Traffic Incident Management

Gap Analysis 

Primer

U.S. Department of Transportation

Federal Highway Administration

FHWA-HOP-15-007 March 2015
Notice

This document is disseminated under the sponsorship of the U.S. Department 

of Transportation (USDOT) in the interest of information exchange. The U.S. 

Government assumes no liability for the use of the information contained in this 

document. This report does not constitute a standard, specification, or regulation.

The U.S. Government does not endorse products or manufacturers. Trademarks 

or manufacturers’ names appear in this report only because they are considered 

essential to the objective of the document.

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The Federal Highway Administration (FHWA) provides high-quality information 

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Cover photo credits: VHB (left and top middle); NYSDOT (bottom middle); 

and FHWA (top right and bottom right).
TECHNICAL DOCUMENTATION PAGE 

1. Report No. 

FHWA-HOP-15-007 

2. Government Accession No. 3. Recipient's Catalog No.

 

4. Title and Subtitle 

Traffic Incident Management Gap Analysis Primer 

5. Report Date 

March 2015 

6. Performing Organization Code

7. Author(s) 

Ahmed Amer, Edwin Roberts, Uzoamaka Mangar, Walter H. Kraft, 

Joseph T. Wanat, Peter C. Cusolito (VHB), James R. Hogan (AEA), 

and Xiaoliang (George) Zhao (IAI) 

8. Performing Organization Report No.

9. Performing Organization Name and Address 10. Work Unit No. 

VHB 

8300 Boone Boulevard 

Suite 700 

Vienna, VA 22182 

Advantage Engineering 

Associates, P.C. (AEA) 

101 Interchange Plaza 

Suite 308 

Cranbury, NJ 08512 

Intelligent Automation, 

Inc. (IAI) 

15400 Calhoun Drive, 

Suite 400 

Rockville, MD 20855 

11. Contract or Grant No.

DTFH61-12-D-00039 (VHB) 

12. Sponsoring Agency Name and Address 

Federal Highway Administration Office of Operations 

1200 New Jersey Ave., SE 

Washington, DC 20590

13. Type of Report and Period

Final Report, 

September 2013 – March 2015 

14. Sponsoring Agency Code

FHWA

15. Supplementary Notes 

Laurel Radow, FHWA Office of Operations, Office of Transportation Operations, Technical Manager (TM) 

16. Abstract 

The research conducted for this gap analysis determined that there is no one-size-fits-all TIM program. As a result the 

recommendations contained within this document should be tailored towards the needs of the area in which the TIM 

program will be implemented. Not only should the needs of that area be considered but the capabilities and available 

resources of that area are equally important to understand the level of customization needed. It does not matter how big 

or small a TIM program is but rather how successful the program is at engaging stakeholders and managing incidents. 

Whether a TIM program has already been established or is starting from scratch, it is essential to identify the overall needs

of the local area and determine TIM program elements necessary to fulfill these needs. If a program has already been 

deployed a key driver is identifying the existing gaps in the program and identifying activities/actions to bridge these 

gaps. 

17. Key Words: 

traffic incident management, TIM, gap analysis, 

safe, quick clearance, performance 

measurements, TIM stakeholders, TIM program 

capabilities, strategic, tactical, support 

18. Distribution Statement

No restrictions. 

19. Security Classif. (of this report) 

Unclassified 

20. Security Classif. (of this page) 

Unclassified 

21. No. of Pages 

90 

22. Price

Form DOT F 1700.7 (8-72) Reproduction of completed pages authorized 

Technical Documentation Page
TABLE OF CONTENTS

Table of Contents................................................................................................................................... ii

List of Tables.......................................................................................................................................... iv

List of Figures......................................................................................................................................... v

List of Abbreviations ............................................................................................................................ vi

1 Introduction ....................................................................................................................................... 1

The Need for a Primer ...................................................................................................................................................2

Primer Objectives...........................................................................................................................................................3

Target Audience ..............................................................................................................................................................4

Primer Organization.......................................................................................................................................................4

TIM Overview ...................................................................................................................................................................5

2 Traffic Incident Management Gap Analysis Summary.................................................................... 9

The National Unified Goal (NUG) Gap Analysis Framework ............................................................................9

Current State of TIM Practice ................................................................................................................................... 17

TIM Gaps and Gap Filling Recommendations................................................................................................... 19

3 Components of a Successful Traffic Incident Management Program.......................................... 27

Framework of a TIM Program .................................................................................................................................. 27

Key Stakeholders and TIM Partners....................................................................................................................... 29

TIM Program Strategic (Institutional) Capabilities........................................................................................... 33

TIM Program Tactical (Technical/Operational) Capabilities.......................................................................... 35

TIM Program Support (Financial/Technological) Capabilities..................................................................... 37

Checklist for a Comprehensive, Mature TIM Program.................................................................................... 38

4 Roles and Responsibilities of Traffic Incident Management Stakeholders ................................. 43

Transportation .............................................................................................................................................................. 44

Law Enforcement......................................................................................................................................................... 45

Fire and Rescue............................................................................................................................................................. 45

Emergency Medical Services................................................................................................................................... 46

Public Safety Communications/E911 ................................................................................................................... 47

Emergency Management......................................................................................................................................... 47

Towing and Recovery................................................................................................................................................. 48

Hazardous Material ..................................................................................................................................................... 48

ii
Traffic Information Media ......................................................................................................................................... 49

TIM Responsibilities Matrix ...................................................................................................................................... 49

5 Traffic Incident Management Program within Transportation Operations Program................. 53

Steps for Establishing a TIM Program................................................................................................................... 53

Transportation Operations Organization/Program Overview..................................................................... 55

TIM Involvement of Transportation Operations Staff..................................................................................... 57

Example TIM Success Story – NYSDOT TIM Program ...................................................................................... 61

6 Conclusions and Recommendations .............................................................................................. 65

Summary of the Successful TIM Program ........................................................................................................... 65

Summary of Implementation Steps...................................................................................................................... 67

Glossary of Terms................................................................................................................................. 71

References............................................................................................................................................ 77

iii
LIST OF TABLES

Table 1. Key Traffic Incident Times.[6] ...................................................................................................................................8

Table 2. The NUG Gap Analysis Framework. .................................................................................................................. 12

Table 3. Summary of State/Local and National Level Actions................................................................................. 21

Table 4. TIM Stakeholders Roles and Descriptions.[10]................................................................................................ 30

Table 5. Key Stakeholder Roles and Responsibilities.[1] ............................................................................................. 31

Table 6. TIM Program Strategic (Institutional) Components.................................................................................... 38

Table 7. TIM Program Tactical (Technical/Operational) Components................................................................... 40

Table 8. TIM Program Support (Financial/Technological) Components.............................................................. 41

Table 9. Checklist for TIM Responsibilities of Transportation Stakeholders. ...................................................... 44

Table 10. Checklist for TIM Responsibilities of Law Enforcement Stakeholders. .............................................. 45

Table 11. Checklist for TIM Responsibilities of Fire and Rescue Stakeholders................................................... 46

Table 12. Checklist for TIM Responsibilities of EMS Stakeholders.......................................................................... 46

Table 13. Checklist for TIM Responsibilities of Public Safety Communications/E911 Stakeholders.......... 47

Table 14. Checklist for TIM Responsibilities of Emergency Management Stakeholders. .............................. 47

Table 15. Checklist for TIM Responsibilities of Towing and Recovery Stakeholders. ...................................... 48

Table 16. Checklist for TIM Responsibilities of Hazardous Material Stakeholders. .......................................... 48

Table 17. Checklist for TIM Responsibilities of Traffic Information Media Stakeholders................................ 49

Table 18. TIM Key Stakeholder Roles and Responsibilities Matrix. ........................................................................ 50

Table 19. TIM Program within Transportation Operations Program. .................................................................... 56

Table 20. Transportation Operations Staff TIM Involvement. .................................................................................. 58

Table 21. TIM Activities and Transportation Operations Staff Matrix.................................................................... 59

Table 22. Blank TIM Activities and Transportation Operations Staff Matrix. ...................................................... 60

Table 23. Summary of TIM Activities within Different TIM Program Elements.................................................. 66

iv
LIST OF FIGURES

Figure 1. Photo. Traffic Incident Management (TIM). ....................................................................................................1

Figure 2. Chart. TIM Stakeholders’ Responses about Self-Assessment and Gap Analysis. ...............................3

Figure 3. Chart. Timeline of Stages in the TIM Process.[5] .............................................................................................5

Figure 4. Chart. Timeline of Traffic Incident Elements.[6] ..............................................................................................8

Figure 5: Photo. FHWA Senior Executive Transportation & Public Safety Summit 2012................................ 17

Figure 6. Chart. Current State of TIM Practice: TIM Stakeholders’ 

Responses about National Unified Goal. ........................................................................................................................ 18

Figure 7. Chart. Current State of TIM Practice: TIM Stakeholders’ 

Responses about TIM Strategic Plan. ............................................................................................................................... 18

Figure 8. Chart. Current State of TIM Practice: TIM Stakeholders’ 

Responses about TIM Gap Analysis. ................................................................................................................................. 19

Figure 9. Chart. Framework of a Successful TIM Program......................................................................................... 28

Figure 10: Photo. NYSDOT Bi-monthly TIM Steering Committee Meeting......................................................... 33

Figure 11: Photo. Safe Zone for Incident Response Operations. ............................................................................ 35

Figure 12: Photo. NYSDOT Joint Traffic Management Center.................................................................................. 37

Figure 13: Photo. NYSDOT Bi-monthly TIM Steering Committee Meeting......................................................... 61

Figure 14: Photo. NYSDOT TIM Responder Training.................................................................................................... 62

Figure 15: Photo. NYSDOT TIM Team................................................................................................................................ 63

Figure 16: Photo. NYSDOT Incident Response Trailer................................................................................................. 63

Figure 17: Photo. NYS Office of Fire Prevention and Control (OFPC) Incident Management Trailer......... 63

Figure 18: Photo. Outstanding ITS Project of the Year award for the NYSDOT TIM Program....................... 64

v
LIST OF ABBREVIATIONS

AAA American Automobile Association

AAR After-Action Review

CAD Computer Aided Dispatch

CCTV Closed-Circuit Television

CMM Capability Maturity Model

DMS Dynamic Message Sign

DMV Department of Motor Vehicles

DOH Department of Health

DOT Department of Transportation

E911 Enhanced 911

ELG Executive Leadership Group

EMS Emergency Medical Services

ERSI Emergency Responder Safety Institute

FAST-TRAC Faster and Safer Travel through Traffic Routing and Advanced Controls

FHWA Federal Highway Administration

GPS Global Positioning System

HAR Highway Advisory Radio

HazMat Hazardous Materials

HSIP Highway Safety Improvement Program

IACP International Association of Chiefs of Police

IAP Incident Action Plan

ICS Incident Command System

IRV Incident Response Vehicle

ISP Information Service Providers

IRT Incident Response Team

ITE Institute of Transportation Engineers

ITS Intelligent Transportation Systems

ITS JPO Intelligent Transportation Systems Joint Program Office

LTAP/TTAP Local and Tribal Technical Assistance Programs

MOU Memorandum of Understanding

MPO Metropolitan Planning Organization

vi
MUTCD Manual on Uniform Traffic Control Devices

NIMS National Incident Management System

NITTEC Niagara International Transportation Technology Coalition

NTIMC National Traffic Incident Management Coalition

NUG National Unified Goal

NYS New York State

PDA Personal Digital Assistant

PHMSA Pipeline and Hazardous Materials Safety Administration

PM Performance Measures

PPE Personal Protective Equipment

PSEs Planning for Special Events

RISC Rapid Incident Scene Clearance

SHRP2 Second Strategic Highway Research Program

SHSP Strategic Highway Safety Plan

SOGs Standard Operating Guidelines

SOPs Standard Operating Procedures

SP State Patrol

SSP Safety Service Patrol

TI&EM FHWA Traffic Incident & Events Management

TIM Traffic Incident Management

TIM SA Traffic Incident Management Self-Assessment

TMC Traffic Management Center

TOC Traffic Operations Center

TRAA Towing and Recovery Association of America

TTC Temporary Traffic Control

UCS Unified Command Structure

USDOT United States Department of Transportation

USFA United States Fire Administration

vii

1

Traffic Incident Management Gap Analysis Primer Introduction

Figure 1. Photo. Traffic Incident 

Management (TIM).[3]

A traffic incident is “any non-recurrent event, such as a vehicle crash, vehicle breakdown, 

or other special event, that causes a reduction in highway capacity and/or an increase in 

demand”.[1] Traffic incidents are a significant cause of congestion delays that motorists 

encounter every day on roadways and according to the Federal Highway Administration 

(FHWA), these incidents (ranging from a flat tire to an overturned hazardous material 

truck) account for about 25% of all non-recurring congestion.[2] Non-recurring incidents 

dramatically reduce the available capacity and reliability of the entire transportation 

system and when an incident occurs, congestion quickly builds up and chances of a 

secondary incident increase. The sooner incidents are detected, the sooner personnel can 

respond to the incident and clear it from the roadway, thereby allowing traffic lanes to 

re-open.

Traffic incident management (TIM) “consists of a planned and coordinated 

multidisciplinary process to detect, respond to, and clear traffic incidents so that traffic 

flow may be restored as safely and quickly as possible”. Effective TIM reduces the duration 

and impacts of traffic incidents and improves the safety of motorists, crash victims, and 

emergency responders. The TIM goals are to:

 Promote the safety of motorists, crash victims, 

and incident responders.

 Reduce the time for incident detection and 

verification.

 Reduce response time (the time for response 

personnel and equipment to arrive at the 

scene).

 Exercise proper and safe on-scene 

management of personnel and equipment, 

while keeping as many lanes, as possible, open 

to traffic.

 Conduct an appropriate response, investigation, and safe clearing of an incident.

1 INTRODUCTION
2

Traffic Incident Management Gap Analysis Primer Introduction

 Reduce clearance time (the time required for the incident to be removed from the 

roadway).

 Provide timely and accurate information to the public that enables them to make 

informed choices.

 Get traffic moving again as soon as possible after a partial or complete roadway closure 

while managing the affected traffic until normal conditions are restored.

While individual efforts may be made by various agencies, the overall objective of TIM is to 

bring these efforts together to formalize a partnership among all agencies. TIM achieves 

this by coordinating the resources of a number of different entities who represent incident 

responders as well as private agencies that have a vested interest in TIM, with the mutual 

goal of reducing the impacts of incidents on congestion, while protecting the safety of onscene responders and the traveling public.

1.1 The Need for a Primer

One of the most important responsibilities of both State and local transportation and 

public safety agencies is to ensure the safe and quick clearance of traffic incidents. Traffic 

incidents pose a significant threat to life safety and influence travel time, economic 

productivity, and transportation system performance. Effective TIM procedures and 

advance planning are essential to achieve quick incident clearance without compromising 

safety for motorists or responders.

Policies and operating procedures for TIM programs not only vary from State to State, but 

vary regionally within each State and among rural, suburban, and urban areas. Many of 

the nation’s TIM programs lack a robust, full-scale, comprehensive approach that includes 

all aspects of incident management with long-term vision and objectives.

For these reasons, an inventory and review of current practices was conducted to analyze 

the existing capabilities of both the institutional and technical aspects of the national TIM 

program led by FHWA, as well as those managed by local and/or State governments. This 

analysis of existing TIM gaps highlighted the need for a primer that outlines a common 

national structure for TIM programs.

In order to investigate how TIM practitioners currently perceive the need for conducting 

gap analysis on their respective TIM programs, a TIM gap analysis webinar was conducted 

in October 2014. More than 50 attendees from various TIM stakeholder groups responded 

to a series of poll questions. The webinar attendees responded to questions about their 

self-assessment as well as gap analysis activities, as summarized in Figure 2. It can be seen 

from the results that although many TIM stakeholders (69%) conduct self-assessments, 

only 30% have undertaken a gap analysis. These results confirm the need for a TIM gap 

analysis primer to help guide TIM practitioners in conducting the gap analysis process that 

will in turn, help to develop a sound traffic incident management program.
3

Traffic Incident Management Gap Analysis Primer Introduction

Based on what was learned during the webinar discussion, it is appropriate to highlight 

the difference between the “gap analysis” and the “self-assessment” concepts. Although 

both are used to evaluate the current state of performance and help identify areas of 

improvement, the gap analysis concept is a more analytical technique which identifies 

the specific steps needed to reach the desired state of practice. Self-assessment is defined 

as “a continuing process through which managers at all levels evaluate the effectiveness 

of their performance in all areas of responsibility, and determine what improvements 

are required”,[4] whereas gap analysis is defined as “a technique that businesses use to 

determine what steps need to be taken in order to achieve a future state”. It can also be 

said that gap analysis helps programs to reflect on who they are and ask who they want to 

be in the future.[5]

1.2 Primer Objectives

This document provides guidance to federal, State and local TIM programs and their 

involved partners on the components needed to develop and sustain a successful fullfledged TIM program. The objectives of this primer are to:

Figure 2. Chart. TIM Stakeholders’ Responses about Self-Assessment and Gap Analysis. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

Figure 2. Chart. TIM Stakeholders’ Responses about Self-Assessment and Gap Analysis. 

(Source: TIM Gap Analysis Webinar, October 2014)
4

Traffic Incident Management Gap Analysis Primer Introduction

 Identify and summarize the current state of TIM practice and activities at the national 

and State/local levels.

 Identify and summarize gaps found in TIM activities/information for national and State/

local departments and agencies.

 Identify and outline a framework for achieving a complete TIM program for the different 

levels of government utilizing national guidelines.

 Outline the key elements that are contained in successful TIM programs.

A key objective for this document is to address the actual challenges that different TIM 

stakeholders with varied levels of responsibility face in their current TIM practices on a day 

to day basis.

1.3 Target Audience

The information contained within this document is geared towards multidisciplinary TIM 

stakeholders from both the public and private sectors. This includes but is not limited to 

personnel from transportation agencies, law enforcement, fire and rescue, emergency 

medical services (EMS), public safety communications, emergency management, towing 

and recovery, hazardous materials (HazMat), utilities, contractors, and traffic information 

media.

The target audience for this document includes staff responsible for incident response 

coordination along with executive decision makers who develop and promote incident 

management policies, plans, and programs. For technical staff, this primer is useful in 

detailing the step-by-step procedures used for incident management and an effective TIM 

response. For executive decision makers, this guidance document is useful for conveying 

the most practical and effective TIM programs and policies, and the steps and resources 

needed to implement these programs/policies.

1.4 Primer Organization

The content of this primer is divided into six chapters as follows:

 Chapter 1: Introduction – Provides an overview of this document including the 

motivation behind its development and the topic areas discussed.

 Chapter 2: TIM Gap Analysis Summary – Summarizes the results of the TIM Gap 

Analysis conducted and describes the elements needed to develop a successful TIM 

program.

 Chapter 3: Components of Successful TIM Program – Outlines the various components 

necessary to achieve a mature TIM program that is both effective and sustainable.

 Chapter 4: Roles and Responsibilities of TIM Stakeholders – Identifies the roles and 

responsibilities of each TIM stakeholder and the level of involvement needed by each 

agency in individual TIM components.
5

Traffic Incident Management Gap Analysis Primer Introduction

Figure 3. Chart. Timeline of Stages in the TIM Process.[6]

 Chapter 5: TIM Program within Transportation Operations Program – Outlines the 

various components necessary to achieve a mature TIM program that is both effective 

and sustainable.

 Chapter 6: Conclusions and Recommendations – Provides a summary of the important 

findings in this document, including a summary of the implementation of a successful 

TIM program.

1.5 TIM Overview

To better understand the complexity of TIM it 

is best to analyze the eight stages of the TIM 

process as depicted in Figure 3:

 1. Detection.

 2. Verification.

 3. Response.

 4. Scene Management.

 5. Traffic Management.

 6. Motorist Information.

 7. Clearance.

 8. Recovery.

The following are descriptions of each TIM stage as well as the TIM methods used during 

each stage.

 1. Detection – determines that an incident has occurred and is brought to the attention 

of the agency/agencies responsible for maintaining traffic flow and safe operations on 

the facility. Various methods of detection include:

 Cell phone calls from motorists.

 Closed-circuit television (CCTV) images viewed by traffic management center (TMC) 

operators.

 Electronic detection (video processing, radar, induction loops) with traffic incident 

detection algorithms.

 Police/service patrols.

 Calls from public works crews.

 Motorist aid telephones and call boxes.

 2. Verification – confirms that an incident has occurred, determines its exact location, 

and obtains as many relevant details about the incident in order to dispatch the proper 

initial response. Methods used to verify an incident include:

 Field units (e.g., police, service patrols) at the incident site.
6

Traffic Incident Management Gap Analysis Primer Introduction

 CCTV images.

 Communication with helicopters operated by police, media, or information service 

providers.

 Combining information from multiple cellular calls.

 3. Response – dispatches the appropriate personnel and equipment, and activates the 

appropriate communication links and motorist information media as the incident is 

verified. Timely and effective response reduces the incident’s duration, and therefore, 

the time of roadway operation at reduced capacity. In addition to on-scene response 

personnel, response also includes:

 Response vehicles that include capabilities such as a mobile communications 

platform, global positioning system (GPS), and other features to facilitate efficient 

response.

 Personnel and logistics support.

 Interagency response planning and mutual-aid agreements.

 Intra-agency and interagency communications.

 4. Scene Management – effectively coordinates and manages on-scene resources. 

Effective scene management increases safety for crash victims, motorists, and 

responders; coordinates responder activities; and decreases the impacts of an incident 

on the roadway system. Examples of scene management activities include:

 Accurate assessment of incidents.

 Proper establishment of priorities.

 Use of an Incident Command System (ICS) and Unified Command Structure (UCS).

 Notification and coordination with appropriate agencies and organizations.

 Proper placement and staging of response vehicles at traffic incident scenes.

 5. Traffic Management – applies traffic control measures onsite and in areas affected by 

an incident. Effective traffic management minimizes traffic disruption while maintaining 

a safe workplace for responders and reduces the likelihood of secondary crashes. 

Examples of traffic management activities include:

 Establishment and operation of alternate routes.

 Use of cones, flares, warning signs, arrow boards, portable dynamic message signs 

(DMS), and other traffic control resources.

 Use of traffic control devices such as DMS, highway advisory radio (HAR), ramp meters, 

and traffic signals.

 Queue management to actively monitor the end of a queue and warn approaching 

motorists.

 Reduction of long-term traffic incident duration.
7

Traffic Incident Management Gap Analysis Primer Introduction

 6. Motorist Information – disseminates incident-related information to affected 

motorists through the use of various methods including:

 Dynamic message signs (DMS).

 Highway advisory radio (HAR).

 Commercial radio and television broadcasts.

 Telephone information systems (i.e., 511).

 In-vehicle or personal digital assistant (PDA) information.

 Information service providers (ISP).

 7. Clearance – removes wreckage, debris, or any other elements that disrupt the normal 

flow of traffic. Improved traffic incident clearance procedures has many positive effects 

including the ability to:

 Minimize motorist delay.

 Make effective use of all resources.

 Enhance the safety of responders and travelers.

 Protect the roadway and private property from unnecessary damage during the 

removal process.

 8. Recovery – evaluates the long-term impact of an incident and identify recovery 

actions needed to mitigate those impacts. The goal of recovery is to restore the roadway 

capacity to its pre-incident condition and includes these actions:

 Restore traffic flow.

 Restore pre-incident capacity quickly and safely.

 Debris clearance.

 Damage assessments.

 Restoration of damaged infrastructure.

 Structural inspections.[6]

The impact of an incident typically occurs on the local network but can also extend to the 

regional network.

It should be noted that Figure 3 is obtained from the Freeway Management and 

Operations Handbook which was published in 2003.[6] Subsequent evolution in TIM 

community experience on this subject have resulted in revised thinking regarding the 

TIM elements and their relative timing, especially with regard to the development of TIM 

performance measures (PM).

A more recent understanding of the traffic incident elements and timeline was developed 

by the USDOT ITS Joint Program Office (ITS JPO) and is depicted below in Figure 4, with 

the key incident times summarized in Table 1.[7]
8

Traffic Incident Management Gap Analysis Primer Introduction

Figure 4. Chart. Timeline of Traffic Incident Elements.[7]

Table 1. Key Traffic Incident Times.[7]

Measure Definition

Detection Time

T1 – T0

Time between the incident occurring and the incident being reported. Detection time is not 

typically reported due to the fact that the actual time the incident occurred is often unknown.

Verification Time

T2 – T1

Time between incident being reported and the incident being verified. TMCs can typically assist 

with verification through use of their CCTV cameras.

Response Time

T4 – T2

Time between the incident being verified and the first responder arriving on scene. Law 

enforcement may not always be the first party to arrive on scene.

Roadway Clearance Time (RCT)

T5 – T1

Time between the first recordable awareness of the incident by a responsible agency and the first 

confirmation that all lanes are available for traffic flow.

Incident Clearance Time (ICT)

T6 – T1

Time between the first recordable awareness of the incident by a responsible agency and the 

time at which the last responder has left the scene.
9

Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

In preparation for the development of this primer, a necessary first step was to inventory 

current traffic incident management (TIM) practices nationwide. To accomplish this, a twotier gap analysis was conducted on (1) the federal TIM program as well as (2) State and 

local programs to investigate what the institutional, technical, and financial capabilities 

of TIM programs currently are at the different government levels. This analysis included 

a review and synthesis of relevant literature regarding agency practices, experience, 

process, and outcomes; as well as reviewing the summaries of Federal Highway 

Administration (FHWA) TIM workshops conducted across the nation between March 2010 

and June 2013 and recent TIM self-assessment (TIM SA) reports.

2.1 The National Unified Goal (NUG) 

Gap Analysis Framework

Although the details of the comprehensive TIM gap analysis are presented in-depth in a 

separate report, the key findings of that analysis are summarized within this document to 

help TIM stakeholders recognize the gaps identified in current TIM practices and reflect 

them in their own respective TIM programs.

To classify the gaps identified, the 18 National Unified Goal (NUG) strategies were used 

as a framework to assess the challenges and barriers in the current TIM process. The NUG 

for TIM encourages local and State transportation and public safety agencies to adopt 

unified, multidisciplinary policies/procedures/practices that help improve the way traffic 

incidents are managed on roadways. Although the NUG does not address funding, it 

does emphasize that by joining together to pursue common goals TIM stakeholders can 

leverage their opportunities to secure resources to pursue these goals. The NUG strategies 

are separated into these four categories: crosscutting strategies; responder safety; safe, 

quick clearance; and prompt, reliable, interoperable communications; and include the 

following:

TRAFFIC INCIDENT MANAGEMENT 2 GAP ANALYSIS SUMMARY
10

Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

Crosscutting Strategies

 1. TIM Partnerships and Programs – TIM partners at the national, State, regional, 

and local levels should work together to promote, develop, and sustain effective TIM 

programs.

 2. Multidisciplinary NIMS and TIM Training – TIM responders should receive 

multidisciplinary National Incident Management System (NIMS) and TIM training.

 3. Goals for Performance and Progress – TIM partners should work together to 

establish and implement performance goals at the State, regional, and local levels for 

increasing the effectiveness of TIM, including methods for measuring and monitoring 

progress.

 4. TIM Technology – TIM partners at the national, State, regional, and local levels 

should work together for rapid and coordinated implementation of beneficial new 

technologies for TIM.

 5. Effective TIM Policies – TIM partners at the national, State, regional, and local levels 

should join together to raise awareness of proposed policies and legislation that affect 

the achievement of the NUG strategies of Responder Safety; Safe, Quick Clearance; and 

Prompt, Reliable Interoperable Communications.

 6. Awareness and Education Partnerships – Broad partnerships should be developed 

to promote public awareness and education regarding the public’s role in safe, efficient 

resolution of incidents on roadways.

Responder Safety

 7. Recommended Practices for Responder Safety – Recommended practices for 

responder safety and for traffic control at incident scenes should be developed and 

widely published, distributed, and adopted.

 8. Move Over/Slow Down Laws – Drivers should be required to Move Over/Slow Down 

when approaching traffic incident response vehicles and traffic incident responders on 

the roadway.

 9. Driver Training and Awareness – Driver training and awareness programs should 

teach drivers how to react to emergencies on the roadway in order to prevent 

secondary incidents, including traffic incident responder injuries and deaths.

Safe, Quick Clearance

 10. Multidisciplinary TIM Procedures – TIM partners at the State, regional, and local 

levels should develop and adopt multidisciplinary procedures for coordination of TIM 

operations, based on national recommended practices and procedures.

 11. Response and Clearance Time Goals – TIM partners at the State, regional, and local 

levels should commit to achievement of goals for traffic incident response and clearance 

times.

 12. 24/7 Availability – TIM responders and resources should be available 24/7.
11

Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

Prompt, Reliable, Interoperable Communications

 13. Multidisciplinary Communications Practices and Procedures – Traffic incident 

responders should develop and implement standardized multidisciplinary traffic 

incident communications practices and procedures.

 14. Prompt, Reliable Responder Notification – All traffic incident responders should 

receive prompt, reliable notification of incidents to which they are expected to respond.

 15. Interoperable Voice and Data Networks – State, regional, and local TIM 

stakeholders should work together to develop interoperable voice and data networks.

 16. Broadband Emergency Communications Systems – National TIM stakeholders 

should work together to reduce the barriers to integrated broadband emergency 

communications systems development and integration (both wired and wireless).

 17. Prompt, Reliable Traveler Information Systems – TIM stakeholders should 

encourage development of more prompt and reliable traveler information systems 

that will enable drivers to make travel decisions to reduce the impacts of emergency 

incidents on traffic flow. This includes use of ITS-type methods such as dynamic 

message signs (DMS), highway advisory radio (HAR) and 511 systems as well as non-ITS 

methods such as local media and social networking sites.

 18. Partnerships with News Media and Information Providers – TIM stakeholders 

should actively partner with news media, ISPs and other pertinent resources such as 

social media service providers to provide prompt, reliable incident information to the 

public.

The comparison of the different TIM programs to the 18 NUG strategies serves as a basis 

for developing a framework to:

 Document the identified challenges and barriers in the current TIM practice.

 Develop a means to bridge these challenges and barriers.

 Propose the components of a complete TIM program.

The main intent of using the NUG strategies as a benchmark is to identify the missing 

strategic and tactical aspects in the current TIM practices at the local, State, and national 

levels. However, the emphasis on the NUG strategies is not meant to understate the need 

to address budget limitations and availability of dedicated funding to develop a complete 

and successful TIM program that is sustainable over time.

The outline of the NUG gap analysis framework is presented in Table 2, listing the key 

elements of each of the 18 NUG strategies as well as the identified challenges, barriers, 

and strategies based on the inventory and review of current TIM practices.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

Table 2. The National Unified Goal (NUG) Gap Analysis Framework.

NUG Strategy Key Elements Gaps Strategies to Overcome Gaps 1. TIM Partnerships and Programs

Synchronized TIM 

programs at the local, 

regional, State, and 

multistate levels.

Formalized partnerships 

through written 

agreements, joint 

written operational 

policies and procedures, 

and joint training 

exercises.

Co-location of the 

multidisciplinary 

partners.

Inclusive partnerships, 

including:

•	Emergency dispatch 

(Enhanced 911 (E911) 

Center).

•	Fire/rescue.

•	EMS.

•	HazMat.

•	Law enforcement.

•	Medical examiner/

coroner.

•	Towing and recovery.

•	Transportation.

•	Media, traffic reporters 

and other traveler 

information service 

providers.

•	Others (trucking 

industry, traffic 

control industry, 

insurance industry 

and emergency 

management 

agencies). 

Departments of Transportation 

(DOTs) often are not included in 

emergency planning and preparedness 

organizations’ activities.

TIM responder agencies need dedicated 

resources (personnel and funding).

Positive interaction between and 

consistency of actions between statewide 

and regional TIM teams.

Partner agencies are not aware of the 

capabilities and restrictions of others.

In some instances, there is conflict when 

partner agencies do not work well 

together.

Involvement of TIM activities into State’s 

Strategic Highway Safety Plan (SHSP).

Lack of executive level support.

Institutional barriers.

Lack of legislation.

Agency executive/senior leader engagement 

and buy-in.

Definition and documentation of the roles of 

the different TIM team partners.

Simultaneous institutionalization of TIM within 

the agencies of the TIM team partners.

Implementation of statewide comprehensive 

multidisciplinary TIM program.

Utilize the planning for special events (PSEs) 

and emergency management activities to build 

stronger relationships among TIM partners.

Effective use of highway service patrols as 

effective statewide TIM resources that typically 

have dedicated vehicles and staff.

Memoranda of Understanding (MOUs) between 

partner agencies.

Safe, quick clearance laws.

Promote and support TIM stakeholder 

participation in current and future efforts to 

update the State’s SHSP to ensure TIM-related 

strategies continue to be included. Examples of 

States that include TIM in their SHSP are Arizona 

(in progress), Connecticut, Indiana, Kentucky, 

and Wisconsin.

Regional TIM Operational Plans and Guidelines: 

several States have developed regional- or 

corridor-level TIM programs, where partners 

jointly developed recommended operational 

guidelines or response procedures. Examples of 

these programs include, but are not limited to:

Arizona New Jersey

Florida New York

Georgia North Carolina

Indiana Rhode Island

Kansas Tennessee

Massachusetts Virginia

Missouri Wisconsin

2. Multidisciplinary NIMS 

and TIM Training

Cross train incident 

scene roles and 

responsibilities.

A thorough 

understanding of the 

ICS.

Include all partners 

and those across 

State boundaries, if 

appropriate.

Volunteer agencies do not have the same 

time available for training that full-time 

agencies have.

Lack of familiarity and established 

working relationships between 

responding agencies and individuals 

within those agencies.

Cultural differences among responder 

agencies.

Need to ensure ICS continuity, as it 

should not end until the last responder 

leaves the scene.

Lack of interagency buy-in.

For police and fire, conflict with other’s 

training requirements.

Backfill staffing issues.

Availability of multidisciplinary TIM training 

courses and delivery processes appropriate for 

full-time and volunteer agencies.

Classroom training provides education and 

team building so that responders know each 

other before they arrive at an incident scene.

Multidisciplinary training to help overcome 

cultural differences.

Use of a formal handoff of command at an 

incident scene.

Incorporation of TIM and NIMS into in-service 

training programs.

Coordination with State emergency 

management agencies to leverage existing 

training opportunities.

Designated funds for safety training.
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Table 2. The National Unified Goal (NUG) Gap Analysis Framework. (cont.)

NUG Strategy Key Elements Gaps Strategies to Overcome Gaps 3. Goals for Performance and Progress

A systematic approach 

for measuring TIM 

program performance 

across national and 

State/local levels.

Accountability: 

personnel must be 

responsible for reporting 

performance results up a 

chain of command.

TIM data collection.

Performance 

management.

Chain of command and reporting 

requirements for TIM functions vary 

widely.

DOTs may not have established chains of 

command and reporting channels for TIM 

functions.

Law enforcement and fire agencies have 

centralized command and control; DOTs 

typically are decentralized.

Performance metrics vary across 

agencies, making it difficult to compare 

results.

Difficulties brought on by on-scene paper 

reporting.

Cost of data collection and analysis.

The NIMS planning framework provides an 

opportunity to identify a formal DOT chain of 

incident command and reporting requirements.

Development and implementation of a 

TIM team structure to conduct incident 

management self-assessment and evaluation of 

incident responses and techniques.

Development of performance measures (PM) 

and data collection methods including those 

for each stage of an incident.

Collection of TIM data on police crash reports.

4. TIM

Technology

Sustainable and 

interoperable ITS 

technologies for TIM.

Data collection and 

analysis technologies to 

support performance 

metrics.

Integrated 

communication 

technologies (e.g., 

Computer Aided 

Dispatch (CAD)) 

between DOT and 

emergency responders 

(police, fire, EMS, 

towing).

Aging communications and Intelligent 

Transportation Systems (ITS) 

infrastructure.

Lack of prioritization.

Inconsistent use of existing technologies 

by all disciplines.

Need to identify new technologies and 

their use in TIM (how new technologies 

can help reduce the time for an 

investigation of the incident scene).

Coordination through TIM Task Force 

organizations to reach senior agency personnel.

Establishment and implementation of standard 

and efficient use of technology.

Explore use of new, less costly and 

interoperable technologies.

5. Effective

TIM Policies

Formal strategic plans 

and written interagency 

operational policies.

Performance 

measurement (incident 

clearance time).

Performance metrics 

(e.g., 30 minute 

clearance for fenderbenders; 60 minutes 

for injury crashes; 90 

minutes for fatalities).

Statewide current 

practices guidelines.

Regional TIM operational 

plans and guidelines.

Agency Standard 

Operating Procedures 

(SOPs) and Guidelines 

(SOGs).

Lack of interagency coordination at all 

levels including the senior executive 

level.

Lack of clear guidance and 

implementation coordinated policies 

among agencies.

No sharing of TIM resources.

TIM Task Force representatives with information 

to educate their agencies, senior leaders.

Framework and tools that is adaptable to State, 

local, and regional programs; as well as urban 

and suburban programs.

Development and implementation of 

multidisciplinary TIM policies and procedures 

including the development, use, and sharing of 

individual agency resources.

Survey how agencies measure performance 

and develop tools for all to use the same 

criteria.

Institutionalization of the program among all of 

the agencies involved in the TIM program.

Executive level sign-off at all the agencies.
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Table 2. The National Unified Goal (NUG) Gap Analysis Framework. (cont.)

NUG Strategy Key Elements Gaps Strategies to Overcome Gaps 6. Awareness and Education Partnerships

Develop partnerships 

to educate responders 

and motorists on 

responsibilities of the 

safe, quick clearance of 

incidents.

Lack of awareness and education 

regarding the public’s role.

Necessary safe, quick clearance 

legislation has not been passed.

Lack of funding to conduct outreach to 

stakeholder agencies and organizations.

Public-private partnerships with schools, 

insurance and towing companies, and 

organizations (e.g., American Automobile 

Association (AAA)).

Incorporation into academy and in-service 

training programs.

Identification of the best ways of getting 

information out to the public.

Development of pilot public outreach to 

explain how TIM process works.

Education or awareness campaigns can be 

conducted without legislation to achieve a 

desired outcome.

7. Recommended 

Practices

for Responder Safety

Promote practices to 

protect responders onscene.

Lack of interagency coordination at the 

senior executive level.

Lack of coordinated safety practices for 

TIM responders.

Incorporation into academy and in-service 

training programs.

Clarification of roles for responders under 

unified command for traffic incidents.

Developing and adopting coordinated safety 

practices.

Responder training.

8. Move Over/Slow

Down Laws

Ensure that motorists 

provide a safety buffer 

for responders when 

possible.

Lack of education and awareness.

Lack of and challenges related to 

legislation and enforcement.

Lack of resources for enforcement.

No judicial support of the laws.

Discrepancies with laws and language.

Public-private partnerships with schools, 

insurance and towing companies, and 

organizations (e.g., AAA).

Incorporation into responder’s in service 

programs and into driver’s training and manual.

Development and implementation of TIM 

policies and procedures for Move Over/Slow 

Down laws.

Coordination with the advancement of 

legislation with multi-organization support.

Safety campaigns/driver education.

Model legislative language.

9. Driver Training

and Awareness

Teach drivers how to 

prevent secondary 

incidents from behaviors 

such as incident scene 

curiosity.

Lack of education and awareness.

Lack of driver understanding of what to 

do in an incident scene.

Unpredictable or inappropriate driver 

actions during emergencies.

Public-private partnerships with schools, 

insurance and towing companies, and 

organizations (e.g., AAA).

Development and implementation of a 

program to promote public awareness and 

education about the public’s role in safe, 

efficient resolution of TIM events, such as Move 

Over and safe, quick clearance concepts.

Coordinate with State Traffic Safety Committees 

and Department of Motor Vehicles (DMV) for 

driver training and awareness.

Use technology to help drivers respond 

properly to diversions as well as awareness.
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Table 2. The National Unified Goal (NUG) Gap Analysis Framework. (cont.)

NUG Strategy Key Elements Gaps Strategies to Overcome Gaps 10. Multi-disciplinary TIM Procedures

Encourage widespread 

adoption of procedures 

for quickly clearing 

incident scenes.

Lack of interagency coordination at the 

senior executive level to empower TIM 

task force representatives.

Lack of coordination of TIM operations.

Institutional barriers.

The different responders at the scene 

(e.g., public safety, fire, or transportation) 

have different goals, roles, and 

responsibilities.

Unified planning following the NIMS rules.

Active participation of TIM stakeholder 

agencies.

Agency executive/senior leader engagement 

and buy-in.

Development of procedures for sharing 

resources.

Development and implementation of agency/

interagency policies to ensure safe, quick 

clearance practices.

Development of towing policy based on 

improved coordination and practices including 

a template for towing on interstate highways.

Multidisciplinary training.

11. Response and 

Clearance Time Goals

Establish benchmarks, 

or time goals for incident 

response and clearance.

Lack of data consistency.

Inconsistency in defining response 

and clearance time elements.

Establishment of metrics based on obtainable 

data.

Uniform reporting procedures.

Agreements on measurement of response 

times and clearance times.

Development of response and clearance time 

goals.

Data collection on crash reports.

12. 24/7 

Availability

Encourage 24 hours a 

day, 7 days per week 

availability of traffic 

incident responders and 

equipment.

Lack of organizational capabilities on a 

24/7 basis.

Unavailability of after-hours responders 

other than police and fire service.

Agencies have limited resources, staffing, 

and budgets.

Identification of availability of TIM resources on 

a 24/7 basis.

Development of policy and procedures for 24/7 

response considering operational limitations of 

responders other than police and fire service.

13. Multi-disciplinary

Communications Practices

and Procedures

Develop guidelines 

for standardized 

communications 

practices and 

procedures.

Disparate communications systems and 

protocols.

Lack of understanding of information 

needs of other agencies.

Communication capabilities of TIM 

organizations are lacking.

Unified planning following the NIMS rules.

Communications work plans.

Listing of communication protocols including 

technologies used and distribute list to all 

incident management stakeholders.

Support implementation of a common 

interagency communications protocol/process 

for all incident management personnel.

Common language, operational channels.

Compatible on-scene equipment.

Use of the common backbone of 800 MHz 

that allows transportation to be included, and 

allows for both voice and data; whereas 700 

MHz allows for voice only.
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Table 2. The National Unified Goal (NUG) Gap Analysis Framework. (cont.)

NUG Strategy Key Elements Gaps Strategies to Overcome Gaps 14. Prompt, Reliable Responder Notification

Develop systems and 

procedures to ensure 

prompt and reliable 

notification of incident 

information to incident 

responders.

Disparate communications systems and 

protocols.

Lack of understanding of information 

needs of other agencies.

Current notification procedures are 

ineffective.

Clearly defined roles and responsibilities.

Provide timely notification of incidents to 

responders.

Clarify notification processes and roles.

Development of standards for notification 

information.

Promote the use of technology to improve 

notification processes.

15. Interoperable 

Voice and Data 

Networks

Create links between 

incident responder 

information and 

communications 

systems.

Disparate communications systems.

Incompatibility of current voice and 

protocol data networks.

Require vendors of new communications 

equipment to provide open architectures 

that make it possible to link to and share 

information with other jurisdictions and 

agencies.

Determine how interoperable communications 

equipment could improve TIM and promote 

implementation.

16. Broadband 

Emergency 

Communications 

Systems

Promote integrated 

broadband networks 

linking emergency 

service providers.

Integration between broadband 

emergency communication systems does 

not exist.

Promote common interagency communications 

system for all TIM personnel.

Promote integration of TMC and law 

enforcement CAD systems.

Integration of CAD systems with ITS.

Implementation of wireless E911 location 

technologies; and implementation of Next 

Generation E911 systems.

17. Prompt, Reliable 

Traveler Information 

Systems

Encourage the 

development and 

deployment of traveler 

information systems to 

deliver real-time traveler 

information.

Need to provide timely and relevant 

information to motorists to avoid 

additional incidents.

Lack of funding to implement integrated 

systems.

Provide funding based on strategic planning at 

the State and/or regional level.

Expand capabilities for the use of technology 

to provide timely and accurate information to 

motorists.

Examine additional outlet mechanisms for 

traveler information.

Identify and utilize new and emerging 

technologies.

18. Partnerships with 

News Media and 

Information Providers

Develop recommended 

practices for working 

with news media and 

ISP to deliver timely 

and reliable traveler 

information.

Conflicting priorities and unfamiliarity 

with the media’s TIM role.

Current partnerships with news, 

media, and information providers need 

improvement.

Inclusion of major media sources in the 

planning process.

Foster relationships with the news media 

sources and information providers.

Educate media of their TIM role.

Identify role of the TIM committee with the 

media.

Involve the local media in the TIM committee.
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Figure 5. Photo. FHWA Senior Executive

Transportation & Public Safety Summit.[8]

3

2.2 Current State of TIM Practice

On the local and State levels, many variations exist among the different TIM programs. 

Variations in TIM practice occur between urban and rural areas where most of the urban 

areas have regional TIM programs that cover large metropolitan areas and the rural TIM 

programs are mainly corridor-based programs that may extend coverage to multiple 

States. TIM practices also vary between States, where some States have strong statewide 

support and coordination among the different regional TIM programs within the State 

while others do not.

The success of the TIM practice at any of the State/local level programs depends primarily 

on the active involvement and coordination between the different TIM partners. 

Examples of the State/local level TIM activities include conducting regularly scheduled 

TIM committee meetings, multidisciplinary training programs, tracking of targeted 

performance goals, developing and promoting TIM procedures and policies, coordinating 

the available TIM resources including equipment and data, and successful incident scene 

interagency collaboration. In addition, inclusion of TIM into the State’s Strategic Highway 

Safety Plan (SHSP) is essential in order to ensure the full funding opportunity under the 

Highway Safety Improvement Program (HSIP). It also utilizes the presence of the different 

TIM partners within the SHSP. Examples of States that include TIM in their SHSP are Arizona 

(in progress), Connecticut, Indiana, Kentucky, and Wisconsin.

On the national level, government and non-governmental agencies and coalitions 

contribute to the development and success of the TIM practice at both the policy and 

operations levels. A key role of the national TIM agencies is to provide support to the 

State/local level TIM programs to enhance and advance their TIM practices. Examples of 

the national TIM-involved agencies include FHWA Office of Operations’ Traffic Incident & 

Events Management (TI&EM) Team, International Association of Chiefs of Police (IACP), 

International Association of Fire Chiefs 

(IAFC), National Volunteer Fire Council 

(NVFC), National Association of State EMS 

Officials (NASEMSO), Emergency Responder 

Safety Institute (ERSI), Towing and Recovery 

Association of America (TRAA), and the 

U.S. Fire Administration (USFA). Another 

important national effort that started in 2004 

and ended in 2013 is the National Traffic 

Incident Management Coalition (NTIMC) 

that was instrumental in the development 

of the NUG. The NTIMC was succeeded 

by the National TIM Executive Leadership 

Group (ELG), which was formed in 2012 

by FHWA following the Senior Executive 

Transportation & Public Safety Summit.[8]
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The coordination among these agencies and others is key to the success of the national 

TIM practice. Examples of the coordinated activities at the national level include the 

development of tools, primers, guidelines, handbooks, and outreach packages; offering 

training courses, workshops, and educational materials; formulation of policies and 

standards, and conducting research and synthesis on new TIM initiatives.

As mentioned earlier, a TIM gap analysis webinar was conducted in October 2014 in 

order to seek TIM stakeholders’ input on the current state of their TIM practice and 

their presently identified gaps. Figure 6, Figure 7, and Figure 8 summarize the webinar 

attendees’ responses to questions about the NUG, their TIM program strategic plans, and 

their current TIM gap analysis process, respectively. It can be seen that many TIM programs 

(74%) incorporate the NUG into their TIM program (Figure 6), and this suggests that the 

different TIM programs are quite familiar with the NUG strategies and they can easily 

adopt the NUG gap analysis framework presented earlier.

In addition, only half of the stakeholders have a TIM strategic plan, and only 55% keep 

their strategic plan updated periodically (Figure 7). Such results indicate the significance of 

the strategic/institutional gaps in the current practice of most TIM programs. Furthermore, 

and as presented in Chapter 1, only 30% of the webinar attendees indicated that their 

TIM programs have undertaken gap analysis. Among those TIM programs, their gap 

analyses revealed a fair distribution, between strategic, tactical, and support types of 

gaps. Moreover, it was found that the institutionalization of the TIM activities among the 

different partners are some of the important strategic TIM gaps (Figure 8).

TRAFFIC INCIDENT MANAGEMENT GAP ANALYSIS PRIMER March 2015 

Figure 6. Chart. Current State of 

TIM Practice: TIM Stakeholders’ 

Responses about National 

Unified Goal. 

(Credit: FHWA TIM Gap Analysis 

Webinar, October 2014)

Figure 7. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about TIM Strategic Plan. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

Figure 6. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about National Unified Goal. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

TRAFFIC INCIDENT MANAGEMENT GAP ANALYSIS PRIMER March 2015 

Figure 6. Chart. Current State of 

TIM Practice: TIM Stakeholders’ 

Responses about National 

Unified Goal. 

(Credit: FHWA TIM Gap Analysis 

Webinar, October 2014)

Figure 7. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about TIM Strategic Plan. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

Figure 7. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about TIM Strategic Plan. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)
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DRAFT TECHNICAL DOCUMENT – NOT FOR RELEASE 23 

TIM Practice: TIM Stakeholders 

Responses about National 

Unified Goal. 

(Credit: FHWA TIM Gap Analysis 

Webinar, October 2014)

Figure 7. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about TIM Strategic Plan. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

Figure 8. Chart. Current State of TIM Practice: TIM Stakeholders’ Responses about 

TIM Gap Analysis. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

Figure 8. Chart. Current State of TIM Practice: TIM 

Stakeholders’ Responses about TIM Gap Analysis. 

(Credit: FHWA TIM Gap Analysis Webinar, October 2014)

2.3 TIM Gaps and Gap Filling 

Recommendations

The variations in the current TIM practice between the different State/local level and 

national level TIM programs result in differences in the gaps identified in each program. 

The TIM gap analysis presented here identifies specific themes of the gaps in the overall 

state of TIM practice. The identified gaps outline the barriers and challenges that hinder 

the State/local level TIM programs from having a complete TIM practice in their areas. 

These gaps also represent focus areas for national level TIM agencies in order to most 

effectively support State/local programs in achieving their TIM goals. It is worth reiterating 

that lack of funding and budget limitations are key challenges facing different State and 

local TIM programs, and can hinder them from achieving their envisioned TIM goals. 

Nevertheless, the focus of the analyses based on the NUG strategies is primarily on 

the strategic and tactical aspects that are missing in the current TIM practice of these 

programs. However, that does not diminish the fact that availability of dedicated funding 

is vital for a complete and successful TIM program.
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In addition to the need for dedicated funding, the ability to efficiently utilize the available 

resources in order to achieve the 18 NUG strategies represents the founding framework 

for a successful and complete TIM program. These elements build upon the benchmarking 

of the current TIM process against the NUG strategies, as well as the analysis of the TIM 

SA results, in order to identify and prioritize the different TIM gaps. Based on the analyses 

conducted, examples of these gaps include:

Program and Institutional Gaps

 Multiagency involvement from all TIM partners.

 Formal documentation of the TIM agreements 

(e.g., memorandum of understanding (MOUs)).

 Multidisciplinary TIM training.

 Performance measures (PM) and goals tracking.

 Road clearance laws and legislations.

 Public awareness and outreach.

Operational Gaps

 Responder safety procedures and practices.

 Equipment staging and scene management.

 Accident reconstruction and investigations.

 24/7 responder availability.

 Safety service patrol (SSP) availability.

Communication and Technology Gaps

 Emergency communications systems during incident response.

 Prompt incident detection and notification.

 Interoperable data sharing.

The recommended actions and measures at both the State/local level and national level 

based on the conducted TIM gap analysis are summarized in Table 3. This table of actions 

is a tool that can be used to allocate TIM resources at the different government levels into 

the focus areas that still need additional improvements. It is worth noting that the action 

items below are recommended based on the information gathered when this analysis 

was conducted. Some of these actions may have been already addressed by the time the 

report is publicly available.
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Table 3. Summary of State/Local and National Level Actions.

# NUG Strategy State/Local Level Actions National Level Actions

1 TIM Partnerships 

and Programs

Initiate or formalize regional or statewide TIM task 

force/ committee.

Promote and support TIM stakeholder 

participation in current and future efforts to 

update the State’s SHSP to ensure TIM-related 

strategies continue to be included.

Engage and obtain buy-in from agency executive/

senior leaders.

Institutionalize and gain participation in TIM 

program(s).

Engage absent agencies in the TIM task force/

committee.

Prepare TIM policy statement and/or MOU.

Conduct regular TIM committee meetings and/or 

TIM conferences.

Increase awareness of available State funding 

opportunities.

Formalize the After-Action Review (AAR) process.

Update FHWA TIM strategic plan and roadmaps.

Benefit from PSEs (planned special events) and 

emergency management agencies in building 

stronger relationships among TIM partners.

Continue to conduct annual FHWA TIM SA.

Develop strategies for building stronger State TIM 

programs such as strategic plans, best practices, 

and guidelines.

Develop guidance for recruitment and retention 

of fire service traffic control personnel.

Develop multidisciplinary safe, quick clearance 

plans.

Increase awareness of available national funding 

opportunities.

Support relationships with other federal agencies 

and departments.

Support involvement of and relationships with 

insurance and towing companies.

Include TIM support activities in the Local and 

Tribal Technical Assistance Programs’ (LTAP/TTAP) 

strategic plan.

2

Multidisciplinary 

NIMS and TIM 

Training

Increase awareness of NIMS/ICS training 

requirements.

Develop training courses for the various 

disciplines.

Identify cultural differences between responder 

agencies and work to overcome those differences 

through multidisciplinary training.

Integrate TIM training into police and fire training 

curriculum.

Consider tabletop exercises with multiple agencies 

and disciplines.

Provide cross-training that highlights roles and 

responsibilities of each responder.

Establish TIM training subcommittee.

Emphasize importance of multidiscipline TIM 

training.

Participate in the Second Strategic Highway 

Research Program (SHRP2) training courses.

Promote awareness and training of TIM guidelines.

Develop virtual and web-based training courses 

for the TIM community to support ongoing 

classroom training courses.

Continue to disseminate the SHRP2 training 

courses.

Use available government grants to develop new 

TIM training materials and courses.

Develop job performance requirements for TIM 

responders.
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Table 3. Summary of State/Local and National Level Actions. (cont.)

# NUG Strategy State/Local Level Actions National Level Actions

3

Goals for 

Performance and 

Progress

Review existing data sources to identify standard 

TIM PM.

Address performance discrepancies among 

different local response centers.

Develop a mission statement and identify 

attainable goals for TIM Task Force.

Initiate a mechanism to collect secondary 

incident data.

Add fields to the crash report to support tracking 

roadway and incident clearance times.

Communicate and promote the best practices and 

effects of TIM improvements.

Initiate PM followed by close monitoring with 

select TIM programs.

Promote the new performance metrics questions 

in the FHWA TIM SA.

4 TIM Technology

Expand use of ITS equipment (e.g., CCTV, DMS, 

signal preemption).

Increase awareness among responders about the 

location of ITS equipment.

Use enhanced accident reconstruction 

technologies (e.g., photogrammetry and total 

station).

Enhance awareness of the TMCs’ capabilities in 

managing traffic at incident scene.

Add mobile cameras to the SSP and Incident 

Response Vehicles (IRVs).

Review regularly technology advancements.

Identify potential funding sources for purchasing 

crash reconstruction equipment.

Conduct research on the uses and benefits of ITS 

technologies in TIM operations.

Develop guidelines for the proven technologies to 

be adopted into TIM operations.

5 Effective TIM 

Policies

Review strategies for TIM response equipment 

availability including mutual-aid agreements and 

vehicle take-home policies.

Enhance safe, quick clearance through towing 

and recovery focused initiatives.

Review Hold Harmless/safe, quick clearance 

policies and HazMat response.

Designate IRVs as emergency responders.

Consider reviewing the new proposed amendment 

for Chapter 6I of the 2017 Manual on Uniform 

Traffic Control Devices (MUTCD) that is scheduled 

to be out in May 2015, and provide any comments 

regarding control of traffic at TIM areas during the 

6-month docket comment ending in November 

2015.

Support how State/local TIM programs review and 

revise safe, quick clearance legislation.

6

Awareness 

and Education 

Partnerships

Work with DOT public information to facilitate 

education efforts.

Partner with roadside assistance, local insurance 

companies, and local media for promoting 

awareness of TIM-related laws.

Develop public outreach plans focusing on TIM 

legislation and responder safety.

Increase TIM benefit awareness.

Promote increased knowledge of and use of 

available FHWA TIM outreach and awareness 

materials (e.g., the FHWA Traffic Incident 

Management Outreach Toolkit).[3] Poll different 

States to identify if additional materials need to be 

developed. 

Conduct TIM outreach campaigns and workshops.

Develop websites for TIM education.
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Table 3. Summary of State/Local and National Level Actions. (cont.)

# NUG Strategy State/Local Level Actions National Level Actions

7

Recommended 

Practices for 

Responder Safety

Promote wearing high visibility safety personal 

protective equipment (PPE).

Address problems with law enforcement not 

wanting to wear their high visibility PPE.

Review responder safety practices/policies and 

identify best practices.

Investigate the possibility of installing computers in 

all maintenance field vehicles.

Identify consistent means to notify on-scene 

responders when a scene is being deconstructed.

Review and update existing emergency vehicle 

lighting legislation.

Develop multidiscipline guidelines for traffic control 

and incident scene management, including vehicle 

placement, emergency vehicle lighting, end of 

queue warning and HazMat response.

Promote continuous use of best practice 

guidelines for responder safety.

Clarify roles for responders by establishing a 

unified chain-of-command for traffic incidents.

Review/develop on-scene emergency vehicle 

lighting policies.

Research methods to expedite the crash 

investigation process.

8 Move Over/Slow 

Down Laws

Organize joint efforts to advocate passing necessary 

legislation (e.g., adding towing, recovery and 

maintenance personnel to the Move Over/Slow 

Down laws).

Install permanent signage to support the Move 

Over/Slow Down and driver removal laws.

Investigate opportunities for public-private 

partnership with insurance companies and roadside 

assistance companies to promote Move Over/Slow 

Down laws and other related TIM messages.

Review and revise existing Move Over/Slow Down 

laws to include response vehicles and tow trucks.

Develop and distribute educational materials to 

increase awareness of the Move Over/Slow Down 

law.

Conduct Move Over/Slow Down law campaigns.

Develop and promote multidisciplinary TIM 

policies and procedures for Move Over/Slow 

Down laws.

9 Driver Training and 

Awareness

Increase driver awareness about TIM related laws 

(both Move Over/Slow Down and Driver Removal).

Seek dispatchers help with educating motorists 

about the Steer It, Clear It law.

Initiate efforts to establish a TIM/Safety Awareness 

Week.

Integrate TIM-related legislation (Move Over/

Slow Down and Driver Removal Laws) into driver’s 

education programs and the DMV driver handbooks.

Pursue funding support for driver awareness.

Use local public access television channel for 

outreach efforts.

Initiate subcommittees to focus on TIM-related 

public outreach/education efforts.

Promote driver training about how to react 

when an emergency vehicle approaches.

Model legislation.

Promote public awareness and education about 

the public’s role in safe, efficient resolution of 

TIM events.
24

Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

Table 3. Summary of State/Local and National Level Actions. (cont.)

# NUG Strategy State/Local Level Actions National Level Actions

10 Multidisciplinary 

TIM Procedures

Prepare emergency traffic control and incident scene management 

guidelines based on best practices.

Establish common understanding of the roles, responsibilities and 

priorities of each response partner.

Establish authority removal (hold harmless) legislation.

Implement a heavy‐duty towing and recovery incentive programs.

Use enhanced technologies (including but not limited to total 

stations, mini helicopters and photogrammetry) for accident 

reconstruction.

Provide a basic overview of incident reconstruction procedures to 

all responders.

Enhance the use of after incident reviews.

Utilize the existing HazMat reference guides (e.g., Emergency 

Response Guidebook from the USDOT Pipeline and Hazardous 

Materials Safety Administration (PHMSA)).[9]

Establish minimum standards for towing and recovery rotation lists.

Identify opportunities to facilitate coroners and medical examiners’ 

ability to access the incident scene.

Develop joint interagency protocols and common resource 

investments.

Incorporate developed ICS 

procedures into the training of 

agencies and private entities (e.g., 

towers) who are involved in onscene response.

Develop guidelines for TIM 

towing operations work plans.

Conduct research on emergency 

vehicles visibility and warning 

lights.

Continue to offer and conduct 

multidisciplinary safety 

procedures training sessions.

11

Response and 

Clearance Time 

Goals

Review closely and identify reasons those incidents with clearance 

times exceeding the targeted times.

Initiate rapid incident scene clearance (RISC) programs through 

public safety agencies.

Initiate PM and monitor closely 

with select TIM programs.

Promote the new performance 

metrics questions in the FHWA 

TIM SA.

12 24/7 Availability

Address after hours availability of DOT responders and responders 

other than police and fire service.

Address operational limitations and resources availability for DOT 

responders.

Conduct research on alternative 

automated incident notification 

methods/approaches during after 

hours.

13

Multidisciplinary 

Communications 

Practices and 

Procedures

Improve understanding of “mutual” radio channels to enhance TIM 

communications.

Investigate possible ways to enable on-scene photo sharing during 

response.

Incorporate the dispatch/tele-communicator community into the 

TIM program.

Develop a comprehensive communication process.

Consider TMCs to act as data fusion centers to enhance information 

sharing.

Improve accuracy and quality of information shared from the field 

to agencies not on-scene.

Utilize van pools and other transit providers to assist with incident 

detection and verification.

Conduct TIM exercises focused on communications.

Create single point of contact lists.

Initiate efforts to enhance mile markers to consider adding route 

and direction to the markers.

Support implementation 

of a common interagency 

communications protocol/

process for all incident 

management personnel.

Support State/local TIM programs 

to review/update existing 

emergency communication 

procedures.
25

Traffic Incident Management Gap Analysis Primer Traffic Incident Management Gap Analysis Summary

Table 3. Summary of State/Local and National Level Actions. (cont.)

# NUG Strategy State/Local Level Actions National Level Actions

14

Prompt, Reliable 

Responder 

Notification

Develop master contact lists to facilitate notification 

and incident response communications.

Implement after hours notification process.

Identify opportunities to enhance local-level 

notification.

Increase sense of urgency from responding agencies.

Allow medical examiners to request an escort when 

responding to incident scenes.

Provide guidance for developing common 

standards for notification information.

Promote the use of eminent technology to 

improve notification processes.

15

Interoperable 

Voice and Data 

Networks

Insure that the different regions collect the same 

data.

Promote and educate responders on interoperable 

real-time communications.

Better planning of on-scene communications at 

large incident scenes when multiple agencies are 

responding.

Investigate possibility of providing a statewide 

communications system or integrating into the 

existing systems.

Promote the benefits of using interoperable 

communications equipment to improve TIM 

response and on-scene operations.

16

Broadband 

Emergency 

Communications 

Systems

Verify that traffic conditions information reaches 

responders at the incident scene.

Identify opportunities to share data with TMCs using 

CAD system.

Maintain awareness of current and future data 

integration projects.

Address the problems of communication dead areas.

Enhance notification process.

Promote common interagency communications 

system for all TIM personnel.

Promote integration of TMC and law 

enforcement systems.

Promote integration of CAD systems with ITS.

Promote deployment of Faster and Safer Travel 

through Traffic Routing and Advanced Controls 

(FAST-TRAC) systems.

17

Prompt, Reliable 

Traveler 

Information 

Systems

Investigate distribution of traffic messages via social 

media (e.g., Facebook and Twitter).

Develop a statewide 511 system with smart phone 

applications.

Identify additional methods to provide incident 

information to the freight industry.

Expand the use of variable message signs by all 

responders and improve coordination to avoid 

conflicting messages.

Promote efforts for TMCs to proactively provide 

traffic management and traveler information 

early on at greater distances.

18

Partnerships 

with News Media 

and Information 

Providers

Develop a working relationship with the news media 

and other information providers.

Continue current efforts by IACP’s TIM 

subcommittee to educate media of their TIM 

role and include them in the planning process.

27

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

COMPONENTS OF A 

SUCCESSFUL TRAFFIC INCIDENT 3 MANAGEMENT PROGRAM

3.1 Framework of a TIM Program

Chapter 10 of the Federal Highway Administration (FHWA) Freeway Management and 

Operations Handbook is devoted to traffic incident management (TIM). It describes a TIM 

program as follows:

“A TIM program is a logical, structured, and integrated set of TIM activities tailored to a 

specific geographic area. It includes policies, strategies, and technologies integrated into a 

multiagency, multijurisdictional environment aimed at reducing the occurrence and impact 

of traffic incidents. To be successful, a TIM program must be ongoing and actively managed. 

The TIM program should be developed and managed in conjunction with the area’s freeway 

management and operations program. The organization of the TIM program and the 

operational responsibilities of its participants should fit into the organization structure of the 

region, recognizing the existing assignment of TIM activities and addressing gaps and overlaps 

in those assignments.” [6]

In addition, the FHWA Traffic Incident Management Handbook points out that:

“Creating a formalized TIM program is an evolutionary process and it should not be presumed 

that success in each of the elements will be easily achieved. Many well established TIM 

programs, with 10 to 15 years’ experience, are still working to resolve key issues in attainment 

of the elements of a formal program.” [10]

In 2006, the National Traffic Incident Management Coalition (NTIMC) examined a number 

of TIM programs across the country and identified the following items as the building 

blocks of an institutional framework for implementing a successful TIM program:[11]

 Incident Management Policies and Plans.

 Interagency Relationships.

 Organizational Structure.

 TIM Programs.

 Staffing and Training.
28

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

 Performance Goals.

 Reporting Channels.

 Budget.

These quoted resources recognize that there is no one-size-fits-all to the structure, 

components and implementation of a TIM program. Rather, it must be customized to fit 

the capabilities and needs of the local deployment area. However, it can be said that all 

successful TIM programs consist of the following elements (Figure 9):

 Strategic Program Elements – that form a framework for TIM activities. These elements 

provide the multiagency planning, programming, and evaluation necessary to support 

efficient and collaborative on-scene operations; as well as how to plan, prepare for, 

and measure performance of the program. Strategic elements include items such as 

strategic plans, policies and training.

 Tactical Program Elements – that provide the tools and technologies for traffic 

management and interagency communications for on-scene operations. Tactical 

elements include items such as on-scene traffic control procedures, motorist assist 

patrols and pre-staged response equipment.

 Support Program Elements – that provide for the operational, tactical, and institutional 

support for effective communication and information exchange. Support elements 

include items such as communications systems, data and video collection and sharing, TIM Program and traveler information. Framework

Strategic

Form a framework for TIM

activities; as well as how to

plan, prepare for, and

measure performance of the

program

Tactical

Provide the tools and

technologies for traffic

management and interagency

communications for on‐scene

operations

Support

Provide for the operational,

tactical, and institutional

support for effective

communication and

information exchange

Figure 9. Chart. Framework of a Successful TIM Program.
29

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Just as there is no one-size-fits-all TIM program, there is no one-size-fits-all way to describe 

the approach, structure and components of a comprehensive program. Numerous documents 

have been created over the years that take different approaches and include different 

components. In the current State of the national program, two documents stand out as 

commonly known and comprehensive approaches to describing TIM strategies and evaluating 

TIM program components and overall TIM program success. Those are:

 The National Unified Goal (NUG), developed by NTIMC, contains three overall objectives: 

responder safety; safe, quick clearance; and prompt, reliable interoperable communications. 

In order to achieve its objectives, the NUG outlines 18 strategies as discussed in Section 2.1.

 The Traffic Incident Management Self-Assessment (TIM SA) was developed by FHWA as 

a benchmarking tool for evaluating TIM program components and overall TIM program 

success. Through the TIM SA, State and local TIM program managers are able to assess 

progress and identify areas for improvement at State and local levels. The 2012 survey 

contained 34 questions under three categories: strategic, tactical, and support.

When the two approaches, NUG and TIM SA, are examined, it is clear there is significant 

overlap between the two, but also elements that are contained in one but not the other. 

Accordingly, for this analysis both resources were examined and components integrated while 

removing any duplication. In addition, certain emerging components have been added such 

as planning, budget, resource management, and cost recovery.

It should be noted that TIM participants may not be completely familiar with some of the 

emerging components. It is beyond the scope of this primer to provide details on these 

components. To learn more about these components, the FHWA TIM Publications website has 

various resources that can be used to obtain further information and guidance on the different 

relevant subjects.[12]

Sections 3.3, 3.4 and 3.5 contain itemized lists of the comprehensive components of a mature 

TIM program, categorized as strategic, tactical, or support, respectively. A fully consolidated 

checklist is included at the end of the chapter.

3.2 Key Stakeholders and TIM Partners

A key for the success of the TIM practice is the collaborative coordination between the 

multidisciplinary partners involved in the process. The level of involvement of the different 

partners in different TIM activities varies by the discipline as well as the nature of the TIM 

activity.

The FHWA Regional Incident Management Programs Implementation Guide stresses the 

importance of identifying and involving stakeholders as follows:

“Coordinating and managing responses to an incident by multiple agencies and jurisdictions 

requires a complex array of interagency relationships, and relationships between key incident 

management personnel at those agencies. These relationships form the basis for the institutional 

framework of an incident management program, and in most cases must exist before a formal 

framework can be undertaken.
30

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

The impact of major traffic incidents transcends political, jurisdictional, and geographical 

boundaries, and may affect entire regional road networks and hundreds of thousands of 

travelers. For those reasons, it is important to coordinate response regionally rather than 

just locally. Often, agencies across jurisdictions can share information about how to address 

specific incident management situations, allowing agencies to benefit from the experience of 

outside partner organizations.”[13]

The NTIMC’s “Example Strategies for Building Stronger State TIM Programs” also identifies 

this as a critical activity and states:

“Strong working partnerships among all responding disciplines and agencies are a basic 

underlying principle of effective TIM programs. NTIMC encourages partnerships that are 

formalized through written operational agreements, joint, written operational policies and 

procedures, and joint training exercises. Ideally, the partnerships include all TIM partners—

which, at a minimum, would include transportation, law enforcement, fire, EMS, and towing 

and recovery. Additional partners that ideally would be involved include the trucking industry, 

traffic control industry, insurance industry, and emergency management agencies.”[11]

At the local/regional level there can be a significant number of stakeholders involved in 

TIM depending upon the incident type and severity as well as the institutional structure 

of the area operations environment. Some stakeholders will be routinely involved while 

others will be involved only when circumstances dictate their involvement. In addition, 

there are stakeholders who may not respond to an incident but collect and/or disseminate 

incident related information. Finally, users of the systems such as the traveling public are 

also stakeholders. Table 4 identifies the most common local stakeholders and the nature 

of their involvement.

Table 4 focuses on stakeholders that are more directly involved in incident response, 

information and transportation system use at the local/regional level. However, when 

TIM is looked at from a broader level, that is, from the national level to the local level, and 

when the full gamut of activities are considered, including elements such as planning 

and program support, the list of stakeholders and their roles grows significantly. Table 

5 identifies key TIM stakeholders that are involved from this broader view, their prime 

responsibility under TIM and their role (primary or secondary) related to ten broad 

categories.

Table 4. Traffic Incident Management Stakeholders Roles and Descriptions.[10]

Traditional Responders Special/Extreme Circumstance 

Responders

Incident Information 

Providers

Transportation System 

Providers and Users

Law Enforcement

Fire and Rescue

EMS

Towing and Recovery

Transportation Agencies

HazMat Contractors

Coroners and Medical Examiners

Emergency Management Agencies

Environmental/ Natural Resources/ 

Departments of Health (DOH)

Utilities

Public Safety Communications

Traffic Media

Traveler Information Services

Transportation Agencies

Traveling Public

Trucking Industry

Insurance Industry

Public Transportation 

Providers

Motorist Organizations
31

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Table 5. Key Stakeholder Roles and Responsibilities.[1]

P: Primary S: Secondary

Category StakeholderFundingTIM PlanningOps & ManagementLaw EnforcementFire/RescueEMSHazMatOutreachTrainingOtherPrime Responsibility

Federal Agencies

Federal Highway 

Administration P S S P Aid operation of highways, sets standards, publish “best practices” and planning guides.

Federal Emergency 

Management 

Administration

S S P S P

Manage national emergencies and hazards, 

federal response and recovery efforts, initiate 

proactive mitigation activities, train emergency 

responders, and manage the National Flood 

Insurance Program, the USFA, and the PHMSA.

State Agencies

State DOT

Operate and maintain State highway system, 

overall planning and implementation of TIM 

programs, operate TMCs, and manage service 

patrols.

Traffic Operations 

Office/ITS Section P P P P P Operate ITS and TMCs, set standards for traffic devices, in some areas operate Service Patrol.

Planning Office S S Plan transportation improvements.

Maintenance Office P P Maintain infrastructure; in some areas operate 

Service Patrol.

Safety Office S S S S Set safety standards, goals, and practices.

Motor Vehicle 

Compliance Office S P S Regulate and enforce commercial motor carriers.

State Patrol (SP) S P P P P

Manage the majority of freeway incidents on 

State highways, involved in all aspects of TIM, and 

dispatch federal and State law enforcement.

Department of Law 

Enforcement S S S Criminal investigations, including traffic incidents.

Department of 

Environmental 

Protection

P P

Lead agency for environmental management; 

administer regulatory programs and issue permits 

for air, water, and waste management.

Division of Emergency 

Management

Ensure State is prepared to respond to 

emergencies, recover from them, and mitigate 

their impacts.

Joint Telecom Task 

Force P P

State law enforcement radio system, also 

participates in regional law enforcement dispatch 

centers. In many States, it’s the DOT that manages 

the statewide communications backbone.
32

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Table 5. Key Stakeholder Roles and Responsibilities. (cont.)[1]

P: Primary S: Secondary

Category Stakeholder

FundingTIM PlanningOps & ManagementLaw EnforcementFire/RescueEMSHazMatOutreachTrainingOther

Prime Responsibility

Local Agencies

Law Enforcement 

(Police and Sheriff) S P P S Conduct TIM on arterial and local (and some freeway) systems.

Fire/Rescue S S P S P S S

Primary emergency response/incident command 

agency for fire suppression, HazMat spills, rescue, 

and extrication of trapped crash victims, some EMS.

Emergency Medical 

Services P Primary EMS, if separate from fire/rescue, triage, treatment, and transport of crash victims.

Medical Examiner/ 

Coroner P Investigate traffic crash deaths.

City and County Public 

Works and Traffic 

Engineering

S S P S S Operate and maintain local highways, streets and 

utilities such as sewer and water. 

Transit Agencies S S P P Operate and maintain public transportation 

systems (may be private, too).

Authorities

Expressway Authorities P P P S S Operate and maintain toll roads.

Private Partners

Towing and Recovery 

Operators S P Removal of wrecked or disabled vehicles and debris from incident scenes.

HazMat Contractors P Clean up and dispose of toxic or HazMat.

Motor Carriers S

Train and implement carriers and drivers regarding 

good TIM practice. Support TIM responders on safe, 

quick clearance. 

Utility Companies P

Repair and/or manage utility resources at the scene 

such as electric, communications and gas service, 

lines and wires.

Insurance Industry P S P Insure vehicles, promote safe practices.

Traffic Media P Report incidents, alert motorists, provide alternate 

route information.
33

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Figure 10. Photo. NYSDOT Bimonthly TIM Steering Committee 

Meeting. (Credit: VHB)

Table 5. Key Stakeholder Roles and Responsibilities. (cont.)[1]

P: Primary S: Secondary

Category Stakeholder

FundingTIM PlanningOps & ManagementLaw EnforcementFire/RescueEMSHazMatOutreachTrainingOther

Prime Responsibility

Associations

Technical Societies 

(ITS/ITE State Chapters) S S S Assist agencies, support TIM programs, and provide training.

American Automobile 

Association S P Assist agencies, support TIM programs, inform motorists.

Community Traffic 

Safety Teams P P S Assist agencies, support TIM programs, and provide safety programs.

Chamber of Commerce S Assist agencies, support TIM programs.

Associations of Cities, 

Counties, Sheriffs, 

Police, EMS, and others

S S Assist agencies, support TIM programs.

Other

Citizens for Better 

Transportation (State 

by State)

S Assist agencies, support TIM programs.

Citizens Groups S Assist agencies, support TIM programs.

3.3 TIM Program Strategic 

(Institutional) Capabilities

Strategic program elements form a framework for TIM activities. 

These elements provide the multiagency planning, programming, 

and evaluation necessary to support efficient and collaborative onscene operations; as well as how to plan, prepare for, and measure 

performance of the program. Strategic elements include items such as 

strategic plans, policies, and training as well as budgeting and resource 

management. The following is a list of strategic components associated 

with a mature, comprehensive TIM program.

 Have a TIM multiagency team or task force that meets regularly to discuss and plan for 

TIM activities.

 Conduct multiagency training (held at least once a year) on TIM-specific topics such as:

 National Incident Management System (NIMS)/Incident Command System (ICS) 100.

 Training of mid-level managers from primary agencies on the NUG.
34

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

 National Traffic Incident Management Responder Training Program (Second Strategic 

Highway Research Program (SHRP2)).

 Traffic control.

 Work zone safety.

 Safe on-scene parking.

 Conduct multiagency post-incident debriefings that include elements such as:

 A chronology of the event and response.

 An assessment of what went right/wrong.

 An identification of improvements needed and an action plan for implementation of 

such.

 Conduct planning for Planned Special Events (PSEs,) including: 

 Sporting events.

 Concerts.

 Festivals.

 Conventions at permanent multi-use venues.

 Public events at temporary venues such as parades, fireworks displays, marathons, 

bicycle races, sporting games.

 Conduct planning for Construction and Maintenance projects:

 Typically this activity is part of the development of the Traffic Management Plan (TMP) 

for the project. All highway construction and maintenance projects that use federal 

aid highway funds are required to develop TMPs.

 Have multiagency agreements/memorandum of understanding (MOUs) including:

 Agreements/MOUs signed by top officials from participating agencies.

 Clearly defined incident scene roles and responsibilities for each participating agency.

 Clearly defined agency roles and responsibilities for planning and funding the TIM 

program.

 Safe, quick clearance goals stated as time goals for incident clearance (e.g., 90 

minutes) in the agreement/MOU.

 Conduct planning to support the TIM activities across and among participating agencies 

including the Metropolitan Planning Organization (MPO).

 Establish an institutionalized approach to TIM program leadership by having someone 

from at least one of the participating agencies responsible for coordinating the TIM 

program as their primary job function.

 Have multiagency agreements on the two performance measures (PM) being tracked:

 Incident clearance time.

 Roadway clearance time.
35

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Figure 11. Photo. Safe Zone for 

Incident Response Operations.[3]

 Have established methods to collect and analyze the data necessary to measure 

performance in reduced roadway clearance time and reduced incident clearance time.

 Have targets (e.g., time goals) for performance of the two measures.

 Routinely review whether progress is made in achieving the targets.

 Track performance in reducing secondary incidents.

 Deploy effective and affordable TIM technology to support TIM activities including:

 Incident detection.

 Prompt and reliable responder notification.

 Have 24/7 availability of key responders and equipment.

 Develop and perform efficient and effective multiagency resource management based 

on the utilization of:

 Appropriate personnel who are best qualified (i.e., capable but not over-qualified) for 

the various tasks.

 Appropriate equipment by function (i.e., use of the least costly equipment capable of 

performing the function).

 Appropriate technology capable of supporting various onsite resource tasks.

 Have a multiagency commitment and approach to the establishment of effective 

budgeting to provide stable funding for TIM within the processes and capabilities of the 

individual and/or collective agencies as appropriate to the activity.

 Education and awareness partnerships including driver training and awareness.

3.4 TIM Program Tactical (Technical/

Operational) Capabilities

Tactical program elements provide the tools and technologies for 

traffic management and interagency communications for on-scene 

operations. Tactical elements include items such as on-scene traffic 

control procedures, motorist assist patrols and pre-staged response 

equipment. The following is a list of tactical components associated 

with a mature, comprehensive TIM program.

 Have “authority removal” laws allowing pre-designated responders to remove disabled 

or wrecked vehicles and spilled cargo:

 “Authority removal” law in place.

 Understood and utilized by responders.

 Have “driver removal” laws that require drivers involved in minor crashes (i.e., not 

involving injuries) to move vehicles out of the travel lanes:
36

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

 “Driver removal” law in place.

 Adequately communicated to motorists.

 Use a Safety Service Patrol (SSP) for incident and emergency response.

 Utilize multidisciplinary training such as the SHRP2 TIM National Training.

 Utilize the ICS on-scene.

 Have response equipment pre-staged for timely response.

 Identify and document resources to ensure that a list of towing and recovery operators 

(including operator capabilities and special equipment) is available for incident 

response and clearance.

 Identify and document resources to ensure that a list of hazardous materials (HazMat) 

contractors (including capabilities and equipment) is available for incident response.

 Give at least one responding agency the authority to override the decision to utilize the 

responsible party’s HazMat contractor and call in other resources.

 Have the medical examiner response clearly defined and understood for incidents 

involving fatalities.

 Have the electric utility companies’ role clearly defined for incidents involving downed 

electrical wires.

 Have procedures in place for expedited incident reconstruction/ investigation.

 Have a policy in place for removal of abandoned vehicles.

 Have “Move Over” laws that require drivers to slow down and if possible move over 

to the adjacent lane when approaching workers or responders and equipment in the 

roadway:

 “Move Over” law in place.

 Adequately communicated to drivers.

 Train all responders in traffic control following Manual on Uniform Traffic Control 

Devices (MUTCD) guidelines.

 Routinely utilize transportation resources to conduct traffic control procedures for 

various levels of incidents in compliance with the MUTCD.

 Routinely utilize traffic control procedures for the end of the incident traffic queue.

 Have mutually understood equipment staging and emergency lighting procedures 

onsite to maximize traffic flow past an incident while providing responder safety:

 Vehicle and equipment staging procedures.

 Light-shedding procedures.

 Personal Protective Equipment used by responders.

 Pre-established, signed incident investigation sites.

 Have procedures in place for prompt responder notification.
37

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Figure 12. Photo. NYSDOT Joint

Traffic Management Center. (Credit: VHB)

3.5 TIM Program Support (Financial/

Technological) Capabilities

Support program elements 

provide for the operational, 

tactical, and institutional support 

for effective communication and 

information exchange. Support 

elements include items such as 

communications systems, data 

and video collection and sharing, 

traveler information, and cost 

management and recovery. 

The following is a list of tactical 

components associated with 

a mature, comprehensive TIM 

program.

 Use a traffic management center (TMC)/traffic operations center (TOC) to coordinate 

incident detection, notification and response.

 Share data/video among agencies.

 Have specific policies and procedures for traffic management during incident response:

 Signal timing changes.

 Pre-planned detour and alternate routes identified and shared among agencies.

 Provide for interoperable, interagency communications onsite between incident 

responders.

 Have a real-time motorist information system providing incident specific information:

 Traveler information delivered via 511/website.

 Traveler information delivered via mobile applications.

 Traveler information delivered through traffic/news media partnerships and access to 

TMC/TOC information.

 Provide motorists with travel time estimates for route segments.

 Develop and implement cost recovery and management systems including:

 Costs recovery for the reimbursement for services from sources outside of the direct 

budget that funds the program seeking reimbursement.

 Cost management includes efforts to maximize the cost-benefit relationship 

of program activities via a cyclical loop of cost planning, tracking, analysis, and 

evaluation and reprogramming.
38

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

3.6 Checklist for a Comprehensive, 

Mature TIM Program

Table 6, Table 7, and Table 8 provide a comprehensive checklist that integrates the 

strategic, tactical, and support components identified in the previous three subsections. 

They are provided in this format to allow TIM program managers and participants an easy 

way to print/extract the tables and use them to identify the elements of a comprehensive 

program as well as to benchmark their progress and identify gaps.

It is clear that many of the components listed contain multiple elements and/or relate 

to activities that can be implemented to a variety of degrees. For example, one TIM 

strategic component relates to the need to have multiagency MOUs. It is possible that 

MOUs exist for on-scene roles and responsibilities but not for performance measures. 

Similarly, MOUs may exist between some TIM responders but not others. As a result, the 

tables are constructed in a manner similar to the FHWA TIM SA in that users may not 

only track elements that are implemented, but also identify the degree to which they are 

implemented; Low, Medium, or High according to the following criteria:

 Low (L) – Little to no activity in this area; no discussions or some informal discussions 

with no or minimal action taken.

 Medium (M) – There is some or good level of activity in this area; has been put into 

practice with some multiagency agreement and cooperation and with fair to good 

results.

 High (H) – Activity in this area is outstanding; efforts in this area are well coordinated 

with a high level of cooperation among agencies.

Table 6. Traffic Incident Management Program Strategic (Institutional) Components.

TIM Program Strategic (Institutional) Components Implementation Degree

L M H

Have a TIM multiagency team or task force which meets regularly to discuss and plan for TIM activities.

Conduct multiagency training held at least once a year on TIM-specific topics:

•	NIMS/ ICS 100.

•	TIM SHRP2 Training.

•	Training of mid-level managers from primary agencies on the NUG.

•	Traffic control.

•	Work zone safety.

•	Safe on-scene parking.

Conduct multiagency post-incident debriefings.

Develop and distribute summaries of after action reports.

Conduct planning for special events (PSEs):

•	Sporting events.

•	Concerts.

•	Festivals.

•	Conventions at permanent multi-use venues.

•	Public events at temporary venues such as parades, fireworks displays, bicycle races, sporting games.
39

Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Table 6. Traffic Incident Management Program Strategic (Institutional) Components.

TIM Program Strategic (Institutional) Components Implementation Degree

L M H

Conduct planning for construction and maintenance projects.

Have multiagency agreements/MOUs including:

•	Agreements/MOUs signed by top officials from participating agencies.

•	Clearly defined incident scene roles and responsibilities for each participating agency.

•	Clearly defined agency roles and responsibilities for planning and funding the TIM program.

•	Safe, quick clearance goals stated as time goals for incident clearance (e.g., 90 minutes) in the 

agreement/MOU.

Conduct planning to support the TIM activities across and among participating agencies 

including the MPO.

Have someone from at least one of the participating agencies responsible for coordinating the TIM 

program as their primary job function.

Have multiagency agreement on the two PM being tracked:

•	Roadway clearance time.

•	Incident clearance time.

Have established methods to collect and analyze the data necessary to measure performance in reduced 

roadway clearance time and reduced incident clearance time.

Have targets (e.g., time goals) for performance of the two measures.

Routinely review whether progress is made in achieving the targets.

Track performance in reducing secondary incidents.

Deploy effective and affordable TIM technology to support TIM activities including:

•	Incident detection.

•	Prompt and reliable responder notification.

Have 24/7 availability of key responders and equipment.

Develop and perform efficient and effective multiagency resource management based on the 

utilization of:

•	Appropriate personnel who are best qualified (i.e., capable but not over-qualified) for the various tasks.

•	Appropriate equipment by function (i.e., use of the least costly equipment capable of performing the 

function).

•	Appropriate technology capable of supporting various onsite resource tasks.

Have a multiagency commitment and approach to the establishment of effective budgeting to provide 

stable funding for TIM within the processes and capabilities of the individual and/or collective agencies as 

appropriate to the activity.

Education and awareness partnerships including driver training and awareness.

(cont.)
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Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Table 7. Traffic Incident Management Program Tactical (Technical/Operational) Components.

TIM Program Tactical (Technical/Operational) Capabilities Implementation Degree

L M H

Have “authority removal” laws allowing pre-designated responders to remove disabled or wrecked 

vehicles and spilled cargo:

•	“Authority removal” law in place.

•	Understood and utilized by responders.

Have “driver removal” laws that require drivers involved in minor crashes (i.e., not involving injuries) to 

move vehicles out of the travel lanes:

•	“Driver removal” law in place.

•	Adequately communicated to motorists.

Use a SSP for incident and emergency response.

Utilize the ICS on-scene.

Have response equipment pre-staged for timely response.

Identify and document resources so that a list of towing and recovery operators (including operator 

capabilities and special equipment) is available for incident response and clearance.

Identify and document resources so that a list of HazMat contractors (including capabilities and 

equipment) is available for incident response.

Give at least one responding agency the authority to override the decision to utilize the responsible 

party’s HazMat contractor and call in other resources.

Have the medical examiner response clearly defined and understood for incidents involving fatalities.

Have the electric utility companies’ role clearly defined for incidents involving downed electrical wires.

Have procedures in place for expedited accident reconstruction/ investigation.

Have a policy in place for removal of abandoned vehicles.

Have “Move Over” laws that require drivers to slow down and if possible move over to the adjacent lane 

when approaching workers or responders and equipment in the roadway:

•	“Move Over” law in place.

•	Adequately communicated to drivers.

Train all responders in traffic control following MUTCD guidelines.

Routinely utilize transportation resources to conduct traffic control procedures for various levels of 

incidents in compliance with the MUTCD.

Routinely utilize traffic control procedures for the end of the incident traffic queue.

Have mutually understood equipment staging and emergency lighting procedures onsite to maximize 

traffic flow past an incident while providing responder safety.

•	Vehicle and equipment staging procedures.

•	Light-shedding procedures.

•	PPE used by responders.

Pre-established, signed accident investigation sites.

Have procedures in place for prompt responder notification.
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Traffic Incident Management Gap Analysis Primer Components of a Successful Traffic Incident Management Program

Table 8. Traffic Incident Management Program Support (Financial/Technological) Components.

TIM Program Support (Financial/Technological) Components Implementation Degree

L M H

Use a TMC/TOC to coordinate incident detection, notification and response.

Share data/video between agencies.

Have specific policies and procedures for traffic management during incident response:

•	Signal timing changes.

•	Pre-planned detour and alternate routes identified and shared between agencies.

Provide for interoperable, interagency communications onsite between incident responders.

Have a real-time motorist information system providing incident-specific information:

•	Traveler information delivered via 511/ website.

•	Traveler information delivered via mobile applications.

•	Traveler information delivered through traffic/news media partnerships and access to TMC/TOC 

information.

Provide motorists with travel time estimates for route segments.

Develop and implement Cost Recovery and Management systems including:

•	Costs recovery for the reimbursement for services from sources outside of the direct budget that funds 

the program seeking reimbursement.

•	Cost management includes efforts to maximize the cost-benefit relationship of program activities via a 

cyclical loop of cost planning, tracking, analysis, and evaluation and reprogramming.

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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

ROLES AND RESPONSIBILITIES 

OF TRAFFIC INCIDENT 4 MANAGEMENT STAKEHOLDERS

The components of the traffic incident management (TIM) program as well as the 

multidisciplinary TIM partners have been identified in the previous chapter. This chapter 

provides the linkage between the different TIM roles and responsibilities, program 

components, and stakeholders. As indicated previously, there are many stakeholders 

involved in TIM, some with key daily roles and others with support roles under occasional 

circumstances. This chapter describes program involvement for nine stakeholders:

 Transportation.

 Law Enforcement.

 Fire and Rescue.

 Emergency Medical Services (EMS).

 Public Safety Communications.

 Emergency Management.

 Towing and Recovery.

 Hazardous Material (HazMat).

 Traffic Information Media.

The following subsections identify the various key stakeholders and their roles and 

responsibilities. Roles and responsibilities are generally identified and discussed in the 

context of the eight stages of TIM identified earlier in Chapter 1. This is done in a tabular 

checklist format to help stakeholders identify their roles and responsibilities as well as 

ascertain areas in which their program has gaps. In some cases, stakeholders have little or 

no direct role in TIM response and/or are rarely involved except under extreme or special 

circumstances. Therefore these individual support roles will not be listed in the tabular 

checklist. Rather, the responsibility overview and the general roles will be combined into 

one.

The last subsection of the chapter shows the relationship between the TIM components 

identified in Chapter 3, the stakeholders and their relative level of involvement/

responsibility in the component. This is presented in a matrix format.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

It should be noted that the bulk of the information contained in the tables and matrices 

in this chapter was obtained from two significant TIM resources, namely Federal Highway 

Administration (FHWA) Traffic Incident Management Handbook[10] and FHWA Emergency 

Transportation Operations website.[14]

4.1 Transportation

Responsibility Overview

Transportation agencies exist at the federal, State, local and tribal governmental 

levels. Definitions for both local and tribal governments have been added to the 

Glossary of Terms, in order to clarify their distinction and involvement in TIM efforts 

and activities. These agencies are typically responsible for the overall planning and 

implementation of TIM programs. Typically, these agencies are also involved in the 

development, implementation, and operation of traffic operations centers (TOCs), 

as well as the management of service patrols. In some areas the local metropolitan 

planning organization (MPO) plays a leadership role in TIM planning, policy and 

program management, while the transportation agencies focus on TIM operations and 

management.

Within transportation agencies, it is the operational sections—traffic management centers 

(TMCs), maintenance field staff, and service patrols—that play a critical role in TIM. TMCs 

serve as the hub for the collection and dissemination of incident information and play a 

critical role with incident detection and verification. At the incident scene, transportation 

agency responders focus on temporary traffic control (TTC), expedite scene clearance, and 

restore traffic flow. Transportation agency responders include maintenance personnel and 

specialized traffic incident responders, such as service patrol personnel.

Table 9. Checklist for Traffic Incident Management 

Responsibilities of Transportation Stakeholders.

Specific Roles by Transportation Agencies and Service Patrols Checklist

Assist in incident detection and verification.

Initiate traffic management strategies on incident impacted facilities.

Protect the incident scene.

Initiate emergency medical assistance until help arrives.

Provide traffic control.

Assist motorist with disabled vehicles.

Provide motorist information.

Provide sand for absorbing small fuel and anti-freeze spills.

Provide special equipment used for clearing incident scene.

Determine incident clearance and roadway repair needs.

Establish and operate alternate routes.

Coordinate clearance and repair resources.

Serve as incident commander for clearance and repair functions.

Repair transportation infrastructure.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

4.2 Law Enforcement

Responsibility Overview

Law enforcement agencies include State police and highway patrols, county police 

and county sheriffs, township and municipal police and other agencies that have 

officers sworn to enforce laws. Law enforcement agencies are emergency responders at 

traffic incident scenes, providing 24-hour emergency response and operating under a 

paramilitary command structure.

Upon arrival, the first officer on-scene assesses the situation and calls for additional 

resources (e.g., fire/rescue, EMS, utilities, and towing and recovery, among others) as 

needed. The officer secures the scene for responder and motorist safety, and conducts 

traffic control as necessary. Law enforcement also conducts scene investigation and/or 

evidence collection as dictated by the type of incident scene and severity. At most traffic 

incidents, law enforcement officers act alone and are trained to make unilateral command 

decisions.

4.3 Fire and Rescue

Responsibility Overview

Fire and rescue services are provided by county and municipal fire departments, and 

by surrounding fire departments through mutual aid agreements. In most jurisdictions, 

the fire department is the primary emergency response agency for HazMat spills. Like 

law enforcement agencies, fire and rescue departments also operate as emergency 

responders under a well-defined command structure providing 24-hour emergency 

response. Unlike law enforcement, who operate individually for most duties, fire 

departments operate under a highly organized team structure with the close supervision 

of a commanding officer. Typically, fire departments and EMS providers also act under 

the direction of one decision maker, and may not respond individually to requests from 

other response agencies unless their command officer directs them to do so. In most large 

urban areas, full time professional personnel staff the fire and rescue departments. In 

Table 10. Checklist for Traffic Incident Management

Responsibilities of Law Enforcement Stakeholders.

Specific Roles by Law Enforcement Officials Checklist

Secure the incident scene.

Provide emergency medical aid until help arrives.

Safeguard personal property.

Conduct incident investigations.

Serve as incident commander.

Supervise scene clearance.

Assist disabled motorists.

Direct traffic.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

many suburban and in most rural areas, volunteers primarily provide fire, rescue services 

and EMS.

In some cases, fire and rescue personnel may be the first to arrive at the incident 

scene. Upon arrival, fire and rescue personnel secure the scene to protect responders 

and motorists. After securing the scene, these personnel assess injured parties, and if 

warranted, request EMS support. Fire and rescue personnel provide first aid until EMS 

personnel arrive (if requested). Fire and rescue personnel address any fire or potential 

fire hazards and assist in scene recovery. In most locations, they also assess the scene for 

HazMat and notify remediation or cleanup contractors, as needed.

4.4 Emergency Medical Services

Responsibility Overview

The primary responsibility for EMS is to assess injuries, administer triage on-scene as 

needed, and quickly remove injured parties for transport to medical facilities for additional 

care. In those areas of the country where EMS is a fire service-based function, the fire and 

rescue personnel provide EMS functions.

Table 11. Checklist for Traffic Incident Management

Responsibilities of Fire and Rescue Stakeholders.

Specific Roles by Fire and Rescue Services Checklist

Protect the incident scene.

Suppress fires.

Provide emergency medical care.

Serve as incident commander.

Provide initial HazMat response and containment.

Rescue crash victims from contaminated environments.

Rescue crash victims from wrecked vehicles.

Arrange transportation for the injured.

Assist in incident clearance.

Table 12. Checklist for Traffic Incident Management Responsibilities

of Emergency Medical Services (EMS) Stakeholders.

Specific Roles by Emergency Medical Services Checklist

Provide advanced emergency medical care.

Determine destination and transportation requirements for the injured.

Coordinate evacuation with fire/rescue, police and ambulance or airlift.

Serve as incident commander for medical emergencies.

Determine approximate cause of injuries for the trauma center.

Remove medical waste from incident scene.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

4.5 Public Safety Communications/E911

Responsibility Overview

E911 personnel are normally the first to have knowledge that an incident has occurred. The mission 

of dispatchers is to convey quickly, accurately, and completely the necessary information to the 

proper agencies and field personnel to get the right personnel and equipment to the scene as 

quickly as possible. E911 personnel normally begin the data collection on an incident by recording 

information in a computer aided dispatch (CAD) system.

Call takers route emergency calls to appropriate dispatch. In some areas, all public safety 

emergency calls (i.e., police, fire and rescue, and emergency medical) are handled in one joint 

center with call takers sending calls to appropriate agency dispatch depending on the nature of 

the call. In smaller urban areas and in many rural areas, call takers may also dispatch public safety 

response. Most larger urban areas have E911 capabilities so that call takers can obtain the location 

of landline 911 calls. Many rural areas do not yet have E911.

4.6 Emergency Management

Responsibility Overview

When the scope and severity of an incident escalates, State and local emergency management 

agencies may be called upon to direct and/or participate in incident response as part of the overall 

response to major emergencies. These types of responses could be precipitated by man-made or 

natural disasters, such as fire, earthquakes, floods, hurricanes, or other weather events.

State and local governments have agencies whose duties are to plan for and coordinate 

multiagency response to large scale emergencies such as natural and man-made disasters. They 

have specific responsibilities under both federal and State law. Large highway incidents rarely 

activate emergency response plans unless they necessitate evacuation due to a spill or presence of 

HazMat. Emergency management agencies maintain lists of the location of many public and private 

sector resources that might be needed in a major emergency. These lists and contacts for activating 

resources are valuable tools in planning multiagency response to major highway incidents.

Table 13. Checklist for Traffic Incident Management Responsibilities

of Public Safety Communications/E911 Stakeholders.

Specific Roles by Emergency Medical Services Checklist

Receive incident notification call and verify as necessary.

Accurately relay incident information and/or dispatch appropriate responders.

Log incident information into CAD or other systems.

Table 14. Checklist for Traffic Incident Management Responsibilities

of Emergency Management Stakeholders.

Specific Roles by Emergency Management Checklist

Maintain lists of the location of many public and private sector resources.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

4.7 Towing And Recovery

Responsibility Overview

The towing and recovery personnel primarily remove disabled vehicles, clear incident debris, 

and clean up spilled cargo. Towing and recovery companies are secondary responders 

operating under a towing arrangement usually maintained by a law enforcement agency.

 Towing and recovery arrangements generally fall under one of two major types – rotation 

or contract. In rotation towing, a police department will maintain a list of pre-qualified 

companies and will rotate the calls of those companies. In many locations, rotation lists are 

classified by specific company capabilities so that a company with only automobile towing 

equipment does not get called to a truck incident. Rotation lists may also be maintained 

by location zones so that companies closer to the incident scene will get called. In contract 

towing, companies are contracted to provide specific on call services. The contracts are often 

awarded through a bidding process. The qualification requirements to bid may be more rigid 

than requirements for placement on a rotation list. Contracts may also be awarded on a zone 

basis to help enable response by the closest qualified company.

4.8 Hazardous Material

Responsibility Overview

HazMat contractors operate in a number of regions in the United States. They are hired 

by emergency or transportation authorities to clean up and dispose toxic or hazardous 

materials. Usually small quantities of common engine fluid spills (e.g., oil, diesel fuel, gasoline, 

and/or anti-freeze) can be contained and cleaned up without calling HazMat contractors.

When the incident scene involves HazMat that require response and cleanup beyond the 

capabilities provided by fire and rescue resources, specialized HazMat contractors are 

dispatched to the incident scene. Their primary responsibility is to remove the HazMat and 

mitigate additional risks from the continuous release of such material into the environment.

Table 15. Checklist for Traffic Incident Management

Responsibilities of Towing and Recovery Stakeholders.

Specific Roles by Towing and Recovery Services Checklist

Recover and remove vehicles from incident scene.

Protect victims' property and vehicles.

Remove debris from the roadway.

Provide other services, such as traffic control, as directed or under contract.

Table 16. Checklist for Traffic Incident Management

Responsibilities of Hazardous Material Stakeholders.

Specific Roles by HazMat Contractors Checklist

Remove the HazMat.

Mitigate additional risk from the continuous release of the HazMat.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

4.9 Traffic Information Media

Responsibility Overview

Traffic Information Service Providers (ISP) are primarily private sector companies that 

gather and disseminate traffic condition information. These private providers are the 

primary source of information for commercial radio traffic information broadcasts, the 

most common source of traffic information for motorists. These companies also package 

specific information on a route or time of day basis to paying clients who subscribe for 

the information. In recent years, many internet sites have been created to provide road 

condition and traffic information. A mixture of public sector agencies and private ISP 

maintains these sites.

In 2000, the Federal Communications Commission (FCC) approved 511 as a national traffic 

information telephone number. A number of States and regions now provide robust traffic 

information through a 511 number. In some cases this activity is contracted to a private 

traffic information service provider. In other cases, the data from public sector operated 

511 systems is shared with the ISP and/or provided directly to smart phones to expand the 

availability of the information.

4.10 TIM Responsibilities Matrix

Chapter 3 identified the components of a comprehensive, mature TIM program as well 

as the key stakeholders involved in the program. Table 18 complements that chapter 

by providing the level of involvement needed by each TIM stakeholder in each of the 

individual TIM components.

Note that the table has been developed to represent a typical TIM program. As always, 

there are unique situations in many areas that would affect the various levels of 

involvement. In particular, in some areas a particular stakeholder takes a leadership role 

in components that might otherwise be led by another stakeholder. This is particularly 

true in components related to issues such as policy development, legislation, or outreach. 

It is important that each TIM program be adapted to the local environment and take 

advantage of any local champions, who can encourage the institutionalization of TIM 

throughout the various disciplines. Accordingly, it is recommended that each local area 

use the table as a starting point, but adapt the roles and responsibilities as well as the 

“primary” and secondary” designations to meet local needs and capabilities.

Table 17. Checklist for Traffic Incident Management

Responsibilities of Traffic Information Media Stakeholders.

Specific Roles by Traffic Information Media Checklist

Gather and disseminate traffic conditions information to travelers.

Maintain a website to provide road condition and traffic information and/or link to the 

transportation agency website for such.

In areas where 511 service is contracted/privatized, provide robust traffic information 

through a 511 number.
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

Table 18. Traffic Incident Management Key Stakeholder Roles and Responsibilities Matrix.

P: Primary S: Secondary

Components of a Successful TIM Program

TransportationLaw EnforcementFire and RescueEMSPublic Safety CommunicationsEmergency ManagementTowing and RecoveryHazardous MaterialsTraffic Information Media

Strategic (Institutional)

TIM multiagency team or task force P P P

S S S S S S S

Multiagency training P P P S S S S S S

Multiagency post-incident debriefings P P S S S S S S S

PSEs P P S S S S S S S

Multiagency agreements/memoranda on incident scene roles and responsibilities; 

planning for and funding for the TIM program; and safe, quick clearance goals P P P P S S S S

Planning to support the TIM activities P S S S S S S S S

Designated point person for TIM – primary activity P P S S S S S S

Multiagency agreement on incident PM P P P S S S S S

Collect and analyze data related to roadway response and clearance times P P P S S S S S

Have targets (i.e., time goals) for roadway response and clearance times P P P P S S S S

Routinely review whether progress is made in achieving the targets P P P S S S S S

Track performance in reducing secondary incidents P P S S S S S S

Deploy effective and affordable TIM technology P P S S S S S S S

Have 24/7 availability of key responders and equipment P P P P P P P P

Develop and perform multiagency resource management P P P S S S S S

Perform effective TIM budgeting P P S S S S S S

Education and awareness partnerships P P P P S S S S S

Tactical (Technical/ Operational)

Have “authority removal” laws in place and understood P P P S S S S S

Have “driver removal” laws in place and understood P P P S S S S S

SSP for incident response P S S S S S S

Utilize the ICS P P P P S P S S

Have response equipment pre-staged P S S S S S S S

Identify type of towing and recovery P P P S S S P S

Identify type of HazMat P P P P S S S P

One responding agency has authority to override the decision to utilize the 

responsible party’s HazMat contractor and call in other resources P P P P S S S P

Medical examiner response is clearly defined and understood for incidents involving 

fatalities S P P P S S S S

Have the electric utility companies’ role clearly defined for incidents involving 

downed electrical wires S S S S S P

Procedures in place for expedited accident reconstruction/ investigation S P S S S S S S

Policy in place for removal of abandoned vehicles P P S S S S S S

“Move Over” laws in place and understood P P P S S S S S

All responders trained in MUTCD traffic control guidelines P P P S S S S S

Utilize transportation resources to conduct MUTCD compliant traffic control for 

various levels of incidents P S S S S S S S

Routinely utilize traffic control procedures P P P P S S P P

Have mutually understood equipment staging and emergency lighting procedures P P P S S S S S

Have procedures in place for prompt responder notification P P P P P P P P S
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Traffic Incident Management Gap Analysis Primer Roles and Responsibilities of Traffic Incident Management Stakeholders

Table 18. Traffic Incident Management Key Stakeholder Roles and Responsibilities Matrix.

P: Primary S: Secondary

Components of a Successful TIM Program

TransportationLaw EnforcementFire and RescueEMSPublic Safety CommunicationsEmergency ManagementTowing and RecoveryHazardous MaterialsTraffic Information Media

Support (Financial/ 

Technological)

TMC/TOC coordinates incident detection, notification and response P S S S S S S S

Share data/video between agencies P S S S S S S S S

Have specific policies and procedures for traffic management during incident 

response

P P P P S P P P

Provide for interoperable, interagency communications onsite between incident 

responders P P P P S S S S

Have a real-time motorist information system providing incident-specific information P S S S S S S S P

Provide motorists with travel time estimates for route segments P S S S S S S S P

Develop and implement cost recovery and management systems P P P S S S S S

(cont.)

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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

TRAFFIC INCIDENT 

MANAGEMENT PROGRAM 

WITHIN TRANSPORTATION 

OPERATIONS PROGRAM

5

This chapter examines the manner in which traffic incident management (TIM) programs 

are implemented within the structure and resources of a typical transportation 

department.

It begins by presenting information on the process for establishing a TIM program. 

Then, an overview of the major organizational areas within a typical State Department 

of Transportation (DOT) that need to be involved in supporting a comprehensive TIM 

program are identified along with their required roles. The chapter also identifies key 

transportation operation staff needed to implement and support the program as well 

as their functional roles. This will help identify the level of involvement of different 

transportation department staff within the different TIM-related activities, in addition to 

the new roles and positions that need to be fully dedicated to the TIM program. In order to 

reinforce the efficiency of the TIM program components, example TIM success story of the 

New York State TIM program will be presented with more focus on the common elements 

that can be transferred to other TIM programs.

5.1 Steps for Establishing a TIM Program

Transportation departments typically play a lead role in the establishment and 

implementation of local/regional TIM programs. Within the transportation departments, it 

is typically staff assigned to traffic and safety or traffic operations that takes the leadership 

role in establishing the program.

Chapter 10 of the Federal Highway Administration (FHWA) Freeway Management and 

Operations Handbook[6] defines an 8-step process for implementing a successful TIM 

program. The steps are summarized as follows:

 Identify Stakeholders: Critical to the success of a TIM program is the development of 

a cooperative consensus among the various stakeholders. Therefore the first step is to 

identify the relevant stakeholders. Once these stakeholders commit to establishing a 

TIM program, they can sponsor a TIM task force that meets periodically to guide and 

enhance the program.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

 Define the Problem: Before identifying, or selecting a solution, a clear understanding 

of the severity, impacts, and locations of incident-related problems is required. Problem 

definition can be accomplished through a combination of data collection, data 

compilation, brainstorming, and constructive critiques of existing practices.

 Set Goals and Objectives: The TIM Task Force should establish guiding principles 

for program development. These “guiding principles” most often take the form of a 

mission statement, backed up by goals and objectives and based on the identified 

problems. Simply stated, goals and objectives describe what the program is designed to 

accomplish. Goals and objectives need to be multiagency in scope; not merely the goals 

and objectives of individual agencies.

 Develop Alternatives: TIM programs consist of many individual practices, tools and 

infrastructure elements. Based on the goals and objectives, the group can develop 

alternatives to combine available TIM tools and techniques into program packages for 

evaluation.

 Evaluate and Select Alternatives: The developed alternatives can be evaluated using 

high-level estimates of costs, expected benefits of each alternative, and prioritization.

 Implement Alternatives: It is at the point of implementation that mechanisms for 

resolving many of the issues of incident management must be developed. These issues 

may include: funding sources, jurisdictional boundaries, operational responsibilities, 

joint training, field communications, onsite command and approval of alternate routes.

 Reevaluate Alternatives: TIM is an ongoing process, one that must take into account 

changes in the local operational, technological, political, and funding environment. 

Effective program evaluation and the subsequent revaluation of alternatives to refocus 

or refine an existing system require the routine collection of appropriate data (e.g., 

detection time, response time, clearance time, delay and costs).

 Refine the System: To continuously improve and adapt a TIM program, effective 

feedback is needed both from upper management and field-level personnel. Genuine 

communication and coordination on both levels will continue to improve the TIM 

process, adapt to the area’s changing needs and meet the needs of the participating 

agencies, affected jurisdictions and the motoring public.

Furthermore, the I-95 Corridor Coalition Toolkit for Safe, Quick Clearance contains a more 

implementation oriented roadmap for developing a TIM program, as follows:[1]

 Establish your baseline - where is your jurisdiction regarding statutes, policies, and 

procedures? Where does executive leadership stand?

 Identify quick clearance counterparts in each pertinent State/local discipline and 

contact them. Hold a quick clearance kick-off team meeting to start establishing 

relationships.

 Identify champions who can encourage the institutionalization of TIM throughout the 

various disciplines and select/recruit 1-2 to lead the overall effort.

 Identify roles and responsibilities.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

 Create an Open Roads policy.

 Maintain frequent update communications with the entire team (e.g., emails and/or 

conference calls).

 Develop Concept of Operations - National Incident Management System (NIMS)/ 

National Unified Goal (NUG)-compliant, integrated quick clearance operations.

 Execute operational memorandum of understanding (MOUs).

 Enable interagency communications and information exchange, as applicable, regional/

corridor-wide.

 Implement a training and certification program, including NIMS/NUG compliant 

interdisciplinary training, for all TIM responders.

 Educate the traveling public.

 The finish line - implement multidisciplinary NIMs/NUG-compliant, accredited TIM 

Team(s) and associated Field Operational Procedures for quick clearance.

5.2 Transportation Operations 

Organization/Program Overview

As indicated previously, responsibility for establishing and supporting the ongoing 

operation of a TIM program is typically assigned to a traffic and safety/traffic operations 

entity within the overall DOT organization. However, the numerous elements of the 

program make it nearly impossible for these entities to provide the total support needed. 

Rather, support is needed from a number of other program areas within the organization. 

Engaging the other program areas not only helps provide the staff effort needed, but also 

leads to a more effective and stable program since other program areas are involved on an 

ongoing basis.

There are numerous ways in which State DOTs and traffic and safety/traffic operations 

entities are organized such that it is nearly impossible to show a “typical” structure. 

However, within these diverse approaches there are many commonalities that can be 

identified.

Table 19 identifies functional areas within a State DOT that need to be engaged in TIM 

as well as the areas in which they can provide support. The functional areas are largely 

based upon the organization of the New York State DOT case study, presented later in this 

chapter.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

Table 19. Traffic Incident Management Program within Transportation Operations Program.

DOT Organizational 

Entity TIM Development/Support Role

Traffic and Safety/Traffic 

Operations

Lead the development and ongoing activities of the TIM program including the establishment of a TIM 

Task Force, coordination with stakeholders as well as TIM program strategic plans, goals, objectives and 

performance measures (PM).

Lead the development of interagency TIM operational agreements.

Lead or support, as appropriate to the item, the development of policies, laws.

Lead TIM training in the department.

Implement, manage and operate traffic operations elements to support TIM such as traffic management 

centers (TMCs), service patrols and motorist information systems.

Gather and analyze data related to TIM operations as needed for performance measurement.

Lead the ongoing activities of the TIM Task Force including regular meetings.

Lead/participate in post incident debriefings. Create a chronology of the event occurrence, evolution and 

actions; identify what went right/wrong and areas for improvement; create an action plan for improvement 

implementation.

Develop routine reporting on TIM program progress including PM and strategic plan implementation.

Lead the development and implementation of TIM budgeting and financing.

Lead the development and implementation of TIM resource management and cost recovery systems; 

implement resource management and cost recovery within the program.

Planning

Support planning elements of TIM such as development of strategic plans.

Support coordination with the local metropolitan planning organization (MPO) on incorporating TIM into 

MPO budgeting and processes.

Design/Engineering Support the design of intelligent transportation systems (ITS) that enable effective TIM such as detection, 

closed-circuit television (CCTV), or dynamic message sign (DMS).

Information Technology

Support the development and implementation of effective information technology standards and policies 

into TIM-related technologies; support the design, implementation and operation of systems and networks 

to share TIM related data and CCTV.

Maintenance/Fleet 

Management

Support the deployment and maintenance of TIM-related equipment and devices such as portable DMS, 

response trucks, cones, incident response trailers, or service patrol trucks.

Contracts/Purchasing

Support the procurement of TIM-related equipment such as portable DMS, response trucks, cones, incident 

response trailers, or service patrol trucks.

Support the procurement of TIM-related services such as service patrols and towing.

Budget/Finance Support the development of budgets and funding needed for TIM program elements.

Support the development of effective cost recovery and management systems.

Legal Support the development of TIM interagency agreements.

Support the development of TIM-related laws such as “Move Over”.

Public Transportation Coordinate with public transportation agencies to enhance knowledge of and support for TIM.

Motor Carrier Coordinate with commercial vehicle entities to enhance knowledge of and support for TIM.

Public Information Support the development and implementation of outreach and awareness programs related to TIM.

Environmental Support TIM efforts related to hazardous materials (HazMat) activities.

Asset Management Support the development and implementation of effective resource management systems related to TIM.

It should be noted that in many cases, State DOTs are not organized to implement 

the most effective transportation operations programs, including TIM. The FHWA has 

worked closely with Transportation Research Board (TRB) and American Association of 

State Highway and Transportation Officials (AASHTO) to develop a series of documents 

and tools that will help transportation agencies identify what changes in processes and 
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organization are needed to move their operations and management program in the 

direction of improved effectiveness and efficiency.

A key element of this effort was the development of a specific guidance framework. The 

framework is called the Capability Maturity Model (CMM)and is based on self-evaluation 

regarding the key process and institutional capabilities required from a transportation 

agency (or group of agencies) to achieve effective operations and management.[15]

In order to bring the benefits of the CMM efforts to the TIM practice, FHWA has included 

a task in their FFY14 Work Program titled “Assess Self-Assessment Tool vis-à-vis Capability 

Maturity Model Tool & Develop Action Plan”. Under this task the FHWA’s Office of 

Transportation Management will work with the SHRP2 L06 product to integrate the TIM SA 

into the SHRP2 CMM products.[16]

5.3 Tim Involvement of 

Transportation Operations Staff

Just as there is no “one way” to organize for TIM, there is also no “one way” to staff for 

it. However, it is possible to create a generic staffing pattern and relate that to the 

TIM development/support roles involved in the program. It is noteworthy that the 

development of the generic staffing pattern does not specify the number of staff 

related to the function, and it also assumes that the staff will obtain support from other 

department entities as described in Table 19. The staffing functions to support TIM within 

traffic operations is based upon the structure presented in Table 20.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

Table 20. Transportation Operations Staff Traffic Incident Management Involvement.

Staffing Component TIM Function

ITS Program Manager

This position represents a single person responsible for the entire ITS program. The overall ITS program may 

include activities such as advanced traffic management system planning, design and deployment, program 

management of TMCs and ITS policy development. Managing and supporting TIM is only a part the ITS 

program manager’s responsibilities.

TIM Program Manager 

and Staff

The TIM program manager is a single person whose full time job is to manage, coordinate, and implement the 

TIM program.

A large part of the TIM program manager’s time will be spent developing, implementing and monitoring the 

overall program, coordinating with stakeholders, leading policy and strategic elements of the program and 

assessing performance.

The TIM program manager will also coordinate closely with the other staffing components within traffic 

operations as well as other entities within the department.

The TIM program manager will have staff if the program size calls for it. Larger programs such as those 

involving multiple deployment areas or large numbers of trucks and many miles of coverage will need 

significant staff.

Staff will support the TIM program manager in all functions but will likely take the lead at the staff level 

on many functions such as specific policy development, performance measurement, resource and cost 

management, budgeting, and TIM task team support.

TMC Operations Manager 

and Staff

The TMC operations manager is a single person who oversees the operation of the TMC on a full time basis.

Support staff for the TMC operations manager will likely include:

•	Operators.

•	Program support.

•	Field support.

TIM support is an important but part time effort for the TMC manager. His effort will be focused on the 

operations side of TIM (e.g., detection, verification, and response) but he will also be involved in oversight of 

data collection and PM.

The TMC manager may be personally involved in the TIM Task Team and provide leadership in certain areas 

where the TMC is a primary player.

The TMC manager’s staff will provide considerable support to TIM, especially the program support staff, in 

areas such as data collection, PM, response policies and interagency coordination.

Service Patrol Manager 

and Staff

The service patrol manager will provide part-time support to the TIM program manager in pertinent TIM areas 

such as strategy and policy. The service patrol manager will provide leadership in areas that pertain directly to 

service patrols, such as service patrol support at the incident scene.

Service patrol staff will provide occasional support to the TIM program/program manager in areas such as field 

staff input into response policies or after action reports. 

Incident Response Team 

(IRT) Manager and Staff

The IRT manager will provide part-time support to the TIM program manager in pertinent TIM areas such 

as strategy and policy. The IRT manager will provide leadership in areas that pertain directly to IRTs, such as 

deployment of response and traffic control equipment at the scene.

IRT staff will provide occasional support to the TIM program/program manager in areas such as field staff input 

into response policies or after action reports.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

Table 21 contains the matrix relationship between TIM activities and the level of effort and 

support role that the various staffing components provide. In addition, Table 22 replicates 

a blank copy of the matrix that can be utilized by the readers for their program-specific 

TIM gap analysis.

Table 21. Traffic Incident Management Activities and Transportation Operations Staff Matrix.

P: Primary

S: Secondary

TIM Involvement / Support RoleITS Program ManagerTIM Program Manager/StaffTMC Operations Manager/StaffService Patrol Manager/OperatorsResponse Team Manager/Staff

Lead the development and ongoing activities of the TIM program including the establishment of a TIM Task Force, 

coordination with stakeholders as well as TIM program strategic plans, goals, objectives and PM. S P S S S

Lead the development of interagency TIM operational agreements. S P S S S

Lead or support, as appropriate to the item, the development of policies, laws. S P S S S

Lead the TIM training in the department. S P S S S

Implement, manage and operate traffic operations elements to support TIM such as TMCs, service patrols and 

motorist information systems. S S P S S

Gather and analyze data related to TIM operations as needed for performance measurement. S P P S S

Lead the ongoing activities of the TIM Task Force including regular meetings. S P S S S

Lead/participate in post incident debriefings. S P S S S

Develop routine reporting on TIM program progress including PM and strategic plan implementation. S P P S S

Lead the development and implementation of TIM budgeting and financing. S P S S S

Lead the development and implementation of TIM resource management and cost recovery systems; implement 

resource management and cost recovery within the program. S P S S S

Support planning elements of TIM such as development of strategic plans. S P S S S

Support coordination with the local MPO on incorporating TIM into MPO budgeting and processes. S P S S S

Support the design of ITS systems that enable effective TIM such as detection, CCTV, or DMS. S P P S S

Support the development and implementation of effective IT standards and policies into TIM-related technologies; 

support the design, implementation and operation of systems and networks to share TIM related data and CCTV. S P S S S

Support the deployment and maintenance of TIM-related equipment and devices such as portable DMS, response 

trucks, cones, incident response trailers, or service patrol trucks. S P S P P

Support the procurement of TIM-related equipment such as portable DMS, response trucks, cones, incident 

response trailers, or service patrol trucks. S P S S P

Support the procurement of TIM-related services such as service patrols, towing. S P S P P

Support the development of budgets and funding needed for TIM program elements. S P S S S

Support the development of effective cost recovery and management systems. S P P S S

Support the development of TIM interagency agreements. S P S S S

Support the development of TIM-related laws such as “Move Over”. S P S S S

Coordinate with public transportation agencies to enhance knowledge of and support for TIM. S P S S S

Coordinate with commercial vehicle entities to enhance knowledge of and support for TIM. S P S S S

Support the development and implementation of outreach and awareness programs related to TIM. S P S S S

Support TIM efforts related to HazMat activities. S P S S S

Support the development and implementation of effective resource management systems related to TIM. S P S S S
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Table 22. Blank Traffic Incident Management Activities and Transportation Operations Staff Matrix.

P: Primary

S: Secondary

TIM Involvement / Support Role

ITS Program ManagerTIM Program Manager/StaffTMC Operations Manager/StaffService Patrol Manager/OperatorsResponse Team Manager/Staff

Lead the development and ongoing activities of the TIM program including the establishment of a TIM Task Force, 

coordination with stakeholders as well as TIM program strategic plans, goals, objectives and PM.

Lead the development of interagency TIM operational agreements.

Lead or support, as appropriate to the item, the development of policies, laws.

Lead the TIM training in the department.

Implement, manage and operate traffic operations elements to support TIM such as TMCs, service patrols and 

motorist information systems.

Gather and analyze data related to TIM operations as needed for performance measurement.

Lead the ongoing activities of the TIM Task Force including regular meetings.

Lead/participate in post incident debriefings.

Develop routine reporting on TIM program progress including PM and strategic plan implementation.

Lead the development and implementation of TIM budgeting and financing.

Lead the development and implementation of TIM resource management and cost recovery systems; implement 

resource management and cost recovery within the program.

Support planning elements of TIM such as development of strategic plans.

Support coordination with the local MPO on incorporating TIM into MPO budgeting and processes.

Support the design of ITS systems that enable effective TIM such as detection, CCTV, or DMS.

Support the development and implementation of effective IT standards and policies into TIM-related technologies; 

support the design, implementation and operation of systems and networks to share TIM related data and CCTV.

Support the deployment and maintenance of TIM-related equipment and devices such as portable DMS, response 

trucks, cones, incident response trailers, or service patrol trucks.

Support the procurement of TIM-related equipment such as portable DMS, response trucks, cones, incident 

response trailers, or service patrol trucks.

Support the procurement of TIM-related services such as service patrols, towing.

Support the development of budgets and funding needed for TIM program elements.

Support the development of effective cost recovery and management systems.

Support the development of TIM interagency agreements.

Support the development of TIM-related laws such as “Move Over”.

Coordinate with public transportation agencies to enhance knowledge of and support for TIM.

Coordinate with commercial vehicle entities to enhance knowledge of and support for TIM.

Support the development and implementation of outreach and awareness programs related to TIM.

Support TIM efforts related to HazMat activities.

Support the development and implementation of effective resource management systems related to TIM.
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

Figure 13: Photo. NYSDOT Bi-monthly

TIM Steering Committee Meeting. (Credit: VHB)

5.4 Example TIM Success 

Story – NYSDOT TIM 

Program

Traffic incidents continue to be an important 

issue in New York State (NYS) because they are 

a significant cause of congestion delays that 

motorists encounter daily. In response to this 

continuous problem, the NYSDOT fostered the 

development of a statewide TIM program. In 2008, 

NYSDOT committed to formalizing the TIM program 

through the formation of a NYS TIM Steering 

Committee to oversee the advancement of the 

program. The NYS TIM Steering Committee consists 

of stakeholders from various member agencies 

within NYS who represent incident responders as well as private entities that have a 

vested interest in TIM. The first organizational meeting was held in Albany, NY in March 

2009. Since then, the NYS TIM Steering Committee has continued to meet generally on a 

bi-monthly basis. Current members of the Committee include:

 Empire State Towing and Recovery Association (ESTRA).

 Federal Highway Administration (FHWA), New York Division.

 Fire Department of New York (FDNY).

 Metropolitan Transportation Authority (MTA) Bridges and Tunnels.

 New York State Association of Chiefs of Police (NYSACOP).

 New York State Association of Fire Chiefs (NYSAFC).

 New York State Department of Health (NYSDOH) Bureau of Emergency Medical Services 

(BEMS).

 New York State Division of Homeland Security & Emergency Services (NYSDHSES) Office 

of Fire Prevention and Control (OFPC).

 New York State Department of Transportation (NYSDOT).

 New York State Division of Homeland Security & Emergency Services (NYSDHSES) Office 

of Emergency Management (OEM).

 New York State Fire Coordinators’ Association (NYSFCA).

 New York State Police (NYSP).

 New York State Sheriffs Association (NYSSA).

 New York State Thruway Authority (NYSTA).

In addition to this statewide Committee, an Executive TIM Steering Committee was also 

founded in NYS in 2013. The Executive Committee includes the individuals who are the 
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Traffic Incident Management Gap Analysis Primer Traffic Incident Management Program within Transportation Operations Program

Figure 14: Photo. NYSDOT TIM Responder Training. 

(Credit: VHB)

decision makers from the Steering Committee 

agencies. This committee has met in 2013 and 

2014 at the NYS Executive Summit to discuss 

the progress of the TIM program throughout the 

year, and determine what support is needed from 

the Executive Committee regarding policies and 

procedures and how these policies/procedures can 

be implemented within each member’s respective 

agency.

To assist with the implementation of the overall 

program a NYS TIM plan was developed in April 

2010 to outline the necessary elements and 

improvements needed to develop and maintain 

a robust TIM program. Topics outlined in the 

plan included TIM program goals, roles and 

responsibilities of TIM stakeholders, current TIM initiatives, and a TIM action matrix.

The purpose of this plan was to provide a framework for agencies to organize and conduct 

current and future incident management efforts, and to evolve these efforts into a formal 

long-term sustained program. The plan was updated in September 2012 and again in 

December 2013 to reflect the current thinking of the NYS TIM Steering Committee and the 

progress made since 2010.

For the continued success of the NYS TIM program, actions were needed to address some 

of the current issues and gaps. With the support of the NYS TIM Steering Committee, an 

Action Plan Matrix was developed that organized these issues into the 18 NUG strategies. 

The purpose of this Action Plan Matrix is to be used as a reporting mechanism to update 

the status of each issue and who should lead the effort to ensure that any outstanding 

issue is addressed. Every time the TIM plan has been updated, the matrix has been 

reviewed and updated periodically for optimum effectiveness.

This TIM plan was one of many accomplishments of the NYSDOT TIM program. Other 

accomplishments include:

 Formation of NYS TIM Steering Committee, including:

 NYS TIM Steering Committee Commitment of Cooperation.

 NYS TIM Steering Committee Charter.

 Formation of NYS Executive TIM Steering Committee.

 Emergency Traffic Control & Scene Management Quick Reference Visor Card.

 Half-Day TIM Training Course for NYSDOT personnel.

 Full-Day TIM Training Course for emergency responders including a tabletop exercise.

 Development of a NYS TIM Self-Assessment Tool.

 Development of a NYS TIM website.
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Figure 17: Photo. NYS Office of Fire 

Prevention and Control (OFPC) 

Incident Management Trailer.[17]

Figure 15: Photo. NYSDOT TIM Team.[17]

There are also a number of initiatives that are in support of NYS TIM efforts including:

 NYS “Move Over” Legislation – Law requires that, when possible, motorists must 

change lanes when they approach an incident where there is a vehicle with flashing red 

or amber lights. When it is not possible to move over, or there is only one lane, drivers 

must slow down. This law includes all responder vehicles as well as any other vehicle 

being used in the maintenance of roadways.

 Section 15 of the NYS Highway Law – Gives NYSDOT the ability to remove accidents, 

cargo, and debris from NYS right-of-way that obstructs or interferes with the use of such 

a highway.

 NYS “Steer it, Clear it” campaign – In lieu of legislation, a “Steer it, Clear it” outreach 

campaign was developed by the Niagara International Transportation Technology 

Coalition (NITTEC) and expanded statewide by NYSDOT to encourage motorists to move 

to the side of a road when they are involved in a minor crash.

 NYS Emergency Traffic Control and Scene Management Guidelines – The NYS TIM 

Steering Committee adopted guidelines to provide incident responders a uniform 

approach to emergency traffic control and scene management.

 TIM teams – A local jurisdictional 

program consisting of TIM stakeholders 

that work together on a daily basis. TIM 

teams address operational problems 

and develop strategies at the local 

level and then share these ideas and 

experiences at the regional level.

 Highway Emergency Local Patrol 

(HELP) Program – Special trucks patrol 

designated routes stopping to help 

stranded motorists and disabled vehicles, keeping roads and highways open and free of 

distractions to minimize the chances of secondary incidents.

 Incident Response Trailers – NYSDOT has deployed about 25 Incident Response Trailers 

throughout the State in support of TIM. Included in each trailer are items needed to 

set up a temporary traffic control (TTC) Zone around an incident in accordance with 

Section 6I of the MUTCD. Items include cones, 

barrels, barricades, flags for traffic control, and 

fluorescent pink signs indicating TTC.

 NYS Office of Fire Prevention and Control 

(OFPC) Incident Management Trailer – These 

trailers contain the same equipment as the 

previously mentioned trailers, but in addition 

also support the command portion in an all 

hazard, all weather environment. The additional equipment provided includes: tents for 

weather cover, an office for resource management, computerized tracking, and incident 

management Incident Action Plans (IAPs), among others.

Figure 16: Photo. 

NYSDOT Incident 

Response Trailer.[17]
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Figure 18: Photo. Outstanding ITS 

Project of the Year award for the 

NYSDOT TIM Program. (Credit: VHB)

Because of the success of the NYS TIM program 

in a relatively short period of time, the statewide 

TIM program was awarded the “ITS Project of the 

Year” in June 2010 by the Intelligent Transportation 

Society of New York (ITS-NY). Each member of the 

TIM Steering Committee was presented with an 

award at the annual ITS-NY meeting.

In addition, the NYS TIM program was also featured 

in the August 2012 edition of the TIM Network’s The 

Responder Newsletter under the title “New York 

State TIM Program Makes Strides Statewide”.

Currently the NYS TIM program is continuing to 

make strides by tracking their ongoing training and 

outreach efforts.

In summary, the NYS TIM program is viewed as a 

success because of what the State has been able to 

accomplish in the context of TIM components:

 A statewide strategic plan.

 NYS Emergency Traffic Control and Scene Management Guidelines.

 A “Move Over” law.

 Numerous well developed regional TIM programs.

 An active statewide TIM task force.

 Model partnerships with the State police.

 A statewide service patrol.

 TMCs operational for 24 hours and 7 days a week in most regions.
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Traffic Incident Management Gap Analysis Primer Conclusions and Recommendations

CONCLUSIONS AND 6 RECOMMENDATIONS

Overall the research conducted for this gap analysis determined that there is no one-sizefits-all traffic incident management (TIM) program, so the recommendations contained 

within this document should be tailored towards the needs of the area in which the TIM 

program will be implemented. Not only should the needs of that area be considered but 

the capabilities and available resources of that area are equally important to understand 

the level of customization needed. It does not matter how big or small a TIM program 

is but rather how successful the program is at engaging stakeholders and managing 

incidents. Whether a TIM program has already been established or is just beginning, it is 

essential to identify the overall needs of the local area and determine the TIM program 

elements necessary to fulfill these needs. If a program has already been deployed, a key 

driver is identifying the existing gaps in the program and identifying activities/actions to 

bridge these gaps.

6.1 Summary of the Successful TIM Program

It is important to emphasize the fact that the success of a TIM program is not measured 

by how long the program has been implemented or by how many people are involved 

in the TIM process but rather by how effective the program is accomplishing the goals of 

TIM. Key elements of a successful TIM program include a number of strategic, tactical, and 

support activities.

 Strategic – These elements form a framework for TIM activities and provide multiagency 

planning, programming, and evaluation necessary to support efficient and collaborative 

on-scene operations; as well as how to plan, prepare for, and measure performance of 

the program. Example products include but are not limited to strategic plans, policies, 

and training.

 Tactical – These elements provide the tools and technologies for traffic management 

and interagency communications for on-scene operations. Example products include 

on-scene traffic control procedures, motorist assist patrols, and pre-staged response 

equipment.

 Support – These elements provide for the operational, tactical, and institutional 

support for effective communication and information exchange. Example products 

include: communications systems, data and video collection and sharing, and traveler 

information.

Specific TIM activities associated with each element are summarized in Table 23.
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Traffic Incident Management Gap Analysis Primer Conclusions and Recommendations

Table 23. Summary of Traffic Incident Management Activities within

Different Traffic Incident Management Program Elements.

TIM Activity

Strategic (Institutional) Capabilities

Multiagency team/task force that meet regularly to discuss and plan for TIM activities.

Multiagency training (at least once a year) on TIM-specific topics.

Multiagency post-incident debriefings.

Planning for special events (PSEs).

Multiagency agreements/memorandum of understanding (MOUs).

Planning to support TIM activities among participating agencies including metropolitan planning organizations 

(MPOs).

Designated TIM coordinator as their primary job function.

Multiagency agreement for tracking roadway clearance time and incident clearance time.

Methods to collect and analyze data for reducing roadway clearance time and incident clearance time.

Performance measure (PM) targets.

Progress towards PM targets.

Performance in reducing secondary incidents.

Effective and affordable TIM technology to support TIM activities.

24/7 availability of key responders and equipment.

Multiagency resource management.

Multiagency commitment for funding TIM.

Education and awareness partnerships.

Tactical (Technical/Operational) Capabilities

“Authority removal” laws.

“Driver removal” laws.

Safety service patrol (SSP) for incident and emergency response.

Incident Command System (ICS) used on-scene.

Pre-staged response equipment.

Available towing and recovery operator resources categorized and identified.

Available hazardous materials (HazMat) contractors categorized and identified.

Designated agency authorized to override decisions on HazMat resources.

Medical examiner responsibilities defined for fatality incidents.

Procedures for expedited incident reconstruction/investigation.

Policy for removal of abandoned vehicles.

“Move Over” laws.

Responders trained in traffic control (according to Manual on Uniform Traffic Control Devices (MUTCD) guidelines).

Transportation resources utilized to conduct traffic control procedures (complying with the MUTCD).

Traffic control procedures utilized for the end of the incident traffic queue.

Onsite equipment staging and emergency lighting procedures.

Responder notification procedures.

Support (Financial/ 

Technological) 

Traffic management center (TMC)/traffic operations center (TOC).

Data/video shared between agencies.

Policies and procedures for traffic management during incident response.

Onsite interoperable, interagency communications.

Real-time motorist information system.

Travel time estimates provided to motorists.

Cost recovery and management systems.
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Traffic Incident Management Gap Analysis Primer Conclusions and Recommendations

It is not necessary for every activity outlined in Table 23 to be implemented as part of 

the TIM program, but rather these items are example activities that have been identified 

in successful TIM programs. It is important that before an activity is implemented, there 

should be a great level of consideration for how useful and effective that activity will be 

for TIM in the local deployment area. In reviewing the current status of TIM programs 

across the nation, it is clear that there is no “one-size-fits-all” TIM program so it is possible 

that many of the components listed contain multiple elements and/or relate to activities 

that can be implemented in varying degrees depending on the needs of an area.

6.2 Summary of Implementation Steps

This primer identifies the elements of a comprehensive TIM program as well as how 

stakeholders can benchmark their progress and identify gaps within their existing 

program. Many factors incorporated into a typical TIM program include the following:

 Incident management policies and plans.

 Interagency relationships.

 Organizational structure.

 Staffing and training.

 Performance goals.

 Reporting channels.

 Budget.

If a TIM program has not already been established, an important preliminary first step 

is determining that a more coordinated effort for managing incidents is needed. After 

making this determination transportation agencies typically take the lead role in 

establishing and implementing local/regional TIM programs. Although this typically 

occurs, other TIM stakeholders are not precluded from taking the initiative in leading 

the effort to form a program. To accomplish this, a streamlined eight stage process for 

establishing a TIM program has been outlined.

Identify Stakeholders

Identifying relevant stakeholders is a critical first step to the success of a TIM program. 

Developing a cooperative spirit and consensus among the various stakeholders is quite 

essential. Once these stakeholders commit to establishing a TIM program, they can 

sponsor a TIM Task Force that meets periodically to enhance and guide the program.

Define the Problem

A clear understanding of the severity, impacts, and locations of incident-related problems 

is imperative before even attempting to identify or determine a solution. Defining 

the problem can be accomplished through a combination of data collection, data 

compilation, brainstorming, and a constructive assessment of existing practices.
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Traffic Incident Management Gap Analysis Primer Conclusions and Recommendations

Set Goals and Objectives

Guiding principles for the program development should be established by the TIM Task 

Force. These “guiding principles” usually consist of a mission statement with goals and 

objectives based on the identified problems. These goals and objectives describe what the 

program is designed to accomplish and are meant to reflect multiagency efforts and not 

those of individual agencies.

Develop Alternatives

TIM programs consist of numerous individual practices, tools and infrastructure 

elements. Based on the goals and objectives developed previously, alternatives should 

be determined to combine available TIM tools and techniques into program packages for 

evaluation.

Evaluate and Select Alternatives

The developed alternatives should be evaluated based on prioritization, high-level cost 

estimates, and expected benefits.

Implement Alternatives

As alternatives are being implemented, mechanisms for resolving the issues associated 

with incident management must be developed. Example issues include: jurisdictional 

boundaries, operational responsibilities, funding sources, joint training, field 

communications, onsite command and approval of alternate routes.

Reevaluate Alternatives

Since TIM is an ongoing process, changes in the local operational, technological, political, 

and funding environment should be evaluated and taken into account. An initial program 

evaluation and the subsequent revaluation of alternatives to refocus or refine an existing 

system require the routine collection of appropriate data (e.g., detection time, response 

time, clearance time, delay and costs).

Refine the System

 For a TIM program to continuously mature and improve, effective feedback is needed 

from both upper management and field-level personnel. Constant communication and 

coordination from both levels will improve the TIM process; adapt to the changing needs 

of the area; and meet the needs of the participating agencies, affected jurisdictions, and 

the motoring public.
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Traffic Incident Management Gap Analysis Primer Conclusions and Recommendations

For optimal implementation, specific actions from the above stages may be followed:

 1. Establish the baseline of where your jurisdiction is regarding statutes, policies, 

and procedures.

 2. Identify counterparts in each pertinent local/State discipline and contact them.

 3. Hold a kick-off team meeting to start establishing relationships.

 4. Identify champions who can encourage the institutionalization of TIM throughout 

the various disciplines and select/recruit 1-2 to lead the overall effort.

 5. Identify roles and responsibilities.

 6. Create an Open Roads policy.

 7. Maintain frequent communications with the entire team.

 8. Develop a Concept of Operations.

 9. Execute operational MOUs.

 10. Enable interagency communications and information exchange regional/ 

corridor-wide.

 11. Implement a training and certification program, including interdisciplinary 

training for all TIM responders.

 12. Educate the traveling public.

 13. Implement multidisciplinary TIM teams and associated field procedures.

These actions will help identify the level of involvement necessary from transportation 

department staff as well as other TIM stakeholders within the different TIM-related 

activities, in addition to the new roles and positions that need to be fully dedicated to the 

TIM program.

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Traffic Incident Management Gap Analysis Primer Glossary of Terms

GLOSSARY OF TERMS

Term Definition

511

The national 3-digit telephone number for traveler information used by most States to provide real-time 

traffic and transit information about current operation status, highway conditions, weather advisories, and 

emergency warnings.

Closed-Circuit 

Television (CCTV)

A television system where cameras are connected to television monitors to perform surveillance of a limited 

area such as a regional interstate highway system.[18]

Crash

An incident can be classified as a reportable motor vehicle traffic crash/accident if the following criteria are 

met:

•	It includes one or more occurrences of injury, death, or damage.

•	It includes at least one occurrence of injury, death, or damage that was not a direct result of natural disaster.

•	It includes bodily injury, death, or damage to the property of any one person in excess of $1,000.

•	It involves one or more motor vehicles, and at least one of them was in transport.

•	It is an unstabilized situation.

•	If the unstabilized situation originates or includes injury or damage occurring on a highway.

•	If a railroad train collision occurs at or near a railroad crossing.[19]

Collaboration

Any cooperative effort between and among governmental entities (as well as with private partners) through 

which the partners work together to achieve common goals. Such collaboration can range from very informal, 

ad hoc activities to more planned, organized and formalized ways of working together. Collaboration’s purpose 

should be that of combining the knowledge, expertise, and information of many agencies across jurisdictions 

to produce and operate an efficient regional system.[20] In the context of TIM programs, the activities of the 

statewide and local TIM Task Forces are good examples of collaboration.

Coordination

The process of systematically analyzing a situation, developing relevant information, and informing 

appropriate command authority of viable alternatives for selection of the most effective combination of 

available resources to meet specific objectives. The coordination process (which can be either intra- or 

interagency) does not involve dispatch actions.[21] A good example of coordination in the context of TIM is 

the activities involved in coordinating the most effective response to an incident including the continued 

assessment of the situation and updating response activities as appropriate as the incident evolves.

Corridor

A broad geographical band that follows a general directional flow connecting major sources of trips that may 

contain a number of streets, highways and transit route alignments.[20] Additionally, the corridor includes 

cross-network connections that permit the individual networks to be readily accessible from each other. In the 

context of TIM, managers and responders must recognize the incident may have on the entire corridor and 

take appropriate actions to mitigate such at the corridor level. Examples include:

•	Use of traveler information resources to warn motorists of the event and attempt to divert traffic from using 

the affected facility.

•	Changing signal timing on adjacent arterials to facilitate the clearance of traffic from the facility.

Dynamic Message Sign 

(DMS)

Signs capable of displaying one or more alternative messages, changeable manually, by remote control, or by 

automatic control. They are typically used on freeway and expressway mainlines, and can be fixed at a location, 

portable, or truck-mounted.[18] Also referred to as Changeable/Variable Message Sign (CMS/VMS).

Emergency

A serious, unexpected, and often dangerous situation requiring immediate action. Emergencies can require 

multiagency assistance to supplement State and local efforts and capabilities to save lives and to protect 

property and public health and safety.
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Traffic Incident Management Gap Analysis Primer Glossary of Terms

Term Definition

Emergency 

Management/ 

Emergency 

Transportation 

Operations (ETO)

The process of preventing, preparing, responding, and recovering from an emergency. When an emergency 

has occurred (or the imminent threat of one has become known), ETO focuses on minimizing the time it 

takes to get an adequate force of emergency responders to the scene where they can help victims, provide 

assessments, and control access; and maximizing the proportion of the population moved away from the 

hazardous area without being subjected to other risks.[20]

Emergency1 Responder

Any public safety official (e.g., police, fire rescue, emergency services, or medical examiner), transportation 

worker (e.g., road cleanup worker), towing and wrecker operator, and other specially-skilled people (e.g., 

HazMat handlers) that responds to the scene of an incident is generally referred to as a “responder”. The term 

Emergency (First) Responder has traditionally been used to describe public safety emergency responders 

who have duties related to preservation of life and property.[22] As transportation agencies become more 

actively involved in traffic incident response and take active roles in Incident Command (as partners in Unified 

Command), they are becoming accepted as first responders for traffic incidents. For example, service patrols 

may be first on the scene of an incident and many are trained to provide traffic control to stabilize the scene 

and to provide emergency first aid. Some service patrols are also permitted limited use of emergency lights 

and sirens to get to an incident.

Enhanced 911 (E911)

Enhanced 911 is a location technology advanced by the Federal Communications Commission (FCC) that 

enables wireless phones to process 911 emergency calls and enables emergency call centers to automatically 

locate the geographic position of the caller.

Event An occurrence, which includes all types of incidents, emergencies and disasters (natural or human caused), that 

affects the transportation system, and requires actions to maintain the safety and mobility of the system.[20]

Gap Analysis

A technique that managers use to determine what steps need to be taken in order to move from their current 

state to their desired, future state. Also called need-gap analysis, needs analysis, and needs assessment. Gap 

analysis consists of (1) listing of characteristic factors (such as attributes, competencies, performance levels) of 

the present situation (“what is”), (2) listing factors needed to achieve future objectives (“what should be”), and 

then (3) highlighting the gaps that exist and need to be filled. Gap analysis helps a company to reflect on who 

it is and ask who they want to be in the future.[5]

Hazardous Material 

(HazMat)

A substance or material that the Secretary of Transportation has determined is capable of posing an 

unreasonable risk to health, safety, and property when transported in commerce.[23] Incident responders must 

be keenly aware to check for the presence of hazardous materials at the incident scene, protect responders and 

the public from exposure and summon the proper response personnel and equipment to clean up the site.

Highway Advisory 

Radio (HAR)

A traffic information broadcasting system. Drivers are alerted to tune their car radios to a specific channel 

in order to receive transmitted information.[18] One of a number of real-time travel information options 

departments of transportation use to alert the motorist to changes in the roadway condition.

Incident Command 

System (ICS)

A standardized on-scene emergency management protocol specifically designed to provide for the adoption 

of an integrated organizational structure that reflects the complexity and demands of single or multiple 

incidents, without being hindered by jurisdictional boundaries.[21] ICS is the operational component of NIMS 

that allows agencies to work together using common terminology and operating procedures controlling 

personnel, facilities, equipment, procedures, and communications at a single incident scene. It facilitates a 

consistent response to any highway incident by employing a common organizational structure that can be 

expanded and contracted in a logical manner based on the level of required response.[22] NIMS specifies an ICS 

organization consisting of five major functions:

•	Command – provide on-scene management and control authority.

•	Operations – direct incident tactical operations.

•	Planning – prepare incident action plan and maintain situation and resources status.

•	Logistics – provide services and support to the incident.

•	Finance and administration – track incident costs and account for reimbursements.

•	A sixth function, intelligence, is sometimes added to an ICS organization in response to the NIMS guideline 

that an ICS must establish a process for gathering, sharing, and managing incident-related information and 

intelligence.

1 First responder changed to Emergency responder to be in compliance with TRB’s NCHRP Research Digest 385.[27]
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Traffic Incident Management Gap Analysis Primer Glossary of Terms

Term Definition

Intelligent 

Transportation Systems 

(ITS)

The application of advanced electronics, computers, communications, and sensor technologies – in 

an integrated manner – to increase the efficiency and safety of the surface transportation network. ITS 

encompasses a broad range of wireless and wireline communications-based information and electronics 

technologies.[20] ITS can play a critical role in support of TIM in a variety of ways including:

•	ITS detectors can help detect an incident.

•	ITS cameras can help verify the incident, assist in determining proper response and monitor the incident 

conditions.

•	ITS traveler information systems can be used to warn motorists of the incident.

•	ITS communications systems can be used to coordinate response among the involved agencies.

Local Government

A county, municipality, city, town, township, local public authority, school district, special district, intrastate 

district, council of governments (regardless of whether the council of governments is incorporated as a 

nonprofit corporation under State law), regional or interstate government entity, or agency or instrumentality 

of a local government; an Indian tribe or authorized tribal organization, or in Alaska a Native village or Alaska 

Regional Native Corporation; a rural community, unincorporated town or village, or other public entity.[21]

Memorandum of 

Understanding (MOU)

A document describing an agreement between two or more parties such as public agencies. It expresses a 

convergence of will between the parties, indicating an intended common line of action. It is often used in cases 

where parties either do not imply a legal commitment or in situations where the parties cannot create a legally 

enforceable agreement.[24] One of the critical elements in successful TIM programs is the development of 

MOUs among the agencies. Examples of areas where MOUs are useful include:

•	Defining agency roles and responsibilities.

•	Defining TIM program performance measures.

•	Establishing TIM program shared funding approaches.

Metropolitan Planning 

Organization (MPO)

Regional planning body, required in urbanized areas with a population over 50,000, and designated by 

local officials and the governor of the State that is responsible, in cooperation with the State and other 

transportation providers, for carrying out the metropolitan transportation planning requirements of federal 

highway and transit legislation.[20] Federal requirements call for consideration of management and operations 

in the metropolitan and statewide transportation planning processes. For instance, “to promote efficient 

system management and operation” is one planning factor. Legislation also states that transportation 

plans shall include operations and management strategies to improve the performance of the existing 

transportation system to relieve vehicular congestion and maximize the mobility of people and goods. As a 

result, in some metropolitan areas the MPO plays a significant role in TIM including funding, policy, program 

development, and performance measures.

National Incident 

Management System 

(NIMS)

A system mandated by Homeland Security Presidential Directive 5 that provides a consistent nationwide 

approach for governments, the private-sector, and non-governmental organizations to work effectively and 

efficiently together to prepare for, respond to, and recover from domestic incidents, regardless of cause, size, or 

complexity.[22] ICS is the operational component of NIMS.

National Unified Goal 

(NUG)

Developed and endorsed by the National Traffic Incident Management Coalition, the Traffic Incident 

Management National Unified Goal (NUG) is:

•	Responder safety.

•	Safe, quick clearance.

•	Prompt, reliable, interoperable communications.

The NUG is based on 18 strategies. Key strategies include recommended practices for multidisciplinary 

TIM operations and communications; multidisciplinary TIM training; goals for performance and progress; 

promotion of beneficial technologies; and partnerships to promote driver awareness.[25]

Open Roads Policy

An interagency agreement that serves to inform incident responders of the urgent need to rapidly remove 

disabled or wrecked vehicles, spilled cargo, and debris that obstruct the normal flow of traffic. It disseminates 

key guidelines to ensure a cooperative incident removal effort between responding agencies.[22]
74

Traffic Incident Management Gap Analysis Primer Glossary of Terms

Term Definition

Operations

All decision making and actions necessary for the proper functioning of a system, such as information 

gathering (from a variety of sources), synthesis and processing, and dissemination and distribution of 

the decisions and information to traffic control equipment, other agencies and decision makers, and the 

public.[20] This is done in anticipation of, or in response to, both recurring and nonrecurring conditions. 

Operations includes a range of activities in both urban and rural environments, including: routine traffic and 

transit operations, public safety responses, incident management, snow and ice management, network–facility 

management, planned construction disruptions, and traveler–shipper information.

Personal Protective 

Equipment (PPE)

Personal protective equipment refers to protective clothing, helmets, goggles, or other garments or equipment 

designed to protect the wearer’s body from injury. The hazards addressed by protective equipment include 

physical, electrical, heat, chemicals, biohazards, and airborne particulate matter.

Performance 

Measurement

A process of assessing progress toward achieving predetermined goals, including information on the efficiency 

with which resources are transformed into goods and services, the quality of those outputs and outcomes, and 

the effectiveness of government operations in terms of their specific contribution to program objectives.[20] 

Examples of TIM PM are incident frequency, detection time, response time, roadway and clearance times, and 

secondary crashes.

Preparedness 

Organization

A committee of highway incident stakeholders that coordinates preparedness activities in advance of highway 

incidents. Common responsibilities of a preparedness organization may include establishing integrated 

guidelines, procedures, and protocols to promote interoperability, adopting response priorities, and 

developing coordinated plans that efficiently use all resources available to the organization.[22]

Program A coordinated, inter-related set of strategies, procedures, and activities, all intended to meet the goals and 

objectives articulated in vision statements and policies.[20]

Recovery

The recovery phase of a traffic incident consists of restoring traffic flow at the site of the traffic incident; 

preventing more traffic from flowing into the area and getting trapped in the upstream queue; and preventing 

congestion from spilling across the roadway network. Thus it encompasses the activities of site management, 

traffic management and clearance. Emergency responders normally are focused on the immediate vicinity of 

the traffic incident and likely do not have the resources or information to handle the “big picture.” Resources 

including traffic operations centers and their operating staff can facilitate recovery by managing the networkwide effects of traffic incidents and thus hastening recovery.[6]

Resource Management The application of tools, processes, and systems for identifying available resources at all jurisdictional levels to 

enable the timely and unimpeded access to resources during an incident.[22]

Response

Activities that address the short-term, direct effects of an incident, including immediate actions to save 

lives, protect property, and meet basic human needs. Response also includes the execution of emergency 

operations plans and of mitigation activities designed to limit the loss of life, personal injury, property damage, 

and other unfavorable outcomes.[21] With regard to TIM, response includes the activation, coordination, and 

management of the appropriate personnel, equipment, and communication links and motorist information 

media as soon as it is reasonably certain that a traffic incident has occurred.

Safety Service Patrol 

(SSP)

A safety service patrol is the umbrella term for a variety of programs implemented by government agencies, 

typically State Highway Patrols or Departments of Transportation, to reduce traffic congestion and improve 

highway safety by having specially marked and equipped vehicles patrol designated sections of roadway and 

provide incident management and motorist assistance at trouble spots they encounter.

Secondary Crash A crash occurring within an accident scene or within the queue, including the opposite direction, resulting 

from an original incident.[26]

Self-Assessment Continuing process through which managers at all levels evaluates the effectiveness of their performance in all 

areas of responsibility, and determine what improvements are required.[4]
75

Traffic Incident Management Gap Analysis Primer Glossary of Terms

Term Definition

Stakeholder

A person or group affected by a transportation plan, program or project. Stakeholders are sources of the 

corridor/regional vision, goals and objectives, operational approaches and strategies, and requirements.[20]

Traffic Incident Management is a planned and coordinated program process to detect, respond to, and remove 

traffic incidents and restore traffic capacity as safely and quickly as possible. This coordinated process involves 

a number of public and private sector stakeholders including Law Enforcement, Fire and Rescue, Emergency 

Medical Services, Transportation, Public Safety Communications, Emergency Management, Towing and 

Recovery, Hazardous Materials Contractors and the Traffic Information Media. The inclusion of stakeholders in 

any TIM Task Force is critical to the TIM program’s success.

Strategic TIM Program 

Elements

These elements form a framework for TIM activities. They provide the multiagency planning, programming, 

and evaluation necessary to support efficient and collaborative on-scene operations; as well as how to plan, 

prepare for, and measure performance of the program. Strategic elements include items such as strategic 

plans, policies and training.

Support TIM Program 

Elements

These elements provide for the operational, tactical, and institutional support for effective communication 

and information exchange. Support elements include items such as communications systems, data and video 

collection and sharing, and traveler information.

Tactical TIM Program 

Elements 

These elements provide the tools and technologies for traffic management and interagency communications 

for on-scene operations. Example products include on-scene traffic control procedures, motorist assist patrols, 

and pre-staged response equipment.

TIM Responder Personnel responding to an incident that mitigate its effects. May include personnel from law enforcement, fire 

service, EMS, HazMat, emergency management and public works.[27]

Traffic Control Device/

MUTCD

All signs, signals, markings, and other devices used to regulate, warn, or guide traffic placed on, over, 

or adjacent to a street, highway, pedestrian facility, or bikeway by authority of a public agency having 

jurisdiction.[27] The Manual on Uniform Traffic Control Devices. (MUTCD) defines the standards used by road 

managers nationwide to install and maintain traffic control devices on all public streets, highways, bikeways, 

and private roads open to public traffic. The MUTCD is published by the Federal Highway Administration 

(FHWA) under 23 Code of Federal Regulations (CFR), Part 655, Subpart F. 

Traffic Incident Any non-recurrent event, such as a vehicle crash, vehicle breakdown, or other special event, that causes a 

reduction in highway capacity and/or an increase in demand.[1]

Traffic Incident 

Management (TIM) / 

Incident Management

The systematic, planned, and coordinated use of human, institutional, electrical, mechanical, and technical 

resources to reduce the duration and impact of incidents, and improve the safety of motorists, crash victims, 

and incident responders. These resources are also used to increase the operating efficiency, safety, and mobility 

of the surface transportation network by systematically reducing the time to detect and verify an incident 

occurrence; implementing the appropriate response; and safely clearing the incident, while managing the 

affected flow until full capacity is restored.[20]

Traffic/Transportation 

Management Center 

(TMC) / Traffic 

Operations Center 

(TOC)

The hub of a transportation management and control system that brings together human and technological 

components from various agencies to perform a variety of functions.[20]

Tribal

Any Indian tribe, band, nation, or other organized group or community, including any Alaskan Native Village as 

defined in or established pursuant to the Alaskan Native Claims Settlement Act (85 Stat. 688) (43 U.S.C.A. and 

1601 et seq.), that is recognized as eligible for the special programs and services provided by the United States 

to Indians because of their status as Indians.[21]

Vision

An agreed statement of the overall aims of a transportation plan. The purpose of a vision statement is to 

portray the future system and its operation for a specific time horizon, providing a platform for establishing 

goals and objectives. The vision statement must also be simple, easy to read and accessible to a wide 

audience.[20] A vision statement is a critical element of a TIM Strategic Plan.

77

Traffic Incident Management Gap Analysis Primer References

REFERENCES

[1] I-95 Corridor Coalition, “Coordinated Incident Management Toolkit for Quick 

Clearance,” April 2007. [Online]. Available: http://www.i95coalition.org/wp-content/

uploads/2015/03/toolkit_document_dvd1.pdf.

[2] FHWA Office of Operations, “Operations Story - About Operations,” [Online]. Available: 

http://www.ops.fhwa.dot.gov/aboutus/opstory.htm.

[3] FHWA Office of Operations, “FHWA Traffic Incident Management Outreach Toolkit,” 

[Online]. Available: http://ops.fhwa.dot.gov/eto_tim_pse/timtoolbox/index.htm.

[4] BusinessDictionary.com, “What is Self-Assessment? Definition and Meaning,” [Online]. 

Available: http://www.businessdictionary.com/definition/self-assessment.html.

[5] BusinessDictionary.com, “What is Gap Analysis? Definition and Meaning,” [Online]. 

Available: http://www.businessdictionary.com/definition/gap-analysis.html.

[6] FHWA Office of Operations, “Freeway Management and Operations Handbook,” 

September 2003. [Online]. Available: http://ops.fhwa.dot.gov/freewaymgmt/

publications/frwy_mgmt_handbook/toc.htm.

[7] USDOT ITS Joint Program Office (ITS JPO), “Transportation Management Center 

Data Capture for Performance and Mobility Measures Reference Manual,” March 

2013. [Online]. Available: http://www.its.dot.gov/data_capture/pdf/data_capture_

reference_manual.pdf.

[8] FHWA Office of Operations, “Senior Executive Transportation & Public Safety Summit: 

National Traffic Incident Management Leadership & Innovation Roadmap for 

Success,” 26-27 June 2012. [Online]. Available: http://ops.fhwa.dot.gov/eto_tim_pse/

publications/publicsafetysummit/.

[9] USDOT Pipeline and Hazardous Materials Safety Administration (PHMSA), “Emergency 

Response Guidebook: A Guidebook for First Responders During the Initial Phase of 

a Dangerous Goods/Hazardous Materials Transportation Incident,” 2012. [Online]. 

Available: http://www.phmsa.dot.gov/staticfiles/PHMSA/DownloadableFiles/Files/

Hazmat/ERG2012.pdf.

[10] FHWA Office of Operations, “Traffic Incident Management Handbook Update,” 

January 2010. [Online]. Available: http://ops.fhwa.dot.gov/eto_tim_pse/publications/

timhandbook/toc.htm.
78

Traffic Incident Management Gap Analysis Primer References

[11] National Traffic Incident Management Coalition (NTIMC), “Example Strategies for 

Building Stronger State Traffic Incident Management Programs,” 2006. [Online]. 

Available: http://timnetwork.org/wp-content/uploads/InstitutionalModels.pdf.

[12] FHWA Office Of Operations, “FHWA Traffic Incident Management Publications,” 

[Online]. Available: http://ops.fhwa.dot.gov/publications/publications.htm#tim.

[13] FHWA Office of Operations, “Regional Traffic Incident Management Programs 

- Implementation Guide,” May 2001. [Online]. Available: http://ntl.bts.gov/lib/

jpodocs/repts_te/13149.pdf.

[14] FHWA Office of Operations, “Emergency Transportation Operations,” [Online]. 

Available: http://ops.fhwa.dot.gov/eto_tim_pse/index.htm.

[15] American Association of State Highway and Transportation Officials (AASHTO), 

“Transportation Systems Management & Operations Guidance,” [Online]. 

Available: http://www.aashtotsmoguidance.org/.

[16] Transportation Researsh Board (TRB), “SHRP2 L06 Institutional Architectures to 

Advance Operational Strategies,” April 2012. [Online]. Available: http://apps.trb.

org/cmsfeed/TRBNetProjectDisplay.asp?ProjectID=2180.

[17] New York State Department of Transportation, “New York State Traffic Incident 

Management Program,” [Online]. Available: https://www.dot.ny.gov/divisions/

operating/oom/transportation-systems/systems-optimization-section/nymoves/tim.

[18] Louisville-Southern Indiana Traffic Information (TRIMARC), “Glossary,” [Online]. 

Available: http://www.trimarc.org/perl/Glossary.pl.

[19] National Highway Traffic Safety Administration (NHTSA), “Crash Report Forms 

Instruction Manual 9th Edition,” July 2010. [Online]. Available: http://www.

nhtsa.gov/nhtsa/stateCatalog/states/az/docs/AZ_Crash_Manual_rev8_2010_

sub_3_2011web.pdf.

[20] TRB Regional Transportation Systems Management and Operations (RTSMO), 

“Operations Glossary,” April 2012. [Online]. Available: https://sites.google.com/

site/trbrtsmocommittee/committee-publications.

[21] Federal Emergency Management Agency (FEMA), “ICS Glossary of Related 

Terms,” May 2008. [Online]. Available: http://training.fema.gov/EMIWeb/is/

ICSResource/assets/ICSGlossary.pdf.

[22] FHWA Office of Operations, “Simplified Guide to the Incident Command System 

for Transportation Professionals,” February 2006. [Online]. Available: http://ops.

fhwa.dot.gov/publications/ics_guide/index.htm.

[23] Federal Highway Administration, “Traffic Incident Management In Hazardous 
79

Traffic Incident Management Gap Analysis Primer References

Materials Spills In Incident Clearance,” January 2009. [Online]. Available: http://www.

ops.fhwa.dot.gov/publications/fhwahop08058/default.htm.

[24] Maryland Transit Administration, “Purple Line Glossary,” [Online]. Available: http://

www.purplelinemd.com/en/component/seoglossary/1-english-glossary.

[25] National Traffic Incident Management Coalition (NTIMC), “National Unified Goal (NUG) 

for Traffic Incident Management,” [Online]. Available: http://www.respondersafety.

com/Download.aspx?DownloadId=22ab0d4c-b023-4ffd-8a76-de8a45453253.

[26] International Association of Culinary Professionals (IACP), “Technology Clearinghouse 

Glossary,” [Online]. Available: http://www.iacptechnology.org/resources/glossary.

html.

[27] Federal Highway Administration, “Service Patrol Handbook,” November 2008. [Online]. 

Available: http://www.ops.fhwa.dot.gov/publications/fhwahop08031/index.htm.

[28] National Cooperative Highway Research Program (NCHRP), “Research Results Digest 

385: The Legal Definitions of “First Responder”,” [Online]. Available: http://onlinepubs.

trb.org/onlinepubs/nchrp/nchrp_rrd_385.pdf.
U.S. Department of Transportation

Federal Highway Administration

U.S. Department of Transportation

Federal Highway Administration

Office of Operations

1200 New Jersey Avenue, SE

Washington, D.C. 20590

Office of Operations Web Site

http://www.ops.fhwa.dot.gov

March 2015

FHWA-HOP-15-007