Task 7 Oahu ITS Integration Strategy

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2 Deliverable for: Oahu Regional ITS Architecture Project Task 7 Oahu ITS Integration Strategy Deliverable VII-1 Final Submitted to: Oahu Metropolitan Planning Organization Submitted by: Parsons Brinckerhoff April 2003

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4 The preparation of this document was financed in part through grants from the U.S. Department of Transportation, Federal Transit Administration and Federal Highway Administration, under Chapter 53 of 49 U.S.C. and 23 U.S.C. The contents of this document do not necessarily reflect the official views or policies of the U.S. Department of Transportation. i

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6 Table of Contents TABLE OF CONTENTS LIST OF FIGURES... v LIST OF TABLES... vi LIST OF ACRONYMS...vii 1. INTRODUCTION Project Purpose Plan Purpose Intended Audience Key Concepts What is an Intelligent Transportation System? What is an Integration Strategy? FHWA Rule & FTA Policy Organization PROJECT APPROACH Integrate and Expand Regional ITS Architecture Develop Agency Concensus Participating Agencies Memorandum of Understanding Integration with Existing Plans INTEGRATION CONSIDERATIONS Funding Staffing Education and Training Staffing Levels Standards Adoption Technical Resource Standardization Mainstreaming ITS into Traditional Planning Process Regional Transportation Plan Transportation Improvement Program and Project Selection Other Planning Activities SUPPORTING POLICIES Policy on Archived Data Policy on Regionally Coordinated Transportation Operations During Incidents and Emergencies Policy on Efficient Operations iii

7 Table of Contents 4.4 Policy on Video Sharing Policy on ITS Architecture Maintenance Policy on Implementing a Regional Advanced Traveler Information System Policy on Hi-Technology Procurement Policy on ITS Asset Preservation Policy on Sharing ITS Infrastructure REGIONAL ITS INITIATIVES Considerations for Initiative Prioritization Initiative Sequencing Architecture Implementation FUNDING NEEDS AND SOURCES Funding Needs Planning and Design Project Capital Communications Operations and Maintenance Training Funding Sources Federal Congestion Mitigation and Air Quality (CMAQ) State and Local Partnerships ITS Earmarks Transportation Security Administration (TSA) Grants NEXT STEPS APPENDIX A: ITS TERMINOLOGY APPENDIX B: MEMORANDUM OF UNDERSTANDING iv

8 List of Figures LIST OF FIGURES Figure 2.1: Oahu Regional ITS Architecture Project Development Process...5 Figure 5.3: Oahu Regional ITS Architecture Short-Term and Mid-Term Architecture Diagram...29 v

9 List of Tables LIST OF TABLES Table 2.2: Table 5: Table 5.3A: Table 5.3B: Table 5.3C: Table 5.3D: Table 5.3E: Table 5.3F: Table 5.3G: Table 5.3H: Table 5.3I: Table 5.3J: Table 5.3K: Oahu Partner Agencies...8 Regional ITS Initiatives & Market Package Traceability...26 Synopsis of the Emergency Agency CAD Integration for Traffic Management Agencies Initiative (ST1)...31 Synopsis of the Traffic Volume Archive and Data Sharing Initiative (ST2)...32 Synopsis of the Video Integration with Emergency Response Agencies Initiative (ST3)...33 Synopsis of the Individual Agency ISP Integration Initiative (ST4)...34 Synopsis of the Transit Vehicle Signal Priority Implementation Initiative (SMT1)...35 Synopsis of the Emergency Vehicle Signal Pre-emption Expansion Initiative (SMT2)...36 Synopsis of the Freeway Management System Software Integration for Partner Agencies Initiative (SMT3)...37 Synopsis of the ITS Architecture Expansion Initiative (SMT4)...38 Synopsis of the Regional Telecommunications Assessment Initiative (SMT5)...39 Synopsis of the Emergency Agency CAD Integration Initiative (MT1)...40 Synopsis of the Congestion Data Integration with Emergency Agencies Initiative (MT2)...41 Table 5.3L: Synopsis of the Data Fusion for Dissemination Initiative (MT3)...42 Table 5.3M: Synopsis of the Regional Archive Data Implementation Initiative (MT4)...43 Table 5.3N: Synopsis of the Traffic Signal System Integration Initiative (MT5)...44 vi

10 List of Acronyms LIST OF ACRONYMS ANSI American National Standards Institute ASTM American Society for Testing and Materials ATIS Advanced Traveler Information System AVL Automatic Vehicle Location CAD Computer Aided Dispatch CCTV Closed Circuit Television CMAQ Congestion Mitigation and Air Quality CVISN Commercial Vehicle Information Systems and Networks DDC Department of Design & Construction DIT Department of Information Technology DMS Dynamic Message Sign DOT Department of Transportation DTS Department of Transportation Services EIA Electronics Industry Alliance FHWA Federal Highway Administration FMS Freeway Management System FTA Federal Transit Administration GIS Geographic Information System HDOT Hawaii Department of Transportation HESD Honolulu Emergency Services Department HFD Honolulu Fire Department HPD Honolulu Police Department HTA Hawaii Transportation Association IEEE Institute of Electrical and Electronics Engineers ITE Institute of Transportation Engineers ISTEA Intermodal Surface Transportation Efficiency Act of 1991 ITS Intelligent Transportation Systems MOU Memorandum of Understanding MT Mid-term NHS National Highway System NTCIP National Transportation Communications for ITS Protocol OCDA Oahu Civil Defense Agency OMPO Oahu Metropolitan Planning Organization OTS Oahu Transit Services ROM Rough Order of Magnitude RTP Regional Transportation Plan RTTSL Real-time Traffic Surveillance Laboratory vii

11 List of Acronyms SAE Society of Automotive Engineers SDO Standards Development Organization SMT Short- and Mid-term ST Short-term STIP Statewide Transportation Improvement Plan STP Surface Transportation Program TBD To Be Determined TEA-21 Transportation Equity Act for the 21 st Century TIP Transportation Improvement Plan TOP 2025 Transportation for Oahu Plan for 2025 TSA Transportation Security Administration UPS United Parcel Service USDOT United States Department of Transportation viii

12 Introduction 1. INTRODUCTION The preparation of the Oahu Intelligent Transportation System (ITS) Integration Strategy Plan, presented here forth, was completed under the guidance of the Oahu Metropolitan Planning Organization (OMPO) with the participation and support of Oahu s transportation agencies. The Oahu ITS Integration Strategy Plan is the second of two documents that comprise the Oahu Regional ITS Architecture Project. The first document, the Oahu Regional ITS Operational Concept and Physical Architecture (April 2003) provides the who, what, when, and how of existing and desired regional ITS operations on Oahu. This document builds on the Operational Concept and Physical Architecture in an effort to guide implementation of integrated ITS on Oahu. Together, these two documents fully address all of the requirements outlined in the Federal Highway Administration s (FHWA) Final Rule and Federal Transit Administration s (FTA) Policy on applying the National ITS Architecture on the regional level. 1.1 PROJECT PURPOSE The purpose of the Oahu Regional ITS Architecture Project is to develop a framework for institutional coordination and technical integration of ITS-related systems on Oahu. This framework will enhance current traffic and transportation operations on Oahu which, consequently, will improve traveler safety and mobility and reduce traffic delays and operational costs. The Oahu Regional ITS Architecture Project conforms to the National ITS Architecture - which ensures that funds for ITS projects can be secured in the future. 1.2 PLAN PURPOSE The Oahu ITS Integration Strategy Plan provides the framework for efficient, cost-effective integration of ITS systems on the island of Oahu. The Oahu ITS Integration Strategy Plan completes the operational vision defined in the Oahu Regional ITS Operational Concept and Physical Architecture by identifying a series of regional ITS initiatives and policies. Regional ITS initiatives are sequenced based on current and planned ITS deployments, costs and benefits, technical feasibility, institutional issues, and readiness of proposed projects. In addition to these objectives, the Oahu ITS Integration Strategy Plan accomplishes the following: Summarizes opportunities for regional integration of ITS services and functions; Identifies potential policies that are required to foster regional ITS integration; Provides high-level descriptions of projects identified during architecture development that can satisfy regional needs over the next seven years; Describes project selection rationale; Estimates project implementation costs; and Identifies potential funding sources for projects. 1

13 Introduction 1.3 INTENDED AUDIENCE Agencies that implement ITS on the island of Oahu will use the Oahu ITS Integration Strategy Plan as a guide for successful and efficient deployment of ITS systems. Besides the agencies implementing ITS, this plan will benefit and assist transportation officials involved with ITS implementation and those wishing to learn more about ITS implementation on Oahu. 1.4 KEY CONCEPTS Before reading the remainder of this document, it will be helpful to understand a few key concepts. These concepts provide the foundation from which this document is written and based. Several other terms frequently referenced in this document are defined in Appendix A What is an Intelligent Transportation System? An ITS is a collection of technologies or systems (e.g., advanced sensors, computers, communication systems) that enable multiple agencies to work together to collectively manage the entire regional transportation network. Among other things, an ITS increases roadway capacity without adding lanes and alerts drivers en-route and pre-trip to conditions (e.g., weather, construction, accidents) affecting travel. The ITS on Oahu will improve traffic congestion, internal agency operations, emergency response, dissemination of traffic-related information to the public, and several other aspects that enhance transportation mobility and safety What is an Integration Strategy? An Integration Strategy identifies an effective process for deploying and operating current and planned ITS technologies in a cost-effective, practical manner. On Oahu, this process will enable agencies to make better use of their respective ITS elements - thereby obtaining more benefit from a fixed investment. The Oahu ITS Integration Strategy Plan defines an effective process for deploying and operating ITS elements through nine policy initiatives and fourteen ITS project initiatives. These policies and initiatives are described in Sections 4 and 5, respectively. 1.5 FHWA RULE & FTA POLICY In early 2001, the United States Department of Transportation (USDOT) announced the Additional FHWA Rule/FTA Policy information at: release of the final FHWA rule and the FTA policy for applying the National Architecture at the regional level. This Rule/Policy requires regions that are funding ITS projects through the National Highway Trust Fund to develop a Regional ITS Architecture that complies with the National ITS Architecture. Regions that had deployed an ITS project prior to April 8, 2001 are required to develop a regional ITS architecture within four years of this date (i.e., April 8, 2005). Areas yet to deploy an ITS project are required to have a regional ITS 2

14 Introduction architecture developed within four years of the first deployment. ITS projects that are not funded through the National Highway Trust Fund are exempt from the Rule/Policy. If a region has not developed a regional architecture before the April 8, 2005 deadline, or four years after the first ITS deployment, no new ITS projects can advance if they are funded by National Highway Trust Funds. Projects can only advance when the regional architecture is finished, and if the project can show conformance with the regional ITS architecture. Section 940.9D of the Policy/Rule states that a regional ITS architecture shall include, at a minimum, the following: 1. A description of the region; 2. Identification of participating agencies and other stakeholders; 3. An operational concept that identifies the roles and responsibilities of participating agencies and stakeholders in the operation and implementation of the systems included in the regional ITS architecture; 4. Any agreements (existing or new) required for operations including, at a minimum, those affecting ITS project interoperability, utilization of ITS-related standards, and the operation of the projects identified in the regional ITS architecture; 5. System functional requirements; 6. Interface requirements and information exchanges with planned and existing systems and subsystems (for example, subsystems and architecture flows as defined in the National ITS Architecture); 7. Identification of ITS standards supporting regional and national interoperability; and 8. The sequence of projects required for implementation. In addition to the above requirements, the final rule and policy also require regions to develop ITS projects using a systems engineering approach. This will ensure that various aspects of the project (e.g., system planning, design, procurement, deployment, operations, maintenance, expansion, and retirement) are considered to ensure successful deployment and operation. The Oahu Regional ITS Architecture Project has addressed requirements 1-6 in the Oahu Regional ITS Operational Concept and Physical Architecture Document. This document covers items 7 through 8 of the policy/rule requirements, and provides a process participating agencies can follow to implement and integrate ITS systems on Oahu. 1.6 ORGANIZATION The Oahu ITS Integration Strategy Plan consists of an introduction (Section 1) and five additional sections. An overview of Sections 2 through 7 is provided below. Section 2: Project Approach This section provides an overview of the approach taken to develop the Oahu ITS Integration Strategy Plan. 3

15 Introduction Section 3: Integration Considerations This section describes issues that may indirectly affect the success of ITS integration. Recommendations with regard to these issues are provided in an effort to ensure successful integration. Section 4: Supporting Policies Building on Section 3, this section describes the specific issues that should be addressed prior to the integration of ITS projects. These issues are addressed through nine polices that will support regional agencies in their goals of achieving successful ITS integration. Section 5: Regional ITS Initiatives This section provides several project integration initiatives, each comprised of a set of specific projects that can be implemented on the island of Oahu within the next seven years. Each initiative is classified by one of three terms in which project implementation is recommended: short-term, mid-term, or short- and mid-term. The criteria used to develop the Regional ITS Initiatives are discussed, as is the sequence recommended for initiative implementation. Section 6: Funding Needs and Sources This section identifies the various Federal, Local, and Special funding sources that can be used to support ITS integration. A description of each source is provided, including the requirements regional agencies must abide by in order to receive funding. Section 7: Next Steps This section briefly states what steps partner agencies should take to ensure successful implementation and integration of ITS components. Appendix A: ITS Terminology Appendix B: Signal Operations MOU (Amendment 1 to the Signal Operations MOA) 4

16 Project Approach 2. PROJECT APPROACH This section describes the general approach taken to develop the Oahu ITS Integration Strategy Plan. The development of this plan is based on a nationally accepted approach and is in conformance with the National ITS Architecture. For additional information on developing a regional ITS architecture refer to: INTEGRATE AND EXPAND REGIONAL ITS ARCHITECTURE As illustrated in Figure 2.1, the Oahu ITS Integration Strategy Plan builds on the Oahu Regional ITS Operational Concept and Physical Architecture. The Oahu ITS Integration Strategy Plan provides specific actions needed to successfully integrate systems. Each interconnect (i.e., instance where an information flow is shared between agencies) in the Oahu Regional ITS Architecture represents a point where systems integrate to exchange information. Each integration point may require that agencies enter into a Memorandum of Understanding (MOU), or other formal agreement, to determine funding, maintenance, and operational responsibilities. It is at the discretion of the participating agencies to determine the need for MOUs. Figure 2.1: Oahu Regional ITS Architecture Project Development Process 5

17 Project Approach As stated in the Oahu Regional ITS Operational Concept and Physical Architecture Document, six regionally significant market packages were selected for Oahu. A Market Package is a group of entities (subsystems, equipment packages, and terminators) that work together to deliver a transportation service. The nine policy and fourteen project initiatives discussed later in this document will help ensure the successful implementation of each of these market packages. ITS Data Warehouse Market Package This market package provides broad access to multi-modal, multi-dimensional data from varied data sources. The market package provides this access using enhanced interoperability between physically distributed ITS archives that are each locally managed. On Oahu, there is a strong interest in taking measured steps to implement a regional archive system with initial steps focused on broad use, simple applications. The Hawaii Department of Transportation (HDOT) and the City and County of Honolulu s Department of Information Technology (DIT) are the focal points for primary collection and distribution of regional ITS archive data. Broadcast Traveler Information Market Package This market package provides a basic set of Advanced Traveler Information System (ATIS) services. It involves the collection of traffic conditions, advisories, general public transportation, parking information, incident information, and weather information; and the near real-time dissemination of this information over a wide area through existing infrastructures and low-cost user equipment (e.g., FM subcarrier, cellular data broadcast). Various levels of ATIS services already exist on Oahu - with HDOT, the City and County of Honolulu Department of Transportation Services (DTS) and the Oahu Transit Services (OTS) being the predominant providers. Enhancement focuses on expansion of core data sources and improved integration of these services to better serve Oahu s transportation system users. Regional Traffic Control Market Package This market package provides for the sharing of traffic information and control among traffic management centers to support a regional control strategy. The nature of optimization and extent of information and control sharing is determined through working arrangements between jurisdictions. Several levels of coordination are supported - from sharing of information through sharing of control between traffic management centers. HDOT and DTS are the predominant traffic management agencies on Oahu. Regional traffic control is focused on enhanced integration of these agencies existing and planned systems and services. Incident Management System Market Package This market package manages both predicted and unexpected incidents so that the impact to the transportation network and traveler safety is minimized. This market package also provides Traffic Management equipment that supports traffic operations personnel in developing an appropriate response in coordination with emergency management and other incident response personnel to confirmed incidents. The response may include traffic control strategy modifications and presentation of information to affected travelers using the Traffic Information Dissemination market package. The same equipment assists the operator by monitoring incident status as 6

18 Project Approach the response unfolds. The coordination with emergency management might be through a computer-aided dispatch (CAD) system or through other communication with emergency personnel in the field. The coordination can also extend to tow trucks and other service personnel in the field. On Oahu, extensive core infrastructure is already in place; and the primary agencies are actively pursuing enhancements to their individual systems as well as integration of those systems. HDOT, DTS, and the City and County of Honolulu s Police Department (HPD), Fire Department (HFD), and Honolulu Emergency Services Department (HESD) are the primary Incident Management organizations. HDOT s upcoming freeway service patrol program provides an opportunity for enhanced interagency coordination. Emergency Response Market Package The Emergency Response market package provides the CAD systems, emergency vehicle equipment, and wireless communications that enable safe and rapid deployment of appropriate resources to an emergency. Coordination between Emergency Management Subsystems supports emergency notification and coordinated response between agencies. The Emergency Management Subsystem may include hardware and software for tracking the emergency vehicles. Public safety, traffic management, and many other allied agencies may each participate in the coordinated response managed by this package. HPD, HFD, HESD, and the Oahu Civil Defense Agency (OCDA) are the predominant providers of emergency response services on Oahu - with OCDA becoming active during major emergency events. These agencies have extensive core infrastructure for regional communications, CAD, and automatic vehicle location (AVL) applications (HPD does not have AVL). Continued agency system enhancements, as well as interagency integration, are key initiatives for these Oahu-based emergency responders. Emergency Routing Market Package Emergency Routing supports dynamic routing of emergency vehicles and coordination with Traffic Management Subsystems for special priority on the selected route(s). The Emergency Vehicle may be equipped with dedicated short-range communications for local signal pre-emption. Emergency vehicle pre-emption is the predominant form of this market package, as it currently exists on Oahu. Continued expansion of the system is a key goal of the emergency response agencies. Increased integration with HDOT and DTS is a supporting initiative. 2.2 DEVELOP AGENCY CONCENSUS Before inter-agency systems can be integrated, regional needs and potential operational agreements between agencies must be defined through agency outreach and, where needed, MOUs Participating Agencies Agency outreach consisted of one-on-one interviews, group meetings, and periodic reviews of draft documents. OMPO spearheaded the effort to develop a regional ITS architecture for Oahu and, as such, helped ensure that the following agencies were contacted so their input 7

19 Project Approach could be reflected in the Oahu ITS Integration Strategy Plan. The Oahu Regional ITS Architecture Project included outreach to several agencies that do not directly manage the transportation system or respond to emergencies but are significant users of the system or provide special support during certain events (e.g., United Parcel Service (UPS), Navy Region Hawaii, etc.) and private users of the transportation system (e.g., private commercial vehicle community through the Hawaii Transportation Association (HTA). Table 2.2 provides a list of partner agencies who directly participated in the interview process and group meetings and account for the majority of ITS systems on Oahu. City & County of Honolulu Table 2.2: Oahu Partner Agencies State of Hawaii Department of Information Technology (DIT) Department of Design & Construction (DDC) Department of Transportation Services (DTS) Honolulu Emergency Medical Services Department (HESD) Department of Transportation (HDOT) 1 Oahu Metropolitan Planning Organization Honolulu Police Department (HPD) Honolulu Fire Department (HFD) Oahu Civil Defense Agency Memorandum of Understanding Memorandum of Understanding documents between agencies were considered to foster the coordinated and cooperative planning, development, implementation, and operation of ITS systems and services in the Oahu metropolitan area. The MOU development effort can occur at various levels. For the Oahu ITS Architecture Project, a detailed MOU was developed for signal operations. A copy of the signal operation MOU is provided in Appendix B. In some regions, a high level agree to agree MOU may be needed amongst regional agencies, but this was not deemed necessary for the Oahu region. Endorsement of the Oahu Regional ITS Architecture, Operational Concept, and Integration Strategy, through the OMPO Policy Committee, represents a high level agreement between Oahu s transportation and emergency agencies to cooperatively support regional ITS deployment and integration and, subsequently, the operations and maintenance of these systems once they are in place. 1 Included planning, traffic, freeway operations, port and commercial vehicle representatives. 8

20 Project Approach 2.3 INTEGRATION WITH EXISTING PLANS Successful system integration on a regional level depends on how useful the Oahu ITS Integration Strategy Plan is perceived and whether or not it is widely accepted by local authorities. To maximize its usefulness and acceptance, the Oahu ITS Integration Strategy Plan was developed in accordance with existing regional plans, including the Transportation for Oahu Plan for 2025 (TOP 2025) and the traditional transportation planning process. Projects that are funded, and included in the Oahu Transportation Improvement Plan (TIP) and subsequently the Statewide Transportation Improvement Plan (STIP), formed the basis from which potential projects were identified and phased for integration. Some of these projects include the freeway management system (FMS), the freeway service patrol, and expansion of the City and County of Honolulu s Traffic Operations Center. 9

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22 Integration Considerations 3. INTEGRATION CONSIDERATIONS There are several issues that may indirectly affect the success of ITS project integration - including funding, staffing, standards adoption, and technical resource standardization. These issues, if not considered and addressed, will decrease the effectiveness of the individual agency as well as regional ITS planning and capital investments. 3.1 FUNDING Funding is the backbone for ITS implementation and integration. It is necessary for systems implementers to deploy ITS elements in the most effective manner. Adequate funding will ensure that proposed projects are deployed in a timely fashion. This, in turn, ensures that this Plan and the Oahu Regional ITS Operational Concept and Physical Architecture remain useful to regional agencies in the future. ITS funding will be needed for the following activities: Planning and design of new ITS elements Purchasing ITS infrastructure (field elements, communications, and computer hardware) Operations and maintenance Training and materials The funding needs and sources below are discussed in greater detail within Section STAFFING Staff education, availability, and retention are critical aspects of successful ITS operations and integration. Each agency that operates or is considering deployment of an ITS element on Oahu must identify a representative from its agency that will be responsible for operation and maintenance of that system. If, for some reason, this representative leaves the agency, it is wise to have additional staff trained so current operations are not affected. It is expected that individual agency staff will work closely with OMPO to coordinate ITS-related activities Education and Training The Oahu ITS Integration Strategy ITS Training Websites: Plan is most effective if it is understood by regional ITS system implementers. Therefore, it is critical that staff responsible for implementing, operating, and maintaining ITS elements be appropriately trained. For instance, systems engineers should have knowledge of the system engineering process, ITS standards and their applicability, ITS procurement process, communications requirements and needs for ITS deployments. Agencies may find it beneficial to develop staff skill matrices to quickly identify the skills or knowledge needed when staff leave. 11

23 Integration Considerations Staffing Levels Agency staff are needed to plan, deploy, operate and maintain ITS deployments on Oahu. It is critical that staff are available during development and integration of ITS systems, to ensure regional needs are fully addressed and costs associated with modifications are minimized. It is also critical that an appropriate number of staff are available to ensure systems are operated effectively, maintained and replaced accordingly. If staff are not available to perform these functions, maintenance issues may be ignored and systems may be operated in an inefficient manner. This may result in costly and otherwise unneeded replacements, and inefficient use of expensive resources. Agencies could consider hiring of outside contractors to fill empty positions. 3.3 STANDARDS ADOPTION Standards define how system components interconnect and interact with other systems within the region, and are an important consideration when deploying ITS components. Standards specifically state the requirements of each ITS component when integrated with another. Secondly, standards must be identified prior to implementing projects funded by the National Highway Trust Fund. The FHWA rule and FTA policy on Regional ITS Architectures states that, federally funded ITS projects use, where appropriate, USDOT adopted ITS standards. To date, the USDOT has not adopted any Standards Development Organizations: American National Standards Institute (ANSI) American Society for Testing and Materials (ASTM) Electronics Industry Alliance (EIA) Institute of Electrical and Electronics Engineers (IEEE) More information at: National Transportation Communications for ITS Protocol (NTCIP) Society of Automotive Engineers (SAE) Institute of Transportation Engineers (ITE) ITS standards. However, agreements have been made with seven Standards Development Organizations (SDOs) to develop and test over 100 standards. The SDO developed standards applicable to Oahu are identified in the region s Turbo Architecture database, which OMPO possesses. It is critical that the partner agencies on Oahu monitor the standards development process so that the USDOT approved standards can be included as the Oahu Regional ITS Architecture is updated. 3.4 TECHNICAL RESOURCE STANDARDIZATION Agencies on Oahu should standardize their technical resources as much as possible in an effort to reduce costs and increase ITS efficiency. Agencies operating different software platforms may wish to adopt a common or open platform to reduce the cost and time needed to train staff. Open or common software platforms will also ensure that files can be easily exchanged between agencies, thus reducing the need to reproduce similar data in different formats. The exchange of geographic information system (GIS) data between agencies, for 12

24 Integration Considerations example, will be more easily accomplished through a common software platform. Field equipment is another resource where standardization is likely to produce significant benefits. Similar to software platforms, standardization of field equipment will reduce the burden of having to train staff on varying pieces of equipment. In addition, standardization of field equipment will reduce maintenance costs, by reducing the number of parts that need to be ordered and kept in stock. Agencies should inventory their technical resources to determine the extent of their resources and any gaps that need to be filled. Individual agency inventories can be merged on a regional level to determine how individual agency gaps can be satisfied through outside agency resources. The merged list of resources will be of benefit during regional emergencies to identify the available resources that can be called upon to mitigate the effects of the emergency. 3.5 MAINSTREAMING ITS INTO TRADITIONAL PLANNING PROCESS The role and function of ITS on Oahu has expanded to address more and more complex transportation needs. Such needs include funding and environmental constraints. Federal law proscribes that the place where multi-modal transportation solutions, including ITS, should be identified is the regional transportation planning process. In many cases, the metropolitan planning organization is the logical place where this should occur, since this agency is typically charged with the development and maintenance of the regional transportation plan and improvement program. Numerous transportation planning activities on a statewide, regional, or local level feed information to the development of the regional transportation plan and improvement program. These planning activities include ITS strategic plans and regional ITS architectures, corridor and sub-area studies, major investment studies, congestion management plans, and others Regional Transportation Plan The Oahu regional transportation plan (RTP) is currently called the TOP This document is updated every 5 years, at a minimum, and is the product of the process for long-range transportation planning as mandated by federal statute. Like many regions across the United States, the TOP 2025 includes an ITS element. Over the next 25 years, Oahu has allocated $110 million for ITS-related projects. Future updates to the RTP should reference the Oahu Regional ITS Architecture as the framework for existing and planned ITS investments. When considering the elevation of ITS as an important part of its integrated regional plan, the policy objectives guiding the RTP should provide clear reference to the role ITS will play in meeting regional needs Transportation Improvement Program and Project Selection All projects that come out of the long-range RTP and are to be included in the TIP need to include, at a minimum, all projects that receive funding from the Federal Highway Trust Fund. Some areas include non-federally funded projects, as federal funds may be applied to the project at a later date. A process to develop a regional ITS architecture or strategic plan may provide the phasing sequence for projects which can form part of the TIP project prioritization process required to complete a TIP. 13

25 Integration Considerations The TIP project selection process may be the most opportune time to consider funding ITS projects. At this stage in the process, state, regional, and local agencies come together to determine how federal transportation dollars coming to the region will be apportioned. If ITS projects have been identified through the development of a regional ITS architecture or strategic planning process, because of the requirement for broad agency involvement, there may already be broad multi-agency support which may improve the odds for ITS projects. Ideally, projects funded through the TIP project selection process should come directly out of phasing elements of the RTP. However, this may not be possible due to funding constraints or other factors. Oahu is in the process of developing a process for the prioritization and selection of a list of projects for near-term implementation in the TIP. In other areas, if an MPO wanted to introduce ITS projects into the competitive process, it would consider a number of strategies: 1) Provide a certain percentage of funds to be allocated outright to ITS projects. This will guarantee some funding for ITS projects; though the danger is that, with an up-front set aside, funding for larger ITS projects may not be possible. 2) If all candidate projects, including ITS projects, must go through a competitive screening process, consider using project selection criteria that consider the positive aspects of ITS projects. These criteria could include: Project cost-effectiveness Implementation readiness Types of funds available and their applicability (e.g., ITS earmarks) Others In comparison to large complex capital projects, ITS projects can generally be lower in cost and easier to implement. MPOs may want to consider these and other positive project attributes when considering how to refine project selection-screening criteria to meet regional policy objectives Other Planning Activities Activities that feed projects into the RTP and TIP include corridor or sub-area plans, major investment studies, congestion management plans, and others. These efforts should consider the possible role, function, and general effectiveness of ITS as a general outcome of these studies. During the scoping phase of these activities, assessment of the ITS strategies should be addressed and incorporated into the project scope of work. Many of these plans or activities also may provide input into NEPA-required environmental impact statements, which require evaluation of low-cost demand and systems management strategies as alternatives to major capital investments. Many ITS strategies fall under the umbrella of demand and system management. These strategies may include advanced traveler information systems, ramp metering, optimized signal control systems, and others. 14

26 Supporting Policies 4. SUPPORTING POLICIES Integrating ITS across jurisdictional boundaries requires agencies to share a common set of goals and perspectives on the purpose of implementing integrated ITS. The following policies have been developed in support of deploying integrated, multi-modal ITS per the Oahu ITS Integration Strategy Plan. Depending on the policy, one or several partner agencies may be the agency(ies) responsible for implementing the actions or projects specified by the policy (i.e., HDOT may/ may not have the same responsibilities as the DTS, and vice versa). The following policies can be looked on as descriptions of the goals and perspectives shared by the regional ITS partner agencies. The nine policies are: A.1 Policy on Archived Data A.2 Policy on Regionally Coordinated Transportation Operations During Incidents and Emergencies A.3 Policy on Efficient Operations A.4 Policy on Sharing Video A.5 Policy on ITS Architecture Maintenance A.6 Policy on Implementing a Regional Advanced Traveler Information System A.7 Policy on Hi-Technology Procurement A.8 Policy on ITS Asset Preservation A.9 Policy on Sharing ITS Infrastructure To illustrate how the above policies support implementation of ITS on Oahu, each have been thoroughly described in Sections 4.1 through 4.9. These policies directly support priority regional market packages identified during the regional architecture development. Table 4 provides a summary of this policy to market package traceability. Table 4: Regional ITS Policy & Market Package Traceability SUPPORTING POLICIES A.1 Policy on Archived Data A.2 Policy on Regionally Coordinated Transportation Operations During Incidents and Emergencies ITS Virtual Data Warehouse (AD3) Broadcast Traveler Information (ATIS1) MARKET PACKAGES Emergency Response (EM1) Emergency Routing (EM2) Regional Traffic Control (ATMS07) A.3 Policy on Efficent Operations A.4 Policy on Sharing Video A.5 Policy on ITS Architecture Maintenance A.6 Policy on Implementing a Regional Advanced Traveler Information System A.7 Policy on Hi-Technology Procurement A.8 Policy on ITS Asset Preservation A.9 Policy on Sharing ITS Infrastructure Incident Management (ATMS08) 15

27 Supporting Policies 4.1 POLICY ON ARCHIVED DATA Policy A.1: ITS data from multiple agencies will be used in a regional data archive that will be deployed in a cost-effective manner. The Policy on Archived Data facilitates a cost-effective approach to a future regional data archive. Today, few agencies on Oahu have data archives; and those that do, have developed them to support their internal operating needs. This policy supports the development of individual agency data archives in a coordinated manner to ensure that the individual archives can be merged at some future date into a useful regional data archive. Key activities that are suggested in support of this policy include: 1. Partner agencies need to establish a working group to identify common data standards and protocols that, while deployed individually at each agency, will allow ready merger of the data into a regional archive. In addition, common data standards and protocols will allow for easy data sharing across agencies - which may mean that a physical regional data archive is not required. 2. For the long-term, partner agencies need to jointly develop a set of requirements each agency should follow when using the regional data archive (whether it is a physical or virtual archive). This shall include rules that dictate how agencies access, submit, and disseminate data. 3. Besides reaching an agreement on the requirements for data archive establishment and use, partner agencies also need to identify an approach to the cost and management responsibilities (i.e., which agency is going to be responsible for implementing, operating, and maintaining the regional data archive). There will be a need to maintain a regional data archive, whether it is a physical or virtual archive. 4. Partner agencies need to be able to identify which of their data will be made available on a regional basis. Some agencies archive sensitive information. They will be allowed to determine if this data will be made available to others, and how it might be formatted to avoid release of sensitive data. Benefits include: Reduced costs to deploy a regional data archive. The approach supported by this policy of individual agencies developing their own archives, and later merging the data into a regional archive, is a low-cost approach as compared to developing a regional data archive as a stand-alone project. Reduced data collection costs for planning and analysis. In the near future, ITS equipment and other automated sources will be the source of much of the data in an archive. Separate data collection efforts, as are conducted today, to collect data simply for planning or analysis purposes will no longer be needed. 16

28 Supporting Policies 4.2 POLICY ON REGIONALLY COORDINATED TRANSPORTATION OPERATIONS DURING INCIDENTS AND EMERGENCIES Policy A.2: ITS will be used to support a coordinated, multi-agency approach to the management of transportation assets, to improve incident and emergency operations. This policy furthers the regional, multi-agency, coordinated approach to managing the regional surface transportation network during incidents and emergencies, with the support of ITS. Specifically, this policy addresses the development of alternate route plans to mitigate incidents that occur on freeways or critical arterials. In addition, the plans need to include guidelines on dynamic message sign (DMS) messaging, public information, and signal timing plans to support the alternative routes. For major emergencies, this policy asks the regional partners to investigate means to use ITS to support evacuations and major closures, and to coordinate with the emergency response agencies (e.g., HPD, HFD, HESD, and OCDA) that are the principals in management of major emergencies. Key activities that are suggested in support of this policy include: 1. Partner agencies need to develop formal alternative routing plans to manage major incidents. The alternative routing plans need to include identification of ITS assets and operational approaches (both existing and needed) to implement the alternative routes. 2. Partner agencies need to identify regional ITS assets that may be used during an emergency. Assets include, but are not limited to: personnel, equipment (field devices, computer hardware and software, vehicles, and other resources), communications, and operations manuals and plans. Expanding this effort, partner agencies should identify the regional ITS assets that may be used during events affecting homeland security at harbors and ports on Oahu. 3. Partner agencies need to establish a standing committee of appropriate regional ITS and emergency response agencies to address these issues. Benefits include: Quicker emergency agency response to incidents. Emergency responders will be able to respond to incidents more quickly, as traffic delays to emergency vehicles will be mitigated. Reduced delays. The public will benefit from reduced delays due to incidents, as alternative routes will be able to alleviate a portion of the demand. Quicker movement of traffic. The public will benefit as traffic will move more quickly during emergencies and evacuations, as ITS will provide better public information. 17

29 Supporting Policies 4.3 POLICY ON EFFICIENT OPERATIONS Policy A.3: The operation of the regional, multi-modal transportation network will be optimized using ITS. The Policy on Efficient Operations emphasizes Oahu s commitment to getting the most out of their investment in ITS. It supports agencies in their efforts to maximize the transportation network s output using ITS. It additionally suggests that the regional surface transportation network be viewed as a single asset, and operational approaches be implemented that maximize the complete network s efficiency. In other words, one agency s system should not be operated at the expense of another s. The focus of this policy is on normal, day-to-day operations. Key activities that are suggested in support of this policy include: 1. Partner agencies need to establish regional performance measures for operations. 2. Partner agencies need to examine and upgrade standard operating procedures to improve performance. This would include periodic, systematic reviews of operations and operational approaches. Benefits include: Reduced traffic delay. The public would be assured that ITS systems are operating in the most effective means to minimize traffic delays on arterials and freeways. Improved transit schedule keeping. The public would benefit from improved transit schedule keeping, as travel times would become more reliable with improved operations. 4.4 POLICY ON VIDEO SHARING Policy A.4: Video images gathered from closed circuit television (CCTV) cameras deployed in ITS systems will be shared among all agencies that would benefit, within parameters established by the ITS partner agencies. The Policy on Video Sharing promotes sharing video images among agencies for their mutual benefit. Currently, HDOT and the City and County of Honolulu each operate CCTV systems on their own facilities. The video images that can be captured by the cameras may be useful to each other s operations. For example, city streets may be experiencing congestion. The video from the adjacent freeway could be panned over to allow viewing of the situation on the surface streets. This means that staff need not be sent into the field as often to determine if there is a signal malfunction, unusual traffic, accident, or other anomalies - as they can assess the situation from their offices. 18

30 Supporting Policies In addition, video images are very useful to emergency responders. Without video, an emergency responder must arrive at a scene to visually assess the situation. Often, the visual assessment results in the dispatch of additional equipment and resources. With video, the visual assessment can occur at the dispatch center as soon as an emergency call is received, thus speeding the appropriate response. Key activities that are suggested in support of this policy include: 1. Partner agencies need to develop protocols for operating cameras and disseminating video imagery. These protocols should address the following issues: Partner agencies need to collectively define the specific protocols that must be followed when assuming control over the CCTV network. This includes identifying the circumstances in which agencies can assume control (i.e., major incidents, natural disasters, normal operations). Partner agencies need to agree upon the appropriate uses for, and ownership of, video images that are available to regional agencies. They also need to address providing video to the media; and whether there will be any charge for the images. (In other regions, agencies do not charge for video; while some agencies assess a one-time charge for the equipment needed to disseminate the video; and still others assess monthly charges.) Benefits include: Incident mitigation. Emergency personnel will be able to quickly identify and verify incidents and appropriately deploy the needed equipment, materials, and personnel to the scene. This will minimize the incident effect on the local transportation network, and thus reduces associated traffic delays. Reduced traffic delays. Video sharing will reduce the time to discover and assess surface street operational anomalies. This greatly benefits regional agencies and motorists through quick response to and clearance of incidents. 4.5 POLICY ON ITS ARCHITECTURE MAINTENANCE Policy A.5: The region will establish a method for maintaining the ITS Architecture to ensure that eligibility for Federal transportation funding is maintained. USDOT Rule 940 on regional ITS architectures, Section 940.9(F), states that agencies and other stakeholders participating in the development of the regional ITS architecture shall develop and implement procedures and responsibilities for maintaining it (the architecture) as needs evolve within the region. The policy on ITS architecture maintenance for Oahu suggests an approach to comply with USDOT Rule 940. This will ensure that the region can continue to use Federal funds for ITS projects, and also will ensure that the Oahu Regional ITS Architecture does not become obsolete. 19

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