Program Performance Review

Transcription

1 Program Performance Review Traffic Engineering Division October 5, 2009 Report No Source: Florida Department of Transportation Office of the County Auditor Evan A. Lukic, CPA County Auditor

2 Table of Contents Topic Page Executive Summary... 1 Purpose and Scope... 3 Background... 3 Section 1: Assessment of BCTED s Accountability System... 8 Section 2: Assessment of BCTED s Performance Appendix A... 32

3 Executive Summary This report presents the results of a Program Performance Review of the Broward County Traffic Engineering Division (BCTED). Our review objectives were to assess the extent to which BCTED achieves desired results, and to identify opportunities to reduce program costs and increase program benefits. The Program Performance Review of BCTED is presented in two sections. In Section 1, we examine elements of BCTED s performance measurement and reporting system. Establishing an effective accountability system through performance reporting is essential to ensure public funds are spent in a manner that achieves desired results and improves the provision of public services. In Section 2, we evaluate how effectively BCTED achieves its mission of providing for safe and efficient traffic movement on Broward County roadways. The following is a summary of significant findings identified during the Program Performance Review of BCTED: BCTED s data collection and reporting structure could be improved to enhance its value to citizens, policymakers and managers. In a 2007 self-assessment, BCTED acknowledged its traffic monitoring and data collection structure did not meet industry best practice. Our observations were generally consistent with BCTED s self-assessment. To improve its data and reporting structure, we recommend the Division take steps to (1) ensure its service costs are calculated at full-cost and in accordance with industry definitions, (2) benchmark its service costs to comparable public and private providers to ensure that services are delivered at low cost to the taxpayer, and (3) decrease its reliance on estimates for performance reporting by better utilizing its existing computerized work order system to generate automated performance reports based on actual data (see pages 8-14). In the past few years, BCTED has taken steps to harden the County s traffic control infrastructure and increase vehicular, cyclist and pedestrian safety. For example, the Division has initiated a mast-arm installation program, adopted the use of square-tube posts to strengthen its traffic sign installations, and increased its road marking/restriping output by 103.8%. Industry experts we interviewed indicated these safety initiatives should collectively decrease the County s vulnerability to tropical storm/hurricane wind damage, and provide residents and visitors with improved visibility of traffic control devices throughout the County (see pages 16-20). BCTED does not have a program to collect and analyze crash data from local police departments. Industry best practice specifies that crash data should be routinely examined to identify roadway safety deficiencies that may be addressed through the installation of traffic control devices and/or signal timing adjustments. Without a program to collect and analyze crash data, BCTED is limited in its ability to identify and prioritize signalization projects that would most positively affect Page 1

4 public safety, and to conduct post-project assessments of whether specific projects reduced crash rates/severities as intended. We recommend BCTED determine the feasibility of implementing a program to collect and analyze traffic crash data for Broward County s major signal corridors, including all prescribed measurements of the Broward MPO (e.g. crash rate and crash severity index ) (see pages 20-21). BCTED reports replacing approximately 1,200 outdated signal controllers since 2003; improved asset management would help ensure all traffic control equipment is routinely replaced in accordance with best practice. Signal controllers manage signal timing patterns at each intersection; a malfunction with just one signal controller can disrupt the efficiency of a major traffic corridor (e.g. Broward Boulevard). BCTED estimates that 87.4% of the County s signalized intersections have been upgraded with new signal controller technology in the past 10 years, which suggests most of the County s signal controllers meet industry best practice. However, the Division currently lacks the capability to generate systemwide reports detailing the installation dates of its traffic control equipment (with associated serial numbers, warranties, etc.). We recommend that the Division strengthen its asset management program to ensure essential equipment is upgraded in accordance with best practice (see pages 21-23). BCTED s vehicle detection infrastructure does not meet industry best practice; the Division has initiated a $14.7 million capital project to improve vehicle detection throughout the County. While industry best practice specifies that at least 95% of a system s vehicle detection devices should operate as designed, BCTED recently reported less than 80% intersections have vehicle detection systems that meet this standard. Without properly functioning vehicle detection, a signal system loses the ability to make adjustments in response to real-time traffic conditions. Drivers may find that a signal light turns green despite no vehicles present at the corresponding intersection, creating unnecessary travel delay. To address this deficiency, in June 2009 BCTED contracted with a vendor to replace vehicle detection devices at 700 intersections throughout the County; we recommend BCTED provide status reports to the Board indicating the number of vehicle detection devices installed during each quarter of the project, which is expected to be completed within 36 to 48 months (see pages 23-25). BCTED has not conducted signal retiming (i.e. synchronization) on numerous County roadways in accordance with industry best practice. Within the traffic engineering industry, signal retiming and synchronization is considered one of the most cost-effective ways to improve traffic flows and reduce motorist travel time. Although industry best practice specifies that signal corridors should be retimed a minimum of once every three years, we found numerous instances where BCTED has not retimed signal corridors in accordance with this standard (e.g. Griffin Road has not been retimed since 2003). Our review indicates BCTED achieves positive results when signal retiming is conducted, yet it appears that the Division has not allocated appropriate staff resources to meet industry best practice. We recommend BCTED develop a plan to conduct signal retimings in accordance with industry best practice (see pages 25-30). Page 2

5 Purpose and Scope This report presents the results of a Program Performance Review of the Broward County Traffic Engineering Division (BCTED). The purpose of this review was to assess the quality of BCTED s accountability system, evaluate its performance and identify options to improve services and reduce operating costs. To accomplish our objectives, we: Reviewed pertinent performance measurement, general management, and traffic engineering literature; Analyzed available performance data for BCTED s operations; Analyzed information provided by BCTED s managers and employees relative to specific management processes and controls; Reviewed applicable BCTED records and documents, including relevant policies and procedures; Reviewed applicable Florida Statutes and Broward County Ordinances pertaining to traffic engineering; Interviewed BCTED managers and employees; Interviewed transportation and engineering officials from other jurisdictions, academia, industry associations and the Florida Department of Transportation (FDOT); and Reviewed BCTED s response and background materials for the National Transportation Operations Coalition s 2007 Traffic Signal Operation Self Assessment Background The Broward County Traffic Engineering Division (BCTED) was established in 1976 by merging the traffic engineering functions of the cities of Fort Lauderdale and Hollywood with the County s traffic division. The consolidation of these entities was intended to provide uniform traffic signal control and management throughout Fort Lauderdale, Hollywood and unincorporated Broward County. Since its initial consolidation, BCTED has taken steps to further unify traffic signal control and management in Broward County. Specifically, BCTED has agreements with 27 of Broward County s 31 cities to provide complete traffic engineering services, and agreements with two cities (Plantation and Wilton Manors) to provide modified traffic engineering services. 1 BCTED services generally include the planning, design, engineering, construction and maintenance of all traffic control devices (signals, signs and pavement markings) for maintained public roadways. BCTED provides traffic engineering services at no cost to Broward County cities. 1 Southwest Ranches and Hillsboro Beach are the two Broward cities that do not have agreements with BCTED as of March 2009; modified traffic engineering services means BCTED provides services for only designated roadways within a municipal boundary. Page 3

6 Additionally, BCTED provides traffic signal engineering services on all State roadways, such as University Drive and US-1/Federal Highway. While the traffic signal systems on State roadways are technically under the jurisdiction of FDOT, BCTED has assumed maintenance responsibility for these signals via intersection maintenance agreements with FDOT. For Fiscal Year 2009, FDOT provides $1.3 million of compensation for intersection maintenance services provided by BCTED. As shown in Exhibit 1, most traffic signals maintained by BCTED are under FDOT s jurisdiction. Exhibit 1: 52.4% of the 1,373 traffic signals maintained by BCTED are under FDOT s jurisdiction Source: BCTED The traffic signal system managed by BCTED, often referred to as the arterial signal system, is estimated to carry more than 50% of Broward County s daily traffic volume. Arterial roadways are generally characterized by their lack of residential entrances; rather these roadways are designed to quickly move traffic between neighborhoods and to link with expressways, freeways and interstates. Within Broward County, Commercial Boulevard is an example of a major arterial roadway. As arterial roadways often intersect with local streets, traffic signals are typically necessary to control the flow of traffic. BCTED maintains 1,373 traffic signals, 906 school flasher signals, 1,662 streetlights and 2,407 internally illuminated street name signs on Broward County s roadway network for Fiscal Year Division Programs BCTED offers a comprehensive array of traffic engineering services to its contract cities, FDOT and unincorporated Broward County. These services are grouped into eight program areas; one or more sections of BCTED personnel are typically responsible for each program s operation and management. The eight programs are as follows: (1) Neighborhood Enhancement BCTED staff routinely participate in neighborhood association meetings of the unincorporated neighborhoods to hear resident concerns related to residential roadways. BCTED is often approached by a Page 4

7 neighborhood association to determine if traffic calming devices can be installed to discourage vehicles from speeding or using residential roads as a cut-through to larger arterial roadways. After review and analysis of presented concerns, BCTED advises about potential traffic calming devices that conform to the neighborhood plan so the association can put to vote whether or not to proceed with potential roadway modifications. (2) Planning & Design BCTED performs traffic reviews of new development as mandated by the Broward County Land Development Code. This includes technical reviews of roadway construction projects, pavement marking and signing plans for Broward County and municipal road projects. (3) School Safety Programs BCTED installs and maintains school signage, flashers and pavement markings around each school for the safety of students and motorists. Staff may also attend PTA, parent advisory and school safety meetings (as requested) to discuss safety issues or proposed traffic management changes. BCTED works with municipal Engineering and Police Departments during major road projects to maintain and/or alter designated safe walk routes during the construction phase. (4) Street Lights BCTED works closely with the residents of unincorporated areas to address the installation of new street lights or upgrades to existing street lights within their community. If requested, staff members will attend Homeowner Association meetings to discuss the procedure for requesting a study and possible installation of street lights. In addition, BCTED maintains 1,662 streetlights on arterial roads. (5) Signal Construction & Maintenance BCTED traffic signal technicians construct essential traffic signal installations in accordance with system designs and maintain/rebuild existing traffic signals and signal knockdowns with 24-hour emergency service as needed. Staff also maintains roadway lighting on selected roadways throughout the County. (6) Traffic Signal Systems BCTED is responsible for the management of interconnected traffic signal systems controlled by computer. As the coordination of traffic signals is critical to the efficient movement of traffic, groups of signals must be continuously retimed and synchronized to ensure that timing patterns accommodate prevailing traffic conditions. BCTED staff performs signal retiming and monitor and maintain the vast signal communication infrastructure necessary for a coordinated signal system. (7) Traffic Signs & Pavement Markings BCTED services include, but are not limited to: sign fabrication, sign installation, and the repair and maintenance of roadway signing and pavement markings on County maintained roadways and in cities that contract with BCTED for traffic engineering services. Page 5

8 (8) Traffic Studies & Analysis BCTED performs quarterly traffic volume counts at 800 locations throughout the County. This includes turning movement counts, traffic delay determinations, pedestrian counts, speed studies and traffic crash diagrams. The data collected is used by the Broward Metropolitan Planning Division (MPO) to assess the County s transportation planning needs. It is also used internally by BCTED to make decisions regarding traffic signal warrants, appropriate speed limits and the placing of various regulations such as turning movement restrictions. This program is also responsible for periodically inspecting the condition of traffic signs and pavement markings on roadways under BCTED s jurisdiction. Division Resources As shown in Exhibit 2, BCTED s primary source of funding is the County Transportation Trust Fund. This fund is comprised of revenues generated via the constitutional gas tax, local option gas taxes and construction impact fees. 2 The Transportation Trust Fund accounts for approximately $8.0 million (or 82%) of BCTED s operating budget. BCTED s other significant revenue source is a traffic signal maintenance agreement with the Florida Department of Transportation (FDOT) in the amount of $1.3 million. This agreement utilizes a formula to compensate the County for the maintenance of signalized intersections under FDOT jurisdiction; maintenance compensation is increased 3% annually. Exhibit 2: Most of BCTED s Fiscal Year 2009 funding comes from the County Transportation Trust Fund Funding Source Revenue % of Budget County Transportation Trust Fund $7,970,410 82% Maintenance of Traffic Lights (FDOT) $1,300,000 13% Reimbursement State $340,000 4% Reimbursement Traffic Accidents $40,000 <1% Miscellaneous Revenues $20,000 <1% Total $9,670, % Source: Office of Management & Budget Division Organization BCTED is organized into five sections: (1) Administration, (2) Signal Construction/Maintenance, (3) Signal Systems Engineering, (4) Signs & Markings and (5) Traffic Studies. Exhibit 3 on the next page summarizes BCTED s Fiscal Year 2009 operating budget, full-time equivalent (FTE) positions and major services, by section. 2 For Fiscal Year 2009, revenues supporting the Transportation Trust Fund are budgeted at $99.7 million. Page 6

9 Exhibit 3: In Fiscal Year 2009, BCTED is appropriated $9.7 million and has 117 FTE positions Section Budget FTE Major Services Administration $2,177, Signal Construction & Maintenance Signal Systems Engineering Signs & Markings $3,486, $1,225, $1,675, Traffic Studies $1,106, TOTAL $9,670, Source: Office of Management & Budget --Provides management, coordination and administrative support for the Division s other sections --Procures inventory and manages warehouse --Provides fleet and facility management --Administers Division contracts with cities and vendors --Constructs essential traffic installations in accordance with system designs --Rebuilds existing traffic signals and signal knockdowns and provides 24-hour emergency service as needed --Maintains street lighting on selected roadways and school zone flashers --Maintains internally illuminated street name signs --Designs traffic signal installations --Evaluates and adjusts signal timing and coordination --Maintains and provides support for the upgrade of the traffic signal communication infrastructure --Performs inspections on signal projects --Fabricates, maintains and installs traffic signs --Maintains a traffic and street sign inventory --Applies markings, crosswalk striping and raised reflective pavement markers --Conducts traffic studies and investigations in response to both public requests and internal surveys --Collects traffic data counts such as volume, delay, speed, accidents and pedestrian movement --Redesigns signalized intersections and/or the intersection geometrics Page 7

10 Section 1: Assessment of BCTED s Accountability System This section presents an assessment of BCTED s accountability system. Establishing an effective accountability system is essential to ensure public funds are spent in a manner that achieves desired results and improves the provision of public services. An effective accountability system provides quality information to enable: Citizens to hold elected officials, managers, employees and private contractors accountable for the efficient and effective use of public funds; Elected officials and other policymakers to make informed budget and policy decisions; and Managers to detect and correct operational deficiencies and improve program results As a framework for evaluating accountability, we assessed BCTED s performance measurement and reporting system relative to three best practices. Specifically, we have examined whether the Division has: Collected and analyzed unit cost data for each major service and activity; Benchmarked its performance against other agencies that provide similar services or generally accepted industry standards; Established processes to ensure performance data reliability Best Practice: Collect and analyze unit cost data for major services Unit cost refers to the cost of producing an output or outcome. 3 unit cost data is important because it can be used to: Collecting and analyzing Compare an agency s performance to similar service providers, Predict how changes in the demand for services will affect an agency s budget, Assess how changes in operations could affect costs, Identify wasteful processes, Set appropriate service fees, and Estimate the impact of budget decisions Since Fiscal Year 2008, BCTED has collected and reported unit cost data to the Office of Management & Budget In Fiscal Year 2008, most sections of BCTED began collecting unit cost data. The unit cost data collected by BCTED generally aligns with the Division s primary activities. Collected unit cost data includes: Average cost to install a mast arm 3 Source: Florida Legislature s Office of Program Policy Analysis and Government Accountability (OPPAGA) Page 8

11 Average dollar cost to retime a signal Average cost per square foot to fabricate a sign Average cost to perform a traffic study/investigation Average cost to perform a traffic count BCTED reports unit cost data on a quarterly basis to the Office of Management & Budget (OMB) as part of the County s performance measurement and reporting system. It is important to collect and report this data to ensure cost-effective services are provided. For example, BCTED fabricates traffic control signs (e.g. stop signs) in-house. By monitoring the average cost per square foot to fabricate a sign the Division can compare its in-house cost to those of private providers during the annual budget review process. As we often use unit cost data to benchmark a Division s efficiency, we reviewed BCTED s unit cost data collection and calculation methodologies to ensure comparability with peers. During this review, we observed that unit cost data reported by BCTED to the OMB is primarily based on estimates rather than actual cost. For example, to determine the average cost per signal retiming, managers estimate the amount of labor and materials that a typical job takes. BCTED should take steps to ensure unit cost calculation methodologies are full-cost and consistent with industry standards We reviewed industry literature to benchmark BCTED s unit costs. Our research indicates that BCTED may not be reporting the full-cost of its activities and/or may not be collecting unit cost data in accordance with industry standards. For example, the National Transportation Operations Coalition indicates the full-cost of retiming a signal is approximately $3,000 per intersection. 4 However, as shown on Exhibit 4 on the next page, BCTED reported its average cost to retime a signal as $270 per intersection in Fiscal Year The large variance in BCTED s reported signal retiming cost from the recently published industry benchmark indicates that BCTED is understating its cost for this service. For example, BCTED reports that the costs of pre-requisite tasks to the signal retiming process performed by consultants are not included in its signal retiming unit cost calculation. It is important for BCTED to accurately determine its full-cost (including inhouse and consultant costs) for all unit cost measures because this data presumably becomes the basis for benchmarking exercises during the County s annual budget review process. Unit cost data not calculated in accordance with industry standards and/or peer agencies may lead to erroneous conclusions relative to the agency s cost-effectiveness. 4 National Transportation Operations Coalition: 2007 National Traffic Report Card Technical Report 5 Detailed information about BCTED s signal retiming process begins on page 24. Page 9

12 Exhibit 4: BCTED reports a significantly lower average cost per signal retiming than the industry benchmark, which suggests the Division is not using a full-cost calculation methodology $3,000 $270 Source: BCTED and National Transportation Operations Coalition Increased use of BCTED s existing work order system may provide more accurate unit cost data While the use of unit cost estimates (or averages) is not in itself problematic, it is preferable to use actual cost data when feasible to ensure an accurate review of Division operations. In many organizations, actual cost data is pulled from electronic work order reports. Pulling unit cost reports from an electronic system is considered best practice because it (1) eliminates time-consuming manual calculations, which are prone to error, and (2) helps to ensure that unit cost is calculated consistently during each reporting period. In 2001, BCTED implemented the FastTrac electronic work order system to better monitor individual/section performance and track expenses. The FastTrac work order system was later modified to expedite emergency response repair efforts and to capture associated costs in order to qualify for FEMA reimbursements. BCTED reports that the cost of the FastTrac system (including on-going maintenance) is $636,800 through July Despite the additional costing and reporting capabilities provided through FastTrac, BCTED reports that some sections do not currently use the work order system. For example, work orders are not created for signal retimings. Without work orders, FastTrac cannot produce basic expense reports detailing the amount of labor, materials and overhead expended on signal retimings for a given time period. Due to this limitation, managers estimate signal retiming costs for quarterly performance reporting. BCTED reports that it is researching opportunities to expand the application of its electronic work order system to its entire operations. This expansion will presumably provide managers with the ability to quickly produce full-cost reports for oversight and benchmarking purposes. Page 10

13 Best Practice: Contact outside sources, such as industry and other government agencies, to benchmark performance The Government Finance Officers Association recommends benchmarking as a method of obtaining information that can be used to identify inefficient practices and strategies to achieve better results. Benchmarking refers to performance comparisons of organizational business processes against an internal or external standard of recognized leaders. County managers should systematically and routinely compare policies, practices, and performance measures against those of other local governments and private contractors that provide similar services. BCTED routinely contacts outside sources to benchmark performance During our review, BCTED provided two recent examples of contacting outside sources to compare performance data and operating practices. The first example is BCTED s participation in the National Traffic Signal Report Card (2007). The National Traffic Signal Report Card grades signalized intersections throughout the country on a letter scale, A to F, regarding how well they are installed, maintained and operated. The most recent edition of the National Traffic Signal Report Card included self-assessment responses from 378 jurisdictions; the number of signals represented by responding agencies corresponds to about one-third of all signals in the United States. BCTED also provided an example of independently benchmarking 22 aspects of its operations to eight peer agencies throughout Florida and North Carolina. This effort, completed in April 2008, was conducted to supplement budget review exercises and primarily focused on maintenance and signal construction. BCTED benchmarking data provides valuable performance comparisons; however, cost comparisons are necessary to determine if current operations are cost-effective BCTED s recent benchmarking efforts provide valuable information about operational strengths and weaknesses. For example, BCTED s performance for one benchmarked measure percentage of vehicle detection complaints responded to within 10 calendar days or less of notification was significantly worse than its peers. 6 This indicates that vehicle detection complaint response is an area that BCTED should target for improvement. Conversely, this same benchmarking analysis indicates that BCTED has relatively favorable performance for the measure percentage of emergency trouble calls responded to within one hour or less. BCTED s recent benchmarking exercises provide many examples of benchmarking program design (e.g. use of private contractors for traffic signal maintenance and 6 Vehicle detection devices, such as above-ground cameras or underground inductive loop detectors, provide vehicle count, presence, occupancy and passage data to the signal system. Without properly functioning vehicle detection devices, a traffic signal system loses its ability to make adjustments in response to real-time traffic conditions. One consequence is a signal turning green despite no vehicles present at the corresponding intersection. Page 11

14 construction) and effectiveness (e.g. percentage of trouble calls responded to within one hour or less ). However, neither the National Traffic Signal Report Card nor BCTED s independent benchmarking effort in 2008 contained any unit cost comparisons, such as cost per signal retiming and average cost to install a mast-arm. Without unit cost data comparisons, it is difficult for managers to determine the cost-effectiveness of existing operations and alternative program designs. Cost-effectiveness comparisons, when conducted on an apples-to-apples basis, provide managers and policymakers with valuable information for decision-making purposes. Best Practice: Establish a process to ensure performance data reliability According to the National Traffic Signal Report Card, data collection is often assigned a low priority within the traffic engineering industry. However, reliable data is considered a required tool for active management of traffic systems, and a necessary element for performance-based decision making. Due to its critical importance, data collection and monitoring comprises one of the six sections of the National Traffic Signal Report Card s self-assessment. The National Traffic Signal Report Card indicates that data collection and monitoring is generally the weakest component of traffic management within the United States. Specific adverse findings included: there are few, if any, quality checks for traffic monitoring and collections systems, and real-time traffic data are seldom available to the traveling public. One recommendation offered to all traffic management jurisdictions is to establish a program for periodically reviewing data collection quality. This could include data reliability testing by managers and the use of periodic field observations to validate data collection processes. In 2007, BCTED acknowledged the need for improvements related to its data collection and monitoring practices As part of a self-assessment for the National Traffic Signal Report Card, BCTED reviewed its Traffic Monitoring and Data Collection processes. Items reviewed by Division managers included the following: Does the agency have a regular, ongoing program for collecting and analyzing traffic data? Does the agency periodically assess the quality of the data collected? Does the agency have a process to archive collected data? Does the agency actively share collected data with regional operating partners, etc.? BCTED s self-assessment score for Traffic Monitoring and Data Collection was its lowest for the six components reviewed. 7 Out of a possible 100 points, BCTED earned 7 Evaluated components included: (1) Management, (2) Signal Operation at Individual Intersections, (3) Signal Operation in Coordinated Systems, (4) Specialized Timing Practices, (5) Traffic Monitoring and Data Collection, and (6) Maintenance. Page 12

15 only 65, which corresponds to the letter grade D. While BCTED s data collection score was higher than the national average (letter grade F ), it indicates significant room for improvement relative to data collection best practices established by the National Transportation Operations Coalition. BCTED should take steps to improve the quality of performance data reported to OMB As part of our review, we analyzed performance data historically reported by BCTED to the OMB. Our analysis includes historical trending, benchmark comparisons and discussions with Division personnel in charge of collecting and reporting the data. During this process, we observed deficiencies in BCTED s data collection process that should be improved to ensure reliable performance data is available to Division managers and policymakers in subsequent budget cycles. Our observations were generally in line with BCTED s self-assessment results, and include: BCTED cannot validate reported performance for critical service measures. During our review, BCTED officials stressed that it is critical to respond timely to signal malfunctions and customer requests. Rapid maintenance response limits public safety risks and the County s exposure to liability claims. Accordingly, each BCTED section reports its response time performance for one or more measures as part of the County s performance measurement and reporting system. For example, the Signal Construction & Maintenance Section annually tracks the % of time customers requests are initially responded to within 24 hours. In Fiscal Year 2007 & 2008, BCTED reported that 99% of customers requests were initially responded to within 24 hours. To validate this high level of performance, we requested supporting documentation from BCTED. However, we found that the Division has no supporting documentation for its reported level of performance for response time measures because managers estimate performance each quarter based on their perception of operations. Without supporting documentation for timeliness measures (such as sample testing response time, work order analysis, etc.), the quality of timeliness performance data cannot be confirmed. Further, without some form of validation for timeliness reporting, BCTED increases the opportunity for overstated performance. BCTED appears to overstate traffic infrastructure and maintenance performance. During our review, we found that BCTED reported a high level of performance for the measure % of equipment operating without a breakdown. Specifically, BCTED reported 95% and 98% performance for this measure for Fiscal Years 2007 & 2008, respectively. However, during fieldwork, it became apparent that significant components of the County s traffic infrastructure are not operational at the high level reported. For example, one report provided by BCTED indicates that, as of March 2009, 142 of 758 (18.7%) intersections sampled were known to have vehicle detection equipment failures. BCTED later confirmed that it had omitted certain equipment with high failure rates (e.g. vehicle detection) when reporting to the OMB. Thus, the exclusion of equipment Page 13

16 with high failure rates from this measurement may lead to a significant overstatement of performance and preclude meaningful performance comparisons with other entities. Recommendations To improve the effectiveness of BCTED s accountability structure, we recommend the Board of County Commissioners direct the County Administrator to take the following actions: 1. Benchmark unit cost calculation methodologies to ensure comparability with industry standards and/or peers 2. Continue researching the feasibility of implementing the Division s electronic work order system throughout all sections, enabling managers to easily generate cost reports for major activities; report progress to the Board by December 31, Include analysis of unit cost in Fiscal Year 2010/2011 benchmarking exercises to provide budget analysts and policymakers with information necessary to determine the cost-effectiveness of Division operations 4. Develop written measure definitions for performance measures to ensure comparability with industry standards, and implement processes to assess the quality of critical performance data, such as the timeliness of work completion, customer response and percent of equipment operating without a breakdown Page 14

17 Section 2: Assessment of BCTED s Performance According to its website, BCTED s mission statement is: Working together to provide for the safe and efficient movement of pedestrians, cyclists and vehicular traffic within the County. As such, we focused our performance assessment on evaluating how effectively BCTED provides for safe and efficient traffic movement on Division maintained roadways. To determine the best methods of assessing these two aspects of BCTED operations, we consulted with the United States Department of Transportation, the Florida Department of Transportation, several traffic engineering industry associations, academicians and industry literature. We also conducted focus groups of BCTED managers to obtain their opinions on how to best evaluate their program. From our discussions with stakeholders and industry experts, we identified three questions that, once answered, provide considerable insight about BCTED s effectiveness in providing for safe and efficient movement of pedestrians, cyclists and vehicular traffic within the County. These questions are: What steps has BCTED taken to improve traffic safety on Broward County roadways? What is the status of BCTED s traffic signal infrastructure (signal controllers and vehicle detection devices)? Does BCTED conduct traffic signal retiming (i.e. synchronization) every three years or less in accordance with industry best practice? Generally, we found that BCTED has taken several steps to improve traffic safety, including the installation of mast-arms intended to limit signal system damage from tropical storm/hurricane-force winds. Additionally, BCTED has increased the frequency of its pavement remarking program, and signal retimings conducted by the Division have significantly improved motorist travel time and decreased the number of red-light stops on designated routes. However, we also found several areas where BCTED could improve its operations to improve the safety and efficiency of Broward County roadways. Specifically, BCTED does not have a program to collect and analyze vehicle crash data, which is important for prioritizing competing signalization projects that may affect vehicular, cyclist and pedestrian safety. Our review also disclosed that many vehicle detection devices throughout Broward County are damaged or non-functional, and BCTED should improve its asset management program to ensure equipment upgrades are made in accordance with best practice. Finally, BCTED has not conducted signal retiming (i.e. synchronization) at numerous signal corridors in the past three years in accordance with industry best practice. For example, Griffin Road has not been synchronized since 2003 and Oakland Park Boulevard has not been synchronized since Page 15

18 What steps has BCTED taken to improve traffic safety on Broward County roadways? BCTED has recently implemented several programs to improve traffic safety; increased collection and analysis of crash data may provide further safety benefits to Broward motorists, cyclists and pedestrians According to the Florida Department of Highway Safety and Motor Vehicles (DHSMV), there were 26,417 vehicle crashes with 228 resulting fatalities in Broward County in Historical data provided by the DHSMV indicates that both the number of vehicle crashes and fatalities has been remarkably stable in Broward County over the past five reporting periods. Exhibit 5 shows Broward County s five-year vehicle crash and fatality history. Exhibit 5: Broward County s vehicle crash and fatality history is relatively constant for the five-year period Crashes 26,627 27,399 26,441 26,981 26,417 Fatalities Source: Florida Department of Highway Safety and Motor Vehicles (DHSMV) The Florida Department of Transportation (FDOT) regularly conducts in-depth research to determine the causes of traffic crashes and fatalities at roadway intersections. In October 2005, FDOT conducted an examination of intersection fatalities occurring on State roads for the period 1998 to In total, 699 separate vehicle crashes resulting in 775 fatalities were examined to determine educational, enforcement and engineering countermeasures that could reduce the number of vehicle crash fatalities in Florida. FDOT s research provides many critical insights for traffic management entities at all levels. For example, FDOT s research indicates that nearly one-half of all fatal intersection crashes during the period reviewed involved a left turn by one of the drivers involved in the crash. Further, FDOT states that in almost 20% of the fatal intersection crashes, there were roadway issues that had a direct bearing on the occurrence of the crash These issues included: sight distance, location of stop bars, wide or confusing roadway design/geometry, lack of turn lanes and signal timing issues. 8 According to FDOT, a crash is any accident involving a fleet motor vehicle which results in a fatality, injury, or property damage while said vehicle is in operation on a traffic way as a motor vehicle. Page 16

19 BCTED has assumed responsibility for the management and maintenance of most intersections in Broward County BCTED has historically entered into agreements with cities and the State of Florida to consolidate the management and maintenance of signalized intersections throughout Broward County. As of March 2009, BCTED had agreements with 27 of Broward County s 31 cities to provide complete traffic engineering services, and agreements with two cities (Plantation and Wilton Manors) to provide modified traffic engineering services. 9 BCTED services generally include the planning, design, engineering, construction and maintenance of all traffic control devices for maintained roadways, and the installation and replacement of street signs and pavement markings. BCTED provides traffic engineering services at no cost to Broward County cities; however, the State of Florida provides $1.3 million in annual compensation in Fiscal Year 2009 for BCTED s services. Due to its assumed responsibility for the management and maintenance of most signalized intersections in Broward County, BCTED plays a significant role in traffic safety. To be certain, BCTED has no control over the primary causes of most vehicle crashes, such as driver inattention/error, driving under the influence and tire tread separation. However, other significant factors associated with vehicle crashes are impacted directly by BCTED operations. These include, but are not limited to: the quality of roadside signage and pavement markings, speed limits, signal timing, and signal system maintenance and repair. BCTED cites several programs designed to improve the safety of Broward County roadways In response to our request to identify actions taken to improve the safety of Broward County roadways beyond what is statutorily mandated, BCTED provided several examples of traffic safety programs implemented during the past several fiscal years. According to BCTED managers, all traffic related upgrades are implemented based on their ability to enhance public safety Such programs include: Mast-Arm Conversion. Mast-arms are steel poles with extension arms that overhang the roadway. These structures support traffic signals, signs and equipment. Each mast-arm is anchored in the ground with a large concrete foundation (typically 13 to 20 feet deep) that can generally withstand hurricaneforce winds of up to 150 mph. Since 1997, it has been the policy of BCTED to construct all new signalized intersections with mast-arms rather than through alternative methods, such as span-wire Southwest Ranches and Hillsboro Beach are the two Broward cities that do not have agreements with BCTED as of March 2009; modified traffic engineering services means BCTED provides services for only designated roadways within a municipal boundary. 10 Span-wire intersections consist of traffic signals hanging from cables supported by concrete poles. Generally, span-wire signal installation is less expensive than mast-arm installation but is also more susceptible to damage from high winds and other severe weather. Page 17

20 According to BCTED, all Span-Wire Signal Installation of the County s mast-arms remained standing after Hurricane Wilma in October However, it took tens of thousands of hours, and over $69 million to restore the signalized intersections using span-wire that were damaged by storm winds. After Hurricane Wilma, the Board of County Commissioners directed BCTED to harden the County s signal infrastructure and authorized an annual budget of $3.0 million to fund this objective. Consequently, BCTED implemented a program to convert 12 to 15 intersections per year from span-wire to mast-arms. The cost of upgrading an intersection from span-wire to mast-arm ranges from $200,000 to $250,000 per intersection. Mast-Arm Signal Installation BCTED reports that while the mast-arm conversion program is a large capital investment for the County, the rapid restoration of the County s traffic signal system to a safe operating level after a hurricane is of critical importance. With the installation of each new mast-arm, the Division expects a higher survival rate for its signal system during a hurricane, and less downtime needed to restore the system to basic operation once the storm passes. Per BCTED, the quicker the system is restored, the less likely there will be vehicles crashes and injuries related to signal outages. As of April 2009, over 800 signalized intersections have been identified for mast-arm conversion. Pavement Marking Replacement Program. Pavement markings are considered an important supplement to above ground traffic control devices, such as signals and signs. As pavement markings are directly in line with a driver s travel path, they are generally the most prominent traffic control device a driver sees while traveling. The U.S. Department of Transportation has defined in the Manual on Page 18

21 Uniform Traffic Control Devices (MUTCD) a unified system of colors, patterns, widths, symbols and words to be used on roads throughout the country. BCTED s Signs & Markings Section is responsible for the application and maintenance of pavement markings and reflectors throughout Broward County, including pedestrian cross-walks. Pavement markings generally need to be replaced every three to four years on roadways with high traffic volumes and four to five years on roadways with lower traffic volumes to ensure that they are highly visible to the traveling public. In response to the wear of pavement markings throughout the County, in Fiscal Year 2008 BCTED implemented a more aggressive replacement program. Specifically, 593 miles of pavement markings were replaced in Fiscal Year 2008, which is significantly more than the 291 miles of pavement markings replaced in Fiscal Year 2007 (a 103.8% increase). According to BCTED, the increased replacement rate instituted in Fiscal Year 2008 will allow the Division to replace the County s approximately 2,848 miles of pavement markings within industry suggested timeframes. Diamond Grade Sign Reflectivity. Since 2004, BCTED has used diamond grade material on newly installed or replacement regulatory/warning traffic controls signs (e.g. stop signs). According to one manufacturer, diamond grade material is six times brighter than conventional materials in all light settings, and provides increased durability due to its non-corroding polycarbonate construction. With its increased reflectivity and resistance to fading, diamond grade material is especially practical in situations that require the sign to be seen at longer viewing distances. The Division s use of diamond grade materials previously exceeded minimum Federal and State Department of Transportation specifications; however, FDOT has mandated the use of this material since Square-Tube Sign Posts Installation. After Hurricane Wilma in October 2005, BCTED estimates that 30,000 traffic control signs (e.g. stop signs) were in need of repair/replacement. Due to Category 3 hurricane winds, many sign posts were bent backward or completely uprooted, making traveling conditions perilous for motorists, cyclists and pedestrians. Prior to Hurricane Wilma, BCTED typically utilized what is known as a U-channel steel post to support roadside signage. Within the traffic industry, the U-channel post is considered low-cost and relatively easy to install. However, signs installed with a U-channel post are also vulnerable to high winds, as was demonstrated during Hurricane Wilma. Accordingly, since 2005, BCTED has transitioned to using squaretube steel posts to support roadside signage. Industry literature indicates that square-tube posts provide increased resistance to severe Square-Tube U-Channel Page 19

22 winds because they are installed with a base and anchored for greater stability. Additionally, square-posts are generally easier to replace than U-channel posts, expediting storm remediation. On average, a square-tube sign post and base is 30% more expensive than an equivalent U-channel post. Due to the many variables that may affect the number of vehicle crashes and associated fatalities each year, it is difficult to directly assess the impact or cost-effectiveness of the safety programs described above. However, our review of traffic engineering literature and discussions with industry experts generally confirmed that BCTED s safety programs appear prudent (especially infrastructure hardening) considering Broward County s susceptibility to hurricane force winds and rain. Increased collection and analysis of crash data may provide further safety benefits to Broward motorists, cyclists and pedestrians The National Transportation Operations Coalition recommends that traffic engineers routinely review automobile, bicycle and pedestrian crash data to determine if safety deficiencies exist that may be addressed through the installation of traffic control devices and/or signal timing adjustments. Generally, traffic crash reports are generated by local law enforcement agencies. Through review and mapping of crash reports, traffic management agencies can prioritize funding and implement countermeasures to enhance public safety. The Broward Metropolitan Planning Organization (MPO) indicates that two commonly used measures for identifying high crash locations are crash rate and crash severity index. 11 Crash rates are determined by dividing the number of crashes along a designated road segment by the total traffic volume; crash severity index is calculated by disaggregating crashes into various severity types, such as fatality, injury, and property damage only. We found that BCTED does not routinely determine crash rates and crash severity because it does not have a program in place to collect and analyze crash data from local police departments. According to the Broward MPO, traffic crash reports within Broward County may be generated by the Broward Sheriff s Office (BSO), 20 municipal Police Departments and the Florida Highway Patrol (FHP). Some BCTED managers expressed frustration that important crash data is not readily available for consideration when prioritizing signalization projects throughout the County. BCTED cited funding limitations as the main obstacle to establishing such a program. It is estimated that the creation and maintenance of a comprehensive crash database would cost approximately $200,000 annually (primarily for staff and information technology solutions). FDOT reports that other local municipalities have established crash databases to enhance public safety within their jurisdictions. For example, St. Lucie County maintains a county-wide crash database that is kept current within a two-week period. Similarly, 11 Broward MPO: Building a Regional Traffic Crash Data System Bridging the Gaps August 2006 Page 20

23 both Palm Beach County and the City of Boca Raton collect crash reports from all regional police agencies on a two to three month lag. Having comprehensive crash data provides these agencies with the ability to routinely identify and consider public safety when prioritizing signalization projects during the annual budget cycle. A concerted effort to reduce the number and severity of vehicle crashes throughout the County may also reduce travel times for County residents. What is the status of BCTED s traffic signal infrastructure (signal controllers and vehicle detection devices)? BCTED believes most signal controllers meet best practice, but a strengthened inventory management system would help ensure all field equipment is replaced within industry suggested timeframes; the Division recently reported more than 20% of its vehicle detection system is damaged and/or non-functional In many urban areas within the United States, the high level of building density makes it cost-prohibitive to build new streets or widen existing roads. For this reason, traffic engineering literature stresses the importance of maintaining and upgrading traffic signal system infrastructure in accordance with best practices to ensure traffic flows are as efficient as possible. The National Transportation Operations Coalition indicates that investment in traffic signal operations yields benefit-cost ratios of more than 40:1 and often can effectively address motorists day-to-day traffic issues. Further, most traffic signal system upgrades can be completed at a lower cost and more quickly than other capital-intensive transportation improvement options (e.g. road widening). Well maintained traffic signal infrastructure enhances system efficiency and safety During our review, we researched several methodologies to assess the efficiency of Broward County s traffic signal system. Several industry experts and literature indicated that an examination of signal infrastructure often provides insight about the quality of traffic signal operations within a jurisdiction. While a traffic signal system includes thousands of working pieces that must be joined together to ultimately provide for efficient traffic movement, two specific system pieces are often used as indicators of the overall system s efficiency. These two pieces are (1) signal controllers and (2) vehicle detection devices. Signal Controllers Traffic signal controllers manage the flow of traffic at intersections. Signal controllers, usually located within a metal cabinet at each intersection, generally consist of computerized hardware that can be programmed to provide specific signal timing patterns. In larger signal systems, such as Broward County s, signal controllers are interconnected with each other and a central computer to coordinate traffic movement Page 21

24 through a corridor (e.g. Commercial Boulevard). As a malfunction with just one signal controller can disrupt the efficiency of a major traffic corridor, proper operation and replacement is considered critical for maintaining efficient traffic flows. To avoid obsolescence and maintain public safety, the National Transportation Operations Coalition indicates that signal controllers should be replaced every ten years. Signal Controller Cabinet In 1998, a consultant reviewing Broward County s traffic signal infrastructure concluded that most of Broward County s signal controllers were beyond their service life or no longer supported by the manufacturer. Further, only 1% of Broward County s signal controllers was still in production or expected to be in production beyond a few years. Without signal controller replacement, the study concluded BCTED would soon be forced to buy scrap or salvage material from other jurisdictions because replacement parts for existing controllers were no longer produced by manufacturers. Beginning in 2003, BCTED began replacing its obsolescing signal controllers with stateof-the art technology called Model 2070 signal controllers. Funding for the new Model 2070 controllers, which cost approximately $2,150 each, was provided through an FDOT grant as part of the County s Advanced Transportation Management System (ATMS) project. 12 According to BCTED, controllers installed since Fiscal Year 2003 provide advantages over previous technology. For example, the new signal controllers provide signal pre-emption technology for use by fire-rescue personnel responding to an emergency call. Further, these controllers, when paired with advanced software, are capable of providing adaptive signal control and enhanced data collection abilities. 13 Many of these capabilities are intended to be harnessed with the completion of the ATMS project. BCTED estimates that 1,200 Model 2070 signal controllers have been installed at Broward County intersections since If BCTED s estimate it accurate, a large majority (87.4%) of Broward County s signalized intersections operate with signal controllers that meet industry best practice. However, confirmation of this estimate could not be confirmed during our fieldwork because the Division currently lacks a complete electronic inventory of its field installations. 12 Additional detail about the status of implementation of the ATMS project can be found in the County Auditor s Fiscal Year 2009 report, No Adaptive signal control means that traffic signal systems continuously adjust and coordinate signal timing cycles to correspond with prevailing traffic conditions. Adaptive signal control allows systems to automatically adjust signal timing configurations to respond to unanticipated traffic overflows created by vehicles crashes/breakdowns, inclement weather, etc. Page 22

25 BCTED has historically maintained manual files which provide information about the equipment inventory and repair history for each signalized intersection. While these files provide intersection specific information, the Division generally lacks the capability to generate system-wide reports detailing the condition and installation dates of its field equipment, including equipment serial numbers, warranties, etc. As a result, the Division must conduct time-consuming physical inventories to determine whether signal system components, such as signal controllers, have been replaced in accordance with industry guidelines. 14 To strengthen its asset management program, the Division reports that it intends to convert manual intersection files and equipment records to electronic format. Once the physical inventory process and associated conversion to an electronic asset management system is completed, BCTED indicates that it will have an up-to-date inventory of all above ground traffic control equipment at each intersection (including signage), which will provide additional reporting capabilities about equipment condition to help managers schedule and budget equipment replacement each fiscal year. As of October 2009, BCTED reports that it has completed a detailed physical inventory of 65% of the County s signalized intersections. BCTED states that the physical inventory and associated conversion to an electronic asset management system will be completed during Fiscal Year This conversion is critical from an operations standpoint because BCTED needs accurate information about its field equipment to ensure that assets are maintained and replaced in accordance with best practice. Further, we note that the conversion to an electronic asset inventory system should facilitate faster damage assessment in the aftermath of a tropical storm or hurricane. Specifically, Division personnel will have remote access to complete information about the equipment located at every signalized intersection in Broward County once the conversion is completed. Vehicle Detection Devices To be optimally efficient, traffic signal systems need the ability to respond to prevailing traffic conditions. One of the most basic ways to accomplish this is through the installation of vehicle detection devices at signalized intersections. Vehicle detection devices are hardwired to signal controllers to provide vehicle presence, count and passage data to the signal system. After receiving this information, the signal controller can then adjust signal timings to optimize efficiency. For example, when a vehicle approaches an intersection equipped with a properly functioning vehicle detection devices, an actuation is sent to the signal controller which either extends the green light for that vehicle or brings the green light to it at the earliest opportunity. Without properly functioning vehicle detection devices, a signal system loses the ability to make adjustments in response to real-time traffic conditions. Drivers may find that a signal light turns green despite no vehicles present at the corresponding intersection, creating unnecessary travel 14 As a result of our report findings, in October 2009 BCTED conducted a physical inventory of its signal controllers and identified 1,127 Model 2070 signal controllers operational in the field. An additional 91 Model 2070 signal controllers were identified at the Division s central repair. Page 23

26 delay. Accordingly, the National Transportation Operations Coalition states that maintaining the functionality of vehicle detection systems is an important component of an efficient signal system. Industry best practice specifies that 95% or more of a traffic signal system s vehicle detection equipment should be operating as designed. BCTED has historically used underground inductive loops (ILDs) for vehicle detection at signalized intersections. ILDs are loops of wire embedded within the pavement and hardwired to a signal controller. The passage of a vehicle over the ILD sends an actuation to the signal controller indicating vehicle presence. In 1998, a consultant reviewing Broward County s traffic signal infrastructure concluded that BCTED had not kept up with the maintenance and replacement of its ILDs. The consultant noted over 100 intersections that required some type of ILD repair at the time of the study (September 1998). It was recommended that the ILDs throughout the County be repaired or replaced to optimize traffic movement. As part its self-assessment for the 2007 National Traffic Signal Report Card, BCTED evaluated its vehicle detection system and found that less than 80% of its detection Vehicle Detection Camera equipment (primarily ILDs) was operating as designed. This relatively low level of fully operational vehicle detection equipment contributed to BCTED receiving the lowest score possible for this portion of the selfassessment. Since the 2007 self-assessment, BCTED has conducted additional assessments of its vehicle detection equipment. Specifically, in December 2008, BCTED found that only 616 of 758 (81.3%) intersections examined had vehicle detection equipment that was fully functional. 15 According to BCTED, the relatively high percentage of malfunctioning vehicle detection equipment is the result of delays associated with converting ILDs to video (camera) detection units. BCTED states that in 2007, a decision was made to discontinue the replacement of ILDs due to the high labor intensity of repair and maintenance associated with these devices. As ILDs are located beneath pavement, their maintenance and repair necessitates the closure of roadways, creating travel delay for motorists. Thus, in 2007 BCTED chose video camera detection devices, which can be placed above ground on existing structures, such as poles and mast-arms, as a replacement technology for ILDs. In June 2007, a vendor solicitation was issued for the furnishing and installation of video cameras at approximately 700 intersections throughout Broward County. However, due to three vendor protests, the procurement took significantly longer than expected to finalize; it was not until June 2009 that a vendor agreement was approved by the Board of 15 Fully functional vehicle detection means that each lane within an individual intersection responds to vehicle presence as designed. In its 2007 self-assessment, BCTED considered signalized intersections with failing vehicle detection in one or more lanes as not fully functional. Page 24