A DESK REFERENCE

Planning for Transportation Systems

Management and Operations

WITHIN SUBAREAS
Notice

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

Transportation in the interest of information exchange. The U.S. Government 

assumes no liability for the use of information contained in this document. 

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

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

essential to the objective of the document. 

The contents of this report reflect the views of the authors, who are responsible for 

the facts and accuracy of the data presented herein. The contents do not necessarily 

reflect the official policy of the U.S. Department of Transportation.

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

Quality Assurance Statement

The Federal Highway Administration (FHWA) provides high quality information 

to serve Government, industry, and the public in a manner that promotes public 

understanding. Standards and policies are used to ensure and maximize the quality, 

objectivity, utility, and integrity of its information. FHWA periodically reviews 

quality issues and adjusts its programs and processes to ensure continuous quality 

improvement.

Cover image: Thinkstock
Technical Report Documentation Page

1. Report No. 

FHWA-HOP-16-074

2. Government Accession 

No.

3. Recipient’s Catalog No.

4. Title and Subtitle 

Planning for Transportation Systems Management and 

Operations within Subareas – A Desk Reference

5. Report Date

October 2016

6. Performing Organizations Code

7. Authors

 Jocelyn Bauer, Deena Platman, Michael Grant, Michael Smith, 

Renee Hurtado, Jiaqi Ma, Lindsay Martin, Peng Su 

8. Performing Organization 

Report No.

9. Performing Organization Name and Address

Leidos

11251 Roger Bacon Drive 

Reston, VA 20190

DKS Associates

720 Southwest Washington Street, Suite 500

Portland, OR 97205

ICF International

1725 I (Eye) Street, Northwest, 10th Floor

Washington, D.C. 2006

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

 Contract No. 

DTFH61-12-D-00050

12. Sponsoring Agency Name and Address

U.S. Department of Transportation

Federal Highway Administration

1200 New Jersey Avenue, SE

Washington, DC 20590

13. Type of Report and Period 

Covered

14. Sponsoring Agency Code

HOP

15. Supplementary Notes

Mr. Wayne Berman, Federal Highway Administration Government Task Manager

16. Abstract

This desk reference is designed to equip State, regional, and local transportation operations and 

planning professionals with the knowledge and tools necessary to effectively plan for and implement 

transportation systems management and operations (TSMO) within a subarea context. Its purpose is 

to support transportation planners and operations staff in planning for and applying TSMO activities 

within subareas to achieve a more reliable, efficient, and livable outcome from their existing and 

planned transportation infrastructure. This desk reference highlights a planning for operations 

approach at a subarea level to focus on issues (e.g., mobility, reliability, and safety) from a multimodal perspective and provides a variety of tools to advance TSMO within subareas.

17. Key Words

Transportation systems management and operations, subareas, 

planning, reliability, analysis tools

18. Distribution Statement 

 No restrictions. 

19. Security Classif. (of this report) 

Unclassified

20. Security Classif. (of this 

page) Unclassified

21. No of Pages

 144

22. Price 

 N/A

Form DOT F 1700.7 (8-72) Reproduction of completed page authorized.
ii

FACTORS APPROXIMATE CONVERSIONS TO SI UNITS

SYMBOL WHEN YOU KNOW MULTIPLY BY TO FIND SYMBOL

LENGTH

In. inches 25.4 millimeters mm

ft feet 0.305 meters m

yd yards 0.914 meters m

mi miles 1.61 kilometers km

AREA

in.2 square inches 645.2 square millimeters mm2

ft2 square feet 0.093 square meters m2

yd2 square yard 0.836 square meters m2

ac acres 0.405 hectares ha

mi2 square miles 2.59 square kilometers km2

VOLUME

fl oz fluid ounces 29.57 milliliters mL

gal gallons 3.785 liters L

ft3 cubic feet 0.028 cubic meters m3

yd3 cubic yards 0.765 cubic meters m3

NOTE: volumes greater than 1,000 L shall be shown in m3

MASS

oz ounces 28.35 grams g

lb pounds 0.454 kilograms kg

T short tons (2000 lb) 0.907 megagrams (or "metric ton") Mg (or "t")

TEMPERATURE (exact degrees)

°F Fahrenheit 5 (F-32)/9 or 

(F-32)/1.8 

Celsius °C

ILLUMINATION

fc foot-candles 10.76 lux lx

fl foot-Lamberts 3.426 candela/m2 cd/m2

FORCE and PRESSURE or STRESS

lbf poundforce 4.45 newtons N

lbf/in.2 poundforce 

per square inch

6.89 kilopascals kPa

SI* (MODERN METRIC) CONVERSION 
iii

APPROXIMATE CONVERSIONS TO SI UNITS

SYMBOL WHEN YOU KNOW MULTIPLY BY TO FIND SYMBOL

LENGTH

mm millimeters 0.039 inches in.

m meters 3.28 feet ft

m meters 1.09 yards yd

km kilometers 0.621 miles mi

AREA

mm2 square millimeters 0.0016 square inches in.2

m2 square meters 10.764 square feet ft2

m2 square meters 1.195 square yards yd2

ha hectares 2.47 acres ac

km2 square kilometers 0.386 square miles mi2

VOLUME

mL milliliters 0.034 fluid ounces fl oz

L liters 0.264 gallons gal

m3 cubic meters 35.314 cubic feet ft3

m3 cubic meters 1.307 cubic yards yd3

MASS

g grams 0.035 ounces oz

kg kilograms 2.202 pounds lb

Mg (or "t") megagrams (or "metric ton")1.103 short tons (2000 lb) T

TEMPERATURE (exact degrees)

°C Celsius 1.8C+32 Fahrenheit °F

ILLUMINATION

lx lux 0.0929 foot-candles fc

cd/m2 candela/m2 0.2919 foot-lamberts fl

FORCE and PRESSURE or STRESS

N newtons 0.225 poundforce lbf

kPa kilopascals 0.145 poundforce 

per square inch 

lbf/in2

SI* (MODERN METRIC) CONVERSION (continued)

v

TABLE OF CONTENTS

Chapter 1. Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Overview of Desk Reference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Who Should Use This Desk Reference?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

A Guide to Navigating this Desk Reference. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Transportation Systems Management and Operations Within Subareas . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Chapter 2. Planning For Transportation Systems Management and Operations Within 

Subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Why is Planning for Transportation Systems Management and Operations Within 

Subareas Needed? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Planning Contexts for Transportation Systems Management and Operations Within Subareas. . . . . . . 17

Examples of Current Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Chapter 3. Approach to Subarea Planning for Transportation Systems Management 

and Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Getting Started – Scoping the Effort and Building a Team. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Gathering Information on Current and Future Context and Conditions. . . . . . . . . . . . . . . . . . . . . . . . . . 34

Developing an Outcome-Oriented Operational Concept. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

Identifying Operations Performance Needs, Gaps, and Opportunities. . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Developing an Integrated Transportation Systems Management and Operations Approach. . . . . . . . . . 50

Putting It All Together. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Chapter 4. Moving To Implementation: Transportation Systems Management and Operations 

Within Subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95

Programming for Transportation Systems Management and Operations Within Subareas . . . . . . . . . . . 95

Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100

Chapter 5. A Toolbox for Effective Transportation Systems Management and 

Operations Planning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .109

Scenario Planning for Transportation Systems Management and Operations Within Subareas . . . . . . 109

Use of Archived Operations Data. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110

Analysis Tools Available for Transportation Systems Management and Operations Planning 

Within Subareas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112

Weather-Responsive Traffic Management Strategies and Tools. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118

Tool for Operations Benefit Cost Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121

Chapter 6. Taking Action. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125
vi

LIST OF FIGURES

Figure 1. Map. Reston study area. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Figure 2. Context for transportation systems management and operations planning 

within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Figure 3. Diagram. Approach to planning for transportation systems management and operations 

within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

Figure 4. Diagram. The “Getting Started” activity of the approach for planning for transportation 

systems management and operations within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Figure 5. Diagram. The framework for collaboration and coordination in a subarea. . . . . . . . . . . . 30

Figure 6. Diagram. The “Gathering Information on Current and Future Context and Conditions” 

activity of the approach for planning for transportation systems management and operations 

within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Figure 7. Diagram. The “Developing an Outcome-Oriented Operational Concept” activity of the 

approach for planning for transportation systems management and operations within subareas. . . 40

Figure 8. Image. Cover of Federal Highway Administration’s Advancing Metropolitan Planning 

for Operations Desk Reference. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Figure 9. Diagram. Illustrative objectives tree for subarea-based transportation systems 

management and operations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44

Figure 10. Diagram. The “Identifying Operations Performance Needs, Gaps, and Opportunities” 

activity of the approach for planning for transportation systems management and operations 

within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Figure 11. Diagram. The “Developing an Integrated TSMO Approach” activity of the approach for 

planning for transportation systems management and operations within subareas. . . . . . . . . . . . . . 51

Figure 12. Diagram. Sample of contextual factors to consider when selecting transportation system 

management and operations strategies for subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Figure 13. Diagram. The “Programming for Transportation Systems Management and Operations 

Within Subareas” activity of the approach to planning for transportation systems management and 

operations within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95

Figure 14. Genesee Transportation Council’s mode-specific project evaluation criteria for 

transportation systems management and operations projects. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 98

Figure 15. Diagram. The “Implementing” activity of the approach for planning for transportation 

systems management and operations within subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100

Figure 16. Subarea planning within the systems engineering “V” model. . . . . . . . . . . . . . . . . . . . 102

Figure 17. Diagram. Regional intelligent transportation system architecture use in 

subarea planning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103
vii

Figure 18. Diagram. The “Monitoring and Maintaining Level of Operations Over Time” activity 

of the approach for planning for transportation systems management and operations within 

subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106

Figure 19. Diagram. Example plan for evaluating the effectiveness of subarea transportation 

systems management and operations strategies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107

Figure 20. Diagram. Phases of scenario planning for transportation systems management and 

operations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111

Figure 21. Diagram. Framework of the Traffic Estimation and Prediction System-based decision 

support framework for weather-responsive traffic signal operations. . . . . . . . . . . . . . . . . . . . . . . . 119

Figure 22. Screenshot. Scenario Manager interface. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 120

LIST OF FIGURES (CONTINUED)
viii

LIST OF TABLES

Table 1. Sample of transportation systems management and operations strategies 

relevant to subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Table 2. Characteristics of travelers in subareas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

Table 3. Illustrative performance measures to guide subarea transportation systems 

management and operations planning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Table 4. Strategies included in the Tool for Operations Benefit-Cost Analysis. . . . . . . . . . . . . . . . 122
ix

LIST OF ACRONYMS

ATDM active transportation and demand management

ATM active traffic management

DOT department of transportation

DTA dynamic traffic assignment

FHWA Federal Highway Administration

ICM integrated corridor management

ITS intelligent transportation systems

LOS level of service

LRTP long-range transportation plan

MPO metropolitan planning organization

PennDOT Pennsylvania Department of Transportation

PSRC Puget Sound Regional Council

RCTO regional concept for transportation operations

SHRP2 Strategic Highway Research Program 2

SMART Specific, measurable, agreed-upon, realistic, and time-bound

SMF smart mobility framework

SSP safety service patrol 

TDM transportation demand management

TIM traffic incident management

TIM-BC Traffic Incident Management Benefit Cost Analysis

TIP transportation improvement program

TMC transportation management center

TrEPS Traffic Estimation and Prediction System

TSMO transportation systems management and operations

TSP transit signal priority

TOPS-BC Tool for Operations Benefit Cost Analysis

WRTM weather-responsive traffic management

1

1

CHAPTER 1. INTRODUCTION 

INTRODUCTION

OVERVIEW OF DESK REFERENCE

Over the past decade, transportation agencies have increasingly integrated transportation systems 

management and operations (TSMO) in planning at the statewide and metropolitan levels. Using 

an objectives-driven, performance-based approach, State departments of transportation (DOTs) and 

metropolitan planning organizations (MPOs) around the country are working with local jurisdictions, 

transit agencies, law enforcement, toll authorities, and other partners to manage traffic congestion, 

improve system reliability, increase safety, and enhance multi-modal options using operations 

solutions. Rather than relying solely on new road, parking, and transit capacity, this approach 

recognizes that TSMO strategies (e.g,. enhanced incident management, traffic signal coordination, 

transit signal priority (TSP), and traveler information) can often be low in cost, highly effective, and 

implemented in concert with infrastructure to enhance transportation system performance. 

More recently, transportation and planning 

agencies are increasingly witnessing 

the presence of connected-vehicle and 

smart-city technologies, which pose new 

challenges to management and operations 

but also offer unique opportunities. Again 

using an objectives-driven, performancebased approach, transportation 

agencies and MPOs are beginning to 

work with automobile manufacturers, 

telecommunications providers, software 

and sharing-economy service providers, 

and other private-sector partners to collect, 

integrate, and synthesize rich vehicle and 

device-derived data to manage subarea 

mobility and livability goals.

Planning for operations involves identifying operations objectives and performance measures, 

which guide the identification, prioritization, and selection of investments, programs, and 

strategies. The result is implementation of programs, projects, and collaborative efforts to better 

manage and operate transportation systems and services to preserve capacity and improve the 

security, safety, and reliability of the transportation system. Today, many State DOTs and MPOs 

have adopted policies to improve transportation operations by managing travel demand and 

applying transportation management techniques before they take the steps toward considering 

additional capacity. 

A subarea is a defined portion of a region, 

such as a local municipality (city or county), 

a downtown or central business district, 

an activity center, or a neighborhood. 

Transportation planning for a subarea 

addresses more details than area-wide or 

regional planning and generally incorporates 

broader planning context. Subarea plans 

typically provide a greater level of detail in 

the analysis and recommendations unique to 

the obstacles and opportunities in that area.
2

1INTRODUCTION

While many statewide and regional policies and 

programs are advancing implementation of effective 

TSMO strategies, more benefits will occur when 

TSMO is considered and applied strategically at a 

smaller scale where many critical implementation 

decisions are made. Transportation planning within 

subareas presents new opportunities for agencies to 

plan for operations both at a more refined geographic 

scale and at a level where specific, actionable plans 

can be developed. The availability of connectedvehicle and smart-city technologies expands subarea 

transportation planning opportunities even further.

Increasingly, transportation agencies recognize the 

value of the subarea approach instead of looking at 

individual transportation projects on a piecemeal 

or single-facility basis. A subarea approach takes 

a broader view of the interconnected factors that 

influence travel to, from, and within a subarea and 

enables more creative and collaborative approaches 

to addressing subarea transportation problems. 

Traditional transportation planning focuses on 

improving the performance of transportation 

facilities. Performance metrics can include speed, 

throughput, lane capacity, safety, etc. Transportation 

planners and operators view transportation 

infrastructure as an interconnected network of 

facilities and services. Subarea planning—in a 

transportation context—also focuses on improving 

performance, but of a specific place. Planners and 

operators view the subarea as an interconnected but 

geographically limited and bounded amalgam of 

facilities and services. Performance metrics are more 

holistic in subareas and range from objective “hard” 

measures such as the volume, speed, and safety of 

goods and people moving in a subarea to the broader 

measures of performance such as congestion, 

emissions, energy consumption, and land. 

Qualitative or “soft” performance measures are more 

subjective and include such elements as “mobility” 

and “livability,” which are impacted by innumerable 

factors beyond the physical; e.g., zoning, parking, 

delivery, and shared-service policies.

Transportation Systems 

Management and Operations is...?

“... [a set of] integrated strategies to 

optimize the performance of existing 

infrastructure through the 

implementation of multimodal and 

intermodal, cross-jurisdictional 

systems, services, and projects designed 

to preserve capacity and improve 

security, safety, and reliability of the 

transportation system.”

It “includes - (i) actions, such as traffic 

detection and surveillance, corridor 

management, freeway management, 

arterial management, active 

transportation and demand management, 

work zone management, emergency 

management, traveler information 

services, congestion pricing, parking 

management, automated enforcement, 

traffic control, commercial vehicle 

operations, freight management, and 

coordination of highway, rail, transit, 

bicycle, and pedestrian operations; and 

(ii) coordination of the implementation of 

regional transportation system 

management and operations investments 

(e.g., traffic incident management, traveler 

information services, emergency 

management, roadway weather 

management, intelligent transportation 

systems, communication networks, and 

information sharing systems) requiring 

agreements, integration, and 

interoperability to achieve targeted 

system performance, reliability, safety, 

and customer service levels.”

Source: 23 United States Code Section 101(a)(30).
3

1INTRODUCTION

Managing mobility in a subarea requires understanding, measuring, and leveraging many factors 

and is but one aspect of subarea planning, which is an approach used today by most government 

planning agencies across the United States to improve mobility.1 The advent of connected-vehicle 

and smart-city technologies, and their associated data, has great potential to improve the ability of 

planning agencies to better manage subareas. This desk reference describes an approach for TSMO 

planning within a subarea context that incorporates the metropolitan planning concept of looking 

beyond a single factor (i.e., a transportation facility or particular land use, parking, or other policy) 

to focus more holistically on the performance of the subarea’s transportation system from a user’s 

perspective. 

Transportation agencies and stakeholders, including planners, often begin subarea studies from an 

investments perspective to address traffic level-of-service (LOS) and other infrastructure related 

issues. This approach results in proposals for expensive capital investments, which often cost 

more than the available resources can support. Moreover, while TSMO may be a priority from a 

statewide or regional perspective, TSMO strategies often are applied at a broad scale (i.e., via a 

statewide incident management program, regional ridesharing program, or traveler information 

systems) without connecting these programs to a specific subarea’s needs or targeting them to a 

subarea’s unique challenges and conditions.

This desk reference equips subarea planning and operations professionals with the knowledge and 

tools necessary to effectively plan for and implement TSMO in a subarea context. Its purpose is to 

support transportation planners and operations staff in planning for and applying TSMO activities 

within subareas to achieve more reliable, efficient, and livable outcomes from their existing and 

planned transportation infrastructure. Utilizing a planning-for-operations approach at a subarea 

level can help operators focus on issues (e.g., mobility, livability, reliability, and safety) from a 

more holistic perspective and reveal cost-effective demand management and operations solutions 

that may not otherwise have been fully considered. 

This desk reference describes planning for TSMO within subareas so that readers can tailor and 

apply this approach in a variety of subarea contexts. This desk reference is founded upon three 

themes for success that encompass all TSMO planning efforts: 

• Using an objectives-driven, performance-based approach. 

• Collaborating across agencies, jurisdictions, and modes. 

• Linking to overarching planning processes at the metropolitan or statewide level.

This desk reference connects readers to other tools and resources developed by the Federal 

Highway Administration (FHWA) and partners to support a more in-depth understanding of 

several topics introduced in this document. It draws upon concepts, such as integrated corridor 

management (ICM), active transportation demand management (ATDM), and principles of 

metropolitan planning, that are increasingly focusing attention on collaboration across multi modal 

system operators and planners to address subarea conditions. Quick reference sheets provide 

examples of subarea operations objectives, performance measures, and management and operations 

strategies that can be applied as readers move forward in applying the components of planning for 

and implementing TSMO within subareas.

1 U.S. Department of Transportation, Integrated Subarea Management (ICM) Knowledge and Technology Transfer (factsheet), FHWA-JPO-14-151. 

Available at: http://www.its.dot.gov/factsheets/pdf/ICM_KTT_V5.pdf.
4

1INTRODUCTION

This desk reference is a companion to the FHWA document, Planning for Transportation Systems 

Management and Operations within Corridors Desk Reference, which is a resource that addresses the 

specific needs of organizations planning for TSMO in corridors.2

WHO SHOULD USE THIS DESK REFERENCE?

This desk reference is intended for the transportation planning or operations professional looking 

to address specific questions on planning for TSMO within subareas as well as the professional 

who wants to gain a comprehensive understanding of how to successfully improve travel and 

goods movement within a subarea. This desk reference brings together planning and operations 

approaches, practices, and lessons learned that have been developed over the past 10 years and 

provides consolidated assistance on planning for TSMO within subareas. Several sections serve as 

launching points to related FHWA documents that provide more in-depth information and tools. 

A GUIDE TO NAVIGATING THIS DESK REFERENCE

The desk reference is organized into six chapters:

Chapter 1: Introduction

Briefly introduces TSMO within subareas and planning for TSMO in a variety of subarea 

contexts. It helps readers identify the need for TSMO planning at the subarea level.

• Related technical assistance materials: Advancing Metropolitan Planning for Operations: 

An Objectives-Driven, Performance-Based Approach – A Guidebook.3

Chapter 2: Planning for Transportation Systems Management and 

Operations Planning Within Subareas

Makes the case for TSMO planning to achieve a coordinated, strategic implementation and 

ongoing use of TSMO strategies. It provides an overview of the planning context for TSMO 

within subareas and describes examples of current practice. 

Related technical assistance materials:

• Advancing Metropolitan Planning for Operations: The Building Blocks of a Model 

Transportation Plan Incorporating Operations - A Desk Reference.

4

• Performance Based Planning and Programming Guidebook.

5

2 Available Fall 2016 at: http://www.ops.fhwa.dot.gov/publications/fhwahop16037/.

3 Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The Building Blocks 

of a Model Transportation Plan Incorporating Operations - A Desk Reference, FHWA-HOP-10-026 (Washington, DC: 2010). Available at: 

http://www.ops.fhwa.dot.gov/publications/fhwahop10026/.

4 Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The Building Blocks 

of a Model Transportation Plan Incorporating Operations - A Desk Reference, FHWA-HOP-10-027 (Washington, DC: 2010). Available at: 

http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

5 Federal Highway Administration, Performance Based Planning and Programming Guidebook, FHWA-HEP-13-041 (Washington, DC: 

September 2013). Available at: http://www.fhwa.dot.gov/planning/performance_based_planning/pbpp_guidebook/.




5

1INTRODUCTION

• Statewide Opportunities for Integrating Operations, Safety and Multimodal Planning: A 

Reference Manual.6

• The Collaborative Advantage: Realizing the Tangible Benefits of Regional Transportation 

Operations Collaboration.

7

• Regional Transportation Operations Collaboration and Coordination: A Primer for 

Working Together to Improve Transportation Safety, Reliability, and Security.8

Chapter 3: Approach to Subarea Planning for TSMO

Lays out a common sense approach to planning for TSMO within a subarea for a variety of subarea 

contexts. It takes the reader from building a team for the effort to selecting TSMO strategies that 

will best achieve, from a transportation perspective, subareas operations objectives. It provides 

easy-to-use quick reference sheets for a range of operational objectives relevant to subareas, 

including travel time to, from, and within a subarea; traffic signal management; transit priority; 

bicycle and pedestrian accessibility; efficiency; and the broader concepts of mobility and livability. 

Related technical assistance materials:

• Operations Benefit/Cost Analysis Desk Reference.

9

• The Role of Transportation Systems Management & Operations in Supporting Livability 

and Sustainability: A Primer.

10

• Guide for Highway Capacity and Operations Analysis of Active Transportation and 

Demand Management Strategies.

11

• PlanWorks: Linking Planning and Operations.

12

Chapter 4: Moving to Implementation: Transportation Systems Management and 

Operations within Subareas 

Offers information on how to progress from plans for TSMO to implementing, monitoring, 

and maintaining TSMO strategies. This includes obtaining funding for TSMO, agreeing upon 

organizational roles and responsibilities, applying systems engineering, and regularly evaluating 

the effectiveness of the implemented strategies in relation to the subarea objectives. 

6 Federal Highway Administration, Statewide Opportunities for Integrating Operations, Safety and Multimodal Planning: A Reference 

Manual, FHWA-HOP-10-028 (Washington, DC: June 2010). Available at: http://www.fhwa.dot.gov/planning/processes/statewide/practices/

manual/index.cfm.

7 Federal Highway Administration, The Collaborative Advantage: Realizing the Tangible Benefits of Regional Transportation Operations 

Collaboration, FHWA-HOP-08-001 (Washington, DC: August 2007). Available at: http://www.ops.fhwa.dot.gov/publications/benefits_

guide/index.htm.

8 Federal Highway Administration, Regional Transportation Operations Collaboration and Coordination: A Primer for Working Together 

to Improve Transportation Safety, Reliability, and Security, FHWA-OP-03-008 (Washington, DC: 2003). Available at: http://ntl.bts.gov/lib/

jpodocs/repts_te/13686.html.

9 Federal Highway Administration, Operations Benefit/Cost Analysis Desk Reference, FHWA-HOP-12-028 (Washington, DC: May 2012). 

Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop12028/index.htm. 

10 Federal Highway Administration, The Role of Transportation Systems Management and Operations in Supporting Livability and 

Sustainability: A Primer, FHWA-HOP-12-004 (Washington, DC: January 2012). Available at: http://www.ops.fhwa.dot.gov/publications/

fhwahop12004/.

11 Federal Highway Administration, Guide for Highway Capacity and Operations Analysis of Active Transportation and Demand Management 

Strategies, FHWA-HOP-13-042 (Washington, DC: June 2013). Available at: http://ops.fhwa.dot.gov/publications/fhwahop13042/

fhwahop13042.pdf.

12 Federal Highway Administration, PlanWorks: Linking Planning and Operations, Web site. Available at: https://fhwaapps.fhwa.dot.gov/

planworks/Application/Show/7.




6

1INTRODUCTION

Related technical assistance materials:

• Applying a Regional ITS Architecture to Support Planning for Operations: A Primer.

13

• Programming for Operations: MPO Examples of Prioritizing and Funding Transportation 

Systems Management and Operations Strategies.

14

• Designing for Transportation Management and Operations: A Primer.

15

Chapter 5: Toolbox for Effective Transportation Systems Management and 

Operations Planning

Introduces several tools to help ensure effective planning for TSMO within subareas, including 

scenario planning, analysis tools, and benefit-cost analysis.

Related technical assistance materials:

• The Regional Concept for Transportation Operations: A Practitioner’s Guide.

16

Chapter 6: Taking Action 

Describes key actions that readers can take to jump start their efforts to advance TSMO within a 

subarea.

TRANSPORTATION SYSTEMS MANAGEMENT AND OPERATIONS 

WITHIN SUBAREAS

What is Transportation Systems Management and Operations?

Transportation systems management and operations, or TSMO, encompasses a broad set of 

strategies that aim to optimize the safe, efficient, and reliable use of existing and planned 

transportation infrastructure for all modes and geographical areas, including subareas. TSMO is 

undertaken from a systems perspective, which means that these strategies are coordinated with 

related strategies and across multiple jurisdictions, agencies, and modes. TSMO strategies range 

from regional traffic signal systems management to shared-use mobility initiatives (see Table 1 

on page 9 for an expanded list of strategies). TSMO includes efforts to operate the multi-modal 

transportation system and activities to manage travel demand. 

TSMO proactively addresses a variety of transportation system user needs by:

• Influencing travel demand in terms of location, time, and intensity of demand.

• Effectively managing the traffic or transit crowding that results.

13 Federal Highway Administration, Applying a Regional ITS Architecture to Support Planning for Operations: A Primer, FHWA-HOP-12-001 

(Washington, DC: February 2012). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop12001/index.htm.

14 Federal Highway Administration, Programming for Operations: MPO Examples of Prioritizing and Funding Transportation Systems 

Management and& Operations Strategies, FHWA-HOP-13-050 (Washington, DC: September 2013). Available at: http://www.ops.fhwa.dot.

gov/publications/fhwahop13050/index.htm.

15 Federal Highway Administration, Designing for Transportation Management and Operations: A Primer, FHWA-HOP-13-013 (Washington, 

DC: February 2013). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop13013/index.htm.

16 Federal Highway Administration, The Regional Concept for Transportation Operations: A Practitioner’s Guide, FHWA-HOP-11-032 

(Washington, DC: July 2011). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop11032/index.htm.






7

1INTRODUCTION

• Anticipating and responding to planned and unplanned events (e.g., traffic incidents, work 

zones, inclement weather, and special events).

• Providing travelers with high-quality traffic and weather information.

• Ensuring that the unique needs of the freight community are considered and included in all 

of the above.17

TSMO strategies are supported by both institutional and technology-based activities. For 

example, TSMO is enabled by memoranda of agreement among agencies, operational policies and 

procedures, and shared resources (e.g., interoperable communications systems, centralized traffic 

signal operations, and closed circuit television video sharing).

What are the Benefits of Transportation Systems Management and 

Operations?18

TSMO strategies have allowed transportation agencies to address transportation issues in the nearterm, with lower-cost solutions. TSMO strategies deliver a variety of benefits and, particularly for 

subareas, are evaluated based on broader transportation objectives. These include:

• Safer travel: For example, freeway ramp metering has been demonstrated to reduce 

crashes by 15 to 50 percent.

• More free time: Among other time-saving TSMO strategies, traffic signal retiming 

decreases delay on roads by 13 to 94 percent, and TSP reduces transit delay by 30 to 

40 percent.

• Improved reliability: Strategies that reduce unexpected delays (e.g., incident management, 

road weather management, and work zone management) enable the public and freight 

shippers to reduce unexpected delays. TSP improves transit on-time performance.

• Less wasted fuel: Traffic incident management (TIM) programs help to clear incidents 

safely and quickly. They reduce time lost and fuel wasted in traffic backups. For example, 

Georgia’s TIM program (NaviGAtor) reduced annual fuel consumption by 6.83 million 

gallons per year. National studies have shown that integrating traveler information with 

traffic and incident management systems could improve fuel economy by about 1.5 percent.

• Cleaner air: TSMO strategies result in cleaner air by encouraging alternative modes of 

transportation (e.g., transit, ridesharing, biking, walking, and telecommuting) and reducing 

excess idling due to congested bottlenecks. Electronic toll collection reduced harmful 

emissions at Baltimore, Maryland, toll plazas by 16 to 63 percent.

• Improved livability: TSMO strategies for subareas can specifically focus on many non 

facility/non-vehicle-type goals (e.g., transit accessibility, bicycle and pedestrian mode share, 

carbon intensity, transportation affordability, land consumption, bicycle and pedestrian 

safety, and LOS). 

17 U.S. Department of Transportation, Federal Highway Administration Office of Operations, “The Operations Story.” Presentation by Jeffrey 

Lindley (no date).

18 U.S. Department of Transportation, Intelligent Transportation Systems Joint Program Office, Investment Opportunities for Managing 

Transportation Performance through Technology, January 2009. Available at: http://www.its.dot.gov/press/pdf/transportation_tech.pdf.


8

1INTRODUCTION

Sample of Transportation Systems Management and Operations Strategies 

Relevant to Subareas

Many TSMO strategies are applicable and effective at the subarea level. Table 1 lists TSMO 

strategies that agencies can consider when looking to improve the operation of their subareas.

Table 1. Sample of transportation systems management and operations strategies 

relevant to subareas.

TSMO Strategies Supporting Activities

Traffic Management 

and Operations

• Traffic surveillance.

• Traffic signal control:

◦ Enhanced multimodal traffic signal operations.

◦ Synchronized traffic signals.

◦ Emergency vehicle preemption.

◦ Transit signal priority.

◦ Truck signal priority.

• Warning systems (queue, curve, intersection, size, and speed).

• Roadside truck electronic screening/clearance programs.

• Bicycle and pedestrian crossing enhancements (e.g., pedestrian 

count-down signals and detection of bicycles at demand-actuated 

traffic signals).

• Parking management.

• Special event management.

• Use of connected vehicles for management.

Parking Management

• Variably priced parking (e.g., by time of day; dynamic based on 

demand).

• Real-time parking information systems.

• Parking reservation. 

• Overflow transit parking.

• Delivery truck parking.

Traveler Information

• Local/regional multi-modal traveler information.

• Roadside traveler information dissemination.

• Predictive traveler information.

• Real-time transit arrival information.

• Parking availability information.

• Trip planning and routing systems.

Road Weather 

Operations

• Road weather information systems.

• Winter roadway operations.


9

1

TSMO Strategies Supporting Activities

INTRODUCTION

Maintenance and 

Construction 

Management

• Maintenance and construction activity coordination.

• Work zone management.

Incident and 

Emergency 

Management

• Traffic incident management. 

• Emergency management.

• Computer-aided dispatch integration.

• Emergency vehicle routing.

Public Transportation 

Management

• Advanced transit operations management.

• Electronic fare collection and integration.

• Transit surveillance and security.

• Multimodal travel connections.

Transportation 

Demand Management

• Traveler information marketing campaigns.

• Route planning tools.

• Employer programs and commuter incentives.

• Rideshare and bikeshare support.

• Telecommuting.

• Congestion pricing.

• Subarea investments to support mode transfers or trip ends.

Shared Use Mobility/ 

Mobility on Demand

• Bicycle sharing.

• Carsharing.

• Dynamic ridesharing.

• Multimodal hubs.

Complementary 

Strategies that Support 

TSMO

• Bottleneck removal.

• Access management.

• High performance transit.

TSMO = transportation systems management and operations.

Transportation Systems Management and Operations within Subareas: 

Understanding the Subarea Contexts19

When developing strategies for TSMO within subareas, it is critical to understand the context of the 

subarea, including: 

• Any specific activity centers in the subarea, such as a university of corporate campus, a 

public or entertainment venue, etc.

• Surrounding land uses and development patterns.

19 Caltrans, Smart Mobility 2010: A Call to Action for the New Decade (Sacramento, CA: 2010).



Table 1. Sample of transportation systems management and operations strategies 

relevant to subareas (continued).
10

1INTRODUCTION

• Available travel options, such as:

◦ Highways.

◦ Road networks.

◦ Transit.

◦ Non-motorized options.

• Who the system users are, such as:

◦ Freight.

◦ Commuters.

◦ Interstate, intrastate, and local 

travelers.

• Users’ needs and priorities. 

A subarea generally includes multiple modes 

of travel, mixed land uses, arterials, streets and 

substreets, transit, paratransit and ride-share 

services, bicycle and pedestrian connections, 

park-and-ride lots, and other rideshare services. 

Different types of subareas are found in urban, 

suburban, and rural contexts. Some subarea 

plans include multiple localized contexts (e.g., 

urban center, transit station area, and lowerdensity residential areas). For instance, a 

subarea plan could be conducted on a citywide 

or countywide scale, or at the level of some 

other subunit of a metropolitan region, and 

would include a diverse array of contexts. To 

optimize performance of the transportation 

system within a subarea and meet its users’ 

needs, TSMO should reflect the unique form, 

use, and needs of the subarea. 

Some typical types of contexts are listed below:

• An urban center. An urban center, 

which may be a downtown, is generally 

characterized as a dense area with high 

levels of activity and where complex, 

multi-modal transportation systems 

offer options for driving, taking transit, 

walking, and biking. Subarea planning 

in urban centers may focus on the 

broader objective of area mobility. 

Figure 1. Map. Reston study area. 

Reston, VA, is a planned community in the 

western suburbs of the Washington, DC, 

area. With the expansion of the Metrorail 

system to include three new stations in 

Reston along the new Silver Line, Fairfax 

County undertook the Reston Master Plan 

Special Study to identify changes to the 

County’s comprehensive plan to help guide 

future development in Reston and adjoining 

areas along the Dulles Airport Access and 

Toll Road. Phase I of the study focused on 

transit station areas and included 

recommendations focused on transitoriented development and promotion of 

mixed use, walkable development, 

including development of a street grid, 

multi-modal enhancements, and 

transportation demand management 

strategies. Phase I focused on the remainder 

of Reston, including the contexts of 

residential neighborhoods, village centers 

(e.g., commercial and mixed use centers), 

convenience centers (e.g., generally more 

automobile-oriented commercial land uses), 

and other commercial areas. 

Source: County of Fairfax, Virginia.
11

1INTRODUCTION

TSMO strategies for an urban center may focus on multi-modal system performance and 

managing travel demand and may include a wide array of strategies, including parking 

management, TSP, dynamic ridesharing, bikesharing, pedestrian count-down signals, 

real-time multi-modal traveler information, and traffic signal coordination. 

• A transit station area. A transit station area provides a unique context, with the focal point 

typically being a transit rail station, major bus transfer facility, or intermodal facility. Often, 

transit station area plans focus on transit-oriented development as well as circulation of 

buses, general traffic, and pedestrians and bicycles within the vicinity of the station.

• A suburban activity center or20

lower density mixed-use and 

residential area. Suburban 

communities are less dense than a 

downtown core, and a subarea plan 

addressing such an area will often 

address neighborhood and 

environmental preservation, 

recreational facilities, and mobility, 

including traffic, transit, and 

bicycle and pedestrian access. For 

these subareas, TSMO strategies 

may focus on managing traffic and 

incidents to provide predictable 

travel times to and from the 

subarea, shifting demand to transit 

and ridesharing, and balancing 

travel loads across the network. 

Examples of TSMO investments 

may include dynamic highoccupancy vehicle (HOV) or 

managed lanes, parking 

management systems, and dynamic 

merge or junction control. 

• Rural areas. In rural areas, there is 

a reduced amount of development, 

which is often dispersed, and travel 

options are often limited. While 

congestion is generally a minor 

concern, traffic safety and weather 

20 California Department of Transportation, Smart Mobility 2010: A Call to Action for a New Decade, February 2010. Available at: http://www.dot.ca.gov/hq/

tpp/offices/ocp/smf.html.

.

California Department of 

Transportation (Caltrans) Place Types20

Many States and communities define subarea 

contexts in their own unique ways. For instance, 

in its Smart Mobility Framework (SMF), 

Caltrans has defined seven “place types” that 

are used to create distinct contexts for 

transportation investments and operational 

performance, including urban centers, close-in 

compact communities, compact communities, 

suburban communities, rural and agricultural 

lands, protected lands, and special use areas. 

These different contexts are used to define 

appropriate sets of strategies, encompassing 

both infrastructure investments and operational 

strategies. For instance, Caltrans notes that 

reliability is a key objective guiding investment 

and operations in urban centers, which provides 

people with the ability to conveniently use walk, 

bike, and high-capacity transit modes and 

supports street and intersection operations that 

focus on providing predictable travel times with 

traffic and incident management. Conversely, 

rural and agricultural lands have fewer modal 

options due to their more limited activity areas.
12

1INTRODUCTION

conditions (e.g., snow, ice, rain, and fog) are often significant concerns. Subareas in rural 

areas typically experience seasonal, off-peak congestion due to tourism or events (e.g., 

festivals). In addition, in some small towns, stretches of State highways serve as main 

streets and may attract pedestrian and bicycle use. Given the infrequent congestion on rural 

roads, the more aggressive TSMO strategies used in urban and suburban subareas may not 

warrant deployment. TSMO strategies for rural subareas require a flexible approach tailored 

to the specific characteristics of the subarea and may include strategies such as road 

weather management and dynamic routing. 

These are just a few examples of ways in which subarea contexts can differ. It is also important to 

consider that the context may change throughout a subarea, and the different segments may warrant 

different TSMO strategies. 

While at a smaller scale than a region, a subarea will typically have multiple agencies responsible 

for different components of transportation system operations, including traffic signals, transit 

services, and traveler information systems, as well as an array of partners and stakeholders involved 

in event management, parking management, law enforcement, and other functions that affect 

mobility, safety, and other aspects of transportation system performance. Consequently, involving 

a wide range of agencies with responsibilities for mobility in a subarea is critical to taking a 

successful approach to TSMO.

Who Performs Transportation Systems Management and Operations 

within Subareas?

The lead agencies in managing and operating the transportation system components in subareas 

are typically the owners or operators of the facilities (i.e., State and local DOTs, roadway 

authorities, parking authorities, transit agencies, taxi authorities, and shared-use service 

providers), but many other partners are involved in and affect transportation system operations 

within local areas, and these relationships are critical for optimum subarea management.

For example, effective TIM involves coordination among several different groups, including 

responders from a variety of disciplines (e.g., law enforcement, fire and rescue, parking, towing, 

and recovery agencies), as well as the DOT or transportation management center (TMC). 

Implementation of TSP requires coordination among transit agencies that operate services and 

DOTs that are responsible for arterial and city roadway operations. Work zone management 

involves coordinating alternate routes among agencies and their contractors involved in 

construction and infrastructure renewal, other transportation agencies and services that use a 

facility or connect to a facility, as well as TMC and public relations staff who provide information 

to the public. Transportation demand management (TDM) programs often work directly with 

employers to promote travel options to their employees and may include efforts to support 

customized travel planning in communities, support for school-based programs to support 

bicycling and walking, and other options. 

At a subarea level, local governments play a key part in transportation system operations through 

their roles in traffic signal operations, parking management and enforcement, and maintenance. 

However, it is important to recognize the role of State DOTs, regional planning agencies, and 

transit agencies in TSMO programs that will affect subareas. For example, the Denver Regional 


13

1INTRODUCTION

Council of Governments provides engineering support to cities and counties in the region for 

signal retiming. The National Capital Region’s Transportation Planning Board manages the 

Washington region’s Commuter Connections program, which provides regional marketing and 

services (e.g., guaranteed ride home program and ridematching); these services support and 

complement local programs operated by counties, which work directly with employers to support 

telecommuting, ridesharing, transit, walking, biking, and other options.21

Over the past decade, and more recently over the last few years with the advent of connected 

vehicle and smart city technologies, TSMO has benefited from rapidly advancing technology 

(e.g., better data and data analytics). These have facilitated an increased emphasis on cost effective 

transportation solutions and improvements in mobility management and livability. TSMO now 

appears to be headed into an era where State DOTs and regional planning agencies are elevating 

TSMO as a top priority and systematically increasing their operational capabilities. MPOs are 

consistently planning and programming for TSMO and spearheading regional collaboration for 

TSMO. Local governments, with responsibility for operating traffic signals, transit services, road 

maintenance, and snow removal; local police forces; and other services play an increasingly 

important role as TSMO strategies become part of subarea plans. Again, the significant advances 

in vehicle and infrastructure technology and communication systems (e.g., connected vehicles 

and smart city systems) promises to shift the paradigm of how infrastructure, people, vehicles, 

and operators interact to change the way safe, efficient, and reliable transportation and mobility in 

subareas is provided.

A wide range of transportation-related agencies often play a role in how transportation is managed 

and how it operates in subareas, including: 

• Local transportation agencies, which are responsible for arterial traffic signals, pedestrian 

signals, and crosswalks as well as snow removal and winter weather operations. 

• Transit agencies—regional and/or local—operate public transportation services within the 

subarea, which may include bus services, commuter rail, or other rail transit services.

• State DOTs typically operate freeway management systems, 511 traveler information, and 

park-and-ride lots and often are responsible for snow removal on major freeways or other 

roadways within the subarea.

• Parking authorities that are responsible for building, managing, and operating parking 

facilities; regulating private parking facilities and street parking; and enforcing parking 

regulations in support of various transportation management objectives. 

• MPOs may operate regional rideshare or TDM programs and could initiate targeted efforts 

to communities and businesses in the subarea.

• Local transportation management associations or organizations serve businesses or 

communities within the subarea. 

• Toll authorities.

• Port authorities. 

21 See the National Capital Region Transportation Planning Board, Metropolitan Washington Council of Governments web page at: http://www.

commuterconnections.org/.
14

1INTRODUCTION

Typically, there are many different partners that should help to inform or play a role in 

transportation system operations, such as:

• Law enforcement, responsible for incident management and parking enforcement.

• Fire and rescue.

• Local governments, responsible for street and off-street parking policies, zoning, and access 

management.

• Local businesses and venues that serve as activity centers.

• Ports, freight distribution centers, and other goods management facilities.

• Neighborhood associations and other community groups.

TSMO strategies, whether or not they are implemented and operated by a single entity or 

agency, involve building consensus around needs, priorities, performance measures, resources, 

and responsibilities. As a result, the subarea planning or study process should recognize the 

importance of key stakeholders in the subarea who will be affected by—and whose support 

is needed to identify and advance—appropriate TSMO strategies in the subarea, including 

non traditional groups or entities (e.g., private stakeholders). Local businesses, neighborhood 

associations, bicycle/pedestrian advocates, and others will likely be engaged in the decisionmaking process. In the context of connected vehicles and smart cities, automobile makers, cellular 

carriers, automobile insurers, and shared-mobility service providers may need to become partners. 

And all will need to be informed of alternatives, benefits, and potential or perceived negative 

effects of TSMO strategies under consideration. Rather than optimizing individual services or 

facilities, effective subarea transportation operations involves optimizing transportation options 

from a holistic, overall system perspective. 
15

PLANNING FOR TSMO WITHIN SUBAREAS

2

CHAPTER 2. PLANNING FOR TRANSPORTATION 

SYSTEMS MANAGEMENT AND OPERATIONS 

WITHIN SUBAREAS

WHY IS PLANNING FOR TRANSPORTATION SYSTEMS 

MANAGEMENT AND OPERATIONS WITHIN SUBAREAS NEEDED? 

The benefits of transportation systems management and operations (TSMO) within subareas are 

achieved through coordinated, strategic implementation and ongoing support through day-today operations and maintenance, and this requires planning. All TSMO strategies require some 

investment of resources, which could be in the form of funding, data, equipment, technology, or 

staff time. To obtain these resources and then make the best use of them, planning is needed. If 

TSMO is to be implemented effectively within subareas, there are a number of planning activities 

that should occur prior to implementation, including:

• Properly scoping the TSMO effort by obtaining input from all stakeholders within the 

subarea.

• Collaborating among all agencies or parties involved in the TSMO effort.

• Identifying and agreeing on the need for action and desired objectives (or outcomes) for the 

subarea.

• Considering alternative solutions.

• Estimating impacts (good and bad) within the subarea.

• Identifying resource needs and sources.

• Gaining approval from relevant decision makers.

• Planning for ongoing operations and maintenance.

Traditionally, transportation planning and TSMO have been largely independent activities. 

Planners typically focus on long-range transportation plans (LRTPs) and project programming. 

Operators are primarily concerned with addressing immediate system needs (e.g., incident 

response, traffic control, and work zone management). Planning for TSMO connects these two 

vital components of transportation, bringing operational needs and solutions to the planning 

processes and likewise bringing longer term, strategic thinking to operations managers.

The following examples demonstrate the need for planning for TSMO within subareas. The 

examples are a small set of commonly missing opportunities for improving the operational 

performance of the subarea transportation network through TSMO planning.
16

PLANNING FOR TSMO WITHIN SUBAREAS

2

2

Incorporating Transportation Systems Management and Operations as a 

Consideration into Subarea Planning Processes Led by Planning Groups 

When planning groups develop subarea plans, the TSMO perspective often is absent. This 

may occur because planners lack familiarity and experience with operations strategies. TSMO 

activities generally occur outside of the plan, design, and build functions for capital infrastructure 

investment. Often, TSMO is afforded a place alongside system maintenance activities in agency 

organizational charts, relegating TSMO activities to what happens after the planning, design, 

and build out is complete. As a result, agencies miss the opportunity to integrate TSMO with 

the tools and benefits that can help address community needs and achieve community goals. By 

incorporating TSMO planning practices and strategies into the goal setting, existing conditions 

assessment, alternatives development and analysis, and project selection stages, final projects will 

have a balanced plan featuring both operational and infrastructure investments that make them 

more financially feasible and achievable in the near term.

Linking Subarea Network Optimization Efforts Led by Operations Groups 

with the Overarching Policy Framework and Plans of Their Agency 

Coordination activities and integration with long-range planning efforts are often overlooked 

when advancing transportation operations projects. For example, a regional traffic operations 

group initiates a process to provide real-time parking information in a central business district 

(CBD). Their vision is to install several variable message signs at key portals into the CBD to 

transmit data on parking availability. By coordinating during the overarching planning process, 

the traffic operations group can align the operational benefits with the broader goals identified in 

LRTPs to draw champions at the local and regional levels, who will in turn open doors to funding 

and other resources, including integration with other projects. 

Using the Systems Engineering Process to Plan for Intelligent Transportation 

System or Transportation Systems Management and Operations Deployments

The use of the systems engineering process to support the implementation of intelligent 

transportation system (ITS) or TSMO deployments in a subarea is occasionally overlooked. As 

an illustrative example, agency planners forecast 50 percent traffic volume growth in a subarea 

within 10 years. In response, the traffic operations group decides to install adaptive signal 

control technology. The agency procures equipment and software without completing a systems 

engineering process. Implementation falters with the discovery that the selected solution fails to 

meet key needs. Benjamin Franklin wrote, “If you fail to plan, you are planning to fail!” This holds 

particularly true for complex technology solutions like ITS. When agencies use good planning 

practices, like systems engineering, to clarify needs, goals, and requirements, they minimize the 

risk of failure. Failed projects, especially when highlighted by the media, make it harder to secure 

funding and to achieve buy-in from the public and key decision-makers for future projects.






17

PLANNING FOR TSMO WITHIN SUBAREAS

2

PLANNING CONTEXTS FOR TRANSPORTATION SYSTEMS 

MANAGEMENT AND OPERATIONS WITHIN SUBAREAS

Advancing Transportation Systems Management and Operations within Several 

Planning Contexts

Before focusing specifically on planning contexts for subarea TSMO planning, it is important 

to understand the larger context for TSMO planning, which may involve statewide, district, 

metropolitan, corridor, or local or subarea planning. 

At the statewide level, planning for TSMO takes many forms. Planning for how TSMO will 

be conducted may be incorporated broadly in the State’s long-range transportation plan, which 

is developed by the State DOT in collaboration with the State’s MPOs and other transportation 

stakeholders. The State’s long-range transportation plan may contain TSMO elements that are 

part of a larger multi-state initiative that individual States agree to support (e.g., a multi-state 

road-weather information system or traveler information system). TSMO planning also may 

be performed at the district level or across a state, where each State DOT district develops 

its own strategic operations plan in coordination with MPOs and local agencies within each 

DOT district. Alternatively, TSMO planning may occur at the corridor level, across the state, 

especially where a State has identified priority corridors where there are specific needs (e.g., 

improved goods movement from a seaport; more efficient commuter options to and from major 

employment areas; or better access to major entertainment, recreational, or sports venues). The 

2012 surface transportation authorization act, Moving Ahead for Progress in the 21st Century, 

requires that “[t]he statewide transportation plan and the transportation improvement program 

developed for each State shall provide for the development and integrated management and 

operation of transportation systems and facilities...”22 States are encouraged to include TSMO in 

their long-range transportation plans developed through performance-based planning.23 For more 

information on planning for TSMO at the Statewide level, readers should consult the Federal 

Highway Administration’s (FHWA’s) Statewide Opportunities for Integrating Operations, Safety 

and Multimodal Planning: A Reference Manual.

24

At the metropolitan level, planning for TSMO often is led or facilitated by the MPO, which 

convenes a group of TSMO stakeholders, typically including State DOT district or regional 

offices, to advance TSMO in the region. Metropolitan planning for operations is frequently 

conducted in coordination with the development of the metropolitan transportation plan as a 

means of including TSMO priorities and strategies into the overall plan and including TSMO 

program and projects in the transportation improvement program (TIP). FHWA recommends 

that planning for TSMO at the metropolitan (as well as statewide) level be driven by outcomesoriented objectives and performance measures. Rather than focusing on projects and investment 

22 Title 23 United States Code Section 135(a).

23 Federal Highway Administration, Model Long-Range Transportation Plans: A Guide for Incorporating Performance-Based Planning,

FHWA-HEP-14-046 (Washington, DC: August 2014). Available at: http://www.fhwa.dot.gov/planning/performance_based_planning/mlrtp_

guidebook/.

24 Federal Highway Administration, Statewide Opportunities for Integrating Operations, Safety and Multimodal Planning: A Reference 

Manual, FHWA-HOP-10-028 (Washington, DC: June 2010).Available at: http://www.fhwa.dot.gov/planning/processes/statewide/practices/

manual/index.cfm.


18

PLANNING FOR TSMO WITHIN SUBAREAS

2

2

plans, the planning-for-operations approach first emphasizes developing objectives for 

transportation system performance and then using performance measures and targets as a basis 

for identifying solutions and developing investment strategies. This is called the “objectivesdriven, performance-based approach.” FHWA provides more information on using this approach 

to integrate TSMO into the metropolitan transportation planning process in a key document: 

Advancing Metropolitan Planning for Operations: The Building Blocks of a Model Transportation 

Plan Incorporating Operations - A Desk Reference.

25

Corridor planning focuses on planning for a linear system of multi-modal facilities in which 

an existing roadway or transit facility will typically serve as the “backbone” of the corridor. The 

travel-shed helps determine the length and breadth of a corridor area, which usually connects 

major activity centers or logical destinations. Corridors can range in length from a few miles in 

an urban location to hundreds of miles for State or multi-State corridors. In addition to different 

spatial scales, corridors also may have different modal foci (e.g., freight rail corridor, high 

capacity passenger rail corridor, limited-access highway corridor, or bus rapid transit corridor). 

Usually, corridor planning focuses on a combination of modes and a network of facilities.

Local or subarea planning refers to planning which addresses

“A defined portion of a region (such as a county) in more detail than area-wide or 

regional plans. Subarea studies are similar to corridor studies, with the distinction 

that a subarea study generally addresses more of the total planning context and the 

broader transportation network for the area.”26

Because subarea planning addresses a fairly broad planning context, this often involves a larger 

number of potentially affected stakeholders and comprehensive visioning for the area. Local 

studies may address a municipality (city or county) or other area, and may include a wide array 

of different issues, including transportation (motorized and non-motorized mobility), land use, 

and urban design. Corridor planning for TSMO also occurs at the local level (e.g., when one or 

more local agencies want to address mobility issues on an individual corridor within the local 

jurisdiction). 

Statewide and metropolitan long-range transportation plans establish the policy framework for 

corridor, local, and subarea planning and provide guidance in terms of regional and statewide 

priorities related to goals, objectives, strategies, and transportation investments. MPOs, counties, 

and cities commonly lead local and subarea planning efforts. On the other hand, corridor studies 

and planning activities are often performed by State DOTs and MPOs.

Statewide and regional TSMO or ITS plans and associated architectures are a resource that can 

inform corridor, local, and subarea planning activities. These plans typically include existing and 

planned TSMO strategies that have been identified for statewide or metropolitan area use. Some 

include suggested TSMO strategies or implementation projects for specific subareas or an entire 

toolbox of potential strategies to consider.

25 Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The Building Blocks 

of a Model Transportation Plan Incorporating Operations - A Desk Reference, FHWA-HOP-10-027 (Washington, DC: 2010). Available at: 

http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

26 Federal Highway Administration, Guidance on Using Corridor and Subarea Planning to Inform NEPA (Washington, DC: April 2011). 

Available at: http://environment.fhwa.dot.gov/integ/corridor_nepa_guidance.asp#toc212.
19

PLANNING FOR TSMO WITHIN SUBAREAS

2

The Who, Why, When, and Where of Transportation Systems Management and 

Operations Planning within a Subarea

The context for TSMO planning at the subarea level provides answers to the basic questions of 

why, who, where, and when (Figure 2).

Motivation for Transportation Systems Management and Operations Within Subareas (Why)?

The answer to why provides the primary motivation for considering TSMO strategies 

within the subarea. The motivation can be 

the result of the broader planning process 

where a specific subarea is identified as an 

area requiring significant improvements 

or corrections (as in Example Context 1), 

or it could come through a coalition of 

local and regional partners that identifies 

a particular subarea as critical to mobility 

and economic activity throughout a larger 

area. For example, central business districts 

(CBD) may develop pedestrian malls, offstreet parking, bicycle sharing, and other 

amenities to attract businesses, employers, 

tourists, and consumers to that area as a 

means of stimulating economic activity. The 

need for subarea improvements also could 

come from within operating agencies that 

see opportunities for providing a higher 

level of service (LOS) to travelers in 

the subarea (e.g., through more accurate 

and timely traveler information, better 

synchronized signals, or improved incident management in the subarea). The example provided 

in Context 1 illustrates how frequent incidents in roadways that travel into and through CBDs 

require a range of stakeholders because of the potential effects of improvements on businesses, 

nearby neighborhoods, transit services, pedestrians, bicyclists, and others. Investments required 

to implement improvements may be integrated into regional transportation plans and may provide 

the motivation for implementing TSMO strategies and tactics in a subarea. 

The why also might be the result of growing concerns about congestion, safety, air quality, 

reliability, or other recurring problems within a subarea, or in search of ways to stimulate 

economic activity within the subarea, which may or may not be addressed in regional 

transportation plans. The motivation also might come as a result of a desire to improve the 

livability of a subarea within a larger region (see Example Context 2). Interest in TSMO strategies 

in a subarea also might arise in conjunction with new development projects when integrating 

TSMO strategies and tactics can be most cost effective (see Example Context 3).





Figure 2. Diagram. Context for transportation 

systems management and operations planning 

within subareas. 

WHY

Motivation 

for Subarea 

TSMO 

Planning

WHERE

Geographic 

Area for TSMO 

Subarea

Improvements

WHO

Responsibility and 

Capability for 

TSMO Subarea 

Improvements

Timeframe for 

TSMO 

Subarea 

Improvements

WHEN

TSMO=transportation systems management and operations.
20

PLANNING FOR TSMO WITHIN SUBAREAS

2

2

Who?

The who for TSMO planning for subareas establishes responsibility for planning and 

implementing TSMO strategies within a subarea that may span multiple jurisdictions 

(e.g., city and county) and requires interagency and multi-jurisdictional agreements regarding 

responsibilities for planning, designing, implementing, operating, monitoring, and maintaining 

TSMO strategies and tactics. This could be an authority acting on behalf of multiple entities 

(e.g., a toll authority or regional transit authority) or a single entity designated as the lead agency 

on behalf of other jurisdictions or agencies. Alternatively, if the subarea of interest is within a 

single jurisdiction, responsibility may lie with a single agency within the jurisdiction, but, even in 



Example Context 2: 

Supports subarea planning.

• Why – The need for a specific subarea 

planning study has been identified as 

part of a regional or agency 

transportation systems management 

and operations (TSMO) planning effort 

based on operational deficiencies 

within the subarea.

• Who – The key stakeholders who 

operate transportation systems and 

related services (e.g., parking, bike 

share programs, transit services, urban 

delivery) within the subarea have been 

identified as part of the larger regional 

transportation system and should be 

used as a starting point. A subarea 

TSMO committee comprised of local 

transportation agency leaders and other 

stakeholders also may provide a 

sounding board for input throughout 

the study.

• Where – The subarea limits help 

identify expanded stakeholders (e.g., 

businesses, neighborhoods, freight, etc.) 

within the subarea that are impacted.

• When – The planning includes TSMO 

from start to finish.

Example Context 1:

TSMO applications within the 

subarea are outside the regional planning 

process, such as incident management on 

roadways in the central business district. 

• Why – Data indicate a high number of 

incidents at signalized intersections 

within the central business district, 

causing delays and traffic diversion 

onto nearby neighborhood streets.

• Who – Local law enforcement and 

response agencies are used as a starting 

point to identify the potential response 

team. Other potential stakeholders 

include local agency traffic operations 

staff, if they operate any part of the 

signal system, and local police, fire, and 

medical responders. See Example 

Context 2 for expanded stakeholders.

• Where – The subarea limits (in this 

case, defined by past high-incident 

intersections) help identify the specific 

stakeholders that may be required, such 

as city police instead of State police, 

local neighborhood representatives, 

nearby businesses, transit operators, 

and others who depend on mobility in 

the subarea.

• When – Initiate the planning process as 

soon as performance metrics first 

indicate an issue on the roadway.
21

PLANNING FOR TSMO WITHIN SUBAREAS

2

this case, there are likely to be other agencies and jurisdictions that are affected by decisions made 

with respect to the subarea of interest, thus communication and coordination with these agencies 

and jurisdictions is important to the success of the TSMO improvements in the subarea.

The who in TSMO planning for subareas reflects the capacity and experience of the responsible 

agency or agencies. Agencies with considerable experience in TSMO planning will have the 

tools needed to evaluate various TSMO strategies and will understand the data available to 

evaluate these strategies. Agencies with less institutional knowledge and experience with TSMO 

strategies and tactics can draw on external expertise to assist in integrating TSMO into subarea 

planning. Moreover, those with less experience may find institutional resistance to considering 

and committing resources to TSMO improvements and may need to enlist the support of 

champions who can help make the case for TSMO as a means for improving transportation system 

performance within the subarea, particularly as it relates to other subarea priorities (e.g., economic 

development, livability). 

In some cases, a regional entity, such as an MPO or the major jurisdiction (e.g., city, county, 

or parish), will serve as the lead or facilitating entity for convening multiple agencies and 

jurisdictions to develop operations objectives for the subarea under consideration, especially if the 

subarea improvements have implications beyond the subarea (e.g., restrictions on vehicle access, 

changes in parking availability). State DOT district or regional offices also may be involved 

because, in some States, the State DOT is responsible for maintenance and operations of signal 

systems within local jurisdictions. Other local and State agencies, such as law enforcement, also 

may be engaged, because they are often the entities most visible to the traveling public and will 

have significant responsibility for implementing and enforcing new operations strategies. 

Example Context 3:

A study does not include transportation systems management and operations (TSMO) 

as initial focus, such as developing bicycle routes, off-street parking, or a pedestrian mall. 

• Why – A subarea study is initiated to consider limiting vehicle access to a commercial area 

(e.g., pedestrian mall), reducing or narrowing vehicle lanes to accommodate bicycle lanes, 

or enhancing off-street parking services.

• Who – The initial team may only include city or county planners. A subarea TSMO 

champion could reach out to the study team and offer education and assistance with an 

evaluation of TSMO strategies that may help address the problem. See Example Context 1 

for expanded stakeholders.

• Where – The project boundaries inform operational responsibilities. For example, a city 

may need help from its State department of transportation, which operates a regional or 

statewide traveler information system or owns and operates signal systems that pass 

through the subarea.

• When – As soon as a subarea TSMO champion is aware of the study, the champion should 

approach the project team about incorporating TSMO into the study. If a champion is in place 

at the executive level, they may be able to add TSMO to the study during the scoping process.
22

PLANNING FOR TSMO WITHIN SUBAREAS

2

2

Where?

The where of TSMO planning for subareas is critical both to identifying key entities responsible 

for planning and implementing TSMO strategies and tactics and to determining who will benefit 

or be otherwise affected by TSMO strategies and tactics considered for the subarea. For example, 

improving signal synchronization in a CBD will improve mobility for travelers who wish to move 

through an area quickly; on the other hand, local business along the route may perceive (rightly 

or wrongly) that they are less accessible due to higher average speeds, pedestrians may feel that 

they are at greater risk because of traffic flows, and adjacent neighborhoods may perceive (again, 

rightly or wrongly) that they are given lower priority (seen as longer cycle times for the primary 

roadway). 

Subareas of interest are often within major population centers, and both mobility and accessibility 

are critical to the well-being of the people, the quality of services (e.g., schools and hospitals), and 

the success of businesses within the subarea. Mobility and accessibility involve moving goods 

and people into, within, and through the subarea and the adjacent, broader region. The examples 

provided in the next section illustrate the variety of geographic boundaries that may fall within a 

subarea, depending on the issues that drive decisions regarding investments in TSMO strategies. 

When?

The when of TSMO subarea planning considers both the point at which TSMO planning takes 

place and the timeframe for TSMO strategies and tactics. TSMO subarea planning is most 

effective when integrated into the planning process for a new facility, when an existing facility 

is expanded or undergoing major renovation, or when other major investments are being 

made within the subarea (e.g., major utility improvements that require affect mobility during 

installation, major commercial developments that will affect future traffic demand and flows). At 

that time, plans for TSMO projects that require the installation of technology (e.g., cameras, fiber 

optics, transit priority options, and dynamic message signs) or roadway features (e.g., turn lanes 

and dedicated lanes) can be included in the design most effectively. However, in many cases, 

TSMO strategies are considered only when issues arise that require attention to transportation 

operations or highlight the need for new services (e.g., transit routes and schedules, parking 

management).

In addition to when the TSMO subarea plans are developed and implemented, the TSMO planning 

process considers the timeframe for implementation and operation of the TSMO investments. 

TSMO investments typically have short returns-on-investment (ROI) relative to other investments 

in transportation infrastructure and so can be justified based on much shorter life cycles than can 

major capacity expansion projects. Further, in subareas, transportation system performance may 

not be the only—or even the most important—aspect of investments in TSMO. For example, a 

smartphone app that points vehicle operators to available parking may be primarily designed to 

encourage visits to a commercial district rather than expedite vehicle movements. On the other 

hand, TSMO investments tend to be technology intensive and, with relatively rapidly changing 

technology, investments in these strategies should be made with an eye toward next-generation 

technologies and capabilities. As more advanced technologies emerge in sensors, vehicles, 

communications, visualization, etc., TSMO subarea planning should consider how current 

TSMO investments will accommodate future upgrades and new capabilities that may make past 




23

PLANNING FOR TSMO WITHIN SUBAREAS

2

investments less attractive. For example, growth in shared mobility services (e.g., ZipcarTM or 

UberTM) may lead to integrating accommodations for and real-time information about these shared 

service into subarea TSMO plans.

EXAMPLES OF CURRENT PRACTICES

Below are brief examples of current practices for TSMO planning at the subarea level. These 

help to illustrate the wide breadth of activities that are considered to be planning for TSMO 

within subareas.

• East Metro Connections Plan (Metro, Portland, Oregon)27 – This subarea plan was born 

out of an agreement by the county and four cities that transportation solutions are necessary 

to advance economic development. A phased 20-year action plan identified specific 

transportation, community, and economic development projects. Analysis to develop the 

action plan considered land use, local aspirations, pedestrian, bicycle, management and 

operations, freight, highway, road, and transit solutions to address subarea needs and issues. 

• Downtown in Motion (City of Salt Lake City, Utah)28– The city developed this plan to 

improve traffic flow efficiency and facilitate multiple modes and transportation uses 

throughout downtown. TSMO strategies were a key component of the plan. The final plan 

was informed by a concurrent long-range downtown vision study and extensive stakeholder 

input, community leaders, and the public.

• Midtown in Motion (New York City DOT (NYC DOT), New York, New York)29 – This 

award winning project improved travel times by 10 percent within a 110-square block zone 

through the implementation of TSMO strategies (e.g., travel time measurement, advanced 

traffic signal control, a wireless communications network, and an integrated multi-agency 

TMC). Planning efforts for this project stemmed from NYC DOT’s 2008 Sustainable 

Streets Strategic Plan,30 which identified policies and actions for safety, mobility, worldclass streets, infrastructure, greening, global leadership, and customer service. 

27 Metro, Portland, Oregon, East Metro Connections Plan, June 2012. Available at: http://www.oregonmetro.gov/east-metro-connections-plan.

28 City of Salt Lake City, Downtown in Motion: Salt Lake City Downtown Transportation Master Plan, November 6, 2008. Available at: http://

www.slcgov.com/transportation/transportation-downtown-motion-salt-lake-city-downtown-transportation-master-plan.

29 New York City Department of Transportation, NYC DOT Announces Expansion of Midtown Congestion Management System, Receives 

National Transportation Award, June 5, 2012. Available at: http://www.nyc.gov/html/dot/html/pr2012/pr12_25.shtml.

30 New York City Department of Transportation, Sustainable Streets: Strategic Plan for the New York City Department of Transportation 2008 

and Beyond, 2008. Available at: http://www.nyc.gov/html/dot/html/about/stratplan.shtml.
PLANNING FOR TSMO WITHIN SUBAREAS

2

2

24

• Strategic Regional Thoroughfare Plan (Atlanta Regional Commission, Georgia)31

– The purpose of the plan was to identify existing regional arterial thoroughfares and then 

focus on using TSMO and maintenance strategies to maintain or enhance multimodal 

mobility around the region. The plan conducted evaluations at both the corridor and subarea 

levels. The subarea evaluation used macro analysis tools, including dynamic traffic 

assignment (DTA). The corridor evaluation used micro traffic simulation to study the 

detailed operational characteristics of the corridor. 

• Safe and Sustainable, Multi-modal, Accessible, Reliable and Resilient, and Technology 

Corridors/Congestion Management Process (PSRC, Washington)32 – Although termed 

“corridors,” PSRC has identified 12 subareas that encompass a four-county area to provide a 

framework to support local and corridor analyses. Three categories of strategies (i.e., TSMO, 

alternative mode support, and transportation demand management (TDM)) are used in the 

planning process. Their purpose is to reduce or mitigate congestion within each subarea. 

• South Bay Cities Smart Mobility Framework Pilot (Los Angeles County, California)33

– This pilot project evaluated how to apply Caltrans’ Smart Mobility Framework (SMF)34 to 

a subarea LRTP. This particular pilot used the SMF to identify transportation improvements 

in combination with land-use strategies to attain sustainable community objectives for the 

South Bay Cities subarea and identified performance metrics, data needs, and 

recommended analysis approaches. Five scenarios with a variety of land uses and 

transportation improvements (e.g., traditional and TSMO-focused, including mobility hubs, 

shared lanes, and neighborhood electric vehicle subsidies) were analyzed (using tools such 

as the travel demand model and regional household travel survey data) and reported to a 

dashboard that compares SMF performance metrics. The pilot project includes conclusions 

and findings (e.g., a recommendation to develop a tool to prioritize projects using 

quantifiable metrics). 

31 Atlanta Regional Commission, Strategic Regional Thoroughfare Plan, January 2012. Available at: http://www.atlantaregional.com/

transportation/roads--highways/strategic-regional-thoroughfare-plan.

32 Puget Sound Regional Council, Congestion Management Process, 2010. Available at: http://www.psrc.org/transportation/cmp/.

33 Caltrans Office of Community Planning, Implementing the Smart Mobility Framework into a Sub-regional Long Range Transportation Plan, 

September 2014. Available at: http://www.dot.ca.gov/hq/tpp/offices/ocp/Appendix_K_PA2_Recommendations_Report_Final.pdf.

34 Caltrans, Smart Mobility 2010: A Call to Action for the New Decade, February 2010. Available at: http://www.dot.ca.gov/hq/tpp/offices/ocp/

smf.html.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

25

3

CHAPTER 3. APPROACH TO SUBAREA PLANNING 

FOR TRANSPORTATION SYSTEMS MANAGEMENT 

AND OPERATIONS

This chapter provides information on fundamental activities that should typically occur when 

planning for transportation systems management and operations (TSMO) at a local or subarea 

scale. Recognizing that subarea planning typically focuses on issues such as land use and 

zoning, development densities and urban design, the environment and recreational facilities, and 

transportation together, rather than on TSMO specifically, this chapter puts TSMO planning into 

the context of a more comprehensive planning study process. Figure 3 provides an overview of 

a comprehensive approach to planning for TSMO within subareas and is used throughout the 

next two chapters to highlight the major activities. This approach to TSMO planning in subareas 

builds upon the framework of an objectives-driven, performance-based approach to planning for 

operations that has been developed for advancing TSMO at the metropolitan or regional scale.

Key steps in this approach include:

• Getting started – scoping the effort and building a team.

• Gathering information on current and future context and conditions.

• Developing an outcome-oriented operational concept, including operations objectives.

• Identifying operations performance needs, gaps, and opportunities.

• Developing an integrated TSMO approach:

◦ Identifying TSMO strategies based on operations objectives and performance needs.

◦ Evaluating TSMO strategies.

◦ Selecting TSMO strategies. 

GETTING STARTED – SCOPING THE EFFORT AND BUILDING 

A TEAM 

Successfully advancing TSMO in a local or subarea plan requires a foundation of effectively 

scoping the effort and building a team of partners and stakeholders to bring into the planning 

process (Figure 4).

Subarea planning typically includes significant public engagement (involvement of community 

groups and residents), given the local scale of planning. Because these plans typically include 

a significant focus on land use and development, they often engage discussions about density 

and design of development; street network and street scape improvements; and issues related 

to affordable housing, schools, and recreational facilities. While transportation is an important 
component, subarea plans traditionally have not 

engaged discussions about transit management, 

parking management, traffic incident 

management (TIM), and other operational 

considerations. Therefore, key questions to 

consider in scoping the effort include:

• What do we want to accomplish/address 

from a transportation system operations 

perspective?

• What are the pressing issues in terms of 

mobility, reliability, and transportation 

safety in the area of study?

• What agencies, organizations, and 

stakeholders are involved in aspects of 

TSMO? Who beyond the traditional 

participants should be involved in this 

planning process, why, and how?

Tools that can be leveraged to scope the effort 

and build a team include:35

• Statewide or regional intelligent 

transportation system (ITS) 

architecture – Most States and large 

metropolitan areas already have an ITS 

architecture in place. This framework for 

planning, defining, and integrating ITS 

can provide insights into the management 

and operations services, stakeholders, 

and performance measure data that may 

play a role in a subarea plan.

• Regional concept for transportation 

operations (RCTO) – An RCTO is an 

objectives driven, performance-based 

approach to planning for one or more 

specific operations areas (e.g., traveler information or traffic incident management (TIM)). 

The RCTO, which typically includes roles, responsibilities, and resources needed to achieve 

specific operations objectives, can be used as a tool to develop and implement TSMO 

strategies at the subarea level.

35 For more information, see: Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for 

Operations: An Objectives-Driven, Performance-Based Approach – A Guidebook. Available at: http://www.ops.fhwa.dot.gov/publications/

fhwahop10026/.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Figure 3. Diagram. Approach to planning 

for transportation systems management and 

operations within subareas.

TSMO=transportation systems managment and operations.

26
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

27

3

• Statewide or regional 

corridor planning guide

– Some State departments of 

transportation (DOTs) and 

metropolitan planning 

organizations (MPOs) have 

developed TSMO strategic 

plans or program plans to 

guide their efforts. For 

instance, Metro, the MPO 

for the Portland, Oregon, 

region, developed a Regional 

TSMO Plan.36 This plan 

identified four investment 

focus areas (multi-modal 

traffic management, traveler 

information, TIM, and 

transportation demand 

management (TDM)) and 

identified investment 

priorities, which could be 

used to support local area 

planning efforts. A number 

of State DOTs also have 

developed TSMO programs and associated plans to help provide direction on priorities. For 

instance, Florida DOT developed a TSMO Strategic Plan and a TSMO Business Plan and 

has been working across its Districts to prioritize TSMO strategies.37 A regional or 

statewide TSMO plan can provide direction on objectives and strategies to consider at a 

subarea level. 

The team that focuses on TSMO within a subarea planning study should interact with and 

be integrated into the broader study team for the subarea to ensure that TSMO strategies and 

operational issues are explored in the context of a full array of planning goals and issues. For 

instance, goals and priorities driving a subarea study may include topics such as increasing 

accessibility for pedestrians and bicyclists, increasing transit ridership, and supporting economic 

vitality. TSMO strategies should be considered together with investments in infrastructure and 

programs that support these goals, such as investments in bicycle lanes and improved pedestrian 

crossings.

36 For more information, see: Metro, Regional Transportation System Management and Operations: 2010-2020. Available at: http://www.

oregonmetro.gov/sites/default/files/062010_regional_transportation_system_management_operations_plan_executive_summary.pdf.

37 For more information, see: Florida Department of Transportation, Transportation System Management & Operations. Available at: http://

www.dot.state.fl.us/trafficoperations/TSMO/TSMO-home.shtm.

Figure 4. Diagram. The “Getting Started” activity of 

the approach for planning for transportation systems 

management and operations within subareas.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Getting Started: Scoping the Effort 

and Building a Team
28

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Chapter 1 includes a preliminary list of transportation-related stakeholders that should be 

considered to support TSMO in a subarea study. Effectively engaging the team involves 

developing a shared understanding of roles, responsibilities, and the needs of key constituencies 

(e.g., partnering agencies, authorities, network owners and operators, stakeholders, and the users 

of the subarea transportation system). The team will then work together to define needs in the 

study area, agree upon goals and objectives, develop preliminary consensus on pragmatic concepts 

for strategies or combinations of strategies that realistically address specified goals and objectives, 

and develop viable operating scenarios under which the concepts and strategies can be analyzed.

Although there is no universal approach to team building, the following approaches have worked 

for some regions:38

• Build on an existing collaborative group – Draw from an existing operations group or a 

committee that has already been used to develop a regional ITS architecture or RCTO as a 

starting point for identifying stakeholders. An existing operations group may be able to 

incorporate the subarea project into its meeting agendas.

• Ensure at least one committed champion for TSMO – Ideally, the champion has a clear 

vision of desired outcomes, brings the stakeholders together, ensures they are engaged, and 

works to get the support needed to achieve the desired outcomes.

• Gather support from elected or appointed officials and agency leadership – Identifying 

an advocate for TSMO who is an elected or appointed official or is at the executive 

leadership level within a transportation agency can help enhance the success of bringing in 

TSMO strategies.

• Engage participants – It is important to identify and engage the array of operating 

agencies and stakeholders that will play a role in, and ultimately be critical to, operations 

within the study area. Typically, this will include local transportation agencies, a State 

DOT, transit agencies, and representatives of local governments and community groups. 

Law enforcement, emergency responders, and major employers also may be important 

participants. If some participants, such as emergency management agencies, are unable to 

attend project committee meetings, better success may be realized by taking the project to 

other established forums held by those stakeholders.39

• Form a tiered collaborative structure with a strong mandate – The use of a steering 

committee with agency leaders can provide project guidance and make high-level decisions, 

while a working group comprised of technical staff can help shape the technical approaches 

needed to deliver on the leaders’ vision. 

Benefits of Collaboration 

Enhancing collaboration and coordination among agencies involved in TSMO within a subarea is 

vital to developing solutions for optimizing performance across the transportation network; this is 

particularly true in complex urban areas with many different operators and choices of modes and 

38 For more information, see: Federal Highway Administration, The Regional Concept for Transportation Operations: A Practitioner’s Guide. 

Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop11032/.

39 For suggested stakeholders based on operational objectives, see: Federal Highway Administration and Federal Transit Administration, 

Advancing Metropolitan Planning for Operations: An Objectives-Driven, Performance-Based Approach – A Guidebook, FHWAHOP-10-026 (Washington, DC: 2010). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10026/.


APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

29

3

routes. Collaboration produces tangible benefits both to participating agencies and jurisdictions as 

well as to system users and other stakeholders who depend on effective multi modal transportation 

system operations in moving people and goods. These benefits fall into three general groups:

• Access to and use of existing resources.

• Improvements in current operations.

• Better outcomes for system users and other stakeholders.40

Expanded Access to Resources and More Efficient Use of Existing Resources 

The visible and immediate benefits of collaboration among operating agencies and stakeholders in 

a subarea may be realized through strategies such as:

• Pooling funds to avoid duplicate investments or purchases.

• Participating in joint training activities.

• Taking advantage of special expertise or experience that may reside in some, but not all, 

agencies. 

• Adopting common standards for technology that can simplify interagency and 

multijurisdictional interactions and mutual support.

• Acquiring and maintaining more current and more effective hardware and software systems.

Each of these approaches, or several in combination, can improve the use of available resources.

Improved Agency Operations 

Beyond more efficient access to and use of resources, collaboration enables cooperating entities to 

perform their missions more effectively. These improvements can result in:

• Sharing information among system operators and owners so that they have greater 

awareness of current and anticipated events affecting other agencies (i.e., traffic 

management specialists know when there is a transit disruption, and vice versa).

• Developing standard protocols and procedures among agencies that operate within the 

subarea.

• Improving responsiveness to events and incidents by sharing information, assets, and 

responsibilities.

• Working cooperatively to leverage all available assets, skills, and personnel to improve 

efficiency.

Each of these and other strategies can enhance working relationships during routine operations 

and offer the added benefit of providing the foundation for preparing for and responding to 

emergency situations, crashes, intentional attacks on transportation assets or other infrastructure, 

planned special events, or major weather events. 

40 For more information, see: Federal Highway Administration, The Collaborative Advantage: Realizing the Tangible Benefits of Regional 

Transportation Operations Collaboration, FHWA-HOP-08-001 (Washington, DC: August 2007). Available at: http://www.ops.fhwa.dot.gov/

publications/benefits_guide/index.htm.




30

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Better Outcomes or Results for Travelers, Suppliers or Shippers, and Other Stakeholders

Ultimately, system users and communities benefit through effects such as: 

• Safer transportation facilities (e.g., transit stations and bicycle/pedestrian paths and lanes).

• Lower fuel consumption through more efficient traffic operations combined with more and 

better alternatives to private-vehicle use.

• Shorter travel times achieved through congestion mitigation strategies and more effective 

system management and operation.

• More accurate, timely, and relevant information about past, current, and anticipated travel 

conditions, modes, schedules, travel times, and travel options so that travelers, shippers, and 

others can make more informed travel decisions.

Over time, these benefits will prove to be the most important because they are the outcomes 

that are valued by travelers, shippers, environmental organizations, neighborhood associations, 

bicycle/pedestrian advocates, residents, and others who have a stake in the subarea.

A Framework for Collaboration and Coordination in a Subarea

Five key, or foundational, elements characterize 

the collaboration and coordination necessary 

for effective TSMO within a subarea. As 

shown in Figure 5, these five elements are 

connected, interactive, iterative, and build upon 

foundational elements that can be applied at 

multiple scales.41

The starting point for collaboration and 

coordination is the structure, or the means 

through which individuals and agencies come 

together to identify needs, establish priorities, 

make commitments, allocate resources, 

and evaluate performance. In a subarea, 

which may be a city or county jurisdiction, 

business district, unincorporated area, or 

other area, a structure might be formalized 

in a working group that brings together 

agencies that play a role in transportation 

system operations. This group could be 

convened as part of a local government 

transportation or planning agency, a 

transportation management association, 

or other organization.

41 Federal Highway Administration. Regional Transportation Operations Collaboration and Coordination: A Primer for Working Together to 

Improve Transportation Safety, Reliability, and Security, FHWA-OP-03-008 (Washington, DC: 2003).





Source: Federal Highway Administration. Regional Transportation 

Operations Collaboration and Coordination: A Primer for Working 

Together to Improve Transportation Safety, Reliability, and Security.

Performance

Resources Products

Process

Structure

Figure 5. Diagram. The framework for 

collaboration and coordination in a subarea.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

31

3

The process is the course of action taken through which options are created and decisions are 

made. The process could involve formal activities like a structured set of meetings as part of a 

subarea planning process or informal activities.

The products are the agreements, arrangements, and commitments to move forward with agreed 

upon strategies. The product may include identified priorities in a subarea plan, a concept of 

operations, operating plans and procedures, or other documents. 

Resources reflect the commitments made in terms of funding, people, equipment, facilities, 

support, and other assets needed to implement the strategies identified for the subarea.

Finally, performance measurement provides the feedback to determine how well the agreed 

upon strategies have been implemented and executed, and the effect these strategies have had on 

outcomes of interest relative to the agreed-upon goals and objectives.

Connections to Broader Planning and Operations Efforts

Planning efforts to enhance transportation operations within a subarea should build off of broader 

planning efforts for TSMO as well as existing operations programs and strategies at a local, 

regional, and State level. Regardless of the size of the area, planning for enhanced transportation 

system operations in a subarea should recognize and build upon existing programs, including: 

• ITS infrastructure (e.g., fiber-optic networks, variable message signs, and traffic cameras).

• State and/or regional traveler information systems, which can be utilized to help provide 

real-time information on incidents, speeds, and other aspects of operating conditions for 

highways, arterials, and transit in the subarea. 

• Regional incident management and response programs, which can be expanded or targeted 

to address subarea-specific issues.

• Work zone management strategies used in transportation management plans for significant 

projects. 

• Regional TDM programs, which often include ridematching services, employer outreach, 

and public outreach and incentives to encourage use of alternatives to driving alone, as well 

as local TDM programs, which may be administered by a local government or 

transportation management association.

• Existing parking management programs, including policies associated with municipal 

parking lots, garages, and meters as well as parking permit programs and real-time parking 

availability information.

• Transit operations, including scheduling, transfer policies, and real-time transit information.

• Existing traffic signal programs.


32

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

In developing goals, operations objectives, and performance measures and identifying and 

selecting appropriate strategies for application, the approach to planning for TSMO in a subarea 

should build upon existing planning efforts that relate to system operations, including:

• Priorities identified in State and regional transportation plans – Statewide and 

metropolitan transportation plans identify policies and priorities that can be used to inform 

identification of potential TSMO strategies for a subarea. For instance, some plans 

emphasize demand management or include a policy to prioritize strategies that increase 

transit, ridesharing, and non-motorized travel over single-occupancy vehicle travel.

• State or metropolitan area TSMO program plans – As noted earlier, some State DOTs 

have developed TSMO program plans that identify key priorities and strategies, and these 

may help to inform strategies that are applicable within the subarea. For instance, 

Wisconsin DOT’s Traffic Operations Infrastructure Plan provides traffic operations 

infrastructure deployment recommendations for priority and emerging priority corridors in 

the State. It and also provides Metro node summaries, which might be consulted in 

developing a subarea plan.42 A number of MPOs also have developed regional TSMO plans. 

For instance, the Baltimore Metropolitan Council developed a Regional Management and 

Operations Strategic Deployment Plan, which includes goals, objectives, and strategies as 

well as screening factors to suggest an implementation order for projects. Similarly, the 

Southeastern Wisconsin Regional Planning Commission completed a Regional 

Transportation Operations Plan in 2012, which identifies short-range actions recommended 

42 Wisconsin Department of Transportation, WisDOT Traffic Operations Infrastructure Plan, April 2008. Available at: http://www.topslab.wisc.

edu/its/toip/Final%20Reports/WisDOT_TOIP_ExecutiveSummary.pdf.

National Capital Region Subarea Transportation Demand Management 

Programs

Transportation demand management (TDM) program services and incentives can be targeted 

to specific subareas. For instance, in the Washington, DC, metro area, individual counties and 

the District of Columbia operate TDM programs that are targeted to employers, employees, 

and residents in their jurisdictions. For instance, the Arlington County Commuter Services 

operates programs such as Arlington Transportation Partners, which provides TDM outreach 

to businesses, multi-family residential communities, developers, and hoteliers; BikeArlington 

and WalkArlington programs, which promote active transportation; and Capital Bikeshare 

Arlington and other programs to encourage alternatives to driving. Several jurisdictions also 

have local transportation management associations that provide TDM services to smaller 

areas, particularly suburban activity centers, such as Tysons Corner in Northern Virginia and 

Bethesda in suburban Maryland. These programs utilize regional ridematching, a guaranteed 

ride home program, and regional marketing through the regional Commuter Connections 

program, operated by the Metropolitan Washington Council of Governments. 

For more information, see: http://www.commuterconnections.org/about-us/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

33

3

for implementation over a 5-year period. While these plans are often high-level, where 

available, they will serve as a very strong basis for more detailed subarea-focused efforts. 

• Regional ITS architectures – A regional ITS architecture provides a common framework 

for planning, defining, and integrating ITS across a State or region. A regional ITS 

architecture can be used by State and local planning agencies and organizations to identify 

integration opportunities and support incorporation of operational needs in transportation 

planning. For instance, the North Jersey Transportation Planning Authority, in coordination 

with New Jersey DOT, is developing an ITS Strategic Deployment Plan and TSMO 

Strategic Plan known as “The Connected Corridor” to serve as a shared vision by 

transportation agencies to more effectively plan, program, and operate the region’s 

transportation system with operational strategies.43 The plan recommends a set of strategies 

to be applied at the Statewide, corridor, and local levels. For instance, strategies in the plan 

that could be explored within a subarea study include real-time monitoring of park-and-ride 

lots (i.e., number of available spaces), implementation of transit signal priority (TSP), 

updating signal timing parameters on State and local arterials on a more frequent basis, and 

expanding adaptive signal control operations. 

• Regional TDM plans – Some metropolitan areas have developed TDM plans, which can 

provide a basis for developing subarea-specific demand management efforts. For instance, 

the Atlanta Regional Planning Commission developed a Regional TDM Plan that defines a 

framework for developing and integrating TDM strategies into planning, project 

development, and system operations investment decision-making.44 The plan identifies key 

goals and strategies that are intended to be addressed with partners from Georgia DOT, the 

Georgia Regional Transportation Authority, local governments, and others.

Effectively planning for TSMO in subareas will build upon existing plans and programs and will 

ensure that subarea plans are compatible with, and take advantage of, these broader efforts. It is 

important to recognize that transportation activities within a jurisdiction or local area are part of a 

larger transportation network, and the policies and strategies being identified at the regional and 

State levels should help to inform the more geographically focused effort. At the same time, the 

plans, strategies, and operational relationships that will be effective within a subarea will reflect the 

specific travel needs, place type, constraints, and opportunities of the subarea. 

43 New Jersey Transportation Planning Authority, The Connected Corridor: Final Report: New Jersey’s TSM&O Strategic Plan and ITS 

Architecture. Prepared by CH2M in association with Advantage Engineering Associates, December 2014. Available at: http://www.njtpa.org/

planning/regional-studies/intelligent-transportation/theconnectedcorridor.aspx.

44 Atlanta Regional Commission, Atlanta Regional Transportation Demand Management Plan, 2013. Available at: http://www.atlantaregional.

com/transportation/commute-options/regional-tdm-plan.
34

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

GATHERING INFORMATION ON CURRENT AND FUTURE CONTEXT 

AND CONDITIONS 

Gathering information about current transportation system performance and the future context is 

a key early step in the development of a subarea plan or strategy for TSMO (Figure 6). Data, both 

qualitative and quantitative, play a vital role in a performance-based approach to planning for TSMO.

Baseline information helps define 

the existing conditions in the 

subarea, including identification of 

challenges and problem areas. Data 

on expected changes in population, 

land use, and travel conditions also 

will help to inform understanding 

of potential future challenges that 

should be addressed during subarea 

planning. Data gathered during this 

phase also are a starting point for 

identifying opportunities for potential 

operations strategies that may be 

applied within the subarea and are 

used in analysis tools and evaluation 

to assess the effectiveness of these 

strategies. Given the critical role of 

data in a performance-based approach, 

gathering quality data and accurate 

information is imperative. 

Often, a technical advisory committee 

or some other type of stakeholder partner group will play a key role in defining subarea objectives and 

in providing guidance on data and information gathering. Members with operations data expertise will 

play an important role in bringing forth operations data to inform the planning process as well as to 

explain data limitations.

Common sources of information include previous plans and studies; data sets on current and past 

system performance, including archived operations data; and forecasts of future conditions. 

A review of existing studies, reports, and plans provides information about the broader planning 

context and may include recent multi modal transportation plans, pedestrian and bicycle plans, landuse and development plans, and infrastructure condition reports. These documents offer insight into 

the long-term, big-picture vision for the study area and transportation policies or practices. Policies 

or practices with implications for TSMO include the use of complete street design principles or road 

diets. Complete streets and road diets often involve the reduction or repurposing of traffic lanes and 

a greater focus on all road users (e.g., transit passengers, bicyclists, pedestrians). Existing studies, 

reports, and plans also can provide data on anticipated future conditions, such as changes in land use, 

population, jobs, transit services, and vehicle or passenger trips. 

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time TSMO=Transportation Systems Management and Operations

Gathering Information on Current and 

Future Context and Conditions

Figure 6. Diagram. The “Gathering Information on 

Current and Future Context and Conditions” activity 

of the approach for planning for transportation 

systems management and operations within subareas.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

35

3

Additionally, information should be gathered on existing operational strategies being used in 

the subarea and the available ITS infrastructure. The organizational capabilities of operating 

organizations for TSMO is also an important component of understanding the existing context. 

Information on current TSMO strategies and the capabilities of agencies in the subregion for 

advancing operations will provide key input when composing an integrated approach for TSMO 

in the region. In support of gathering information on current organizational capabilities, agencies 

can use the FHWA capability maturity frameworks (CMFs) to assess their current strengths and 

weaknesses in one of six TSMO areas:45

• Road weather management.

• Planned special events.

• Traffic incident management.

45 Federal Highway Administration, “Business Process Frameworks for Transportation Operations” Web page. Available at: http://www.ops.

fhwa.dot.gov/tsmoframeworktool/index.htm.

Neighborhood Traffic Management Program: Centennial, Colorado

Centennial, Colorado, is a city in the Denver metropolitan region with a population of about 

107,000. Over the years, the local government saw an increase in requests for neighborhood 

traffic mitigation, and developed the Neighborhood Traffic Management Program (NTMP) to 

help communities develop context-sensitive solutions for traffic calming improvements. The 

program’s objectives are to: improve traffic safety on neighborhood streets by reducing speeding 

and cut-through traffic; foster pedestrian safety; efficiently allocate the use of public resources; 

and encourage citizen involvement in solutions to neighborhood traffic problems.

NTMP works closely with residents to develop neighborhood traffic mitigation plans. The 

program has identified a suite of mitigation tools appropriate for the neighborhood context. 

These tools include physical improvement and TSMO strategies, such as speed monitoring 

displays and upgrading traffic signage (restricted moving signs, truck restriction, etc.)

Neighborhood involvement is a critical component of the planning process. Projects are 

first identified when a citizen submits an application for consideration (this person serves 

as the neighborhood liaison for the project), and residents are engaged throughout the plan 

development process. The project liaison is responsible for demonstrating neighborhood support 

for the project through either an online survey, petition, or email/phone responses. Additionally, 

the NTMP holds a series of meetings with residents and other stakeholders to solicit input about 

the existing traffic issues and the range of strategies that are appropriate for the neighborhood 

context; and then later to solicit comments on the draft plan. These other stakeholders include 

resident organizations or districts, emergency service providers, nearby schools, parks and 

recreation facilities, nearby businesses, and other individuals or organizations that may be 

directly affected by the plan. 

Source: City of Centennial, Neighborhood Traffic Management Program Manual, May 20, 2013. Available at: http://

www.centennialco.gov/uploads/files/NTMP%20Manual%20052013_Revised_web.pdf.
36

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

• Traffic management.

• Traffic signal management.

• Work zone management. 

The CMFs are also designed to lead agencies in developing a targeted action plan for the program area.

Current Transportation System Components and Features 

A range of information may be available on the current transportation system components and 

features within the study area. For instance, the data on the multi-modal transportation network 

in a subarea may include information on existing and planned infrastructure and services (e.g., 

highways, arterials and local streets, intersections and crosswalks, transit services, parking 

facilities, bicycle lanes and paths, and sidewalks). Moreover, beyond infrastructure and services, 

baseline information should document existing operational assets, partnerships, relationships, 

and programs that affect system operations. Examples include ITS components, ramp metering, 

traveler information systems, incident management programs, TSP, and TDM programs, among 

others. Documenting the current and planned application of these system components or strategies 

will be important as a baseline for understanding the context in the subarea.

Understanding Travelers 

Understanding travel markets is important in defining both needs and possible strategies that will 

be effective. In a subarea, particularly an urban activity center, there are many different trip types 

and purposes, which may include commuting by employees coming from within and outside the 

area, recreational and shopping trips of residents and visitors, and freight deliveries. The mixture 

of vehicle types (e.g., buses, trucks, and automobiles) on the road and of different modes (e.g., 

walking, bicycling, transit, and driving) within the area often means that consideration needs to be 

given to the balance, tradeoffs, and identified priorities across different components of the multimodal transportation system. 

Understanding the unique characteristics of travelers in a subarea (i.e., recognizing how they 

access information and make travel decisions) will be useful in assessing potential strategies that 

may be targeted to specific types of travelers. Possible markets may include daily commuters 

traveling regularly to and from work or school, leisure travelers going to local destinations 

(running errands, entertainment, etc.), long-distance commuters or tourist travelers passing 

through, and freight or commerce vehicles transporting goods (see Table 2). 




APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

37

3

Table 2. Characteristics of travelers in subareas. 

Local Commuter

Leisure 

Traveler

Long Distance/ 

Interstate 

Traveler Freight/Commerce

Description Reside locally, 

travel regularly 

between work or 

school.

Reside locally, 

traveling 

to local 

destinations 

(running 

errands, 

entertainment, 

recreation, etc.).

Non-local 

travelers traveling 

to or through 

the subarea; less 

familiar with 

local conditions or 

alternative routes.

Transportation of 

goods to local stores 

and businesses or to 

regional distribution 

centers.

Key 

Concerns

Reliability of route 

and avoidance 

of traffic delays; 

information about 

transportation 

options.

Avoiding traffic 

congestion; 

parking 

availability; 

information 

about 

transportation 

options.

Notification of 

travel delays due 

to construction 

or incidents; 

access to stopover 

points (rest stop, 

gas stations, 

restaurants, etc.).

Reliability of 

travel time for 

on-time delivery; 

availability of 

preferred routes 

(particularly 

those that can 

accommodate 

freight vehicles).

Possible 

Strategies

Dynamic 

ridesharing; 

predictive traveler 

information; 

real-time transit 

and parking 

information; 

dynamic shoulder 

lane use.

Dynamic 

parking 

reservation; 

real-time travel 

information; 

off-peak 

parking 

discounts. 

Real-time travel 

information; 

advance 

information to 

take alternative 

route well in 

advance to avoid 

congested area.

Variable speed 

limits; queue 

warning; adaptive 

signal control.

Information on Current System Performance 

In addition to information about the physical assets, subarea conditions, and traveler 

characteristics, data on current system performance are needed. Data on traffic volumes, peak 

hour volume, commute mode split, transit ridership, on-time transit performance, bicycle counts, 

and other data on travel patterns convey important information to assess needs. Level-of-service 

(LOS), which is a function of traffic volumes, traffic composition, roadway geometry, and the 

traffic control at the intersection, is widely used in traffic studies and reports. However, LOS 

does not capture the source or extent of congestion, especially non-recurring congestion (due 

to traffic incidents, work zone, bad weather, special events, etc.). Better data on actual travel 


38

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

speeds and delay in a subarea can be critical 

to understanding existing conditions. To 

incorporate operations strategies into the 

subarea plan, a more detailed account of the 

causes and impacts of congestion, as well as 

performance data across all modes, is helpful. 

Archived operations data from ITS programs 

can be used to assess important operational 

conditions, including system reliability, 

on-time transit performance, and the role of 

specific factors, such as weather conditions, 

on traffic congestion or traveler delay. 

Archived travel time data forms the basis for 

understanding a wide variety of performance 

metrics (e.g., congestion, reliability, and 

freight mobility). Chapter 5, Toolbox for 

Effective TSMO Planning, contains additional 

information on archived operations data. 

Safety data are useful for identifying 

challenges and problem areas that may be 

addressed by operations strategies. Types 

of safety data include incident data such as 

fatalities, injuries, and property damage; crash 

data by type including rear-end, left-turn, etc.; 

weather conditions; light conditions; and the 

spatial distribution of crashes.

Information about Future Conditions and Contexts 

Information about anticipated conditions and contexts is important as well. This includes 

forecasted data about socio-economic factors (e.g., population, demographics, etc.) as well as the 

planned land uses and level of development for the subarea. Because many subarea plans focus 

on land use, zoning, and urban design, understanding these future plans and contexts is critical 

to developing compatible and effective operations strategies. For instance, if an urban activity 

center or transit station area plan is designed to foster increased transit-oriented development 

and multimodal choices—through land-use and infrastructure strategies including higher density, 

mixed-use development; implementation of a street grid system where one currently does not 

exist; and improved bicycle and pedestrian crossings—this future context needs to be the basis for 

planning effective TSMO strategies. In this case, TSMO strategies should support the future vision 

of the subarea by incorporating operational strategies that support safe bicycle and pedestrian 

movement, increase transit reliability, and encourage use of non-automobile modes rather than 

strategies simply to improve traffic flow. Travel demand modeling, including simulation modeling, 

will provide important information on anticipated traffic problems or potential multimodal 



Questions to Gather Stakeholder 

Input

Below are sample questions to facilitate a 

dialogue with stakeholders and the public to 

capture input about incorporating operations 

in subarea planning:

• How do you travel in the subarea? 

Where do you go? What problems do 

you encounter?

• What is important to you, to your 

neighborhood, to the local area, and to 

the region (e.g., transportation, 

community, environment) in the subarea?

• Do you have any comment on the 

problems and opportunities that have 

already been identified for the subarea?

• How would improving the subarea 

through working with a private developer 

and considering options, such as parking 

pricing impact your support of the 

solutions?

Source: Linking Planning and Operations 

Application, PlanWorks, Federal Highway 

Administration. Available at: https://fhwaapps.fhwa.

dot.gov/planworks/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

39

3

conflicts. Off-model tools and analysis (e.g., analyses of mode shifts at employment sites due to 

TDM programs) also will help in assessing anticipated future system performance and the role of 

TSMO strategies.

Stakeholder and Public Engagement 

In addition to previous studies and information on current and future conditions, input from 

stakeholders and the public is critical—specifically, their opinions about and preferences for the 

future of the subarea. The public and stakeholders should play a key role in defining a vision, 

goals, and objectives for the subarea as well as the performance measures that will be used 

to assess system performance. In urban areas, there often are tradeoffs to be made in terms of 

performance of the system in relation to passenger vehicles, public transit, bicycling, and walking, 

and the public and stakeholders should play a key role in defining and prioritizing objectives. The 

public, for instance, may be willing to accept lower average motor vehicle speeds to improve the 

safety and accessibility of pedestrian and bicycle activity. While optimizing system performance 

along urban and suburban highway subareas might involve diverting heavily congested freeway 

traffic to parallel arterials, there may be community concerns about the impacts on accessibility in 

neighborhoods, which need to be considered. Consequently, it is important to engage the public 

and stakeholders in clearly defining goals and operations objectives and in articulating priorities 

and values.

Methods for gathering information from stakeholders and the public include conducting 

qualitative research (e.g., interviews, focus groups, and workshops) or quantitative research (e.g., 

polls, surveys, etc.), as well as hosting citizens’ panels and town hall meetings. Planning tools 

like scenario modeling and visualization techniques can be used in subarea studies. These public 

participation tools help communities and stakeholders better understand the interactions among 

different planning issues in an area (e.g., transportation, housing, energy use, and the environment) 

and the range of possible outcomes. A comprehensive approach should be used for stakeholder 

public engagement to capture input from all affected parties within the subarea, including those 

traditionally underserved by the existing transportation system (e.g., low-income communities, 

persons with disabilities, minorities, etc.). Engaging with stakeholders and the public early in the 

process is important, and it presents an opportunity to raise awareness about operations and the 

role that operational strategies can play. Educating stakeholders and the public about operational 

strategies will make them better-informed participants throughout the planning process. 

Once the information-gathering process is complete, there is solid understanding of the needs, 

deficiencies, and opportunities to address in the next step: developing an operational concept. 

DEVELOPING AN OUTCOME-ORIENTED OPERATIONAL CONCEPT 

Effective TSMO involves not only providing highway and transit infrastructure for movement 

of people and freight but also identifying and applying efficient ways of operating these systems 

to support mobility, reliability, and safety. Consequently, while subarea planning may involve 

consideration of, or focus on, certain types of infrastructure improvements (e.g., streetscaping, 

bicycle and pedestrian infrastructure, etc.), the planning process should focus on desired outcomes 

for travelers and communities, including outcomes related to how the transportation performs 


40

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

both in typical peak periods and nonpeak periods as well as in relation to 

non recurring issues such as adverse 

weather and emergencies (Figure 7).

An outcome-oriented operational 

concept provides the framework for 

developing and evaluating options 

that reflect local and regional values, 

including mobility, air quality, 

sustainability, livability, safety, security, 

economic activity, accessibility, and 

others. The relative priority of these 

considerations may vary depending 

on the context and needs of travelers, 

residential communities, businesses, 

and other stakeholders in the subarea.

Examples of transportation outcomes 

commonly used in subarea studies 

include safety, mobility, and nonmotorized accessibility. Other 

outcomes may include economic 

vitality, community livability, environmental quality, and other community goals. 

Planning for TSMO involves considering a broad range of issues and outcomes associated 

with how transportation systems are managed and operated. For instance, a subarea plan with a 

greater focus on TSMO may include specific discussion of reliability as an outcome. In addition 

to general travel time, travelers and freight shippers are often concerned about the variability in 

travel time from day to day or hour to hour. If it typically takes 20 minutes to travel from one 

side of town to the other off-peak, and 30 minutes during peak congestion, travelers can plan for 

the extra travel time. However, if travel times are highly unpredictable—sometimes 30 minutes 

during rush hour but other times 60 minutes or more—this creates significant problems for making 

tightly scheduled appointments or delivery times. Studies show that travelers and freight shippers 

strongly value reliability in travel time; therefore, this is an important issue. High variability 

in travel times often is caused by traffic incidents, poor weather conditions, special events, and 

construction work zones, which can be considered in the context of subareas.

Substantial experience in TSMO planning at the regional level shows that rather than just defining 

goals and strategies, a key foundation for advancing TSMO in planning is to define an outcomeoriented operational concept that brings together goals; specific, measurable operations objectives; 

and performance measures that are focused on outcomes important to the transportation system 

users (Figure 8). In a regional context, use of operations objectives and performance measures 

support consideration of and selection of TSMO strategies for the long-range transportation 

plan (LRTP) and transportation improvement program (TIP).46 Similarly, areawide operations 

46 For more information, see: Federal Highway Administration, Advancing Metropolitan Planning for Operations: An Objectives-Driven, 

Performance-Based Approach – A Guidebook. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10026/index.htm.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO wihtin Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Corridor Goals

• Corridor Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Developing an Outcome-Oriented 

Operational Concept

• Corridor Goals

• Corridor Operations Objectives

• Performance Measures

Figure 7. Diagram. The “Developing an OutcomeOriented Operational Concept” activity of the 

approach for planning for transportation systems 

management and operations within subareas.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

41

3

objectives and performance measures help to focus attention on system performance outcomes 

within a subarea or its key components (e.g., transit services, intersections, and roadways) and 

are a key element to support consideration of TSMO strategies. Developing an outcome-oriented 

operational concept is, by nature, an iterative process that involves developing an understanding 

of local community and traveler values that affect or influence priorities in the subarea, and 

translating those priorities into observable and measurable outcomes that guide development of 

outcome-oriented objectives.

The outcome-oriented operational concept describes, at a high level, how the subarea should 

operate to realize the desired outcome(s). The operational concept does not specify strategies to be 

implemented. It will likely draw upon a collection of individual and complementary strategies in 

response to the operations objectives for the subarea and an assessment of the costs and benefits 

of each. In some locations, active transportation and demand management (ATDM) concepts 

(e.g., active traffic management, active demand management, and active parking management)47

may prove to be attractive strategies; in others, other strategies that rely less on real-time data 

may prove effective (e.g., improvements in TIM, seamless integration of public transportation 

alternatives, and better integration of non-motorized alternatives). These and other concepts can 

be incorporated into an overall operational concept to be included within a subarea plan.

The operational concept can be formalized within the framework of goals, objectives, and 

performance measures. The goals and objectives translate the values and priorities into statements 

that describe what is to be achieved with respect to transportation in the subarea that support 

higher level regional goals. The goals for the subarea should link to high-level regional goals 

and then lead to objectives, expressed in measurable terms that can be used to help develop and 

evaluate strategies for achieving the objectives.

Note that, in developing an outcome-oriented operational concept, specific solutions (strategies 

and tactics) are not considered, except to the extent that they may inform planners and operators 

about what is possible within available or anticipated technology solutions, legal and institutional 

arrangements, and fiscal constraints. Otherwise, the goals and objectives that characterize the 

operational concept should be open to new ideas about how to achieve the objective until after a 

range of feasible strategies and tactics is identified and evaluated using performance measures that 

relate directly to the objectives.

Operations Goals

Operations goals are the high-level statements of what transportation in the subarea would look 

like if it reflects the needs, values, and priorities of the key stakeholders and transportation 

providers that use, depend upon, or operate transportation facilities and services. 

The City of Salem, Oregon developed a transportation plan, which contains at least one operations 

goal. The focus of the Salem Transportation System Plan is to maximize mobility through 

investments in the city’s multi-modal transportation system. The plan is comprised of individual 

elements that address various modes of travel or other aspects of the transportation system. One 

of these sections is the “Transportation System Management Element,” which identifies ways to 

47 See Federal Highway Administration, “Active Transportation Demand Management” Web page. Available at: http://ops.fhwa.dot.gov/atdm/

index.htm.


42

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

maximize the capacity of the street system and reduce demand on it, using TSMO strategies that 

are typically low cost and have a low impact to surrounding communities. The Transportation 

System Management Element provides an operations goal, objectives, and policies for utilizing 

system management techniques. The operations goal is: 

“To maximize the efficiency of the existing surface transportation system 

through management techniques and facility improvements.”48

Other examples of high-level goals that could be adapted to more specific aspects of planning for 

subarea management and operations are provided in FHWA’s Advancing Metropolitan Planning 

for Operations: An Objectives-Driven, Performance-Based Approach – A Guidebook.

49

Specific Outcome-based Operations Objectives

The high-level goals are the starting point for developing operations objectives, which are the 

basis for subarea TSMO planning. Operations objectives define desired outcomes for the subarea 

in relation to how the transportation system will perform. Operations objectives go beyond broad 

statements of goals, which often are loosely defined and difficult to assess. Operations objectives 

are specific, measurable statements developed in collaboration with a broad range of partners who 

have interests or who are affected by subarea transportation systems performance. They may be 

multi-jurisdictional in nature if the subarea of interest extends beyond or affects more than a single 

jurisdiction. Operations objectives generally lead directly to measures of performance that can be 

used to assess whether or not the objective has subsequently been achieved.

Operations objectives should be specific, measurable, agreed-upon, realistic, and time-bound 

(SMART):

• Specific – The objective provides sufficient specificity to guide formulation of viable 

approaches to achieving the objective without dictating the approach.

• Measurable – The objective facilitates quantitative evaluation, saying how many or how 

much should be accomplished. Tracking progress against the objective enables an 

assessment of effectiveness of actions.

• Agreed – Planners, operators, and relevant planning participants come to a consensus on a 

common objective. This is most effective when the planning process involves a wide range 

of stakeholders to facilitate collaboration and coordination among all parties that use or 

manage the subarea of interest.

• Realistic – The objective can reasonably be accomplished within the limitations of 

resources and other demands. The objective may require substantial coordination, 

collaboration, and investment to achieve. Factors, such as land use, also may have an impact 

on the feasibility of the objective and should be taken into account. Because how realistic 

the objective is cannot be fully evaluated until after strategies and approaches are defined, 

the objective may need to be adjusted to be achievable.

48 City of Salem, Transportation System Plan, February 2016. Available at: http://www.cityofsalem.net/Departments/PublicWorks/

TransportationServices/TransportationPlan/Pages/default.aspx.

49 For these examples, see Federal Highway Administration, Advancing Metropolitan Planning for Operations: An Objectives-Driven, 

Performance-Based Approach – A Guidebook, “Chapter 3. 3.0 Developing Operations Goals and Objectives,” Section 3.1 Develop 

Operations Goals, FHWA-HOP-10-026 (Washington, DC: 2010). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10026/

chap_3.htm#s31.


APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

43

3

• Time-Bound – The objective identifies a 

timeframe within which it will be achieved 

(e.g., “by 2017”).

Specifically, an operations objective identifies targets 

regarding a particular aspect of subarea performance, 

such as traffic congestion, travel time reliability, 

emergency response time, or incident response. By 

developing SMART operations objectives, system 

performance can be examined and monitored over time. 

Examples of operations objectives that may be 

applicable or could be adapted to subarea management 

and operations are provided in Federal Highway 

Administration's (FHWA) Advancing Metropolitan 

Planning for Operations: An Objectives-Driven, 

Performance-Based Approach – A Desk Reference

(Figure 8).

By including operations objectives that address system 

performance issues (e.g., recurring and non-recurring 

congestion, emergency response times, connectivity 

among modes, safety, and access to traveler 

information) rather than focusing primarily on system 

capacity, the planning effort for a subarea will elevate operations to play a more important role in 

investment planning, addressing both short-range and long-range needs.

While outcome-oriented objectives are preferred because they are most closely related to the level 

of service (LOS) provided to systems users, in some cases, outcomes are difficult to measure or 

observe directly. Outcome-oriented objectives focused on outcomes to the user include travel times, 

travel time reliability, and access to traveler information. The public cares about these measures, 

and in many areas, data may be available to develop specific outcome-based operations objectives. 

In cases where developing outcome-based objectives is difficult, a planning study may develop 

operations objectives that are activity-based and support desired system performance outcomes. 

For example, it may not be possible to develop a specific objective related to incident-based delay 

experienced by travelers in subarea if data are unavailable for this type of delay. However, it may 

be possible to develop an objective that relates to incident response times, which may be more 

easily established and measured.

Other examples of activity-based objectives include the percentage of traffic signals re-timed, 

the number of variable message signs deployed, and the share of bus stops with real-time transit 

information. Although these objectives are not as ideal as outcome-based objectives because 

they tend to focus on specific strategies or approaches, they may serve as interim objectives until 

more outcome-based objectives can be established and measured. Working together to develop 

the objectives themselves may help to elevate management and operations discussions among 

planners and operators and lead to initiatives to collect additional data.

Advancing Metropolitan 

Planning for Operations 

A Desk Reference 

The Building Blocks of a Model Transportation

Plan Incorporating Operations

Figure 8. Image. Cover of Federal 

Highway Administration’s Advancing 

Metropolitan Planning for Operations 

Desk Reference.
44

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

One technique for organizing outcome-oriented and activity-based objectives is to develop an 

objectives tree that structures objectives in a hierarchical manner, with each top-level objective 

supported by lower level sub-objectives. The lower level objectives, taken together, identify what 

must be achieved to realize the high-level objectives; the high-level objectives give the purpose 

for achieving the lower level objectives. In many cases, the lower level objectives will be activitybased objectives that relate to functions that must be performed to achieve high-level outcomeoriented objectives. Figure 9 illustrates how lower level activity-based objectives support higher 

level outcome-oriented objectives, all acting in support of goals for the subarea.

Subarea Goals

Outcome-Oriented

Operations 

Objectives

Activity-Based

Operations 

Objectives

Management 

and Operations 

Strategies

Improve

Incident

Management

Improve 

Road Weather 

Management

Improve 

Traffic Flow

Increase Access

to Traveler

Information

Increase 

Mobility 

Options

DETAILED, ACTION-ORIENTED BROADER, OUTCOME-BASED

Improve Mobility in 

the Subarea

Reduce Traveler 

Delays

Improve Subarea 

Travel Time Reliability

Reduce

Non-Recurring Delays

Identify and 

Eliminate

Bottlenecks

Optimize Traffic 

Signal Timing

Reduce Demand During 

Peak Travel Periods

(e.g., managed lanes)

Integrate Real-time 

Parking and Transit 

Information

Figure 9. Diagram. Illustrative objectives tree for subarea-based transportation systems 

management and operations. 
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

45

3

Performance Measures

One of the key attributes of SMART objectives is that they are measurable. Performance measures 

are associated with operations objectives and provide a measurable basis for:

• Understanding existing performance, including performance gaps.

• Assessing future projected gaps in performance. 

• Supporting assessment of, and comparisons of, potential strategies to meet objectives. 

The idea that “what gets measured gets managed,” recognizes that performance measurement 

focuses the attention of decisionmakers, planners, stakeholders, and the public on important 

characteristics of the transportation system. Developing performance measures involves 

considering:

• How do we want to define and measure progress toward a certain operations objective? 

For instance, is transit ridership a key metric that is important for assessing livability 

and access? Or would bicycle/pedestrian activity be a better measure? Or do both 

provide value? 

• What are the implications of selecting a specific measure? For instance, if travel speeds are 

a key measure of performance in a subarea, this would imply different strategies and results 

than focusing on improving reliability of travel times. Using a measure focused on persontravel rather than vehicle-travel might lead toward strategies that give more priority to 

high-occupancy modes (e.g., like public transit or high-occupancy vehicle (HOV) lanes) 

than to those driving alone.

It is important to recognize that there are tradeoffs among different goals and objectives (e.g., 

traffic throughput, increasing transit ridership, and enhancing pedestrian and bicycle access); 

therefore, defining an appropriate and balanced set of performance measures for a subarea is 

important.

Performance measures are indicators of how well the transportation system is performing and 

are inextricably tied to operations objectives. A range of performance measures may come from 

developing operations objectives. The performance measures selected should provide adequate 

information to planners, operators, and decision makers on progress toward achieving their 

operations objectives. However, this is an iterative process as operations objectives may be refined 

once performance measures are developed and baseline data have been collected.

Performance measures should be developed based on the individual needs and resources of 

each agency that provides services within the subarea. For example, transit agencies typically 

use a number of measures that are of interest to their customers, such as on-time performance, 

average passenger load, and total ridership. Local DOTs typically use measures of mobility such 

as facility LOS, travel time, and travel delay. These performance measures help planners focus 

on the day-to-day experience for their users. This provides important balance in settings where 

planners have focused on long-term development in the subarea. With greater focus on the dayto-day operations, planners appreciate the issues faced by system operators and travelers. The 

result is that mid- and long-term planning now reflect greater consideration of operations and the 

associated investment needs within the subarea.


46

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Some examples of performance measures likely to be associated with subarea operations 

objectives are shown in Table 3. These performance measures are primarily drawn from the 

FHWA document, Advancing Metropolitan Planning for Operations: The Building Blocks of a 

Model Transportation Plan Incorporating Operations - A Desk Reference.

50

Table 3. Illustrative performance measures to guide subarea transportation systems 

management and operations planning.

Performance Area Illustrative Performance Measures

Travel Time: Travel time measures 

focus on the time needed to travel along a 

selected portion of the subarea, and can be 

applied for specific roadways, subareas, 

transit lines, or at a regional level. At 

the subarea level, travel time may be a 

function of mode choice. Also, “travel 

time” may need to take into account 

both travel time on major roadways and 

travel time on local surface streets and in 

neighborhoods.

• Average travel time, which can be measured based 

on travel time surveys.

• Average travel speeds, which can be calculated 

based on travel time divided by segment length or 

measured based on real-time information 

collection. (Note that traffic calming measures 

may be implemented to avoid excessive travel 

speeds in some subareas).

• Travel time index: the ratio of peak to non-peak 

travel time, which provides a measure of 

congestion.

Congestion Extent: Congestion measures 

can address both the spatial and temporal 

extent (duration). Depending on how 

these measures are defined and data are 

collected, these measures may focus on 

recurring congestion or address both 

recurring and non-recurring congestion. 

In a subarea, congestion may be a sign 

of economic activity; thus measures of 

congestion should take this into account 

(e.g., reduced congestion may signal 

less economic activity rather than more 

effective system performance).

• Lane miles of congested conditions (defined based 

on volume to capacity (V/C) ratio, level of service 

(LOS) measures, or travel time index).

• Number of intersections experiencing congestion 

(based on LOS).

• Percent of roadways congested by type or roadway 

(e.g., freeway, arterial, collector).

• Average hours of congestion per day.

• Share of peak period transit services experiencing 

overcrowding.

Delay: Delay measures take into account 

the amount of time that it takes to travel 

in excess of travel under unconstrained 

(ideal or free-flow) operating conditions, 

and the number of vehicles affected. 

These measures provide an indication 

of how problematic traffic congestion is, 

and can address both recurring and nonrecurring congestion- related delay.

• Vehicle-hours of recurring delay associated with 

population and employment growth.

• Vehicle-hours of nonrecurring delay associated 

with incidents, work zones, weather conditions, 

special events, etc.

50 See: Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The Building 

Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, FHWA-HOP-10-027 (Washington, DC: 2010). 

Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

47

3

Performance Area Illustrative Performance Measures

Incident Occurrence/Duration: Incident 

duration is a measure of the time elapsed 

from the notification of an incident 

until the incident has been removed or 

response vehicles have left the incident 

scene. This measure can be used to assess 

the performance of service patrols and 

incident management systems. Incident 

occurrence also can be used to assess 

the performance and reliability of transit 

services.

• Median minutes from time of incident until 

incident has been removed from scene.

• Number of transit bus breakdowns.

• Average number of transit rail system delays in 

excess of X minutes.

Travel Time Reliability: Travel time 

reliability measures take into account the 

variation in travel times that occur on 

roadways and across the system.

• Buffer time, which describes the additional time that 

must be added to a trip to ensure that travelers will 

arrive at their destination at, or before, the intended 

time 95 percent of the time.

• Buffer time index, which represents the percent of 

time that should be budgeted on top of average travel 

time to arrive on time 95 percent of the time (e.g., a 

buffer index of 40 percent means that for a trip that 

usually takes 20 minutes, a traveler should budget an 

additional 8 minutes to ensure on-time arrival most 

of the time).

• Percentage of travel when travel time is X percent 

(e.g., 20 percent) greater than average travel time.

• Planning time index, defined as the 95th percentile 

travel time index.

• 90th or 95th percentile travel times for specific travel 

routes or trips, which indicates how bad delay will be 

on the heaviest travel days.

• Percentage of weekdays each month that average 

travel speed of designated facilities fall more than X 

MPH below posted speed limit during peak periods.

Transportation Demand Management 

(TDM): Examines travel demand as well 

as the impact of strategies to manage that 

demand.

• Awareness – Portion of potential program 

participants aware of a TDM program.

• Utilization – Number or percentage of individuals 

using a TDM service or alternate mode.

• Mode split – Proportion of total person trips that 

uses each mode of transportation.

• Vehicle Trips or Peak Period Vehicle Trips – The 

total number of private vehicles arriving at a 

destination.

Table 3. Illustrative performance measures to guide subarea transportation systems 

management and operations planning (continued).
48

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Performance Area Illustrative Performance Measures

Person Throughput: Examines the 

number of people that are moved on a 

roadway or transit system. Efforts to 

improve this measure are reflected in 

efforts to improve the flow of traffic, 

increase high occupancy vehicle 

movement, or increase transit seat 

occupancy on transit.

• Peak hour persons moved per lane.

• Peak hour persons moved on transit services.

• Number of bicycle trips completed for other than 

recreational purposes.

Customer Satisfaction: Examines public 

perceptions about the quality of the travel 

experience, including the efficiency of 

system management and operations. 

• Percent of the population reporting being satisfied 

or highly satisfied with mobility and accessibility 

options and conditions, including non-motorized 

options

• Percent of the population reporting being satisfied 

or highly satisfied with access to traveler 

information, including the media though which 

information is disseminated (e.g., smartphone 

apps, message boards).

• Percent of the population reporting being satisfied 

or highly satisfied with the reliability of transit 

services.

Availability of or Awareness of 

Information: These measures focus on 

public knowledge of travel alternatives or 

traveler information.

• Percent of surveyed population aware of travel 

alternatives and related traveler information, 

including non-traditional modes (e,g., bicycle, car 

or ride-sharing options).

Availability of and Accommodations 

for Travel Options: These measure focus 

on the extent to which travel choices are 

available and accommodated in the way 

the transportation system is implemented 

and operated.

• Accessibility of public transportation services 

within the subarea (e.g., among major centers of 

commerce or employment within the subarea).

• Access to and accommodations for car or ridesharing services (e.g, ZipcarTM or UberTM) that 

minimize conflicts with other vehicles.

LOS = level of service.

TDM = transportation demand management.

MPH=miles per hour.

In summary, the performance measures tie directly to the operations objectives, provide the 

criteria for evaluating strategies and tactics for improving subarea performance, and direct 

the gathering of data necessary to identify and prioritize needs and gaps. In summary, the 

performance measures (1) tie directly to the operations objectives, (2) provide the criteria 

for evaluating strategies and tactics for improving subarea performance, and (3) direct the 

gathering of data necessary to identify and prioritize needs and gaps.

Table 3. Illustrative performance measures to guide subarea transportation systems 

management and operations planning (continued). 
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

49

3

IDENTIFYING OPERATIONS PERFORMANCE NEEDS, GAPS, AND 

OPPORTUNITIES

Gathering and analyzing data for 

performance measures is critical 

to identifying gaps between 

desired outcomes (objectives) 

and current conditions, and in 

initial identification of potential 

opportunities for improvements 

(Figure 10). 

Often a key step following the 

definition of performance measures 

is to define scenarios, or to conduct 

a scenario planning exercise as a 

basis for understanding current 

performance gaps and potential 

opportunities. Operational scenarios 

should be defined by stakeholders in 

the subarea and may include (but are 

not limited to): 

• Normal or daily scenario

– to explore recurring – to 

explore recurring travel 

patterns for private vehicles, 

transit, bicycle, pedestrian, goods delivery, service vehicles, school buses, parking, etc., 

taking into account both mobility-related activities and other community (or subarea) 

factors that are affected by mobility patterns (e.g., effects on access to businesses, parks, 

schools, hospitals, neighborhoods).

• Incident scenario – to address major or minor incidents within the subarea that will affect 

multimodal mobility, in order to develop operational plans for how agencies work together 

and respond to these incidents. Note that these may be transportation-related incidents or 

other incidents that affect mobility (e.g., building fires, law enforcement actions, hazardous 

material release).

• Planned event scenario – to address a major sporting event, festival, entertainment venue, 

major convention, or activity that attracts large crowds to a major venue within the subarea 

and creates an atypical level activity and resulting congestion for pedestrians, vehicles, 

transit riders, etc.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time TSMO=Transportation Systems Management and Operations

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Figure 10. Diagram. The “Identifying Operations 

Performance Needs, Gaps, and Opportunities” activity 

of the approach for planning for transportation systems 

management and operations within subareas.
50

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

• Weather-related, emergency, or evacuation scenario – to consider unplanned events that 

may require more dynamic decision making and coordination among stakeholders within 

the immediate subarea and with agencies and jurisdictions in surrounding areas.

• Major work zone scenario – to address major construction or reconstruction projects in 

roadways, utilities, or building sites that limit or significantly delay transportation services 

and related operations in the subarea and require coordination with project planning and 

construction to minimize impacts on travelers, businesses, and the local community. 

By defining scenarios, the participants in the subarea often can identify existing gaps, performance 

needs, as well as potential opportunities for improvements. Moreover, discussions to identify 

gaps aid planners and operators in clarifying and documenting problems within the subarea and 

highlight opportunities for improving mobility and related functions in the subarea. In many cases, 

performance data are available that clearly demonstrate where problems exist and need attention, 

investment, and priority in the planning process and may be tied to specific types of situations or 

scenarios where performance improvements would be most important. 

Planners and operators must be cautious in depending on performance measures alone to identify 

gaps and opportunities, especially activity-based performance measures, since the performance 

measures may be specific to existing systems and may focus attention on improving existing 

operations strategies rather than considering alternatives that take advantage of new operational 

concepts, new technology, new institutional arrangements, and new or emerging user expectations. 

For example, if the performance measures suggest the need to reduce delay on surface streets 

in the subarea by increasing average speeds, planners and operators may be tempted to focus 

on strategies such as adaptive signal controls that improve the flow of vehicles by reducing the 

delays at traffic signals. While this may appear to be attractive, other stakeholders may see this as 

a deterrent to business located in the area or to access and egress for neighborhoods in the subarea. 

As a result, other measures should also be considered (e.g., traffic circles or other approaches for 

managing flow that control speed, provide access, and avoid unnecessary delay). This does not 

mean that adaptive signal controls are inappropriate, only that performance measures, if they do 

not take context into account, can result in focusing on the “efficiency” of current approaches 

rather than in how outcome-oriented objectives are achieved.

In the end, the performance measures point toward deficiencies in achieving goals and objectives 

for the subarea and can also be helpful in identifying opportunities for improving subarea 

performance taking into account both mobility and other important considerations.

DEVELOPING AN INTEGRATED TRANSPORTATION SYSTEMS 

MANAGEMENT AND OPERATIONS APPROACH 

Once the TSMO planning team has agreed upon operations objectives for what the subarea 

should look like with respect to mobility and identified the performance gaps, it can begin to 

identify a system of TSMO strategies that will be implemented in the subarea to reach to the 

operations objectives (Figure 11). This system of TSMO strategies forms an integrated TSMO 

approach to improving performance in the subarea. Taking into account mobility and related 

functions the selected TSMO strategies should work together in the context of the subarea; 

strategies should not be selected and implemented in isolation from each other and related 
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

51

3

subarea needs. Planning for 

an integrated set of strategies 

allows planners and operators 

to leverage synergies among 

strategies. For example, the 

needs of first responders to 

access traffic incidents or other 

life-threatening incidents in the 

area should be considered when 

setting up work zones, including 

utility work zones that affect 

local streets; and, likewise, 

traffic incident management 

plans may need to consider predesignation and communication 

of alternate routes to manage 

vehicles in areas of reduced 

capacity due to work zones. 

Key Considerations in 

Developing an Integrated 

Transportation Systems 

Management and Operations Approach

Ensuring a System Solution Rather than “Stand Alone” Activities

The traditional approach to transportation operations has traditionally involved individual 

agencies (State DOTs, local transportation agencies, toll authorities, transit service providers, 

etc.) managing their own assets and services, such as freeways, arterials, toll roads and bridges, 

and transit services. Yet, increasingly, a more effective and efficient approach is being used that 

involves a more holistic approach to managing operations by viewing the transportation facilities 

as a system instead of a group of stand-alone assets. Under this approach, operators work together 

to make investments and real-time operations decisions to effectively shift travel demand across 

modes and routes to manage congestion, improve safety, and enhance system reliability (i.e., 

identifying operations strategies that enhance walkability and bikeability by minimizing multimodal conflicts in areas with high concentrations of pedestrians or bicyclists). 

Moving Toward Active and Dynamic Transportation Systems Management

The use of operations strategies supports proactive and dynamic management of the transportation 

system, in which system performance is continuously assessed and the system is managed through 

real-time implementation of adjustments (via traveler information, adjustments to signal timing, 

ramp metering, or other freeway operations) to achieve performance objectives (e.g., travel time 

reliability, person throughput, incident management, etc.). This approach requires collaboration, 

engaging partners to help influence travel choice and behavior within the subarea. Travel choice 

and behavior are influenced through active demand management, active traffic management, 







Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time TSMO=Transportation Systems Management and Operations

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Figure 11. Diagram. The “Developing an Integrated 

TSMO Approach” activity of the approach for planning 

for transportation systems management and operations 

within subareas.
52

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

and, in urban areas, through active parking management. Technology and innovation are critical 

to active and dynamic transportation system management, supporting this data-driven approach 

implemented through information technology systems. 

Focusing on the Traveler, Rather than Just Vehicles

A customer-focused and place-based perspective serves as the underpinning of an integrated 

approach to subarea management; rather than looking at enhancing vehicle throughput, this 

approach begins by examining traveler mobility needs and explores the most effective ways 

to meet those needs in a manner that is appropriate for the characteristics of the subarea (land 

use, community aesthetics, etc.). This approach sets the context for developing a more efficient 

system for the end user that is well-integrated into the subarea. The TSMO approach is based on a 

fundamental understanding of how travelers decide which mode to use, what time to travel, which 

route to take, and at what time. Selecting operations strategies also requires segmentation of the 

travel market that differentiates among the various types of travelers (including commuters, noncommuter travelers, and freight movement), and understanding their travel behaviors, needs, and 

challenges to accurately inform the selection and implementation of operations strategies. 

Considering Community Values and Neighborhoods

Transportation plays a key role in mobility, but is more than just about moving people and goods. 

The transportation network contains lifelines for communities, often linking neighborhoods, 

businesses, and jobs, and can serve as vibrant public spaces. A subarea’s transportation system 

should reflect the character and values of the surrounding community. Integrating operational 

strategies into subarea planning is not a uniform approach; the set of strategies selected for 

a subarea should be customized and tailored to respond to the unique issues, challenges, and 

opportunities present. Therefore, successful TSMO integration into the planning process requires 

engaging the partners (the various agencies that operate within the subarea), as well as community 

stakeholders and the general public. 

Recognizing Resource Constraints

Although TSMO strategies are typically low cost, especially in comparison to expansion projects, 

a successful approach to implementing operational strategies is including them as part of an 

integrated approach within a broader project or plan. In many cases, lower-cost solutions can be 

implemented, or TSMO strategies can be implemented over time, in phases, to advance operations 

improvements in stages over time. When prioritizing TSMO strategies for deployment, benefitcost analysis, stakeholder and public input, and exploring the logical phasing of strategies are all 

useful analysis methods.

Developing an Incremental Approach to Transportation Systems Management and Operations

Transportation agencies engage in TSMO activities at varying degrees of complexity. For some 

agencies, a basic traffic signal system meets the management needs of its transportation network, 

while other agencies rely on a set of advanced and integrated TSMO strategies to meet the 

mobility needs of the community. In either case, planning for TSMO allows agencies to advance 

operational strategies in a measured, organized fashion, whether in a section of the subarea or 

throughout it. 








APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

53

3

A key distinction in implementing TSMO strategies is that installation is just the starting point. 

Agencies must be prepared to expend the necessary resources to operate and maintain a collection 

of TSMO investments. The most effective TSMO activities are differentiated not by budgets or 

technical skills alone, but by the existence of critical processes and institutional arrangements 

tailored to the unique features of TSMO applications. Applying an incremental approach to TSMO 

strategies in a subarea is a clearer path to successful implementation by allowing time to gain 

experience with the strategy and institute operational processes. 

One of the current areas of research is in analytical tools that support consideration of multiple 

TSMO strategies, and it is expected to provide more support in the future to developing an 

integrated TSMO approach. Currently, there are limited options for quantitatively examining 

the impacts of one TSMO strategy on another. The sections below describe the main activities 

necessary for developing an integrated approach to TSMO in a subarea. 

Identifying Transportation Systems Management and Operations Strategies 

Based on Operations Objectives and Performance Needs

TSMO strategies that could be implemented to address causes of the shortfalls in performance or 

gaps can be identified in several ways. This section provides example approaches for identifying 

TSMO strategies based on operations objectives and performance needs in a subarea. FHWA has 

developed some basic mappings between goals or objectives and TSMO-related strategies, but 

this has occurred primarily at the State and regional levels are where practitioners look to match 

strategies to needs within a specific context.

FHWA guidance on livability and sustainability recommends a “balanced approach” to identifying 

TSMO strategies. This is consistent with planning for operations in a subarea, where mobility 

objectives and other subarea objectives should be considered together. More specifically: 

• Maximizing the livability and sustainability benefits of M&O [management and operations] 

strategies requires a balanced approach to M&O. Not all M&O strategies support livability 

and sustainability outcomes equally. For example, traffic signals that prioritize vehicle 

traffic flow but do not consider the mobility and access needs of pedestrians, bicycles, and 

transit can actually work against livability and sustainability principles. In contrast, signal 

timing plans and roundabouts that support livability and sustainability objectives will 

provide improved mobility in a way that balances vehicular and bus traffic, pedestrians, and 

bicycle access, in order to support community vitality, safety, and the environment. 

• A balanced approach to M&O provides a framework that helps practitioners consider 

tradeoffs, better understand potential impacts on livability and sustainability, and avoid 

unintended results. Most importantly, this framework encourages practitioners to evaluate 

transportation system operations from a variety of perspectives and consider how the system 

can be optimized in multiple ways to achieve different performance measures and goals.51

51 Federal Highway Administration, The Role of Transportation Systems Management & Operations in Supporting Livability and Sustainability 

- A Primer, January 2012, FHWA-HOP-12-004. Available at http://www.ops.fhwa.dot.gov/publications/fhwahop12004/index.htm.


54

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

The identification of TSMO strategies in a subarea results from a consideration of multiple 

contextual factors such as land use, network patterns, and available transportation modes. Figure 12 

provides a sample of contextual factors for subareas and the relevant operating organizations that 

are important to consider when selecting TSMO strategies. 

As mentioned previously, the City of Salem, Oregon developed the Salem Transportation System 

Plan, which included specific goals and objectives that helped identify transportation system 

management and transportation demand management strategies that will achieve those objectives. 

For example, the transportation system management strategies fall into one of the following 

categories, which are aligned with the city’s objectives:52

• Traffic management and channelization.

• Intersection modification and widening.

• Access management.

• Improved traffic control devices.

• On-street parking management.

One of Salem’s goals is “To maximize the efficiency of the existing surface transportation system 

through management techniques and, facility improvements.”53 The associated objectives and 

related operations strategies (or policies) for this goal are:

• Objective Number 1 - A system of traffic control devices maintained and operated at an 

optimal LOS and efficiency consistent with existing funding levels.

◦ Policy 1.1 Improve the Efficiency of the Signal System.

◦ Policy 1.2 Maintain Signal System Operations.

◦ Policy 1.3 Maintain Clear and Effective Signs and Pavement Markings.

52 City of Salem, Oregon, Salem Transportation System Plan, Amended February 2016. Available at: http://www.cityofsalem.net/Departments/

PublicWorks/TransportationServices/TransportationPlan/Pages/default.aspx.

53 Ibid.

Figure 12. Diagram. Sample of contextual factors to consider when selecting 

transportation system management and operations strategies for subareas.

GEOGRAPHIC 

EXTENT

DEVELOPMENT 

DENSITY

LAND 

USES

MODES

INSTITUTIONAL 

CAPABILITY

NETWORK 

PATTERN

SUBAREA 

TRANSPORTATION 

FACILITIES
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

55

3

• Objective Number 2 - To maximize the effective capacity of the street system through 

improvements in physical design and management of on-street parking.

◦ Policy 2.1 Giving Intersection Improvements Priority.

◦ Policy 2.2 On-street Parking Management.

◦ Policy 2.3 Bus Bays on Arterial Streets.

• Objective Number 3 - To increase street system safety and capacity through the adoption 

and implementation of access management standards.

◦ Policy 3.1 Development and Adoption of Access Management Standards.

◦ Policy 3.2 Incorporate Access Management into Arterial Street Design.

◦ Policy 3.3 Access Management Projects.

• Objective Number 4 - To actively manage the operation of the surface transportation system 

during peak travel periods.

◦ Policy 4.1 Real-time System Management.

The objectives and policies are linked to specific transportation system management strategies 

within each of the categories listed above, including, for example,

• Traffic management and channelization.

◦ One-way streets.

◦ Reversible traffic lanes.

◦ High occupancy lanes on arterials.

◦ Bus bays (“pull outs”).

◦ Improved signs and markings.

• Intersection widening and modification.

◦ Roadway alignment at intersections.

◦ Intersection widening.

◦ Turn controls.

◦ Grade separation at major intersections.

• Access management.

◦ Arterial access management.

• Improved traffic control devices.

◦ Traffic signal improvements.

◦ Improved signs and markings.

◦ Arterial surveillance and management.

• On-street parking management.

◦ Removal of parking.
56

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Each of the projects and strategies in the plan is linked to a particular location, priority, cost 

estimate, and lead agency within the Salem city government.

A similar approach was taken for transportation demand management projects and strategies, 

linking strategies to a goal and related objectives. The overarching goal is to "reduce the demands 

placed on the current and future transportation system by the single-occupant vehicle."54 The 

objectives and related policies (or strategies) related to this goal are:

• Objective Number 1 - The City shall work towards reducing per capita vehicle-milestraveled in the Salem Urban Area by assisting individuals in choosing alternative travel 

modes.

◦ Policy 1.1 Support the Regional TDM Program.

◦ Policy 1.2 Support Adequate and Consistent Funding for the Regional TDM Program.

◦ Policy 1.3 Reduce Per Capita Vehicle-miles-traveled.

• Objective Number 2 - Reduce automobile travel demand generated by employment sites, 

colleges, and schools.

◦ Policy 2.1 Target Marketing Efforts.

◦ Policy 2.2 Increase Marketing to Employers.

◦ Policy 2.3 Assist in the Formation of Vanpools.

◦ Policy 2.4 Encourage State Agencies to Reduce Peak Hour Travel Demand.

• Objective Number 3 - Increase public awareness of alternative transportation modes.

◦ Policy 3.1 Provide Information Through Public Events.

◦ Policy 3.2 Outreach to Schools and Community Groups.

• Objective Number 4 - Coordinate regional TDM efforts.

◦ Policy 4.1 Work with Other Agencies and Organizations.

◦ Policy 4.2 Monitor TDM Programs Nationwide.

• Objective Number 5 - The City of Salem shall encourage the use of alternative travel modes 

by serving as an institutional model for other agencies and businesses in the community. 

◦ Policy 5.1 Employee Incentive Programs.

◦ Policy 5.2 Reduce Peak Hour Travel Demand.

The City of Salem’s transportation plan provides additional detail for each of these policies, 

describing exactly how each policy will be implemented, including marketing and outreach efforts, 

financial incentives and disincentives, and other mechanisms for reducing dependence on single 

occupancy vehicles and related trips.

Note, in particular, that the TSMO strategies and projects within the subarea are linked to the 

agreed to goals and objectives developed through a collaborative process with key stakeholders and 

responsible agencies within the subarea, in this case a city within a larger region.

54 City of Salem, Oregon, Salem Transportation System Plan, February 2016. Available at: http://www.cityofsalem.net/Departments/

PublicWorks/TransportationServices/TransportationPlan/Pages/default.aspx. 
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

57

3

In a similar manner, Chapters 5 and 7 of the Dakota County, Minnesota transportation plan55 are 

built around two of this subarea’s primary goals. Chapter 5 addresses their Goal 2, which “directs 

Dakota County in the development and integration of a comprehensive transit system, bicycle 

and pedestrian network, and other non-automobile modes for people and freight to maximize the 

efficiency of the transportation system by providing safe, timely, and efficient connections between 

communities, activity generators, and employment centers.” Chapter 7 addresses Goal 4, which 

is “Management to Increase Transportation System Efficiency, Improve Safety and Maximize 

Existing Highway Capacity.” Within each of these chapters, the Dakota County plan presents 

policies and strategies designed to help them achieve their goals, with many of these drawing on 

relatively low cost TSMO strategies. 

Evaluating Transportation Systems Management and Operations Strategies

While many operations strategies (e.g., variable speed limits, queue warning systems, and 

dynamic ramp metering) have benefits, because they differ from conventional capacity 

investments in terms of cost, service life, and requirements, it is not always clear how to assess 

strategies. After identifying potential TSMO strategies for a subarea, there are several methods 

that are available to evaluate the strategies to determine which ones are most suitable to the 

subarea context and work together to provide the most benefit. This often takes place in two 

phases: screening the strategies for feasibility, and then conducting a more detailed evaluation 

prior to selecting strategies to move forward with funding and implementation. The evaluation 

factors may include technical and institutional feasibility, return on investment, or others relevant 

to the subarea stakeholders. 

Numerous methods and tools are currently available to evaluate TSMO strategies as part of subarea 

planning. They vary in purpose served, complexity, input and output data, and the strategies that they 

analyze. Four main categories of analysis tools could apply to the evaluation of TSMO strategies: (1) 

travel demand models; (2) sketch-planning tools; (3) analytical/deterministic tools; and (4) simulation 

models, as well as many hybrid approaches. Sketch-planning tools allow for the basic screening of 

strategies, while deterministic tools and simulation typically go beyond the results of travel demand 

models to enable more detailed analysis of TSMO strategies. When selecting a tool, it is important 

to not only match the tool’s capabilities to the subarea team’s objectives, but also to consider other 

factors (e.g., budget, schedule, and resource requirements). The team should avoid trying to apply a 

tool that is more complex and time-consuming than needed. Conversely, the team should not use a 

tool that lacks the sensitivity or detail to address its need.

Travel demand models are useful in screening and evaluating subarea-wide strategies, such as 

congestion pricing and ridesharing programs, because they support an assessing mode choice 

and travel pattern or volume impacts. Travel demand models supply data to simulation models, 

sketch-planning tools, and post-processors that can analyze TSMO strategies. They are useful for 

generating traffic origin-destination patterns or volumes for input into simulation models. They are 

limited in their ability to analyze TSMO strategies, however, as they miss the impacts of incidents, 

work zones, and special events.

55 See Dakota County, Minnesota, Dakota County 2030 Transportation Plan, 2010, at https://www.co.dakota.mn.us/Transportation/

PlanningPrograms/Documents/2030TransportationPlan.pdf, for the entire Dakota County Transportation Plan, which includes detailed 

descriptions of their goals and related strategies and policies.


58

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Sketch-planning tools are intended to provide quick analysis using generally available 

information and data. They provide a quick order-of-magnitude estimate with minimal input data 

in support of preliminary screening assessments. Sketch-planning tools are appropriate early on 

when prioritizing large numbers of strategies or investments for more detailed evaluation. They 

are typically spreadsheets or simple databases that are based on built-in assumptions of impacts 

and benefits for various strategies.

FHWA developed TOPS-BC, a benefit-cost analysis sketch-planning tool that is available to 

help subarea teams screen multiple TSMO strategies. It provides order-of-magnitude benefit cost 

estimates using default parameters that can be customized using local data. TOPS BC is available 

for download from the FHWA Planning for Operations Website.56 FHWA is continuing to develop 

products to assist practitioners in applying benefit-cost analysis for TSMO strategies.

Analytical or deterministic tools typically implement the procedures of the Highway Capacity 

Manual.

57 These tools quickly predict capacity, density, speed, delay, and queuing on a variety 

of transportation facilities and are validated with field data, laboratory test beds, or small-scale 

experiments. The primary example of a tool within this category is the Highway Capacity 

Software, which implements the procedures defined in the Highway Capacity Manual for 

analyzing capacity and determining LOS for signalized and unsignalized intersections, urban 

streets, freeways, weaving areas, ramp junctions, multi-lane highways, two-lane highways, and 

transit. These tools are applicable for evaluating TSMO strategies for a subarea since they are 

mainly for individual intersections or small-scale facilities and are widely accepted for examining 

different types of traffic control strategies (e.g., uncontrolled, stop controlled, and signalized).

Simulation tools cover a range of software that is available to model transportation system 

operations and can be applied specifically to subareas. Simulation models are typically classified 

according to the level of detail at which they represent the traffic stream. Macroscopic simulation 

models simulate traffic flow, taking into consideration aggregate traffic stream characteristics 

(i.e., speed, flow, and density) and their relationships. Microscopic simulation models simulate 

the characteristics and interactions of individual vehicles. Mesoscopic simulation models simulate 

individual vehicles, but describe their activities and interactions based on aggregate (macroscopic) 

relationships. 

Agencies use simulation tools to analyze operations of both traffic and transit to conduct needs 

assessments, alternatives analysis, and environmental impact studies. A key advantage of these 

tools is their ability to simulate conditions, such as incidents, and analyze conditions under 

multiple scenarios. Some specific strategies that can be simulated include ramp metering, express 

lanes, and variable speeds limits. Most simulation models also produce graphical or animated 

displays of the results. These can be invaluable in presenting key findings and results to a broad 

range of audiences beyond transportation professionals. The primary challenges associated with 

simulation tools are related to the resources required to develop and apply such models. These 

include the level of expertise needed, data and computing requirements, and the amount of time 

required to adequately and accurately calibrate models to real-world conditions.

56 Tool for Operations Benefit Cost Analysis can be downloaded from: http://www.ops.fhwa.dot.gov/plan4ops/topsbctool/index.htm.

57 Transportation Research Board, Highway Capacity Manual 2010 (Washington, DC: 2010). Available from: http://www.trb.org/Main/

Blurbs/164718.aspx.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

59

3

Activity-based models are increasingly being used as a region’s travel demand model and may 

be useful in evaluating TSMO strategies within subareas. They typically function at the level 

of individual traveler and represent how the person travels across the entire day. They provide 

detailed performance metrics but take much longer to run and have greater development and 

maintenance costs. They can evaluate pricing strategies, travel demand management programs, 

and many other TSMO strategies.

Dynamic traffic assignment (DTA) also is emerging as a practical tool for numerous planning and 

operations applications. DTA is a type of modeling tool that combines network assignment models, 

which are used primarily in conjunction with travel demand forecasting procedures for planning 

applications, with traffic simulation models, which are used primarily for traffic operational studies. 

DTA involves the capability to assign or re-assign vehicle trip paths based on prevailing conditions. 

For example, a vehicle may be re-assigned to a different path in the middle of its trip due to the 

congestion on its original path. DTA enables evaluating operational strategies that are likely to 

induce a temporal or spatial pattern shift of traffic. It enables estimating travel behavior from 

various demand and supply changes and interactions. It is suitable for analyses involving incidents, 

construction zones, ATDM strategies, ICM strategies, ITS, managed lanes, congestion pricing, 

and other TSMO strategies. However, the application of DTA does generally require a significant 

investment of resources and expertise in both demand and simulation modeling.

Selecting Strategies to Best Achieve Objectives

Building on the assessment of potential strategies using analysis tools, the subarea plan will 

involve selecting a set of promising strategies to achieve the operations objectives for the subarea. 

Given the wide array of potential strategies to consider, including those that focus on highway/

traffic operations, transit operations, demand management, and capacity, selecting strategies for 

a subarea often will involve both quantitative analysis, as well as qualitative assessments of what 

would work best to fit within the specific context of the subarea. 

It is important to recognize that effective subarea management will typically involve 

implementation of a number of complementary strategies rather than a single strategy, or even a 

set of strategies applied to different modes. One of the key values of exploring subarea operations 

is recognizing the interconnections among different roadway facilities, transit, and other modal 

options. Consequently, a number of individual strategies may be grouped together and considered 

as a package of improvements. For instance, improving arterial operations may involve a 

combination of traffic signal coordination, TSP, and parking management strategies. Typically, 

planners and operators will work together to identify and evaluate potential strategies, and then 

define a package or several possible packages of improvements. The alternative subarea strategies 

can then be evaluated as to their performance relative to defined operations objectives, within the 

context of community values, and with recognition of available resources for implementation. 

Some strategies also may not require investments in infrastructure or technology deployment in 

the field, but could be fostered through improved data sharing and communications practices.


60

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Prioritizing strategies or packages of strategies for selection often involves making tradeoffs in 

deciding what approach would be most effective to meet subarea objectives. For instance, use 

of a highway shoulder as a lane for buses could help improve transit reliability, but it should be 

considered in the context of road safety and the potential benefit for travelers in relation to the 

costs of upgrading the shoulder and lane markings, in comparison to other potential strategies. 

Similarly, on an urban arterial, traffic signal improvements, including retiming or TSP, need to 

consider an array of issues and potential impacts, including effects on road traffic, transit, and 

bicycles and pedestrians in terms of travel time and safety.

To the extent possible, using common evaluation methods for comparative assessments of strategy 

alternatives is valuable. For instance, if travel time reliability (i.e., consistent or predictable 

travel times and on-time transit performance) is a key objective for the subarea, then integrating 

reliability performance measures into the selection of strategies can help ensure that strategies are 

prioritized that best support the TSMO objectives for the subarea. TSMO strategies that improve 

reliability include a wide range of strategies: information systems, incident management, managed 

lanes, TSP, and transit and freight vehicle tracking. As a result, using reliability performance 

measures does not define a singular strategy but is helpful in comparing the estimating impacts of 

different strategies.

In addition to using the outputs of tools described above, approaches that can be used to compare 

strategies or packages of strategies include: 

• Analyzing cost-effectiveness: Using a cost-effectiveness approach involves calculating the 

overall cost effectiveness (cost per unit of benefit) for each strategy based on defined 

benefits. Tools available to calculate reliability benefits include sketch planning, model 

post-processing, simulation, and multi-resolution/multi-scenario modeling. Once the cost 

effectiveness of each strategy is determined, strategies can be ranked in order from highest 

to lowest.

• Benefit-cost analysis: Benefit-cost analysis can be a useful tool for comparing different 

options, if sufficient data are available on key metrics, such as travel times and safety, to 

monetize these effects in relation to costs. Valuing travel time and delay is typically 

accomplished using surveys of travelers to determine their perceived benefit of travel 

time.58

• Multi-criteria scoring: Another approach is to use performance measures along with 

scoring criteria to assess how different alternatives support subarea performance objectives. 

For instance, if several key objectives have been defined for a subarea related to system 

operations (e.g., safety, transit on-time performance, highway reliability, etc.), then 

strategies are given scores in relation to each objective to prioritize the most promising 

strategies.

Commonly, the process of analyzing and selecting potential strategies or combinations of 

strategies will yield some approaches that are most promising.

58 Transportation Research Board, Strategic Highway Research Program, Guide to Incorporating Reliability Measures into the Transportation 

Planning and Programming Processes (Washington, DC: 2014). Available at: http://onlinepubs.trb.org/onlinepubs/shrp2/SHRP2_S2-L05-

RR-2.pdf.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

61

3

PUTTING IT ALL TOGETHER

As described above, operations objectives are essential elements of TSMO planning. The 

following section provides a set of easy-to-use reference sheets for operations objectives that are 

relevant to subareas. Each reference sheet provides an overview of the operations objective area, 

a menu of operations objective statements and associated performance measures, a description 

of data needs and potential providers, and possible TSMO strategies to achieve the operations 

objectives. They are intended as a resource for subarea planners and operators who are searching 

for ideas for potential operations objectives and performance measures. The sheets help to lead 

planners and operators through the some of the major considerations of planning for TSMO in 

subareas: gathering stakeholders, developing operations goals, developing operations objectives 

and performance measures, collecting data to support the measures, and identifying associated 

TSMO strategies. The quick reference sheets draw from FHWA’s Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating 

Operations – A Desk Reference, and were adapted for application to subarea planning.59

59 Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The Building Blocks 

of a Model Transportation Plan Incorporating Operations - A Desk Reference, FHWA-HOP-10-027 (Washington, DC: 2010). Available at: 

http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
62

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

System Efficiency: Subarea Travel Time

These objectives are focused on reducing the amount of time it takes to travel within a subarea. 

Travel time is a measure of the average time spent in travel, which is a function of both travel 

speed and distance. The objectives can be made multimodal to account for transit, truck and 

bicycle travel in the subarea, where appropriate.60

Stakeholders • State, county, or city agencies 

responsible for roadways.

• Toll authorities.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Transportation network companies.

• Traffic management center(s).

• Parking authorities.

• Transit agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Business improvement districts, if 

applicable.

• Media.

Goals • Reduce subarea travel time experienced by travelers.

Subarea 

Operations 

Objectives

• Improve average travel time during peak periods by X percent by year Y.

• Improve average commute trip travel time by X percent by year Y.

• Annual rate of change in subarea average commute travel time will not 

exceed subarea rate of population growth through year Y.

Performance 

Measures

• Average travel time during peak periods (minutes).

• Average commute trip travel time (minutes).

Anticipated 

Data Needs

• Peak period and free flow travel time and speeds.

• Person travel along subarea routes (e.g., vehicle volume multiplied by 

vehicle occupancy).

• Trip length.

• Annual subarea population.

Data Resources 

and Partners

State DOTs, counties, cities, traffic management centers, and private sector 

sources can provide travel time data including speeds and volumes. Transit 

agencies can provide transit travel time, speed data, and passenger counts. 

The U.S. Census Bureau can provide population data.

TSMO 

Strategies to 

Consider

Strategies designed to reduce recurring peak period congestion, such 

as traffic signal coordination, and transportation demand strategies that 

encourage shifts in travel mode, time or route. If the objective includes 

transit or bicycles, strategies can include transit signal priority or bicycle 

traffic signals.

60 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

63

3

System Reliability: Non-Recurring Delay in Subareas

This set of objectives is focused on minimizing non-recurring delay within subareas. This type 

of travel-time delay is caused by transient events as opposed to delay caused by geometric 

limitations or a lack of capacity. These objectives focus on non-recurring delay due to scheduled 

disruptions and unscheduled disruptions to travel.61

Stakeholders • State, county, or city agency 

responsible for roadways, including 

maintenance crews.

• Toll authorities.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Traffic management center(s).

• Transit agencies.

• Incident responders.

• Contractors.

• Utility agencies/companies.

• Weather forecast services.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Tow industry.

• Hazardous materials industry.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Minimize non-recurring delay (scheduled and non-scheduled disruptions) 

within subareas.

Subarea 

Operations 

Objectives

• Reduce total person hours of delay in subarea by time period (peak, 

off-peak) caused by:

◦ Scheduled events (i.e. work zones, system maintenance, special 

events) by X hours in Y years.

◦ Unscheduled disruptions to travel (i.e. crashes, weather, debris) by X 

hours in Y years.

◦ All transient scheduled and non-scheduled events by X hours in Y years.

Performance 

Measures

• Travel time delay during scheduled and/or unscheduled disruptions to 

travel within the subarea.

• Total person hours of delay during scheduled and/or unscheduled 

disruptions to travel within the subarea.

Anticipated 

Data Needs

• Average travel time by person or vehicle during non-recurring events such 

as traffic incidents, special events, and work zones.

• Average travel time by person or vehicle during free flow travel conditions 

within the subarea.

61 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
64

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Data Resources 

and Partners

Travel time data during non-recurring events may be difficult to collect using 

traditional methods, particularly during unscheduled events such as incidents 

and severe weather. Instead, collection and synthesis of data from connected 

vehicles/ devices and smart cities applications may be viable methods of 

collecting travel time data. Traffic management centers and/or public safety 

organizations are likely needed to assist in identifying the locations and 

times of traffic incidents. Road and track maintenance staff will be needed to 

identify upcoming work. Data on travel times during unscheduled events may 

need to be extracted after collection from ongoing travel-time data based on 

the time and location of events. The National Weather Service may also need 

to be involved in identifying times and locations of severe weather that may 

have impacted travel.

TSMO 

Strategies to 

Consider

Strategies to reduce non-recurring delay include those that focus on reducing 

the delay caused by incidents, work zones, special events, weather, and other 

non-recurring events that affect traffic flow.

System Reliability: Non-Recurring Delay in Subareas (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

65

3

System Options: Mode Shares

This set of objectives focus on increasing the use of travel modes other than the single occupancy 

vehicle to improve the overall efficiency of the transportation system. 62

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Transportation network companies.

• Traffic management center(s).

• Transit agencies.

• University research centers.

• Ports, if applicable, local 

businesses, freight distribution 

centers, event centers, and 

neighborhood associations.

• Pedestrian and bicycle advocacy 

groups.

Goals • Reduce single occupancy vehicle trips by promoting other mode choices.

Subarea 

Operations 

Objectives

• Reduce per capita single occupancy vehicle (SOV) commute trip rate 

within subarea by X percent in Y years.

• Increase non-SOV mode share for all trips within subarea by X percent 

within the next Y years.

• Increase active transportation (bicycle/pedestrian) mode share within 

subarea by X percent by year Y.

• Reduce SOV trips by X percent within subarea through travel demand 

strategies (e.g. employer or residential rideshare) by year Y.

• Achieve X percent non-SOV mode share in subarea transit station 

communities by year Y.

Performance 

Measures

• SOV commute trips per capita within subarea.

• Share of employees within subarea walking, bicycling, telecommuting, 

carpooling/vanpooling, riding transit, driving alone.

• Share of trips by each mode of travel within subarea.

• Percent of all trips made using alternative modes in subarea transit station 

communities.

Anticipated 

Data Needs

• Survey data, such as the U.S. Census Journey to Work Survey or other 

mode share surveys within subarea.

• Subarea employer surveys of employee commuting patterns.

• Subarea household surveys of travel behaviors including mode choice, 

frequency of trip making, and vehicle occupancy.

Data Resources 

and Partners

Employers, transportation management associations, travel demand 

management programs, transit agencies, state and local DOTs, commuters, 

non-auto advocacy groups, and research firms may be resources for data. 

Connected vehicles/devices and smart city applications may also provide 

real-time data that can be synthesized for analysis.

62 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
66

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

TSMO 

Strategies to 

Consider

Strategies to increase non-SOV mode share by encouraging the use of other 

modes include travel demand management strategies, parking management, 

and congestion pricing strategies. Many of these strategies are described in 

more detail later in this section. 

System Options: Mode Shares (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

67

3

System Options: Bicycle and Pedestrian Accessibility and Efficiency

This set of objectives focus on improving the accessibility and efficiency and safety of bicycle and 

pedestrian modes to offer travelers feasible and attractive travel options within a subarea.63

Stakeholders • State, county, or city agency 

responsible for roadways.

• Traffic management center(s).

• Transit agencies.

• University research centers.

• Ports, if applicable.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Pedestrian and bicycle advocacy 

groups.

Goals • Improve bicycle and pedestrian accessibility and efficiency.

• Provide attractive bicycle and pedestrian travel options within a subarea.

Subarea 

Operations 

Objectives

• Decrease average delay for pedestrians and bicyclists on primary 

pedestrian and/or bicycle routes by X percent in Y years.

• Increase system completeness within subarea for pedestrians and/or 

bicyclists by X percent within Y years.

• Increase the number of intersections with pedestrian and/or bicycle safety 

features (countdown pedestrian signal heads, bicycle signals, painted 

crosswalks/bike boxes, etc.) to X percent by year Y.

• Increase average pedestrian (or bicyclist) comfort level by X points in Y years. 

Performance 

Measures • Average delay for pedestrians and bicyclists on primary pedestrian and/or 

bicycle routes within the subarea.

• Percent of subarea transportation network with pedestrian and/or bicycle facilities. 

• The percentage of intersections with pedestrian and/or bicycle safety features.

• Number of pedestrian/bicyclist injuries/fatalities.

• Average pedestrian and/or bicyclist comfort level as measured by survey.

Anticipated 

Data Needs

• Average wait time for pedestrians and bicyclists at intersections or path 

impediments by time period.

• An inventory of bicycle and pedestrian infrastructure. 

• Survey information on pedestrian and/or bicyclist comfort level.

• Pedestrian and bicycle injuries and deaths.

Data Resources 

and Partners

State and local DOTs, MPOs, counties, cities, highway districts and 

universities are sources for pedestrian and bicycle travel data. Private sector 

crowdsourcing data can also be utilized to inventory conditions and comfort 

level. Pedestrian and bicycle advocacy groups can be a source of data. 

TSMO Strategies 

to Consider

Pedestrian countdown signals, bicycle lanes, wayfinding signage, crossing 

signals where bicycles and pedestrians cross major roadways.

63 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
68

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Arterial Management: Traffic Signal Management

These objectives improve the management of traffic signal operations on arterial roadways within 

a subarea through advanced technology, increased reviews, and planning.64

Stakeholders • State, county, or city agency 

responsible for roadways.

• Traffic management center(s).

• Traffic signal technicians.

• Incident responders.

• Contractors.

• Transit agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

Goals • Improve arterial traffic signal operations for day-to-day operations during 

peak and off-peak periods.

• Improve arterial traffic signal operations during scheduled or nonscheduled events.

Subarea 

Operations 

Objectives

• Evaluate arterial signal timing within subarea every Y years.

• Increase the number of subarea arterial intersections running in a 

coordinated, closed-loop, or adaptive system by X percent in Y years.

• Prepare and implement special subarea arterial timing plans for use 

during freeway incidents, roadway construction activities, or other special 

events by year Y.

• Crash data for subarea arterial roadways is reviewed every X years to 

determine if signal adjustments can be made to address a safety issue.

Performance 

Measures

• Number of years between traffic signal timing evaluation on arterial.

• Number of intersections running in a coordinated, closed-loop, or 

adaptive system.

• Completion of at least one special timing plan for incidents, construction, 

or events within subarea.

• Number of times per year a special timing plan is used within subarea.

• Number of years between reviews of crash data on all subarea arterials for 

possible signal timing impacts.

Anticipated 

Data Needs

Reports from operating agencies on frequency of signal retiming evaluation, 

current traffic signal capabilities, special timing plans, and crash data 

reviews. Number of freeway corridor ramp meters and year of installation.

Data Resources 

and Partners

Partner agencies that operate arterials and agencies that maintain 

traffic crash records. as State DOTs, cities, counties, and transportation 

management centers.

TSMO 

Strategies to 

Consider

Regular evaluation of traffic signal timing, enhanced traffic signal systems, 

special subarea timing plans for events, incidents, and work zones, and 

regular review of subarea crash data.

64 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

69

3

Freeway Management: Transportation Management Center (TMCs)

The objectives in this section focus on monitoring the operation of the subarea transportation 

system and initiating control strategies that effect changes in the operation of the network.65

Stakeholders • State, county, or city agency 

responsible for roadways.

• Traffic management center(s).

• Transit agencies.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Improve overall subarea transportation system operations during peak 

periods, scheduled and unscheduled events.

Subarea 

Operations 

Objectives

• Increase the level of transportation management center (TMC) subarea 

field hardware (e.g. cameras, dynamic message signs, ITS applications) by 

X percent by year Y.

• Increase the hours of TMC operation and level of staffing for the subarea 

by X percent by year Y.

• Increase the percent of the subarea transportation system monitored by 

the TMC for real-time performance.

Performance 

Measures

• Total amount of subarea TMC equipment.

• Number of hours of TMC operation and number of staff serving the 

subarea.

• Percent of subarea transportation system monitored by the TMC for 

real-time performance.

Anticipated 

Data Needs

• Subarea TMC equipment deployed.

• Changes in TMC hours of operation and staffing levels.

• TMC operational data, such as level of subarea performance monitoring, 

number of subarea events managed, level of services provided to aid 

travelers within subarea.

Data Resources 

and Partners

Operators of transportation management centers and partners, such as State 

DOTs, cities, counties, transit agencies, and emergency management agencies.

TSMO 

Strategies to 

Consider

Strategies include managing the operation of the subarea transportation 

system by communicating travel condition information, making necessary 

modifications to traffic and transit control systems, and directing response 

activities.

65 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
70

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Transit Operations and Management: Transit Signal Priority

The objectives in this section focus on implementation of transit signal priority systems to 

improve transit performance and reliability within a subarea.66

Stakeholders • State, county, or city agencies 

responsible for roadways.

• Transportation management 

center(s).

• Traffic signal technicians.

• Transit agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

Goals • Improve transit service performance and reliability on subarea roadways 

with traffic signals.

Subarea 

Operations 

Objectives

• Increase implementation of transit signal priority at X number of 

intersections over the next Y years.

• Decrease traffic signal delay on transit routes within subarea by X percent 

per year.

• Decrease transit vehicle delay within subarea by X percent per year by 

increasing the use of queue jumping and automated vehicle location (AVL).

Performance 

Measures

• Number of transit routes/intersections equipped with transit signal priority 

capability in subarea.

• System-wide signalized stop delay on transit routes.

• Travel time delay on routes with queue jumping and automated vehicle 

location in use.

Anticipated 

Data Needs

• Number of transit routes/intersections with transit signal priority 

capabilities.

• AVL data with location and travel time delay.

• Signal operations/green time reports.

Data 

Resources 

and Partners

Transit agencies and traffic signal operating agencies in the region can provide 

information about implementation and performance of transit signal priority. 

AVL data can provide transit vehicle travel time.

TSMO 

Strategies to 

Consider

TSMO strategies to increase transit signal priority implementation could 

involve identification and prioritization of transit routes and signalized 

intersections that are candidates for implementing transit signal priority 

systems or queue jumping. Another strategy may include collaboration 

with the traffic management agency to leverage transit signal priority 

implementation with traffic signal system upgrades.

66 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

71

3

Traffic Incident Management

This objective set focuses on improving system efficiency, system reliability, traveler information, 

and agency efforts for managing traffic incidents on freeways and arterials within a subarea.67

Roa

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Traffic management center(s).

• Transit agencies.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Tow industry.

• Hazardous materials industry.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Reduce traffic incident duration and person hours of delay within a subarea.

• Provide travelers with accurate, timely, and actionable information and 

improve customer satisfaction.

• Increase coordination and communication among agencies.

• Train incident management staff how to mitigate the traffic impacts related 

to incidents and how to coordinate with partners.

Subarea 

Operations 

Objectives

• Increase implementation of transit signal priority at X number of 

intersections over the next Y years.

• Decrease traffic signal delay on transit routes within subarea by X percent 

per year.

• Decrease transit vehicle delay within subarea by X percent per year by 

increasing the use of queue jumping and automated vehicle location (AVL).

67 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
72

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Performance 

Measures

• Reduce subarea mean incident notification time by X percent over Y years.

• Reduce mean time for needed subarea responders to arrive on-scene after 

notification by X percent over Y years.

• Reduce subarea mean incident clearance time and mean roadway clearance 

time per incident by X percent over Y years.

• Reduce mean time of incident duration on transit services and subarea 

facilities by X percent in Y years.

• Reduce the person hours of total delay associated with subarea traffic incidents 

by X percent over Y years.

• Reduce time between incident verification and posting a traveler alert to 

traveler information outlets by X minutes in Y years.

• Reduce the time between recovery from incident and removal of traveler alerts 

for that incident.

• Increase number of repeat visitors to subarea traveler information outlet by X 

percent in Y years.

• Increase customer satisfaction with subarea incident management efforts by X 

percent over Y years.

• Increase the percentage of incident management agencies that participate in a 

coordinated subarea incident response team by X percent in Y years.

• Hold at least X multi-agency after-action review meetings each year with 

attendance from at least Y percent of the agencies involved in the response.

• Conduct X joint training exercises among incident/emergency operators and 

responders for the subarea by year Y.

• Average incident notification time of necessary response agencies.

• Mean time for needed responders to arrive on-scene after notification.

• Mean incident clearance time and mean roadway clearance time per incident.

• Mean time of incident duration.

• Person hours of delay associated with subarea traffic incidents.

• Time to alert travelers of a subarea incident.

• Time between recovery from incident and removal of traveler alerts.

• Number of repeat visitors to traveler information outlet.

• Percentage of customers satisfied with subarea incident management practices.

• Number of participating agencies in a subarea coordinated incident response 

team.

• Number of multi-agency after-action reviews per year.

• Percentage of responding agencies participating in after-action review.

• Number of joint training exercises conducted among incident/emergency 

operators and responders.

Traffic Incident Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

73

3

Anticipated 

Data Needs

• For each incident of interest within the subarea, incident notification time 

and on-scene arrival time; specifically, the time of the awareness of an 

incident and one or more of the following pieces of data: the time the last 

responder left the scene, the time when all lanes were re-opened, and the 

time when traffic returned to full operational status.

• Total travel time in person hours of travel: a) during free flow conditions, and 

b) impacted by incidents.

• Time of incident verification, time of traveler information outlet activation 

(e.g. dynamic message sign posting, 511 entry, website log), time of subarea 

system recovery, and time of travel alert removal.

• Customer satisfaction surveys.

• Number of agencies participating in a subarea incident management program.

• Number of after-action reviews held.

• Number of joint training exercises conducted among incident/emergency 

operators and responders.

Data 

Resources 

and Partners

Data (including video feed if applicable) can typically be provided by 

incident responders, law enforcement/fire and rescue/medical responders or 

operators at a traffic management center or emergency operations center. Due 

to the unpredictable nature of traffic incidents, travel time data may need 

to be collected, stored, and analyzed after incident times and locations are 

obtained. Customer satisfaction information would need to be gathered from 

transportation system users that were using the system during the time of the 

incident.

TSMO 

Strategies to 

Consider

Many of the incident management strategies are complementary and work 

together to achieve the objectives. For example, providing accurate and timely 

traveler information can help reduce travel time delay by encouraging travelers 

to avoid the incident area and can also help improve customer satisfaction. 

Increasing agency participation within the subarea, holding after-action review 

meetings, and holding joint training can help improve incident detection 

and verification and help shorten incident clearance time. Other strategies 

to consider include enhancing inter-agency voice and data communications 

systems, using or expanding the use of roving subarea patrols, expanding 

surveillance camera coverage, and training on dissemination of subarea 

traveler information.

d

Traffic Incident Management (continued)
74

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Special Event Management

This objective set focuses on improving system efficiency, system reliability, traveler information, 

and agency efforts for managing special events within a subarea.68

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Transportation network companies.

• Traffic management center(s).

• Transit agencies.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Special event promoters.

• Special event venues.

• Parking providers.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Reduce travel time for entering and exiting a special event.

• Minimize the use of single-occupancy vehicles by special event attendees 

and encourage the use of other modes.

• Encourage a more efficient use of parking facilities.

Subarea 

Operations 

Objectives

• Reduce average travel time into and out of the event by X percent in Y years.

• Reduce average time to clear event’s exiting queue by X percent in Y years.

• Reduce non-special event VMT in the event area during events by X percent 

in Y years.

• Decrease the percent of subarea special event attendees traveling to the 

event in single-occupancy vehicles by X percent in Y years.

• Increase the percent of special event attendees using park and ride lots by 

X percent in Y years.

• Increase the percent of special events with dedicated transit or shuttle 

service by X percent in Y years.

• Increase the methods of effectively disseminating subarea special event 

information to travelers by X percent in Y years.

• Increase the percentage of planned special events (with attendance above 

Z) with information on anticipated and actual travel conditions being 

disseminated to the traveling public at least X hours prior to the event.

• Increase the number of subarea special events that use shared parking facilities 

(e.g. parking lots of nearby businesses or organizations) by X percent in Y years.

• Increase the use of flexible pricing mechanisms near subarea special event 

locations on X percent of parking spaces in Y years.

• Increase on-street parking restrictions on X percent of widely used subarea 

routes during special events in Y years.

68 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

75

3

Road Weather Management (Continuation)

Subarea 

Operations 

Objectives

(continued)

• Increase the percentage of special event stakeholders participating in a subarea 

event management team to X percent in Y years.

• Increase the percentage of subarea special events that include training 

exercises, pre-event meetings, and post-event briefing by X percent in Y years.

• Increase the percent of major subarea special events using ITS-related 

assets (e.g. cameras, dynamic message signs, vehicle and bicycle detection) 

to detect and manage special event entry/exit bottlenecks and incidents by 

X percent in Y years.

• Implement special event traffic signal timing plans at X percent of major 

subarea special events each year beginning in year Y.

Performance 

Measures

• Average travel time to selected special events from a set of locations in the 

subarea over a year.

• Average travel time away from selected special events to a set of locations 

in the subarea over a year.

• Average time to clear event’s exiting queue by year per event.

• Non-special event vehicle miles traveled (VMT) in the event area during 

events over a year.

• Percent of special event attendees: using single occupancy vehicles and 

using park and ride lots each year for selected subarea events.

• Percent of special events with dedicated transit or shuttle service for 

selected subarea events during a one-year period.

• Number of effective methods to disseminate subarea special event 

information to travelers.

• Percent of subarea special events with attendance over Z that traveler 

information is disseminated at least X hours prior to the event.

• Number of subarea special events that use shared parking facilities.

• Percent of subarea parking spaces near special event locations that use 

flexible parking mechanisms.

• Percent of subarea routes widely used during planned special events with 

on-street parking restrictions.

• Number of stakeholders participating in subarea special event management 

team.

• Number of events that include training exercises, pre-event meetings, and 

post-event briefings.

• Percent of subarea special events using ITS assets to detect and manage 

incidents/bottlenecks at entry/exit routes of the events.

• Percent of major subarea special events each year in which a special event 

traffic signal timing plan was implemented. 

Special Event Management (continued)
76

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Anticipated 

Data Needs

• Travel time to and from a set of subarea special events.

• Time to clear an event’s exiting queue in terms of vehicles, transit, 

walking, and bicycling.

• Vehicle miles traveled for vehicles not associated with special event.

• Number of special event attendees, including associated number of single 

occupancy vehicles and number using park and ride lots.

• Number of subarea special events with dedicated transit or shuttle service.

• Count of available traveler information dissemination channels.

• Count of major subarea special events with and without the dissemination 

of traveler information ahead of the event.

• Count of special events using shared use parking facilities.

• Count of parking spaces near special event locations with and without 

flexible pricing mechanisms.

• Determination of the most widely used subarea routes during special 

events and count of those routes with on-street parking restrictions.

• Number of special event stakeholders and, of them, the number that 

participate each year in a subarea event management team.

• Count of special events with training exercises, pre-event meetings, and 

post-event briefings.

• Number of subarea special events and number of special events with ITS 

assets used for detecting/managing bottlenecks and incidents at exit/entry 

routes of events.

• Number of major subarea special events where targeted signal timing plans 

were implemented.

Data Resources 

and Partners

Agencies that may be involved in collecting data include highway, arterial, 

and transit facility operators, signal system operators, public safety officials, 

parking authorities, and special event management staff.

TSMO 

Strategies to 

Consider

A wide variety of strategies, particularly travel demand management 

strategies, are available to help manage special events. Consider developing 

a subarea special event management plan to identify the most appropriate 

strategies and to address stakeholder coordination, training exercises, 

pre-event planning, and post-event debriefs. Consider strategies such 

as encouraging non-single occupancy vehicle mode choice (e.g. transit, 

ridesharing, bicycling, walking), transit/shuttle service, park and ride 

lots, shared parking with nearby facilities, parking pricing, subarea route 

management, special event traffic signalization, and traveler information.

Special Event Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

77

3

Road Weather Management

The objectives for managing road weather within a subarea focus on improving system efficiency, 

system reliability, traveler information, and traffic signal management.69

Stakeholders • State, county, or city agency 

responsible for roadways, including 

maintenance crews.

• Weather forecast services.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Traffic management center(s).

• Transit agencies.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Improve the clearance time of weather-related debris (e.g. fallen limbs 

and trees, snow and ice, power lines and poles) from the subarea 

transportation facilities.

• Help travelers avoid segments within subarea that are dangerous and 

would cause them substantial delay.

• Disseminate relevant information to travelers in a timely manner 

regarding the impact of weather on subarea travel.

• Increase the coverage of the subarea (roadway, transit, or bicycle 

facilities) with weather sensors and communications.

• Improve traffic signal management during inclement weather 

conditions.

69 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
78

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Subarea 

Operations 

Objectives

• Reduce average time to clear subarea of weather-related debris after 

weather impact by X percent in Y years

• Increase by X percent the number of significant subarea routes covered 

by weather-related diversion plans by year Y.

• Increase the percent of agencies that have adopted multi-agency 

weather-related subarea transportation operations plans and are 

involved in operations during weather events to X percent by year Y.

• Reduce time to alert travelers of travel weather impacts using traveler 

information outlets (e.g. dynamic message signs, 511, websites, media) 

by X (time period or percent) in Y years.

• Increase the percent of the subarea covered by weather sensors or a 

road weather information system (RWIS) by X percent in Y years as 

defined by an RWIS station within Z miles.

• Special timing plans are available for use during inclement weather 

conditions for X miles of the subarea roadways by year Y.

Performance 

Measures • Average time to clear selected subarea surface transportation facilities 

of weather-related debris after weather impact.

• Percent of significant subarea routes covered by weather-related 

diversion plans.

• Percent of agencies involved in transportation operations during 

weather events that have adopted multi-agency weather-related 

subarea transportation operations plans.

• Time from beginning of weather event to posting of information to 

traveler information outlets.

• Percent of subarea within Z miles of an RWIS station.

• Number of miles of subarea roadways that have at least one special 

signal timing plan for inclement weather events.

Anticipated 

Data Needs

• Time in which the subarea surface transportation facilities have been 

impacted by the debris and the time required to clear the subarea and 

restore it to full operation.

• Number of weather-related diversion plans.

• Total number of agencies involved in transportation operations during 

weather events that have adopted multi-agency weather-related 

subarea transportation operations plans.

• Time of the start of a weather event and the time in which information 

is given to travelers by traveler information outlets.

• Deployment locations of each RWIS station within or near the subarea 

and length of the subarea roadways.

• Reports from operating agencies on subarea signal retiming, signal 

capabilities, and special timing plans.

Road Weather Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

79

3

Data Resources 

and Partners

Field data may come from road or rail weather sensors, observations 

from meteorologists, National Weather Service data, or transportation 

facility maintenance staff. Agency partners may include the operators 

(or public safety personnel) of the impacted transportation facilities.

TSMO 

Strategies to 

Consider

Many TSMO strategies for road weather management are 

complementary and work towards achieving multiple objectives. 

TSMO strategies that support agency operations, and in turn help with 

system reliability and efficiency, include weather sensors/stations at key 

subarea locations, pre-positioned debris removal vehicles, preventative 

techniques such as spreading de-icing material prior to a storm, 

collaboration with weather forecasting services, and development of 

alternate route plans in preparation for events through collaboration 

among jurisdictions and modes. System efficiency can also be improved 

by developing and implementing special signal timing plans for typical 

travel demand during weather events. Traveler information strategies 

that help travelers make informed decisions include current subarea 

weather and facility information, weather forecasts, status information 

on operational activities (e.g. map of snow plow activities), and the use 

of dynamic message signs within the subarea or approaches to key 

subarea routes.

Road Weather Management (continued)
80

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Work Zone Management

This objective set focuses on improving system efficiency, system reliability, traveler information, 

and agency coordination efforts for managing work zones within a subarea.70

Stakeholders • State, county, or city agency 

responsible for roadways, including 

maintenance crews.

• Contractors.

• Utility agencies/companies.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Traffic management center(s).

• Transit agencies.

• 911 center(s).

• Law enforcement.

• Fire and rescue agencies.

• Emergency medical agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

Goals • Reduce travel time delay within subarea work zones.

• Reduce the extent of congestion for travelers within work zones.

• Reduce the variability in travel time within work zones.

• Reduce the overlap in subarea construction projects to reduce the burden 

on transportation system users.

• Inform travelers of ongoing subarea work zones to reduce travel time delays.

• Improve customer satisfaction with work zone management.

Subarea 

Operations 

Objectives

• Reduce the person hours of total delay associated with subarea work zones 

by X percent over Y years.

• Increase the rate of on-time completion of subarea construction projects to 

X percent within Y years.

• Increase the percentage of subarea construction projects that employ night/

off-peak work zones by X percent in Y years.

• Reduce the percentage of vehicles traveling through subarea work zones 

that are queued by X percent in Y year.

• Reduce the average and maximum length of queues, when present by X 

percent over Y years.

• Reduce the average time duration (in minutes) of queue length greater than 

Z miles by X percent in Y years.

• Reduce vehicle-hours of total delay in work zones caused by incidents (e.g. 

traffic crashes within or near the work zone).

• Increase the number of capital projects reviewed for subarea construction 

coordination by X percent in Y years.

• Decrease the number of work zones on parallel routes within subarea by X 

percent in Y years.

70 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

Work Zone Management
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

81

3

Subarea 

Operations 

Objectives 

(continued)

• Establish a work zone management system within X years to facilitate 

coordination of work zones within the subarea.

• Provide work zone information and multimodal alternatives to traveler 

information outlets for at least X percent of subarea work zones over the 

next Y years.

• Increase customer satisfaction with subarea work zone management efforts 

by X percent over Y years.

Performance 

Measures

• Person hours of delay associated with subarea work zones.

• Percent of subarea construction projects completed on-time.

• Percent of subarea construction projects employing night/off-peak work zones.

• Percent of vehicles experiencing queuing in subarea work zones.

• Length of average and maximum queues in subarea work zones.

• Average duration in minutes of queue length greater than Z miles.

• Vehicle-hours of delay due to incidents related to work zones.

• Percent of subarea capital projects whose project schedules have been 

reviewed.

• Percent of work zones on parallel routes within subarea.

• Presence of an established work zone management system.

• Percent of subarea work zones for which traveler information and 

multimodal alternatives is available through traveler information outlets.

• Percentage of customers satisfied with subarea work zone management 

practices.

Anticipated 

Data Needs

• Total travel time in person hours of travel: a) during free flow conditions, 

and b) impacted by work zones.

• Work zone information for work and non-work time periods: traffic 

volumes, travel time, work zone length (average and maximum).

• Number of construction projects completed on time.

• Number of construction projects employing night/off-peak work zones.

• Number of vehicles traveling through work zones.

• Number of vehicles traveling through work zones experiencing queuing.

• Duration of queue length greater than Z miles.

• Hours of incident-related delay in work zones.

• Subarea capital projects submitted for review.

• Subarea capital project anticipated and actual schedules.

• Map of work zones along area maps.

• Availability of traveler information and multimodal alternatives for work 

zones.

• Customer satisfaction surveys.

Work Zone Management (continued)
82

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Data Resources 

and Partners

Data would need to be collected by agencies responsible for maintenance 

and operation of the transportation facilities. Partners needed include 

departments of transportation, public safety, contractors, and utility 

companies.

TSMO 

Strategies to 

Consider

Many of the TSMO strategies for work zone management work together in 

a complementary fashion to achieve the objectives. For example, providing 

ahead-of-time and real-time multimodal traveler information can help 

reduce travel time delay and extent of congestion by providing travelers 

with tools to help them avoid or minimize their exposure to the work zone. 

This strategy, along with shortening lane closure times particularly during 

high travel demand periods, also helps improve customer satisfaction. 

Multi-agency coordination, such as scheduling different work zones for 

different construction seasons, can help minimize the overall subarea travel 

impacts. Other strategies to consider include using temporary traffic control 

devices and practices that minimize the opportunity for crashes, which in 

turn shortens the incident-related delay in work zones, and using dynamic 

message signs or portable variable message signs to disseminate traveler 

information within the subarea or on key approaches to subarea routes.

Work Zone Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

83

3

Transportation Demand Management (TDM): Auto Commuter Trip Reduction

This objective set focuses on reducing the motor vehicle demand for transportation infrastructure 

by implementing commuter trip reduction programs for employers.71

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

rideshare or travel demand programs.

• Transportation network companies.

• Traffic management center(s).

• Transit agencies.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

• Travelers.

Goals • Implement commuter trip reduction programs with subarea employers.

Subarea 

Operations 

Objectives

• Increase the percentage of major subarea employers (employers with at least Z 

employees) actively participating in transportation demand management 

(TDM) programs by X percent within Y years.

• Reduce commute single-occupancy vehicle miles traveled (VMT) per subarea 

employee by X percent in Y years.

Performance 

Measures

• Percent of major subarea employers with active TDM programs.

• Commuter VMT per subarea employee.

Anticipated 

Data Needs

• Number of major subarea employers with and without active TDM programs.

• Number of subarea employees and total commute VMT.

Data 

Resources 

and Partners

Data resources may include employer surveys of employee commuting 

programs, household travel behavior surveys (for commute mode choice, 

frequency of trip making, and vehicle occupancy), and data from the US Census 

Bureau, Department of Labor, and business licensing bureaus. Partners include 

employers, transportation management associations, travel demand management 

programs, transit agencies, State and local DOTs, non-auto advocacy groups, 

research firms, and commuters.

TSMO 

Strategies to 

Consider

TSMO strategies to consider include guaranteed ride home program; commuter 

financial incentives (parking cash out and transit allowances); alternative 

scheduling (flextime and compressed work weeks); telework; bicycle parking and 

changing facilities at major employer locations; worksite amenities such as on-site 

childcare, restaurants, and shops to reduce the need to drive for errands; company 

travel reimbursement policies for bicycle or transit mileage for business trips; 

company vehicles to eliminate the need for employees to drive to work to have 

their cars for business travel; proximate commuting, which allows employees to 

shift to worksites that are closest to their home (for employers who have multiple 

work locations, such as banks and other large organizations); worksite locations 

that reflect location-efficient development principles; and employer strategies to 

encourage bicycling and walking, including safe and secure storage for bicycles 

and shower and locker facilities.

71 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
84

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Transportation Demand Management: Mobility on Demand (MoD)

This objective set focuses on increasing the availability and use of shared mobility options that 

provide on-demand transportation options.72, 73

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Urban Design Experts.

• Transportation network companies 

(e.g., Uber, Lyft, Zipcar, car2go, 

Drive-Now).

• Parking Authorities .

• Bicycle share operators (e.g., Citi 

Bike, Divvy, Spinlister, B-cycle).

• Co-working companies (e.g., 

WeWork, Regus, UberOffices, 1776).

• Vehicle original equipment 

manufacturers (Mobility on 

Demand, or MoD, advances clean, 

compact, energy efficient vehicles).

• Electric utilities and/or charging 

station providers.

• On-demand economy companies 

(e.g., food, dry cleaning delivery, etc.).

• Smartphone apps (e.g., RideScout).

• Traffic management center(s).

Transit agencies. 

• Local businesses, freight 

distribution centers, event centers, 

business improvement districts, and 

neighborhood associations.

• Ports, if applicable.

• Media.

• Travelers.

Goals • Promote mobility on demand options like ridesharing and bicycle sharing 

within subarea to increase transportation options and efficiency of the 

transportation system. 

Subarea 

Operations 

Objectives

• Develop and provide travel option services to X identified subarea 

communities and audiences within Y years.

• Promote dynamic rideshare service between X major subarea activity 

centers and major destinations that are not already accommodated within 

one-quarter mile by other transit services.

• Foster partnerships with transportation network companies (TNC) to extend 

transportation options to under-served communities.

72 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

73 U.S. Department of Transportation, Mobility on Demand (MOD) Fact Sheet #1: Overview. Available at: http://www.its.dot.gov/factsheets/

pdf/MobilityonDemand.pdf.
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

85

3

Subarea 

Operations 

Objectives

(continued)

• Create a subarea transportation access guide, which provides concise 

directions to reach destinations by non-single-occupancy vehicle modes 

(transit, walking, bike, etc.) by year Y.

• Increase real-time, fine-grained mobility demand sensing in X percent of 

subarea by year Y.

• Deploy/enhance real-time management systems that balance vehicle (and 

parking space) supply and demand in X identified subarea communities 

within Y years.

• Evaluate role of dynamic pricing in mobility demand management for X 

percent of subarea by year Y.

• Reduce the walking distance between on-demand mobility locations by X 

percent within Y years.

Performance 

Measures

• Share of subarea household trips by each mode of travel.

• Percent of subarea residents receiving individualized marketing material on 

mobility service opportunities.

• Availability of mobility on demand services.

• Utilization rates of mobility on demand services.

• Number of visitors to on-line subarea transportation access guide.

• Wait times for on-demand mobility services.

• Energy usage, emissions and other ‘livability’ metrics.

• Walking distance between on-demand mobility locations (shared car parking 

spots, bikeshare lockers, etc).

Anticipated 

Data Needs

• Number and type of ridesharing services within subarea.

• Count of subarea residents receiving individualized marketing materials.

• Utilization rates of on-demand services in subarea (finely grained so we 

know most popular specific nodes within the subarea network).

• On-demand vehicle operating data (time of use, length of time of use, 

distance traveled, average speed, fuel/power consumption).

• Mode share and total trips within subarea.

• Count of subarea communities with travel option services.

• The real-time location (visualized via smart-phone app) of the subarea’s 

available on-demand services/vehicles.

• Wait times for next available on-demand service/vehicle, and related to that, 

aggregated data on latencies in the system (pick-up latencies, travel latencies, 

drop-off latencies). This contributes to getting us to a median latency and in turn 

allows users to see ‘wait-time’ and plan their (presumed) walking trip to a node. 

• Walking distances between MoD services.

Transportation Demand Management: Mobility on Demand (MoD) (continued)
86

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Data 

Resources 

and Partners

Data resources may include employer surveys of employee commuting 

programs, household travel behavior surveys (for commute mode choice, 

frequency of trip making, and vehicle occupancy), and data from the US 

Census Bureau, Department of Labor, and business licensing bureaus. Partners 

include rideshare organizations, travel demand management programs, transit 

agencies, State and local DOTs, non-auto advocacy groups, research firms, and 

commuters. Resources include the data generated by on-demand vehicles and 

connected devices (e.g. people’s smartphones).

TSMO 

Strategies to 

Consider

Key strategies include promoting ridesharing, bicycle sharing, commuter 

shuttle service and using a targeted marketing strategy to make travelers aware 

of all the options.

T

Transportation Demand Management: Mobility on Demand (MoD) (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

87

3

Transportation Demand Management: Parking Management

This objective set focuses on active management of parking resources. Parking management 

includes parking facilities, street parking, associated parking regulations, motor vehicles, freight 

vehicles, shared vehicles and bicycles. Additional freight strategies are provided in the next 

section on goods movement.74

Stakeholders • State, county, or city agency 

responsible for roadways. 

• Parking providers (infrastructure).

• Parking authorities (policy).

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Urban designers.

• Transportation network companies 

(e.g. Uber, Lyft, Zipcar, car2go).

• Bicycle share operators (e.g. Citi 

Bike, Divvy, Spinlister, B-cycle).

• Traffic management center(s).

• Transit agencies. 

• Local businesses, freight 

distribution centers, business 

improvement districts, event 

centers, and neighborhood 

associations.

• Ports, if applicable.

• Media.

• Travelers.

Goals • Manage parking resources more intelligently, equitably, and efficiently.

Subarea 

Operations 

Objectives

• Implement shared parking for X subarea communities every Y years.

• Implement parking pricing for X subarea communities every Y years.

• Install parking meters along X subarea corridors by year Y in the urban 

core/transit supportive areas.

• Increase the number of subarea residents/commuters receiving information 

on parking pricing and availability within Y years.

• Increase subarea park-and-ride lot capacity by X percent over Y years.

• Biannually increased subarea preferred parking spaces for carpool/vanpool 

participants within downtown, at special events, and among major 

employers by X percent within Y years.

• Implement parking policies to encourage the provision of mobility on 

demand services within Y years.

• Implement complimentary data collection systems that inform land-use and 

other parking-related policies for X subarea communities within Y years.

74 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.
88

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Performance 

Measures

• Number of shared-use parking stalls within subarea.

• Number of shared-use bicycle parking spaces at defined transportation notes 

within subarea.

• Number of priced parking stalls within subarea.

• Number of corridors within subarea urban core/transit supportive areas with 

parking meters.

• Number of residents/commuters receiving information on parking pricing 

and availability within subarea.

• Capacity of park and ride lots within subarea.

• Number of preferred parking spaces for carpool/vanpool participants within 

subarea.

• Wait time for available parking spaces within subarea.

Anticipated 

Data Needs

• Count of shared-use parking (vehicles and bicycles) and priced parking stalls 

within subarea.

• Count of corridors with parking meters within subarea.

• Count of residents/commuters exposed to parking information within subarea.

• Park and ride lot capacity data within subarea.

• Count of preferred parking spaces within subarea.

• Parking wait time within subarea.

Data 

Resources 

and Partners

Data will most likely come from employers, county and city transportation 

agencies, transit agencies, parking facility operators, and special event 

managers. Data resources include connected vehicles (CV) and devices. CV 

potentially allows collection of data on time vehicles are driven in search for 

parking, and where they search. Smart cities allow collection of parking spot 

utilization rates (and times), which speaks to supply/demand information that 

informs land-use & zoning decisions related to parking capacity.

TSMO 

Strategies to 

Consider

TSMO strategies to consider include shared parking facilities, parking pricing, 

increased park and ride lot capacity, preferred parking spaces for carpool/

vanpool participants, and traveler information dissemination related to parking 

availability and pricing. CV data collection and integration strategy.

Transportation Demand Management: Parking Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

89

3

Transit Operations and Management: Transit Signal Priority

This objective set focuses on improving the efficiency and reliability for urban goods movement 

and delivery.75, 76

Stakeholders • State, county, or city agency 

responsible for roadways.

• MPOs, if there are any regional 

travel demand programs.

• Traffic management center(s).

• Freight industry (can include 

shippers, carriers, importers, 

drayage, package delivery 

companies such as UPS and 

FedEx).

• State trucking association.

• Transportation network companies 

(e.g. Uber, B-Line).

• Ports.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Media.

Goals • Manage subarea transportation system resources to optimize the efficiency 

and reliability of goods movement within subareas. 

Subarea 

Operations 

Objectives

• Minimize travel time delay on key goods movement routes.

• Reduce variability in travel time on key goods movement routes.

• Minimize the impact of non-recurring delay on key goods movement routes.

• Increase efficiency of on-street parking and loading activity.

Performance 

Measures

• Average travel time on key goods movement routes during peak and offpeak periods (minutes).

• Buffer time index on key goods movement routes during peak and off-peak 

travel periods.

• Total truck hours of delay within subarea by time period (peak, off-peak) 

caused by:

◦ Scheduled events (i.e. work zones, system maintenance, special events) 

by X hours in Y years.

◦ Unscheduled disruptions to travel (i.e. crashes, weather, debris) by X 

hours in Y years.

• Availability of parking and loading zones located at optimal node locations 

in a subarea.

75 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

76 Frost & Sullivan, Uber for Trucks: Executive Analysis of the North American Mobile-based Freight Brokerage Market. Available at: http://

www.frost.com/sublib/display-report.do?id=NF61-01-00-00-00&src=PR.
90

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Anticipated 

Data Needs

• Vehicle classification counts on key routes in sub-area.

• Time of day travel time and speeds.

• On and off-street loading zone locations.

• Node utilization rates (an understanding of the most in-demand nodes within 

a subarea: those places that generate the most demand for goods movement 

trips (delivery/pickup).

Data 

Resources 

and Partners

State DOTs, counties, cities, traffic management centers, and private sector 

sources can provide travel time data including speeds and volumes. Agencies 

can also provide vehicle classification count data and on-street loading zone 

information. Non-recurring data from incidents, planned events, and weather 

can be provided by both agency and private sources. American Trucking 

Research Institute (ATRI) and Federal Highway Administration (FHWA) 

Freight Analysis Framework are sources of origin-destination and commodity 

flow data.

TSMO 

Strategies to 

Consider

Strategies designed to improve travel flow for trucks including traffic signal 

coordination, truck priority signals, weight-in-motion stations. Travel 

information, road weather management, and traffic incident management that 

address non-recurring travel delay. Transportation demand strategies that 

encourage shifts in person travel mode, time or route can open capacity for 

goods movement travel in a subarea.

Transportation Demand Management: Transit Signal Priority (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

91

3

Active Transportation and Demand Management

This objective set focuses on actively influencing traveler choices to better manage travel supply 

and demand. Active management includes proactive, predictive, and reactive elements.77, 78

Stakeholders • State, county, or city agency 

responsible for roadways.

• Toll authorities.

• Parking providers.

• MPOs, if there are any regional 

rideshare or travel demand 

programs.

• Transportation network companies.

• Traffic management center(s).

• Transit agencies.

• Law enforcement.

• Local businesses, freight 

distribution centers, event centers, 

and neighborhood associations.

• Ports, if applicable.

• Media.

• Travelers.

Goals • Actively manage travel supply and demand, traffic operations, and parking 

by influencing traveler choices related to destination, time of day, mode, 

route, and facility/lane to improve system efficiency and reliability. 

Subarea 

Operations 

Objectives

• Increase the amount of subarea travelers receiving information on active 

transportation and demand management (ATDM) strategies by X percent 

within Y years. 

• Increase customer satisfaction with ATDM efforts by X percent over Y years.

• Improve average subarea travel time during peak periods by X percent by 

year Y.

• Reduce subarea trips per year by X percent through dynamic ridesharing 

and active transit management within Y years.

• Increase the percentage of subarea travelers with electronic toll collection 

(ETC) transponders by X percent by year Y.

• Increase the share of subarea routes or lanes that are using dynamic pricing 

to X percent by year Y.

• Reduce the number of congestion-inducing crashes occurring within 

subarea roadways and at subarea freeway ramps by X percent by year Y.

• Implement active parking management for X percent of the subarea within Y 

years

77 U.S. Department of Transportation, Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan 

Planning for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, 2010, FHWAHOP-10-027. Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop10027/.

78 U.S. Department of Transportation, Federal Highway Administration, Active Transportation and Demand Management Program. Available 

at: http://www.ops.fhwa.dot.gov/atdm/index.htm.
92

APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

3

Performance 

Measures

• Total number of subarea travelers and percent receiving information on 

ATDM strategies. 

• Percentage of customers satisfied with subarea ATDM practices.

• Average subarea travel time during peak periods (minutes).

• Share of household trips by each mode of travel before and after availability 

of dynamic ridesharing and active transit management.

• Percentage of subarea travelers with ETC transponders.

• Share of subarea routes or lane miles using dynamic pricing.

• Total number of congestion-inducing crashes within subarea roadways and at 

freeway ramps (per year).

• Percent of subarea parking stalls with active parking management.

Anticipated 

Data Needs

• Survey/count of travelers exposed to ATDM information. 

• Customer satisfaction surveys.

• Subarea peak period and free flow travel times and speeds.

• Person travel time along subarea links (e.g. vehicle volume multiplied by 

vehicle occupancy) during free flow conditions and congested conditions.

• Trip length.

• Mode share and total trips for subarea.

• Total number of subarea users (annually) with ETC transponders.

• System information (e.g. miles of dynamically priced lanes or facilities).

• Total number of congested-related crashes by location within subarea.

• Count of total and actively managed parking stalls.

Data Resources 

and Partners

Data will need to be gathered from transportation management centers, State 

DOTs, cities, counties, toll authorities, transit agencies, and parking providers.

Active Transportation and Demand Management (continued)
APPROACH TO PLANNING FOR TSMO WITHIN SUBAREAS

93

3

TSMO 

Strategies to 

Consider

There are numerous TSMO strategies to consider to achieve ATDM objectives. 

The strategies are typically categorized as they relate to demand, traffic, or 

parking:

Active Demand Management:

• Subarea monitoring.

• Subarea specific traveler information (including predictive information).

• Dynamic ridesharing.

• Active transit management: dynamic fare reduction, dynamic transit 

capacity assignment, on-demand transit, transfer connection protection.

• Dynamic/congestion pricing (also electronic toll collection).

Active Traffic Management:

• Adaptive ramp metering.

• Dynamic re-routing.

• Dynamic truck restrictions.

Active Parking Management:

• Dynamic overflow transit parking.

• Dynamic parking reservation.

• Dynamic wayfinding.

• Dynamically priced parking.

Automated enforcement may also be considered to complement some of the 

strategies such as dynamic pricing.

Active Transportation and Demand Management (continued)

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

95

CHAPTER 4. MOVING TO IMPLEMENTATION: 

TRANSPORTATION SYSTEMS MANAGEMENT AND 

OPERATIONS WITHIN SUBAREAS

This chapter presents several components that are critical to successfully implementing the plans 

for transportation systems management and operations (TSMO) within a subarea and maintaining 

those strategies over time. This includes identifying funding for the selected TSMO strategies and 

using the overarching systems engineering process and regional intelligent transportation system 

(ITS) architecture to further define the TSMO strategies into specific, implementable systems that 

work with each other and connect to relevant operations systems already in place. This chapter 

also highlights the need to consider designing transportation infrastructure and ITS installations to 

enable and support planned TSMO strategies. 

PROGRAMMING FOR TRANSPORTATION SYSTEMS MANAGEMENT 

AND OPERATIONS WITHIN SUBAREAS

Programming funds for TSMO 

strategies is a necessary step in 

making these strategies a reality 

in subareas (Figure 13). TSMO 

investments and strategies 

within a subarea can be funded 

through a combination of Federal, 

State, and local sources. There 

are several Federal programs 

that offer funding for TSMO 

activities, and State and local 

resources also are commonly an 

important source of funding as 

well. Monies may come from 

general funds, local sales taxes 

dedicated to transportation, toll 

revenues, vehicle registration 

fees, or specialized taxes on 

local businesses or residents in a 

defined geographic area to fund local 

improvements, including subarea 

improvements.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time TSMO=Transportation Systems Management and Operations

Programming for TSMO within Subareas

Figure 13. Diagram. The “Programming for 

Transportation Systems Management and Operations 

Within Subareas” activity of the approach to planning 

for transportation systems management and operations 

within subareas. 
96

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

There are a few potential approaches for programming TSMO projects, including the following:79

• TSMO funding set-aside: Some agencies set aside funding for TSMO projects, such that a 

portion of the available funding is restricted and spent only on TSMO projects. With this 

approach, amounts may be set aside for specific programs (e.g., traffic signal operations, etc.) 

or individual TSMO projects (e.g., transit signal priority (TSP) installation). Strategies are 

selected for funding based on pre-established selection criteria. Some communities have 

specific operations-focused plans that inform the development of the selection criteria, such as 

an ITS strategic plan or regional concept for transportation operations (RCTO).

• Open competition: TSMO projects might compete with other types of projects for funding. 

In this approach, the merits of each project are evaluated using criteria that address broad 

transportation needs. The long-range transportation plan (LRTP) should guide the selection of 

projects that are funded in the transportation improvement program (TIP). In this way, when 

all projects compete for general funds, project selection criteria should prioritize projects 

according to a performance-based approach that aligns with the regional LRTP. One 

evaluation approach is to rank all projects using a set of common criteria as well as modespecific criteria (TSMO can be a category with mode-specific criteria). For example, out of a 

scale of 100, 70 points may be attributed to common criteria, and 30 to mode-specific criteria.

• A combination or hybrid approach: Some areas use a combination of set-aside funding for 

some types of projects, but also with the ability for TSMO projects to compete for general funds. 

In addition, it is important to consider prioritization processes used for State and local funding 

sources, which may serve as a match for Federal funding or may be used entirely to fund 

operational improvements. See the text boxes for examples.

79 Federal Highway Administration, Programming for Operations: MPO Examples of Prioritizing and Funding Transportation System 

Management & Operations Strategies, FHWA-HOP-13-050 (Washington, DC: 2013). Available at: http://ops.fhwa.dot.gov/publications/

fhwahop13050/index.htm.

The Northern Virginia Transportation Authority’s Prioritization Process

The Northern Virginia Transportation Authority (NVTA) is responsible for prioritizing a 

portion of the Northern Virginia tax revenue and bond proceeds for regional transportation 

improvement projects in the congested Northern Virginia subarea. The NVTA has allocated 

close to $1 billion in regional revenues since July 2013. The NVTA uses a systematic 

project selection procedure, which includes preliminary screening (to ensure projects 

meet basic criteria for funding), development of a quantitative score for each project using 

weighted selection criteria, a congestion reduction relative to cost ratio, and consideration of 

qualitative factors. The quantitative scoring is conducted in relation to defined goals using a 

rating scale and the assignment of points to each project. The scoring assigns points based 

on an evaluation of how each project rates in terms of specific factors (e.g., improving the 

management and operation of existing facilities through technology applications, reducing 

vehicle miles traveled, and improving the safety of the transportation system). While the 

NVTA cannot directly fund operations, it can fund infrastructure related to operations, e.g., 

transit signal priority technology.

For more information, see: Northern Virginia Transportation Authority, Project Implementation Working Group, 

Memorandum, NVTA FY2017 Program Project Selection Criteria, November 9, 2015. Available at: http://www.

thenovaauthority.org/wp-content/uploads/XVI-Approval-of-FY2017-Program-Project-Selection-Criteria1.pdf. 
M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

97

Prioritizing Transportation Systems Management and Operations Strategies 

for Funding

The goals and objectives of the LRTP should guide funding decisions and the selection of projects at 

the State and regional levels. Regions that place importance on system operations in the LRTP have a 

strong basis for allocating funding for TSMO strategies. 

Regional goals, objectives, and performance measures relevant to system operations and management 

provide a foundation for setting aside funding for TSMO strategies, developing a project prioritization 

process that enables TSMO strategies to be competitive for general funds, or a combination of both. 

In addition to the LRTP, some regions develop regional operations or ITS plans. These specific 

operations-focused plans can further advance the implementation of TSMO strategies. 

Aligning a subarea plan with the goals and objectives outlined in the LRTP and developing 

regional operations or ITS plans will improve the likelihood that the strategies identified in the 

plan receive funding for implementation. 

Prioritization of Transportation Systems Management and Operations Projects among All 

Project Types

The potential for TSMO projects to be selected in an open, competitive process is highly 

dependent on the selection criteria used for evaluation. Criteria that address mobility, reliability, 

and cost-effectiveness help TSMO initiatives compete effectively for funding. 





San Diego Association of Governments Administers County-Wide Tax Funds

The San Diego Association of Governments administers funds from TransNet, a countywide half-cent sales tax generated for local transportation projects needed to mitigate 

congestion and improve mobility. The program provides funding for specific projects pulled 

from the regional transportation plan; these were selected as high priority through public 

surveys and focus groups and were named in the program ballot measures approved by 

voters. In addition to these specific projects, some TransNet funds are allocated to the San 

Diego Association of Governments’ member jurisdictions for local street and road projects. 

Funds may also be awarded to other projects through a competitive process. An Independent 

Taxpayer Oversight Committee is charged with ensuring that expenditures from the 

TransNet fund support the implementation of the program’s intent to reduce congestion and 

improve regional mobility.

For more information, see: San Diego Association of Governments, TransNet Extension Ordinance and Expenditure 

Plan. Available at: http://www.sandag.org/uploads/projectid/projectid_341_8806.pdf. Additional information on 

TransNet at: http://www.sandag.org/?projectid=341&fuseaction=projects.detail.
98

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

Project Prioritization Method at Genesee Transportation Council

The Genesee Transportation Council, the metropolitan planning organization for the 

Rochester, New York area, ranks projects using a set of common criteria (up to 100 

points) and mode-specific criteria (up to 30 points). The set of common project selection 

criteria relate to the broader transportation goals and objectives identified in the Long 

Range Transportation Plan for the Genesee Finger-Lakes Region 2040, which include 

promoting efficient system management and operations, safety for motorized and nonmotorized users, and accessibility and mobility options, among others. There also is a set 

of mode-specific criteria for transportation system management and operations projects 

that focuses on outcomes (see Figure 14). The other mode specific categories are highway 

and bridge, public transportation, bicycle and pedestrian, and goods movement. Given the 

overall ranking of common and mode-specific criteria, transportation system management 

and operations projects are typically competitive with public transportation and highway 

projects. Genesee Transportation Council’s project evaluation criteria allow for smaller 

transportation system management and operations projects to be competitive for funding. 

System Management and Operations

1. Reduce travel times on major roadways 0 2 4 6 8 10

2. Reduce incident clearance times 0 2 4 6 8 10

3. Increase the productivity of regional transportation agencies/

providers (e.g., cost savings, times savings, etc.) 0 1 2 3 4 5

4. Support or advance existing and/or proposed ITS elements 0 1 2 3 4 5

Figure 14. Genesee Transportation Council’s mode-specific project evaluation 

criteria for transportation systems management and operations projects. 

Source: Genesee Transportation Council’s Transportation Improvement Program Guidebook.

Source: Genesee Transportation Council, Long Range Transportation Plan for the Genesee-Finger Lakes Region 2040 (New York: June 2016). 

Available at: http://www.gtcmpo.org/LRTP. 
M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

99

Prioritization of Projects with Funding Dedicated to Transportation Systems 

Management and Operations Projects

When a region decides to set aside or dedicate funding for TSMO initiatives, criteria that link to 

key regional objectives often are used for prioritizing that funding. In addition, a TSMO plan can 

be used to prioritize funding. For instance, Metro, the Portland, Oregon metropolitan planning 

organization (MPO), developed a 10-year regional TSMO plan to guide operations investments in 

the region.80 The TSMO plan identifies two categories of actions: (1) those for regional programs 

and projects that require interagency cooperation, and (2) those for key individual travel corridors 

and single-agency services. After the allocation of funding for the TSMO program in the TIP, 

Metro then works with its regional operations collaborative group, called TransPort, to evaluate 

and select projects to receive TSMO program funds. Of these funds, one-third goes to region-wide 

projects and two thirds go to area-specific projects.

Incrementally Funding Transportation Systems Management and Operations 

Strategies within a Subarea

Investments to support TSMO do not have to be implemented all at one time as part of a large 

capacity project. Recognizing the scarcity of funding and the value that different TSMO strategies 

can have, agencies can develop a multi-phased approach to implementing strategies incrementally. 

Phasing can have the benefit of not only allowing small investments to proceed more quickly, but 

also can recognize that some potentially effective strategies may require more partner cooperation 

and more complex institutional arrangements. 

Life-Cycle Costing for Transportation Systems Management and Operations 

Projects 

When evaluating TSMO strategies for a subarea, it is important to consider not just the initial 

investment required to deploy a strategy, but the costs incurred throughout the life of the strategy. 

Life-cycle costing is an approach for determining the true cost of a project—the total for acquiring, 

installing, configuring, operating, maintaining, and disposing of a system throughout the entirely of 

its intended use.

For TSMO strategies, costs associated with maintenance and day-to-day utilization (e.g., staff time, 

software, etc.) are particularly critical, because funding the ongoing costs of operations is typically 

essential to the effectiveness of the strategy.

80 Metro, Regional Transportation System Management and Operations Plan, June 30, 2010. Available at: 

http://www.oregonmetro.gov/regional-transportation-system-management-and-operations-plan.






100

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

IMPLEMENTATION 

There are several frameworks and 

methods to consider when preparing 

for the implementation of an integrated 

TSMO approach within a subarea 

(Figure 15). This section provides an 

overview of those frameworks and 

methods that can be critically important 

for successful implementation of TSMO 

within subareas. 

Interagency Agreements

TSMO within subareas frequently 

requires close coordination to be 

successfully implemented among 

transportation and non-transportation 

agencies. Interagency agreements are 

used to facilitate needed collaboration 

across agencies for subarea operations 

activities (e.g., traffic incident 

management (TIM), fiber sharing, 

special event management, traffic 

signal optimization, and joint 

purchasing).

Interagency agreements have become 

increasingly important as a collaborative transportation operating environment has emerged in the 

past decade. Individual agencies are increasingly collaborating with other agencies for a variety 

of reasons: transportation needs exceed resource levels, customer expectations for seamless travel 

across jurisdictions and modes, and advances in technology that have opened up opportunities and 

needs for the integration of systems that facilitate operations activities. 

Within a single agency, there is an institutional structure for performing operations and allocating 

resources on an ongoing basis, but as agencies within a region increasingly seek ways to improve 

their effectiveness and efficiency through working together, they need a mechanism to formalize 

and codify those relationships to preserve and encourage the collaboration. Agreements provide 

a framework for facilitating and guiding the collaboration. They are critical to enabling many 

of the partnerships that are now in existence and avoiding fragmented operations. As resources 

become involved in the collaboration, agreements can be used to provide a legal means to protect 

the participating agencies and preserve the intent of the agreement. Interagency agreements are 

an important mechanism for allowing government agencies to combine services and/or resources, 

or to follow the same policy direction without giving up their autonomy. Interagency agreements 

serve a valuable purpose in that they formalize the complex coordination that needs to take place 

to develop and implement multi agency projects that have different stakeholders and priorities. 



Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Implementing

Figure 15. Diagram. The “Implementing” activity of 

the approach for planning for transportation systems 

management and operations within subareas.

TSMO = transportation systems management and operations.
M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

101

There is not a standard naming convention or classification scheme for interagency agreements. 

Interagency agreements can be associated with three large groupings and refer to all types 

of agreements among government agencies. The first type of agreement (handshake) is not 

documented. The handshake agreement is a paperless agreement based on good faith. This may be 

appropriate for more informal collaborative efforts that do not require resource commitments from 

parties. The next two types of agreements are memoranda of understanding and intergovernmental 

agreements. A memorandum of understanding is generally less detailed and not legally binding, 

while the intergovernmental agreement is specific and binding for the signing parties.

As mentioned, general types of interagency agreements include:

• Handshake agreement.

◦ Paperless agreement based on good faith.

• Memorandum of understanding.

◦ Formal expression of intent by parties to engage in a specific course of action.

◦ Defines roles and responsibilities.

◦ Establishes common direction for achieving shared policy goals.

◦ Documents area of mutual understanding.

◦ Generally non-binding.

• Interagency or intergovernmental agreements.

◦ Legal pact between two or more units of government.

◦ Defines responsibility, function, and liability of each party.

◦ Includes any financial or other resource obligations. 

◦ More detailed procedures for agreed upon activities.

The interagency agreement should serve as the vehicle for establishing an agreed-upon course of 

action relating to TSMO and can be used to:

• Define the program or project objectives.

• Identify stakeholders.

• Address roles and responsibilities for each stakeholder.

• Establish guidelines for how agencies will work together.

• Identify timelines. 

• Facilitate communication.

• Offer an opportunity to resolve any issues encountered during the life of the agreement.
102

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

Systems Engineering Process

Systems engineering is an organized approach intended to improve the success rate of systems 

projects by reducing schedule and cost risks and ensuring that user needs and requirements are 

met. The approach can be applied to any of the TSMO strategies described in this desk reference. 

Systems engineering analysis is required for all ITS projects using Federal funds per Title 23 

Code of Federal Regulations 940.11. Although there are many ways to represent the systems 

engineering process, the winged “V” (or “Vee”) model diagram shown in Figure 16 has been 

broadly adopted in the transportation industry.81

The left wing of the “V” process shows the regional ITS architecture, feasibility studies, and 

concept exploration that support initial identification and planning for a project. Subarea planning 

fits within the left wing. Figure 17 shows how the regional ITS architecture can be used to 

inform subarea planning and a concept of operations, both of which are described in the next 

two sections. The operations objectives and performance measures identified during the planning 

phases should be applied throughout the systems engineering process and be validated once 

the project reaches the operations and maintenance phase in the right wing of the “V” diagram. 

This approach provides a systematic method to plan and design systems to achieve the desired 

operations objectives.

81 For more information, see: Federal Highway Administration, Systems Engineering for ITS: An Introduction for Transportation Professionals, 

FHWA-HOP-07-069, 2007. Available at: http://www.ops.fhwa.dot.gov/publications/seitsguide/index.htm or Federal Highway Administration 

and California Department of Transportation, Systems Engineering Guidebook for ITS 3.0, 2009. Available at: http://www.fhwa.dot.gov/

cadiv/segb/. 



Regional 

Architecture

Operations 

and 

Maintenance

Needs

Assessment

Concept 

Selection

Project 

Planning

Concept of 

Operations

System 

Requirements System 

High-Level Verication

Design & Integration

& Integration

Testing

Procurements & 

Installation

Life Cycle Time Line

Document Approval

Subsystem 

Verication

System 

Validation

Detailed 

Design

Subsystem 

Requirements

Initial 

Deployment

Systems 

Engineering 

Management 

Planning

Interfacing with 

Planning and the 

Regional 

Architecture

Phase -1

Concept 

Exploration and 

Benets Analysis

Phase 0

Project Planning 

and Concept of 

Operations 

Development

Phase1

System Denition 

and Design

Phase 2

System 

Development 

and 

Implementation

Phase 3

System 

Retirement/

Replacement

Phase 5

Validation, 

Operations and 

Maintenance, 

Changes & Upgrades

Phase 4

Retirement/

Replacement

Changes 

and 

Upgrades

Subarea planning for transportation 

systems management and operations 

interfaces with the systems 

engineering process in the left “wing”

Figure 16. Subarea planning within the systems engineering “V” model.
M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

103

Regional Intelligent Transportation Systems Architecture

A regional ITS architecture is a framework for institutional and technical integration in a 

particular region. Over 300 regional ITS architectures have been developed; therefore, it is 

likely that one is available in any region or at the statewide level as a tool to support the subarea 

planning process. Figure 17 shows how the regional ITS architecture can provide support in an 

objectives driven, performance-based approach to planning for operations within a subarea.

The regional ITS architecture helps answer important questions, such as:82

• What existing or planned management and operations strategies may be available to help 

achieve the subarea operations objectives?

• What stakeholders and 

collaborative relationships 

can be leveraged as part 

of the subarea planning 

process?

• What data are available 

to monitor transportation 

system performance and 

track progress toward 

subarea operations 

objectives?

• What parts of the 

architecture’s operational 

concepts, functional 

requirements, or other 

contents can be used to 

support project 

development? 

82 For more information, see: Federal Highway Administration, Applying a Regional ITS Architecture to Support Planning for Operations: 

A Primer, FHWA-HOP-12-001 (Washington, DC: February 2012). Available at: http://www.ops.fhwa.dot.gov/publications/fhwahop12001/

index.htm.



Figure 17. Diagram. Regional intelligent transportation 

system architecture use in subarea planning.

Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Regional ITS 

Architecture
104

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

Concept of Operations

Another crucial step in the systems engineering process is the completion of a concept of 

operations. Once TSMO strategies have been recommended as part of the needs assessment and 

concept selection phase of a subarea planning process, the recommended strategies should be 

carried forward into a concept of operations, which provides a stakeholder view of the system 

being developed in a non-technical manner with a focus on user needs, activity-based operations 

objectives, performance measures, roles and responsibilities, and institutional agreements. The 

concept of operations provides the basis for developing the systems requirements, which is the 

next step in the “V” diagram.

A successful concept of operations includes these key activities:83

• Identify stakeholders – This includes anyone involved in or impacted by the project 

(e.g., owners, operators, maintainers, users, etc.). Stakeholder identification is described 

in Chapter 3 of this desk reference and often uses the regional ITS architecture as a 

starting point.

• Develop a consensus on roles and responsibilities – This is typically accomplished by 

working through operational scenarios for the subarea, such as normal system operation 

and various fault-and-failure scenarios (e.g., major incident and communications failure). 

This process also helps identify institutional agreements that may be needed to design and 

operate the project; for example, an agreement for one agency to implement signal timing 

adjustments to another agency’s traffic signals on multi-jurisdictional sections of the 

subarea.

• Define stakeholder needs – Capture a clear definition of stakeholder needs and 

differentiate between what is essential for system operations and “wish-list items” for 

“wants” and “nice-to-haves.” 

• Define performance measures – These measures should assess the effectiveness of the 

system in comparison to the operations objectives of the subarea. The performance 

measures provide the foundation for the system validation plan used in the systems 

engineering process.

The size of the concept of operations should be commensurate with the size and complexity of 

the TSMO strategies selected for the project subarea. A subarea with one or two simple TSMO 

strategies, particularly ones that expand on existing systems, may only require a document 

that is several pages. For example, the addition of transit signal priority (TSP) on an arterial 

corridor within the subarea where TSP is already used by the transit agency in other neighboring 

jurisdictions may reference other concept of operations but will focus on the roles and 

responsibilities for the subject subarea. A larger, more complex subarea project, such as instituting 

special event management in a downtown area, will require a much more extensive concept of 

operations document to capture numerous systems and stakeholders.

83 For more information, see: Federal Highway Administration, Systems Engineering for ITS: An Introduction for Transportation Professionals, 

FHWA-HOP-07-069 (Washington, DC: January 2007). Available at: http://www.ops.fhwa.dot.gov/publications/seitsguide/index.htm.


M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

105

Designing for Operations 

The success of TSMO strategies in a subarea to be implemented depends in large part on the 

design of the roadway or transit infrastructure. Examples of roadway design treatments that are 

important for improving the management and operation of a subarea include:

• Alternative intersection designs.

• Intersection traffic control (e.g., pre-timed, actuated coordinated, closed loop, adaptive 

control, roundabouts).

• Median treatments (e.g., pedestrian refuge, center turn lanes, raised medians).

• Multimodal transportation facilities – this includes bus stops or turnouts, bus lanes, and 

bicycle lanes.

Ideally, planning for TSMO within a subarea would occur in conjunction with the initial 

construction of roads or rails within the subarea so that TSMO strategies could be factored into 

the infrastructure design. For example, bus or bike lanes, alternative intersections, and pedestrian 

refuges can be included as part of the road from the beginning. Even after the road or rail is 

initially built, TSMO planners and operators can take advantage of opportunities to influence 

design during reconstruction or maintenance projects. For example, laying fiber optic cable to 

facilitate data collection for performance measures could be considered during reconstruction. 

The effectiveness of TSMO strategies also relies on what type, how, and where the ITS and other 

equipment is deployed to support operations. These physical components that enable TSMO 

strategies include variable message signs or traffic surveillance equipment. The current and 

future operational use of ITS equipment should help drive the design decisions. For example, 

the installation of variable message signs in locations prior to significant route or modal decision 

points for travelers or common incident areas supports relevant, actionable traveler information to 

the public.

The FHWA document Designing for Transportation Management and Operations: A Primer

introduces the concept of designing for operations, describes tools and institutional approaches to 

assist transportation agencies in considering operations in their design procedures, and points out 

some specific design considerations for various operations strategies.84 The tools and approaches 

to aid in designing for operations may include checklists for designers to reference operational 

considerations, formation of a technical advisement committee with operations expertise, or 

agency policies that instruct designers on how to incorporate operational elements within the 

project development process. These will benefit multiple practitioner groups, including planners, 

project designers, scoping engineers, maintenance and traffic managers, and contract development 

personnel. This primer can be consulted by subarea TSMO teams to learn more about how to 

integrate design elements that facilitate TSMO strategies within subareas. 

84 Federal Highway Administration, Designing for Transportation Management and Operations: A Primer, FHWA-HOP-13-013 (Washington, 

DC: February 2013). Available at: http://ops.fhwa.dot.gov/publications/fhwahop13013/index.htm.


106

M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

Life-Cycle Planning – Monitoring and Maintaining Level of Operations 

Over Time

To fully realize the value of an objectives-driven, performance-based approach, it is necessary 

to assess how well the subarea strategies meet the objectives immediately after implementation 

and over the time the strategy is in use (Figure 18). The monitoring and evaluation feedback loop 

involves several elements:85

• Evaluate the effectiveness of implemented 

strategies – Develop a subarea evaluation plan 

during the planning or design process, and put 

the plan into action following implementation. 

Figure 19 provides an example evaluation plan 

with key steps during design, data collection 

and validation, data archiving and 

transformation, data analysis, and performance 

measure reporting. Some regions already have 

established performance measures and 

evaluation plans in place through the regional or 

metropolitan transportation plan, ITS or TSMO 

plan, congestion management process, or 

subarea planning process. These may be 

tailored to the subarea level. 

• Report subarea performance – Inform 

decision makers and stakeholders about trends 

in subarea system performance. Highlight 

project benefits for any objectives that have 

been met or exceeded. For under-performing 

objectives, proceed to the next step.

• Assess and refine operations objectives – If 

measured subarea performance falls short of 

meeting a desired objective, consider refining 

the objective or choosing alternate strategies 

that may meet the objective.

This process should be repeated on a regular cycle, 

perhaps in conjunction with other regional planning 

cycles, to identify any issues and address them to 

stop the degradation of subarea performance.

85 Federal Highway Administration, Advancing Metropolitan Planning for Operations: An Objectives-Driven, Performance-Based 

Approach- A Guidebook, FHWA-HOP-10-026 (Washington, DC: February 2010). Available at: http://www.ops.fhwa.dot.gov/publications/

fhwahop10026/.



Getting Started: Scoping the Effort 

and Building a Team

Gathering Information on Current and 

Future Context and Conditions

Identifying Operations Performance 

Needs, Gaps, and Opportunities

Programming for TSMO within Subareas

Implementing

Developing an Integrated 

TSMO Approach

• Identifying TSMO Strategies Based 

on Operations Objectives and 

Performance Needs

• Evaluating TSMO Strategies

• Selecting TSMO Strategies

Developing an Outcome-Oriented 

Operational Concept

• Subarea Goals

• Subarea Operations Objectives

• Performance Measures

Monitoring and Maintaining Level of Operations Over Time

TSMO=Transportation Systems Management and Operations

Monitoring and Maintaining Level of Operations Over Time

Figure 18. Diagram. The “Monitoring and 

Maintaining Level of Operations Over Time” 

activity of the approach for planning for 

transportation systems management and 

operations within subareas.

TSMO = transportation systems management and operations.
M O V I N G T O I M P L E M E N T AT I O N : T S M O W I T H I N S U B A R E A S

4

107

86

86 Adapted from: Oregon Department of Transportation and Metro, Portland Multimodal Arterial Performance Management Implementation 

Guidance Document, February 2013. Available at: http://www.oregonmetro.gov/sites/default/files/Arterial_Measures_Guide.pdf.

• Identify subarea performance measures (based on subarea objectives developed during 

the planning process) and associated data needs (often determined during the systems 

engineering process).

• Determine the most appropriate technology to collect the required data.

• Procure data sources and install field devices and communications as necessary.

• Verify the accuracy of the data collected.

• Correct mechanical data errors (e.g., failed detection).

• Smooth the data to adjust for gaps in data.

• Create methods to automatically flag data anomalies and failed detectors.

• Collect data for subarea (to a central location if possible).

• If needed, connect devices to central system.

• If needed, upgrade central system data acquisition and storage capabilities.

• Validate.

• Transform the data into a usable database.

• Archive the data at the highest precision available.

• Geocode the data so that it can be mapped easily.

• Upload and save the databases to a local or regional data warehouse.

• Create standardized reports and visuals for performance measures.

• Allow users to pull raw data where applicable.

• Allow users to query the data by location, time period, and data resolution.

• Allow data to be cross-referenced (e.g., linking speeds, weather conditions, collisions, or 

other factors to traffic conditions).

Design

Collect 

Data

Validate

Archive 

and 

Transform

Analyze 

and 

Report

Figure 19. Diagram. Example plan for evaluating the effectiveness of subarea transportation 

systems management and operations strategies.84

109

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

CHAPTER 5. TOOLBOX FOR EFFECTIVE 

TRANSPORTATION SYSTEMS MANAGEMENT AND 

OPERATIONS PLANNING

There are a variety of tools that can support transportation systems management and operations 

(TSMO) planning within subareas, and many of them have already been discussed prior to this 

chapter, including analytical tools and simulation models, the regional intelligent transportation 

system (ITS) architecture, and archived operations data. (Note: The word “tools” is used in this 

chapter in the broadest sense—anything that can be used to support and enhance TSMO planning 

on a subarea.) This chapter offers readers a “toolbox” of analysis instruments and planning 

techniques that can be applied when planning for TSMO within subareas. For several of the tools 

described, there is at least one additional Federal Highway Administration (FHWA) guide that can 

give readers a much greater understanding of how the tool may be applied. This chapter begins 

with two planning techniques and then moves into quick reference sheet-style descriptions of 

common types of analysis tools. Following the quick reference sheets are overviews of several 

specific applications that planners and operators can use to address analysis needs directly while 

planning for TSMO within subareas. 

SCENARIO PLANNING FOR TRANSPORTATION SYSTEMS 

MANAGEMENT AND OPERATIONS WITHIN SUBAREAS

Scenario planning is an important enhancement to planning for TSMO within a subarea. 

It can be used to incorporate the consideration of factors that are difficult to predict, such 

as evolving technology, climate change, shifting traveler behavior, financial uncertainty, 

failing infrastructure, natural and man-made events, and other unknowns into planning and 

programming decisions. Scenario planning supports the exploration and consideration of 

different future conditions in a subarea.

Scenario planning is an approach to strategic planning that uses alternate narratives of plausible 

futures (or future states) to play out decisions in an effort to make more informed choices and 

create plans for the future. It engages participants in considering the “what ifs” of tomorrow and 

whether those are desirable or undesirable outcomes. The simple task of imagining a different 

future can help to challenge the status quo and encourage creative thinking, which ultimately can 

lead to the development of more thoughtful and resilient plans. Scenarios are developed to enable 

participants to test out possible decisions, analyze their impacts given the conditions in each 

scenario, and come to agreement on a preferred course of action. 

Scenario planning follows many of the same planning activities as described in Chapter 3, 

beginning with scoping the effort, examining current conditions and trends, and then identifying 

goals and objectives. In scenario planning, the leaders and stakeholders would then develop 

multiple scenarios or descriptions of possible futures, identify the strategies needed to realize each 


110

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

of the scenarios, and then analyze the impacts of each scenario against reaching their objectives. 

The scenario planning approach to TSMO is shown in Figure 20. 

Generally, there are three types of scenario planning that reflect the different conditions and 

purposes for which scenario planning may be used. For example, scenario planning for TSMO 

within a subarea may be used to identify the most effective package of TSMO strategies given an 

expected change in conditions on the subarea (trend-based type). Alternatively, scenario planning 

may be used to build consensus on operations objectives by examining multiple desired future 

conditions and the strategies needed to support those conditions (normative type). Finally, scenario 

planning can be used to examine different scenarios in response to uncontrollable or unknown 

future conditions (e.g., to better understand the impacts of global trade changes, extreme weather, 

etc.). The purpose of this is to guide stakeholders in identifying policies, plans, and strategies that 

can work best under all extreme conditions (exploratory type).

Additional information on how to use scenario planning to advance TSMO can be found in 

FHWA’s Advancing Transportation Systems Management and Operations Through Scenario 

Planning.

87

USE OF ARCHIVED OPERATIONS DATA 

Archived operations data is a critical tool in an objectives-driven, performance-based planning 

approach to TSMO within subareas. Archived operations data is information that is collected and 

stored in support of day-to-day efforts to monitor and manage the transportation system. Archived 

operations data can include traffic, transit, bike, pedestrian, construction, and weather information 

that is usually collected in real time by ITS infrastructure, such as in-pavement inductive loop 

detectors, radar detectors, remote traffic microwave sensors, Bluetooth, and EZPass or other 

unique identification tag readers. It also includes incident or event information entered into 

electronic logs by transportation or public safety personnel. Transportation planners at the State, 

metropolitan, and local level are finding that, with archived operations data, they are able to do 

more, be more accurate, and solve more problems than ever before—relying less on assumptions 

and modeled data and making more effective, less costly decisions.

There are several advantages to having archived operations data available, including:

• Providing a more accurate picture of system performance.

• Opening up new types of analyses to support the planning process.

• Enabling more advanced modeling.

The following are examples of significant uses for archived operations data in planning for TSMO 

within subareas:

• Monitoring and evaluating system performance in support of identifying 

performance issues/needs, project prioritization, and reporting. Archived travel time 

data forms the basis for computing a wide variety of congestion, reliability, and freight 

performance measures.

87 Federal Highway Administration, Advancing Transportation Systems Management and Operations Through Scenario Planning, 

FHWA-16-016 (Washington, DC: 2016). Available at: http://ops.fhwa.dot.gov/publications/fhwahop16016/index.htm.
111

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

• 88

88 Federal Highway Administration, Use of Archived Operations Data in Planning, FHWA-HOP-16-017 (Washington, DC: 2016). Available 

Summer 2016 at: http://ops.fhwa.dot.gov/publications/fhwahop16016/index.htm. Identify, Prepare, and Refine Analysis Tools Stakeholder Involvement

How should we get started?

Convene a broad set of relevant stakeholders and scope the effort:

 What do we want to accomplish/address? 

 What is the geographic area and timeframe?

 What are the pressing issues or desired areas of change in operations?

 Who should be involved in these discussions?

 Focal issue and major driving forces influencing the focal issue should 

arise during this step.

Output: Work plan, 

operations stakeholder 

group, focal issue, 

driving forces.

1

Output: Baseline 

information on trends, 

current performance, 

institutional context.

Where are we now?

 Establish the baseline information and data needed to identify trends, issues, 

and opportunities for relevant time horizons (usually 10-30 yrs).

 Data should include travel time reliability, delay, and incident or event 

management statistics as well as factors influencing travel demand. 

 Current operating policy, transportation systems management and 

operations (TSMO)-related institutional collaboration and organizational 

capabilities for the area. 

2

Output: Draft 

operations goals, 

objectives, 

performance measures 

and targets, key local 

factors.

Where do we want to go?

 Establish desired operations goals, objectives, and performance targets in 

light of transportation goals from local, metropolitan planning organization 

(MPO), department of transportation (DOT) plans and policies. 

 Identify performance measures.

 Identify key local factors that could negatively impact reaching those 

desired conditions. 

3

What could the future look like?

 Develop scenario logic (based on driving forces) and create alternative 

scenarios to envision, examine, or explore how the transportation system 

should or could operate under different conditions. 

 Identify TSMO strategies or policies to best achieve future description in 

each scenario.

4

Output: Scenarios 

and TSMO 

strategies or 

policies.

What impacts will scenarios have?

 Alternative scenarios are evaluated according to the operations 

objectives and performance targets identified in step 3, using analytic 

tools, models, and stakeholder input. 

 Iterative consideration of potential outcomes helps stakeholders to refine 

operations objectives and performance targets.

5

Output: Estimated 

impacts of TSMO 

strategies or policies 

for each scenario. 

How will we reach our desired future?

 Stakeholders apply insights from scenario analysis to create a preferred 

scenario or strategic direction to guide operations planning and 

programming.

 Stakeholders develop an action plan to implement the preferred scenario 

or strategic direction, linking to operations objectives. 

6

Output: Action plan, 

TSMO projects, 

programs.

Data Collection

Figure 20. Diagram. Phases of scenario planning for transportation systems management 

and operations.86
112

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

• Setting performance targets. Archived data provides information on past trends that are 

useful in establishing targets.

• Evaluation of completed projects. A key component of performance-based planning is the 

ability to conduct evaluations of completed projects and to use the results to make more 

informed investment decisions in the future.

• Trip-based mobility monitoring and accessibility. Although archived origin-destination 

travel time data is just becoming available, it is expected to become more prevalent as 

technology evolves. Origin-destination data makes it possible to monitor the performance 

of trips taken by travelers.

FHWA has produced a desk reference (Use of Archived Operations Data in Planning) on 

applying archived operations data to planning aimed toward TSMO planners and their planning 

partners. This desk reference raises planners’ awareness of the opportunities afforded through 

archived operations data and provides guidance on how to take advantage of that data to expand 

and improve planning practices89 It also identifies new and innovative applications for this data 

in planning. The desk reference is intended to help planners and their operations data partners 

overcome the barriers to obtaining and using data. 

ANALYSIS TOOLS AVAILABLE FOR TRANSPORTATION SYSTEMS 

MANAGEMENT AND OPERATIONS PLANNING WITHIN SUBAREAS

Below are the quick reference sheets for several types of analysis tools that can be applied 

for TSMO planning within subareas. The types of analysis tools covered are travel demand 

models, sketch planning tools, analytic/deterministic tools, simulation tools, and dynamic traffic 

assignment (DTA) methods.

89 Federal Highway Administration, Use of Archived Operations Data in Planning, FHWA-HOP-16-017 (Washington, DC: 2016). Available 

Summer 2016 at: http://ops.fhwa.dot.gov/publications/fhwahop16016/index.htm.
113

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Travel Demand Models

Description Travel demand models are widely used to compare or screen alternatives 

by using origin-destination (O-D) patterns, demand-to-capacity ratios, 

differences in percent volumes, and rough estimates of travel times. These 

models consider land use, demographics, mode choice, and the transportation 

system (roadway and transit).

Examples • Types of models:

◦ Three-step models (no mode choice).

◦ Four-step models.

◦ Activity-based models.

◦ Mesoscale models

Software: TransCAD, Emme, and Cube.

Planning for 

Operations 

Uses for 

Subareas

• Supply data (e.g., travel forecast inputs) to sketch-planning tools, simulation 

models, and post-processors that can analyze subarea operations strategies.

• Use traffic O-D patterns or volumes for input into subarea simulation 

models.

• Provide changes in peak-hour turning volumes at major intersections and 

freeway ramp volumes through refined (subarea) travel demand models.

• Extract tables with O-D for trips in a focus area as required input for 

microscopic subarea simulation models.

• Screen and evaluate subarea strategies.

• Assess mode choice and travel pattern/volume impacts.

• Capture linked trips (e.g., home-to-work-to-shopping-to-home), smart 

growth, walk/bike trips for parcel-level models, and more accurate O-D 

estimates for use as inputs to simulation models.

Advantages • Validates models available for most metropolitan areas.

• Evaluates subarea impacts.

• Is consistent with current planning practices.

• Is capable of estimating mode choice and travel pattern change reductions. 

due to transit and smart growth.

Challenges • Limited ability to analyze operational strategies.

• High initial costs.

• Typical travel day does not capture incident, weather, work zones, and 

special event conditions.
114

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Sketch Planning Tools

Description Sketch-planning tools provide quick order-of-magnitude estimates with 

minimal input data (e.g., traffic volumes and speeds) in support of preliminary 

screening assessments. These tools are appropriate early in the planning 

process when prioritizing large numbers of projects or strategies for more 

detailed evaluation. Tools are often spreadsheets or simple databases that are 

based on built-in assumptions of impacts and benefits for various strategies. 

Data from sketch-planning tools, such as the Florida ITS Evaluation Tool 

(FITSEVAL), can be integrated with travel demand model data to provide 

analysis of operational strategies.

Examples • Tool for Operations Benefit Cost Analysis (TOPS-BC).

• ITS Benefit/Cost Database.

• California Life-Cycle Benefit/Cost Analysis Model (Cal-B/C).

• Florida ITS Evaluation Tool (FITSEVAL).

• QuickZone (work zone analysis tool).

• Results from other subarea before-and-after studies.

Planning for 

Operations 

Uses for 

Subareas

• Evaluate policy-based and subarea transportation systems management and 

operations (TSMO) strategies.

• Screen a large number of potential TSMO strategies and obtain a general 

idea of whether a strategy is worth investigating further.

• Generate expected impacts of TSMO projects that can be compared with 

other potential investments, such as traditional roadway capacity 

improvements.

Advantages • Low cost.

• Fast analysis times.

• Uses readily accessible data.

• View of the “big picture.”

• Some tools expressly for evaluating policy-based or subarea strategies.

• May be integrated with travel demand model.

Challenges • Limited in scope, robustness, and presentation capabilities.

• Results constrained by quality of input data and built-in assumptions of 

impacts.

• Not always transferable between agencies.
115

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Analytical/Deterministic Tools

Description Most analytical/deterministic tools implement the procedures of the Highway 

Capacity Manual. The following summarize the Highway Capacity Manual

procedures:

• Closed-form: A practitioner inputs data and parameters and, after a 

sequence of analytical steps, the Highway Capacity Manual procedures 

produce a single answer.

• Macroscopic: Input and output deal with average performance during a 

15-minute or a 1-hour analytical period.

• Deterministic: Any given set of inputs will always yield the same answer

• Static: Predict average operating conditions over a fixed time period and do 

not deal with transitions in operations from one system state to another.

Analytical/deterministic tools quickly predict capacity, density, speed, delay, 

and queuing on a variety of transportation facilities.

Examples • Highway Capacity Software (HCS).

• Traffix. 

Planning for 

Operations 

Uses for 

Subareas

• Analyze the performance of isolated or small-scale transportation facilities.

• Examine impacts under different demand conditions.

• Assess a range of traffic control strategies (e.g., uncontrolled, stopcontrolled, signalized).

Advantages • Predicts impacts for isolated or small-scale transportation facilities.

• Is widely accepted.

• Provides repeatable results.

Challenges • Limited ability to assess many transportation systems management and 

operations (TSMO) strategies.

• Limited ability to analyze broader subarea network or system effects.

• Limited output of performance measures.
116

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Simulation Tools

Description Simulation tools use a variety of formulas and algorithms to simulate 

travel behavior to analyze operations of traffic and transit to conduct 

needs assessments, alternatives analysis, environmental impact studies, 

and operations planning. These tools may be deterministic or incorporate 

stochastic sampling or perturbation. Simulation tools can be classified as:

• Macroscopic: Simulates average flow, speed, and density on a segment-bysegment basis.

• Mesoscopic: Simulates individual vehicles based on average segment speed 

and density.

• Microscopic: Simulates detailed movement of individual vehicles 

throughout the network.

• Multi-resolution: combines tools of different scales (e.g., mesoscopic and 

microscopic) to identify trade-offs between computational efficiency and 

modeling accuracy for critical subareas.

Examples • Macroscopic: PASSER, TSIS-CORSIM (includes TRANSYT-7F), and 

VISTA.

• Mesoscopic: DYNASMART-P, DynusT, DTALite, DynaMIT, 

TransModeler, TRANSIMS, Aimsun, and Dynameq.

• Microscopic: TSIS-CORSIM, Paramics, VISSIM, TransModeler, and 

Aimsun.

Planning for 

Operations 

Uses for 

Subareas

• Evaluate a range of improvements and strategies at subarea levels.

• Conduct sensitivity testing to reflect variability in traffic demands or 

incident severity.

• Refine project scope and design.

• Support environmental assessment.

Advantages • Simulates operations strategies to varying degrees.

• Offers extensive and comprehensive model outputs.

• Incorporates traffic variations as observed in the field.

• Provides dynamic analysis of incidents and real-time diversion patterns 

when mesoscopic models are used.

• Analyze complex conditions and multi-modal interaction.

• Offer visual presentation opportunities.

Challenges • Expertise needed to develop and apply models.

• Demanding data and computing requirements.

• Calibration may be time consuming.

• Extensive outputs may require development of separate post-processing 

tools.
117

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Dynamic Traffic Assignment

Description DTA is a simulation tool that assigns vehicles to paths based on traffic 

conditions instead of pre-defined routes using origin-destination data and 

link path travel time equilibrium. Simulated vehicles can adapt to prevailing 

conditions, change start times, choose alternative routes, or change modes. 

DTA often involves a combination of model types representing multiresolution modeling. The following are requirements for DTA:

• Travel demand model (highly recommended).

• Data for development and calibration.

• Origin-destination estimation technique.

• Transportation modeling software with DTA capabilities.

• Appropriate transportation modeling skill.

Examples • DYNASMART-P.

• DynusT.

• DTALite

• DynaMIT.

• Dynameq.

Planning for 

Operations 

Uses for 

Subareas

• Simulate the impact of incidents/events.

• Evaluate operational strategies that are likely to induce a temporal or spatial 

pattern shift of traffic.

• Estimate travel behavior from various demand/supply changes and interactions.

• Conduct analyses involving incidents, construction work zones, active 

transportation and demand management (ATDM) strategies, congestion 

pricing, etc.

Advantages • More realism in estimating traveler response and therefore operations.

• Wider range of strategies can be more accurately tested.

Challenges • Is resource intensive.

• Requires skill sets of both travel demand modeling and simulation modeling.
118

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

WEATHER-RESPONSIVE TRAFFIC MANAGEMENT STRATEGIES 

AND TOOLS 

Application to Planning for Transportation Systems Management and 

Operations within Subareas 

Inclement weather is known to have disruptive impacts on traffic operations and system performance and may temporarily alter travel demand. Neglecting these impacts and changes may lead 

to decreased performance of the transportation system. Through FHWA’s Road Weather Management Program, predictive weather-responsive traffic system management decision support 

capabilities have been developed and tested, including the weather-sensitive Traffic Estimation 

and Prediction System (TrEPS).90

Within the TrEPS model is DYNASMART-X, a real-time system that continuously interacts 

with loop detectors, roadside sensors, and vehicle probes to provide real-time estimates of traffic 

conditions, network flow patterns, and routing information. TrEPS allows weather-responsive 

traffic management (WRTM) applications to be used in network modeling and simulation tools 

and demonstrates the potential of WRTM in evaluating and developing strategies for urban areas 

and subareas as part of the routine functions of planning and operating agencies. In addition, 

FHWA is trying to improve integrated modeling for road condition prediction (e.g., better 

integration with weather forecasts/other traffic events, and improved interfacing with existing 

systems and TMC databases) by enhancing TrEPS functions.91

Samples of Use

FHWA used the TrEPS model, calibrated for the Salt Lake City region, to implement and evaluate 

weather-responsive traffic signal timing in the Riverdale corridor in Ogden, Utah. The goal was 

to optimize signal timing in a subarea to reduce the impacts of inclement weather events and to 

prevent or alleviate congestion. Real-time simulation of the traffic network forms the basis of 

the prediction capability. It fuses historical data with sensor information, and uses a description 

of how traffic behaves in networks to predict future conditions and develop control measures 

accordingly. The estimated state of the network and predicted future states are given in terms of 

flows, travel times, and other time-varying performance characteristics on the various components 

of the network. These are used in the on-line generation and real-time evaluation of coordinated 

signal timing along main arterials, for diversion paths, and for weather-related interventions.

When estimating and predicting traffic, TrEPS uses weather data, which allows traffic signal 

control intervention to be selected in a systematic and continuous process. Signal control 

intervention is linked to the TrEPS-predicted conditions, including weather conditions and traffic 

demand observed via roadway and signal sensors. The signal control interventions are linked 

to the TrEPS-predicted conditions that reflect weather conditions and traffic demand. Real-time 

traffic data feeds used as the basis for traffic estimation and prediction are obtained directly from 

sensors that are driving the vehicle-actuated operation of the signals. An important enabler is a 

90 Federal Highway Administration, Implementation of a Weather Responsive Traffic Estimation and Prediction System (TrEPS) for Signal 

Timing at Utah DOT, FHWA-JPO-14-140 (Washington, DC: July 2014). Available at: http://ntl.bts.gov/lib/52000/52600/52623/FHWAJPO-14-140_v2.pdf. 

91 Federal Highway Administration, Integrated Modeling for Road Condition Prediction Concept of Operations, Unpublished Project 

Document, November 25, 2015.




119

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

scenario manager that allows relatively easy and timely selection of coordination plans given the 

predicted states, effectively communicated to the system operator. It is an essential link between 

traffic estimation and prediction and the traffic signal control decisions. 

Figure 21 illustrates the overall architecture of the decision support system. The system supports 

the TMC signal systems operator’s decision making in deploying alternative signal timing plans 

during a weather event by integrating three components—TrEPS, Scenario Manager, and Scenario 

Library—into the TMC’s signal operations. The Scenario Manager is a scenario generation and 

management tool that serves as an interface between the TrEPS real-time simulation engine and 

a human decision maker. It facilitates the process of developing and preparing input scenarios for 

the TrEPS model and the exchange of information between TrEPS and TMC operators. Deploying 

a particular signal plan involves setting a large number of control parameters for individual traffic 

signals. From a practical point of view, it often is not feasible for TMC operators to create a new 

plan whenever parameter adjustments are needed. Therefore, TMC operators commonly maintain 

a manageable number of pre-defined “canned” action sets (i.e., a Scenario Library), each of which 

defines all the parameters and coordination settings associated with each timing plan, and simply 

switch between these existing plans during traffic signal operation. The Scenario Library approach 

is introduced to aid this type of operation (see Figure 22).92

92 Federal Highway Administration, Implementation of a Weather Responsive Traffic Estimation and Prediction System (TrEPS) for Signal 

Timing at Utah DOT, FHWA-JPO-14-140 (Washington, DC: July 2014). Available at: http://ntl.bts.gov/lib/52000/52600/52623/FHWAJPO-14-140_v2.pdf.

Figure 21. Diagram. Framework of the Traffic Estimation and Prediction System-based 

decision support framework for weather-responsive traffic signal operations.90

TrEPS = Traffic Estimation and Prediction System
120

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

93

Advantages

The potential advantages of TrEPS include:

• Integration of weather effects (from the perspectives of both demand and supply) with 

traffic estimation and predictions, the results of which form a basis for developing traffic 

management strategies.

• The use of available real-time measurements to improve the quality of its estimation and 

future prediction, and thus provide a reliable basis for improved traffic management 

decisions that anticipate future conditions.

• The use of a Scenario Manager and Scenario Library to simplify and facilitate the human 

operator’s interaction with the predictive system.

• Flexibility in integration of other traffic events (e.g., incidents and work zones) into the 

analysis framework.

• Flexibility in integration of other operational strategies (e.g., incorporating transit-related 

and multi-modal capabilities in the interest of greater metropolitan mobility; and integration 

of fleet routing functionality—for snow removal equipment, preventive sanding, freezemelting agent spreading, and other logistical processes).

93 Federal Highway Administration, Implementation of a Weather Responsive Traffic Estimation and Prediction System (TrEPS) for Signal 

Timing at Utah DOT, FHWA-JPO-14-140 (Washington, DC: July 2014). Available at: http://ntl.bts.gov/lib/52000/52600/52623/FHWAJPO-14-140_v2.pdf.



Figure 22. Sreenshot. Scenario Manager interface.91
121

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Challenges

While considerable progress has been accomplished to date on the successful deployment of 

weather responsive TrEPS, there remain several challenges with using the tool:

• Traffic models need to be better integrated with weather forecast systems, and the 

integration between them (e.g., relationships between rain intensity and roadway capacity 

reduction) needs to be further studied and quantified.

• Integration with current TMC systems (e.g., interfacing with their database) needs to be 

strengthened.

• Reliable model performance requires advanced model calibration with large amounts of 

data, and the calibration depends on data availability, which varies at different TMCs. 

Therefore, additional real-time data sources (e.g., mobile data and social media) need to be 

considered in the estimation and prediction process.

TOOL FOR OPERATIONS BENEFIT COST ANALYSIS 

The Tool for Operations Benefit Cost Analysis (TOPS-BC) offers a means to determine whether 

investment in a given TSMO strategy is justifiable in comparison to investment in a traditional 

capital infrastructure project. The tool was created by FHWA as a sketch-planning benefit-cost 

analysis tool to support preliminary screening and initial prioritization of TSMO strategies. The 

TOPS-BC tool has four key functions 

• Allows users to look up the expected range of TSMO strategy impacts based on a database 

of observed impacts in other areas. 

• Offers guidance and a selection tool for users to identify appropriate benefit-cost methods 

and tools based on the input needs of their analysis. 

• Supports the ability to estimate life-cycle costs of a wide range of TSMO strategies. 

• Enables users to estimate benefits using a spreadsheet-based sketch-planning approach and 

the comparison with estimated strategy costs. 

As a sketch-planning tool, TOPS-BC allows users to quickly understand typical benefits for 

a range of TSMO strategies and then estimate the benefit-cost ratios for each of those TSMO 

strategies. The tool also provides a suggested list of analysis tools whose use depends on user 

selected criteria, such as the level of confidence required, which TSMO strategies are being 

investigated, key measures of effectiveness, and a few other filters. 

The TOPS B-C tool is built on a Microsoft Excel platform and can be downloaded from FHWA’s 

Planning for Operations website at: http://www.ops.fhwa.dot.gov/plan4ops/topsbctool/index.htm. 

TOPS-BC is a companion resource to FHWA’s Operations Benefit/Cost Desk Reference.


122

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Application to Planning for Transportation Systems Management and Operations 

within Subareas

TOPS B-C is a useful tool for analyzing TSMO strategies identified in subarea planning. The 

strategies included in TOPS B-C are commonly applied in subareas. Table 4 lists those TSMO 

strategies included in the TOPS-BC tool and indicates whether typical impacts or benefits are 

provided for the strategy, as well as the availability of more detailed calculation tools for costs and 

benefits. 

Table 4. Strategies included in the Tool for Operations Benefit-Cost Analysis.

TSMO 

Category TSMO Strategy

Typical 

Impacts Cost Benefit

Traveler 

Information

Dynamic message signs.

Highway advisory radio.

Pre-trip traveler information.

Other traveler information strategies.

Yes

Yes

Yes

Yes

Yes 

Yes

Yes

No

Yes

Yes

Yes

No

Traffic 

Signal 

Coordination 

Systems

Preset timing.

Traffic actuated.

Central control.

Transit signal priority.

Emergency signal priority.

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

No

Yes

Yes

Yes

No

No

Ramp 

Metering 

Systems

Central control.

Traffic actuated.

Preset timing.

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Other 

Freeway 

Systems

Traffic incident management. Yes Yes Yes

Advanced 

Traffic 

Demand 

Management

Speed harmonization.

Employer-based traveler demand 

management.

Hard shoulder running.

High-occupancy toll lanes.

Road weather management.

Work zone.

Advanced public transit systems.

Congestion pricing.

No

No

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

No

No

Yes

No

Yes

Yes

Yes

Yes

No

No

Supporting 

Strategies

Traffic management center.

Loop detection.

Closed circuit television cameras.

No

No

No

Yes

Yes

Yes

No

No

No

TSMO = transportation systems management and operations.


123

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

Samples of Use 

As noted above, the tool exists as a Microsoft Excel spreadsheet with several tabs and color coded 

cells that clearly identify where the user needs to provide information but also allows the user to 

modify the spreadsheet as needed. 

TOPS-BC calculates an annualized cost for each strategy that incorporates the useful life of the 

equipment, the replacement cost, and the annual operations and maintenance cost. The net present 

value of implementing the strategy also is provided, and while default values for the discount rate 

and time horizon are provided, the user can change those values.

The cost components for each TSMO strategy are broken down into two categories: the one-time 

costs to create the backbone structure for the strategy (e.g., software and system integration), 

and the incremental cost of each additional installation (e.g., additional loops, weather stations, 

and dynamic message signs). Default costs are included in the spreadsheet for all of the cost 

components. The user simply needs to enter the number of infrastructure deployments and the 

number of incremental deployments. 

The annual benefits calculated by TOPS-BC focus on travel time savings for both recurring and 

non-recurring congestion, energy/fuel savings, and savings due to reduced crashes. A tab marked 

“Parameters” includes all of the assumptions used to calculate the benefits, such as:

• Cost of fuel.

• Fuel economy of autos and trucks.

• Cost of hourly travel for autos and trucks. 

• Typical percent of trucks on the facility.

• Cost of crashes by severity.

• Typical emissions.

• Typical crash rates by facilities.

• Speed-flow relationships. 

• Typical incident delay factors.

If local information is known, in particular the percentage of trucks on the facility and crash 

rates on the facility by severity, those can be modified to provide a more accurate assessment of 

benefits. However, if local factors are not known, the default values make the tool ready to use for 

an approximation of the benefit for the desired TSMO countermeasure.

As with the cost component, each strategy has its own tab to calculate benefits. Again, color-coded 

cells are used to help the user identify where input is required. A basic benefit analysis requires 

minimal input from the users. For example, to calculate the benefits for dynamic message signs, 

the user is required to provide three pieces of information: 

• Length of the analysis period.

• Type of traveler information (three options are provided on a pull-down menu).

• Traffic volume passing the sign location(s) during the period of analysis.


124

TOOLBOX FOR EFFECTIVE TSMO PLANNING

5

There are additional categories where default values are provided, or the user can override those 

values when location-specific information is known. For example, the ramp meter benefits 

assessment assumes a freeway free flow speed of 55 miles per hour and a ramp free flow speed of 

35 miles per hour. Both of those values can be overridden if local data are known.

In addition to the benefit tabs for each strategy, the tool contains a generic link-based analysis 

tab that can be used to enter benefits related to a TSMO strategy not specifically identified. The 

TOPS-BC tool also includes a summary tab that allows the user to select some or all of the 

strategies for a total benefit-cost summary.

Advantages

The following are advantages of the TOPS B-C tool:

• The tool provides information that can be used in conjunction with benefit-cost analyses for 

capital infrastructure, which can be useful when comparing TSMO and capital 

infrastructure projects.

• It is customizable; therefore, if better data is available, the user can easily modify the 

spreadsheet with project-specific costs or add components. 

Challenges from Training

The right-of-way acquisition is an important component that is not captured in the cost-estimating 

tool.94

94 For more information and access to the TOPS BC tool, refer to FHWA’s TOPS- BC web page at: http://www.ops.fhwa.dot.gov/plan4ops/

topsbctool/index.htm.




125

TAKING ACTION

6

CHAPTER 6. TAKING ACTION

While transportation system management and operations (TSMO) within subareas can be 

advanced in many ways and can involve coordination among operating agencies and key 

constituencies in the area, it doesn’t have to be a daunting process. The scope of the effort can be 

scaled to the needs and challenges of the subarea and can be integrated into ongoing operational 

coordination efforts and planning studies.

The checklist below summarizes the key points presented in this document and can be used to 

guide the process for developing a TSMO plan for a subarea.

 Scoping the Effort and Building a Team.

The team working on a subarea planning study or operations plan should encompass many 

different agencies and partners who together operate services and influence operations in 

the subarea. The team may come from a range of different agencies and service providers, 

including transit providers, local bus services, bicycle and pedestrian advocates, chambers 

of commerce, tourism bureaus, neighborhood associations, utilities, goods movement, and 

other constituencies affected by changes and improvements in the subarea. In addition, it is 

valuable to involve planners, traffic engineers, transit operators, law enforcement, and other 

organizations that play a key role in the subarea. Getting the agencies and other constituencies 

together is often a critical component of success in gaining an early understanding of who 

operates in the subarea, what their opportunities are for enhancing operations, and ways to 

work together to optimize system performance to the benefit of travelers, and others who 

depend upon or are affected by the transportation system in the subarea. 

Transportation planning in a subarea should build off of broader planning efforts for TSMO as 

well as operations programs and strategies at a regional and State level. Regardless of the size 

of the subarea, planning for transportation operations should recognize and build upon existing 

programs that can benefit the transportation system users and operators.

Develop a clear definition of the subarea where TSMO strategies are to be introduced. While 

an effort to advance TSMO can focus on limited facilities within the subarea, the subarea 

should be looked upon as more than an individual or independent geographic area and should 

consider the interconnected nature of movement within, into, and out of the subarea to 

maximize the effectiveness of the selected TSMO strategies. Components of a subarea may 

include a surface streets, major arterials, transit rail and bus services, bicycle and pedestrian 

facilities, parking, and provisions for accommodating rideshare programs. 

Think carefully about the boundaries and definition of a subarea to assess and develop 

solutions comprehensively. Defining a subarea will often start with a review of data on travel 

patterns (including origin-destination data) and connecting networks and choices available to 

travelers, which are informed by public perceptions. 
126

TAKING ACTION

6

 Gathering Information on Current and Future Contexts and 

Conditions.

Compile information on the transportation assets, capabilities, and resources that exist 

within the subarea. Document existing ITS equipment, real-time traffic and bus monitoring, 

park and ride facilities, traffic signal timing plans, and other technologies and facilities 

relating to subarea operations, since operational improvements can build upon these assets. 

In addition, identify available resources, such as transit traveler information systems, 

ridesharing programs, and incident management programs.

 Developing an Outcome-Oriented Operational Concept – Goals, 

Objectives, and Performance Measures.

This may be the most important step in the process since it establishes how the subarea is 

expected to perform once TSMO strategies are implemented and operated on a day-to-day 

basis. Operations objectives are developed through interactions with partners and 

stakeholders who help define the intended objectives and performance outcomes for the 

subarea. These objectives can be further refined through a study process, but the initial 

identification of objectives is critical for setting the context for developing and evaluating 

subarea TSMO strategies. Objectives can be expressed in the form of an objectives tree that 

shows how higher level objectives are reached by first achieving lower level objectives that 

support them.

 Identifying Operations Performance Needs, Gaps, and Opportunities.

Gather and analyze data for performance measures to identify existing gaps between desired 

outcomes (objectives) and current conditions as well as potential opportunities for 

improvement. Define scenarios or conduct a scenario planning exercise as a basis for 

understanding current performance gaps and potential opportunities. By defining scenarios, 

participants in the subarea can identify existing gaps, performance needs, and opportunities 

for improvements. In many cases, performance data are available that clearly demonstrate 

where problems exist and need attention, which leads to understanding where investments 

are needed and what efforts should be prioritized in the planning process. 
127

TAKING ACTION

6

 Developing an Integrated TSMO Approach.

Consider TSMO strategies working together in the context of the subarea as opposed to 

selecting and implementing strategies in isolation. Planning for an integrated set of strategies 

allows planners and operators to leverage synergies among strategies. Build on the 

assessment of potential strategies using available analysis tools so that the subarea plan 

involves a set of promising strategies that achieve the operations objectives for the subarea. 

Given the wide array of potential strategies to consider, include those that focus on highway 

and traffic operations, transit operations, demand management, and capacity. Selecting 

strategies for a subarea involves both quantitative and qualitative assessments of what would 

work best to fit within the specific context of the subarea.

 Putting it All Together: Efficiency, Reliability, Travel Options, 

Non-Recurring Delay, Arterial Management, Freeway Management, 

and Transit Operations and Management. 

The Federal Highway Administration (FHWA) document Advancing Metropolitan Planning 

for Operations: The Building Blocks of a Model Transportation Plan Incorporating 

Operations provides a guide for assembling a range of complementary TMSO strategies 

that, together, provide wide-ranging benefits to subarea management and operations. This 

document, along with other FHWA references and guides, helps to address the range of 

needs for improving subarea performance.

 Programming for TSMO. 

Identify and understand the various sources of funding for TSMO strategies in the subarea 

and prioritize TSMO projects based on funding availability and potential benefits. Use an 

incremental investment approach that gains benefits from early implementation while 

maintaining a strategic view of fully implemented solutions in the subarea.

 Implementing, Monitoring, and Maintaining Level of Operations 

over Time.

Apply well-tested systems engineering processes to ensure that system requirements are 

properly specified and achieved in systems design and deployment and that the subarea plan 

includes consideration for life cycle management and operation.




U.S. Department of Transportation 

Federal Highway Administration 

Office of Operations 

1200 New Jersey Avenue, SE 

Washington, DC 20590 

www.ops.fhwa.dot.gov

Toll-Free “Help Line” 866-367-7487

October 2016

FHWA-HOP-16-074