Performance Measures to Improve Transportation Systems: Summary of the Second National Conference (2005) / Chapter Skim
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From page 85... ...
RESOURCE PAPERS 99395mvp70_128 12/13/05 12:36 PM Page 79
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Tools include strategic planning and management, performance-based transportation systems planning, stakeholder engagement processes, asset management, performance management, performance budgeting, process reengineering, and quality/productivity improvement processes. Transportation agencies have also adopted performance measurement systems widely.
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In fall 2000 a national conference focused on the use of performance measures to improve the performance of both transportation systems and transportation agencies (Transportation Research Board 2001)
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In Ohio, Governor Taft's Jobs and Progress Plan calls for significant increases in both federal and state funds to put more Ohioans back to work on expanded highway construction programs over the next 8 3PERFORMANCE MEASUREMENT IN TRANSPORTATION Program Construction Maintenance Safety Operations Public Transportation Outputs Projects Completed Lane Miles Bridges Built Miles Resurfaced Repairs Made Treatments Applied Projects Completed Turn Lanes Added Stripes Painted Messages Displayed Incidents Cleared Signals Timed Vehicle Hours Vehicle Miles Seat Miles Immediate Outcomes > Capacity > Connectivity > Condition Smoother Pavements < Hazards More Efficient Operation > Coverage < Headways Intermediate Outcomes < Congestion < Travel Times > Convenience > Ride Quality < Operating Expense < Crashes < Injuries < Fatalities < Congestion < Delays < Crashes < Waiting > Ridership > Convenience Longer-Term Outcomes Mobility Quality of Life Economic Development Environmental Enhancement Community Development System PerformanceAgency Performance Impacts FIGURE 1 Transportation program logic model.
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The Pennsylvania Department of Transportation task force is also trying to develop good measures of the cost 8 4 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS Leadership Skills Stakeholder SatisfactionEmployee Development Employee Satisfaction Resignations ROW & CST Estimates STIP Delivery CST Delivery Maintenance Quality Paces Rating Congestion Fatalities Bridge Sufficiency Environmental Project Selection Transit Customer Satisfaction Leadership (Goal 5) Workforce (Goal 4)
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State DOTs that conduct regular surveys of the public at large, motorists, or other stakeholder groups include those in Minnesota, New Mexico, Illinois, Kentucky, Pennsylvania, Ohio, and Georgia. The Pennsylvania Department of Transportation, for example, has conducted periodic surveys to monitor residents' overall ratings of a variety of services ranging from highway construction and maintenance to roadside beautification, snow and ice removal, welcome centers, transportation planning, financial support for public transportation, vehicle inspection programs, and vehicle registration and titling services.
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Methodologies exist or are being developed to estimate the impact of a range of solutions on reducing congestion, including additional highway construction, demand reduction, freeway entrance ramp metering, freeway incident management, traffic signal coordination, use of highoccupancy lanes, and public transportation improvements. Urban Congestion Measures Mitretek reports travel time trends on a monthly basis for 10 metropolitan areas where public- or private-sector organizations provide suitable point-to-point travel time 8 6 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS 99395mvp70_128 12/13/05 12:36 PM Page 86
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; and • Percentage of congested travel -- hours of congested travel as percentage of time. The urban congestion measures reported by Mitretek sometimes differ substantially from the urban mobility measures reported by the Texas Transportation Institute because they are derived from travel time data rather than traffic volume counts.
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Use of Indices As the number of measures incorporated in some monitoring systems proliferates to a point where minutiae tend to overwhelm a central overall focus, some agencies have developed indices that combine multiple measures in order to summarize performance with fewer numbers. The Florida Department of Transportation, for example, focuses on 11 key performance measures to monitor progress in accomplishing its strategic objectives and executive board initiatives.
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Setting Standards and Targets Increasingly, transportation agencies are identifying performance measures and then setting numerical standards or targets to be attained on those measures by 8 9PERFORMANCE MEASUREMENT IN TRANSPORTATION District 1 2 3 4 5 6 7 8 9 10 11 12 ODOT INDEX 95.8333 91.6667 97.9167 97.9167 100.0 100.0 95.8333 100.0 89.5833 95.8333 93.75 91.6667 93.2192 83.3333 79.1667 91.6667 91.6667 91.6667 83.3333 91.6667 91.6667 87.5 100.0 79.1667 79.1667 91.6667 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 72.0238 82.7381 85.119 83.9286 91.6667 86.3095 88.6905 87.5 66.6667 90.4762 95.8333 82.7381 90.4762 88.8889 100.0 100.0 100.0 100.0 88.8889 100.0 100.0 100.0 100.0 100.0 100.0 94.4444 100.0 50.0 80.0 95.0 95.0 83.3333 65.0 95.0 50.0 90.0 65.0 70.0 83.3333 75.0 87.5 93.75 68.75 93.75 93.75 87.5 87.5 75.0 56.25 87.5 81.25 87.5 100.0 95.0 91.6667 100.0 100.0 93.3333 100.0 98.3333 100.0 93.3333 100.0 93.3333 98.3333 Finance Information Technology Plan Delivery System Conditions Quality and Human Resources Total Index Value Construction Management Contract Administration Equipment and Facilities 80.5413 90.2803 89.6745 80.514 92.3512 92.0387 84.7606 92.7044 93.0159 88.1189 93.3929 93.2192 Total Index Value Historical Trend Statewide 110 100 90 80 70 60 50 40 30 20 10 0 In de x Va lu e (% ) 06/03 07/03 08/03 09/03 10/03 11/03 Month End 12/03 01/04 02/04 03/04 04/04 05/04 FIGURE 3 OPI executive summary, Ohio Department of Transportation.
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Figure 4, for example, shows the Minnesota Department of Transportation's dashboard, which provides a monthly snapshot of the performance of infrastructure investment and planning programs as well as maintenance and operations. Similarly, the Missouri Department of Transportation uses a dashboard format to monitor progress in implementing its departmentwide business plan through a highlevel set of performance measures.
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3-year decline future decline 10 Principal Arterials 2003 Pavement – Remaining Dropped below targets - 3 of 8 on target % High Forecast Service Life (RSL) 3-year decline 4 of 8 on target % Low future decline 10 Minor Arterials 2003 Pavement Preventive Far short of target No district on target Target under Maintenance $ Investment 2003 review - HSOP 2 Bridge Condition – Declining % Good 4 of 8 on target % Good Principal Arterials 2003 Improved % Poor 5 of 8 on target % Poor 7 Bridge Condition – Improved 7 of 8 on target % Good Minor Arterials 2003 6 of 8 on target % Poor 7 Bridge Condition – Improved to exceed 7 of 8 on target % Good Collectors 2003 targets 4 of 8 on target % Poor 7 IRC Travel Speed – % No Small gain 1999–02; N/A Forecast gains miles meeting speed targets target 2002 expect drop 2003–04 2005–14 4 Congestion – % miles of Deteriorating toward N/A Targets under Metro Urban Freeways 2002 red review - TSP 9 Transit Advantages – Bus Achieved target N/A Forecast on Shoulder Miles - Metro 2003 3 or last 4 years target 2004–06 12 Balanced Letting Small declines 2003 & 1 on target Schedule 05–06 FY 2003 2004 thru May shows gains 6 Letting Timelines – Small improvement 4 on target 1st Year STOP - All projects FY 2003 6 Letting Timelines – Declined 1 on target 3rd Year STIP - MC, RC, BR FY 2003 3 STIP Cost Estimates – Large improvement 3 Yellow 3rd Year - MC, RC, BR FY 2003 5 Red 2 Lettings on Schedule – Improved 4 on target Year 1 Next 3 years - Milestones 7-2003 4-2003 4 on target Year 2 1 6 on target Year 3 Construction Limits on Improved 8 on target Year 1 Schedule – Next 3 years - 7-2003 4-2003 6 on target Year 2 1 Milestones 4 on target Year 3 EIS Duration – New Improved steadily since N/A Major Projects measure 1990 15 ROW Processing Time New Short of target N/A Forecast smaller measure workload 3 Plan Quality for Bid – Dropped slightly below 6 on target % Exceptional Mn/DOT Plans FY 2003 target last year 4 on target % Poor 9 Plan Quality for Bid – Far below targets N/A Consultant Plans FY 2003 every year 9 Construction Cost Deviation Deteriorated over last 4 on target from letting to completion – 2003 5 years 6 MC, RC, & BR Construction Timelines – Small decline N/A % of MC, RC & BR Projects 2003 6 meeting completion dates Operations and Maintenance Public satisfaction with Dropped below target Metro area and GrMN both Maintenance 2003 last 3 years yellow 6 Snow and Ice Removal – On target overall last 6 All districts on target Hours to Bare Lane - 03–04 years.
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This report simultaneously provides accountability and makes a departmental case statement to a variety of external stakeholders. Transportation Planning and Programming Performance measures increasingly are being used to establish the criteria for transportation systems plans as well as for subsequent decisions about preserving existing assets and programming projects to advance those plans.
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Scorecards are used at both levels, and the Pennsylvania Department of Transportation is currently deciding how frequently these performance data will be reported and reviewed. Performance Management In many DOTs performance measures play a central role in managing the work of managers and employees and focusing their attention on strategic objectives and other organizational goals.
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Performance Budgeting As transportation agencies are more committed to results-based allocation of funds to programs and organizational units, performance data are used to project differential levels of outputs and outcomes associated with alternative funding levels. The performance measures provide the linkage between plans and budgets, sometimes between strategic plans and budgets, or between strategic plans and business plans and then between business plans and budgets.
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The business plan measures, on the other hand, are tied to both output and outcome targets over a 2-year period, while the operations-oriented or project-related measures at the bottom of the pyramid are tied to output targets to be achieved within 1 year. 9 5PERFORMANCE MEASUREMENT IN TRANSPORTATION FY05 CONSTRUCTION PROGRAM 200 Salaries and Benefits FY04 OPBUD ENGINEERING DESIGN DIVISION TRANSPORTATION PLANNING DIVISION HIGHWAY OPERATIONS DIVISION ROAD BETTERMENTS DIVISION ADMINISTRATIVE DIVISION-IT BUREAU FY05 OPBUD FY04 VS.
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systematic procedures for reviewing performance data and using the information to strengthen planning and decision making. 9 6 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS Document Planning Horizon Statewide Transportation Plan PolicyBased, SystemLevel, Essential Mode and Program Measures Additional Business Plan Measures Operating Measures District/Metro Plans and Modal Plans Additional Modal/ Submodal-Specific Measures Additional District & Metro-Specific System Measures Business Plans 20 Years 20+ Years 2 Years Less Than 1 Year Work Plans FIGURE 6 Minnesota Department of Transportation performance measures pyramid.
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• Increased reporting of performance data directly to the public, especially in online report cards, to promote transparency in government. Continuing Challenges Transportation agencies are investing increased resources in performance measurement and finding innovative ways of measuring the performance of transportation systems and programs.
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In Conference Proceedings 26: Performance Measures to Improve Transportation Systems and Agency Operations, Transportation Research Board, National Research Council, Washington, D.C., pp.
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Politicians debate the performance level of snow and ice removal. And a state transportation commission has posted experience in performance management as a critical qualification for a new secretary of transportation.
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In early 2001 the Washington State Transportation Commission put out a call for a new secretary with a background in performance management. Douglas B
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In the Minnesota Department of Transportation, additional roots of measurement practice in the 1990s were in a maintenance business planning team, which was influenced by quality management principles. • California: The new cabinet secretary has started a process to choose internal organizational performance measures, in addition to system measures, to be completed by late summer 2004.
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The Ohio Department of Transportation has a strong performance management system and now has development of a project delivery reporting system as its top priority. After gaining a 6-cent hike in gasoline tax revenue in 2003, the department's challenge became to deliver on time and on budget.
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The Minnesota Department of Transportation is now applying the policy framework and measures down the organization, into district longrange plans, a new freight plan, and a first-time Highway System Operations Plan. Also in 2003, a regular monthly reporting schedule was initiated for commissioner's staff for measures tied to the nine highest-priority objectives in the transportation plan and strategic plan.
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Later we will reflect on some of the challenges and issues for the future of performance management. 1 0 4 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS 100% 80% 60% 40% 20% 0% 19 95 20 00 20 05 20 10 20 15 20 20 Reporting Year Target - Good Target - Poor Trend-Based Projection Good Trend-Based Projection Poor Note: Good - PCI ≥ 56 Poor - PCI £ 40 Data are updated at individual airports every three years % Good 5% 8% 10% 7% 6% 6% 4% 3% 6% 6% 5% 4% 6% 6% 6% 4% 86% 82%82%82%81% 82% 83% 84% 82% 88% 89% 85% 86% 80% 76% 79% 78% % Poor Cu rre nt D at a 20 04 T ar ge ts 20 05 T ar ge ts 6Ye ar 10 -Y ea r 20 -Y ea r FIGURE 2 Minnesota Department of Transportation statewide plan preservation policy, aeronautics: percentage of regional trade center airport pavements meeting good and poor pavement condition index (PCI)
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Nevertheless, we can identify some practices that are important to success. The 2002 Transportation Asset Management Guide (1)
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Customer Information The Transportation Asset Management Guide best practices recommend, "Policy formulation seeks input from customers and stakeholders, and reflects customer priorities and concerns in resulting policy statements and objectives, and performance targets" (1, p.
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In Minnesota, the takeoff of performance management was in the 2000–2002 period, when business plan and transportation plan targets were first established. Setting targets sent the message that measurement is about managing to get results, not just monitoring.
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1 0 8 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS 40% 30% 20% 10% 0% 19 93 % o f C on ge st ed D ire ct io na l M ile s 19 98 20 03 20 08 20 13 20 18 20 23 Statewide Plan Trend-Based Projection Statewide Plan Moderate Target Aggressive Target During Meter Shutdown 23.4% Historical Data 14.0% 14.9% 13.5% 11.1% 12.1% 18.6% 16.2% 16.6% 19.9% 22.9% 21% 21% 21% 21% 31% 37% 24% 25% 28% 26% 21% 22% Cu rre nt D at a 20 04 T ar ge t 20 05 T ar ge t 6Ye ar 10 -Y ea r 20 -Y ea r FIGURE 4 Percentage of congested miles of Twin Cities urban freeway system.
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Wisconsin State budget office requires at least two measures for every program in budget. Executive strategic initiatives California Governor and cabinet secretary asked Caltrans and regional organizations to adopt common core performance measures for the transportation system in 2004.
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Maricopa Performance measures used to evaluate the strengths and weaknesses of various future transRegional portation approaches and scenarios in the Maricopa Association of Governments Regional Transportation Transportation Plan. Plan (Phoenix, Arizona)
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BOX 4 Integration of Performance Management Practices with Operations and Management Processes: Selected Examples Project delivery management Virginia Public online project delivery dashboards established in response to legislative demands after a crisis in program delivery. Reported quarterly to governor.
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. Project Delivery Management The Transportation Asset Management Guide indicates that "well-understood project delivery measures and procedures are used to track adherence to scope, schedule, and budget" (1, p.
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Measures and target service levels are being developed as part of a larger new Highway System Operations Plan, which supports the statewide transportation plan. Trade-Off Analysis Development of trade-off analysis is a goal of transportation performance management.
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The Virginia Department of Transportation uses the dashboards to hold project managers accountable and reviews them at monthly commissioner updates. Virginia also posts a quarterly report card showing performance on core business outcomes -- construction and mainte1 1 4 PERFORMANCE MEASURES TO IMPROVE TRANSPORTATION SYSTEMS 0 20 40 60 80 100 0 1 2 3 4 5 6 7 8 9 10 Time (years)
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The Governmental Accounting Standards Board has recognized performance data as an essential component of sound management. Texas was one of the early states to require auditing of performance measures data for all state agencies.
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In 2003 the Washington State legislature created a Transportation Performance Audit Board consisting of legislative leaders and citizens. It is charged with reviewing performance measures used by several state transportation agencies and recommending performance audits (ltc.leg.wa.gov/tpab/default.htm)
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, Strategic Performance Measures for State Departments of Transportation: Benchmarking Performance, is exploring identification of shared measures. Figure 13 shows an example of benchmarking transit measures in Minneapolis–St.
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They include goals, objectives, and operational performance measures aligned to Caltrans's strategic plan. Some of the same measures, such as those for project delivery, are also reported to the California Transportation Commission and the legislature.
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The following organizations were interviewed or surveyed: the California Department of Transportation; the Federal Highway Administration; the Florida Department of Transportation; the Metropolitan Council, Twin Cities, Minnesota; the Metropolitan Transportation Commission, San Francisco Bay Area, California; the Minnesota Department of Transportation; the Montana Department of Transportation; the New Mexico Department of Transportation; the Ohio Department of Transportation; the Pennsylvania Department of Transportation, and the Washington State Department of Transportation.
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Summary: International Scan on Performance Measures. Draft.
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, metropolitan planning organizations (MPOs) and councils of governments, system operators such as transit agencies and toll authorities, local transportation agencies, and citizen oversight groups have all experimented with performance measures to varying degrees to predict, shape, and report on the results of system investments and operations.
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USE OF PERFORMANCE MEASURES IN PLANNING AND PROGRAM DEVELOPMENT A notable degree of progress in performance-based program development has been made since the passage of the Intermodal Surface Transportation Efficiency Act, which established the requirement that state DOTs develop multimodal transportation plans, similar to the requirement for MPO long-range plans. Initially, states' long-range planning processes produced numerous goals and objectives, often with extensive public outreach, but the resulting transportation program was often not well connected with those goals (1)
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. Although the application and degree of integrating performance measures in program development vary across transportation agencies, the clear benefits of measures ensure that they will continue to play an important role in transportation system management.
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Applying performance measures to project delivery can lead to more effective utilization of funds. Performance-based management of program delivery relies on measures to summarize project costs, track changes in project scope, monitor changes in delivery schedule, and minimize negative impacts of individual project-level changes on the overall program.
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Even though the use of performance measures for project delivery management varies across transportation agencies, there are several commonly used performance measures. The majority of measures address cost and time elements; however, some agencies are also tracking the safety and quality of project work.
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We have documented how the implementation of performance-based program development and delivery varies across transportation agencies. Although there are some similar benefits to using performance measures in both processes, there are also distinct differences.
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projects on the transportation system often not known for several years External factors Existing external factors (driver behavior, Unexpected changes in external factors affect demographics, etc.) affect performance performance Challenges Selecting measures Selecting measures Data availability Data availability Analytical tools to predict performance Tracking project changes External factors External factors Defining expenditure impacts on system Assessing impact of program/project changes on performance system performance Monitoring over time Co m po ne nt 1 Pr og ra m D ev el op m en t Co m po ne nt 2 Pr oje ct D el iv er y Co m po ne nt 3 Sy st em M on ito rin g a n d Re po rti ng System Performance Measures to Monitor Progress on Meeting Goals/Objectives Performance Targets for Planning/ Programming Given Resource Availability Specific Set of Programs and Projects with a Defined Budget, Schedule, Scope Performance Measures to Track Delivery Result = System Performance Program Development and Project Selection Program/Project Implementation Goals/Objectives FIGURE 3 Performance-based management structure.
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In addition, the information presented in the Gray Notebook will be the foundation for the next statewide transportation plan. Another means of connecting program development and program delivery to each other is to make efficient project delivery itself a high-level agency goal.
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A clearly articulated agency goal such as "efficient program delivery" supported by a culture of performance-driven decisions will help agencies to stay the course even as they respond to external change forces and wavering political support. Improved communication and data management are both requirements and key benefits of connecting performance-based program development and project delivery.
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However, a large number of agencies have incorporated performance measures of some form into their transportation system management. As this practice expands, the benefits of improving connections between program development and program delivery become more apparent and significant.
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Harrison and Anita Vandervalk, Cambridge Systematics, Inc. Many transportation agencies seek to improvebusiness processes by expanding the use ofperformance measurement without making significant additional investments in data collection and analysis tools.
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DATA AND TOOLS FOR SPECIFIC TYPES OF MEASURES -- EXAMPLE APPLICATIONS This section discusses four categories of performance measures: • Infrastructure condition and deficiency measures, • Mobility measures, • Safety measures, and • Customer service measures. For each of these four categories, common types of measures and current issues related to the use of existing data and tools are reviewed briefly.
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Pavement condition data collection procedures were well established, and the system had performance curves and decision rules needed to predict future performance and simulate performance impacts of alternative budget levels. The department undertook several activities to make use of this tool for performance-based planning: • Coordination and agreement with the Materials Bureau on data updating protocols and schedules, including responsibilities for updating the list of programmed pavement projects to be considered by the simulation; • Minor modifications to the software to provide reporting of aggregated performance results by the three system categories used for performance reporting; • Development of new spreadsheet-based tools that take the system's outputs and produce charts and graphs needed for P3; • An annual quality assurance process consisting of running the simulation, reviewing network-level results against prior trends, and correcting the modeling parameters and data as needed; and • Iterative runs of the system to determine the best allocation of resources across work types and districts to meet established performance targets.
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Excess delay incurred by persons and goods traveling on the highway system and wasted fuel are the primary simulated performance measures. The economic losses associated with excess delay are monetized and estimated at more than $4.3 billion annually for state highways.
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Customer data sources have included annual statewide telephone surveys to measure customer perceptions of highway services, focus groups, and interview data gathered during the long-range transportation plan development process. A number of techniques have been used to refine customer data collection over time to improve its usefulness: • Survey sampling plans and question design that are sufficiently detailed to provide accountability at a district level -- county-level surveys addressing topics that are easily related to the perceived mission of district engineers are more useful than surveys designed to track overall statewide customer satisfaction; • Inclusion of questions that distinguish among different types of routes (e.g., Interstate versus other)
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GENERAL GUIDANCE: MAKING THE MOST OF AVAILABLE DATA AND SYSTEMS Challenges in using existing data and tools for performance measurement can be divided into three categories: • Defining performance measures -- deciding which performance measures and data sources to use, • Collecting and managing the data, and • Using performance data to support decisions. Guidance for each of these areas is provided below.
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Particularly where data from secondary sources are being used to derive performance measures, it is important to obtain and document precise data definitions. To take the example of employment data, figures could vary widely on the basis 1 3 7ISSUES AND CHALLENGES IN USING EXISTING DATA AND TOOLS 99395mvp129_152 12/13/05 12:43 PM Page 137
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Migration of the historical values of data elements that are critical for time-series analysis and presentation of performance measures from the legacy system to the new system should be specified as part of the upgrade process. This includes data quality checks, transformation of data code values, and transformation of the legacy record format to the modernized record format.
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A data business plan can be undertaken to address issues of customer needs, return on investment for data collection, assessment of which data types are most beneficial to collect relative to resources invested, data stewardship, metadata, how to address changing agency needs, data definitions, and many other critical elements that have been discussed above. Using Performance Data to Support Decisions The performance data, once in place, must be disseminated to decision makers in an effective manner, and analytical tools must be available to assist in development of performance targets and investment analysis.
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NCHRP Report 446: A Guidebook for Performance-Based Transportation Planning. Transportation Research Board, National Research Council, Washington, D.C., 2000.
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