Tim:
Mostly I am a little confused so some questions first:
You one 180 watt brick going to two TPC 400's - in parallel I assume?
How are the TPCs wired to the layout - is one TPC used for command track 1 and one for track 2 or are both going to the same track? Are the 'command control tracks' interconnected or wired independent of each other?
If you have one brick going to two TPCs then you are delivering 90 watts to each TPC, each of which is capable of receiving 400 watts. They are grossly under powered and with a 60 foot track run (ie a big layout), just may explain the 15 volts you are getting to the track. One thing I have noticed is that there is a voltage drop on the power source. When turning on power to get 18 volts to my TPC I need to set my transformer to 21 volts. Connecting two TPCs to one 18 volt brick may be too much of a 'drag' on the brick dropping voltage. As you stated TMCC needs 18 volts. At 15 volts the CAB command signals to the track are iffy at best, sometimes it may work and sometimes not depending on loco position on the layout. At less than 15 volts you are pretty much in conventional mode. I am surprised you don't have some locomotives taking off at speed in conventional mode at times.
You need one brick per TPC. If the two command tracks are independent then one brick/TPC per track. If all your track is connected to the same power source then only one TPC is required. I believe you can connect two 180 bricks to the one TPC for a total 360 watts. If your layout is very big then block breaks are probably needed with independent power for each block - though wiring power for big layouts is beyond my expertise since I never had to deal with it. Some one else would be more qualified to answer this.
Don't give up on the TPC - it can be used for running conventional mode also. Never say never on conventional especially when one day a friend comes over with his/her hot new Williams loco dying to try it out on your tracks!
Joe