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23 The previous chapters of this guide have identified the various steps in process analysis and process mapping whereby transportation agencies can identify important integra- tion points or process integration needs. This chapter considers two case study sites where reliability-focused processes have been implemented, and it maps the process analysis steps to operational programs and activities. Case studies help illustrate how processes can be initiated and evaluated, as well as show some of the institutional issues encountered when processes are integrated, either within an agency or across multiple agencies. It is important to note that the analysis presented for these case studies was not performed during the initiation of the operational activities; instead, the analysis discusses process development and integra- tion using the framework described in previous chapters. The following case studies are featured in this section: ⢠Washington State Instant Tow Dispatch Program, which describes one element of a broader incident management program focused on reducing incident clearance time through the collaborative efforts of the Washington State Department of Transporta- tion (WSDOT) and the Washington State Patrol (WSP); and ⢠I-80 Winter Operations, which details the actions and strategies that are initiated as a result of a closure or a restriction on I-80 at the Nevada/California state line dur- ing hazardous winter storm conditions. WSDOT INSTANT TOW Introduction and Background The State of Washington has a comprehensive and effective incident response program. The two primary agencies that are responsible for response on highways, WSDOT and WSP, have a long history of working together to improve incident response and reduce 4 APPLYING PROCESS INTEGRATION ANALYSIS
24 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY incident clearance times in Washington. In 2002, WSDOT and WSP developed a Joint Operations Policy Statement (JOPS) Agreement that formalized each agencyâs role and responsibilities for freeway operations, including incident response. The JOPS Agree- ment covers 13 areas of operations, including, among other functions, traffic incident management, enforcement, winter operations, work zone safety, and transportation safety/security. In 2006, the Washington governorâs office directed both agencies to collaborate on performance monitoring and accountability goals related to incident response and traffic incident clearance times. By making both WSDOT and WSP jointly responsible for performance monitoring and accountability goals, the governorâs office promoted an even closer working relationship and increased cooperation between the two agen- cies to achieve these objectives. The agencies used the JOPS Agreement to enhance their collaborative relationship and refine performance measures, as well as to identify strategies that would support meeting those objectives. Through the JOPS Agreement, the agencies were able to document new programs and policies that were designed to improve incident response and decrease incident clearance times. The request by the governorâs office is an example of a big-directive, or top-down, type of influence (Tier 1) that is presented in Integrating Business Processes to Improve Travel Time Reliability (2). Even though WSDOT and WSP were currently working together, the request added a new level of accountability and led to increased coopera- tion between the agencies. One example of a new program implemented after the governorâs directive is the Instant Tow Dispatch Program. This case study looks at how the seven steps for ana- lyzing and integrating business processes apply to the development of the Instant Tow Dispatch Program. Again, it is important to note that the following discussion is a retroactive analysis of the steps; these process modeling steps were not intentionally followed or documented by WSDOT or WSP during the course of the programâs devel- opment, evaluation, or implementation. Application of Methodology for Analyzing and Integrating Business Processes The Instant Tow Dispatch Program initially began as a program on the Tacoma Nar- rows Bridge to provide for quick removal of disabled vehicles from travel lanes, thereby reducing the potential impact on mobility on the corridor. When a disabled vehicle was reported or spotted by WSDOT Traffic Operations Center operators using the WSDOT CCTV cameras, a WSP trooper was dispatched and, on arriving at the scene, would verify that a tow was needed; only then would a tow operator on the WSP list be contacted. Under the Instant Tow Dispatch Program, as soon as an incident is veri- fied on the CCTV cameras, a tow truck can be dispatched without prior verification of need from a WSP trooper. In the initial program used on the Tacoma Narrows Bridge, tow operators on each side of the bridge participated and were dispatched according to how quickly they could reach the disabled vehicle(s). An evaluation of the program by the University of Washington Transportation Research Center found that the In- stant Tow Dispatch Program saved an average of 15 min for clearance, compared with having an officer first respond to the incident. Through the JOPS Agreement, the agencies were able to document new programs and policies that were designed to improve incident response and decrease incident clearance times.
25 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY A challenge with this program was how to reimburse tow drivers for dry runs. Dry runs occurred when tow truck drivers were dispatched, but, before they arrived, the disabled vehicle was able to move out of the traffic lanes. This might happen if the driver was able to get his or her car restarted or if a passing motorist provided assistance. When this occurred, tow operators may have wasted as much as 30 min. Tow truckers thus did not want to participate in the program unless they could be reimbursed for this lost time. To address this concern, WSDOT implemented a pilot program over a larger area that reimburses tow operators $25 for each dry run. When a disabled vehicle that is blocking at least one lane of traffic is identified by WSDOT CCTV cameras in an area with the Instant Tow Dispatch Program, WSP will dispatch a WSP trooper and an Instant Tow Dispatch Program tow operator at the same time. WSDOT Inci- dent Response monitors the dispatch of the WSP and will deploy a WSDOT Incident Response unit to the incident as well. WSP has up to 10 min to cancel the call before the Instant Tow Dispatch Program tow operator is eligible for a dry-run reimburse- ment. If the WSDOT Incident Response unit arrives on scene first and can clear the incident, the Instant Tow Dispatch Program tow operator is entitled only to a dry- run reimbursement. If the Instant Tow Dispatch Program tow operator does tow the vehicle, then the tow operator is reimbursed by the driver of the vehicle. In 2008, there were 597 calls for Instant Tow Dispatch that resulted in 347 tows, 192 cancellations, and 58 dry runs. WSDOT was not billed for every dry run, and the program resulted in total direct costs of less than $1,000 for WSDOT. Results in 2007 were similar, with 235 calls for Instant Tow Dispatch resulting in tows and total direct costs to WSDOT amounting to less than $1,000. The Instant Tow Dispatch Program works well because of the trust between WSDOT and WSP and the formalized program established in the JOPS Agreement. It is one of several strategies implemented in response to a clear directive from the governorâs office to reduce the impacts of incidents on mobility on Washingtonâs free- ways; because it has shown demonstrable benefits, the processes have been able to be sustained, integrated, and even expanded. WSP dispatches Instant Tow Dispatch tow vehicles and determines whether the call should be canceled, but WSDOT is respon- sible for paying for dry runs. Even though WSDOT is essentially paying for a program run by WSP, there have been no issues with the program or payment procedures thus far. The program is providing a tremendous benefit to motorists by clearing traffic lanes an average of 15 min faster and is doing so at a cost of less than $1,000 per year to WSDOT. The process used for the WSDOT Instant Tow Dispatch Program is displayed using the BPMN method in Figure 4.1. The methodology for analyzing and integrating business processes defined above describes a seven-step process that is typically used for the integration of business pro- cesses. Although these steps are not always followed by agencies, most follow a process that is very similar. In the sections below, the seven steps and how they relate to devel- opment and integration of the Instant Tow Dispatch Program process are described. The Instant Tow Dispatch Program works well because of the trust between WSDOT and WSP and the formalized program established in the JOPS Agreement.
26 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Step 1: Influences Influences are described as the catalysts that initiate the need for an improved business process. The request from the governorâs office that WSDOT and WSP collaborate on performance monitoring and accountability goals for incident response and traf- fic incident clearance times was very important. It made an already strong working relationship between WSDOT and WSP even stronger and increased the accountabil- ity placed on both agencies to meet the 90-min clearance time. WSDOT and WSP were required to jointly report the progress toward the 90-min incident clearance goal specified in the Government Management Accountability Performance program. This requirement led to the focus on developing strategies and practices to reduce incident clearance time and minimize the impacts of incidents on freeway mobility. Figure 4.1. Detailed business process diagram of WSDOT incident response.
27 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Step 2: Reliability Goals The primary reliability goal that WSDOT was trying to achieve was the 90-min inci- dent clearance time; the Instant Tow Dispatch was one of several strategies that were developed and implemented to work toward achieving that overarching clearance time goal. During the initial pilot test of the Instant Tow Dispatch Program, it was not clear how well the program would contribute to meeting that goal, so there were no specific goals established for the program other than monitoring the impact of the program on reduced incident clearance. WSDOT planned to evaluate the program after the initial pilot test to determine the costs and benefits of the program. It is also important to note that goals and performance for WSDOTâs transporta- tion system and transportation program are very closely tracked and reported in the Gray Notebook, a quarterly publication of WSDOT. The Gray Notebook covers a variety of measures, ranging from project delivery, infrastructure condition, and safety statistics, and it addresses mobility as a key measure. Among the mobility measures that are publicly reported are freeway travel times and incident response times. Step 3: Current Business Practices In the methodology for analyzing and integrating business processes, it was noted that documenting current business practices can identify potential gaps or issues and also identify key components or enablers that are significant in developing a more efficient process. Although the Business Process Modeling Notation (BPMN) was not used to document other similar tow programs in existence at the time, the JOPS Agreement did clearly document each of the incident management programs that did exist. The JOPS Agreement is unique in that it not only clearly defines how incident man- agement programs will be done in Washington, but it also identifies specific employees from both WSDOT and WSP who are responsible for each program and sets perfor- mance measures for the programs. The document is signed by the Washington State secretary of transportation and the chief of the Washington State Patrol and is collec- tively reviewed and updated each year by WSDOT and WSP. Step 4: Develop/Change and Implement Process Developing or changing the process typically occurs at the grassroots level of an orga- nization by staff or advocates who are at the center of the activities. In Washington, the Instant Tow Dispatch Program initially began as a program on the Tacoma Narrows Bridge. Although it was successful in reducing clearance times, it was not sustainable because tow operators were not reimbursed for dry runs, which occurred when they were dispatched to tow a vehicle and the vehicle had been removed from the lanes before the tow operator arrived. Without a reimbursement program, tow operators did not want to continue participating in the Instant Tow Dispatch Program. Through the reimbursement program that WSDOT initiated, WSDOT found it could maintain active participation by tow operators and yet still provide the Instant Tow Dispatch Program at a very low cost. WSDOT has several examples of changes that were made to the initial program to improve the process, better meet performance measures, and satisfy all of its partners. Developing or changing the process typically occurs at the grassroots level of an organization by staff or advocates who are at the center of the activities.
28 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Step 5: Assess Process Assessment and evaluation of implemented processes is critical to determine whether the desired goals are being met and to identify whether changes to processes are nec- essary to improve performance. WSDOT and WSP had several measures, such as re- sponse time, number of tows, and cost of the program, to monitor the impact and effectiveness of the program. The University of Washington Transportation Research Center was also asked to study the initial pilot program. The study found that without the Instant Tow Dispatch Program it would take an average of 18 min to dispatch a tow truck after an incident was detected and verified. With the Instant Tow Dispatch Program, it takes an average of 3 min to dispatch a tow truck. The program has re- duced the time for a tow truck to arrive at an incident by approximately 15 min for most incidents. WSDOT looked at the saving this created in terms of lost time and wasted fuel resulting from congestion and estimated that for less than $1,000 per year to operate the program, WSDOT would see annual benefits of approximately $6.5 million to $11.1 million. Step 6: Document Process The JOPS Agreement includes the Instant Tow Dispatch Program objective; roles and responsibilities, including those of lead staff from WSDOT and WSP; performance measures; and reporting requirements. Annual updates of the JOPS Agreement ensure that any changes to any of the joint programs included in the agreement can be cap- tured and require the signature of the Washington secretary of transportation and the chief of the Washington State Patrol. Step 7: Institutionalize Process Institutionalization may include adoption of operational activities and processes, im- plementation of formal policies, or establishment of a training program. The JOPS Agreement provides the higher level policy for the Instant Tow Dispatch Program by establishing roles and responsibilities and lead staff. A set of standard operating guide- lines was developed for the Instant Tow Dispatch Program, which was rolled out in several urban areas around the state over time. With specific staff assigned from both WSDOT and WSP in the JOPS Agreement, accountability for continuing the program is clearly defined; the annual update of the JOPS Agreement reinforces the continued desire of WSDOT and WSP leadership to keep the program. Conclusions The Washington State Instant Tow Dispatch Program provides a good case study of how a top-down directive led to the implementation and integration of a new busi- ness process for WSDOT and WSP. The process that was used to develop, implement, and institutionalize the Instant Tow Dispatch Program can be mapped to the seven- step process defined in Chapter 3. Through the JOPS Agreement, WSDOT and WSP established a method of taking a new process and documenting objectives, perfor- mance measures, and reporting requirements and, perhaps most important, assigning responsibility to individuals for the success of the program. The Instant Tow Dispatch Program demonstrates the importance of support from all levels within an agency for Assessment and evaluation of implemented processes is critical to determine whether the desired goals are being met and to identify whether changes to processes are necessary to improve performance.
29 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY a business process to be integrated and successfully contribute to improved reliability. The Instant Tow Dispatch Program was developed at the staff level, but the JOPS Agreement, which contributed to the successful integration of the program, can be tied to the governorâs top-down request for WSDOT and WSP to collaborate on per- formance monitoring and accountability goals related to incident response and traffic incident clearance times. I-80 WINTER OPERATIONS AND MOBILITY IN NEVADA Introduction and Background Heavy freight traffic heading westbound on I-80 toward the Nevada/California state line needs advance warning about closures at Donner Summit (7,000 ft), which fre- quently occur during hazardous winter storms. During extreme winter snowstorms, conditions pose a significant hazard for freight and passenger vehicles, and Caltrans will often restrict I-80 for westbound traffic if weather conditions warrant. Although state-line restrictions and closures and associated notifications are initiated through Caltrans, if freight and other traffic are not notified in enough time to find suitable and safe parking or to alter their route to avoid the closure, the impacts on Nevada DOT (NDOT) roadway facilities as well as local streets in Nevada cities and towns can be significant. Freight parking on I-80 during winter weather events not only affects freight driv- ers who are trying to maintain their schedules but also affects NDOTâs winter plowing operations, restricts lane usage by emergency vehicles, and creates hazardous driving conditions for passenger vehicles. The notifications and response activities on I-80 represent an event-driven influ- ence (Tier 2), as presented in Integrating Business Processes to Improve Travel Time Reliability (2). This set of processes has evolved over time and in collaboration with multiple partners, including DOT and the police and highway patrol in California and Nevada, although the impacts of these processes also reach as far east as Utah and Wyoming. Application of Methodology for Analyzing and Integrating Business Processes Coordination for I-80 operations, and in particular for incident management or winter weather operations, extends beyond NDOT operations and maintenance to also in- clude law enforcement and neighboring states. The Nevada Highway Patrol (NHP) is responsible for law enforcement and incident management coordination and response on the corridor and is a key partner in overall corridor operations, including imple- menting truck turnarounds whereby trucks are turned away from the state line and not allowed to obstruct the I-80 shoulders. Because of the significance of I-80 as a major eastâwest freight corridor, there is increased importance for multistate coordination during major events; NDOTâs efforts to notify state DOTs in Utah and even Wyoming provide for even more advance notice to freight traffic about upcoming closures, even though drivers might be several hun- dred miles east of the Nevada/California state line. The Instant Tow Dispatch Program demonstrates the importance of support from all levels within an agency for a business process to be integrated and successfully contribute to improved reliability.
30 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY The process used by NDOT and other partners to initiate notifications of restric- tions at the Nevada/California state line using the BPMN method is shown in Figure 4.2. This figure shows the sequence of events and key decision points for implementing specific responses and strategies. This section describes the seven steps of business process development and inte- gration and how they relate to the I-80 winter operations and management activities. Figure 4.2. Detailed process diagram of I-80 winter closure notifications.
31 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Step 1: Influences During the 5-year period between 2002 and 2007, NDOT observed 23 closures on I-80 at the Nevada/California state line and an additional 31 truck prohibitions result- ing from severe winter weather. There was a definite need to address on-site restriction issues, as well as the need to provide advance notification to westbound I-80 freight traffic of the state-line closure and the limited to no parking options in Reno (just east of the Nevada/California state line). NDOT estimates daily truck traffic of 2,500 vehicles per day on I-80 on a typical winter day. Although the majority of I-80 within Nevada and near the state line with California is considered rural (with the exception of the Reno/Sparks metropolitan area), winter weather impacts have the potential to cause significant congestion if trucks and other vehicles are held in Nevada. A recent closure of a 400-space truck stop has further exacerbated the parking shortage for freight vehicles near Reno. In some instances, NDOT indicated that trucks will sometimes park on the shoulder, or they will exit the freeway and park on arterials until they are able to cross the state line. The resulting lengthy truck queues create obvious safety hazards because they inhibit winter maintenance activities and limit the ability of emergency responders to navigate through the congested corridor. Step 2: Reliability Goals NDOT currently has limited quantitative goals related to reducing truck queues and idling near the state line as a result of a closure or restriction. On a broader level, NDOTâs focus is to limit the number of trucks that are parked and idling on the shoul- ders and to provide as much advance notification as possible to westbound travelers on I-80 that travel may be restricted beyond the state line. Notification is particularly important for freight because there are significant economic impacts to missing or delaying deliveries. Step 3: Current Business Practices When NDOTâs Road Operations Center in Reno/Sparks receives the notification from Caltrans regarding the expected duration of a closure or restriction at the state line, it sets in motion a series of actions for NDOT to mobilize according to the stage level (predetermined by the duration). Previously established agreements between NDOT and Caltrans allow for Caltrans to operate equipment (dynamic message signs) in Nevada to post warnings or alerts about state-line restrictions. Furthermore, these agreements also make provisions for Caltrans and the California Highway Patrol to establish truck turnarounds on the Nevada side of I-80 to restrict or prohibit trucks or other vehicles from crossing the state line. Caltrans, NDOT, and associated partner agencies (including state and local law enforcement) hold a meeting annually in September in advance of the snow season to discuss strategies, roles and responsibilities, and extraneous circumstances that could affect strategies and to establish overall lines of communication. This meeting is also used as an opportunity to fine-tune processes based on prior yearsâ experiences dur- ing winter closures. Transportation operations, maintenance, law enforcement, emer- gency services, public information officers, and local agencies participate in this annual meeting.
32 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY NDOT and other western states that operate and manage the I-80 corridor have implemented tools and systems that can provide traveler information; monitor weather conditions and weather sensors; and issue notifications to DOT, police, and the pub- lic about travel conditions. This effort typically employs a combination of manual (phone calls) and automated activities in response to rapidly changing winter weather conditions. Step 4: Develop/Change and Implement Process Although there are good working relationships among the state and local agencies that are routinely involved in winter operations and management on the I-80 corridor, agencies have recognized that they could do more to mitigate the impacts of closures or restrictions at the state line. At one of the prewinter coordination meetings, a hierarchy of closure activities was established and agreed on by the primary partners (DOT and law enforcement). This hierarchy is based on the expected duration of the closure or restriction; depend- ing on the duration, additional strategies may be implemented. These different levels and associated durations are as follows: ⢠Level 1: Assumed duration less than 3 hours; ⢠Level 2: Up to 6 hours; ⢠Level 3: 6 to 12 hours; ⢠Level 4: 12 to 24 hours; and ⢠Level 5: 24 hours or longer. For closures or restrictions up to 12 hours, controls are primarily implemented by Caltrans for the state-line closure or restriction, and NDOT initiates notifications to other agencies and travelers for westbound traffic. For a Level 3 closure, NDOT dynamic message signs (DMSs) further east on I-80 are activated by District 2 or 3. For a Level 4 and Level 5 closure, NDOT and NHP implement Nevada controls and turn trucks away before they reached the Reno area, while the Caltrans controls are in effect at the state line. For closures or restrictions of 12 hours or longer, NDOT also notifies the Utah and Wyoming DOTs of the conditions at the Nevada/California state line, and these states would also initiate notifications using their respective systems and infrastructure. Step 5: Assess Process The recurring nature of these winter events and the long-standing collaboration of the agencies involved, particularly California and Nevada, allow for ongoing assessment of how various steps in the I-80 winter operations and management are working. On an event-by-event basis, NDOT examines how its internal processes have worked, and, on at least an annual basis, agencies are able to meet and discuss the prior yearâs activities and identify opportunities to modify or enhance plans and procedures. The duration hierarchy is a direct result of a need to provide specific guidelines to indicate when certain strategies should be implemented.
33 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Nevada and California can measure public usage of their information tools (includ- ing web-based and phone-based traveler information systems) during these major win- ter events and can also track the number of notifications issued and the number of truck stops on their distribution list. Highway patrols can track the number of inci- dents or callouts through their dispatch systems. NDOT does monitor queue length of trucks on I-80 when there is a closure or restriction on the state line, although as yet there are no formal performance monitoring processes to enable comparing queue lengths with queues in prior closures or restrictions. Step 6: Document Process Processes for I-80 winter operations and management are well documented. The out- comes of the planning meetings are shared with affected agencies, and the established duration levels allow agencies to tailor operational procedures to meet the needs of those specific closure or restriction durations. Moreover, a more formal agreement that has been in place for many years between Caltrans and NDOT allows for joint opera- tions of equipment and for Caltrans personnel to activate restrictions and turnarounds on Nevadaâs portion of I-80. Operational procedures within NDOT at the Road Op- erations Centers also capture the steps required to initiate various notifications, update traveler information systems, or involve other divisions or agencies. Step 7: Institutionalize Process The need to effectively operate and manage the I-80 corridor during winter has been the impetus for ongoing collaboration among multiple state DOTs, interagency coop- eration, and the establishment of operational procedures that expedite notifications of corridor conditions. Partners on the I-80 corridor work cooperatively and have made a focused effort at implementing and integrating processes within and outside their agencies in order to achieve the broader objective of reducing truck queues and idling during state-line restrictions. A long-standing agreement between Caltrans and NDOT established the initial framework for cooperative management strategies and enabled Caltrans to set up checkpoints and truck turnaround points in Nevada. A cooperative venture between Caltrans and NDOT installed three DMSs on I-80 just east of the state line. Caltrans has remote access to these signs in Nevada to be able to post messages about state-line closures or restrictions for westbound traffic. It is the ongoing collaboration through- out the prewinter strategies that allows agencies in both states to continually review and refine these processes and procedures. The operations and management needs on this corridor have extended to planning and programmatic processes and have been the primary justification for enhanced communications and infrastructure in Nevada on I-80. Corridor information needs along I-80 have resulted in NDOT Districts 2 and 3 installing permanent DMSs and highway advisory radio on westbound I-80, with an increased number of flashing beacons that are activated during state-line closures on the segment of I-80 in District 2 approaching the Reno area. The need to provide more comprehensive and timely information to freight traffic has also inspired some key enhancements to NDOTâs 511 and web traveler information system. It is the ongoing collaboration throughout the prewinter strategies that allows agencies in both states to continually review and refine these processes and procedures.
34 GUIDE TO INTEGRATING BUSINESS PROCESSES TO IMPROVE TRAVEL TIME RELIABILITY Conclusions The evolution of the I-80 processes and strategies has been driven by several factors. At the core, there is a high priority on traveler safety during hazardous winter condi- tions, particularly given the steep elevation changes on this segment of I-80. There is also a need to minimize (or eliminate) the number of trucks parking on I-80 be- cause these trucks affect other traffic, pose a hazard to emergency access, and impede NDOTâs winter maintenance activities. Process integration begins well in advance of any specific weather event. It takes the form of planning for response strategies among those agencies responsible for traf- fic management, maintenance, enforcement, and notification along I-80. At a higher level, there are overarching interstate coordination processes for winter maintenance and road closure operations that are also not necessarily specific to an event but pro- vide the framework for which specific processes and activities are carried out and coor- dinated in response to winter closures in this region. Because these processes must be drawn upon repeatedly during the winter driving season, ongoing opportunities exist to refine the process and achieve efficiencies.
