Weather Information for Surface Transportation; Request for Participation

DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

Weather Information for Surface Transportation; Request for

Participation

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Notice; request for participation.

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SUMMARY: The U.S. Department of Transportation (USDOT) supports the

continuing development of an Intelligent Transportation System (ITS) in

rural areas, as defined in the Advanced Rural Transportation Systems

(ARTS) program, and as contained in section 6051-6059 of the Intermodal

Surface Transportation Efficiency Act of 1991 (ISTEA) Public Law 102-

240, 105 Stat. 1914 (1991), as amended. This Request for Participation

(RFP) focuses on the development of a system that meets highway

operators' and users' needs for clear and accurate weather and road

condition information. Such a system will cut across all of the

Critical Program Areas (CPA) of the ARTS Strategic Plan, since all

operators and users have a need for this type of information. Proposals

are solicited from public/private partnerships to design, develop and

evaluate an integrated system that meets these needs, especially in a

rural environment. Proposals will be assessed on their technical and

financial merit, and the funding will be provided through one

cooperative agreement between the Federal Highway Administration (FHWA)

and a State DOT.

DATES: Proposals must be received by 4 p.m., e.t., on August 1, 1997.

ADDRESSES: Proposals should be submitted directly to Mr. Paul Pisano,

Federal Highway Administration, HSR-30, 6300 Georgetown Pike, McLean,

Virginia 22101-2296.

FOR FURTHER INFORMATION CONTACT: Mr. Paul Pisano, FHWA, Office of

Safety and Traffic Operations R&D, (703) 285-2498 at the address above;

or Mr. Raymond Resendes, ITS Joint Program Office, (202) 366-2182; or

Mr. Robert Robel, FHWA, Office of Acquisition Management, (202) 366-

4227; or Ms. Beverly Russell, FHWA, Office of the Chief Counsel (202)

366-1355, Department of Transportation, 400 Seventh Street, SW.,

Washington, D.C. 20590. Office hours are from 7:45 a.m. to 4:15 p.m.,

e.t., Monday through Friday, except Federal holidays.

SUPPLEMENTARY INFORMATION: Copies of the ARTS Strategic Plan, which

describes the program goals and the CPAs are available from ITS

America, 400 Virginia Avenue, SW., Suite 800, Washington, D.C. 20024,

telephone (202) 484-4847. Electronic copies are available on the ITS

America Internet Home Page, http://www.itsa.org.

I. Introduction

Subpart B of title VI (secs. 6051-6059) of the ISTEA provides for

the Intelligent Transportation Systems Act of 1991 which authorizes the

Secretary of Transportation to establish a program to research,

develop, and operationally test ``intelligent transportation systems''

(ITS)--that is, the development or application of electronics,

communications, or information processing to improve the efficiency and

safety of surface transportation systems. Surface transportation

weather information is vital to highway operators and users for making

decisions about snow and ice control, traffic management, hazardous

driving condition warnings, travel planning, and other activities.

Progress has been made in developing weather information systems for

snow and ice control. This progress is to be extended to other

applications, by augmenting the existing Road Weather Information

System (RWIS) and incorporating weather information into the developing

ITS architecture. The quality of weather information affects costs of

road operation and travel, as well as travel safety and security. These

effects are particularly important in rural environments, as indicated

in previous rural transportation needs assessments.

A weather information system begins with observational data of

atmospheric, surface and subsurface conditions. These data may be used

directly for weather-related decisions in highway operating and travel

activities, but generally the data are assimilated into fused and

filtered datasets, that may serve as ``nowcasts'' or enter into

forecasting models. The weather data, and related decisions, exist at

particular scale ranges, referred to as micro-, meso-, synoptic, and

climatic-scale. The synoptic scale (horizon of days, large area

resolution) is generally what is available to the public now; however,

critical decisionmaking for highway use and operation requires

information improvements generally in the meso-scale (hour and sub-hour

horizons, down to kilometers of resolution), as well as in existing

conditions (e.g., nowcasts). Observed and predicted data are analyzed

to produce weather condition indicators of interest to decision makers.

Weather information, at whatever stage of processing, is packaged in

forms suitable for end-user applications, and disseminated to them by

various communications links.

The weather information of interest to highway operators and

travelers includes both atmospheric and road surface condition

information. Atmospheric conditions of visibility, wind and

precipitation are relevant, and must be combined with road surface

conditions--especially snow, ice and water coverage--to complete the

weather information package. This package can then be formatted and

disseminated for use by applications for: maintenance personnel,

emergency medical service (EMS) operators, emergency management

personnel (e.g., during evacuations), school bus operators, transit

operators, commercial vehicle operators, traffic managers and

travelers.

The existing components for producing and disseminating weather

information can be combined with newly developed components to form an

integrated weather information system. This system must make maximum

use of existing and standardized data, forecasts and products.

Collecting data and operating forecast models are expensive for

specialized users, and most users depend on the forecasts and datasets

of the National Weather Service (NWS) under the National Oceanic and

Atmospheric Administration (NOAA). Weather-related decisionmaking can

be improved by matching the nature of the decisions to local or

specialized data collection, and to specialized analysis, packaging and

dissemination of weather information from existing assimilated or

forecast data.

The usefulness of weather information is maximized, and its cost

minimized, by the sharing of information. This requires standards for

data formats and products. The NWS is dominant in affecting standards

for dissemination of observational data and forecasts. The National ITS

Architecture, primarily via National Transportation Communications

Interface Protocol (NTCIP) activities, is establishing standards for

transportation weather information systems. An important issue is how

improvements in integration of information systems will merge with and

comply with these standards and existing systems such as the RWIS.

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Much of the value added to existing weather information for

specialized users will be by private service providers who analyze data

and provide focused dissemination of products. The public sector

highway operators will always play a major role in such an integrated

system, whether as system maintainer or as end user. Consequently, it

is clear that partnerships with the private sector in selected, value-

added information processing and dissemination to highway operators and

users could be a lost opportunity if not promoted and developed.

The rural highway system is characterized by a few, highly traveled

routes, and many miles of low use, isolated routes. Both types of

routes can traverse areas where weather extremes create dangerous

travel situations, and where information or aid is now difficult to

access. In 1995, there were 20,712 fatal accidents in rural areas, and

nationally about 13 percent of such accidents occur in inclement

weather. Better weather information to affect highway treatment,

traffic operations, trip-making decisions and driver behavior can

reduce the number of accidents. Rural highway operators have the bulk

of the nation's highway mileage to operate. There is a need to operate

these highways more efficiently and effectively under budget

constraints. This can be aided by weather information that is more

reliable for specific routes and locations. The challenges are not only

in matching weather information to decisions, but in dealing with data

collection and information transmission over the wide expanses and

rugged terrain of rural areas.

II. Objectives

The objectives of this project are to develop an integrated weather

information system that improves and broadens the scope of atmospheric

and road surface condition information available to highway users and

operators, and to assess the benefits of integrating the functions of

RWIS, other weather information sources (e.g., NOAA/NWS), and

transportation management and traveler information operations for a

rural part of the transportation system.

The hypothesis is that if such a system is developed, then risk

exposure will decrease, which improves safety and operations;

maintenance and traffic management will be conducted more cost-

effectively, which saves time and money by public agencies; and

customer satisfaction will increase due to improved and more available

information.

Evaluation is an integral part of this project, and measures of

success shall be of two types: output and outcome. The output measures

consist of evaluating the performance of the system (i.e., does the

integrated system function as designed). The outcome measures consist

of measuring the benefits of the service, such as the operational

improvements achieved by developing such an integrated system. Outcome

measures should be in a variety of terms, such as cost savings by

public agencies, time savings, reductions in crashes, etc. When

possible, improvements shall be measured incrementally (i.e., measure

the value added when X is integrated, then Y, then Z, etc). Efforts

should also be included to document the many benefits that are

intangible or are very difficult to measure.

III. Partnerships

The USDOT will work with a public/private partnership, with the

State DOT taking the lead role. The State DOT will ensure that needed

institutional and partnership arrangements are in place and required

funding is available, that the project can be completed within the

required timeframe, and that the private sector is involved as an

infrastructure provider (e.g., data collection and processing), as a

franchisee (e.g., for information dissemination), or in another

capacity contributing significant resources to the project.

All needed partnership arrangements and institutional agreements to

support the project should be documented with signed Memorandums of

Understanding (MOUs) that clearly define responsibilities and

relationships. Copies of the MOUs should be included in the proposal.

Partners are also strongly encouraged to seek participation from

certified minority business enterprise firms, women business enterprise

firms, disadvantaged business enterprise firms, historically black

colleges and universities, Hispanic serving institutions, and other

minority colleges.

IV. Scope

This project involves the integration of multiple information

systems and improvement of information presentation of atmospheric and

road surface condition information to highway users and operators. Any

or all facets of the integrated system can be further developed and

expanded in order to meet the project objectives. This includes, but is

not limited to alternative approaches to data collection (e.g.,

outfitting snow plows with automatic vehicle location devices),

advanced data processing and fusing to develop improved ``nowcasts''

and forecasts (e.g., extrapolating Doppler radar data and combining it

with meso-scale numerical forecasts), two-way integration of

specialized observations and forecasting (e.g., linking a RWIS and a

Traffic Operations Center (TOC) with a provider to develop meso-scale

forecasts), and improved information packaging and dissemination (e.g.,

providing route-specific atmospheric and road surface condition

information to a range of users and operators in a timely and cost-

efficient manner).

V. Delineation of Work

The following task descriptions are intended to provide a framework

for completing the project. The selected project team will be expected

to describe a detailed effort in its Technical Plan that demonstrates

an understanding of the project objectives and can be realistically

accomplished within the time and funding constraints.

1. Establish Baselines and Refine System Design

Establish baselines of existing systems (i.e., the RWIS and TOC

infrastructure currently in place, and the extent to which it is

integrated), describing the state-of-the-practice in weather and road

condition data collection, information processing, and information

packaging and dissemination that are provided within the project area.

Describe in a similar manner ITS-based services that are also provided

within the area affected by this project. It is recognized that these

systems will not be strictly rural, and will include urban components.

Document weather-based decisionmaking by a range of highway

operators and users in the project area. Characterize the activities

and decisions of highway users and operators in terms of their use and

need for weather and road condition information. Identify the sources

of the information, the agencies responsible for each type of

information, and the means of information dissemination.

Refine the system design concept that was submitted in the proposal

in coordination with the independent evaluator. Comments from the FHWA

technical representative on the system design concept should be

incorporated, as well as the information gathered within this task. The

report should document all aspects of the system, especially system

integration and information packaging. It should identify areas in need

of improved

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weather and road condition information, and how these areas will be

improved within the scope of this project. It should also include

estimates of the projected benefits of these improvements, as well as a

description of the capabilities to collect the data needed for an

independent evaluation. Submit this report to the FHWA for approval.

Note: The project team shall not proceed with the following

tasks without written approval of the refined system design from the

FHWA technical representative.

2. System Development

Develop the integrated system as defined in the system design.

Demonstrate that the system functions as designed, including the

expanded information packaging, in a controlled environment prior to

full-scale operations. The system integration can be done over a

distributed network, or centrally, e.g., in a TOC. Throughout system

development, document technical and institutional issues that impact

the project, including issues regarding the architecture and standards

of the system, especially within the context of the National ITS

Architecture and National Weather Service architecture.

3. System Operation

Operate the system over a period of time sufficient for evaluation,

coordinating system operations with the independent evaluator to ensure

that the appropriate data is collected. Throughout system operations,

document technical and institutional issues that impact the project,

including issues regarding the architecture and standards of the

system, especially within the context of the National ITS Architecture

and National Weather Service architecture.

4. System Evaluation and Final Documentation

Coordinate activities with the independent evaluator to conduct a

thorough system evaluation. Synthesize the technical and institutional

issues documented in earlier tasks. Submit a final report to the FHWA

that describes the project and its findings, including, but not limited

to the benefits, and technical and institutional issues.

VI. Administration

Schedule

Total project time is expected to be 30 months. A start date of

October, 1997, should be assumed for the purpose of responding to this

invitation.

Funding

The amount of Federal funding for this project is $1,300,000. Total

Federal ITS funding is not to exceed 80 percent of the total cost of

the project. The remaining 20 percent would be provided by a

combination of non-ITS Federal-aid, State, local, and private funding.

The project will be independently evaluated under separate funding. The

USDOT will fund this project through a Cooperative Agreement between

the Federal Highway Administration and a State DOT.

Points of Contact

For technical concerns, the primary point of contact is the

Agreement Officer's Technical Representatives (AOTR), Mr. Paul Pisano.

A field technical representative from the FHWA Division Office will be

identified subsequent to award. For all other concerns the point of

contact is the Agreement Officer (AO), the FHWA Division Office

representative who enters into the cooperative agreement. The AO will

be named after a team is selected.

Acceptance of Work

All work submitted will be subject to the review and acceptance of

the AOTR.

Disputes

Any disputes or claims shall be submitted to the AO. The recipient

may appeal the decision of the AO to the Director of the Office of

Safety and Traffic Operations Research and Development for further

review. However, the decision of the Director shall be final and not

subject to further review.

Governing Regulations

The parties to this cooperative agreement acknowledge that all work

shall be governed by 49 CFR Part 19, and other applicable regulations.

VII. Instructions to Applicants

Interested parties are invited to submit a proposal containing

sufficient information to enable an evaluation of the proposal based on

the evaluation criteria provided under section VIII of this preamble. A

proposal shall not exceed 50 pages in length including title, index,

tables, maps, appendices, abstracts, and other supporting materials. A

page is defined as one side of an 8\1/2\ by 11 inch paper, with a type

font no smaller than 12 point. Proposals greater than 50 pages will not

be accepted. Ten copies plus an unbound reproducible copy of the

proposal shall be submitted. The cover sheet or front page of the

proposal shall include the name, address, and phone number of an

individual to whom correspondence and questions about the application

may be directed. Proposals shall include a Technical Plan and a

Financial Plan that describe how the proposed objectives will be met

within the specified timeframe and budget. The plans should be

structured such that they contain the following information:

Technical Plan

1. Inter-agency, Inter-jurisdictional and Public/Private Partnership

Arrangements

Proposals should describe the partnership arrangements, which

includes providing the information described in the section entitled

Partnerships above.

2. Technical Approach

Proposals should include a system design concept describing the

extent of the system integration (e.g., data inputs, ``nowcasting,''

forecasting and other data processing) and the information packaging

(i.e., expanded or improved weather and road condition information for

various operators and users) for the integrated weather information

system that is to be developed and evaluated under this project.

Proposals should provide a concise description of the State or region

where this project will take place, including a description of current

systems in place that are to be part of the integrated weather

information system, as well as the physical location covered by the

integrated system. This should include the extent of deployment on the

transportation network, as well as the services to be provided on that

network. System integration is not restricted to rural systems, and may

include integrating rural and urban components. This system design

concept should be specific to the extent that it can be evaluated as

part of the selection process, recognizing that it will be further

refined in the beginning of the project. Proposals should describe the

technical approach by which the system design concept will be refined,

developed, operationally tested, evaluated and documented. It should

set forth a schedule of the work to be performed, document assumptions

and technical uncertainties, and propose specific approaches for the

resolution of any uncertainties.

3. Management and Staffing Plan

The Technical Plan should include a management and staffing plan

that provides the names of all personnel and

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the positions they will occupy as related to this project. The

estimated professional and technical staffing shall be provided in

staff-months and staff-hours. The management and staffing plan should

demonstrate that the project manager is capable, available, and able to

commit to a level of involvement that ensures project success.

Biographical summaries of key personnel shall also be included.

4. Project Evaluation

Proposals should include a detailed discussion that demonstrates an

understanding of the importance of ensuring that the proposed system

provides the capabilities and data access needed to measure the

anticipated outputs and outcomes. Proposals should describe low-risk

methods to work with the independent evaluator to ensure that benefits

are measurable. A demonstrated understanding of the role of the

evaluation should be evident in the organizational and management

approach of the proposal. Proposals should include a description of the

methods and capabilities included in the design of the system that will

allow for the measurement of anticipated outputs and outcomes by the

independent evaluator. Development of the evaluation plan, and the

actual data collection for evaluation will be the responsibility of the

independent evaluator in coordination with the project team.

5. National ITS System Architecture

Proposals should provide a statement of intent to implement a

system that is consistent with the National ITS Architecture, including

any national ITS standards, protocols, or standards requirements as

these emerge from the National ITS Architecture Development Program.

Copies of the Architecture Definition Documents, the draft Standards

Requirements Document, and the Standards Development Program from the

Architecture Development Program are available from ITS America, 400

Virginia Avenue, SW., Suite 800, Washington, D.C. 20024, telephone

(202) 484-4847. Electronic copies are available on the ITS America

Internet Home Page, http://www.itsa.org. These documents provide

insight into the definition of the National Architecture, and the

emerging approaches being taken towards standardizing interfaces that

would support the integration of transportation management components.

Financial Plan

The proposal shall provide a description of the total cost of

achieving the objectives of the project, and the partnership's plans

for raising the matching funds required by this solicitation. The

proposal shall provide a statement of commitment from the proposed

project partners that required funding levels will be available. All

financial commitments, from both the public and private sectors, should

be documented in signed MOUs and included in the proposal. The FHWA

prefers that project costs be submitted using Standard Form 1411 and

FHWA Form 1411-1 (Proposed); however, other formats may be used.

The cost share must be from non-federally derived funding sources

and must consist of either cash, substantial equipment contributions

that are wholly utilized as an integral part of the project, or

personnel services dedicated full-time to the project for a substantial

period, as long as such personnel are not otherwise supported with

Federal funds. The non-federally derived funding may come from State,

local government, or private sector partners. In an ITS partnership, as

with other DOT cost-share contracts, it is inappropriate for a fee to

be included in the proposed budget as part of a partner's contribution

to the project. This does not prohibit appropriate fee payments to

vendors or others who may provide goods or services to the partnership.

It also does not prohibit business relationships with the private

sector which result in revenues from the sale or provision of ITS

products and services.

The USDOT, the Comptroller General of the U.S., and, if

appropriate, the States have the right to access all documents

pertaining to the use of Federal ITS funds and non-Federal

contributions. Non-Federal partners must submit sufficient

documentation during final negotiations and on a regular basis during

the life of the project to substantiate these costs. Such items as

direct labor, fringe benefits, material costs, consultant costs,

subcontractor costs, and travel costs should be included in that

documentation.

VIII. Evaluation Criteria

Applicants must submit an acceptable Technical Plan and Financial

Plan that provide sound evidence that the proposed partnership can

successfully meet the objectives of the project. The following criteria

will be used in selecting the site.

1. Technical Approach

Proposals will be evaluated on the technical approach to the

project, particularly the system design concept, and the extent to

which the objectives of the project can be met through the proposed

approach. Some of the specific items that will be included in the

review of the technical approach include:

(a) The extent of the rural transportation system affected by the

project (e.g., how much area will be covered and to what level);

(b) The number and types of services to be provided by the project;

(c) The system design concept's consistency with the National ITS

Program Plan and the ARTS Strategic Plan;

(d) The system design concept's compliance with the National ITS

Architecture and standards development, including the NTCIP

Environmental Sensor Station (ESS) standard currently being developed;

(e) The proposed methodology to refine, develop, operationally

test, evaluate (including the methodology by which the project team

will coordinate with the independent evaluator), and document the

system; and

(f) The innovativeness of the approach.

2. Management and Staffing Plan

Proposals will be evaluated based on the completeness and

thoroughness of the management and staffing plan, including

organization of the team, staffing allocation, and work schedule. Some

of the specific items that will be included in the review of the

technical approach include:

(a) The experience and background of the team, particularly the

project manager;

(b) The level of commitment of the project manager; and

(c) The quality of the partnership arrangements, including a strong

level of commitment between a range of partners, level of demonstrated

cooperation, information sharing and working relationships, and level

of participation of minority business enterprise firms, women business

enterprise firms, disadvantaged business enterprise firms, historically

black colleges and universities, Hispanic serving institutions, and

other minority colleges.

3. Financial Plan

Proposals will be evaluated based on the total projected cost of

the project, as well as the individual staffing costs. The level of

cost-sharing will be taken into account. Funds can be used to purchase

and install new equipment, including field sensor stations, though it

is recognized that such allocations will impact the extent to which the

objectives can be met.

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Basis of Applicant Selection

Selecting an offer for this project will take into account the

relative importance of the evaluation criteria, as follows:

1. The Technical Approach will be most important;

2. The Management and Staffing Plan, and the Financial Plan are of

equal importance.

Authority: Secs. 6051-6059, Pub. L. 102-240, 105 Stat. 1914, 2189;

23 U.S.C. 307 note; 49 CFR 1.48.

Issued on: June 6, 1997.

Jane Garvey,

Acting Federal Highway Administrator.

[FR Doc. 97-15487 Filed 6-12-97; 8:45 am]

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