[Federal Register Volume 63, Number 245 (Tuesday, December 22, 1998)]
[Notices]
[Pages 70836-70841]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-33800]
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DEPARTMENT OF TRANSPORTATION
Federal Highway Administration
[FHWA Docket FHWA-98-4790]
Transportation Equity Act for the 21st Century; Intelligent
Transportation Systems (ITS) Standards; Proposed Criteria and Draft
List of Critical ITS Standards
AGENCY: Federal Highway Administration (FHWA), DOT.
ACTION: Notice of proposed selection criteria and draft list of
critical standards; request for comments.
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SUMMARY: This notice invites comments relating to the legislative
requirement to identify a list of critical standards that ensure
national interoperability in the implementation of intelligent
transportation system (ITS) technologies as provided in section 5206(c)
of the Transportation Equity Act for the 21st Century (TEA-21), Pub. L.
105-178, 112 stat. 107, 456. Actions are currently underway by the U.S.
DOT and the Intelligent Transportation Society of America (ITS
America), and advisory organization to the U.S. DOT, to identify
objective criteria by which critical standards are to be identified.
The approach being taken to develop this list of critical standards
involves a three-step process; whereby the U.S. DOT will disseminate
the proposed set of criteria and draft list of standards through a
number of forums, conduct outreach to the public and private
stakeholder community, and evaluate comments and recommendations from
the ITS America and the public. The U.S. DOT will prepare the final
report outlining the critical standards and present it to the Congress
by June 1, 1999.
Based upon the currently proposed selection criteria, a draft list
of critical standards is also identified in this document. Although not
prescribed by law, the identification of critical ITS standards is
viewed as an ongoing process and therefore, the U.S. DOT may identify
additional ITS standards as critical through subsequent actions on an
as necessary basis, but no more than annually.
DATES: Comments on the proposed selection criteria and resulting list
of critical ITS standards must be received on or before January 21,
1999.
ADDRESSES: Your signed, written comments must refer to the docket
number appearing at the top of this document, and be submitted to the
Docket Clerk, U.S. DOT Dockets, Room PL-401, Federal Highway
Administration, 400 Seventh Street, SW., Washington, DC 20590-0001. All
comments received will be available for examination at the above
address between 10 a.m. and 5 p.m., e.t., Monday through Friday, except
Federal holidays. Those desiring notification of receipt of comments
must include a self-addressed, stamped envelope or postcard.
FOR FURTHER INFORMATION CONTACT: For the ITS standards program: Mr.
Mike Schagrin, ITS Joint Program Office, HVH-1, (202) 366-2180. For
legal issues: Ms. Jodi George, Office of the Chief Counsel, HCC-32,
(202) 366-1346; Federal Highway Administration, 400 Seventh Street,
SW., Washington, DC
[[Page 70837]]
20590. For ITS America: Mr. Roy Courtney, ITS America, Suite 800, 400
Virginia Avenue, SW., Washington, DC 20024 (202) 484-4847.
SUPPLEMENTARY INFORMATION:
Electronic Access
An electronic copy of this document may be downloaded from the
Government Printing Office's Electronic Bulletin Board Service at (202)
512-1661. Internet users may reach the Federal Register's home page at:
http://www.nara.gov/fedreg and the Government Printing Office's
database at: http://www.access.gpo.gov/nara.
Internet users can access all comments received by the U.S. DOT
Dockets, Room PL-401 by using the universal resource locator (URL):
http://dms.dot.gov. Please follow the online instructions for more
information and help. The paper ``TEA-21 Critical Standards: Proposed
Criteria and List of Critical Standards'' is available at the U.S.
DOT's ITS home page at http://www.its.dot.gov.
Background
A primary goal of the ITS Standards Program, as indicated under
section 5206 of TEA-21, is to promote and ensure interoperability in
the implementation of intelligent transportation system technologies. A
number of standards are especially critical to ensuring national ITS
interoperability or enabling the development of other standards.
Actions to establish critical standards are required by TEA-21.
Specifically, section 5206(b) of TEA-21 requires the Secretary of
Transportation (Secretary) ``not later than June 1, 1999'' to ``submit
a report [to the Congress] identifying which [ITS] standards are
critical to ensuring national interoperability or critical to the
development of other standards and specifying the status of the
development of each standard identified.''
In responding to this requirement, the U.S. DOT has developed a
discussion paper that contains proposed criteria for identifying
critical ITS standards, along with a draft list of standards. The paper
``TEA-21 Critical Standards: Proposed Criteria and List of Critical
Standards'' reflects preliminary discussions with members of the
standards community and the ITS America. Key points from the paper and
a list of proposed critical standards are included in this notice. The
list of ITS standards from which critical standards will be selected is
posted on the U.S. DOT ITS Joint Program Office's home page in text or
may be obtained by contacting Mike Schagrin as listed above in the
caption FOR FURTHER INFORMATION CONTACT.
Conformity Requirements is Not a Subject of This Notice
In addition to the requirement for identifying critical standards,
section 5206(e)(1) of TEA-21 requires the Secretary to ``ensure that
intelligent transportation system projects * * * conform to the
national architecture, applicable standards or provisional standards,
and protocols * * *'' This TEA-21 conformity requirement is distinct
and apart from the requirement to develop critical standards. Whereas
only some ITS standards may be identified as critical, all ITS
standards are subject to the conformity requirement. The conformity
requirement is not a subject of this notice.
Requirement for Critical Standards List and Interim Standards Where
Necessary
The U.S. DOT views the identification of ``critical'' standards as
one of its top priorities. A number of ITS standards are especially
critical for ensuring national ITS interoperability, and as noted
above, the U.S. DOT is currently taking action to identify them. Under
section 5206(a)(3) of TEA-21, the U.S. DOT is sponsoring the
accelerated development of many ITS standards through the use of
recognized standards development organizations (SDOs). It is clear that
the Congress recognized the value in using an industry driven standards
development process, but possibly feared this mechanism could take too
long to be useful in the face of rapid deployment, and/or that U.S. DOT
had very little leverage to resolve development activity that resulted
in deadlock. The strategy devised by the Congress to deal with this
concern was to signal industry that it had until January 2001 to come
to agreement on its own, on critical standards, or the Congress would
require the U.S. DOT to set the standards for industry. We believe this
requirement will be effective in both expediting the standards
development process and motivating otherwise deadlocked interests to
find solutions before the Secretary must impose them.
Recognizing that not all standards are critical to national
interoperability, the Congress is directing the Secretary to identify
which standards would be targeted for intervention if the deadline in
the TEA-21 is not met. The approach being taken by the U.S. DOT to
develop this list of critical standards involves a three-step process
as follows:
1. The U.S. DOT develops a proposed set of criteria to be used to
select critical standards, required for national interoperability and
the development of other standards. The criteria and the resulting list
of ``critical'' standards will be disseminated through a number of
forums, including this notice.
2. The ITS America convenes an advisory group representing
interested stakeholders from the public and private sectors and
conducts a workshop to provide an evaluation of U.S. DOT's proposed
approach and its recommendations for both the criteria and the
resulting list of standards. These recommendations are to be provided
to the U.S. DOT by February 1999.
3. Taking into consideration the comments and recommendations
received, the U.S. DOT will prepare the final report outlining the
critical standards and present to the Congress by June 1, 1999.
Based on the standards development activity to date, it is
anticipated that most critical standards will be completed well before
the January 2001 deadline. Where a stalemate exists however, the
Secretary is required to select a provisional standard. For those
standards well along in the process, the Secretary has the option of
waiving the provisional standard requirement, as allowed under section
5206(d) of TEA-21. At any time, the Secretary is also allowed to
withdraw a waiver. Notice of any waiver granted, or withdrawn, by the
Secretary will be published in the Federal Register, as required by
TEA-21. In all other respects, the U.S. DOT intends to treat critical
standards in the same manner as other (i.e., ``non-critical'') ITS
standards.
Proposed Criteria and List of Critical Standards
Criteria for identifying critical ITS standards have been developed
by the U.S. DOT based on detailed consideration of the statutory
notions of ``criticality'' reflected in TEA-21 (i.e., standards that
are `'critical to ensuring national interoperability'' or ``critical to
the development of other standards''). For simplicity, such critical
standards are referred to as ``national standards'' and ``foundation
standards,'' respectively. These concepts are further defined below in
the effort to establish objective criteria that logically and
unambiguously lead to selection of critical standards.
National standards are those ITS standards that ensure ``national
interoperability.'' Whereas there may be other desirable national
attributes or outcomes in addition to interoperability, such as economy
of scale and the
[[Page 70838]]
resultant lower product costs or creation of a competitive marketplace
with multiple choices for users, TEA-21 bases ``critical'' standards
solely on national interoperability. In reality, few ITS services
require standardized national-level interoperability. In other words,
there are services that do not justify a single national hardware or
software standard or, otherwise, require a direct interface to a system
that is not buffered, translated, or interpreted.
Considering the various systems and interfaces of an ITS, those
requiring national interoperability appear most related to the mobile
element (e.g., automobile; truck; personal communications device).
Unlike in fixed systems, the hardware and software of mobile systems
cannot easily be adaptable to communicate with different fixed systems
as the mobile unit travels. Using this somewhat bottom-up strategy and
considering the practicalities related to mobile operation, ITS and
interfaces that require interoperability on a national level are for
services that are vehicle-oriented and services that are accessed using
personal communications systems.
In considering the requirement for national interoperability for
mobile systems, only the communications interface between the vehicle
and the infrastructure is important. Such things as the vehicular
components may, or may not, be standardized; they are only required to
support a standardized communications interface to the roadside. To
illustrate this criterion of national (i.e., critical) standards,
examples of mobile user-services might include:
1. Private automobiles, through the use of in-vehicle systems,
maintaining the capability of obtaining traveler information as it
travels across the nation.
2. Commercial vehicles electronically send identification
information that results in proper payment of tolls, recording of
taxes, and relaying of inspection information in any State.
Foundation standards are necessary for the development of other
standards. However, simply defining ``foundation standards'' as
standards that apply to the development of other standards is not
sufficiently precise for defining critical standards. For example, an
existing ``family of standards'' (e.g., NTCIP--National Transportation
Communications for ITS Protocol) uses a single ``overview'' standard
that underpins the remaining standards in the family. However, such
overview standards are simply one piece in the framework of standards
for a particular service. Within the framework or family of standards,
all standards are important and essentially critical; they are all
needed to provide the complete service.
Standards that are of greater applicable importance to the
development of other standards include such things as ``data dictionary
templates'' (that provide the basic structure for designing the various
data dictionaries) and ``location referencing standards'' (that are an
integral part of the content portion of many application message
lists). These types of standards are used by, and are essential for,
other standards--across multiple ITS application areas. The foundation
standard criterion therefore lends itself to the identification of
critical foundation standards as those standards that are essential to
the development of other standards, across multiple ITS application
areas.
List of Proposed Critical Standards
By applying the criteria outlined above to ITS standards currently
under development, the U.S. DOT has identified a proposed list of
standards as critical, for the purposes of seeking public input. The
following table lists the standards that meet the proposed criteria for
criticality as ``national'' or ``foundation'' standards. The list is
ordered alphabetically by title. The table gives the name of each
standard, the objectives of the development project, the name of the
lead standards development organization,\1\ which critical criterion
the standard meets, the specific reason the standard is critical, and
the current status \2\ of the standard.
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\1\ Standards Development Organizations. AASHTO is the American
Association of State Highway and Transportation Officials, ASTM is
the American Society for Testing and Materials, IEEE is the
Institute of Electrical and Electronics Engineers, ITE is the
Institute of Transportation Engineers, NRSC is the National Radio
Systems Committee, and SAE is the Society of Automotive Engineers.
\2\ Standards whose status is ``draft'' are under pre-ballot
review by the standards committees of the standards development
organizations. ``In ballot'' standards are currently being balloted
by the standards committees, or have passed committee ballot and are
being balloted at another level within the standards development
organizations. ``Approved'' standards passed ballot in their
respective standards development organizations and are awaiting
further approval and/or publication of the standard.
Proposed List of Critical Standards
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Title of standard Project objective Lead SDO Type of criticality Rationale Status
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Advanced Traveler Information Develop a minimum set SAE National................... Enables service In ballot.
System (ATIS) Data Dictionary of medium-independent providers with
[SAE J2353]. data elements needed conforming products to
by potential provide travel
information service information to mobile
providers to deploy users throughout the
ATIS services, and Nation.
provide the basis for
future
interoperability of
ATIS devices.
Advanced Traveler Information Provide a basic message SAE National................... Enables service In ballot.
System (ATIS) Message Set [SAE set using the data providers with
J2354]. elements from J2353 conforming products to
needed by potential provide travel
information service information to mobile
providers to deploy users throughout the
ATIS services, and Nation.
provide the basis for
future
interoperability of
ATIS devices.
[[Page 70839]]
ATIS Message Structure for High Develop a general SAE National................... Allows mobile users In ballot.
Speed FM Subcarrier [SAE framework allowing with conforming
J2369]. cooperative products to access
transmission of ATIS traveler information
data via FM Subcarrier. services uniformly
throughout the Nation.
Create a preliminary
coding and message
structure for link
travel time and
network support
functions for
deployment of the
standard modulation
selected to meet ITS
requirements.
Establish efforts to
develop additional
messages beyond link
travel times, e.g.,
transit schedules.
ATMS Data Dictionary (TMDD)-- Develop functional- ITE Foundation................. ATMS data dictionary is In ballot.
Sections 1 and 2 (Links/Nodes/ level data dictionary used by traveler
Events) [TM 1.01]. for Advanced Traffic information systems
Management Systems. that provide services
Section 1 describes to mobile users
and standardizes throughout the Nation.
roadway links and Provides location
nodes in accordance referencing and
with location roadway basis for
referring message other sections of the
standard. Section 2 TMDD. Used by traveler
includes data elements information systems to
for incidents and describe roadway.
traffic disruptive
roadway events.
ATMS Data Dictionary (TMDD)-- Develop funcional-level ITE Foundation................. ATMS data dictionary is In ballot.
Sections 3 and 4 (DMS/Video/ data dictionary for used by traveler
Control/Etc.) [TM 1.02]. Advanced Traffic information systems
Management Systems. that provide services
Section 3 includes to mobile users
data elements for throughout the Nation.
traffic control,
traffic detectors,
actuated signal
controllers, traffic
modeling, vehicle
probes, and ramp
metering data. Section
4 includes data
elements for dynamic
message signs, video
and camera control,
parking management,
and weather stations.
High Speed Subcarrier (HSSC) Develop a high speed FM NRSC National................... Allows traveler Draft.
Layer 1. subcarrier signaling information system
system for wide-area messages to be
data transfer for broadcast to the
multiple applications, traveler (i.e.,
including traffic data vehicle) nationally.
for travelers and
vehicles.
Information Service Provider- A standard location SAE National, Foundation....... Assures consistency in In ballot.
Vehicle Location Referencing referencing format for location referencing
Standard [SAE J1746]. information service and uniform processing
provider to vehicle for mobile users
and vehicle to nationally; may
information service interface with
provider. This international
standard will reflect standards.
the cross-streets
profile of the current
location referencing
message set document.
Message Sets for DSRC, Develop a standard for IEEE National................... Provides message sets In ballot.
Electronic Toll and Traffic exchanging DSRC for other ITS user
Management and Commercial information in services, such as
Vehicle Operations [IEEE bidirectional message electronic toll and
P1455]. transmissions and traffic management and
device control, commercial vehicle
interfacing with, but operations.
independent of the
ASTM DSRC standards.
[[Page 70840]]
Develop an extensible
interface to other
DSRC areas, such as
electronic toll and
traffic management and
commercial vehicle
operations.
Message Sets for Incident To standardize the form IEEE National................... Assures consistency in Draft.
Management: Emergency and content of the communications to
Management System to Traffic incident management mobile users
Management System and messages sets for throughout the Nation;
Emergency Telephone System (or emergency management allows incident
911) [IEEE P1512]. systems (EMS) to management messages to
traffic management be shared among
systems (TMS) and from different ITS systems.
emergency management
systems to the
emergency telephone
system (ETS) or (E911).
National Transportation Address real time peer- AASHTO National................... Assures data exchange Draft.
Communications for ITS to-peer exchange among traffic centers,
Protocol (NTCIP) Profile for (including some remote emergency management
Center-to-Center control/command centers, traveler
Communications-CORBA. capability) between information systems,
transportation and transit management
management centers and centers.
systems such as
traffic operations
centers, transit
operations centers,
emergency management
centers, and traveler
information systems
using Common Object
Request Broker
Architecture.
National Transportation Address real time peer- AASHTO National................... Assures data exchange Draft.
Communications for ITS to-peer exchange among traffic centers,
Protocol (NTCIP) Profile for (including some remote emergency management
Center-to-Center control/command centers, traveler
Communications-DATEX-ASN. capability) between information systems,
transportation and transit management
management centers and centers.
systems such as
traffic operations
centers, transit
operations centers,
emergency management
centers, and traveler
information system
using a predefined
message transfer
approach.
NTCIP--Global Object Identify and define AASHTO Foundation................. Assures that all Published.
Definitions [TS 3.4]. those object objects (values and
definitions that may functions) are
be supported by consistent in other
multiple device types, NTCIP standards and in
such as actuated transit communications
signal controllers and interface profiles
variable message signs. (TCIP) standards.
NTCIP--Simple Transportation Specify a set of rules AASHTO National................... Assures uniform Approved.
Management Framework [TS 3.2]. and protocols for information exchange
organizing, describing among transportation
and exchanging management
transportation applications and
management information equipment that sends
between transportation or receives the
management information.
applications and
transportation
equipment such that
they interoperate.
On-Board Land Vehicle Mayday Develop a common SAE National................... Provides message and In ballot.
Reporting Interface [SAE specification which information between
J2313]. prescribes various emergency management
protocol methods centers and mobile
enabling vendors with users nationally.
different
communication methods
to speak with response
agencies in a standard
format.
[[Page 70841]]
Address message content
for national
consistency.
Standard for Data Dictionaries Specify a common set of IEEE Foundationl................ Sets requirements for In ballot.
for Intelligent Transportation meta entities and meta the attributes to be
Systems [IEEE P1489]. attributes for ITS used by all ITS data
data dictionaries, as dictionaries for
well as associated unambiguous data
conventions and transfer.
schemas, that enable
describing,
standardizing, and
managing all ITS data.
The consistent use of
common structures and
associated conventions
and schemas, data and
information can be
unambiguously
exchanged among
various ITS functional
subsystems through
their specific
application systems.
Standard Specification on Develop a specification ASTM National................... Allows DSRC systems to In ballot.
Dedicates Short-Range for the protocol (data communicate between
Communications (DSRC) Data link) communications roadsides and vehicles
Link Layer [ASTM2]. for DSRC. Support both nationally.
active and backsetter
transponders.
Dedicated Short-range Develop a specification ASTM National................... Allows DSRC systems to In ballot.
Communications (DSRC) Physical for the radio communicate between
Layer--902-928 MHz [ASTMI]. frequency roadsides and vehicles
characteristics nationally.
(physical layer) for
DSRC operation in the
range of 902 to 928
MHz. Support both
active and backscatter
transponders.
Template for ITS Message Sets Develop a standard for IEE Foundation................. Describes the structure Draft.
[IEEE P1488]. an ITS Message Set and content of message
Template. sets for exchange
between traffic
centers, emergency
management centers and
traveler information
systems in a
consistent and uniform
manner.
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(Authority: 23 U.S.C. 315; sec. 5206(c), Pub. L. 105-178, 112 Stat,
107, 456 (1998); 49 CFR 1.48)
Issued on: December 16, 1998.
Kenneth R. Wykle,
Federal Highway Administrator.
[FR Doc. 98-33800 Filed 12-21-98; 8:45 am]
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