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SUMMARY
Transit, Call Centers, and 511:
A Guide for Decision Makers
This report presents the results of TCRP Project A-31. The Federal Communications
Commission (FCC) has designated 511 as the national telephone traveler information num-
ber. Individual 511 systems are implemented and operated by state and local agencies.
Intended to provide multimodal traveler information, 511 systems include information on
highways and transit systems. Currently, there are 42 operating 511 systems in the United
States. Most of these systems cover an entire state. Only a few 511 systems include live
operators; the rest are entirely automated. Many 511 systems include both telephone and
Internet websites. This study focuses only on 511 telephone systems.
This project was intended to primarily address concerns expressed by some transit agen-
cies that participation in a 511 system could result in significant increases in call volumes to
their call centers, thereby degrading service quality to their customers or necessitating invest-
ments in staffing and/or technology to maintain service quality. This project investigated
national experience with transit content and information on 511 telephone information
systems. This study featured the following major research activities:
· An examination of transit agencies' overall customer information strategies and the role
of call centers in those strategies,
· A comparison of transit call center technologies and techniques with those utilized in
non-transit call centers,
· Twenty-nine case studies of transit agency experiences with 511 telephone systems,
· Interviews with twelve 511 system administrators to investigate their experiences with
transit on 511, and
· A focus group with transit riders to investigate their perceptions of automated telephone
information in general and 511 in particular.
This report synthesizes the results of these investigations to provide a comprehensive pic-
ture of the state of the practice. Further, it presents conclusions and recommendations that
will assist both transit agencies and 511 system administrators in making decisions about
transit content on 511.
This summary presents major study conclusions organized into two sections: the first
focuses on the national experience with transit on 511, and the second focuses on transit call
center strategies. Following these conclusions, study recommendations are presented,
including 511 decision-making guidance and recommendations pertaining to transit call
center strategies in general.
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Major Conclusions
Two major categories of conclusions are presented, the first involves transit agencies and
511 and the second relates to the overall utilization of advanced tools and techniques within
transit call centers. The conclusions related to transit and 511 are based on 29 transit agency
case studies, interviews with 511 system administrators, and a transit customer focus group.
The conclusions related to call center technology are based on interviews with transit and
non-transit call center operators, as well as a literature review.
Experience with Transit on 511
Although there is national guidance on 511 system operations, decisions about specific
511 systems are at the sole discretion of the state, regional, or local agencies that admin-
ister these systems. Hardly any of the 42 operational 511 systems include all of the tran-
sit information recommended in the national guidance--just over half of them include
no transit content or features whatsoever. The reasons why there is no widespread, exten-
sive transit involvement in 511 vary, but this is not because of any adverse impact on tran-
sit call centers. No transit agencies report any significant increase in call volumes or any
other ill effects of 511 participation. Rather, this lack of transit involvement is simply
because most 511 system administrators and transit agencies do not see significant
advantages in providing transit information via 511. There are several reasons for this per-
spective, as follow:
1. Throughout most of the United States (with several large urban areas being the notable
exceptions), the decisions made by 511 administrators and transit agencies suggest that
they believe that for any given trip, the vast majority of travelers want either traffic or tran-
sit information, but not both. Therefore, there is very limited value in providing both
types of information together. Further, their decisions suggest that the agencies believe
that most transit trips are served by a single transit provider and therefore there is little
value in having information available for multiple transit providers on 511.
2. The 511 decisions regarding transit information suggest that many agencies believe that
most transit information requests will require speaking with a knowledgeable transit call
taker and are therefore unlikely to be adequately addressed by a 511 system. Transit focus
group participants, while expressing a general willingness to use automated systems,
emphasized that the ability to speak to a live operator is critical. For those transit informa-
tion requests that can be addressed in an automated fashion, it is usually easier and, given
the other considerations, considered to be just as effective to invest in that automation
at the transit call center.
3. Most transit agency customer service numbers are well established and transit agencies
and some transit customers believe they are at least as visible (few 511 systems are effec-
tively marketed to transit users) and usually just as easy to remember (e.g., 555-RIDE) as
511. Therefore, the prevailing thinking is that anyone looking for transit information is
just as likely, if not more likely, to obtain it most efficiently by calling an individual tran-
sit agency directly.
4. Most decisions about transit participation on well-established 511 systems were made
several years ago when an existing, highway-oriented telephone information system was
rebranded as 511 or, even further back, when the original, pre-511 phone system was cre-
ated. In a number of cases, the staff that was involved in the transit decision making--at
the 511 system administrator agency and/or the transit agencies--have left and current
staff are not always certain of the rationale for the current strategy. If transit participa-
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tion decisions were to be revisited now in light of the proliferation of 211 and 311 systems,
increased availability of real-time transit information suitable for 511, and other factors,
transit participation strategies might be adjusted.
5. A final factor explaining the lack of widespread transit participation in 511 telephone sys-
tems is that a number of transit agencies and 511 system administrators have found that
transit information needs are better addressed through 511 websites. The web-based user
interface seems particularly well suited to providing detailed schedule and route infor-
mation and trip planning functionality.
In the cases where transit agencies have participated in 511, it is hardly ever because they
or the 511 system administrator view 511 as a key component in an overall transit informa-
tion strategy. Rather, it is usually because the agencies are trying to support the concept of
511 as multimodal (even though they do not feel that many travelers want multimodal infor-
mation) and costs to provide basic transit presence, such as a call transfer to transit customer
service, are usually not prohibitive (and hardly ever borne by the transit agency). To a lesser
extent, decisions to include transit also reflect the view that 511 may reach some visitors and
new residents who might have a harder time finding transit agency phone numbers than 511.
In very few cases--the San Francisco Bay Area being the most notable--the decision to
include transit on 511 was based on the belief that a large number of travelers need multi-
modal information on a regular basis and will view the ability to access that information
through one phone call as a significant convenience.
Transit Call Center Strategies
Staffed telephone customer service is a foundational, critical component of a transit
agency's customer information strategy. Customer inquiries that are not easily addressed
using other media such as printed materials and websites can be effectively handled by
phone. Inquiries like planning complex itineraries are cited by transit customers as among
their most important information needs. Most transit agencies believe that the majority of
their customers prefer and expect live operator customer service. Agencies also perceive that
live operator service is particularly important to senior and disabled customers who are not
comfortable using the Internet and customers who are not familiar with the transit system.
Although many transit agencies are taking increasing advantage of web pages--and, to a lesser
extent, interactive voice response (IVR) systems--these tools are viewed by the agencies as
complementing, rather than replacing, live operator customer service. Transit agencies value
their telephone interactions with customers as an important means of establishing and main-
taining their relationships with their customers.
Both transit and non-transit call center strategies vary significantly depending on the size
of the organization and its call volume. Large organizations that handle many calls use more
sophisticated technologies, performance monitoring methods, etc. For example, non-transit
organizations are more likely than most transit agencies to use IVR and the Internet to
reduce the number and duration of live operator-assisted phone calls. Many transit agen-
cies with significant call volumes could benefit from greater utilization of technologies and
practices used more routinely by non-transit organizations.
Recommendations
Recommendations are offered in two areas: the first concerns 511 decision-making guid-
ance for transit agencies and 511 system administrators, and the second pertains to transit
call center strategies in general.
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511 Decision-Making Guidance
Although this guidance is intended to support decision making associated with new 511
systems, since most of the United States is now covered by 511, 511 system administrators
and transit agencies associated with even the most mature 511 systems are strongly encour-
aged to use these guidelines to reconsider their 511-transit strategies.
Overall, it is recommended that most transit agencies work with their 511 system admin-
istrator to provide the basic information recommended in the national 511 Deployment
Coalition guidance, including a list of services offered, hours of operation, service disrup-
tions, and a call transfer option to transit call centers. Although in most circumstances such
participation is not likely to produce significant benefits, it is fairly inexpensive to imple-
ment and maintain. In such cases, the primary value of participation is three-fold (1) it sup-
ports and advances the general principles of interagency, multimodal coordination, (2) it
will be of value to those relatively few travelers in most regions who value consolidated traf-
fic, transit, and multi-agency transit information, and (3) it will be a convenience for new
residents or visitors who may find 511 easier than the phone numbers for individual transit
customer service centers. In those relatively few cases where a transit agency is expected to
pay a significant amount to support 511 participation, these real but limited benefits should
be weighed carefully against the costs. Table S-1 summarizes specific decision-making fac-
tors for basic 511 transit content.
The question of whether it is useful and cost-effective to provide additional or advanced
transit information and features on 511 will depend on a wide range of site-specific factors.
Those factors are summarized in Table S-2. As shown in Figure S-1, overall, relatively few
agencies will find a compelling case for advanced information, but most will benefit from
providing basic transit information on 511. Providing advanced information via 511 can be
a resource-intensive process, both in the short term and long term. In addition to having a
supportive 511 system administrator and sufficient resources at the 511 agency and transit
agency, there needs to be a persuasive reason for providing advanced transit information on
Table S-1. Decision factors related to basic transit information
on 511.
Decision Factor Implication
If the 511 system administrator views the system as a
Local 511 embraces
highway/traffic-only resource, it is likely that a transit agency will
national 511 vision of a
not have any opportunity to participate in 511. If transit does
multimodal resource
participate, they are not likely to derive any significant benefit.
Transit agency required If the transit agency is required to contribute significantly toward
to contribute to 511 the cost of the 511 system, the benefits to transit often will be less
system costs than the costs.
Cost of call transfers If resources for 511 are extremely limited, the cost of call transfers
from 511 to transit from 511 may outweigh the relatively minor benefits of 511
agencies participation that many transit agencies will realize. In those
cases, the transit agency phone number can be listed on 511 rather
than providing a call transfer capability.
Commitments to keep The relatively minor benefit (e.g., a resource for those
service disruption proportionally few travelers who may find their way to a given
information accurate and 511 system looking for transit information) of this information is
up to date lost if the information is not accurate and current.
If the schedule and fare information is very detailed and therefore
likely to change often, the effort necessary to keep it accurate and
Level of detail of
current will often outweigh the value of having it on 511. It is
schedule and fare
assumed that the 511 Deployment Coalition's guidance to include
information
schedule and fare information refers to high-level schedule and
fare information, which is almost always worth listing on 511.
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Table S-2. Decision factors related to providing additional transit
information on 511.
Decision Factor Implication
511 System Factors
Technical and financial Limitations of the 511 system in regard to the number of callers,
capability of the 511 complexity of the menu system, and ability to effectively interface
system to support with transit databases may preclude advanced transit information
advanced transit and features on 511. Funding limitations may prevent upgrades to
content/features the 511 system to support these features and/or the 511 system
administrator may not have the staff resources needed to carry out
the on-going activities associated with these more advanced transit
features.
Ability and commitment The value of transit information on 511 is a function of the number
to market 511 to transit of transit information seekers who use 511. If a 511 system is not
users historically viewed and used as a transit information resource, the
absence of an on-going marketing campaign targeted to transit users
means that the value of having advanced transit information on 511
usually will not warrant the cost.
Transit Agency Factors
Technical and other Just as the 511 system administrator may lack the necessary
resources necessary to resources, so might the transit agency. Unless a 511 system
keep information administrator is willing to take sole responsibility for obtaining
accurate and current on information updates from the transit agency (and most
511 administrators will be unable or unwilling to do so indefinitely), the
absence of transit agency resources will preclude advanced
information on 511.
Ability and commitment In order for the investment in advanced transit information on 511 to
to market 511 to transit be worthwhile, either the 511 system administrator or the transit
users agency must be willing and able to commit to a long-term marketing
strategy to establish and maintain 511 as a multimodal resource.
Transit agency has, or If a transit agency has, or is planning to implement, their own IVR,
intends to implement, its in most cases there is little benefit in making the same information
own IVR and features also available directly on the 511 system. The
exceptions to this include regions where 511 is effectively marketed
to support multimodal planning and many travelers make mode-
choice decisions frequently. If the transit agency does not have their
own IVR but wants one, then the 511 system may provide an
opportunity to fill that need either as a stop-gap until the transit
agency can implement their own IVR, or as a long-term strategy that
eliminates the need for a transit agency IVR. The suitability of 511
as a long-term replacement for a transit agency IVR will depend on
effective marketing of 511 to transit users and the feasibility of
maintaining accurate and up-to-date information on the 511 system.
Number of customer If very few transit customer inquiries can be addressed with an IVR
inquiries that could be system, the cost to provide such information on 511 probably is not
handled all or in part via justified. If many inquiries could be so addressed, the decision will
IVR depend on other factors noted in this table (e.g., marketing, ability to
keep information accurate, etc.).
Current cost of long- In some cases, transit agencies pay a considerable amount for local
distance charges for long-distance calls to their customer service center (e.g., from within
customer service calls their service area but from a different area code). In these cases, if
calls to 511 are toll free (and they almost always are) and the 511
system administrator pays for call transfers out of 511 to the transit
agency, having transit information on 511 can reduce local long-
distance costs for transit.
Ability to effectively If a transit agency lacks an IVR and is struggling to keep up with
process current and incoming demand on their customer service line, providing
anticipated transit extensive information on 511 can help a transit agency meet
customer service call customer needs. Whether it makes more sense to meet those needs
volumes via 511 versus upgrades to their own call center will depend on the
other factors as noted in this table.
511 system user interface The value of advanced transit content and features on 511 depend
significantly on the ability of transit users to conveniently and
reliably access that information. Impediments such as a poorly
performing 511 voice recognition system or inconvenient placement
of transit information in the 511 menu structure would argue against
a significant investment in advanced transit information on 511.
These impediments will pose a particular challenge to cell phone
users and seniors.
(continued on next page)
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Table S-2. (Continued).
Decision Factor Implication
Travel Environment Factors
Number of transit trips Other considerations aside, it is much more valuable to have transit
that involve multiple information on 511 when there are multiple transit providers in a
transit providers region. Further, it is more valuable when many transit trips involve
multiple providers because 511 callers can get information on all
providers with a single call. When there is only one transit provider
in a given travel market, the "one-stop shop" rationale for transit
information on 511 does not apply.
Number of travelers The value of advanced transit information on 511 is significantly
making mode choice enhanced when many travelers make mode-choice decisions based
decisions on a frequent on daily traffic conditions. Under those conditions, having traffic
basis (daily, weekly) and transit information available in one call to the 511 system
represents a significant convenience and could greatly facilitate
consideration of transit in mode-choice decisions.
Number of tourists or In most regions, the transit customer service phone number is at
newcomers least as familiar and accessible to long-term residents seeking transit
information as is 511. Under those conditions--and other factors
aside--it is hard to argue that the cost to provide telephone-based
transit information anywhere other than through the transit agency is
cost effective. However, in regions where there are many tourists
and/or many new residents--especially if they come from regions
where 511 includes transit--there is greater justification. Whether
that justification outweighs the costs will depend on other factors.
Almost
All
Number of Transit Agencies
Basic Additional
Information Information
(minimum recommended by
511 Deployment Coalition)
Few
Real-time Arrival /
Interactive Trip
Route-level Schedule
Service Disruptions
General Schedule
Call Transfer
Transit Phone #
Departure info.
& Fare Info.
Planner
& Fare Info.
Type of Transit Information on 511
Figure S-1. General recommendations for transit agency
511 information.
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511. The most compelling reasons pertain to the nature of the travel environment, namely
the presence of conditions that make consolidated ("one call does all") traffic and transit
and multimodal transit information valuable to travelers. Those conditions include signif-
icant and variable traffic congestion and a wide range of viable modal travel options. When
such conditions are present, it will also be very important to promote 511 aggressively to
establish awareness of it as a multimodal resource.
Another compelling rationale for advanced transit content and features on 511 is in the
case where one or more transit agencies feel that many of their customers would benefit from
automated information (no operator available) but they do not have the funds to implement
their own system. In such cases, advanced transit information on 511 can serve as either a
short- or long-term solution.
Transit Call Center Strategies
Two recommendations are provided in regard to overall transit call center strategies. First,
transit agencies of varying sizes are encouraged to evaluate the potential benefits of more
extensive utilization of advanced call center technologies and practices. This could include
medium-sized agencies implementing IVR systems or large agencies enhancing the sophisti-
cation of their IVR systems to serve a wide range of customer inquiries. Other examples of
technologies that may benefit larger agencies include call-volume demand forecasting, as well
as performance monitoring and customer satisfaction monitoring software. Potential bene-
fits that may be realized through greater utilization of advanced technologies and techniques
at transit agencies include the following:
· Reducing the amount of manual, paper-based processes at large call centers by using
workforce management technologies that track daily work logs and automate most tasks;
· Reducing the amount of time spent on repetitive information requests by implementing
IVR systems and posting such information on the agency website;
· Ensuring customer service quality for agencies with large call volumes (e.g., more than
1,000 calls per day) by implementing quality monitoring technologies; and
· Improving customer management, particularly at those agencies that wish to provide per-
sonalized information (such as service alerts) through the use of customer relationship
management and customer interaction management software.
The second recommendation is to encourage transit agencies to consider 511, 311 (consol-
idated municipal services information), and 211 (consolidated social service agency informa-
tion) together, as part of their overall customer service strategy. In particular, 311 systems can
have a significant impact on transit agency customer service operations including, as occurred
in the City of San Francisco, having the 311 call center replace the transit agency call center.
Transit agencies that are entities of a municipal government are encouraged to engage with the
municipality early in any 311-related discussions so that transit agency considerations are
appropriately taken into account and that any changes can be phased in over time.
