OR 217 Active Traffic Management Category: Best New Innovative Product, Service, or Application Oregon Department of Transportation (ODOT) 123 NW Flanders Street, Portland, Oregon 97209 Dennis Mitchell, P.E. Region Traffic Engineer, ODOT, dennis.j.mitchell@odot.state.or.us
1) Project Description: a) What is the purpose of the project? OR 217, a 7.5- mile limited- access expressway in Portland, Oregon was the subject of several studies that recommended capacity and interchange improvements costing nearly $1 billion. Because of limited funding, the Oregon Department of Transportation (ODOT) and the DKS Associates Team evaluated, designed, and built Active Traffic Management (ATM) improvements to increase the highway s reliability, mobility and safety. Improvements included variable advisory speeds based on current traffic and weather conditions, variable message signs on the freeway and surface streets to provide real- time travel time estimations and queue warnings, and targeted shoulder widening to provide space for disabled vehicles and improve emergency vehicle access. The OR 217 ATM project is a part of the ODOT RealTime project. It s purpose is to: Improve safety Reduce secondary crashes Provide real time travel information Increase highway efficiency without the high cost of major new construction b) What needs and challenges does it address? Whom does it serve? The project meets the goals of improving highway efficiency and safety without the high cost of major construction by employing low- cost ATM solutions. Over the past decade, OR 217 was the subject of several extensive studies that recommended capacity and interchange improvements costing $1 billion. Previous studies proposed costly capital projects, such as widening to six lanes, braiding ramps, and adding collector- distributor roadways, to address Highway 217 s mobility and safety problems. The project serves the traveling public. The public expects ODOT to carefully spend taxpayer dollars and to do more with less. This project is a shining example of applying those values to a real solution. Additionally, ODOT s mission is to provide a safe and efficient transportation system and this project is fully rooted in making our highways safer. This project informs drivers of road conditions and slows them down before encountering congestion. People getting where they need to go safely and efficiently are core community values and are exactly what this project focuses on. c) Was it designed as a short- term or long- term effort? The OR 217 ATM system is designed as a long- term solution. The back office system and architecture was designed so that the ATM system could be applied to any other highway in Oregon including urban and rural roadways. The system is fully automated, includes numerous configurable parameters, and responds to current weather and congestion conditions, which enables the system to be easily adapted for different
corridors. The system uses national standards for data and communications, which allow it to be easily adapted to support future interfaces to connected vehicles. Future considerations for the variable speed system include a live connection to TripCheck with real- time speeds, a smartphone app, and connections to connected vehicles to use vehicle data for setting speeds and informing vehicles of the current posted speed. d) How does it further the development and/or deployment of ITS? How does it help the organization achieve its goals? This project helps to further the development and deployment of ITS across the country and state. As a part of this project, ODOT developed a concept of operations that detailed the various systems in operation in the corridor, which was used as a launching point for another concept of operations: the Statewide Variable Speed System Concept of Operations. The statewide system allows ODOT to implement variable speed systems anywhere throughout Oregon based on the design and guidance from the OR 217 ATM project. Based on this project, planning work has been completed for an automated weather- responsive variable speed system on a freeway across a mountain pass in Southern Oregon and a rural highway in Central Oregon. Additionally, design is currently underway for a variable speed system on two highways through the popular Mt. Hood winter recreation area, and one highway in eastern Oregon. All of these variable speed systems will use the same software developed as part of the OR 217 ATM project. The project has been constructed and early results show it has helped ODOT achieve its goals by improving the corridor s safety, travel time reliability, and mobility. The system includes: Variable advisory speed (VAS) signs that change based on current traffic and weather conditions; these signs advise motorists to slow down before reaching a traffic queue, a stall, congestion or other obstructions and reduce the number of secondary crashes. This VAS system is unique because it is the first fully automated weather and congestion responsive system in the country that proactively manages vehicle speeds. The congestion responsive VAS system uses the common traffic sensor network and turns on when traffic speeds fall below free- flow conditions. Average
traffic speeds and volumes are collected via inductive loops and radar on intervals as small as 20 seconds. From this data, 85th percentile speeds are estimated to determine an appropriate congestion speed to display. During heavy congestion, a message of SLOW is generated instead of an advisory speed. The message indicates that drivers should slow down and to expect stop- and- go traffic. In these conditions, a queue warning or travel time estimation messages on nearby variable message signs (VMS) may accompany the SLOW message. The weather responsive VAS system uses data from a device that provides grip factor (relative friction of the roadway), visibility, and roadway surface classification. Using these three factors along with any current chain- up conditions, an appropriate weather speed is generated. In addition to controlling variable speeds, the weather responsive system also generates messages for the arterial and freeway VMS located throughout the Highway 217 corridor. Traveler information signs that alert drivers to crashes, congestion, road conditions, closures and other traffic- related information Travel time signs that display estimated travel times to key destinations, allowing travelers to plan an alternate route, know how long it will take to get to work, or how long before they get home An adaptive ramp metering system that adjusts rates based on traffic conditions A queue warning system that warns drivers of stopped or slowed vehicles A curve warning system that warns drivers of slippery conditions during heavy rain, ice or snow conditions Targeted shoulder widening improvements at three key locations that were designed and built to provide space for incident removal from the travel lanes and get traffic moving again quickly 2) Project Results: Using a before and after comparison, please describe the project s results the specific and measurable outcomes and explain how you measure performance. a) Prior to the start of the project, what were the conditions, results, or situations that serve as the baseline against which you compare the project s outcomes? OR 217 has closely spaced interchanges and its 2010 crash rate was 0.66 crashes per million vehicle miles compared to the statewide average for urban freeways of 0.52 crashes per million vehicle miles. The highway, which carries approximately 110,000 vehicles per day, often operates at or above capacity. Its traffic volumes doubled between 1985 and 2005. By 2025, the traffic volumes are expected to increase another 30%. b) What are the results of the project? On Tuesday, July 22, 2014, ODOT turned on the new real- time system, which includes improvements along OR 217 and other freeways in the Portland metropolitan area, to reduce crashes, improve safety, and improve travel time reliability. Although the system is too new for a full statistical analysis, early trends show that in addition to improvements in travel time reliability, which gives drivers confidence in how long it will typically take to travel along the corridor, travel times have actually decreased along the corridor while traffic volumes have been steadily increasing.
Since this project was implemented, average travel times have improved. Travel time during morning and evening peaks decreased by 9%, while midday travel times decreased between 8 to 18%. During peak hours when all systems are operating, more cars move through the corridor than before and at improved speeds. During peak rush hours in both the morning and evening commutes, traffic slows when volumes approach capacity. The average travel time along OR 217 during the morning commute is 17 to 18 minutes and the evening commute is 16 to 19 minutes. These travel times are for both northbound and southbound directions. The system smooths the flow of traffic allowing improved speed during peaks. Initial results indicate that travel time variability has been reduced by 50% along the corridor, which increases the reliability of motor vehicle trips. In addition to decreased travel times, increased daily volumes, and more reliable travel times, the ATM system has shown to maintain speeds along the corridor. In some cases, the speed actually increased during the peak period. For example, the PM peak period showed an increase in average speed in the northbound direction of approximately 8%. It would be expected that higher volumes would produce slower travel time and slower speeds, but this has not been the case. Finally, early studies have shown that in November, during increased winter weather conditions, the number of crash- related incidents was reduced by 25%. The variable speed advisory system was designed to provide warnings during weather conditions as well as normal congestion. c) What is the new dimension of performance? How are the results in 2b superior to those in 2a? The new dimension of performance is defined by the decrease in travel time, reduction in crashes, and the improvement in travel time reliability along the corridor. No other ATM system in the country has experienced these results. These results are attributed to the fact that the ATM system is fully outfitted to include ramp metering, curve and queue warning signs, advisory speed signs, traveler information and travel time signs, and targeted shoulder widening. This project emphasizes that low- cost solutions can set the stage for improved performance. d) Did the project produce any unanticipated results? The successful launch of this project helped ODOT obtain a federal Transportation Investment Generating Economic Recovery (TIGER) grant. ODOT and local governments have started planning ways to use the $10 million grant to improve highway efficiency and safety along the busy Washington County transportation corridors. In addition, the project s concept of operations, architecture, and design can be replicated in this Washington County project and other projects across the state leveraging the investment made by the OR 217 ATM project. 3) Project Impact: How does it make a difference in the lives of people? Public opinion has been positive. The ODOT OR 217 ATM system empowers drivers to make real- time decisions. The advisory speed signs help drivers slow down before they encounter stopped traffic or congestion. The full- color travel time and traveler information signs help drivers consider alternative routes or plan arrival times, all without taking their eyes off the road. All of these elements have helped drivers gain
confidence in travel time reliability. Most importantly the project makes a difference in people s lives by reducing crashes and secondary crashes. 4) Potential as a Model: How can the project serve as a model that can be replicated or adapted by other organizations? The project can serve as a model that can be replicated by others in several areas: ODOT s internal decision- making and roll- out processes The software is designed as an enterprise software that is extremely configurable to match any rural or urban highway condition in the state The project s design elements are compatible with connected vehicle technology. The internal decision- making process involved many ODOT teams, including project development, information technology, construction, public affairs, community affairs, and planning. The process included an outreach group that met monthly to review progress. An effective launch also required extensive outreach to local governments, state legislators, emergency service providers and community groups. ODOT greatly benefitted from their expertise. Roll- out was the biggest single concern of planners. It was important to make sure the system functioned properly from day one. ODOT was very aware of how technical flaws can cripple public confidence in complex projects, with examples available in Oregon and many levels of government. This meant testing, retesting and performing technical fixes of hardware and software to ensure removal of any potential disaster that could damage public confidence. The software is designed as an enterprise system that can match any rural or urban scenario encountered in the state. This demonstrates the value of the systems engineering process because the system was designed and built with other projects in mind. Expansion of the active traffic management capabilities can be more cost effectively deployed on other corridors because the software is extremely configurable, and already capable to support the new conditions. ODOT s RealTime project, which includes the OR 217 ATM project, was announced publicly July 10, 2014 with a news conference attended by numerous newspaper and radio reporters and all Portland TV stations. The systems were introduced in three stages. First, travel time signs were activated on 28 message signs on Portland area highways. A week later, a variety of intelligent transportation messages were activated on new, full- color signs on OR 217. And a week after that, advisory speed signs were activated on OR 217, Interstate 5 and Interstate 405.
Public reaction since launch has included many messages from travelers appreciative of the new system. Another important element that will serve as a model for other organizations is that the entire system was designed to be connected vehicle ready. RealTime information could be readily available to drivers through on- board automobile systems, and the RealTime system can consume speed and other data from vehicles to use in the decision support system. 5) Additional Background: Provide Information about the origin and implementation of the project, such as: Who was responsible for starting it? Were any particular funding sources, resources, partnerships, and alliances particularly helpful in implementing and sustaining it? What is its future? The 217 ATM project was an outcome of the OR 217 Interchange Management Study completed by ODOT in 2011 that evaluated low- cost improvements to increase the corridor s reliability, mobility, and safety. Previous project studies had recommended improvements that included adding lanes and braided ramps and constructing collector- distributor roadways, all of which totaled $1 billion. The 2011 study identified over 30 improvement alternatives that spanned from capital improvements to system and demand management projects. Key performance measures, including travel time reliability, crash reduction potential, incident recovery time, and affordability were used to rate alternatives. The result of this effort was a menu of projects widely supported by elected officials that included targeted locations for shoulder widening, provision of traveler information, variable speed systems, and ramp management improvements that were able to provide benefits at affordable costs. The OR 217 ATM project was designed and deployed based on the 2011 study. A variety of funding sources were employed, including Federal Highway Administration financing of a critical peer review meeting in Portland with officials involved in active traffic management projects from Washington, Missouri, Minnesota and Virginia. Officials from the other states described for ODOT what they did wrong, what they did right and how they would handle the launch if they could do it over again. A federal grant also financed a weather system that makes signs on OR 217 the first in the country to include fully automated weather and congestion advisories. 6) Statement by the Project s Leadership: Regarding the processes of innovation, leadership and building partnerships have you gained any knowledge or insights that might be instructive or inspiring to others? Innovation, leadership and partnerships have been the driving force of this project. Before beginning the project, ODOT studied emerging and innovative transportation technologies and lessons learned in other states using focus groups to understand what options would improve the day- to- day lives of local travelers. The findings were eye- popping. National studies showed that advisory speed signs reduced overall crashes by 20 percent, reduced rear- end collisions by 30 percent, and reduced secondary crashes by 40 percent. Throughout the lifecycle of this project, the team understood that the public s response would be critical to its success. To learn more about commuter preferences, four focus groups were held that were made up of stakeholders, elected officials, planners, and operators. The focus groups discussed in great detail driving habits and what technical improvements they d find helpful. In addition, the ongoing partnership with Portland State University and its Portal Data Archive has made the system evaluation possible and will continue to be an asset as further analysis is completed. Elected officials have been involved with the project from conception through roll out. They participated during multiple stages of development and implementation in outreach strategy meetings and focus groups. They have publically supported the project when it was announced and have continued to be supportive after roll out.
What Public Officials Say: Reducing auto crashes on OR 217 will save lives and reduce travel delays for everyone across the region. RealTime will empower drivers with information about stopped vehicles ahead and adjust travel speeds based on roadway conditions. Every crash avoided through information will reduce headaches, heartaches and delay. - - Beaverton Mayor Denny Doyle RealTime resulted from years of conversations between ODOT, state legislators, federal and local governments, and Washington County. We decided together to advance the traveler information and variable speed project because it s a cost effective way to make a difference in people s lives today. - - Oregon Rep. Tobias Read People, and companies moving goods to and from our communities, expect their government to provide a transportation network that is safe, connected and reliable. They also expect government to make the most of what it has. The development and activation of traveler information and advisory speed signs along highway 217 address those expectations helping each of us get where we need to go more safely and reliably. - - Kathryn Harrington, Metro Councilor, District 4 I hope this technology can aid commuters in navigating difficult traffic areas and reduce commute time for all motorists. - - Tigard Mayor John Cook