Improving Business Processes for More Effective Transportation Systems Management and Operations

Chapter 7. Traffic Management

7.1 Traffic Management Business Processes

Traffic management encompasses several strategies often focused on in urban areas. The freeway system (and other limited-access facilities) is the backbone of a regional transportation network, providing connectivity to other freeways as well as arterial systems. Many agencies across the United States have implemented some level of traffic management and operations system, ranging from basic freeway and traffic monitoring capabilities to 24/7 traffic management centers, ramp management, active traffic management systems (shown in Figure 5), or integrated corridor management systems. The focus of this chapter is on freeway traffic management.

Figure 5. Photo. Example of freeway active traffic management.
(Source: Washington State Department of Transportation)

Similar to the other strategies previously discussed, freeways and freeway operations pose several challenges where effective planning and procurement processes ensure viability of equipment and system investments. The inability to replace or update equipment and systems could limit an agency's ability to implement more responsive strategies, such as active traffic management or integrated corridor management. Staff, whether agency or contracted, also need the training, expertise, and authority to be able to implement more demand-responsive strategies based on network conditions. The absence of a comprehensive operations plan or strategic plan represents key business processes that could hinder the overall effectiveness of a freeway operations program.

Within the full range of traffic management, business processes have a few common denominators: equipment and infrastructure in the field to monitor and control traffic; integrated systems to facilitate monitoring and control; and staff resources to monitor the network and implement strategies. In addition, operational policies, such as ramp management (coordinating policy and operations with adjacent arterial corridors), and traffic incident management (such as quick clearance practices) can also influence freeway and traffic management and operations.

The supporting business processes also vary widely, and range from strategic planning to coordinating among partners for operations and effective equipment procurement and lifecycle management practices. As such, business processes will be somewhat unique to each agency or region.

Key business processes for traffic management include the following:

• Program plan and priorities
• Budget and programming to support program needs
• Program alignment to agency and regional transportation mission, goals, and objectives
• Coordination among program planning to other key planning activities (such as a long-range plan)
• Process to integrate regional- and network-based operations strategies (such as active traffic management and integrated corridor management)
• Performance outcomes to influence program plan and programming

The following are guiding questions that can be used to identify business process issues and potential action items related to traffic management business processes:

• Is a formal and collaborative process available to support traffic management system planning, programming, or budgeting?
• Are priorities established for traffic management, and are these priorities reviewed and updated over time?
• Is there alignment between agency mission, goals, and objectives, and traffic management goals, objectives, and priorities?
• Are goals and objectives for traffic management coordinated and supported by a performance monitoring program, including the establishment of performance measures derived from outcome objectives?
• Do traffic management priorities reflect immediate needs and longer term or regional transportation objectives?
• Are there corridor-specific traffic management processes or priorities established, considering unique corridor characteristics?
• Do the needs of operations programs, such as traffic incident management, road weather management, planned special event management, or work zone management, provide input to traffic management activities or strategies?
• Are traffic management priorities established using a network-based approach (such as integrated corridor management)?
• Is there institutional initiative or support to advance new Transportation Systems Management and Operations (TSMO) strategies and approaches in your traffic management program?
• How integral is life-cycle management to the traffic management program? Are needs for longer-term systems operations or expanded TSMO strategies able to integrate into formal planning and programming processes?

Traffic operations are typically handled by one agency in a region, although in some areas there could be multiple traffic and freeway operators (such as areas with tollways or turnpikes operated by entities other than the state's DOT). However, freeways represent a significant part of most regional transportation systems, so operations and management are most effective when they consider the freeways interactions with other modes and systems, such as transit and arterials. Examples of some gaps in business processes that impact freeway management and operations include lack of coordination with other transportation agencies, limited strategic planning for system operations or future system expansions, firewalls or stovepipes within organizations that limit effective coordination across multiple divisions and departments, and reluctance to examine new TSMO strategies to elevate the current level of freeway operations.

Table 6 identifies potential business process challenges at various stages of a traffic management program. These challenges can be examined as part of program reviews or strategic planning discussions to identify potential limitations or issues that can be addressed through improving the corresponding business processes.

Table 6. Traffic management business process challenges.

Traffic Management Program Elements	Traffic Management Potential Business Processes Challenges
Planning and Programming	No short-term or long-range strategic plan exists for the traffic management program. Traffic management priorities are not developed collaboratively with key partners or with a network perspective. Budget planning for traffic management enhancements does not factor in new strategies or approaches. Traffic management system life-cycles and asset management needs are not adequately addressed in agency budgets. Mainstreaming traffic management capabilities into capital programming (such as for traditional capacity enhancements or rehabilitation projects) is not always considered. Coordination between agency planning processes and operations program priorities or activities is limited. Agency programming cycles and planning horizons do not provide enough flexibility for near-term traffic management initiatives or needs.
System Operations	Traffic management processes have limited coordination with other partner operating processes (for example, law enforcement and arterial management agencies). Operations are largely static or by time of day and are not always able to respond to actual traffic conditions. Operations strategies are not scalable. Traffic management strategies do not incorporate decision-support tools or system performance data or analysis. Coordination among centers or systems in a region for traffic management is limited, particularly in a real-time context. Operational gaps are not addressed as part of the traffic management program, leading to business-as-usual operations approaches. Policy constraints limit implementation of more active traffic management strategies. Staff capabilities or skill sets are not aligned with traffic management performance needs. Training in advanced TSMO strategies for freeway traffic management is limited or unavailable. Outcome objectives have not been developed. Few or no performance measures—based on objectives—have been established and adopted for freeway operations.
Asset Management	A preventive maintenance program is nonexistent or is not adequate to address reliability of traffic management assets. Priorities compete within the agency for maintenance resources. System maintenance, repair data, and device performance trends are not routinely used to inform budgeting processes. Maintenance and asset management responsibilities are distributed among multiple groups or divisions. Coordination between freeway operations staff and maintenance staff is limited. Processes are not in place to accurately track and analyze device and equipment performance, which could provide valuable inputs to budgeting and life-cycle planning.
Expansion and Enhancement	Strategic planning for system expansion or future needs is limited. New strategies are not easily integrated into current freeway operations and management program. Viable funding sources are not in place to address operational needs of system expansion (such as training for new strategies).

7.2 Traffic Management Business Process Case Studies

7.2.1 Colorado Elevates TSMO as an Essential Function and Establishes New Units to be Responsive to Corridor Management Priorities

Traffic management business processes addressed in this case study include the following:

• Budget and programming to support program needs
• Program alignment to agency mission, goals, and objectives
• Coordination among program planning to other key planning activities (that is, long-range plan)
• Process to integrate region- and network-based operations strategies (that is, active traffic management, integrated corridor management)

The Colorado Department of Transportation (CDOT) has gone through a significant organizational change and recently implemented a Division of TSMO, which helps recognize and elevate TSMO to a core function within CDOT but also necessitated a close look at how to sustain and manage a TSMO division that did not have a business model internally to do so. CDOT realigned and consolidated operations within its department to be more responsive to corridor management needs and priorities; previously, these functions had been distributed across multiple divisions and regions.

One of the earliest activities of the new TSMO Division was to develop a reorganization action plan. Within this plan, CDOT identified which specific functions would now be part of the new TSMO Division (for example, Intelligent Transportation System operations, high-occupancy vehicle and high-occupancy toll maintenance, freeway courtesy patrol and heavy tow programs, fiber network operations and maintenance), as well as what changes in reporting structure would happen at the regions to allow for direct lines of reporting to the TSMO Director.

The TSMO Division also created three new units to respond to CDOT's corridor management priorities: Corridor Management, Incident Management, and Event Management. This represents a high-impact organizational change to better equip CDOT's focus on TSMO. Although this is a relatively new division at CDOT and a very recent reorganization action plan, CDOT is using outputs from this effort to identify regional and headquarters resource and staffing needs to support its TSMO objectives, inform performance measures, and streamline coordination between operations and maintenance needs. By articulating these key TSMO needs within one document, the Division can make a solid business case to CDOT for resource, budgeting, and process improvements.

7.2.2 Maryland's Coordinated Highways Action Response Team Business Plan and Business Processes Emphasize Implementation-Ready Projects to Improve Freeway Operations

The following traffic management business processes are addressed in this case study:

• Program plan and priorities
• Budget and programming to support program needs
• Program alignment to agency mission, goals, and objectives
• Coordination among program planning to other key planning activities (that is, long-range plan)
• Performance outcomes that influence planning and programming

The Maryland State Highway Administration Coordinated Highways Action Response Team (CHART) has a long history of strategic and tactical planning to guide investments in Intelligent Transportation System (ITS) and freeway operations, resource needs, and freeway incident management. CHART was among the first programs to develop a business plan that outlined key objectives, operational needs, and deployment and implementation priorities. CHART also has integrated its line-item budget needs for TSMO into the Maryland Statewide Transportation Improvement Program and the Maryland Department of Transportation Consolidated Transportation Program.

CHART derives its program, resource, budget and maintenance needs from a comprehensive process that considers key stakeholder and committee input, ITS architecture, and its ongoing performance monitoring and management program. Although most TSMO plans and programs are focused on near-term operation needs, CHART has developed a unique non-constrained deployment plan, which outlines a vision of how CHART should be operating several years into the future. This non-constrained deployment plan identifies key priorities, planning-level cost estimates, and implementation strategies and essentially provides an opportunity-based project list. As opportunities arise, such as close-out funding or federal grant funding, key opportunities can be advanced.

CHART has expanded with the support of top management at Maryland State Highway Administration in large part to the compelling business case CHART makes for the network improvements. Using the annual performance management program, CHART has demonstrated benefits in reducing incidents, reducing delay, improving incident response to freeway incidents, and improving customer service through enhanced traveler information.