Regional Traffic Signal 

Operations Programs:

An Overview
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1. Report No.

FHWA-HOP-09-007

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

4. Title and Subtitle

Regional Traffic Signal Operations Programs: An Overview

5. Report Date

October 2009

6. Performing Organization 

Code

7. Author(s)

Principal Investigator: Peter Koonce

Co-Authors: Kevin Lee and Tom Urbanik 

8. Performing Organization 

Report No.

Project 7372.02

9. Performing Organization Name and Address

Kittelson & Associates, Inc. 

610 SW Alder Street, Suite 700

Portland, OR 97205

Subconsultants: Science Applications International Corporation (SAIC)

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

Contract No. DTFH61-06-D-00005,

Task Order No. 4400149309

12. Sponsoring Agency Name and Address

U.S. Department of Transportation

Federal Highway Administration

Office of Operations

1200 New Jersey Ave., SE

Washington, DC 20590

13. Type of Report and Period 

Covered

Final Report

March 2006 to October 2009

14. Sponsoring Agency Code

HOP

15. Supplementary Notes

Eddie Curtis (Eddie.Curtis@fhwa.dot.gov) was the Technical Representative for the Federal Highway Administration. 

Additionally, Paul Olson of FHWA participated as support, providing comments throughout the project.

16. Abstract

This report provides an overview of practices related to developing and sustaining a Regional Traffic Signal Operations 

Program. The purpose for a Regional Traffic Signal Operations Program is to provide regional partners a formal framework to 

collectively manage the signal system performance for efficiency and consistency. A key benefit of a regional program is the 

development of projects that are of a magnitude that they can be included in a regional or state transportation improvement 

program (TIP). There are many benefits to the development of a regional traffic signal management and operations program. 

Agencies and users benefit from regional traffic signal operations programs as planners, engineers, and operators can 

provide an effective and efficient traffic signal system to the public and also provide higher levels of customer service 

without increasing costs. Additionally, by sustaining collaboration, regional operators can demonstrate to the public and 

elected officials that progress is being made on community goals, which then can be leveraged for future funding. Agencies 

and jurisdictions within a region that use a common framework for developing and establishing expectations, managing 

resources, and building relationships will result in more successful systems both individually and region-wide. 

17. Key Words

Regional traffic signal management and operations, regional programs, signal 

timing, Regional operations, transportation system management and operations, 

planning for operations, operations strategies, regional concept for transportation 

operations, Policy Based Signal Control, Maintenance and Operation of Traffic Signals

18. Distribution Statement

No Restrictions. This document is 

available to the public

19. Security Classif. (of this report)

Unclassified

20. Security Classif. (of this page)

Unclassified

21. No. of Pages

53

22. Price

N/A

Regional Traffic Signal Operations Programs:

An Overview

October 2009

U.S. Department of Transportation

Federal Highway Administration

Office of Operations

1200 New Jersey Ave., SE

Washington, DC 20590

Table of Contents

Section 1 - Introduction .............................................................................................................. 1

Section 2 - What is a Regional Traffic Signal Operations Program? .......................................... 7

Section 3 - Common Threads ......................................................................................... 25

Section 4 - Framework for a Regional Traffic Signal Operations Program....................... 29

Section 5 - Maintaining a Sustainable Regional Traffic Signal Operations Program........ 37

Section 6 - Summary ...................................................................................................... 53

Section 1

Introduction

October 2009 | 1

Introduction

Overview of the Report

In response to the 2005 and 2007 Traffic Signal Report Card, the 

FHWA initiated Regional Traffic Signal Operations peer reviews to 

take an in depth look at the practices and processes that guide traffic 

signal management. The outcome of the peer reviews are a list of 

observations and recommendations that provide a path for improving 

the management, operation and maintenance of traffic signal systems. 

The peer reviews demonstrated that there are many common issues 

for communities across the country that can be addressed through 

regional cooperation. One of the most telling is that while there is an 

understanding that there is a significant need for more funding, there 

has not been a common voice by which to request additional attention. 

The initial intent of the Regional Traffic Signal Operations Program was 

to capture proven techniques, agreements, and opportunities that can be 

used by agencies to improve what they do. This document summarizes 

the Regional Traffic Signal Management Workshop hosted for FHWA 

where common threads were discussed. These common threads 

focused on the people, the processes, and the specific activities that 

have sustained successful programs across the country. The workshop 

provided a foundation for this report. 

This report also documents other FHWA efforts that evaluate and 

characterize regional transportation management and operations and 

the importance of integrating them into the planning process. The 

overarching themes of collaboration and coordination discussed in these 

documents are essential to implementing and sustaining these broader 

“By combining 

efforts in a 

Regional Traffic 

Signal Operations 

Program, a 

common voice can 

be found.”
2 | Regional Traffic Signal Operations Programs

regional transportation system operations programs. These regional 

transportation system operations efforts consist of activities ranging 

from highway incident management to transit mobility. There are 

many potential stakeholders beyond the normal participants, including 

emergency responders, public safety, transit agencies, economic 

interests, and freight operators. A common theme that binds all of these 

stakeholders is the mission of effectively and efficiently moving people 

and goods. 

The findings from the assessments and workshop described herein 

outlines a framework for developing and sustaining a Regional Traffic 

Signal Operations Program. The elements described in this report are 

recommendations for use by managers and practitioners to improve 

the quality of traffic signal management on a regional level through 

an objective oriented process that engages stakeholders and leverages 

collaboration to achieve success.

Background

Traffic signals are an ubiquitous part of the transportation system that 

garner little attention when compared to the congestion and operational 

issues that surround freeways and highways in most medium and large 

metropolitan areas. Considering the significant impacts that traffic 

signals have on mobility, congestion, fuel consumption and climate 

change, a grade of “D” on the 2007 National Traffic Signal Report Card, 

indicates that there is significant room for improvement. An estimated 

80 percent of all traffic signals in the United States are managed, 

operated and maintained at the local agency level. There are more than 

2000 separate agencies responsible for traffic signal management and 

operation throughout the United States, with a significant percentage of 

these responsible for fewer than 50 traffic signals. Agencies that manage 

small numbers of traffic signals are very unlikely to have staff with a 

proficient level of technical expertise to effectively manage and operate 

traffic signals. This becomes even more problematic in an environment 

where little documentation and training resources exist to guide these 

activities. These smaller agencies also lack the political support needed 

for an effective program.

While decentralization of public services to the local agency level 

is normal in the United States it has had a negative effect on the 

management, operation, and maintenance of traffic signals. Without 

the expertise to adequately assess the needs of traffic signal systems, 

agencies typically focus primarily on maintenance and by default 

forgo many operational enhancements that could greatly improve the 
October 2009 | 3

traffic signals. Proactive management and operation of traffic signals 

maximizes surface street capacity, which has the potential effect of 

offsetting the need to add capacity through costly construction activities. 

An aging and retiring workforce is quickly depleting the expertise 

available to manage traffic signal systems, and the point of diminishing 

returns has been reached in terms of work force reduction and 

technology enhancements. A number of agencies have realized that 

a collaborative environment of regional traffic signal management, 

operation, and maintenance can leverage strengths and minimize 

organizational weaknesses. The people, processes, and procedures 

related to traffic signal management can be greatly enhanced by 

focusing priorities and establishing relevant objectives that benefit the 

region.

Regional Traffic Signal Operations Programs are not a new concept. 

Recently, a diversity of organizational structures, institutional 

arrangements, training programs, and collaborative resource sharing 

has resulted in better management, operation, and maintenance 

practices for traffic signal systems, which benefit the entire 

transportation network. Because traffic signals are typically located in 

areas with a significant number of users, their impact on mobility can 

be significant if not operated well.

In an era of shrinking budgets and limited resources, agencies have 

recognized the opportunity to make improvements by leveraging 

their strengths and the needs of partner agencies to increase customer 

service, enhance operations and maintenance activities, and improve 

the training and professional development of their staff. Integrating 

management and operations into the planning process allows a region 

to maximize the potential benefits of transportation investments. With 

respect to traffic signal systems, the regional portion of the program 

seeks to increase cooperation and communication among partner 

agencies to provide effective management, operations, and maintenance 

of traffic signals within a region. 

Improving the operation of traffic signals involves much more than 

periodically updating signal timing. Active signal management is 

the outcome of supporting the people, process, and programs that 

manage, operate, and maintain the system. This requires establishing 

specific and measurable objectives. The case studies presented in this 

document highlight the common and critical elements that are essential 

to developing, implementing, and sustaining regional traffic signal 

operations programs.

The Congestion 

Management Process is 

required to be developed 

and implemented as 

an integral part of the 

metropolitan planning 

process in Transportation 

Management Areas (TMAs) 

– urbanized areas with a 

population over 200,000.

The eight steps involved 

in the Congestion 

Management Process 

include relevant activities 

that are directly related to 

traffic signal operations.
4 | Regional Traffic Signal Operations Programs

“A Regional 

Traffic Signal 

Operations 

Program can be 

accomplished 

though 

interagency 

agreements 

where multiple 

agencies share 

responsibilities.”

Traffic Signal Management is the planning, design, integration, 

maintenance, and proactive management of a traffic signal 

system in order to achieve policy based objectives to improve 

the efficiency, consistency, safety, and reliability of the traffic 

signal system. This includes the design and maintenance of 

timing parameters for the traffic conditions as well as the 

maintenance of the equipment. Traffic signal systems include 

a wide variety of subsystems, such as traffic signal displays, 

traffic signal controllers, detection systems, data-collection and 

archiving, surveillance and monitoring, and telecommunications. 

By extending this across jurisdictional boundaries and 

cooperating amongst agencies, there can be effective 

collaboration to improve service quality by sharing experiences 

and planning to address future needs.

This document is one step in introducing and framing the concept 

of Regional Traffic Signal Operations Programs. Subsequent work 

is planned to develop additional resources and tools to facilitate the 

implementation of comprehensive regional programs. These will address 

multimodal, intermodal, and cross-jurisdictional systems, services, and 

projects designed to preserve capacity and improve security, safety, and 

reliability of the transportation system. 

Definition of Traffic Signal Management
October 2009 | 5

FHWA Traffic Signal Operations Reviews

The FHWA Resource Center Operations Technical Service Team has 

conducted Regional Traffic Signal Operations Reviews in thirteen 

regions throughout the United States, including Puerto Rico. 

These reviews have focused on benchmarking current traffic signal 

management practices and providing recommendations to advance 

traffic signal operations in the region. A primary recommendation that 

has emerged from all thirteen of the reviews is that funding for traffic 

signal management and operations is inadequate and could be improved 

through regional collaboration and management of the traffic signal 

system. In each region the MPO has taken a lead role in the development 

of a Regional Concept of Transportation Operations (RCTO) and 

provides a framework for regional partners to articulate objectives, 

performance measures, strategies, and agreements that improve traffic 

signal management and operations. By grouping traffic signal projects 

from multiple jurisdictions and demonstrating how collaboration 

enhances consistency, reduces redundancy, and improves the quality of 

traffic signal timing, a strong case is made for investing resources into a 

sustainable, Regional Traffic Signal Operations Program. 

The RCTO framework allows operators and planners to discuss how 

improvements and a collaborative operation of the traffic signal system 

lead to regional benefits. These can be measured physically with reduced 

air pollution and delay fuel consumption as well as with institutional 

benefits that improve the productivity of the organizations involved in 

the day–to-day management of traffic signal systems. Safety benefits are 

also evident as a result of Regional Traffic Signal Operations Programs 

by promoting consistency and adding a level of accountability in how 

traffic signals are designed, operated, and maintained.

 Denver, Colorado - Denver Regional Council of Governments (DRCOG) 

 Kansas City, Missouri – Mid America Regional Council (MARC)

 Las Vegas, Nevada – Regional Transportation Commission of Southern Nevada (RTC) 

 Puget Sound, Washington – Puget Sound Regional Council (PSRC)

 Reno, Nevada – Washoe County Regional Transportation Commission (RTC)

 Tucson, Arizona – Pima Association of Governments (PAG)

 Los Angeles, California – Los Angeles County Metropolitan Transportation Authority (METRO)

Model Regions for Regional Traffic Signal Operations Programs
6 | Regional Traffic Signal Operations Programs

Consideration of regional traffic signal management and operations 

strategies in the metropolitan planning process has produced significant 

benefits to transportation system users and operating organizations 

within the region. Regional training programs, outreach, maintenance, 

management and operational benefits have resulted from Regional 

Traffic Signal Operations Programs. The programs are cost effective 

and low cost relative to infrastructure and capacity expansion projects 

that have long been a staple of the metropolitan planning process. A 

future of even more tightly constrained transportation budgets, fewer 

infrastructure projects, and a focus on retrofitting and maintaining 

current infrastructure is fertile ground for regional traffic signal 

management.

Purpose of a Regional Traffic Signal Operations 

Program

The purpose of a regional program is to provide partner agencies a 

formal framework to discuss issues, plan for improvements, and share 

experiences. By working across traditional jurisdictional boundaries, 

the agencies can provide higher levels of customer service through 

more objective oriented actions that consider the regional impacts of 

local activities. The concept of linking activities amongst agencies is 

consistent with the direction of Metropolitan Planning Organizations 

(MPOs), which lead to projects of a magnitude that they can be 

considered as a part of the Transportation Improvement Plan (TIP). 

Regional relationships also result in shared experiences that lead to 

improved practices and efficiencies in standard functions without 

increasing costs. Additionally, by sustaining collaboration, regional 

operators can demonstrate to the public and elected officials that 

progress is made toward meeting community goals, which can be 

leveraged for additional funding. Agencies and jurisdictions within a 

region that use a common framework for developing and establishing 

expectations, managing resources, and building relationships will 

result in more successful systems both individually and region-wide.
Section 2

What is a Regional 

Traffic Signal 

Operations Program?

October 2009 | 7

What is a Regional Traffic Signal 

Operations Program? 

A Regional Traffic Signal Operations Program is a specific component 

of the broader program of Regional Transportation Operations 

Collaboration and Coordination1

, which makes the case to achieve 

safe, reliable, and secure transportation. This introductory document 

encourages and enables regional operations collaboration for 

transportation managers and public safety officials from states, counties, 

and cities within a metropolitan region. These managers and officials 

include traffic engineers, planners, transit operations, police, fire, and 

other emergency services, and port authority (e.g., air and water) 

managers. The primer can help these managers and officials understand 

what regional operations collaboration and coordination means, why it 

is important, and how to get started. In many cases, this document will 

also help those agencies currently engaged in some aspects of regional 

operations build on what they are already doing and expand it to 

include a focus on traffic signals. 

Why a Regional Program?

Public agencies responsible for operation and management of traffic 

signals have limited resources and staff redundancy to guarantee 

continuity over time. In many cases, the expertise of traffic signal 

operations is found in one or two people, who are difficult to replace. 

This is especially true in smaller agencies. For this reason, collaboration 

across agencies may provide a critical mass of both infrastructure and 

staff required to effectively manage the system. 

The benefits agencies can realize from participating in multi-agency 

collaborative efforts are adequately described in the FHWA document 

entitled: The Collaborative Advantage: Realizing the Tangible Benefits of 

Regional Transportation Operations Collaboration. This reference manual 

provides a six-step process to allow agencies to estimate their benefits 

of collaboration. 

Regional collaboration offers significant benefits, and this report 

focuses on overcoming the barriers that hinder regional traffic signal 

operations programs. These barriers are not technological but rather 

1 Regional Transportation Operations Collaboration and Coordination – A Primer for Working Together to Improve 

Transportation Safety, Reliability, and Security, U.S. Department of Transportation, http://www.itsdocs.fhwa.dot.gov/

jpodocs/repts_te/13686.html
8 | Regional Traffic Signal Operations Programs

institutional, organizational, and budgetary. Diminishing resources 

both hinder and necessitate the cohesiveness of traffic signal systems. 

However, specific examples of benefits include:

 Operating agencies increase access to funding by 

participating in joint funding applications.

 Agencies undertake larger, more technologically advanced 

projects by leveraging their expertise and resources with 

other agencies.

 Participating agencies help meet regional goals to reduce 

delay, fuel consumption, and emissions through coordinated 

initiatives, such as signal timing programs.

 Partners share communications assets to save resources 

and raise their collective ability to manage traffic on a 

regional level.

 Multi-agency collaboration has enabled the creation of joint 

dispatching that has resulted in decreased response time to 

requests for field assistance from partnering agencies.

Previous documents highlight the benefits of cross-jurisdictional 

coordination2

 and showcase regional strategies with case studies3. This 

document is intended to provide a framework for partner agencies to 

identify regional traffic signal management operational and maintenance 

policies and objectives and to establish regional priorities, activities, and 

performance measures that result in the achievement of those objectives. 

2 Cross-Jurisdictional Signal Coordination Case Studies, U.S. Department of Transportation, February 2002, http://

www.itsdocs.fhwa.dot.gov/jpodocs/repts_te/13613.html

3 Cross-Jurisdictional Signal Coordination In Phoenix And Seattle Lessons Learned from the Metropolitan Model 

Deployment Initiative (FHWA-OP-01-035) (2001), http://www.itsdocs.fhwa.dot.gov/jpodocs/repts_te/13222_files/13222.

pdf
October 2009 | 9

While there are many examples, the process within the Coordinated 

Freeway and Arterial Operations Handbook4 will be used here because 

of the close link of arterial (and network) operations in general to the 

specific application of regional traffic signal management and operations. 

Regional Traffic Signal Operations puts the available elements together 

into an integrated package that maximizes system performance from the 

users’ perspective. 

 Resource integration, allocation, and management;

 Information documentation and exchange;

 Equipment sharing;

 Pooled funding; 

 Personnel training, development, and integration;

 Systems integration; and,

 Institutional integration.

4 Coordinated Freeway and Arterial Operations Handbook, U.S. Department of Transportation, May 2006, http://

tmcpfs.ops.fhwa.dot.gov/cfprojects/uploaded_files/06095.pdf

Critical Elements Among Regional Stakeholders
10 | Regional Traffic Signal Operations Programs

Integrating the Planning Process in the 

Development of a Regional Traffic Signal 

Operations Program

The federal aid transportation planning process is an important method 

to secure funding for management and operations, including traffic 

signal system. The Transportation Planning Process Key Issues: A Briefing 

Book for Transportation Decisionmakers, Officials, and Staff provides a 

framework for securing funding. This process is not one that can be 

tapped for immediate implementation, but is one that can be used, once 

its requirements are met, for ongoing funding.

The process centers on the Metropolitan Planning Organization (MPO) 

whose roles include:

Establish a setting: Establish and manage a fair and impartial setting for 

effective regional decision making in the metropolitan area.

Identify and evaluate alternative transportation improvement 

options: Use data and planning methods to generate and evaluate 

alternatives. Planning studies and evaluations are included in the 

Unified Planning Work Program or UPWP.

Prepare and maintain a Metropolitan Transportation Plan (MTP): 

Develop and update a long-range transportation plan for the 

metropolitan area covering a planning horizon of at least twenty years 

that fosters (1) mobility and access for people and goods, (2) efficient 

system performance and preservation, and (3) good quality of life.

Develop a TIP: Develop a short-range (four-year) program of 

transportation improvements based on the long-range transportation 

plan; the TIP should be designed to achieve the area’s goals, using 

spending, regulating, operating, management, and financial tools.

Involve the public: Involve the general public and other 

affected constituencies in the four essential functions listed 

above.

The key issues are for the Regional Traffic Signal 

Operations Program to become part of the MTP and the 

TIP. The Regional Traffic Signal Operations Program needs 

to be included in the MTP in order to facilitate the funding 

of the program. FHWA has published Management & 

Operations in the Metropolitan Transportation Plan: A 

Guidebook for Creating an Objectives-Driven, Performance-

“A region is considered 

to be any 

multi-jurisdictional 

area defined by the 

collaborative partners.”
October 2009 | 11

Based Approach -- Interim Draft5. This guidebook is designed to provide 

a basis on which to integrate transportation system management and 

operations into the metropolitan transportation planning process and to 

assist MPOs in meeting federal requirements under SAFETEA-LU. This 

calls for integration of management and operations strategies, including 

traffic signals, into the MTP. It highlights effective practices that 

result in an MTP with a more optimal mix of infrastructure and 

operational strategies, founded on the inclusion of measurable, 

performance-based regional operations objectives.

A Regional Traffic Signal Operations Program that builds 

on the regional planning process will build the institutional 

support and funding necessary for a successful program. 

This would be done by developing a Regional Concept of 

Transportation Operations, which is covered in Regional Concept for 

Transportation Operations: The Blueprint for Action6

.

 A Regional 

Concept for Transportation Operations is a management tool to assist 

in planning and implementing management and operations strategies 

in a collaborative and sustained manner. Developing an RCTO helps 

partnering agencies think through and reach consensus on what they 

want to achieve in the next 3 to 5 years and how they are going to get 

there. A foundational concept presented in the RCTO is the need for 

developing SMART Objectives. 

5 Management & Operations in the Metropolitan Transportation Plan: A Guidebook for Creating an ObjectivesDriven, Performance-Based Approach Interim Draft, U.S. Department of Transportation, http://ops.fhwa.dot.gov/

publications/moguidebook/moguidebook.pdf

6 Regional Concept for Transportation Operations: The Blueprint for Action, U.S. Department of Transportation, 

http://ops.fhwa.dot.gov/publications/rctoprimer/index.htm

An RCTO is a management tool used 

to assist in planning and implementing 

management and operations strategies 

in a collaborative and sustained manner.

Specific: It provides sufficient specificity to guide formulation of viable approaches to achieving the 

operations objective without dictating the approach.

Measurable: It is measurable in terms that are meaningful to the partners and users. Tracking progress 

against the operations objective provides feedback that enables the partners to assess the effectiveness 

of their actions. An operations objective is chosen that is measurable within the partners’ means.

Agreed: Necessary for the development and implementation of the RCTO, partners come to a consensus 

on a common operations objective.

Realistic: The participants are reasonably confident that they can achieve this operations objective within 

resource limitations and institutional demands. Because this cannot be fully evaluated until the approach 

of the RCTO is defined, the partners may need to iteratively 

adjust the operations objective once the approach of the RCTO is determined.

Time-bound: Partners specify when the operations objective will be achieved. This promotes efficiency 

and accountability. 

SMART Objectives
12 | Regional Traffic Signal Operations Programs

The RCTO formalizes the collaboration and defines its direction 

for the future, essentially “getting everyone on the same page.” By 

implementing an RCTO, partners put into action within 3 to 5 years 

operations strategies that will be sustained over the long term. The 3- to 

5-year timeframe allows for many management and operations strategies 

to be implemented while keeping the RCTO tool responsive to current 

system performance needs. Additionally, the timeframe offers a middle 

ground between traffic signal operators who are focused on day-to-day 

activities and planners who are looking out 20 to 25 years.

Within any given region, there may be multiple RCTOs that focus on 

different operations functions or services. For the purposes of an RCTO, 

a region is considered to be any multi-jurisdictional area defined by 

the collaborative partners. That area may or may not coincide with the 

boundaries of a MPO. An RCTO focuses on operations objectives and 

strategies within one or more management and operations functions of 

regional significance, including traffic signals. The collaborating partners 

develop the RCTO to advance traffic signal management in their region 

and are driven by operations objectives that reflect regional expectations 

and opportunities. The partners may be motivated by a growing 

awareness of diminishing levels of service, a mandate from officials, or 

shortage of resources.

The goal of planning at the regional level is the development of 

consistent policies and objectives for traffic signal maintenance and 

operations throughout the region. Such activity developed and 

supported by key stakeholders in all affected agencies would be more 

likely to gain the approval of key decision makers responsible for 

funding. Once funding and resources have been harnessed, plans and 

procedures for specific activities can be developed. This may include 

resources to develop plans, document procedures, or implement projects 

on specific arterials. It may also include projects of a regional nature that 

would solve a host of issues globally for more than one agency, reducing 

repetition that would occur if agencies addressed the issues individually. 
October 2009 | 13

The RCTO provides a framework to connect operations to the 

transportation planning process offers benefits for planners who are 

interested in advancing cost-effective strategies to improve regional 

transportation system performance and operations-oriented partners 

who are seeking regional support for their joint efforts. An RCTO is 

one opportunity among several to link transportation planning and 

investment decision making to transportation system management and 

operations, as illustrated below.

Exhibit 1 Linking Planning to Operations7

By linking to the planning process, partners can gain recognition within 

the region for operations and increase credibility with elected leaders 

whose support may be crucial in advancing operations. RCTO partners 

can ground their work in formally established regional needs, goals, 

and objectives. Additionally, they can increase the stability of their 

partnership by selecting the MPO to be an impartial and long-term 

host for the collaborative development and implementation of their 

RCTOs. RCTO partners may also be able to influence the selection of 

performance measures and data collection procedures used during 

regional planning to better track the progress toward the RCTO 

operations objective. 

Funding for traffic signal system improvement, including management 

and operations, typically comes from local sources. Local funding 

sources are extremely competitive and traffic signal projects compete 

with virtually every type of capital project, including repaving, water 

and sewer projects, education, and public safety. Given the competitive 

funding environment at the local level, traffic signals do not typically 

fare well in the absence of a strong champion or transportation lobby. 

7 U.S. Department of Transportation, FHWA, Getting More By Working, Together Opportunities for Linking Planning 

and Operations, (Washington, DC, 2004) . 
14 | Regional Traffic Signal Operations Programs

State and federal funding for traffic signal management and operations 

is an alternative that is seldom pursued because it is perceived as a 

complex process and is riddled with institutional issues, such as the 

following:

 Management and operations needs are planned at the 

local level on a short-term basis of 0 to 3 years, while 

planners evaluate transportation infrastructure needs 

over a longer term of 20 to 30 years oriented towards 

major capital investment.

 There is difficulty demonstrating the benefits of traffic 

signal management and operations in terms that are 

understood by transportation planners and elected 

officials who approve the TIP, which feeds into the 

Statewide Transportation Improvement Program (STIP).

 There is limited understanding at the local level of the 

eligibility requirements for state and federal funds and 

how they are allocated and distributed.

Federal funding opportunities for management and operations do exist; 

however, state and local funding processes often make it difficult to 

allocate funds for traffic signal management and operations by creating 

separate categories of funds for capital and maintenance (operations is 

typically classified as a maintenance activity) expenses. The eligibility 

requirements and allocation of state funds is beyond the scope of this 

document as the process is not uniform across all states. Eligibility 

requirements for federal funds are outlined in Title 23 - Code of Federal 

Regulations. In TEA-21 and SAFETEA-LU, the Federal-aid Highway 

Program continued eligibility for federal funding of operating costs for 

traffic monitoring, management, and control systems from National 

Highway System and Surface Transportation Program funding. For 

projects located in air quality non-attainment and maintenance areas, 

and in accordance with the eligibility requirements of 23 USC 149(b), 

Congestion Mitigation and Air Quality Improvement Program funds 

may be used for operating costs for a 3-year period, so long as those 

systems measurably demonstrate reductions in emissions. Operating 

costs include labor costs, administrative costs, costs of utilities and rent, 

and other costs associated with the continuous operation of the system, 

such system maintenance costs,.
October 2009 | 15

Traffic signal operations projects that are eligible for these other sources 

of funding must be included on the STIP. The STIP identifies the 

funding for, and scheduling of, transportation projects and programs 

and includes projects included in local Metropolitan Transportation 

Improvement Plans (MTIP). It is very unlikely that a single local 

jurisdiction’s traffic signal management and operations project would 

be elevated for inclusion on the STIP. By taking a regional approach, 

a program may successfully elevate the status of these projects for 

inclusion on the STIP and hence federal funding. Examples of these 

funding sources are provided in Exhibits 2 and 3.

Exhibit 2 Federal Transportation Programs and Revenue Sources Administered by 

FHWA relevant to Regional Traffic Signal Management 

Major Transportation Program Federal Revenue Source

Interstate Maintenance

National Highway System

Congestion Mitigation and Air Quality Improvement (in air 

quality non-attainment and maintenance areas)

Surface Transportation Program (includes transportation 

enhancements and planning funds)

Highway Safety Improvement Program

High Priority (Demonstration) Projects

Intelligent Transportation Systems

Highway Trust Fund with 

funds from federal:

- Motor Fuel Tax 

- Truck and Trailer Tax

- Tire Tax

- Heavy Vehicle Use Tax

Exhibit 3 Major Federal-Aid Highway Programs under SAFETEA-LU Eligible for 

Regional Traffic Signal Management

Program Eligible Uses

Congestion Mitigation and Air Quality A wide range of projects in air quality nonattainment 

and maintenance areas for ozone, carbon monoxide, and 

small particulate matter, which reduce transportationrelated emissions

Interstate Maintenance Resurfacing, restoring, and rehabilitating routes on the 

IHS, but no new capacity except HOV or auxiliary lanes in 

nonattainment areas

National Highway System (NHS)

Interstate routes, major urban and rural arterials, 

connectors to major intermodal facilities, national 

defense network. Fifty percent of NHS funds can be 

freely flexed to STP; 100% with US DOT approval

Surface Transportation Program (STP)

Broad range of surface transportation capital needs, 

including many roads, transit, sea, and airport access, 

vanpool, bike, and pedestrian facilities
16 | Regional Traffic Signal Operations Programs

The Metropolitan Planning Process

Metropolitan Transportation Planning and Programming requirements 

are outlined in the Federal Code of Regulations Title 23 Part 450. 

Each state is required to implement a continuing, comprehensive and 

intermodal statewide transportation planning process that includes the 

development of a STIP. The legislation mandates the formation of a 

MPO for each urbanized area within a state and that these organizations 

develop a TIP for their area. Consensus is built between the MPO(s), 

state DOT and regional stakeholders to reach agreement on the 

statewide plan, approved by the governor of each state. Eligibility for 

federal funding is contingent on a project’s inclusion in the STIP. Some 

MPOs have included traffic signal timing and operations as line items in 

the TIP without designating funding levels. This allows an opportunity 

to allocate funds to these activities should delays or other factors free up 

funding from other capital projects. 

Opening funding avenues for operations from sources such as the 

Congestion Mitigation and Air Quality (CMAQ) Improvement Program, 

Surface Transportation Program (STP), and state, regional, or local tax 

programs is a compelling reason to link regional traffic signal operations 

activities to the planning process. The ability of RCTO partners to 

apply and receive funding in the near term depends 

on the flexibility of the planning organization to 

allocate funding for traffic signal management and 

operations projects. All projects need to be part of 

the MTP in order to be eligible for funding through 

the metropolitan planning process. In many regions, 

obtaining funding within one to two years is very 

difficult because all available funding is designated 

for specific projects many years in advance. In those 

cases, partners may choose to work to establish 

funding options for future management and 

operations projects while implementing an RCTO in 

the near term that relies on available resources and 

technology. 

Examples

Pima Association of Governments (PAG)

The process used in the Regional Concept for Transportation Operations 

(RCTO) for the Tucson, Arizona metropolitan region include activities to 

identify the process described in the following section. 
October 2009 | 17

The following are the steps are used by PAG:

Step 1: Establish Operations Objectives (Mission 

and Vision for a Regional Concept for Operations)

The first step in the RCTO development process is 

to develop a vision that guides the remainder of 

the RCTO development process. The vision was 

developed through a brainstorming workshop 

with RCTO stakeholders. An important purpose 

of the Vision is to help other stakeholders, 

including agency executives and elected officials, 

to understand the purpose and nature of the 

PAG RCTO. In conjunction with the visioning 

process, a PAG RCTO Handout was prepared for 

distribution to agency executives and stakeholders. 

The Handout provides background and definition 

of the RCTO, discusses existing coordination and 

collaboration activities, and presents a Vision 

Statement for the PAG RCTO. The Handout 

material is presented in Chapter 3 of this report.

Project activities can be separated into two phases: Focus and Assessment, and Action 

Plans. This is illustrated in Exhibit 4. 

The first phase, Focus and Assessment, includes the following steps:

 Establish Operations Objectives and Vision.

 Document Existing Polices, Practices, and Procedures and Existing 

Institutional Relationships.

 Establish Operations Goals.

 Establish Performance Measures.

The second phase, Planned Activities, includes the following: 

 Develop Action Plans that are needed to Achieve Operational Goals. The 

Action Plans include the following:

o Identify Necessary Institutional Arrangements and Relationships

o Identify Resources Required for Implementation.

 Begin implementation of the Action Plans.

 Measure Operations against performance.

Exhibit 4 RCTO Project Activity Phases for the 

Pima Association of Governments

Example of RCTO – Pima Association of Governments
18 | Regional Traffic Signal Operations Programs

Step 2: Document Policies, Practices, Procedures and Existing 

Institutional Relationships in the Region

The second step in the RCTO development process is to conduct 

an inventory and compilation of existing transportation operations 

policies, procedures, practices, and resources of the member agencies 

as they relate to surface transportation system operations. This step 

focuses on the operational areas of traveler information, work zone 

management, arterial operations, freeway operations, and incident 

management. This task is instrumental to identifying the members of 

the “regional operations table” as well as establishing needs related to 

specific operations areas. 

Step 3: Establish Operational Goals and Performance Measures

The process of defining Operations Objectives narrows the focus of the 

PAG RCTO to how arterial management, traveler information, work 

zone management and incident management need to be approached 

on a regional level and how they fit into the TIP process. In order to 

incorporate the TIP process into the RCTO, and mainstream operations 

into the traditional planning process, aspects of the Operations 

Objective extend into the 5 to 10 year range.

Step 4: Establish Performance Measures 

Once the operations objectives are established, qualitative or 

quantitative performance measures are defined for each operations 

objective. The process of defining performance measures 

simultaneously with the operations objectives serve as a check that the 

operations objectives are specific and measurable utilizing existing or 

easily attainable data.

Step 5: Develop Action Plans to Achieve Operations Objectives

The next step in the RCTO development process is to develop specific 

Action Plans for each RCTO operations area. Action Plans identified 

new practices, or modifications to existing practices and procedures, 

that are needed to achieve the operations objectives. A desired 

outcome of developing Action Plans is that local agencies can modify 

some of their existing practices and activities to consider the regional 

operations goals and objectives.
October 2009 | 19

Institutional Relationships: The Action Plans include discussion of 

the institutional relationships that are needed to achieve the operations 

objectives. Institutional arrangements are often the key component 

of an operations concept that determines the success or failure. 

While engineers are able to overcome most any technical challenge, 

developing sound relationships (including intergovernmental 

agreements) are many times the most challenging aspect of a project. 

A primary consideration in identifying required institutional 

relationships is to recognize the relationships that are already in place 

and are working well. Stakeholders emphasize that they do not want to 

create new institutional layers or regional forums, as existing forums 

in the PAG region already provide a solid, established foundation for 

addressing regional transportation operational issues. As an example, 

a key component of the existing institutional framework already in 

place is the PAG Transportation Systems Subcommittee (TSS). This 

group brings decision-makers and practitioners together in forums that 

are dedicated to planning and operating the transportation system. 

A second important consideration in the recommendation of 

institutional relationships is to capitalize on existing joint operating 

agreements. As an example, the Tucson region already jointly operates 

the traffic signal system. As another example, the Arizona Department 

of Transportation (ADOT) has established a multi-agency freeway 

management system with open coordination and contributions from 

several stakeholder groups. Furthermore, statewide and regional signal 

system procurement and Intelligent Transportation System (ITS) oncall consulting services contracts exist that allow multiple agencies 

to procure ITS equipment or consulting services through a common 

procurement effort.

Document Roles and Responsibilities: The Action Plans document 

specific roles and responsibilities for activities that are required to 

achieve the operations objectives. This includes general roles and 

responsibilities of local agencies and jurisdictions for planning, 

implementation, and operations activities related to the Action Plan.

Within each Action Plan, where feasible, a ‘champion’ structure is 

identified to guide the implementation of the Action Plan. As an 

example, the PAG Transportation Systems Subcommittee is identified 

to champion a Regional Traffic Signal Operations Program with 

oversight on the program’s focus areas, implementation and funding. 

The subcommittee is guided by PAG staff and seeks to establish a 

working group to guide program activities and work out details 

associated with the program’s coverage. While actual signal timing 
20 | Regional Traffic Signal Operations Programs

plans are not developed by PAG staff nor the subcommittee, staff and 

the working group are responsible for overseeing the administration 

of the program and working to ‘elevate’ the issue within the regional 

transportation community, and to facilitate the allocation of resources 

to develop and update signal timing plans. PAG staff or an identified 

individual from the working group update the TSS, perhaps on a bimonthly basis, concerning recent activities relating to the Action Plan.

Resources Required: The PAG RCTO identifies the resources necessary 

to successfully implement each Action Plan. Identified resources range 

from physical improvements, such as TMC facilities, ITS infrastructure 

and equipment, or staffing to adequately operate the devices and field 

equipment. A critical element of this step is to identify operationsoriented projects that should be included in the PAG TIP or that can 

be pursued through the Regional Transportation Authority (RTA) 

Plan funded by regional sales tax dollars. The PAG TIP provides an 

opportunity to include specific projects that provide measurable and 

operational benefits. Although the TIP is on a five-year schedule, 

agencies need to begin submitting high priority operational projects 

for consideration. Stakeholder agencies have recognized that coming 

together to coordinate transportation operations has provided 

advantages to acquiring highly competitive TIP funds for Action Plan 

initiatives. Multi-agency programs, such as those identified through the 

RCTO process, are seen as high priorities across the region.

Step 6: RCTO Implementation Activities

Some elements of the RCTO Action Plans allow for immediate 

implementation. Others, particularly those that require significant 

funding, are implemented as funding becomes available. During the 

later part of the RCTO development effort, implementation began in 

the areas of Traveler Information and Work Zone Management. 
October 2009 | 21

Other Examples

The Denver Regional Council of Governments (DRCOG) established 

their program within the TIP to create funding pools for ITS or arterial 

traffic signal systems. Their program has allowed agencies to apply for 

and obtain funding in the near term for specific projects within those 

areas that have recently been defined. 

In the Phoenix, Arizona area, a collaborative regional traffic signal 

optimization initiative in the region’s RCTO was funded through the 

Maricopa Association of Governments (MAG) with CMAQ funds 

that became available for programming during the TIP closeout 

process. The success of the initiative caused the MPO to become very 

supportive of the regional signal timing program, and it will likely 

become a permanent part of the MPO work program. The Maricopa 

County Department of Transportation in Arizona provides Highway 

User Revenue Funds through its TIP to support an arterial incident 

management initiative outlined in the region’s RCTO. 

Additionally, the Hampton Roads, Virginia, region decided that more 

flexibility was needed in funding ITS and operations projects so it 

created a line item in the metropolitan transportation plan for these 

projects. Agencies can apply for CMAQ and regional STP funds for 

management and operations projects in the near term during the 

development of the TIP.
22 | Regional Traffic Signal Operations Programs

Summary 

Operations issues that can be addressed and resolved at a regional level 

through policies, agreements, and plans include:

 Optimization and coordination of signals within and between 

agencies, such as state, local, county, and transit;

 Optimization and coordination of traffic signals with highway 

systems, such as interchange ramp termini and ramp metering;

 Altering arterial signal timing during freeway and arterial 

incidents;

 Sharing data on arterials during performance measure reporting, 

freeway and arterial incidents, and traveler advisories;

 Sharing maintenance practices and resources;

 Communication to both the public and elected officials with a 

consistent message;

 Documentation of practices and procedures; and,

 Training and development opportunities.

In addition to developing common regional-level operations policies, 

agreements, and plans, a traffic signal management and operations 

program could identify and address a number of other issues. Other 

tasks include the following:

 Establish different objectives and policies for varying arterial 

types, such as arterials within central business district or 

downtown, suburban, and rural areas. Objectives may vary 

depending on the type of land uses, travel patterns, travel 

speeds, and vehicle characteristics. An operations program 

should address these variations to maintain regional consistency.

 Establish a regional working group comprised of key 

stakeholders and a champion to lead the group in being 

responsible for traffic signal management and maintenance 

within the region.

 Develop the vision, goals, objectives, and performance measures 

for traffic signal management and operations in the region. 

 Develop a regional traffic signal management concept of 

operations to identify high-level policies and plans needed to 

support plans and procedures for individual arterials. Such highlevel policies should include:

o Balancing major street throughput and average network/

intersection delay;

o Vehicle clearance times (yellow and all red);

o Left-turn movement treatments (leading, lead-lag, lagging);
October 2009 | 23

o Pedestrian treatments (rest in walk, leading walk, recall, 

clearance times, etc.);

o Signal timing monitoring and plan updates; and,

o Intersection hardware maintenance. 

 Identify information and resource sharing needs on a regional 

level (e.g., identifying whether local agencies need to access 

and view freeway detector and closed circuit television [CCTV] 

cameras) for the purpose of traffic signal management and 

maintenance.

 Propose technology and ITS needs to support corridor traffic 

signal management and maintenance at a regional level.

 Assess and establish engineering and maintenance staffing 

needs and qualifications. 

While a formal regional-level plan is desirable, it is not a requirement 

before developing plans and procedures for individual arterials. The 

benefits to developing a regional plan include:

 Resolving many of the institutional barriers on a regional level 

before proceeding to developing plans for individual arterials;

 Gaining region-wide consensus on the general approach and 

planning for traffic signal management and operations in the 

region;

 Gaining the support of key decision 

makers responsible for funding decisions 

in the region;

 Cost savings through addressing regional 

operations issues just once rather than 

multiple times when developing plans 

and procedures for individual arterials;

 Cost and time savings by early 

identification on what policies and 

agreements will be needed before 

proceeding to develop plans for individual 

arterials; and,

 Providing and maintaining a consistent 

message to the public.

Some smaller regions may determine that the upfront cost of preparing 

a formal regional corridor management plan may outweigh the benefits 

listed above. For example, a region with one arterial may not need a 

formal regional traffic signal management and maintenance plan and 

could proceed directly to developing plans and procedures for that 

individual arterial.
24 | Regional Traffic Signal Operations Programs

After developing a regional traffic signal management plan, the 

region would have institutional structures in place, consensus by 

regional stakeholders, policies and plans to support traffic signal 

management and operations, a prioritized list of arterials warranting 

individual plans, and the resources identified to develop and operate 

individual arterial implementation plans. The next section discusses a 

recommended framework for development and operation of individual 

arterials.
Section 3

Common Threads

October 2009 | 25

Common Threads

Regional Traffic Signal Operations Programs are unique in how they 

start, evolve, and sustain themselves. There is no one formula on how 

to start or develop a Regional Traffic Signal Operations Program. 

However, one common thread between successful programs is that 

stakeholders are committed to the program goals and objectives 

and have an interest in improving by cooperation. Without this 

commitment, a regional program cannot succeed. 

Commitment to cooperation goes beyond contributing and 

participating. Commitment is likely the biggest hurdle for any Regional 

Traffic Signal Operations Program. This requires a change in approach 

and philosophy from each stakeholder. One element of getting 

everyone on the same agenda is through the development of “SMART” 

objectives8

. Objectives are specific, measurable statements relating to 

the attainment of goals. Regional Traffic Signal Management objectives 

should be multi-jurisdictional in nature. 

A review of successful programs indicates there are similar 

characteristics within the program’s approach that has allowed 

stakeholders to commit. These characteristics include a culture of 

collaboration, informal partnerships, regional organizations, and 

regional resource allocation. Successful programs experience an 

evolution of these elements in different ways, but there are 

evident transitions of regional objectives and collaborations 

from an informal level to a structured collaboration and 

then to a mainstreamed program. The following sections 

describe each of the elements and how they are necessary to 

a successful regional transportation operations program.

Creating a Culture of Cooperation

Success in a regional program is aided by a culture where 

stakeholders are committed to working together for 

mutually beneficial transportation operations. The necessary 

culture is likely to necessitate change, and a change to any 

culture is challenging and takes time. The culture is created 

by champions who see issues that are common across 

agencies and seek to reach across agency boundaries to 

improve. 

The FHWA Traffic Signal Operations 

Peer Review Program has been 

instrumental in facilitating a 

cultural shift, helping agencies that 

recognize there has not been a 

common voice by which to request 

additional attention to traffic signal 

operations issues.

Similar to what occurs in the 

military related to joint exercises, 

collaboration and commitment to a 

regional program has to go beyond 

superficial efforts.

8 Management & Operations in the Metropolitan Transportation Plan: A Guidebook for Creating an 

Objectives-Driven, Performance-Based Approach, Federal Highway Administration, FHWA-HOP-08-007, November 

2007.
26 | Regional Traffic Signal Operations Programs

Champions attempt to bring various stakeholders together to begin 

the dialogue to assess the current conditions and ways they might 

make effective change. The necessary change often starts with a single 

person who champions the importance of regional collaboration. These 

individuals develop support from their agency, especially among the 

public officials and other top level leaders. This might be done by 

having a peer review or signal operations audit completed to respond 

to criticism or proactively to meet a specific new challenge. Participants 

must work together to define opportunities for common objectives 

that will allow coordination as part of the practice. As 

cooperation opportunities are considered in projects, 

visible benefits can be demonstrated to other agencies 

that will help grow the network. As the practice 

continues, more people will witness the benefits and 

become mainstreamed into additional activities leading 

to further partnerships that begin the basis of regional 

efforts.

Developing Successful Partnerships

Informal partnerships have proven to be integral to 

developing a collaborative environment and a base 

of experience for working together that creates a 

sustaining force behind the program. As the relationships grow, the 

partnerships may result in additional collaborative efforts such as 

joint studies into new technology or something similar. Finding a 

champion that can create this sort of partnership requires participation 

within either an informal arrangement or formal agreement between 

agencies. Thoughtful guidance of these collaborative efforts is essential, 

and as relationships develop the involved parties should agree on 

mutually beneficial results. The evolutionary transition occurs when 

relationships transcend individuals and entire agencies 

become part of the process. Shared goals and practices 

are developed when transportation agencies assert 

themselves as leaders in the informal partnerships. 

As these practices and procedures are followed, a 

common voice is more easily understood by elected 

leaders and appointed officials. 

Oftentimes, partnerships begin by 

regular conversations or meetings 

to compare experience with 

new technology, discuss sharing 

communications infrastructure, or joint 

procurement of equipment. The Denver 

Regional Council of Governments 

recently completed a Transit Signal 

Priority Study to insure consistency 

across agencies. 
October 2009 | 27

The key element of partnerships 

that propel a region to transition 

from an informal process into 

an integrated and streamlined 

program is effective leadership 

and management. The presence 

of technical or political leaders 

that act as a catalyst for change 

must have a strong message for 

success. The importance of having 

a common voice within an agency 

and the region allows a region to 

share resources, identify goals, 

and coordinate communications 

internally and externally. A leader 

can leverage common efforts to 

communicate a region’s goals 

and expectations to the decision 

makers as well as the public. The 

ability to provide and notify the 

public that the region is unified 

on a common approach improves 

public perception. 

Casting a vision that allows 

regional partners to see what’s 

in it for them and rallying their 

support is a key aspect of regional 

leadership and management. If 

it is a regional program, support 

comes from the agencies within 

the region that sponsor the 

concept of operations. This is 

accomplished through interagency 

agreements where multiple 

agencies share in responsibilities 

or through less formal agreements 

between agencies. Without these 

agreements (formal or informal), 

individual agencies can be 

significant hindrances in regional 

efforts. 

Several regions allow one agency to take the lead in 

signal system management that permits sharing technical 

resources and mutually beneficial outcomes. The 

Portland-metropolitan area has benefited from efforts 

to share development costs of a traffic signal system. The 

City of Portland led the selection process for procuring 

the equipment, but it has involved stakeholders from 

neighboring communities so that these agencies could 

utilize a common platform. The cooperation created by 

this process has also led to joint efforts to agree on a new 

traffic controller standard (including software) and selection 

of an adaptive control algorithm. The Oregon Department 

of Transportation is following the City of Portland’s lead 

with the joint efforts of having a compatible signal system 

state-wide.

The Mid-America Regional Council (MARC) is the 

association of governments for the greater Kansas 

City area in Kansas. MARC’s goal is to build a strong 

regional community through interagency coordination, 

cooperation, planning, and leadership. MARC serves the 

role of a forum that allows member agencies to address 

regional objectives and issues as well as providing 

technical resources for the region. Within the roles and 

responsibilities, MARC serves as the keeper for the longrange transportation plan, regional intelligent transportation 

system architecture, and the congestion management 

system. 

The Southeast Michigan Council of Governments 

(SEMCOG) serves as a leader and management for the 

greater Detroit metropolitan area. The SEMCOG includes 

numerous cities, seven counties, and educational centers 

including the University of Michigan, Ann Arbor. This MPO 

is a member organization that advocates for improvements 

that benefit the greater community and provides 

consistency on general transportation practices, including 

traffic engineering practices. Many of the policy decisions 

are made by local agencies within the SEMCOG’s 

member governments, which allows for this consistency. 

Additionally, the SEMCOG also serves as a database for 

current and past regional projects so that any member 

agency can utilize as guidance and education. 

Examples of Collaborative Activities
28 | Regional Traffic Signal Operations Programs

Evolving the Organizational Structure 

The evolution of a regional program begins with the self-assessment 

and recognition of ways to improve by working across traditional 

boundaries. When an organization realizes that they have a problem 

(i.e., understaffed or with limited technical knowledge), the agency 

may seek efficiencies. The evolution can be initiated by the recognition 

of the need for more training that they need to combine with adjacent 

communities to organize the requisite classes for staff development. An 

organization that has a regional focus may be able to coordinate needs 

across multiple agencies. 

The Los Angeles County Metropolitan Transportation 

Authority (Metro) has developed a training program that 

provides both local agency staff and outside professionals 

an opportunity for professional development. The program 

was initiated after officials recognized the need to provide 

on-going training for the local agencies to understand the 

design and maintenance of the continually changing signal 

system. Los Angeles Department of Transportation and 

consultants were contracted by Metro to develop and 

deliver the training. The program assisted internal staff to 

provide consistent quality of work across the region as well 

as educating staff on different technological capabilities. 

The program grew to include consultants and outside 

professionals, which also allowed the outsourced projects 

to become more consistent to Metro’s standards.

The Regional Concept for Transportation Operations Primer suggests 

that an organization begin by tackling a relatively simple operations 

issue, such as traffic signal timing, in which the need for improvement 

is widely acknowledged and easily understood by several agencies. By 

identifying a common need, the agencies can share access to resources 

and increase the need for a structure that allows information sharing 

and communication between agencies. 

The organization structure may transition from a group with ad hoc 

unplanned activities to one with more scheduled activity and regional 

collaboration as needed. This transition occurs at varying levels and at 

different paces, depending on the projects and amount of sharing that 

occurs. Multi-agency projects result in an evolutionary change that 

makes regional programs a success. 

Example of Collaborative Training
Section 4

Framework for a 

Regional

Traffic Signal 

Operations Program

October 2009 | 29

Framework for a Regional Traffic 

Signal Operations Program

A process roadmap, or framework, is needed to facilitate the life cycle 

(planning, design, operations, and maintenance) of traffic signals for 

a region. This framework is recommended for use after addressing 

regional-level issues identified above. Because regional traffic signal 

management is typically fragmented due to the institutional makeup of 

the agencies involved in traffic signal management and maintenance, 

the framework provides a process to overcome the institutional seams 

that inhibit coordination and collaboration. 

The framework described in Exhibit 5 is scalable based on the 

complexity of the system and required operations strategies. The 

framework focuses on the continuous nature of a Regional Traffic 

Signal Operations Program. The element “steps” in the process are 

intended to facilitate addressing all the issues in a successful program. 

For some programs, some steps may not need to be formally addressed 

(e.g., a formal evaluation of operations strategies may not be necessary 

when there is only one feasible strategy). For larger, more complex 

networks, formally going through each step in the framework may be 

desirable to ensure consensus is achieved by stakeholders, to provide a 

roadmap through the entire lifecycle of the project, and to help identify 

and address major problems before it is too late (i.e., already in the 

implementation phase).
30 | Regional Traffic Signal Operations Programs

Exhibit 5 Regional Traffic Signal Management and Operation Program 

Framework

It should be noted that the framework is cyclic because the process 

often requires iteration between steps to resolve competing issues. For 

example, an operations strategy may be chosen for evaluation. Upon 

close consideration, the strategy may require more resources than are 

available, resulting in the reconsideration of alternative strategies more 

consistent with the available resources.

The steps in the framework are grouped into four categories: 

getting started, decision making, implementation, and continuous 

improvement. The remainder of this section presents a high-level 

discussion of each of these four categories. The next section will look 

at sustaining the program, including drawing on experiences from 

successful programs.
October 2009 | 31

Getting Started

Step 1 is to define the problem. The definition of the problem in the 

broadest sense should begin at the regional planning and coordination 

stage discussed in the previous section. At the regional level, problems 

are identified at a minimal level of detail as part of a planning and 

programming function. What may be a problem to one agency may not 

be a problem to another; therefore, it is important to discuss and gain 

consensus on the extent and severity of the problem to be addressed. 

An example of a high-level problem is necessary stops due to the lack 

of signal coordination between jurisdictions.

Step 2 is to assess institutional considerations. A framework can 

create a bridge for agencies to address an identified problem in a 

manner that all affected stakeholders can support. Part of overcoming 

institutional isolation is establishing a structure, such as a working 

group composed of various representatives from the affected agencies, 

early on to guide the entire process. The structure; whether an ad hoc 

group or formal committee should consist of as many of the regional 

stakeholders as possible. Participants should be representative of 

all agencies and parties involved in the planning, design, operation, 

and maintenance of the plans and procedures. The size of the group 

should be commensurate with the size and complexity of the project. 

Overall, the success of the project is a direct result of the ability of a 

variety of institutions, agencies, and affected parties to gain consensus, 

have regular contact through meetings or other communication, and 

work within the context of other regional entities. In the case of crossjurisdictional signal timing, the process could be relatively simple 

when there are few plans and coordination is achieved through timebased coordination. If the concept of operations (described below) 

includes interoperability between agencies, then the complexity is 

significantly higher.

Once the structure for the stakeholders has been agreed upon 

and developed, it will be their responsibility to identify the goals, 

objectives, and performance criteria for the project, which is Step 

3 in the process. Ideally, the goals and objectives established will 

be directly related to the problems identified in the first step. If the 

problem was identified broadly, it will be the responsibility of the 

stakeholder group to examine the problem and develop a more 

detailed assessment of its nature. The goals will be broad statements 

of the desired outcome (for example, reduced travel time) once the 

problem is resolved. The objectives will be specific statements of what 

will be achieved in support of the goals (e.g., to reduce transit-related 
32 | Regional Traffic Signal Operations Programs

delays by 10 percent), and the performance measures identified will 

represent specific measurements that will be used to assess the goals 

and objectives (e.g., person-hours of delay during the a.m. peak travel 

period). Performance measures should include metrics that users of the 

transportation system experience directly, such as travel time between 

points.

Step 4 in getting started is to develop a regional concept of operations. 

The concept of operations is a document, either formal or informal, that 

provides a high-level, user-oriented view of operations on a specific 

arterial or network. It is developed to help communicate this view 

to other stakeholders in this process, such as the interested public, 

and to solicit their feedback. The final document should describe the 

goals, objectives, and performance measures of the project agreed 

upon by the stakeholder group. It should also provide a description of 

the existing conditions, operating practices and policies, and system 

capabilities. The document should include a description at a high 

level; the operational scenarios (the traffic conditions during a given 

operational deficiency) when strategies, plans, and procedures are 

needed; and the high-level strategies that can address the problems 

during these scenarios. Again, complexity may be minimal in simple 

projects (e.g., time-based coordination) and significant in complex 

projects (e.g., transit signal priority).
October 2009 | 33

The Puget Sound Regional Council 

formed a Regional Traffic Operations 

Committee following the FHWA peer 

review focused on providing regional 

management of traffic operations. It 

has recently published a Best Practices 

document and is working on an RCTO 

and a Regional ITS Implementation Plan.

Decision Making

Decision making starts with Step 5 and requires identification of 

specific operations scenarios for the arterial, which allows the process 

to move toward the selection of strategies. While an example of a 

high-level scenario may be to reduce transit traffic signal delay, a more 

detailed scenario would be to implement transit priority on Main Street 

in downtown during morning and evening peak-periods. Based on 

The Portland (OR) metropolitan region’s 

MPO, Metro has had a long standing 

ITS subcommittee to provide guidance 

on technical issues, but never had 

a long range plan for ITS integrated 

into the regional transportation plan. 

Following the FHWA peer review, the 

City sought grant money to develop 

a long range Transportation System 

Management and Operations (TSMO) 

Plan to develop a list of collaborative 

projects to improve its effectiveness 

within the planning processes.

Example of Regional Cooperation

Outcomes of the FHWA Peer Review

this scenario, a number of operations strategies might be 

identified, including both active priority at intersections 

with excess capacity and passive priority at intersections 

at capacity. Examples of the types of strategies that might 

be appropriate within a regional context include:

 Consistency in signal timing practices (i.e. 

clearance intervals, intersection configuration, 

pedestrian timing and policies);

 Reporting and responding to citizen complaints 

and providing traveler information;

 Identification of regional priorities, corridors of 

significance, performance goals, performance 

measurement;

 Outreach to the public and decision makers;

 Cross jurisdictional timing;

 Region-wide transit signal priority; 

 Implementation of incident management plans;

 Implementation of severe weather plans; and,

 Adaptive traffic signal control.

While several strategies may be easily identified, Step 6 is 

to evaluate and select the most appropriate strategies for 

each scenario. The assessment of strategies can vary from 

simple, pragmatic assessments (e.g., the coordination 

across jurisdictions on major arterials may not warrant 

significant analysis) to detailed traffic micro-simulation 

studies that may be necessary to assess complex transit 

signal priority options. The method used should be 

appropriate to the complexity of the alternatives and the 

cost of implementation. The evaluation criteria should 

also be representative of the goals and objectives of the 

local area.
34 | Regional Traffic Signal Operations Programs

The final step in the decision making phase of the framework, Step 7, is 

to develop an implementation plan, which provides all the information 

necessary to proceed with the implementation phase. The project 

implementation plan may be a formal document that represents the 

sum total of all the work that has been undertaken up to this point, 

summarizing the identified problems; the goals, objectives, and 

performance measures; the corridor concept of operations; and the 

selected strategies for various scenarios. When describing operations 

strategies, details such as capital and operating costs, potential 

programming priorities and scheduling, infrastructure needs in 

support of the strategies, and descriptions of maintenance procedures 

and costs can help create a valuable blueprint for the remainder of the 

project.
October 2009 | 35

Implementation

The implementation phase consists of design and development, 

deployment, and operations and maintenance. Step 8, design and 

development, translates each of the various projects included in the 

implementation plan into executable project plans. Operations plans 

would be developed only at a high level in the implementation plan. 

For example, the overall implementation plan may identify an active 

transit signal priority as an operations strategy, and the plan would 

identify the necessary hardware and software (on both the transit and 

the traffic side of the system). In the design and development stage, the 

exact traffic signal settings in the timing plan would be determined, 

the specific individual(s) authorized to implement the plan would 

be identified, and details of how the plans would be implemented 

would be agreed upon. The design of needed timing plans to support 

the operations strategies would also be completed at this stage of the 

process. Any needed interagency operating agreements would also be 

finalized during this step.

Step 9, deployment, comprises signing interagency agreements and the 

implementation of the new strategy, or “turning on” needed software 

or communications equipment. There could be many factors involved 

with a multi-agency, multifaceted deployment, so patience and 

dedication is necessary to ensure a successful project. 

Step 10, operations and maintenance, is perhaps the most important 

in the process. Stakeholders whose primary responsibility will be to 

activate and operate the system should be involved early in the process 

of developing operating plans and procedures. These individuals will 

not only provide valuable insight into operations and management 

processes, but also have a clear understanding of the roles and 

responsibilities of operations and maintenance personnel during 

the various scenarios. They will also be able to ensure that plans are 

operating at maximum efficiency and reliability.
36 | Regional Traffic Signal Operations Programs

Continuous Improvement

The continuous improvement process, reflected in step 11, is never 

ending. As the system is being operated and maintained, it must 

be continually monitored and evaluated. The monitoring process 

determines whether the actual performance of the system matches 

the goals and objectives of the project. If the system is not solving 

the problem identified in Step 1 or meeting the performance metrics 

identified in Step 3, then modifications should be made to better 

address the problem. This is, in effect, another cycle of problem 

identification and identification of improvement strategies, evaluation, 

prioritization, design, deployment, operations, maintenance, and so on. 

Without such a process, the project (and the overall system) will fail to 

perform at optimum effectiveness and efficiency.

Summary

This section presented a broad view of the planning-level activities 

recommended for successfully developing and sustaining a Regional 

Traffic Signal Operations Program. The planning process was examined 

at a regional level and then at a project (arterial or network) level. It 

is only after understanding these levels that meaningful analysis can 

be initiated. The framework introduced in this section is described in 

more detail in A Coordinated Freeway and Arterial Handbook. Utilizing 

a consistent framework insures a repeatable, stepwise process. The 

next section will look at key elements to developing and maintaining a 

sustainable Regional Traffic Signal Operations Program.
Section 5

Maintaining a 

Sustainable Regional 

Traffic Signal 

Operations Program

October 2009 | 37

Maintaining a Sustainable 

Regional Traffic Signal 

Operations Program

This section describes the key activities necessary to maintain a 

successful Regional Traffic Signal Operations Program. Similar to the 

common threads identified previously, these elements are directly 

related to a human element of communication and commitment. People 

initiate the necessary actions to implement regional collaboration, 

and it is communication that maintains and nurtures committed 

relationships. The communication can be characterized as staff to 

staff, agency to agency, agency to regional oversight, and agency to 

public. The following five elements are necessary for maintaining and 

sustaining a Regional Traffic Signal Operations Program: 

 Leadership 

 Self Assessment and 

Evaluation

 Performance Measures

 Training Program

 Funding Mechanisms

 Public Involvement and 

Outreach

The first element is leadership and management. Regional champions 

carry the burden of initiating collaboration and a change in the 

culture. The relationships and trust need to be in place to allow 

regional programs to succeed. Once leadership and management 

is developed, both technical and personnel support is required. 

Technical support comes from identifying, monitoring, and reporting 

performance. Performance measures provide the technical support 

for the collaborative efforts as direct correlations can be made 

between regional projects and operational benefits. The other support 

comes from qualified staff members who need technical training 

and professional development. With trained internal and external 

professionals, traffic signal operations can be maintained at the desired 

performance levels. Support for these projects and staffing requires 

funding. There are many funding sources and mechanisms in place 

to help support programs; however, money is a limited resource, 

and there is usually strong competition with other types of projects. 

Since funding can be challenging, there is a need for the regional 

transportation community to gain support from the public and elected 

officials. Outreach helps educate others by letting them know what 

projects a program is doing and what is being accomplished. The 

following sections describe further the details of each of the identified 

elements and how each helps in developing and maintaining a 

Regional Traffic Signal Operations Program. 

Keys to a Sustainable Program
38 | Regional Traffic Signal Operations Programs

Leadership

It has been well documented that leadership is the most important key 

to a successful program. It often starts with a champion that takes it 

upon his/her shoulders to motivate and engage others. The leadership 

role often starts with a single person but can evolve into becoming an 

organization where a region shares a common voice. An organization 

or department with an agency, such as the MPO, may be the starting 

point for regional collaboration. The design of a MPO specifies how 

regional goals are subdivided and reflected for the parties involved 

in the long-range planning. Finding other stakeholder champions to 

participate in a MPO committee or even within the MPO will help 

maintain leadership within the group, but also expand into leadership 

within the various agencies. 

The Puget Sound Regional Council (PSRC) in 

Washington State is leading the regional efforts to 

identify smarter ways to move people and goods. The 

PSRC’s Regional Traffic Operations Committee has 

identified regional signal coordination as the functional 

area of focus for future activities. It also recognizes that 

investment in traffic signal operations as well as integration 

of ITS devices results in a high benefit to cost ratio. As 

a result, PSRC’s incorporated both highway and arterial 

operations into their long-range transportation plan, 

Transportation 2040. 

The Pima Association of Governments (PAG) in 

Tucson, Arizona, developed an ITS architecture that 

outlined traffic signal operations for the region and how to 

incorporate technology to improve the ability of the region 

to share information with their elected leaders. Planners in 

PAG utilized the RCTO planning process to define regional 

needs and their commitment to achieving specific goals. 

By defining these goals, PAG led the way for agencies to 

work collaboratively and implement ITS effectively for the 

agency’s operational goals. 

Best Practices—Leadership
October 2009 | 39

Self-Assessment and Evaluation

Self-assessment is a process by which you learn more about yourself 

or agency – what works, what could be improved, and what keeps 

an agency operating well. There are several existing resources 

available for agencies and regional organizations to assess their traffic 

signal operations opportunities and to enhance the efficiency and 

effectiveness of regional practices. The first resource is the ITE traffic 

signal operation self-assessment and the Traffic Signal Audit Guide. The 

second resource is FHWA. FHWA offers a peer review process and a 

multitude of existing documents that are available for all professionals. 

Results from both the 2005 and 2007 National Report 

Card have raised the national awareness of the state 

of practice for traffic signal operations. The ITE traffic 

signal operation self-assessment was updated in 2007, 

reflecting comments and feedback from the original 

assessment in 2005. The traffic signal operation selfassessment is intended for an agency to evaluate its 

traffic signal operations and maintenance. There are 

four main benefits of the self-assessment as identified 

by ITE and include:

•	 Increasing national awareness of the need for 

improved traffic signal operation; 

•	 Increasing local awareness of the need for improved traffic 

signal operation; 

•	 Identifying strengths and opportunities; and, 

•	 Providing a benchmark for performance. 

These benefits of the self-assessment emphasize the need for both 

national and local awareness for traffic signal operation as well as 

identifying what areas agencies need to improve. The “score” or 

rating provides agencies an indicator of overall performance. The 

self-assessment identifies strengths in a traffic signal system and the 

various opportunities for improvement. Additionally, the evaluation 

process serves as an education tool for agency staff. The self-assessment 

also determines a benchmark for traffic signal operation practice. The 

various questions include an example of good practices where staff can 

compare their own practice and then learn how to improve. 

Another resource for regional organizations and agencies is a peer 

review process. The purpose for a peer review is to provide an 

evaluation of system management and operations practices from a 
40 | Regional Traffic Signal Operations Programs

team of objective experts that are familiar with national best practices. 

Outcomes of this process provide the region with a comprehensive 

review and a series of recommendations for improvement. The 

reviews typically begin with a discussion of what and/or how the 

self-assessment rates the region. This is used as a starting point on the 

workshop participants to receive constructive criticism and feedback. 

Other discussion items include regional management and operations, 

signal timing practices, coordinated systems, data collection and 

archiving, maintenance, partnerships training and professional 

development.

In Arlington County, Virginia, public works groups are 

evaluated on the number of public comments per year. It 

is each group’s goal to reduce the number of comments/

complaints from the previous year. For the traffic 

operations group, the comments range from maintenance 

issues to signal timing. Each comment requires action by 

County staff members and at a reasonable response time. 

A complaint metric is one performance measure that must 

be carefully balanced against the agency’s signal timing 

operations objectives. 

FHWA staff have partaken in several workshops nationwide including 

Ada County, Idaho; Portland, Oregon; Puget Sound, Washington; 

Washington, DC; Puerto Rico; Fargo-Moorhead, North Dakota; and 

Minneapolis, Minnesota. Outcomes of the workshops have varied, 

but one common theme has been that each region has been energized 

with the guidance and advice received. Along with receiving feedback 

for the region, the workshop encourages collaboration amongst traffic 

signal operation professionals. 

Best Practices—Self Assessment
October 2009 | 41

Performance Measures 

Regional programs often utilize measures to identify the need for 

increased funding. Performance measures that are quantitative in 

nature can be used within projects to measure progress and assess 

how a strategy is working. It is common to link benefits with strategies 

to highlight the change in measures. For instance, the Washington 

Metropolitan Council of Governments uses the number of signals 

retimed to identify progress toward their goals. Based on this measure, 

the agencies can report on performance regarding traffic signal 

improvements.

The first step is to recognize the need and the benefits of having a 

performance metric for the region. This is often a challenge as there 

are many metrics and each holds its own importance. A key element 

of establishing this is to utilize a metric that is within an agency’s 

means, including budget, staff, and equipment. An agency must know 

its available resources and limitations prior to defining metrics. The 

second step is monitoring the traffic signal system to determine the 

need for signal timing adjustments or maintenance. Once a system 

or corridor metrics are beyond the ability of basic maintenance, then 

corrective measures should be identified. This may include a complete 

reevaluation of the system. 

There are many ways agencies can measure traffic signal operation 

performance, including average corridor travel time, average delay, 

and how often a signal/corridor is retimed. Additionally, there might 

also be consideration of multimodal objectives with special attention 

paid to transit or pedestrian operations. Having a 

regional method of evaluating signal systems can aid 

in determining areas for improvement, managing 

resources, and finding funding sources. Once there is 

a defined set of performance measures, it is important 

to ensure these support the goals and are monitored. 

A common challenge occurs when complaints arise at 

an intersection that had recently been updated, and 

the agency adjusts the timing to accommodate the 

complaint. While flexibility is important, the actions 

must consider the compromises that result as a part of 

the change.
42 | Regional Traffic Signal Operations Programs

The Maryland State Highway Administration (SHA) has 

created a business-style model for maintaining their traffic 

signal operations, setting yearly goals for the number of 

retimed traffic signals and corridors. SHA’s focus objective 

is “mobility” across the transportation system. This 

allows for a focus on reducing delay on the state arterials. 

Additionally, it quantifies environmental measures such 

as reduction in fuel consumption and emissions, arterial 

through-put, and evaluating crash histories along the 

corridor. Currently, SHA sets an annual goal of retiming 

400 intersections to reduce delay. With this annual goal, 

SHA can gauge how effective it was on completing the 

scheduled corridors. SHA also realize that the goal is 

relative and cannot always be met since the percent of 

delay reduction will have diminishing returns as corridors 

continue to be retimed over time. 

Due to the diminishing returns, a future goal for the agency 

is to collect data on select corridors each year within the 

state to monitor the change in traffic patterns and volumes 

in order to better prioritize resource allocation to areas of 

significant growth. With this type of data, SHA staff will 

be able to determine if a corridor or intersection in the area 

requires updates. Understanding that it would not make 

sense to update signal timing in an area if there has not 

been much change, SHA could reallocate resources to 

other corridors.

As observed in the FHWA peer assessments, few agencies define 

performance metrics and fewer evaluate them. Often, agencies are 

in a reactive mode addressing public complaints instead of being 

proactive. In a recent poll, over 70 percent of practitioners made signal 

timing changes only when there are complaints. Some agencies use the 

number of phone calls as a performance metric. It should be realized 

that public complaints are an indication of failures, due to engineering, 

maintenance, or communication. Complaints are valuable information 

and are worth measuring, but it should not be the sole performance 

metric. Some agencies utilize the public as an extension of their staff as 

a source of information while other agencies utilize the complaint as an 

opportunity to involve the public as part of an education exercise. 

Best Practices—Performance Measures
October 2009 | 43

The Regional Transportation Commission (RTC) of Washoe 

County, Nevada, utilizes innovative public outreach relating 

the work it does to the public. It has utilized a website 

(www.rtcwashoe.com) to solicit feedback and to disseminate 

information about projects. The website is also used as 

one of the opportunities for a citizen to report a problem. 

The website also includes sections that explain the 

performance metrics and a video that describes the before 

and after of signal retiming. The County’s PIO has worked 

with local media outlets to raise the awareness of signal 

timing and the associated benefits. 

A few agencies utilize a complaint as an opportunity to 

engage the citizens. It is an opportunity to educate them 

as well as to have them be part of the solution. When a 

complaint is received, agency staff takes time to discuss 

with the citizen about the concern or issue. During the 

discussion, the staff member asks if the citizen would 

be willing to partake in data collection to help the agency 

document it. Some agencies provide a GPS unit to citizens 

and allow them to travel with the unit over a period of 

time. The GPS data is then analyzed and reviewed with 

the citizen. If the complaint is valid, then the citizen is 

commended on bringing the concern to the agency’s 

attention.

It should also be understood that an agency’s performance measures 

can vary and could be based on the specific context of a community. A 

corridor may be a primary commuter route with heavy peak directional 

flow, and an agency may focus on throughput and reduction of 

number of delay. Application of a similar approach in a downtown 

environment is not likely to have beneficial effects, and different 

performance measures should be considered. Performance metrics, as 

with other regional policies, should consider the variations within their 

transportation network and have objectives applied accordingly. 

Best Practices—Performance Measures
44 | Regional Traffic Signal Operations Programs

Training Programs

Training is necessary for consistency in operations, providing the 

confidence and trust of other partners in the capabilities of their peers. 

Therefore, staff development is a key element in developing a regional 

program. Technical and leadership growth in staff allows agencies to 

become more confident in their abilities and also trust their regional 

peers. Shortage of qualified people is a significant challenge and has 

been linked to budget issues that have resulted in the inability to hire 

new staff but also to retain existing qualified people. This is not just 

a public sector issue, but is also of concern in the private sector as 

contractors perform a significant portion of the work. A well trained 

staff is the heart of all activities, and their professional growth is 

dependent on exposure to various training opportunities, both internal 

and external. Training opportunities provide many benefits to the 

agency as well as the employee. Such benefits include:

 Increased efficiency and consistency; 

 Increased ability to learn and apply new 

technologies and methods;

 Increased employee satisfaction and 

motivation; and,

 Increased creativity and innovation.

There are many regional and national training 

programs that provide opportunities for traffic signal 

operators and engineers. 

The Los Angeles County Metropolitan Transportation 

Authority (Metro) has developed a training program that 

provides both local agency staff and outside professionals 

an opportunity for professional development. The program 

was initiated after officials recognized the need to provide 

on-going training for the local agencies to understand the 

design and maintenance of the continually changing signal 

system. The program assisted internal staff to provide 

consistent quality of work across the region as well as 

educating staff on different technological capabilities. 

The program grew to include consultants and outside 

professionals, which also allowed the outsourced projects 

to become more consistent to Metro’s standards. 

Best Practices—Training
October 2009 | 45

Mobile Hands On Signal 

Timing (MOST) (www.

webs1.uidaho.edu/most/) 

was developed with 

a federal grant by the 

University of Idaho for 

the FHWA to provide 

both students and 

professionals skills to 

use traffic data, signal 

equipment, software 

programs, and resource 

materials for traffic 

signal implementation. 

The MOST program 

integrates traffic 

signal controllers with 

simulation packages to 

allow the participants 

to develop, implement, 

and test traffic signal 

timing strategies. The 

simulation environment 

provides immediate 

results of the signal 

timing parameters that 

are programmed in the 

controller. 

Another resource for external training opportunities is through 

professional organizations such as the Institute of Transportation 

Engineers (ITE). ITE is a resource center for the profession that 

provides opportunities to both learn and share. Publications, webseminars, and conferences are a sample of opportunities that are 

available. 

In addition to engineers, maintenance staff members also require 

training and development. It is common that staff learn “on the job,” 

but there is a limit of knowledge based on the experiences and the 

surrounding staff. There are opportunities for staff to be trained and 

certified, which would provide a consistent knowledge base. This 

opportunity is through the International Municipal Signal Association 

(IMSA). The purpose of IMSA is similar to ITE; it strives to keep 

professionals trained and educated on up-to-date construction and 

maintenance procedures as well as provide information on new 

products and innovative developments in signal systems. 

Similar to the LA County Metro training program, the City 

of Fargo, North Dakota, also provides a training program 

and process for its maintenance staff. Staff are encouraged 

to be trained and certified at the various IMSA levels. 

However, the training does not stop with the certification 

process; the technicians developed an internal training 

program to review signal system procedures. 

As indicated, successful traffic signal management and operations 

programs are based on people and their ability to communicate. 

The program participants require commitment, but also need to 

be motivated and trained. To achieve this, a consistent message 

of performance objectives, collaborative efforts, and professional 

development is needed. This begins with the leaders but extends to 

all support staff members. Staff members are the ones that design, 

maintain, and fix traffic signal operations based on the policies and 

objectives of the region. To ensure that the outcomes are consistent 

with the objectives, proper training is required. 

Best Practices—Training
46 | Regional Traffic Signal Operations Programs

Funding Mechanisms

Funding mechanisms identify the amount of resources, staff time, and 

equipment that can be applied in the collaborative effort to sustain the 

program. Investments in regional programs may involve preservation 

of existing funds, cost savings associated with efficiencies, partner 

agency budget allocations and commitments of staffing, equipment, 

or facilities to support regionally significant activities. The following 

section discusses the need for funding as well as innovative ways to 

find or preserve funding.

Traffic signal management and operations requires dedicated 

funding for both the engineering and maintenance. Municipal budget 

constraints create competition among different programs for funding. 

Capital projects may compete with operations and management 

(O&M) budgets in communities, and if sacrificed the quality of service 

provided to citizens suffers. Traffic signal system O&M is especially 

neglected because practitioners have limited tools to describe the 

effects of reduced attention. Degradation is less discernible to the 

traveling public because of the pace at which it occurs. Cutting 

O&M funding and staff is a short-term solution because the costs are 

seldom captured. As a result, the communities are likely to experience 

increased public scrutiny about the stewardship of the existing 

resources and decreases in services. 

Budget constraints also impact strategic planning for improving the 

infrastructure and activities that may reduce redundancy or wasted 

time. For example, the following technology advances present 

opportunities to reduce workload:

•	 Communication to a remote signal may reduce the need to 

send a technician to address a complaint. 

•	 Closed circuit television (CCTV) cameras may make a field 

visit unnecessary.

•	 Signal timings may be uploaded and downloaded from a 

Traffic Management Center thus reducing time in the field. 

•	 System alarms can be directed to cell phones, email, or 

other remote communication devices to improve failure 

response times.

•	 Equipment upgrades may improve detector reliability and 

performance.
October 2009 | 47

The workload savings associated 

with the above examples can be 

used to improve O&M. This in 

turn can lead to lower costs to 

the traveling public, increased 

preventative maintenance, and 

optimally timed signals that 

reduce congestion and delay. 

A project developed through 

regional TIPs is often proposed 

by the regional agency in future 

year plans. Regional agencies 

work together with their public 

officials/decision makers to 

identify specific projects in 

the near and long-term future. 

The signal operation projects 

can be specifically for corridor 

timing updates, but can also be 

a part of larger improvement 

projects. An example of this is 

if a corridor is planned to be 

widened in the future, traffic 

signal equipment and timing 

could be incorporated with the 

construction costs. Planning for 

both short and long-term projects 

provides a region some flexibility 

to adjust priorities. Should there 

be a change in technology, travel 

patterns, or even policies, a region 

would have the ability to change 

projects within the plan. 

The Transportation Planning Process is described in detail in 

The Transportation Planning Process Key Issues A Briefing Book for 

Transportation Decisionmakers, Officials and Staff published by the United 

States Department of Transportation (USDOT) in 2007. In short, the 

process is intended to create a collaborative environment that involves 

all users of the system and public and private agencies that design, 

manage, operate and maintain the transportation system. The process 

is illustrated in Exhibit 6 and involves the following six steps9

:

 Monitoring existing conditions;

 Forecasting future growth and land use in the region;

 Identifying current and projected future transportation 

problems through planning studies and evaluating various 

improvement strategies to address those needs;

 Developing long-range plans and short-range programs of 

alternative capital improvement and operational strategies 

for moving people and goods;

 Estimating the impact of recommended future 

improvements to the transportation system on 

environmental features, including air quality; and

•	 Developing a financial plan for securing sufficient revenues 

to cover the costs of implementing strategies.

9 The Transportation Planning Process Key Issues A Briefing Book for Transportation Decisionmakers, Officials and Staff FHWA-HEP-07-039. USDOT Transportation Capacity Building Program, FHWA 

2007. 
48 | Regional Traffic Signal Operations Programs

Exhibit 6 Transportation Planning Process10

A primary role of the MPO is to seek the participation of all agencies 

and stakeholders within the urbanized area to build consensus on the 

transportation vision and goals for the region. The familiarity of MPOs 

with the development and monitoring of objectives and performance 

measures makes it uniquely qualified to facilitate Regional Traffic 

Signal Operations Programs. Regional operations objectives and 

performance measures provide a common language that allows all 

stakeholders in the region to agree on priorities and enables key 

issues related to traffic signal management to be elevated to regional 

significance. 

Lastly, applications for regional, state, or federal funds are given 

greater weight when several agencies have joined together. Joint 

partnerships often have a higher success rate of acceptance and offer 

distinct cost sharing benefits. There are several examples where 

cooperation between neighboring agencies improves the upgrade and 

maintenance of projects. When funding is available, it is common for 

10 The Transportation Planning Process Key Issues: A Briefing Book for Transportation Decisionmakers, Officials, and Staff, Federal Highway Administration, Federal Transit Administration, 2007.
October 2009 | 49

a regional organization or MPO to be responsible for obtaining and 

distributing the fund for projects that are mutually beneficial for the 

entire region. 

The American Recovery and Reinvestment Act of 2009 

provided an opportunity for agencies to receive federal 

funding to provide a stimulus to the US economy. By 

combining the requests across multiple agencies, the 

Portland-metropolitan region submitted an application 

for a regional arterial traffic control enhancement project 

to improve 277 intersections with upgrades to the signal 

controller hardware and software, communication, and 

signal timing. The project was a significant joint effort 

from the region to improve traffic signal management 

and operations. The project was an outcome of a regional 

TSMO plan that identified strategic investments for 

improving traffic signal operations. 

An example of funding distribution by a regional organization is 

described by recent activities from the Mid-America Regional Council 

in Kansas City.

Twenty-two partner cities and agencies worked together 

on Operation Greenlight, a multi-year program managed 

by the Mid-America Regional Council to upgrade traffic 

signal systems throughout their metropolitan area. 

The major projects included signal system integration, 

field communication upgrades, traffic signal controller 

modifications and operations, and signal retiming efforts to 

reduce incident response time and improve air quality. The 

funding for the program came from more than six different 

sources, which indicated a commitment to the project 

by the represented agencies and a regional focus for the 

project resulting in broad involvement.

Best Practices—Funding

Best Practices—Funding
50 | Regional Traffic Signal Operations Programs

Some regions have utilized the CMAQ program to provide viable 

funding sources to improve signal timing and operations on a 

regional level. Using CMAQ funds, projects are developed to focus 

reducing emissions through a reduction of congestion and mobility 

improvements along corridors. A majority of the funds are federal 

dollars, but it requires a state or local match, which is commonly 20 

percent. 

The “Transportation User Fee” (TUF) used by the City of 

Austin, Texas, suggests another model for per-capita or 

per-household fees collected by the MPO. Under Austin’s 

TUF program, municipal utility bills include a TUF, which 

averages $30 to $40 annually for a typical household. This 

charge is based on the average number of daily motor 

vehicle trips made per property, reflecting its size and use. 

The city provides exemptions to residential properties with 

occupants that do not own or regularly use a private motor 

vehicle for transportation, or if the user is 65 years of age 

or older.

Best Practices—Funding
October 2009 | 51

Public Involvement and Outreach

Performance measures are an important means of developing support 

for the program. The performance measures must be in layman terms, 

considering both the needs of users and the decision makers. It is 

important to inform stakeholders as part of the process, especially in 

response to previous public feedback. This must be carefully balanced 

with the need to meet elected officials’ expectations. Public responses 

and complaints can cause a reactionary response to adjust signal timing 

without knowing the resultant impacts. It is common to have signal 

timing parameters changed after receiving 

public complaints even though a signal 

timing project had been recently completed. 

The public’s view is often narrow and taken 

from personal perspectives, such as the traffic 

signal near one’s house or a corridor traveled 

commuting to work. Complaint responses are 

too commonly a result of individual response, 

but the impact of the individual change to 

the system is unknown. A few agencies and 

MPOs strive to change this common response 

by taking the time to educate the public and 

partaking in community outreach on the 

region’s performance measures. 

The Denver Regional Council of Governments has an 

informal brochure describing the basic issues surrounding 

signal timing. The eight-page “Why is the Signal Always 

Red?11” is a useful document for the public that offers 

complaints regarding traffic signal timing. 

The other aspect of public involvement is the presentation of material 

to the decision makers. This is critical since a majority of operational 

funding comes from the elected officials and their distribution of the 

agency budgets. A way to maintain involvement with decision makers 

is to engage them in regular meetings and discussions. A commitment 

from a decision maker can assist in a continued funding source as well 

as a voice in the political arena.

11 “Why is the signal always red?”, prepared by Denver Regional Council of Governments, visited November 24, 2008, http://www.drcog.org/documents/Why%20Signal%20Red.pdf

Best Practices—Public Outreach
52 | Regional Traffic Signal Operations Programs

The Puget Sound Regional Council in greater Seattle, 

Washington, engaged the participation and involvement 

of a local community councilmember. The councilmember 

was not of traffic or a transportation background, but 

appreciated the importance of the many traffic signal 

operation related issues. The relationship between the 

regional council and the local councilmember allowed 

each party to teach and learn from each other. The 

councilmember learned some of the technical issues of 

traffic signal operations and taught how the regional group 

could present the information to other decision makers. 

In addition to engaging elected officials as part of meetings, another 

way to involve decision makers is to make sure that they are well 

informed and aware of the regional program activities. Effective 

communication is a challenge as many officials are not trained with 

technical knowledge. It is imperative to make sure that any message 

communicated to any official is simple to understand and supported 

with facts. This is especially important as many officials are often faced 

with decisions or competing initiatives, such as air quality versus 

mobility or economic development versus quality of life concerns. 

Information must be provided to officials in a manner where it helps 

the official make a decision. Transportation operations can be related to 

a variety of topics that are applicable to the official’s interests as well as 

his/her campaign promises. In addition to effectively communicating 

to officials, officials are dependent on staffs. Communication does not 

stop at the official, but includes the support staff. By communicating 

to the support staff, the elected official can be briefed by them when 

necessary. 

To assist in disseminating information to various audiences, agencies 

employ public information officers (PIO) to effectively communicate a 

region’s message. It is important to highlight traffic signal operations 

and share this information to the public through various media outlets. 

Outreach conducted by staff involved in signal retiming would provide 

an opportunity for users to understand and relate to the planned 

improvements. Agencies can market their efforts to change public 

perceptions. 

Best Practices—Public Outreach
Section 6

Summary

October 2009 | 53

Summary

Traffic signal management and operations is a common practice for 

agencies across the country. Traffic signal management and operations 

that is collaborative across a region is not as common. The traffic 

signal operations community is faced with the challenge of improving 

the systems by working across agency boundaries with a regional 

perspective. It is important to recognize that neighboring agencies 

are faced with similar challenges, which could be met more easily 

by cooperating on the efforts. There are many benefits in working 

together, and this document provides a framework for a region to come 

together to collectively face those challenges. 

A Regional Traffic Signal Operations Program can improve the traffic 

signal operations on a regional basis by bringing a diverse set of 

strengths together to meet the objectives of stakeholders and the 

communities they serve. Regional traffic signal operations produce 

more efficient and consistent operations that lead to improved 

mobility and safety. Regional programs require collaborative effort 

and commitment by all stakeholders. There are many benefits with 

collaboration as traffic signal management and operations become 

effective and efficient and credibility with the decision makers and the 

public is established. 

Regional Traffic Signal Operations Programs requires partnerships 

among agencies working toward common objectives to be effective. 

Whether the objective is increasing the training of staff, improving 

operations across agency boundaries, or changing the paradigms to 

identify new funding sources, the engineers involved must interact 

with elected officials to introduce the program and carry it out for a 

region. A review of the successful programs indicates that there is no 

single approach to achieving regional traffic signal operations success, 

but there are many common themes and lessons learned that can be 

used for initiating a program. 
54 | Regional Traffic Signal Operations Programs

FHWA-HOP-09-007

October 2009

U.S. Department of Transportation

Federal Highway Administration

Office of Operations

1200 New Jersey Ave., SE

Washington, DC 20590