PERFORMANCE REVIEW OF BC FERRIES' CUSTOMER COMPLAINTS PROCESS
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PERFORMANCE REVIEW OF BC FERRIES ’
CUSTOMER COMPLAINTS PROCESS
Prepared for: Submitted by:
Office of British Columbia Ferries Commissioner MMK Consulting Inc.
PO Box 9279 Stn Prov Govt Stuart MacKay
Victoria, BC V8W 9J7 President
Graeme Johnsen
Associate
And by:
Lucent Quay Consulting Inc.
Pam Ryan
President
Final Report – May 1, 2020
Contents
Executive Summary .................................................................... 1
1. Introduction ....................................................................... 4
Legislative and Regulatory Framework 4
Scope of Review 4
Study Conduct and Report 5
2. Current Complaints Handling Processes ......................... 6
Regulatory Environment 6
Purpose/Objective of Complaints Handling 6
Organization and Staffing 6
BC Ferries’ Complaints Handling Processes 8
Complaints Volumes, Frequencies, and Resolution Times 17
Performance Measurement and Reporting 19
Learning and Continuous Improvement 21
3. Other Organizations’ Complaints Processes ................. 23
Washington State Ferries 23
Marine Atlantic 25
BC Transit 27
TransLink 29
Summary – Other Organizations’ Features of Interest to BC Ferries 32
4. Assessment of Current Performance .............................. 33
Customer Complaints Handling Processes 33
Customer Appeal Processes 34
Learning from Experience 37
Conclusions and Recommendations 38
Summary of Findings and Recommendations 41
Appendix A – BC Ferries’ Complaints Process (Draft) ............. 42
Appendix B – Sample Feedback & Engagement Report ......... 43
Executive Summary
The BC Ferry Commission (the Commission) has engaged MMK Consulting, in association with Lucent Quay
Consulting, to review the complaints handling processes of British Columbia Ferry Services Inc. (“BC Ferries”).
The legislative framework underlying this review is contained in Sections 45.2 and 46.1 of the BC Coastal Ferry
Act. Section 46.1 provides the BC Ferry Commissioner with the overall authority to “… conduct a review of one
or more aspects of a ferry operator's operations, including, without limitation, ancillary services...” Section 45.2
describes the commissioner’s specific authority in regulating ferry operators’ customer complaints handling
processes.
Customer Complaints Handling Processes
An overview of BC Ferries’ customer complaints handling processes is illustrated in Exhibit ES-1. BC Ferries’
policy is to resolve customer complaints informally at the point of occurrence, wherever possible. When
complaints at the terminal or onboard cannot be resolved immediately, the customer is given a contact card for
follow-up with BC Ferries’ Customer Care department.
When a telephone complaint is received, the Customer Service Centre (CSC) Agent attempts to resolve it
informally. When informal resolution is not possible, the CSC Agent records the complaint in the “ResponseTek”
Complaint Resolution System (CRS), for handling by the Customer Relations (CR) unit. Complaints received by
email, on-line form, and other sources (letters, referred from other agencies, etc.) are directly received and
recorded in ResponseTek by Customer Relations. Telephone calls and emails account for about 85% of
recorded complaints, with most of the balance coming from on-line form on the BC Ferries website.
Customer Relations is a six-person unit (seven in summer) that includes two Managers and four year-round CR
Advisors. Customer Relations recorded approximately 6,900 complaints in FY2020 (preliminary number),
representing approximately 3.2 complaints per 10,000 passengers.
The CR Manager and Assistant Manager review ResponseTek complaints, assigning those requiring follow-up
investigation among the CR Advisors. Almost all complaints are successfully resolved by CR Advisors, under CR
Manager supervision. Approximately 72, or 1%, of complaints per year require the direct involvement of the CR
Manager/Assistant Manager, and approximately four require the involvement of the Director of Customer Care.
Approximately two to three complaints annually are escalated to the VP/executive level. Two cases in the past
four years have resulted in complaints to the Human Rights Tribunal, one of which has yet to be resolved.
Complaints handling volumes and resolution times are seasonal. In calendar year 2019, average resolution
times were lower (better) than the seven-day target at the beginning and end of the year, but significantly higher
between late spring and late fall – peaking at 17+ days in September. BC Ferries indicates that in recent years,
the average levels of investigation and liaison time required to resolve customer complaints has increased.
Management reporting includes weekly and monthly internal reports, which track the status of complaints and
provide summary statistics. BC Ferries also prepares a Quarterly Feedback and Engagement Report, which
includes information about the volume and nature of complaints received. Key performance indicators include
(1) the average number of days to resolve a complaint, and (2) the ratio of ResponseTek-recorded complaints
and compliments. The quarterly report is reviewed at the executive level, submitted to the Commission, and
posted on the Commission’s website. The format of the quarterly report has recently been updated.
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Final Report – May 1, 2020
Exhibit ES-1 – Complaints Processes and Typical Annual Volumes
Complaints
at Terminal/
Vessel
Telephone Online
Resolved Letters,
Customer Emails Complaint
informally referrals
Service Centre Form
(unrecorded)
Resolved to
informally Customer to CR to CR to CR
(unrecorded) Relations (~2,900) (~1100) (small)
(~2,900)
Formally recorded in ResponseTek (6,935 in FY20)
Reviewed/assessed by CR Manager/Assistant Manager
No action required (~5,200))
(~1,700)
Resolved by CR Advisors (5,100+)
Escalated to CR Mgr/Asst Mgr (~72); resolved (~68)
Escalated to Director Customer Care (~4); resolved (~1-2)
Escalated to VP Marketing & Customer Experience (~2-3)
Benchmark to Other Organizations’ Complaints Processes
BC Ferries’ CRS system is more sophisticated than comparable systems at three of the other organizations
interviewed – Washington State Ferries, Marine Atlantic, and BC Transit. The fourth organization, TransLink,
has a sophisticated customer relationship management system, handling a larger volume of complaints related
primarily to bus operations. BC Ferries has a significantly lower percentage of customers submitting
complaints by on-line form than both Washington State Ferries and TransLink.
Assessment of Current Performance
This review’s overall assessment is that BC Ferries’ current complaints handling processes are effective in
serving the interests of ferry users. Strengths of the current operation include:
A well-defined and mature process for resolving customer complaints in an organized, respectful, and
timely manner.
Effective use of the CRS tool, to track the status of complaints, and to assist in managing their
escalation and process.
A strong Customer Relations management and staff group, with a positive and professional attitude,
and a strong track record in handling customer complaints.
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Final Report – May 1, 2020
Assessment of the Need for an Independent Appeal Process
There is currently no formal independent appeal process that is specific to BC Ferries customers. While
customers may appeal BC Ferries’ decisions to the BC Human Rights Tribunal on grounds of alleged
discrimination, there is no designated formal appeal process for other types of customer complaints.
A 2018 independent review by Blair Redlin, Connecting Coastal Communities: Review of Coastal Ferry Services,
specifically concluded that “an independent appeal process for customer complaints is recommended, to be
overseen by the [BC Ferry] Commissioner.”
In assessing whether there is a need to establish an independent appeal process specific to BC Ferries’
customers, the following points should be considered:
Customer complaints about BC Ferries’ services are relatively infrequent – approximately 3.2
complaints per 10,000 passengers.
Approximately 99% of all customer complaints are successfully resolved by Customer Relations
Advisors. Only about 72 complaints per year are escalated to Customer Relations management, and
only four complaints per year require the direct involvement of senior management.
BC Ferries’ customers have many other informal channels for complaints – such as BC Ministry of
Transportation and Infrastructure, the Commission, elected/appointed government officials,
TV/radio/print media, and social media.
In view of these considerations, and the identified strengths of the current customer complaints process, the
consultant’s assessment is that BC Ferries’ current complaints process is consistent with and supportive of the
public interest – i.e. maintaining a safe, reliable and affordable ferry system. Accordingly, the establishment of
an independent appeal process, specific to BC Ferries, is not assessed as being a high priority at this time.
Recommendations
While this review’s assessment of BC Ferries’ complaints handling processes is generally positive, every
organization has opportunities for improvement. Recommended areas for attention include:
Subject to budget constraints, reduce average complaints resolution times during busier months
through seasonal increases in Customer Relations staffing levels. If this is not possible, the alternate
recommendation is to increase the target average times for resolving customer complaints during
busier months.
Encourage customers to voluntarily submit their complaints via on-line forms, rather than by email.
The experience of Washington State Ferries and TransLink in achieving a high proportion of complaints
submitted through on-line forms may be of interest.
Further refine the format and content of the Quarterly Feedback and Engagement Report, and post it
on BC Ferries’ website directly as well as on the Commission’s website.
Increase the use of the information gained through customer complaints handling in identifying
opportunities to improve customer service levels.
Subject to budget affordability, upgrade or replace the existing ResponseTek Complaint Resolution
System in the short to medium term.
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Final Report – May 1, 2020
1. Introduction
This review of BC Ferries’ customer complaints handling processes has been performed on behalf of the BC
Ferry Commission, by MMK Consulting (MMK) in association with Lucent Quay Consulting (Lucent Quay). All
opinions expressed are those of MMK and Lucent Quay unless otherwise indicated.
Legislative and Regulatory Framework
The legislative and regulatory framework underlying this review is contained in Sections 45.2 and 46.1 of the BC
Coastal Ferry Act. Section 46.1 of the Act provides that “The commissioner may conduct a review of one or more
aspects of a ferry operator's operations, including, without limitation, ancillary services, at such time or times as
the commissioner considers reasonable, and section 46 applies to such a review.”
Section 45.2 of the Act describes the commissioner’s specific authority in regulating the customer complaints
processes of ferry operators in BC:
1) Each ferry operator must, within the period required by the commissioner,
a. identify to the commissioner the process the ferry operator intends to use to deal with customer
complaints,
b. obtain the commissioner's approval of that process, and
c. publish the approved customer complaints process in the manner required by the commissioner.
2) The complaints process referred to in subsection (1) must include a process by which the ferry operator will
report on the number, nature and disposition of the customer complaints received in the reporting period.
3) The ferry operator may propose amendments to the complaints process approved under this section and
may amend the complaints process in accordance with any such amendment that is approved by the
commissioner.
4) The commissioner may order the ferry operator to amend its complaints process and, in that event, the
ferry operator must, within the period required by the commissioner, provide the required amendments to
the commissioner and obtain the commissioner's approval to the amended process.
5) Each ferry operator must receive and process customer complaints in accordance with the complaints
process approved by the commissioner under this section.
Scope of Review
The scope of this review includes addressing fourteen key questions identified by the Commission:
1. Does the existing customer complaints process serve the interests of the public and ferry users?
2. Are BC Ferries’ responses to customers timely?
3. If the customer is not satisfied with BC Ferries’ response, what actions does BC Ferries take?
4. Does BC Ferries follow up with customers to ensure their complaints have been resolved?
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Final Report – May 1, 2020
5. Is there a formal appeal process in place? If so, does it satisfy the public interest?
6. Are there appropriate metrics in place for monitoring the effectiveness of the customer complaints
process?
7. Are the metrics reported to the Executive/Board? Are the metrics available to the public?
8. Does BC Ferries have appropriate and sufficient processes in place to effectively learn from customer
complaints and to improve service delivery?
9. Does BC Ferries track the public confidence/satisfaction in how they handle customer complaints? Has
it improved over the past few years?
10. Are there any gaps in the existing customer complaints process which should be addressed?
11. How does BC Ferries’ customer complaints process compare with best practices in the transportation
sector or hospitality sector, particularly with regard to appeal processes?
12. What recommendations would you make to improve the quality and effectiveness of the customer
complaints process?
13. What is your opinion on the adequacy of the objectives, protocols and processes governing the
customer complaints process at BC Ferries?
14. What recommendations would you make for improvements to BC Ferries’ objectives, protocols and
processes governing the customer complaints process?
In addition, the scope of the review includes commentary on whether there is a need for an independent appeal
process for BC Ferries’ customers that are dissatisfied with BC Ferries’ ultimate handling of their complaint.
Study Conduct and Report
Key components include:
Review of existing BC Ferries’ information and documents – including BC Ferries’ documentation of
complaint handling processes, key activities and metrics for Customer Relations and the Customer Care
Department, and weekly/monthly/quarterly/annual reports.
Meetings with BC Ferries staff – including individuals with oversight and operational responsibility for
handling complaints, such as the VP Marketing & Customer Experience, Director of Customer Care,
Customer Relations Manager and Assistant Manager, Customer Relations Advisors, and Customer
Service Centre Agents.
Review of the BC Ferries’ customer complaints handling processes – including initial receipt,
recording, investigation, escalation if required, resolution, and closure.
Review of complaints processes at other organizations – including interviews with Washington State
Ferries, Marine Atlantic, TransLink, and BC Transit.
Assessment of key issues – including the 14 key questions identified by the Commission.
Considerations regarding a potential independent appeal process – including the pros and cons of
establishing an independent avenue of appeal for customers that are dissatisfied with BC Ferries’
handling of their complaint.
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Final Report – May 1, 2020
2. Current Complaints Handling Processes
This chapter assesses BC Ferries’ current complaints handling processes.
Regulatory Environment
As described in the previous chapter, Sections 46.1 and 45.2 of the BC Coastal Ferry Act provides the BC Ferry
Commission with the authority to review, approve, and order changes to BC Ferries’ customer complaints
handling process. BC Ferries is required to identify the process, obtain the Commission’s approval of the
identified process, and publish the process – including reporting on the number, nature and disposition of
customer complaints.
The Commission is required to approve the complaints handling process, and may order changes to it; however,
it has no prescribed role in the handling and resolution of individual complaints.
Purpose/Objective of Complaints Handling
As detailed in the April 2020 draft of BC Ferries’ Description of the Existing Complaints Process 1 (See Appendix A),
the primary objective of the process is to support BC Ferries’ Vision (“trusted, valued”); its Mission (“We connect
Communities and customers to the people and places important in their lives.”; and Values (“Safe”, “Caring”,
“Honest”, “Collaborative”, “Respectful”, and “Sustainable”). The process and feedback received is:
“… an opportunity to hear what the customers think about the services we provide … to
understand if we are meeting or exceeding their expectations, or conversely, what areas
we need to focus on to support the Corporate Vision, Mission and Our Values.”
The secondary objectives identified for the complaint handling process are to (1) “respond to customer
complaints at the first point of contact … and when necessary escalate to Customer Relations;” (2) “Ensure
customers receive a timely response when complaints are escalated to Customer Relations, BC Ferries’
Executive or the Board of Directors, or the BC Ferry Commission;” and (3) “Learn from our customers’ feedback
and improve our services, wherever possible.”
Organization and Staffing
While customer complaints are formally handled by BC Ferries’ Customer Relations group, BC Ferries indicates
that all of its staff are encouraged to address and resolve customer complaints at the point of initial contact,
wherever possible:
Terminal and on-board complaints can sometimes be informally resolved by operating staff at the time
of occurrence.
1
The amended process has not yet been submitted to the BC Ferries Commissioner for approval.
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Final Report – May 1, 2020
Telephone complaints and enquiries can sometimes be immediately resolved by Agents at the
Customer Services Centre (CSC), through reference to enCompass, an internal website providing up-to-
date operational, policy and messaging information to help align BC Ferries’ responses to customers.
When a customer complaint cannot be resolved at the point of initial contact, the complaint is escalated to the
Customer Relations group for investigation and resolution. Customer Relations is co-located with the CSC that
handles incoming customer calls.
As illustrated in Exhibit 2a, Customer Relations reports organizationally to the Director of Customer Care and to
the VP Marketing & Customer Experience, a member of BC Ferries’ nine-person Executive Leadership team.
Exhibit 2a - Customer Relations’ position within BC Ferries Organization
Source: BC Ferries.
As detailed in Appendix A, the Customer Relations group has six year-round staff - including a Manager, Assistant
Manager, three permanent Customer Relations Advisors (CRAs), and one rotating CRA; plus one additional CRA
position during July and August.
The Director, Manager and Assistant Manager are responsible for the day-to-day operation of Customer
Relations. Their duties include reviewing, assigning, and managing customer files; monitoring and reporting the
resolution of complaint files; training new CRAs, including transfers from the CSC; and other related activities.
While Customer Service Agents are members of the bargaining unit, the CRAs and their managers are exempt.
During the busier summer season, some Customer Service Agents will be temporarily seconded to Customer
Relations.
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Final Report – May 1, 2020
BC Ferries’ Complaints Handling Processes
Exhibit 2b provides an overview of the volumes of complaints received in a representative year by BC Ferries,
and how they are handled.
Exhibit 2b – Overview of Complaints Processes and Typical Annual Volumes
Complaints
at Terminal/
Vessel
Telephone
Online
Resolved Customer Letters,
Emails Complaint
informally Service referrals
Form
(unrecorded) Centre
Resolved to
informally Customer to CR to CR to CR
(unrecorded) Relations (~2,900) (~1100) (small)
(~2,900)
Formally recorded in ResponseTek (6,935 in FY20)
Reviewed/assessed by CR Manager/Assistant Manager
No action required (~5,200))
(~1,700)
Resolved by CR Advisors (5,100+)
Escalated to CR Mgr/Asst Mgr (~72);
resolved (~68)
Escalated to Director Customer Care
(~4); resolved (~1-2)
Escalated to VP Marketing & Customer
Experience (~2-3)
With regard to volumes, Customer Relations recorded approximately 8,500 complaints in FY 2018/19.
Complaints were higher than normal that year due to an accident on the Queen of Cumberland that resulted in
temporary sailing reductions while the vessel was out of service; the introduction of a new booking system; and
the Northern Sea Wolf's delayed introduction to service.
BC Ferries recorded approximately 6,900 formal complaints in FY 2019/20 (preliminary figure, April 2020) –
consistent with longer-term annual trends, and representing approximately 3.2 complaints per 10,000
passengers.
Details of how these complaints are handled are described in the following pages.
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Final Report – May 1, 2020Channels for Receiving Customer Comments and Complaints
BC Ferries’ policy is to resolve customer complaints at the time and point of occurrence. When immediate
resolution cannot be achieved, complaints are received through a number of channels, as illustrated in Exhibit
2c, with the handling process varying somewhat by channel.
For terminal/onboard complaints that cannot be resolved immediately, the customer may be given a contact
card for follow-up with BC Ferries’ Customer Care department.
A significant volume of customer complaints and other comments are received through telephone calls to
Customer Service Centre (CSC) Agents. Many minor telephone complaints are informally resolved by CSC
Agents, and are not formally recorded as complaints.
Where the CSC Agent is unable to resolve the complaint informally, the Agent records the complaint in BC
Ferries’ “ResponseTek” Complaint Resolution System (CRS). These complaints then become the responsibility
of Customer Relations (CR). CR is a six-person unit (seven in summer) that includes two Managers and four year-
round CR Advisors. Approximately 40-45% of all recorded complaints (2,900 per year) result from telephone
calls to CSC.
Complaints received by email go directly to Customer Relations and are entered into ResponseTek. Email
complaints represented approximately 40-45% of recorded complaints (~2,900 per year).
Complaints submitted by on-line form represent approximately 15% of complaints (~1,100 per year). Other
sources (letters, social media, correspondence to BC Ferries senior management/Board, BC Ferry Commission,
BC Ministry of Transportation and Infrastructure) represent a small percentage of recorded complaints.
The CR Managers and Assistant Manager review all recorded complaints, assessing approximately 25% (1,700)
as not requiring follow-up action. The remaining three-quarters (5,200) are assigned to CR Advisors for
investigation and resolution. While any type of complaint can be assigned to any CR Advisor, certain types of
complaints (e.g. relating to specific operational events) may all be assigned to one individual CR Advisor, to
ensure consistency of response.
Approximately 99% of all customer complaints are successfully resolved by CR Advisors, under Manager
supervision and informal consultation. Approximately 72 complaints per year require the direct involvement of
the CR Manager/Assistant Manager with the customer, including when the customer requests an escalation. Of
these, about four complaints per year (less than 0.1%) are further escalated to the Director of Customer Care,
and 2-3 are further escalated to the VP/executive Level. Two cases in the past four years have resulted in
complaints to the Human Rights Tribunal, one of which has yet to be resolved.
Average complaints resolution times are seasonal due to high travel demand during the spring and summer
seasons. During 2019, average resolution times were better (lower) than the seven-day target at the beginning of
the year, but significantly higher from late spring to late fall, peaking at 17+ days in September, and not
returning to below the seven-day target until January 2020.
There has been a modest upward trend in average resolution times in recent years, and staff indicate that the
levels of investigation required to resolve complaints has been increasing.
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Final Report – May 1, 2020Exhibit 2c - Complaint Channels and their Handling
Complaint
Handling Process
Channel
Unresolved Customer issued a Contact Card with the phone number for Customer Relations
feedback with BC Ferries front-line staff advise Customer Relations
front-line
vessel/terminal Customer Relations enters feedback into ResponseTek
staff Customer Relations selects rating, relevant group(s), attribute(s), route, etc.
Customer Service Agent advises customer that they will be contacted by
Unresolved
Customer Relations
feedback/calls to
Customer Service Customer Service Agent enters feedback into ResponseTek
Centre
Customer Service Agent selects rating, group(s), attribute(s), route, etc.
Email, letters, Customer Service Agent or Customer Relations Advisor enters relevant feedback
social media into ResponseTek
directed at BCFS Customer Relations selects rating, relevant group(s), attribute(s), route, etc.
Customer enters feedback into online form
Online Feedback
Form on BCFS’ Customer selects rating, relevant group(s), attribute(s), route, etc.
website
All information transferred directly to ResponseTek
Board correspondence is received by the Corporate Secretary’s Office
Correspondence Corporate Secretary reviews as appropriate with Chair/Board Members
to BCFS’ Board of Corporate Secretary keeps a copy of the response
Directors
If Customer Relations is involved in drafting the response, then a copy of the
correspondence is also filed in ResponseTek
Complaints received by the Commission are referred to BC Ferries
Correspondence
to the Office of Customer Relations enters relevant feedback into ResponseTek and selects
the BC Ferries rating, group(s), attribute(s), route, etc.
Commissioner
BC Ferries provides the Commission with a copy of the response
Correspondence
to BC Ministry of Most complaints are routine and are referred to BC Ferries for follow-up
Transportation & Approximately 20 complaints per year are also reviewed with BC Ferries
Infrastructure
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Final Report – May 1, 2020Rating Customer Comments/Complaints
As illustrated in Exhibit 2d, each customer comment recorded in ResponseTek is rated on a five-point scale and
is classified as a complaint, a compliment, or neutral feedback.
Exhibit 2d - Feedback Ratings Recorded in ResponseTek
Neutral
Complaints Compliments
Feedback
(1) Bad (4) Good
Rating (3) OK
(2) Poor (5) Excellent
Most of the customer comments entered in ResponseTek are classified as complaints – not surprising, given that
the primary purpose of the system is to provide a tool for managing customer complaints. However, a
significant number of customer comments are also assessed as neutral or compliments.
The responsibility for rating individual customer comments varies by source and method of submission:
For telephone calls to CSC, the CSC Agent records and rates the comment/complaint.
For the Online Feedback Form, comments and complaints are rated by the customer at the time of
submission.
For emails and other direct customer feedback, comments and complaints are reviewed and rated by
the CR Manager and/or the Assistant Manager.
Customer Care staff also monitor a number of social media sites for comments relating to BC Ferries,
which may result in a complaint being recorded and a response being provided
Approximately 85% of ResponseTek ratings are based on the assessment of Customer Relations Advisors and
CSC Agents, while approximately 15% are provided directly by the customer through the Online Feedback Form.
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Final Report – May 1, 2020Identifying Complaint Types and Attributes
As illustrated in Exhibit 2e, the ResponseTek database records basic information about the complaint, (date of
travel, route/sailing, customer contact information, etc.), as well as information regarding the type(s) of
complaint. Since customer feedback can include multiple topics, individual complaints may be assigned
multiple attributes.
Exhibit 2e – Classification of Complaint Groups and Attributes in ResponseTek
Groups Attributes, by Group
Accessibility on Board, Amenities, Announcements, Cleanliness,
1) On the Ship Loading/Unloading, Lost and Found, Outer Decks/Smoking Area, Pet Areas, Staff
Helpfulness, Vessel Safety/Security, Washrooms
Accessibility at the Terminal, Amenities, Baggage Services, Check-in, Cleanliness,
2) Inside the
Construction/Upgrades, Loading/Directions, Lost and Found, Signage, Smoking
Terminal
Areas, Terminal Safety/Security, Washrooms
3) Outside the Bus Connections, Drop Off Area, Info/Communication, Parking at Terminal, Staff
Terminal Helpfulness, Traffic Management
Assured Loading Card, Credit/Debit Card, Discount Fares/Promotions, Errors,
4) Fares
Experience Card, Value for Fares Paid
Cancellations, Delays, Frequency of Sailings, Loaded on Sailing of Choice,
5) Sailings Loading Error, Making Connections, Published Schedule, Vessel Substitution &
New Ships
6) Reservations Availability, Cost, Flexibility/Changes, Online Reservations, Policies
7) Food and Retail Food Selection/Quality, Food Value, Lounge/Buffet/Coffee Bar, Staff Helpfulness,
Services Retail Selection, Retail Value
Accommodation, Activities, Booking on the Phone, Booking at the Vacation
8) BC Ferries
Centre, Booking on the Web, Information Package Clarity, Overall Experience,
Vacations
Value
Current Conditions, Design and Usability, Information/General,
9) On the Web
Login/Passwords, Service Notices, Travel Planning
Agent Helpfulness, Automated Phone System, Information Accuracy, Time on
10) On the Phone
Hold
11) General Community Issues, Company Information, Environment
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Final Report – May 1, 2020Complaints received through the Ministry and the Commission
As illustrated in Exhibit 2f, the vast majority of customer complaints are made directly to BC Ferries. A small
number of customers complain initially to the BC Ministry of Transportation and Infrastructure or the BC Ferry
Commission:
The Ministry advises that it receives hundreds of comments on BC Ferries each year, and forwards
routine complaints to BC Ferries. While the Ministry has no defined role in the customer complaints
resolution process, it may contact BC Ferries informally if it becomes aware of a service issue or
interest.
The Commission receives some customer complaints directly, which are normally referred to BC
Ferries. The Commission monitors BC Ferries’ responses to the complaints referred to them, but does
not participate in the direct investigation and resolution of these complaints.
Assigning Response Priorities
Once received, all direct customer complaints (other than those that are overly aggressive or threatening) are
acknowledged by Customer Relations. Automatic responses are issued for complaints submitted through the
Online Feedback Form, while letter complaints receive postcards or telephone calls.
Following receipt, each complaint is reviewed by the CR Manager and assigned a priority for action:
Immediate Close (no further action required). This category represents approximately 25% of
complaints during the winter, and 20% during the summer. They include complaints where no
response is requested by the customer, where no contact information is provided, or where the
complainant is overly aggressive or threatening.
Of the complaints that are assessed as not requiring further action, approximately one-third are still
assigned to individual CR Advisors in a variety of situations, where there is a possibility that further
activity (either customer or non-customer related) may be required.
Urgent (target 1-3 days for response) – requiring an immediate response. These represent
approximately 3% of complaints during the winter, and 5% during the summer.
ASAP (target 4-7 days) – needing some investigative work. These represent approximately 12% of
complaints during the winter and 15% during the summer.
Scheduled (target 7-14 days) – including general comment and requests for non-time-sensitive
information. These represent approximately 60% of complaints during both winter and summer.
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Final Report – May 1, 2020Exhibit 2f- BC Ferries’ Complaints Escalation Processes, Volumes, and Criteria
Approx.
Volume Escalation Criteria
(FY20)
How Received:
Received directly by BC Ferries 6,800
Referred from the Ministry 80
Referred from the Commission 55
6,935
How Resolved:
Closed Immediately, no action (~1,700) Assessed by Customer Relations (CR) Mgr/Asst Mgr
requred (25%)
Assigned to CR Advisors ~5,200 Assigned by CR Mgr/Asst to individual CR Advisors
Response priority/target timing established
Complex cases may be retained by Mgr/Asst Mgr
Resolved at CR Advisor Level (5,100+) Closed if customer response successfully provided
Closed if three unsuccessful attempts to contact
Escalated to CR Manager/Asst Mgr 72 Customer remains dissatisfied with CRA efforts to
resolve
Further investigation required
Resolved by CR Manager/Asst Mgr (68) Closed if customer concern is resolved
Escalated to Customer Care Director 4 Customer continues to express dissatisfaction
Further investigation required
Significant policy or profile issue
Resolved by Customer Care Director (1-2) Closed if customer issue is deemed resolved
Escalated to VP/Exec Level 2-3 Customer continues to express dissatisfaction
Corporate policy or profile issue
VP may consult executive/CEO prior to responding
Response normally issued by VP Mktg/CC Director
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Final Report – May 1, 2020The Complaints Investigation Process
Complaints requiring follow-up investigation are assigned by the Customer Relations Manager/Assistant
Manager to individual CRAs. Individual files are assigned based on the topic/issue, staff availability, issue
complexity, and other factors. As CRAs develop expertise in handling certain types of complaints (e.g. those
identifiable with a specific route and/or service issue), they may informally specialize in handling certain types
of complaints in the interest of effectiveness, efficiency, and consistency of response.
CRAs are encouraged to make early personal contact with the customer, by telephone where possible, to
demonstrate responsiveness and to better understand the nature and specific source of the complaint.
In investigating the complaint, CRAs directly access, query, and update the various BC Ferries databases
(ResponseTek, enCompass, etc.) that are relevant to the specific complaint and may provide guidance in how to
address it. They also contact operational staff and managers in investigating specific terminal and on-board
incidents. They research BC Ferries’ relevant polices and practices with regard to the specific complaint,
consulting with the CR Managers and other members of the CR team, to ensure that their response to the
complainant is consistent with BC Ferries’ position in dealing with similar complaints.
CRA complaint investigation/resolution activities are monitored and managed by the CR Managers – listening in
on CSC calls, monitoring correspondence, providing advice on specific situations, and providing coaching on
customer contact approaches. CR Managers also monitor the status of unresolved complaints, through specific
ResponseTek enquiries as well as weekly and monthly management reports.
The CR Advisor position is a challenging one, requiring CRAs, working with dissatisfied customer to resolve their
complaints. The positions often turn over after approximately two years, including promotions and transfers to
other BC Ferries departments, so that recruitment is an ongoing issue.
Complaints Escalation and Resolution
As illustrated in Exhibit 2f, approximately 99% of the complaints assigned to CR Advisors are resolved at that
level.
Customer comments are deemed to be resolved (and the ResponseTek file is closed) when (1) a response to a
complaint has been provided, and no further action is expected, or (2) three attempts have been made to
contact the customer. If the customer re-contacts BC Ferries after the complaint is deemed resolved, a new file
is opened.
Approximately 72 complaints annually – or 1% of the annual volume of complaints received – are formally
escalated to the CR Manager or Assistant Manager, where an issue requires further investigation and/or the
customer is requesting an escalation.
In a typical year, approximately four files will be further escalated to the Director of Customer Care, and two to
three of these will be further escalated to the VP Marketing & Customer Experience. In some cases, the
complaint and response may be reviewed with the executive team and/or the CEO, prior to responding.
For routine complaints received at the executive level, the substance of the responses may be prepared by
Customer Relations, for issuance through the executive offices.
15
Final Report – May 1, 2020Independent Appeal Options
If customers are dissatisfied with BC Ferries’ internal handling of their complaint, they have a number of options
for further pursuing their complaint:
For complaints involving some form of perceived discrimination, customers may complain to the BC
Human Rights Tribunal. Since 2016, two customer complaints have been considered by the Human
Rights Tribunal:
The first followed the introduction of Transport Canada regulations in October 2017 requiring
passengers to leave enclosed vehicle decks. The complainant has a disability that makes it difficult
to sit in a non-reclining chair for lengthy periods. BC Ferries initially enforced the new regulations,
before offering an exception to the customer on January 30, 2018. A hearing to consider the period
between October 2017 and January 2018 is scheduled for October 2020.
The second, from January 2019, is a customer complaint about BC Ferries’ policy of requiring
service dogs to have BC credentials (BCID), in accordance with provincial policy. The specific
customer complaint was resolved at an early settlement meeting in July 2019, and a review of the
provincial policy is currently being undertaken by BC Ferries and the Province, with the Province
taking the lead.
Customers may also complain directly to the Ministry of Transportation and Infrastructure, who while
having no formal role in resolving customer complaints may occasionally act on their behalf. For
example, on BC Ferries’ North Coast service, an adjustment to the service contract between BC Ferries
and the Province was agreed, to compensate BC Ferries for providing the lower “inside cabin” fare rate
for outside cabins occupied by handicapped passengers who are physically unable to access the inside
cabins.
Unsatisfied customers also ultimately have recourse to the wider court system.
Approximately two to three complaints per year are not resolved by the Customer Care department, and are
escalated to the executive level for final resolution. At present there is no explicit independent appeal process
for BC Ferries customers that remain dissatisfied with BC Ferries’ final handling of their complaint.
A 2018 independent review of BC Ferries1, conducted by Blair Redlin, concluded that “an independent appeal
process for customer complaints is recommended, to be overseen by the Commissioner.”
The consultant’s assessment of this issue is presented in Chapter 4 (Question 5).
1
Connecting Coastal Communities: Review of Coastal Ferry Services; June 30, 2018; Blair Redlin.
16
Final Report – May 1, 2020Complaints Volumes, Frequencies, and Resolution Times
Annual Complaints Volumes and Frequencies
As illustrated in Exhibit 2g, complaints volumes and frequencies were steady between FY2013 and FY2015,
before increasing between FY2015 and FY2018 during a period of growing traffic volumes. Complaint volumes
and frequencies spiked in FY2019, due in part to the significant operational challenges resulting from a training
accident on the Queen of Cumberland that temporarily took the vessel out of service; introduction of a new
booking system; and the Northern Sea Wolf's delayed entry to service.
For FY2020, complaints volumes and frequencies declined, returning closer to historical trends, which have been
modestly upward in recent years in both absolute and per-passenger terms.
The figures for FY2020 include the early-week impacts of the COVID-19 pandemic, and its major impact on BC
Ferries’ operations.
Exhibit 2g– Annual Trends and Complaint Volumes and Frequencies
Source: BC Ferries.
*Preliminary Estimate.
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Final Report – May 1, 2020Seasonality of Complaints Volumes and Resolution Times
Exhibit 2h illustrates the relationship between complaints volumes and average resolution times between
January 2019 and March 2020:
During the less busy winter months of 2019, monthly complaints volumes were less than 400, and
average resolution times were in the range of 5-7 days (measured at time of closure).
During the spring and early summer, complaints volumes rose to more than 800 per month, and
average resolution times increased to more than 10 days.
During August, nearly 1,000 complaints were recorded, resulting in average resolution times for files
closed in September increasing to more than 17 days in September.
With the reduced traffic volumes and complaints during the fall, average resolution times returned to
the range of 5-7 days in January 2020.
With the onset of the COVID-19 pandemic in February-March 2020, complaints volumes were lower than during
the same period in 2019, possibly reflecting the very significant drop in traffic volumes.
Exhibit 2h – Monthly Trends in Complaint Volumes and Average Time to Close
Source: BC Ferries.
18
Final Report – May 1, 2020Performance Measurement and Reporting
BC Ferries develops and relies on a number of weekly, monthly and quarterly reports in resolving customer
complaints:
On a weekly basis, BC Ferries Executive Leadership, Directors, and Management team are provided an
email report of the prior week’s feedback from customers. This includes examples of complaints and
compliments from the previous week, plus a summary of ResponseTek quantitative data – including
average ratings by complaint grouping. These reports are used as a basis for identifying any “hot
topics” that require priority attention from the executive and management team.
On a monthly basis, Customer Relations develops a report focused on its business unit. The report
includes the number of assigned and completed files, voucher/compensation files, and other
information. In addition to providing quantitative ResponseTek data, it reports on the top complaint
themes, key “pain points” and “wins”. BC Ferries indicates that these reports are useful in identifying
areas (routes, sailings, loading/unloading, on-board services, etc.) where service issues may be arising.
On a quarterly basis, Customer Relations’ performance is reported at a higher level as part of BC Ferries’
Quarterly Feedback & Engagement Report (sample report contained in Appendix B). This report is
provided to the Commission, and is posted on the Commission’s website. On an annual basis, the
quarterly reports are consolidated into a section of BC Ferries’ annual report to the Commission. This
annual report is also posted on the Commission’s website.
Quarterly Feedback & Engagement Report
BC Ferries has recently developed a new format for the Quarterly Feedback & Engagement Report (Appendix B),
which includes a “dashboard” measure of BC Ferries’ performance with respect to the overall customer
experience.
As illustrated in Exhibit 2i, the dashboard features eight benchmark metrics – two each for (1) Customer
Satisfaction - Net Promoter Score, Average Customer Satisfaction Score; (2) Operations – On-Time
Performance, Fleet Reliability Index; (3) Customer Relations (ResponseTek) – Response Time Average,
Percentage of Comments Positive); and (4) Customer Service Centre – Average Speed of Call Answer, First Call
Resolution.
A score of less/more than 100 indicates weaker/stronger performance than the average of the past four years
during the same quarter. The overall composite index weights each of the individual eight metrics equally.
With regard to Customer Relations, the quarterly report also provides further details for customer complaints
and compliments, as also illustrated in Exhibit 2i (bottom half of page). The report provides quantitative results
by key attribute, as well as a breakdown in percentage and absolute terms by region and route. A multi-
attribute complaint may be assigned to multiple groups and attributes, so that the total number of complaints
across all categories is greater than the total number of complainants.
The quarterly report also provides more granular information regarding feedback by region/route, complaints
by key attribute, examples of complaints and compliments, and key issues and actions taken.
More broadly, the quarterly report also includes a summary of results of the Customer Satisfaction Tracking
survey. The report also provides information about other customer and community engagement by BC Ferries –
including activities by the Advisory Committees, key projects and initiatives, etc.
19
Final Report – May 1, 2020BC Ferries indicates that the format and content of the new Quarterly Feedback & Engagement Report is still
evolving in early 2020. Some individuals also indicate that the level of Customer Relations detail provided in
the latter half of the report is more than is needed at BC Ferries’ Executive Leadership level.
Exhibit 2i – FY20 Q2 Feedback & Engagement Report
Source: BC Ferries, Feedback & Engagement Report, Quarter ending September 30, 2019 (Q2 Fiscal 2020), page 3 and 6.
20
Final Report – May 1, 2020Learning and Continuous Improvement
One of the stated goals of BC Ferries’ draft customer complaints handling processes (see Appendix A) is to learn
from customer complaints and other feedback. The complaints handling process and feedback received is
characterized as:
“… an opportunity to hear what the customers think about the services we provide … to
understand if we are meeting or exceeding their expectations, or conversely, what areas
we need to focus on to support the Corporate Vision, Mission and Our Values.”
Customer Care/Customer Relations
Within Customer Care, Customer Relations reviews the complaints recorded in ResponseTek on an ongoing
basis, referencing both the weekly and monthly reports, to assess the nature and frequency of complaints
(attributes, location, etc.), and to identify and address potential “hot spots” requiring management attention.
The ResponseTek data is “always under review” for patterns or themes:
Complaints patterns and themes identified by Customer Relations are brought to the attention of BC
Ferries’ Operations team, with the Director of Customer Care working with other BC Ferries’ operational
managers to identify and implement opportunities for improvement.
Weekly and monthly ResponseTek reports are also used by the Customer Relations Manager and
Assistant Manager for administrative purposes, to assign and track complaints, manage workloads,
monitor response quality and consistency, and provide staff training to improve performance.
Weekly, monthly and quarterly reports also report on “Wins” in which Customer Relations has played a part.
Examples of “Wins” (from the November 2019 monthly report) include:
A “thumbs up” from Pender and Gibsons clinics for a draft letter with regard to Medical Assured
Loading.
As a result of feedback from a Sunshine Coast Ferry Advisory Committee member in Spring 2020, a
technical glitch regarding booking oversized vehicles was brought to BC Ferries' attention and resolved.
A decrease in the number of “Fare: errors” recorded in ResponseTek from the previous month.
Planning of a “permanent fix” to unpleasant odors in the men’s washroom on the Spirit of Vancouver
Island, following several complaints, to be installed during the 2020 annual refit.
Revenue and Customer Relations jointly streamlining the process for providing refunds to customers
affected by the October 25 weather cancellations.
Executive Level
At the VP Marketing & Customer Experience level, the Customer Relations section of the quarterly Feedback &
Engagement Report is seen as useful in terms of monitoring general trends in the volume of complaints received
and how they are being handled. At the same time, major service policy issues complaints will already be well
known at the executive level by the time the quarterly reports are developed.
21
Final Report – May 1, 2020The higher-level information on complaints handling activities (see Appendix B, pages 3 and 6-13) is seen as
being of the greatest interest at the executive level, with the more detailed information seen as being of less use.
By its nature, much of BC Ferries’ customer complaints handling process is reactive in nature – focussed more
on identifying and resolving specific customer complaints, rather than on actively looking for broader
opportunities to improve overall customer service levels.
22
Final Report – May 1, 20203. Other Organizations’ Complaints Processes
This chapter presents information about the complaints handling processes at four other transportation service
providers, relative to BC Ferries.
Washington State Ferries
Washington State Ferries (WSF) has operations that are geographically close to those of BC Ferries, and are also
comparable in many other ways. While WSF has fewer terminals, routes, and vessels than BC Ferries, it has
similar annual passenger volumes. WSF’s trip times on its major routes (e.g. Seattle-Bremerton) are shorter
than those of BC Ferries on Routes 1, 2 and 30.
In terms of governance, WSF is a government agency reporting to the Washington State Department of
Transportation (WSDOT). The Washington State Ferry Commission was at one point the governing body for
WSF, but its powers have been significantly reduced and it is not responsible for overseeing operational issues
such as complaints handling processes.
In terms of organization and staffing, customer complaints are managed through the Senior Manager of
Customer Service, reporting to the Director of Community Services and Planning. In addition to a specialist in
managing the customer complaints handling process, the Customer Service group has approximately 15-20
Information Agents and 5-6 Web Agents who receive and deal with telephone complaints, web-based
complaints and refund requests.
Information Agents work full-time, part-time, and on-call shifts to staff a call center that operates from 7:00 am
to 5:30 pm, 365 days a year. Web Agents provide first-tier support to Information Agents, provide direct web-
based support to customers, and manage various aspects of WSF’s website including updating and sending
rider alerts throughout the day. This group works staggered hours, with the first Web Agent starting at 4:30 AM
and the last finishing at 10:30 PM, and with 2-3 Web Agents working during the busiest times of the day.
As indicated on the WSF website, a number of channels are available for customer contact, including refund
requests (see https://www.wsdot.wa.gov/Ferries/Infodesk/customerfeedback/?mode=Refund ).
In 2019, WSF received and recorded approximately 8,300 comments (refund requests, compliments, complaints,
questions), of which 2,850 were classified as complaints. Starting in January-February 2019, WSF has been
strongly encouraging people to submit complaints using the on-line form on the WSF website, rather than by
sending emails – including removing the e-mail address from the WSF website. This initiative has been driven by
a number of issues, including:
The desire to collect a more complete set of information at the point of initial complaint through the
on-line form, rather than through emails – to make it easier for Web Agents to review, classify, and
assess how best to respond.
The previous use of a shared in-box for e-mails, leading to some customer communications not being
properly tracked for response.
23
Final Report – May 1, 2020Lack of a robust CRM system to record and track complaints, forcing WSF to rely on a more basic
internally-developed system.
WSF indicates that, in early 2020, approximately 60% of complaints received are submitted through the on-line
forms, versus 30% from emails and 10% from other sources (customer calls, paper complaint forms, letters,
etc.). This approach has assisted WSF in addressing complaints more effectively.
At the same time, WSF also acknowledges that it has reduced the customer breadth of options for complaining,
and that the initiative to “drive” customers to the on-line form (by making it less easy to complain by email)
might not have been undertaken if WSF had a more robust CRM tool.
With regard to investigation/resolution, most customer complaints are successfully resolved at the Web Agent
level. The Customer Communications Manager indicates that WSF recorded approximately 8,300 comments in
2019, of which 2,850 were classified as complaints 1. Most of these complaints are resolved directly by Web
Agents, and only about 10 per week require the Manager’s attention.
Common causes of complaints include staff helpfulness; service disruptions due to weather; mechanical issues,
and terminal construction/rehabilitation projects. Unlike at BC Ferries and Marine Atlantic, pet policy is not a
big issue – possibly reflecting the shorter average travel times on WSF routes, as well as WSF’s policy of allowing
leashed pets on its outer decks.
On a route-specific basis, WSF indicates that most of its complaints originate from the one route serving five US
and one Canadian terminals – the Anacortes-San Juan service – reflecting the seasonal nature of traffic demand
and the capacity pressures during the summer months. In the summer, WSF will receive approximately 200
complaints per week, of which more than half will be with regard to the Anacortes-San Juan service.
Weekly reports of Customer Communications’ performance are generated and presented by the Director of
Community Services and Planning to the Executive Team.
There is no defined independent avenue of appeal for customers that are dissatisfied with their treatment by
WSF. However, WSF is a government agency and is part of the WSDOT, and some customers will appeal directly
to legislators and the media rather than contacting WSF first, or will pursue several avenues of complaint
concurrently – causing confusion among agencies with respect to the responsibility for handling.
1
Criteria for classifying customer comments as complaints may vary among ferry and transit operators.
24
Final Report – May 1, 2020Marine Atlantic
Marine Atlantic is a Newfoundland-based Federally-owned Crown Corporation that provides ferry service
between Nova Scotia and Newfoundland:
The year-round service between North Sydney (in northern Nova Scotia) and Port aux Basques (in
southwestern Newfoundland) is a seven-hour journey that carries approximately 300,000 passengers
annually.
The summer-season service between North Sydney and Argentia (in southeastern Newfoundland, near
St. John’s) is a 16-hour journey that carries approximately 30,000 passengers between June and
September each year.
Marine Atlantic’s annual passenger volumes are approximately 1.5% of those of BC Ferries. Allowing for Marine
Atlantic’s longer routes, annual passenger-kilometres are approximately 10% of those of BC Ferries.
Marine Atlantic’s main regulator is Transport Canada, and it is also regulated by other agencies in some areas.
For example, the Canadian Transportation Agency regulates issues relating to accessibility.
At Marine Atlantic, customer complaints are dealt with “in the moment” where possible. When customers
remain unsatisfied, they may contact Customer Relations by telephone through a 1-800 number), by email
(customerrelations@marineatlantic.ca ), and/or through the Marine Atlantic website
(https://www.marineatlantic.ca/contact-us ). Marine Atlantic also offers comment cards to customers, although
these are not frequently used.
Customer Relations records approximately 600 formal complaints each year, using a simple Excel-based tool.
At present, approximately 42% are received by telephone, 55% through the web, and 3% from other sources
(letters, on-board customer feedback cards, etc.). The relative share of complaints received by telephone is
decreasing over time, and the share received through the web is increasing.
Complaints are handled by a three-person group headquartered in Port Aux Basque – a Manager of Customer
Relationships, a Customer Relations Officer, and a Customer Relations Clerk. This group reports to the Vice
President of Customer Experience.
Complaints are assigned among the Customer Relations group by complexity. Less complex cases (e.g. routine
refunds) are handled by the Clerk; common service complaints (e.g. heating in cabin) are handled by the Officer;
and more serious complaints (e.g. regulatory issues, safety) are handled by the Manager. Very rarely,
complaints may be escalated to the VP of Customer Experience.
While complaints in theory could be further escalated beyond Marine Atlantic to various regulatory agencies,
the current Customer Relations Manager is not aware of any specific customer complaints having been
escalated beyond Marine Atlantic.
By far the biggest source of complaints received by Customer Relations is with respect to pets. Some customers
do not like Marine Atlantic’s policies regarding where pets are allowed on-board. One of Marine Atlantic’s
challenges is in controlling the use of fraudulent certifications of dogs as guide/service dogs.
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