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Practices for Wayside Rail Transit Worker Protection (2012)

Chapter: Chapter Three - Work-Site Protection

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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
×
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
×
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
×
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
×
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
×
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Suggested Citation:"Chapter Three - Work-Site Protection." National Academies of Sciences, Engineering, and Medicine. 2012. Practices for Wayside Rail Transit Worker Protection. Washington, DC: The National Academies Press. doi: 10.17226/14657.
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Below is the uncorrected machine-read text of this chapter, intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text of each book. Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.

15 INTRODUCTION This chapter discusses the specific practices and procedures, outlined in each agency’s rules, safety bulletins, and training programs, that pertain to track worker protection. These include conducting job briefings and establishing a work site, communications procedures between employees and control centers or towers, track worker PPE, flagger PPE, flagger signaling, designated levels of protection/flagging, flagging, and safety challenges. Most of the practices are excerpted directly from each system’s current rule book, and the overall sections are cited within the list of references. Two systems, NYCT and TTC, have been evolving their rules and practices for decades, learning from experiences and from evaluating and analyzing their procedures. MBTA, according to one of the senior officials, started with a “clean sheet of paper” several years ago to develop a new track worker protection program. As part of this process they referred to, but did not follow, the FRA regulations for track worker protection. The other two systems—MTA and River LINE— share parts of their ROWs with FRA-regulated freight railroads; this requires them to meet and, if they choose to, exceed a FRA-compliant track worker protection program. JOB BRIEFINGS AND ESTABLISHING WORK SITES Each system interviewed uses job briefings. The applicability, based on level of work and protection, and extent of these briefings vary by system. Some also have a process for documenting the establishment of a work site. New York City Transit Authority In New York, every work site must be reviewed by a super- visor or employee-in-charge. Supervisors hold a pre-job meeting to designate the flaggers, outline the job, communi- cate the type of flagging protection that will be established, provide an opportunity for employees to discuss their concerns, and complete a checklist. The supervisor or employee-in- charge must advise employees of the location and access to the clear-up locations, which must be within 15 ft of where the work is taking place (4, p. 2.7). These pre-job meetings are also where and when super- visors are responsible for advising hourly employees of the prepared Rule-of-the-Day and conducting a job-specific Toolbox Safety Talk before the beginning of the tour’s assigned tasks. Newly issued safety bulletins and advisories must also be discussed in this forum. The meeting must cover the aforementioned procedural requirements for establishing and maintaining a safe work environment, and alert personnel of the specific hazards associated with the task (4, p. 2.3). These meetings are part of a broader practice to establish a safe work site methodically. “The Box” concept is a procedure used to establish a safe work environment for all track work. The term refers to an area of a track or work location framed by a square or rectangular border defined by supervisors or by the person in charge of the work. The width is from wall to wall, wall to column, column to column, or otherwise defined. The length of the box is broader than the immediate work site and includes the adjoining area used for: • Storage of tools and equipment; • Clearing up of personnel; • Walking about by personnel as they perform their assigned tasks; and • Location of the closest emergency alarm box. This border defines the area that has been inspected and cleaned of potential hazards before performing work (see Figure 4) (5, pp. 2.3–2.6). Figure 5 shows the Daily Subways Maintenance Super- visors Checklist that must be filled out at the beginning of a tour when establishing a work site and returned to the super- intendent at the end of each day. Copies of the completed forms must be filed at the appropriate subdivision field office for 90 days (5, p. 3.4). Toronto Transit Commission Toronto requires job briefings but does not address this issue in the Subway/SRT Rulebook. Instead, each department that performs track-level work has developed a specific procedure for where, when, and how to conduct job briefings, including what needs to be covered. Generally, a daily job briefing for each crew is conducted at its main work location, and a safety briefing is conducted at the job site. The foreperson uses a department-specific checklist for the safety briefing. He or she signs the form upon completion of the briefing and retains a copy for the department files. CHAPTER THREE WORK-SITE PROTECTION

Massachusetts Bay Transportation Authority It is the responsibility of the foreperson, among other duties, to conduct a job hazard analysis and site briefings to ensure the safety of work crews. A job hazard analysis is an evaluation of a work site and a job to be performed at that work site. It must be conducted before the commencement of work to determine if hazards exist and what PPE is appropriate to minimize those hazards. A site briefing is conducted before the start of work on the ROW. The hazards identified in the job hazard analysis and protections required for the job are discussed during a site briefing (6, pp. 9–10). Maryland Transit Administration On the MTA light rail system, before performing any task requiring the coordination of two or more employees, the OSC must conduct a job safety briefing to ensure that all have a clear understanding of the on-track safety provided and of individual responsibilities. The Railroad Worker Protection Manual establishes that job briefings should be held at the start of each job, whenever the OSC changes, or whenever the on-track safety changes. According to the basic job briefing outline, the OSC should: • Stop everything and focus on the job briefing; • Encourage everyone to participate; • Review the entire work assignment; • Determine which type of on-track safety will be provided; • Assign flagger or watchperson and advance watchperson as needed; • Encourage employees to share previous similar work experiences; • Identify potential job hazards; • Reach a consensus on how the job needs to be done to be injury-free; and • Review the responsibilities of each employee. The job briefing for on-track safety is deemed complete only after all employees have initialed the Job Briefing 16 Acknowledgement Statement (see Figure 6) indicating they understand the safety procedures and instructions presented (7, pp. 21.1–21.3). River LINE On the New Jersey Transit River LINE the approach is similar to MTA’s practices. All roadway workers on the River LINE whose duties require the coordination between two or more workers must perform a job briefing before starting their job. The roadway worker must acknowledge that he or she has a clear understanding of the task, how it is to be accomplished, and the on-track protection procedure to be used. Job briefings are conducted by a supervisor face-to-face with all employees or contractor employees, who acknowledge in writing that they have received and understand the information in the briefing. Supervisors responsible for the coordination of work are required to maintain a record of the job briefing for a 7-day period. When not practical or possible to conduct a face-to-face briefing, a radio or telephone can be used. The job briefing should include, but is not limited to, the following: • The specific job to be performed for the day (Example: Installing ties at new interlocking under construction); • What type of protection the employee in charge intends to use (Example: Depending on the nature of the work, the affected track will be taken out of service or obstructed, or foul time will be requested); • Responsibilities of each employee (Example: Which employees will be used at “Stop Signs” if the track is to be obstructed); • Any known hazards or situations that could jeopardize personal safety (Example: The adjacent track is in service and trains will be passing work site at normal speed); • How equipment is to be operated and which communi- cation method will be used (Example: Will radio or hand signals be used to communicate with the operator?); • Any requirements that will affect their job (Example: Orders to clear the track by a certain time); FIGURE 4 NYCT “Box” concept (Courtesy: NYCT).

17 FIGURE 5 Daily Subway Maintenance Supervisors Checklist (Courtesy: NYCT).

• All known unusual conditions or situations that may affect the job assignment; and • If necessary to work under traffic, where will the “safe” location be located to clear the track? Employees must not clear the track by occupying another track unless that track is out of service. All River LINE roadway workers whose duties require them to work alone and not as part of any other work group must contact their supervisor before the start of their work and conduct a job briefing. The roadway worker must acknowledge having a clear understanding of the task, how it is to be accomplished, and the on-track protection procedure to be used. Job briefings should include how the worker intends to provide on-track protection against moving track equip- ment or trains. Discussion between the lone worker and his or her supervisor must include, but is not limited to, the following: • All specific jobs to be performed for the day (Example: Inspecting track between two specific locations); 18 • Responsibilities of the lone worker (Example: What portions of the job will require fouls, and when would the track need to be taken out of service?); • Any known hazards or situations that could jeopardize personal safety (Example: The adjacent track is in service, and trains will be passing the lone worker at normal speed); • How communication will be established (Example: Will the lone worker be monitoring the radio, and on which frequency?); • Any requirements that will affect the job, such as orders to clear the track by a certain time if the track is to be taken out of service; • All known unusual conditions or situations that may affect the job assignment; and • If necessary to work under traffic, the location of a safe area to clear the track. Employees must not clear the track by occupying another track unless that track is out of service. Job briefings for both groups and lone workers should be updated regularly. Only one foreperson can be in charge of the work site. The foreperson in charge must keep all other forepersons up to date and must have a clear understanding as to how the job is to be conducted (8, pp. 4–7). COMMUNICATION PRACTICES Each system also has extensive rules or documented standard operating procedures directing and governing the use of radios, cell phones, public address systems, and other forms of communication technology. For this study, the focus is on procedures for track workers to notify control centers or towers and for control centers to notify operators of the presence of employees or work sites on the ROW. These rules and procedures were discussed in the interviews with agency personnel, culled from a review of each agency’s rules, or both. New York City Transit Whenever employees are entering the ROW and some level of flagging protection is required, they must notify the Rail Control Center Desk Superintendent to request and receive permission, and report their position by track and station number. Between the hours of 10 p.m. and 5 a.m. and all day on Saturday and Sunday, the Rail Control Center must notify area trains with periodic announcements of the presence of employees on the ROW and remind train operators to operate with restricted speed and extreme caution and to sound the horn if caution lights or employees are observed. The Rail Control Center must keep a log of the flagging calls. If an employee is using the ROW to access his or her work place, for example, walking to a train or tower, the employee is not required to notify the Rail Control Center to request permission. The employee must, however, follow all rules FIGURE 6 MTA Job Briefing Acknowledgement Statement (Courtesy: MTA).

19 pertaining to PPE and general safety practices for accessing and walking along the ROW. NYCT operations supervisors are required to speak with train operators as they are reporting to work to go over locations of General Orders and any other significant events that are occurring on their line. Toronto Transit Commission Employees must call Transit Control by means of a land line to get permission before descending to track level. All crews carry a system radio for direct communication with Transit Control at all times. Transit Control is the communications center of the transit system. Transit Control will inform oper- ating crews when there are employees on the track and where to expect warning lights or flags and work crews. On Scarborough Rapid Transit (SRT), Transit Control will advise the operator to change from Automatic Train Operation to Cab Signaling or Emergency Mode. Employees must wait for Transit Control to confirm this change from station to station before the work crews enter the track level. On the SRT, Transit Control will advise operators when work crews report clear and instruct the train operator to return to Automatic Train Operation. If employees are required to access an area located beyond the safety gate at the end of the platform, and will walk along the catwalk area not protected by a yellow railing, they must advise Transit Control and ensure that the platform end gates are closed after entering or exiting track level by means of a station platform. If employees are conducting a walking inspection that requires them to be at track level for more than 2 h for inspec- tion, troubleshooting, orientation, or track patrol, they must contact Transit Control and request that Transit Control update subway vehicle crews of their location. Employees must repeat this request every 2 h until they have cleared track level. On SRT, employees must wait for Transit Control to confirm that the system is operating in the Cab Signaling Mode or Emergency Mode before they go to track level. When leaving track level, the employee in charge must ensure that no employee in the group is still at track level. The employee in charge calls Transit Control immediately after leaving track level (2, pp. 1.9–1.12). Massachusetts Bay Transportation Authority All personnel accessing the ROW must notify the appropriate control center dispatcher using the appropriate telephone numbers before entering the ROW. There are separate numbers for each of MBTA’s rail transit lines: Red, Blue, Green, and Orange. The employee informs the dispatcher what area the work crew intends to occupy and requests to be placed on the Right of Way Access List. The employee must have a call number and a working portable radio in his or her possession. Employees must identify themselves by name and call number, and identify what Level of Protection they will be utilizing, what type of work, if any, is being performed, and how many members are in the work crew. The employee must also notify the dispatcher of the name and badge number of the designated flagperson(s). Callers must tell the dispatcher where the crew will first access the ROW and identify the two points between which the crew will be working. These locations must be stations or landmarks and cannot exceed two stations (i.e., Braintree to Quincy Adams; Stony Brook to Jackson; Orient Heights to Suffolk, or Beaconsfield to Reservoir). Once employees have completed their work in that specific area, the original caller must contact the dispatcher by means of radio and inform him or her that the crew is clearing one location and moving to another, giving the specific area in which the crew will be working. Whenever a crew leaves the ROW for any reason—break, lunch, or other purpose— the crew must inform the dispatcher that all crew members and all equipment are clear of the ROW. Transportation personnel accessing the ROW use their radios as the primary means of communication with the control center while entering, occupying, or clearing the ROW. Operators must monitor their radios to be aware of person- nel on the ROW. When swinging on or off, operators must inform their relief person about personnel on the ROW. If an operator encounters personnel on the ROW who have not been identified on the Right of Way Access List broadcast by the dispatcher, he or she is directed to contact the control center immediately and inform them of the crew’s location. A dispatcher will then send a supervisor to the scene, and vehicles traveling in both directions in the area will be instructed to use caution. Supervisors are required to monitor their areas and be aware of the personnel on the Right of Way Access List, and to complete periodic checks to ensure that all work crews are adhering to the call on/call off, and other policies and procedures established for ROW access. Dispatchers are responsible for monitoring operations and taking every step possible to ensure employees and contractors accessing the ROW are complying with established policies and procedures. Any violations must be reported promptly to the appropriate line supervisor or work crew supervisor. The dispatcher must also do the following: 1. Restrict crews from calling in excessive areas of coverage. Crews are restricted to an area between two stations;

2. Maintain an accurate list of all personnel on the ROW, the number of people in the work crew, and the desig- nated flagperson(s) and their location; 3. Confirm that the crew has a working radio; 4. Question crews about the work activity, the work loca- tion, and the Level of Protection. If the work activity or work location is not appropriate for the Level of Protection, the dispatcher will deny the work crew access to the ROW and contact the crew’s supervisor. 5. Broadcast the Right of Way Access List at least every 20 min. This access list includes all persons and work crews who are on or near the ROW (6, Section 9.0). Maryland Transit Administration and the River LINE In accordance with their FRA-compliant rules, these two agencies require all employees to call the control center whenever they enter or clear the ROW. This requirement is covered in each section of their rules that pertain to each level of track protection. Additionally, MTA broadcasts an “all-call” to all operators in service whenever an employee calls on and off the ROW. All Systems Universally across the five systems, communications between groups of track workers or lone workers and the control center or tower are by means of radio. On the MTA, identified radio “dead zones” have been addressed by issuing an MTA cell phone to each MOW vehicle on the system. These cell phones are not to be used on the ROW and may be used only when radio transmissions are not possible. All systems require that each work group have at least one working radio, and in cases in which lone workers are permitted, the lone worker must have a working radio. All systems require employees to clear the ROW when their radio malfunctions or fails. TRACK WORKER PERSONAL PROTECTIVE EQUIPMENT Personal protective equipment, communally referred to as PPE, is required for track workers on every system. Given the diversity of system sizes, operating environments, and previously mentioned hazards, the study does not attempt to compare PPE requirements across systems. A summary of the PPE items, specifications, and use at each system follows. New York City Transit Authority All employees working on the ROW, regardless of department, are required to wear at a minimum NYCT-issued safety vests, safety glasses, and NYCT-approved safety shoes or boots (13, Rule 6.08). Employees walking on the ROW must also carry an approved light to illuminate the walking surface. The currently approved lights are high intensity incandescent 20 or LED powered by three C batteries, Streamlight, or similar lights. These approved lights must be used to provide sufficient light to permit moving about safely. If an employee encounters a train while on the track, this light can also be used to flag a train. Other conditions or tasks may require additional protective equipment. Respiratory protection is required in oxygen- deficient or low-air-quality environments. Fall protection is required when working from certain heights and locations, and additional protective face shields, gloves, footwear, hard hats, and jackets are sometimes required. Employees working around the energized third rail are required to use enough 1⁄4-in., 3-ft wide rubber mats, in good repair, to cover the third rail in the work area. When multiple mats are required, there must be a minimum 1-ft overlap between mats. All metal tools used in the vicinity of the third rail must be insulated with appropriate insulation that is in good repair. Insulated tools are inspected daily before they are brought to the work site. Insulation that becomes damaged during work can be repaired by applying a minimum of four layers of electrical tape to the affected area of the tool. This is only a temporary repair and is only approved for that specific day’s work (13, Rule 6.08). Toronto Transit Commission Specific guidelines for PPE are detailed in department rules as opposed to the general Subway/SRT Rulebook. According to the Safety Department, minimum PPE required by all employees working at track level includes: • Head protection with reflective material (hard hats or bump caps); • Safety glasses; • Safety shoes (ankle high with toe and sole protection); • Reflective leg and arm bands; • Appropriate track-level warning devices, yellow, red, or green safety lights, flags and personal flashlights; and • Approved train signaling device, Lenser light, or yellow and red flags. The rule book directs employees to wear approved PPE when they are at track level as required by the work they are performing and their department rules. The PPE is approved by the Safety Department, but each department is not required to use the same equipment. The Safety Department recently replaced large battery pack lanterns with a small, hand-held LED Lenser Flashlight. Employees from all departments responded favorably to this change. TTC is currently undertaking two initiatives relative to PPE. The first involves the Safety Department designing a

21 high visibility T-shirt that workers can wear in place of a vest in hot weather. This is particularly appealing to employees who spend a good deal of time working on surface track. The T-shirt specifications include: • Fluorescent yellow–green color; • Double-layer premium mesh polyester breathable material; • Left chest, sealed cell phone pocket and pen slot; • Fully compliant with CSA Z96-09 Class 2, Level 2 standard (tag attached to inside collar); • 3M #5510 2-in. Zebra tape, applied to 4-in. orange reflective backing; • “X” on back, vertical stripes on front, all meeting at the horizontal stripe at the hip (6 in. below normal waist striping); • TTC heat transfer on back; and • Embroidered TTC logo on front. Figure 7 shows a prototype of the T-shirt. The T-shirt costs approximately $42 with a minimum order of 1,000 shirts. The second initiative involves the Track Level Safety Team’s comprehensive review of all PPE used by employees from the various departments that enter track level. The goal of this initiative is to develop PPE standards to be adopted across the departments. For example, committee members mentioned that although all workers were required to wear a vest, the requirement for arm and leg bands varied. The committee also explored the benefits and limitations of several models of vests and recommended the adoption of a new, more reflective vest. Massachusetts Bay Transportation Authority To maximize ROW safety, MBTA requires all employees to utilize appropriate PPE while working on or near the ROW. PPE is considered critical to the protection of employees from hazards such as: • Moving vehicles; • Electrical hazards; • Sharp or falling objects; • Rolling objects or pinch points; • Harmful dust; and • Chemicals. Employee questions regarding PPE or any safety equipment are referred to their supervisor for review and resolution. In keeping with the authority’s mission that employees work in a safe environment, various forms of PPE and safety equipment are identified as critical. This includes clothing, equipment, and accessories designed to increase worker visibility and enhance safety while providing addi- tional protection against any known or unknown hazard. The minimum PPE required for all employees working on the ROW follows: • Reflective orange high-visibility safety garment or vest, which must be approved by the Safety Department; • Working flashlight; • Whistle; and • Valid ROW license indicating that the person has been trained as required. In addition, one person per crew must have a working portable radio. MBTA clothing rules specifically prescribe that in addition to wearing a safety department-approved orange high-visibility safety garment or vest when on the ROW or in the yard area, the following rules must be observed: • Transportation employees must wear the prescribed uniform when engaged in flagging activities. During inclement weather, additional weather gear may be worn over the uniform. FIGURE 7 TTC reflective T-shirt (Courtesy: TTC).

• Proper shoes or boots with rubber soles must be worn (no high heels, sandals, sneakers, or steel-toed shoes). • Employees must not wear clothing or shoes that will hinder them in any way during the performance of their duties. • Raincoats longer than knee length are prohibited. • Proper work gloves or leather gauntlets are needed when engaged in maintenance work, track cleaning, installation of light banks, and the like. • When a worker wears special clothing, particularly hoods and ear protection, care must be taken so that the individual is fully aware of the working environment, paying special care to all types of traffic in all types of weather conditions. • Exception—Orange outer garments with high-visibility reflective strips, which have been approved by the Safety Department, may be worn on the ROW in place of an approved vest. Supervisors are required to: • Maintain an adequate supply of PPE for worker safety; • Issue the approved PPE to employees as necessary, as part of their uniform; • Provide PPE (i.e., flagging equipment, hard hats) for special details; • Provide appropriate training in use and care of PPE (i.e., respiratory and hearing protection) and provide appropriate fit testing for respiratory protection; • Maintain a Material Safety Data Sheet (MSDS) List for protection against hazardous chemicals and materials; and • Administer and ensure compliance with all procedures associated with the rule book (6, pp. 43–44). Maryland Transit Administration Employees working on or about MTA light rail tracks must follow these rules: • Wear approved safety vests properly fastened over outer clothing to ensure high visibility; • Wear approved hardhat (ANSI Z89); • Wear approved safety glasses (ANSI Z87). Head cover- ing must not interfere with seeing, and sunglasses, hats, or any other attire must not restrict vision or distort color perception. Sunglasses are prohibited at night. • Wear approved hard sole shoe that provides adequate pro- tection (ANSI Z41). Sandals, cloth, canvas, wedge type, high heel, athletic, or recreational shoes are prohibited. • Jewelry, if worn, must not constitute a safety hazard or impair an employee’s ability to perform his or her duties in a safe and efficient manner; • While operating or working around noisy equipment, employees can only use earplugs or hearing protection if there is adequate track protection against approaching trains (7, pp. 1.8–1.10). 22 River LINE Roadway workers are required to wear a high-visibility vest or other approved garment, approved footwear, hard hat or approved head covering, and safety glasses when on or about the track (8, p. 3). WARNING AND PROTECTIVE DEVICES AND TECHNOLOGY All of the systems involved in the study use some form of warning lights, audible devices, or portable trip or stop equipment to enhance the level of protection afforded to a work site. Flags and Warning Lights Traditionally, “flagging” was done with colored flags, hence the name. Similar to the universal application of colors to railroad and road signaling, red means stop, yellow is caution or proceed at a reduced speed according to agency rules, and green is an indication to resume normal operating speeds for the line or area. Over time these flags, which are still used by all systems in outdoor, daylight conditions, have been supplanted in tunnel and after-sunset situations by colored portable warning lights that can be powered using hard-wire power or batteries. These flags or lights can be held by a flagger or watchperson; hung along the track; placed in the gauge or along the track on the ground; or placed in or on top of cones in the gauge or along the track; according to each system’s rules and rules for specific types of flagging. These flags and lights communicate to train operators specific orders, based on the rules, to reduce speed, stop, proceed at reduced speed, or proceed at normal speed (see Figure 8 for typical flagging signal colors and meanings or applications, and Figure 9 for examples of flags and lights). Toronto Transit Commission A successful practice highlighted in interviews with safety, operations, and maintenance personnel was the TTC’s Track Level Safety Team’s initiative to implement the use of blue light warning devices as a signal to train operators that workers are at track level, between stations. Based on positive feedback, the program has evolved significantly over time. Initially, all crews were required to place a blue flashing light in the track bed 50 ft from the end of a station. The purpose of the light was to alert train operators to the presence of workers at track level between the station they were depart- ing from and the next station. This safety practice was further enhanced with the posting of blue speed-limit signs along the track bed in advance of low visibility sections of track, such

23 Object Color Meaning/Application Light or Flag Red Stop Light or Flag Yellow Reduce speed (typically ten (10) miles per hour or less) and be prepared to stop within half the sight distance Light or Flag Orange Reduce speed (typically ten (10) miles per hour or less) and be prepared to stop within half the sight distance White Light With appropriate arm motions can be used to signal trains to stop, reduce speed, proceed, or back up White Disc Used to communicate directions from watchmen to work crews, including “Clear the track” and “Resume work” Light or Flag Green Resume normal operating speed for the area and/or conditions FIGURE 8 Examples of flagging signal colors (Courtesy: MBTA). FIGURE 9 Examples of flags and lights. (Clockwise from above left ) Red (stop) flag placed in cone in gauge of track; flagger using red flag to stop an oncoming train; green flag in cone and green light on station platform indicating that trains are clear of a work site and can resume normal operating speed; battery-powered warning light, most commonly used underground or after sunset (Courtesy: MBTA).

as blind curves. The signs remind operators to reduce train speed to 15 mph when they have observed a blue light, in case workers are present. TTC is now testing an automated Work Area Warning (WAW) system, developed in-house by the Signals Engineering and Communications Department, on the Sheppard Subway line. The WAW system establishes standard locations at each station and integrates the placement of the warning light with a radio-frequency identification (RFI) tag. WAW builds on the tag system technology used to execute customer station announcements, to supply automated track worker visual and audible warnings to train operators. Each station is equipped with a blue light tag placed in a yellow holder mounted in a standard location on the station wall. The work crew obtains approval to enter track level, retrieves the blue light and RFI tag from the holder, and places it in the designated location on the track bed. As a train leaves the station, the operator should observe the flashing blue light at track level and sound a long blast on the horn. In addition, the operator will receive a text message on the cab radio display indicating “Caution 24 Workers Ahead,” will hear an audible “beep” tone in the operating cab, and will see a blue “WAW” LED flashing on the radio unit. The operator can press a “Cancel” button to silence the tone, but the text message and the flashing blue LED cannot be cleared or stopped by the operator. The operator will proceed according to all work zone rules and regulations, being prepared to stop in the event that the crew or equipment is unable to clear track level safely. Once the train enters the next station; all alarms and notifications will be canceled (see Figure 10). The TTC reported that it can implement the WAW system at relatively low cost because it uses existing communications infrastructure. Ultimately, TTC plans to evolve the WAW system in the following ways: • Permanently integrate the blue lights and controllable RFI tag into the existing system circuitry to eliminate the need for workers to place the light and tag in the gauge to establish protection. Initially, this hard-wired configuration would be activated through an access-

25 controlled panel at the ends of each station platform. Ultimately it would be activated and deactivated through the control center following notification from a track- level worker entering or exiting the ROW with his or her crew. • A second phase would integrate the WAW into its speed control tag system to enforce speed limits in work zones. This would be done by first warning an operator that he or she is exceeding the speed limit, followed by the activation of a train-stop procedure in which the train would come to an emergency stop. This would not be done by controlling or reducing a train’s speed, as is possible in some Automatic Train Operation systems. Current TTC plans project the completion of full testing on the initial RFI tag-based WAW system and implementation of system-wide installation on all subway lines in 2012. Audible Warning Devices Flaggers and watchpersons are always required to carry an audible warning device, most often a whistle or compressed air-powered horn. These are used to warn or communi- cate with other flaggers, watchpersons, or employees at the work site. See Figure 11 for examples of audible warning devices. Barricades Another layer of protection, which is used most commonly in longer-duration work sites, is physical barriers or barricades to indicate that a track is out of service. These devices are usually intended not only to protect the track workers but also to prevent a revenue train or other on-track movements from colliding with equipment at the work site or running through an area where a piece of rail or switch has been removed (see Figure 12 for examples of barricades). Portable Train Stop Several systems use a relatively low-tech but proven device called a portable train stop (PTS) or portable trip device. Older systems such as NYCT, MBTA, and TTC have used these devices for several decades. On some or all the lines on these systems, fixed train stops or trip devices are still an integral part of the signal system. Whether fixed or portable, the principle of the device is that it is placed next to a rail and has an “arm” that will trip a corresponding arm on the bottom of the rolling stock, which will then stop the train by activating the brakes. On the TTC system, all revenue and nonrevenue work equipment is equipped with trip arms activated by pass- ing a portable or fixed trip device (see Figure 13 for an exam- ple of a portable trip device). The procedure for using the portable train stop in flagging and work-site protection is consistent across the agencies that use these devices. For example, at NYCT the PTS, designed primarily for use by flaggers, is applied to the rail to ensure the positive stop of an approaching train if a train operator fails to acknowledge the stop signal displayed by the flagger. The PTS is used in connection with flagging operations only after the proper display of caution lights or flags in accordance with the rules. The PTS may be used at any point on a track where a temporary train-stopping device is required. The PTS consists of two separate units, one known as the base, the other as the stop arm. The effect of the PTS, when properly installed, is the same as that of the automatic stop arm located at signals. When in position, the stop arm engages the tripping device of the moving train, causing an emergency application of the FIGURE 11 Examples of audible warning devices. Compressed-air, hand-held horn used by flaggers (left ) and whistle that is part of required PPE for most track workers and all flaggers in the study (right ) (Courtesy: MBTA).

brakes. The PTS must be applied to the track at the same location where the flagger is stationed, and must be placed so that it will engage the tripping device on the forward end of an approaching train. After the necessary caution lights or flags have been set up in accordance with the rules, the base of the PTS must be clamped securely to the base of the rail, with the stop arm dis- engaged. When ready to flag trains using the PTS, the flagger must place the stop arm securely in its proper tripping position in the base. The flagger must display the red flag or the red light to the full view of the operator of an approaching train. When conditions are safe to allow the passage of a train, the flagger must remove the stop arm and perform flagging operations in accordance with the rules. Under no circumstances should the stop arm be in its tripping position after the flagger has given a “proceed” signal to the train operator. Flaggers must exercise special care to 26 avoid unnecessary tripping of a train. Only the flagger plac- ing a particular PTS, or the flagger’s supervisor, may remove the stop arm once it has been placed in the tripping position, except upon orders of the Control Center desk superintendent (9, Rule 3.79). Electronic Train and Track Worker Detection Devices MBTA and MTA are using devices manufactured by ProTran that communicate to track workers and train operators the presence of an approaching train or of employees along the ROW. The ProTran devices were initially developed and tested through the TRB Transit IDEA Program. Completed in 2008, Transit IDEA J-04/IDEA 55 “Warning Device for Rail Transit Personnel for Approaching Trains” assisted in bringing this device from concept through prototype development and evaluation phases. Site testing of the device, conducted in the IDEA Program, was done in Cleveland (GCRTA), Philadelphia FIGURE 12 Examples of barricades. Commercially available barricade in place (top left ); clamp-on stop flag and battery-powered red light (top right ). Bottom photo shows work area on two-track ROW protected by barrier on each track using boards chained to rails and battery-powered red lights mounted in center of gauge (Courtesy: MBTA).

27 (SEPTA), and Boston (MBTA). TTC is also field testing a separate product called TrackSafe, being developed by Bombardier. Massachusetts Bay Transportation Authority According to MBTA personnel, as of March 2011, the ProTran devices are only used on the Green Line (light rail line), as a supplement to established rules for flagging and track protection. The device is placed along and connected to the track and transmits a signal to personal alert devices (PADs) worn by track workers and to a designated flagger device (DFD), a receiver worn by flaggers. MBTA states in the instructional training for this equip- ment that: • These products do not replace existing MBTA policies and procedures. They will work in conjunction with safety procedures, adding an additional layer of safety to track workers. • They provide visual and audible warnings to the flaggers and work crew. • They provide a designated employee with the option to warn flaggers or the work crew. • The devices use wireless technology for advanced detection. • They are not a “fail safe” feature (10). MBTA track workers who were interviewed for this study expressed concern regarding the reliability of the equipment and complained about its overall size and weight when transporting it. They did, however, welcome the extra level of warning and protection that it affords. Maryland Transit Administration Using the same equipment, MTA has taken implementation to the next step by installing transmitter/receivers in the cab of each light rail vehicle. Each employee accessing the ROW is also issued a PAD or a DFD that he or she is required to wear and use while on the ROW. The PADs and DFDs are tested at the beginning of each shift to ensure battery life and functionality. This system not only alerts ROW employees to the presence of approaching trains, but also alerts operators to the presence of employees on the ROW. Like MBTA, MTA has not altered any existing rules and procedures, but has added this technology as another layer of protection for track workers. Aside from the rule that employees must wear and use the devices when on the ROW, MTA also now requires employees who experience mechan- ical failure of their device to leave the ROW and wait for a replacement PAD or DFD before returning to work. Some MTA managers stated that there have been some issues with battery life in the PADs and DFDs, and that employees have complained about the bulk and discomfort associated with wearing the devices. Like MBTA however, supervisors and managers welcome the concept of an additional layer of protection (see Figure 14). Toronto Transit Commission TTC hosted a pilot of the TrackSafe product in fall 2011. The goal of TrackSafe is to provide improved location aware- ness and relevant alerts to train operators and roadway work- ers. Roadway workers are equipped with a wrist band that they use to “tag in” at a kiosk at their point of entry to track level. No other equipment is required for the roadway worker, allowing the worker to carry necessary equipment and to enhance safety with minimal effort. Upon check-in, the work- ers enter their work plan, or simply confirm a previous reser- vation they have made with the Control Center. The check-in software also provides for “rules” enforcement, ensuring that only authorized people can access track level. As the roadway work crew proceeds at track level, the crew tags in at various checkpoints, creating an Alert Warning FIGURE 13 Example of portable trip device (Courtesy: TTC).

Zone (AWZ) by automatically illuminating LED lights that warn train operators of the location of roadway workers as the train approaches the AWZ. Roadway workers are alerted to the presence of an approaching train through audible and visual alerts that are engaged when the train enters the AWZ, providing adequate time for the workers to proceed to a safe location as the train passes. See Figure 15 for an illustration of the TrackSafe system components. 28 The first stage of the pilot, which involves testing the tech- nology on Bombardier’s test track, is in process. A number of potential areas are being evaluated for implementation of the product in the TTC system. FLAGGING EQUIPMENT There was no consistent definition of the terms “flagman” or “flagperson” or of “watchman” or “watchperson” used by the agencies interviewed. NYCT and MBTA use “flagman” or “flagperson” exclusively to describe the persons responsible for setting up and staffing flagging configurations. TTC and the River LINE call the employees responsible for these same job functions “watchpersons.” MTA uses “flagman” to describe the person responsible for controlling train movement through the work site. The MTA refers to the people who serve as the intermediary between the flagmen and the ROW work crew in situations where there is not a clear line of sight between the two, as “advance watchmen.” In addition to the PPE required to enter the ROW, almost all the systems interviewed mandate additional PPE for flaggers and watchpersons. They also have lists of required equip- ment that flaggers and watchpersons must have with them to perform their duties. New York City Transit The NYCT Department of Subways requires flaggers to have the following equipment: • Standard track worker PPE; • Reflectorized vest with an identifiable NYCT logo; FIGURE 14 Examples of portable warning devices. Portable train detection device being installed on ROW (left ); employee wearing PAD used by MBTA and MTA (right ) (Courtesy: MBTA). FIGURE 15 TrackSafe components (track level). System components placed every 500 ft along ROW (top); track worker RFI device (bottom) (Courtesy: TTC).

29 • Lights or flags in working condition and of prescribed color based on the type of flagging to be done. Flags must be at least 23 in. by 29 in. • Whistle or air horn. Air horn must be used in areas with excessive noise. • PTS; and • Piece(s) of stout cord, between 4 ft and 6 ft in length, for tying the red light or the red flag to the stop arm of the PTS [9, Rule 3.75 (b)]. Toronto Transit Commission Along with basic PPE, TTC requires watchpersons to carry: • White flashlight or yellow/red flag; • Air horn; • Whistle; and • Appropriate combination and quantity of green, yellow, and red lights and flags and PTS for the type of work zone (2, pp. 6.1–6.5). Massachusetts Bay Transportation Authority Aside from the minimum PPE required for all MBTA employees on the ROW, flaggers—depending on work situation—need the following: • Set of flags; • Air horn; • PTS (on Green Line only); and • Minimum of 1 to 14 warning devices (6, pp. 23–37). To respond to flaggers not having the proper equipment for jobs, MBTA installed Emergency Personal Protective Equipment Boxes at key subway locations and stocked them with flagging equipment required for work site safety and emergency incidents. The boxes ensure field employees have the required tools to perform tasks safely without waiting for equipment to be brought from a remote site. Each box is secured by a P-Lock padlock and can be accessed by employees of various classifications who are ROW- trained. See Figure 16 for photographs of emergency PPE boxes (11). Maryland Transit Administration MTA flaggers are required to have the following equipment when there is good visibility at a work site: • Warning whistle; • Red flag; • Air horn; • Safety vest; • Hard hat; and • Safety glasses. Additionally, watchpersons in these conditions are required to have a standard white disc. In tunnels, at night, or in otherwise limited visibility conditions caused by fog, rain, or snow, flaggers and watch- persons are required to have: • Warning whistle; • Approved white light; • Air horn; • Two red fuses; • Safety vest; • Hard hat; and • Safety glasses (7, Rule 20.4). FIGURE 16 MBTA emergency PPE boxes (Courtesy: MBTA).

River LINE In conditions of good visibility, watchpersons, advance watch- persons, and employees-in-charge are required to carry a whistle or horn. Watchpersons must also carry a standard white disc, and advance watchpersons are required to carry a standard white disc and a red flag. In situations of poor visibility, such as in tunnels or at night, watchpersons and advance watchpersons, must carry a white light in place of standard white discs and employees-in-charge must carry a white light in addition to their other equipment and PPE. Advance watchpersons should also replace their red flag with red fuses that can be used in pairs (8, p. 22). Unique to the River LINE, of all of the systems in the study, is the requirement for watchpersons and advance watchpersons to wear a red “watchman” vest to delineate the watchperson or advance watchperson from the rest of the work crew, as seen in Figure 17. 30 DESIGNATED LEVELS OF PROTECTION AND FLAGGING Each of the five systems included in the study have predeter- mined levels of track protection or work zone classifications that are established within the systems’ rule books. In every case, all inspections and work must be performed in accor- dance with one of these stratifications. New York City Transit The NYCT Department of Subways has established three levels of track protection. These levels apply to work of any degree and inspections performed on the system. The levels do not apply to employees who are using the ROW to access their work location, such as an operator walking to a train or an employee walking to a tower or equipment room. In these cases, employees must wear appropriate PPE and follow general safety guidelines for walking on the ROW, but they are not required to call the Control Center or tower to request and receive permission. Whenever a worker employed by an entity other than NYCT enters the ROW, a designated representative of the appropriate Department of Subways Division must provide and maintain appropriate flagging protection in accordance with the rules and the nature of the work. In cases in which work is being performed in rooms, such as electrical distribution rooms or pump rooms, which can be accessed from the end of the station platform and without entering the tracks, one NYCT flagger must escort workers to and from the room while equipped with a red light or flag. This can be done only after the passage of a train. When train operators observe one or more yellow lights or flags or orange fluorescent flags, they must reduce their speed to no more than 10 mph and sound two blasts of the horn, repeating if the view ahead is obstructed by a curve or other- wise, and be prepared to stop their trains within one half the range of vision. Point-to-Point Flagging Point-to-point flagging is a procedure [Rule 3.76(a)] for workers who are performing duties in pairs or small groups, moving along the trackway and performing work that could be suspended at any time, with all members of the crew capable of immediately proceeding to a clear-up space within 15 ft. It is prohibited on operating tracks between 0600 h and 0900 h and between 1600 h and 1900 h Mondays through Fridays and at all times in under-river tunnels. In point-to-point flagging, a flagger is assigned to warn and protect the work crew and cannot perform any other duties while so assigned. Underground at all times and outdoors between sunset and sunrise, the flagger displays a flashing FIGURE 17 River LINE watchperson using orange disc and wearing required red “watchman” vest (Courtesy: River LINE).

31 yellow light on the trackway 650 ft in approach to the work area. An orange fluorescent flag is used outdoors on the trackway between the hours of sunrise and sunset, 650 ft in approach to the area to be worked on. The flagger assigned to warn of approaching trains must able to see his or her flashing yellow light and the employees he or she is protecting. If this is not possible, “full or standard flagging” is required. If the employees are continuously moving while performing their work or inspection, and clear-up space is within 15 ft, the flagger can be less than 650 ft but no closer than 50 ft in advance of the employee(s). Use of the PTS is required when the crew pauses to work in one location or when the crew enters an area where a clear-up space is not accessible within 15 ft. Whenever the PTS is used, the flagger must display the flashing yellow light or orange fluorescent flag 650 ft in advance of the work and must be in a position no closer than 150 ft in advance of the work. The flagger must install the PTS utilizing the red light or red flag. The flagger signals approaching trains to stop until he or she receives verification that the crew is clear of the track. Then the flagger can signal the train to proceed, using the approved light or hand signals. On express track, or where there is a long, descending grade, or at any point where track conditions or train schedules permit train speeds of 35 or more mph, the flashing yellow light or orange flag must be displayed at a point 300 ft farther in the direction from which trains approach. If the crew is performing work between two tracks, a flagger must be assigned to warn and protect the employee from trains on each track. On lead tracks, loop tracks, and middle tracks on the mainline in a three-track system, or where it is not uncommon for trains to operate in either direction, a flagger is required on each end to warn of approaching trains in both directions. Full Flagging This practice is used when more extensive work is being performed than would permit point-to-point flagging, but when the track can remain in service. The process at the site begins with the person in charge of the work providing for and ensuring that the required flagging protection is established and maintained for the safety of the work crew and the safe passage of trains. Depending on the division performing the work, a supervisor or another qualified flagger must accom- pany the flagger in setting up and removing the flagging. The responsibility of the escorting supervisor or flagger is to watch for and warn of approaching trains and to verify that the flagging is properly established and removed. The flagger and the escort place yellow lights or flags in accordance with Rule 3.80. This rule provides specific flag- ging distances and configurations for 12 different scenarios, depending on track layouts, curves, grades, or operational issues. The flagger and the escort then place one green light, one green flag, or both at a safe distance beyond the farthest point of work or obstruction. This safe distance must be at least the maximum length of trains permitted on the subdivision where the work is being performed. Whenever turnouts or crossovers within the areas protected by caution lights or flags allow diverging train movements to another track, one green light, one green flag, or both must be displayed on the second track, the same distance as that displayed on the track to be worked on. The flagger then proceeds to a specific position, designated in Rule 3.77, and places the red light, red flag, or both on a tie between the running rails adjacent to the rail to which the PTS is to be attached, and places the white light out of view of train operators. The PTS is then attached by the flagger to the rail, and the stop arm is inserted into the base with the red light or flag attached to the arm by the stout cord in such a manner as to permit waving the red flag or swinging the red light across the track with the stop arm in the tripping position. Only after completing these steps can the flagger notify the crew that it is safe to enter the track area. The flagger then stands in a safe position to perform the assigned flagging duties, holding the red light or flag by hand when a train is in approach of the flagging area. Under no circumstances can this distance be less than 150 ft from the work area. As a train approaches the caution lights and flags, the flagger must sound two long blasts of a whistle or air horn to warn the work crew, leave the stop arm in its tripping position, and swing the red light or red flag across the track until a prearranged all-clear signal is received from a designated NYCT employee with the crew. This signal indicates that the flagger may allow trains to proceed through the protected area. Upon receipt of an all-clear signal, the flagger must remove the stop arm, step into a prearranged place of safety, conceal the red light or flag from the train operator’s view, and then give a proceed signal to the train operator. After the train passes, the flagger must replace the red light or redisplay the red flag and replace the stop arm in the tripping position, then return to a safe position. If, as the train approaches, the all-clear signal is not received by the flagger from the designated NYCT employee with the crew, or if the flagger observes any unsafe condition after receiving the all-clear signal, the flagger must continue to give the train operator a stop signal with a red light or red flag until the train has come to a stop. The stop arm must be left in the tripping position. Once the train has stopped, the flagger must continue to swing the red light or hold the red flag across the track until receiving the all-clear signal or until he or she is satisfied that the unsafe condition has been corrected. If it appears that the train is going to pass through the flagger’s stop signal, the flagger must continue to wave the red light or red flag as a stop signal to the train operator at the same time sounding short blasts of a whistle or air horn to

warn the crew of the impending danger, as long as it is safe to do so. The flagger must then release the red light or flag, so that it falls between the running rails, leave the stop arm in tripping position and step quickly to a place of safety while continuing to sound the whistle or air horn. The flagger or supervisor must then report the incident immediately by telephone to the Control Center desk superintendent. After all persons, equipment, tools, and materials for which the flagging protection had been established are removed from the track area, and the person in charge of the work reports that the work has been completed, the flagger along with another qualified flagger must remove the flagging protection in the following order: 1. Remove the PTS completely; 2. Remove the red light or red flag and place it in a con- cealed position; 3. Remove the green lights or flags; and 4. Remove the yellow lights or flags, keeping all lights lighted until he or she has reached a station platform or the place where the lights are to be stored. When flagging protection is removed, all flags must be taken down, not rolled up on the flagstaff where they had been dis- played. The employee-in-charge of the work must remain at the location of the work until all obstructions have been removed, the flagger has safely removed all flagging protection and is safely prepared to leave the site, and at least one train has safely passed the area where the work was performed. The Control Center desk superintendent of the subdivision is then notified by the employee charged with the work that it is completed. General Order Protection This practice is used when a track will be taken out of service for maintenance, repair, or replacement and so does not allow for safe passenger service train movement through the work area. These areas are protected by an unmanned red flag or lamp and PTS configuration at each end of the work area. Under General Orders, work areas are also isolated by the Control Center through predetermined modified service operations, including simple reroutes, operation through a separate line, shuttle service through the affected area, and single-track operation. In some cases, depending on the nature and scope of the work to be performed, third-rail power may be de-energized through some or all of the work area covered in the General Order. Once a General Order is complete and all personnel, equipment, and flagging and barriers are removed, a test train must first be operated through the work area to ensure it is safe for revenue operation (9, Flagging Rules). Toronto Transit Commission TTC uses five levels of protection for ROW access: walking inspections; three types of work zones; and restricted speed 32 track areas. Whenever Transit Control gives permission for a walking inspection, work zone, or restricted speed track area, it must advise the operating train crews to watch for employees and or warning devices at track level at the specific locations. An operator who sees a light or flag at track level must obey all hand signals and be prepared to stop. An operator is required to stop the train: • At a red light or red flag; • Immediately when any object is waved violently by anyone; • Immediately when given a hand signal that is not clearly understood; and • Immediately when conflicting signals are received. If a white light or yellow flag or a flashing yellow light/ yellow flag is seen, the operator must: • Sound the horn with a long blast; • For walking inspections (white light or yellow flag) – Reduce speed to no more than 8 mph by the time the front of the train reaches the person(s) at track level, being prepared to stop and – Maintain the speed of the train at no more than 8 mph until it has cleared all persons at track level; • For work zones (flashing yellow light/yellow flag) – Reduce speed to no more than 8 mph, by the time the front of the train reaches halfway between the flashing yellow light/yellow flag, and the red light/flag, being prepared to stop – Maintain the speed of the train at no more than 8 mph until its front reaches the green light/flag (major work zones) and the entire train has cleared all persons at track level, unless posted otherwise – If the work area conditions permit trains to travel at a greater speed, warning signs indicating a maximum speed of 12 mph are posted at track level, between the running rails, no less than 50 ft beyond the last worker at track level in the work area; • Travel up to the posted maximum speed of 12 mph once the front of the train passes over the maximum speed warning sign, until the front of it reaches the green light/flag and the entire train has cleared all persons at track level; • For major work zones where work is being performed in one direction only, trains traveling on the track oppo- site of the work area proceed at no more than 8 mph, unless warning signs are posted at the yellow light/flag indicating a maximum speed of 12 mph. The maximum speed is observed from the time the front of train reaches the yellow light/flag until the front of the train passes the green light/flag. In the event that the maximum speed warning sign is not observed or is unclear, trains must proceed at the maximum speed (8 mph). Prior to descending to track level, all work

33 crews are required to establish a flashing blue light at the leaving end of the preceding station. Walking Inspections Walking inspections are used for employees who often go to track level for duties that do not require them to set up work zones and for workers walking along the tracks on their way to and from work zones. The maximum number of persons allowed at track level on a walking inspection is five. Some of the work functions that require walking inspection protection are: • Visual inspection of the track, switches, and other parts of the subway system; • Trouble-shooting to locate a fault with the track, switches, signals, or other parts of the subway or light rail system; • Orientation and training of new employees; • Track patrol; • Inspecting vehicles; and • Quality assurance checks. Under normal circumstances, employees may not walk alone on the mainline track and, when in a work group, employees must keep in line of sight of each other. Employees are instructed to walk in the direction of the approaching trains, and at least one person in each crew or group may be supplied with a radio for direct communication with Transit Control (wayside). Work Zones In situations in which employees will be working at track level, work zones are used to protect employees. Employees can set up work zones at track level anywhere in the system. In the yards, however, some rules are different and are covered under a separate section of the rules. There are three kinds of work zones: minor, major, and impassable. The kind of work zone to be set up depends on the type of work and how long it will take. Employees decide which work zone will give them the protection they need to do their job safely. If employees are not sure which kind of work zone they need while doing a specific job, they should discuss it with their foreperson or immediate supervisor. Under TTC rules, crews should stay inside the work area and use only yellow, green, and red lights or flags to mark a work zone. Lights are used in the tunnel section, and flags in the open cut sections. In open cut sections, lights are used at night or when visibility is reduced by fog, snow, smoke, or other conditions. In all open cut sections during daylight hours, a flashing yellow light is placed between the running rails at least 500 ft ahead of the approach end of the work zone with a yellow flag next to it. On the light rail system a flashing yellow light is hung on a flagpole next to the track with the yellow flag next to the light. Work crews include a watchperson for all major work zones and for any work zone in which employees can see for a distance of less than 500 ft. When there is more than one crew in a work zone, one person is designated as “in charge” of both work crews. This person is responsible for setting up the appropriate work zone. If a work zone is set up in a crossover, center track, or yard area, extreme caution, as well as extra lights and flags, is used because vehicles may approach from any direction. If the work zone overlaps tunnel and open cut sections, warning lights in the tunnel sections and warning flags in open cut sections are used. If the work zone is in a tunnel section but near the beginning of an open cut section, or in an open cut section near the beginning of a tunnel, the flashing yellow light or yellow flag are put further ahead of the work area than usual. This will give the operator of an approaching subway vehicle an earlier warning. When the work has been completed, the person in charge must: • Remove all track-level warning devices, beginning at the leaving-end and working toward the approach-end flashing yellow light; • Proceed with the work crew to the appropriate station; and • Advise Transit Control that employees are no longer at track level and cancel the work zone. Minor Work Zones Minor work zones are appropriate when: • Work at any location will take less than 2 h; • A minimum of two and no more than five people are in the crew; • Subway vehicle speed reduction in only one direction will be required; and • Employees are sure that a minor work zone gives them enough protection to do their work safely and to clear the track safely when a subway vehicle approaches. Setting up and using a minor work zone includes the following: 1. Call Transit Control to get permission to go to track level and set up a minor work zone. The person requesting the work zone must also be the person to cancel that work zone, unless otherwise arranged. 2. Obey all rules in “General Rules for Setting up Work Zones.”

3. Place a flashing yellow light at the approach end of the work zone. In open cut sections during daylight hours, place a yellow flag, next to it. Place the light, or the light and flag, at least 500 ft from the work area. 4. Place a red light or flag right in front of the work area at the approach end. 5. Give one member of the work crew the job of “watch- person.” 6. If permission has been granted by an authorized depart- mental employee to allow subway vehicles to travel at a greater speed, the 12 mph yellow maximum speed warning sign is placed immediately after the work area. 7. Clear the track safely and quickly when a subway vehicle approaches. A watchperson at a minor work site has the following duties and responsibilities: 1. Tell the work crew when a subway vehicle is approaching; 2. Make sure that everyone in the work crew is clear of the tracks; 3. Remove the red light or flag when everyone is clear; and 4. Give the approved hand signals to direct the subway vehicle operator through the work area, using a white/ red combination light, or a yellow flag during daylight hours in open cut sections. In a minor work zone, warning lights or flags should not be placed on the track opposite the work zone. When a speed reduction is required in both directions, the work area should be protected with a major work zone. Major Work Zones Major work zones are appropriate when: • Employees’ duties require them to work at the same location longer than 2 h; • There are six or more people in the work crew; • A speed reduction is required in both directions (i.e., working in the devil strip or center bench areas); and • Employees are sure that a major work zone gives them enough protection to do their work safely and to clear the track safely when a subway vehicle approaches. Setting up and using a major work zone includes the following: 1. Call Transit Control to get permission to go to track level to set up a major work zone. The person who requests the work zone must also be the person to clear that work zone, unless otherwise arranged. 2. Obey all rules in “General Rules for Setting up Work Zones.” 34 3. Place a flashing yellow light at the beginning of the work zone at the approach end of the track. In all open cut sections during daylight hours, place a yellow flag beside the track next to the flashing yellow light. Place the light or the light and flag at least 500 ft from the work area. 4. Place two or more yellow lights or flags between the flashing yellow light and the start of the work area. Place these lights or flags at evenly spaced intervals, on or next to the track. 5. Place a watchperson with a red light or flag between the running rails immediately in front of the work area at the approach end of the track. 6. Place two additional yellow lights or flags beyond the work area for 100 m at the leaving end of the track, evenly spaced, 150 ft apart. 7. Place a green light or flag at least 500 ft beyond the work area at the leaving end of the track. Place this green light or flag on or next to the track. 8. If permission has been granted by an authorized departmental employee to allow subway vehicles to travel at a greater speed, the 12 mph yellow maximum speed warning sign is placed immediately after the work area. 9. Place warning lights or flags on the track opposite the work area, except in circular tunnel or box sections on the Sheppard Line. Place these warning lights or flags as follows: – Place a yellow light or flag at least 500 ft ahead of the work area – Place a green light or flag at least 500 ft beyond the work area – If permission has been granted by an authorized departmental employee to allow subway vehicles to travel at a greater speed, on the track opposite of the work area, where work is performed in one direc- tion only, place the 12 mph yellow maximum speed warning sign immediately after the yellow light. A watchperson must be posted for any major work zone or where visibility is reduced to less than 500 ft. The watch- person stands where it is possible to see an approaching train and the work crew, and where the work crew can hear the watchperson’s air horn or whistle. The watchperson on a major work zone has the following duties and responsibilities: • Carry the following safety equipment: – White/red combination light or flags to signal trains – Air horn – Whistle. • Listen and watch for the approach of a train. • At the first sound or sight of a train, give a long blast on the air horn. If the air horn does not work, use the whistle. • Make sure that the work crew and equipment are clear of the tracks. • Remove the red light or flag from the track only when the work crew is clear of the area.

35 • Use the white light or yellow flag to give approved hand signals to the train operator to proceed through the work area, if it is safe to do so. Give the “proceed” signal with the yellow flag in all open cut sections during daylight hours. • Do not leave the working position until replaced by another qualified employee. • Do not perform any duties other than those of a watch- person. A second watchperson is required if: • One watchperson cannot see both the flashing yellow light and the work crew clearly; or • The work crew will not be able, for any reason, to hear the first watchperson’s air horn or whistle. The first watchperson stands where it is possible to see both the flashing yellow light and the second watchperson. The flashing yellow light or yellow flag and light must be 500 ft ahead of the first watchperson. The second watchperson stands where it is possible to see both the first watchperson and the work crew. The second watchperson will also sound the horn or whistle when the first watchperson sounds the horn or whistle. The second watchperson must make sure that the work crew and equipment are clear of the tracks. The second watch- person will then remove the closest red light or flag when it is safe to proceed. The first watchperson will then remove the other red light or flag and give an approved hand signal. If the work crew will be leaving the work zone temporarily, the crew must inform Transit Control when it departs and when it returns. When the work crew, including the watch- person, leaves a major work zone while the job is in progress, the watchperson will: • Make sure that the work crew is clear of the tracks; • Turn off the red light or remove the red flag; and • Switch the flashing yellow light to a steady yellow light. When the work crew returns to the work area, the watch- person will: • Switch the steady yellow light back to a flashing yellow light; • Turn on the red light or replace the red flag; and • Inform Transit Control. When it is time to remove lights, the process begins at the leaving end and works towards the approach end flashing yellow light. Impassable Work Zones Impassable work zones are areas through which trains are unable to enter. They are usually established during non- revenue service hours and protected by a PTS at each end. Impassable work zones are appropriate when employees: • Cannot clear the track safely to allow trains to pass by using any other type of work zone; • Need the extra protection of an impassable work zone; or • When work is being performed at track level by con- tractors. Setting up and using an impassable work zone entails the following: 1. Call Transit Control to get permission to go to track level to set up an impassable work zone. 2. Obey all rules in “General Rules for Setting Up Work Zones.” 3. Place a PTS–double red light combination on each track that leads to the work area from any direction. If possible, place each PTS at least 500 ft from the work area. If this is not possible, place the PTS as far away as possible. 4. Place a flashing yellow light on each track that leads to a PTS–double red light combination. Place the flashing yellow light at least 500 ft from the PTS at the approach end. Place a yellow flag next to it in all open cut sections during daylight hours. 5. Place warning lights or flags on the track opposite an impassable work zone except in circular tube sections. Place a yellow light or flag at least 1,000 ft ahead of the work area. 6. Place a green light or flag at least 1,000 ft beyond the work area, on the track opposite an impassable work zone, except in circular tube sections. To ensure that an area is impassable, employees must note the following: • Additional track-level safety devices may be needed in crossover and center track sections. If employees are not sure what safety measures to take, they should discuss the impassable work zone layout with their foreperson or immediate supervisor before going to track level. • The placement of PTS–double red light combinations may change in crossover and center track sections. • Additional PTS–double red light combinations may be needed in some locations. Restricted Speed Track Areas A restricted speed track area is an area where trains are required to reduce speed. Under normal circumstances there are no workers in the area unless a walking inspection has been authorized. Rail vehicles must slow down to 8 mph at the yellow light or flag and proceed at the default speed of 8 mph or as indicated on the yellow speed sign, until the front of the train reaches the green light or flag at the leaving end of the

area. If the yellow speed sign is not observed or is unclear, rail vehicles proceed at the default speed of 8 mph. On approach, operators must sound the horn with a long blast. If the operator stops in a restricted speed track area, the horn must be sounded with two short blasts before moving (2, pp. 6.1–6.50). Massachusetts Bay Transportation Authority MBTA’s rules define five levels of protection for people working on the ROW. Every ROW work site must be evaluated and a determination made as to what level of flagging protec- tion is appropriate for the job. See Figure 18 for a summary of the five levels of protection. Level 1: Prohibited Access Area Under this level of protection, no access is permitted unless the individuals or work crews have exclusive access rights to the work area. Signs are posted in prohibited access areas. Train traffic must be stopped before an individual or work crew enters the area. During service hours no access is permitted until the Control Center dispatcher has confirmed that all vehicle movement has been suspended and the dispatcher has given exclusive access to the individual or work crew. Substitute service will be provided, if needed. The dispatcher must confirm that the work area is clear prior to allowing any movement of work trains or high-rail equipment. After being notified by the dispatcher that high-rail equipment is stationary and secure, work may commence. Work Crew Responsibilities One member of the crew must call the Control Center dispatcher to request permission for 36 access. The crew member must clearly identify the work location, the reason for access, and the number of people in the crew. The work crew will then stand by until the dispatcher gives permission to enter the area. After receiving clearance from the dispatcher, the work crew will safely enter the area. Upon completion of their tasks, the work crew will clear the area and notify the dispatcher, confirming that all personnel are clear and in a safe location. Dispatcher Responsibilities Upon receiving a request from a work crew to enter a Level 1 area, the dispatcher obtains the name of the person requesting access, radio number, number of persons in the crew, area of access and reason for access. The dispatcher will then confirm, via the Day Orders, that the crew has received prior authorization to access the area under Level 1 protection. If the work is not listed on the Day Orders, the dispatcher may deny access. In an emergency, the dispatcher may authorize access under Level 1 regardless of the Day Orders. All designated Level 1 areas are clearly marked with a warning sign. However, Level 1 protection can be used in any area, not just those designated Level 1 areas, if circumstances require a heightened level of protection. The hazard assessment, which is required under all levels, provides the individual or work crew with the opportunity to examine the work site and determine if unusual circumstances warrant additional protection. More than one work crew is allowed to be in a Level 1 work zone concurrently. However, each work crew must function as a separate unit and must follow all ROW rules, and each crew must possess and utilize its own personal protective equipment. FIGURE 18 MBTA levels of protection (Courtesy: MBTA).

37 Level 2: Fixed Flagging Site This level of protection, the fixed flagging site, is for anyone (employee or contractor) working within 10 ft of the centerline of the tracks, including overhead or beneath, or for any work activity involving equipment, such as a crane, that has the potential to foul the ROW, even if the equipment or crews are working beyond 10 ft from the centerline of the track. Level 2 Procedures Under Level 2 protection, 1,200 ft of warning devices is placed before the work area. A PTS on rapid transit lines or a warning device with a red flag on light rail lines is installed 500 ft before the work area. Flagger 1 is stationed 500 ft before the work area to remove and replace the portable trip or the warning device with the red flag with each passing vehicle. This flagger is also responsible for sig- naling to operators when to stop and when to proceed, and for watching the other flagger(s) for a signal when the work crew is clear of the ROW. Flagger 2 is stationed near the crew to warn them of oncoming vehicles and to verify and signal to flagger 1 when the crew is safely clear of the ROW. On curved track, additional flaggers may be needed and must be stationed between flaggers 1 and 2 so that each flagger can see the flagger nearest to him or her in each direction. To set up a Level 2 site, flaggers 1 and 2 place a minimum of 13 warning devices beside the track, at 100-ft intervals, 1,200 ft before the work crew. The first warning device must contain a yellow flag. Flagger 1 places a red flag in the warn- ing device 500 ft before the work crew, placing this warning device between the running rails (light rail only), and installs a portable trip on the track 500 ft before the work crew (rapid transit line only). Flagger 2 places a warning device with a green flag at least six car lengths beyond the work crew on the Red, Orange, and Blue Lines and at least three car lengths beyond the work crew on the Green Line. Flagger 1 is positioned 500 ft before the work area at the warning device with the red flag or portable trip and holds a red flag across the tracks. Flagger 2 is positioned near the first person working in the crew closest to oncoming traffic. Level 2 Flagging Procedures Flaggers can use air horns to contact each other and to signal members of the work crew. However, these audible signals cannot be used instead of visual proceed signals. • Flagger 1—When the work site is properly set up and he or she is ready to protect the work crew, signals to flagger 2. • Flagger 2—Does not allow the work crew to access the ROW until: – The flagging site is properly set up – Flaggers are prepared to protect the crew – He or she has received the signal that flagger 1 is ready to protect the work site. Upon viewing the warning device with a yellow flag, operators proceed at 10 mph. Upon reaching the flagger with the red flag across the tracks, trains must come to a complete stop and stand by for a signal from the flagger. • Flagger 1 stands to the right side of the rail with a red flag held across the tracks. • When flagger 2 observes an approaching vehicle, he or she directs the work crew to clear the ROW. • When the vehicle has come to a complete stop, flagger 1 turns to make visual contact with flag 2 and waits for flagger 2’s “proceed” signal. • Flagger 2 confirms that all members of the work crew have cleared the ROW, then gives the “proceed” signal to flagger 1 by waving a yellow flag up and down. • Flagger 1 removes the portable trip or the warning device with the red flag, then stands clear of the ROW and gives the vehicle the proceed signal by waving a yellow flag up and down. Upon receiving the signal, the operator proceeds at restricted speed until reaching the warning device with the green flag. As soon as the vehicle has passed, flagger 1 immediately reinstalls the portable trip on the running rail (rapid transit line only) or replaces the warning device with a red flag between the running rails (light rail only) and holds a red flag across the tracks ready to stop the next vehicle. At times it may be impractical to set up a standard Level 2 work site, such as when the work site is within 1,200 ft of a station, platform, or intersection. To allow work to proceed during service hours without reducing safety, vehicle speed is restricted between the preceding station, platform, or inter- section and the work site. This ensures that all approaching vehicles are prepared to stop before reaching the work site. To set up flagging in these situations, employees follow all Level 2 procedures with the following adjustments: • An approved “Work Crew Ahead” warning sign is placed at the end of the station platform before the work crew. • A warning device is placed at the end of the platform before the work site. • The number of warning devices depends on the distance between the preceding station and the work site. Flag- ger 1 is stationed 500 ft before the work site or on the end of the preceding platform. If the work site is closer than 500 ft from the platform a “Work Crew Ahead” is also placed on the beginning of the proceeding platform. Figure 19 is a photograph of the Work Crew Ahead sign. Figure 20 provides graphical representations of different Level 2 work site configurations. Level 3: Moving Flagging Site In some cases, the nature of the work and the short time (less than 1 h at one location) it would take to complete the work make it impractical to set up a Level 2 work site. To allow

38 this work to proceed during service hours without reducing safety and while ensuring the same level of protection as provided in Level 2, a Level 3 work site restricts vehicle speed in advance of the work site. This ensures that all vehicles approaching a Level 3 work site are prepared to stop before reaching the first flagger. Under Level 3 protection, at least four warning devices and a warning sign are used. One warning device and a sign are placed 1,200 ft in advance of the first work location or at the end of station before the work site, and one warning device (with a red flag in it) is placed between the running rails 500 ft before the work crew (or before a PTS on a rapid transit line). When the nearest station is less than 500 ft from the first work location, a warning sign is placed at the beginning of the station. The warning sign must be approved by the Safety Department and must include a warning of the work crew ahead and indicate that restricted speed is required. Flagger 1, stationed 500 ft before the work area (at the end of the nearest station if less than 500 ft from the work site), removes and replaces the portable trip or the warning device with the red flag with each passing vehicle. This flagger is also responsible for signaling to operators when to stop and when to proceed, and for watching the other flagger(s) for a signal when the work crew is clear of the ROW. Flagger 2 is stationed near the crew to warn them of oncoming vehicles and to verify and signal to flagger 1 when the crew is safely clear of the ROW. On curved track, addi- tional flaggers may be stationed between flaggers 1 and 2 so that each flagger can see the nearest flagger in each direction. Level 3 flagging procedures are the same as Level 2 flagging procedures. See Figure 21 for a graphical representation how a Level 3 work site is set up. FIGURE 19 MBTA Work Crew Ahead sign (Courtesy: MBTA). FIGURE 20 MBTA Level 2 work site configurations (Courtesy: MBTA). Level 4: Personnel on Foot Level 4 protection is used when a worker needs to perform a task on the ROW that may distract him or her from remaining constantly aware of the inherent danger associated with being on the tracks. In this situation, two or more workers are assigned to the task. One worker completes the necessary tasks and the other is responsible for watching for traffic and acting as

39 flagger at all times. To provide Level 4 protection, the work location must not prevent the workers from seeing oncoming vehicles; safe havens must be available; and the work activ- ity must not utilize any equipment, other than hand tools, that would inhibit the workers from protecting themselves from ROW hazards. Level 4 Flagging Procedures One crew member must work as the flagger to protect the crew. In Level 4, work crews entering the ROW must set up a flashing light, lantern, or warning device approximately 100 ft before the work crew (on curves the flashing light or lantern must be placed far enough before the crew so that it is visible to oncoming trains). The flagger must be located a distance ahead of the protected worker(s) based on current circumstances, such as track alignment and noise, and remain at all times in visual and audible contact with the protected workers. This flagger’s main responsibility is to watch continually for oncoming vehicles and notify the crew immediately of an oncoming vehicle. The flagger should be at least 25 ft from the other workers to ensure that he or she does not become involved in the work activity or distracted by other workers. Upon seeing an oncoming train, the crew must immediately stop all work activity and clear the ROW. The flagger should attempt to stop oncoming trains until the work crew is clear of the ROW. Unlike when approaching a Level 2 or 3 flagging site that is protected by a portable trip or warning devices, the vehicle may not be able to stop before the work crew, and therefore the work crew must clear the ROW immediately. Level 5: Lone Person on Foot This level of protection is appropriate for a lone worker who is constantly vigilant in protecting himself or herself from the inherent danger of the ROW, and who assumes responsibil- ity for his or her own safety. Other conditions for Level 5 protection include: • An employee or contractor is traveling to a safe point, such as inside a signal bungalow, vent fan room, or elevator room. • A transportation employee is operating a switch on hand. • The work being done, if any, requires no tools or equip- ment. Under Level 5 protection, the worker must be sure that the work activity or location does not inhibit him or her from being protected from all ROW hazards. Level 5 Procedures Personnel on foot are required to walk against the normal direction of vehicle travel whenever possible. They must remain constantly vigilant for oncoming trains, and ensure that they have a clear view of approaching vehicles and, at any moment, can step clear and into a safe haven. The work location must not inhibit the workers from seeing an oncoming vehicle and must provides safe havens. The work activity must not utilize any equipment, other than hand tools, that would inhibit workers from protecting them- selves from ROW hazards. As a train approaches, workers must stand clear of the tracks and stay in a place of safety until the train is completely clear of the area. Before returning to the ROW, they must check both directions for additional oncoming vehicles. If a person reaches a place where a curve in the track, vegetation, equip- ment, or anything else blocks the view of oncoming vehicles, he or she should leave the ROW and go around the area (6, pp. 20–37). Maryland Transit Administration MTA must comply with FRA regulations because it shares the ROW with a freight railroad. The levels of protection, as well as the methodology for determining what level of protection to use and how to carry out the duties, respon- sibilities, and procedures for each level, are compliant with CFR 214 subparts focusing on ROW worker safety. The practice of track worker protection used by this system is known as On-Track Protection. The first step in determining the level of protection to be used is to determine the type of track in question. Controlled Track is track upon which all movements of employees, trains, railroad maintenance machines and equipment must be authorized by a Control Center. Non-Controlled Track is track upon which employees, trains, railroad maintenance machines and equipment are permitted by MTA Light Rail operating rules or special instruction to move without receiving authorization from a Control Center. The next step is to determine whether a work crew or a lone worker will be protected. Figure 22 provides an overview of the decision matrix for MTA’s On-Track Protection. FIGURE 21 MBTA Level 3 work site (Courtesy: MBTA).

Alternative Protection Signal Department employees and crews on MTA have both the ability and the authority to protect their work sites—which are primarily at interlocking—through the localized use of the Automatic Train Protection (ATP) system. Under certain levels of track protection the Signal Department employee can request and receive authority to assume control of the ATP system at the interlocking, an example of which is seen in Figure 23. This allows the employee several options: • The employee can control train movement by controlling the signals at the interlocking. This not only provides visual signaling to an operator that the site is occupied but also creates a situation whereby if a train were to “run” a signal, the ATP would bring the train to a stop, just as in normal, system-wide, ATP operation. • The employee can control the speed of trains moving through the area. This is not possible through Control Center control of the system, but the technology installed at each interlocking allows for speed controls, enforced through the ATP, to be set for “normal” operation, and reset at the interlocking by a signal department employee, for other situations. This could be used when signal crews are working on repairing or replacing impedance-bonds, signal wiring, or other system com- ponents. It could also be used to set speeds for operations other than signal department work, such as emergency service operations off of but alongside the ROW, or adverse weather conditions. • Efficient and safe operations using this method actually allow a signal department employee in the electrical shed at the interlocking to have both visual connections with 40 the crew on the ROW, as well as an advance indication of approaching trains—in either direction—by using the ATP board at the interlocking. By controlling signals and speeds through the ATP, and directly (visually and verbally) communicating with the work crew, the signal department employee can alert the crew to clear the tracks and, once safely done, can allow the train to pass through the interlocking without ever stopping. This would not be possible if the employee had to rely solely on line-of-sight detection of train movement. The On-Track Protection matrix (see Figure 22) is designed to help determine the types of protection available in a par- ticular situation. The types of protection available are: • Exclusive Track Occupancy (ETO) • Foul Time (FT) • Train Coordination (TC) • Inaccessible Track (IT) • Train Approach Warning (TAW) • Individual Train Detection (ITD). Figure 24 summarizes the situations in which each type of protection is used. Exclusive Track Occupancy Exclusive Track Occupancy (ETO) is a method of establishing working limits on controlled track in which the authority to move trains and other equipment is transferred by Light Rail Control (LRC) to the OSC. In tunnels, where side clearance is limited and no other places of safety are provided, the OSC FIGURE 22 On-Track Protection decision matrix (Courtesy: MTA).

41 must arrange for the use of the track through ETO as protection against approaching trains. The authority for ETO given to the OSC will be transmitted on a written or printed document and by oral communication to the OSC by LRC. OTCs obtain permission to establish ETO by calling LRC using a radio or cell phone and providing a description of the work to be performed, the work limits by chain marker or station, the radio call number, and the call numbers of the crew. Employees cannot enter the mainline until LRC gives them instructions to do so. When authority for ETO is transmitted orally, the OSC must repeat the transmission to LRC for verification. The OSC in charge of the working limits maintains possession of the written or printed authority. MTA Light Rail makes a written or electronic record of all authorities issued to establish ETO. The extent of working limits established through ETO is defined by one or more of the following physical features clearly identifiable to a light rail vehicle operator, locomotive operator or other person operating railroad equipment: • A flagger with instructions and capability to hold all trains and equipment clear of the working limits; • Fixed signals displaying “Stop and Stay”; • A 5 mph Approach Speed Limit Sign and Work Limit Stop Sign where the OSC prohibits vehicle movement. The vehicle can only proceed when permission is given by the OSC. When permission is given, the vehicle must not exceed restricted speed through the work limits; and • A clearly identifiable barricade prescribed by the MTA Light Rail operating rules that trains may not pass without proper authority. Movements of trains and railroad maintenance machines within working limits established through ETO are permitted only under the direction of the OSC. Such movements are at restricted speed, unless the OSC has specifically authorized a higher speed. Foul Time Foul Time (FT) is a method of establishing working limits on controlled track in which a railroad worker is notified by LRC that no trains will operate within a specific segment of controlled track until the railroad worker reports clear of the track. Working limits established on controlled track through the use of FT must comply with the following requirements: • Foul Time is given orally by LRC only after LRC has withheld the authority of all trains to move into or within the working limits during the FT period. FIGURE 23 MTA interlocking signal shed and components. Speed control settings for each track within area of interlocking (top). MAS is maximum allowable speed for each track. Control board for interlocking within interlocking shed (center). Interlocking shed along the MTA ROW (bottom) (Photos: Chris Kozub).

• Employees obtain permission to establish FT from LRC. They must call LRC via radio or cell phone and give their radio call number and the call numbers of other employees in the crew, a description of the work to be performed, the amount of FT being requested, and the working limits by chain marker or station. Employees cannot enter the mainline until LRC gives them instructions to do so. OSC to whom FT is transmitted orally must repeat the track number, track limits, and time limits of the FT to LRC for verification before the FT becomes effective. LRC will not permit the movement of trains or other on-track equipment into the working limits protected by FT until the OSC who obtained the FT has reported clear of the track. FT is a simplified method of establishing working limits. It is distinguished from ETO by not requiring a written copy of the authorization, and by not requiring any flaggers, signal control, stop signs, or barricades. Train Coordination Train Coordination (TC) is a method of establishing working limits on track upon which a train holds exclusive authority to move, whereby the crew of that train yields that authority to a railroad worker. Working limits are established on controlled track by an OSC through the use of TC according to the fol- lowing requirements: • TC is within the segments of track(s) upon which only one train holds authority to move. • The OSC obtains permission to establish TC by calling the LRC using radio or cell phone and providing a description of the work to be performed, the working limits by chain marker or station, and his or her radio 42 call number, as well as the call numbers of the other employees in the crew. Employees cannot enter the mainline until LRC gives instructions to do so. Each OSC to whom TC is transmitted orally must repeat the track number, track limits, and time limits of the TC to LRC for verification before TC becomes effective. The OSC who establishes working limits on controlled track by TC must communicate with the train operator and determine that: • The train is visible to the OSC who is establishing the working limits. • The train has stopped. • Further movements of the train will be made only as permitted by the OSC of the working limits while the working limits remain in effect. • The train operator will give up authority to move when the OSC of the working limits has released the working limits to LRC. Inaccessible Track Inaccessible Track (IT) is a method of establishing working limits on non-controlled track by physically preventing entry and movement of trains and equipment. Working limits on non-controlled track are established by rendering the track that is within working limits physically inaccessible to trains at each possible point of entry by at least one of the following features: • Flaggers with instructions and capability to hold all trains and equipment clear of the working limits; TYPES OF TRACK Controlled Track Non - Controlled Track TYPES OF PROTECTION Work crew Lone Work crew Lone Exclusive Track Occupancy (ETO) Foul Time (FT) Train Coordination (TC) Inaccessible Track (IT) Train Approach Warning (TAW) Individual Train Detection (ITD) FIGURE 24 MTA types of track protection (Courtesy: MTA).

43 • A switch or derail aligned to prevent access to the work- ing limits and secured with an effective securing device by the OSC of the working limits; • A discontinuity in the rail that precludes passage of trains or locomotives into the working limits; or • Working limits on controlled track that connects directly with the IT established by the OSC of the working lim- its on the IT. LRC will secure a remotely controlled switch aligned to prevent movement by: • Applying a blocking device or a clamping device to remove power from the switch motor; and • Notifying the OSC that protection has been provided. LRC will not remove the protection until receiving per- mission from the OSC. The authority for IT is given to the OSC of the working limits on a written or printed document and by oral commu- nication from LRC. OSCs obtain permission by calling LRC using radio or cell phone and providing a description of the work to be performed, the working limits by chain marker or station, and his or her radio call number and the call numbers of the other employees in the crew. Employees cannot enter the mainline until LRC gives them instructions to do so. When authority for IT is transmitted orally, the OSC will repeat the transmission to LRC for verification. The OSC in charge of the working limits will maintain possession of the written or printed authority. Trains and railroad maintenance machines within working limits established by means of IT will move only under the direction of the OSC, and must move at restricted speed. No operable locomotives or other items of on-track equipment, except those present or moving under the direction of the OSC of the working limits, can be located within working limits estab- lished by means of IT. Train Approach Warning Train Approach Warning (TAW) is a method of establishing on-track safety by providing watchpersons to look out for approaching trains. Watchpersons will warn the work crew early enough to allow them to be in the clear at least 15 s before the train reaches the point of work. This will allow the work crew time to move to or remain in a place of safety. In using TAW, railroad workers who foul any track outside of working limits (working limits are not established) shall be given warning of approaching trains and other on-track equipment by one or more watchpersons. Before an employee fouls the tracks using TAW, the OSC must obtain permission to enter mainline tracks by calling the LRC using radio or cell phone and providing a description of the work to be performed, location by chain marker or station, his or her radio call number, and the call numbers of the other employees in the crew. Employees cannot enter the mainline until LRC gives them instructions to do so. OSCs are to repeat back any instructions received from LRC before entering yard or mainline tracks. When the work is complete, all personnel, tools, and equipment must not foul the track, and LRC must be notified that the crew is clear of all mainline tracks. Before two or more employees who are working together foul a track using TAW, they must establish sufficient lookout, one in each direction or one in both directions, for approaching trains. TAW will be given in sufficient time to enable each employee to move to and occupy a previously arranged place of safety. The watchperson must warn the work crew in sufficient time to enable them to be clear of the tracks at least 15 s before the train (moving at the maximum authorized speed) reaches their point of work. Watchpersons assigned to provide TAW must devote full attention to detecting the approach of trains and communicating a warning, and must not be assigned any other duties while functioning as watchperson. The means used by watchpersons to communicate a TAW must be distinctive and must clearly signify to all recipients of the warning that a train or other on-track equipment is approaching. Every employee who depends on TAW for on-track safety must maintain a position that will enable him or her to receive a TAW signal communicated by the watch- person at any time while on-track safety is provided by TAW. Watchpersons shall communicate TAW by a means that does not require a warned employee to be looking in any particular direction at the time of the warning, and the warned employee, regardless of noise or distraction of work, can detect the warning signal. A watchperson will, if practical, be stationed clear of all tracks at a point where he or she will have the best view of approaching trains in both directions. Also, the watch- person will be a sufficient distance from the work crew to prevent attention being distracted by the work, but not farther than his or her audible warning can be distinctly heard. Individual Train Detection Individual Train Detection (ITD) is a procedure that permits a lone worker to acquire on-track safety by seeing an approach- ing train and leaving the track 15 s before it arrives. ITD may be used only under circumstances strictly defined in the Railroad Worker Protection Manual. Individual Train Detection may be used to establish on-track safety only: • By a lone worker who has been trained, qualified, and designated by the MTA Light Rail Training Department; • While performing routine inspection and minor correction work;

• On track outside the limits of an interlocking or a con- trolled point; • Where the lone worker is able to visually detect the approach of a train moving at the maximum authorized speed on that section of track and clear the tracks 15 s before the train reaches the work area; • Where no power-operated tools or railroad maintenance machines are in use within earshot of the lone worker; and • Where the ability of the lone worker to hear and see approaching trains and other on-track equipment is not impaired by background noise, lights, precipitation, fog, passing trains, or any other physical conditions. When using ITD, the worker must fill out the Statement of On-Track Safety for a Lone Worker and request permission to enter the mainline using ITD by calling the LRC using radio or cell phone and providing a description of the work to be performed, the location by chain marker or station, and his or her radio call number. A worker cannot enter the mainline until LRC gives him or her instructions to do so. The worker must repeat back any instructions received from LRC before entering the yard or mainline tracks. When the work is complete, the worker must not foul the track, and LRC must be notified that the worker is clear of all mainline tracks. Upon the approach of a train on any mainline track or adjacent track, the worker must clear all tracks. A lone worker retains the absolute right to use on-track safety protection other than ITD if he or she deems it necessary, and to occupy a place of safety until another form of on-track safety can be established. A lone worker using ITD for on-track safety while fouling a track may not occupy a position or engage in any activity that would interfere with his or her ability to maintain a vigilant lookout for approaching trains moving in either direction. A lone worker who uses ITD to establish on-track safety must first complete a written Statement of On-Track Safety. The lone worker must produce the Statement of On-Track Safety when requested by a FRA representative or supervisor (7). River LINE Although there are some differences in terminology and practices that reflect the size and structure of the River LINE, its track worker safety program is essentially identical to that of MTA. SAFETY CHALLENGES Every system included in the study has some form of “Challenge” or “Dispute Resolution” whereby members of ROW work crews can document concerns regarding the 44 hazards associated with a task or work location and the asso- ciated level of protection. Given the similarities in most of the processes, this section of the report will provide a sample of the practices from three of the five systems: NYCT, MBTA, and the River LINE. New York City Transit—Safety Rule Dispute Resolution Process NYCT supervisors are directed to utilize the Safety Rule Dispute Resolution Form when a TWU-represented employee or group of employees asserts that the work requested violates a safety rule or procedure. These forms must be made available from the supervisor at the work location to any TWU-represented employee who wishes to raise such an allegation. In such cases, only work rel- ating to the allegation stops until the dispute resolution process is completed. All work not related to the allegation continues. Section 1 of the form is completed by the employee who is making the allegation. If a group of employees is asserting the violation, one employee completes the form on behalf of the group. The information must be as specific as possible. After completing this section, the employee gives it to the supervisor identified on the form. The supervisor and the employee discuss the issue and the applicable rules, and the supervisor must complete Section 2, noting his or her explanation and actions, and if the employee agreed or disagreed. If agreement is reached, work may resume. If the employee disagrees, the supervisor must note the disagreement. The concern is then raised immediately to a manager. Each employee must sign the form, noting the time and date. In Section 3, the manager notifies the TWU and MOW Operations immediately, interviews the supervisor and the employee, and renders a decision. The interview may be conducted by telephone. If the issue is resolved, the manager must complete this section of the form by the end of the shift. If the issue cannot be resolved by telephone, the manager must report to the location and complete this section immediately after rendering a decision. The decision of the manager is final and binding on both parties. The manager will direct the employee(s) back to work. The complete form, regardless of the type of resolution, is distributed to the appropriate division head, the Office of System Safety, the TWU, and the employee. A Division Review Panel convenes periodically to review the forms. Reports are then provided to the Senior Vice President of Subways and the Vice President of System Safety. Figure 25 provides a copy of the NYCT Safety Rule Dispute Resolu- tion Form.

45 FIGURE 25 NYCT Safety Rule Dispute Resolution Form (Courtesy: NYCT). Massachusetts Bay Transportation Authority— Good Faith Challenge If an employee does not have the appropriate PPE or feels that the work he or she is performing or being asked to per- form puts him or her and others in danger, that employee is empowered and obligated to rectify this safety concern by initiating a “Good Faith Safety Challenge” to the employee in charge or to the Control Center dispatcher. The supervisor in charge of the work must respond immediately to the “Good Faith Safety Challenge” or to any complaint of an unsafe condition. An evaluation must be made on how the unsafe condition can be resolved to allow the safe continuance of work. Figure 26 provides a copy of the MBTA ROW Good Faith Safety Challenge form. River LINE Good Faith Challenge River LINE roadway workers have the absolute right to challenge, in good faith, any directive that would violate any regulation governing on-track safety. The roadway worker remains clear of the track until a challenge is resolved.

When a roadway worker has concerns about any directive that would violate the regulations governing on-track safety the following procedures apply: 1. The roadway worker will discuss the on-track safety procedures at the work location with the employee in charge. The worker and the employee in charge try to clarify any misunderstandings and resolve any differ- ences of opinion about the on-track safety procedures. 2. If the worker and the employee in charge are unable to resolve the conflict, the employee may challenge the on-track safety procedures. To issue a challenge, the worker must: a. Do so in good faith. The worker must have an honest concern that the procedures in place do not comply with these on-track safety regulations. b. Be able to explain the concern about the proposed on-track safety procedures being applied. 3. If the worker decides to challenge the on-track safety procedures, he or she must: a. Notify the employee in charge. b. Notify any other roadway workers of the concern. 46 c. Remain clear of the track. d. Explain the reason(s) for their concern on a “Roadway Worker Challenge Form” (see Figure 27). e. Give the form to the employee in charge. 4. The employee in charge will review the challenge form and determine whether: a. The worker’s statement of on-track safety procedures at the work location is accurate and the on-track safety procedures comply with regulations. b. If the employee in charge determines that the worker’s concerns are valid, the employee in charge changes the procedures so that they comply with the regulations. If the worker considers the challenge resolved, the employee in charge forwards the chal- lenge form to the Superintendent of Maintenance’s (or designee’s) office, and the worker returns to work. c. If the employee in charge determines that the worker’s concerns are not valid, he or she notifies the worker and documents the determination on the form. If the worker considers the challenge to be resolved, the employee in charge forwards the FIGURE 26 MBTA ROW Good Faith Safety Challenge form (Courtesy: MBTA).

47 challenge form to the line engineer’s (or designee’s) office, and the worker returns to work. d. If the worker still does not consider the challenge resolved, the employee in charge contacts the super- visor for a resolution. e. The supervisor reviews the challenge form and determines whether the proposed on-track safety procedures at the work location comply with the regulations. The supervisor contacts the employees named on the form to make this determination. 5. If the supervisor determines that the challenge was valid, the supervisor arranges for the procedures to comply with the regulations. Once the procedures are in compliance, the workers return to work. If the supervisor determines that the challenge was not valid, the supervisor explains the decision to the worker. The challenge is considered resolved, and the workers return to work. 6. A copy of the completed challenge form is forwarded to the superintendent of maintenance’s (or designee’s) office. Toronto Transit Commission The Ontario Occupational Health and Safety Act gives all workers the right to refuse unsafe work. The TTC implementa- tion of the employee process to refuse unsafe work is as follows: • Employee reports concerns to supervisor. • If unresolved, the matter is referred to the joint Labor/ Management Health and Safety Committee. FIGURE 27 River LINE Roadway Worker Protection Challenge Resolution Form (Courtesy: River LINE).

• If unresolved, the TTC Safety Department is consulted. • If still unresolved, a representative from the Ministry of Labor is called in to arbitrate. CONCLUSION Research and discussions with agency employees have validated that the “meat and potatoes” of a track worker safety program are the practices for providing protection and warnings to track workers relative to train movement. The set of rules and practices listed in this chapter illustrate a wide range of approaches to determining, communicating, and executing track worker protection. Although some of these 48 differences may be the result of the size and nature of the sys- tems, others demonstrate varying organizational approaches and priorities regarding safety and tolerances for service dis- ruptions and diversions. Although the goal of every system’s program was a comprehensive approach including rules and procedures for equipment, communications, entering and exiting the ROW, setting up and performing flagging, and challenging safety condition concerns, it is difficult for the agencies to determine the effectiveness of the approaches. Chapter four explores the systems’ approaches to ensuring rule compliance and tracking near misses and accidents, and identifying what improvements are needed.

Next: Chapter Four - Safety Audits, Incident Reporting, Analysis, and Follow-Up Actions »
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TRB’s Transit Cooperative Research Program (TCRP) Synthesis 95: Practices for Wayside Rail Transit Worker Protection is designed to highlight knowledge, practice, lessons learned, and gaps in information related to wayside rail transit worker protection programs.

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