Developing and Sustaining a Transportation Systems Management & Operations Mission for Your Organization: A Primer For Program Planning

Chapter 8. Ten Guiding Principles to Advance Transportation Systems Management and Operations Program Planning for Your Organization

Transportation systems management and operations (TSMO) program planning involves several steps. Each organization will have its own set of considerations based on the organization type and responsibilities. Recognizing that agencies are at various stages in their development of TSMO Programs and have different needs, this section highlights ten "guiding principles" associated with an effective TSMO program planning effort.

The process of getting started in TSMO program planning may also vary based on which office or group is leading the effort. For example, some agencies may develop a program plan through an operations group while others may initiate it in a strategic planning or research office. Regardless of who spearheads the development of a program plan, representation from these and other potentially affected or interested staff should be included to provide a broad and comprehensive approach to program development. It is important to determine the capability of your organization for undertaking TSMO program planning and to solicit support and expertise as needed.

Understand Motivation

It is important to understand and articulate the motivating factors for developing a TSMO program and a TSMO program plan. Consider what the potential advantages are to the organization and to the transportation system users to build a vision for what TSMO can do to support transportation through the implementation of a TSMO program. It is also important to understand the risks of not formalizing a TSMO program and allowing initiatives to become reactive or subject to leadership changes or political shifts. Clearly articulating the motivation for TSMO is a key ingredient for ensuring buy-in and on-going support.

Identify a Leader and Key Internal Partners

TSMO is a multi-disciplinary approach to enhancing the management and operations of the transportation system. As such, it is important to engage partners within the agency who will play a key role in advancing the TSMO throughout program and who will play a role in implementing business processes or tactical deployments. Other disciplines to consider in developing and implementing a TSMO program include planning, design, maintenance, construction, IT, and procurement. Engaging district or regional offices also will need to be part of the effort. Each of the units will need to understand how the TSMO program interfaces with their areas of responsibility and should be engaged to develop a sense of ownership in the program and its implementation. Different approaches may be effective in different circumstances. For instance, in Maryland, the TSMO Program efforts have been spearheaded by the Office of Planning and Preliminary Engineering, in coordination with operational units. In Tennessee, the Traffic Operations Division was the lead in TSMO program planning efforts. In Texas, the Texas Department of Transportation (DOT) central office is conducting outreach to its districts and regional partner agencies, then based on input from those entities and the state of the practice, setting a TSMO framework for planning at the district and regional level.

Develop a Clear Definition and Understanding of Transportation Systems Management and Operations

In order to develop an effective TSMO program plan, it is important to clearly define TSMO so everyone working on the plan has a common understanding. Many people with the organization may not have experience with the term "TSMO" or be familiar with all aspects of the concept. Therefore, it will be important to discuss and document key terms to be used in the plan in order to communicate effectively.

Establish Baseline Conditions/Conduct Self-Assessment

This is a critical step in the process. Data can help illustrate the current TSMO activities and provide baseline metrics for performance measurement for the TSMO program. Another aspect of establishing current conditions is identifying current agency plans and examining how a TSMO program can expand and support current strategic goals and tactical initiatives. In addition to strategic plans, State transportation improvement plans (STIP) and transportation improvement plans (TIP), consideration for how the TSMO program will support and interface with organizational asset management, performance management, and sustainability plans is important.

Self-assessment may include conducting a survey to assess program needs, conducting outreach to partners for input on needs and goals, and establishing a panel of experts to identify best practices and provide guidance as the plan is developed. A self-assessment can identify key areas for improvement building on current strengths and developing areas identified as current weaknesses. Many States and regions have participated in TSMO capability maturity model (CMM) workshops and can build on what they learned from these workshops and other self-assessments to guide the TSMO program planning effort.

Identify What Expertise Is Needed

Organizations approaching TSMO program planning for the first time may find it helpful to engage experts through FHWA, academia, or the private sector to provide guidance and support to program planning. Specific expertise, either in-house or external, should include an understanding of TSMO and the role of program planning and development in supporting the development of a clearly articulated, well documented and integrated plan that can guide a comprehensive TSMO program into the future. An understanding of organizational and change management is also important to the integration of the TSMO program across the agency.

Expertise is also needed to carry out the plan and build an effective TSMO program. TSMO programs include planning, design, deployment, business processes, data analytics, decision support systems, traffic operations, multi-agency coordination, and program management. As new applications and technologies emerge, these areas will evolve and expand, changing the nature of the work and skill sets needed to perform that work. Transportation agencies have traditionally been the arena of design, construction, and maintenance. As agencies take on an increased focus on system management and operations, and as technology and social expectations evolve, the skills and capabilities needed in the workforce must expand and change as well.

Organize for Transportation Systems Management and Operations

Across all phases or elements of TSMO program planning, a key theme is that program planning goes beyond development of strategic goals and objectives, or identification of projects or tactics. It involves focusing on broader programmatic issues that define how the "business of TSMO" is conducted within an agency, State, or region. This may involve looking at how the agency is organized to most effectively carry out the business of TSMO, and may involve developing new organizational structures or positions within the organization.

Organizational integration should address issues associated with bringing a culture of TSMO to an agency. There are a number of ways TSMO programs can develop and evolve within the overall agency structure. The more TSMO is integrated across all aspects of an agency, the more effective it will be in leveraging strategies to support system management.

Engage Key External Stakeholders

While many of the initial TSMO program planning efforts of State DOTs have focused internally on the organization, it is important to recognize the important role that many agencies and organizations play in TSMO. Local agencies that operate traffic signals, transit agencies, toll authorities, port authorities, and other organizations all play a role in managing components of the transportation system and should be considered. In addition, non-traditional stakeholders, such as school districts (e.g., responsible for school bus schedules), major employers, emergency responders, and others play a role in transportation system demand and performance, and could be part of outreach efforts to develop collaborative partnerships.

As TSMO embraces new and emerging technologies, agencies will develop increasingly complex partnering arrangements with service providers and original equipment manufacturers. It is likely that each of these partnerships will be a unique business arrangement reflecting the business strategies and objectives of each industry partner.

Look Ahead to Emerging Technologies and Innovations

In addition to the challenges of today, new technologies are quickly shaping and molding the landscape of future mobility and system operations. These issues can have significant implications for system performance, travel patterns, and the roles and responsibilities of transportation agencies in providing and operating transportation services as well as for relationships with partners in the private sector. These issues should be considered in planning for a TSMO program.

In addition to the challenges of today, new technologies are quickly shaping and molding the landscape of future mobility and system operations. These issues can have significant implications for system performance, travel patterns, and the roles and responsibilities of transportation agencies in providing and operating transportation services as well as for relationships with partners in the private sector. These issues should be considered in planning for a TSMO program.

New technologies, such as autonomous and connected vehicles and mobility on demand services, will likely change how transportation agencies approach traveler information and traffic management. For instance, the private sector may play a larger role in providing detection, data, and analytics services for performance measurement, and new detection technologies such as drones may be used. New technologies also may reduce the needs for certain types of transportation programs and partner efforts, such as law enforcement efforts to reduce speeding or drunk driving. At the same time, new technologies are likely to increase the roles and responsibilities of the public sector in terms of cybersecurity and maintaining the data security.

Consider External Forces and Other Emerging Issues

It is important for transportation agencies to consider a range of issues that go beyond technology advancements when planning for the future. Specifically, issues such as changes in demographics, land use/development patterns, the economy, and freight movement, as well as increasing opportunities for shared use mobility should be considered in defining the TSMO program and its priorities. In addition, changing areas of focus—such as the emerging role of resiliency, risk management, and environmental sustainability within transportation agencies—should be considered.

Analyze and Evaluate Performance

Performance management is a critical component of effective TSMO program planning. Building off of the self-assessment at the beginning of the process, it is important to continually explore how well the agency is doing in achieving both its strategic goals and objectives, as well as its programmatic objectives. Performance measurement provides greater definition to the high-level goal outcomes, and provides a tangible way to assess the current state, goal state, and gaps. Evaluation and reassessment ensures that the TSMO services and projects are effective at realizing progress towards goals and objectives, and establishes processes for continuous improvement.