Engineering (PE) stage.
Amtrak/Folsom Line
The Amtrak/Folsom light rail line is a 16-mile extension that follows Highway 50 and extended the system from the Amtrak Station in downtown Sacramento to the City of Folsom. The project included four areas of improvements that added 10 new stations. Area 1 (Amtrak) is a 0.55-mile extension to the Sacramento Valley Station, which was completed in December 2006. Area 2 (Bee Bridge) added double tracking on an adjoining bridge from east of 16th Street to 23rd Street. Area 3 (Brighton to Sunrise) was completed in June 2004 with additional double tracking of previous single track areas and a 2.8-mile double track extension from Mather Field to Sunrise Boulevard and three stations. Area 4 (Sunrise to Historic Folsom) was completed in October 2005 adding 7.4 miles and four stations.
2005 On-Site Safety Audit Result
Staff performed the previous triennial on-site safety audit of SRTD System Safety Program in June 2005. The 32 checklists resulted in 14 recommendations.
SRTD developed corrective action plans to implement the recommendations. All but one recommendation have been closed. The remaining open recommendation pertains to GO 95 Rule 74.4-F for which SRTD submitted a compliance plan on April 19, 2005 to CPSD Director. Implementation of this plan will bring the entire system into compliance with GO 95 by the end of 2009.
4. REVIEW PROCEDURE
Staff conducted the review in accordance with the Rail Transit Safety Section Procedure RTSS-4, Procedure for Performing Triennial Safety Audits of Rail Transit Systems.
Staff developed thirty-two (32) checklists to cover various aspects of system safety responsibilities, based on Commission and FTA requirements, SRTD SSPP, safety related SRTD documents, and the staff's knowledge of the transit system. The 32 checklists are included in Appendix C.
Each checklist identifies safety-related elements and characteristics that staff reviewed or inspected. Each of the checklists also references Commission, SRTD, and other documents that establish the safety program requirements. The completed checklists include review findings, and recommendations if the review findings indicate deficiencies. The completed checklists may include comments and suggestions to improve SRTD's system safety program. The methods used to perform the review include:
*0 Discussions with SRTD management
*1 Reviews of procedures and records
*2 Observations of operations and maintenance activities
*3 Interviews with rank and file employees
*4 Inspections and measurements of equipment and infrastructure
The review checklists concentrated on requirements that affect the safety of rail operations and are known or believed to be important in reducing safety hazards and preventing accidents.
5. FINDINGS AND RECOMMENDATIONS
The reviewers and inspectors concluded that the SRTD rail system has a comprehensive SSPP and has been effectively implementing the plan.
Review findings identify areas where changes should be made to further improve SRTD system safety program. The review results are derived from activities observed, documents reviewed, issues discussed with management, and inspections. Overall, the review result confirms that SRTD is in compliance with its SSPP. The review identified nine recommendations from the 32 checklists. Following are the findings and recommendations for each checklist:
1. Vehicle Maintenance Inspection
No deficiencies.
2. Track and Switch Inspection
No deficiencies.
3. Gated Grade Crossings Warning Devices Inspection
Staff found the following deficiency:
· Two crossing gate tips were below the required 3'-6" from roadway as required by GO 75-D and FRA 234.223.05.
Recommendation:
1. SRTD should revise its appropriate grade crossing preventive maintenance procedures to add the requirement of ensuring crossing gate heights comply with General Order 75-D.
4. Traction Power Inspection
No deficiencies.
5. Overhead Catenary System Inspections and Records
Staff found the following deficiency:
· There were inconsistencies in OCS noted repairs, inspected locations, and responsible linemen for OCS maintenance.
Recommendation:
2. SRTD should take the necessary measures to consistently document OCS noted defects, repairs, locations of OCS inspections, final status of equipment, and linemen responsible for OCS maintenance (LR-SOP-86-405).
6. Substation Inspections and Records
Staff found the following deficiency:
· The description of the substation noted defects and corresponding repairs were not clearly documented in the Substation Quadrennial reports.
Recommendation:
3. SRTD should take the necessary measures to clearly and consistently document repairs with completion dates on the Substation Quadrennial Inspection records (LR-SOP-86-403).
7. Internal Safety and Security Audits/Reviews
No deficiencies.
8. Right-of-Way Maintenance
Staff found the following deficiency:
· At some locations, fencing was found to be in need of repair and vegetation control was found to be inadequate. SRTD has already implemented a satisfactory corrective action plan and developed a detailed inspection/repair checklist. Therefore, no recommendation was issued.
9. Vital Relays Inspections, Maintenance and Records
No deficiencies.
10. Employee and Contractors Safety Program
No deficiencies.
11. Calibration of Measuring and Testing Equipment Program
Staff found the following deficiency:
· Inconsistencies were found which made it difficult to ascertain that all tools requiring calibration are in fact being calibrated.
Recommendation:
4. SRTD should take the necessary measures to clearly document records pertaining to the annual calibration requirement of SOP-01-224 and maintain an updated Master List detailing calibration status.
12. Gated Crossing Maintenance
13. Accident/Incident Reporting and Investigation
Staff found the following deficiency:
· One of the accident reports submitted by SRTD Safety to CPUC staff list primary, contributing, and potential recommendations as pending determination by the Accident Grading Board Committee.
Recommendation:
5. SRTD should convene Accident Grading Board Meetings to provide SRTD Safety the opportunity and info it needs to complete its accident investigation responsibilities (SA-SOP-00-006).
14. Safety Certification
No deficiencies.
15. Configuration Management
Staff found the following deficiency:
· During the last few months SRTD did not hold CRC meetings consistently because of lack of support from different departments.
Recommendation:
6. SRTD should take the necessary measures to hold the Change Review Committee (CRC) meetings on a consistent or as needed basis (PC-SOP-96-001).
16. Review Operating Rules and Procedures Manual
No deficiencies.
17. Hazardous Materials Programs / Environmental Management
No deficiencies:
18. Emergency Response Planning, Coordination, Training
No deficiencies.
19. Light Rail Training and Certification
Staff found the following deficiency:
· Training elements, retraining criteria, and record retention were not specified in DOP LR-04-003.
Recommendation:
7. SRTD should revise DOP LR-04-003 to specify and outline initial, periodic, retraining, and record retention requirements (GO 143-B, Section 13.03).
20. Light Rail Vehicle Maintenance
No deficiencies.
21. Drug and Alcohol Program
No deficiencies.
22. Track Warrants & Cab Passes
No deficiencies.
23. Hours of Service - Train Operators, Train Controllers, and Supervisors
No deficiencies.
24. Operator Training, Retraining, and Efficiency Test Records
Staff found the following deficiency:
· Not all required efficiency testing has been conducted for all operators.
Recommendation:
8. SRTD should take the necessary measures to make certain all rail operator efficiency testing requirements are met per LR-SOP-99-027.
25. Bridges/Structures Inspections and Reports
Staff found the following deficiency:
· SRTD has not yet approved its structural inspections SOP and its staff do not adequately track deficiencies identified from the structural inspections to closure with corrective action plans including action steps, schedule completion dates, obstacles to completion, and reports to management.
Recommendation:
9. SRTD should finalize the approval of the structural inspections Standard Operating Procedure (SOP) and track deficiencies identified from the required inspections to closure, with appropriate corrective action plans and implementation schedules.
26. Procurement
No deficiencies.
27. Facility Inspections
No deficiencies.
28. Track Components Inspection
No deficiencies.
29. Security
No deficiencies.
30. Safety Data Collection and Analysis
No deficiencies.
31. Hazardous Management Process
No deficiencies.
32. System Modification
No deficiencies.
APPENDICES
A. SRTD 2008 Triennial Safety Review Checklist Index
B. SRTD 2008 Triennial Safety Review Recommendations List
C. SRTD 2008 Triennial Safety Review Checklists
APPENDIX A
2008 SRTD TRIENNIAL SAFETY & SECURITY REVIEW CHECKLIST INDEX
Checklist No. |
Department |
Element/Characteristics |
1 |
Vehicle Maintenance |
Light Rail Vehicle Inspection - CPUC INSPECTOR |
2 |
Wayside Maintenance |
Track and Switch Inspection - CPUC INSPECTORS |
3 |
Wayside Maintenance |
Gated Grade Crossings Warning Devices - CPUC INSPECTOR |
4 |
Wayside Maintenance |
Traction Power Inspection - CPUC INSPECTOR(S) |
5 |
Wayside Maintenance |
Overhead Catenary System Inspections and Records |
6 |
Wayside Maintenance |
Substation Inspections and Records |
7 |
Safety Department |
Internal Safety & Security Audits/Reviews |
8 |
Facilities Maintenance |
Right-of-Way Maintenance |
9 |
Wayside Maintenance |
Vital Relays Inspections, Maintenance and Records |
10 |
Safety Department |
Employee and Contractors Safety Program |
11 |
Quality Assurance |
Calibration of Measuring and Testing Equipment Program |
12 |
Wayside Maintenance |
Gated Crossing Maintenance |
13 |
Safety Department Operations |
Accident/Incident Reporting and Investigation |
14 |
Safety Department Engineering |
Safety Certification |
15 |
Quality Assurance Engineering Safety Department |
Configuration Management |
16 |
Operations Safety Department |
Review Operating Rules and Procedures Manual |
17 |
Safety Department |
Hazardous Material Programs/Environmental Management |
18 |
Operations |
Emergency Response, Planning, Coordination, Training |
19 |
Operations |
Light Rail Supervisor/Controller Certification Program |
20 |
Vehicle Maintenance |
Light Rail Vehicle Maintenance |
21 |
Human Resources |
Drug & Alcohol Program |
22 |
Operations |
Track Warrants & Cab Passes |
23 |
Operations |
Hours of Service - Train Operators, Train Controllers, and Supervisors |
24 |
Operations |
Operator Training, Retraining, & Efficiency Testing Records |
25 |
Engineering |
Bridges/Structures Inspections & Reports |
26 |
Materials Mgmt. |
Procurement |
27 |
Facilities Maintenance |
Facility Inspections |
28 |
Wayside Maintenance |
Track Components Inspection |
29 |
Police Services |
Security |
30 |
Safety Department |
Safety Data Collection and Analysis |
31 |
Safety Department |
Hazard Management Process |
32 |
Engineering Safety Department |
System Modification |
APPENDIX B
2008 SRTD TRIENNIAL SAFETY REVIEW RECOMMENDATIONS LIST
No. |
Recommendation |
Checklist No. |
1 |
SRTD should revise its appropriate grade crossing preventive maintenance procedures to add the requirement of ensuring crossing gate heights comply with General Order 75-D. |
3 |
2 |
SRTD should take the necessary measures to consistently document OCS noted defects, repairs, locations of OCS inspections, final status of equipment, and linemen responsible for OCS maintenance (LR-SOP-86-405). |
5 |
3 |
SRTD should take the necessary measures to clearly and consistently document repairs with completion dates on the Substation Quadrennial Inspection records (LR-SOP-86-403). |
6 |
4 |
SRTD should take the necessary measures to clearly document records pertaining to the annual calibration requirement of SOP-01-224 and maintain an updated Master List detailing calibration status. |
11 |
5 |
SRTD should convene Accident Grading Board Meetings to provide SRTD Safety the opportunity and info it needs to complete its accident investigation responsibilities (SA-SOP-00-006). |
13 |
6 |
SRTD should take the necessary measures to hold the Change Review Committee (CRC) meetings on a consistent or as needed basis (PC-SOP-96-001). |
15 |
7 |
SRTD should revise DOP LR-04-003 to specify and outline initial, periodic, retraining, and record retention requirements (GO 143-B, Section 13.03). |
19 |
8 |
SRTD should take the necessary measures to make certain all rail operator efficiency testing requirements are met per LR-SOP-99-027. |
24 |
9 |
SRTD should finalize the approval of the structural inspections Standard Operating Procedure (SOP) and track deficiencies identified from the required inspections to closure, with appropriate corrective action plans and implementation schedules. |
25 |
APPENDIX C
2008 SRTD TRIENNIAL REVIEW CHECKLISTS
1 The FTA's latest revision of 49 CFR Part 659 became effective in May 2006. Subsequently, the Commission revised and adopted General Order 164-D which superseded 164-C on May 3, 2007. Until the Commission's adoption of GO 164-D, staff requested SRTD to revise their SSPP according to the FTA's latest revision of 49 CFR Part 659 which would be, in essence, the requirements of GO 164-D. Since this audit covered the time period that GO 164-D requirements were not applicable, the reviewers referred to GO 164-C for a portion of the review. However, the reviewers referred to GO 164-D where applicable.