CLIMATE CHANGE ADAPTATION GUIDE

FOR TRANSPORTATION SYSTEMS MANAGEMENT, 

OPERATIONS, AND MAINTENANCE
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Dear Colleague:

The increased frequency and severity of disasters continue to tax the personnel, resources and capabilities of 

State and local departments of transportation. Whether it’s Transportation Systems Management and 

Operations (TSMO), maintenance, emergency managers, infrastructure or planning offices – all must respond 

and adapt to what has become the new reality – one that incorporates the impacts of climate change into the 

decision making process.

Though transportation agencies have made significant advances in mainstreaming TSMO and maintenance 

into their core business processes in the past decade, climate change poses a risk to continuing TSMO and 

maintenance improvements and threatens to erode the public trust in a safe, reliable infrastructure. This is 

captured in the Federal Highway Administration (FHWA) Order issued in December 2014, in compliance 

with 2013 Executive Order 13653, Preparing the United States for the Impacts of Climate Change. 

The challenge in developing this primer, Climate Change Adaptation Guide, reflects the challenge inherent in 

understanding climate change and its impacts on transportation as we know it, i.e., finding ways to help very 

different and diverse sets of stakeholders understand the benefits of reaching across institutional divides in 

order to work together to achieve common objectives. 

The audience for the primer includes TSMO and maintenance program managers, emergency managers, 

planners and supervisors involved in all operational aspects that are likely to be affected by climate change. 

The content features the following:

• Context and Rationale for Adapting to Climate Change,

• What’s Already Being Done,

• Steps to Adapt TSMO and Maintenance Programs to Climate Change, and

• How to Get Started.

We look forward to receiving your feedback, reactions, and experiences in implementing these concepts. 

Please direct any comments, questions, and suggestions to Laurel Radow at Laurel.Radow@dot.gov or 

Paul Pisano at Paul.Pisano@dot.gov.

 Sincerely yours,

Jeffrey A. Lindley

 Associate Administrator for Operations

Federal Highway Administration

1200 New Jersey Ave., SE

Washington, D.C. 20590

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FHWA-HOP-15-026

Climate Change Adaptation Guide for Transportation Systems 

Management, Operations, and Maintenance

Ms. Laurel Radow, Mr. Paul Pisano, and Mr. Robert Hyman, Federal Highway Administration

This guide provides information and resources to help transportation management, operations, and 

maintenance staff incorporate climate change into their planning and ongoing activities. It is intended 

for practitioners involved in the day-to-day management, operations, and maintenance of surface 

transportation systems at State and local agencies. The guide assists State departments of transportation 

(DOTs) and other transportation agencies in understanding the risks that climate change poses and actions 

that can help reduce those risks. Incorporating climate change considerations into how agencies plan 

and execute their transportation system management and operations (TSMO) and maintenance programs 

helps the agency become more resilient to unanticipated shocks to the system. Adjustments to TSMO and 

maintenance programs—ranging from minor to major changes—can help to minimize the current and 

future risks to effective TSMO and maintenance. 

Leidos

11251 Roger Bacon Drive 

Reston, VA 20190

ICF International, Inc.

1725 I St NW #1000

Washington, DC 20006

United States Department of Transportation

Federal Highway Administration

1200 New Jersey Ave., SE

Washington, DC 20590

Susan Asam (ICF), Cassandra Bhat (ICF), Brenda Dix (ICF), 

Jocelyn Bauer (Leidos), Deepak Gopalakrishna (ICF)

Climate change, transportation systems management 

and operations, maintenance, extreme weather events, 

adaptation, State department of transportation.

No restrictions.

Unclassified Unclassified 86 N/A

November 2015

DTFH61-12-D-00050

HOP

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

iii

Contents

I. Introduction to this Guide ....................................................................1

 A. Who Should Use this Guide? ................................................................................................3

 B. How Will this Guide Help Agencies Adapt? ........................................................................3

 C. What this Guide Does Not Cover ........................................................................................4

 D. How to Use this Guide .........................................................................................................4

II. Context and Rationale for Adapting to Climate Change....................5

A. Federal Highway Administration Action on Climate Change ............................................5

B. What is Transportation Systems Management and Operations and Maintenance?.............6 

C. How are Extreme Weather Events and Climate Change Related? .......................................6

D. How Will Climate Change Affect Transportation Systems Management and 

Operations and Maintenance?...............................................................................................7

E. Why Do Transportation Systems Management and Operations and 

Maintenance Programs Need to Adapt to Climate Change?................................................8

F. Capability Maturity Framework ...........................................................................................9

G. What’s Already Being Done? ...............................................................................................9

III. Steps to Adapt Transportation Systems Management and 

Operations and Maintenance Programs to Climate Change............ 11

A. How Transportation Systems Management and Operations and Maintenance 

Work Together on Climate Change .................................................................................... 11 

B. Overview of an Operations Adaptation Virtual Framework..............................................13

C. Define Scope .......................................................................................................................15

D. Assess Vulnerability ...........................................................................................................20

E. Integrate into Decision Making ..........................................................................................30

F. Monitor and Revisit.............................................................................................................41

IV. Getting Started .................................................................................... 47

Appendix A. Matrix of Climate-Sensitive Decisions................................49

Appendix B. Additional Resources............................................................ 57

Appendix C. Future Research Needs ........................................................63

Appendix D. Glossary of Terms.................................................................69

Appendix E. Sample Handout for Workshop on Climate 

Change Risk ..........................................................................73

Appendix F. Adaptation Checklist for Technical Staff............................ 75
iv

List of Tables

Table 1. Example of Climate-Sensitive Decisions............................................................................... 18

Table 2. Sample Template for Identifying and Recording Weather Sensitivity Thresholds ............... 19

Table 3. Sources for Climate Inputs..................................................................................................... 23

Table 4. Example Vulnerability Assessment Matrix ........................................................................... 26

Table 5. Sample Operations Objectives and Performance Measures ...................................................31

Table 6. Sample Adaptation Strategies and Time Frames ................................................................... 34

Table 7. Adaptation Strategy Prioritization, Implementation Time, and Urgency.............................. 38

Table 8. Example Adaptation Strategies and Capability Maturity Framework Categories ................ 39

Table 9. Example Metrics to Track Impacts of Climate Stressors over Time ..................................... 45

Table 10. Climate-Sensitive Decisions................................................................................................... 50

Table 11. Inventory of Gaps in Transportation Systems Management and Operations and 

Maintenance Capabilities to Address Climate Change and Future Research Needs............ 64

List of Figures

Figure 1. Illustration. Frequent Questions from Transportation Systems Management 

and Operations and Maintenance Program Managers............................................................. 2

Figure 2. Graph. Overlapping Responsibilities of Different Transportation Agency Offices ................ 3

Figure 3. Graph. Weather Probability Distribution Showing an Increase in 

Mean Temperature .................................................................................................................... 7

Figure 4. Graph. Involvement of Agencies in Incident Response.......................................................... 12

Figure 5. Diagram. Federal Highway Administration (FHWA) Climate Change and 

Extreme Weather Vulnerability Assessment Framework ...................................................... 13

Figure 6. Screenshot. Federal Highway Administration (FHWA) Virtual Framework for 

Vulnerability Assessment (Module 2 shown)......................................................................... 14

Figure 7. Diagram. Climate Change and Extreme Weather Transportation Systems 

Management and Operations (TSMO) and Maintenance Adaptation Framework ............... 15

Figure 8. Chart. Projected Temperature Changes under Low and High Emissions Scenarios..............17

Figure 9. Diagram. Increase in Uncertainty Over Time........................................................................ 24

Figure 10. Diagram. Rapid Qualitative Assessment of the Vulnerability of Pavement 

Maintenance Program to Extreme Heat ................................................................................. 25

Figure 11. Graph. Vulnerability as a Function of Adaptive Capacity and Damage................................ 27

Figure 12. Graph. Risk Shown as a Function of Consequence and Likelihood ...................................... 28

Figure 13. Screenshot. Federal Highway Administration Virtual Framework for 

Vulnerability Assessment ........................................................................................................57

Figure 14. Photo. Flooding at Spring Mill Station on Southeastern Pennsylvania 

Transportation Authority’s Manayunk/Norristown in Philadelphia...................................... 73
v

List of Abbreviations

AADT average annual daily traffic

AASHTO American Association of State Highway and Transportation 

Officials

ADOT&PF Alaska Department of Transportation & Public Facilities

CAMPO Capital Area Metropolitan Planning Organization

CMF capability maturity framework

DOT department of transportation

ETO emergency transportation operations

FEMA Federal Emergency Management Agency

FHWA Federal Highway Administration

LOS level of service

MDOT Michigan Department of Transportation

MDSHA Maryland State Highway Administration

MnDOT Minnesota Department of Transportation

MPO metropolitan planning organization

MTC Metropolitan Transportation Commission

NCHRP National Cooperative Highway Research Program

RWIS Road Weather Information System

SEPTA Southeastern Pennsylvania Transportation Authority 

TOC traffic operations center

TRANSCOM Transportation Operations Coordinating Committee

TSMO transportation systems management and operations 

USGS United States Geological Survey

WSDOT Washington State Department of Transportation

1

I. Introduction to this Guide

Ensuring safety, reliability, and mobility guides the functioning of department of transportation (DOT) 

transportation systems management and operations (TSMO) and maintenance programs around the 

country. With the infrastructure mostly built out, and in many cases reaching the end of its lifespan, the 

emphasis on TSMO and maintenance has continued to grow at both State and local levels. 

Transportation agencies have made significant advances in mainstreaming TSMO and maintenance into 

their core business processes over the last decade. Investments in technology and systems for traffic 

monitoring and management, traffic incident management, and to provide traveler information have 

supported the capability of agencies to monitor, respond to, and communicate conditions to travelers. 

Similar improvements in maintenance management have occurred with use of material management 

systems, improved maintenance and construction strategies, and more robust asset management techniques. 

Climate change poses a risk to continuing improvements in this area and threatens to erode the public trust 

in a safe, reliable infrastructure.1 DOTs are already observing and responding to the impacts of climate 

change. Infrequent but extreme weather events (e.g., floods, hurricanes, Southern snowfalls) are becoming 

more frequent, and long-term climatological trends are slowly but inexorably changing how transportation 

systems will need to be planned, designed, operated, and maintained.2 

1 M. D. Meyer, E. Rowan, C. Snow, and A. Choate, “Impacts of Extreme Weather on Transportation: National Symposium Summary,”

American Association of State Highway and Transportation Officials (AASHTO), June 29, 2013. Available at http://climatechange.

transportation.org/pdf/2013_symposium/AASHTO_EWESymposium_2013.pdf.

2 M. Meyer et al., NCHRP Report 750: Strategic Issues Facing Transportation, Volume 2: Climate Change, Extreme Weather Events, and 

the Highway System, Washington, DC: Transportation Research Board of the National Academies, 2014. Available at: http://onlinepubs.

trb.org/onlinepubs/nchrp/nchrp_rpt_750v2.pdf. 

Transportation Systems Management and Operations (TMSO), Maintenance, and Climate 

Change

State department of transportation (DOT) TSMO and Maintenance Programs are vulnerable to climate 

change. Climate change increases uncertainty around planning for extreme weather events, since the past 

is no longer a reliable predictor of the future. Climate changes could result in: 

 Loss of roadway capacity.

 Loss of alternative routes.

 Loss of situational awareness (due to power/communications outages).

 Inability to evacuate.

 Loss of service life (due to faster deterioration).

 Increased safety risk.

 Loss of economic productivity.

 Reduced mobility.
2

Climate change risks are as yet not well-understood by TSMO and maintenance groups. Most of the 

discussion around climate risks has been at a long-term planning level or from an infrastructure design 

standpoint. Consequently, adapting to climate change is still new to the operating divisions within the 

DOT. Many agencies are, nevertheless, finding that the approaches and practices that made them 

successful operators and maintainers of facilities are not adequate—or at least need to be revisited—with 

this change in climate. More frequent events, unusual phenomenon, and changes in long-standing patterns 

combined with steadily increasing funding and workforce pressures put agencies at a crucial juncture on 

how to plan for effective operations and maintenance.

Incorporating climate change considerations into how agencies plan and execute their TSMO and 

maintenance programs helps the agency become more resilient to unanticipated shocks to the system. 

Adjustments to TSMO and maintenance programs—ranging from minor to major changes—can help to 

minimize current and future risks to effective maintenance and operations. 

This guide provides information and resources to help DOT TSMO and maintenance staff incorporate 

climate change into their planning and ongoing activities. It will assist State DOTs and other transportation 

agencies to understand the risks that climate change poses and actions that can help reduce those risks. 

Although there is continually new information emerging about anticipated risks and strategies to address 

them, there is sufficient information to begin a more concerted effort to evaluate programs and begin to 

make or plan to make adjustments today.

Figure 1. Illustration. Frequent Questions from Transportation Systems Management 

and Operations (TSMO) and Maintenance Program Managers.

• Over the last 20 years, we have gotten really 

good at managing winter storms. We will

deal with whatever nature throws at us.

Do I need to plan for climate change?

• My last few summers have resulted in a lot

of delays in construction due to the heat. 

Should I change how I bid out my projects?

• Over the last 20 years, we’ve never had an ice 

storm, and I don’t typically budget for ice 

removal equipment. We got one last year. 

Should I invest?

• My maintenance budgets are typically 

insufficient, and I end up going over each 

year. How can I plan ahead and better use

my limited resources?

• We worked well together during Hurricane 

Sandy, but there were still a lot of challenges. 

What will help us be better prepared?
3

T ar n

ps

ortat

oi

n

Syste

m

s

Management and Operations (TMSO)

Emergency Planning

Emergency Response

Emergency Recovery

Emergency Preparation

Vegetation Management

Bridge Maintenance

Shoulder Maintenance

Pavement Management

Freeway and Corridor 

Management

Special Event Management

Arterial Management

Work Zone 

Management

Road Weather

Management

Asset

Management Maintenance

of Trac

Emergency Repairs

Traveler

Information

Incident 

Management

Maintenance

Emergency Management

A. Who Should Use this Guide?

This guide is meant for practitioners involved in the day-to-day management, operation, and maintenance 

of surface transportation systems at State and local agencies. Climate change will affect different offices 

and their varying responsibilities in different ways. As shown in Figure 2, some responsibilities among 

this staff are also overlapping and will require coordination. For example, DOT emergency management 

staff and TSMO staff need to coordinate during an emergency to provide accurate and up-to-date traveler 

information. In some DOTs, staff may serve both a TSMO and maintenance function. All staff might have 

a role in major emergencies. In a majority of functional areas, TSMO and maintenance depends on the 

collaboration between multiple agencies. 

Unless otherwise specified, the content in the guide is applicable to all:

 State and local DOT TSMO and maintenance managers.

 State and local DOT planning staff. 

 Metropolitan planning organization (MPO) staff.

 State and local DOT emergency management staff.

B. How Will this Guide Help Agencies Adapt?

The guide provides the rationale and specific guidance for integrating the capability for climate change 

adaptation and extreme weather response into TSMO and maintenance programs. It also articulates why 

doing so will lead to greater sustainability. 

Figure 2. Graph. Overlapping Responsibilities of Different Transportation Agency Offices.
4

In laying out both the need for integration of adaptation into decision making and approaches to do so, this 

guide also takes a first step toward beginning to establish a consistency of language and practice that will 

facilitate much-needed collaboration and coordinated action across operating groups within and outside 

the agency.

The guide provides resources to help agencies:

 Self-evaluate where practices need to be altered to enhance resiliency to climate change. 

 Identify what changes need to be made.

 Assess the benefits and co-benefits of making those changes.

 Map out the changes in capabilities that need to be taken to implement them.

C. What this Guide Does Not Cover 

The guide is a first effort to provide guidance on how to adapt TSMO and maintenance programs to 

climate change. This is a quickly evolving field as evidenced by the rapidly emerging research by top-level 

national and international agencies (e.g., United Nations, National Academies). There are still many 

knowledge gaps in terms of adapting practices, including risk management and probabilistic decision 

making. This document reflects what is known today, but does not answer all the questions that 

practitioners are certain to raise. 

The guide also does not provide guidance on related topics that are better described in other documents (e.g., 

how to respond during extreme or adverse weather). As mentioned above, this guide is focused on helping 

agencies do the “up-front” work to prepare for addressing climate change and extreme weather events.

D. How to Use this Guide 

The guide provides context, an overview of steps, and specific resources to help DOTs get started to adapt 

TSMO, maintenance and emergency management programs to climate change. Users may come to the 

guide with varying levels of familiarity with the content and issues presented herein. It is, thus, designed 

so that the Table of Contents can be used to jump to any section in the guide where users find content 

relevant to their specific needs. Of particular note:

 Section IV describes the general planning components needed to adapt a TSMO and maintenance 

program for climate change.

 Blue text boxes throughout the guide (titled “Getting Started”) contain specific resources to help 

agencies get started with adaptation, such as checklists and other resources. 

 Green text boxes throughout the guide (titled “Examples from the Field”) provide lessons learned and 

best practices from around the country. These examples help to illustrate the more general guidance 

provided and highlight the diversity of issues and approaches to addressing them.

 Getting Started Examples from the Field 
5

A. Federal Highway Administration Action on Climate Change 

Federal Highway Administration (FHWA) recognizes that climate change and extreme weather events 

pose a significant challenge to the safety, reliability, effectiveness, and sustainability of the national 

transportation system. In 2014, FHWA issued a directive that establishes FHWA policy on preparedness 

and resilience to climate change and extreme weather events, in compliance with Executive Order 13653, 

Preparing the United States for the Impacts of Climate Change, issued in 2013. The FHWA directive 

provides several ways in which “FHWA will integrate consideration of the risks of climate change and 

extreme weather event impacts and adaptation responses, into the delivery and stewardship of the Federalaid and Federal Lands Highway programs,” including encouraging State departments of transportation 

(DOTs), metropolitan planning organizations (MPOs) tribal governments, and others to develop costeffective strategies to minimize climate and extreme weather risks.3

FHWA began activities to address climate change in the early 2000s with several white papers followed by 

in-depth studies on the impacts of both climate variability and climate change in the Gulf Coast as well as 

sea level rise on the Atlantic Coast. FHWA’s next steps to address climate change were to develop tools 

and information that could be used by State DOTs and MPOs to assess their vulnerabilities to climate 

change. FHWA also continues to analyze strategies that can help improve resiliency. For additional 

information on FHWA’s climate change efforts, see the FHWA web page, "Summary of FHWA Climate 

Adaptation Initiatives." 4

The FHWA Order and ongoing research activities are intended to promote transportation system resiliency, 

defined as the ability to anticipate, prepare for, and adapt to changing conditions and withstand, respond to, 

and recover rapidly from disruptions. Much of the work to date has been focused on assessing 

vulnerabilities and considering transportation infrastructure and design adaptation. This guide specifically 

focuses on how agencies can reframe TSMO and maintenance programs to increase resilience to the 

uncertainty and variability associated with climate change.

3 FHWA, Order 5520, Subject: Transportation System Preparedness and Resilience to Climate Change and Extreme Weather Events, 

December 15, 2014. Available at: http://www.fhwa.dot.gov/legsregs/directives/orders/5520.cfm.

4 FHWA, “Summary of FHWA Climate Adaptation Initiatives” Web page. Available at: http://www.fhwa.dot.gov/environment/climate_

change/adaptation/ongoing_and_current_research/summary/index.cfm.

II. Context and Rationale for Adapting to 

Climate Change
6

B. What is Transportation Systems Management and Operations and 

Maintenance?

This guide focuses on two primary transportation functions: 1) transportation systems management and 

operations (TSMO) and 2) maintenance. These functions both involve the day-to-day activities that maximize 

the use of transportation infrastructure. TSMO refers to an integrated approach of programs, projects, or 

services designed to get the safest and most efficient use out of existing and planned infrastructure. TSMO 

functions include traffic management, traffic incident management, traveler information services, traffic signal 

coordination, transit priority/integration, freight management, work zone management, planned special event 

management, road weather management, and active transportation and demand management. 

Maintenance activities help to preserve and extend the use of transportation infrastructure and aim at carrying 

out day-to-day protective and repair measures to limit degradation due to natural processes (e.g., weather) or 

imposed processes (e.g., traffic). Maintenance functions include pavement management, shoulder maintenance, 

bridge inspection, vegetation management, road weather management, work zone management, and asset 

management.

C. How are Extreme Weather Events and Climate Change Related?

It is important to understand how extreme weather events and climate change are related and how they 

differ.5 Changes in climate and weather are linked over the long term, but no single weather event can 

specifically be attributed to a changing climate. 

 Weather events are defined as the state of the atmosphere in a particular location at a particular time. For 

example, rain, temperature, and wind are all aspects of local weather. “Extreme weather events can 

include significant anomalies in temperature, precipitation and winds, and can manifest as heavy 

precipitation and flooding, heatwaves, drought, wildfires and windstorms (including tornadoes and 

tropical storms).” 6

 Climate change refers to any significant change in the measures of climate lasting for an extended 

period of time. Climate change includes major variations in temperature, precipitation, or wind 

patterns, among other environmental conditions, that occur over several decades or longer. Changes in 

climate may manifest as a rise in sea level, as well as increase the frequency and magnitude of extreme 

weather events now and in the future.7

Long-term trends in climate are not dependent on any single extreme event. A single large rain event or 

even a single wet year may just be a normal fluctuation in weather patterns but changes that are noted year 

after year, such as a run of wet years, can be attributed to a larger change in the climate. 

Climate change could mean that what was historically a rare weather event becomes increasingly frequent 

(possibly shifting from rare to occasional or regular). Consideration of how we respond effectively or not 

to the rare extreme events occurring today can provide useful information about how we can and should 

respond to increasing future risk. Optimizing for today’s extreme weather events makes our systems more 

prepared for the increased frequency of some events that is anticipated under a changing climate. Figure 3 

demonstrates the shift in temperatures towards more hot weather and a slight decrease in cold weather. 

5 A good discussion of the linkage between extreme weather events and climate change can be found in: D. Huber and J. Gulledge, 

“Extreme Weather and Climate Change: Understanding the Link and Managing the Risk,” Science and Impacts Program (Arlington, VA: 

Center for Climate and Energy Solutions, 2011). Available at: http://www.c2es.org/publications/extreme-weather-and-climate-change.

6 FHWA Order 5520, December 15, 2014. “Transportation System Preparedness and Resilience to Climate Change and Extreme Weather 

Events.” Available at: http://www.fhwa.dot.gov/legsregs/directives/orders/5520.cfm.

7 Ibid.
7

Average Hot

(a) Temperature

Previous 

climate

More 

hot

weather

More 

record hot 

weather Less cold

weather New 

climate

Cold

Probability of Occurance

 

Figure 3. Graph. Weather Probability Distribution Showing an 

Increase in Mean Temperature.8

D. How Will Climate Change Affect Transportation Systems Management 

and Operations and Maintenance?

As climate changes, agencies may have to deal with new weather stressors that require different planning 

approaches or responses (e.g., loss of permafrost in Alaska, snow and ice control in Southern states). The 

2011 report, Adapting Transportation to the Impacts of Climate Change State of the Practice provided an 

overview of the operational impacts associated with climate change.9 These operational impacts include:

 Increase in traffic incident management activities.

 Road and lane closures.

 Reduced (and variable) speed limit.

 Disruption of transit service.

 Road and transit diversions.

 Truck restrictions.

 Work zone management (to accommodate additional lane closures).

The 2013 report, Planning for Systems Management & Operations as part of Climate Change Adaptation, 

provides a summary of the anticipated changes to system maintenance (e.g., inspection, frequency of repairs, 

need for “quick maintenance” patrols); system operations practices and strategies (e.g., more frequent 

diversion to more robust alternate routes); travel behavior (e.g., motivation to use alternate modes of transport 

such as transit, biking, or walking); and freight transportation (dynamic or seasonal restrictions for trucks or 

rail during times of high heat) needed or likely to occur as a result of anticipated impacts of climate change.10 

8 Peterson, T.C., D.M. Anderson, S.J. Cohen, M. Cortez-Vázquez, R.J. Murnane, C. Parmesan, D. Phillips, R.S. Pulwarty, J.M.R. Stone, 

2008: Why Weather and Climate Extremes Matter in Weather and Climate Extremes in a Changing Climate. Regions of Focus: North 

America, Hawaii, Caribbean, and U.S. Pacific Islands. T.R. Karl, G.A. Meehl, C.D. Miller, S.J. Hassol, A.M. Waple, and W.L. Murray (eds.). 

A Report by the U.S. Climate Change Science Program and the Subcommittee on Global Change Research, Washington, DC. Available at: 

https://downloads.globalchange.gov/sap/sap3-3/sap3-3-final-all.pdf.

9 Transportation Research Board Special Task Force on Climate Change and Energy, Transportation Research Circular E-C152: Adapting 

Transportation to the Impacts of Climate Change State of the Practice 2011, June 2011. Available at: http://onlinepubs.trb.org/onlinepubs/

circulars/ec152.pdf.

10 FHWA, Planning for Systems Management & Operations as Part of Climate Change Adaptation, FHWA-HOP-13-030 (Washington, DC, 

2013). Available at: http://ops.fhwa.dot.gov/publications/fhwahop13030/index.htm.
8

While TSMO and maintenance programs are often reactive by nature, the accelerating pace and 

increasingly unpredictable nature of extreme weather events could place increasing strain on an already 

stressed system. Further, agencies may not be optimized for the present; some practices need to be 

improved now. 

TSMO and maintenance programs will need to take a proactive approach to regularly reevaluate existing 

programs and practices in light of new information and criteria (e.g., if preparing for new demands, they 

may need to adjust budgets) to ensure they are climate resilient. Opposition to making changes in 

operations may exist due to the risk-averse environments under which many State DOTs operate. 

Traditionally, this risk aversion has resulted in slow changes in practices and protocols in order to avoid 

changing what works. Transportation agencies could be at greater risk, however, if they do not change their 

practices rather than if they do. The environment in which they work is changing due to climate change; 

risk-averse decision makers should seek to avoid risks by considering climate change in their systems 

management and maintenance rather than ignoring it.

E. Why Do Transportation Systems Management and Operations and 

Maintenance Programs Need to Adapt to Climate Change?

TSMO and maintenance programs have vital roles to play in adapting to climate change. For many of the 

already observed and anticipated weather events related to climate change, TSMO and maintenance 

workers as well as the DOT emergency responders with whom they coordinate—who are, in some 

instances, DOT maintenance staff—are and will be the public face and the front-line of the response. 

Climate change presents a business risk for transportation agencies. Without proactive steps to anticipate 

potential changes and respond to them, the ability of agencies to support their core mission could be 

compromised. 

With climate change comes uncertainty, be it in a greater variability of expected events or unexpected 

extreme weather. By not understanding the risk or not assessing the vulnerability of their operations, 

agencies can be caught off-guard by an unexpected event leading to significantly degraded capabilities 

when they are most needed.

Changes in relatively short duration extreme events often result in the most significant consequences, and 

while DOTs may be prepared to respond to these events on an individual basis, the cumulative impact of 

more severe and more frequent events may warrant a change in business practices. Longer term changes to 

annual or seasonal averages, which are often cited in broad-scale summaries of projected climate change, 

cause less immediate impacts but over time can affect practices and costs.

Not all the necessary adjustments to business practices are radical; there are many ways—big and 

small—to account for climate change and reduce this business risk. In fact, many TSMO and maintenance 

adaptations will be the “low-hanging fruit” to prepare DOTs for climate change, in contrast to changes to 

infrastructure design.

Incremental steps toward a more comprehensive program that fully considers how to incorporate potential 

climate change impacts will be easier for most agencies to manage than an immediate, full-fledged, 

comprehensive overhaul of their existing programs. A phased implementation approach will enable 

agencies to adapt their TSMO and maintenance programs to climate change in a planned and systematic 

manner. For this to occur, it is necessary to incorporate the needs of climate change and extreme weather 

events into the routine policy and practice of TSMO and maintenance at transportation agencies. 
9

Adapting TSMO and maintenance programs is largely about improving capability rather than a major 

technology development and deployment initiative. Many of the technology elements used to support 

safety, congestion mitigation, and traveler information objectives are already in place and there is more on 

the way. For example, today Road Weather Information Systems (RWIS), cameras, and other roadside 

infrastructure are used extensively by agencies around the country. In the near future, connected vehicle 

technologies promise to overcome the barriers of fixed infrastructure and data availability. To adapt to 

climate change then, agencies need to consider how these existing capabilities need to evolve to meet the 

new and emerging requirements of a changing climate. These may take the form of hardening the 

communication links or rethinking the siting of these detection systems. Similarly, other existing 

processes for supporting safety and reliability need to be reviewed and supplemented to account for 

climate change. 

F. Capability Maturity Framework

The American Association of State Highway and Transportation Officials (AASHTO) and FHWA have 

developed a capability maturity framework (CMF) to help DOTs adapt their TSMO programs.11 The CMF 

defines six areas of capability that form the supportive foundation for the implementation of TSMO 

strategies. As agency capabilities increase from ad-hoc implementation and planning to optimized 

practices, agencies will be able to have repeatable processes that are scalable, sustainable, and 

mainstreamed. 

This guide aligns those actions needed to adapt TSMO and maintenance programs to climate change with 

the six areas of the CMF:

 Business processes – including financial (e.g., budgeting) as well as conducting risk analyses and dealing 

with uncertainty, planning, programming, and standard operating/implementation procedures.

 Systems and technology – transportation agencies have invested in a wide suite of technology and 

management systems to enable them to more efficiently manage weather events within their jurisdiction. 

 Performance measurement – including measures definition, data acquisition, analysis, and utilization.

 Culture – including technical understanding, leadership commitment, policy, outreach, and program 

authority.

 Organization and workforce – including organizational structure, staff capacity, development, and 

retention.

 Collaboration – including internal collaboration and relationships with other public agencies and the 

private sector. 

G. What's Already Being Done? 

The growing awareness that climate change can affect transportation has not yet resulted in widespread 

actions to identify and implement strategies to address climate change. Some transportation agencies have 

begun to assess vulnerability. Fewer have moved beyond vulnerability assessments and into adaptation 

planning. Even fewer have implemented adaptation strategies and begun to evaluate their effectiveness. 

Further, more emphasis to date has been on the implications of climate change for infrastructure planning, 

design, and engineering with less focus on system management, operations, and maintenance. 

The transportation sector is not ahead or behind other sectors in this regard. Changes in climate are often 

discussed on a global or regional scale and presented with wide ranges of uncertainty and timescales. It is 

challenging to understand what climate change will mean on a local scale and for the timeframe most 

relevant to specific decision making processes of interest. 

11 See the AASHTO “Transportation Systems Management and Operations” web page for more information: http://www.aashtotsmoguidance.org/.
10
11

III. Steps to Adapt Transportation 

Systems Management and Operations and 

Maintenance Programs to Climate Change

A. How Transportation Systems Management and Operations and 

Maintenance Work Together on Climate Change 

Over the past 10 years, State and local agencies have implemented various transportation systems 

management and operations (TSMO) and maintenance strategies to mitigate the impacts of adverse 

weather on the transportation system. The strategies run the gamut from plowing and sanding to 

coordinated traffic control strategies and regional traveler information. Agencies respond to weather events 

through a multi-pronged approach that involves a combination of operational, maintenance, and, at times, 

emergency management strategies. Typical strategies used today include motorist alerts, advisories, 

warnings (which include roadside active warning systems and pre-trip traveler information systems), speed 

restrictions (variable speed limits, for example), vehicle restrictions (truck restrictions during high winds), 

route restrictions (road closures), anti-icing/deicing road surface treatments, plowing, and traffic signal 

management (weather responsive traffic management). In addition, traffic incident and emergency 

management practices provide agencies with the ability to marshal resources effectively to address adverse 

weather. Most of these approaches require multi-agency and multi-disciplinary capabilities to be brought 

together efficiently before, during, and after the extreme weather event. Traffic incident and emergency 

management collectively fall under the area of emergency transportation operations (ETO), which involves 

collaboration and coordination between transportation, public safety (fire, rescue, emergency medical 

service [EMS]), law enforcement) and emergency management communities. 

The roles and responsibilities of TSMO, maintenance, and emergency response managers and staff are 

connected and often interdependent in addressing the impacts of extreme weather and climate change on 

the transportation system. Each functional group has a unique set of decisions falling across the six areas 

of the capability maturity framework (CMF) (described in Section II) that may need to be examined in 

adapting to climate change. 
12

For example, the managers of maintenance programs will be concerned with decisions involving 

pavement rehabilitation needs and methods, bridge maintenance needs and methods, construction and 

maintenance work timelines and timeframes, and vegetation control. TSMO12program managers will 

need to revisit other decisions such as the types of monitoring equipment and sources, communication 

needs, and siting criteria necessary to obtain real-time operational information on the transportation 

system and push information out to travelers. Emergency management leaders, in coordination with 

operations divisions, will look at adapting operating procedures and resource levels to prepare for 

hurricane evacuations or other weather-related emergencies. As is evident, TSMO functions rely on 

well-maintained infrastructure, and successful emergency management depends on reliable and 

strategically deployed TSMO infrastructure (e.g., traffic signals, contra-flow lanes, variable message sign 

(VMS), cameras, road weather information stations), TSMO staff, and fine-tuned operating procedures 

that can be leveraged during emergencies. The same holds true for maintenance, its infrastructure, and 

the linkage between maintenance and emergency management.

The link between transportation operations and emergency management varies depending on the scale of 

the event. During major, catastrophic events emergency management agencies have control of the response 

and transportation operations. During less extreme events, the departments of transportation (DOTs) 

maintain control over the highways and major arterials. This difference will be important to consider when 

DOTs plan actions to address climate change risks in the short and long term. Figure 4 illustrates that as 

the level of severity of the incident increases, the number of agencies involved grows beyond the DOT to 

include public safety and emergency management agencies. The increase in severity also indicates that a 

greater level of collaboration and communication between agencies and functions is required. 

Weather-Related Incidents

Planned

Activities

Minor

Incident

Major

Incident

HAZMAT

Incident

Natural

Disaster

Terrorist

Incident

Federal

State Emergency

Management Agencies

Other Local Agencies (Emergency

Mgmt., Roads, Public Works)

Public Safety Agencies

DOTs, State and Local Agencies

Severity of Incident

Number of Agencies Involved

Level of Communication and Coordination

Frequency of Incident

Figure 4. Graph. Involvement of Agencies in Incident Response.12 

12 S. Lockwood, J. O’Laughlin, D. Keever, and K. Weiss, NCHRP Report 525: Surface Transportation Security Volume 6 – Guide for 

Emergency Transportation Operations, Washington, DC: Transportation Research Board of the National Academies, 2005. Available 

online at: http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_rpt_525v6.pdf.
13

Define Scope

Assess Vulnerability

Integrate into Decision Making

Identify Key

Climate Variables

• Climate Impacts of concern

• Sensitive assets & 

thresholds for impacts

Articulate Objectives

• Actions motivated by 

assessment

• Target audience

• Products needed

• Level of detail required

Select & Characterize

Relevant Assets

• Asset type

• Existing vs. planned

• Data availability

• Further delineate

Assess Asset

Criticality

Collect & Integrate

Data on Assets Develop Climate

Inputs

Develop Information

on Asset Sensitivity

to Climate

Incorporate Likelihood

& Risk

Identify & Rate

Vulnerabilities

• Identify Opportunities for Improving Data 

Collection, Operations or Designs

• Build Public Support for Adaptation 

Investment

• Educate & Engage Staff & Decision 

Makers

• Incorporate into Asset Management

• Integrate into Emergency & Risk 

Management

• Contribute to Long Range 

Transportation Plan

• Assist in Project Prioritization

Deve

ol p

N

e

w

Objectives

Monitor a

n

d

Rev

si

it

Figure 5. Diagram. Federal Highway Adminstration (FHWA) Climate Change 

and Extreme Weather Vulnerability Assessment Framework.

B. Overview of an Operations Adaptation Framework

The Federal Highway Administration (FHWA) has developed and tested a Climate Change and Extreme 

Weather Vulnerability Assessment Framework (“the Framework”) (see Figure 5) which consists of a report13

and an online virtual framework (see Figure 6),14 which serve both as a guide and a collection of resources 

for use by transportation professionals when analyzing the impacts of climate change and extreme weather 

on transportation infrastructure. Its purpose is to identify key considerations, questions, and resources that 

can be used to design and implement a climate change vulnerability assessment. To date, the Framework 

has been tested by 24 pilot sites and has undergone a series of refinements as a result of the real-world 

findings. The pilots have also contributed to the plentiful body of lessons learned and example resources 

that are linked to the virtual version of the Framework.

13 FHWA, Climate Change and Extreme Weather Vulnerability Assessment Framework, FHWA-HEP-13-005 (Washington, DC, 2012). 

Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/publications_and_tools/vulnerability_assessment_

framework/page01.cfm.

14 FHWA, Virtual Framework for Vulnerability Assessment. Available online at: http://www.fhwa.dot.gov/environment/climate_change/

adaptation/adaptation_framework/. Last accessed June 28, 2015.
14

 The Federal Highway Administration (FHWA) Virtual Framework

FHWA has developed a broad set of resources to help transportation agencies prepare for climate 

change. The "Virtual Framework for Vulnerability Assessment" website houses resources for State and 

local transportation agencies (see Figure 6). The Virtual Framework breaks the vulnerability 

assessment process into six modules. Each module contains step-by-step guidance, video testimonials 

from professionals sharing lessons on their experience, case studies related to the framework step, 

links to resources related to the step, and tools to help a user complete the step.

Figure 6. Screenshot. Federal Highway Administration Virtual Framework 

for Vulnerability Assessment (Module 2 shown).

This guide is intended to complement the resources on the Virtual Framework and provide targeted 

guidance to staff in the transportation systems management and operations (TSMO) and maintenance 

domains. Throughout this document, the Virtual Framework is referenced as appropriate, in cases 

where guidance (e.g., where to find climate data) is not operations-specific.

The Framework, originally developed with an infrastructure planning and design focus, provides the 

organizing principle for understanding adaptation needs from an operations and maintenance perspective 

as well. 

Consistent with the Framework the primary components of this guide include:

 Define objectives and scope.

 Assess vulnerability.

 Integrate climate change considerations into decision making.

 Monitor, revisit, and develop new objectives.

While the emphasis of this guide is on concrete actions DOTs can take to integrate climate change into 

decision making, it is critical to also define the scope of adaptation efforts and assess vulnerabilities to 

inform the development of adaptation strategies. Figure 7 illustrates how TSMO and maintenance 

groups can use the Framework to identify and implement appropriate strategies for their unique 

conditions and locations. 
15

• Articulate program goals and operations objectives

• Identify key climate variables

• Develop information on decisions sensitive to 

climate change

Dene Scope

Monitor and Revisit

Develop New Objectives

• Document existing capabilities (both technical 

and institutional)

• Collect and integrate data on past performance

• Develop climate inputs

• Characterize impacts and risks

Assess Vulnerability

Integrate into Decision Making

Identify Performance Measures

(tolerance for disruption)

Evaluate and Select Adaptation Measures

Identify Potential Adaptation Measures

• Technical and political 

feasibility

• Costs and benefits

• Efficacy

• Flexibility

• Environmental and 

societal impacts

Determine Improvements in Capabilities 

Necessary for Successful Implementation

• Business processes

• Systems and technology

• Performance 

management

• Culture

• Organization and workforce

• Collaboration

Figure 7. Diagram. Climate Change and Extreme Weather Transportation Systems

Management and Operations (TSMO) and Maintenance Adaptation Framework. 

C. Define Scope

It is important to articulate the objectives of the adaptation effort up front and identify the anticipated 

changes in climate that are most relevant to your agency. Together, these steps frame the scope of the 

planning effort and drive the details required; they help minimize data collection and analysis activities that 

would ultimately be extraneous to the desired objectives. 

1. Articulate Program Goals and Operations Objectives

TSMO and maintenance offices within agencies have long been driven by goals and objectives largely 

around safety, levels of service, and reliability. DOTs need to adapt to climate change to ensure they can 

continue to meet program goals. 

Program goals and operations objectives may require some updates when anticipated climate changes are 

taken into account. These updates may be only subtle shifts in agency focus, but should aim to define 

what must be achieved to ensure resilient operations. Agencies should consider what levels of performance 

are expected during adverse weather (which may become more frequent or intense under a changing 

climate) and what levels of disruption are tolerable. Demand-oriented goals and objectives (e.g., the role of 

the agency. in serving the surge in demand that may be expected) need to be defined as well as the 

expectations for restoration of services and travel. 
16

Agencies should also develop more specific, outcome-based operations objectives for the program goals. 

These operations objectives should be refined and tied to specific performance measures when working 

through Sections III.D. Assess Vulnerability and III.E Integrate into Decision Making (and once the user 

has a better understanding of realistic expectations that take into account future changes in climate).15

2. Identify Key Climate Variables

Changes in climate and extreme weather events will not be uniform throughout the world or even 

throughout the United States. It is important to identify the climate stressors or extreme weather events 

(e.g., increase in extreme heat, more frequent heavy precipitation, increased precipitation variability, 

drought, flooding, sea level rise, higher storm surges, increase in wildfire probability) that: (1) could 

occur locally; and (2) could affect local TSMO and maintenance programs. Examples of the geographic 

diversity of climate impacts can be seen in Figure 8. A complete set of resources for identifying local 

climate changes is available as part of Module 2 of FHWA’s Virtual Framework for Vulnerability 

Assessment.16 Once the regional climate stressors of concern have been identified, Section III of this 

document explains how to refine DOTs understanding of the scale and impacts of those climate stressors 

on TSMO and maintenance. 

15 FHWA, Regional Climate Change Effects: Useful Information for Transportation Agencies, May 10, 2010. Available at: http://www.fhwa.

dot.gov/environment/climate_change/adaptation/publications_and_tools/climate_effects/.

16 Module 2 of the FHWA Virtual Framework is available online at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/

adaptation_framework/modules/index.cfm?moduleid=2.

 Getting Started: Obtaining Buy-In

A critical component to any organizational change is developing support for that change among key 

decision makers and stakeholders. Adapting a transportation systems management and operations 

(TSMO) or maintenance program to increase climate change resiliency requires gathering support 

among program management, agency decision makers, program staff, and others involved in the 

TSMO or maintenance program activities. The level of buy-in required will depend on the scale of 

change desired. Below are several recommendations for gathering support for adapting a TSMO or 

maintenance program to prepare for the current and potential future impacts of climate change:

 Make the business case for resilience. 

• Start by identifying any current issues in operating and maintaining the transportation system 

as a result of extreme weather events or noticeable changes in climate. 

• Use FHWA documents, such as the Regional Climate Change Effects: Useful Information for 

Transportation Agencies, to gather key reasons to be concerned about climate change and what 

the projected effects are of climate change locally.15 

• Find a model or example to strengthen the case. The Federal Highway Admintration (FHWA) 

has several case studies available. 

 Engage staff and leadership throughout the department of transportation (DOT) early and often, 

especially in the vulnerability assessment and brainstorming of adaptation strategies.

 Establish clear roles and responsibilities for individuals within the organization and determine 

systems for accountability. 

 Improve integration of TSMO, maintenance, and emergency management into DOT planning for 

climate change.
17

Projected Temperature Change by 2100

Temperature Change (°F)

Lower CO2 Emissions (B1) Higher CO2 Emissions (A2)

3 4 5 6 7 8 9 10 15

Figure 8. Chart. Projected Temperature Changes under Low and High Emissions Scenarios.17

3. Develop Information on Decisions 

Sensitive to Climate Change

As discussed in Section III.D.2, information on the 

past climate and the resultant impacts is useful for 

understanding the kinds of weather and climate 

effects to which assets and operations are sensitive 

and can help to identify thresholds beyond which 

future climate effects may affect those assets. 

It is also important to look forward and identify decisions that may be climate-sensitive in the future and 

which decisions (e.g., standard operating practices, budget allocations) may be based on historical climate 

trends that no longer accurately reflect more recent trends (that have shifted due to climate change).

The following is a proposed definition for climate-sensitive decisions:

Decisions are climate-sensitive if their continued effectiveness 

could be compromised by projected changes in climatic conditions 

(e.g., changes in temperature, precipitation, weather patterns, and 

the frequency and intensity of extreme weather events).

TSMO and maintenance decisions that DOTs make on a daily basis are rarely climate-sensitive, because 

the implications of those decisions are typically so short-lived that there is not enough time for them to be 

compromised by the effects of climate change. Transportation agencies make numerous short-term and 

long-term decisions about their TSMO and maintenance programs, however. Potential changes in 

extreme weather events or climate variability are relevant to many of these decisions, especially the 

decisions agencies make infrequently.

17 J. Walsh, D. Wuebbles, et al. Climate Change Impacts in the United States: The Third National Climate Assessment, “Ch. 2: Our 

Changing Climate,” U.S. Global Change Research Program, 19-67, 2014. Accessible at: http://s3.amazonaws.com/nca2014/low/NCA3_

Full_Report_02_Our_Changing_Climate_LowRes.pdf?download=1.

Sensitivity = how an asset or system 

fares when it is exposed to an 

impact.

Source: Federal Highway Administration Virtual 

Adaptation Framework.
18

An early step in identifying how DOTs can adapt their TSMO and maintenance programs is to identify 

possible entry points—existing decisions that could incorporate climate change considerations in the 

future. For example, knowing that there could be more frequent flooding events could change an agency’s 

decision about what workforce capabilities are required for the season. Table 1 provides an example of 

potential TSMO and maintenance decisions which may be influenced by climate change and extreme 

weather. Additional examples and related information are provided in Appendix A – Matrix of ClimateSensitive Decisions. For each decision, the appendix includes a description, how climate stressors affect 

the decision, and which climate stressors affect the decision.

Table 1. Example of Climate-Sensitive Decisions.

Climate-Sensitive

Decision Areas Specific Decisions Description

1. Planning for future 

workforce needs.

Determine the right level of 

workforce requirements and 

capabilities. 

Operating agencies make a variety of 

workforce-related decisions, including the 

number of staff required, their locations, and 

capabilities necessary to monitor, control, 

report, and maintain the roadway system.

2. Planning for 

operations and 

maintenance 

investments.

Determine criteria to 

prioritize operational 

resource investments 

(including capital 

improvements). 

Resource investments may include new capital 

improvements for operations and maintenance 

such as control systems, field equipment, 

vehicles, communications, and power. They 

may also include investments for annual 

maintenance.

3. Budgeting for 

operations and 

maintenance.

Determine the appropriate 

funding needs and levels on 

annual and multi-year basis.

Operating agencies typically are funded on an 

annual basis. Funding levels greatly drive the 

overall program capabilities and functions.

4. Establishing 

realistic objectives.

Set regional operations 

objectives for the program.

Effective planning for operations requires a 

clear articulation of regional operations 

objectives. These objectives define the 

response strategies and the performance-based 

management required.

Note: Excerpted from Appendix A – Matrix of Climate-Sensitive Decisions.

While day-to-day management of traffic operations might not be particularly sensitive to broader changes 

in climate, the planning required to support agile TSMO and maintenance programs may involve more 

climate-sensitive decisions. For example, future workforce equipment needs, facility siting, material 

procurement, technology deployments, business processes, and institutional arrangements typically span 

multiple seasons and even years. The effectiveness of such decisions made today may be compromised by 

changes in climate. 

The following list of questions can help agencies determine if a decision is climate-sensitive: 

 Do climate variables have a direct effect on the decision outcomes? For example, will increases in 

precipitation overwhelm current maintenance practices? 

 Can climate variables affect the underlying assumptions upon which the decision is founded? For 

example, will changes in the climate, such as precipitation, affect traffic levels, which in turn impact 

roadway operations and management?

 Is climate likely to change during the time period governed by the decision? Consider long-term, chronic 

changes in climate as well as the increased frequency of acute weather events.

• What is the time horizon for planning and implementation?

• How frequently is the decision made?
19

 Is this a single decision moment or a multiple decision moment (i.e., is the decision made once and then 

executed or is there room for refinement and adjustment over the course of implementation/operations)? 

Includes:

• Financial reversibility (i.e., does the practice represent a cost that cannot be recovered?)

• Foreclosure of other options (i.e., does implementing this practice limit the availability of other practices 

in the future?).

In addition, think about whether there are any specific weather thresholds at which the decisions become 

sensitive. Linking TSMO and maintenance practices to weather thresholds is a needed step in this process. 

To date, these rules have been ad-hoc and not formalized. In the past, experienced supervisors knew what 

activities could be scheduled based on weather conditions like precipitation, wind speeds, visibility, and 

temperature. There are no standard weather-related practices for maintenance or operations actions. When 

there are specific thresholds for weather conditions (e.g., staff cannot work without frequent breaks when 

temperatures are above X°F), projections on how those specific variables may change in the future can 

help inform planning.

 Identifying Weather Sensitivity Thresholds

An important component of understanding how climate change may affect transportation systems 

management and operations (TSMO) and maintenance practices is understanding whether there are 

specific weather thresholds that affect TSMO and maintenance—and then, whether those thresholds may 

change in the future.

The links between weather, TSMO, and maintenance are often well understood at the individual level (e.g., 

maintenance supervisors), but these “rules” are often ad hoc and are rarely documented or formalized.

Consider using the climate change planning process to capture internal guidelines and weather 

thresholds. For example, the table below can serve as a “template” for identifying and recording weather 

sensitivity thresholds. This is derived for work focused on the Illinois and Iowa departments of 

transportation. The Capital Area Metropolitan Planning Organization (CAMPO) in Austin, Texas, 

completed a similar exercise to identify sensitivity thresholds as part of their Federal Highway 

Administration-funded Climate Resilience Pilot Project. 

Table 2. Sample Template for Identifying and Recording Weather Sensitivity Thresholds.

Adapted from FHWA, Clarus Multi-State Regional Demonstrations, Evaluation of Use Case #3: Non-Winter Maintenance Decision 

Support System, “Appendix A,” FHWA-JPO-11-118 (Washington, DC, 2011). Available from: http://ntl.bts.gov/lib/43000/43100/43179/

FHWA-JPO-11-118_Eval_Report_UC-3_FINAL.pdf.

TSMO/Maintenance 

Activity Weather Variable

Threshold (conditions must 

be...)

Pavement maintenance: 

full depth concrete

Air temperature ≥ 50°F

Relative humidity ≥ 60%

Precipitation rate ≤ 0.01 in. hr.

Probability of precipitation 3 hr. ≤ 40%

Pavement preventive 

maintenance: crack and joint 

sealing

Air temperature 30-60°F

Precipitation rate ≤ 0.01 in. hr.

Probability of precipitation 3 hr. ≤ 40%

Tree and shrub planting

24-hour precipitation ≤ 1 in.

Precipitation rate ≤ 0.01 in. hr.

Probability of precipitation 1 hr. ≤ 60%
20

Additional information on possible impacts of climate change on transportation systems (including 

infrastructure and operations) can be found in Transportation Research Board (TRB) Special Report 290, 

National Cooperative Highway Research Program (NCHRP) Report 750, among others. This and other 

resources are available at the FHWA Virtual Adaptation Framework Climate Change Adaptation Case 

Studies and Resources.18

 Using Scenario Planning to Understand Climate Change Vulnerability and Risk 

Scenario planning is an approach to planning that is increasingly being used by transportation planning 

organizations to make critical decisions in the face of uncertainty. Scenario planning helps stakeholders 

answer questions such as what are the policies, strategies, or investments that help us achieve our goals in 

light of uncontrollable or unknown future conditions. Scenario planning brings together interagency and 

intra-agency stakeholders needed to effectively address an issue and helps them make decisions that are 

more robust in a variety of futures. It also helps create a more adaptive, resilient organization or program. 

Scenario planning could be used to help make decisions regarding adapting a transportation systems 

management and operations (TSMO) or maintenance program for potential climate change impacts. 

Scenario planning allows organizations to explore several distinct possible futures that may result from 

different paths that climate change may take, analyze the potential consequences, and investigate 

alternative TSMO and maintenance strategies to address the issues. The scenario approach formalizes 

the consideration of uncertainty in preparing for climate change impacts in a systematic way. Scenario 

planning may also aid in helping to set expectations among planners and even the general public on 

acceptable levels of system performance under extreme conditions by assessing the trade-offs between 

levels of investment and levels of system operation during different levels of severe weather. Finally, the 

scenario process might also aid the region in better understanding its areas of susceptibility, thereby 

further helping to refine and strategically deploy TSMO and maintenance strategies.

There are models (e.g., Maintenance Decision Support System [MDSS]; Sea, Lake, and Overland Surges 

from Hurricanes [SLOSH]) that can be can be used to run extreme future event scenarios. These model 

runs could be used to inform a planning process that considers high heat, winter storms, summer storms, 

sea level rise, wildfires, or cascading impacts (e.g., power/utility failure, landslides).

D. Assess Vulnerability

The level of vulnerability assessment needed – high-level or detailed, qualitative or quantitative, statewide 

or localized, agency-wide or by departments – will vary based on the types of decisions required. 

Regardless of the exact process used, the following are key elements of a vulnerability assessment.

1. Document Existing Capabilities

It is important to take a look at current or baseline capabilities (assessing both technical as well as 

institutional capability to respond to climate and extreme weather) before seeking to determine 

improvements in those capabilities (discussed in Section III.E.4). The CMF provides a useful framework for 

assessing and documenting existing institutional capabilities (and will be discussed again later in the context 

of determining improvement in capabilities necessary for successful implementation of adaptation 

measures). The framework defines capability in terms of six areas that together inform the agency’s overall 

ability to respond to changing conditions: business processes, systems and technology, performance 

management, culture, organization and workforce, and collaboration. Documenting current capabilities and 

identifying where those capabilities fall on the spectrum of ad-hoc implementation to planning for 

18 U.S. Department of Transportation, FHWA, FHWA Virtual Adaptation Framework Climate Change Adaptation Case Studies and 

Resources. Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/adaptation_framework/resources/index.cfm.
21

optimized practices will help an agency gain a better sense of how resilient they may already be to climate 

change and extreme weather events.

2. Collect and Integrate Data on Past Performance

Examining previous vulnerabilities can be an excellent starting point for thinking about future 

vulnerabilities. Common climate change-related TSMO and maintenance program vulnerabilities include: 

 Loss of roadway capacity.

 Loss of alternative routes.

 Loss of situational awareness (due to power/communication).

 Inability to evacuate/shelter-in-place.

 Loss of service life (due to faster deterioration, etc.).

 Increased safety risk.

 Loss of economic productivity.

 Reduced mobility.

Internal records or other data on how the system has fared during previous extreme weather events can 

provide a rich source of insights into potential future vulnerabilities. Any of the following could be a source 

of information about system vulnerabilities:

 Traffic incident reports – Check whether there were any incidents during specific recent extreme 

weather events that correspond to the climate stressors under evaluation (e.g., heat waves, heavy rain 

events, tropical storms).

 Maintenance records – Check maintenance records for the time surrounding specific recent weather 

events.

 After-action reports –These reports, compiled after extreme weather events, describe what happened, 

why, and areas for improvement. Mine these reports for information about vulnerabilities for 

applicable weather events.

 Emergency reimbursement forms – For declared disasters relevant to the climate stressors under 

evaluation, review Federal Emergency Management Administration (FEMA) or other emergency 

reimbursement requests to identify the magnitude and scope of damages during past events.

 Staff interviews across departments – On-the-ground staff at DOTs often have deep institutional 

knowledge about existing vulnerabilities that may not be well-documented. Asking staff “What keeps 

you up at night?” can help facilitate discussion about key system vulnerabilities.19

 Mining Agency Institutional Knowledge for Vulnerability Assessments

Washington State DOT (WSDOT) completed a statewide climate change vulnerability assessment in 

2011. Their vulnerability assessment focused on asset-level vulnerabilities, but the approach would be 

transferrable to transportation systems management and operations (TSMO) and maintenance 

vulnerabilities. The WSDOT assessment relied on a series of workshops with WSDOT staff, including 

district maintenance supervisors and their staff. They asked “What keeps you up at night?” and had staff 

individually rate each asset’s vulnerability on a scale of 1 to 10. Lower scores corresponded to reduced 

capacity or temporary operational failure, while higher scores corresponded to complete asset failure. 

Reference: WSDOT, Climate Impacts Vulnerability Assessment Report, November 2011. Available at: http://www.wsdot.wa.gov/NR/

rdonlyres/B290651B-24FD-40EC-BEC3-EE5097ED0618/0/WSDOTClimateImpactsVulnerabilityAssessmentforFHWAFinal.pdf.

19 WSDOT, Climate Impacts Vulnerability Assessment Report, November 2011. Available at: http://www.wsdot.wa.gov/NR/rdonlyres/

B290651B-24FD-40EC-BEC3-EE5097ED0618/0/WSDOTClimateImpactsVulnerabilityAssessmentforFHWAFinal.pdf.
22

If possible, build a dataset to correlate past extreme weather disruptions—gathered from the above 

sources—with information on the weather conditions associated with the event. 

Local National Weather Service (NWS) Forecast Offices (there are 122 nationwide) house “Weather Event 

Archives” that can be very useful sources of information on past extreme events.20 It is also important to 

share collected information across offices or departments. 

 Getting Started: Strategies for Documenting Institutional Knowledge

On-the-ground staff at departments of transportation (DOTs) are largely aware of the current weatherrelated problems they face on a regular basis. In addition, they are valuable resources in discussing 

hypothetical extreme weather scenarios, and may be able to readily identify potential points of failure. 

Below are several possible mechanisms to collect and document the valuable institutional knowledge of 

staff, which can then be leveraged to improve planning for transportation systems management and 

operations (TMSO) and maintenance in the face of climate change.

 Conduct interviews with staff to document their knowledge of vulnerabilities. Interview questions can 

include: 

• Recall [a recent severe weather event]. How did that affect your purview?

• When you have advance warning of an extreme [summer storm/winter storm/hurricane/heat 

event]:

◦ What responses are triggered? Are those responses tied to any thresholds in event severity 

(e.g., only if there is more than 3” of snow)?

◦ What personnel are involved?

◦ What contractors are put on notice in the preparations?

◦ What materials and equipment are put on standby?

• When the event is over:

∘ What inspections/audits are conducted to evaluate impacts?

∘ How are corrective actions planned?

 In a workshop setting, have staff place pins or dots on a map of the transportation system to identify 

locations with frequent weather-related issues (e.g., flooding, potholes).

 Establish regular debriefs to bring together the department’s cross-cutting (or multi-disciplinary) 

teams to discuss weather-related issues. Designate a person to take notes during the meeting and write 

down what works well, what does not, and what needs to change to make the system more resilient.

 Establish transition plans for retiring staff. Ask them to write down their regular duties, habits, and 

unwritten expertise.

3. Develop Climate Inputs

In addition to gathering information on past weather disruptions and identifying key TSMO and 

maintenance weather sensitivities, another important component of a climate change vulnerability 

assessment is collecting data, qualitative or quantitative, on how climate stressors are projected to change 

locally. The focus should be on identifying how specific weather thresholds identified as currently 

affecting TSMO and maintenance activities may change in the future. 

20 Historical Weather Event Archives are not always easy to find on NWS Regional Forecast Office web pages, but are usually housed under 

the Climate section.
23

Several sources exist to provide information on potential future climate changes, a selection of which are 

highlighted in the following text box. See Module 4 of the FHWA Framework21 for additional guidance on 

gathering climate inputs. 

 Sources for Climate Inputs

Table 3. Sources for Climate Inputs.

For additional information, see the “Develop Climate Inputs” section of the Federal Highway Administration Virtual Framework at: 

http://www.fhwa.dot.gov/environment/climate_change/adaptation/adaptation_framework/modules/index.cfm?moduleid=4.

In addition to collecting information on climate projections, many transportation agencies have found it 

helpful to collect information on historical weather conditions in order to provide context for the 

projections. Examine Road Weather Information System (RWIS) data to help establish the climate record 

for the area. All properly sited and maintained weather stations can be a vital part of the climate record, 

especially if they have been maintained for longer than 30 years. If RWIS data is not available, data can be 

obtained from the local weather station(s) through the National Weather Service. 

21 U.S. Department of Transportation, FHWA Virtual Adaptation Framework. Available at: http://www.fhwa.dot.gov/environment/climate_

change/adaptation/adaptation_framework/modules/index.cfm?moduleid=4.

Resource Description

National Climate Assessment

http://nca2014.globalchange.gov/

• High-level descriptions of how climate stressor may 

change.

• Focused on larger geographic areas.

• Good starting point to identify what types of climate 

changes are expected in the region.

United States Department of 

Transportation Coupled Model 

Intercomparison Project (CMIP) 

Climate Data Processing Tool

http://www.fhwa.dot.gov/environment/

climate_change/adaptation/

publications_and_tools/

• Excel-based tool to provide projections for climate 

variables relevant to transportation planners (e.g., 

number of days above 95°F, hottest 7-day 

temperatures, largest 3-day precipitation events).

• Local-scale (56-224 sq. miles).

U.S. Climate Resilience Toolkit

https://toolkit.climate.gov/

• Evolving national “one-stop-shop” for climate 

information.

• Provides links to dozens of climate projection data 

sources.

State Climatologist • May have already developed projections of how 

climate may change in the state/region.

University Climate Research Centers • May have already developed projections of how 

climate may change in the state/region.
24

 Understanding Uncertainty

Future climate change is dependent upon the amount of global greenhouse gasses emitted. In the near 

term, it is easier to predict emission levels because they will likely be similar to today’s rate of emissions 

production given the limited time for society to evolve. It is very difficult to project emission levels out 

50 to 90 years into the future because it is not known how our global society will evolve over time (e.g., 

population growth, economic growth, energy use, development of significant technological 

advancements, political action mitigating emissions). Thus, the range of plausible future emissions 

expands over future time, along with the plausible range of climate responses. 

Figure 9. Diagram. Increase in Uncertainty Over Time.

Near term climate projections have a tighter range of possibilities, while distant climate projections have 

wider range of possibilities.

Any projections of future climate conditions are subject to this uncertainty, but that doesn’t have to 

prevent agencies from using this information. Scenario planning exercises can help departments of 

transportation identify adaptation strategies that increase resilience in a range of potential future 

conditions (see text box on page 23).

4. Characterize Impacts and Risks

Synthesize information on potential climate changes, past impacts, and known sensitivities to characterize 

possible impacts of climate change on TSMO and maintenance programs. 

Determine Outputs

Think about how results will be used to determine what level of information is needed to inform decisions. 

Options include:

 Qualitative vulnerability ratings of individual decisions, functions, components, or locations (the level 

of detail decided at the outset) – e.g., High, Medium, Low vulnerabilities. In this approach, consider 

vulnerability as a function of three components:22

• Exposure – The nature and degree to which a system or asset is exposed to significant climate 

variations (i.e., whether and how climate stressors will change).

• Sensitivity – Degree to which an asset or system is affected by exposure (i.e., if all assets were 

equally exposed, which would experience the greatest damage?).

• Adaptive Capacity – Ability of a system to adjust, repair, and respond to damage or disruption. 

Adaptive capacity may not be applicable or ratable in many cases, so it may be excluded from 

vulnerability assessments.

Figure 10 provides an example of a rapid qualitative assessment of the vulnerability of a pavement 

maintenance program to increasing temperatures. It assumes that no information is readily available on 

adaptive capacity for this rapid assessment (i.e., that more information might need to be gathered to assess 

that component if a more detailed assessment is determined to be useful).

22 U.S. Department of Transportation, U.S. DOT Gulf Coast Study, Phase 2, “Task 3.1: Screen for Vulnerability,” FHWA-HEP-15-019 (Washington, 

DC, 2014). Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/case_studies/gulf_coast_study/engineering_

and_tasks/task31.pdf.

PRESENT Uncertainty Over Time DISTANT FUTURE
25

 Figure 10. Diagram. Rapid Qualitative Assessment of the Vulnerability of Pavement 

 Maintenance Program to Extreme Heat. 

 Quantitative vulnerability ratings – Use a quantitative approach to assign vulnerability ratings based on 

exposure, sensitivity, and adaptive capacity. For example, define and quantify sensitivity in terms of 

potential impact (e.g., costs, delays, disruptions).

 Qualitative risk ratings –Identify “risks” rather than “vulnerabilities.” The concepts are similar, but risk 

is different in that it incorporates likelihood of potential impact.

• Risk is traditionally defined as the product of likelihood and consequence. Likelihood is parallel to 

the exposure component of vulnerability, and consequence is parallel to sensitivity.

• Likelihood of potential impacts can be very difficult to evaluate, given the uncertainties inherent in 

climate projections. However, some agencies are more familiar with the concept of “risk” than 

vulnerabilities, so choose to present risk ratings.

 Quantitative risk ratings – Use a quantitative approach to calculate risk of impacts. 

Determine Approach

Regardless of the intended outputs, there are three primary options for how to determine those outputs.

 Data-driven, desktop analysis – Compile and assess data on climate projections and past impacts of 

weather events to determine future impacts of climate change.

 Workshop-based, stakeholder-driven analysis – Engage staff and other stakeholders to qualitatively 

assess vulnerabilities or risks. For example, ask staff to identify the locations most susceptible to flooding, 

or the hypothetical consequences of different climate scenarios.

 Hybrid approach – Complete a desktop analysis with available data, and “ground truth” the results with 

stakeholders through workshops, one-on-one interviews, or other mechanisms to get their feedback.

See the “Getting Started” boxes below for checklists to follow, along with tools and materials to evaluate 

climate change vulnerabilities or risks.

• Projected 300% increase in days 

above 95  ̊F

• 25% increase in the 7-day average 

pavement temperature

• High temperatures require changes 

in paving materials

• High temperatures increase time 

required to conduct maintenance

• No information readily available

Exposure

High 

Exposure

High/

Moderate 

Sensitivity

Not 

Applicable

Sensitivity

High/

Moderate 

Vulnerability 
26

Getting Started: Transportation Systems Management and Operations (TMSO) 

and Maintenance Vulnerability/Risk Assessment Matrix

This matrix lays out the possible areas to assess for vulnerabilities. It can be used as a “checklist” (i.e., 

check off each cell as it is completed), or to house assessment results (i.e., enter High, Medium, Low, or 

Not Applicable for each cell).

Example Vulnerability Assessment Matrix – Catalog of the Potential Areas where TSMO, 

Maintenance, and Emergency Management Functions May be Vulnerable

In each cell, rate vulnerabilities as High, Moderate-High, Low-Moderate, Low, or Not Applicable (row 

and column headings are intended to be illustrative rather than comprehensive). 

Table 4. Example Vulnerability Assessment Matrix. Extreme heat, temperature increases Heavy rain events Flooding Storm surge Sea level rise

Drought

Wildfire

Winter storms

Changes in 

freeze/thaw cycles

Permafrost thaw

TSMO Functions

Emergency response protocols

Pre-deployment of emergency supplies and 

equipment

Use of intelligent transportation systems (ITS)

Procedures for road/bridge closures

Incident management

Road weather management

Asset management

Freeway and corridor management

Arterial management

Maintenance Functions

Bridge maintenance

Pavement maintenance

Shoulder maintenance

Embankment maintenance

Culvert maintenance

Vegetation management

Signage

Crew scheduling

Drainage clearing

Fencing

Painting

Emergency Management Functions

Planning

Mitigation

Response

Recovery
27

 Getting Started: Desktop Vulnerability/Risk Assessment Checklist 

□ Determine desired outcome of vulnerability/risk assessment – vulnerability vs. risk, qualitative vs. 

quantitative.

□ Identify “wish list” of projected climate data (based on what climate impacts are relevant).

□ Collect historical climate data for those variables/event types.

• Possible sources include Road Weather Information Systems (RWIS), National Weather Service, 

agency weather data providers.

□ Collect data on projected changes in those variables/event types.

• See Federal Highway Administration (FHWA) Virtual Framework for data sources.

□ Collect data on historical impacts of events – costs, delays, disruptions, etc. 

• If requesting data from others within the organization, provide templates to make it easier for them 

to provide the requested data.

□ For each component under evaluation, determine its Exposure (e.g., potential change in temperature, 

whether it would be flooded under certain scenarios), Sensitivity, and Adaptive Capacity.

□ Use qualitative or quantitative methods to derive a vulnerability rating based on exposure, sensitivity, 

and adaptive capacity ratings for each component.

• For qualitative methods, see “Vulnerability Rating Exercise” below. 

Figure 11. Graph. Vulnerability as a Function of Adaptive Capacity and Damage.

□ Or a Risk rating based on event likelihood and consequence for each component.

□ For qualitative methods, see “Risk Rating Exercise” below.

Low

Low High

High

Low-Moderate Moderate-High

Adaptive Capacity

“Damage”

(Exposure & Sensitivity)

Vulnerability

Moderate

High

Low
28

 Getting Started: Desktop Vulnerability/Risk Assessment Checklist 

Figure 12. Graph. Risk Shown as a Function of Consequence and Likelihood.

□ Engage on-the-ground staff across departments to review and vet the results.

□ Refine results as needed.

□ Revisit results over time.

Severe

Major

Moderate

Minimal

None

Very Low Low Moderate High

Consequence

Likelihood

RISK

(Continued)
29

 Getting Started: Workshop-Based Vulnerability Assessment Checklist

□ Identify stakeholders to participate in the vulnerability 

assessment process. Candidates include:

• Regional/district maintenance supervisors and staff.

• Planning department staff.

• TSMO staff.

• Materials engineers.

• Emergency management staff.

• Asset management staff.

• Geographic information system (GIS) staff.

• Regional partners (e.g., neighboring State 

departments of transportation (DOTs), 

metropolitan planning organizations (MPOs), 

corridor management organizations).

• Federal and local partners (Federal Highway Administration (FHWA), local DOTs, transit operators).

• Private sector partners (freight carriers, regional bus 

operators (e.g., Greyhound).

□ Define a clear scope and objectives for the workshop(s) 

and set an agenda. 

• Example agenda:

∘ Introductions.

∘ Review of potential climate changes and impacts of 

those changes.

∘ Discussion: potential impacts of projected changes.

∘ Review of available data (impacts of past events, 

historical trends).

∘ Discussion/breakout groups oriented to achieve 

workshop goal (e.g., vulnerability ratings for each 

component; identification of critical areas, 

priorities for future research; discussion of 

available data?).

∘ Next Steps.

∘ Wrap Up.

□ Develop background materials for workshop (see 

sample handout in Appendix E. Sample Handout for 

Workshop on Climate Change Risk).

• Collect available information.

• Identify recent extreme weather events to spark 

discussion.

• Compile information on projected climate changes. 

See FHWA Virtual Framework for data sources.

□ Hold workshop.

□ Distribute follow-up items as needed.

Washington State DOT 

(WSDOT) Vulnerability 

Assessment Workshops

WSDOT identified a strategic goal to 

“identify WSDOT facilities 

vulnerable to the effects of climate 

change and to evaluate and identify 

possible strategies to reduce risk.” As 

part of an FHWA pilot program, 

WSDOT developed a structured, 

stakeholder-based approach to 

qualitatively assess facility risk. The 

project team held 14 workshops in all 

regions of the state in which WSDOT 

staff rated all State-owned highways 

and other transportation assets for 

climate vulnerability. In the 

workshops, participants used asset 

maps, climate scenarios, and their 

local knowledge to assess 

vulnerability. 

At the start of each workshop, the 

project team presented a video about 

climate impacts on infrastructure, 

climate change scenarios for the state, 

and impact maps. A GIS specialist 

was on hand to overlay detailed asset 

inventories with climate impact data. 

Workshop participants then used a 

qualitative scoring system to assess 

roadway segments (or other assets) 

for criticality and to rate the effect 

that projected changes in climate 

would have on WSDOT 

infrastructure.

The total number of workshop 

participants exceeded 200, including 

maintenance staff; regional office 

staff; and state ferry, aviation, and 

rail system managers.

Additional information on the 

WSDOT vulnerability assessment 

approach is available at: http://www.

fhwa.dot.gov/environment/climate_

change/adaptation/adaptation_

framework/resources/washington_

state/.
30

E. Integrate into Decision Making

1. Identify Performance Measures

Performance measurement can help to measure qualitative and quantitative progress towards meeting the 

objectives of TSMO and maintenance programs. Performance measures can also help decision makers in 

determining how to spend their limited budgets by focusing expenditures towards specific operational 

issues in order to help them improve their performance metric scoring. Many DOTs have adopted or are in 

the process of developing performance measures.23 If a DOT desires to become more resilient to the 

impacts of climate change, it is important to integrate that desire into performance measures to ensure that 

progress toward that goal is tracked over time. 

The concept of climate change adaptation and resiliency can either be integrated into existing performance 

measures or adopted as a stand-alone measure. Good measures are defined in part by their ability to be 

measurable, understandable, and meaningful.24 

 Integrating Climate Change into Existing Objectives

Florida Department of Transportation's 2060 Florida Transportation Plan outlines six overarching 

goals: (1) Economic Competitiveness, (2) Community Livability, (3) Environmental Stewardship, (4) 

Safety and Security, (5) Maintenance and Operations, and (6) Mobility and Connectivity. Within each 

goal, the plan sets specific objectives. Under the fifth goal, “Maintain and operate Florida’s 

transportation system proactively,” one of four objectives is “Reduce the vulnerability and increase the 

resilience of critical infrastructure to the impacts of climate trends and events.” The plan outlines 

implementation strategies and performance indicators for the goal. 

DOTs should consider whether revisions to existing performance measures are necessary to 

accommodate climate change. When setting or revising performance measures, it is important to work 

with local communities to establish a tolerance level for disruption (i.e., the acceptable level of 

operational performance if threat occurs) given the changes that are projected to occur due to climate 

change. It will be critical to explain that in some ways TSMO objectives may become easier while in 

other ways it may become harder (e.g., increased frequency and intensity of storm events). By using a 

scenario planning process, it can be demonstrated that in some instances, it will be harder to maintain 

historic levels of service (LOS) with more intense/frequent events and therefore the performance 

measures may need to be revised to reflect the changing reality. During this outreach process, it will also 

be valuable to discuss the public’s mounting expectations for faster responses and constant access to a 

highly operational roadway system in order to emphasize the need to reach a common understanding of 

reasonable levels of service during extreme weather events. 

23 The FHWA Office of Operations has prepared multiple resources for agencies looking to develop and track performance measurement that 

are relevant to TSMO. There resources are available at: http://www.ops.fhwa.dot.gov/perf_measurement/.

24 FHWA Operations Performance Measurement Fundamentals. Available at: http://www.ops.fhwa.dot.gov/perf_measurement/

fundamentals/purpose.htm.
31

 Getting Started: Climate Change Focused Performance Measures

The table below contains a sample of operations objectives and performance measures that could be adopted 

by an organization looking to improve weather-related operations. These objectives and measures can also 

be used to focus a program on improving preparation and response to the impacts of climate change.

Table 5. Sample Operations Objectives and Performance Measures.25

Category Operations Objectives Performance Measures

Clearance Time 

(Weather-Related 

Debris)

• Reduce average time to complete 

clearing (mode, hierarchy of facilities, 

or subarea of region) of weather-related 

debris after weather impact by 

X percent in Y years.

• Reduce average time to complete 

clearing (interstates, freeways, 

expressways, all roads, main tracks, 

and main sidewalks) of weather-related 

debris after weather impact by X 

percent in Y years.

• Average time to clear selected 

surface transportation 

facilities of weather-related 

debris after weather impact.

Detours for Impacted 

Roadways

• Increase by X percent the number of 

significant travel routes covered by 

weather-related diversion plans by year 

Y.

• Increase the percentage of agencies that 

have adopted multi-agency weatherrelated transportation operations plans 

and that are involved in transportation 

operations during weather events to X 

percent by year Y.

• Percentage of significant travel 

routes covered by weatherrelated diversion plans.

• Percentage of agencies 

involved in transportation 

operations during weather 

events that have adopted 

multi-agency, weather-related 

transportation operations 

plans.

Disseminating 

Information

• Reduce time to alert travelers of travel 

weather impacts (using variable 

message signs, 511, Road Weather 

Information Systems [RWIS], public 

information broadcasts, the agency's 

website, Web 2.0 technologies, etc.) by 

X (time period or percent) in Y years. 

• Time from beginning of 

weather event to posting of 

traveler information on 

(variable message signs, 511, 

RWIS, public information 

broadcasts, etc.).

• Time from beginning of 

weather event to posting of 

traveler information on agency 

website.

Road Weather 

Information System 

Coverage

• Increase the percentage of major road 

network (or transit network or regional 

bicycle network) covered by weather 

sensors or an RWIS by X percent in Y 

years as defined by an RWIS station 

within Z miles.

• Percentage of major road 

(transit or bicycle) network 

within Z miles of an RWIS 

station.

Signal Timing Plans

• Special timing plans are available for 

use during inclement weather 

conditions for X miles of arterials in the 

region by year Y.

• Number of miles of arterials 

that have at least one special 

timing plan for inclement 

weather events.

25 U.S. Department of Transportation, FHWA and Federal Transit Administration, Advancing Metropolitan Planning for Operations: The 

Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk Reference, April 2010. Available at: http://www.ops.

fhwa.dot.gov/publications/fhwahop10027/index.htm.
32

2. Identify Potential Adaptation Measures25

Adaptation strategies should be developed to address known vulnerabilities directly—either those already 

experienced or those identified through a vulnerability assessment. By mapping the strategies to the 

vulnerabilities, there is a direct link from problem to solution. Additionally, the strategies should be 

developed to help achieve new or existing performance metrics. 

Frequently, adaptation strategies can be identified by looking to best practices in other states or regions 

that already experience more severe weather events. While the South may not be used to responding to ice 

storms, their counterparts in the North can provide guidance on how to prepare for, respond to, and 

recover from this type of event. This “climate shifting” is also true for extreme heat waves, flooding, 

landslides, wildfires, and other climate stressors. To develop strategies, review examples and best practices 

from other agencies and engage a diverse range of staff within the organization. The staff with longer 

tenures frequently knows the issues that arise during extreme weather events and can identify solutions to 

the problems. 

 Best Practices from the Field 

Alaska

The Alaska Department of Transportation & Public Facilities (ADOT&PF) is now 

conducting anti-icing with salt brine in the City of Fairbanks and other parts of interior 

Alaska. Historically, Fairbanks and interior roads would stay frozen from mid-fall to late 

spring, but now thawing and freezing rain events have caused the ADOT&PF to perform 

anti-icing, something never considered previously in the interior. 

Washington

Washington State Department of Transportation (WSDOT) recently invested in 

improvements to wireless communications capabilities and communication 

redundancies between traffic management centers (TMCs). The agency also filled in 

communication gaps to ensure continuous communication across rural areas in the event 

of an emergency.

Maryland

Maryland State Highway Administration (MDSHA) has installed backup power supply 

to three-quarters of its cameras and will have complete coverage by the middle of 2015. 

The situational awareness gained through closed-circuit televisions (CCTVs) is critical 

for maintaining public safety during severe weather. MDSHA also has back-up power 

on traffic signals to avoid manual traffic direction.

New York, 

New Jersey, 

Connecticut

State and local member organizations rely on the Transportation Operations 

Coordinating Committee (TRANSCOM) regional coordinating body to lead multiagency coordination and communications, particularly during incidents or weather 

events. The organization has developed redundant (duplicate and triplicate) data servers 

and networks to ensure its information sharing systems can operate during an extreme 

event such as Hurricane Sandy, even in case of power outages. TRANSCOM has two 

server rooms and two server feeds within its offices, a backup in New Jersey, and a 

disaster recovery site on the west coast. 

Alaska

ADOT&PF issued a policy directive on winter maintenance coordination that requires 

all regions in the agency to assist in the event of an emergency, regardless of location. 

Likewise, WSDOT effectively dissolves district lines within the organization when 

responding to major events so that resources can be applied where they are most needed 

across the state.

Minnesota

The maintenance division for Minnesota DOT (MnDOT) recently began working more 

closely with the transportation operations centers (TOCs) to ensure that the TOCs are 

fully utilizing the MnDOT road weather technology programs to help meet the 

organization’s common goal of serving the needs of the freight, transit, and traveling 

public communities. 
33

 Best Practices from the Field 

Wyoming 

and Utah

Both the Wyoming DOT and the Utah DOT have citizen reporting programs that allow 

travelers to report back to the DOT on road conditions. This expands the DOT’s 

awareness of hazardous road conditions on the network and helps the DOT provide 

“fresher” traveler information to the public. 

The Utah DOT uses the nation’s first road weather reporting smartphone application.

Multiple 

States

The FHWA Integrated Mobile Observations demonstration project involving multiple 

States, including MnDOT and Michigan DOT (MDOT), is a technological advancement 

that aims at improving resilience to extreme events. By using mobile data of 

atmospheric conditions around the vehicles, operations and maintenance supervisors can 

use real-time information to inform decisions about workforce deployment, road 

closures, or appropriate treatments to use. The data will eventually be pushed to 

connected vehicles for in-vehicle alerts.

Washington

Responding to more intense and frequent weather events requires additional staff. 

WSDOT has recently begun using the National Guard when necessary for 

transportation-related activities. They act as an extension of WSDOT and the 

Washington State Patrol in assisting with road closures. WSDOT has found it important 

to know which external resources are available (e.g., National Guard), what roles those 

resources can serve, and how to access those resources quickly. 

It is important to consider a diverse range of adaptation strategies to ensure that possible solutions, easy 

and difficult, are considered. Strategies for TSMO and maintenance should include the following types: 

 Policy-based changes – including guidance on incorporating climate change adaptation in TSMO and 

maintenance programs.

 Built infrastructure measures – including construction of protective barriers, infrastructure hardening, 

permanent or temporary infrastructure relocation, development of climate-resilient design standards and 

retrofits, and green infrastructure.

 Operational approaches – promote avoidance or reduction of impacts, as well as rapid and effective 

response to impacts as they occur.

 Adaptive management – tracks hazards, impacts, costs, and effectiveness of adaptations and postdisaster response to inform the aforementioned categories of adaptation. This type of disciplined tracking 

of climate or weather impacts serves as an interim adaptation strategy to help both determine whether 

and what adaptation actions are necessary as well as develop a quantitative basis for investments and/or 

reimbursements. RWIS can be an important tool in tracking road weather conditions over time, 

anticipating maintenance needs, and identifying areas in need of investment. 

Table 6 provides examples of some phased adaptation strategies that agencies may wish to consider. Before 

selecting any strategies, agencies should understand their own vulnerabilities and undertake a more robust 

and location-specific adaptation strategy development process.

(Continued)
34

Table 6. Sample Adaptation Strategies and Time Frames.

Vulnerability Response Implementing 

Department

Increased frequency of 

extreme events may require 

additional personnel to 

monitor, control, report, and 

respond to events. Changes in 

long-term climate trends may 

also change seasonal work 

requirements (e.g., changes in 

winter weather seasons, 

construction timing, or 

landscaping timing) and 

necessitate additional or 

unique staff expertise to 

monitor and respond to new 

types of climate events (e.g., 

snow storm in Atlanta).

Short-term: Train existing personnel on 

the potential impacts of climate change and 

how this may affect their roles and 

responsibilities. 

Medium-term: Increase the availability of 

contract staff to assist during extreme 

events. Develop memorandums of 

understanding (MOUs) with other agencies 

for equipment and staff sharing during 

extreme weather events.

Long-term: Hire additional staff to keep 

pace with increasing transportation 

systems management and operations 

(TSMO), maintenance, and emergency 

management needs.

TSMO, Maintenance, 

Emergency 

Management

Extreme events and long-term 

changes in climate can affect 

resource requirements. For 

example, increases in 

temperature can increase 

annual pavement maintenance 

costs, or changes in freeze/

thaw cycles can increase 

potholes. Changes in winter 

weather and increasing weather 

uncertainty could also affect 

budgets. 

Short-term: Increase cost tracking to 

respond to specific extreme weather events 

(see Getting Started: Data Collection Best 

Practices). Establish a “rainy-day” fund for 

unexpectedly bad years.

Medium-term: Revise budgeting process 

and protocols to account for recent trends 

that may diverge from the historical 

baseline.

Long-term: Work with meteorologists and 

climatologists to develop a process for 

taking anticipated future events into 

account while budgeting and planning.

Maintenance

Siting equipment in areas that 

will be impacted by sea level 

rise, ecological damage, 

flooding, snowfall, or other 

climatic events may damage 

the infrastructure. 

Short-term: Consider Federal Emergency 

Management Agency (FEMA) flood zone 

maps (after confirming the relevant local 

maps are up to date) or other similarly 

informative maps when siting and 

designing sites for equipment.

Medium-term: Include consideration of 

future stressors (e.g., accelerated sea level 

rise) when making decisions about siting 

equipment. Consider changes (e.g., 

increasing freeboard requirements) to 

accommodate more intense rainfall events. 

Long-term: Shift investments to mobile 

data sources (e.g., citizen reporters, snow 

patrol reporting, mobile probes), which are 

less likely to end up in harm’s way.

TSMO, Maintenance
35

Vulnerability Response Implementing 

Department

Climate stressors can lead to 

increased asset deterioration, 

requiring more frequent 

inspections (which can be 

expensive and time 

consuming). 

Short-term: Track impacts of weather 

events in order to identify “hot-spots” that 

may require an increased rate of inspection.

Long-term: Use detailed, downscaled 

climate models to determine portions of the 

state (or region) that are anticipated to have 

greater shifts in climate. Dedicate increased 

inspection resources to those areas.

Maintenance

Pavements are designed to 

withstand particular 

temperature thresholds. High 

temperatures may lead to 

rutting, while cold (and 

freezing) conditions increase 

potholes. 

Short-term: Increase inspection and 

tracking of roadway conditions.

Medium-term: Assess downscaled 

projected changes in temperatures to 

determine if a change in the pavement mix 

may be required.

Long-term: When repaving occurs, adjust 

paving mix as needed. Consider utilizing 

cooler pavements (e.g., light-colored 

aggregate) to reduce surface temperatures. 

Maintenance

Increased frequency of 

precipitation (especially 

extreme precipitation), and 

increased high heat days may 

decrease worker safety and 

require delays in construction. 

Certain elements of 

construction (e.g., laying 

concrete, painting roads) can 

only be accomplished during a 

narrow range of weather 

conditions. Changes in weather 

will impact the length of the 

construction season and the 

contracts with construction 

companies.

Short-term: Continue current worker 

safety and project-bid practices.

Medium-term: Expand the use of 

technologies for pavement placing that 

operate better under high temperatures, for 

example, cold-in-place recycling, coarser 

aggregate, or using ice or chilled water to 

cool 

the asphalt. Investigate other technologies 

that are suited to faster construction during 

adverse weather conditions.

Long-term: Consider revising the 

construction season to start earlier and end 

later due to increased temperatures. During 

the height of summer, shift construction 

work to early morning and evening hours.

Maintenance

Increased rain (in some parts 

of the country) paired with 

increased temperatures can 

lead to accelerated vegetation 

growth and death. The dry fuel 

that remains poses wildfire 

hazards. 

Short-term: Increase vegetation control 

within existing right-of-way.

Medium-term: Plant more drought tolerant 

vegetation that is less likely to provide fuel 

for wildfires.

Often deferred due to resource constraints, 

effective decisions in this area may in fact 

be more critical to operational capability 

than anticipated.

Maintenance

Table 6. Sample Adaptation Strategies and Time Frames (Continued).
36

Vulnerability Response Implementing 

Department

Flooding or other extreme 

weather may cause long-term 

disruptions to traffic (that run 

counter to current 

understanding of demandsupply relationships in a 

system). 

Medium-term: Develop a plan for 

maintenance of traffic during weather 

events of various intensities (including 

non-severe, recurrent weather). In some 

cases, this may require significant detours 

and wide area communications to support 

adequate traveler information. Develop 

plans for culvert clearing and other 

maintenance or asset management 

activities.

Long-term: Create after-event reports that 

assess what worked and what did not. 

Revise plans based on lessons learned.

TSMO, Maintenance

3. Evaluate and Select Adaptation Measures

As with all transportation budgeting processes, it is unlikely that DOTs will be able to fund their entire 

“wish-list” of adaptation strategies. In order to narrow the list of strategies to a prioritized list, it is useful 

to use a systematic evaluation process. 

 San Francisco Bay Area Metropolitan Transportation Commission (MTC) 

In the development of its Adapting to Rising Tides study, the MTC used a series of steps to evaluate 

and narrow the list of potential adaptation strategies. Using a screening exercise followed by a 

qualitative assessment, the project team selected five strategies for further development. 

The screening exercise included questions on the scale and replicability of the strategy, the barriers to 

implementation, the urgency of action, and impacts on society/equity, environment, and economy. 

The qualitative assessment used an ordinal ranking system to compare the financial, social, 

environmental, and governance-related (e.g., funding, legal barriers) performance of the strategies. 

As a last level of review, the project team used its professional experience to select a final set of 

balanced strategies.

The final report, with documentation of the adaptation action selection process, can be found here: 

http://files.mtc.ca.gov/pdf/MTC_ClmteChng_ExtrmWthr_Adtpn_Report_Final.pdf.

Some agencies may have established evaluation criteria for projects through other processes; if so, a 

variation on those criteria may prove to be an effective communication tool. If no such criteria exist, the 

following criteria may provide a useful starting point:

 Technical and Political Feasibility – how practical it is for a particular strategy to be implemented, 

accounting for engineering, policy, legal, and insurance considerations?

 Cost and Benefits – what are the up-front costs of implementation and the ongoing operations and 

maintenance costs? If implemented, what is the value of the damages from climate change that 

would be avoided?

Table 6. Sample Adaptation Strategies and Time Frames (Continued).
37

 Efficacy – if implemented, to what extent would the strategy reduce the risk?

 Flexibility – if implemented, how easy would it be to revise the strategy at a later date? What is the 

adaptive management potential of the strategy?

 Sustainability – does the strategy advance the "triple bottom line” of sustainability (e.g., what are the 

impacts to the economy, society, and the environment)?26

 Co-Benefits of Adapting 

Departments of transportation (DOTs) should identify and account for the benefits and co-benefits of 

integrating specific adaptation strategies into transportation systems management and operations 

(TSMO) programs. Generally, co-benefits are assessed at a qualitative level in order to help identify 

“win-win” strategies that increase resiliency to climate change and help to achieve other program 

objectives. Often, it is easier to obtain support for funding these types of solutions because they 

accomplish multiple goals. For example, several DOTs have justified upsizing culverts by highlighting 

the benefits for fish passage in addition to the increased capacity provided for increases in extreme 

precipitation events.

Some examples of co-benefits include:

 Greenhouse gas mitigation.

 Decreased operating costs.

 Increased roadway safety.

 Sustainability (i.e., improvements to the economy, environment, or social equity).

 Improvements in other performance measures.

Depending on the needs of the DOT, the evaluation can be qualitative or quantitative in nature. A 

qualitative evaluation process is generally sufficient for selecting priorities while a quantified evaluation 

may be necessary in order to justify funding. A qualitative evaluation may use a simple three point or five 

point scale (e.g., low, medium, high or positive, neutral, negative) or rely on a narrative description of the 

pros and cons of the strategies. A quantitative evaluation can be more effective when competing for 

funding because it enables an agency to show hard numbers about the benefits of the program. 

Additionally, quantitative evaluation metrics (e.g., reduction in traffic delay) can be translated into financial 

benefits to be used in an economic assessment of the strategy. In some cases, as with FEMA Hazard 

Mitigation Funding, it is required to demonstrate the cost effectiveness of adaptation strategies before they 

will be funded. For more information on cost effectiveness tools and resources, see the Additional 

Resources section of this document. 

While evaluation metrics are a useful tool for informing the decision making process, they should not be 

the basis for the entire decision making process. The input of the staff who work on these programs on a 

daily basis and of the decision makers who understand the needs of the community are also important 

pieces of information to take into account during the strategy selection process. Additionally, it is 

recommended that the total number of evaluation measures be kept to a small set of valued measures in 

order to allow for the output to be digestible and meaningful. 

26 In October of 2012, FHWA launched INVEST 1.0 (Infrastructure Voluntary Evaluation Sustainability Tool), a web-based tool that helps 

transportation agencies incorporate sustainability considerations into their transportation programs and projects. The tool contains a 

module focused on operations and maintenance that enables agencies to self-assess their operations and maintenance activities with regard 

to sustainability. The tool is available online at: https://www.sustainablehighways.org. 
38

 Consider Implementation Time Frames in Prioritizing Strategies

Prioritize adaptation measures into short-term (0-5 years), medium-term (5-10 years), and long-term 

(10+ years) actions based on both the urgency of adapting (how soon the department of transportation 

(DOT) needs to implement the strategy to protect against the projected climate changes) and the time 

period of implementation (how long it will take to implement the adaptation strategy based on planning, 

funding, and construction/programming time). The matrix of Climate Sensitive Decisions in Appendix 

A provides initial insight into the implementation time period by identifying the frequency with which 

the decisions are made. See the following table for examples of how the time period for implementation 

and the level of urgency could factor into strategy prioritization. 

Table 7. Adaptation Strategy Prioritization, Implementation, Time and Urgency.

Adaptation Strategies Time Period for 

Implementation 

Level of 

Urgency Prioritization

Strategy takes 0-5 years to implement, but does 

not need to be undertaken for another 30 years

Short Low Low

Strategy takes 0-5 years to implement, but 

should be undertaken now in order to be 

effective

Short High Medium

Strategy takes 30 years to implement, but 

should be undertaken now to ensure 

effectiveness

Long High High

Strategy should be undertaken in the near term 

because it will influence future decisions (e.g., 

long-term plans)

Ongoing Medium Medium

In addition, consider the existing repair and replacement cycle before implementing a stand-alone 

project. Proactive measures often make sense for high-value assets or assets that would be 

catastrophically damaged during extreme weather events, while continuous repair/maintenance (i.e., 

opportunistic adaptation efforts) is often the best approach for preparing for smaller, more frequent 

events and for assets that are less vulnerable to climate change.

4. Determine Improvements in Capabilities Necessary for Successful Implementation

Successful implementation of adaptation measures may require more overarching enhancements to the 

agency’s capabilities. As described in Section II.E. FHWA has developed a primer that outlines six 

dimensions of capability that are closely associated with more effective TSMO activities (including those 

related to reducing climate change impacts).27 

Improvements in one or more of these capabilities may be necessary to successfully implement the 

adaptation strategies discussed under “Identify Potential Adaptation Strategies.” Table 8 denotes which of 

the above capabilities apply to a range of potential adaptation strategies.

27 FHWA Office of Operations, Creating an Effective Program to Advance Transportation System Management and Operations: Primer,

FHWA-HOP-12-003 (Washington, DC, 2012). Available at: http://ops.fhwa.dot.gov/Publications/fhwahop12003/background.htm.
39

Table 8. Example Adaptation Strategies and Capability Maturity Framework Categories.

Adaptation Strategies

Capability Maturity Framework Category Business Processes Systems & Technologies Performance Management Culture Organization & Workforce Collaboration Maintenance

Modify current design and procurement criteria to favor 

durable materials and designs (e.g., paints, paving 

materials, drainage features), factoring in likely future 

climate conditions.

X X X X X

Develop a system to track weather-related trends and 

costs over time (e.g., number of potholes repaired, snow 

removal costs, number of emergency event triggers, labor 

hours devoted to weather preparation, response, and 

recovery), such as through designated “weather-related” 

charge codes.

X X X

Establish stand-by contracts for extreme event response. X X

Provide a strategy for identifying trends in weather for 

budget setting, accounting for the fact that historical 

conditions are not necessarily representative of future 

conditions under a changing climate.

- Consider weighting previous years differently. If 

higher cost years are weighted more heavily, they can 

provide a buffer in the budget. 

- In addition to a short-term average of previous year 

costs, consider looking at a longer trend line in costs 

and applying an incremental increase in the budget to 

account for the trend.

- Consider adding a buffer in the budget forecast to 

account for the uncertainty in coming weather 

conditions.

X

Consider the life-cycle costs of resiliency investments 

and savings in budgeting and design. X

Use asset management systems to track relevant 

information to inform decision making over time. X

Incorporate future Incorporate future transportation 

systems management and operations (TSMO) and 

maintenance needs into planning, design, and 

construction (e.g., require operations and maintenance 

signature approval on certain contracts and plans).

X X X

Require after-action reports with clear recommendations 

for improvement following extreme events. X

Update emergency response plans to factor in potential 

for greater frequency of extreme weather events. X

Improve intra-agency coordination, information sharing 

about conditions, closures, resources, etc. X X
40

Table 8. Example Adaptation Strategies and Capability Maturity Framework Categories (Continued).

Adaptation Strategies

Capability Maturity Framework Category Business Processes Systems & Technologies Performance Management Culture Organization & Workforce Collaboration Maintenance

Improve inter-agency coordination, information sharing 

about plans, initiatives, risks, resources, etc. (e.g., include 

key stakeholders in routine communications to 

streamline process during emergency events).

X X

Harden emergency telecommunications systems. X

Invest in redundant communications systems. X

Invest in redundant data servers. X

Develop and track performance metrics related to 

extreme weather (e.g., number/duration of weatherrelated road closures).X X

Purchase equipment, factoring in likely future needs 

based on extreme weather events or climate changes (e.g., 

versatile equipment in Alabama to double as snow plows, 

mobile stockpiles of traffic control devices).

X X

Improve cross-training across staff (including across 

operations, maintenance, and emergency management). X X X X

Develop a system to track weather trends over time (e.g., 

Winter Severity Index, Summer Severity Index). X X

Improve tracking of maintenance expenses and 

operational disruptions, including their cause and 

severity, and incorporate that information into budgeting 

processes over time.

X X X

Stockpile materials (e.g., culvert pipe, temporary bridge 

components, fuel) and equipment (e.g., generators, chain 

saws, traffic control devices) and stage them in strategic 

areas prior to events.

X

Expand both coverage and quality of fixed and mobile 

monitoring capabilities within the agency. X

Increase coverage of real-time weather and roadway 

conditions using a combination of on-the-ground staff 

(and potentially citizens), sensors, and mobile technology.

X X

Establish honest and continued dialogue with the public 

about funding shortfalls, climate change, and 

prioritizations and realistic expectations of road 

clearance and level of service.

X

Establish regular coordination between on-the-ground 

staff and other departments to discuss “hot spot” areas 

and inform investment decisions based on past 

performance.

X X X X X
41

Table 8. Example Adaptation Strategies and Capability Maturity Framework Categories (Continued).

Adaptation Strategies

Capability Maturity Framework Category Business Processes Systems & Technologies Performance Management Culture Organization & Workforce Collaboration Maintenance

Leverage existing technologies such as Road Weather 

Information System (RWIS) to provide additional insight 

on climate change or respond to climate change. For 

example, portable RWIS could be deployed in areas that 

are particularly vulnerable to climate changes such as areas 

of flooding or extreme heat, and assist with tracking trends.

X

Use Maintenance Decision Support Systems (MDSS) or other 

existing tools to run a series of hypothetical future storm 

events in order to inform operational planning exercises.

X

Develop culture of information sharing, transition 

planning to ensure institutional knowledge is not 

vulnerable to retirement, workforce transitions, etc.

X

Establish regular, structured discussion and collaboration 

between State departments of transportation (DOTs), the 

National Weather Service, State climatologists, US 

Geological Survey (USGS), and other relevant partners.

X X

Conduct table-top exercises or develop an approach for 

using “routine” emergencies to determine lines and 

communication and protocols (e.g., what to do when there 

is heavy snow blocking access to a hospital). Potentially 

include the public in practice drills (e.g., contraflow lanes).

X

Review and consider mitigating vulnerabilities when 

conducting scheduled maintenance activities. X

F. Monitor and Revisit

Monitoring and evaluating helps keep adaptation efforts on track as new information on climate risks 

emerges, evidence of the effectiveness of adaptation strategies becomes available, or other programmatic 

changes occur. Monitoring and evaluating serve to assess progress toward goals and objectives. These 

functions help an agency identify which activities are working well and which ones need to be refined. 

The FHWA Framework describes the following steps as key to efforts to monitor and revisit: 28

 Establish a monitoring and evaluation plan.

 Engage stakeholders.

 Monitor and collect data on relevant indicators.

 Evaluate the project and its outcomes.

 Revisit.

TSMO and maintenance programs are flexible (much more so than infrastructure planning and design 

decisions) and can evolve as conditions change. 

28 FHWA Virtual Framework for Vulnerability Assessment, Available online at: http://www.fhwa.dot.gov/environment/climate_change/

adaptation/ongoing_and_current_research/gulf_coast_study/phase2_task6/page04.cfm.
42

Monitoring trends in extreme weather events (such as frequency of particular events as well as impacts on 

TSMO and maintenance) and evaluating the effectiveness of actions will help to continually inform 

decision making. Monitoring trends in extreme weather events, for example, can help decision makers 

recognize when they need to manage for “new normal” conditions. As mentioned above, climate change 

refers to significant variations in temperature, precipitation, wind patterns, and other measures of climate 

lasting for an extended period of time. It may be decades before there is a robust enough set of data to 

attribute changes in trends to climate change. Such attribution is not necessary, though, to recognize that 

what once was rare is now routine. 

Further, collection, storage, and analysis of monitoring weather data and the impacts of extreme 

weather events on TSMO, maintenance, and emergency managers (e.g., through post-event 

assessments and documentation) may be integrated into existing asset management systems or other 

systems to facilitate continuous or on-demand evaluation of the effectiveness of existing practices. 

This can also help to assess the need to revisit assumptions, underlying data, approaches, or program 

goals and objectives articulated at the outset.

 Getting Started: Data Collection Best Practices

The more transportation agencies understand the effects of weather events on their system and how 

those events are changing over time, the better they can make decisions about how to plan for or 

otherwise manage these events.

Understanding changing weather effects requires collecting data and other metrics. Departments of 

transportation (DOTs) routinely collect and analyze large amounts of data on their operations and 

systems. As a result, the most effective way to collect additional information that will enable DOTs to 

learn about the effects of climate change will be to integrate data collection and analysis into existing 

processes. Potential existing processes that could serve as a “home” for weather and climate tracking 

include asset management programs, work order or labor tracking systems, weather severity indices, 

and performance measures.

Asset Management Programs

State DOTs are in the process of developing risk-based Transportation Asset Management Plans 

(TAMPs), in fulfillment of Moving Ahead for Progress in the 21st Century Act (MAP-21) requirements. 

TAMPs and associated asset management systems provide an opportunity for DOTs to integrate climate 

change risks alongside the other risks to transportation systems. Additional guidance is forthcoming 

from the National Cooperative Highway Research Program (NCHRP) on integrating climate change and 

extreme weather into TAMPs.29 Below are some steps DOTs can take to capitalize on their asset 

management efforts to help inform their decision making around climate change.

 Incorporate fields into asset management system(s) to track the climate change or weather-related 

vulnerabilities of each asset, if known through a vulnerability assessment.

 Configure the system to provide alerts when vulnerable assets are due for maintenance, repair, or replacement.

 Incorporate fields to help monitor vulnerabilities and effectiveness of adaptation over time. Example 

fields may include:

• Maintenance instances, including specific cause (flooding, extreme heat, extreme cold, etc. – more 

than just “weather-related”) and cost.

• Flooding frequency.

• Work order frequency.

29 NCHRP 25-25/Task 94 (Active), “Integrating Climate Change and Extreme Weather Into Transportation Asset Management Plans,” 

http://apps.trb.org/cmsfeed/TRBNetProjectDisplay.asp?ProjectID=3723, accessed May 20, 2015.
43

 Getting Started: Data Collection Best Practices (Continued)

 Incorporate fields that can help identify whether assets may be vulnerable. Example fields are listed based 

on relevant climate stressors:30

• Temperature changes:

∘ Pavement binder.

∘ Material type/pavement type. 

∘ Joint type.

∘ Annual average daily truck traffic.

• Flooding:

∘ Elevation.

∘ Design standard (e.g., 25-yr, 50-yr, 100-yr).

∘ For culverts: percent change in peak design flow required for overtopping.31

∘ For bridges: approach elevation, span elevation, navigation vertical clearance.

∘ Condition.

• Any stressor:

∘ Structure type.

∘ Remaining useful life.

∘ Age.

∘ Usage (e.g., average annual daily traffic).

∘ Detour length.

∘ Historic status.

∘ Criticality.

∘ Whether the asset is component of a designated evacuation route.

Work Orders or Labor Tracking Systems

DOTs typically have systems in place to track employee activities and expenses, at least to an extent. 

DOTs can leverage these systems to better track the impacts of weather events over time by creating work 

order numbers, charge codes, or similar codes tied specifically to weather events. 

 Set up work order codes for:

• Individual weather events (specific storms), or 

• Categories of weather events (heat, snow/ice, rain, storm).

 Instruct staff to charge their time and expenses to the appropriate work order code. This will allow tracking 

of agency costs including:

• Labor costs – regular and overtime.

• Contractor costs.

• Materials costs.

• Equipment costs.

 Associate societal impacts the agency is already monitoring with specific weather events or event types. 

These impacts may include: 

• Delays.

• Accidents.

• Fatalities.

30 U.S. Department of Transportation, “Transportation Climate Change Sensitivity Matrix.” Available at: http://www.fhwa.dot.gov/

environment/climate_change/adaptation/adaptation_framework/modules/index.cfm?moduleid=2, accessed May 20, 2015.

31 MnDOT, MnDOT Flash Flood Vulnerability and Adaptation Assessment Pilot Project, Final report prepared for the Minnesota DOT and 

the USDOT FHWA by Parsons Brinckerhoff and Catalysis Adaptation Partners, 2014.
44

 Getting Started: Data Collection Best Practices (Continued)

 Using Work Order Numbers to Track Weather Event Costs 

The Southeastern Pennsylvania Transportation Authority (SEPTA) began creating unique work order 

numbers for weather events in 2012, beginning with Hurricane Sandy.

SEPTA created a unique work order number in advance of the storm and instructed staff to use that 

number for any time or materials spent on storm preparation, response, and recovery. 

As a result, SEPTA captured a much fuller picture of the impacts of Sandy on their operations than they 

had for previous storms. For example, SEPTA recorded more than $1.3 million in labor costs, nearly ten 

times the labor costs recorded during previous tropical storms—storms that were much more destructive 

to SEPTA than Sandy. 

Reference: ICF International, 2013, A Vulnerability and Risk Assessment of SEPTA’s Regional Rail: A Transit Climate Change Adaptation 

Assessment Pilot, Federal Transit Administration (FTA Report No. 0071). Available at: http://www.fta.dot.gov/documents/FTA_Report_

No._0071.pdf, accessed May 20, 2015.

Weather Severity Indices

Many DOTs (including Wisconsin, Indiana, Iowa, Idaho, Minnesota, and Ontario) maintain a “Winter 

Severity Index” or similar metric that allows them to compare their seasonal expenditures to the relative 

severity of winter weather.32 DOTs use these indices to identify efficiencies in winter weather response 

over time and inform budget forecasts.

DOTs may consider tracking similar severity indices for other types of weather events that affect their 

operations. For example:

 Summer severity index – This may include calculation of degree-days above a certain temperature 

threshold, similar to how the energy sector tracks cooling degree-days.

 Flooding severity index.

 Wildfire season severity index.

 Storm season severity index – tracking the frequency and severity of convective thunderstorm or other 

storms on a more seasonal basis. 

 Drought severity index (these already exist in other sectors – such as the Palmer Drought Severity Index 

– and would be available from the United States Drought Monitor or other agencies within the State).

32 Will Farr and Leigh Sturges, 2012, Utah Winter Severity Index Phase 1, Utah Department of Transportation. Available at: 

http://www.udot.utah.gov/main/uconowner.gf?n=11539601019505676, accessed May 20, 2015.
45

 Getting Started: Data Collection Best Practices (Continued)

In addition, DOTs may consider identifying specific impacts associated with climate changes and 

tracking the frequency of these impacts over time. This could provide a way to simplify the data tracking 

process by focusing on one or two key metrics of vulnerabilities over time, such as those in Table 9.

Table 9. Example Metrics to Track Impacts of Climate Stressors over Time.

Climate Stressor Impact Metrics

Extreme Heat Pavement rutting/shoving

Concrete joint heaving

Flooding (rain-driven or coastal) Road closures associated with flooding (frequency, 

duration) Washouts associated with flooding

Wind Road closures associated with high winds

Drought Pavement cracks

Changes in Freeze/Thaw Potholes 

Permafrost Thaw Timing of permafrost thaw

Performance Measures

Finally, linking agency performance measures that are already tracked and analyzed to weather, where 

appropriate, can be a good way to “mainstream” weather impact data collection. See Section III.E.I for 

additional information on linking performance measures to climate change.

 Potential Pitfalls of Data Collection

Potential (but avoidable) pitfalls to implementing any of these data collection strategies do exist. 

Departments of transportation (DOTs) should note these possible drawbacks early and take steps to 

avoid them.

 Data Storage - DOTs need the Information technology (IT) infrastructure to house what could become 

potentially large datasets over time. Coordinate with the IT department to ensure the data collection 

plan is sustainable from their perspective.

 Staff Time - Data cannot inform decision making without first being analyzed. Analysis of these data 

sources needs to be expressly integrated into someone’s job in order for that analysis to happen. The 

purpose of the approaches outlined above is to identify opportunities to integrate climate and weather 

impact tracking data into existing data collection and analysis efforts to minimize the risk that data 

go unused.
46
47

IV. Getting Started

This guide provides information and resources to help Department of transportation (DOT) transportation 

systems management and operations (TSMO) and maintenance staff use TSMO, maintenance, and 

emergency management activities to increase the resilience of their agency to extreme weather events and 

climate change. The materials presented throughout this guide will help State DOTs and other 

transportation agencies to better understand the risks that climate change poses and actions that can help 

reduce those risks. 

There is already sufficient information to begin a more concerted effort to evaluate programs and begin to 

make or plan to make adjustments today. New information will also continue to emerge regarding 

anticipated risks and strategies to address those risks. As it does and as the framework and concepts 

presented in this guide are put into practice, it will be important to revisit and refine this guidance. 

In the meantime, the specific resources and checklists provided throughout Section IV of this guide in the 

“Getting Started” text boxes will enable users to use the segments of the guide best suited to their 

individual needs, level of familiarity with climate change adaptation, and readiness to get started on 

planning and implementing adaptation measures.
48
49

Appendix A. Matrix of Climate-Sensitive 

Decisions

The following table lists the potential decisions that are often encountered by transportation systems 

management and operations (TSMO) and maintenance groups that are sensitive to changes in climate and 

extreme weather. Generated by the research team using their knowledge of State and local department of 

transportation (DOT) practices, these decisions will provide the basis for developing adaptation strategies 

that mitigate the risk associated with the decision due to climate change. 
50
Table 10. Climate-Sensitive Decisions.

Climate-Sensitive 

Decision Areas Specific Decisions Description

Description of How Climate Stressors Affect This 

Decision (i.e., Climate Sensitivity of Decision) 

Decision 

Time 

Frame

Single 

Decision 

Point?

Sensitivity to Climage Change Stressors

Increase in Average 

Temperature

Increase in Annual 

Precipitation

Sea Level Rise

Change in Freeze/Thaw 

Cycles

Changing Snowpack

Extreme Temps (Heat)

Extreme Temps (Cold)

Extreme Precipitation 

(Amount/Intensity)

Storm Surge

Wildfires

Dust Storms

Wind

Ecological Effects

1. Planning for 

future workforce 

needs

Determine the right 

level of workforce 

requirements and 

capabilities 

Operating and emergency 

management agencies make a 

variety of workforce-related 

decisions, including the 

number of staff required, their 

locations, and the abilities 

necessary to monitor, control, 

report, and maintain the 

roadway system.

Increased frequency of extreme events requires 

additional personnel to monitor, control, report, and 

respond to events. Changes in long-term climate 

trends may also change seasonal work requirements 

(e.g., changes in winter weather seasons, construction 

timing, or landscaping timing) and additional or 

unique staff expertise to monitor and respond to new 

types of climate events (e.g., snow storm in Atlanta).

Long-term No X X X X X X X X X X X X X

2. Planning for 

operations and 

maintenance 

investments

Determine criteria 

to prioritize 

operational resource 

investments 

(including capital 

improvements) 

Resource investments 

may include new capital 

improvements for operations 

and maintenance such 

as control systems, field 

equipment, vehicles, 

communications, and power. 

They may also include 

investments for annual 

maintenance.

Capital improvements should be designed to withstand 

the climate changes anticipated over their useful 

life. For this reason, all climate stressors should be 

considered to ensure investments will make it to the 

end of their useful life. Whether features of a project 

reduce its climate risk or reduce the climate risk of the 

community (e.g., reduce flooding) would need to be 

factored into decisions around which investments to 

make. Additionally, capital investment needs may be 

changing and therefore may require new identification 

processes (e.g., increased flood monitors).

Long-term X X X X X X X X X X X X X

3. Budgeting for 

operations, 

maintenance, and 

emergency 

management 

Determine the 

appropriate funding 

needs and levels on 

annual and multiyear basis

Operating and emergency 

management agencies are 

typically funded on an annual 

basis. Funding levels are 

a driving factor in overall 

program capabilities and 

functions.

Extreme events and long-term changes in climate can 

affect resource requirements. For example, increases 

in temperature can increase annual pavement 

maintenance costs, or changes in freeze/thaw cycles 

can increase potholes. Changes in winter weather 

and increasing weather uncertainty could also affect 

budgets. The future climate may require different 

resource allocations and budget planning formulas 

than today's climate.

Annual Yes X X X X X X X X X X X X

4. Establishing 

realistic 

objectives

Set regional 

operational 

and emergency 

management 

objectives for the 

program

Effective planning for 

operations and emergency 

management requires a 

clear articulation of regional 

operating objectives. 

These objectives define 

the response strategies and 

the performance-based 

management required.

Objectives and performance measures relating to 

emergency response or return to level of service may 

be affected by the frequency and severity of extreme 

events. Additional measures on resilience might 

be required to monitor and manage performance. 

Additionally, changes in weather patterns may make 

select past performance measures unrealistic. The 

setting of realistic targets will need to be grounded in 

an understanding of future weather conditions.

Annual Yes X X X X X X X X X X X X X

51
Climate-Sensitive 

Decision Areas Specific Decisions Description

Description of How Climate Stressors Affect This 

Decision (i.e., Climate Sensitivity of Decision) 

Decision 

Time 

Frame

Single 

Decision 

Point?

Sensitivity to Climage Change Stressors

Increase in Average 

Temperature

Increase in Annual 

Precipitation

Sea Level Rise

Change in Freeze/Thaw 

Cycles

Changing Snowpack

Extreme Temps (Heat)

Extreme Temps (Cold)

Extreme Precipitation 

(Amount/Intensity)

Storm Surge

Wildfires

Dust Storms

Wind

Ecological Effects

5. Assessing future 

technology and 

system 

requirements 

Determine the 

type of monitoring 

equipment 

and sources, 

communication 

needs, siting criteria 

and suitability to 

conditions

Monitoring field conditions is 

vital to effective operations 

and emergency management. 

The type of monitoring 

equipment and the available 

sources of data greatly 

determine the capability to 

respond. Sensitive to cost, 

these decisions provide the 

required situational awareness 

to agencies.

Monitoring equipment (e.g., cameras, loop detectors) 

is sensitive to weather extremes and flooding. They 

can over heat, freeze, or be corroded by water 

infiltration. Climate change may also require agencies 

to monitor additional stressors/conditions in order 

to understand how they may affect the agency in the 

future. Early monitoring of climate change stressors 

could improve agency abilities to make decisions in 

the long-term. 

Nearterm/

Mid-term/

Long-term

Yes X X X X X X X X X X X X X

Closely related to the type 

of equipment is the correct 

"siting" of the equipment 

to ensure the right extent 

of coverage on the system. 

While some pressure of the 

decision is alleviated through 

newly available sources 

of data such as probes and 

private sector data, other 

monitoring systems such 

as Environmental Sensing 

Stations are greatly affected 

by the siting criteria.

Siting equipment in areas that will be impacted by sea 

level rise, ecological damage, flooding, snowfall, or 

other climatic events may damage the infrastructure. 

Climate change could also affect where agencies 

choose to site new equipment. Flood risk over the 

lifetime of the asset could be a criteria used to choose 

sites for future equipment. Additionally, agencies 

cannot afford to monitor all areas and assets that 

will be impacted by climate change. Prioritization 

methods and flexible mobile data sources (e.g., citizen 

reporters, snow patrol reporting, mobile probes) will 

need to be developed.

Long-term Yes X X X X X X X X X X

Establishing adequate 

communications and power, 

especially redundancy in the 

system, is critical to prevent 

outages of the field and control 

systems. The susceptibility of 

communications and power 

infrastructure to conditions 

can limit the capability of 

operational response.

Communication and power lines are sensitive to 

icing, flooding, and extreme temperatures (e.g., 

rolling blackouts during heat waves). Flooding can 

also damage back-up power systems. Storms can 

bring down tree lines which damage power and 

communication lines. Agencies will need to consider 

whether their existing communication and power 

requirements are resilient to climate change. Snow can 

cover or block communications (e.g., stop lights and 

cameras).

Long-term No X X X X X X X

Table 10. Climate-Sensitive Decisions (Continued).

52
Climate-Sensitive 

Decision Areas Specific Decisions Description

Description of How Climate Stressors Affect This 

Decision (i.e., Climate Sensitivity of Decision) 

Decision 

Time 

Frame

Single 

Decision 

Point?

Sensitivity to Climage Change Stressors

Increase in Average 

Temperature

Increase in Annual 

Precipitation

Sea Level Rise

Change in Freeze/Thaw 

Cycles

Changing Snowpack

Extreme Temps (Heat)

Extreme Temps (Cold)

Extreme Precipitation 

(Amount/Intensity)

Storm Surge

Wildfires

Dust Storms

Wind

Ecological Effects

6. Determining 

future 

maintenance 

needs 

Determine the 

required level 

and precision of 

inspection protocols

Inspection protocols 

are a vital part of asset 

management. For operating 

agencies, these include the 

full range of transportation 

assets from structures to 

communication networks. 

Due to resource constraints, 

agencies need to develop a 

protocol designed to prioritize 

the key assets being managed.

Climate stressors can lead to increased asset 

deterioration, requiring more frequent inspections. 

However, inspections are very expensive and time 

consuming. Knowledge of climatic trends may allow 

for focused scoping of the level of precision and 

frequency of various types of inspections. 

Long-term No X X X X X X X X X X X X X

Determine 

pavement 

rehabilitation needs 

and methods

A variety of pavement 

rehabilitation decisions are 

made on a seasonal basis 

ranging from full-depth 

replacement, to levelling and 

coating. Decisions pertaining 

to life-cycle cost of such 

treatments, the timing of these 

treatments, and the materials 

used are all topics of concern 

to decision makers.

Pavements are designed to withstand particular 

temperature thresholds. High temperatures may 

lead to rutting, while cold (and freezing) conditions 

increase potholes. This may necessitate changing the 

pavement mix or rehabbing roads earlier. 

Long-term Yes X X X X X X X X X X

Determine bridge 

maintenance needs 

and methods

Bridges are natural 

chokepoints and potential 

points of failure. Agencies 

justifiably invest in bridge 

management programs 

involving preventative 

maintenance and 

rehabilitation. 

Bridges with joints and moveable parts are more 

susceptible to damage due to their sensitivity to 

temperature and water infiltration. Increased rainfall 

and flooding can also increase bridge scour or lead 

to washouts and debris deposits. Changes in climate 

may necessitate earlier or different maintenance 

approaches. 

Long-term Yes: 

Maintenance

No: 

Monitoring

X X X X X X X X X X

Table 10. Climate-Sensitive Decisions (Continued).

53
Climate-Sensitive 

Decision Areas Specific Decisions Description

Description of How Climate Stressors Affect This 

Decision (i.e., Climate Sensitivity of Decision) 

Decision 

Time 

Frame

Single 

Decision 

Point?

Sensitivity to Climage Change Stressors

Increase in Average 

Temperature

Increase in Annual 

Precipitation

Sea Level Rise

Change in Freeze/Thaw 

Cycles

Changing Snowpack

Extreme Temps (Heat)

Extreme Temps (Cold)

Extreme Precipitation 

(Amount/Intensity)

Storm Surge

Wildfires

Dust Storms

Wind

Ecological Effects

7. Modifying 

maintenance 

practices and 

approaches 

Determine 

construction and 

maintenance work 

timelines and 

timeframes

Construction and maintenance 

work is usually conducted 

under very specific weather 

conditions. The number and 

length of these windows 

of opportunity to conduct 

work may be shortened or 

lengthened depending on 

regional climate trends. 

This would also impact 

construction contracts and 

crew contracts.

Increased frequency of precipitation (especially 

extreme precipitation), and increased high heat days 

may decrease worker safety and result in delays 

in construction. Decreases in these events could 

accelerate construction periods. Certain elements of 

construction (e.g., laying concrete, painting roads) 

can only be accomplished during a narrow range of 

weather conditions. Changes in weather will impact 

the length of the construction season and the contracts 

with construction companies.

Mid-range No X X X X X X X X

Develop approach 

for overall right-ofway maintenance 

including vegetation 

control

Decisions involving overall 

right-of-way maintenance 

such as vegetation control, 

drainage, and culvert 

management are included 

in this area. Often deferred 

due to resource constraints, 

effective decisions in this area 

may in fact be more critical 

to operational capability than 

anticipated. 

Vegetation control: Increased rain (in some parts of 

the country) paired with increased temperatures can 

lead to additional vegetation growth and death. This 

dry fuel poses wildfire hazards. Some areas may begin 

to experience drought and need to plant more droughttolerant vegetation.

Drainage and culverts: Following wildfires, rainstorms 

can increase debris flow and block or flood culverts 

and drainage systems. Heavy rainstorms can blow out 

undersized drainage. In coastal settings, sea level rise 

may surcharge the drainage systems.

Annual No X X X X X X X X X X X X

Determine the 

amount, cost, 

timing of material 

procurement

Agencies spent a significant 

portion of their budget on 

materials. Procurement 

decisions ranging from 

timing, type of material, and 

the length of the contract 

duration greatly affect the 

overall cost as well as the 

actual season. 

If supplies are under-purchased during particularly 

bad seasons, it may be difficult to obtain the necessary 

materials for response. Frequently, after an extreme 

weather event (e.g., ice storm or hurricane), supplies 

can run short and distribution lines can be disrupted. 

Likewise, if response contracts are too short then 

agencies may not be prepared to respond to late season 

extreme weather events (e.g., flooding, extreme heat, 

snow).

Seasonal Yes X X X X X X X

8. Protecting 

facilities and 

assets

Develop criteria for 

determining facility 

locations and asset 

protection strategy

Decisions and techniques for 

reducing flood damage to 

essential utility systems and 

equipment.

When siting new facilities, agencies should consider 

the impacts of climate change on the location (e.g., sea 

level rise, flooding).

Long-term Yes X X X X X X X X X

Table 10. Climate-Sensitive Decisions (Continued).

54
Climate-Sensitive 

Decision Areas Specific Decisions Description

Description of How Climate Stressors Affect This 

Decision (i.e., Climate Sensitivity of Decision) 

Decision 

Time 

Frame

Single 

Decision 

Point?

Sensitivity to Climage Change Stressors

Increase in Average 

Temperature

Increase in Annual 

Precipitation

Sea Level Rise

Change in Freeze/Thaw 

Cycles

Changing Snowpack

Extreme Temps (Heat)

Extreme Temps (Cold)

Extreme Precipitation 

(Amount/Intensity)

Storm Surge

Wildfires

Dust Storms

Wind

Ecological Effects

9. Maintaining 

mobility and 

safety

Plan for 

maintenance of 

traffic

Maintenance of traffic 

involves developing an 

approach to maintain 

and restore mobility and 

accessibility in a region. 

These may involve posted 

detours, communications, lane 

management, etc.

Flooding or other extreme weather may cause longterm disruptions to traffic. A plan for maintenance 

of traffic needs to be developed. In some cases, 

this may require significant detours and wide 

area communications to support adequate traveler 

information.

Seasonal No X X X X X X X X

Determine the 

mix of operational 

strategies to deal 

with surge demand

Operating agencies are 

geared towards dealing 

with reliability issues and 

generally have a good idea of 

demand-supply relationships 

on their systems. In cases 

of emergencies and adverse 

weather, the shift from 

reliability to resiliency is 

required to manage surges 

in demand. This requires 

revisiting the approach to 

implement the operational 

strategies.

Changes in the frequency of short-term weather 

events influence traffic demand (e.g., rainfall events, 

additional driving on high heat days) and thus require 

varied operational responses.

Immediate No X X X X X X X X

Table 10. Climate-Sensitive Decisions (Continued).

55

57

Appendix B. Additional Resources

Many resources are provided throughout this document. This appendix provides a few additional 

resources that may be of interest and use to agencies seeking to embark on adaptation planning.

A. Federal Highway Administration Virtual Framework

The Federal Highway Administration (FHWA) 

“Virtual Framework for Vulnerability 

Assessment” (Virtual Framework) is an 

interactive web version of FHWA’s 2012 

Climate Change and Extreme Weather 

Vulnerability Assessment Framework. The 

Virtual Framework provides guidance to State 

departments of transportation (DOTs) and 

other transportation agencies on how to assess 

and address their vulnerabilities to climate 

change. The Virtual Framework breaks the 

vulnerability assessment process into six 

modules: Articulate Objectives, Identify Key 

Climate Variables, Characterize and Select 

Assets, Assess Vulnerabilities, Integrate 

Vulnerabilities into Decision Making, and 

Monitor and Revisit.

Each module contains step-by-step guidance, 

video testimonials from professionals sharing 

lessons on their experience, case studies related to the framework step, links to resources related to the 

step, and tools to help a user complete the step. The Virtual Framework is primarily focused on assessing 

and addressing infrastructure-related vulnerabilities, but offers several resources that can prove useful to 

adapting TSMO and maintenance practices. This guide identifies specific resources within the Virtual 

Framework as they apply to the steps outlined herein. Readers are encouraged to explore the Virtual 

Framework for additional resources that may be relevant to their organization. The Virtual Framework is 

available at: http://www.fhwa.dot.gov/environment/adaptationframework. 

B. Existing Benefit-Cost Assessment Tools

A number of guidance documents and tools for conducting cost benefit assessments are available for the 

transportation sector. Some guidance documents, like United States Department of Transportation's 

(USDOT’s) Asset Management Primer or Operations Benefit/cost Analysis Desk Reference, are intended 

to inform a particular type of decision or decision maker, but do not address adaptation and extreme events 

directly. Some, like National Cooperative Highway Research Program (NCHRP) Report 750, Climate 

Change, Extreme Weather Events, and the Highway System, provide a high-level discussion of climaterisk-adjusted benefit-cost-methodology, but do not provide a comprehensive set of resources or guidance 

for each step of the analysis. The various tools that exist—such as BCA.net or the Hazard Mitigation Cost 

Effectiveness (HMCE) tool—also vary in their audiences, in the types of inputs and outputs they produce, 

in the scalability of the projects they can evaluate, and in their ability to capture extreme events or climate 

change. A sampling of existing tools and resources is shown in the box below. 

Figure 13. Screenshot. FHWA Virtual Framework 

for Vulnerability Assessment.
58

 Sample of Existing Tools and Resources 

 National Cooperative Highway Research Program (NCHRP) 750 Vol. 2 - Benefit Cost 

Methodology for Climate Adaptation Strategies.

 Federal Transit Administration (FTA) Hazard Mitigation Cost Effectiveness (HMCE) Tool - used to 

assess the cost-effectiveness of transit resilience projects.

 Federal Highway Administration (FHWA) Operations/Cost Analysis Desk Reference - an overview of 

analysis tools.

 Coastal Adaptation to Sea Level Rise (COAST) tool - calculates cumulative damages from multiple 

storms.

 FHWA Economic Analysis Primer - principles, concepts, and methods for performing economic analyses.

 Transportation Research Board (TRB) Methodologies to Estimate the Economic Impacts of 

Disruptions to the Goods Movement System - quantifying indirect costs.

 Hazus - estimate potential losses from earthquakes, floods and hurricanes.

 Beach-fx - evaluate benefits and costs of shore protection projects.

 United States Department of Transportation’s (USDOT) Transportation Investment Generating 

Economic Recovery (TIGER) - Benefit-Cost Analysis (BCA) Guidance.

 Federal Emergency Management Agency (FEMA) Benefit Cost Toolkit - required when applying to 

the Hazard Mitigation Grant Program.

 Irregular Operations (IROPS) Investment Support (IRIS) Decision Support Tool - multi-criteria 

decision tool for mitigating airport irregular operations.

 From Risk to Resilience by International Institute for Applied Systems Analysis (IIASA) - costbenefit analysis approach for disaster risk management.

 USDOT Guidance on the Value of Time - values for time during delay and time savings.

 BCA.net - step-by-step approach to conducting benefit cost analyses (BCAs).

 USDOT Guidance on Treatment of the Economic Value of a Statistical Life.

 Economic Commission for Latin American and the Carribean (ECLAC) Handbook on 

socioeconomics of extreme events.

 Belize Climate Resilient Infrastructure Program - simplified BCA screening tool for data poor regions.

 FHWA Climate Resiliency Pilots and Hurricane Sandy Resilience Project - approaches to 

conducting BCAs.

 United Kingdom (UK) Climate Impacts Programme: Costing the Impacts of Climate Change in the 

United Kingdom.

C. International Efforts

The Hellenic Institute of Transport published a review of transportation adaptation strategies in 2015.33

Example adaptation strategies related to transportation systems management and operations (TSMO) and 

maintenance are listed in the text box below. 

Example Adaptation Strategies Related to transportation systems management 

and operations (TSMO) and Maintenance from Hellenic Institute of Transport’s 

Roadmaps for Adaptation Measures Project

Procedural and operational options

 Organization of the supply of trapped drivers/passengers with the help of volunteers and aid 

organizations.

 Adaptation of timetables and service intensities under adverse weather conditions.

 Need for alternate routes for freight transport in Arctic areas.

33 Stamos, E. Mitsakis, and J.M. Salanova Grau, “Roadmaps for adaptation measures of transportation to climate change,” Transportation 

Research Record (Washington, DC: 2015). Available at: http://trid.trb.org/view.aspx?id=1338251.
59

Example Adaptation Strategies Related to transportation systems management 

and operations (TSMO) and Maintenance from Hellenic Institute of Transport’s 

Roadmaps for Adaptation Measures Project (Continued)

 Priority plans that maintain access to hospitals, emergency stations.

 Definition of priority routes for road clearance in case of large scale impacts.

 Tracking of “chain reactions” of extreme weather events, particularly in agglomeration areas.

 Coordination of emergency plans amongst transport modes and networks.

 Implementation of appropriate risk management procedures in order to be prepared for 

adverse conditions.

Organizational and decision making processes

 Setting and implementation of international standards for weather and emergency information.

 Consultation with and coordination of highway authorities, subcontractors, suppliers, and key 

stakeholders to adjust adaptation strategies.

 Establishment of networks of urban, regional, and national stakeholders: transport companies, 

authorities, and users.

 Issuance of educational and information material on emergency cases, planning and 

maintenance to related authorities.

 Public campaigns to raise public awareness regarding local hazards.

Technical options

 Provision of shelters for non-motorized transportation.

 Preparation for sufficient salt stocks and road clearing equipment availability before and during 

winter or storm seasons.

 Development of timely communication and coordination plans involving stakeholders and 

freight operator associations.

 Roadside vegetation, absorbing generated heat, protecting roads.

 Enhancement of road layers to prevent washing-off.

 Measures of protection against slope subsidence around road/rail network to avoid cut off links.

 Additional pumping in tunnels.

 Installation of wind-breakers.

 Regular clearance of cycle lanes and sidewalks during winter.

Information flow and information and communications technology support

 Development of sustainable business models for the provision of emergency information systems.

 Provision of reliable, instant, and, if feasible, personalized information on duration of the 

incident and travel options.

 Installation of signs that warn the driver/pedestrian on upcoming flooded network.

 Development of intelligent feedback systems in vehicles to sustain user attention.

 Adoption of operational, physical, technical, procedural, and institutional integration of weather 

and traffic control services.

 Preparation of broad communication on disruptions and alternatives with the public, using a 

variety of communication channels.

Legislative options

 Strict speed limit enforcement during storms.

 Review of maintenance contracts and procedures to make them flexible and effective even under 

rapidly changing weather conditions.
60

D. Resources Listed in the Guide

American Association of State Highway and Transportation Officials, Transportation Systems 

Management and Operations Guidance. Available at: http://www.aashtotsmoguidance.org/.

Federal Highway Administration and Federal Transit Administration, Advancing Metropolitan Planning 

for Operations: The Building Blocks of a Model Transportation Plan Incorporating Operations - A Desk 

Reference, FHWA-HOP-10-027 (Washington, DC, 2010). Available at: http://www.ops.fhwa.dot.gov/

publications/fhwahop10027/index.htm. 

Federal Highway Administration, Clarus Multi-State Regional Demonstrations, Evaluation of Use Case 

#3: Non-Winter Maintenance Decision Support System, FHWA-JPO-11-118 (Washington, DC, 2011). 

Available at: http://ntl.bts.gov/lib/43000/43100/43179/FHWA-JPO-11-118_Eval_Report_UC-3_FINAL.pdf, 

accessed May 26, 2015.

Federal Highway Administration, INVEST 1.0 (Infrastructure Voluntary Evaluation Sustainability Tool) 

2012. Available at: https://www.sustainablehighways.org/.

Federal Highway Administration, Planning for Systems Management & Operations as part of Climate 

Change Adaptation, FHWA-HOP-13-030 (Washington, DC, 2013). 

Available at: http://ops.fhwa.dot.gov/publications/fhwahop13030/index.htm#toc.

Federal Highway Administration, Regional Climate Change Effects: Useful Information for Transportation 

Agencies, 2014. Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/

publications_and_tools/climate_effects/. 

Federal Highway Administration, Office of Operations, Creating an Effective Program to Advance 

Transportation System Management and Operations: Primer, FHWA-HOP-12-003 (Washington, DC, 2012). 

Available at: http://ops.fhwa.dot.gov/Publications/fhwahop12003/background.htm, accessed May 20, 2015.

Federal Highway Administration, “Operations Performance Measurement Fundamentals” Web page. 

Available at: http://www.ops.fhwa.dot.gov/perf _measurement/fundamentals/index.htm. 

Federal Highway Administration, Order 5520, Subject: Transportation System Preparedness and 

Resilience to Climate Change and Extreme Weather Events, December 15, 2014. 

Available at: http://www.fhwa.dot.gov/legsregs/directives/orders/5520.cfm.

Federal Highway Administration, Climate Change & Extreme Weather Vulnerability Assessment 

Framework, FHWA-HEP-13-005 (Washington, DC, 2012). Available at: http://www.fhwa.dot.gov/

environment/climate_change/adaptation/publications_and_tools/vulnerability_assessment_ framework/

page01.cfm.

Federal Highway Administration, Assessing Transportation System Vulnerability to Climate Change: 

Synthesis of Lessons Learned and Methods Applied, “Chapter 4. Tools and Resources,” FHWAHEP-15-007 (Washington, DC, 2014). Available at: http://www.fhwa.dot.gov/environment/climate_change/

adaptation/ongoing_and_current_research/gulf _coast_study/phase2_task6/page04.cfm.

Federal Highway Administration, “Climate Change Adaptation Case Studies and Resources” Web page. 

Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/adaptation_ framework/

resources/index.cfm. 

Huber, D.G. and Gulledge, J. “Extreme Weather and Climate Change: Understanding the Link and 

Managing the Risk” Science and Impacts Program. (Arlington, VA: Center for Climate and Energy 

Solutions, 2011). Available at: http://www.c2es.org/publications/extreme-weather-and-climate-change.
61

Lockwood, S., J. O’Laughlin, D. Keever, and K. Weiss, NCHRP Report 525: Surface Transportation 

Security Volume 6 – Guide for Emergency Transportation Operations, Washington, DC: Transportation 

Research Board of the National Academies, 2005. Available online at: http://onlinepubs.trb.org/onlinepubs/

nchrp/nchrp_rpt_525v6.pdf.

Meyer, M.D., E. Rowan, C. Snow, and A. Choate, “Impacts of Extreme Weather on Transportation: National 

Symposium Summary,” American Association of State Highway and Transportation Officials (AASHTO), 

June 29, 2013. Available at: http://climatechange.transportation.org/pdf/2013_symposium/AASHTO_

EWESymposium_2013.pdf.

Meyer, M. et al., NCHRP Report 750: Strategic Issues Facing Transportation, Volume 2: Climate Change, 

Extreme Weather Events, and the Highway System. Washington, DC: Transportation Research Board of the 

National Academies, 2014. Available at: http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_rpt_750v2.pdf.

Minnesota Department of Transportation, MnDOT Flash Flood Vulnerability and Adaptation Assessment 

Pilot Project, Final report prepared for MnDOT and the USDOT Federal Highway Administration by 

Parsons Brinckerhoff and Catalysis Adaptation Partners, 2014.

NCHRP 25-25/Task 94 (Active), “Integrating Climate Change and Extreme Weather Into Transportation 

Asset Management Plans.” Available at: http://apps.trb.org/cmsfeed/TRBNetProjectDisplay.

asp?ProjectID=3723, accessed May 20, 2015.

Stamos, I., E. Mitsakis, and J.M. Salanova Grau, “Roadmaps for adaptation measures of transportation to 

climate change,” Transportation Research Record, (Washington, DC: 2015). Available at: http://trid.trb.

org/view.aspx?id=1338251.

Transportation Research Board Special Task Force on Climate Change and Energy, Transportation 

Research Circular E-C152: Adapting Transportation to the Impacts of Climate Change State of the 

Practice 2011, June 2011. Available at: http://onlinepubs.trb.org/onlinepubs/circulars/ec152.pdf.

Walsh, J., D. Wuebbles, et al. Climate Change Impacts in the United States: The Third National Climate 

Assessment, “Ch. 2: Our Changing Climate,” U.S. Global Change Research Program, 19-67. Available at: 

http://s3.amazonaws.com/nca2014/low/NCA3_Full_Report_02_Our_Changing_Climate_LowRes.

pdf?download=1.

Washington State Department of Transportation. 2011. Climate Impacts Vulnerability Assessment. 

Available at: http://www.wsdot.wa.gov/NR/rdonlyres/B290651B-24FD-40EC-BEC3-EE5097ED0618/0/

WSDOTClimateImpactsVulnerabilityAssessmentforFHWAFinal.pdf.

U.S. Department of Transportation, 2014, U.S. DOT Gulf Coast Study, Phase 2, Task 3.1: Screen for 

Vulnerability, HEP-15-019. Available at: http://www.fhwa.dot.gov/environment/climate_change/adaptation/

case_studies/gulf _coast_study/engineering_and_tasks/task31.pdf, accessed May 20, 2015.

U.S. Department of Transportation, Transportation Climate Change Sensitivity Matrix. Available at: http://

www.fhwa.dot.gov/environment/climate_change/adaptation/adaptation_ framework/modules/index.

cfm?moduleid=2, accessed May 20, 2015.

Utah Department of Transportation, Utah Winter Severity Index Phase 1, UT-12.12 (Salt Lake City, 2012). 

Available at: http://www.udot.utah.gov/main/uconowner.gf?n=11539601019505676.
62
63

Appendix C. Future Research Needs

This guide begins to lay out how climate change will impact transportation systems management and 

operations (TSMO) and maintenance and provides actionable steps that practitioners can take to prepare 

their programs; however, there are still many topics that require additional research and development. In 

order to identify the remaining gaps in knowledge, the following table presents existing needs in TSMO 

and maintenance capabilities to address climate change, the actions that need to be undertaken to move 

toward a climate resilient program, and the research that remains to be completed to allow departments of 

transportation (DOTs) to take informed actions to close the gaps. 
64

Gap 

Category Gap

Actions Toward a Climate-Resilient 

Program Future Research Needs

Business Processes

Departments of transportation (DOTs) often do not track the costs of maintenance or damage related to weather events, which limits their ability to understand changing costs over time (e.g., related to repeated repairs due to recurring impacts). 

Track the reason for damage and the cost of repair, and incorporate that information (e.g., Winter Severity Indices) into budgeting processes.

Guide for integrating data tracking into asset management systems and their routine procedures.

DOTs rely on historic weather data in their decision making. They do not have sufficient long-range (1-3 months or 1-3 years) meteorological forecasts to use in their budget setting process. They face both a lack of data in addition to a lack of understanding of how to use uncertain climate projections in decision making.

Consider potential future climatic conditions (and associated uncertainty) when setting TSMO and maintenance budgets and workforce planning.

•Enhanced metrological forecasts that 

account for local weather variations (e.g., El Niño's) and global climate change. Projections in the 1-3 year time frame would be helpful in informing budget setting processes. 

•Develop decision support tools that better 

incorporate probabilistic information (i.e., a computer-based approach).

•Develop training materials on how 

to interpret probabilistic information (i.e., a human-based approach).

DOT weather maintenance budgets are frequently insufficient to allow for the advanced preparation for extreme events such as investing in equipment, investing in labor, and stockpiling materials and supplies (e.g., culverts) prior to a damaging event; however, after extreme events, supply chains are frequently disrupted, materials may be in short supply, and the rushed nature of ordering after an emergency can increase costs. This results in delays in repairing and reopening roadways.

Have sufficient resources to prepare in advance for the coming season in terms of labor, equipment, and materials. Stockpile extreme weather response materials and supplies in advance of extreme events. Redistribute materials prior to an extreme weather event to ensure efficient access to needed supplies.

Methods for quantifying the benefit of increased preparedness and the costs associated with delayed repairs.

DOT personnel are constrained in their ability to justify increases in current budgets, despite potential savings over time. They have limited information and tools to determine the long-term cost effectiveness of actively investing in resiliency during routine maintenance versus responding after issues arise.

Consider the life-cycle cost effectiveness of resiliency investments in budgeting and design. Use asset management systems to track relevant information to inform decisionmaking over time.

Methods for quantifying the benefit of increased preparedness and the costs associated with delayed repairs.

Table 11. Inventory of Gaps in TSMO and Maintenance Capabilities to Address Climate Change and Future Research Needs.
65

Gap 

Category Gap

Actions Toward a Climate-Resilient 

Program Future Research Needs

Business Processes

DOT TSMO programs traditionally focus on improving daily operations (e.g., managing recurrent delay) rather than proactively developing systems and protocols for managing extreme weather events. They are unaware of how adapting TSMO and maintenance to climate change differs from (and is linked to) routine preparation for extreme weather events.

Link climate change considerations to asset management systems and use a strategic approach to prioritize investments between improving operations on the average day and improving operations during extreme weather events. Additionally, prioritize investments and changes in practices that benefit both the near and short term.

A framework for prioritizing investments that includes short-term and long-term needs.

Systems and Technology

Many DOTs have significant gaps in coverage of weather and road weather conditions. This makes it difficult to make informed decisions during extreme weather events. 

Use a combination of on-the-ground staff (and potentially citizens), sensors, and mobile technology to gain comprehensive coverage of realtime weather and roadway conditions.

Viability of conducting real-time data mining from social media websites to inform immediate operations responses and longer-term planning.

Many DOTs optimize their signal timing and other TSMO tools for managing recurrent delay rather than managing extreme weather events. While this approach is effective for increasing reliability, it might not be the best approach for using these tools to increase resiliency to weather events.

Take full advantage of TSMO technologies both during daily recurrent traffic conditions as well as during extreme weather events.

Additional research on the adaptability of specific technologies and systems.

DOTs need a projection period of more than a few days to fully prepare a response to a weather event. Existing tools (e.g., theMaintenance Decision Support System [MDSS] program) are available only for winter weather and currently only project weather conditions 2 to 3 days out (and have limited geographic scope).

Use MDSS or other existing tools to run a series of hypothetical future storm events in order to inform operational planning exercises. Use detailed road weather projections to project further out in order to inform an event-specific staging and response.

Enhancements and geographic expansion of the MDSS program.

Practitioners other than winter maintenance managers do not have decision support systems in place to manage the system based on near-term or longer-term weather.

Develop MDSS systems that cover weather events such has floods and heat waves.

Enhancements and geographic expansion of the MDSS program.

Table 11. Inventory of Gaps in TSMO and Maintenance Capabilities to Address Climate Change and Future Research Needs (Continued).
66

Gap 

Category Gap

Actions Toward a Climate-Resilient 

Program Future Research Needs

Systems and 

Technology

(continued)

DOTs are unaware of how they could adapt their practices and technology to respond to climate change.

Review a wide range of potential adaptation options and best practices in order to identify priority actions, especially those that may offer cobenefits. 

DOTs need a database of potential adaptation activities and best practices for consideration to help understand the range of options. While we can begin to provide these list of options, future research will need to develop implementation time frames, partners, co-benefits, and cost of implementation assessments.

Performance 

Measurement

Existing definitions of risk tolerance and the acceptable level of operational performance do not account for the potential impacts of climate change. It may become more difficult to meet existing performance measures and targets with a changing climate.

Revisit performance measures on a regular basis and, in light of climate change and budgets, revise the measures to accurately reflect achievable levels of service. Risk tolerance levels and performance standards would take into account changes in climate and the potential impact on their ability to maintain historical levels of service.

Develop a framework for assessing how climate change may impact agencies ability to manage the projected risks posed by severe weather within established levels of risk tolerance (i.e., when will traditional tactics used for routine events be insufficient?). Include how to assess the agency’s current capability to handle threats.

Culture

TSMO, maintenance, and emergency management staff is unaware of how climate change may impact their operations, both in the near term and the future. There is also inconsistent agreement among State DOTs that climate change is a real threat that needs to be integrated into decision making.

Understand climate sensitive decisions, the impacts of climate change (both primary and secondary/cascading impacts), and the need to proactively respond to this threat would be present throughout the organization.

Continued research on the impacts of climate change on specific elements of TSMO programs. Further documentation of climate-sensitive TSMO and maintenance decisions.

DOTs have difficulty managing expectations from the public for ever-clear roads, which is in direct conflict with decreasing State funding and more frequent extreme weather events.

Engage in honest and continued dialogue with the public about funding shortfalls, climate change, and prioritizations as well as realistic expectations for road clearance and level of service.

Best practices on community engagement and discussion.

DOTs are historically risk averse and do not want to change practices until they are required to (as a result of breakdowns in the existing system). 

Consider climate change impacts throughout TSMO and maintenance practices in order to minimize risk and vulnerability to weather events.

Continue to identify barriers to and best practices for changing DOT culture to accept the need for climate resilience.

Table 11. Inventory of Gaps in TSMO and Maintenance Capabilities to Address Climate Change and Future Research Needs (Continued).
67

Gap 

Category Gap

Actions Toward a Climate-Resilient 

Program Future Research Needs

Organization and Workforce

Information is not always full reported as to where problems repeatedly arise and why. This lack of information sharing limits the ability of TSMO, maintenance, and emergency management staff to optimize their response to climate change.

Share data and qualitative lessons learned on frequent problem areas and proposed actions to mitigate these issues.

Potential citizen reporting technology development for tracking persistent issues (e.g., nuisance flooding).

DOT staff currently report that they are overburdened by current job responsibilities and have limited to no capacity or training to take on additional responsibilities, such as climate change risk and vulnerability assessments and developing adaptation responses. 

Ensure all TSMO, maintenance, and emergency management staff understands how climate change and extreme weather affect their day-today ability to efficiently complete their jobs. With this understanding should come internal initiative to increase resiliency to these events.

Outline of approaches to mainstreaming climate change into TSMO and maintenance practices.

DOT staff does not necessarily have the skill sets necessary to incorporate climate change into day-today operations.

Add new job classifications to the workforce, such as meteorologists, hybrid engineer/environmentalist, people from other hybrid disciplines, TSMO managers, risk experts, emergency managers with both a transportation/emergency management background, etc.

Steps needed to develop a workforce that can address external factors −whether climate change or something else that affects the operational component. With a range of skill sets needed, how to build and maintain a team of diverse capabilities.Develop wiring diagrams to show the connected responsibilities among offices.

In addition to not tracking the quantitative costs of responding to extreme weather events, most DOTs also do not record qualitative information that comes from years of professional staff experience. This makes it hard to retain historic, qualitative information when staff retire or move on.

Regularly coordinate between on-theground staff and other departments to discuss "hot spot" areas and inform investment decisions based on past performance.

Guidebook on succession planning.

Table 11. Inventory of Gaps in TSMO and Maintenance Capabilities to Address Climate Change and Future Research Needs (Continued).
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Gap 

Category Gap

Actions Toward a Climate-Resilient 

Program Future Research Needs

Collaboration

Most DOTs do not coordinate emergency response plans with private companies, resulting in increased public frustration and lack of essential supplies during extreme weather events (which may become a more frequent concern under a changing climate and, thus, a more frequent issue). 

Coordinate emergency plans with banks, gasoline providers, interregional motor coach carriers (e.g. Greyhound, Peter Pan), and other private sector companies to ensure access to critical needs during and following a severe weather event.

Develop best practices for public/private coordination on emergency plans.

DOTs are not used to or comfortable collaborating with climate scientists to obtain information on climate change projections and discussing and determining how to integrate this data and the inherent uncertainty into planning and practices.

Collaborate with climate scientists to understand the types of uncertainty in climate change modeling and the range of uncertainty compared to other modeled transportation assumptions (e.g., future land use patterns, traffic patterns) and then integrate the data into practice.

Develop comparisons between uncertainty in climate modeling and uncertainty in other transportation practices. 

Table 11. Inventory of Gaps in TSMO and Maintenance Capabilities to Address Climate Change and Future Research Needs (Continued).
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Appendix D. Glossary of Terms

Adaptation. Adjustment in natural or human systems in anticipation of or response to a changing 

environment in a way that effectively uses beneficial opportunities or reduces negative effects. (FHWA 

Order 5520)

Adaptive Capacity. The ability of a system to adjust to climate change (including climate variability 

and extremes) to moderate potential damages, to take advantage of opportunities, or to cope with the 

consequences. (FHWA Gulf Coast Study, Phase 1)

Capability Maturity Framework (CMF). The CMF is based on self-evaluation regarding the key 

process and institutional capabilities required from a transportation agency (or group of agencies) to 

achieve effective TSMO. This framework is adapted from a concept developed in the information 

technology industry called the Capability Maturity Model (CMM), which has been tailored to the 

transportation community. The CMF identifies the six key dimensions of process and institutional 

capability that directly relate to improving program effectiveness: business processes; systems and 

technology; performance measurement; culture; organization and workforce; collaboration. (FHWA, 

Creating an Effective Program to Advance TSMO Primer)

Change Averse. A strong opposition to changing practices or beliefs.

Climate Change. Climate change refers to any significant change in the measures of climate lasting for an 

extended period of time. Climate change includes major variations in temperature, precipitation, or wind 

patterns, among other environmental conditions, that occur over several decades or longer. Changes in 

climate may manifest as a rise in sea level, as well as increase the frequency and magnitude of extreme 

weather events now and in the future. (FHWA Order 5520)

Climate Stressor. Acute and long-term weather events and trends that have an effect on an asset or 

service. Among others, stressors include extreme temperature events and precipitation events, drought, 

sea level rise, storm surge, intense storms (e.g., hurricanes and tropical storms), strong winds, blizzards, 

humidity, permafrost thaw, and long-term temperature and precipitation trends. (FHWA Gulf Coast, 

Phase 1)

Efficacy. The extent to which the strategy, if successfully implemented, reduces the risk. (NYSERDA 

Responding to Climate Change in New York State [ClimAID])

Emergency Management. The process of preventing, preparing for, responding to, and recovering from 

an emergency; where an emergency is an unexpected, large-scale, damaging event. (TRB Regional TSMO 

Committee’s Glossary)

Exposure. The nature and degree to which a system or asset is exposed to significant climate variations. 

(FHWA, Gulf Coast Study, Phase 2)

Extreme Weather Events. Extreme weather events can include significant anomalies in temperature, 

precipitation and winds and can manifest as heavy precipitation and flooding, heatwaves, drought, 

wildfires and windstorms (including tornadoes and tropical storms). Consequences of extreme weather 

events can include safety concerns, damage, destruction, and economic loss. Climate change can also 

cause or influence extreme weather events. (FHWA Order 5520)
70

Extreme Events. For the purposes of this directive, the term “extreme events” refers to risks posed by 

climate change and extreme weather events. The definition does not apply to other uses of the term nor 

include consideration of risks to the transportation system from other natural hazards, accidents, or other 

human induced disruptions. (FHWA Order 5520)

Feasibility. How practical it is for a particular strategy to be implemented by a department, accounting for 

engineering, policy, legal, and insurance considerations. (NYSERDA Responding to Climate Change in 

New York State [ClimAID])

Flexibility. Ability to make course corrections if a particular strategy is adopted. Such corrections are an 

essential part of adaptive management. (NYSERDA Responding to Climate Change in New York State 

[ClimAID])

Performance Measurement. A process of assessing progress toward achieving predetermined goals. 

(TRB Regional TSMO Committee’s Glossary)

Performance Measures. Indicators that provide the basis for evaluating the transportation system 

operating conditions and identifying the location and severity of congestion and other problems. (TRB 

Regional TSMO Committee’s Glossary)

Preparedness. Actions taken to plan, organize, equip, train, and exercise to build, apply, and sustain the 

capabilities necessary to prevent, protect against, ameliorate the effects of, respond to, and recover from 

climate change related damages to life, health, property, livelihoods, ecosystems, and national security. 

(FHWA Order 5520)

Projection. A climate projection is the simulated response of the climate system to a scenario of future 

emission or concentration of greenhouse gases (GHGs) and aerosols, generally derived using climate 

models. (IPCC Glossary)

Resilience. Resilience or resiliency is the ability to anticipate, prepare for, and adapt to changing 

conditions and withstand, respond to, and recover rapidly from disruptions. (FHWA Order 5520)

Risk Aversion. The behavior of humans while exposed to uncertainty to attempt to reduce that uncertainty. 

(Wikipedia)

Road Weather Management. Mitigation strategies employed in response to various weather threats 

including fog, high winds, snow, rain, ice, flooding, tornadoes, hurricanes, and avalanches. (TRB Regional 

TSMO Committee’s Glossary)

Scenario. A plausible description of how the future may develop based on a coherent and internally 

consistent set of assumptions about key driving forces (e.g., rate of technological change, prices) and 

relationships. Note that scenarios are neither predictions nor forecasts, but are useful to provide a view of 

the implications of developments and actions. (IPCC Glossary) 

Scenario Planning. Scenario planning provides a framework for developing a shared vision for the future 

by analyzing various forces (e.g., climate change, land use, economy) that affect growth and management 

of the transportation system. Scenario planning tests various future alternatives in order to identify 

solutions that meet state and community needs under a variety of potential futures. Scenario planning is 

used in exercises to make critical decisions in the face of uncertainty. (FHWA Scenario Planning and 

Visualization in Transportation)
71

Sensitivity. The degree to which a transportation system or asset is affected by climate variability or 

change. (FHWA Gulf Cost Study, Phase 2)

Transportation Asset Management (TAM). A strategic and systematic process of operating, maintaining, 

upgrading, and expanding physical assets effectively through their life cycle. It focuses on business and 

engineering practices for resource allocation and utilization, with the objective of better decision making 

based upon quality information and well defined objectives. (TRB Regional TSMO Committee’s Glossary)

Transportation Management Center (TMC). The hub of a transportation management and control 

system. The TMC brings together human and technological components from various agencies to perform 

a variety of functions. (TRB Regional TSMO Committee’s Glossary) 

Transportation Systems Management and Operations (TSMO). An integrated program to optimize the 

performance of existing infrastructure through the implementation of systems, services, and projects 

designed to preserve capacity and improve security, safety, and reliability of the transportation system. 

(TRB Regional TSMO Committee’s Glossary)

Vulnerability. The degree to which a transportation system or asset is susceptible to, and unable to cope 

with, adverse effects of climate change, variability, and extremes. Vulnerability is a function of exposure, 

sensitivity, and adaptive capacity. (FHWA Gulf Coast Study, Phase 2)
72
73

Appendix E. Sample Handout for Workshop 

on Climate Change Risk

Figure 14. Photo. Flooding at Spring Mill Station 

on Southeastern Pennsylvania Transportation 

Authority's Manayunk/Norristown Regional 

Rail Line in Philadelphia.

Source: Southeastern Pennsylvania 

Transportation Authority

This sample worksheet provides the basic format and 

illustrative examples for a workshop to explore 

climate change risk. The goal of conducting such a 

workshop is to develop a more complete 

understanding of the direct and indirect impacts and 

costs associated with extreme weather events. Then, 

this information can be folded back into practices 

used by the offices and departments represented at 

the exercise (using the approaches suggested in the 

guide above).

Scenarios 

SCENARIO 1:

[Description of local past extreme weather event. For 

example: Between August 26 and September 3, 2011, 

Greater Philadelphia was hit with two tropical storm-force weather events – Hurricane Irene and Tropical 

Storm Lee. These storms brought with them torrential rainfall and strong winds across the Philadelphia 

region. The storms followed the wettest month (August 2011) in the region’s history. The saturated ground 

exacerbated impacts.]

SCENARIO 2: 

[To develop a scenario that addresses climate change risk, begin with a severe weather event familiar to 

the participants.]

SCENARIO 3: 

[To develop a scenario that addresses climate change risk, begin with a severe weather event familiar to 

the participants.]

Exercise

The purpose of this exercise is to develop a more complete understanding of the direct and indirect impacts 

and costs associated with extreme weather events by retracing the department of transportation (DOTs) 

response before, during, and after these events, from advance warning from the National Weather Service 

to resumption of normal service and everything in between. We are interested in the responses of all 

affected departments. 
74

Sample Discussion Questions:

 How prepared are we for heavy rain events today?

• When we receive advance warning of a heavy rain event:

∘ At what stage (x inches of rain predicted, etc.) does your department consider escalating its 

responsive actions?

∘ What responses are triggered?

∘ What personnel are involved in heavy rain event preparations (either for actual response actions 

or continuity of those operations for which you are responsible)?

∘ What contractors and staff are put on notice in heavy rain event preparations?

∘ What materials and equipment are put on standby?

∘ How are standby locations determined/prioritized?

∘ Under what conditions are you concerned that you may not be adequately prepared for the 

event? What elements of your department are not prepared?

• When the heavy rain event is occurring:

∘ What actions are your personnel directed to take?

∘ What personnel are engaged in the response?

∘ At what points are contractors engaged?

∘ What triggers use of materials and equipment or alternate locations?

∘ What triggers decisions to discontinue service (for a particular operation or for the agency)?

• When the heavy rain event is over:

∘ What inspections/audits are conducted to evaluate impacts?

∘ How are corrective actions planned?

∘ How are operations resumed?

∘ To what extent does “mitigation” of future impacts factor into corrective actions?

∘ Do you have examples of actions that have been taken in the past after an event?

∘ What “lessons learned” have emerged from past events that have not been integrated into the 

standard response plan?

• What other indirect costs are associated with the DOTs response to a heavy rain event?

 What data do you collect and retain about past incidents? Based on our current responses, if heavy rain 

events were to occur more frequently in the future:

• Is there new technology or equipment that you would need to be better prepared?

• Are there specific locations within your jurisdiction that you should be increasing your planning for?

• Would you need to change your contracting and bidding processes?

• How could you reduce costs per event?

• What additional workforce training would make you more prepared?

• How can you better inform the public of disruptions?

• What operational changes would improve your response and efficiency?

• How can you be better prepared before an event?

• How do you prepare to mobilize quickly for unexpected events?

• What impact would additional events have on your equipment and assets?

• Who should you improve coordination with and how?

• How can you better track costs and impacts from these events?

 Background Data

[Insert data on observed weather during this event, future weather predictions, costs which can be 

collected ahead of the workshop, etc. All of this information will help inform the discussion.] 
75

Additional Resources

For further information on how to run an exercise of this sort, (particularly how to manage a tabletop 

exercise), see: http://ops.fhwa.dot.gov/publications/tabletopexercpe/tabletopexererc_pse.pdf.

The adaptation framework presented earlier in the guide provides an overview of how transportation 

systems management and operations (TSMO) and maintenance groups can begin to take action through 

steps to: define the scope of adaptation efforts; assess vulnerabilities to inform the development of 

adaptation strategies; and integrate climate change into decision making. The checklist that follows provides 

further detail on specific actions that can help move technical staff through these steps.

Define Scope

□ Define TSMO and maintenance program goals and operations objectives that could be sensitive to 

climate change.

□ Identify the extreme weather events or trends that could affect the agency’s TSMO and maintenance 

programs.

Assess Vulnerability

□ Catalog current capabilities (both technical and institutional).

□ Review traffic incident reports, maintenance records, after-action reports, emergency reimbursement 

forms, and other sources to determine how extreme weather events have affected performance in the past.

□ Interview staff across departments about extreme weather-related vulnerabilities 

(e.g., “what keeps you up at night?”).

□ Identify points and thresholds where extreme weather affects TSMO and maintenance decisions (e.g., 

establishing future workforce needs, weather response budgeting, setting operational objectives).

□ Document how TSMO and maintenance practices relate to different weather thresholds (e.g., place 

sandbags when forecast calls for X amount of rain).

□ Gather information on historic trends in relevant weather variables and/or how those variables may 

change in the future.

□ Characterize extreme weather risks via data-driven or workshop-based qualitative or quantitative analysis.

Integrate into Decision Making

□ Identify performance measures and targets (i.e., the acceptable level of operational performance if 

threat occurs).

□ Select potential adaptation strategies (selected examples provided below – see more in Tables 6 and 8 

in the guide).

Policy-based strategy examples

□ Review and update performance measures in light of extreme weather vulnerabilities.

□ Establish work order codes for weather events or use other methods to improve tracking of labor, 

equipment, and materials costs over time.

□ Develop a strategy for incorporating weather trends in budget-setting processes.

□ Require after-action reports with clear recommendations for improvement following extreme events.

□ Update emergency response plans to factor in potential for greater frequency of extreme weather events.

□ Improve cross-training across staff (including across operations, maintenance, and emergency 

management).

Appendix F. Adaptation Checklist for 

Technical Staff
76

□ Establish regular coordination between on-the-ground staff and other departments to discuss 

vulnerabilities and inform investment decisions based on past performance.

□ Establish transition plans for retiring staff to maintain institutional knowledge.

□ Modify current design and procurement criteria to favor durable materials and designs.

Operational and maintenance strategy examples

□ Establish stand-by contracts for extreme event response.

□ Improve intra-agency coordination and information sharing about conditions, closures, resources, etc.

□ Enhance inter-agency coordination to promote establishment of resource-sharing agreements and 

information sharing about plans, initiatives, risks, and resources (e.g., include key stakeholders in 

routine communications to streamline process during emergency events).

□ Invest in redundant communications systems and data servers.

□ Expand both coverage and quality of fixed and mobile monitoring capabilities.

□ Modify procurement specifications to ensure performance over a wider range of conditions.

Maintenance strategy examples

□ Purchase equipment, factoring in likely future needs based on extreme weather events or climate 

changes (e.g., versatile equipment in Alabama to double as snow plows, mobile stockpiles of traffic 

control devices).

□ Stockpile materials (e.g., culvert pipe, temporary bridge components, fuel) and equipment (e.g., 

generators, chain saws, traffic control devices) and stage them in strategic areas prior to events.

□ Increase or change vegetation control practices to keep pace with climate changes (e.g., increase 

trimming frequency or plant more drought- or heat-tolerant species).

□ Review and consider mitigating vulnerabilities when conducting scheduled maintenance activities.

Emergency management strategy examples.

□ Incorporate changes in extreme event frequency into emergency management planning, including 

anticipated staffing, training, and equipment needs.

□ Establish stand-by contracts for extreme event response.

□ Conduct tabletop exercises and use routine events to drill emergency management protocols.

Adaptive management strategy examples 

□ Develop a system to track weather-related trends and costs over time (e.g., number of potholes repaired, 

snow removal costs, number of emergency event triggers, labor hours devoted to weather preparation, 

response, and recovery), such as through designated “weather-related” charge codes.

□ Use asset management systems to track relevant information to inform decision making over time.

□ Configure asset management or maintenance systems to issue alerts when vulnerable assets are due for 

maintenance, repair, or replacement.

□ Develop and track performance metrics related to extreme weather (e.g., number/duration of weatherrelated road closures).

□ Evaluate and select adaptation strategies based on factors such as technical and political feasibility, costs 

and benefits, efficacy, flexibility, and sustainability. 

□ Determine improvements in agency capabilities necessary for successful implementation of adaptation 

strategies (e.g., improvements in business processes, systems and technologies, performance 

management, culture, organization and workforce, and collaboration).

Monitor Progress and Revisit 

□ Establish a plan for monitoring and evaluating progress toward extreme weather resilience.

□ Engage stakeholders needed to support monitoring and evaluation efforts.

□ Monitor trends in extreme weather events and their impacts (e.g., frequency of particular events, 

weather-related costs and disruptions).

□ Analyze data on weather trends and impacts to inform decision-making about future strategies.

□ Continually revisit TSMO, maintenance, and emergency programs in light of extreme weather and 

climate trends.
77

Acknowledgments

This document was developed with input from practitioners from State departments of 

transportation, metropolitan planning organizations, and other organizations. The 

Federal Highway Administration would specifically like to thank the following 

individuals who helped shape this document during the research that led to its 

development:

Kathy Ahlenius, Wyoming Department of Transportation

Ted Bailey, Washington State Department of Transportation

Mike Coffey, Alaska Department of Transportation and Public Facilities

Steve Cook, Michigan Department of Transportation

Matthew Edelman, Transportation Operations Coordinating Committee 

(TRANSCOM)

Jakin Koll, Minnesota Department of Transportation 

Chris Laborde, New Orleans Regional Planning Commission 

Richard Nelson, American Association of State Highway and Transportation Officials 

John Nisbet, Washington State Department of Transportation 

Steven Olmsted, Arizona Department of Transportation

Eileen Singleton, Baltimore Metropolitan Council 

Michael Zezeski, Maryland State Highway Administration
November 2015

FHWA-HOP-15-026

Federal Highway Administration 

U.S. Department of Transportation

Office of Operations 

1200 New Jersey Avenue, SE 

Washington, DC 20590 

www.ops.fhwa.dot.gov

Toll-Free "Help Line" 866-367-7487