Posts about FTA
When DC's H Street and Benning Road streetcar opens on February 27, it'll run on rails that were first installed almost seven years earlier. We've been talking about this project since 2008, with hundreds of posts. The following is a little walk down memory lane to look at everything that's happened.
Forty years after streetcars vanish, efforts begin to bring them back
Streetcars used to ply DC's streets until 1962. In 1956, following a strike, Congress forced the streetcar's operator to shut down all streetcars and replace them with buses.
But decades later, the Metro was under construction and rail transit was coming back. Metro wouldn't serve all parts of the city, however. A 1997 long-range transportation plan from the Barry administration called for new streetcar lines, including on H Street and Benning Road.
In the early 2000s, the DC government was trying to find a way to get a streetcar system started cheaply. An unused CSX track that runs through Anacostia seemed like a great spot. DC jumped on a Portland streetcar contract in 2004 to purchase three Czech-made cars. But DC couldn't get the rights to use the line, and the cars sat in the Czech Republic, unused.
2008: Anacostia? H Street? Both?
A political fight also was brewing in the DC Council about where to start the streetcar project. A line from Anacostia Metro to Bolling Air Force Base wouldn't have served many people. DDOT agreed to plan a route through Historic Anacostia as well, but many residents were not enthusiastic. Meanwhile, H Street businesses, residents, and Councilmember Tommy Wells were eager for the line on H Street.
DC had recently finished designing several corridors around the city in a program called "Great Streets." H Street and Benning Road, NE was one. Since a streetcar line was in the city's plans, to avoid having to reconstruct the street a second time, the decision was made to install tracks during the project.
2009: DDOT gets serious about a streetcar, but questions remain
The streetscape program yielded visible progress, but many details of the streetcar itself were not yet worked out. Besides sticking rails in the ground, what exactly was DC going to build? Where would the streetcar turn around? Where would maintenance happen? And what would power the cars?
Gabe Klein, then head of DDOT, decided to make the project a much higher priority, and in late 2009, the administration followed through with a bold vision to build eight lines in all wards of DC. He also moved the three streetcars across the ocean from the Czech Republic.
At the time, officials estimated the whole system could be built in 7-10 years for a cost of $1.5 billion. Mostly, they planned to put them in mixed traffic rather than dedicated lanes, except for a few segments on Rhode Island Avenue, M Street SE, and K Street NW.
There were already some signs that DDOT wasn't thinking everything through. WMATA sent a letter worrying that the platforms, high enough to roll right onto a streetcar, would be too high to board the X2 buses, which run along the same street. Would they conflict?
Unless you've got power
One of the big questions was how cars would get power. A law prohibited overhead wires in the L'Enfant city, including H Street NE. Some groups were gearing up to oppose the streetcar not based on its function, but based on the aesthetics of having any wires above the street.
While insisting that modern wires look much less intrusive than many of the old-fashioned ones in some cities, DDOT promised to look into wireless technology, especially hybrid approaches that could use some off-wire segments along curves (which require more wires) and across important view corridors.
2010: The Great Overhead Wire Battle
To get people excited about the project, in May 2010 DDOT brought the streetcar down to the parking lot that's now CityCenterDC. People could touch the vehicle and climb on board. They could also see two other DDOT vehicles: a newer Circulator bus and a bicycle for the soon-to-be-launched Capital Bikeshare.
Opposition from the Committee of 100 and other groups continued. It focused on two streams: first, opposition to overhead wires; and second, an argument that there needed to be more planning before moving ahead. In retrospect, they were absolutely right on the second point, but the first one overshadowed it and unfortunately made the more prescient warnings less credible.
May is the time the DC Council finishes its budget, and many chairs have unveiled a final budget late the night before the deadline for a final vote. At 2 am on May 26, 2010, then-Chairman Vincent Gray, and also a candidate for mayor, cut the streetcar funding in his final budget. We and others sounded the alarm, and residents flooded Gray's office with calls asking to restore the funding. By that afternoon, he had worked out a deal with councilmembers to do just that.
Gray always maintained that his move to cut streetcar funds wasn't an attempt to kill the project outright, but stemmed from a belief that it needed more planning first. At a later campaign town hall, he said, "I support streetcars; let me make that clear. ... We have a commitment" to build out a 37-mile system.
Soon after the budget fight, the council took a step to amend the overhead wire ban to allow wires on H Street (and elsewhere once the council approves a citywide streetcar plan and DDOT studies off-wire options). All councilmembers except Phil Mendelson cosponsored the bill.
As Ken Archer explained to the council, beautiful historic cities like Prague have trams using wires and still maintain their historic charm.
A streetcar wire in Prague. Photo by Isaac Wedlin on Flickr.
The National Capital Planning Commission wasn't so excited about wires. Its chair, Preston Bryant, threatened to ask the federal government to reject grants to DC if the District continued with its efforts, and then followed through on his threat. DC officials called that "bureaucratic blackmail."
Planning and promises
In October 2010, DDOT released a more detailed streetcar plan that said:
- Service on the H Street/Benning Road line and in Anacostia (to start with, south of the Anacostia Metro) would start in March 2012
- A train would come every 10 minutes on H Street and every 15 in Anacostia
- Rides would cost $1
- There would be a proof-of-payment system instead of paying on board
- DDOT would buy three more streetcars in addition to the three it already had
In April 2011, the completion date for the H Street/Benning Road line slipped to "late 2012." It wasn't the last delay.
The streetcar plan had long called for tracks on the local span of the new 11th Street bridge, then under construction, to get the streetcar over the Anacostia River. But in October 2011, the Federal Transit Administration blocked DDOT from installing tracks on the bridge. According to DDOT sources, the move was fine with the Federal Highway Administration, but FTA suddenly stepped in.
If it seems ironic that the federal government's transit agency would be the one pushing against transit, it's not a new refrain. Then-FTA administrator (now head of Seattle's transit agency) Peter Rogoff argued FTA had little leeway, but many other transportation professionals privately argued they could have allowed it.
Another, even bigger hurdle popped up. Since the 2010 plans, DDOT had expected to put the Union Station stop and a maintenance yard under the "Hopscotch Bridge" which carries H Street over the railroad tracks. One property owner didn't want to go along, but DDOT officials kept predicting they could work out all necessary approvals.
That didn't happen. Instead, Amtrak rejected the concept because it wanted to use the space for other purposes. (The next year, it released a master plan for Union Station that used that passageway as a concourse.)
By early 2012, there had been procurement problems that meant DC would almost surely not have the 3 extra streetcars promised, meaning not enough to run at 10-minute headways. In mid-2012, Councilmember Marion Barry tried to block another contract for the H Street line.
Mayor Gray's commitment didn't wane, however; he budgeted $237 million over six years to construct multiple streetcar lines.
Spinning wheels on Spingarn
DDOT had been planning a maintenance facility on the Spingarn High School campus, but that had been a longer-term piece of the puzzle; with the area under the bridge unavailable, this was now blocking further progress.
Nearby residents also asked to designate Spingarn as a historic landmark, forcing any plans to go through far more extensive historic review. Then-DDOT Director Terry Bellamy said this would delay the project further; by now, it was delayed to late 2013 at the earliest.
It also had become clear to many by this time that DDOT's claims were not credible. DDOT had proposed the underpass maintenance yard idea without having buy-in and then couldn't get it. It had planned tracks on the 11th Street Bridge and didn't get those. Now, it hadn't started working on Spingarn nearly far enough ahead of time, and like too many other streetcar pieces, plans for the maintenance facility weren't publicly available at first (and when they were turned out to be meh until later getting better).
2013: Will it open?
Testing on H Street hadn't even begun, but DDOT officials said that could happen in late 2013. They also started talking about a 22-mile "priority system" of three lines: east-west from Georgetown to Benning Road, from Anacostia to Buzzard Point, and from Buzzard Point to Takoma.
Even though it looked iffy, Mayor Gray kept promising streetcars would run in 2013. He also increased the budget to $400 million to pay for the line to go all the way to Georgetown, build the Anacostia line, and study the other lines in the 22-mile system.
One issue that had been brewing: How to make the area safe for people on bikes. Bicycle wheels can get stuck in streetcar tracks, and for a brief time incorrectly-installed grates even increased the danger. "Bike sneaks" and other design strategies can help cyclists stay safe.
By October, DC officials admitted the streetcar wouldn't run in 2013. Testing would start in December 2013. This was far from the only broken promise by DDOT under Bellamy's leadership, which developed a reputation for being unable to deliver on its commitments.
2014: The public-private partnership that wasn't
The Gray Administration also devised a strategy to significantly speed up construction: Find a contractor who could design, build, operate, and maintain (DBOM) the streetcar. They hoped an organization with more expertise could get things done without all the delays that had come thus far.
Gray proposed a major, ongoing revenue source to fund the succession of lines, by allocating a quarter of new tax revenue that comes in above the base estimate for Fiscal Year 2015. That would have given the program an estimated $800 million over five years.
Challengers to Mayor Gray criticized his administration's progress and the repeated delays.
On April Fool's Day 2014, DC had its primary, and Gray lost his bid for renomination. His budget plan also went down the next month, as Chairman Phil Mendelson, again near the deadline (but not in the middle of the night), took much of the money away for tax cuts. He did, however, leave $400 million over five years, which the Gray administration said wasn't even enough to pay for the segment west to Georgetown.
Mendelson disputed that allegation, and battling budget analysts left many confused about what, exactly, was still being funded. But the bigger problem was that DDOT had lost much of its credibility on the streetcar program from all of these delays, broken promises, and cover-ups over setbacks. Residents who had excitedly defended the program in 2010 were not ready to stick up for it in 2014.
Soon after, it became clear even opening in 2014 was unlikely, though the Gray Administration, as it had in 2013, kept promising service by the end of 2014.
"Simulated service," where the streetcars run as if they're really operating with passengers to ensure they are safe, started in the fall. There was just barely enough time to launch service before New Year's Day if the fire department signed off on the safety plans quickly. It didn't.
A new administration brought in new leadership. Leif Dormsjo, the new head of DDOT, said he'd stop making promises until they could actually keep them. In fact, Dormsjo said he wasn't totally certain the line would ever open.
He brought in a team of experts from the American Public Transportation Association to evaluate the line. Their report concluded that it could indeed open, and Mayor Bowser promised to finish the line from Georgetown to either Minnesota Avenue or Benning Road Metro.
Oh, remember wires? The ones on H Street weren't destroying the neighborhood, but DDOT did start planning for wireless operation across major intersections with state avenues, the Mall, and so on.
APTA's report identified 33 fixes to make to the streetcar line, and DDOT got going on those. By July, it had finished 12. Dormsjo brought in a team of experts who had actually launched streetcars in other cities to get this project over the finish line.
We didn't hear a lot about the streetcar in late 2015, but DDOT was working on fixing remaining problems with the line. Officials were also trying to get the fire department to sign off on safety plans.
2016: It's time
DDOT restarted "simulated service" at the end of 2015 and even announced the streetcar would close during the "Snowzilla" storm, in part to show safety officials how the line would handle a storm like this. The fire department ultimately gave its consent to open the line, and now it's scheduled to open on February 27.
This will be the first time most people will be able to get on a DC Streetcar since May 2010 and the first time they can while the vehicle is in motion. There have been a lot of claims about the streetcar, pro and con, and riding it will finally give people a chance to decide based on real experience.
After that, DC will have to decide what to do about the other proposed lines and studies. DDOT will have to finish studies about extending the H Street/Benning Road line east and west, and decide what to do with the studies in limbo in Anacostia and Georgia Avenue.
One thing is for sure: It'll be great to have this sordid saga of delays and broken promises in the past.
In December, the Federal Transit Administration gave WMATA a list of 217 issues it needs to fix in order to be a truly safe system. A month and a half later, the agency is on the right track, but it will take years to prove that it has a healthy safety culture day in and day out.
FTA's safety oversight inspections monitor #WMATA's implementation of corrective actions to improve Metrorail safety. FTA safety oversight staff observe WMATA track inspection on Green Line at Waterfront Station. Image from the FTA.
Examples of issues the FTA highlighted include a number of trains that ran red "stop" signals and train operators saying they consistently felt pressure to stay on-time when running trains. WMATA's interim chief safety officer Lou Brown said that the agency is "very serious" and "very dedicated" to improving the system's safety, which would mean mitigating or resolving the issues the FTA noted.
The full list, which is lengthy, stems from the FTA's large inspection of WMATA early in 2015, some NTSB recommendations for WMATA that are still open, and the Tri-State Oversight Committee (TOC). In fact, most come from the TOC, but that agency did not have powers to actually make WMATA do anything; as many of them are still legitimate issues, the FTA combined them in with their findings.
Until a new agency is set up to take over for the TOC the FTA will be in charge of overseeing WMATA.
I've summarized some of the more interesting findings and explained why they are worth caring about below:
- The group responsible for supporting the Automatic Train Control (ATC) system that keeps trains safely separated is keeping track of inventory it no longer uses but not whether tools are properly calibrated.
- Sheets that Metro track inspectors use when looking at interlockings (that's where two sets of track converge) have checkboxes already filled in before the inspector has even checked the track.
- The agency is not following it's own safety and security certification process as required. Metro's safety office has been criticized by the Board of Directors for not being very involved in enforcing safety procedures.
- Metro allowed personnel without proper qualifications to operate rail equipment. In the case of one accident, the work unit operator had been involved in a previous accident and shouldn't have been in charge.
- At several locations, hazardous materials that could react if the came into contact with each other were not stored separately.
- There is no formal procedure for testing and replacing emergency equipment used in real emergencies or practice drills.
- The communications group in charge of maintaining Metro's radio systems is required to do more maintenance work than they have time for, and many communications technicians haven't received classroom training on how to use the current digital radio system.
- Between Jan 1, 2012 and Nov 2, 2015, train operators ran past 47 red signals. There were more signal overruns in 2015 than in either of the two prior years.
- Metro is still running 1000-series rail cars; the NTSB has told them to replace the 1000-series rail cars with safer equipment.
- The Rail Operations Control Center where trains are dispatched and routed is noisy and distracting, and the computer system doesn't have enough checks to prevent potential human errors.
- The Metro radio system still works poorly in some areas (although others have improved). Train operators, police, and emergency responders can't communicate with each other when the radio system doesn't work.
- The safety department doesn't always review passenger complains that train intercoms don't work. The intercoms, located at either end of each car, allow Metro riders to call the train operator in order communicate with them in an emergency.
Late Friday evening, the US Secretary of Transportation announced an immediate federal takeover of WMATA safety oversight.
Boss pointing image from Shutterstock.
The takeover gives federal officials authority to inspect Metro at will, and to order Metro employees to address safety problems. WMATA will still manage normal train operations.
Last week, the National Transportation Safety Board recommended that Congress transfer oversight of WMATA from the Tri-State Oversight Committee (TOC) to the Federal Railroad Administration (FRA).
However, the FRA typically manages freight railroads, long distance trains, and commuter rail (like MARC and VRE), and has no experience with a transit agency like WMATA. US Transportation Secretary Anthony Foxx worried giving oversight to FRA would be more disruptive than a direct takeover by the Federal Transit Administration (FTA), which already has the statutory authority for a safety takeover.
With Foxx's blessing, that's what will happen. Effective immediately, the FTA is in charge of Metro safety.
The move is unprecedented. FTA has never taken over the safety oversight role from a local State Safety Oversight Agency (SSOA), like the TOC. But given Metro's repeated lapses, and the inability of the TOC to enforce change, USDOT believes this is the best alternative.
Details are still scarce. But the FTA will have authority to enforce corrective actions. This should mean that WMATA won't be able to ignore safety directives, as they do with the TOC.
This move is only temporary. The FTA will relinquish control when DC, Maryland, and Virginia create a new SSOA which actually has teeth and can effectively enforce safety changes. Since the FTA has never played this role before, it is unclear if this oversight will be a success.
Beginning with the 2009 train crash near Fort Totten that killed nine people, Metro has suffered several major safety lapses, including a smoke incident in January that killed another passenger.
This takeover is the sort of shake up of WMATA management that could lead to real change in the organization's culture, and hopefully improve WMATA safety. On the other hand, it could also further impede the agency from making nimble changes that could benefit riders. Only the future will tell.
The Federal Transit Administration came down hard on WMATA today, deeming the agency deficient in both how it manages itself on the whole and, more specifically, how it operates its trains and buses. As a result, WMATA will need to make some serious changes, and fast.
System-wide, FTA inspectors cited 54 overall safety violations: 44 for Metrorail and 10 for Metrobus. The deficiencies come despite efforts to step up the agency-wide commitment to safety that followed the fatal 2009 Red Line crash at Fort Totten.
Chief among the problem areas is that Metrorail's Rail Operations Control Center is both understaffed and doing a poor job of immediately fixing safety hazards as well as managing routine maintenance projects.
Other issues include:
- The Rail Operations Control Center (ROCC) is understaffed.
- Rail Traffic Controllers have not been regularly recertified/retrained as required.
- The ROCC has a high level of noise and distraction.
- Radio discipline is poor.
- ROCC lacks formal procedures, manuals, and checklists.
- Rail Traffic Controllers use their cell phones while on duty.
- WMATA faces challenges in hiring and training qualified Controllers.
- Rail Traffic Controller training is inadequate.
- Accident investigations do not look at the ROCC's actions, just those of the train operator.
- Radio coverage remains poor in some areas.
- There is not enough time for maintenance during overnight hours.
- WMATA has reduced trackwork windows to cut back on customer dissatisfaction.
- The lack of trackwork time is contributing to a backlog of maintenance.
- Track worker protection training is not occurring as required.
- WMATA doesn't have a strategy for emergency response training.
- Rules compliance checks are not performed often enough or with regularity as required.
- Not all issues with the ATC (signal) system are being communicated to maintenance.
- The ATC department is understaffed.
- Critical parts are not always kept in stock.
- Not enough is being done to reduce fire/smoke issues in tunnels.
As a result of the findings the FTA is issuing a safety directive to WMATA that outlines how to fix each violation and requests updates to the 2016 budget to account for funding the necessary changes.
Also, in line with a recommendation from the National Transportation Safety Board that followed January's Yellow Line tragedy, State Safety Oversight Agencies will inspect Metro's tunnel ventilation systems, and the FTA will give WMATA further instruction based on the findings.
WMATA has 30 days to respond to the report with additional information. During this time, WMATA may suggest equivalent, alternative actions. Within 31 to 90 days of the report, WMATA must submit a plan for taking action.
Starting immediately, WMATA and FTA leaders will meet monthly until the FTA determines the meetings are no longer necessary or can be less frequent.
The Federal Transit Administration has just issued a Record of Decision for the Purple Line, basically approving the 16-mile light rail line between Bethesda and New Carrollton. It's one of the last pieces needed to build the line, which is scheduled to break ground next year and open in 2020.
Maryland Transit Administration officials made the announcement this morning during a Montgomery County Planning Board meeting about the Purple Line, which Purple Line NOW! and BethesdaNow subsequently tweeted.
The FTA will make a formal announcement next week. The agency's decision means Maryland can start purchasing right-of-way to build the $2.37 billion Purple Line, and makes it eligible for federal funding. President Obama recently included it in his 2015 budget, which Congress will have to approve later this year.
With state funding in place and an ongoing search for a private partner in the works, nearly all of the money needed has been secured. As a sign of how likely the Purple Line is to get built, the Planning Board is meeting today to make detailed recommendations about how it should interact with surrounding neighborhoods, like what materials to use for retaining walls.
Meanwhile, Washington Post columnist Robert McCartney has a column today urging the affluent Town of Chevy Chase, which has been fighting the project for years and recently hired a congressman's brother to lobby on their behalf, to lay down their arms and use their money to make the project better instead.
"Some people have more money than good judgment," he wrote. "The town should end its obstruction of a worthy project. Burning money is unwise even if you have it to spare."
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