2004 Intelligent Transportation Systems (ITS) Projects Book, Online Version

Section Two: Metropolitan ITS Infrastructure : Introduction

The nation’s metropolitan areas are confronted with ever-increasing challenges to mobility. The past decade experienced a 30 percent increase in metropolitan area traffic and its accompanying impacts. Projections for near and mid-term increases in the volume of vehicles on the nation’s road system reflect a steep rise on the order of 50 percent in the next ten years. This growth is taking place amid increasing strains upon transportation budgets. State and local governments are struggling with the demands these increases place on our infrastructure. If there were a sudden infusion of funding, it is clear that the shortages of space to expand or build new roadways would compromise the viability of those alternatives. Transit providers are facing similar hurdles with budget reductions at a time when transit users are increasing, and expecting better and more reliable service. In year 2000, public transportation ridership increased for the fifth straight year, representing an increase of 20 percent since 1995.

ITS present new approaches to addressing the challenges of metropolitan mobility. Those advocating the application of ITS technologies view urban transportation as a comprehensive, seamless system that should be managed as a whole with an intermodal and unified perspective of regional mobility.

In January 1996, then Secretary of Transportation Federico Peña established a goal of deploying ITS infrastructure in 75 of the nation’s largest metropolitan areas within ten years. This goal was reaffirmed by Secretary Slater in 1997, and was expanded to include three additional metropolitan areas. This goal is known as “Operation Timesaver,” and is being pursued through the deployment and integration of the components of metropolitan ITS infrastructure. The components of ITS infrastructure in metropolitan settings are summarized as follows:

- Arterial Management Systems automate the process of adjusting signals to optimize traffic flow along arterial roadways.

- Freeway Management Systems provide information to motorists and detect problems whose resolution will increase capacity and minimize congestion resulting from accidents.

- Transit Management Systems enable new ways of monitoring and maintaining transit fleets to increase operational efficiencies through advanced vehicle locating devices, equipment monitoring systems, and fleet management systems.

- Incident Management Systems enable authorities to identify and to respond to vehicle crashes or breakdowns with the most appropriate and timely emergency services, thereby minimizing recovery times.

- Electronic Toll Collection Systems provide drivers and transportation agencies with convenient and reliable automated transactions, to improve traffic flow at toll plazas and increase the operational efficiency of toll collection.

- Electronic Payment Systems enable motorists to pay for parking, bus and train fares, as well as tolls, by using a single smart card.

- Highway-Rail Intersection Systems coordinate traffic signal operations and train movements, and notify drivers of approaching trains through in-vehicle warning systems.

- Emergency Management Systems are coordinated to ensure the nearest and most appropriate emergency service units respond to a crash.

- Regional Multimodal Traveler Information systems provide road and transit information to travelers, businesses, and truckers to enhance the effectiveness of trip planning and en-route alternatives.

- Information Management Systems provide for the archiving of data generated by ITS devices to support planning and operations.

- Integrated Systems deliver the optimal mix of services in response to transportation system demands.

These components, when integrated by a common communication structure, provide an intelligent transportation infrastructure enabling information access across agency and jurisdictional lines. Such integration substantially improves individual functions, provides synergism, and creates a set of public and private sector-operated services which form the foundation for the evolution of the long-range vision of ITS.

Program objectives in Metropolitan ITS Infrastructure activities are pursued through the ITS Travel Management Program. The ITS Travel Management Program supports numerous activities to include research, testing and outreach which are directed at advancing the integrated deployment of ITS infrastructure components in both metropolitan and rural areas. The Travel Management Program is organized into a series of sub-program areas or “development tracks” which provide programmatic focus for activities leading to the delivery of services.

A very brief summary of the development tracks and their corresponding areas of concentration follows:

- Arterial Operations and Traffic Control Systems - Applying and integrating advanced technologies to improve mobility on arterial and other surface streets.

- Freeway Management Operations - Using ITS technologies to control freeway operations and improve freeway management systems. Techniques and technologies include freeway monitoring, congestion reduction, improving ramp metering, providing traveler information on route and mode selection.

- Public Safety - Advancing law enforcement and emergency medical services. Techniques and technologies include automatic collision notification, enhanced wireless 911 systems, and coordinated incident response.

- Travel Information - Deploying and integrating core infrastructure and developing standards needed to support data sharing to satisfy multimodal traveler information needs. Techniques and technologies include development of requirements for regional and statewide traveler information systems, development of decision support systems to support varied users (e.g., commuters, tourist and transportation system operators), deployment of regional, statewide and multi-state traveler information capabilities, and supporting the implementation of 511.

- Modeling and Simulation - Development and application of analytical tools supporting evaluation and/or design of ITS.

- Crash Prevention - Preventing crashes and reducing crash severity. Techniques and technologies include variable speed limit systems and development of infrastructure based on crash avoidance warning systems.

- Transit Fleet Management - Supporting transit agencies through efforts to enable optimization of routing and scheduling vehicles to improve service and reduce costs. Techniques and technologies include development of demand-response algorithms, and development of fleet expert systems to automate service restoration during disruptions.

- Transportation Service Coordination - Improved access to transportation services for mobility-impaired citizens through transit/paratransit system management and referrals to services. Techniques include improving utilization of transit agency resources, improving information delivery for transit/paratransit customers, improving reliability and timeliness of services, and coordinating transportation services among multiple transportation organizations.

- Highway Operations and Maintenance - Improving efficiency and capabilities of transportation system maintenance operations. Techniques and technologies include applying ITS technologies in work zone activities, enhancing maintenance and safety of public vehicle fleets, and coordinating information among modes.

- Surface Transportation Weather and Winter Mobility - Developing improved road weather information systems and maintenance strategies for winter mobility. Techniques and technologies include building cohesive relationships between meteorologists and transportation professionals, developing decision support systems, developing technologically advanced maintenance practices, and improving road weather management strategies.

- ITS Planning - Increasing awareness of ITS capabilities among transportation planners at all levels, and among various modes of travel. Outreach techniques include conducting workshops, providing guidance, and promoting regional and statewide multimodal transportation planning.

- Archived Data User Service - Promoting the use of archived data to support transportation system decision making. Techniques include supporting the deployment of integrated systems that fuse information from multiple ITS data sources.

- ITS Deployment - Providing technical assistance resources to deploying entities. Techniques and forms of assistance include service plans, the peer-to-peer program, guidance documents, workshops, seminars, training and the Professional Capacity Building Program.

Detailed information on the Travel Management Program may be found at the ITS Joint Program Office Web site at http://www.its.dot.gov/TravelManagement/Travel.htm.

The ITS technologies comprising metropolitan infrastructure advanced significantly during the period of ISTEA authorization. The emphasis on research and operational testing in this timeframe was heavily focused on the problem areas severely impacting metropolitan areas: safety, congestion, and mobility. In numerous cases, systems deployed in the operational test program have resulted in quantifiable benefits, and have been incorporated as permanent elements of their areas’ transportation systems.

Deployment tracking results reveal that numerous regions throughout the Nation have deployed one or more of the elements of metropolitan infrastructure. The potential for maximizing benefits of intermodal management and delivery of additional services lies in successful technical integration and interjurisdictional coordination of these elements.

The projects described in the following sections have, and are, contributing to an enhanced capability to provide integrated user services. As noted in the introduction to this document, the ITS Program has been reoriented to reflect the transition to an emphasis on integrated deployment. Projects retain their identities as research and development, operational tests and deployment/integration (also identified as “other” if initiated prior to June 1998, the date TEA-21 was enacted), but they have been grouped by element in the classification structure consisting of intelligent infrastructure and intelligent vehicles. In many cases, projects cut across more than one intelligent infrastructure element such as arterial management system projects which include major traveler information aspects and/or linkages to transit properties. The categorization of projects was made with full acknowledgment that some projects might have been categorized differently. The Integrated Programs and several of the Congressionally directed-earmarked-Deployment/Integration projects funded under the ITS Integration Program in TEA-21 inherently encompass multiple infrastructure elements.

Achieving this vision of integrated deployment will require successful completion of several key research and development efforts, testing of sensor technologies, control systems, and the integration of these systems in addition to continued support for widespread deployment of Metropolitan ITS Infrastructure in metropolitan areas across the nation. Building on the legacy of ISTEA and TEA-21, the future direction for Metropolitan ITS Infrastructure points toward continued deployment and a special focus on integration. The success of Metropolitan ITS Infrastructure hinges, to a great extent, on integrating traffic management systems, advanced public transportation systems and advanced traveler information systems.

Many research and development projects and operational tests have brought advances in understanding the approaches to, and benefits of, integrating Metropolitan ITS Infrastructure. The culmination of this effort was the establishment of the Metropolitan Model Deployment Initiative Program in which four sites were selected to become deployment showcases of fully integrated, Metropolitan Intelligent Transportation Infrastructure. These model deployments, now completed, demonstrated the benefits of integrated transportation management systems featuring effective regional, multimodal traveler information services.

One of the unique advances fostered by the ITS Program is innovation in collecting and distributing expanded information for both “pre-trip” and “en-route” travelers. One of the goals of this effort is to increase availability of real-time and current status of transit information. In many cases, these travel information systems are multimodal, providing both roadway and transit system performance information. These sources of information enable travelers to make informed choices based on up-to-date relevant data. These capabilities can also support personal and public agency efforts to reduce demand and increase vehicle occupancy.

A key feature of many regional travel information projects is the participation of private sector companies interested in marketing traveler information. The creation of viable public-private partnerships in these projects is highly valuable, and the eventual success of such partnerships is a key goal of deployment.

The ITS Program for Public Transit encompasses a number of technologies aimed at increasing the use, operational efficiency and cost effectiveness of the services provided by public transit agencies. The scope of these operations nationwide includes approximately 6,000 agencies operating more than 100,000 vehicles. These operations support more than 9 billion trips annually.

The Advanced Public Transportation Systems applications have been developed principally to support the needs addressed in three components of the Metropolitan ITS Infrastructure: Transit Management Systems, Regional Multimodal Traveler Information, and Electronic Payment Systems. The functional applications encompassed by these components are Fleet Management, Transit Traveler Information, and Electronic Payment Systems.

Fleet Management Systems are primarily directed at improving the operations and productivity of transit agencies and the safety of their passengers. Transit Traveler Information utilizes several technologies for the dissemination of transit information that facilitates and encourages the use of public transportation. Electronic Payment Systems focus on integrating transportation payment systems to improve traveler convenience and reduce operating costs.

In addition to operational tests, there have been a number of full-scale deployment projects employing ITS technologies. These have been concentrated in Fleet Management Systems derived from earlier operational test/deployment results and the Federal Transit Administration’s research and development program.

Of 593 transit agencies completing surveys in 2002, seventy-five percent had deployed automated transit information. Over 45 percent had deployed advanced communications with an additional 15 percent planning to deploy advanced communications. An increasing number of transit agencies either have, or are in the process of deploying fleet management systems. For example, 171 agencies plan to deploy automatic vehicle location technology which represents over one-fourth of those agencies completing the survey. The motivation for these initiatives is found in the significant benefits to be derived in improved passenger safety, reduced operating costs, and improved customer service resulting from enhanced schedule adherence. Transit agencies are continuing to deploy ITS transit technologies. It has been estimated that the projected benefits of all ITS transit deployments that are currently operational, under implementation or planned for deployment over the next ten years are valued at $6.7 billion. Some operational tests build on deployed automatic vehicle location systems to reap the benefits of integration with sources of traveler information, traffic management centers, and other components of metropolitan infrastructure.

Another important activity in many transit properties, including several operational tests, is to test new ways of giving the traveling public transit information. Transit operators are well aware that the traditional printed schedule is difficult to read and a disincentive to the use of public transit. A wide variety of techniques are being tested to determine how to communicate to the public and to increase the number of people using transit. These technologies span a broad range of approaches because one technique will not serve all segments of the riding public.

Effective implementation of travel management improvements through use of ITS cannot be fully achieved by implementing stand-alone projects. Especially in metropolitan areas, an integrated program of linked, complementary projects covering areas such as traffic control, freeway and incident management, transit management, and traveler information is necessary to maximize benefits while minimizing costs. Transit operators are striving to provide customers and potential customers reliable, accurate, and timely information. To date, several of these integrated programs have been supported with Federal ITS funds, as described in this chapter under “Integrated Programs.” These programs are more comprehensive in scope, size, and objectives than individual projects.

To support moving ahead with greatly expanded deployment of ITS using regular Federal-aid and other state/local funding, the U.S. DOT initiated the Model Deployment Initiative. The metropolitan area Model Deployment Initiatives were intended to support integrated transportation management systems, and feature a strong, regional, multimodal traveler information services component. These model deployment sites demonstrated and showcased the measurable benefits resulting from the application of an integrated, region-wide approach to transportation management and the provision of traveler information services. The model deployment sites provided improved transportation management and increased levels of service to the traveling public, businesses, and commercial carriers through the integration of the traditional functions of traffic signal control; transit, freeway, and incident management; emergency services management; regional, multimodal traveler information services; and electronic toll and fare payment. In addition to introducing the public to the benefits of ITS products and services, the sites continue to serve as “showcases” for key local decision makers across the U.S., and support peer-to-peer interaction and seminars focused on the benefits of ITS infrastructure investments by both the public and private sectors. The model deployment sites also provide a setting for conducting rigorous evaluations of the benefits of an integrated metropolitan area ITS infrastructure.

The final synthesis report summarizing the lessons learned from the evaluations of the Metropolitan Model Deployment Initiative sites was released in February 2002. The document titled “Deploying and Operating an Integrated Intelligent Transportation System: Twenty Questions and Answers” in addition to summarizing lessons learned from the extensive evaluations conducted at Metropolitan Model Deployment Initiative sites, the document takes a unique look at the status and direction of the deployments five years after the inception of the program.

The TEA-21 ITS Deployment Program

A major component of TEA-21 is the Intelligent Transportation Systems Deployment Program. The ITS Deployment Program is comprised of two subprograms: The ITS Integration Program and the Commercial Vehicle Infrastructure Program. The ITS Integration Program’s goal is to increase integration and interoperability of Intelligent Transportation Systems in metropolitan and rural areas. Deployment/Integration projects with start dates late in fiscal years 1998, 1999, 2000, 2001, 2002, and 2003 are ITS Integration Program projects. In addition to the project definitions discussed above, projects will be grouped under statewide and/or regional integration categories. In cases where ITS integration projects do not cover wide geographic areas, they are categorized as individual projects under Integrated Systems.

The Commercial Vehicle Infrastructure Program is aimed at improving the safety and productivity of commercial vehicles and drivers, as well as reducing the costs associated with Federal and state regulatory requirements.

As authorized in TEA-21, the ITS Deployment Program is a discretionary program to be competitively awarded to states and local jurisdictions. However, each year since the enactment of TEA-21, Congress has designated areas to receive ITS Deployment Program funding as part of the annual appropriations process. While U.S. DOT does not advocate the “earmarking” of the ITS Deployment Program, the Department has established an oversight process to ensure that these funds are used in compliance with the requirements of TEA-21.

The National ITS Program has tailored the eight ITS Program strategies used to achieve ITS Program goals to the deployment of integrated ITS infrastructure. These eight strategies are discussed in detail in The National Intelligent Transportation Systems Program Plan – Five Year Horizon, and summarized below:

Conducting Research - U.S. DOT is conducting research on the next generation of traffic and transit management technologies. Examples of technical applications being pursued include adaptive control systems that change signal timing in response to traffic conditions, dynamic control systems which rely on historical patterns to predict traffic conditions and optimal regional management. A major undertaking is in the development of modeling and analytical tools to support transportation planning. Transit management research is oriented on fleet management systems, electronic fare payment, and traveler information for transit operations.

Accelerating the Deployment of Standards - Of the many standards with potential application in metropolitan settings, two are exceptionally important - the National Transportation Communications for ITS Protocol (NTCIP), and the Transit Communications Interface Profiles (TCIP). NTCIP is a family of standards that allow transportation system managers to monitor, control, and manage roadway devices ranging from traffic signals to ramp meters. TCIP provides interfaces among transit applications that enable data sharing among transit agencies and other transportation system facilities such as regional traffic management centers. Through a combination of approaches, ranging from outreach to stakeholders to conducting research and testing activities, U.S. DOT is vigorously supporting the deployment of ITS standards to assist sites migrating from legacy systems to new systems incorporating ITS standards.

Building Professional Capacity - The Professional Capacity Building (PCB) program provides an opportunity for those agencies and individuals who are involved with ITS to enhance knowledge, skills and abilities. The PCB program presents a synergy of training, education, technical assistance and information outreach that can be effectively utilized to advance ITS metropolitan infrastructure deployment and integration. The PCB program offers a wide range of courses that address various aspects of the deployment process as well as a variety of institutional, technical, modal (transit, commercial vehicle, etc.) and geographical (metropolitan to rural) aspects. New courses are constantly being added to the PCB curriculum and existing courses are regularly updated. The PCB program continues to work with the National Highway Institute (NHI), the National Transit Institute (NTI), the Consortium of ITS Training and Education (CITE), Institute of Transportation Engineers (ITE), ITS America (ITSA) and others to broaden and strengthen the ITS curriculum, as well as to enhance the accessibility of training, technical assistance and information.

Creating Funding Incentives - As authorized in TEA-21, the ITS Deployment Program is a discretionary program to be competitively awarded to the states and local jurisdictions. Each year since the enactment of TEA-21, Congress has designated areas to receive ITS Deployment Program funding as part of the annual appropriations process. U.S. DOT has established an oversight process to ensure that these funds are employed in compliance with the intent and requirements of TEA-21.

Providing Guidance and Technical Assistance - U.S. DOT provides specialized technical support to jurisdictions planning to deploy integrated ITS through its Federal field staff, through publication of guidance documents on best practices for ITS metropolitan deployment, and with the ITS Peer-to-Peer Program. This program, which allows stakeholders to learn about ITS implementation from one another, is comprised of professionals from the public sector who are on call to provide short-term, no-cost technical assistance to transportation colleagues throughout the nation.

Ensuring Conformance with the National ITS Architecture and Standards - Interim guidance for ensuring National ITS Architecture and Standards conformance was disseminated in 1999, but has now been superseded by a rule that requires the development of regional ITS architectures. The rulemaking process culminated in January of 2001 with both a Rule (FHWA) and a Policy (FTA) that addresses the TEA-21 requirement that ITS projects funded through the highway trust fund conform to the National ITS Architecture and applicable standards. Regional ITS architectures help guide the integration of ITS components and ensure that all are compatible with one another and with future ITS projects. In addition, the Rule and Policy require the use of U.S. DOT-adopted ITS standards as appropriate. However, no ITS standards have been adopted by the U.S. DOT to date.

Evaluating the Program - Program evaluation is essential for understanding the value and effectiveness of ITS implementation and for measuring progress toward deployment goals. Tracking the deployment of metropolitan ITS infrastructure complies with the Government Performance and Results Act and fosters continual refinement of both the National ITS Program and the metropolitan ITS component. A significant number of metropolitan ITS field operational tests, upon completion, have contributed findings into the ITS cost and benefits databases. A significant source of information about the impacts of ITS deployments are the evaluation results of the Metropolitan Model Deployment Initiatives.

TEA-21 projects conducted under the ITS Deployment Program are being evaluated through mandatory self-evaluations conducted by resources within their project management teams. A limited number of these projects will be evaluated each year of TEA-21 authorization by evaluation teams contracted by the ITS Joint Program Office (ITS JPO). These JPO-funded evaluations are conducted on projects judged to provide lessons learned and benefits information in areas where the ITS Program has compelling information needs, and has, to date, accumulated only limited data. Evaluation results from these projects will make major contributions to ITS cost and benefits databases.

Showcasing Benefits - Under ISTEA, U.S. DOT financed model deployment sites in four metropolitan areas around the country to provide real-life examples of ITS potential and to demonstrate the benefits of integration. The four sites - Phoenix, Seattle, San Antonio, and the New York/New Jersey/Connecticut metropolitan area - continue to showcase the benefits of metropolitan ITS technologies under TEA-21. These sites have brought together public and private sector partners to integrate existing infrastructure with new traveler information systems. They have deployed and integrated applications for managing traffic and transit, for integrating emergency services, and for providing real-time transportation information to travelers. These deployments were evaluated and categorized as completed projects.

Results from the Metropolitan Model Deployment Initiative sites will be combined with evaluation findings in the TEA-21 ITS Integration Program evaluations, both the self-evaluations and the JPO-sponsored evaluations, to develop products documenting the benefits of integrated deployments of metropolitan ITS infrastructure