Developing and Sustaining a Transportation 

Systems Management & Operations 

Mission for Your Organization 

A PRIMER FOR PROGRAM PLANNING
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 the information contained in this document.

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

Trademarks or manufacturers’ names appear in this report only 

because they are considered essential to the objective of the document.

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. The FHWA periodically reviews quality issues and adjusts 

its programs and processes to ensure continuous quality improvement.

Cover photos source: top-Thinkstock, middle-Caltrans I-80 SMART Corridor Project, 

bottom-Washington State Department of Transportation
Technical Report Documentation Page

1. Report No. 

FHWA-HOP-17-017

2. Government Accession 

No.

3. Recipient’s Catalog No.

4. Title and Subtitle 

Developing and Sustaining a Transportation Systems 

Management & Operations Mission for Your Organization

A Primer for Program Planning

5. Report Date

September 2017

6. Performing Organizations Code

7. Authors

 Michael Grant, Pat Noyes, Lindsay Oluyede, Jocelyn Bauer, 

Matthew Edelman

8. Performing Organization 

Report No.

9. Performing Organization Name and Address

Leidos

11251 Roger Bacon Drive 

Reston, VA 20190

ICF 

1725 Eye Street NW

Washington, DC 20006

Pat Noyes & Associates

1566 County Road 83

Boulder, CO 80302

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

 Contract No. 

12. Sponsoring Agency Name and Address

Federal Highway Administration

U.S. Department of Transportation

1200 New Jersey Avenue, SE

Washington, DC 20590

13. Type of Report and Period 

Covered

September 2015 - May 2017

14. Sponsoring Agency Code

HOP

15. Supplementary Notes

Mr. Wayne Berman, Federal Highway Administration Government Task Manager

16. Abstract

This primer discusses the rationale for and key elements of successful transportation systems 

management and operations (TSMO) program planning. It is designed as a practical resource to 

help State departments of transportation, metropolitan planning organizations, and local or regional 

operations organizations to integrate and mainstream TSMO within their organizations. The primer 

describes why TSMO program planning is important and how it can benefit a transportation agency. 

It identifies the strategic, programmatic, and tactical elements needed to advance TSMO as a critical 

part of the agency’s mission which describes ten guiding principles to advance TSMO program 

planning, and building on successful practices to date.

17. Key Words

transportation systems management and operations, TSMO, 

planning, reliability, program planning, multimodal network, 

resource allocation, business process, decision support system

18. Distribution Statement 

 No restrictions. 

19. Security Classif. (of this report) 

Unclassified

20. Security Classif. (of this 

page) Unclassified

21. No of Pages

 80

22. Price 

 N/A

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

iii

Preface

Transportation agencies have historically organized themselves around a core mission to expand 

and deliver infrastructure capacity. As our society begins to place more and more value on system 

performance and reliability, the use of technology, and the ability to share information rapidly, 

transportation agencies must evolve their mission to effectively manage and operate the 

transportation system that has been built in order to meet public expectations. 

More and more, agencies are recognizing the importance of focusing on transportation systems 

management and operations (TSMO) as a core mission. This shift in focus comes from a growing 

understanding of the extensive impacts on traffic that result from incidents, reconstruction, weather 

conditions, emerging technologies (such as connected and autonomous vehicles), and greater access 

to and use of real-time information. Managing and operating the transportation system now needs 

to move beyond implementing specific ad hoc projects to become a structured core function of a 

transportation agency as well as a sustained part of its mission. 

Research conducted through the Second Strategic Highway Research Program (SHRP2) 

demonstrated that agencies that most effectively manage and operate their transportation systems 

were not differentiated by budgets, types of projects, or technical skills alone. Very often, the 

SHRP2 research found that these agencies developed critical processes and institutional 

arrangements that enable systems management and operations to be seen as on par with 

infrastructure and capacity improvements. 

Subsequent assessments by the Federal Highway Administration (FHWA) found that several of 

these transportation agencies developed a Program Plan to structure and sustain TSMO as one of 

their core missions. FHWA found that many agencies planned to develop a TSMO program plan. 

FHWA prepared this primer because program planning is viewed as such an effective management 

tool for building and sustaining an effective TSMO mission within a transportation agency. 

Recognizing that there are no Federal requirements to develop a TSMO program plan, this primer 

is intended to provide general guidance on TSMO program planning in order to help improve the 

consistency and quality of TSMO program plans. The document is not intended as a “cookbook” to 

be strictly followed. Instead, it lays out key questions and considerations for agencies to explore 

based on their unique needs, organizational structures, and the issues confronting their particular 

organization or region. 

FHWA intends for State transportation agencies, metropolitan planning organizations, and other 

transportation organizations to use this resource to help them develop and sustain a TSMO mission 

and advance effective program delivery. For more information on TSMO and TSMO program 

planning, please visit the website for the FHWA Office of Operations at: https://ops.fhwa.dot.gov/. 

v

Chapter 1. Introduction to Transportation Systems Management and Operations 

Program Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Purpose of this Primer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Who Should Use the Primer? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

How to Use the Primer? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Chapter 2. The Rationale for Transportation Systems Management and Operations 

Program Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Creating a Transportation Systems Management and Operations Mission . . . . . . . . . . . . . . 6

Sustaining and Institutionalizing the Transportation Systems Management and 

Operations Mission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Supporting Effective Program Delivery . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Responding to Unique Needs and Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Chapter 3. The Evolution and Current Practice of Transportation Systems 

Management and Operations Program Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Strategic Highway Research Program 2: Reliability Research and Self-Assessment 

Workshops . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

National Cooperative Highway Research Program Project 20-07/345 Program Planning 

and Development for Transportation Systems Management and Operations in State 

Departments of Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

National Cooperative Highway Research Program Project 20-07/365: Transportation 

Systems Management and Operations Program Planning – Experiences from the 

Second Strategic Highway Research Program Implementation Assistance Program . . . . 12

Leading State and Metropolitan Planning Organization Efforts . . . . . . . . . . . . . . . . . . . . . 12

Development of this Primer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Chapter 4. The Key Elements of Transportation Systems Management and 

Operations Program Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Three Key Elements: Strategic, Programmatic, and Tactical . . . . . . . . . . . . . . . . . . . . . . . . 15

Making the Key Elements Work Together: the Resulting Transportation Systems 

Management and Operations Program Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

Chapter 5. Strategic Elements: Setting Clear Direction and Common 

Understanding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Developing the Business Case for Transportation Systems Management and Operations . 21

Developing a Transportation Systems Management and Operations Vision and 

Program Mission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Table of Contents
vi

Table of Contents (continued)

Developing Strategic Goals and Performance Objectives for Transportation Systems 

Management and Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Identifying Strategic Focus Areas and Priority Functions . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Chapter 6. Programmatic Elements: Organizing, Staffing, and Developing Processes 

to Advance Transportation Systems Management and Operations. . . . . . . . . . . . . . 29

Defining an Organizational Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

Developing Transportation Systems Management and Operations Programmatic 

Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

Identifying Staffing and Workforce Development Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

Transportation Systems Management and Operations Program Resource Management: 

Financial Resources, Planning, and Budgeting Processes . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Developing Business Processes and Management Strategies . . . . . . . . . . . . . . . . . . . . . . . 36

Promoting and Embedding a Transportation Systems Management and Operations Culture 

throughout Agency and Partner Business Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Chapter 7. Tactical Elements: Identifying Priority Services, Activities, and Projects 45

Identifying Prioritized Services, Activities, and Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

Defining Implementation Policies and Guidelines to Support Service Functions . . . . . . . . 48

Developing an Investment Plan or Financial Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

Developing Annual Action Plans and Deployment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Tracking Progress: Performance Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Chapter 8. Ten Guiding Principles to Advance Transportation Systems Management 

and Operations Program Planning for Your Organization. . . . . . . . . . . . . . . . . . . . . . 51

Understand Motivation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

Identify a Leader and Key Internal Partners . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52

Develop a Clear Definition and Understanding of Transportation Systems Management 

and Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52

Establish Baseline Conditions/Conduct Self-Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Identify What Expertise is Needed . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Organize for Transportation Systems Management and Operations . . . . . . . . . . . . . . . . . . 54

Engage Key External Stakeholders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

Look Ahead to Emerging Technologies and Innovations . . . . . . . . . . . . . . . . . . . . . . . . . . 55

Consider External Forces and Other Emerging Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

Analyze and Evaluate Performance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
vii

Table of Contents (continued)

Chapter 9. Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

Federal Highway Administration Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

American Association of State Highway Transportation Officials and Transportation 

Research Board Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60

Sample Transportation Systems Management and Operations Program Plans and 

Related Documents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63

ix

List of Figures

Figure 1. Diagram. Capability maturity model for improved transportation systems management 

and operations effectiveness. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Figure 2. Diagram. Relationship among program, processes, and the institutional framework. . . . . . . 10

Figure 3. Diagram. Structure for the Iowa transportation systems management and 

 operations plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Figure 4. Diagram. Building and sustaining a transportation systems management and operations 

mission: three elements of program planning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Figure 5. Illustration. Sample table of contents for a transportation systems management and 

operations program plan and references to primer. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Figure 6. Maryland State Highway Administration transportation systems management program 

goals and objectives. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

List of Tables

Table 1. Elements of transportation systems management and operations program planning and 

development for State departments of transportation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Table 2. Unified transportation systems management and operations program planning 

framework from National Cooperative Highway Research Program 20-07/365. . . . . . . . . 12

Table 3. Aspects of performance management and financial management across all elements. . . . 17

xi

List of Abbreviations

AASHTO American Association of State 

Highway and Transportation Officials

API arterial progression index

ATDM active transportation and demand 

management

CAD Computer Aided Dispatch

CDOT Colorado Department of 

Transportation

CMAQ Congestion Mitigation and Air 

Quality Improvement Program

CMM capability maturity model

CMP congestion management plan

DOT departments of transportation

DSS decision support systems

DVRPC Delaware Valley Regional Planning 

Commission

F2C field-to-center 

FAST Fixing America’s Surface 

Transportation Act

FHWA Federal Highway Administration

ICM integrated corridor management

IMRT incident management response teams

ITS intelligent transportation systems

LRSTP long-range statewide transportation 

plan

MAG Maricopa Association of Governments

MAP-21 Moving Ahead for Progress in the 21st 

Century Act

MPO metropolitan planning organization

MTP metropolitan transportation plan

MTP metropolitan transportation plan

NCHRP National Cooperative Highway 

Research Program

NCTCOG North Central Texas Council of 

Governments

NOCoE National Operations Center of 

Excellence

PTI planning time index

RIMIS Regional Integrated Multi-Modal 

Information Sharing 

RTOP Regional Transportation Operations 

Plan

SEWRPC Southeastern Wisconsin Regional 

Planning Commission

SHA (Maryland) State Highway 

Administration 

SHRP2 Second Strategic Highway Research 

Program

SHSP Strategic Highway Safety Plan

SMART Specific, Measurable, Agreed-upon, 

Realistic, and Time-bound

SOV single-occupancy vehicle

TIM traffic incident management

TIP transportation improvement program

TOC traffic operations center

TSMO transportation systems management 

and operations

TTI travel time index

VMT vehicle miles traveled

1

1

Chapter 1. Introduction to Transportation 

Systems Management and Operations 

Program Planning

Historically, transportation agencies were organized to deliver infrastructure capacity as the core 

mission. State and local departments of transportation (DOT) traditionally focused on capital project 

planning, design, construction, and maintenance, with limited emphasis and resources applied to 

managing and operating the transportation systems. Similarly, metropolitan planning organizations 

(MPO) grew out of a need to plan for and program funding for infrastructure projects. This focus is 

now changing rapidly, and transportation agencies at all levels increasingly recognize the importance 

of transportation systems management and operations (TSMO) activities to their core mission. 

With road capacity largely built out in urban areas and 

transportation funding in limited supply, State and local 

DOTs and MPOs are turning to cost-effective, near-term 

TSMO solutions to address customer needs. The public and 

elected officials now expect existing transportation networks 

to be seamlessly optimized without regard to jurisdictional 

boundaries. Increasingly, the public has access to real-time 

traffic and transit information and expects agencies to use 

technology to help reduce traffic congestion and improve 

coordination of multimodal transportation services. 

Moreover, nonrecurring events such as incidents, construction, special events, and weather 

conditions are responsible for a significant portion of travel delays. Consequently, improved 

condition monitoring and detection of disruptions, coordination across transportation agencies, and 

communication with the public and agency partners such as emergency responders can yield 

significant improvements in system performance and 

benefits to customers, including the traveling public, 

freight shippers, and communities. 

An integrated program focused on TSMO offers 

opportunities to improve system performance through 

multimodal, intermodal, and cross-jurisdictional 

systems, services, and projects that preserve capacity, 

enhance public safety and security, enhance seamless 

connections between modes, and improve reliability. 

Effective TSMO relies upon institutional 

arrangements and processes within agencies to shift 

the focus to managing transportation systems in order 

to optimize performance. Collaboration among 

Transportation systems 

management and operations 

focuses on actively managing 

the multimodal transportation 

network to deliver positive 

safety and mobility outcomes.

To be effectively implemented, 

transportation systems 

management and operations should 

be recognized and structured as a 

core function of a transportation 

agency—more than simply a 

strategy or ad hoc set of activities, it 

is a cohesive program that is vital to 

the mission of the agency. 
1

2

functional areas within a transportation agency, including planning, project development, traffic 

engineering, maintenance, and safety, is a fundamental element of TSMO. Collaboration among 

partner agencies—including State DOTs, MPOs, transit agencies, local jurisdictions, toll authorities, 

and law enforcement—to implement integrated corridor management, transit signal priority, and 

other strategies and to coordinate for special events and emergency management functions is also 

key to a successful TSMO program. More than simply a strategy or set of activities, TSMO is 

recognized as a core part of the mission of a transportation organization and should be supported 

by clear organizational roles, responsibilities, and business processes. 

TSMO program planning is an effective practice for making TSMO a part of the mission of a 

transportation organization. TSMO program planning involves strategic, programmatic, and tactical 

elements. It involves the organizational business 

process and discipline of regularly assessing, 

enhancing, and documenting:

 The relationship of TSMO to the agency mission 

and the fundamental reasons or business case 

for organizational commitment to TSMO.

 The organizational structure and business 

processes to administer TSMO as a core 

program area.

 The services, programs, technologies, and 

infrastructure to which an organization or 

geographic area commits to implement in 

order to support achievement of performance 

outcomes. 

A TSMO program plan is the documented outcome of this process.

Purpose of this Primer

The purpose of this primer is to help State DOTs, MPOs, and regional operations organizations 

understand the rationale for and the key elements of successful TSMO program planning. The 

primer is intended to help agencies understand: 

 Why is TSMO program planning important? How can it benefit a transportation agency or 

region?

 What are key elements of effective TSMO program planning, and what steps or activities should 

be taken? 

 What would an effective TSMO program plan look like?

This primer is designed to help transportation agencies increase the quality, effectiveness, and 

consistency in TSMO program plans, while being flexible to reflect the different needs of diverse 

States and regions based on their unique contexts and existing capabilities.

Transportation systems management 

and operations (TSMO) program 

planning facilitates integration and 

mainstreaming of TSMO within a 

transportation organization to support 

the new and evolving roles and 

responsibilities of these organizations. 

The process of TSMO program planning 

identifies the strategic, programmatic, 

and tactical elements needed to 

advance TSMO as a critical part of the 

agency’s mission. 
1

3

Who Should Use the Primer?

This primer is written for a broad audience, and can assist several types of agencies: 

 State DOTs – While State DOTs have traditionally been project-oriented, a TSMO program can 

expand that orientation to focus on a range of operational and management strategies to optimize 

system performance. TSMO programs incorporate skills and capabilities of project delivery with 

effective systems management, traffic operations, technological innovations, and other activities 

that improve travel safety and reliability, enhance traveler information and user experience, and 

maximize the agency’s return on capital investments. As a result, TSMO program planning helps 

the agency develop a common vision, organize and prioritize TSMO activities, and create a 

structure for advancing TSMO effectiveness.

 MPOs – As planning agencies, MPOs typically do not manage or operate the transportation 

system. However, they play a critical role in planning for investments, facilitating regional 

coordination and collaboration, and providing direction and focus on common goals. 

Consequently, an MPO-led TSMO program at a regional level can address the organizational 

issues and structure for ensuring a focus on TSMO within the region, and establish priorities that 

can feed into the metropolitan transportation plan (MTP) and transportation improvement 

program (TIP). 

 Local/regional operations organizations, including transit agencies – Some areas have 

regional operations organizations, which are structured specifically to support communication 

and collaboration among transportation agencies for effective TSMO, such as by coordinating 

construction management, incident management, emergency management, and traveler 

information services. Transit agencies also operate services and may benefit by conducting 

TSMO program planning to define the strategic vision and goals for the organization, institutional 

structures, and priorities. In addition, local jurisdictions often work together to implement traffic 

signal coordination programs and other TSMO initiatives, and often are key stakeholders within 

a State or regional TSMO program planning effort. 

This document acknowledges that the roles different types of organizations play in TSMO vary, and 

no single approach to TSMO program planning or a TSMO program plan is appropriate for every 

organization. Moreover, organizations operate in a wide array of contexts in terms of agency size 

and staffing, transportation challenges being faced (e.g., levels of traffic congestion, road weather 

conditions, multimodal options, rural/urban conditions), level of sophistication with TSMO, and 

existing organizational structure around TSMO. 

How to Use the Primer? 

This primer introduces the concept of TSMO program planning. However, the primer is not a 

“cookbook,” or a step-by-step set of directions to be implemented sequentially. It identifies a highlevel approach for TSMO program planning within transportation agencies and is organized around 

key elements of this TSMO program planning model. 
1

4

Users are encouraged to view the primer as a general approach, which can be adapted to specific 

circumstances and issues within the organization or region. The primer also provides examples of 

effective practices. It is organized into the following sections:

 Introduction to TSMO Program Planning (Section 1): Provides an introduction to the primer 

topic, purpose, and organization.

 The Rationale for TSMO Program Planning (Section 2): Highlights why TSMO program 

planning is important for advancing TSMO within an organization and how a TSMO program 

plan benefits transportation agencies. 

 The Evolution and Current Practice of TSMO Program Planning (Section 3): Provides background 

on the origins of TSMO program planning, early efforts to define a framework for TSMO program 

planning, and how the approach described in this document builds on best practices.

 Key Elements of TSMO Program Planning (Section 4): Identifies and describes three key 

elements of TSMO program planning – strategic, programmatic, and tactical – and how activities 

associated with these elements can be documented within a TSMO program plan. 

 Strategic Elements: Setting Clear Direction and Common Understanding (Section 5): 

Describes the early, foundational component of TSMO program planning, including the identification 

of TSMO as a key part of the agency mission or regional vision, and development of strategic goals 

and objectives. This section may be particularly helpful for agencies without a formal TSMO program 

or those with a need to elevate the understanding of TSMO within the organization.

 Programmatic Elements: Organizing, Staffing, and Developing Processes to Advance 

TSMO (Section 6): Describes the core programmatic component of TSMO program planning 

associated with creating the organizational and process structure for institutionalizing TSMO 

with an agency. This section may be particularly useful for agencies that have already defined 

strategic goals and objectives for TSMO but need to focus on program structure, workforce 

development, and staff and financial planning.

 Tactical Elements: Identifying Priority Services, Activities, and Projects (Section 7):

Describes the final component of TSMO program planning, where priority services and 

programs are defined more specifically, and a near-term action plan for implementation is 

developed. This section helps agencies that already have defined the programmatic structure for 

their TSMO program and are ready to define more specific services, activities, and projects for 

implementation. 

 Guiding Principles to Advance TSMO Program Planning for Your Organization (Section 8):

Identifies guiding principles for any agency to keep in focus in developing a TSMO program plan. 

 Resources (Section 9): Lists resources available for supporting TSMO program planning, and 

sample statewide and regional TSMO program plans. 

Throughout, the document asks prompting questions to help agencies and organizations evaluate 

their current status and guide development of a program plan that meets users’ needs. These 

questions are called out from the text with the graphic (at left). 

?
5

2

Chapter 2. The Rationale for 

Transportation Systems Management 

and Operations Program Planning 

While State, local, and regional agencies address transportation systems management and 

operations (TSMO) in a variety of ways, in many cases, TSMO has not been identified as a primary 

focus within an organization. Even in cases where TSMO has been elevated as a priority for an 

agency, it has often been acknowledged strategically (e.g., incorporated into goals) or in terms of 

specific needs, investments, or activities, but has not been mainstreamed into the agency’s 

organizational responsibilities and business processes. 

As noted in a series of white papers on “Improving Transportation System Management and 

Operations,” research conducted through the Second Strategic Highway Research (SHRP2) 

Program determined that agencies with the most effective TSMO activities were differentiated not 

by budgets or technical skills alone, but by the existence of critical processes and institutional 

arrangements focused on TSMO applications. The significance of this finding was validated in over 

40 State and regional self-assessment workshops.1

These assessments found that few States or regions 

had developed plans that describe TSMO activities 

comprehensively. While many States have plans for 

specific TSMO services, projects, and activities, such 

as ITS plans, traffic incident management plans, 

emergency response plans, or special event plans, 

these plans do not describe the role of TSMO in 

support of the agency’s mission and do not address all 

TSMO functions. TSMO planning and budgeting have 

been largely limited to specific projects or initiatives, 

and initiatives have been limited based on available 

funding and program status. 

Although some agencies have begun to elevate operations objectives, the business case for TSMO is 

not widely understood at the State or regional level. At the same time, emerging technology 

applications and approaches, such as integrated corridor management (ICM), active transportation 

and demand management (ATDM), and connected vehicles, highlight the need and value of a 

systematic approach to TSMO planning. Consequently, many of the action plans coming out of the 

SHRP2 self-assessment efforts identified the development of a TSMO program plan as a key action 

to guide organizations in advancing the institutional focus on TSMO.

1 For information on the white papers, see Federal Highway Administration, “Organizing for Operations” web page at: 

https://ops.fhwa.dot.gov/plan4ops/focus_areas/organizing_for_op.htm.

Agencies with the most 

effective TSMO activities were 

differentiated not by budgets or 

technical skills alone, but 

through the existence of critical 

processes and institutional 

arrangements focused on 

TSMO applications.
2

6

A TSMO program planning process guides 

development of the structure, resources, business 

processes, and decision support systems needed to 

deliver the strategic vision for TSMO. Although a 

TSMO program plan is not required by Federal law, 

State and regional transportation agencies benefit 

from developing TSMO program plans to better 

mainstream TSMO within their agencies and to set 

priorities for activities and investments. Moreover, 

the TSMO program plan defines the programmatic 

structure for organizing activities, functions, and 

the workforce to accomplish the goals and 

objectives of the TSMO program. 

A TSMO program plan, and the process of TSMO 

program planning, helps agencies in many ways, 

as described below. 

Creating a Transportation Systems Management and Operations 

Mission 

TSMO program planning can play a vital role in creating a TSMO mission within an agency by 

clearly articulating how TSMO supports the state or regional vision and the agency’s core purpose. 

Specifically, a TSMO program plan:

 Articulates the benefits of TSMO across the organization (or “business case”), including to departments 

not directly involved in operations, to help facilitate culture change and increase support.

 Describes the importance of TSMO to the organization’s mission, and clarifies the linkages 

between TSMO activities and goals and objectives found in the long-range statewide 

transportation plan (LRSTP) or metropolitan transportation plan (MTP).

 Describes the connections between TSMO activities and other agency plans (e.g., asset management 

plan, strategic highway safety plan, etc.), as well as agency processes, such as the congestion 

management process, ITS architecture, and regional concept for transportation operations. 

 Defines strategic goals and objectives.

Similar to developing a Strategic Highway Safety Plan (SHSP), which brings together the wide range 

of stakeholders involved in traffic safety across functional areas of the State department of 

transportation (DOT) and external partners (e.g., law enforcement, emergency management, and local 

governments), a State or regional TSMO program plan helps to focus agencies, their partners, and 

other stakeholders on strategies to improve transportation system performance, including mobility, 

reliability, and travel choices. As a result, the culture of the agency becomes more focused on TSMO, 

and TSMO considerations are integrated into all aspects of the agency, including long-range planning, 

specialized planning (e.g., freight planning, corridor planning), programming, project development 

and design, asset management, as well other program areas (e.g., safety, environment). 

TSMO operations program plan lays out 

the important role of TSMO in the 

agency. It describes what the TSMO 

program seeks to accomplish, including 

strategic goals, objectives, and focus 

areas. As importantly, it describes how 

the organization is structured and how 

work is accomplished toward those 

objectives, who is involved and their 

roles; and what resources are needed 

and will be deployed. It may also 

include identification of investment 

priorities to support desired 

performance outcomes. 
7

2

Sustaining and Institutionalizing the Transportation Systems 

Management and Operations Mission 

By formalizing a TSMO program plan, the organization helps ensure that initiatives are not simply 

reactive or subject to leadership changes but are institutionalized. A TSMO program plan:

 Identifies how TSMO responsibilities are integrated into the responsibilities of key organizational 

units, outlines interactions with stakeholders, and establishes mechanisms for setting priorities.

 Provides an explanation of roles, responsibilities, and business capabilities for advancing TSMO 

within the organization or geographic area, and can support consideration of organizational 

changes that are needed to most effectively undertake TSMO functions.

 Supports organizational decision-making and prioritization of investments and actions. 

 Identifies staffing expertise and workforce development needs for advancing TSMO practices. 

 Creates a consistent and common understanding and approach for coordinating TSMO program 

planning across partner agencies (including with local jurisdictions, transit agencies, and other 

partners involved in operations).

TSMO program planning is an active business administration and program management activity 

that is likely to be particularly vital during periods of rapid change caused by changes in leadership, 

expansion or contraction of available fiscal or human resources, staff turnover, changes in 

technology, or changes in programmatic emphasis (e.g., Towards Zero Deaths, transportation 

system resiliency, sustainability). A TSMO program plan provides an agency with a well-defined 

organizational structure and series of processes and procedures to sustain the TSMO mission. 

Supporting Effective Program Delivery 

TSMO program planning not only creates and sustains a TSMO mission within the agency but also 

helps to ensure effective delivery of TSMO program services by identifying the financial and staff 

resources needed and developing procedures for prioritizing TSMO investment needs. Specifically, 

TSMO program planning:

 Includes discussion of tactical considerations associated with implementation of the plan, including 

identification of funding needs and sources, deployment activities, and responsible parties.

 Identifies program and project priorities, often including investment needs in relation to 

technology deployment, program implementation, and maintenance.

 Identifies performance measures for tracking ongoing progress toward strategic goals and 

objectives, as well as mechanisms for reporting on performance outcomes. 
2

8

Moreover, with the rapid advances in technology that are taking place in the transportation industry, 

including connected and autonomous vehicles, new shared mobility options, and opportunities to 

more actively manage travel demand, TSMO program planning helps an agency to look beyond 

“today” to position for what is coming in the near future. It helps the organization to consider how 

system management and operations functions, roles, and needs are changing and better prepare to 

integrate new data sources, technologies, and approaches into the agency’s investments and programs.

Responding to Unique Needs and Issues

There is no one-size-fits-all structure of a TSMO program plan, and a TSMO program plan may 

look different for a State DOT or MPO or other organization.

 For a State DOT, a TSMO program plan can help the agency to assess challenges it experiences 

in managing and operating the State’s transportation system and define the organizational 

structure, workforce needs, partnerships, and strategies needed to deliver an effective TSMO 

program. 

 Given the role of an MPO as a planning agency, the mission for a TSMO program at an MPO 

may focus on regional coordination and collaboration and prioritization of TSMO investments 

and services in plans and programs, rather than on service delivery. An MPO can develop a 

TSMO program plan as part of (or in coordination with) the congestion management plan (CMP) 

to create a common vision and organizational structure for advancing TSMO within 

the region. 

 A TSMO program plan could also be developed by a local DOT or other organization, such as a 

transit agency or regional operations organization, to help guide activities, investments, and 

responsibilities.

The process of and outcomes associated with developing a TSMO program plan help support the 

organization to better meet its customers’ needs. A TSMO program plan provides the structure by 

which the organization coordinates to deliver enhanced system performance as a part of its mission. 

It serves as a business plan for TSMO activities, supporting organizational decisions and processes 

needed to proactively manage a safe, efficient, and reliable transportation system. As a result, 

TSMO program planning is a vital component of integrating TSMO into the culture of a 

transportation agency. 
9

3

 Chapter 3. The Evolution and Current Practice 

of Transportation Systems Management and 

Operations Program Planning

Over the past decade, the transportation community has advanced different approaches to organizing 

for and creating a program structure for transportation systems management and operations (TSMO). 

The Federal Highway Administration (FHWA), the American Association of State Highway and 

Transportation Officials, and the Transportation Research Board have developed several TSMO 

resources designed for metropolitan planning organizations (MPOs) and State departments of 

transportation (DOT), including guidebooks and reference manuals to share best practices. Through 

these various efforts, the state of the practice has evolved significantly and provides a context for the 

key elements of the approach to TSMO program planning identified in this primer. 

Strategic Highway Research Program 2: Reliability Research and SelfAssessment Workshops

Research conducted under 

the second Strategic 

Highway Research 

Program (SHRP2) in the 

Reliability focus area 

played a pivotal role in the 

concept of TSMO 

program planning by 

examining both technical 

and organizational support 

needed to enhance 

highway operations and 

travel time reliability at 

State DOTs and MPOs. 

The research developed a 

capability maturity model 

(CMM) consisting of six 

key dimensions to help 

transportation agencies 

improve the effectiveness 

of their TSMO activities 

(Figure 1).

IMPROVED 

TRANSPORTATION 

SYSTEMS MANAGEMENT 

AND OPERATIONS 

EFFECTIVENESS

BUSINESS PROCESS

SYSTEMS & 

TECHNOLOGY

PERFORMANCE 

MEASUREMENT

CULTURE

ORGANIZATION & 

WORKFORCE

COLLABORATION

Relationships with public safety 

agencies, local governments, 

metropolitan planning 

organization , and the

 private sector.

Organizational structure 

and sta capacity, 

development, 

and retention.

Technical understanding, 

leadership, policy 

commitment, outreach, 

and program authority.

Measure denition, data 

acquisition, analysis, and 

utilization.

Systems architecture, 

standards, interoperability, 

standardization, and 

documentation.

Formal scoping, 

planning, 

programming, and 

budgeting.

Capability maturity model (CIM) with six key dimensions to help 

agencies improve eectiveness of TSMO activities.

Capability 

Maturity Model

Figure 1. Diagram. Capability maturity model for improved transportation 

 systems management and operations effectiveness.
3

10

The CMM is used as part of an assessment process by a transportation agency. This capability 

improvement process begins with a self-evaluation of the agency’s current level of capability in the 

key dimensions, and provides strategies and actions to reach a higher level of capability. 

Building on this effort, the FHWA document Creating an Effective Program to Advance 

Transportation System Management and Operations Primer (January 2012) provided high-level 

guidance focused on key program, process, and organizational capabilities that are essential to the 

development of more effective TSMO strategy applications. As shown in Figure 2 below, reaching 

full TSMO program potential requires that business and technical processes as well as supporting 

institutional arrangements be put in place and managed. 

 Figure 2. Diagram. Relationship among program, processes, and the institutional framework.2

Through the SHRP2 program and with support from FHWA, over 40 States and regions have 

conducted CMM self-assessment workshops focused on TSMO using the six dimensions of 

organizational capabilities. As a part of their resulting Action Plans, many have identified the value 

of developing a structured TSMO program plan to further advance their TSMO programs. 

National Cooperative Highway Research Program Project 

20-07/345 Program Planning and Development for Transportation 

Systems Management and Operations in State Departments of 

Transportation

The National Cooperative Highway Research Program (NCHRP) Project 20-07/345: Program 

Planning for Transportation System Management and Operations in State Departments of 

Transportation (June 2014) set out to explore the state of the practice in TSMO program planning 

and to begin defining alternative approaches to develop and administer a TSMO program plan. 

Based on an extensive scan of documents, including TSMO-related plans developed by several 

State DOTs and MPOs, interviews with key personnel, and a workshop with State and regional 

practitioners, it recommended five interrelated elements for consideration in TSMO program 

planning (See Table 1).

2 Federal Highway Administration, Creating an Effective Program to Advance Transportation System Management and Operations 

Primer, FHWA-HOP-12-003 (Washington, DC: January 2012). Available at: https://ops.fhwa.dot.gov/publications/fhwahop12003/.

The Basis of Improvement

The “Program”

Processes that 

Support Program

Supporting Institutional 

Framework

 Identified characteristics of an effective 

transportation systems management and 

operations program.

 Recognized dependence on specific 

business and technical processes.

 Identified needed organizational structure 

and relationships.
11

3

Table 1. Elements of transportation systems management and operations program planning and 

development for State departments of transportation.

Component Description

1. Mission, Vision, 

Goals, Objectives, 

and Performance 

Measures

The program plan is based on a clear understanding of what the 

department or agency seeks to accomplish. Transportation systems 

management and operations (TSMO) goals and objectives and 

performance measures are visibly aligned with the department’s 

mission and vision. The lead TSMO unit has a clear mission, vision, 

etc. The department of transportation (DOT) promotes a shared, 

statewide vision among all TSMO stakeholders. 

2. Leadership and 

Organization

Leadership and organizational responsibilities and corresponding 

authority are well defined, and the program plan addresses topics 

such as department-wide integration of TSMO, responsibilities of 

key organizational units, interaction with external stakeholders, 

and mechanisms for setting priorities and making other leadership 

decisions. 

3. Business Processes

The program plan identifies the most important business processes 

for TSMO success, evaluates each of those processes, and proposes 

improvements to help ensure TSMO success. Some of the processes 

are departmental and need to be adapted or have new variations 

added. In addition some entirely new processes may be needed to 

support TSMO. 

4. Resources (Financial, 

Human, 

Infrastructure, and 

Technology) 

The available and needed resources are systematically evaluated for 

all aspects of the TSMO program. Constraints on those resources 

and the implications for the TSMO program are examined, and the 

program plan includes strategies to improve both the availability and 

effective use of key resources. 

5. Packages of Services, 

Projects, and 

Activities with 

Related Policies and 

Guidelines

The program plan broadly identifies the packages of TSMO services, 

projects, and activities that are most effective in accomplishing 

the DOT’s mission, vision, goals, and objectives. The program 

plan enumerates policies and decision-making guidelines for 

implementation of services, projects, and activities (e.g., warrants, 

priorities, service levels). 

Source: M.E. Baird, Ph.D., P.E. and P. Noyes, National Cooperative Highway Research Program Project Number 20-07/345: Program 

Planning and Development for Transportation System Management and Operations (TSM&O) in State Departments of Transportation, 

National Cooperative Highway Research Program (Washington, DC: NCHRP 2014). Available at: 

http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP20-07(345)_FR.pdf.
3

12

National Cooperative Highway Research Program Project 

20-07/365: Transportation Systems Management and Operations 

Program Planning – Experiences from the Second Strategic Highway 

Research Program Implementation Assistance Program 

Most recently, building on the earlier NCHRP study, the NCHRP Project 20-07/365, Transportation 

System Management and Operations Program Planning – Experiences from the SHRP2 

Implementation Assistance Program (July 2016), documented the experiences, lessons learned, 

challenges, and best practices in TSMO program planning. This study involved a national survey of 

transportation agencies and held a workshop of leaders from State DOTs and MPOs in February 

2016 to evaluate and validate program planning frameworks from the NCHRP 20-07/345 and CMM 

efforts. The result was a unified TSMO program planning framework, as shown in Table 2.

Table 2. Unified transportation systems management and operations program planning 

framework from NCHRP 20-07/365.

Unified, Agreed-Upon Framework at the End of the Workshop

A. Mission, Vision, Goals, and Objectives.

B. Performance Measurement.

C. Leadership, Organization, and Staffing.

D. Business Processes and Planning.

E. Resource Positioning and Development.

F. Services and Projects.

G. Roles and Responsibilities.

H. Evaluation and Reassessment.

Source: NCHRP, Transportation Systems Management and Operations Program Planning – Experiences 

from the SHRP 2 Implementation Assistance Program, NCHRP 20-07 TASK 365 Final Report. 

Available at: http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP20-07(365)_FR.pdf. 

Leading State and Metropolitan Planning Organization Efforts

Meanwhile, over the past several years, a number of States and MPOs have undertaken efforts to 

develop TSMO program plans, which provide good examples of effective and emerging practices. For 

instance, Virginia DOT developed a statewide operations program plan using the TSMO capability 

improvement approach based on the six dimensions and levels of capability. Similarly, Tennessee DOT 

developed a TSMO program plan building off of the SHRP2 CMM self-assessment. Some agencies 

have developed TSMO strategic plans, such as Florida DOT, which developed the Florida TSMO 

Strategic Plan, completed in 2013, laying out key goals and objectives for its TSMO Program. 

At the regional level, MPOs such as Metro in Portland, Oregon, the Delaware Valley Regional 

Planning Commission (DVRPC) in Philadelphia, and the Southeastern Wisconsin Regional 

Planning Commission (SEWRPC) in Milwaukee, Wisconsin, developed regional TSMO plans. 

These plans generally identify key TSMO goals and objectives as well as program and project 

investment priorities for funding. 
13

3

One notable example of a TSMO program plan, which provides a critical basis for recommendations in this primer, is the plan developed by Iowa DOT in 2015-16. Iowa DOT developed a threelayer TSMO plan (as shown in Figure 3) to improve the capability of the agency to manage the 

State’s transportation system. The three major components of the Iowa TSMO planning effort 

reflect a tiered approach and include three sets of planning documents: 

1. The Iowa TSMO Strategic Plan, which identifies why TSMO matters, the challenges of congestion, 

the business case for TSMO, and a TSMO vision, mission, and strategic goals and objectives. 

2. The Iowa TSMO Program Plan, which incorporates the Strategic Plan but expands it to focus on 

program development within Iowa DOT, including leadership, organization, business processes, 

performance management, and resources.

3. TSMO service layer plans that describe in more detail eight specific TSMO areas and the 

associated services, activities, and projects to be undertaken by the agency. 

Note: DOT = department of transportation. ITS = intelligent transportation systems. 

Figure 3. Diagram. Structure for the Iowa transportation systems management 

and operations plan.3

3 Iowa Department of Transportation, Iowa Transportation Systems Management and Operations Program Plan, February 2016. Available 

at: http://www.iowadot.gov/TSMO/TSMO-Program-Plan.pdf. 

IOWA TRANSPORTATION SYSTEMS MANAGEMENT AND OPERATIONS (TSMO) PLAN

TSMO STRATEGIC PLAN

STRATEGIC

TSMO PROGRAM PLAN

PROGRAMMATIC

TSMO SERVICE LAYER PLANS

TACTICAL

COMPONENTS

Iowa’s Challenge

The Case for TSMO

Mission and Vision

Strategic Goals and 

Objectives

Program Plan Overview

AUDIENCE

All levels of DOT

AUDIENCE

Agency Leadership

AUDIENCE

Staff involved with TSMO

COMPONENTS

Program Objectives

TSMO Integration with other 

DOT Programs

Leadership and Organization

Business Processes and 

Resources

Performance Management and 

Decision Support Assessment

5-Year TSMO Program

• Interstate Conditions 

Evaluation-Traffic Operations 

(ICE-OPS) Analysis

• Activities to meet Goals 

and Objectives

• Budget

Service Layers Overiew

COMPONENTS

Opportunities and Challenges

Description of Services, Activities, 

and Projects

Existing Conditions

Gap Analysis

Recommendations

5-Year Service Layer Cost Estimate

8 SERVICE LAYER PLANS

Traffic Management Center

ITS and Communications

Traveler Information

Traffic Incident Management

Emergency Transp. Operations

Work Zone Managment

Active Transportation and Demand 

Management

Connected and Autonomous Vehicle
3

14

Development of this Primer

This primer builds upon the NCHRP 20-07/345 and NCHRP 20-07/365 resource documents, as 

well as lessons from effective State and MPO practices. It also draws from input gathered through a 

workshop of representatives from several leading State DOTs, MPOs, and a regional operations 

organization, convened by FHWA in April 2016 to identify key elements of an effective TSMO 

program planning process. 

Specifically, the primer is designed as a practical, user-friendly resource to help State DOTs, 

MPOs, and other organizations understand the benefits of and effective practices associated with 

TSMO program planning. It takes the research-based information from the national survey and 

unified TSMO program planning framework discussed in the NCHRP 20-07/365 report and 

organizes the components into three key elements of TSMO program planning: strategic, 

programmatic, and tactical. The Iowa TSMO Plan, with its three levels of TSMO documents—a 

strategic plan, program plan, and service layer plans—provided a strong basis for the program 

planning approach discussed in this document. The validity and applicability of this approach 

was verified through discussions with leading State DOTs and MPOs, who helped to shape the 

content into this primer. In addition, the primer provides examples to help agencies advance their 

practices, and includes questions for consideration to prompt thinking concerning issues to assist 

agencies in advancing their program planning efforts. 
15

4

Chapter 4. The Key Elements of 

Transportation Systems Management 

and Operations Program Planning 

Transportation systems management and operations (TSMO) program planning should reflect the 

roles and responsibilities of the organization undertaking the development of the program. Typically, 

TSMO program planning should be an iterative process within the context of other agency plans and 

initiatives and should reflect relationships with TSMO partners and stakeholders. No single set of 

instructions for each step in a program planning process addresses the variations in responsibilities 

among State departments of transportation (DOT), metropolitan planning organizations (MPO), 

regional coalitions, or other organizations. However, several key considerations and principles should 

be addressed by all agencies undertaking TSMO program planning to ensure that the program and 

resulting plan are comprehensive. 

A robust TSMO program plan supports a sustainable and responsive program that reflects the 

vision and mission of the organization and responds to changing demographics, technology, and 

external pressures. The resulting TSMO program plan itself provides an opportunity to document 

and formalize programmatic policies, procedures, and structures to guide an effective and 

sustainable program.

Three Key Elements: Strategic, Programmatic, and Tactical

A model approach for TSMO program planning includes three key elements, as shown in Figure 4:

1. Strategic elements: Strategic thinking is a foundation for developing a TSMO program and 

involves clearly defining the relationship of TSMO to the agency mission or regional vision. The 

strategic aspect of TSMO program planning provides answers to questions of “why” TSMO is 

important, and a high-level vision of “what” the agency seeks to achieve, along with strategic 

goals and objectives. 

2. Programmatic elements: The programmatic elements of TSMO program planning addresses 

issues surrounding organizational structure and business processes for implementing TSMO 

activities. This level of planning addresses “how” the program operates, resource and workforce 

needs, and internal and external coordination and collaboration. It identifies responsibilities of 

organizational units for specific TSMO services, projects, and activities, as well as use of 

analysis tools to guide investment decision-making. 

3. Tactical elements: The tactical elements step down from the broad institutional and 

organizational issues to address specific services, programs, and priorities. 
4

16

TSMO program planning is an ongoing, iterative process, connected to other plans and initiatives 

of the organization and stakeholders. As a result, monitoring and evaluation is an important part of 

the process to provide feedback on whether goals and objectives are being achieved and whether 

strategies are being implemented. Monitoring and evaluation informs subsequent TSMO planning 

by identifying opportunities for improving the process and affirming successful approaches. 

Consequently, while the product of TSMO program planning is a TSMO program plan, the process 

should continue on a regular cycle to sustain and evolve the program and its role within the 

organization over time. 

Note: TSMO = transportation systems management and operations.

Figure 4. Diagram. Building and sustaining a transportation systems management and 

operations mission: three elements of program planning.

Many agencies currently engaged in TSMO planning focus on the first and third components, with 

less consideration of the programmatic structure needed to translate the strategic vision into 

delivery of projects and services. Establishing an effective TSMO program requires that the 

programmatic component involving organizational structure, resources, processes, and business 

functions needed to deliver the vision be addressed. The programmatic component plays a critical 

role in integrating TSMO into the culture of the agency and its structure. In this component, the 

agency and partners identify the organizational structure for the program, including roles, 

responsibilities, and relationships with other core business functions of the agency. 

Note that some issues, such as performance management and financial planning, occur across all 

components, but with a different focus, as shown in Table 3. For instance, in strategic planning, the 

organization defines performance objectives to address strategic goals focused on outcomes for the 

STRATEGIC

TACTICAL PROGRAMMATIC

The Business Case for TSMO

Vision & Program Mission

Strategic Goals and Performance Objectives

Strategic Focus Areas or 

Priority Functions

Leadership & Organizational Structure

Programmatic Objectives

Staffing & Workforce Needs

Business Processes & Mgmt. Strategies

TSMO Culture in the Agency

Financial Resource Mgmt.

Prioritized Services, Activities, & 

Projects

Implementation Policies & Guidelines

Multi-year Investment Plan

Performance Assessment

1.

3. 2.
17

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transportation system and system users (e.g., congestion, reliability, access to traveler information). 

In the programmatic component, the organization defines programmatic objectives and 

performance measures focused on internal processes and activities. In the tactical component, 

program monitoring and performance evaluation efforts help inform specific actions and 

deployments. Monitoring and evaluating outcomes serves as the feedback loop for all elements by 

informing participating organizations and agencies about how well strategic goals and objectives, as 

well as programmatic objectives, are achieved.

Similarly, there are financial considerations for each aspect of TSMO planning. The strategic 

element sets agency priorities relative to the financial resources and constraints of the organization 

and its partners. The programmatic element addresses staffing and resource needs to support the 

TSMO program and procedures for ensuring sustainable funding. The tactical element may connect 

specific services, activities, or projects with identified funding sources. 

Table 3. Aspects of performance management and financial management across all elements.

Element of TSMO 

Program Planning Performance Management Financial Management

STRATEGIC

▪ Strategic goals and performance 

objectives.

▪ Uses measures focused on 

outcomes for system users (e.g., 

congestion, reliability, access to 

information).

▪ Considers financial resources 

in developing the strategy and 

performance objectives.

PROGRAMMATIC

▪ Programmatic objectives.

▪ Uses measures focused on 

internal processes and activities 

(e.g., development of plans, 

analytical tools, data collection).

▪ Identifies staffing and resources 

needed for the TSMO program.

▪ Identifies sustainable funding 

sources or approaches for the 

TSMO program, including 

public and private sector sources, 

innovative finance mechanisms, 

and partnerships.

TACTICAL

▪ On-going program monitoring 

and evaluation to assess 

performance in relation to 

strategic and programmatic 

objectives.

▪ Uses data to inform specific 

actions and deployments.

▪ Develops near-term (e.g., 5-year) 

investment plan, including specific 

actions or projects, along with 

funding sources.

Note: TSMO = transportation systems management and operations.
4

18

Most agencies do not start from scratch in TSMO program planning. An organization may already 

have defined strategic goals and objectives, and may need to focus attention on the programmatic or 

tactical aspects. Another organization may be executing TSMO projects and activities but not have 

clearly defined overall goals and performance targets for its agency and the transportation system to 

guide its efforts. Not every agency or organization will include every item associated with each of 

the three components. However, agencies should explore the issues identified in this primer and 

consider how they should be addressed in their TSMO program planning efforts. The process of 

examining the elements and how they may support and advance the TSMO program is important in 

developing a mature, comprehensive program. 

Making the Key Elements Work Together: The Resulting Transportation 

Systems Management and Operations Program Plan

Ultimately, a TSMO program plan is an 

important document (or set of documents) that 

results from the program planning effort and 

serves as a guidepost for TSMO in the 

organization. The TSMO program plan identifies 

and incorporates the three key elements of 

program planning: strategic goals and objectives, 

programmatic structure, and key tactics, 

programs, or priorities. 

This three-tiered document approach has been 

applied in States like Iowa, with its three TSMO 

planning documents. In some States and regions, 

the strategic elements of program planning may 

already be documented in a TSMO strategic 

plan, agency business plan, or even long-range 

transportation plan. The approach to TSMO 

program planning presented in this primer, 

however, emphasizes that to mature their implementation of TSMO, agencies should also focus on 

the programmatic aspects of organizational structure, staffing, and business processes for TSMO in 

their agencies and among partners, and the tactical aspects of defining priority services, activities, 

and projects. They also should document this information in a TSMO program plan to sustain and 

institutionalize the TSMO mission. 

Below is a sample table of contents for a TSMO program plan. It is intended to illustrate how a 

TSMO program plan may be structured, demonstrating the integration of the three key elements of 

TSMO program planning into the program plan document itself. For instance, the document ideally 

should start with a discussion of the purpose of the TSMO program plan, the business case for 

TSMO, the relationship of TSMO to the agency’s vision and mission, and strategic goals and 

objectives (strategic elements). The document then should contain a section or sections addressing 

program objectives, the organizational structure for implementation, business processes, resources, 

and communications (programmatic elements). Finally, the TSMO program plan should contain a 

The transportation systems management 

and operations (TSMO) program plan could 

be a single document, or may be in the form 

of a series of products that work together, 

such as:

• A TSMO strategy document or strategic 

plan.

• A document laying out the programmatic 

structure of TSMO within the agency.

• One or more TSMO service deployment 

plans. 
19

4

section or refer to supporting documents that discuss TSMO services, projects, and activities, 

implementation policies, and priorities. The sample table of contents references relevant sections of 

this primer that contain helpful information. 

The following sections of the primer describe each of the three key elements of TSMO program planning 

—strategic, programmatic, and tactical—and key considerations for each component. 

1. Strategic Foundations – See Chapter 5 on Strategic Elements

a. Why Transportation Systems Management and Operations (TSMO) Matters

b. TSMO Plan Purpose

c. TSMO Vision and Mission

d. Strategic Goals and Objectives 

2. The TSMO Program – See Chapter 6 on Programmatic Elements 

a. TSMO Program Objectives

b. Organizational Structure

i. Program Structure

ii. Inter- and Intra-agency Integration

c. Business Processes

i. Budgeting and Accounting

ii. Procurement and Contract Management

iii. Administrative Processes

iv. Quality Management and Continuous Improvement

v. Systems Engineering

vi. Performance Management, including Data Management and Decision Support

d. Resources

i. Staffing and Workforce Development

ii. Resource Inventories and Asset Management

iii. Financial

iv. Research and Development

e. Communication and Collaboration

i. Internal Collaboration

ii. Collaboration with External Partners

iii. Communications, Marketing, and Outreach with Users

3. Implementation and Deployment – See Chapter 7 on Tactical Elements 

a. TSMO Services, Projects, and Activities

b. Annualized Actions and Deployment

c. Implementation Policies and Guidelines

d. Performance Assessment

 Figure 5. Illustration. Sample table of contents for a transportation systems management and 

operations program plan and references to primer.

21

5

Chapter 5. Strategic Elements: Setting Clear 

Direction and Common Understanding

The strategic component of transportation systems management and operations (TSMO) program 

planning provides a clear, common understanding of what the agency is trying to accomplish and 

how TSMO fits within its mission. It answers questions of “why” TSMO is important, provides a 

high-level vision of “what” the agency seeks to achieve, and makes the case for TSMO. It includes 

some assessment of current conditions and future challenges and identifies high-level strategic goals 

and objectives, or focus areas for the TSMO program. 

A State department of transportation (DOT) or 

operations organization should identify and explain how 

TSMO aligns with the department’s mission, goals, and 

objectives and the specific challenges that TSMO can 

address. A metropolitan planning organization (MPO) 

may not have direct responsibility for operational 

programs (e.g., incident management, road weather 

management), but may define the mission for TSMO in 

relation to the region’s vision and goals for enhancing 

system performance in areas such as mobility, 

reliability, and safety. 

Developing the Business Case for Transportation Systems 

Management and Operations

While operations staff and practitioners who work within the field understand the role of TSMO 

strategies in contributing to mobility and safety of the transportation system, they and others need 

to understand the business case for integrating TSMO into the core mission of a DOT and the role 

TSMO can play in the region. Agencies can draw upon the Business Case Primer: Communicating 

the Value of Transportation Systems Management and Operations,

4

 which was developed under the 

second Strategic Highway Research Program (SHRP2) Program. The business case should address:

 Internal motivation – Why is TSMO important for the agency? There are many possible answers 

to this question, including the inability to build our way out of congestion, using more costeffective and faster solutions, and improving agency stewardship of resources. 

 The value to customers – Why is TSMO important to the traveling public and communities?

Again, there are many answers to this question, but these are generally the most important and 

compelling issues for a transportation agency as a customer-oriented organization. TSMO 

strategies address the most significant causes of congestion and reliability issues, support 

efficient goods movement that is vital to the economy, and support safety as well. 

4 J. D’Ignazio and B. Bowen, Business Case Primer: Communicating the Value of Transportation Systems Management and Operations, 

(TRB: December 2014). Available at: http://www.transportationops.org/business-cases/business-case-primer-communicating-valuetransportation-systems-management-and.

Transportation systems management 

and operations (TSMO) program 

planning starts with defining a high-level 

strategic business case for TSMO and 

clearly defining TSMO as a core part of 

the agency’s mission and vision. It 

involves development of strategic goals 

and objectives for TSMO within the 

organization.
5

22

Given budget constraints that limit funding for major capital improvements, a case for TSMO can 

be made as TSMO strategies are more cost-effective than capital solutions. However, the argument 

for TSMO goes much beyond “it’s all we can afford,” to stress the critical role of system operations 

in achieving goals related to system reliability, mobility, and safety. TSMO is not simply an “option” 

or “alternative” to transportation system capacity; it is an inherent function of delivering mobility, 

safety, and reliability for the traveling public. Transportation agencies cannot simply provide 

transportation infrastructure and maintain it. They need to play a role in actively managing 

transportation services and system assets to get maximum performance from the investment. 

In defining the business case, issues 

that can be brought into the 

discussion include:

 Challenges facing the region, 

which may include traffic 

congestion, incident-based delay, 

weather-based delay, and fatalities 

and injuries on the road.

 Information on the costeffectiveness of TSMO strategies 

in relation to capacity expansion.

 Anticipated future issues, such as 

increased population, traffic 

growth, and increased freight 

movement.

 Opportunities for the future, such 

as leveraging of new sources of 

data and technologies, as well as 

multimodal connections.

 Comparisons showing the performance of similar facilities with and without TSMO treatments, 

or comparing before-and-after implementation of TSMO strategies.

 Experience in other States and regions, or industries. 

The business case for TSMO is the cornerstone for integrating and advancing a comprehensive 

TSMO program.

In developing the case for TSMO, it is important to consider national, State, and regional trends in 

economics, demographics, land use, and technology, as well as forecasts of transportation system 

outcomes related to mobility and safety. These influence current and future opportunities and needs 

for the transportation system. 

Florida Department of Transportation (DOT) 

Transportation Systems Management and 

Operations (TSMO) Program: Business Case

Florida DOT developed a TSMO Strategic Plan, 

completed in 2013, which provides groundwork for the 

DOT’s TSMO program. The Strategic Plan describes 

Florida’s challenges, including population growth, 

traffic fatalities, and safety for older drivers in 

particular. It also describes the value of TSMO in terms 

of benefit-cost ratios of intelligent technologies, and 

the economic benefits associated with intelligent 

transportation systems and operations investments 

due to creation of technology sector jobs for 

engineers, electronics technicians, software 

developers, and system integrators. 

Source: Florida DOT, Florida Transportation Systems Management and 

Operations Strategic Plan, December 13, 2013.
23

5

Questions for Consideration

 What issues and trends are affecting the 

performance of our transportation system?

 What are our unique transportation needs and 

challenges?

 What opportunities does TSMO offer in 

addressing the challenges?

 Who are the users of our transportation system?

 What is most important to the system users?

 What is most important to our decision makers?

 What constraints must we work with to manage 

and operate the system effectively?

Developing a Transportation 

Systems Management and 

Operations Vision and Program 

Mission

In the strategic components of a TSMO program 

plan, the agency should include a high-level vision 

and mission for the TSMO program. 

Depending on how the organization wishes to 

develop its TSMO program plan, this component 

may include:

 Identifying of a vision for TSMO within the 

State or region, describing the intended 

outcomes.

 Developing a description of the agency’s 

mission and the role of TSMO in supporting that mission. 

 Updating the mission or vision of the organization to align with TSMO.

 Developing a TSMO program-specific mission or vision.

?

Maryland Department of 

Transportation (DOT) State 

Highway Administration’s 

(SHA) Transportation Systems 

Management and Operations 

(TSMO) Program Vision and 

Mission

In developing a TSMO program, 

Maryland DOT SHA clearly defined 

its TSMO program vision and 

mission, along with associated goals 

and objectives to support attainment 

of that vision.

TSMO Program Vision

Maximize mobility and reliable travel 

for people and goods within 

Maryland by efficient use of 

management and operations of 

transportation systems.

TSMO Program Mission

To establish and maintain a TSMO 

program and implement supporting 

projects within Maryland SHA 

improving mobility and reliability for 

all people and goods through 

operations of transportation facilities.

Source: Maryland DOT, Maryland Transportation 

Systems Management and Operations Strategic 

Implementation Plan, August 2016.
5

24

The vision provides a shared intention and direction for the organization’s TSMO program and a 

focal point for agency or regional alignment. To be effective, the vision for TSMO should speak to 

high-level outcomes while reflecting the needs of the organization and its constituents and should 

be consistent with and support the organization’s overall vision and mission. This component of 

planning may also identify core principles for how the transportation system should be operated. 

The mission for a TSMO program defines the program’s purpose. The mission may emphasize 

partners, stakeholders, and participants working together to leverage mutual interests, and advance 

TSMO through an environment of cooperation, coordination, and collaboration. The TSMO mission 

encourages all agencies and subunits involved to move toward a comprehensive and integrated 

approach to TSMO. 

Given the cultural challenges in many transportation agencies that historically have focused on and 

been organized around project development and design, an effective approach is to conduct a 

deliberate crosswalk between the agency’s overall mission and goals and TSMO. At the strategic 

level, an organized effort to change the culture of the organization to focus on TSMO as part of its 

core mission and to integrate operations considerations within all activities often is an important 

component of this level of TSMO program planning. Leadership at a senior management level can 

play a key role in advancing this outcome. Leadership and organizational culture are discussed 

further as part of the programmatic element of TSMO program planning. 

Questions for Consideration

 How does TSMO support our agency mission?

 What makes TSMO activities important to our agency and our constituents?

 What opportunities and TSMO applications do we want to take into the future?

 What current practices or challenges do we want to overcome or leave behind?

 Who will gain the greatest benefits from TSMO and what are those benefits?

Developing Strategic Goals and Performance Objectives for 

Transportation Systems Management and Operations

Strategic goals and objectives for TSMO focus on the desired outcomes to be achieved through 

TSMO. While goals are high-level, objectives should be more specific and measurable to guide 

performance-based tracking and reporting of the TSMO program’s ability to deliver the strategic 

goals. These goals and objectives generally focus on outcomes to the customer and may relate to 

specific aspects of TSMO. For instance:

 Effective management of congestion to reduce traveler delays. 

 Seamless multimodal travel.

 Reliability and on-time performance.

 Comprehensive and accurate, available information about travel conditions.

 Effective winter weather management.

?
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5

In developing performance objectives, it is useful to consider the concept of SMART objectives, or 

objectives which are:

 Specific – Provide adequate details to guide the development of viable approaches to achieving 

the objective. 

 Measurable – Allow for quantitative evaluation to track progress. 

 Agreed-Upon – Have consensus among planners, operators, and other key stakeholders. 

 Realistic – Address what can be reasonably accomplished, given resource constraints and other 

critical factors. 

 Time-bound – Establish a timeframe for achieving the objective.5

Performance measures that are used to track and assess progress toward desired outcomes should 

be associated with each objective. 

Several steps are typically part of developing strategic goals and performance objectives:

1. Build off of Agreed-upon State and Regional Planning Goals. An important first step is to 

identify existing State and regional goals that relate to system management and performance. 

TSMO goals and objectives should align with and tie together with those that are used in a 

long-range statewide transportation plan (LRSTP) or metropolitan transportation plan (MTP). 

Ultimately, it is important to tie the TSMO program together with the overall strategic goals of 

the agency, State, or region. 

2. Gather Data and Understand Baseline Conditions. An important step in the process of 

developing SMART objectives is to gather data to establish the baseline conditions for system 

performance as well as the performance of the TSMO program activities. First, the organization 

needs to understand how the transportation system is performing in order to develop 

performance objectives or targets. Next, it is useful to explore the reasons for performance 

deficiencies or gaps in order to develop objectives to address those issues. For instance, if 

reliability issues are caused due to weather conditions, incidents, and special events, strategic 

objectives may relate to improving performance across each of these areas. 

3. Collaborate Internally and Externally with Partner Agencies. Gathering information 

internally and externally also is an important step in this process. For instance, an agency can 

conduct outreach to partners for input on goals and objectives; establish a working group 

internally or together with partner organizations to collaboratively define goals, objectives, and 

performance outcomes; and identify data available for the creation of performance measures. 

4. Define Performance Targets. Finally, an agency can use the information on existing and 

forecast conditions, together with input from partners and stakeholders, to define specific 

desired performance outcomes or targets for the transportation system. Developing targets will 

require agencies to consider what kinds of data are available for tracking and to ensure that 

systems are in place to conduct ongoing monitoring. 

5 Federal Highway 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: April 2010). 

Available at: https://ops.fhwa.dot.gov/publications/fhwahop10027/index.htm.
5

26

For examples of operations objectives that could be applied at a regional scale or on the State level, 

see the FHWA publication, Advancing Metropolitan Planning for Operations: The Building Blocks 

of a Model Transportation Plan Incorporating Operations - A Desk Reference.

Denver Regional Council of Governments Transportation System 

Management and Operations (TSMO) Goals, Objectives, and 

Performance Measures

While not part of a formal TSMO program plan, the Denver Regional Council of 

Governments identified strategic goals and associated performance objectives for 

TSMO when developing a regional concept of transportation operations. Three 

TSMO strategic goals were identified, along with objectives, which link to 

program initiatives and performance measures. 

Objectives Initiatives Performance Measures

Goal 1: Provide reliable transportation operations for regional travelers

Daily Operations

• Increase trip travel time 

reliability on freeways and 

arterials for all modes

• Reduce traveler stops 

and delay due to signal 

operations

Incident Management

• Reduce average incident 

duration time

• Reduce the occurrence of 

secondary incidents

Daily Operations

• Continue to coordinate signal timing system 

management across jurisdictional boundaries

• Continue to coordinate freeway management

• Expand freeway management

Incident Management

• Establish regional incident management process

Work Zones and Special Conditions

• Improve work zone/special event management 

Cross-cutting

• Coordinate/integrate multi-modal traveler information

• Expand traffic monitoring capabilities and 

infrastructure

• Establish shared monitoring between jurisdictions

• Expand a shared communications network

• Establish a shared data warehouse or data 

management process

• Travel Time Index (TTI)

• Planning Time Index (PTI)

• Transit on-time reliability

• Arterial Progression Index 

(API)

• Average roadway 

clearance time

• Average incident clearance 

time

• Number of secondary 

incidents

Goal 2: Provide safe transportation operations for regional travelers and for public safety and construction/

maintenance personnel

• Reduce traffic injury rates

• Reduce traffic fatality rates

• Reduce public safety and 

construction/maintenance 

personnel injury/fatalities

• Establish regional incident management process • Traffic fatality rates

• Traffic injury rates

• Number of personnel 

injuries/fatalities

Goal 3: Provide transportation operations support for non-auto modes of travel

• Reduce single-occupant 

vehicle (SOV) mode share

• Reduce per capita vehicle 

miles traveled (VMT)

• Reduce per capita 

greenhouse gas emissions

• Further coordinate/integrate multi-modal traveler 

information

• Define criteria for operations improvements and 

monitoring for bicycle and pedestrians

• SOV mode share

• Annual per capita VMT

• Annual per capita 

greenhouse gas emissions

Source: Denver Regional Council of Governments, Regional Concept of Transportation Operations, 

Adopted August 15, 2012. Available at: 

https://drcog.org/sites/drcog/files/resources/Regional%20Concept%2of%20Transportation%20Operations_2.pdf.
27

5

Questions for Consideration

 What goals will support our TSMO vision and program mission? What strategic objectives will 

help us move toward attainment of our goals?

 How do TSMO strategic goals and objectives align with and support the agency’s goals?

 What data are available to track progress? 

Identifying Strategic Focus Areas and Priority Functions

In addition to strategic goals, objectives, and 

performance measures, the TSMO program may 

identify strategic focus areas or priorities that are 

important for achieving the goals and objectives. 

These focus areas or priorities may be defined in 

different ways, based on the needs of the agency. 

For instance, they may identify:

 Geographic focus areas.

 Functional areas.

 Internal capabilities.

Geographic Focus Areas

An organization may identify geographic areas of 

focus for its TSMO program. For instance, some 

agencies have begun to identify the corridor level 

as a key focus within the organization for 

planning and system management. This corridor 

level focus can have important implications for 

how the TSMO program is structured and 

possibly even how the organization is structured 

to address corridor performance, which will form 

the basis for programmatic decisions. Another 

geographic area of focus could be to differentiate 

between urban areas and rural areas in terms of 

describing the needs, expectations, and issues 

surrounding system performance and how this 

relates to strategic goals and objectives. A third 

approach would be to conduct planning and 

implementation at the district or regional level within a State.

?

The California Department of 

Transportation (Caltrans) Focuses 

on Corridors 

Caltrans recognizes that working 

with partners is vital to ensuring that 

the State’s transportation system is 

contributing to an efficient and 

interconnected network. In its 

system planning, Caltrans has put 

significant emphasis on the corridorlevel through development of 

Corridor System Management Plans 

because it recognizes that these 

plans are unique in their ability to 

analyze existing corridor conditions, 

to forecast corridor performance 

through scenario testing utilizing 

complex traffic simulation models on 

a corridor-wide scope, and to 

recommend consensus-driven longrange implementation strategies. 

Source: Caltrans, Corridor System Management 

Plans: Findings and Recommendations, January 

2013, available at: http://www.dot.ca.gov/hqtpp/

offices/omsp/system_planning/

documentsCSMP_Findings.pdf.
5

28

Functional Areas

Another way of looking at strategic focus areas is to identify key functions associated with TSMO 

that form the basis for the TSMO program. For instance, functions such as traveler information, 

incident management, work zone management, and demand management could be identified as 

strategic focus areas, and these functions relate to programmatic and organizational aspects as well 

as tactical deployment decisions.

Internal Capabilities

Finally, an agency could focus its strategic 

priorities on internal capabilities, such as data 

management and decision support. This type of 

priority ties directly to the programmatic 

elements of TSMO program planning (discussed 

in the next section). Identifying these capabilities 

as a priority may come out of an agency selfassessment in which gaps or weaknesses are 

identified in the capabilities of the organization to 

advance TSMO. 

In laying out strategic priorities, it is important to 

be forward-looking, to be focused not just on the 

functions of the organization today, but on the 

technologies and issues of the future that will 

affect TSMO over the next 10 to 20 years. For 

instance, issues such as the impact that connected 

and autonomous vehicles will have on system 

management needs, the role of mobile apps, and 

the shifting role of the private sector in providing 

traveler information and transportation services 

should be considered. 

Questions for Consideration

 What are the most important functions that our 

agency has, or could have, in optimizing 

system performance? 

 How will these functions change in the future? 

 Is there a geographic focus needed to advance 

TSMO?

 What are the technologies and issues that will affect TSMO over the coming decade or more? 

And do we need to put a new focus on those issues? 

Portland Metro Regional 

Transportation System 

Management and Operations 

(TSMO) Plan Identified Priority 

Functions 

The Portland Metro Regional TSMO 

Plan, 2010-2020 identifies four key 

functional area priorities: 

▪ Multimodal traffic management.

▪ Traveler information. 

▪ Traffic incident management.

▪ Transportation demand 

management. 

For each functional area, the plan 

identifies strategies and projects that 

improve the operation of the existing 

infrastructure and manage demand 

on the transportation system using a 

10-year planning horizon.

Source: Portland Metro, Regional TSMO Plan, 

2010-2020. Available at: http://www.

oregonmetro.gov/sites/default/files/062010_

regional_transportation_system_management_

operations_plan_executive_summary.pdf.

?
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6

Chapter 6. Programmatic Elements: 

Organizing, Staffing, and Developing 

Processes to Advance Transportation 

Systems Management and Operations 

To understand the programmatic elements of 

transportation systems management and 

operations (TSMO) program planning, it is 

important to start with a general 

understanding of what a program is. For the 

purposes of TSMO program planning, one 

can think of the program as the 

organizational structure and mechanisms 

needed to deliver the vision, mission, and 

strategic goals and objectives for advancing TSMO in an organization. One working definition 

developed by the Federal Highway Administration is that a program “is a coordinated, inter-related 

set of strategies, procedures, and activities (such as projects), all intended to meet the goals and 

objectives articulated in vision statements and policies.”6

The programmatic component of TSMO program planning addresses the “how” of delivering a 

TSMO program, with a focus on identifying institutional and organizational changes needed to 

deliver the TSMO mission for the agency. It addresses issues such as leadership support, 

organizational structure, career development plans for TSMO staff, and strategies to promote 

TSMO culture within the agency and among partners. 

It may not be appropriate for all types of agencies and organizations to include all elements; 

however, the process of considering each is important to the program planning and development 

process. Some of the elements may uncover organizational opportunities or constraints and lead to 

a more sustainable and robust program. A good starting point for programmatic discussions is to 

conduct an organizational assessment using the capability maturity model (CMM) framework.

Defining an Organizational Structure

Having a clearly defined leadership and organizational structure for TSMO is important for 

effectively advancing a TSMO culture and executing TSMO strategies within an agency. 

Organizational structure considers the interactions and linkages between divisions/offices (e.g., 

planning, operations, maintenance) and between headquarters and subunits (e.g., districts, member 

agencies). It also addresses the roles and responsibilities of each of these and opportunities for 

intra- and interagency integration. 

6 Federal Highway Administration, Freeway Management and Operations Handbook, FHWA-OP-04-003 (Washington, DC: 2003 

[revised 2006]). Available at: https://ops.fhwa.dot.gov/freewaymgmt/publications/frwy_mgmt_handbook/toc.htm.

The programmatic elements of transportation 

systems management and operations (TSMO) 

program planning address institutional and 

organizational changes needed to deliver the 

TSMO mission for the agency in coordination 

with its partners. 
6

30

The organizational structure addresses the roles and responsibilities for the TSMO program, 

defining the lead for each aspect of program delivery. It is important to address where TSMO is 

within the organizational hierarchy, particularly for a State department of transportation (DOT): is 

it a division, department, branch, or other component of the organization? In some organizations, 

TSMO is a subpart of a maintenance division, or TSMO functions may occur across many different 

departments (e.g., intelligent transportation system (ITS) technology in design and construction, 

incident management in traffic operations), which makes it challenging for TSMO to be elevated 

within a policy and resource allocation discussion. In conducting TSMO program planning, an 

agency may find that it will be helpful to implement changes in the structure of the agency to 

consolidate or elevate the TSMO functions; for instance, through a reorganization within a State 

DOT. In other cases, it may be important to develop a new position, such as a TSMO program 

manager within a metropolitan planning organization (MPO). In other cases, it may simply suffice 

to define the existing program structure that is used to deliver the TSMO program.

The Arizona Department of Transportation (DOT) Transportation System 

Management and Operations (TSMO) Division 

When Arizona DOT initially conducted a capability maturity model assessment of 

TSMO for its organization, it recognized a number of weaknesses in how it was 

organized to advance TSMO. As a result, the agency developed a new transportation 

systems management and operations division in 2015 to provide focus within the 

agency. The division added very little staff, and in fact the agency has reduced its 

number of full-time employees from more than 4,500 in 2008 to fewer than 3,800 in 

2016. The agency shifted several core functions into the TSMO Division, including 

traffic safety and operational programs, such as roadway-safety improvements, traffic 

signal systems, intelligent transportation system operations, pavement conditions, 

traffic operations center, incident management, emergency management, and 

innovative technologies. 

For more information, see: Arizona DOT, Organization Chart as of May 2016. Available at: https://www.azdot.

gov/about/inside-adot/OrganizationalChart and press release at: https://www.azdot.gov/media/News/

news-release/2016/01/12/adot-division-focuses-on-efficiencies-in-operating-sustaining-a-reliabletransportation-system-for-arizona.
31

6

Questions for Consideration

 How does TSMO fit into the organizational structure?

 What organizational unit(s) have primary responsibility for TSMO? Who is responsible for TSMO? 

 In a State agency, what responsibilities are led by headquarters? By regional or district offices? In 

an MPO or regional operations organization, who has lead responsibility for TSMO planning? 

 What responsibilities are led by partner agencies and organizations?

 What other stakeholders need to be engaged in TSMO strategic and deployment planning?

 What are the structure and processes for setting priorities, resolving issues, and making other 

management decisions?

 How can the organizational structure take advantage of current champions or sponsors in 

developing a formal and sustainable structure? 

Developing Transportation Systems Management and Operations 

Programmatic Objectives

Objectives identified in the strategic component of TSMO program planning define high-level 

outcomes for the transportation system and/or customers to be accomplished through TSMO. In 

contrast, programmatic objectives are focused on the effectiveness of delivering the program and 

business processes and procedures; in essence, determining how well the program is managed.

Programmatic objectives address what the agency wants to achieve from a business perspective. 

Typically these objectives address program implementation and business process issues such as:

 Development of plans, programs, or services.

 Gaining new staffing capabilities.

 Customer service and responsiveness.

 Resources.

These objectives are meaningful and measurable to assess how well the TSMO program is working 

– how well are we doing our job? In this context, they serve as a bridge between the overall strategic 

goals and objectives of TSMO and the specific strategies and tactics that are implemented.

?
6

32

Maryland State Highway Agency (SHA) Transportation Systems 

Management and Operations (TSMO) Program Objectives

Maryland SHA defined a series of objectives to support its TSMO program goals. 

The objectives address issues such as developing freeway and arterial monitoring 

plans and developing integrated corridor management (ICM) plans. 

Other programmatic objectives include:

• Implement a comprehensive, system level performance measurement program to 

monitor mobility and reliability targets by June 2017.

• Coordinate and ensure TSMO is considered in SHA’s asset management 

program.

• Include reliability in existing traffic analyses and travel forecasting modeling tools.

Source: Maryland SHA, Maryland Transportation Systems Management & Operations Strategic 

Implementation Plan, August 2016.

Figure 6. Maryland State Highway Administration transportation systems management 

program goals and objectives.

GOAL 1.

Develop and implement a 

sustainable TSMO program at SHA

Objective 1.1.

Incorporate TSMO oriented 

practices in routine planning and 

programming business processes 

by 2018.

Objective 2.1.

Develop freeway and arterial 

master plans by April 2018.

Objective 1.2.

Promote culture supporting TSMO 

both inside and outside SHA and 

raise overall TSMO awareness.

Objective 2.2.

Develop ICM plans by 

December 2018.

GOAL 2.

Improve travel time reliability for 

both people and freight.

Source: Maryland State Highway Administration.
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6

Questions for Consideration

 What are the critical priorities and activities for the program to undertake? What do we need to 

accomplish over the next 5 years?

 What are the best indicators of an effective TSMO program?

 What data do we have or do we need to assess program effectiveness?

 What aspects of program effectiveness do we control and what are we reliant on others to achieve?

Identifying Staffing and Workforce Development Needs

While TSMO relies upon technology investments, delivering a robust TSMO program is heavily 

dependent on having a workforce with the right background and capabilities. As noted in NCHRP 

Report 693: Attracting, Recruiting, and Retaining Skilled Staff for Transportation System 

Operations and Management, State DOTs, MPOs, corridor coalitions, and other transportation 

agencies are being called on to expand their activities beyond the more traditional design and 

construction functions most closely associated with civil engineering to the broader and more 

diverse tasks of TSMO. While a large portion of transportation agency staff have traditionally had 

backgrounds in civil engineering, and MPOs have traditionally employed transportation planners, 

TSMO has a primary focus on providing services—e.g., performing incident management, work 

zone management, and freeway management, all of which are very dependent on staff skills—as 

well as multi-agency communication and collaboration. 

While many transportation agencies view TSMO as a priority, they are encountering a shortage of 

management, professional, and technical staff with appropriate skills and knowledge in their 

agencies. Specific skills and capabilities within TSMO are evolving to include emerging 

technologies, data management, data and statistical analysis, and emergency management. 

Consequently, staff position descriptions may need to be updated and new roles defined within the 

organization. Staffing and workforce development may require close coordination with human 

resources to identify and develop these new capabilities. As many transportation agencies have 

limited ability to hire new employees, TSMO program development should identify the core TSMO 

program staff roles, responsibilities, and requirements. This may include a staffing plan for the 

TSMO program that identifies current and needed skills and a strategy for recruiting, training, 

developing, and retaining qualified TSMO personnel. 

In addition, the staffing plan may include using contractors or outsourcing staff responsibilities to 

other organizations in gap areas. In particular, as technology advances, there are opportunities to 

outsource some functions (e.g., monitoring traffic congestion and providing traveler information) to 

private sector data providers. 

Questions for Consideration 

 What skill sets will be needed to meet TSMO program objectives and functions?

 How well are our current positions and staffing structure meeting our current and future needs? 

Is there a need to update position descriptions, or create new positions?

?

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6

34

 What is the career path for TSMO staff?

 What training is needed to develop or enhance skills?

 Can we meet our staffing needs in-house?

 What are the advantages and disadvantages of utilizing contract employees?

 What is the role of outsourcing services entirely?

Transportation Systems Management and Operations Program 

Resource Management: Financial Resources, Planning, and Budgeting 

Processes

Financial resource management, maintenance of systems, and budgeting is a critical part of an 

effective TSMO program. TSMO program planning should include an evaluation of needed and 

available resources and identify resource gaps and areas for investment. In most transportation 

agencies, there is not a single, dedicated funding stream for TSMO activities and projects. 

Traditional budgeting and accounting practices in departments of transportation and regional 

organizations also are generally project focused. TSMO changes the focus to include ongoing 

services, deployment of systems of devices, and maintenance of software and hardware. 

Consequently, financial resource considerations within a TSMO program involve several 

considerations:

 Staffing – As discussed earlier, staffing relates not only to internal agency positions but also 

financial resource requirements for use of consultants or contractors to operate programs or 

undertake specific functions.

 TSMO-related Assets – TSMO includes not only traditional transportation infrastructure and 

equipment, but also traffic control devices, communications infrastructure, data, public outreach 

platforms and other ITS devices. These equipment require maintenance, updates, or replacement 

over time. As a result, it is important to understand the level of funding needs and explore 

funding sources and mechanisms available in relation to these needs. As with pavements and 

bridges, the TSMO functions of the agency should explore opportunities to adopt asset 

management techniques for identifying needs for refurbishment, replacement, or upgrades to 

equipment and technologies and developing a financial plan. It is also important to consider how 

new technologies will affect the need for and ways of implementing TSMO services, such as 

traveler information.

 Processes and Procedures for Sustainable Funding – The financial component also may 

address the broader issue of how TSMO programs are funded, or compete for funding within the 

programming process. Some MPOs have developed specific processes and procedures to ensure 

sustainable funding for TSMO activities in their metropolitan transportation improvement 

program (TIP). For instance, some MPOs set aside funding for TSMO projects to be funded each 
35

6

year and use specific project selection criteria to prioritize funding. Other MPOs do not set aside 

funding, but use evaluation criteria that address mobility, reliability, safety, and cost effectiveness 

to help TSMO initiatives compete effectively for funding. 

 Processes and Procedures for Prioritizing Funding – The financial component also may 

address procedures or criteria for prioritizing funding among the many possible needs for TSMO 

projects and investments. 

Questions for Consideration

 How are TSMO program funding needs determined?

 What are the current funding levels and funding needs? What are the current sources of funds?

 How will the ongoing services and programs be funded sustainably for the long term?

 How do TSMO assets (signals and ITS) interface and interact with the agency’s asset 

management planning? What additional resources are needed for a state of good repair for 

TSMO assets?

?

Maricopa Association of Governments (MAG) Procedures for Intelligent 

Transportation System (ITS) Project Prioritization 

Since 1998, MAG has had a dedicated funding stream for ITS projects. Although 

most of the ITS projects are funded with Congestion Mitigation and Air Quality 

Improvement (CMAQ) Program funds received by the region, several other regional 

transportation funding sources are applied as well. MAG’s ITS project selection 

process includes extensive involvement from various policy and technical committees 

as well as the public. First, MAG solicits project applications, which are reviewed by 

the ITS committee and the transportation review committee. The ITS committee, 

comprised entirely of ITS professionals representing member agencies, is responsible 

for regional ITS planning and is supported by metropolitan planning organization 

(MPO) technical staff. All proposed ITS projects are reviewed by the ITS committee 

against established criteria, ranked, and recommended for funding and inclusion in 

the transportation improvement program. This recommendation is reviewed by the 

transportation review committee, which is comprised of high-level transportation 

staff from member agencies and is the primary committee responsible for 

assembling and recommending the transportation improvement program. 

MAG is currently in the process of developing a transportation systems management 

and operations plan that will establish updated procedures for prioritizing investments 

in future ITS infrastructure and funding support for operations. 

Source: FHWA, Programming for Operations: MPO Examples of Prioritizing and Funding Transportation 

Systems Management & Operations Strategies, FHWA-HOP-13-050 (Washington, DC: September 2013). 

Available at: https://ops.fhwa.dot.gov/publications/fhwahop13050/index.htm. 
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 Are new accounting procedures needed to track operational expenses and evaluate TSMO 

investments?

 How do TSMO services and actions compete with infrastructure projects in programming 

and budgeting?

 What opportunities exist to integrate TSMO strategies into infrastructure projects? 

Developing Business Processes and Management Strategies 

Business processes include specific, structured activities or tasks and related decision points that are 

needed to deliver a TSMO program successfully. The Second Strategic Highway Research Program 

CMM framework recognized the important role of business processes for advancing TSMO. 

Business processes include formal planning, programming, scoping, budgeting, and project 

development. 

Existing and new processes should be reviewed, revised or developed to meet the unique challenges 

and opportunities associated with TSMO. These include standard business practices as well as 

emerging and evolving practices needed to deliver new services. Some of the unique and emerging 

opportunities are highlighted in the discussion of each business area below.

Organizational and Administrative Processes

Organizational and administrative processes include day-to-day workflow activities that support the 

TSMO program. These functions may require review and revision to meet the changing timeframes 

and nature of TSMO activities. A number of TSMO functions occur in real time and require timely 

action. Interaction with internal and external partners may require new or enhanced decision 

processes. It is important to consider how the changing nature of doing business in TSMO may 

impact daily workflow and functions to provide an effective program.

Questions for Consideration

 What day-to-day activities are needed to support the TSMO program? 

 Are our current administrative processes nimble enough to satisfy TSMO program objectives 

in a timely manner?

 What current processes or procedures should be revised or enhanced?

Procurement and Contract Management

ITS and emerging technologies are integral parts of a comprehensive TSMO program. Many 

data-sharing services involve new models of procurement and contracting. Emerging technologies 

require contracting with non-traditional businesses that may involve public-private partnerships, 

information sharing, and new legal relationships. Agency personnel involved in contracting and 

procurement related to TSMO program planning and development can identify challenges and 

opportunities to enhance current business practices resulting in timely and effective procurement 

and contract management.

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Questions for Consideration

 What are current challenges associated with ITS or technology procurement?

 Do current contracting or procurement processes limit the opportunities for public-private 

partnerships with emerging technology firms?

 What opportunities exist to streamline the efficiency of procurement and contracting?

 Who needs to be involved in evaluating and revising current procurement and contract 

procedures?

Performance Management, Quality Management, and Continuous 

Improvement

Across transportation agencies, there is increasing emphasis on monitoring and measuring 

performance in relation to goals. Driven in part by the Federal surface transportation authorization 

law, Moving Ahead for Progress in the 21st Century (MAP-21) Act, and its successor, the Fixing 

America’s Surface Transportation (FAST) Act, transportation agencies must utilize performancebased planning and programming to enhance decision-making and increase accountability (see 23 

USC Section 134(h)(2) and 23 USC Section 135(d)(2)). Since TSMO focuses on optimizing system 

performance, it is critical that a TSMO program utilize a performance-based approach to support 

continuous improvement. 

As noted earlier, performance management spans all three elements of TSMO program planning. In 

the programmatic phase, the transportation organization should develop monitoring and 

measurement approaches in relation to strategic (outcome-based) and programmatic (internal) 

objectives. 

 An agency may establish on-going data collection programs or develop dashboards to 

communicate system-level performance. For instance, an agency can develop procedures for 

monthly performance reporting on traffic congestion, incident response time, and reliability. 

Measurement can also include statistics such as number of incidents recorded and number of 

visits to a traveler information website. 

 An agency may also establish monitoring and measurement of activities designed to assess the 

effectiveness of specific strategies and tactics. An example would be the regular implementation 

of post-project assessment procedures to calculate the travel time savings associated with traffic 

signal coordination projects. 

Performance management helps the organization to make informed decisions that correct the course 

or more effectively move the program toward its goals and objectives. At a programmatic level, 

performance measurement and response procedures provide a bridge between the strategic and 

tactical elements by supporting the agency’s ability to evaluate and respond to performance 

outcomes effectively.

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In addition to supporting tactical decisions, performance measurement helps to support quality 

management and continuous improvement. Regular review and evaluation of program objectives 

provide a measure of program effectiveness and improvement. A large number of State and regional 

agencies have participated in the CMM workshops. A periodic review of the CMM dimensions will 

provide an ongoing assessment of the TSMO program, including areas for improvement and 

dimensions where advancements are being made. An important component of program 

management is to continually track and respond to these measures in a formal, structured approach 

designed to deliver continuous improvement.

Questions for Consideration

 How will we measure each of the TSMO program objectives?

 What actions are needed to address shortcomings in achieving program objectives?

 What actions are needed to advance the TSMO program along the CMM dimensions? 

 What decision support systems are in place to translate measures into actions?

Data Management

Data management ties into and is an important element of both asset management and performance 

measurement. In light of recently established national performance reporting and target setting 

requirements, data management is an increasingly important issue within State DOTs. Moreover, in 

the operations realm, the availability of data is expanding exponentially as crowd sourcing, vehicleto-infrastructure communications, and the “Internet of Things” expands. Weather and roadway 

conditions, vehicle speeds, incident occurrence, and other real-time data are being extensively 

collected and made available throughout the system. How the data are gathered, analyzed, reported 

and stored can provide a tremendous resource to support TSMO activities. Big data analytics allows 

system managers to identify trends and relationships previously unconsidered to manage traffic and 

operations more efficiently. The management, duration, evaluation and analysis of data are critical 

to an effective TSMO program. 

In response, some transportation agencies have developed a data business plan, and TSMO can be 

an important component. A data business plan guides an agency in data management, and links 

business objectives, programs, and processes to data systems, services, and products. 

Questions for Consideration

 What are our current sources of historic and real-time data?

 What new and emerging sources are available?

 Do we have the tools and skills we need to leverage new data sources? 

 Who are our potential partners for data sharing and analytics?

 Are procedures for analyzing performance data in place? Are responsible parties assigned to 

perform this analysis?

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Decision Support Systems

Current and emerging data sources provide inputs into automated, computer-based applications that 

support business and operational decision-making. Decision support systems (DSS) provide 

decision-making structures for everything from real-time traffic operations to capital investment 

strategies. Applications of DSS include freeway speed algorithms for traffic control operations, 

incident detection, winter maintenance routing and tracking, and adaptive signal control. DSS can 

also support project planning and design, service investments, and other programmatic decisions. 

Big data offers new sources of information, and big data analytics allows TSMO programs to 

identify previously undetected trends and relationships. DSS provides a decision framework to 

make informed decisions to support TSMO program goals and objectives. This allows program 

managers and decision-makers to consider the trade-offs of various actions or investments. 

Questions for Consideration

 What current DSS are in place and are they effective?

 What additional DSS would enhance TSMO program decision-making?

 What new data could be leveraged for DSS?

 Do staff use the DSS capabilities?

 What in-house capabilities are needed for big data analytics?

Research and Development 

TSMO is a rapidly evolving field that includes traditional and emerging technologies and 

applications. Ongoing research and development is essential for taking advantage of new 

technologies and maximizing an agency’s return on investment. Identifying new and emerging 

technologies with TSMO applications provides opportunities to consider technology alternatives 

that address system issues more cost effectively than traditional construction solutions. Increasing 

data sources and types provide new insights into system challenges and trends that can refocus 

investments more effectively. Multimodal integration and information sharing offer new options for 

system users and system managers. To integrate new technologies into TMSO, focus on research, 

evaluation, and testing.

Questions for Consideration

 Who are our partners for TSMO research (agency staff, universities or research organizations, 

vendors)?

 What opportunities exist or are emerging that may be applicable to our program?

 How will we evaluate or test new technologies?

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Promoting and Embedding a Transportation Systems Management 

and Operations Culture throughout Agency and Partner Business 

Practices 

Whether a TSMO program is developed by a single agency, multiple agencies, or across a region, 

communication and collaboration between and among partners and stakeholders is essential to the 

program’s success. Within a State DOT there are numerous subunits with responsibility for various 

aspects of TSMO planning and deployment. Similarly, in a region where multiple jurisdictions need 

to coordinate activities to deliver a systems approach to transportation management and operations, 

communication and collaboration become a critical programmatic component of effective TSMO.

Internal Collaboration: Incorporating Transportation Systems Management 

and Operations into Other Processes and Procedures Used Throughout the 

Agency 

Beyond the organizational units with lead responsibility for TSMO activities, embedding TSMO as 

a key priority within an agency will typically require integration of TSMO into other agency 

functions, plans, and programs to support optimized system performance. 

These functions may include:

 Planning – The TSMO program should 

support the goals and objectives in the 

agency’s long range transportation plan and 

also serve as a basis for identifying these 

objectives and priorities. TSMO thinking and 

TSMO strategies should permeate all relevant 

planning documents, including freight plans, 

bicycle/pedestrian plans, and safety plans. The 

strategic objectives of the TSMO program 

plan also should be integrated into corridor 

plans, and sub-area planning.

 Programming/Funding – The TSMO 

program’s priorities should be integrated into 

investment and funding decisions, including 

integration into the TIP and STIP. 

 Project Development/Design – TSMO needs 

to be considered at the project level when 

considering both project design and strategies 

to incorporate into a project (e.g., transit signal 

priority, dynamic lane control, demand 

management).

Caltrans Organizational Integration 

for Transportation Systems 

Management and Operations (TSMO) 

Caltrans has focused its efforts to 

develop a TSMO program on 

organizational integration. Caltrans has 

had many of the pieces needed to 

effectively advance TSMO; for instance, 

corridors that are managed in an 

integrated manner, policy, and an 

intelligent transportation systems 

architecture, but it has needed better 

institutional integration. Caltrans has 

focused on getting planners, operations 

staff and their partners to work better 

together; one way to do that has been 

conducting regional operations forums. In 

California, the regions have most of the 

funding and programming authority, and 

Caltrans Districts work with metropolitan 

planning organizations and other regional 

partners to advance priorities. 
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 Maintenance and Asset Management – TSMO needs to consider how its assets (including ITS 

equipment, transportation management centers, etc.) are maintained and replaced over their 

life-cycle.

For TSMO to permeate an agency, TSMO considerations need to be brought into processes and 

procedures used throughout the agency, such as other types of transportation planning studies. 

Specifically, TSMO should be incorporated into statewide and metropolitan transportation planning, 

safety planning, and asset management, as well as project development and design. This integration 

will often involve the inclusion of TSMO considerations into guides and process manuals used 

throughout these processes.

Questions for Consideration

 Who are our partners within the organization? (Consider current and potential partners across 

disciplines and areas of responsibility)

 How can the TSMO program support other agency units and functions and how should that 

information be communicated?

 What other agency initiatives or responsibilities are closely aligned with TSMO?

 In what other processes and procedures should TSMO be integrated? How does TSMO interface 

with agency strategic planning?

?

Colorado Department of Transportation (CDOT) Integration of 

Transportation Systems Management and Operations (TSMO) Evaluations 

into its Project Development Process 

As part of making a culture change to focus on improved traffic operations and on 

continual process improvements, CDOT developed an operations evaluation 

process to be conducted as an essential element of the project development 

process for new infrastructure projects. The purpose of this effort is to avoid past 

instances when CDOT completed improvements to the roadway (e.g., paving, 

striping, widening) and then, after a brief period of time, returned to the same 

location to make additional improvements. By considering safety, operations, and 

intelligent transportation systems elements throughout the design process and in 

an institutionalized manner, CDOT attempts to optimize its limited resources to 

make the right decisions for transportation improvements and build public trust. 

The agency’s TSMO evaluation consists of three parts: 1) a safety analysis, 2) an 

operations analysis, and 3) an ITS analysis in the project development process. 

The project manager will coordinate with the regional traffic representatives for 

the completion of these safety and operational reviews along with a systems 

engineering analysis for any proposed ITS elements during the project. 

See: https://www.codot.gov/business/process-improvement/lean-case-studies/first-in-the-country-implementing-tsm-oevaluations-to-be-the-best.
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 How can integration of TSMO lead to process improvements that save money and benefit our 

customers?

 What are the specific processes, manuals, and documents within which TSMO considerations 

should be added?

Collaboration with External Partners

Recognizing the critical role of different partners 

in operating a multimodal transportation system, 

TSMO program planning should address 

collaboration among statewide/regional partners 

and coordination across multiple disciplines 

(e.g., maintenance, law enforcement, emergency 

response). In particular, given the dominant 

impact of incidents on delay and reliability— 

and in light of the key legal and traditional role 

of law enforcement, a DOT’s effectiveness in 

TSMO is dependent in significant part on the 

level and type of cooperation that can be 

developed with law enforcement for traffic 

incident management. Similarly, coordination 

with local governments responsible for traffic 

signal operations, transit agencies, and new 

transportation service providers (such as 

transportation network companies) are critical to 

the effective implementation of strategies 

supporting integrated corridor management and 

active transportation demand management, 

among others.

Interaction with external stakeholders, 

expanding coordination and collaboration to 

enhance existing relationships, and building new partnerships will enhance program effectiveness 

and sustainability. Structured interaction between stakeholders expands coordination and 

collaboration to enhance existing informal relationships, builds new partnerships, and formalizes a 

program within and across agencies. 

Questions for Consideration

 Who are our external partners and what does TSMO offer to their organizations’ mission?

 What mechanisms and forums are needed to build multiagency collaboration?

 What informal relationships should be expanded or formalized to support TSMO and leverage 

limited resources?

Oregon Department of 

Transportation (DOT) 

Transportation System Planning 

Guide 

Jurisdictions throughout Oregon are 

required to prepare and adopt regional 

or local transportation plans that serve 

as the transportation element for their 

comprehensive plans. To support 

integration of transportation systems 

management and operations (TSMO) 

and other concepts, Oregon DOT 

developed Transportation System 

Planning Guidelines, which include 

best planning practices that provide 

examples of strategies that 

communities can use to strengthen 

their plans. 

See: https://www.oregon.gov/ODOT/TD/TP/Plans/

Guidelines.pdf.

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 What are the mechanisms needed to set priorities, resolve disagreements, and make other system 

management decisions?

Communications, Marketing, and Outreach with System Users

Communicating with system users is an important part of developing a TSMO program and builds 

support for a program that is not as visible to daily transportation users as a major construction 

project might be. The TSMO program, in collaboration with agency public information personnel, 

should reach out to customers to identify their needs and expectations and to communicate TSMO 

goals, objectives, activities, and outcomes. 

Questions for Consideration

 What mechanisms are in place to solicit and address user needs and expectations?

 How will the TSMO program work with public information/relations staff to build public support 

for the program?

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Chapter 7. Tactical Elements: Identifying 

Priority Services, Activities, and Projects

The tactical component of transportation 

systems management and operations 

(TSMO) program planning focuses on 

identifying the packages of TSMO services, 

activities, and projects to accomplish the 

organization’s adopted mission, vision, goals, 

and objectives. In this phase, transportation 

agencies also describe implementation 

policies and decision-making guidelines that 

will direct deployment for services, activities, 

and projects. In effect, this component should establish the foundation for subsequent TSMO 

deployment. Often, this phase of TSMO program planning involves a near-term focus of 3 to 5 

years, and is used by metropolitan planning organizations (MPO) to identify priorities to move 

forward as investments and programs within a transportation improvement program (TIP) or by 

States to identify key priorities for the statewide TIP. 

While tactical program planning focuses on identifying a set of investment or service priorities, it 

should involve more than simply identifying a list of projects. This component of planning ideally 

should involve establishing clear organizational responsibilities for each set or package of services, 

projects, or activities. It also must recognize that TSMO implementation goes beyond just deploying 

ITS infrastructure and implementing programs, but has to include field procedures and protocols, 

adjustments to the systems architecture, staff training, and performance measurement.

It is important to note that several organizational units may need to share responsibilities for a 

particular service, activity, or project, and collaboration with specific external partners may be 

critical to success. Any unique organizational or system-related needs for business processes should 

be identified and addressed. In addition, tactical planning should involve developing a financial plan 

to identify funding sources for services and/or investments, as well as other categories of resources 

(e.g., staffing, capabilities) needed. 

Identifying Prioritized Services, Activities, and Projects

Planning for the implementation or deployment of TSMO identifies the services, activities, and 

projects needed to meet the TSMO strategic and programmatic goals and objectives. Each of 

these areas should be developed more fully to prioritize, program, and deploy specific services 

and activities. 

Transportation systems management and 

operations (TSMO) program planning 

addresses tactical issues that lay the 

groundwork for TSMO deployment, 

including the identification of prioritized 

services, activities, and projects. 
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46

Unlike more traditional transportation agency programming, TSMO deployment goes beyond 

projects to include a broad range of activities and services that support operations and management 

of the transportation system. For example, traffic incident management (TIM) involves not only 

deployment of cameras or other infrastructure to detect incidents, but also procedures, 

communications, interagency coordination, and scene management practices. TIM programs may 

identify specific technology investments or intelligent transportation system (ITS) applications that 

support these activities, but the focus is generally not on project construction or technology 

procurement alone. Program plans should discuss in more depth, or link to more specific plans that 

address, the structure, relationships, and procedures needed to advance each service or function, as 

well as funding. 

Questions for Consideration

 What services, activities and projects provide the greatest return on investment in meeting our 

TSMO goals and objectives?

 What services and activities are we performing today that can be leveraged or enhanced to 

support TSMO?

 What gaps do we currently have that need to be addressed to meet our TSMO mission and vision?

 What is the structure of the service delivery program?

 Who should we engage to develop strong multiagency, multidisciplinary deployment?

?

“No service, project and activity should be a candidate for 

subsequent deployment planning without systematic 

screening through the TSMO Program Plan.” 

NCHRP Project Number 20-07/345: Program Planning and Development for Transportation 

System Management and Operations in State Departments of Transportation
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Delaware Valley Regional Planning Commission (DVRPC) Identification of 

Specific Strategies to Support Transportation Systems Management and 

Operations (TSMO) Goals and Objectives 

DVRPC, the metropolitan planning organization (MPO) for the Philadelphia region, 

developed a Transportation Operations Master Plan, which outlines a long-range vision 

of transportation operations for the region. It presents transportation operations goals, 

objectives, and operational strategies, including plans and programs to accomplish the 

regional goals and vision. A financial analysis was conducted to estimate the costs to 

construct, operate, and maintain these initiatives. The table below highlights strategies, 

which include projects, policies, programs, and activities designed to support one goal 

associated with reducing traffic congestion through improved incident management 

and associated objectives.

Goal Reduce Traffic Congestion Through Improved Incident Management

Objectives

Improve Incident 

Detection and 

Verification

Improve Response 

Times

Improve 

Interagency 

Coordination and 

Cooperation

Improve Incident 

Clearance

Strategies Implement and/

or upgrade 

traffic operations 

centers

Construct traffic 

surveillance 

systems, fill in 

missing gaps

Share 9-1-1 and 

State police 

Computer Aided 

Dispatch (CAD) 

information with 

traffic operations 

centers

Install reference 

location signs

Construct Regional 

Integrated MultiModal Information 

Sharing (RIMIS) 

data interfaces 

with traffic 

operations center 

(TOC) field-tocenter (F2C)

software to collect 

traffic speeds

Share traffic 

surveillance 

information 

with emergency 

responders

Incorporate 

real-time traffic 

information into 

CAD systems 

and emergency 

vehicle mobile 

data terminals

Operate and 

maintain RIMIS

Establish and 

maintain incident 

management task 

forces

Create incident 

management 

response teams 

(IMRT)

Conduct training 

programs, postincident reviews

Develop regional 

evacuation plan, 

and disaster 

response and 

recovery plan

TOC/County 9-1-1 

centers act as a 

communication 

hub for emergency 

traffic text alerts

Deploy emergency 

service patrols

Pass quick clearance 

legislation

Develop and promote 

“Move It” policies, 

erect “Move It” signs

Identify and sign 

prearranged detour 

routes

Develop policy and 

procedures to modify 

signal timings on 

detour routes, upgrade 

traffic controllers/

F2C communication 

systems

Pre-deploy traffic 

control equipment

Install ramp gates and 

barrier gates

Develop tow truck 

incentive program

Source: DVRPC, Transportation Operations Master Plan, 2009.
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Defining Implementation Policies and Guidelines to Support 

Service Functions

In the tactical stage of TSMO 

program development, policies and 

guidelines are needed for services 

and strategies. These may include 

State level policies such as quick 

clearance for TIM, standards 

specifications for communications 

technologies, guidelines for selection 

or deployment of ITS devices, 

policies guidance on public/private 

initiatives in data sharing, decisionmaking guidelines for 

implementation of services, projects, 

and activities, and service levels 

standards for devices. 

Questions for Consideration

 What statewide or regional 

implementation policies are needed 

to support and enhance TSMO?

 What guidelines would be helpful 

to coordinate and cooperate across 

multiple agencies and disciplines?

Developing an Investment Plan or Financial Plan 

Effective planning for TSMO involves identifying the costs associated with deployment of services, 

which may include new infrastructure investments, technology purchases, staff time and resources, 

or other resources. The TSMO program plan may identify general funding levels, resource needs, 

and funding sources to support a sustainable program by major function over a 5- or 10-year period. 

It also could identify specific types of project priorities and estimated costs, which could be 

incorporated into the MPO’s TIP or State DOT’s STIP. 

Prioritizing specific TSMO services and projects typically depends on data and analysis tools. 

Benefit/cost analysis or multi-criteria analysis methods can be developed to support this projectlevel or service-level prioritization. For example, Federal Highway Administration’s Tool for 

Operations Benefit Cost Analysis (TOPS-BC) can be used to help support identification of specific 

TSMO strategies or investments that may be most cost-effective. Alternatively, multiple factors or 

criteria may be used to prioritize investments.

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Regional Transportation Operations Plan for 

Southeast Wisconsin – Short-Range Priorities 

The Southeastern Wisconsin Regional Planning 

Commission, the metropolitan planning organization 

for the Milwaukee area, developed a Regional 

Transportation Operations Plan (RTOP) as a shortrange plan identifying system operations measures 

and actions recommended for implementation over 

a five year period. The RTOP builds on the 

recommendations from the region’s long-range 

regional transportation plan, and identifies the 

operations measures in the regional transportation 

plan recommended for priority implementation in 

the five-year period, along with potential funding 

sources, and the relationship of each measure to 

the regional intelligent transportation system 

architecture. 

Source: Southeastern Wisconsin Regional Planning Commission, Regional 

Transportation Operations Plan for Southeastern Wisconsin: 2012-2016. 

Available at: http://www.sewrpc.org/SEWRPCFiles/Publications/mr/

mr-202-reg-transportation-operations-plan-for-se-wisc.pdf. 
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Questions for Consideration

 What are the current funding resources for TSMO deployment for each service area?

 What are the priority or highest value investments needed for each service area?

 What funding sources can be matched to individual project priorities?

Developing Annual Action Plans and Deployment

Identification and prioritization of TSMO services, activities and projects provide the basis for 

annualized actions and deployment. Based on funding resources, and opportunities to integrate 

TSMO in other activities and projects, annual deployment plans provide the basis for actualizing 

TSMO. Annual plans should be developed in coordination with larger agency planning efforts and 

integrated in standard programs, which often have a 5-year timeframe. 

Questions for Consideration

 What operational projects or initiatives are needed in the near-term to address specific needs?

 What are the highest ranked priorities for implementation in the next year? Two years? Five years?

Tracking Progress: Performance Assessment

For each of the service areas, 

performance analysis should be 

conducted to measure the 

effectiveness of tactics in meeting 

program objectives. Using metrics 

identified in strategic planning, 

on-going monitoring of system 

performance, together with 

evaluation of specific projects and 

investments, will provide the basis 

for informed, performance-oriented 

decision-making and program 

improvements. It will also provide 

data useful for justifying future 

TSMO investments.

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Dallas Region Annual Evaluation of 

Intelligent Transportation System (ITS) 

Priorities 

The ITS strategic deployment plan developed 

by the North Central Texas Council of 

Governments (NCTCOG) is a living document, 

which the organization seeks to improve 

continuously. On an annual basis, NCTCOG 

leads a stakeholder task force in a review of 

the ITS plan. As part of this process, the task 

force uses performance measurement data to 

make decisions about whether to add or 

remove regional ITS projects and proposed 

deployments from the plan.

Source: North Central Texas Council of Governments, North Central 

Texas Intelligent Transportation System (ITS) Strategic Deployment 

Plan, May 2016. Available at: http://www.nctcog.org/trans/its/

RegITSArch/documents/ITSSDPFINALReportwithAppendix.pdf. 
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Questions for Consideration

 How will we measure how well we are meeting the program’s stated objectives?

 What data are available and what additional data needs do we have?

 How can we capture effectiveness data and success stories to help justify future TSMO 

investments and build a case and culture for TSMO?

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Chapter 8. Ten Guiding Principles 

to Advance Transportation Systems 

Management and Operations Program 

Planning for Your Organization 

Transportation systems management and operations (TSMO) program planning involves several 

steps. Each organization will have its own set of considerations based on the organization type and 

responsibilities. Recognizing that agencies are at various stages in their development of TSMO 

Programs and have different needs, this section highlights ten “guiding principles” associated with 

an effective TSMO program planning effort. 

The process of getting started in TSMO program planning may also vary based on which office or 

group is leading the effort. For example, some agencies may develop a program plan through an 

operations group while others may initiate it in a strategic planning or research office. Regardless of 

who spearheads the development of a program plan, representation from these and other potentially 

affected or interested staff should be included to provide a broad and comprehensive approach to 

program development. It is important to determine the capability of your organization for 

undertaking TSMO program planning and to solicit support and expertise as needed.

Understand Motivation 

It is important to understand and articulate the motivating factors for developing a TSMO program 

and a TSMO program plan. Consider what the potential advantages are to the organization and to 

the transportation system users to build a vision for what TSMO can do to support transportation 

through the implementation of a TSMO program. It is also important to understand the risks of not 

formalizing a TSMO program and allowing initiatives to become reactive or subject to leadership 

changes or political shifts. Clearly articulating the motivation for TSMO is a key ingredient for 

ensuring buy-in and on-going support. 

Questions for Consideration

 Are we committed to support TSMO and to make changes recommended by a TSMO program 

plan? 

 How will this plan be linked and coordinated with existing plans (e.g., strategic highway safety 

plan (SHSP), long-range transportation plan (LRTP), intelligent transportation systems (ITS) 

plans, traffic incident management (TIM) plans)?

 Do we have leadership support? If not, how can we gain buy-in from leadership for the planning 

effort and resulting TSMO program plan?

 Who are the audiences for the plan? How can we manage expectations among stakeholders?

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Identify a Leader and Key Internal Partners 

TSMO is a multi-disciplinary approach to enhancing the management and operations of the 

transportation system. As such, it is important to engage partners within the agency who will play a 

key role in advancing the TSMO throughout program and who will play a role in implementing 

business processes or tactical deployments. Other disciplines to consider in developing and 

implementing a TSMO program include planning, design, maintenance, construction, IT, and 

procurement. Engaging district or regional offices also will need to be part of the effort. Each of the 

units will need to understand how the TSMO program interfaces with their areas of responsibility 

and should be engaged to develop a sense of ownership in the program and its implementation. 

Different approaches may be effective in different circumstances. For instance, in Maryland, the 

TSMO Program efforts have been spearheaded by the Office of Planning and Preliminary 

Engineering, in coordination with operational units. In Tennessee, the Traffic Operations Division 

was the lead in TSMO program planning efforts. In Texas, the Texas Department of Transportation 

(DOT) central office is conducting outreach to its districts and regional partner agencies, then based 

on input from those entities and the state of the practice, setting a TSMO framework for planning at 

the district and regional level. 

Questions for Consideration

 Who will lead the process, and who will be consulted?

 How will we involve all of the key units in the department (e.g., planning, maintenance, 

construction, regions)? How will we ensure that each unit feels “ownership” when it is time for 

implementation? 

 How will we involve the region/district offices? Will the TSMO program plan provide the same 

level of guidance and direction to the region/district offices as to headquarters? 

 How will decisions be made, and what role will the metropolitan planning organization (MPO), DOT, 

and external partners have? What role will the Federal Highway Administration (FHWA) have? 

Develop a Clear Definition and Understanding of Transportation 

Systems Management and Operations

In order to develop an effective TSMO program plan, it is important to clearly define TSMO so 

everyone working on the plan has a common understanding. Many people with the organization 

may not have experience with the term “TSMO” or be familiar with all aspects of the concept. 

Therefore, it will be important to discuss and document key terms to be used in the plan in order to 

communicate effectively. 

Questions for Consideration

 Do all stakeholders have a common understanding of TSMO?

 How can we most clearly convey the value and importance of TSMO? 

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Establish Baseline Conditions/Conduct Self-Assessment

This is a critical step in the process. Data can help illustrate the current TSMO activities and 

provide baseline metrics for performance measurement for the TSMO program. Another aspect of 

establishing current conditions is identifying current agency plans and examining how a TSMO 

program can expand and support current strategic goals and tactical initiatives. In addition to 

strategic plans, State transportation improvement plans (STIP) and transportation improvement 

plans (TIP), consideration for how the TSMO program will support and interface with 

organizational asset management, performance management, and sustainability plans is important. 

Self-assessment may include conducting a survey to assess program needs, conducting outreach to 

partners for input on needs and goals, and establishing a panel of experts to identify best practices 

and provide guidance as the plan is developed. A self-assessment can identify key areas for 

improvement building on current strengths and developing areas identified as current weaknesses. 

Many States and regions have participated in TSMO capability maturity model (CMM) workshops 

and can build on what they learned from these workshops and other self-assessments to guide the 

TSMO program planning effort. 

Questions for Consideration

 What TSMO functions do we have and where are they housed in the agency?

 What parts of the TSMO program plan do we have already? What is our “point of departure”? 

 What do we know about current and future challenges and needs? 

 What components of the model approach are already in place, and what needs to be developed?

 What have we learned from CMM workshops and other self-assessments that should guide or be 

further addressed in the TSMO program plan?

Identify What Expertise Is Needed

Organizations approaching TSMO program planning for the first time may find it helpful to engage 

experts through FHWA, academia, or the private sector to provide guidance and support to 

program planning. Specific expertise, either in-house or external, should include an understanding 

of TSMO and the role of program planning and development in supporting the development of a 

clearly articulated, well documented and integrated plan that can guide a comprehensive TSMO 

program into the future. An understanding of organizational and change management is also 

important to the integration of the TSMO program across the agency.

Expertise is also needed to carry out the plan and build an effective TSMO program. TSMO 

programs include planning, design, deployment, business processes, data analytics, decision 

support systems, traffic operations, multi-agency coordination, and program management. As new 

applications and technologies emerge, these areas will evolve and expand, changing the nature of 

the work and skill sets needed to perform that work. Transportation agencies have traditionally been 

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the arena of design, construction, and maintenance. As agencies take on an increased focus on 

system management and operations, and as technology and social expectations evolve, the skills 

and capabilities needed in the workforce must expand and change as well. 

Questions for Consideration

 What skill sets are needed for TSMO program planning?

 What capabilities for execution of the plan are needed in-house and what can be provided by 

consultants or vendors?

 What is the process for identifying new capability needs?

 Where do we need to enhance or add capabilities to support program delivery and to address 

changing demands or needs?

 What resources are available to train current employees in new areas?

Organize for Transportation Systems Management and Operations 

Across all phases or elements of TSMO program planning, a key theme is that program planning 

goes beyond development of strategic goals and objectives, or identification of projects or tactics. It 

involves focusing on broader programmatic issues that define how the “business of TSMO” is 

conducted within an agency, State, or region. This may involve looking at how the agency is 

organized to most effectively carry out the business of TSMO, and may involve developing new 

organizational structures or positions within the organization.

Organizational integration should address issues associated with bringing a culture of TSMO to an 

agency. There are a number of ways TSMO programs can develop and evolve within the overall 

agency structure. The more TSMO is integrated across all aspects of an agency, the more effective 

it will be in leveraging strategies to support system management.

Questions for Consideration

 Is the agency organized optimally to advance TSMO?

 Does the organizational structure hinder effective planning or deployment for TSMO? 

 How does the current organizational structure affect recognition or awareness of TSMO across 

the agency?

 Does the structure support or adversely affect budgeting for TSMO?

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Engage Key External Stakeholders

While many of the initial TSMO program planning efforts of State DOTs have focused internally on 

the organization, it is important to recognize the important role that many agencies and 

organizations play in TSMO. Local agencies that operate traffic signals, transit agencies, toll 

authorities, port authorities, and other organizations all play a role in managing components of the 

transportation system and should be considered. In addition, non-traditional stakeholders, such as 

school districts (e.g., responsible for school bus schedules), major employers, emergency responders, 

and others play a role in transportation system demand and performance, and could be part of 

outreach efforts to develop collaborative partnerships.

As TSMO embraces new and emerging technologies, agencies will develop increasingly complex 

partnering arrangements with service providers and original equipment manufacturers. It is likely 

that each of these partnerships will be a unique business arrangement reflecting the business 

strategies and objectives of each industry partner. 

Questions for Consideration

 Who are important stakeholders for the TSMO program plan?

 What role do these organizations play?

Look Ahead to Emerging Technologies and Innovations 

In addition to the challenges of today, new technologies are quickly shaping and molding the 

landscape of future mobility and system operations. These issues can have significant implications 

for system performance, travel patterns, and the roles and responsibilities of transportation agencies 

in providing and operating transportation services as well as for relationships with partners in the 

private sector. These issues should be considered in planning for a TSMO program.

Emerging technologies provide a number of new challenges and opportunities, and should be 

planned for in a way that supports the TSMO strategic vision and program development. 

Technology is evolving quickly and business systems need to be able to respond and adapt quickly 

to leverage new technologies and ensure they are beneficial and not a distraction to the program’s 

goals and objectives. For example, with the evolution of autonomous and connected vehicles, traffic 

operations and system management may change tremendously. Other emerging technologies and 

social changes may also impact TSMO policies and programs.

New technologies, such as autonomous and connected vehicles and mobility on demand services, 

will likely change how transportation agencies approach traveler information and traffic 

management. For instance, the private sector may play a larger role in providing detection, data, and 

analytics services for performance measurement, and new detection technologies such as drones 

may be used. New technologies also may reduce the needs for certain types of transportation 

programs and partner efforts, such as law enforcement efforts to reduce speeding or drunk driving. 

At the same time, new technologies are likely to increase the roles and responsibilities of the public 

sector in terms of cybersecurity and maintaining the data security.

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Questions for Consideration

 What new and potentially disruptive technologies are anticipated in the near term?

 What new technologies are just beginning to emerge?

 How could these technologies impact current practices and policies?

 How can we position ourselves to maximize our opportunities?

 What role can we or should we play in private sector innovations?

 What business processes are needed to procure and contract with new technology partners?

 How flexible should our business processes be to adapt to and deploy these technologies?

 What new roles will transportation agencies need to play in protecting data?

 What new roles will agencies need to play in regard to cybersecurity? 

 What security issues should be addressed in planning and deploying new technologies?

Consider External Forces and Other Emerging Issues 

It is important for transportation agencies to consider a range of issues that go beyond technology 

advancements when planning for the future. Specifically, issues such as changes in demographics, 

land use/development patterns, the economy, and freight movement, as well as increasing 

opportunities for shared use mobility should be considered in defining the TSMO program and its 

priorities. In addition, changing areas of focus—such as the emerging role of resiliency, risk 

management, and environmental sustainability within transportation agencies—should be 

considered.

Questions for Consideration

 How will changes in demographics, land use, and the economy potentially affect system 

operations?

 How will potential impacts of climate change and increased severe weather affect TSMO needs?

 How can TSMO support environmental sustainability?

 What are emerging roles of TSMO in relation to system resiliency? 

 What is the role of TSMO in relation to other issues of concern (e.g., equity, risk management)?

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Analyze and Evaluate Performance

Performance management is a critical component of effective TSMO program planning. Building 

off of the self-assessment at the beginning of the process, it is important to continually explore how 

well the agency is doing in achieving both its strategic goals and objectives, as well as its 

programmatic objectives. Performance measurement provides greater definition to the high-level 

goal outcomes, and provides a tangible way to assess the current state, goal state, and gaps. 

Evaluation and reassessment ensures that the TSMO services and projects are effective at realizing 

progress towards goals and objectives, and establishes processes for continuous improvement. 

Questions for Consideration

 Are we measuring the right things?

 What data are available or could be used to track performance?

 Who will be responsible for implementing elements of the plan?

 How will we track progress toward implementing the plan? How will we keep leadership 

apprised of progress and supportive of the efforts?

 At what point will we update the program plan?

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Chapter 9. Resources 

Federal Highway Administration Resources 

Organizational Issues

Creating a Foundation for 21st Century Operations

https://ops.fhwa.dot.gov/program_areas/creating_foundation.htm

Creating an Effective Program to Advance Transportation System Management and Operations 

Primer

https://ops.fhwa.dot.gov/Publications/fhwahop12003/background.htm

Organizing for Reliability Tools

https://www.fhwa.dot.gov/goshrp2/Solutions/Reliability/L06_L01_L31_L34/Organizing_for_

Reliability_Tools

Planning for Operations

Advancing Metropolitan Planning for Operations: An Objectives-Driven, Performance-Based 

Approach – A Guidebook

https://ops.fhwa.dot.gov/publications/fhwahop10026/

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

Transportation Plan

https://ops.fhwa.dot.gov/publications/fhwahop10027/fhwahop10027.pdf

Planning for Operations 

https://ops.fhwa.dot.gov/plan4ops/

Regional Concept for Transportation Operations: The Blueprint for Action - A Primer

https://ops.fhwa.dot.gov/plan4ops/focus_areas/trans_ops.htm

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

Reference Manual

https://www.fhwa.dot.gov/planning/processes/statewide/practices/manual/

Statewide Opportunities for Linking Planning and Operations: A Primer

https://ops.fhwa.dot.gov/publications/fhwahop08028/index.htm

Transportation Planning for Operations: Quick Guide to Practitioner Resources

https://ops.fhwa.dot.gov/publications/fhwahop13049/index.htm
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American Association of State Highway Transportation Officials and 

Transportation Research Board Resources

General Transportation Systems Management and Operations and 

Reliability Resources

American Association of State Highway and Transportation Offices (AASHTO): 

Transportation Systems Management & Operations

http://www.aashtotsmoguidance.org/

National Operations Center of Excellence (NOCoE) 

http://www.transportationops.org/

Advancing Regional Transportation Operations, A National Workshop Transportation 

Research Circular

http://onlinepubs.trb.org/onlinepubs/circulars/ec150.pdf

A Framework for Improving Travel Time Reliability

http://www.trb.org/Main/Blurbs/169243.aspx

Business Case Primer: Communicating the Value of Transportation Systems Management 

and Operations. 

http://www.transportationops.org/business-cases/business-case-primer-communicating-valuetransportation-systems-management-and

Glossary of Regional Transportation Systems Management and Operations Terms, 

Second Edition

http://onlinepubs.trb.org/onlinepubs/circulars/ec166.pdf

Presentation Guide: Operations in the 21st Century DOT: Meeting Customer Expectations

http://www.trb.org/Main/Blurbs/169179.aspx

Strategic Approaches at the Corridor and Network Level to Minimize Disruption from 

the Renewal Process

http://www.trb.org/Main/Blurbs/168143.aspx

Organizational Issues, Institutional Capabilities, and Business Processes

Alternative DOT Organizational Models for Delivering Service (NCHRP Project 20-24 (83))

http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP20-24(83)_FR.pdf

Attracting, Recruiting, and Retaining Skilled Staff for Transportation System Operations 

and Management (NCHRP Report 693) 

http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_rpt_693.pdf

E-Tool for Business Processes to Improve Travel Time Reliability

https://www.fhwa.dot.gov/goshrp2/Content/Documents/Factsheets/SHRP2_L34_Final_

Report1401.pdf
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Guide to Improving Capability for Systems Operations and Management

http://onlinepubs.trb.org/onlinepubs/shrp2/SHRP2_S2-L06-RR-2.pdf

Guide to Integrating Business Processes to Improve Travel Time Reliability

http://onlinepubs.trb.org/onlinepubs/shrp2/SHRP2_S2-L01-RR-2.pdf

Incorporating ITS into the Transportation Planning Process: An Integrated Planning 

Framework – Parts I and II

http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_w118part1.pdf (Part I)

http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_w118part2.pdf (Part II)

Institutional Architectures to Improve Systems Operations and Management

http://onlinepubs.trb.org/onlinepubs/shrp2/SHRP2_S2-L06-RR-1.pdf

Managing Change in State Departments of Transportation, Scan 3 of 8: Innovations in 

Institutionalization of Operations

http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_w39-3.pdf

Planning for Transportation System Management & Operations (NCHRP Project 20-07(345)) 

http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP20-07(345)_FR.pdf

Strategic Transportation Systems Management & Operations program planning Lead 

States Initiative Development & Evaluation (NCHRP 20-07(365)) 

http://onlinepubs.trb.org/onlinepubs/nchrp/docs/NCHRP20-07(365)_FR.pdf

Transportation Operations Training Framework (NCHRP 20-77)

http://www.catt.umd.edu/research/transportation-operations-framework

Sample Transportation Systems Management and Operations 

Program Plans and Related Documents

Statewide Plans and Programs

Colorado Department of Transportation (DOT) Transportation Systems Management 

and Operations (TSMO) Program (2016) 

https://www.codot.gov/programs/operations

Florida Transportation Systems Management and Operations Strategic Plan (2013)

http://floridaits.com/01ITSGC/doc-TSMO/TSMO-Strategic-Plan-2013-v2.pdf

Iowa TSMO Strategic Plan and TSMO Program Plan (2016) 

http://www.iowadot.gov/TSMO/ 

Minnesota DOT Highways Systems Operations Plan 2012-2015 (2012)

http://www.dot.state.mn.us/maintenance/hsop/pdf/report.pdf

Washington State DOT Statewide Intelligent Transportation Systems Plan (2009)

http://www.wsdot.wa.gov/partners/prtpo/docs/materials/ITSPlan32409.pdf
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Regional Plans 

Delaware Valley Regional Planning Commission, TSMO Program and Transportation 

Operations Master Plan 

http://www.dvrpc.org/Transportation/TSMO/ 

Denver Regional Council of Governments, Regional Concept of Transportation 

Operations (2012) 

https://drcog.org/sites/drcog/files/resources/Regional%20Concept%20of%20Tranp%20

Operations%2008-15-12_0.pdf

North Central Texas Intelligent Transportation System (ITS) Strategic Deployment Plan (2016) 

http://www.nctcog.org/trans/its/RegITSArch/documents/ITSSDPFINALReportwithAppendix.pdf

Portland Metro Regional Transportation System Management and Operations 2010-2020 (2010)

http://www.oregonmetro.gov/sites/default/files/062010_regional_transportation_system_

management_operations_plan_executive_summary.pdf

Southeastern Wisconsin Regional Planning Commission 2012-2016 (2012)

http://www.sewrpc.org/SEWRPCFiles/Publications/mr/mr-202-reg-transportation-operationsplan-for-se-wisc.pdf
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Acknowledgements

FHWA would like to thank the following individuals for their important input and contributions 

to this document:

Erik Alm, Senior Transportation Planner, California Department of Transportation

Matt Edelman, Former Executive Director, TRANSCOM

Brad Freeze, Director, Traffic Operations Division, Tennessee Department of Transportation

Sarath Joshua, Senior Program Manager, ITS and Safety, Maricopa Association of Governments

Subrat Mahapatra, Division Chief, Maryland DOT State Highway Administration

Scott Marler, Director, Office of Traffic Operations, Iowa Department of Transportation

Laurie Matkowski, Manager, Office of Transportation Operations Management, Delaware Valley 

Regional Planning Commission


U.S. Department of Transportation

Federal Highway Administration 

1200 New Jersey Avenue, SE 

Washington, DC 20590 

Toll-Free “Help Line” 866-367-7487

https://ops.fhwa.dot.gov

September 2017

FHWA-HOP-17-017