Summary State DOT Practices for Developing and Implementing TSMO Plans (2021)

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8 Literature Review The researchers conducted a comprehensive assessment of TSMO-oriented publications and practical reports along with literature specifically associated with statewide and regional TSMO planning to ensure a comprehensive assessment of all available information on the subject. Additionally, the researchers conducted a review of current TSMO planning practices and available TSMO plans published by states to establish a clear understanding of current plan elements. This review method was used to gather available literature in a robust and repeatable fashion. The purpose of this literature review method is to be scientific, transparent, and replicable throughout fields while minimizing bias. The intent of the literature review and systematic document review process was to tie together these two categories of documents as described in Table 2. For the literature review, an initial search was performed through the Transportation Research Information Services and Transportation Research International Documentation databases. The systematic review process allowed the exploration of existing federal, state, and local sources [e.g., NCHRP, National Operations Center of Excellence (NOCoE), Federal Highway Administration (FHWA), and U.S. Department of Transportation (U.S. DOT) reports], academic journal articles, and conference proceedings. Several search tools and other sources were available to the researchers, including the Transportation Research Inter- national Documentation databases, Texas A&M Transportation Institute (TTI) libraries, Internet search engines, professional association resources, and personal libraries of profes- sional sources. Many web sources assisted in the collection of literature within the scope of this synthesis, including Google Scholar, state DOT websites, MPO websites, and municipal online sources. Using the criteria in Table 3, the plan review determined the overall patterns and provided a deeper understanding of the TSMO planning processes. A total of 28 state TSMO plans, which were developed from 2010 to 2020, were collected and analyzed for this synthesis. Each plan was placed in the matrix for comparison purposes. Patterns of similarities and differences among the plans started to emerge, and the synthesis of these plans is provided throughout this chapter. Additionally, profiles for each reviewed plan containing elements noted in Table 3 are also available in Appendix D. Mainstreaming TSMO As noted previously, the increased demand for transportation system reliability on the part of both system users and infrastructure owners and operators has played a key role in the mainstreaming of TSMO in transportation agency operations. TSMO represents a cohesive, collaborative, and integrated approach to management strategies that in some cases have been C H A P T E R 2

Literature Review 9   Reviewed Documents Review Steps and Topics TSMO- Related Literature • Conduct a literature search of all available sources related to the development of TSMO; • Assess the available TSMO plans and development methods in a robust, repeatable, and transparent manner to diminish bias; • Conduct a comprehensive analysis of all planning for operations methods used in practice, including – DOTs, – Regional MPOs, and – Local governing bodies. • Compare and contrast each method, finding similarities and differences to discover patterns and successful practices within the body of literature; • Review connections to CMM dimensions; and • Identify additional planning factors that might affect TSMO planning and implementation. State DOT and Regional TSMO Plans • Review individual documents based on the following topics: – General plan details. – Plan methodologies and content areas. – Project development process. – Barriers to success. – Benefits and lessons learned. – Collaboration and partnerships in the decision-making process. – Motivation for TSMO planning and weight given to TSMO in project selection. – Plan components. Table 2. Literature review elements. Variables Factors General details of the study • Agency • Decision-making level (state, MPO, local) • How is the study linked to an existing body of research? Purpose of literature • What are the authors trying to achieve in writing this? • What problems is the methodology addressing? Methodology • Sample and scope of the methodology • Methods • Main TSMO plan features, decision factors, and proposed investment classifications or taxonomies based on these features and factors • Is the TSMO plan multimodal? Funding • Allocation of TSMO project funding Program/Division evaluation of TSMO plan(s) and associated feedback mechanisms • TSMO performance measures • Associated impact analyses (economic, safety, reliability, capacity, resilience, and other agency-specific analyses.) • Plan update cycles • Post-impact analyses verification process • Barriers to implementation TSMO planning expertise • Urban or rural land use • New technologies used • Political influence • Innovative policies, strategies, and practices to develop TSMO planning expertise within agencies Partnerships in decision-making process • Partner contributions to the TSMO planning process Motivation and weighting of TSMO • Motivation of TSMO planning efforts • Qualitative versus quantitative balance • What decision factors are given certain weights in the planning process? Plan components • Strategic • Programmatic • Tactical Table 3. Variables assessed in the literature review.

10 Summary State DOT Practices for Developing and Implementing TSMO Plans part of the operational toolbox for agencies for decades. Examples of TSMO strategies include, but are not limited to • Access management, • Active transportation and demand management (ATDM), • Congestion pricing, • Connected and automated vehicle (CAV) deployment, • Freight management, • Improved bicycle and pedestrian crossings, • ICM, • Managed lanes, • Parking management, • Ramp management, • Road weather management (RWM), • Special event management, • TIM, • Traffic signal coordination, • Transit management, • Transit signal priority, • Traveler information, and • Work zone management (FHWA 2020). This movement toward a more coordinated management of the network and the develop- ment of TSMO program plans solidified following the release of the Strategic Highway Research Program’s (SHRP 2) Organizing for Reliability Tools intended to provide agencies with resources to better integrate and mainstream operations (Scriba et al. 2020). The SHRP 2 program pro- vided states and regions with funding and resources to develop and deploy innovative TSMO solutions for their jurisdictions. A key component of that program was the development of the CMM self-assessment tool for use by agencies to assess their current TSMO programs and to determine how best to improve and advance their programs to more effectively manage their projects and operations programs. The CMM, as illustrated in Figure 1, identifies six dimensions within which agencies can look to improve their organization and processes for the advance- ment of TSMO. These CMM dimensions of TSMO include • Business processes, • Systems and technology, • Performance measurement, • Culture, • Organization and staffing, and • Collaboration. Early in the implementation of the SHRP 2 self-assessment process, it was determined that most states/regions included some aspect of organization and staffing in their implementation plans to improve agency capability. The two highest priorities were the organizational con- solidation of related units and the development of TSMO staffing plans, potentially including identification of core staff capacities, position descriptions, and succession plans. Several agencies also undertook some degree of reorganization. However, in some state DOTs, TSMO duties were often silos among engineering/project development units and system operations/management units (including TMCs) (FHWA 2015). Since the release and implementation of the CMM self- assessment, 50 states and regions have used it to evaluate and improve their TSMO capabilities, directly connecting organizational capabilities with the overall development or enhancement of TSMO program plans. The overall result is a broader acceptance and commitment to TSMO program plans and the advancement of operations to optimize system performance.

Literature Review 11   Several states have made progress in integrating the CMM into their TSMO program to benefit overall operations in their jurisdictions that can offer valuable insight to other agencies. For example, the California Department of Transportation (Caltrans) integrated CMM with its ICM program, while TxDOT utilized the CMM assessment as a framework for TSMO plans (Atkins et al. 2019b). The North Carolina DOT successfully integrated CMM into its TSMO planning through the use of functional mobility areas, while the Washington State Department of Transportation (WSDOT) utilized the CMM assessment to improve business processes and culture. As a tool, CMM assessments can be used in many different ways for evaluating programs, projects, or the agency’s or region’s performance as a whole, including establishing a baseline of TSMO maturity. A CMM assessment can be performed several times as a TSMO program grows to ensure agency objectives are being met (Atkins et al. 2019b). While there is no specific method on how to integrate the CMM assessment into agency processes, it is up to the agency to leverage lessons learned from CMM dimensions to help address their needs. A CMM can be used to identify the health of an overall TSMO program or on a project-, corridor-, or strategy-specific level. Table 4 illustrates the CMM capability dimension levels for business processes when considered within the TSMO context. Business processes for TSMO help an organization focus on understanding and prioritizing its operational needs; setting operations objectives; and identifying projects, programs, and Source: Scriba et al. 2020. Figure 1. The capability maturity model and its application to TSMO capabilities.

12 Summary State DOT Practices for Developing and Implementing TSMO Plans strategies to meet those objectives. The organization can then direct resources toward the highest priority projects or actions. Business processes enable agencies to collaborate more effectively in real-time on the roads and rails, and their documentation enables the efficient onboarding of new staff and organizational partners (Atkins et al. 2019c). Business processes are the formal organizational processes and include, but are not limited to, project planning, development, implementation, budgeting, administrative strategies, contract procurement, scoping, training, human resource management, and information technology. Several agencies have mature business processes that warrant mentioning as noted in Table 5 (Atkins et al. 2019d). It is important to note that planning to deploy TSMO strategies is successful when funding constraints are identified and resolved early in the planning process. When agencies plan TSMO strategies into available funding mechanisms, deployment is realized sooner than traditional transportation planning efforts. TSMO processes do not always need to be generated from a base level. Frequently, many agency processes are in place to support TSMO activities. Revising existing processes to align with regional TSMO goals and objectives will ensure that TSMO is incorporated in agency-wide processes. Task-specific priorities enable agencies to track progress, identify areas for growth, and celebrate successes. Developing processes for imple- mentation is helpful to ensure the agency matures its TSMO program by systemically defining how and when achievements will be made to elevate TSMO processes in the agency or region (Atkins et al. 2019d). Capability Dimension Level 1 Level 2 Level 3 Level 4 Business processes (planning, programming, implementation) Processes related to TSMO activities, ad hoc and unintegrated Multiyear statewide TSMO plan and program in place, with deficiencies, evaluation, and strategies Programming, budgeting, and project development processes for TSMO standardized and documented Processes streamlines and subject to continuous improvement Source: FHWA 2012. Table 4. Business processes capability dimensions for CMM. Agency Business Processes Related to TSMO Florida Department of Transportation (FDOT) District 5 Task-oriented improvement activities. Developing items with practical value promotes success in improving TSMO business processes. Development of processes can be tracked and celebrated when outcomes are clear and communicated. Iowa Department of Transportation (Iowa DOT) Integration of TSMO planning with traditional planning efforts. Realizing TSMO strategies early in project planning provides opportunities to mitigate transportation challenges in the short-term, resulting in allocated funds to be dispersed among other long-term planning efforts. Maricopa Association of Governments Investment priorities as a structure for TSMO planning. Realizing financial constraints early in planning processes enables agencies to actionably deploy TSMO strategies. North Central Texas Council of Governments (NCTCOG) Development of a financial group to assist with implementation. Often, agreements needed to deploy TSMO strategies require additional administrative support. Planning for these challenges enables operational staff to focus on mobility. Source: Adapted from Atkins et al. 2019d. Table 5. Agencies with mature business processes related to TSMO.

Literature Review 13   Organizational Attributes A foundational issue associated with a successful TSMO program is the overall structure and specific attributes of an organization to support TSMO planning and related operational strategies. For example, specific state DOTs have implemented TSMO programs that incorpo- rate organizational structures to support them. Both Maryland Department of Transportation State Highway Administration (Maryland DOT SHA) and Tennessee Department of Trans- portation (TDOT) were featured in a case study because of their holistic view of TSMO programs that emphasizes methods for continual improvement and highlights their TSMO master plan priority process (Atkins et al. 2019e). Key organizational elements and efforts that contribute to success in these states include, but are not limited to • Establishing a defined TSMO organizational structure to support the institutionalized culture change needed to implement TSMO programs, • Identifying champions for TSMO activities that support the development of agency planning and project prioritization processes to ensure project development objectives align with agency TSMO goals, • Implementing TSMO training activities to benefit the integration of TSMO into day-to-day operations by effectively communicating agency goals and objectives, • Ensuring that knowledgeable staff members are empowered to make more informed decisions when their role in implementing TSMO is apparent, • Conducting outreach to the public and other local agencies to facilitate regional culture shifts needed to maximize the value of TSMO strategies, • Working with regional partners to support TSMO activities when the objectives and benefits are successfully communicated, • Clearly identifying goals and objectives, how they will be achieved, and what methods will be used to track them, and • Using software to track system reliability and performance measures (Atkins et al. 2019e). As illustrated in Figure 2, Maryland DOT SHA utilized a master plan priority process to develop their TSMO master plan, which identifies statewide priorities and considers TSMO at the corridor level (Maryland DOT SHA 2018). The Arizona Department of Transportation (ADOT) and Colorado Department of Trans- portation (CDOT) have also invested in similar organizational attributes that support success- ful TSMO programs. For example, ADOT has integrated innovative mobility strategies into Source: Maryland DOT SHA 2018. Figure 2. Maryland DOT SHA TSMO Master Plan recommendation.

14 Summary State DOT Practices for Developing and Implementing TSMO Plans its statewide architecture and has implemented a consistent review of performance measures (Atkins et al. 2019c). Likewise, CDOT has established a regional operations manager role to support localized operations and maintenance activities. Additionally, CDOT’s Corridor Operations Bottleneck Reduction Assistance program has been an effective mechanism to fund bottleneck reduction projects. Additional efforts which support continual improvement of TSMO programs in these states and which promote a culture of data-driven decision- making include • Developing a formal structure and processes to encourage advancement of TSMO activities; • Documenting the institutional arrangement and organization framework, such as through TSMO program planning, to provide a uniform understanding that TSMO can be imple- mented statewide; • Emphasizing that TSMO program planning is a continuous process, evolving to fit the needs of the agency and addressing emerging opportunities; • Collaborating with planning, design, construction, and maintenance groups to help integrate TSMO strategies into projects more efficiently; • Initiating conversations about safety, operations, and maintenance early in the project priori- tization and development phases to help implement innovative strategies and initiatives in a cost-effective manner; and • Using performance measures to identify and deploy mobility strategies and establishing targets so that goals are understood by agencies and discussions about countermeasures can occur proactively (Atkins et al. 2019c). CDOT also recognized the need to consolidate TSMO under one division and instituted an organizational change through a reorganization action plan. The new division brought together ITS, high-occupancy vehicle/high-occupancy toll maintenance, freeway courtesy patrol, heavy tow programs, and fiber network operations/maintenance, and created three new units for corridor management priorities: corridor management, incident management, and event management (Burgess et al. 2016). The next steps for the agency were to establish objectives, performance measures, coordination between operations and maintenance, and business cases for resource, budgeting, and process improvements. The ADOT, the New Hampshire Department of Transportation (NHDOT), the Utah Department of Transportation (UDOT), and the Vermont Department of Transportation offer examples of how TSMO organizational structures can be developed to support management and operational strategies and how agencies can apply their TSMO structure to improve agency culture (Atkins et al. 2019f). For example, UDOT’s matrix-style structure supports TSMO initiatives by ensuring communication between layered leadership roles, while both UDOT and NHDOT’s approaches to applying a TSMO structure to a specific mobility strategy help support agency TSMO goals and objectives. Both ADOT and the Vermont Department of Transportation have undergone organizational restructuring to include both existing and new roles that utilize existing staff capabilities and enable agencies to identify additional roles that will support TSMO activities. ADOT’s realigned structure is shown in Figure 3. While the focus of this report is on the use of TSMO program plans by state DOTs, some states work with partner agencies at the regional level to further their TSMO plan, recognizing the importance of collaboration for effective TSMO activities. For example, three agencies that worked to advance TSMO in their regions with MPOs in the lead include NCTCOG, the Maricopa Association of Governments, and the Atlanta Regional Commission. Each agency provided information on the processes they developed to advance TSMO capabilities and maturity. These three agencies demonstrate how an MPO can provide a leadership role in the development of a TSMO program’s strategic direction, safety and mobility strategies, funding and collaboration with stakeholders (Atkins et al. 2019d). For example, NCTCOG established

Literature Review 15   TSMO policies to improve regional TSMO culture and project selection criteria, using such tools as before-and-after studies to identify performance values for signalized intersections and pilot mobility projects. The Maricopa Association of Governments has demonstrated a dedi- cation to collaboration through stakeholder meetings and frequent internal communications and has been able to undertake TSMO planning using available funding mechanisms. Addition- ally, the Atlanta Regional Commission has incorporated TSMO into thoroughfare planning through the establishment of process-based selection criteria and desired performance measures. Additional good practices from MPO-led TSMO efforts include the following: • Integrating TSMO into the planning process enables agencies to use resources more efficiently. Through TSMO activities, they can identify if transportation challenges might be mitigated through innovative and less costly mobility improvements. • Aligning TSMO objectives with regional transportation objectives enhances the overall planning process by looking at transportation challenges holistically. • Considering funding early in TSMO program planning is critical to ensure that regional TSMO goals can be met. TSMO plans must have financial backing to promote overall program strategies and objectives. • Collaborating with stakeholders ensures that the needs of all local partners are considered during TSMO program development. Frequent communication and collaboration with stakeholders facilitate improved TSMO culture in the region (Atkins et al. 2019f). Additionally, MPOs have identified a variety of successful approaches to incorporating TSMO projects into the programming phase of transportation investment decision-making as shown in Table 6. Perhaps the greatest challenge facing DOTs tasked with mainstreaming TSMO is the culture in the agency, followed by budgetary issues, and integration throughout the project develop- ment process (Sando et al. 2018). Several states have implemented changes within their agencies Source: Atkins et al. 2019g. Figure 3. ADOT TSMO division organizational structure.

16 Summary State DOT Practices for Developing and Implementing TSMO Plans to help integrate the TSMO culture and support further TSMO development. Those agencies include CDOT, FDOT District 4, Iowa DOT, the Michigan Department of Transportation (Michigan DOT), and WSDOT (Atkins et al. 2019f). For example, CDOT’s integration of a TSMO evaluation into existing agency processes requires staff to assess safety, operations, and ITS in project scoping. This activity has promoted agency culture by providing transparency to agency TSMO goals and objectives. FDOT District 4’s multi-discipline and multi-agency approach to integrating TSMO into existing planning and project development processes helps improve TSMO culture region-wide. Furthermore, Iowa DOT’s educational website promotes TSMO culture for the entire state by providing access to State TSMO plans, national resources, and general education, while Michigan DOT’s five TSMO business cases express the value of TSMO to a variety of audiences, using TSMO language that resonates with each respective audience. Likewise, WSDOT’s educational TSMO website facilitates an enhanced TSMO culture within the agency and in partner agencies by effectively communicating the “why-when-how” of TSMO. Finally, the business case for TSMO does not always resonate with multi-discipline staff or varying regional stakeholders. Defining a TSMO language for individual stakeholders promotes TSMO culture by communicating the value and effect of TSMO to each stakeholder using challenges and solutions familiar to them (Sando et al. 2018). It is important to know that there is no “one size fits all” approach to TSMO organizational structures and each agency should identify which structure will work best to support their TSMO objectives and goals. Additionally, a TSMO organizational structure does not need to be built with new TSMO positions alone. Many agency positions already include TSMO tasks as part of their daily activities. Restructuring an organization to include both existing and new roles utilizes existing staff capabilities and aids the agency in identifying additional roles that will support TSMO activities. Using a matrix-style structure can benefit TSMO initiatives by ensuring communication between layered leadership roles. This structure also facilitates program consistency throughout several regions that may have previously varied in imple- mentation of TSMO strategies. Identifying the value of TSMO-related positions can also help facilitate support from agency leadership and funding resources (Atkins et al. 2019f). TSMO Efforts MPO Approaches Foundations for Advancing TSMO in Programming Emphasizing TSMO in the LRTP and related planning documents or processes creates a strong foundation for including TSMO projects and programs in the TIP. MPOs use Regional Concept for Transportation Operations or operations plans as a basis for prioritizing and selecting TSMO activities for funding. Funding Sources Used for TSMO Activities MPOs use several federal funding programs to support TSMO. Local and state funds can be an important source of funding for TSMO projects. MPOs use planning funds to support TSMO efforts. Types of Activities Funded A range of TSMO activities are included in the TIPs of MPOs. Ongoing staffing and maintenance of TSMO programs and equipment is not often included in the TIP. Procedures for Programming TSMO Activities MPOs may set aside funding, allow open competition, or a combination of both. Efforts to Support Project Selection for TSMO Activities Operational performance measures enable TSMO strategies to compete effectively for funding. Collaboration between member agencies including use of TSMO committees can be a key element of TSMO project selection. MPOs may use measures of cost-effectiveness to evaluate TSMO projects. Source: Adapted from Bond et al. 2013. Table 6. MPO approaches to TSMO efforts.

Literature Review 17   Components of TSMO Planning An effective TSMO planning program might include a broad range of components that can contribute to overall success in statewide or regional operations. The following sections provide a summary of key TSMO plan elements that have been documented in the literature that agen- cies have implemented. The components addressed include • Strategic, programmatic, and tactical elements; • Collaboration; • Corridor and scenario planning; and • Performance-based planning and programming. Strategic, Programmatic, and Tactical Elements A key element of many TSMO plans is the manner in which the document presents the business case for TSMO strategies. They can be effective at highlighting their value via use of SHRP 2 program-established performance measures connected to benefit-cost analyses that compare favorably to more expensive capacity projects (Grant et al. 2017). Before the push for TSMO program plans by SHRP 2 CMM self-assessments, few states or regions had developed plans that describe TSMO strategies comprehensively. While many states had plans for specific TSMO services such as ITS plans, TIM plans, emergency response plans, or special event plans, these plans might not have explained how TSMO supports the agency mission, nor other contributing TSMO functions. TSMO plans and budgeting might be limited to specific TSMO service plans, which with integration can be rapidly scaled to optimize benefits provided. An effective TSMO program plan can be iterative and incorporate three primary elements, as illustrated in Figure 4: • Strategic: answers the question as to why TSMO is important along with what an agency hopes to achieve; • Programmatic: addresses how a TSMO program operates in terms of organizational structure and business processes; and • Tactical: provides a catalogue of services, function areas, and prioritization of projects through performance assessment (Grant et al. 2017). One example of how an individual state developed a statewide plan around this three-element structure is Iowa’s structure presented in Figure 5. As illustrated in this structure, Iowa has a TSMO plan that is a compilation of three specific plans that address each element: a strategic plan, a program plan, and a collection of service layer plans that address specific TSMO strate- gies (Iowa DOT 2016). Additionally, the structure identifies individual components of each plan along with the intended audience of each element. Collaboration An effective TSMO program involved collaboration and cooperation with a broad range of stakeholders. The AZTech partnership, Georgia Department of Transportation (GDOT), Trans- portation Operations Coordinating Committee (TRANSCOM), TDOT, and Maryland DOT SHA are a few agencies that are known to frequently collaborate with first responders to improve safety and mobility. While not an exhaustive list of collaborative relationships, these examples provide insight into TSMO programs that include partnerships and collaboration among levels of government, public safety agencies, the private sector, stakeholders, and internal agency staff (Atkins et al. 2019h). Table 7 provides several examples of how agencies collaborate on the TSMO front, particularly with respect to TIM, which is a front line effort that directly affects the traveling public and one in which they readily remember.

Source: Grant et al. 2017. Figure 4. Building and sustaining a TSMO mission: three elements of program planning. Source: Iowa DOT 2016. Figure 5. Iowa DOT TSMO documents relationships.

Literature Review 19   Key findings indicate that establishing a multi-agency or multi-state TIM working group, coalition, or task force to discuss regional challenges and objectives related to incident man- agement promotes collaboration. These groups can share best practices and ideas to improve incident response in their region (Atkins et al. 2019h). Furthermore, training for incidents is beneficial to ensure multiple agencies can work together efficiently to improve incident clearance time and safety. Development of training facilities and response procedures pro- motes multi-agency collaboration by providing consistency and order to incident preparation, response, and clearance. Finally, technology can be utilized to support incident management initiatives. Identifying software for multi-agency use enables incident alerts and commands to be clearly communicated to all TIM participants and to the public. Planning for Operations The concept of planning for operations is a set of activities that takes place within the context of an agency, jurisdiction, and/or regional entity with the intent of establishing and carrying out plans, policies, and procedures that enable and improve the management and operation of transportation systems (NOCoE 2020). Planning for operations includes three important components: • Regional transportation operations collaboration and coordination activity that facilitates regional TSMO, • Management and operations considerations within the context of the ongoing regional transportation planning and investment process, and • The opportunities for linkage between regional operations collaboration and regional planning. Planning for TSMO occurs at the multistate, statewide, regional, subarea, local, corridor, and project levels. It may be a stand-alone effort at any of those levels, or it may be integrated into a more comprehensive planning process, such as the development of a state LRTP or metropolitan transportation plan. Operations may be incorporated in a regional or statewide safety plan, freight mobility plan, transit plan, or sustainability plan. TSMO planning efforts can range from informal to formal and cover a spectrum of temporal scales, from next week to the next 30 to 50 years. In addition, the functional scope of TSMO planning on a corridor may be a single TSMO strategy or program (e.g., regional signal coordination, TMCs, and TIM) or a comprehensive set of TSMO strategies, and every combination in between. To offer guidance for planning for TSMO at these various levels, FHWA developed a series of desk references addressing the different planning issues associated with TSMO, including planning for TSMO within subareas (Bauer et al. 2016a), corridors (Bauer et al. 2016b), and scenario planning (Bauer et al. 2015). Transportation planning based on one of these perspectives typically provides Agency Collaboration Example AZTech Longstanding established TIM Coalition, which meets to discuss regional challenges and celebrate success on an ongoing basis. GDOT TIM Enhancement task force connects with first responders and holds both monthly and annual meetings to refine and improve incident management protocols and procedures. TRANSCOM Approach to multi-state incident management collaboration improves safety and mobility on interstate corridors and provides consistency to end users. TDOT TIM training facility provides a space for first responders and traffic operators to prepare and train for incident response. Maryland DOT SHA Coordinated Highways Action Response Team provides multi-agency coordination with first responder partner agencies to identify staffing, training, and dedicated funding for incident management efforts. Source: Adapted from Atkins et al. 2019h. Table 7. Examples of State DOT TSMO collaboration in TIM.

20 Summary State DOT Practices for Developing and Implementing TSMO Plans a greater level of detail in the analysis and recommendations unique to the obstacles and opportunities in that area. This approach also looks beyond a single factor (i.e., a transportation facility or particular land use, parking, or other policy) to focus more holistically on the perfor- mance of the subarea’s transportation system from a user’s perspective. Sample benefits for planning for TSMO at these levels are provided in Table 8. Scenario planning can also be used within visioning and objective setting among decision makers to consider factors like evolving technology, climate change, shifting demographics, fiscal uncertainty, failing infrastructure, disasters, and others. At the statewide level, operations stake- holders typically led by the State DOT conduct planning activities and make multiple planning and investment decisions related to TSMO that can benefit from scenario planning. Just as regions develop plans for managing and operating the transportation system at a regional scale, states develop operations plans to address operations at a state level. The statewide operations plans may be higher-level documents that establish policies, goals, and operations objectives that provide guidance to their districts or metropolitan regions as they develop more detailed plans for opera- tions. The statewide operations plans may also include plans for investments in TSMO projects that have statewide significance. State DOTs also incorporate planning for investments in TSMO in their overall transportation system investment planning process (Bauer et al. 2016b). FHWA recommends planning for TSMO be driven by outcomes-oriented objectives and performance measures. Rather than focusing on projects and investment plans, the planning for operations approach emphasizes first developing objectives for transportation system perfor- mance, and then using performance measures and targets as a basis for identifying solutions and developing investment strategies. This is called the objectives-driven, performance-based approach. Project Selection Intelligent Transportation Systems Deployment Analysis System (IDAS) benefit-cost analysis (B/C) has been used as a tool in the project selection process and the Advanced Regional Traffic Interactive Management and Information System, and was successful in obtaining Performance Measurable Benefit Safer travel Freeway ramp metering has been demonstrated to reduce crashes by 15 to 50%. More free time Among other timesaving TSMO strategies, traffic signal retiming decreases delay on roads by 13 to 94%, and transit signal priority reduces transit delay by 30 to 40%. Improved reliability Strategies that reduce unexpected delays (e.g., incident management, RWM, and work zone management) enable the public and freight shippers to reduce unexpected delays. Transit Signal Priority improves transit on-time performance. Less wasted fuel TIM programs help to clear incidents safely and quickly. They reduce time lost and fuel wasted in traffic backups. For example, Georgia’s TIM program (NaviGAtor) reduced annual fuel consumption by 6.83 million gallons per year. National studies have shown that integrating traveler information with traffic and incident management systems could improve fuel economy by about 1.5%. Cleaner air TSMO strategies result in cleaner air by encouraging alternative modes of transportation (e.g., transit, ridesharing, biking, walking, and telecommuting) and reducing excess idling due to congested bottlenecks. Electronic toll collection reduced harmful emissions at Baltimore, Maryland, toll plazas by 16 to 63%. Improved livability TSMO strategies for subareas can specifically focus on many non-facility/non- vehicle-type goals (e.g., transit accessibility, bicycle and pedestrian mode share, carbon intensity, transportation affordability, land consumption, bicycle and pedestrian safety, and level of service). Source: Bauer et al. 2016a. Table 8. Sample benefits of planning for TSMO.

Literature Review 21   funding through the TIP process (Lawrence et al. 2015). The following represent specific project selection processes that have proved beneficial to operating agencies: • Conducting a B/C analysis using travel time, travel time reliability, safety, fuel use, and emissions as measures of effectiveness can be an effective approach to assessing the benefits of the Advanced Regional Traffic Interactive Management and Information System program and justifying its expansion in a region. • Merging an IDAS with a regional travel demand model to conduct the analysis can help ensure traditional projects are compared using consistent data sources, including traffic conditions data from the regional travel demand model. • Conducting one-off independent analysis of each TSMO strategy to allocate portions of costs such as the TMC construction and operating costs to individual TSMO strategies can be arbitrary and inefficient. An IDAS is more efficient from a TSMO program-wide perspective, integrating multiple costs of multiple TSMO strategies to compare against traditional projects. • The IDAS model enables the use of traffic conditions data from regional travel demand models with crash counts and speed data to determine TSMO benefits that are comparable to traditional capacity project benefits (Lawrence et al. 2015). Performance Measures Several agencies with advanced performance measures activities that help set the stage for how they plan and implement TSMO were interviewed regarding their use of TSMO performance measures: the Niagara International Transportation Technology Coalition, the Oregon DOT, and the NHDOT (Atkins et al. 2019a). Performance measurement for TSMO includes the definition of and criteria for each metric, and how the data are acquired, used, and analyzed for tracking performance. For example, the Niagara International Transporta- tion Technology Coalition’s performance measure plan identifies key performance indicators for core functional areas. Additionally, Oregon DOT collects and stores data using a data warehouse used for access to all available information, while NHDOT uses a phased process for collecting and reporting performance measures. Creating a Performance Measures Plan can help an agency align its goals with steps that need to be performed to achieve those goals. Assessing agency needs and deciding how to address those needs in a clear manner helps streamline the process of integrating performance measurement. Additionally, data are a powerful tool that can be used to drive discussions in many areas of an agency. Taking informa- tion that was previously unknown or not distributed and presenting it in a way that is easy to process or visualize can spur big improvements and efficiencies within an agency. Acquiring the necessary data equipment and systems and configuring it in an optimal and efficient way is the foundation for effective performance measurement. Having robust data storage and analytic systems can improve the functionality and efficiency of a performance measurement program (Atkins et al. 2019a). FDOT also utilizes a variety of tools to support TSMO and performance metrics for opera- tions (Hadi et al. 2015). For example, performance dashboards may be used to support TSMO plans as a communication mechanism with the public based on selected performance goals, metrics, and objectives within the plan. FHWA’s Tool for Operations Benefit-Cost Analysis (TOPS-BC) supports B/C analysis for traveler information, ramp metering, incident manage- ment, signal control, emergency medical service (EMS) signal preemption, ATDM, speed harmonization, employer transportation demand management (TDM), hard shoulder running, high-occupancy toll lanes, RWM, work zone management, and TMC supporting strategies.

22 Summary State DOT Practices for Developing and Implementing TSMO Plans Florida also utilizes a sketch planning-level ITS evaluation tool to estimate for the following TSMO strategies: • Ramp metering. • Incident management systems. • Highway advisory radio and dynamic message signs. • Advanced travel information systems. • Managed lane. • Signal control. • Emergency vehicle signal preemption. • Smart work zone. • Road weather information systems. • Transit vehicle signal preemption. • Transit security systems. • Transit information systems. • Transit electronic payment systems (Hadi et al. 2015). Various tools exist to incorporate TSMO impacts into the project development process. These are outlined in Table 9. The programmatic topic area of the Maryland State Highway Authority (MDSHA) includes work zone performance management. Performance measures associated with use of a Regional Stage Tools Costs Platform Input Description Output Description Note Stage 1: Early planning Q-DAT Free Excel spreadsheet Lane closure information Number of lanes, length, work zone capacity Work schedule Lane closure time and construction plan Simple input and output which is convenient for data-poor conditions Travel demand AADT Delay and queue Delay and queue estimation RealCost Free Excel spreadsheet Project details Construction costs, work activity Costs estimation User cost and agency cost Simple input and output which is convenient for data-poor conditions Traffic data AADT, percentage of vehicles SHRP 2 C11 – Tools for Assessing Wider Transportation Effects Drop-in capacity Reduced data requirement and convenience to obtain travel time reliability Traffic data Roadway capacity, AADT, percent trucks Stage 2: Preliminary design SHRP 2 L07 – Analysis Tool for Design Treatments to Address Nonrecurrent Congestion Free Excel spreadsheet Geometry features Length, lane width, free- flow speed B/C analysis B/C ratio for strategies Require more inputs to perform benefit-cost analysis but provides estimate for reliability Travel demand Demand, percentage of trucks Travel reliability Mean TTI, lateness index, buffer index Incident Duration and number of incidents, average costs Source: Hadi et al. 2015. Table 9. Summary of TSMO assessment tools.

Literature Review 23   Integrated Transportation Information System include work zone delay, congestion, queue length, programmatic performance measures such as number of days when queuing occurred, average queue duration and length, and vehicle/hours of delay. In work zone traffic control planning, the Michigan Department of Transportation (Michigan DOT) has established pro- cesses for using microsimulation modeling to evaluate the impacts of upcoming work zones and to develop work zone traffic control plan alternatives (Burgess et al. 2016). Summary The literature review provided a broad assessment of the emergence of TSMO and the key elements that can contribute to its successful implementation in state DOTs. For example, agency organizational structures and specific attributes can support TSMO planning and related operational strategies. Key elements might include defining TSMO organizational structure, identifying champions, implementing training activities and empowering key staff members, conducting outreach with the public and stakeholders, and working with them to support TSMO activities. TSMO planning is effective when agencies approach it from a strategic, program- matic, and tactical perspective, and collaboration is key to success. Planning for operations can be undertaken at various geographic levels, and the use of project selection assessment tools and identifying performance measures can help agencies determine the best approach for their jurisdiction to optimize performance.