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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
SPECIAL REPORT 296
Implementing the Results of the Second Strategic Highway Research Program
Saving Lives, Reducing Congestion, Improving Quality of Life
COMMITTEE FOR THE STRATEGIC HIGHWAY RESEARCH PROGRAM 2: IMPLEMENTATION
TRANSPORTATION RESEARCH BOARD OF THE NATIONAL ACADEMIES
Transportation Research Board
Washington, D.C.
2009
www.TRB.org
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Transportation Research Board Special Report 296
Subscriber Categories
IA planning and administration
IB energy and environment
II design
IIIB materials and construction
IV operations and safety
Transportation Research Board publications are available by ordering individual publications directly from the TRB Business Office, through the Internet at www.TRB.org or national-academies.org/trb, or by annual subscription through organizational or individual affiliation with TRB. Affiliates and library subscribers are eligible for substantial discounts. For further information, contact the
Transportation Research Board Business Office,
500 Fifth Street, NW, Washington, DC 20001 (telephone 202-334-3213; fax 202-334-2519; or e-mail TRBsales@nas.edu).
Copyright 2009 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America.
NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competencies and with regard for appropriate balance.
This report has been reviewed by a group other than the authors according to the procedures approved by a Report Review Committee consisting of members of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine.
This study was sponsored by the Federal Highway Administration of the U.S. Department of Transportation.
Cover and inside design by Beth Schlenoff, Beth Schlenoff Design.
Library of Congress Cataloging-in-Publication Data
National Research Council (U.S.). Transportation Research Board. Committee for the Strategic Highway Research Program 2: Implementation.
Implementing the results of the second Strategic Highway Research Program : saving lives, reducing congestion, improving quality of life / Committee for the Strategic Highway Research Program 2: Implementation, Transportation Research Board of the National Academies.
p. cm.—(Special report ; 296) 1. Traffic safety—United States. 2. Highway research—United States. 3. Traffic congestion—United States. 4. Strategic Highway Research Program (U.S.) I. Title.
HE5614.2.N28 2009
388.1220973—dc22
2009000522
ISBN 978-0-309-12606-9
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
THE NATIONAL ACADEMIES
Advisers to the Nation on Science, Engineering, and Medicine
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both the Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council.
The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transportation Research Board is to provide leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied activities annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. www.TRB.org
www.national-academies.org
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Committee for the Strategic Highway Research Program 2: Implementation
Kirk T. Steudle, Chair,
Michigan Department of Transportation, Lansing
Forrest M. Council,
University of North Carolina, Chapel Hill
C. Douglass Couto,
Citrix Systems, Inc., East Lansing, Michigan
Thomas B. Deen, Consultant,
Stevensville, Maryland
Joel P. Ettinger,
New York Metropolitan Transportation Council
David R. Gehr,
PB Americas, Inc., Herndon, Virginia
Robert C. Johns,
Center for Transportation Studies, University of Minnesota, Minneapolis
Robert C. Lange,
General Motors Corporation, Warren, Michigan
Sandra Q. Larson,
Iowa Department of Transportation, Ames
Ananth K. Prasad,
HNTB Corporation, Tallahassee, Florida
Mary Lou Ralls,
Ralls Newman, LLC, Austin, Texas
Mary Lynn Tischer,
Virginia Department of Transportation, Richmond
John P. Wolf,
California Department of Transportation, Sacramento
Liaison Representatives
Anthony R. Kane,
American Association of State Highway and Transportation Officials
Ronald Medford,
National Highway Traffic Safety Administration
Michael F. Trentacoste,
Federal Highway Administration
Transportation Research Board Staff
Ann M. Brach, Deputy Director,
Strategic Highway Research Program 2,
Study Director
Stephen J. Andrle, Chief Program Officer
Walter J. Diewald, Senior Program Officer
Pat Williams, Administrative Assistant
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Preface
In July 2005, the United States Congress passed the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU). This bill, which reauthorized the federal-aid highway program, established the second Strategic Highway Research Program (SHRP 2), which is currently being managed by the National Research Council’s Transportation Research Board (TRB). SAFETEA-LU also called for TRB to “complete a report on the strategies and administrative structure to be used for implementation of the results” of SHRP 2. The congressionally mandated report, due to Congress no later than February 1, 2009, was to include the following:
(A) an identification of the most promising results of research under the program (including the persons most likely to use the results); (B) a discussion of potential incentives for, impediments to, and methods of, implementing those results; (C) an estimate of costs of implementation of those results; and (D) recommendations on methods by which implementation of those results should be conducted, coordinated, and supported in future years, including a discussion of the administrative structure and organization best suited to carry out those recommendations.… in developing the report, the Transportation Research Board shall consult with a wide variety of stakeholders, including (A) the Federal Highway Administration; (B) the National Highway Traffic Safety Administration; and (C) the American Association of State Highway and Transportation Officials.1
To carry out this congressional request, TRB established a committee of leaders from the highway community, chaired by Kirk T. Steudle, Director of the Michigan Department of Transportation. The primary task of the
1
SAFETEA-LU, Public Law 109-59, Section 5210, “Future Strategic Highway Research Program.” The bill was signed into law on August 10, 2005.
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Committee for the Strategic Highway Research Program 2: Implementation was to recommend approaches to implementing the results of SHRP 2 research;2 therefore, the committee members were chosen for their demonstrated knowledge of the program, their expertise in research management and implementation, and their ability to represent major potential user groups. Brief biographies of the committee members are given at the end of this report. The committee also benefited from the contributions of liaisons from the American Association of State Highway and Transportation Officials, the Federal Highway Administration, and the National Highway Traffic Safety Administration, who coordinated the committee’s work with their organizations and facilitated outreach to their colleagues throughout the study.
The due date for this report was set as February 1, 2009, at a time when it was believed that SHRP 2 would be authorized in October 2003. In the end, the legislation did not pass until August 2005, and the funding for the program did not become available until March 2006; thus the program began more than 2 years later than originally planned. Requests for proposals for the first set of research projects were advertised in July 2006, and researchers were chosen by the end of the year. The first contracts were signed in February 2007, and this committee began its work in December of that year. Although a number of interim reports and provisional results have been produced to date, no final product is actually ready for use. Nonetheless, the due date for this implementation report remained the same so that Congress would have the report in hand when it developed the next surface transportation authorization (due in October 2009). If the report had been submitted later, Congress would not have had the opportunity to act on its recommendations.
The committee conducted three meetings, in December 2007 and in June and October 2008, and a conference call in March 2008. The study was carried out in close cooperation with the SHRP 2 Oversight Committee and the four Technical Coordinating Committees (TCCs) that oversee the research being conducted in the four SHRP 2 focus areas. Two members of the Oversight Committee and one member from each of the TCCs
2
The scope of the committee’s task did not include commenting on the content of the research program.
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
served on the report committee. Rosters of the Oversight Committee and the TCCs are provided in Appendix A.
The study was conducted under the overall supervision of Ann M. Brach, Deputy Director of SHRP 2. Portions of the report were written by Dr. Brach, Neil Hawks, Walter Diewald, Stephen Andrle, and James Bryant under the direction of the committee. Patricia Williams provided administrative support.
This report has been reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the National Research Council’s (NRC’s) Report Review Committee. The purpose of this independent review is to provide candid and critical comments that will assist the institution in making its published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process.
Appreciation is expressed to the following individuals for their review of this report: E. Dean Carlson, Carlson Associates, Topeka, Kansas; A. Ray Chamberlain, Fort Collins, Colorado; Irwin Feller, American Association for the Advancement of Science, Washington, D.C.; Ann Flemer, Metropolitan Transportation Commission, Oakland, California; Gary Hoffman, Harrisburg, Pennsylvania; John M. Mason, Jr., Auburn University, Auburn, Alabama; and Thomas B. Sheridan, Massachusetts Institute of Technology (emeritus), Newton. Although these reviewers provided many constructive comments and suggestions, they were not asked to endorse the report’s findings and conclusions, nor did they see the final draft before its release.
The review of this report was overseen by William Agnew, General Motors Corporation (retired), and H. Gerard Schwartz, St. Louis, Missouri. Appointed by NRC, they were responsible for making certain that an independent examination of this report was carried out in accordance with institutional procedures and that all review comments were carefully considered. Responsibility for the final content of this report rests entirely with the authoring committee and the institution.
Suzanne Schneider, Associate Executive Director of TRB, managed the report review process. Rona Briere edited the report, and Alisa Decatur
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
provided word processing support for preparing the final manuscript. In the TRB Publications Office, Jennifer J. Weeks formatted the prepublication edition for posting to the TRB website; Norman Solomon provided final editorial guidance; and Juanita Green managed the book design and production, under the supervision of Javy Awan, Director of Publications.
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Acronyms
AASHO American Association of State Highway Officials
AASHTO American Association of State Highway and Transportation Officials
ASCE American Society of Civil Engineers
ASTM American Society for Testing and Materials
CDMF Collaborative Decision-Making Framework
CSS context-sensitive solutions
DOT department of transportation
EMS emergency medical services
ETG Expert Task Group
FHWA Federal Highway Administration
FOT field operational test
FY fiscal year
GPS Global Positioning System
HCM Highway Capacity Manual
HOT high-occupancy toll
IDEA Ideas Deserving Exploratory Analysis
IRB institutional review board
IT information technology
ITE Institute of Transportation Engineers
KDP key decision point
LTAP Local Technical Assistance Program
LTPP Long-Term Pavement Performance
MOU memorandum of understanding
MPO metropolitan planning organization
NCHRP National Cooperative Highway Research Program
NDE nondestructive evaluation
NDS naturalistic driving study
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
NEPA National Environmental Policy Act
NHI National Highway Institute
NHS National Highway System
NHTSA National Highway Traffic Safety Administration
RFP request for proposals
ROW right-of-way
SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users
SHRP, SHRP 1 First Strategic Highway Research Program
SHRP 2 Second Strategic Highway Research Program
SHSP Strategic Highway Safety Plan
TCC Technical Coordinating Committee
TIG Technology Implementation Group
TRB Transportation Research Board
TTR travel time reliability
USDOT U.S. Department of Transportation
UTC University Transportation Center
VMT vehicle miles traveled
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Implementing the Results of the Second Strategic Highway Research Program: Saving Lives, Reducing Congestion, Improving Quality of Life
Contents
Summary
1
1
Introduction
13
Issues Facing the National Highway System
13
Role of Research and Innovation
17
The Second Strategic Highway Research Program
18
Study Approach
24
Organization of the Report
26
2
Safety Focus Area
28
SHRP 2 Safety Research
30
Promising Products, and Potential Users, Incentives, and Barriers
32
Conclusion
42
3
Renewal Focus Area
45
SHRP 2 Renewal Research
45
Promising Products, and Potential Users, Incentives, and Barriers
50
Conclusion
58
4
Reliability Focus Area
60
SHRP 2 Reliability Research
61
Promising Products, and Potential Users, Incentives, and Barriers
64
Conclusion
75
5
Capacity Focus Area
77
SHRP 2 Capacity Research
77
Promising Products, and Potential Users, Incentives, and Barriers
79
Conclusion
93
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6
Implementation of SHRP 2: Principles and Key Strategies
94
Innovation in the Highway Industry: Challenges and Opportunities
94
Lessons Learned from the Original SHRP
99
Principles for SHRP 2 Implementation
107
Key Implementation Strategies
111
7
Implementation Approach for SHRP 2
117
Principal Implementation Agent: Attributes and Activities
117
Key Implementation Strategies Applied to SHRP 2 Focus Areas
121
Financial Resources
137
8
Recommendations
142
Appendices
A
SHRP 2 Committee Rosters
148
B
SHRP 2 Projects and Expected Products
154
Study Committee Biographical Information
163
