Local evaluation report

Local evaluation report

Material Information

Local evaluation report I-275 dynamic message sign system
Portion of title:
I-275 dynamic message sign system
Alternate Title:
Interstate 275 dynamic message sign system
Pietrzyk, Michael C
University of South Florida -- Center for Urban Transportation Research
Place of Publication:
[Tampa, Fla.]
University of South Florida, Center for Urban Transportation Research
Publication Date:
Physical Description:
1 online resource (19 leaves) : ill., maps. ;


Subjects / Keywords:
Intelligent transportation systems -- Florida -- Saint Petersburg ( lcsh )
Traffic signs and signals -- Florida -- Saint Petersburg ( lcsh )
non-fiction ( marcgt )


General Note:
Title from e-book t.p. (viewed Sept. 1, 2011).
General Note:
"November 28, 2001."
General Note:
"USF/CUTR account no. 21-17-455-L.O."
Statement of Responsibility:
prepared by Center for Urban Transportation Research, College of Engineering, University of South Florida ; principal investigator, Michael C. Pietryzk.

Record Information

Source Institution:
University of South Florida Library
Holding Location:
University of South Florida
Rights Management:
All applicable rights reserved by the source institution and holding location.
Resource Identifier:
029174957 ( ALEPH )
748689222 ( OCLC )
C01-00220 ( USFLDC DOI )
c1.220 ( USFLDC Handle )

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Local evaluation report
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b I-275 dynamic message sign system /
prepared by Center for Urban Transportation Research, College of Engineering, University of South Florida ; principal investigator, Michael C. Pietryzk.
3 246
I-275 dynamic message sign system
Interstate 275 dynamic message sign system
[Tampa, Fla.] :
University of South Florida, Center for Urban Transportation Research,
1 online resource (19 leaves) :
ill., maps.
Title from e-book t.p. (viewed Sept. 1, 2011).
"November 28, 2001."
"USF/CUTR account no. 21-17-455-L.O."
Intelligent transportation systems
z Florida
Saint Petersburg.
Traffic signs and signals
Saint Petersburg.
1 700
Pietrzyk, Michael C.
2 710
University of South Florida.
Center for Urban Transportation Research.
i Print version:
t Local evaluation report.
d [Tampa, Fla.] : University of South Florida, Center for Urban Transportation Research, [2001]
w (OCoLC)263872060
Center for Urban Transportation Research Publications [USF].
4 856
u http://digital.lib.usf.edu/?c1.220


' . < . .... . :. . . . ........ .... .. : .


Local Evaluation Report 1-275 Dynamic Message Sign System P r epared by Center for Urban Tran s portation Resear c h Uni ve rs ity o f South Fl o r ida C o llege o f Engineering November 28, 2001 The o p inions, findings, and recommendatiOils expressed in lhis report are tho se of the Center f o r Urban Transportation Research {CUTR} and the University of South Florid a and n ot necessaril y those of t h e Fl orida Department ofTransportation, Tra.Qlc C o ntrol De v i c es (fCD), Inc., or the City of St Pet ersburg. This report has been p repared under s u bagreemenl w TCD, Inc., FAP No. FL-37-001R/9812 -004-A, Fin. Projec1 ID: 4 0 3266 1 52-0J & 4032 66 1 52 -02, Cont ract No. : 20693, Work O r der No.: 9999-021, and USF/CUTR Account No. 21-17-455 -LO. This report also fulfills requirements of Partnership Agreement (Secticn 7) f o r Technology Deploy m e nt Proj ects-l 27 5 Dynamic Message Sign System betw<:en the F e deral Highway Administration and the Flori da Department of Transpor t ation CVTR Principal l>wesligawr has been Michael C. Piei'rzvk, ITS Pro


TABLE OF CONTENT S Executive Summary ............ ...... ............ .. .. ................... . .... ..... ... ........ . .......... ...... 1 Project Description ............... ... ... ...... .. . ..... .......... ....... ...... ... ............ .... ...... .... .... .... 2 Purpose of Report ...... ................... ....... ............. . .. .......... ..... ... .... .... ...... ...... .... ..... . 5 Project Goals, Objectives and Perfonnance M easures ........ ..... .... ..... ..... ........... 6 Tlmeline of Project Events .. ...... ..... ........... ................ .... . .... . .. .............. . . ... .... .... . 7 Primary Project Evaluation Factors ........... ................. . ... ........................... ............ 8 Traffic Condition Survey ........ ... ... ... .. .... ... .... .... ............ ... ..... ........ ... ......... ...... 8 Fan Per ception Survey ... . ... ... .. .... .. ..... .... ....... ... ... .. ...... ....... ........... ............. 9 Pro j ect Partner Interviews ... . .... .... ....... ................. ......... ......... . ........ . .... ...... 1 0 Other Project Evaluation Issues ... .... .......... ...... ... ..................... ... ... ..... ..... ............. 14 Feasibility Determination for 1-275 DMS S ................ ........ ... .. ... ........... ............ 14 Des ign-Bu i ld-Main t ain Method of Procurement... ..... ......................... .... ........ 15 NTCIP Compliance . . ....... ............. . ... .. ....... ......... ............ ..... .... ............ .... 15 Operations and Ma i ntenance Ag reeme nt... . ....... ... ... .... ... ............. .. ....... ....... 15 Dynamic Messaging System ........... .. ... .. .. ... .......... ... ... ... .. .... ... ..... ............... 17 U sage of DMSS for N on-Ba seball Events ...... .. .... ... ........... ...... ...... .... .... .. .... 18 Summary of Project Evaluation Findings ............................... ........ .. .......... .... .. ... 18 LIST OF TABLE S Table 1 Compar ison of T ravel Time Run s ...... .......... ... .... .. ............... . ... ....... ............. 9 Table 2-Comparison of In-Bound TraffiC Movemen t s ........... ................ ...................... 9 Table 3 Dynamic Messag i ng Stages ............ ................ ..... ... ... ................... ...... ..... 17 LIST OF FIGURE S Project L o cat ion Map ... ....................... ... .......... .... ................ ... .. ....... ... ...... ......... ...... 2 Project Site Map ................ ...... ............ ... .. .... ... ............................. ......... ......... .......... .... 3 Primary Control Center ..................... ...... ........ ........ . .... . ..... ........ ........ ................ ... . 4 Secondary Contro l Cen ter ... ....... ........... ..... ..... .. . ... ............. ..... .... .............. ... .... ... .... 4


Executive Summary In lat e 1997, an ITS Deployment Demonstration Federal earmark and subsequent ITS High Priority Program grant was awarded to the St. Petersburg area. Under a partnership agreement executed in September 1998 between the Federal Highway Administration and the Florida Department of Transportation, the work plan and operations and maintenance plan was established for the first design-buil d-main tai n ITS deploymen t pro ject in the Tampa Bay area. Consisting of three dynamic message signs each with a closed circuit television system, and operated from a primary control center (City of St. Petersburg Transp ort ation and Parking Services building) and a secondary control center (City of St. Petersburg Police Department building) the initial stages of a regional f reeway and incident management system was placed in operation. Serving to aid in traffic control and management for Tampa Bay Devil Ray major league baseball games and other downtown St. Petersburg events In the short-term, th is project became fully operational on March 1, 2001 Following a 90-day testing ("burn-in ) period, the City of St. Petersburg assumed full responsibility for operation and maintenance. According to project partner interviews, a Devil Ray baseball fan perception survey, and a limited "befo re" and after" traffic condition inventory, the project is deemed successful. Also, many of the goals and objectives of the partnership agreement, and standard national ITS performance measures have also been addressed. Ultimately, full project benefits can best be determ in ed when the future regional system is in place and there is more challenge to successful system operation. During the course and scope of this evaluation, for instance, the severe traffic congestion that could result from the occurrence of events or incidents was not evident. Because this project was the first of its kind in the Tampa Bay area, many aspects of ITS design, procurement, deployment, operation, and management have already been leamed and are continuing to be experienced. Consequently, the success of this project can be attributed to the development and execution of the unique partnership agreement that established the basis for this and future joint operation and management of ITS. 1


Project Description An ITS partnership agreement for techno l ogy deployment between the Federal Highway Administration and the Florida Department of Trans portation was developed in September 1998 Th is agreement involved the deployment of three Vultron dynamic sign messaging units each with an American Dynamics-SpectraDome closed circuit television system, operated from a primary control center, and a secondary contro l ce nter. The three Flip Disk/LED signs in Pinellas County (see Project Lo cation map), in proximity of downtown St. Petersburg Florida (s ee Project Site map ) are l ocated at: 1-275 southbound, between Exijs 14 and 15 (approximately 62" Avenue North, 1-275 northbound, between Exits 6 and 7 ( approximately 30111 Avenu e South and 1-175 eastbound west of Exij 1 (approximately 16"' Street South) Project Location Map 2


Project Site Map Each sign has 90 columns of pixels consisting of 18-7X5 modules, and each sign is 10 feet x 20 feet x 4 feet weighing 4,500 pounds. There are a total of 16 down loadable fonts with 256 characters In each font. The OMS may be controlled locally via the on board controlle r or remotely via an RS 232 port The OMS will a llow storage of 100 pennanent messages and 32 temporary messages. Sixty four time-based schedules are implementab le with 32-day plans at 64 events eac h day. The pr im ary control center is located at the existing City of St. Petersburg Transportation and Parking Services building (1744 9111 Avenue North) The secondary control center is located at the existing City of St. Petersbu r g Police Department building (1300 1' Avenue North). 3


These contro l center workstations are depleted in the photos that follow. Note that video camera i mages and/or computer monito r depictions of DMSSs can be seen in each photo. Primary Control Center Secondary Control Center 4


Design and construction of this deployment was the responsi bil ity of the Florida Department of Transportation-District 7 Tampa office. The operation s management, and maintenance responsibility is with the City of St. Petersburg The ITS project architecture was designed to be consistent with the National ITS .1\rchltecture and based on the following: An active partnership between FOOT and the local agencies (primarily City of St. Petersburg Transportation and Police Departments), P rioritized User Services/Market Packages i de ntified in the FOOT District 7 ITS Strategic Plan (the Freeway Control market package encompasses all of the 1-275 DMSS project objectives), and Mapping of individual ITS technologies to market packages identi fy ing data flows Both control centers have the ability to view r eal-time closed circuit televis ion (CCTV) Images and the current dynamic message sign messages. A city-owned fiber optic cable provides the means for the control centers to communicate with each other. The system software is run with PC based hardware in an MS Windows NT platform All components of the system are standard off-the-shelf hardware and software. The CCTV system is designed to provide a frame rate of up to 15 frames per second over an ISDN TELCO network. This project was awarded $1 million in Federal funds as a Technology Dep l oyment Demonstration Project, and an additional $750,000 f rom the TEA-21 High Priority Program Both awards required and included a state-local match of 20 percent that was met via the federal provision for the use of toll credits". The original lump sum contract awarded In August 1999 to TCD, Inc. was $1,345,600. Over the course of the project, three work orders totaling $77,800 (including $35,000 for this Local Evaluation Report) were issued. Later, the City of St. Petersburg received another $105,000 to provide the services necessary to maintain the OMS for a year via a ma in tenance contract. The remaining $221,600 has been used by FOOT fo r contract administration, construction inspection, and a reserve for any further action to complete the project. Purpose of Report The purpose of this report is to meet a cond ition of the partnership agreement between the Federal Highway Administration (FHWA) and the Florida Department of Transportation (FOOT) that a "Lo cal Evaluation Report be prepared in regard to this techn ology deployment. The report inc lude s an assessment of how well the project met the goals and ob jectives of the partnership agreement, and any quantitative results for the applicable "seven standard ITS measures of performance" contained in FHWA guidelines 5


Project Goals, Object i ves, and Performance Measures The project partnership agreem e nt between FHWA and FOOT identified three goals e ach with separate objectives as follows: Goal 1 Contribute to Making Transportation Facilities More Efficient in the St. Petersburg Area Improved Management o f Traffic Along 1-275 Du ri ng Special Event T raffic (Tropicana Fie l d Events) Conditions I mproved Management of T r affic Along 1 275 During Peak Hour Traffic Condnions Promote lntermodal Travel (e.g., shuttle buses) to Specia l Events Goal 2-Integrate System Operations Within the District 7 Region Establish Joint Operation and Management of the 1-275 DMSS by the City of St. Petersburg, FOOT, a nd FHP Design 1 275 DMSS to be Nationa l ITS Arch i tecture Consistent Demonstrate the Advantages of Using the National Transportation Communications/ I TS Protocol (NTCIP) Execute a Set of Memorandum of Agreement (MOA) Between Jurisdictions for Jo i nt Operations, Management, and Maintenance of 1 -275 DMSS Goal 3-Develop a Cost Effective Operational Solution to the Transportation Challenges on 1-275 Assure Project Compatib i lity and Consistency with the P i nell a s MPO LRTP a n d TIP Assure Project Compatibility and Consistency with the District 7 ITS Strategic Plan Develop an I TS Market Package to Support Deployment of the 1-275 DMSS Illustrate Expandability of 1-275 DMSS and Opportuniti e s for Integration with other District 7 ITS I nfrastructure Additionally, seven standa r d performance measures, which are linked to the goals of the National ITS Pro gram, have also been identified for assessment and they are: 1. Reduction in Severity and Number of Crashes 2 Reduction in Number of Fatalities 3 Delay Reduction 4. Customer Satisfaction 5 Increased T hroughput (goods or people moved per unit time) 6. Cost R e duction 7. Reduction In Fuel Use and Emiss i ons To the g r eatest extent possib l e the aforementioned project goals and objectives along with the seven sta n dard performance measures will be utilized to determine the success of the 1-275 DMSS project deployment. 6


Timellne of Project Events In order to provide a documentation of all significant activities (and their respective time durations) that have lead to the development and deployment of this project, the following t i meline of events is provided April 1997-King Engineering completed a report for the C i ty of St. Petersburg on Variable Message Signs for downtown St. Petersburg (est i mated imp l ementation cost of $1 million). November 1997-Six month Appropriations Bill for federal transportation funds appropriates an earmark ITS Deployment Demonstration f or $1 million. July 1998-TEA-21 appropriates $750 ,000 for St. Pete r sburg Project f r om the I TS High P r io r ity Program (also, authorization authority given to obligate the funds by September 30 1998}. September 30, 1998 Partnership Agreement executed between FHWA and FDOT that included a Work Plan and Operations & Ma i ntenance Plan December 1, 1998-Feasibility Determination completed for Des i gn & Location Evaluation for 1-275 DMSS and DMSS Technology Communication Evaluat i on Alternatives (by PB Farradyne). April 7, 1999 Design-Build Plans and Proposal completed, and project advertised for June 7, 1999 letting. June 7 1999-Operations and Maintenance agreement executed between City of St. Petersburg and FDOT. August 6 1999 Design-Build bids a r e received after extensions are given to contractors to prepare proposals S epte mber 27, 1999-Contract is executed after review and justification of only one qualified bid. November 5 1999 Notice-to-Proceed given to Traffic Control Devices I nc. (TCD, Inc.) with an anti cipated "turn-on" of the system by September 11, 2000. September 28, 2000 Traffic data collection for "before traffic is conducted. March 1, 2001 1-275 DMSS becomes operational for the spring training season of the Tampa Bay Devil Rays baseball team. March 7 2001 -CUTR receives Notice-to-Proceed to document Local Evaluation Report for 1-275 DMSS. March 23, 2001 Conditional acceptance of the fully operational system is granted by FDOT, and start of 90-day "burn-in" period is commenced 7


May 17, 2001 -CUTR conducts first meet ing of project partners to discuss project expectations, issues/resolutions, and overall satisfaction. June 16, 2001 "Burn-in" completed, and City of St. Petersburg assumes operation and management of the system in accordance with O&M agreement between FDOT and C ity of St. Petersburg. June 24, 2001CUTR conducts Tampa Bay Devil Rays fan perception survey of 1-275 DMSS. Also, traffic data collection of "after" conditions i s conducted. August 16, 2001 -CUTR conducts email follow -up survey of project partners to confirm expectations, issues/resolutions and overall project satisfaction. September 12, 2001 -CUTR meets with F OOT District 7 ITS Engineer to review project background and status, and discuss evaluation Primary Project Evaluation Factors The evaluation of project performance was primarily conducted in a three-part effort. The first part consisted of a traffic condition survey co nducted before and after activation of the 1-275 DMSS. The second part involved a fan perception survey at Trop i cana Field. The th ird part inc lud ed project partner interviews conducted at the beginning and end of the project "bum-in period. An sect i on of th i s report incl udes any "other" evaluation issues or project characteristics that could be documented. Traffic Condition Survey Primary in-bound traffic movements to Tropicana Field parking, and related travel time runs were measured at on e period of time "before activation (September 28-0ctober 1, 2000) of the DMSS, and at one period of time "afte r" activation (June 2 1-24, 2001) of the DMSS to determine if any reduction in traffic congestion (or smoother traffic distribution) cou l d be discerned. Both of these periods coincided with baseball events where larger than normal crowds were expected. Traff i c data was typically recorded for the 1 hour period preceding game time. In most cases, comparisons fro m Tables 1 and 2 do not reveal improvement in quality of traffic f l ow. However, it should also be noted that attendance only s li ghtly exceeded the "threshold (25,000) for event congestion (as determined by City Police Department), and there were no reported incidents during either time of data collection. In other words, an environment of extremely congested traffic due to event demand or incident never occurred during either data collection per i od. Thus, the uHimate effectiven ess of the DMSS under "worst case" conditions could not be determined 8


Table 1 Comparison of Travel Time Runs Period Attendance Avg. Tavel Avg. Dday Avg. Running. ] ime Speed "Before" (Sunday, Oc tober I, 2000) 28 432 5 minute$-39 l minute 32 32.1 m p h seconds seconds Afler (Sunday, June 24, 2001 ) 27,999 6 minutes2 J m i nuto-46 3 l mph seconds seconds . Note Travel time ru ns each date were made on t h e sam e 2 2 m l e route approachu"'g T r o p c:ana F ield and seven ru ns were averaged for the va l ues i nd i ca t ed for each d a t e. Table 2 -Comparison o f I n -Bound Traff i c Movements P..:riod 1-275 SB 1-275 :-.s I'' A vc. \YU I crt-5'11 A\c. F.R lcfl81 h St. Nn lcrt-(O to turn 16'11 St. turn (ii' Rtb Street ttun 1'1 A vc. 1-175 EBp) 1-175 EBt,l N(h) 280 147 33 9 1 6 ,.After" 404 1 89 22 859 . (a) Highest 15m l nute vo lume over entire penod of data collecton pfiOt t o game time (b ) Highes t 5-m l nut e volume over entire period of data coll ection pr ior to game ti me. (c) Highest hour l y volume over e ntir e period of data collection prior to game time. Fan Perception Survey N(c) 249 454 A Tampa Bay Devil Ray fan perception survey was conducted on Sunday June 24, 2001. This part icul a r day was selected fo r fan survey since tt was anticipated to be one of the largest crowds of the year. Attendance for th i s game was the second largest of the year (27,999), but still onl y represents 63 percent of fu ll stad ium capacity. Furthermore according to the St. Petersburg Police Department experience, the attendance thresho l d for experienc i ng traffic and parl

The second question asked was, "Did you notice the new electronic roadside message signs as you were approaching Tropicana Field?" (with a site map and sign photo provided for quick visual reference). Almost 70 percent responded yes For the third question asked, was the parking information on the sign useful to you?," just over half of the respondents (54 5 percent) said yes" almost one-third said "no" and the remain ing 13 percent had no response. Project Partner Interviews The local project partners were interviewed twice, before (May 17, 2001) and after (August 16, 2001) the project burn-in" period. Project partners included the City of St. Petersburg Police Department (special events and communications center), City of St. Petersburg Transportation and Parking Services Department (traffic signal maintenance and engineering) and the FOOT District ITS Engineer and Construction Project Manager. Interviews were conducted to assess agency project expec t ations general level of satisfaction, and identify any technica l, institutional or legal issues that may have arisen and how they were resolved The May 17"' interview was conducted as a one-hour collective group discuss ion. All viewed the project as successful, however, the following discussion points were brought out: The Police Department indicated DMSS software training had been difficult to schedule for all of their communication center p erso nne l that needed to receive it. Only about one-third of the communications personnel could be scheduled for training directly by the vendor, the others eventually learned from those that had been trained. Since the vendor provided only one, half-day training session (limitation of contract), It was suggested that in future similar ITS contracts more extensive t raining for local operators should be provided. The Transportation and Parking Services Department indicated that the single biggest problem encountered during project deployment was the DMSS communications line routing (this will be discussed in the second interview re cap) The Transportation and Parking Services Department also indicated that they believed the too much time was extended for the p roject's design-build approach. This was the FOOT District's first attempt using this type of contract approach for an ITS project, creating the need for a new process for specification devel opment. Also, only one qualified bid was received. The key lessons learned were to "fully Identify and understand the full scope necessary for design build", and require a customized timetable to be developed for future design build contracts. The general understanding for the intent of the project is that it will be used to assist traffi c arriving to Troplcana Field for Devil Ray baseball games. However, the City now desires the DMSS to be used for other downtown St. Petersburg events other than baseball games They felt strongly that the DMSS should not necessarily always be blank when there is no baseball 10


The August 16"' Interview was conducted as a one-on one email survey with each project partner. This interview included the f ollowing ten questions, and responses have been summarized after each question. 1. Have all your original objectives and expectations for this project been met? If not, please detail your unfulfilled expectations or objectives. T he City Police Department Indicated that their objectiv e s have been m et. The City Transportation and Parking Services Department indicated that since they were not directly involved in the design phase of the project they did not know if original objectives were met, however, their primary responsibility and concern (on going system maintenance) has been successfully contracted. The City Transportation and Parking Services Deparlment would have also preferred some additional flexibility on use of messaging (public service announcements and pre event information). The FDO T believed that the objectives in the partnership agreement that were achievable within the constraints of this particular project development and funding have been met, and future integration of this Initial project Into the planned network for r e g i on a l freeway management will allow the longer term parlnership objectives to be achieved The FOOT also indicated that regularly scheduled meetings to re v iew design plan prog r ess and to address design issues helped the contractor develop a good set of plans Additionally, on future projects it would be beneficial to avoid third party service providers for th e communica t ions fink 2. Over the course of project deve l opmen t deployment and current operation, what technica l issues arose, and have they been satisfactorily resolved? If yes, how? If no, why not? According to all the major technical issue that arose was the result of third party involvement. Essentially, leased lines from a service provider (Verizon) were used to transfer data between the three signs and the primary control center. These ISDN lines were initially routed to Tampa, then back to st. Petersburg This created communication routing and capacity problems, which were resolved to a certain extent by p r oviding Verizon with all the necessary communication bandwidth requirements Lesson to be learned Is that an owner-operated communication fink (fiber-optic whenever video is involved) should be used. The communication link between the primary control center and the secondary control cent e r utilizes the City-owned fiber optic system, and very little communication problems have resulted. Most recently, the City discovered that the use of Windows NT and Its partitioning criteria has limited the operational capabilities (i.e., memory fills up quickly and locks up computer which requires re-booting of the entire system). Also, downloading by phone lines still tak e s two minutes o r more to complete. The FOOT Construction Manager believed this problem may be due to the small partition size of the C-drive, and suggested that the City obtain a copy of "Partition Magic" and resize the C-drive. There should be enough hard drive space on the D-drive such that the C-drive size can be increased without affecting the data on the 0-drlve. 11


3. Over the course of project development deployment. and current ope r ation, what Institutional/governmental issues arose, and have they been sat i sfactorily reso l ved? If yes, how? If not, why not? The only Institutional Issue that arose was d e fining the Inter governmental agreement and source of additional funding fo r maintenance once construction was complete. The FOO T was vel}' cooperative with the City in this matter by providing the rema ining funds in the construction contract (approximately $105,000) to the City of St. Petersburg to establish a maintenance contract for the system Additionally, the operating and maintenance agreement its elf transferring responsibility to the City was vel}' unique (e.g., limitations on how the system was generally to be used d e termining tlmeframe for future transfer of operation and maintenance responsibility back to FDO T, letting the City operate and maintain something in the Interstate right-of-way, etc.) This agreement had to be resolved between the FDO T and City two years before actual operation of the DMSS, however, because this was such a unique and perplexing issue the FOOT believes that having e written agreement in place in advance was the best decision to make. 4. Over the course of project development, dep l oyment, and cur rent ope r ation, what legal issue s arose, and have they been satisfactorily resolved? If yes, how? If not, why? There was an Initial concern from the City Police Department regarding the need and responsibility for monitoring the cameras on a 24-hour, seven day a week basis. Also in the occurrence of an adjacent traffic incident not resulting during the same time as a baseball game (or time when the signs wer e not activated), it was not clear if the cameras and signs were to be automatically activated and utilized in some manner. This concern was resolved when FDO T directed, for purposes of the inter .governmental operations and maintenance agreement, that the system need not be used for monitoring at all times. However, FDO T also acknowledges that the requirements for the timely posting of messages for this Initial DMSS will never be fully resolved until such time as the regional DMSS is fully implemented The FOOT also pointed out that during the scoping and project development phase of the project, right-of-way certification issues arose Before the proje c t was let and designed, right-of way had to be certified (as per requirements of design-build contracts) Since communicat i on lines originally had to traverse County/City/Railroad rights-of way, this created a problem in obtaining right of-way certification over an area that FOOT has no control. By terminating communication lines at FDO T right-of-way, then continuing to the City's control center over leased lines (Verizon), this potential legal problem was remedied. 5 What, if anything would you choose to do differently if you could do it again? ( i .e. with the experience gai ned from this project, what advice would you g i ve to others attempting to develop deploy, and operate a similar system?) 12


The common response to this question was to not use leased lines for communication, install your own It was also found that fiber-optic links are preferred for communication bandwidth required for video and data however, on a limited project budget it can also be difficult to find available and suitable City right of-way for fiber-optic installation. T herefore, construction of the communications trunk line end service should be included as a separate item in the overall contract budget end communication equipment requirements must be specified. Because of the complexities of this first time project deployment and contract/partnership approach undertaken by the project partners, implementation took longer then expected. In order to accommodate changes In participating agency personnel during a longer than expected project development and deployment period, a detailed implementation timetable would be helpful for all project partners 6. In your opinion, has the system performance and p r oject partnership been a success? If yes, why? If not, why not? Once Initial communication reliability was achieved, most ell responded that the project performance and partnership has been a success. However, the FOOT Construction Manager believed that project performance could still be improved. It has been observed (after design was approved and the project was near the end of construction) that a communication system change could be made at minimal cost to provide greater bandwidth capacity, and provide for faster response and control of cameras and signs by avoiding an unnecessary layer of third party communication software. It was hoped that the City might still choose to make this change 7. What tangible, measurable benefits (If any) can be produced that clearly show evidence of improved operating conditions, increased safe\y, or cost reduction since DMSS was implemented? The City Police Department believes that the sign messages have made a difference In traffic flow and in calming tempers. Having the OMSS on the Interstate has allowed the City to better use its resources (portable message signs) to manage baseball and other special event traffic Additionally, changing the Interstate OMSS as conditions vary is much easier and quicker than changing the portable message signs. Coincidently, the City Police Department believes the interstate OMSS should be turned off when there ere no events occurring. Also, according to the City Police Department, the interstate OMSS have only been used for events to date (they have not been activated during non-event traffic incidents). 8. In your opinion besides Tropicana Field baseball events, what other events have (or in the future could be) benefited from application of the DMSS? As indicated previously, the Interstate OMSS was used for the "Taste of Pinellas" in June. The City also expects to use the signs for other downtown events (e.g., Rib Fest-November 10, concerts at downtown parks, St. 13


Anthony's Triathlon weekend-April 28-29, First Night/New Year's Celebration December 31, and Breast Cancer Walk) later this year. The FOOT expects to utilize the interstate OMS!3 for real time incident management in the future as the regional freeway management system is expanded, or even now for planned incidents (e.g., nighttime road construction/repair of closed lanes or ramps) 9 What different messages/message sets, if any, were used for the non baseba ll events? If different messages were used how effec t ive or ben eficial were they? The sign messages have been used and will continue to be used to direct drivers to shuttle parking locations for downtown events. In addition to the massages that have already been devel oped, new massages will continue to be developed between the City and FDO T as the need arises instead of storing messages that are never used 10. Are there any other c o mments you would like to make, o r previous comments you would like to reiterate? The project was successful because of the working relationships that developed among FOOT, the City, the contractor, and Verizon. It was suggested by the City that a new job posftion be added to their staff to maintain the DMSS when the O&M contract expires The FOOT Indicated that this project was one of the first in Florida to use federal funds for real-time operauons and preventative maintenance demonstrating the growing realization that operation/management in real-time (not just passive maintenance) is important to a successful transportation project. The debate over the appropriateness of blank signs versus continuous, but pertinent, messaging will continue. Further research and/or awareness regarding this issue are desirable Other Project Evaluation Issues Feasibility Determination for 1 -275 DMSS During November 1998, HDR Engineering and PB Farradyne Inc. were retained by FOOT to conduct a feaslbllily study for the installation of the 1-275 DMSS. A major facet of this study Involved conducting telephone interviews of local transportati o n agencies to devise a "concept of operation". The results of these interviews lead to the current contractual arrangement for operation and maintenance previously discussed. Specifica ll y, for specia l events, FOOT wou l d review City's plans. F o r incident management, FOOT would develop plans and assist in o peration. The City will continue to manage, operate and maintain as long as the DMSS sup p orts only special City events When p r oject is incorporate d into p l anned future regional inc i denVfreeway management system, then FOOT will take over this responsi b ility (except during actual times of special City events). 14


Active partnerships estab lished at this time for the 1-275 DMSS be twe en FOOT and the local agencies will for m the basis of the reglonai concept of operation for freeway traffic control and incident management. Design-Build-Maintain Method of Procurement The design-build-maintain method of procurement was selected for this project deployment. This was the first lime for FOOT District 7 office that this method of procurement was used. This method was selected t o shorten the time to get the contract underway wHhout going through a separate process of detailed plan development by FOOT, and allow the use of project funds to pay for contract maintenance for a specified period of time. Deliberate and informed expediency was the key to initiating, designing, and building a successful ITS system, according to the July 2001 Traffic Control Devices (TCD), Inc. Final Report on the project. Design-Build-Maintain contracts also offer the full transfer of responsibiiHy to the design build team, eliminates imperfect transfer of design knowledge from designer to contractor, and the engineering and construction work is done cooperatively with a single entHy to resolve problems. As mentioned previously, right-of-way certification issues fo r communication lines not fa lling in FOOT property did create some delays, and the City was not directly involved in the design act ivitie s at the project's outset somewhat minimizing further advantages in design andlor installation troubleshooting. NTCIP Compliance In August-September 2000, at the request of the FOOT District 7 office, the FOOT Traffic Engineering Research Lab (TERL) at FAMU-FSU College of Engineering in Tallahassee conducted a Level 1 (mandatory objects only) Nat ional Transportation Communications for ITS Protocol (NTCIP) Compliance Evaluation for the Vultron Dynamic Message Sign (OMS) Controller. This test checks to make sure that the read-write obj ects can be set to specific, valid values and to make sure the read-write objects provide the appropriate information when requested. In total, 43 objects (34 read -only and 9 read-write) were checked. The controller was set to local" so that the messages to be displayed could be viewed. With the exception of one minor error found with the dmsMessageMemory Type, all other objects appeared to respond properly to the requests given, according to the October 9, 2000 TERL evaluation report. This error was characterized as minor because the series of requests leading to this e rror are unlikely to occur. Vultron, Inc. was contacted by the TERL about the error, acknowledged it was an error, and corrected the probl em. Operations and Maintenance Agreement As mentioned previously, responsibility for operations and maintenance of the 1-275 DMSS was directed to the CHy, setting a precedent (at least In Florida) for local government responsibility within Interstate right-of-way. By resolution adopted on April 22, 1999, the mayor for the City of St. Petersburg was authorized to execute this 15


agreement with FOOT The agreement was formally executed on June 7, 1999. Terms of this agreement are not to exceed a period of ten years. The OMSS remains the property of the FOOT, and the C ity is not to remove any of the equipment without prior consent of the FOOT. Basically, the City agrees to keep the DMSS fully functional, provide the necessary training to its employees (or contractor} prior to the beginning of operations and agrees to establish and maintain a primary and secondary control center for OMSS operations providing right of entry to FOOT. An Invitation for B ids was issued on January 22, 2001 by the C ity of St. Petersburg for a "Mult i-Year Contract for DMSS Management and Repair." The intent of the bid is to outline the n on-warranty management and repair services necessary to keep the 1-275 DMSS completely functional and operat i onal. The required services include monthly routine preventative maintenance (12 months}, service calls (10, no more than 3 hours each} for diagnosing repairs, hourly rate for repairs (100 hours}, and telephone system support (100 hours}. This contract is effective from date of award through January 31, 2003, and the City reserves the right to extend the contract under the same terms and conditions for up to two, one-year periods upon agreement of both the City and contractor. Parts are to be invoiced at cost plus 10 percent. Further, the City must be notified prior to any repairs if parts and labor will be equal to or more than 50 percent of the replacement cost of the original equipment. Through an amendment to the Operations and Mainten a nce Agreement, FOOT provided the City with $105,000 (deployment grant surplus} for operations and management. The current year City budget allocated for annua l preventative maintenance is $80,000 ($70,000 for ma i ntenance, $10,000 for operat i ons (telephOne and electrical costs}} The contractor selected submitted a bid of $69A38.66. As of early October 2001, the City has paid three monthly billings at $4,700 each. No warranty work has been r equired to date. Most i mportantly, it is not known how and what amount the City w ill budget for annual operations and maintenance once the initial $105,000 from FOOT is expended. 16


Dynamic Messaging System WorKing with the City of St. Petersburg, the FOOT estab li shed four stages of standard DMSS messages. These stages are described in the following table. Stage J 2 3 4 Table 3 Dynamic Messaging Stages Th1cshold Conditions Mes.sagcs Game attendance less For northbound DMS, "Rays Baseball Parking Use Exit 10" than 20,000 For southboun d DMS "Rays Baseball Parking Use Exit 9" For eastbound Dlv!S, "Rays Baseball This Exit Game attendance All portable VMS units indicate "Trop icana Field Cash Lots Full" between 20,000 5 000 and And For n .orthbound DMS, "Rays Baseball Cash Parking Lots Full AJt. C ash l ots aro 80 % o f Parking Take Exit 7" capacity, or mo1-e than For southbound DMS, "Rays Baseball Cash Parking Lots Full, Use 50% of available cash Exit I 0 t o Alt. Park" or lots are full "Rays Basebal l Alt l'arking Exit 1 0 Use Pier & Ba)"valk Game attendance greater Same as Stage 2, except when alternate parking s ites are fuJI than25,000 F or soutl1bound DMS eb ange to, "Rays Baseball Cash Parking Lots And Full Alt Park Take Exit 12" Cash lots at 80% of For eastbound DIVIS change to, ''Rays Baseball Cash Parking Lots capacity or more than F1dl, Straight Ahead AIL Parking at4"' St" 50% of available cash lo t s are full Accident or other Detennine where problem exists and change messages to alert drivers signi.ficant traffic in advance of problem area. problem Northbound OMS to encourage drivers to exit at 3131 Street, and southbound OMS to encourage drivers to exit at 22"" Avenue North Note. MesS

Usage of DMSS for Non-Baseball Events The primary use of the DMSS is for Tropicana Field. In add"lon to being home of the Tampa Bay Devil Rays Major League Baseball organization, other special events are also held at Tropicana Field (e.g., trade shows, concerts, conventions). Baseball season runs from approximately April 1 to October 1 each year, and this is when the DMSS would have the most usage. However, the DMSS may also be utilized to display traffic warnings, parking instructions, and directions due to accidents. To date, the DMSS has only been used for events (not incident management). As a result of the May 17 group interview discussion with project partners, the FOOT agreed to activate the OMS$ for an upcoming downtown St. Petersburg event (Taste of Pinellas-June 1 ,2, and 3) in order to provide improved real-time parking directions and management. Devil Ray baseball did not conflict with this event. FOOT further stipulated that time of usage for this event should be restricted to when the event is actually occurring (not for advance notice of a coming event), and messages should be consistent and relate to venue (e.g., Taste of PinellasParking"). Specifically, the City Police Department s plan for the DMSS is to direct event patrons from the Interstate to a specific exit. From this point of exit, portable message boards will then direct event patrons to specific remote parking areas offering shuttle bus service to the event. Summary of Project Evaluation Findings Based on the fan perception survey, partner survey, and traffic condition survey, at least some anecdotal evidence of addressing four (delay reduction, customer satisfaction, increased throughput (thru more direct access to available parking), and cost reduction (in traffic control)) of the seven standard ITS performance measures linked to the goals of the national ITS Program can be made and is noted in this report. The quantitative evidence, however, is not extensive, overwhelming, and definitive. Safety (reduction in number of fatalities and severity and number of crashes) and environmental (reduction in fuel use and emissions) related performance measures cannot be addressed at this time and are more long-term benefits of the future regional system. This ITS deployment project is the first such project, and the first to deploy via a design build procurement, in the Tampa Bay area. This project also represents the very initial stages of a regionalized, integrated freeway and incident management system, and thus cannot In Itself be fully evaluated for its contribution to making transportation facilities more efficient in the St. Petersburg area (Partnership Goal 1). Benefits to motorists during non-baseball events and during traffic incidents have not been determined (In fact the DMSS has not been used for incidents to date). Further, attendance at baseball games has not yet reached levels that necessitate fully engaged dynamic real-time decision-making and dynamic messaging due to severe traffic congestion. However, response from local law enforcement and transportation departments, and baseball fans indicate that the 1-275 DMSS is useful for getting clear direction to available parking and the perception is that traffic control and management has been improved. Following the guidelines of the ITS Strategic Plan and ITS Architecture for District 7, this deployment project has been designed to facilitate later integration with other Tampa Bay ITS infrastructure to provide a cost effective operational solution to the transportation challenges on 1 -275 (Parlnership Goal 3). Freeway and Incident Management is the first priority for ITS deployment In District 7, and the project 18


architecture communication) is compatible and expandable to meet this priority However, the primary communication medium and roadside devices of the future (fiber-optics and sensors/DMSs) are not now in place to demonstrate how the priority would be met. The three OMSs and CCTVs deployed via this project will rema in in place as part of the future regional system, and the two control centers will r emain autonomous, but will be integrated into the eventual Tampa Bay SunGuide Freeway Management System. AHhough relatively small in scale, this deployment project has begun to integrat e Interstate ITS operations within the Tampa Bay region (Partnership Goal 2). A very unique partnership agreement has been established between FDOT and the City of St. Petersburg to set the basic tenms of joint operation and management (until the future regional freeway and incident management system is in place) The governmental partnership sets an example and establishes the genera l expectations for what will be n eeded in the future regardin g key iss ues of ITS procurement, deployment, operations and in tegrated management. This accomplishment may be the most significant measure of project success. 19


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