1.3 LRV Second Operators
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MUNI currently assigns a platform operator on every light rail vehicle (LRV) car placed into passenger service, including vehicles that are the second, third and fourth cars of multiple LRV trains. Generally, these operators are assigned to these cars to collect fares from riders. The cost for platform operators is the largest cost category for MUNI. Therefore, transporting the most possible passengers with the least platform operator cost is a desirable objective.
MUNI presently has an opportunity for reducing platform operator costs by scheduling platform operators for only the lead car in multiple car trains. However, eliminating platform operators from the second, third and fourth cars requires alternate means for insuring that appropriate fares are paid by passengers.
In order to insure that LRV passengers pay appropriate fares under a system with only a lead car operator, MUNI would be required to implement a Proof-of-Payment program (POP). Such a program would require that each passenger show, upon request, proof that payment has been made to MUNI. Proof-of-payment could consist of a valid pass, transfer, or fare receipt. Citations would be issued to passengers who have boarded LRVs and are unable to show proof-of-payment to appropriate authorities.
The implementation of a Proof-of-Payment Program has been recognized by the Municipal Railway as a means for reducing operating costs and improving services by decreasing vehicle load times. Accordingly, the Municipal Railway and the SFPD MUNI Transit Company implemented a pilot program from which to gauge the potential benefits from a Proof-of-Payment Program.
Proof-of-Purchase Pilot Program Results
The Municipal Railway has constructed high-level platforms on 19th Avenue at Holloway and Winston Avenues. As part of the pilot program to evaluate the effectiveness of a POP Program, the San Francisco Police Department MUNI Transit Company has conducted periodic inspections of these stations since December, 1994, to determine whether passengers possess valid proof of payment. However, the police have only been able to inspect about one to two percent of all boarding passengers. MUNI estimates that fare evasion is about 25 percent of cash fares at these locations, or approximately five to six percent of total fares.
Light-duty platform operators are also being used to limit access to these high-level platforms to those passengers showing proof of payment. Based on the results of this pilot program, the Municipal Railway estimates that a fully implemented Proof-of-Payment Program, with an inspection rate of between 15 percent and 20 percent of passengers, would reduce fare evasion on the LRV system to acceptable levels. This is consistent with estimates made by other transit properties that have implemented proof-of-payment programs on their LRV and rail systems.
Implementing a System-Wide POP Program
Presently passengers can only board LRVs by the front door when the LRVs are being operated on surface streets. Implementation of a full Proof-of-Payment program would allow MUNI to eliminate the Platform Operators in the second, third and fourth cars of multiple LRV trains and allow the use of all doors on the LRVs, which would expedite boarding of passengers. Boarding through all doors would also allow for safer and more convenient boarding, better load distribution, and faster run times.
In addition to the high-level platforms on 19th Avenue at Holloway and Winston Avenues, the Municipal Railway plans to construct similar high-level platforms on the MUNI Metro extension. Front door-only boarding at these high-level platforms during peak periods would result in seriously degraded schedule adherence, based on the projected ridership which is expected to originate from Mission Bay.
Full implementation of a Proof-of-Payment program would require passengers to show proof-of-payment to police officers, other law enforcement officers, or designated Municipal Railway employees throughout the entire LRV system. While the inspection function could be performed by contract security personnel or by uniformed officers of the Police Department or the Sheriff"s Department, the use of uniformed Municipal Railway inspection personnel is recommended as the most cost effective means of fully implementing the Proof-of-Payment Program. Systems using civilian personnel with police back-up have successfully worked in other jurisdictions. For example, the Chicago Transit Authority (CTA) is presently implementing an expanded program of Proof-of-Payment inspection and service quality assurance using light duty, and permanently disabled and retrained vehicle operators.
The estimated cost of a civilian Proof-of-Payment inspection program managed directly by MUNI is illustrated below:
Table 1.3.1
Estimated Cost of a Civilian
Proof-of-Payment Inspection Program
San Francisco Municipal Railway - May 1996
| Position Title | No. of Positions | Minimum Annual Salary | Maximum Annual Salary |
| Senior Inspector Inspector Senior Clerk Typist Clerk Typist | 5 30 1 1 | $159,993 800,226 28,814 26,309 | $193,662 968,571 34,870 31,842 |
| Estimated Fringe Benefits Overtime Uniforms and Other Costs    |         | 253,836 30,000      25,000 | 307,236 30,000      25,000 |
| Total | 37 | $1,324,178 | $1,591,181 |
The Municipal Railway Scheduling Division estimates that savings from platform operator salaries will be approximately $2,600,000 to $3,700,000 annually after full implementation of a system-wide Proof-of-Payment Program. We have reviewed the assumptions used by MUNI and concur. Additional operator hours could be used to provide regularly scheduled service at reduced cost (see Section 1.2).
Based on the estimated operating costs shown in the table above, net savings from the implementation of the Proof-of-Payment Program would therefore be between approximately $1,275,822 to $2,108,819 annually. During the first year of the Proof-of-Payment operation, the Municipal Railway would incur additional one-time costs for public outreach, training, travel and court tracking estimated at approximately $104,000.
In 1991, the Municipal Railway and the Transport Workers Union, Local 250A, agreed that "Before the Proof of Payment system of fare collections is implemented on the LRVs, GMPUC will meet and confer with Local 250A as to the proposed action. No Proof of Payment fare collection system will be introduced on the MUNI system before there is a fully developed security system operating on the LRVs." Since 1991 the SFPD and the Municipal Railway has taken the following actions to improve safety of Platform Operators and MUNI passengers:
- Increased the number of officers dedicated to crime prevention and law enforcement activity on MUNI vehicles, and at stations and stops, by over 100 percent. Current SFPD direct expenditures for the MUNI Transit Company exceeds $3.6 million per year, and is supplemented throughout the system by police officers from district stations.
- Implemented a MUNI Vehicle Inspection Program, whereby police officers from the district stations are required to randomly ride MUNI vehicles at least once per shift.
- Implemented a civilian monitoring system, whereby civilian volunteers monitor troublesome and criminal activity aboard MUNI vehicles, intervene if safe, and request police assistance if necessary.
- Enhanced coordination with the San Francisco Unified School District (SFUSD) to prevent juvenile crime on MUNI vehicles.
- Established improved SFPD, SFUSD, and MUNI protocols for responding to crime at schools and on MUNI vehicles.
- Implemented improved MUNI crime reporting mechanisms.
In addition, we believe recommendations contained in Section 1.4 and Section 6.1 of this report will further enhance MUNI security at stations and on board transit vehicles; and, the proposed use of uniformed Municipal Railway inspectors to enforce Proof-of-Payment regulations will enhance safety on the LRV system. The use of these inspectors to perform Proof-of-Payment inspections will allow the SFPD to concentrate on preventing crime and protecting operator and public safety on the transit system.
As will be discussed extensively in Section 6 of this report, we believe the current security system on the Municipal Railway"s LRVs is sufficiently developed, and that MUNI has met the requirement specified in the 1991 agreement with TWU Local 250A. Further, given the average daily ridership of over 750,000 persons on MUNI, we generally conclude that the MUNI environment is statistically safe for most individuals who travel on the system. The analysis supporting this conclusion is provided in extensive detail in Section 6.1 of this report.
Conclusions
The Municipal Railway currently schedules platform operators for duty in all Light Rail Vehicle (LRV) cars that are placed into passenger service.
Scheduling operators in the second, third and fourth cars of multiple LRV trains is an inefficient use of staff resources.
Implementation of a Proof-of-Payment Program would result in increased efficiencies, more expeditious passenger boarding, and annual savings of as much as $2.1 million.
Recommendations
The Director of Public Transportation, and other appropriate City and County managers, should:
1.3.1 Meet and confer with the Transport Workers Union, Local 250A, regarding the implementation of a full Proof-of-Payment Program.
1.3.2 Request a supplemental appropriation for 37 positions, costing between $1,324,178 and $1,591,181, which would provide funding for the implementation of a Proof-of-Payment Program.
1.3.3 Request amendments to the City"s Annual Salary Ordinance which would provide authorization to staff the Proof-of-Payment Program.
1.3.4 Reassign operators from duty on the second, third, and fourth cars of multiple LRV trains to active driving assignments, to improve MUNI"s ability to meet scheduled service requirements.
Costs and Benefits
Implementation of a Proof-of-Payment Program would result in more expeditious boarding of passengers and a net savings estimated to be as much as $2.1 million annually.