[Federal Register Volume 62, Number 114 (Friday, June 13, 1997)]
[Notices]
[Pages 32401-32405]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-15487]


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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

[[Page 32403]]

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

[[Page 32404]]

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.

[[Page 32405]]

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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