4.0 Model Metropolitan Transportation Plan

4.1 One Size Does Not Fit All

The purpose of this section is to provide a sample (or model) metropolitan transportation plan (MTP) that illustrates the effect of applying the objectives-driven, performance-based approach (simply, "the approach") for operations. The approach complements or enhances the metropolitan transportation planning process, rather than replacing it. The model plan is neither a real nor a complete document; it is an assembly of excerpts intended to provide insight to the benefit derived from applying the approach, with an emphasis on operations.

Each metropolitan planning organization (MPO) operates in a unique circumstance with varying State land-use laws, regional congestion and air quality issues, staffing and funding constraints, extent of multiple-agency collaboration, and commonality of vision, making a single model plan impractical. Fortunately, all MPOs take similar steps in the MTP development process to address these unique circumstances: goals lead to objectives, objectives lead to evaluation criteria (or performance measures), performance measures inform the selection of programs and projects, and funding facilitates the feasibility and timing of implementation. Thus, it is possible to illustrate the effect of applying the approach through model plan excerpts that follow these steps. To uncover how the approach is integrated into the process, the sample is outlined as transparently as possible using a systematic approach similar to the steps in a congestion management process (for more information on the systematic approach, refer to Advancing Metropolitan Planning for Operations: An Objectives-Driven, Performance-Based Approach - A Guidebook.²³

Currently, some MPOs are making significant strides toward integrating operations into their MTPs, while others have only begun to consider operations. MPOs have found that a number of factors affect their ability to fully incorporate operations using operations objectives and performance measures. These factors include revenue and cost, data availability, staff capabilities and resources, and partnerships.

These factors influence the level at which an MPO can integrate operations. Because of this, the model plan represents different levels at which operations may be incorporated by covering basic, advancing, and comprehensive levels of integration. Many MPOs may be limited to a basic level of integration, but should find value from considering ways to advance their operations effort over time. Even MPOs that are comprehensive in their integration of operations into the planning approach should find value in reviewing the model plan and the examples offered at each level.

4.2 Model Plan Overview

Purpose

The intent of this section is not to dictate how MPOs should organize, format, or prepare their plan. Instead, the model plan illustrates how the approach affects who is involved in the planning process, how operations can help achieve regional outcomes (goals), and the value derived from applying measurable objectives to the decisionmaking and implementation phases of the planning process. Section 4.3 includes excerpts drawn from two chapters of the model plan: "Goals and Objectives" and "System Management and Operations." In addition to these two sample chapters, the example MTP table of contents illustrates how the two sample chapters fit into the entire MTP framework.

Excerpt Description and Framework

Excerpts from key chapters of the model plan demonstrate the effect of integrating operations into that component of the overall plan. The primary text in the excerpts addresses an MPO that is functioning at an advanced planning for operations level (not basic or comprehensive). However, recognizing that MPOs throughout the country function at different levels, call-out boxes within the excerpts provide scaled examples to reflect the ability or intent to implement a basic, advancing, or comprehensive operations approach. Excerpts from key chapters illustrate the approach application as if it were an authentic MTP section. They enable the reader to understand what is included in the excerpt (the content), how the approach/process was prepared, and why it was prepared (i.e., its importance). Graphics and tables are included in the excerpts to best explain and visualize the approach application. In addition, qualifying text in text boxes describe to the reader the details about the excerpt. Because MTPs do not include the technical details on how the MPO reached its final decisions, the text boxes enable the reader to understand how an MTP gets from the beginning to the end in the approach application. Setup and closing text provided in certain sections of the sample chapters lets the reader know that a new excerpt is beginning and what its purpose is or, conversely, lets a reader know that an excerpt has ended.

4.3 Model Plan Excerpts

The following excerpt shows an example MTP table of contents. The chapters highlighted in darker text will be provided as excerpts in the following sections.

Metropolitan Transportation Plan Table of Contents

Chapter 1 Vision

Chapter 2 Goals and Objectives

Chapter 3 Financial Snapshot

Chapter 4 System Preservation and Maintenance

Chapter 5 System Management and Operations

Chapter 6 System Integration

Chapter 7 System Expansion

Chapter 8 Appendices

The following sample chapter, "Goals and Objectives," is intended to show the reader how the approach is incorporated in the early stage of the MTP development process where goals and outcome-based objectives are identified. Goals and objectives that emphasize operational characteristics are of particular interest in this chapter and are highlighted in red. Excerpts for the balance of the model plan flow directly from these highlighted goals and objectives. Text in the excerpt is color-coded. Black text is provided for context, establishing the topic discussed in the MTP chapter. Burgundy text illustrates the results of the MPO having applied the objectives-driven, performance-based approach for operations during the MTP development process.

Chapter 2 – Goals and Objectives

Regional Goals

The Region has established a clear vision and is now prepared to construct goals and objectives that guide actions to achieve the vision. Coupled with the regional vision, the MPO's mission is empowered by Federal and State authorization and fueled by the partnerships of public agencies and private stakeholders in the region. Therefore, the following goals listed reflect the union of vision, mission, authorization, and partnership.

Goals 1, 7, and 8 have strong connections to the SAFETEA-LU planning factor of promoting efficient system management and operations. This planning factor serves as the foundation for integrating operations into the MTP process.

Goal 1: Provide an efficient and reliable transportation system

Goal 2: Support planned economic growth

Goal 3: Encourage vital communities and efficient land uses

Goal 4: Preserve and secure the transportation system

Goal 5: Reduce environmental impacts

Goal 6: Promote human health and safety

Goal 7: Expand affordable, effective transportation choices

Goal 8: Provide effective communications to inform travel decisions

This set of regional goals derives from carefully considering the plans and goals of each partner responsible for planning, delivering, operating, and maintaining the regional transportation system and ensuring the safety and security of the traveling public. The MTP will present an integrated approach to achieving the regional goals in close coordination with the unique goals of each regional partner.

Coordination of Regional Activities

Achieving these goals requires a great many activities to be undertaken by a number of public agencies, private owners and operators, and not-for-profit associations, subsequently referred to as the regional partners. The regional partners have considered their various activities and grouped them into categories for ease of communication and coordination. Table 1 summarizes the four activity categories and the regional goals they support. This simple tool provides substantial guidance for considering the impact any one set of activities has on the effort to attain the regional goals. To that end, the entire MTP is organized around these categories.

This set of regional goals derives from carefully considering the plans and goals of each partner responsible for planning, delivering, operating, and maintaining the regional transportation system and ensuring the safety and security of the traveling public. The MTP will present an integrated approach to achieving the regional goals in close coordination with the unique goals of each regional partner.

Activity Category	Goal 1	Goal 2	Goal 3	Goal 4	Goal 5	Goal 6	Goal 7	Goal 8
System Preservation and Maintenance	X	X		X		X		X
System Management and Operations	X		X		X	X	X	X
System Integration	X	X	X		X	X		X
System Expansion	X	X			X		X	X

Regional Objectives

Regional objectives reflect commitments by the regional partners to achieving the regional goals. Regional stakeholders declared sustainability as the core of the regional vision and the MPO board has emphasized efficiency as an overarching strategy to reach the vision. Goal 1, Provide an efficient and reliable transportation system, captures this strategy and all five activity categories support it. Thus, all regional partners can contribute to improving system efficiency and creating a more sustainable region. Various technical and policy committees of the MPO, in close coordination with the regional partners, worked to develop a broad set of objectives that relate directly to the transportation system outcomes expressed in the regional goals. The objectives development process included direct input from transportation providers, operators, users, and policy makers. Listed below is a resulting set of regional objectives specific to each regional goal.

A small number of outcome-based operations objectives provide the foundation for fully integrating operations with the MTP process. Decisionmakers and staff are able to trace plans and actions back to these objectives and the goals they support.

Goal 1 Provide an efficient and reliable transportation system

Objective 1.1 addresses efficiency, while Objective 1.2 addresses reliability. These are defining characteristics of the multimodal transportation system and, as noted above, cut across all categories of activities (as summarized in Table 1) undertaken by the MPO and its regional partners. Both objectives focus on peak period conditions in an effort to deal directly with the adverse impacts of recurring and nonrecurring delays during the most congested conditions.

Goal 2: Support planned economic growth

Goal 3: Encourage vital communities and efficient land uses

Goal 4: Preserve and secure the transportation system

Goal 5: Reduce environmental impacts

Goal 6: Promote human health and safety

Goal 1 Provide an efficient and reliable transportation system

Objective 1.1 – Efficiency Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.

Objective 1.2 – Reliability Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.

Recognizing that MPOs incorporating operations into MTPs function at variable levels, multiple objective examples are shown. Scaled examples reflect the ability or intent to implement a basic, advancing, and comprehensive operations approach.

Examples for Outcome-Based Objectives at Different Capability Levels for Goal 1 – Efficiency and Reliability

Objective	Basic Capabilities	Advancing Capabilities	Comprehensive Capabilities
1.1	Reduce vehicle miles traveled per capita by 10 percent in 10 years and 25 percent in 20 years.	Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.	Improve the average travel time per person during peak periods for all major modes by 20 percent within 10 years and maintain at that level for the remaining 10 years.
1.2	Reduce delay on major arterials by 3 percent per year.	Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Reduce the variability of travel time per person during peak periods for all major modes by 15 percent within 10 years and 25 percent within 20 years.

To see related performance measures and data needs for the varying levels, please refer to the relevant fact sheets for the objectives identified in the table above.

Goal 7 Expand affordable, effective transportation choices

The primary objectives that serve Goals 2 through 6 are not likely to have operations as a central feature. Therefore, the model plan does not attempt to demonstrate such a connection. Nonetheless, operations can serve a supporting role in achieving these goals. For example, efficiencies provided to the transportation system through improved operations are understood to support economic growth, evoke a sense of vitality, reduce emissions, promote human health, and improve safety.

The regional partners have concluded that providing affordable, effective transportation options is critical to ensuring the quality of life and economic vitality expected by citizens and employers. The intent of Goal 7 is to provide a range of choices that fit the context of the area (neighborhoods, centers, districts, and corridors) and serve the needs of users traveling within and between these areas. In addition, it is understood that the perceived cost and a multitude of other factors that relate to the quality or effectiveness of the trip often influence the choice of transportation options. Among these factors are safety, security, reliability, accessibility, duration, comfort, and convenience. The following objectives work in combination to achieve this goal.

Goal 7 Expand affordable and effective transportation choices

Objective 7.1 – Choices Increase non-single occupancy vehicle (SOV) mode share for all trips by 20 percent every 5 years.

Objective 7.2 – Effectiveness Reduce the auto-to-transit travel time differential on major corridors by 15 percent over 5 years and maintain for the subsequent 10 years.

Examples for Outcome-Based Objectives at Different Capability Levels for Goal 7 — Choices

Objective	Basic Capabilities	Advancing Capabilities	Comprehensive Capabilities
7.1	Reduce per capita SOV commute trip rate by 5 percent every 5 years.	Increase non-SOV mode share for all trips by 20 percent every 5 years.	Achieve a 50 percent non-SOV mode share in transit station communities by 2025.
7.2	Improve non-SOV travel times by 25 percent over the next 10 years.	Reduce the auto-to-transit travel time differential on major corridors by 15 percent over 5 years and maintain for the subsequent 10 years.	Reduce the travel time differential between transit and auto during peak periods by 5 percent per year for 10 years and maintain thereafter.

To see related performance measures and data needs for the varying levels, please refer to the relevant fact sheets for the objectives identified in the table above.

Goal 8 Provide effective communications to inform travel decisions

The effectiveness of the transportation system can be linked directly to the quality and extent of information that is available to users of the system, which in turn depends upon communications by transportation providers. There is broad regional support for continually improving and expanding effective communications to support the achievement of all other regional goals and the complementary plans of public agencies, service providers, emergency responders, and other regional partners. Equally important is the support the MPO and all regional partners can provide to transportation users as they decide whether, when, how, and by what route to travel. Objective 8.1 identifies regional outcomes for effective communications among all regional partners and to all users of the regional transportation system, respectively.

Goal 8 Provide effective communications to inform travel decisions

Objective 8.1 – Communication Expand the capability to provide real-time travel

Examples for Outcome-Based Objectives at Different Capability Levels for Goal 8 – Communication

Objective	Basic Capabilities	Advancing Capabilities	Comprehensive Capabilities
8.1	Increase the availability of traveler information regarding alternative travel options during system disruptions by 25 percent in 5 years.	Expand the capability to provide real-time travel condition information by 3 percent per year.	At least 95 percent of travelers by 2025 are aware of significant delays, hazardous travel conditions, and alternative routes in time to affect travel decisions.

To see related performance measures and data needs for the varying levels, please refer to the relevant fact sheets for the objectives identified in the table above. If this were a full MTP example, the following chapters would be detailed and incorporated into the plan per the table of contents. Not being operations related, these chapters will not be shown as excerpts in this sample plan.

Chapter 3 — Financial Snapshot

Chapter 4 — System Preservation and Maintenance

The following sample chapter, "System Management and Operations," is intended to show the reader how the approach is incorporated in the planning for operations stage of the MTP development process. During this process, specific strategies are selected to move the region in the direction of achieving the desired outcomes and goals from a system operations perspective. Because this entire chapter focuses on operations, text coloring is not used.

Chapter 5 — System Management and Operations

Management and Operations Overview

Regional Operations History

To incorporate the approach, an understanding of the starting point is necessary. In this example, the history of operations in the region has been established.

The regional system management and operations chapter is a critical element of the regional MTP that we developed in cooperation with our Regional Technical Operations Task Force (RTOTF), which consists of traffic, transit, and emergency management operators in the region. It is based on a number of previous planning efforts, including the following:

• Our Region's Intelligent Transportation Systems (ITS) Master Plan
• Our Region's Congestion Management Process
• DOT's Regional Operations Plan (ROP)
• DOT's ITS Investment Strategy: 10-Year Program
• Our Region's ITS Regional Architecture.

The ITS Master Plan was the first major effort focusing solely on ITS technology that formulated a regional policy among transportation operations personnel. This MTP update takes a broader view, placing greater emphasis on planning and coordination as well as emerging ITS technologies. With regional operations as a critical element for the success of our system, this MTP will ensure that funding is a priority for this area of transportation.

This chapter of the MTP consists of six major components. The Management and Operations Overview provides the context and motivation for management and operations in the region. Operations Goals reviews operations-oriented goals that were established in Chapter 2 of the MTP. Operations Objectives and Performance Measures outlines the specific operational outcomes we hope to achieve as a region, with the identification of performance measures and data needs. M&O Strategies and Implementation establishes the solutions the region will implement to best achieve our desired operational outcomes and how they may be implemented (including financial considerations). Monitoring described an ongoing effort to regularly monitor progress toward the operations objectives, report the results, and evaluate activities for reaching those objectives. Programs, Partners, and Responsibilities presents ongoing programs, the partners in the program, and their respective responsibilities to ensure accountability.

Regional Operations Purpose

Transportation operations is not simply moving people and goods; it applies a combination of technology, robust planning, improved preparedness, and extensive interagency and intra-agency coordination, as follows:

The following text is an excerpt from the Delaware Valley Regional Planning Commission's Transportation Operations Master Plan.24 This gives a comprehensive overview regarding the strategic importance of operations planning. This information helps paint the picture on the different elements of a successful, objectives-driven, performance-based approach. See http://www.dvrpc.org/operations/Masterplan.htm to access the complete plan.

• Technology Technology is the backbone of transportation operations. It utilizes advanced technologies: computers, communications, electronics, and control systems to improve the efficiency and safety of the surface transportation system. Real-time surveillance systems monitor transportation facilities identifying unusual conditions that need immediate action, whether it is a bus running behind schedule or a crash on the Schuylkill Expressway. Technology enables transportation operations centers to impart accurate up-to-date travel information to the public, or to adjust traffic signal timings to handle a surge of traffic from a closed expressway. It enables first responders to overcome interoperability communication issues among themselves and with transportation personnel. Deploying technology also saves agencies money by automating functions like highway toll and transit fare collection.
• Planning When an incident temporarily closes a highway or disrupts transit service, it is already too late to plan a response. Detour routes, traffic control points, signing, and potential response resources should be identified in advance. Agency and personnel roles and responsibilities also have to be pre-defined.
• Preparedness This involves conducting training courses and table top exercises so that personnel can be fully prepared to respond to a highway or transit incident. It also involves pre-deploying traffic management equipment so that portable VMS or accident investigation equipment for emergency responders will arrive in a timely manner, and not have to be transported across the region. Emergency service patrols offer immediate on-scene resources to mitigate minor incidents and provide traffic support in larger ones.
• Coordination Operationally, the region is very fragmented, with three departments of transportation, three state police departments, multiple toll authorities and transit agencies, and hundreds of local police and fire departments. Institutional coordination, whether at the scene of an incident, between transportation operations centers, or across jurisdictions or modes, is a major undertaking. Incident command structures must be established, and situational information disseminated. On-going coordination is required to make sure everything runs smoothly, and to correct problems that periodically occur.

...

Transportation operations has unique funding and implementation requirements. While Intelligent Transportation Systems (ITS) projects are like other major transportation capital investments, in that they can be funded through the region's Transportation Improvement Program (TIP); they are unlike highway projects in that there is substantial maintenance and operations costs associated with them. Hardware, software, and communication devices have to be continually maintained and updated to remain consistent with the latest IT technology standards. Ultimately, operations and maintenance (O&M) costs can exceed the initial capital investment.

Many transportation operations initiatives are programmatic, for example funding service contracts, vehicles and equipment, and training programs. In many instances, non-traditional transportation stakeholders like police or fire departments will be the primary beneficiary of these programs. How to fund these types of programs, whether to use federal transportation monies, state funds, toll monies, or even Department of Homeland Security funding, is unclear. As transportation agencies evolve from a design-build culture to an operations culture, decisions on how to fund, operate, and maintain these types of programs need to be resolved.

Operations in the MTP Framework

All the transportation elements within this plan were prepared in coordination with one another. System management and operations, as shown in Figure 1, is one of eight strategic factors our region must plan for as required by the Federal government.

Figure 3. M&O and CMP in the Context of Metropolitan Transportation Planning Requirements

Partners and Process

This MTP was prepared under the framework of an objectives-driven, performance-based approach. From start to finish, multiple agencies within our region collaborated to produce a coordinated plan with a set of agreed-upon strategies selected to achieve our desired goals and objectives. The regional partners, committees, and task forces that helped produce the outcomes identified within include the following:

• MTP Steering Committee. The MTP Steering Committee is a regional group focused on ensuring the coordination and collaboration across disciplines and agencies throughout our region. This group is charged with ensuring that the final adopted MTP is an agreed to, consistent, comprehensive, and objective plan.
• Regional Technical Operations Task Force (RTOTF). This committee was formed to ensure the technical accuracy and soundness in the planning for the regional operations process. The committee consists of traffic, transit, and emergency management operations. Meeting monthly throughout the process, this group helped prepare an agreed to, objective plan to meet our region's goals. The task force has the following subtask forces:
  • Transit Management and Operations Subtask Force
  • Incident Management Subtask Force
  • Work Zone Subtask Force
  • Arterial Management Subtask Force.

Committees, task forces, sub-committees, and subtask forces are essential to developing an objectives-driven, performance-based approach plan. By coordinating and collaborating, these groups will build the plan on technically sound procedures that are realistic and feasible for the specific region the MTP is being prepared for. Having these committees and task forces also creates a sense of trust for decisionmakers that the strategies being considered are the most appropriate ones.

The RTOTF went through a rigorous process throughout the development of the operations plan, including testing, refining, and revising the objectives, performance measures, strategies, and monitoring techniques to match our regions desired outcomes (while keeping in mind current limitations such as revenue and data sources). This was an iterative process that the regional partners undertook to produce a set of defensible, objective, transparent, agreed-upon regional M&O strategies.

Operations Goals

As summarized in Chapter 2, the Region has established eight goals to direct and guide how our region plans its transportation system, three of which directly influence the operations of the network. The main themes of the goals include Efficiency and Reliability, Communications, and Choices. The Region derived this set of regional goals from careful consideration of the plans and goals of each partner responsible for planning, delivering, operating, and maintaining the regional transportation system and ensuring the safety and security of the traveling public. The remaining sections within this chapter will present an integrated approach to achieving the regional goals in close coordination with the unique goals of each regional partner. Achieving these goals requires a number of public agencies, private owners and operators, and not-for-profit associations undertaking many activities.

Goal 1 Provide an Efficient and Reliable Transportation System.

Goal 7 Expand Affordable, Effective Transportation Choices.

Goal 8 Provide Effective Communications to Inform Travel Decisions.

Operations Objectives and Performance Measures

Regional operations objectives reflect commitments, by one or more of the regional partners, for achieving the regional goals. Regional stakeholders declared sustainability as the core of the regional vision and the MPO board has emphasized efficiency, reliability, options, and communication as the overarching strategies to reach the vision.

For the remainder of this example plan excerpt, only Goal 1, Provide an Efficient and Reliable Transportation System, will be shown with the application of the objectives-driven performance-based approach; however, if this were a full plan example, all three goals would be carried throughout the entire chapter.

Various technical and policy committees of the MPO, in close coordination with the regional partners, worked to develop a broad set of objectives that relate directly to the transportation system outcomes expressed in the regional goals. The objectives development process included direct input from transportation providers, operators, users, and policy makers. The following sections summarize the resulting set of regional objectives specific to each regional goal. Through the process of identifying and evaluating congestion areas in our region, the objectives became more refined and specific.

A small number of outcome-based operations objectives provide the foundation for fully integrating operations with the MTP process. Decisionmakers and staff are able to trace plans and actions back to these objectives and the goals they support.

Outcome-Based Objectives

The RTOTF has identified outcome-based objectives for each operations-related goal. Each objective is specific and measurable to ensure that progress may be tracked over time. In addition, each objective was tested and refined to select realistic and achievable targets and timelines. To achieve Goal 1, the regional partners created outcome-based objectives for both efficiency and reliability.

Efficiency

To address efficiency specifically, the RTOTF identified an objective focused on improving travel time during peak periods. Peak-period travel time has been significantly affected during the past 5 years because of significant growth. The region has chosen an aggressive objective to reverse this historical trend. Peak period travel has a tremendous effect on our economy, bringing people to and from destinations. Based on historical data and projections, the region believes that a 20 percent improvement in travel time during the next 10 years is an achievable target and timeline. Subsequent to the 10-year timeline, the region has assumed that maintaining the improvement is the most feasible and practical.

Goal 1 Provide an Efficient and Reliable Transportation System.

Objective 1.1 – Efficiency Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.

Objective 1.2 – Reliability Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.

Reliability

To address reliability specifically, the RTOTF identified an objective focused on reducing the variability of travel time during peak periods at varying levels during the next 25 years. Although it is expected that population and employment growth will be occurring throughout the northeastern and southwestern portions of our region, the system needs to perform consistently for users to plan their travel appropriately. As efficiency improves over time, the region projects that the variability in travel time will diminish. Based on historical data and projections, the region believes that a 15 percent reduction in variability within 10 years and 25 percent within 20 years is an achievable target and timeline.

Examples for Outcome-Based Objectives at Different Capability Levels for Goal 1 – Efficiency and Reliability
(from Chapter 2)

Objective	Basic Capabilities	Advancing Capabilities	Comprehensive Capabilities
1.1	Reduce vehicle miles traveled per capita by 10 percent in 10 years and 25 percent in 20 years.	Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.	Improve the average travel time per person during peak periods for all major modes by 20 percent within 10 years and maintain at that level for the remaining 10 years.
1.2	Reduce delay on major arterials by 3 percent per year.	Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Reduce the variability of travel time per person during peak periods for all major modes by 15 percent within 10 years and 25 percent within 20 years.

The remainder of this section would give an overview of how and why the additional outcome-based objectives were developed for Goal 7 and Goal 8.

Performance Measures and Data Needs²⁵

The RTOTF collectively identified the following associated performance measures and data needs for each outcome-based objective identified under Goals 1, 7, and 8. It established performance measures to identify and evaluate recurring and nonrecurring congestion. It evaluated potential performance measures, weighing their strengths and weaknesses in terms of their applicability to the unique characteristics of the planning area. These measures will enable the region to track and see that it is meeting our regional goals and objectives.

In our region, the individual cities and counties currently undertake data collection efforts. They collect traffic volume and crash data consistently and comprehensively across the region. They are collecting ITS-related data currently on all principal arterial roadways in the region and 65 percent of major arterial roadways. Through the MTP update process, the region continues to update the data collection efforts through new technology while maintaining consistency. Additional coverage also is sought throughout the region. When possible, the RTOTF will continue using existing data sources. Currently, the statewide annual reporting system is a higher-level analysis source. In addition to that report, the region references congested corridor studies being conducted routinely throughout the region each year. These data sources help the RTOTF identify and prioritize areas within the region where the best progress can be made through operation-related strategies.

Objective	Performance Measure	Data Needs
Objective 1.1 Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.	Average travel time per day during peak periods (minutes)	Peak period and free-flow travel time or speeds Person travel along links (e.g., vehicle volume X vehicle occupancy)
Objective 1.2 Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Variance in travel time	Travel time

Activity-Based Objectives

Our region has identified eight activity-based objectives for the areas of reliability, efficiency, choices, and communications. The RTOTF and subtask forces tested and refined the objectives to create a system of measures and activities that will achieve our ultimate goals. Below is an overview of the activities.

Objective 1.1 — Efficiency Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the subsequent 10 years.

Objective 1.1.1 Evaluate and retime 95 percent of the traffic signals in the region (if needed) at least once every 3 years.

Objective 1.1.2 Implement a single, region-wide automated fare collection system within 5 years that enables transit users to pay electronically for transit fare on all transit services with the same card.

Objective 1.2 — Reliability Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.

Objective 1.2.1 Reduce the mean clearance time per incident by 25 percent in 5 years. (Clearance time defined as the time between awareness of an incident and restoration of lanes to full operational status.)

Objective 1.2.2 Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.

Efficiency

The RTOTF identified two activity-based objectives related to the efficiency outcome. They agreed unanimously on the two identified activities as realistic and achievable given the ongoing activities throughout the region related to traffic signal retiming programs and automated fare collection visions. With the achievement of these two objectives, the target of travel-time improvements by 20 percent may be achieved.

Reliability

The RTOTF identified two activity-based objectives related to the reliability outcome. They agreed unanimously on the two identified activities as realistic and achievable given the ongoing activities throughout the region related to incident management programs and work zone management discussions. With the achievement of these two objectives, the target of reducing travel time variability by 15 percent and 25 percent may be achieved.

Examples for Outcome-Based Objectives at Different Capability Levels for Goal 1 — Efficiency and Reliability (from Chapter 2)

Objective	Basic Capabilities	Advancing Capabilities	Comprehensive Capabilities
1.1.1	Increase the number of intersections running in a coordinated, closed-loop, or adaptive system by 10 percent in 5 years and 15 percent in 10 years.	Evaluate and retime 95 percent of the traffic signals in the region (if needed) at least once every 3 years.	Special timing plans are available for use during freeway incidents, roadway construction activities, or other special events for 55 percent of arterial miles in the region in 5 years and updated annually for the subsequent 10 years.
1.1.2	Within 5 years, at least 75 percent of transit trips can be made with no more than two transfers.	Implement a single, region-wide automated fare collection system within 5 years that enables transit users to pay electronically for transit fare on all transit services with the same card.	Increase the routes meeting performance targets by 5 percent annually.
1.2.1	Increase percentage of incidents initially discovered and verified by Motorist Assist roving patrols by 10 percent in 5 years.	Reduce the mean clearance time per incident by 25 percent in 5 years.	Reduce the person hours (or vehicle hours) of delay associated with traffic incidents by 15 percent within 10 years and 20 percent the subsequent 10 years.
1.2.2	Reduce the percentage of vehicles traveling through work zones that are queued by 5 percent in 5 years.	Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.	Reduce the average time duration (in minutes) of queue length greater than 0.5 miles by 15 percent in 10 years.

To see related performance measures and data needs for the varying levels, please refer to the relevant fact sheets for the objectives identified in the table above. The remainder of this section would give an overview of how and why the additional activity-based objectives were developed for Goal 7 and Goal 8.

Performance Measures and Data Needs

Similar to the process described for outcome-based objectives, the regional partners collectively identified the following associated performance measures and data needs for each activity-based objective. Performance measures were established to identify and evaluate recurring and nonrecurring congestion. Many potential performance measures were evaluated, weighing their strengths and weaknesses in terms of their applicability to the unique characteristics of the planning area. These measures will enable the region to track and see that our regional goals and objectives are being met. The RTOTF strategically chose performance measures that would solely depend on existing data. A very minor set of performance measures will require additional data collection procedures.

Objective	Performance Measure	Data Needs
Objective 1.1.1 Evaluate and retime 95 percent of the traffic signals in the region are at least once every 3 years.	Number of traffic signals retimed	Reports from operating agencies on signal retiming, signal capabilities, special timing plans, and crash data reviews
Objective 1.1.2 Implement a single, region-wide automated fare collection system within 5 years that allows transit users to pay electronically for transit are on all transit services with the same card.	Percentage of fares using automated fare collection	Farebox data
Objective 1.2.1 Reduce the mean clearance time per incident by 25 percent in 5 years.	Mean incident clearance time per incident	The time of incident awareness and one or more of the following pieces of data: the time the last responder left the scene, the time when all lanes were reopened, the time when traffic returned to normal flow
Objective 1.2.2 Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.	Percentage of vehicles experiencing queuing in work zones Length of average and maximum queues in work zones Average duration in minutes of queue length greater than X miles	Number of vehicles traveling through work zones Number of vehicles traveling through work zones experiencing queuing Average and maximum length of work zones Duration of queue length greater than X miles

If this were a complete MTP, the remainder of this section would give a summary of the performance measures and data needs for goals 7 and 8.

M&O Strategies and Implementation

To meet the region's goals and associated objectives, management and operations strategies were identified for implementation. The strategies identified cut across multiple modes, agencies, and geographic locations in the region. The intent is that, with these identified strategies implemented, the region's targets and timelines may be achieved through close coordination, collaboration, and technical excellence. Performance measures associated with each objective have been used to ensure that the selected strategies and improvements result in the quantitative benefits within each objective.

Improvement and Cost Feasibility²⁶

For the selection of appropriate improvement strategies, cost is a major contributing factor. Cost is typically one of the main factors as to whether or not strategies are feasible. Other factors also affecting feasibility that the RTOTF considered include the availability of right-of-way, technology infrastructure, environmental constraints, social constraints, and others.

Types of M&O Strategies

The following categories of strategies, or combinations of strategies, were considered for each area:

• Demand management measures, including growth management and congestion pricing.
• Traffic operational improvements.
• Public transportation improvements.
• ITS technologies as related to the regional ITS architecture.
• Where necessary, additional system capacity.

Based on specific characteristics of each congested area in the region, the anticipated strategy benefits, project viability, cost, and potential funding sources available, the RTOTF selected the following set of strategies relating to each objective.

Provide an Efficient and Reliable Transportation System

Objective	Strategies	Priority
Objective 1.1 — Efficiency Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the remaining 10 years.	Implement and finance the following programs annually in the TIP: Arterial Management and Transit Management and Operations.	High
Objective 1.1.1 — Arterial Management Evaluate and retime 95 percent of the traffic signals in the region (if needed) at least once every 3 years.	Implement program and finances for signal retiming every 3 years.	Medium
Objective 1.1.2 — Transit M&O Implement a single region-wide automated fare collection system within 5 years that allows transit users to pay electronically for transit fare on all transit services with the same card.	Involve integrating the system across multiple modes or services. Implement a consistent system with other connecting transit services. Implement a marketing campaign to increase awareness and use.	High
Objective 1.2 — Reliability Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Implement and finance the following programs annually in the TIP: Incident Management and Work Zone Management.	High
Objective 1.2.1 — Incident Management Reduce the mean clearance time per incident by 25 percent in 5 years.	Responder training. Quick clearance laws. Towing agreements. Traveler information to reduce delay during incidents.	High
Objective 1.2.2 — Work Zone Management Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.	Shorten lane closure time (particularly during high-traffic hours). Provide travelers with advance notice and real-time information to avoid the work zone.	Medium

If this were a complete MTP, the remainder of this section would give a summary of the strategies and their priority levels for Goal 7 and Goal 8.

Monitoring

With adoption of this MTP, it is the region's obligation to monitor and track progress of our system's efficiency, reliability, communications, and choices. The RTOTF has reached consensus on its specific targets and timelines and the MTP Steering Committee is committed to working together to ensure that our region moves forward economically. This monitoring effort will occur annually with results documented in our region's Annual Performance Monitoring report. Through the development of this MTP update, transit operators, traffic operators, and emergency incident responders have committed to collecting, summarizing, and analyzing the generated data needed to indicate if targets have been achieved. As time progresses and monitoring is performed, the RTOTF will assess the need for adjustments to the initial set of specific objectives and strategies. This intermittent assessment of the performance of implemented strategies represents the shift from a project-based solution solving process to an outcome-based solution process.

Programs, Partners, and Responsibilities

Management and operations strategies identified herein will be included in the TIP or in the funding programs of partnering agencies. This step is critical to ensure that funding mechanisms are in place for the regional operations component of our transportation system. Currently, management- and operations-related improvement strategies in our MTP have been allocated $2 million per year. A set of four programs have been identified to ensure our region's objectives may be achieved. Two of the programs, incident management and arterial management, were established under the last MTP update. Two new programs, transit management and operations and work zone management, were created under this MTP update to assist us in making our system successful.

Provide an Efficient and Reliable Transportation System

Outcome-Based Objectives	Performance Measures	Activity-Based Objectives	Performance Measures	Strategies
Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the remaining 10 years.	Average peak period travel time per day (minutes)	Evaluate and retime 95 percent of the traffic signals in the region (if needed) at least once every 3 years.	Number of traffic signals retimed	Implement program and finances for signal retiming every 3 years
Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the remaining 10 years.	Average peak period travel time per day (minutes)	Implement a single region-wide automated fare collection system within 5 years that allows transit users to pay electronically for transit fare on all transit services with the same card.	Percentage of fares using automated fare collection	Involve integrating the system across multiple modes or services Implement a consistent system with other connecting transit services Implement a marketing campaign to increase awareness and use
Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Variance of travel time	Reduce the mean clearance time per incident by 25 percent in 5 years.	Mean incident clearance time per incident	Responder training Quick clearance laws Towing agreements Traveler information to reduce delay during incidents
Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.	Variance of travel time	Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.	Percentage of vehicles experiencing queuing in work zones Length of average and maximum queues in work zones Average duration in minutes of queue length greater than X miles	Shorten lane closure time (particularly during high-traffic hours) Provide travelers with advance notice and real-time information to avoid the work zone

The program description excerpts shown below were taken directly from the Delaware Valley Regional Planning Commission's Transportation Operations Master Plan (July 2009). Their Master Plan gives more detailed descriptions of the programs than an MTP covering multiple elements would entail. For the additional program details visit http://www.dvrpc.org/operations/Masterplan.htm.

Incident Management

Twenty-five percent of traffic congestion in large urban areas is because of traffic incidents ranging from flat tires to overturned tractor-trailers. These unforeseen events cause havoc, making commuters late, affecting truck deliveries, and ultimately making the region less competitive economically.

Incident management is a multi-step process involving incident detection and verification, emergency responder response, management of on-site emergency personnel, traffic management, clearance of vehicles and debris, and recovery to normal traffic flow. It involves diverse technical skills and an assortment of different organizational entities. Incident management programs have to be sensitive to all phases of incident management and the institutional relationships, many of which are outside the purview of the traditional transportation planning and funding processes.²⁷

Arterial Management

In general, highways do not operate in isolation; they are usually part of larger travel corridors with parallel arterials, passenger rail lines, and bus routes. From a holistic perspective, the goal is to optimize travel in the whole corridor, not just expressways. Accomplishing this requires deploying ITS resources throughout the corridor and across modes. If traffic signals are optimized, parallel arterials can help relieve overcrowded expressways. Strategically located VMS at decision points can inform motorists of travel choices — what are the travel times via expressway versus arterials, or when is the next train arriving.²⁸

Transit Management and Operations

Transit management programs include upgrading transit management centers and traveler information and fare collection systems, and implementing security technology. There is a broad range of ITS technology routinely incorporated into transit projects. New buses and rail vehicles, for example, typically come with diagnostic sensors and passenger information displays.

Work Zone Management

When a highway agency establishes a work zone,

"...regardless of whether it is temporary maintenance activity or a long-term construction project, adequate precautions must be taken to warn motorists about changes in traffic patterns and potential bottlenecks. It is vital to minimize traffic delays and protect the safety of construction workers and motorists. Work zone plans and measures should be commensurate with the size and duration of the job and traffic volumes on the affected highway. Federal work zone regulations have enshrined these principals. Emerging technology is complementing these efforts, with portable devices to issue alerts and warnings to reckless drivers.

Departments of transportation and other highway operators routinely develop maintenance traffic plans for construction projects and maintenance activities. Work zone traffic management elevates the level of planning and resources for projects that impact expressways and high volume arterials. Depending upon the type of facility, duration of project, and impact on traffic, work zone initiatives may lead to formation of work zone management teams, pre-deployment of permanent or temporary CCTV cameras and speed detectors, and installation of warning devices and intrusion sensors."²⁹

Programs	Responsible Partners
Incident Management	County operators Municipality operators Emergency responders
Arterial Management	State operators County operators Municipality operators Transit operators
Work Zone Management	County operators State operators
Transit Management and Operations	Transit operators County operators Municipality operators

Goal: Provide an Efficient, Reliable Transportation System

Programs	Strategies	Activity Objectives	Outcome Objectives
Arterial Management	Implement program and finances for signal retiming every 3 years	Evaluate and retime 95 percent of the traffic signals in the region (if needed) at least once every 3 years.
Transit Management and Operations	Involve integrating the system across multiple modes or services Implement a consistent system with other connecting transit services Implement a marketing campaign to increase awareness and use	Implement a single region-wide automated fare collection system within 5 years that allows transit users to pay electronically for transit fare on all transit services with the same card.	Improve the average travel time during peak periods by 20 percent within 10 years and maintain at that level for the remaining 10 years.
Incident Management	Responder training Quick clearance laws Towing agreements Traveler information to reduce delays during incidents	Reduce the mean clearance time per incident by 25 percent in 5 years. (Clearance time defined as the time between awareness of an incident and restoration of lanes to full operational status.)	Reduce the variability of travel time during peak periods by 15 percent within 10 years and 25 percent within 20 years.
Work Zone Management	Shorten lane closure time (particularly during high traffic hours) Provide travelers with advance notice and real-time information to avoid the work zone	Reduce the average and maximum length of queues, when present, by 20 percent over 7 years.

In a complete MTP example, an objectives tree summary would be prepared for Goal 7 and Goal 8. If this were a full MTP example, the following chapters would be incorporated into the plan per the Table of Contents. Not being operations related, the following chapters will not be shown as excerpts in this sample plan: Chapter 6 — System Integration Chapter 7 — System Expansion Chapter 8 — Appendices