Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

CC File No. 5761

TO:

Vancouver City Council

FROM:

General Manager of Engineering Services

SUBJECT:

Traffic Signal Management System (TSMS) Upgrade

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

The Transportation Plan for Vancouver indicates that pedestrians, bicycles, and transit have priority over cars.

Council approved the Capital Funding of $3,000,000 for the TSMS upgrade in the 1997 to 1999 Capital Plan.

SUMMARY

The Traffic Signal Management System (TSMS) is the primary system for controlling traffic operations, priorities, and safety through the City's signal system but is presently overloaded. A feasibility study has examined options for upgrading the existing system. A Central Distributed Multi Protocol (CDMP) system would best meet the City's criteria for coordinating and monitoring the signal system, sharing and presenting information through new technologies such as the Internet, and keeping costs down. Multi Protocol refers to a system which can communicate with traffic signal controllers from various manufacturers.

Delcan, which was chosen to lead the feasibility study, is recommended to be retained for implementation of the system. Delcan is the national leader in CDMP technology and has key knowledge of Vancouver's existing signal system.

The Region of York has recently implemented a CDMP system with Delcan's help. Funding of approximately one million dollars was provided by the Federal Government to develop the software. It is recommended that this traffic system software be purchased from York at a license fee of $25,000, which represents a considerable cost savings over other alternatives.

All other elements of the system upgrade, amounting to 85% of the budget, would be subject to tendering procedures.

PURPOSE

To recommend procedures to carry out an upgrade to the Traffic Signal Management System.

BACKGROUND

The Traffic Signal Management System (TSMS) provides centralized control over signals in the City. Through this system, the City maintains control over efficiency, priorities, and safety throughout the network. The system was installed in 1986 and has improved signal coordination, monitoring capabilities, and has provided more flexibility for making adjustments. It has resulted in a much more efficient system, and has allowed travel times to remain low despite increases in traffic. Specifically, the TSMS provides the following important functions:

i) It coordinates signals across the City, which reduces travel times for roughly a million trips per day.

ii) It allows signal timings to be changed quickly to respond appropriately to pedestrian, bicycle, and transit priorities.

iii) It provides different control programs and changes to the signal timings to respond to varying travel needs, such as major events.

iv) It monitors the system for malfunctions, traffic volumes, provides feedback on pedestrian and bicycle actuation, and allows quick repairs, modifications, or adjustments.

The system provides the flexibility to make changes to all signals at once or to choose one or a small group of signals. For example, special timing plans for large events at BC Place and GM Place have been established, which only affect signals on certain streets for a specific time period. Also, priorities like the walking time for pedestrians can be adjusted immediately from a central terminal. Similarly, adjustments will be possible on transit routes to give priority to buses, once BC Transit buses are appropriately equipped.

The existing system is now over capacity and can not support additional signals. The existing system has a capacity to control up to 600 intersections with 75 single pair communications circuits and eight controllers per circuit. There are now 610 signals in the City, and typically twenty new signals are installed each year. The result of this over capacity is a less efficient system, with no ability to centrally control and monitor new signals.

The system is now twelve years old and technology has changed greatly since it was first implemented. A system upgrade would provide the opportunity to adopt new technologies and respond to new priorities. In addition, it would allow a connection to the Internet to communicate with other agencies and the public.

In view of the capacity problem, a feasibility study for upgrading the signal system was planned. The City invited expressions of interest and qualification from five engineering firms and received letters of interest from two of these. After careful consideration of both proposals, Delcan was chosen to conduct the study, at a cost of $29,490. A copy of the final report is on file in the office of the General Manager of Engineering Services.

The study investigated the alternatives for upgrading the system to provide control and monitoring of all signals within the City for the next ten to fifteen years. The criteria for the new system are indicated below:

- maximize the use of the current system's control features, communication network, field equipment and related databases;

- expand on trouble detection and notification for quicker response to malfunctions and emergencies;

- provide compatibility and maximum flexibility for future technology changes;

- provide information to agencies and the public through Internet access;

- be implemented at a moderate cost; and

- be implemented with a minimum of disruption to existing operations.

Six candidate systems were identified for consideration, and each represents a different concept of traffic signal management. A summary of the analysis on each of the candidate systems is shown in Appendix A.

After a detailed evaluation and review, it was determined that the two systems that best meet the criteria are (A) increase existing system's capacity, and (F) Central Distributed Multi-Protocol system (CDMP).

As noted in Appendix A, CDMP has open architecture which allows information sharing and easier expansion to the system. It also can communicate with more than one type of controller (multi-protocol) which provides more flexibility to the system. CDMP would use the existing communication lines but would require new controller software and a new PC-based computer system.

The two short listed systems have been evaluated based on their capital and life cycle costs, as well as each system's capability to meet current and future requirements.

RATING THE SYSTEMS

To refine the decision making process, a cost/benefit analysis was undertaken to determine which candidate system was the most useful. The cost evaluation of the two short listed candidate systems was done on a life cycle basis over an estimated life of 15 years and a discount factor of 8%. It takes into account both capital and recurring costs. The cost for each of the two systems is summarized in Appendix C.

There are also additional costs involved in replacing the field controllers, which are estimated to be $1,660,000. Since the existing controllers are reaching their design life, this cost is not solely related to the implementation of a new central system, but it will be cost effective to replace the controllers simultaneously with the system upgrade. Funding to replace most of the controllers is included in the project budget.

In addition to a cost comparison the two short-listed systems were also evaluated in terms of how effective each would be in meeting the City's requirements. Input was gathered from various work groups affected by the signal system. The results of the evaluations are summarized in Appendix B.

The analysis shows that option F, the Central Distributed Multi-Protocol system, has many advantages over option A, expanding the existing system. A list of the advantages is shown below:

- Although both systems are very close in capital costs ($1,034,000 versus $1,039,500), Central Distributed Multi-Protocol would have new hardware and software, which would save approximately $50,000 per year in operating costs. Therefore, CDMP is more economical.
- CDMP is better at sharing information with other agencies and the public through GIS and the Internet. This is becoming more important as the Internet grows and the public demands more information. The information could include data on traffic volumes or timings at a particular signal. (For example, Seattle Metro has an extensive Internet presence).

- CDMP relies more on the individual controllers and less on the central computer so the existing communication system can be used to serve at least twice as many intersections.

- There would be improved access to data and improved graphics capabilities for data analysis and reports.

- It would be possible to use controllers from a variety of manufacturers, without providing communication control units at each intersection.

Central Distributed Multi-Protocol is a state-of-the art signal control system. It is recommended over expanding the existing system because it provides the advantages described above at similar capital cost and a lower operating cost. The Region of York has successfully implemented a similar system recently. The central software used by York was developed in 1996 with funding from the Federal Infrastructure Program, at a cost of approximately one million dollars. A software license can be purchased from York for $25,000 and the software can then be customized for Vancouver (at an estimated cost of $100,000). Acquisition of this license would represent considerable cost savings, compared with developing the software independently.

FUNDING AND IMPLEMENTATION

In the 1996 plebiscite, funding of $3 million was approved for the upgrade of the signal system, as part of the 1997 - 1999 Capital Plan. Based on this analysis the system can be completed within budget; a summary of the estimated costs (including consulting and engineering fees) is as follows:

 

Central Computer System
Software License (from York)
Software Changes
Communications
Controller Replacement
Contingencies
TOTAL

$ 55,000
$ 25,000
$ 210,000
$ 750,000
$ 1,660,000
$ 300,000
$ 3,000,000

This plan is divided into three stages:

Year One - detailed design of TSMS implementation

Year Two - complete the software customization

Year Three - complete the controller upgrades

The $3,000,000 needed to complete the signal system upgrade will be funded from $2,000,000 in Account Number 25/34/4591/999 - TSMS Upgrade, and a $1,000,000 increase in borrowing authority, which was not included in the 1998 Capital Budget. This additional borrowing authority will provide the full $3,000,000 approved as part of the 1997-1999 Capital Plan.

SELECTION OF DELCAN AS SYSTEM MANAGER

Delcan Corporation was selected to conduct the initial feasibility study after a review of letters of interest. It is recommended that Delcan be retained for engineering design, specifications, and system integration. The reasons for choosing Delcan for this work are as follows:

- Delcan is the national leader in traffic control systems, and in the development of Central Distributed Multi-Protocol technology, and is recognized internationally.

- Delcan developed the system software for York, and could adapt it for Vancouver at a low cost.

- Delcan was involved with implementation of the original Traffic Signal Management System in Vancouver and this knowledge will help with implementation of a new system.

In summary, Delcan's expertise in signal systems and knowledge of Vancouver's system is outstanding, and will result in implementation of a state-of-the art system at a reasonable price.

PURCHASE OF SYSTEM COMPONENTS

The traffic system software (which cost one million dollars to develop) can be purchased from York for $25,000. All remaining hardware and software components, which account for 85% of the costs of the project, would be purchased through standard tender processes.

CONCLUSION

There are a number of alternative options for upgrading the signal system as shown in Appendix A. Although there are numerous advantages and disadvantages, the primary factors supporting the Central Distributed Multi-Protocol system are low cost, flexibility, and the ability to work with many different suppliers. Licensing of the York software, developed with public infrastructure funds, will save the City approximately $875,000. Competitive software programs are available, but in general these are dependent on specific manufacturers to supply hardware or communications. In contrast, the CDMP system can operate with multiple suppliers of hardware, and multiple communications systems. For these reasons, the York CDMP system, developed with infrastructure funds, is most desirable, as well as cost-effective.

NOTE: ELECTRONIC COPIES OF APPENDICES A-C NOT AVAILABLE - ON FILE IN THE CITY CLERK'S OFFICE.

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