FHWA-HOP-12-005

Work Zone Road User Costs

Concepts and Applications

December 2011
Final Report 

WORK ZONE ROAD USER COSTS 

 CONCEPTS AND APPLICATIONS 

Issued under Indefinite Quantity Contracts 

FHWA Contract # DTFH61-06-D-00004 

Submitted to: 

Federal Highway Administration 

Office of Operations 

1200 New Jersey Ave., SE 

Washington, DC 20590 

Prepared by: 

Jagannath Mallela 

Suri Sadasivam 

Applied Research Associates, Inc. 

100 Trade Centre Drive, Suite 200 

Champaign, IL, 61820 

December 2011 
THIS PAGE INTENTIONALLY LEFT BLANK
Technical Report Documentation Page

1. Report No. 

FHWA-HOP-12-005 

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

4. Title and Subtitle 

Work Zone Road User Costs – Concepts and Applications 

5. Report Date 

December 2011 

6. Performing Organization Code 

 

7. Authors 

Jagannath Mallela and Suri Sadasivam 

8. Performing Organization Report 

No. 

 

9. Performing Organization Name and Address

Applied Research Associates, Inc. 

100 Trade Centre Dr., Suite 200 

Champaign, IL 61820-7233 

10. Work Unit No. (TRAIS)

11. Contract or Grant No. 

DTFH61-06-D-00004 

12. Sponsoring Agency Name and Address 

U.S. Department of Transportation 

Federal Highway Administration 

Office of Operations (HOP) 

1200 New Jersey Avenue, SE 

Washington, DC 20590 

13. Type of Report and Period 

Covered 

14. Sponsoring Agency Code

15. Supplementary Notes 

Performed under subcontract to Cambridge Systematics Inc. (Task Order CA04-065) 

Contracting Officer's Technical Manager (COTM) Jawad Paracha 

16. Abstract 

On-site construction activities can result in significant mobility and safety impacts to road users. The presence 

of work zone can also result in inconvenience to local business and community, noise and environmental 

impacts. Minimizing the adverse impacts of work zones has become a higher priority especially since the 

inception of the FHWA Rule on Work Zone Safety and Mobility (23 CFR 630 Subpart J). Work zone road user 

costs (WZ RUC) provide the economic basis for quantifying these adverse impacts which can then be used for 

effective decision-making to improve work zone mobility and safety. This report provides practitioners with 

information on WZ RUC analysis concepts and their applications using case studies drawn from real world 

projects. 

WZ RUC primarily refers to monetized components of mobility and safety impacts; increasingly, non-monetary 

and qualitative components, such as environmental, business, and societal impacts, are being utilized. In this 

report, each of the monetary components is explored and the computations of these components are illustrated 

using examples. It presents step-by-step procedures to derive unit costs for monetary components. It lists the 

cost sources for each cost component as well as the ways to update those using economic indices. It also 

explores input requirements and various tools available for use in WZ RUC analysis. 

This report presents the application of both monetary and qualitative components of WZ RUC in MOT 

alternative analysis using a decision analysis framework. Another key application of WZ RUC is in selecting 

appropriate project delivery/contracting strategies to minimize WZ RUCs and related impacts through early 

project completion. Approaches for determining an appropriate level of incentives and disincentives are also 

discussed. Three “real-world” case studies from the Highways for LIFE program are presented to demonstrate 

the applications of WZ RUCs in selecting the preferred Maintenance of Traffic (MOT) alternatives and project 

delivery/contracting strategies. 

17. Key Words 

Work zone road user costs, work zone impacts, maintenance 

of traffic alternative analysis, accelerated construction, 

schedule-focused contracting strategy, project delivery, 

incentive/disincentive, discount factors. 

18. Distribution Statement 

No restrictions. 

19. Security Classif. 

(of this report) 

Unclassified 

20. Security Classif. 

(of this page) 

 Unclassified 

21. No. of Pages 

 208 

22. Price

 N/A 
ii 

NOTICE 

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

Transportation in the interest of information exchange. The U.S. Government assumes no 

liability for the use of the information contained in this document. This report does not 

constitute a standard, specification, or regulation. 

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

manufacturers’ names may appear in this report only because they are considered essential to 

the objective of the document. 

QUALITY ASSURANCE STATEMENT 

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

Government, industry, and the public in a manner that promotes public understanding. 

Standards and policies are used to ensure and maximize the quality, objectivity, utility, and 

integrity of its information. FHWA periodically reviews quality issues and adjusts its programs 

and processes to ensure continuous quality improvement. 
iii 

ACKNOWLEDGMENTS 

This work was performed under FHWA Contract # DTFH61-06-D-00004 by the Transportation 

Sector of Applied Research Associates (ARA), Inc. Mr. Jawad Paracha of Federal Highway 

Administration was the Contracting Officer’s Task Manager for this project. 

Mr. Jagannath Mallela served as the Principal Investigator for the study. Mr. Mallela was 

supported by Dr. Suri Sadasivam of ARA. Ms. Erin Flanigan of Cambridge Systematics served 

as the Project Manager. 

The research team gratefully acknowledges the voluntary participation and contributions of 

the project review panel. The project panel greatly contributed toward the preparation of 

this document by providing valuable insights, review and feedback. The project review panel 

included: 

Dr. Rahim Benekohal, University of Illinois, Urbana-Champaign 

Mr. Nathaniel Coley, Federal Highway Administration 

Mr. Mark Hauske, New Jersey Department of Transportation 

Ms. Mary Huie, Federal Highway Administration 

Dr. Douglas Gransberg, Iowa State University 

Mr. Jim McMinimee, Consultant 

Mr. Venu Nemani, Maryland State Highway Administration 

Dr. Jae Pyeon, San Jose State University 

Dr. Nadarajah Sivaneswaran, Federal Highway Administration 

Dr. Gerald Ullman, Texas Transportation Institute 

Mr. Gerald Yakowenko, Federal Highway Administration 
iv 

TABLE OF CONTENTS 

CHAPTER 1. 0BINTRODUCTION ......................................................................... 1

1.1 6B ACKGROUND........................................................................................ 1

1.2 7BOBJECTIVES AND SCOPE ............................................................................. 3

1.3 8BREPORT ORGANIZATION AND USE .................................................................... 3

CHAPTER 2. 1BCWORK ZONE ROAD USER COSTS ..................................................... 5

2.1 9BDEFINITION OF WORK ZONE ROAD USER COST....................................................... 5

2.2 10BTRAVEL DELAY COSTS ............................................................................... 6

2.2.1 Delay Time .................................................................................. 6

2.2.2 32BMonetary Value of Travel Time ......................................................... 11

2.3 VEHICLE OPERATING COSTS ........................................................................ 25

2.3.1 Estimating VOC ............................................................................ 26

2.3.2 VOC Models ................................................................................ 27

2.3.3 34BUnit Cost Data Sources for VOC Estimation ........................................... 33

2.4 13BCRASH COSTS....................................................................................... 36

2.4.1 36BWork Zone Crash Rate .................................................................... 36

2.4.2 37BCrash Severity Rating ..................................................................... 39

2.4.3 38BMonetary Value of Crashes .............................................................. 40

2.5 14BEMISSION COSTS .................................................................................... 44

2.5.1 39BEstimating Emissions Rates .............................................................. 45

2.5.2 40BMonetary Value of Emissions ............................................................ 48

2.6 NETWORK/CORRIDOR LEVEL IMPACTS OF NEARBY PROJECTS ....................................... 49

2.7 15BNON-MONETARY QUANTITATIVE AND QUALITATIVE FACTORS ....................................... 49

2.7.1 41BNoise ........................................................................................ 49

2.7.2 2BBusiness and Local Community Impacts ............................................... 50

2.8 16BDATA REQUIREMENTS FOR WZ RUC MOBILITY ANALYSIS ........................................... 51

2.8.1 4BHourly Traffic Demand ................................................................... 51

2.8.2 45BTraffic composition ....................................................................... 52

2.8.3 46BWork Zone Configuration ................................................................ 53

2.8.4 47BWork Zone Capacity ...................................................................... 53

2.8.5 48BTravel Speed ............................................................................... 55

2.8.6 49BMaintenance of Traffic Strategy ........................................................ 56

2.9 TOOLS FOR WZ RUC COMPUTATION ............................................................... 60

2.9.1 Work Zone Traffic Impact Analysis Tools .............................................. 60

2.9.2 51BEconomic Analysis Tools ................................................................. 69

CHAPTER 3. 2BAPPLICATION OF WZ RUC DURING MOT ALTERNATIVE ANALYSIS ............73

3.1 18BOVERVIEW .......................................................................................... 73

3.2 19BMAINTENANCE OF TRAFFIC ALTERNATIVE ANALYSIS ................................................. 73

3.2.1 52BPreliminary Assessment of Work Zone Impacts (Step 1) ............................ 74

3.2.2 53BIdentifying the Significance of Projects (Step 2) .................................... 75

3.2.3 Identifying the Need for MOT Alternative Analysis (Step 3) ....................... 77

3.2.4 5BWork Zone Performance Measures and Thresholds (Step 4) ....................... 79

3.2.5 56BCandidate Strategies for MOT Alternative Analysis (Step 5) ....................... 82
v 

TABLE OF CONTENTS, CONTINUED 

3.2.6 Detailed Assessment of Work Zone Impacts (Step 6) ................................ 84

3.2.7 58BDecision Analysis for MOT Strategy Selection (Step 7) .............................. 84

CHAPTER 4. 3BAPPLICATION OF WZ RUC ANALYSIS IN CONTRACTING/PROJECT DELIVERY 

METHODS ...............................................................................95

4.1 20BOVERVIEW .......................................................................................... 95

4.2 21BSCHEDULE-FOCUSED ALTERNATIVE CONTRACTING STRATEGIES ..................................... 96

4.2.1 59BNeed for Schedule-focused Alternative Contracting Strategies ................... 96

4.2.2 60BOverview of Schedule-focused Contracting Methods and Alternative 

Delivery Methods .......................................................................... 97

4.3 2BSELECTING A CONTRACTING STRATEGY TO EXPEDITE PROJECT COMPLETION ..................... 105

4.3.1 Need for Project Acceleration ........................................................ 107

4.3.2 63BSelecting an Appropriate Schedule-Focused Alternative Strategy .............. 109

4.4 23BESTABLISH KEY I/D PARAMETERS ................................................................. 115

4.4.1 Establishing I/D Amount ............................................................... 119

4.4.2 Establishing Daily WZ RUC ............................................................. 120

4.4.3 Establishing Baseline and Accelerated Schedule ................................... 121

4.4.4 67BEstablishing Contractor’s Costs of Acceleration ................................... 122

4.4.5 Establishing Time-Cost Tradeoff Point .............................................. 125

4.4.6 69BCalculating Incentives/Disincentives – Discount Factor Approach .............. 126

4.4.7 70BCalculating Incentives/Disincentives – Cost of Acceleration Approach ........ 128

CHAPTER 5. 4BCASE STUDIES ........................................................................ 131

5.1 CONCRETE PAVEMENT REHABILITATION ON INTERSTATE-66, FAIRFAX COUNTY, VIRGINIA ........ 131

5.1.1 Project Description ..................................................................... 131

5.1.2 Case Study Objectives .................................................................. 137

5.1.3 RUC Computation ....................................................................... 137

5.1.4 Selection of Construction Technique ................................................ 147

5.1.5 Selection of Contracting Strategy .................................................... 147

5.1.6 Computing Lane Rental Fee ........................................................... 149

5.2 IMPROVEMENTS TO THE 24TH STREET–I-29/80 INTERCHANGE IN COUNCIL BLUFFS, IOWA........ 151

5.2.1 Project Description ..................................................................... 151

5.2.2 Case Study Objectives .................................................................. 153

5.2.3 Construction Costs ...................................................................... 153

5.2.4 Road User Costs ......................................................................... 154

5.2.5 Benefit-Cost Analysis ................................................................... 157

5.3 RECONSTRUCTION OF EASTERN AVENUE BRIDGE OVER KENILWORTH AVENUE IN 

WASHINGTON, DC ......................................................................................... 158

5.3.1 Project Description ..................................................................... 158

5.3.2 Objectives ................................................................................ 161

5.3.3 Need for MOT Alternative Analysis ................................................... 161

5.3.4 Kepner-Tregoe Decision Analysis ..................................................... 162
vi 

TABLE OF CONTENTS, CONTINUED 

CHAPTER 6. 5BRUC ANALYSIS REPORT STRUCTURE ............................................. 173

6.1 24B ACKGROUND..................................................................................... 173

6.2 25BDATA COLLECTION................................................................................ 173

6.3 26BFIELD OBSERVATIONS ............................................................................. 174

6.4 27BDISCUSSION ON THE IMPACTS OF WORK ZONE .................................................... 174

6.5 28BDETAILED NARRATIVE ............................................................................. 174

6.6 29BALTERNATIVES ANALYSIS.......................................................................... 174

6.7 30BRECOMMENDATIONS............................................................................... 174

REFERENCES .......................................................................................... 175

GLOSSARY .......................................................................................... 183

APPENDIX A. KEPNER-TREGOE DECISION ANALYSIS WORKSHEET FOR MOT STRATEGY 

SELECTION ........................................................................... A-1
vii 

LIST OF TABLES 

Table 1. Ratio of personal and business travel. ...................................................... 12

Table 2. NHTS estimates of average vehicle occupancy factors of personal and business 

travel. ............................................................................................ 13

Table 3. OST guidelines for calculating value of personal travel time. .......................... 13

Table 4. OST guidelines for calculating value of business travel time. .......................... 15

Table 5. Hourly costs of time-related vehicle depreciation in 1995 dollars. .................... 19

Table 6. Hourly costs of time-related vehicle depreciation in 2010 dollars. .................... 19

Table 7. Percent of empty trucks. ..................................................................... 21

Table 8. Average payload by distance traveled and truck type – national statistics. .......... 22

Table 9. Average payload by distance traveled and truck type by State. ....................... 22

Table 10. Hourly cost of freight inventory by distance traveled and truck type – national 

averages in 2010 dollars. ...................................................................... 24

Table 11. Roadway factors affecting vehicle operating costs. ...................................... 27

Table 12. Added time and vehicle running cost/1,000 stops and idling cost in 2010 dollars. .. 28

Table 13. TRDF estimates of VOC consumption during idling. ....................................... 29

Table 14. Sample HERS-ST estimates of constant speed VOC in 2010 dollars. .................... 33

Table 15. Sample HERS-ST estimates of speed variability VOC in 2010 dollars. .................. 33

Table 16. AAA estimates of VOC for passenger cars in 2010 dollars (cents/vehicle mile). ..... 34

Table 17. ATRI estimates of VOC for trucks in 2008 dollars. ........................................ 34

Table 18. Barnes and Langworthy estimates of VOC in 2003 dollars ............................... 34

Table 19. Average VOC in 2005 dollars. ................................................................. 34

Table 20. HERS-ST unit costs of VOC resource components in 2004 dollars. ...................... 35

Table 21. Price adjustments for VOC components. ................................................... 35

Table 22. 2004 to 2010 price adjustment factors for VOC components. .......................... 36

Table 23. HERS-ST unit costs of VOC resource components in 2010 dollars. ...................... 36

Table 24. Typical work zone crash modification factors for temporary lane closure on 

freeways. ........................................................................................ 38

Table 25. Average crash rates at Interstate work zones in Indiana................................. 38

Table 26. Work zone crash rates in Ohio. ............................................................... 38

Table 27. KABCO injury scale. ............................................................................ 40

Table 28. Abbreviated injury scale. ..................................................................... 40

Table 29. Sample FHWA crash cost estimates in 2001 dollars. ...................................... 41

Table 30. Factors affecting vehicular emissions. ...................................................... 45

Table 31. EMFAC emissions factors used in Cal-B/C program – model year 2003. ............... 46

Table 32. Caltrans estimates of health cost of transportation emissions in 2010 dollars. ...... 48

Table 33. HERS-ST estimates of air pollutant damage costs in 2000 dollars. ..................... 49

Table 34. Sample hourly traffic distribution factors. ................................................. 52

Table 35. Work zone management strategies by category – temporary traffic control. ........ 57

Table 36. Work zone management strategies by category – transportation operations. ........ 58

Table 37. Work zone management strategies by category – public information. ................ 59

Table 38. Traffic analysis tools used by State DOTs. ................................................. 68

Table 39. Classification of project types based on work zone impacts. ........................... 76

Table 40. North Carolina DOT criteria for determining level of project significance. .......... 78

Table 41. Performance measures for MOT alternative analysis. .................................... 80

Table 42. Performance thresholds used by various agencies. ....................................... 81

Table 43. Candidate strategies for MOT alternative analysis. ....................................... 83

Table 44. Advantages and disadvantages of incentives/disincentives. ............................ 98
viii 

LIST OF TABLES, CONTINUED 

Table 45. Advantages and disadvantages of A+B bidding............................................. 99

Table 46. Advantages and disadvantages of lane rental............................................ 100

Table 47. Advantages and disadvantages of no-excuse incentives. .............................. 101

Table 48. Advantages and disadvantages of design-build project delivery. ..................... 104

Table 49. Advantages and disadvantages of CMGC. ................................................. 105

Table 50. Questions on identifying the need for accelerating a project schedule. ............ 108

Table 51. Project delivery method selection matrix. ............................................... 110

Table 52. Schedule-focused contracting strategy selection matrix. ............................. 112

Table 53. Common sources of unit cost data. ........................................................ 124

Table 54. Empirical factors for estimating profit margin. ......................................... 124

Table 55. Typical cost breakdown by project type. ................................................. 125

Table 56. Weekday hourly traffic distribution over a 24-hour period for 

I-66 westbound lanes. ....................................................................... 132

Table 57. Weekend hourly traffic distribution over a 24-hour period for 

I-66 westbound lanes. ....................................................................... 133

Table 58. VDOT’s accident records along I-66 project site. ....................................... 134

Table 59. I-66 project: travel time statistics......................................................... 136

Table 60. Lane closure restrictions for mainline I-66. .............................................. 136

Table 61. Lane closure restrictions for ramp from I-66 westbound to US 50 westbound. .... 136

Table 62. I-66 project user fees for lane closures. .................................................. 137

Table 63. I-66 project: unit cost data requirements for WZ RUC computation. ................ 138

Table 64. I-66 mainline traffic impacts (two of four lanes closed). .............................. 142

Table 65. I-66 mainline traffic impacts (three of four lanes closed). ............................ 143

Table 66. I-66 project: evaluating the need for a schedule-focused contracting strategy. .. 148

Table 67. I-66 mainline: RealCost WZ RUC estimates for different lane closure timings 

(two of four lanes closed). .................................................................. 150

Table 68. I-66 mainline: RealCost WZ RUC estimates for different lane closure timings 

(three of four lanes closed). ................................................................ 150

Table 69. I-66 project: comparison of VDOT and RealCost-based lane rental fees. ........... 150

Table 70. I-66 project: comparison of lane rental fees at different discount factors ......... 151

Table 71. 24th street reconstruction project: per vehicle travel time and delay estimates. 153

Table 72. 24th street reconstruction project: agency costs. ...................................... 154

Table 73. 24th street reconstruction project: work zone exposure for baseline and 

pre-cast options. ............................................................................. 156

Table 74. 24th street reconstruction project: unit cost data for crashes. ...................... 156

Table 75. 24th street reconstruction project: crash costs for the baseline option. ........... 156

Table 76. 24th street reconstruction project: crash costs for the pre-cast option. ........... 157

Table 77. Eastern Avenue project: weighting WANT objectives. ................................. 163

Table 78. Eastern Avenue project: summary of LCAP analysis. ................................... 169

Table 79. Eastern Avenue project: evaluation against MUST objectives. ....................... 169

Table 80. Eastern Avenue project: evaluation against WANT objectives. ....................... 170

Table 81. Eastern Avenue project: weighted scores. ............................................... 171

Table 82. Eastern Avenue project: analyzing adverse consequences. ........................... 171

Table 83. Eastern Avenue project: selection of a preferred alternative. ....................... 172
ix 

LIST OF FIGURES 

Figure 1. Road user cost components. .................................................................. 5

Figure 2. Schematic illustrating the components of travel delay costs. .......................... 7

Figure 3. Schematic illustrating the components of VOC. .......................................... 26

Figure 4. Sample screenshot from the New Jersey DOT spreadsheet tool. ...................... 62

Figure 5. Sample screenshot from the Colorado WZ RUC program. ............................... 62

Figure 6. Sample screenshot from the Maryland LOPB tool ........................................ 63

Figure 7. Sample screenshot from the Michigan CO3 spreadsheet. ............................... 63

Figure 8. Sample screenshot showing lane closure analysis using CA4PRS. ...................... 67

Figure 9. Screenshot showing the WZ RUC analysis in RealCost version 2.5. .................... 70

Figure 10. Screenshot showing the work zone analysis functionalities of MicroBENCOST....... 71

Figure 11. Screenshot showing the RUC analysis functionalities of BCA.Net. ..................... 71

Figure 12. Maryland SHA’s lane closure process for arterials. ....................................... 79

Figure 13. Illustration of relationships among factors. ............................................... 87

Figure 14. Sample flow chart of the I/D contracting implementation process. ................ 106

Figure 15. Relationship between project cost and duration. ...................................... 116

Figure 16. Relationship among the level of acceleration, acceleration costs, and 

time savings. ................................................................................. 126

Figure 17. Project location on I-66 in Fairfax County, Virginia. .................................. 131

Figure 18. Number of lanes open during peak and non-peak hours on I-66 mainline. ......... 132

Figure 19. Hourly traffic distribution on I-66 westbound lanes. .................................. 133

Figure 20. Construction staging on I-66 mainline. ................................................... 135

Figure 21. VDOT designated detour for I-66 ramp closure. ........................................ 135

Figure 22. General project location of 24th Street Reconstruction Project. ................... 152

Figure 23. Traffic volume at the 24th Street Interchange. ........................................ 152

Figure 24. Location of Eastern Avenue project. ..................................................... 158

Figure 25. Preconstruction aerial photograph of Eastern Avenue bridge. ....................... 159

Figure 26. Hourly traffic volumes on Kenilworth Avenue. ......................................... 160

Figure 27. Eastern Avenue project: travel delay estimates for Option 1. ....................... 166

Figure 28. Eastern Avenue project: travel delay estimates for Option 2. ....................... 166

Figure 29. Eastern Avenue project: travel delay estimates for Option 3. ....................... 167

Figure 30. Eastern Avenue project: queue length estimates for Option 1. ..................... 167

Figure 31. Eastern Avenue project: queue length estimates for Option 2. ..................... 168

Figure 32. Eastern Avenue project: queue length estimates for Option 3. ..................... 168
1 

CHAPTER 1.0BINTRODUCTION 

1.1 6BBACKGROUND

Vehicle miles traveled (VMT) on U.S. highways doubled in the last three decades, while the 

highway lane miles of all functional classes increased by only 5 percent during the same 

period.P0F

1

P The cost of congestion, incurred by the road users for travel delay and extra vehicle 

fuel, has risen from $24 billion in 1982 to $115 billion in 2009, while the yearly peak delay has 

risen from 14 hours to 34 hours during the same period. To keep up with the pace of growing 

congestion, the investment in our highways through Federal, State, or local funding has 

tripled over the same period. 

As a result, the number of significant construction activities has been increasing over the 

years, and the majority of active work zones are located on existing roads already carrying 

traffic.P1F

2

P These activities typically are undertaken in heavily urbanized areas and can cause 

traffic disruptions, safety implications to motorists and construction workers, and negative 

impacts on local businesses and the community. These problems are aggravated by delays in 

project delivery, a common problem with highway construction. 

To address these issues effectively, the Federal Highway Administration (FHWA) has 

established several programs and measures to enhance work zone mobility and safety and to 

shorten project construction time, such as: 

 Work Zone Mobility and Safety Rule — Effective since October 2007, this rule requires 

all State and local highway agencies to develop and implement policies and procedures 

for assessing and managing work zone impacts on individual projects. The goal of the 

rule is to provide a decision making framework for considering the broader work zone 

safety and mobility impacts across project development stages, and to facilitate the 

implementation of additional strategies that help manage these impacts during project 

delivery. The provisions of the rule apply to all highway construction projects financed 

in whole or in part with Federal-aid highway funds.P2F

3

 Special Experimental Program (SEP) No. 14 — Established in 1988, the SEP-14 program 

serves as a functional platform to evaluate "project-specific" innovative contracting 

practices on Federal-aid projects that focus on shortening project delivery time and 

minimizing work zone road user impacts without affecting product quality. This 

program provides some administrative flexibility to State highway agencies from 

specific Federal legislative requirements typically required in Federal-aid projects. 

After a period of evaluation under this program, alternative contracting practices such 

 

1

 FHWA, Our Nation's Highways 2010, Publication No. FHWA-PL-10-023, Office of Highway Policy 

Information, Federal Highway Administration Washington D.C., 2010. 

http://www.fhwa.dot.gov/policyinformation/pubs/hf/pl10023/onh2010.pdf

2

 Federal Highway Administration, Facts and Statistics, Work Zone Mobility and Safety Program, Office 

of Operations, Federal Highway Administration Washington D.C., 2008. 

http://www.ops.fhwa.dot.gov/wz/resources/facts_stats.htm

3

 Frequently Asked Questions for the Work Zone Safety and Mobility Rule. 

http://www.ops.fhwa.dot.gov/wz/resources/final_rule/rule_faqs.htm 
2 

as cost plus time bidding, lane rental, and design-build contracting were declared 

suitable for operational use.P3F

4

 Highways for LIFE (HfL) — Under FHWA HfL pilot program established by the U.S. 

Congress established in 2005, the FHWA offers technical assistance and incentives to 

highway agencies to use readily available but rarely used innovations in standard 

practice that focus on shortening project delivery, improving mobility and safety 

through work zones, and enhancing quality and user satisfaction. 

 Every Day Counts (EDC) — The EDC Innovation Initiative was introduced in 2010 to 

identify and deploy innovation aimed at shortening project delivery, enhancing 

roadway safety, and protecting the environment. The core elements of this initiative 

include: 

o Accelerating Technology and Innovation Deployment — This toolkit includes 

effective, field-proven, market ready technologies such as Prefabricated 

Bridge, Safety Edge, Adaptive Signal Control for widespread deployment to 

improve highway mobility and safety. 

o Shortening Project Delivery — This toolkit presents various approaches for 

improving project delivery times by providing solutions to a number of 

frequently cited problem areas that impede on-time project delivery. The 

toolbox includes strategies for accelerating project delivery and eliminating 

time-consuming duplication of effort, and by encouraging the use of existing 

regulatory flexibilities. 

In all these contexts, the goal of minimizing the negative work zone impacts gains prominence 

through effective transportation management plans (TMP), alternative program delivery and 

contracting strategies, and accelerated construction techniques focusing on quicker project 

delivery. It is equally imperative to quantify these negative impacts to help devise policy and 

mitigation measures, implement them, and further evaluate and monitor their performance. 

The concept of “work zone road user costs” (WZ RUC) provides the economic basis for 

quantifying the work zone impacts for use in work zone management. 

The use of WZ RUC in transportation decision making is not a new phenomenon. Though WZ 

RUC is not a part of an agency’s budgeted cost, it serves as one of the surrogate economic 

measures representing the public’s interests in the agency’s decision making process. The WZ 

RUC is applied in various stages a transportation facility’s life cycle including planning, 

design, construction, operations and preservation. The WZ RUC often is applied in an agency’s 

life cycle cost analysis (LCCA) and benefit-cost decisions relating to capital investment, 

system preservation and improvements, strategy selection, and contract administration. The 

WZ RUC has been traditionally applied in the LCCA of highway structures such as pavements 

and bridges, and the process is well established. However, the application of WZ RUC in other 

areas is still nascent. 

Several surveys cited in the literature have reported that, despite the importance of WZ RUC 

in an agency’s decision making, not all States compute WZ RUC.P4F

5,5F6

P Furthermore, among those 

 

4

 FWHA, Special Experimental Projects No. 14 - Alternative Contracting, Office of Program 

Administration, Federal Highway Administration, Washington, DC. 

http://www.fhwa.dot.gov/programadmin/contracts/sep_a.cfm

5

 Saito, M., M. R. Adams, T. G. Jin, Development of a User Cost Estimation Procedure for Work Zones, 

Report No. UT-05.11, Utah Department of Transportation, Salt Lake City, UT, 2005. 
3 

States computing WZ RUC, there is no apparent uniformity in their practices with regard to 

defining the cost components, deriving unit costs for travel delay and vehicle operating cost 

computations, estimating lane capacity values, and travel delay/queuing algorithms. For 

example, some agencies may consider the average vehicle occupancy in deriving the unit cost 

for travel delay, while others may not take vehicle occupancy into account. Owing to the 

differences in regional characteristics and agency needs, these differences are justifiable; 

however, the basis for inconsistency in their approaches remains largely unknown. These 

differences in approach speak to the need for an updated guidance on user cost estimation. 

1.2 7BOBJECTIVES AND SCOPE

The primary objective of this report is to present the concepts that transportation 

practitioners can use to: 

• Perform work zone road user cost analysis. 

• Apply WZ RUC analysis methods/tools in maintenance of traffic (MOT) alternative 

selection. 

• Apply WZ RUC analysis methods/tools in contract administration to expedite project 

completion and minimize adverse work zone effects. 

This document presents a detailed discussion of the key components of WZ RUC, input needs, 

and available tools. Step-by-step procedures to derive unit costs for monetary RUC 

components based on available cost sources and models are also provided. Finally, this 

document presents a process for applying RUC concepts in selecting an appropriate MOT and 

contracting strategy for managing work zone impacts and shortening project completion time. 

Because of the differences in agency decision making processes, it is expected that each 

agency will modify the recommended procedures to meet its specific needs. 

1.3 8BREPORT ORGANIZATION AND USE

This report is organized into six chapters. 

Chapter 1 of this report presents the introductory material. It provides a discussion on the 

importance of WZ RUC in enhancing work zone mobility and safety and shortening project 

construction time. 

Chapter 2 presents procedures for computing various quantifiable components and their unit 

costs. It also presents a discussion of the input requirements for WZ RUC analysis and various 

tools available for use.

Chapter 3 presents the application of WZ RUC in identifying and evaluating potential traffic 

control strategies for MOT alternative analysis. 

Chapter 4 presents a discussion of various alternative contracting strategies that focus on 

reducing WZ RUC and minimizing work zone impacts. It also presents an approach for 

selecting an appropriate schedule-focused contracting strategy based on project needs. It 

 6

 Salem, O. and A. Genaidy, Improved Models for User Costs Analysis, Report No. FHWA/OH-2008/3, 

Ohio Department of Transportation, Columbus, OH, 2008. 
4 

also discusses incentive/disincentive amounts and identifying a balance between construction 

costs and the level of schedule acceleration required to minimize WZ RUC. 

Chapter 5 presents three case studies illustrating the application of WZ RUC analysis and 

concepts in each application area: MOT alternative analysis, alternative contracting strategy 

selection, and benefit-cost analysis of conventional and accelerated construction techniques. 

Chapter 6 presents the key components of a typical WZ RUC analysis report covering 

background information of the project, data collection, existing conditions, impact 

assessment, alternative analysis, and recommendations. 

 
5 

CHAPTER 2.1BCWORK ZONE ROAD USER COSTS 

2.1 9BDEFINITION OF WORK ZONE ROAD USER COST

A work zone is defined in the Highway Capacity Manual (HCM) as a segment of highway in 

which maintenance and construction operations impinge on the number of lanes available to 

traffic or affect the operational characteristics of traffic flowing through the segment.P6F

7

P 

A work zone is defined in the Manual on Uniform Traffic Control Devices (MUTCD) as an area 

of a highway with construction, maintenance, or utility work activities. A work zone typically 

is marked by signs, channelizing devices, barriers, pavement markings, and/or work vehicles. 

It extends from the first warning sign or high-intensity rotating, flashing, oscillating, or strobe 

lights on a vehicle to the END ROAD WORK sign or the last temporary traffic control device.8

Work zone road user cost is defined as the additional costs borne by motorists and the 

community at-large as a result of work zone activity. 

Within the context of this document, WZ RUC primarily refers to the monetized components 

of work zone impacts, such as the user delay costs, vehicle operating costs (VOC), crash costs 

and emission costs. Increasingly, other off-site components such as noise, business and local 

community impacts are being utilized in WZ RUC applications. These off-site impacts are hard 

to monetize since the factors that influence their computation are often site-specific and no 

generalized method or tool is yet available to determine them. In this document, these offsite impacts are either considered as quantitative /non-monetary (e.g. noise) or qualitative 

(e.g. inconvenience to local community) factors. The components of WZ RUC are illustrated in 

Figure 1 and discussed in greater detail in the sections that follow. The practitioners can use 

their discretion in selecting appropriate work zone impacts to be used in WZ RUC analysis. 

Figure 1. Road user cost components. 

 

7

 Highway Capacity Manual 2000, Transportation Research Board, Washington, DC, 2000. 

http://www.trb.org/Main/Blurbs/Highway_Capacity_Manual_2000_152169.aspx

8

 Manual on Uniform Traffic Control Devices for Streets and Highways, 2009 Edition, Federal Highway 

Administration, Washington, DC, 2009. http://mutcd.fhwa.dot.gov/pdfs/2009/mutcd2009edition.pdf 

Work zone road user cost

Monetized impacts

• Travel delay costs

• Vehicle operating costs

• Crash costs

• Emission costs

• Impacts of nearby projects

Other impacts

• Noise

• Business impacts

• Inconvenience to local 

community
6 

The WZ RUC computation process is based on the assessment of mobility, safety, 

environmental, business, and local community impacts resulting from the work zone activities 

of a roadway project. The WZ RUC computation along with the work zone impacts assessment 

evolves through various stages of the project development process from planning through 

construction. The precision of WZ RUC estimate and, the type and level of detail of impacts 

assessment vary depending upon the project development stage.9

 For example, in the project 

scoping stage, a conceptual estimation or qualitative information of WZ RUC may be used in 

identifying the significance of potential impacts; and during preliminary engineering a rough 

estimation of WZ RUC will be determined for use in MOT strategy selection; whereas, in the 

90 percent design stage, a precise estimate will be determined for use in setting the contract 

provisions such as lane rental fee and incentives/disincentives. 

The WZ RUC computation process involves the following key steps: 

1. Data gathering for work zone impact assessment. 

2. Estimation of work zone impacts. 

3. Computation of unit costs for each impact type. 

4. Estimation of WZ RUC components. 

This chapter presents a detailed discussion of the key concepts of quantifiable monetary 

impacts. The process involved in deriving the monetary components and their unit costs is 

illustrated using step-by-step procedures. A less-rigorous discussion of non-monetary and 

qualitative factors is also presented. Later sections of this chapter focus on data 

requirements for mobility analysis and computation tools available for WZ RUC estimation. 

2.2 10BTRAVEL DELAY COSTS

Travel delay costs are calculated by multiplying the estimated delays to personal travel, truck 

travel, and freight inventory caused by the work zone by the unit cost ($/hr) of travel time. 

Figure 2 presents the computation of travel delay costs schematically. 

2.2.1 Delay Time 

Delay time is the additional travel time necessary to traverse the work zone or to detour 

around it. Delay time is an aggregation of the following components: 

 Speed change delay is the additional time necessary to decelerate from the upstream 

approach speed to the work zone speed and then to accelerate back to the initial 

approach speed after traversing the work zone under unrestricted (free) traffic flow. 

 Reduced speed delay is the additional time necessary to traverse the work zone at the 

lower posted speed; it depends on the upstream and work zone speed differential and 

length of the work zone under both unrestricted and restricted (forced) traffic flow. 

 Detour delay is the additional time necessary to travel the excess distance by selecting 

a detour route. 

 

9

 Sankar, P., K. Jeannotte, J. P. Arch, M. Romero, and J. E. Bryden, Work Zone Impacts Assessment – 

An Approach to Assess and Manage Work Zone Safety and Mobility Impacts of Road Projects, Report 

No. FHWA-HOP-05-068, Office of Operations, Federal Highway Administration, Washington, DC, 2006. 
7 

Figure 2. Schematic illustrating the components of travel delay costs. 

 Stopping delay is the additional time necessary to come to a complete stop from the 

upstream approach speed (instead of just slowing to the work zone speed) and the 

additional time to accelerate back to the approach speed after traversing the work 

zone under restricted traffic flow. 

 Queue delay is the additional time necessary to creep through the queue under 

restricted traffic flow. 

Some highway agencies do not consider speed change delay and stopping 

delay in delay time computations, as these components may not contribute 

significantly to the overall delay time. To those interested in including these 

components, the FHWA RealCostP7F

10P software provides a methodology for 

computing them. 

Work zone traffic delay time estimates can be obtained using mobility impact analysis 

methods such as demand-capacity analysis and simulation methods. The inputs required 

for mobility analysis are discussed in section 2.8. A discussion of various tools readily 

available for delay time estimation and WZ RUC computation is presented in section 2.9. 

Note that the estimated mobility parameters may change based on the selected tool, as 

the methodologies utilized in these tools may be different. Delay time during construction 

also can be estimated using the floating-car technique, where a test car is driven by an 

observer along the work zone section a number of times to measure the travel time. 

 

10 RealCost, Life-Cycle Cost Analysis Software, Version 2.5, Office of Asset Management, Federal 

Highway Administration, Washington, DC, 2009. 

http://www.fhwa.dot.gov/infrastructure/asstmgmt/lccasoft.cfm 
8 

The precision of mobility related performance measures, such as the travel 

delay time and queue length, may vary with the type of traffic analysis tool 

selected for the work zone impact analysis. Microscopic simulation tools 

generally provide more precise estimates than spreadsheet-based tools. 

Example 2.0: Description of a hypothetical work zone used in illustrative examples

A hypothetical example is presented herein to illustrate the computation of travel delay and vehicle 

operating costs. The information presented in this example is intended for illustrative purposes only. 

One northbound lane of a six-lane, urban facility, Interstate 00, is undergoing bituminous pavement 

rehabilitation. The northbound lanes carry an average daily traffic of 33,000 vehicles of which 8 

percent are single-unit trucks and 4 percent are combination trucks. A 2.0-mile work zone (marked in 

red) with a 24-hour/day, single lane closure will be in effect between point A and point B until the 

construction is complete. The unrestricted upstream approach speed is posted at 55 mph, and the work 

zone speed is posted at 45 mph. The estimated duration to complete pavement rehabilitation is 20 

days. 

The entry ramp connecting Hwy 100 and I-00 northbound lanes is closed; a 3-mile detour on Route 99 

through Hwy 102 is in effect for the ramp traffic. Similarly, the exit ramp connecting I-00 northbound 

lanes and Hwy 102 is closed. The ramp traffic is expected to take a detour through Hwy 100 exit ramp 

and Route 99. The blue arrow in the figure below indicates the travel direction for the designated 

detour. The traffic volume on both exit and entry ramps is 1,000 vehicles a day, of which 3 percent are 

single-unit trucks and 2 percent are combination trucks. The average speed through the detour is 40 

mph. 
9 

Example 2.1: Understanding the components of work zone travel delay time 

For the hypothetical work zone scenario presented in Example 2.0, the computation of travel delay 

time involves the following computation: 

 Speed change delay - the expected time the vehicles take to decelerate from the upstream 

speed of 55 mph to the work zone speed of 45 mph when approaching point A and the time to 

accelerate from 45 mph to 55 mph after crossing point B. 

 Stopping delay - the expected time the vehicles take to decelerate from the upstream speed of 

55 mph to a complete stop (0 mph) under restricted flow or queuing conditions, and the time 

to accelerate to 55 mph. 

 Reduced speed delay - the expected additional time the vehicles take to cross the 2-mile 

segment at 45 mph compared to the time to cross the segment at 55 mph. 

 Queue delay - the expected time the vehicles take to cross the 2-mile work zone under 

restricted flow or queuing conditions. 

 Detour delay - the expected additional time the vehicles take from a northbound lane to reach 

Hwy 102 by traveling through the I-00to Hwy 100 exit ramp and Route 99. It also applies to the 

vehicles taking Route 99 and Hwy 102 to I-00 entry ramp to merge into I-00 through traffic. 

Example 2.2: Computation of work zone travel delay time

A work zone travel delay analysis was performed for the mainline I-00 traffic. The various components 

of travel delays computed using the FHWA’s RealCost program are summarized in the following table: 

Time* Volume WZ 

Capacity 

Queued 

Vehicles

Speed 

Change 

Delay**

Reduced 

Speed 

Delay** 

Stopping 

Delay** 

Queuing 

Delay** 

Flow 

Condition 

00-01 304 2554 0 0.07 0.24 0 0 

No queue 

(unrestricted 

flow) 

01-02 304 2554 0 0.07 0.24 0 0 

02-03 304 2554 0 0.07 0.24 0 0 

03-04 456 2554 0 0.07 0.24 0 0 

04-05 646 2554 0 0.07 0.24 0 0 

05-06 988 2554 0 0.07 0.24 0 0 

06-07 1558 2554 0 0.07 0.24 0 0 

07-08 2964 2554 410 0.40 0.24 0.40 23.81 

Queue 

(restricted 

flow)

08-09 3610 2554 1466 0.40 0.24 0.40 23.81 

09-10 2470 2554 1382 0.40 0.24 0.40 23.81 

10-11 1786 2554 614 0.40 0.24 0.40 23.81 

11-12 1710 2554 0 0.47 0.24 0.40 23.81 

12-13 1634 2554 0 0.07 0.24 0 0 

No queue 13-14 1710 2554 0 0.07 0.24 0 0 

14-15 1862 2554 0 0.07 0.24 0 0 

15-16 2470 2554 0 0.07 0.24 0 0 

16-17 3002 2554 448 0.40 0.24 0.40 23.81 

Queue

17-18 3534 2554 1428 0.40 0.24 0.40 23.81 

18-19 2432 2554 1306 0.40 0.24 0.40 23.81 

19-20 1482 2554 234 0.40 0.24 0.40 23.81 

20-21 1254 2554 0 0.47 0.24 0.40 23.81 

21-22 684 2554 0 0.07 0.24 0 0 

22-23 456 2554 0 0.07 0.24 0 0 No queue 

23-24 380 2554 0 0.07 0.24 0 0 

Note: (*) RealCost does not report the output results as presented in this table. The results 

obtained from the RealCost worksheets were modified for illustration purposes. 

(**) Delay times were reported as average delay time per vehicle in minutes. 
10 

This table presents the work zone lane capacity and 24-hour cycle of hourly traffic demand on the 

northbound lanes. Two of the three available lanes are open in the northbound direction. When the 

hourly volume is less than the capacity, unrestricted flow exists, and as expected, no queue is formed. 

Only the delay time components due to speed change and reduced speed are calculated. However, 

when the hourly volume exceeds the capacity, the traffic flow is restricted, and a queue is formed. 

The restricted flow condition remains until the queue is cleared fully. 

Detour delay time = (detour length/detour speed)- (normal travel length/upstream speed)

Detour delay time = (3.0 mile/40 mph) – (2.0 mile/55 mph) = 2.32 min/vehicle 

*

The various components of work zone travel delay are combined to compute the total delay time, as 

illustrated in the following table: 

Time Mainline 

Traffic 

Volume 

Total Delay Time (minutes/vehicle) Delay Time for all 

Vehicles 

(veh-hours /day) 

Speed 

Change 

Reduced 

Speed 

Stopping Queuing Total

00-01 304 0.07 0.24 0 0 0.32 1.60

01-02 304 0.07 0.24 0 0 0.32 1.60

02-03 304 0.07 0.24 0 0 0.32 1.60

03-04 456 0.07 0.24 0 0 0.32 2.41

04-05 646 0.07 0.24 0 0 0.32 3.41

05-06 988 0.07 0.24 0 0 0.32 5.22

06-07 1558 0.07 0.24 0 0 0.32 8.22

07-08 2964 0.40 0.24 0.40 23.81 24.85 1227.34

08-09 3610 0.40 0.24 0.40 23.81 24.85 1494.84

09-10 2470 0.40 0.24 0.40 23.81 24.85 1022.79

10-11 1786 0.40 0.24 0.40 23.81 24.85 739.55

11-12 1710 0.47 0.24 0.40 23.81 24.92 710.20

12-13 1634 0.07 0.24 0 0 0.32 8.62

13-14 1710 0.07 0.24 0 0 0.32 9.03

14-15 1862 0.07 0.24 0 0 0.32 9.83

15-16 2470 0.07 0.24 0 0 0.32 13.04

16-17 3002 0.40 0.24 0.40 23.81 24.85 1243.08

17-18 3534 0.40 0.24 0.40 23.81 24.85 1463.37

18-19 2432 0.40 0.24 0.40 23.81 24.85 1007.05

19-20 1482 0.40 0.24 0.40 23.81 24.85 613.67

20-21 1254 0.47 0.24 0.40 23.81 24.92 520.81

21-22 684 0.07 0.24 0 0 0.32 3.61

22-23 456 0.07 0.24 0 0 0.32 2.41

23-24 380 0.07 0.24 0 0 0.32 2.01

Total delay time of mainline through traffic =10,115.32

Detour delay time = 2.32 min/vehicle * 2000 vehicles= 4636 min = 77.28

Total estimated delay time per day 10,192.6

The delay time for all vehicles traveling through the I-00 work zone = 10,192.6 vehicle-hours per day. 

The average delay time for a vehicle traveling through the I-00 work zone = 10,192.6/33,000 

= 0.309 hr/veh/day. 
11 

Traditionally the work zone mobility impacts are evaluated in terms of simple 

averages of travel time delays. As the travel times of road users vary greatly 

from day to day, the use of average delay time values does not reflect the 

"real world" experience of road users. 

 Increasingly, the concept of "travel time reliability" is rapidly gaining 

importance in travel congestion studies. This measure takes the difference 

between the actual and the expected travel time into account. The 

commonly used travel time reliability metrics include the Buffer Time Index, 

95th percentile of travel times, Travel Time Index percent “on-time 

performance”, and travel time window. 

2.2.2 Monetary Value of Travel Time 

Like goods and services, time spent traveling in a vehicle is a resource with economic value. 

The monetary value of travel time is based on the concept that time spent traveling 

otherwise would have been spent productively, whether for remunerative work or recreation. 

The United States Department of Transportation (USDOT) Office of the Secretary of 

Transportation (OST) provides guidelines and procedures for calculating the value of travel 

time saved or lost by road users.11,12

Monetary value of travel time is a sum of: 

 Dollar value of personal travel time (only passenger cars). 

 Dollar value of business travel time (only passenger cars). 

 Value of truck travel time (only trucks). 

 Cost of freight inventory delay (only trucks). 

 Cost of vehicle depreciation (all vehicles). 

 

Note that the available unit cost data used in the computation of these monetary components 

may not reflect current or most recent year statistics. Practitioners are advised to adjust the 

existing year data to current year data using appropriate adjustment factors mentioned 

herein. In addition, the highway agencies can use their discretion in combining or eliminating 

smaller cost components as deemed appropriate. 

2.2.2.1 71BMonetary Value of Personal Travel Time 

The hourly dollar value of road users’ personal travel time is estimated based on some 

percentage of their wages. The steps involved in monetizing the personal travel delay time 

are enumerated as follows. 

 

11 USDOT, Valuation of Travel Time in Economic Analysis-Revised Departmental Guidance, 

Memorandum, Office of the Secretary of Transportation, U.S. Department of Transportation, 

Washington, DC. 2003. 

12 The value of travel time can be established using the wage rate method or road users' 

stated/revealed preference. The OST guidance is based on the wage rate method. Under the 

stated/revealed preference method, the information on road users’ alternative choice of route or 

travel mode is gathered through surveys or polling. Based on the collected information, the associated 

travel time and cost differentials between the baseline and the preferred alternative choices are used 

in establishing the value of travel time through statistical modeling. 
12 

Step 1. Determine the proportion of passenger cars on personal travel. This proportion 

may vary with the type of travel: local or intercity. The number of person miles 

reported in the National Household Transportation Survey (NHTS) is used in 

determining the proportion of passenger cars on personal travel. Travel patterns 

reported in the NHTS and the Nationwide Personal Transportation Survey (NPTS) over 

the past 20 years are summarized in Table 1. 

Table 1. Ratio of personal and business travel.

Study Travel Type Personal Business 

1990 NPTSP9F13 LocalP

a 95.8% 4.2% 

IntercityP

b 95.0% 5.0% 

1995 NPTSP10F14 Not Specified 94.2% 5.8% 

2001 NHTSP1F15 Not Specified 91.9% 8.1% 

2009 NHTS16 Not Specified 93.7% 6.3% 

Note: 

(P

a

P) Reported in 1990 NPTS Databook, Vol. I, Table 4.41, page 4-72. 

(P

b

P) Reported in 1990 NPTS Databook, Vol. II, Table 8.13, page 8-22.

This report uses the national travel behavior statistics obtained from the 

NHTS sampling data. To reflect local trends, agencies are encouraged to use 

location-specific or region-specific statistics obtained from their travel 

behavior survey programs using the same methodology described herein. 

Step 2. Establish the average vehicle occupancy (AVO) of passenger cars. The AVO is the 

ratio of person-miles of travel and vehicle-miles of travel by trip type.16 Refer to 

Table 2 for the recent NHTS estimates of AVO values. The average AVO for personal 

travel was 1.67 in 2009. The AVO of intercity personal travel is higher than that of 

local personal travel. Estimates of 1990 NPTS (Vol. 2, Table 8.15, of the NPTS report) 

indicate that the AVO factor for intercity travel was 2.30, whereas the AVO for local 

travel was 1.66. By selecting an appropriate AVO, the delay time can be converted 

from person-hours to vehicle-hours or vice-versa. 

 

13 Hu, P. S. and J. Young, 1990 Nationwide Personal Transportation Survey (NPTS) Databook, Report 

No. FHWA-PL-94-010A, Prepared by Oak Ridge National Laboratory, Submitted to the Office of Highway 

Information Management, Federal Highway Administration, Washington, DC, November 1993. 

http://nhts.ornl.gov/1990/doc/databook.pdf

14 Oak Ridge National Laboratory, 1995 Nationwide Personal Transportation Survey (NPTS) Databook, 

Report No. ORNL/TM-2001/248, Prepared for FHWA Office of Highway Information Management, Oak 

Ridge National Laboratory, Oak Ridge, TN, October, 2001. 

http://nhts.ornl.gov/1995/Doc/ORNL_TM_2001_248.pdf

15 Hu, P. S. and T. R. Reuscher, Summary of Travel Trends, 2001 National Household Travel Survey, 

Prepared by Oak Ridge National Laboratory, Submitted to the Federal Highway Administration, 

Washington, DC, November 2004. http://nhts.ornl.gov/2001/pub/STT.pdf 16 Obtained from NHTS Online Analysis Tools -Table Designer using the variables: 1990 Trip Purpose and 

the annual person miles of travel (for Step 4)/ average vehicle occupancy (for Step 5). 

http://nhts.ornl.gov/tools.shtml
13 

Table 2. NHTS estimates of average vehicle occupancy factors of personal 

and business travel. 

Purpose of Trip

(1990 definition) 1995 2001 2009 

Work-related business 1.20 1.22 1.24 

Personal 

To or from work 1.14 1.14 1.13 

Shopping 1.74 1.77 1.78 

Other family /personal business 1.78 1.85 1.84 

School/church 1.68 1.76 1.77 

Doctor/dentist 1.51 1.64 1.59 

Vacation 2.33 2.42 2.7 

Visit friends or relatives 1.83 1.88 2.08 

Other social or recreational 2.18 2.09 2.2 

Other 1.82 1.89 1.96 

Not ascertained 2.39 1.65 1.93 

Overall personal 1.67 1.75 1.67 

All travel 1.59 1.63 1.67 

Source: NHTS Online Analysis Tools 

Step 3. Estimate per hour monetary value of travel time for a person on personal travel. 

The dollar value of personal travel time (per person–hr) is estimated using the 

median annual income for all U.S. households reported by the U.S. Census Bureau, in 

accordance with the OST guidelines (see Table 3).17P 

Table 3. OST guidelines for calculating value of personal travel time.

Travel 

Type 

Per Person-Hour as a 

percent of Wage Rate 

Data Source 

Local 50%

(35-60%) 

Median annual income for all U.S. households 

divided by 2080 hours. Reported in U.S. Census 

Bureau. State or local income data can be 

substituted in lieu of national statistics. 

Intercity 70%

(60-90%) 

Hourly value of personal travel time per person is calculated as: 

For local personal travel, 

Hourly value of personal travel time per person = 50% of median annual household 

income ÷ 2080 hours. 

Median annual income for all U.S. households = $49,445 (for 2010).18 

Hourly value of personal travel time = 0.5* $49,445/2080 = $11.89/person -hr 

For intercity personal travel, 

Hourly value of personal travel time per person = 70% of median annual household 

income ÷ 2080 hours. 

 

17 Median Household Income reported by US Census Bureau. 

http://www.census.gov/hhes/www/income/income.html

18DeNavas-Walt, C., B. D. Proctor, J. C. Smith, Income, Poverty, and Health Insurance Coverage in the 

United States: 2010, Report No. P60-239, US Census Bureau, September 2011. 

http://www.census.gov/prod/2011pubs/p60-239.pdf
14 

Median annual income for all U.S. households = $49,445 (for 2010)

Hourly value of personal travel time = 0.7* $49,445 /2080 = $16.64/person –hr 

Step 4. Compute per hour monetary value of travel time for a vehicle on personal travel. 

The dollar value of personal travel time for all occupants in a vehicle, in terms of 

dollar/vehicle-hr, is computed by multiplying the dollar value of hourly travel time 

per person with an appropriate AVO factor. In other words, the hourly travel time 

per person is converted to hourly travel time per vehicle to estimate delay time costs 

based on the number of vehicles (instead of the number of persons) traveling on the 

roadway. 

For local personal travel, 

Hourly value of a person’s travel time in a vehicle= $11.89/person -hr 

Average vehicle occupancy = 1.67 persons per vehicle 

Hourly travel time value of all occupants in a vehicle or the hourly value of a 

vehicle on personal travel = $11.89 * 1.67 = $19.85/vehicle-hr 

The hourly travel time value of a vehicle on personal travel is same as the vehicle’s 

delay time costs. 

For intercity personal travel, 

Hourly value of travel time = $16.75/person -hr 

Average vehicle occupancy = 2.30 persons per vehicle 

Hourly value of vehicle delay time = $16.64 * 2.30 = $38.27/vehicle-hr 

Step 5. Compute travel delay costs for passenger cars on personal travel. Multiply the 

hourly dollar value of vehicle delay time with the delay time of passenger cars on 

personal travel. For local or personal travel, 

Total delay time for passenger cars on personal travel = Average delay time* 

Number of passenger car vehicles on personal travel (and) 

Travel delay costs for passenger cars on personal travel = Total delay time for 

passenger cars on personal travel * hourly $ value of vehicle delay time 

Travel delay time for buses are computed by multiplying the average number 

of passengers in a bus with the unit cost ($/hr) of personal travel time of a 

passenger. 

2.2.2.2 Monetary Value of Business Travel Time 

The hourly dollar value of road users’ business travel time is estimated based on the 

employer’s costs of employees that include both wages and benefits. The steps involved in 

calculating the cost component of the business travel time are enumerated as follows: 

Step 1. Determine the proportion of passenger cars on business travel. The number of 

person miles reported in the NHTS is used in determining the proportion of passenger 

cars on business travel (see Table 1). 
15 

Step 2. Establish the AVO of passenger cars. As shown in Table 2, the average AVO for 

business travel was 1.24 in 2009. Alternatively, agency-specific travel behavior 

statistics can be used to reflect local trends. 

Step 3. Estimate per hour monetary value of travel time for a person on business travel. 

Hourly dollar value of a person’s time on business travel is estimated using the OST 

guidelines presented in Table 4. Total hourly wages and benefits of all civilian 

workers reported in the Bureau of Labor Statistics (BLS) Employer Costs for Employee 

Compensation (ECEC) are used.P15F

19P For current year estimates, the ECEC data released 

every quarter can be used for computations, or adjustments can be made using the 

BLS Employment Cost Index (ECI) data.19

For both local and intercity business travel, 

Hourly value of a person’s time on business travel = 100% of median hourly wages 

plus benefits. 

Hourly employment cost = $29.75 (December, 2010) 

Hourly value of a person’s time on business travel = $29.75/person –hr. 

Table 4. OST guidelines for calculating value of business travel time.

Travel 

Type 

Per Person-Hour as a 

percent of Wage Rate 

Data Source 

Local 100%

(80-120%) Total compensation (wages and benefits) cost per 

hour. Reported in Bureau of Labor Statistics, 

Employer Costs for Employee Compensation Intercity 100%

(80-120%) 

Step 4. Compute per hour monetary value of travel time for a vehicle on business travel.

Multiply the hourly value of a person’s time on business travel with the AVO factor. 

Note that the AVO is assumed to be the same for passenger cars on business travel 

for both local and intercity travel. 

Hourly value of a person’s time on business travel = $29.75/person -hr 

Average vehicle occupancy = 1.24 persons per vehicle 

Hourly time value of a vehicle on business travel = $29.75 * 1.24 = $36.89/veh-hr 

Step 5. Compute travel delay costs for passenger cars on business travel. Multiply the 

hourly dollar value of vehicle delay time with the delay time of passenger cars on 

business travel. 

For business travel, 

Total delay time for passenger cars on business travel = Average delay time* 

Number of passenger car vehicles on business travel (and) 

Travel delay costs for passenger cars on business travel = Total delay time for 

passenger cars on business travel * hourly $ value of vehicle delay time 

 

19 http://stats.bls.gov/ncs/ect/
16 

Example 2.3: Computing travel delay costs for passenger cars 

The computation of travel delay costs for passenger cars for the I-00 work zone scenario 

involves computing the hourly dollar value of travel delay time for passenger cars on both 

personal and business travel, then multiplying their weighted average with the estimated 

delay time of all passenger cars. Assume that the median annual household income for the 

area, where the I-00 work zone is located, is $52,000. 

UStep 1. Estimate the unit value of personal travel time for passenger cars

Median annual household income of the area = $52,000 

Hourly time value of a person on personal travel = 50% of $52,000÷2080 hrs 

Hourly time value of a person on personal travel = $12.5/person-hr 

Average vehicle occupancy for personal travel = 1.67 persons per vehicle 

Hourly time value of a vehicle on personal travel = 1.67 * 12.5 = $20.88/vehicle-hr 

UStep 2. Estimate the unit value of business travel time

Estimate the sum of hourly wages and benefits from the ECEC statistics available on the 

BLS website. 

Hourly employment cost for the quarter December 2010= $29.75 

Hourly time value of a person on business travel = $29.75/person-hr 

Average vehicle occupancy = 1.24 persons per vehicle 

Hourly time value of vehicle on business travel = $29.75 * 1.24 = $36.89/vehicle-hr 

UStep 3. Compute the weighted average of travel time values for passenger cars considering 

both personal and business travel

Per 2009 NHTS statistics, 93.7% and 6.3% of passenger cars are expected on personal and 

business travel, respectively. Therefore, 

Hourly time value of a vehicle on personal travel = $20.88/vehicle-hr 

Hourly time value of vehicle on business travel = $36.89/vehicle-hr 

Weighted average of hourly time value of passenger cars= 93.7% of $20.88 + 6.3% of 

$36.89 = $21.89/hr 

 Hourly time value of passenger cars = $21.89/hr 

UStep 4. Estimate the delay costs for passenger cars on the northbound lanes

Percent of passenger cars = 88% (from Example 2.0) 

Estimated delay time for all vehicles = 10,192.6 vehicle-hours/day (from Example 2.2) 

Estimated delay time for passenger cars = 0.88* 10,192.6 = 8969.49 vehicle-hours/day 

Estimated delay costs for passenger cars = 8969.49 * $21.89 /hr = $196,342.10 /day

2.2.2.3 Monetary Value of Truck Travel Time 

Hourly dollar value of truck travel time is estimated based on the compensation costs of truck 

drivers that include both wages and benefits. The steps involved in calculating the cost 

component of the truck travel time are enumerated as follows: 

Step 1. Determine the average vehicle occupancy of trucks. NHTS data provide AVO values 

only for cars and light-duty trucks. There are no national averages or sources for AVO 

values of trucks. Agencies can use region-specific data, if available. In the absence of 

national or region-specific values, the truck AVOs recommended in the Highway 
17 

Economic Requirement System (HERS)-ST Technical Report can be utilized.20P HERS-ST 

recommends an AVO of 1.025 for a single-unit truck (i.e., 1.05 for single-unit, six-tire 

trucks and 1.0 for heavier single-unit trucks) and 1.12 for combination trucks. The 

weighted average of AVOs of different truck types can be used. 

Step 2. Determine the average wages and benefits for truck drivers. Per the BLS National 

Occupational Employment and Wage Estimates published in May 2009, the median 

hourly wages for truck drivers are presented as follows:P17F

21

Truck Drivers, Heavy and Tractor-Trailer = $18.87/hr (May 2009) 

Truck Drivers, Light or Delivery Services (capacity of under 26,000 lb gross vehicle 

weight [GVW]) 

= $14.90/hr (May 2009) 

Truck Drivers (both light and heavy) = $16.89/hr (May 2009) 

 

Per the BLS ECEC data, the average benefit for employees in transportation and 

material moving jobs is $7.60/hr (for June 2009). Note that the wage rates and 

benefits can be adjusted to the current year using the current release of the BLS ECI 

or the Occupational Employment Statistics. State or local estimates of wages and 

benefits can be substituted for national estimates. 

 The following computation shows how to adjust the existing hourly compensation 

data to the current year data: 

Wages & benefits of truck drives (both light and heavy) = $16.89/hr (May 2009) 

 Employment Cost Index (June 2009)22

 = 110.3 

Employment Cost Index (Dec 2010) = 113.3 

Wages & benefits adjusted for Dec 2010 = $16.89 * 113.3/110.3 = $ 17.35 /hr 

Step 3. Estimate per hour monetary value of truck travel time. Determine the hourly 

dollar value of truck travel time by multiplying the hourly compensation (sum of 

wages and benefits) of truck drivers with the AVO factor. 

Single-unit trucks = 1.025 * ($14.90 + $7.60) = $23.06/hr (May 2009) 

Combination-unit trucks = 1.12 * ($18.87 + $7.60) = $29.65/hr (May 2009) 

Step 4. Compute delay costs for truck travel. To determine the delay cost component of 

truck travel, multiply the hourly dollar value with travel delay time of trucks, either 

by truck type (single-unit or combination trucks) or the total number of trucks. 

 

20 FHWA, Highway Economic Requirements System-State Version, Technical Report, Federal Highway 

Administration, Washington, DC, 2005. 

21 Occupational Employment Statistics, Published by Bureau of Labor Statistics, US Department of 

Labor. http://www.bls.gov/news.release/ocwage.toc.htm

22 Historical ECI data can be obtained from ECT databases on the BLS website. Total compensation, all 

civilian, index numbers and all workers were used in determining the ECI value. 
18 

Example 2.4: Computing travel delay costs for trucks

For the I-00 work zone scenario, the travel delay costs for trucks are computed by multiplying 

the estimated delay time for trucks by the hourly compensation (including wages and 

benefits) of truck drivers. If the hourly compensation rates are calculated separately for 

single-unit and combination trucks, the delay costs can be computed separately using 

appropriate hourly compensation values and summed later. 

UStep 1. Estimate the unit value of truck travel time

Average compensation of drivers of single-unit trucks = $22.50/person-hr 

Average vehicle occupancy of single-unit trucks = 1.025 

Hourly time value of single-unit trucks = 1.025 * $22.50 = $23.06/hr 

Average compensation of drivers of combination trucks = $26.47/person-hr 

Average vehicle occupancy of combination trucks = 1.12 

Hourly time value of combination trucks = 1.12 * $26.47 = $29.65/hr 

UStep 2. Estimate the delay costs for both single-unit and combination trucks on the 

northbound lanes

Percent of single-unit trucks = 8% (from Example 2.0) 

Estimated delay time for all vehicles = 10,192.6 vehicle-hours/day (from Example 2.2) 

Estimated delay time for single-unit trucks = 0.08* 10,192.6 = 815.41 vehicle-hours/day 

Estimated delay costs for single-unit trucks = 815.41 * $23.06/hr = $18,803.31/day 

Percent of combination trucks = 4% (from Example 2.0) 

Estimated delay time for combination trucks = 0.04* 10,192.6 = 407.7 vehicle-hours/day 

Estimated delay costs for combination trucks = 407.7 * $29.65/hr = $12,088.42/day 

Estimated delay costs for all trucks = $18,803.31+ 12,088.42 = $30,891.73

2.2.2.4 Cost of Time-Related Vehicle Depreciation 

Vehicles depreciate as a function of aging and usage over time. Total vehicle depreciation 

costs are estimated from the average annual ownership costs of vehicles, while mileagerelated vehicle depreciation costs are estimated using the VOC procedure discussed in section 

2.3. Time-related vehicle depreciation costs typically are estimated by subtracting mileagerelated depreciation from total depreciation. Time-related vehicle depreciation costs 

incurred by vehicle owners due to work zone delay are estimated herein using the 

methodology outlined in the HERS-ST Technical Report. The steps involved in computing the 

time-related vehicle depreciation costs are as follows: 

Step 1. Determine the HERS-ST estimates of hourly cost of time-related vehicle 

depreciation for each vehicle type in 1995 dollars. Table 5 presents the HERS-ST 

estimates of hourly cost of total, mileage-related, and time-related vehicle 

depreciation (in 1995 dollars) for various vehicle types. 

Step 2. Adjust the depreciation costs from 1995 dollars to current year dollars. 

 To adjust 1995 dollars to current year dollars, the use of the Producer Price Index 

(PPI)—Commodity data for transportation equipment (Item 14) is recommended.23 

 

23 Producer Price Indexes, Published by Bureau of Labor Statistics, US Department of Labor. 

http://bls.gov/ppi (the use of multi-screen search tool is suggested). 
19 

 As the time-related depreciation largely depends on the initial price of the vehicles, 

the use of the PPI for cost adjustment is deemed appropriate. However, this 

adjustment may not consider the change in vehicle registration, licensing and permit 

taxes, insurance premiums, and financing costs over time. Table 6 presents the 

hourly costs of time-related vehicle depreciation adjusted to 2010 values. 

Table 5. Hourly costs of time-related vehicle depreciation in 1995 dollars.

Vehicle Type Total 

Depreciation 

($/hr) 

Mileage-Related 

Depreciation 

Time-Related 

Depreciation 

$/mile $/hr ($/hr) 

Small autos 1.72 0.109 0.63 1.09

Medium-sized to large autos 2.02 0.098 0.57 1.45

Four-tire single-unit trucks 2.18 0.045 0.28 1.90

Six-tire trucks 3.08 0.079 0.43 2.65

3+ axles combination trucks 8.80 0.175 1.64 7.16

3 or 4 axles 7.42 0.057 1.01 6.41

5+ axles 7.98 0.060 1.82 6.16

Source: HERS-ST Technical Manual (2005)20

In addition to the depreciation values provided by the HERS-ST, practitioners also can use the 

following resources: 

 American Automobile Association (AAA) P19F

24

 American Transportation Research Institute (ATRI)P20F

25

Table 6. Hourly costs of time-related vehicle depreciation in 2010 dollars. 

Vehicle Type Time-Related 

Depreciation 

($/hr) in 1995 $

PPI Adjustment 

Factor= 

PPI2010/PPI1995

Time-Related 

Depreciation 

($/hr) in 2010 $ 

1995 2010P

Small autos 1.09 134.1 129.0P

a

 0.962 1.05 

Medium-sized to 

large autos 1.45 159.0 153.3P

b

 0.964 1.40 

Four-tire singleunit trucks 1.9 144.1 195.7P

c

 1.358 2.58 

Six-tire trucks 2.65 144.1 195.7P

c

 1.358 3.60 

3+ axles 

combination trucks 7.16 124.5 175.9d 1.413 10.12 

3 or 4 axles 6.41 124.5 175.9P

d

 1.413 9.06 

5+ axles 6.16 124.5 175.9P

d

 1.413 8.70 

Notes: 

P

a

P PPPI for passenger cars (Item # 141101). 

P

b PPPI for trucks with GVW less than 14,000 lb (Item # 141105). 

P

c

P PPI for trucks with GVW over 14,000 lb (Item # 141106). 

P

d

P PPI for truck trailers (Item # 141406).

 

24 American Automobile Association, Your Driving Costs. 

http://www.aaaexchange.com/Assets/Files/201145734460.DrivingCosts2011.pdf

25 Trego, T., and D. Murray (2010), http://trid.trb.org/view.aspx?id=910437
20 

The relationship between the vehicle types provided in Tables 5 and 6 and 

the FHWA Traffic Monitoring Guide (TMG) vehicle classification scheme is 

presented in section 2.8.2. Depending on the vehicle classification data 

available, the average depreciation costs of various vehicle types can be 

computed as appropriate. 

Step 3. Compute the hourly costs of time-related vehicle depreciation. Total depreciation 

cost is computed for each vehicle type by multiplying the hourly depreciation costs 

with the vehicle delay time. 

Example 2.5: Computing time-related vehicle depreciation costs

For the I-00 work zone scenario, the time-related vehicle classification costs are calculated 

by multiplying the total delay time with the hourly time-related depreciation costs presented 

in Table 6. 

UStep 1. Estimate the hourly time-related depreciation costs for vehicle types

Since there are no vehicle class data (categorized using the FHWA TMG classification 

scheme), it is assumed that simple averages of hourly cost data (presented in Table 6) 

would represent the traffic composition on the I-00 project. 

Hourly depreciation cost for passenger cars = simple average of hourly costs of small, 

medium sized, and large autos = (1.05 + 1.40)/2 = $1.225/hr 

Hourly depreciation cost for single-unit trucks = simple average of hourly costs of fourtire and six-tire single-unit trucks = (2.58 + 3.60)/2 = $3.09/hr 

Hourly depreciation cost for combination trucks = simple average of hourly costs of 3 or 4 

axles, 3+ axle and 5+ axles combination trucks = (10.12 + 9.06 + 8.70)/3 = $9.29/hr 

Step 2. Estimate the time-related depreciation cost for passenger cars, single-unit trucks, and 

combination trucks on the northbound lanes

Estimated delay time for all vehicles = 10,192.6 vehicle-hours/day (from Example 2.2) 

Percent of passenger cars = 88% (from Example 2.0) 

Estimated delay time for passenger cars = 0.88* 10,192.6 = 8969.49 vehicle-hours/day 

Estimated time-related depreciation costs for passenger cars = 8969.49 * $1.225/hr 

= $10,987.62/day 

Percent of single-unit trucks = 8% (from Example 2.0) 

Estimated delay time for single-unit trucks = = 0.08* 10,192.6 = 815.4 vehicle-hours/day 

Estimated time-related depreciation costs for single-unit trucks = 815.4 * $3.09/hr 

= $2,519.59/day 

Percent of combination trucks = 4% (from Example 2.0) 

Estimated delay time for combination trucks = 0.04* 10,192.6 = 407.7 vehicle-hours/day 

Estimated time-related depreciation costs for combination trucks = 407.7 * $9.29/hr 

= $3,787.53/day 

Estimated time-related depreciation costs for all vehicles = $10,987.62 + 2,519.59 + 

3,787.53 = $17,294.74/day
21 

2.2.2.5 Cost of Freight Inventory Delay 

Hourly dollar value of freight inventory delay is estimated using the procedure described in 

the HERS-ST Technical Report. The inventory cost is computed by multiplying the average 

payload of the truck with the average value of commodities shipped by truck. HERS-ST 

recommends the calculation of inventory delay costs only for combination trucks; however, 

this report provides the calculation steps for both single-unit and combination trucks: 

Step 1. Determine the number of loaded (partially or fully) freight trucks by FHWA 

vehicle class or vehicle type and their average pay loads. This information can be 

obtained from weigh-in-motion (WIM) data representative of the project. In the 

absence of such data, follow the discussion presented in Steps 2 and 3. Otherwise, 

skip to Step 4. 

Step 2. Estimate the number of empty and loaded trucks. The number of loaded freight 

trucks can be obtained from subtracting the empty trucks from the total trucks. Note 

that the truck composition may also consist of empty trucks (otherwise called 

backhaul trucks) returning from the original destination point to the point of origin. 

The number of loaded trucks can be estimated from the national averages of percent 

empty trucks presented in Table 7. 

Table 7. Percent of empty trucks. 

Truck Type Percent of Empty Trucks 

Single-unit truck 29

Combination truck with semitrailer 27

Combination truck with trailer 24

Combination truck with double trailer 24

Combination truck with triple trailer 19

Source: FHWA Office of Freight Management and Operations, 2007.P21F

26

Step 3. Estimate the average payload of trucks. Use the national averages presented in 

Table 8 to estimate average truck payload. These averages were obtained from an 

FAFP

2

P study that utilized the U.S. Census Bureau’s Vehicle Inventory and Use Survey 

(VIUS) database in the freight analysis. Practitioners may also use the State-specific 

payload data presented in Table 9 or local data. 

Step 4. Determine the hourly discount rate. Hourly discount rate is the annual discount 

rate divided by the number of hours in a year (8,760 hours). The annual discount rate 

is the average prime bank lending rate plus 1 percent. The average prime bank 

lending rate for 2010 is 3.25 percent.P23F

27P 

 Hourly discount rate for 2010 = (3.25% +1%)/8760 = 0.000485% 

 

26 Alam, M., E. Fekpe, and M. Majed, FAF2 Freight Traffic Analysis, Submitted to FHWA Office of 

Freight Management and Operations, 2007. (Refer to Table 4) 

http://ops.fhwa.dot.gov/freight/freight_analysis/faf/faf2_reports/reports7/index.htm 27 Prime bank lending rates for current can be obtained from the Statistics & Historical Data releases of 

the Federal Reserve. 

http://www.federalreserve.gov/releases/h15/data/Annual/H15_PRIME_NA.txt 
22 

Table 8. Average payload (lb) by distance traveled and truck type – national statistics.

Distance 

Traveled 

Single-Unit Truck/Tractor Trailers Combination Trucks 

2-axle 3-axle 4-axle or 

more 

4-axle 

or less 

5-axle 6-axle 

or more

5-axle 

or less 

6-axle 7-axle 

or more

Off-the-road 9,235 24,210 37,058 22,034 46,144 39,989 N.A. N.A. 68,099

Less than 50 

miles 7,223 25,293 35,198 13,392 42,135 44,964 37,611 47,330 77,886 

51 to 100 miles 6,851 23,736 36,198 18,590 43,911 48,072 48,328 46,877 73,810

101 to 200 miles 7,509 23,463 35,732 21,207 42,061 53,637 40,054 43,074 71,319

201 to 500 miles 7,085 21,407 32,938 18,909 41,588 35,180 33,250 35,455 61,586

501 miles or 

more 6,231 21,334 39,368 21,271 40,184 47,807 38,505 39,928 67,979 

Source: FHWA Office of Freight Management and Operations, 2007P2F

28

Table 9. Average payload (lb) by distance traveled and truck type by State.

State 

Single-Unit Truck/Tractor Trailers Combination Trucks

2-axle 3-axle 4-axle 

or more

4-axle 

or less 

5-axle 6-axle 

or more

5-axle 

or less 

6-axle 7-axle or 

more 

Alabama 6,534 26,277 47,116 16,272 43,141 42,072 28,000 27,000 -

Alaska 5,859 22,573 31,430 15,695 39,528 51,935 - 31,800 70,325

Arizona 6,281 22,278 38,708 13,974 39,146 17,793 44,300 43,225 -

Arkansas 7,184 22,697 32,204 15,025 44,629 32,551 - 33,960 54,500

California 5,639 20,023 33,732 16,746 40,403 42,462 49,511 47,073 41,530

Colorado 7,594 25,252 37,090 14,105 42,974 46,373 51,000 - -

Connecticut 7,265 25,769 37,803 13,729 40,415 46,281 37,000 59,000 -

Delaware 7,250 30,254 41,258 17,303 42,457 28,605 - - -

District of Columbia 5,346 20,388 11,978 3,500 - - - - -

Florida 6,637 30,529 38,986 14,857 42,885 34,338 30,667 23,000 -

Georgia 6,801 24,925 31,954 12,172 37,304 42,892 - - -

Hawaii 5,651 21,442 35,388 15,699 36,369 41,519 - - -

Idaho 9,127 26,349 34,967 15,157 44,307 52,455 59,900 - 67,000

Illinois 7,444 23,364 27,380 21,667 44,606 41,816 38,993 39,675 53,983

Indiana 8,700 30,144 32,671 14,165 41,512 44,022 35,000 60,218 58,000

Iowa 8,680 23,560 30,398 16,602 44,449 42,275 - - 37,500

Kansas 10,101 24,547 30,116 20,853 45,064 38,650 44,737 42,500 36,170

Kentucky 8,889 25,942 38,711 15,125 40,730 42,766 - - 37,280

Louisiana 7,144 25,256 34,072 14,327 47,028 47,319 - - 59,224

Maine 9,127 27,086 36,926 17,650 40,267 55,838 - - -

Maryland 6,205 29,582 38,000 11,114 32,038 38,109 - - -

Massachusetts 5,247 26,974 38,085 11,834 45,852 39,958 - - -

Michigan 6,771 20,065 30,697 15,412 37,088 61,272 38,000 40,000 100,145

Minnesota 7,581 23,509 31,129 14,178 41,868 39,443 36,000 31,500 -

Mississippi 6,223 28,608 29,248 15,779 44,716 44,753 - - -

Missouri 9,105 26,110 31,533 13,636 42,471 39,272 - - -

Montana 10,912 25,410 29,729 17,813 43,243 49,817 - - 70,824

Nebraska 11,054 24,528 32,747 15,087 41,550 50,195 - 36,500 53,013

 

28 Alam, M., and G. Rajamanickam, Development of Truck Payload Equivalent Factor, Submitted to 

FHWA Office of Freight Management and Operations, 2007. (Refer to Table 3) 

http://ops.fhwa.dot.gov/freight/freight_analysis/faf/faf2_reports/reports9/index.htm
23 

Table 9. Average payload (lb) by distance traveled and truck type by State.

State 

Single-Unit Truck/Tractor Trailers Combination Trucks

2-axle 3-axle 4-axle 

or more

4-axle 

or less 

5-axle 6-axle 

or more

5-axle 

or less 

6-axle 7-axle or 

more 

Nevada 7,550 22,711 40,499 17,123 42,319 51,454 48,553 45,265 68,513

New Hampshire 7,313 25,825 34,054 13,667 40,755 53,346 - - -

New Jersey 7,154 29,850 44,487 15,388 41,927 30,040 38,190 - -

New Mexico 6,655 23,854 33,538 16,277 42,173 32,867 51,000 53,525 87,000

New York 6,883 25,703 38,705 9,568 42,558 54,837 51,000 - 90,755

North Carolina 7,522 24,688 32,827 19,043 41,852 35,086 31,529 34,000 34,000

North Dakota 13,344 25,525 29,259 17,158 46,730 50,459 - - 69,500

Ohio 7,021 22,493 33,568 12,799 41,318 41,881 - 45,000 30,000

Oklahoma 8,030 23,057 33,847 18,560 40,674 42,141 24,817 30,333 -

Oregon 5,244 22,832 27,449 16,998 44,978 47,662 48,166 40,492 62,234

Pennsylvania 6,540 25,872 39,530 8,976 40,187 32,124 - - 26,000

Rhode Island 5,576 31,550 42,570 11,907 44,264 52,904 - - -

South Carolina 7,280 24,417 35,520 14,789 42,222 43,311 - - -

South Dakota 11,210 24,178 29,315 17,687 45,679 46,840 - - 77,997

Tennessee 6,561 26,774 41,064 14,827 41,013 36,271 45,000 - 32,000

Texas 7,275 26,224 36,280 17,665 42,948 42,209 23,514 21,583 110,000

Utah 5,917 16,510 32,118 15,307 41,196 53,222 27,606 32,503 77,802

Vermont 8,439 27,309 34,971 12,803 45,788 45,911 - 61,400 -

Virginia 7,352 27,859 34,654 16,424 42,527 47,412 37,159 40,282 45,500

Washington 6,638 22,209 35,971 14,366 39,919 56,690 37,728 51,149 64,585

West Virginia 7,120 27,446 36,591 13,947 41,495 49,097 - - -

Wisconsin 6,865 22,474 37,909 16,624 42,399 44,392 13,000 - -

Wyoming 8,067 24,995 34,214 14,983 43,061 54,541 51,000 - 70,772

Source: FHWA Office of Freight Management and Operations, 2007.28

For less rigorous analysis, practitioners may use the average payload thee-axle 

truck (FHWA vehicle class 5) for single-unit trucks and five-axle truck/tractor 

trailers (FHWA vehicle class 9) for combination trucks. The average payloads of 

these two truck groups are reasonable for most traffic streams (except on 

major bus routes). It is reasonable to assume 25,000 lb and 42,000 lb as 

average payload values for single-unit and combination trucks, respectively. 

Step 5. Determine the average value of commodities shipped by truck. The HERS-ST 

Technical Report cites that the average value of commodities shipped by truck (on a 

ton-mile weighted basis) was $1.35 per pound in 1993.29 Adjust this value to the 

current year using the Implicit Price Deflators for Gross Domestic Product-Goods.P24F

30P 

 Average value of commodities shipped by truck = $1.35/lb (in year 1993) 

Implicit Price Deflator for GDP-Goods = 93.786 (for year 1993) 

Implicit Price Deflator for GDP-Goods = 105.405 (for year 2010)

Adjusted value of commodities shipped by truck in 2010 = $1.35 * (105.405/93.786) 

= $1.52/lb 

 

29 The practitioners are recommended to periodically check with the FHWA Office of Freight 

Management and Operations for updated dollar value of commodities shipped by trucks. 

30 Implicit Price Deflators for GDP can be obtained from Table 1.1.9 of the National Income and Product 

Account (NIPA) published by the Bureau of Economic Analysis. 

http://www.bea.gov/national/nipaweb/SelectTable.asp
24 

Step 6. Determine the hourly value of freight shipped by truck. Multiply the current year 

value of commodities by the hourly discount rate. 

Hourly value of freight inventory for 2010 = $1.52/lb * 0.000485% 

Hourly value of freight inventory for 2010 = $7.37E-06/lb/hr 

Step 7. Determine the hourly inventory cost for each truck. Multiply the hourly value of 

commodities ($/lb/hr) by the average payload of each truck type. The hourly 

inventory costs for the suggested payload values of single-unit trucks (25,000 lb) and 

combination trucks (42,000 lb) are $0.18 and $0.31 in 2010 dollars, respectively. 

Table 10 presents the hourly inventory costs for the average payload values 

presented in Table 8. 

Table 10. Hourly cost ($/hr) of freight inventory by distance traveled and truck type –

national averages in 2010 dollars. 

Distance 

Traveled 

Single Unit Truck/Tractor Trailers Combination Trucks 

2-axle 3-axle 4-axle 

or more

4-axle 

or less 

5-axle 6-axle or 

more 

5-axle 

or less 

6-axle 7-axle 

or more

Off-the-road 0.07 0.18 0.27 0.16 0.34 0.29 N.A. N.A. 0.50

< 50 miles 0.05 0.19 0.26 0.10 0.31 0.33 0.28 0.35 0.57

51- 100 miles 0.05 0.17 0.27 0.14 0.32 0.35 0.36 0.35 0.54

101 - 200 miles 0.06 0.17 0.26 0.16 0.31 0.40 0.30 0.32 0.53

201 - 500 miles 0.05 0.16 0.24 0.14 0.31 0.26 0.25 0.26 0.45

> 500 miles 0.05 0.16 0.29 0.16 0.30 0.35 0.28 0.29 0.50

Step 8. Compute freight inventory delay costs. Multiply the number of loaded freight trucks 

(by truck type) by their hourly cost of freight inventory values. 

Example 2.6: Computing the cost of freight inventory delay

For the I-00 work zone scenario, the cost of freight inventory delay is computed by multiplying the 

number of single-unit and combination trucks carrying freight by the hourly cost of freight 

inventory values. 

Step 1. Estimate the hourly cost of freight inventory values 

The hourly freight inventory costs suggested in Step 7 of section 2.2.2.5 are found reasonable 

for the I-00 Pavement Rehabilitation project. 

Hourly freight inventory costs for single-unit trucks = $0.18/hr 

Hourly freight inventory costs for combination trucks = $0.31/hr 

Step 2. Estimate the number of loaded freight trucks 

Estimated percent of empty single-unit trucks (from Table 7) = 29% 

Estimated percent of empty combination trucks (from Table 7) = 27% 

Annual average daily traffic = 33,000 (from Example 2.0) 

Percent of single-unit trucks = 8% (from Example 2.0) 

Total number of single-unit trucks = 0.08 * 33,000 = 2,640 

Estimated number of empty single-unit trucks = 0.29*2,640 = 766 

Estimated number of loaded single-unit trucks =2640 - 766 = 1,874 
25 

Percent of combination trucks = 4% (from Example 2.0) 

Total number of combination trucks = 0.04 * 33,000 = 1,320 

Estimated number of empty combination trucks =0.27*1320 = 356 

Estimated number of loaded combination trucks =1,320 - 356 = 964 

Step 3. Estimate the cost of freight inventory delay 

Average delay time for a vehicle = 10,192.6/33,000 = 0.309 hr/veh/day (from Example 2.2) 

Cost of freight inventory delay for single-unit trucks = hourly cost for average payload * number 

of single-unit trucks * average delay time = 0.18 * 1,874 * 0.309 = $104.23/day 

Cost of freight inventory delay for combination trucks = hourly cost for average payload * 

number of combination trucks * average delay time = 0.31 * 964 * 0.309 = $92.34/day 

Cost of freight inventory delay = $104.23 + 92.34 = $196.57/day 

Example 2.7: Computing the total travel delay costs

For the I-00 work zone scenario, the total travel delay costs are computed by summing the 

component costs as shown below:

1. Travel delay costs for passenger cars = $196,342.10 /day (from Example 2.3) 

2. Travel delay costs for trucks = $30,891.73 (from Example 2.4) 

3. Time-related depreciation costs for all vehicles = $17,294.74/day (from Example 2.5) 

4. Cost of freight inventory delay = $196.57/day (from Example 2.6) 

Total delay costs = $196,342.10 + 30,891.73 + 17,294.74 + 196.57 = $244,725.14/day

2.3 VEHICLE OPERATING COSTS

VOC are the expenses incurred by road users as a result of vehicle use. VOC are the running 

costs that vary with the degree of vehicle use, and are thus mileage dependent, and do not 

include fixed costs such as insurance, time-dependent depreciation, financing, and storage. 

In WZ RUC analysis, VOC is an aggregation of the following components: 

 Speed change VOC is the additional cost under unrestricted conditions associated with 

decelerating from the upstream approach speed to the work zone speed and then 

accelerating back to the approach speed after leaving the work zone. 

 Stopping VOC is the additional cost under restricted conditions associated with 

stopping from the upstream approach speed and accelerating back up to the approach 

speed after traversing the work zone. 

 Queue idling VOC is the additional cost associated with stop-and-go driving in the 

queue. The idling cost rate multiplied by the additional time spent in the queue is an 

approximation of actual VOC associated with stop-and-go conditions. When a queue 

exists, stopping delay and VOC replace the free-flow speed change delay and VOC. 

 Detour VOC is the additional cost associated with the excess distance to be traveled by 

selecting a detour route under unrestricted or restricted conditions. 

 
26 

Example 2.8: Understanding the components of VOC

For the work zone scenario presented in Example 2.0, the computation of vehicle operating costs 

for the I-00 work zone scenario involves the following: 

 Speed change VOC - the additional costs incurred for the vehicles to decelerate from the 

upstream speed of 55 mph to the work zone speed of 45 mph when approaching point A 

and the time to accelerate from 45 mph to 55 mph after crossing point B. 

 Stopping VOC - the additional costs incurred for the vehicles to decelerate from the 

upstream speed of 55 mph to a complete stop (0 mph) under restricted flow or queuing 

conditions, and the time to accelerate to 55 mph. 

 Queue idling VOC - the additional costs incurred for the vehicles idling in the queue under 

restricted flow conditions. 

 Detour VOC - the additional costs incurred for the extra distance the vehicles have to 

travel through the I-00Hwy 100 exit ramp and Route 99 to reach Hwy 102 as opposed to 

taking I-00Hwy 100 exit ramp. It also applies to the vehicles taking Route 99 and Hwy 

102I-00 entry ramp to merge into I-00 through traffic.

2.3.1 Estimating VOC 

VOC includes the consumption costs of the following resources: 

 Fuel consumption. 

 Engine oil consumption. 

 Tire-wear. 

 Repair and maintenance. 

 Mileage-related depreciation. 

VOC is measured by quantifying the consumption of these resources while driving a vehicle 

between two points and multiplying those quantities with the corresponding unit cost of 

resources. Figure 3 presents the computation of VOC schematically. 

Figure 3. Schematic illustrating the components of VOC. 

The resource consumption is a function of prevailing roadway and traffic characteristics and 

can vary significantly with factors such as roadway geometry, traffic volume and composition, 

travel delay, and speed. Table 11 presents a matrix showing how each resource is influenced 

by various roadway factors. 
27 

Table 11. Roadway factors affecting vehicle operating costs. 

Roadway Factor Fuel Oil Tire Wear Maintenance 

and Repair 

Depreciation

(mileage-related) 

Vehicle Class X X X X X

Vehicle Speed X X X X X

Road Grade X X X X

Surface Type X X X X X

Surface Condition X X X X X

Road Curvature X X X

Source: NCHRP Synthesis 269.P25F

31

For WZ RUC analysis, the VOC is estimated for the traffic flowing through the work zone as 

well as those diverted through detour routes (if applicable). Traffic flowing through the work 

zone undergoes acceleration/deceleration cycles, stopping and idling depending on the flow 

condition (i.e. unrestricted or restricted). VOC models can be used to account for the effect 

of change in flow condition changes on resource consumption. 

Traffic diverted through the detour routes may or may not experience change in flow 

conditions depending on the detour route capacity and diverted traffic volume. If there is 

forced flow condition, a detailed traffic analysis using VOC models is required for detour 

routes at the network or route level (depending on the impact and site-specific factors). 

Otherwise, a simple per-mile estimate can be used in VOC estimation for free flow conditions. 

VOC models provide per-mile estimates for constant-operating conditions with due 

consideration to travel speed, grade, and pavement conditions. Alternate cost sources such as 

AAA or ATRI can also be used for simpler, flat-rate per-mile estimates. 

2.3.2 VOC Models 

VOC models provide a detailed methodology for quantifying the additional resources 

consumed due to change in traffic flow conditions. Three methods are used commonly in the 

U.S. for determining VOC: 

 National Cooperative Highway Research Program (NCHRP) Report 133 method.32

 Texas Research and Development Foundation method.P27F

33

 HERS-ST method.20

 U.S. Environmental Protection Agency (EPA)'s Motor Vehicle Emission Simulator 

(MOVES) —Only fuel consumption costs can be estimated using this tool (see section 

2.5.1.2 for more discussion) 

 

31 Lewis, D. L. Road User and Mitigation Costs in Highway Pavement Projects, NCHRP Synthesis 269, 

National Cooperative Highway Research Program, Transportation Research Board, Washington DC, 

1996. 

32 Curry, D. A. and D. G. Anderson, Procedures for Estimating Highway User Costs, Air Pollution, and 

Noise Effects, National Cooperative Highway Research Program Report 133, Transportation Research 

Board, Washington, DC, 1972. 

33 Zaniewski, J. P., B. C. Butler, G. Cunningham, G. E. Elkins, M. S. Paggi, and R. Machemehl. 

Vehicle Operating Costs, Fuel Consumption and Pavement type and Condition Factors, Final 

Report # DOT-FH-11-9678, Prepared by Texas Research and Development Foundation, Federal Highway 

Administration, Washington, DC, 1982. 
28 

This document presents a detailed discussion of VOC models commonly used in the U.S. Some 

of the International sources of VOC models include: 

 The World Bank’s Highway Design and Maintenance Standards (HDM-IV) model. 

 The British Cost Benefit Analysis Program (COBA). 

 The Australian Road Research Board’s Road Fuel Consumption model. 

 The National Association of Australian State Road Authorities’ Improved Model for 

Project Assessment and Costing (NIMPAC). 

 The Swedish National Road and Transport Research Institute (VTI) Vejstandard og 

transportomkostninger (VETO) model. 

2.3.2.1 76BNCHRP Report 133 Method 

NCHRP Report 133 provides relationships to calculate VOC consumption for work zone 

conditions. These relationships were based largely on earlier work by Winfrey and Claffey.P28F

34,29F35P

Since these earlier studies were published, there have been improvements in fuel efficiency 

standards, vehicle technologies, and tire technologies; therefore, the accuracy of these 

relationships is questionable for current vehicle standards. 

The NCHRP Report 133 relationships were utilized in RealCost for computing work zone VOC.P30F

36P

Table 12 presents the additional time and operating costs in 2010 dollars resulting from 

vehicle stopping, idling, and speed changes in work zones. Both time and cost factors are 

presented as a function of vehicle traveling speed. Reproduced from the RealCost technical 

bulletin, the cost table was adjusted from 1996 to 2010 rates using the Consumer Price Index 

(CPI) (transportation component). 

Table 12. Added time and vehicle running cost/1,000 stops and idling cost in 2010 dollars.

Initial 

Speed 

(mph) 

Added Time

(Hr/1000 Stops) 

Added Cost 

($/1000 Stops) 

Passenger 

Cars 

Single-Unit 

Truck 

Combination 

Truck 

Passenger

Cars 

SingleUnit Truck Combination 

Truck 

0 0.00 0.00 0.00 $0.00 $0.00 $0.00

5 1.02 0.73 1.10 $3.66 $12.53 $45.53

10 1.51 1.47 2.27 $11.96 $28.06 $104.95

15 2.00 2.20 3.48 $20.53 $45.90 $176.02

20 2.49 2.93 4.76 $29.44 $65.55 $257.40

25 2.98 3.67 6.10 $38.83 $86.64 $347.44

30 3.46 4.40 7.56 $48.89 $108.66 $444.50

35 3.94 5.13 9.19 $59.67 $131.21 $546.93

40 4.42 5.87 11.09 $71.37 $154.35 $653.06

45 4.90 6.60 13.39 $84.06 $176.17 $761.31

50 5.37 7.33 16.37 $97.93 $197.68 $870.02

 

34 Winfrey, R., Economic Analysis of Highways, International Textbook Company, Scranton, 

Pennsylvania, 1969. 

35 Claffey, P. J., Running Costs of Motor Vehicles as affected by Road Design and Traffic, National 

Cooperative Highway Research Program Report 111, Transportation Research Board, Washington, DC, 

1971. 

36 Walls III, J. and M. R. Smith, Life-Cycle Cost Analysis in Pavement Design — Interim Technical 

Bulletin, Report No. FHWA-SA-98-079, Federal Highway Administration, Washington, DC, 1998. 
29 

Table 12. Added time and vehicle running cost/1,000 stops and idling cost in 2010 dollars.

Initial 

Speed 

(mph) 

Added Time

(Hr/1000 Stops) 

Added Cost 

($/1000 Stops) 

Passenger 

Cars 

Single-Unit 

Truck 

Combination 

Truck 

Passenger

Cars 

SingleUnit Truck Combination 

Truck 

55 5.84 8.07 20.72 $113.04 $217.90 $977.50

60 6.31 8.80 27.94 $129.61 $242.40 $1,082.08

65 6.78 9.53 31.61 $147.65 $265.23 $1,150.68

70 7.25 10.27 39.48 $167.41 $283.13 $1,247.36

75 7.71 11.00 47.90 $188.97 $304.54 $1,344.05

80 8.17 11.73 57.68 $212.42 $325.96 $1,440.75

Idling Cost ($/veh-hr.) $0.94 $1.04 $1.12

Source: FHWA’s RealCost and NCHRP Report 133. 

Original CPI: 142.8 (year 1996) 

Current year CPI: 193.396 (year 2010)

Speed change VOC is calculated by subtracting the cost factors at the work zone speed from 

those at the upstream speed. This difference is then multiplied by the number of vehicles 

traversing the work zone under the unrestricted flow scenario. Similarly, for calculating the 

stopping VOC of vehicles, the difference in cost factors at the upstream speed and stopping is 

then multiplied by the number of vehicles traversing the work zone under the restricted flow 

scenario. The idling VOC is calculated by multiplying the idling cost factors by the number of 

delayed vehicles and their queuing/idling time. For additional miles resulting from detour, 

the RealCost software recommends the use of flat, mileage-based rates under normal vehicle 

operating conditions. Sources of mileage-based VOC are presented in section 2.3.3. 

2.3.2.2 Texas Research and Development Foundation Method 

In 1982, the Texas Research and Development Foundation (TRDF) developed relationships to 

incorporate the effects of highway design and pavement condition on VOC for FHWA. This 

study provided a VOC model as a function of vehicle speed, grade, and vehicle class. This 

model was developed based on highway, vehicle technology, operation, and economic 

conditions typical of the 1970s. Table 13 presents a sample relationship showing the TRDF 

estimates of VOC resource consumption for vehicle idling. 

Table 13. TRDF estimates of VOC consumption during idling.

Vehicle Fuel 

(gallon 

/l000 hrs) 

Oil (quart/

1000 hrs ) 

Tire 

(% of wear 

/1000 hrs) 

Depreciation 

(% of new veh. 

price/l000 hrs ) 

Maint. & Repairs (% 

of avg. cost per 1000 

miles/1000 hrs) 

Small Passenger 

Car 

271 5.8 0 0.81 57

Medium/Large 

Passenger Car 

563 5.8 0 0.81 58

Pickup/Van 756 3.5 0 0.5 60

Buses 398 3.46 0 1.1 26

2-Axle Single Unit 198 3.2 0 1.1 23

3-Axle Single Unit 398 3.46 0 1.1 26

2-S2 Semis 470 3.46 0 0.38 24

3-S2 Semis 470 3.46 0 0.38 24
30 

TRDF VOC data have been used in many highway planning and project evaluation models, 

including HERS-ST, MicroBENCOSTP (a benefit-cost analysis tool for highway applications), and 

the Canadian Highway User Benefit Assessment. However, this method, like the NCHRP Report 

133 method, falls short of taking changing vehicle standards and technologies into account.P32F

37

Example 2.9: Computing VOC using the NCHRP Report 133 method

This example illustrates the use of the NCHRP Report 133 method with the I-00 work zone scenario.

USpeed Change VOC:

Time: 05-06 am 

Upstream speed = 55 mph WZ speed = 45 mph 

Total vehicles = 988 

Initial Speed (mph) Added Cost ($/1000 Stops)

Passenger Cars Single Unit Truck Combination Truck

55 $113.04 $217.90 $977.50

45 $84.06 $176.17 $761.31

55-45-55 $28.98 $41.73 $216.19

Speed Delay VOC at 

05-06 am 

=988*0.88*$28.98/1000 =988*0.08*$41.73/1000 =988*0.04*$216.19/1000

$25.2 $3.30 $8.5 

Total = $37.0

UStopping VOC:

Time: 08-09 am 

Total vehicles = 2964 

Initial Speed (mph) Added Cost ($/1000 Stops)

Passenger Cars Single Unit Truck Combination Truck

55 $113.04 $217.90 $977.50

Stopping $0 $0 $0 

55-Stopping-55 $28.98 $41.73 $216.19

Stopping VOC at 

08-09 am 

=2964*0.88*$28.98/1000 =2964*0.08*$41.73/1000 =2964*0.04*$216.19/1000

$294.84 $51.67 $115.89

Total = $462.42

UIdling VOC:

Time: 08-09 am 

Number of vehicles in queue = 410 

Queuing Time = 23.81 minutes = 0.397 hr 

Queued 

Vehicles 

Queuing 

Time 

Idling Cost per vehicle-hour

Passenger Cars Single Unit Truck Combination Truck

410 0.397hr $0.94 $1.04 $1.12 

Idling VOC at 08-09 

am 

=410*0.88*0.397*$0.94 =410*0.08*0.397*$1.04 =410*0.04*0.397*$1.12

 $134.32 $13.54 $7.27 

Total = $155.13

Speed Delay VOC at 05-06 am = $37.00 

Stopping VOC at 08-09 am = $462.42 

Idling VOC at 08-09 am = $155.13

 

37 Bein, P., and D. C. Biggs, Critique of Texas Research and Development Foundation Vehicle Operating 

Cost Model, Transportation Research Record No.1395, Journal of the Transportation Research Board, 

Washington, DC, 1993. 
31 

Example 2.9: Computing VOC using the NCHRP Report 133 method (continued) 

The various components of VOC for the 24-hour cycle are illustrated in the following table: 

Time Mainline 

Traffic 

Volume 

Queued 

Vehicles 

Queue 

Time 

Stopped 

Vehicles 

Speed 

Change 

VOC 

Stopping

VOC

Idling

VOC

Total VOC

00-01 304 0 0 0 $11.40 $0.0 $0.0 $11.4

01-02 304 0 0 0 $11.40 $0.0 $0.0 $11.4

02-03 304 0 0 0 $11.40 $0.0 $0.0 $11.4

03-04 456 0 0 0 $17.10 $0.0 $0.0 $17.1

04-05 646 0 0 0 $24.22 $0.0 $0.0 $24.2

05-06 988 0 0 0 $37.04 $0.0 $0.0 $37.0

06-07 1558 0 0 0 $58.41 $0.0 $0.0 $58.4

07-08 2964 410 23.81 2964 $0.0 $462.4 $155.1 $617.5

08-09 3610 1466 23.81 3610 $0.0 $563.2 $554.7 $1,117.9

09-10 2470 1382 23.81 2470 $0.0 $385.3 $522.9 $908.2

10-11 1786 614 23.81 1786 $0.0 $278.6 $232.3 $511.0

11-12 1710 0 23.81 1244 $17.47 $194.1 $470.69   $682.2

12-13 1634 0 0 0 $61.26 $0.0 $0.0 $61.3

13-14 1710 0 0 0 $64.11 $0.0 $0.0 $64.1

14-15 1862 0 0 0 $69.81 $0.0 $0.0 $69.8

15-16 2470 0 0 0 $92.60 $0.0 $0.0 $92.6

16-17 3002 448 23.81 3002 $0.0 $468.3 $169.5 $637.9

17-18 3534 1428 23.81 3534 $0.0 $551.3 $540.3 $1,091.6

18-19 2432 1306 23.81 2432 $0.0 $379.4 $494.1 $873.6

19-20 1482 234 23.81 1482 $0.0 $231.2 $88.5 $319.7

20-21 1254 0 23.81 226 $38.55 $35.2 $85.40 $159.2

21-22 684 0 0 0 $25.64 $0.0 $0.0 $25.6

22-23 456 0 0 0 $17.10 $0.0 $0.0 $17.1

23-24 380 0 0 0 $14.25 $0.0 $0.0 $14.2

Total vehicle operating costs of mainline through traffic =$7,434.6

The VOC for the northbound through traffic =$7,434.6/day. 
32 

2.3.2.3 78BHERS-ST Method 

FHWA’s HERS-ST model provides a comprehensive method to compute VOC resource 

components for various vehicle types, roadway conditions, and traffic characteristics. For 

every cost component, HERS-ST provides separate VOC models for calculating each resource 

component based on: 

 Constant-speed operating conditions as a function of average effective speed, average 

grade, and pavement serviceability rating. 

 Excess resource consumption due to speed-change cycles. 

 Excess resource consumption due to roadway curvature.P3F

38

The HERS-ST VOC estimation models are derived based on the TRDF VOC relationships, with 

some adjustments made based on the findings of Claffey and Daniels.33P

, 

P

35P,

34F

39P In addition, HERSST facilitates adjustments for commodity cost fluctuations and improvements in vehicle fuel 

efficiency. 

The HERS-ST model contains numerous equations for VOC estimation based on the 

combinations of VOC resource components, vehicle types, and influencing factors (e.g., 

average effective speed, speed change, horizontal curves, and vertical grade). The HERS-ST 

software package facilitates the analysis of VOC estimation using a set of equations.40 Tables 

1414 and 15 present sample HERS-ST estimates of VOC for each resource component estimated 

using constant speed and speed variability submodels, respectively. These tables were 

estimated for a given set of influencing factors. 

The overall equation for estimating VOC is presented as follows: 

CSOPCSTR

vtR = CSFC*PCAFFC *COSTFRvtR/ FEAFRvtR+CSOC * PCAFOC *COSTORvtR /OCAFRvtR + 

0.01 *CSTW *PCAFTW *COSTTR

vtR /TWAFvt +0.01 *CSMR *PCAFMR 

*COSTMRR

vtR/MRAFRvtR + 0.01 *CSVD* PCAFVD *COSTVRvtR /VDAFRvt

where, 

CSOPCSTvt = constant speed operating cost for vehicle type 

CSFC = constant speed fuel consumption rate (gallons/1000 miles) 

CSOC = constant speed oil consumption rate (quarts/1000 miles) 

CSTW = constant speed tire wear rate (% worn/1000miles) 

CSMR = constant speed maintenance and repair rate (% of average cost/1000 miles) 

CSVD = constant speed depreciation rate (% of new price/ 1000 miles) 

PCAFFC = pavement condition adjustment factor for fuel consumption 

PCAFOC = pavement condition adjustment factor for oil consumption 

PCAFTW = pavement condition adjustment factor for tire wear 

PCAFMR = pavement condition adjustment factor for maintenance and repair 

PCAFVD = pavement condition adjustment factor for depreciation expenses 

COSTFvt = unit cost of fuel for vehicle type 

COSTOvt = unit cost of oil for vehicle type 

 

38 Additional vehicle operating costs incurred due to the effects of roadway curvature is not required 

for WZ RUC analysis, as the differential costs between the normal operating and work zone conditions 

are only considered. 

39 Daniels, C. Vehicle Operating Costs in Transportation Studies, E.S.U. Technical Series, No. 1, 

Spencer House, London (1974).

40 Equations of HER-ST VOC models are presented in Appendix E of the HERS-ST Technical Report. 
33 

COSTTvt = unit cost of tires for vehicle type 

COSTMRvt = unit cost of maintenance and repair for vehicle type 

COSTVvt = depreciable value for vehicle type 

FEAFvt = fuel efficiency adjustment factor for vehicle type 

OCAFvt = oil consumption adjustment factor for vehicle type 

TWAFvt = tire wear adjustment factor for vehicle type 

MRAFvt = maintenance and repair adjustment factor for vehicle type 

VDAFvt = depreciation adjustment factor for vehicle type. 

Table 14. Sample HERS-ST estimates of constant speed VOC in 2010 dollars. 

Average 

Effective 

Speed (mph)* 

Small 

Autos 

Medium/

Large 

Auto 

4-Tire 

Truck 

6-Tire 

Truck 

3+Axle 

Single 

Unit 

3-4 Axle 

Combination 

5+ Axle 

Combination 

40 $0.36 $0.43 $0.45 $1.20 $1.38 $0.91 $1.09 

45 $0.36 $0.43 $0.45 $1.20 $1.38 $0.90 $1.09 

55 $0.37 $0.43 $0.45 $0.83 $1.37 $0.91 $1.08 

Note: These estimates were developed for an assumed roadway grade of 1 percent and a pavement 

serviceability rating of 2.5 

Table 15. Sample HERS-ST estimates of speed variability VOC in 2010 dollars.

Maximum 

Speed in a 

Speed Change 

Cycle (mph) 

Small 

Autos 

Medium/

Large 

Auto 

4-Tire 

Truck 

6-Tire 

Truck 

3+Axle 

Single 

Unit 

3-4 Axle 

Combination 

5+ Axle 

Combination 

5 $0.04 $0.04 $0.14 $0.26 $0.26 $0.12 $0.13 

10 $0.08 $0.09 $0.17 $0.33 $0.50 $0.29 $0.32 

15 $0.14 $0.15 $0.22 $0.44 $0.81 $0.52 $0.58

20 $0.21 $0.22 $0.30 $0.59 $1.17 $0.80 $0.90

25 $0.29 $0.31 $0.39 $0.79 $1.59 $1.15 $1.29

30 $0.38 $0.42 $0.50 $1.04 $2.08 $1.54 $1.75

40 $0.59 $0.66 $0.76 $1.66 $3.21 $2.50 $2.86

50 $0.83 $0.95 $1.09 $2.46 $4.55 $3.66 $4.26

60 $1.10 $1.27 $1.47 $3.45 $6.10 $5.02 $5.96

70 $1.39 $1.60 $1.91 $4.63 $7.85 $6.58 $7.98

2.3.3 34BUnit Cost Data Sources for VOC Estimation 

Unit cost data are required to compute the costs of additional resources consumed due to 

work zone activity. Several unit cost data sources are available for VOC estimations, and 

commonly cited U.S. cost sources include: 

Passenger cars only

 AAA - Your Driving Costs (published annually) – see Table 16. 

Trucks only

 American Transportation Research Institute (ATRI)-see Table 17. 

 
34 

All vehicles

 Barnes and Langworthy (2004)P36

41P – see Table 18. 

 Sinha and Labi (2005) – see Table 19. 

 HERS-ST – see Table 20. 

Table 16. AAA estimates of VOC for passenger cars in 2010 dollars (cents/vehicle mile).

Cost Component Small Sedan Medium 

Sedan 

Large 

Sedan 

4WD Sport 

Utility Vehicle 

Minivan

Fuel 9.24 11.97 12.88 16.38 13.7

Maintenance and oil 4.21 4.42 5 4.95 4.86

Tires 0.65 0.91 0.94 0.98 0.75

Depreciation 

@ 15000 miles/year 

15.89 23.01 32.19 33.35 26.63

Table 17. ATRI estimates of VOC for trucks in 2008 dollars (cents/vehicle mile).

Cost Component Trucks

Diesel Fuel (@ $4.69/gallon) 

 No surcharge 

 With surcharge 

63.4 

21.9 

Fuel taxes 6.2

Maintenance 9.2

Tires 3.0

Depreciation N.A.

Table 18. Barnes and Langworthy estimates of VOC in 2003 dollars 

(cents per vehicle mile). 

Cost Component Automobile Pickup/SUV/Van Trucks 

Highway City Highway City Highway City

Fuel @ $1.50/gallon 5.0 7.0 7.8 10.1 21.4 28.0

Maintenance 2.1 2.5 2.4 2.8 10.5 12.1 Repair 1.1 1.3 1.3 1.5

Tires 0.9 0.9 1.0 1.0 3.5 3.5

Depreciation 6.2 7.4 7.0 8.1 8.0 9.2

Total 15.3 19.1 19.5 23.6 43.4 52.9

Table 19. Average VOC (cents/vehicle mile) in 2005 dollars. 

Cost Component Small 

Autos 

Medium-sized 

Autos 

Large 

Autos SUVs Vans Trucks 

Fuel and Oil 5.4 6.44 7.5 8.34 7.5 21.41

Maintenance and 

Repair 3.5 4.12 4.33 4.33 4.12 11.09 

Tires 0.5 1.58 1.9 1.58 1.69 3.7

Depreciation 13.9 12.5 12.5 12 12 10.6

Total 20.59 20.59 22.17 22.7 21.75 44.64

Note: This table is a compilation of cost data from several sources:

Non-trucks: fuel, maintenance and repair, and tires from AAA Your Driving Costs 2005); 

Trucks: fuel, maintenance and repair, and tires from Barnes and Langworthy (2003); and, 

Depreciation estimations and projections from the HERS-ST Technical Report (2002). 

 

41 Barnes, G and P. Langworthy, The Per-Mile Costs of Operating Automobiles And Trucks, Report No. 

MN/RC 2003-19, Submitted to Minnesota Department of Transportation, St. Paul, 2004. 

http://www.lrrb.org/pdf/200319.pdf
35 

Table 20. HERS-ST unit costs of VOC resource components in 2004 dollars.

Cost 

Component 

Small 

Autos 

Medium/ 

Large Auto 

4-Tire 

Truck 

6-Tire 

Truck 

3+Axle 

Single 

Unit 

3-4 Axle 

Combination 

5+ Axle 

Combination 

Fuel ($/gal) $1.93 $1.93 $1.93 $1.93 $1.84 $1.84 $1.84 

Oil  ($/quart) $4.48 $4.48 $4.48 $1.79 $1.79 $1.79 $1.79 

Tires  ($/tire) $45.89 $72.55 $79.96 $193.00 $477.90 $477.90 $477.90 

Maintenance

& Repair

($/1000 miles)

$103.50 $125.60 $159.60 $298.70 $422.50 $437.60 $437.60 

Depreciation

($/vehicle) $19,717 $23,255 $25,061 $37,448 $82,386 $95,432 $103,767 

2.3.3.1 35BUpdating Cost Data Sources for VOC Estimation 

Unit cost data shown in Tables 16 through 20 do not reflect the current year prices. To 

update the cost of individual resource components to current year prices, adjustments using 

standard price indices, such as CPI and PPI, are recommended. Table 21 presents the 

guidelines on using the price indices for price adjustment. The information presented in the 

parentheses indicates the appropriate items codes of CPI or PPI data for each combination of 

resource and vehicle type. To estimate current year prices, multiply the existing year prices 

by a ratio of CPI (current year) to CPI (existing year), or PPI values as appropriate. 

Table 21. Price adjustments for VOC components. 

Resource Automobile Pickup/SUV/

Van 

Single-unit Trucks Combination

Trucks 

Fuel Consumer Price Index-All Urban Consumers

Gasoline 

(SETB01) 

Gasoline

(SETB01) 

Gasoline (SETB01) for 

2-axle 6-tire truck. 

Other motor fuels for 

Diesel (SETB02) for 3-

axle truck 

Other motor 

fuels 

for Diesel 

(SETB02) 

Oil Consumer Price Index-All Urban Consumers

Motor oil,

coolant, and 

fluids (SS47021)

Motor oil, coolant,

and fluids (SS47021)

Motor oil, coolant,

and fluids (SS47021)

Motor oil,

coolant, and 

fluids (SS47021)

Maintenance 

and Repair 

Consumer Price Index-All Urban Consumers

Motor vehicle

maintenance and 

repair (SETD)

Motor vehicle

maintenance and 

repair (SETD)

Motor vehicle

maintenance and 

repair (SETD)

Motor vehicle

maintenance and 

repair (SETD)

Tires Consumer Price Index-All Urban Consumers

Tires (SETC01) Tires (SETC01) Tires (SETC01) Tires (SETC01)

Depreciation Producer Price Index - Commodity Data 

Transportation Equipment (14) 

Passenger cars

(1101) 

Trucks with GVW under

14,000 lbs (1105) 

Trucks with GVW over

14,000 lbs (1106) 

Truck trailers

(1406) 

 
36 

To illustrate, the HERS-ST estimates of unit costs presented in Table 20 reflect the prices in 

2004. To convert the 2004 prices to 2010 prices, the ratio of 2010 CPI or PPI value to 2004 

CPI or PPI value for each of the codes presented in Table 21 are first computed (see Table 

22). The 2004 prices in Table 20 are then multiplied by the appropriate price adjustment 

factors presented in Table 22 to estimate the unit costs of various resource components in 

2010 dollars (see Table 23). 

Table 22. 2004 to 2010 price adjustment factors for VOC components. 

Resource Automobile Pickup/SUV /

Van 

6-tire 

Single-unit 

Trucks 

3-axle 

Single-unit 

Trucks 

Combination 

Trucks 

Fuel 1.497 1.497 1.497 1.539 1.539

Oil 1.847 1.847 1.847 1.847 1.847

Maintenance 

and Repair 

1.214 1.214 1.214 1.214 1.214

Tires 1.239 1.239 1.239 1.239 1.239

Depreciation 0.979 1.013 1.257 1.257 1.226

Table 23. HERS-ST unit costs of VOC resource components in 2010 dollars.

Cost 

Component 

Small 

Autos 

Medium/Large 

Auto 

4-Tire 

Truck 

6-Tire 

Truck 

3+Axle 

Single 

Unit 

3-4 Axle 

Combination 

5+ Axle 

Combination

Fuel $2.89 $2.89 $2.89 $2.89 $2.84 $2.84 $2.84

Oil $8.27 $8.27 $8.27 $3.31 $3.31 $3.31 $3.31

Tire (single) $55.70 $88.07 $97.06 $234.28 $580.11 $580.11 $580.11

Maintenance 

and Repair 

$128.21 $155.59 $197.71 $370.03 $523.39 $542.09 $542.09

Depreciation $19,303 $23,569 $25,399 $47,069 $103,551 $116,979 $127,196

2.4 13BCRASH COSTS

Crash costs associated with work zones and work zone-related detours are a function of the 

expected change in the crash rates due to the presence of work zones. Required crash-related 

inputs for WZ RUC analysis include: 

 Crash rate and /frequency at work zones. 

 Crash severity rating. 

 Unit cost of crashes.

2.4.1 36BWork Zone Crash Rate 

Crash statistics often are reported in terms of crash rate and crash frequency. Crash rate is 

the number of crashes expected or observed along a roadway segment during a time period 

normalized to the roadway segment length and the traffic volume over the same period. 

Crash rate typically is expressed as “crashes per VMT” or “crashes per million VMT (MVMT)” 

for roadway sections and “crashes per million entering vehicles (MEV)” for intersection 

locations. The formula for calculating the crash rate for a roadway segment is presented as 

follows: 
37 

ൌ ܴܥ

଺10 כ ܣ

365 כ ܶܦܣܣ כ ܮ כ ܶ

where, 

CR = number of crashes per million vehicle miles of travel 

A = average number of crashes along the roadway segment for the analysis period 

T = duration of the analysis period (years) 

L = length of roadway segment (miles) 

AADT = annual average daily traffic (in both directions) 

Crash frequency is the number of crashes normalized to the roadway segment length and time 

period. It typically is expressed as “crashes per mile per year”. 

The presence of a work zone increases the likelihood of crashes in a given location. 

Therefore, the work zone crash rates typically are estimated by applying a multiplicative 

factor, called crash modification factor (CMF), to the pre-work zone crash rates at the project 

location. Crash records collected over a typical 3-year period are considered in determining 

pre-work zone crash rates. 

 

Numerous studies indicate that the pre-work zone crash rates are likely to increase by 20 to 

70 percent when there is a work zone in place. For active work with temporary lane closure 

on freeway and expressway facilities, Ullman et al (2008). found that the crash risk increased 

by about 66 percent during the day and by 61 percent at night for a motorist traveling 

through the work zone; however, the actual change in crash risk varied significantly when the 

crash data was examined on the basis of time of work (daytime or nighttime work) and work 

conditions (no work activity, active work with lane closures, or active work with no lane 

closures).P38F

42

Work zone CMFs are available on the CMF Clearinghouse website, a repository established and 

maintained by the FHWA Office of Safety.P39F

43P This site contains the best available information 

on the crash modification factors for a variety of scenarios, including countermeasure 

strategies to address specific work zone safety issues. Table 24 presents typical work zone 

CMFs for temporary lane closure on freeways and expressways. 

There are no statistically accepted values of CMFs, as they were found to vary from study to 

study. Furthermore, numerous factors pertaining to the operational and physical 

characteristics of the facility influence the likelihood of increase in crash rates at work zones: 

 Roadway functional class (e.g., freeways vs. two-lane highways). 

 Location (e.g., urban vs. rural). 

 Work zone configuration (e.g., work zone length, number of open lanes). 

 Traffic volume. 

 Exposure period (e.g., number of days, night vs. daytime). 

 MOT strategy (e.g., partial lane closure vs. crossover). 

 

42 Ullman, G. L., M.D. Finley, J. E. Bryden, R. Srinivasan, and F. M. Council, Traffic Safety Evaluation 

of Nighttime and Daytime Work Zones, NCHRP Report 627, National Cooperative Highway Research 

Program, Transportation Research Board, Washington, DC, 2008. 

43 CMF Clearinghouse: http://www.cmfclearinghouse.org/index.cfm
38 

 Traffic management strategies (e.g., flagger vs. non-flagger). 

 Weather conditions. 

Therefore, agencies could consider establishing their own CMFs reflecting local trends using 

historical data. Other approaches such as historical averages, regression-based models 

involving key influencing variables, and crash reduction factors also can be employed. Table 

25 presents an example showing the difference in work zone and pre-work zone crash rates 

observed in various work zone sites in Indiana.44 This table also illustrates how the work zone 

conditions, such as lane closure strategies and number of available lanes, influence the 

likelihood of increase in crash rates at work zones. Table 26 presents an example of the CMFs 

calculated for Ohio’s work zones. 45 

Table 24. Typical work zone crash modification factors for temporary lane 

closure on freeways. 

Crash Types Crash Severity CMF 

All All 1.77 

All Property damage only (PDO) 1.9 

All Serious injury, Minor injury 1.6 

Nighttime All 1.57 

Nighttime Property damage only (PDO) 1.63 

Nighttime Serious injury, Minor injury 1.34 

Note: Reported for work zones with active work and temporary lane closure. 

Table 25. Average crash rates at Interstate work zones in Indiana. 

Sites 

Crash Rate (per 10 Million VMT) 

Without

Work Zone 

With

Work Zone CMF 

Sites Using Cross-over

(2 lanes in each direction) 6.0329 8.0431 1.33 

Sites Using Partial Lane Closure 

(2 lanes in each direction) 5.5916 7.4528 1.33 

Sites Using Cross-over

(3 lanes in each direction) 5.8278 9.3544 1.61 

Sites Using Partial Lane Closure 

(3 lanes in each direction) 7.5166 10.1006 1.34 

Table 26. Work zone crash rates in Ohio.

Year Crash Rate (per Million VMT) CMF Before Work Zone With Work Zone

2002 1.04 1.68 1.62 

2003 1.19 2.02 1.69 

2004 1.34 1.71 1.28 

2005 1.29 1.23 0.95 

2006 1.51 1.51 0.0 

 

44 Pal, R., and K. Sinha, An Evaluation of Lane Closure Strategies for Interstate Work Zones, Report No. 

FHWA/IN/JHRP-95/1, Joint Transportation Research Program, Purdue University, West Lafayette, IN, 

1995. 

45 Presented by Mr. Holstein, State Traffic Engineer of Ohio DOT, 2008 Work Zone Rule Virtual 

Workshop. http://ops.fhwa.dot.gov/wz/resources/final_rule/ohio_ppt/ohio.htm
39 

In addition to the elevated crash related risks due to work zone, the pre-work zone crash 

rates should be adjusted for: 

 Influence Zone (or Analysis Area) — The influence zone is the area or roadway 

segments that are adversely impacted by the work zone hazards. The safety impacts of 

the work zone are evaluated not only in the immediate work zone area but also on the 

adjacent roadways, and are duly accounted in the crash cost computations. 

 Traffic Volume and Length of the Influence Zone — The variable “VMT” is a measure of 

exposure expressed in terms of traffic volume and section length. When computing the 

expected or actual work zone crash rate, the traffic volume exposed during the work 

zone period as well as the length of the influence zone should be taken into account. 

 Work Zone Safety Improvement— Appropriate crash reduction factors should be 

included in the crash rate computations to account for future safety improvement 

countermeasures to be implemented in the work zone. For instance, See et al. 

reported that the work zone crash rate in Arkansas highways fell by 46 percent when 

the conventional right-hand lane closure was replaced with the Iowa weave lane 

closure (i.e., lane closure with a left-hand merge and lane shift) strategy was 

implemented.P42F

46

2.4.2 37BCrash Severity Rating 

Roadway crashes are commonly identified in one of the following categories on the basis on 

their severity: 

 Fatal crash is one where the crash results in at least one death. 

 Injury crash results in non-fatal bodily injury. 

 Property damage only (PDO) involves damage to property but does not result in bodily 

injury /fatality. 

The National Highway Traffic Safety Administration (NHTSA) uses the following scale to report 

the extent of a roadway crash or the severity of an associated injury: 

 KABCO injury scale: KABCO is a coding scheme designed for police officers assessing 

the crash scene. The scale requires no medical training for police officers at the crash 

scene to assess the severity level of the injury/trauma. This scale has been criticized 

for coding inconsistencies. See Table 27 for guidelines on KABCO coding. 

 Abbreviated injury scale (AIS): AIS is an anatomically based severity scoring scheme 

that classifies each injury in every region of human body according to its relative 

severity on a six-point adjectival scale. AIS is often used with the KABCO scale in 

NHTSA reporting. See Table 28 for guidelines on AIS coding. 

 

 

46 See, C.F., S.D. Schrock, and K. McClure, “Crash Analysis of Work-Zone Lane Closures with Left-Hand 

Merge and Downstream Lane Shift,” Paper #09-0979, DVD Compendium, Proceedings of 88th Annual 

Meeting, Transportation Research Board, Washington, DC, 2009. 
40 

Table 27. KABCO injury scale.

Code Severity Description

K Fatal Any injury that results in death within 30 days of crash occurrence 

A Incapacitating Any injury other than a fatal injury which prevents the injured person

from walking, driving, or normally continuing the activities the person 

was capable of performing before the injury occurred (e.g., severe 

lacerations, broken limbs, damaged skull) 

B Injury evident Any injury other than a fatal injury or an incapacitating injury that is 

evident to observers at the scene of the crash in which the injury 

occurred (e.g., abrasions, bruises, minor cuts) 

C Injury possible Any injury reported that is not a fatal, incapacitating, or nonincapacitating evident injury (e.g., pain, nausea, hysteria) 

O Property 

damage only 

Property damage to property that reduces the monetary value of that

property 

Table 28. Abbreviated injury scale.

Code Severity Description

AIS 6 Fatal Loss of life due to decapitation, torso transaction, massively crushed 

chest, etc. 

AIS 5 Critical Spinal cord injury, excessive second- or third-degree burns, cerebral 

concussion (unconscious more than 24 hours) 

AIS 4 Severe Partial spinal cord severance, spleen rupture, leg crush, chest wall 

perforation, cerebral concussion (unconscious less than 24 hours) 

AIS 3 Serious Major nerve laceration; multiple rib fracture, abdominal organ 

contusion; hand, foot, or arm crush/amputation 

AIS 2 Moderate Major abrasion or laceration of skin, cerebral concussion finger or toe 

crush/amputation, close pelvic fracture 

AIS 1 Minor Superficial abrasion or laceration of skin, digit sprain, first-degree burn, 

head trauma with headache or dizziness 

AIS 0 Uninjured No injury

2.4.3 38BMonetary Value of Crashes 

There are two approaches in assigning a monetary value for roadway crashes: 

 Human capital costs: Include those “hard dollar” costs related directly to the crash 

such as property damage, medical care, compensations and legal costs. Primary 

sources include NHTSA and the National Safety Council (NSC) bulletins. 

 Comprehensive costs: Include the intangible nonmonetary losses or consequences to 

individuals, families and the society, in addition to the human capital costs. Examples 

include the risk of loss of life, physical and mental suffering, diminished quality of 

life, and permanent cosmetic damage. Primary sources include USDOT estimatesP43F

47P of 

“Treatment of Value of Life and Injuries in Preparing Economic Evaluations” based on 

the economic value of a statistical life and the FHWA Technical Advisory (T 7570.2)P4F

48P, 

“Motor Vehicle Accident Costs.” 

 

47 USDOT, Treatment of the Value of Preventing Fatalities and Injuries in Preparing Economic AnalysesRevised Departmental Guidance, Memorandum, Office of the Secretary of Transportation, U.S. 

Department of Transportation, Washington, DC. 2009. 

http://ostpxweb.dot.gov/policy/reports/080205.htm

48 FHWA, Motor Vehicle Accident Costs, Technical Advisory T 7570.1, Federal Highway Administration, 

Washington, DC, 1994. http://safety.fhwa.dot.gov/facts_stats/t75702.cfm 
41 

The FHWA report, Crash Cost Estimates by Maximum Police-Reported Injury Severity 

Within Selected Crash Geometries, serves a comprehensive resource for obtaining both 

human capital and comprehensive costs.P45F

49P This report provides cost estimates for 22 scenarios 

of crash geometries, 2 vehicle speeds (≤ 45 mph, ≥ 50 mph), and 6 levels of KABCO crash 

severity rating combinations. Table 29 presents a sample of FHWA crash cost estimates for a 

given crash geometry in 2001 dollars. 49 To convert the cost estimates from 2001 dollars to 

the current year, human capital costs are adjusted using the CPI (all items). The adjustment 

to comprehensive cost is a two-step process: (1) the human capital cost portion of the 

comprehensive cost is adjusted using the CPI (all items), and (2) the remaining portion of the 

comprehensive cost is adjusted using the ECI (not seasonally adjusted, total compensation, 

total private industry). 

Table 29. Sample FHWA crash cost estimates in 2001 dollars. 

Crash 

Geometry 

Speed 

Limit 

(mph) 

Max. Injury 

Severity in 

Crash 

Max. Injury 

Severity 

Code 

Human Capital Cost 

per Crash 

Comprehensive Cost 

per Crash 

Mean Std. 

Err 

Mean Std. Err

Single 

vehicle 

struck 

human , at 

intersection 

<=45 No injury 0 $8,512 997 $10,249 1,408

<=45 B or C 1.5 $33,369 4,561 $60,333 9,021

<=45 A 3 $163,157 15,153 $316,380 33,532

<=45 K 4 $975,643 30,468 $3,234,016 114,015

<=45 Injured, 

severity 

unknown 

5 $67,342 22,127 $129,418 42,249

<=45 Unknown 9 $14,386 - $22,841 -

>=50 No injury 0 $3,672 - $4,015 -

>=50 B or C 1.5 $54,605 32,590 $101,712 61,756

>=50 A 3 $116,545 26,407 $189,805 36,182

>=50 K 4 $1,022,983 1,695 $3,404,944 2,819

>=50 Injured, 

severity 

unknown 

5 $61,573 - $146,281 -

<=50 Unknown N.A. N.A. N.A. N.A. N.A.

 

 

49 Council, F., E. Zaloshnja, T. Miller and B. Persaud, Crash Cost Estimates by Maximum PoliceReported Injury Severity Within Selected Crash Geometries, Report No. FHWA-HRT-05-051, Submitted 

to the Office of Safety Research and Development, Federal Highway Administration, 2005.
42 

Example 2.10: Computing crash costs

Assume that a highway agency is planning to reconstruct a 3-mile section of Route 101, a four-lane 

principal arterial in Green County, in 2012. The agency estimates that the work zone of the proposed 

project is expected to serve a two-directional annual average daily traffic (ADT) of 20,000 vehicles in 

2010, while the historic AADT values were 18000, 19000, and 19500 in 2007, 2008, and 2009. The 

speed limit of the roadway segment is 55 miles per hour. The estimated work zone duration is 60 days. 

The agency’s office of safety reports that there were 50 PDO incidents and 20 incidents involving 

injuries (no fatalities), as well as 2 fatalities over a 12-mile section of Route 101 in the past 4 years. 

No data are available on the crash geometry and severity of injury. Traffic estimates indicate that the 

roadway segment has carried more than 20 million vehicles in the past 3 years. 

The agency is planning to implement a single lane closure in each direction; however, to improve work 

zone safety, all fixed objects such as signs will be moved 10 feet away from the edge line. The agency 

typically uses the risk escalation factors reported in the CMF Clearinghouse. Assume that the agency 

applies 56 percent risk escalation for single lane closures and 62 percent risk reduction for relocating 

fixed objects. Estimate the work zone crash costs. 

Solution: 

UStep 1. Compute the pre-construction crash rate

ൌ ܴܥ

଺10 כ ܣ

365 כ ܶܦܣܣ כ ܮ כ ܶ

Length of roadway section (L) = 12 miles 

Analysis period (T) = 4 years (2007-2010) 

AADT in 2007 = 18,000 

AADT in 2008 = 19,000 

AADT in 2009 = 19,500 

AADT in 20010 = 20,000 

Total traffic volume (T*AADT) = 18,000+ 19,000+19,500+20,000 = 76,500 

Fatalities: 

Number of fatalities (AF) = 2 

Pre-construction crash rate – fatalities (Pre-CRF) = 2*106/(76,500*12*365) = 0.00597/MVMT 

Number of injuries (AINJ) = 20 

Pre-construction crash rate – injuries (Pre-CRINJ) = 20*106/(76,500*12*365) = 0. 05969/MVMT 

Number of property damage only (APDO) = 50 

Pre-construction crash rate – PDO (Pre-CRPDO) = 50*106/(76,500*12*365) = 0.14922/MVMT 

Step 2. Estimate the crash modification factor for single lane closure

Risk escalation for work zone crashes = 56% 

Crash modification factor for single lane closure (CMFR

SLCR) = 100% + 56% = 156% or 1.56 

Step 3. Estimate the crash modification factor for safety improvement counter measures (relocating 

fixed objects)

Risk reduction in work zone crashes = 62% 

Crash modification factor for countermeasures (CMFR

CMR) = 100% - 62% = 38% or 0.38 
43 

Step 4. Compute the work zone crash rate

Apply adjustment factors to pre-work zone crash rates to account for elevated risks resulting from 

work zone hazards and work zone safety improvement countermeasures. 

Work zone crash rate = pre-work zone crash rate * CMFR

SLC * CMFRCM

Work zone crash rate involving fatalities (WZ-CRF)= 0.00597 * 1.56 * 0.38 = 0.003538/MVMT 

Work zone crash rate involving injuries (WZ-CRINJ)= 0.05969 * 1.56 * 0.38 = 0.035384/MVMT 

Work zone crash rate for PDO (WZ-CRPDO)= 0.14922 * 1.56 * 0.38 = 0.088459/MVMT 

Step 5. Estimate the measure of work zone exposure

Work zone duration = 60 days 

ADT in 2010 = 20,000 vehicles per day 

Work zone traffic volume = 60 * 20,000 = 1,200,000 vehicles or 1.2 million vehicles 

Length of influence zone = 3.0 mile 

Million Vehicle Miles Traveled = 1.2 * 3 = 3.6 MVMT 

Step 6. Estimate the unit crash costs

Refer to FHWA crash estimates (Council et al., 2005) for crash costs. 

As the crash geometry is unknown, select Levels 5 and 6 for which cost estimates are provided 

with no regard to crash geometry. 

From Tables 12 and 14 of Council et al. report, estimate the human capital and comprehensives 

cost for a single crash. 

 Severity Human Capital Cost

(2001 dollars) 

Comprehensive Cost

(2001 dollars) 

Fatalities 

(Level 5, speed ≥ 50 mph & K) $ 1,277,640 $ 4,106,620 

Injuries 

(Level 6, speed ≥ 50 mph & A/B/C) $ 52,569 $ 98,752 

PDO 

(Level 5, speed ≥ 50 mph & No injury) $ 6,497 $7,800 

U

Step 7. Adjust unit crash costs from 2001 dollars to 2010 dollars

To convert the comprehensive cost estimates from 2001 dollars to current year, use Consumer 

Price Index (all items) and Employment Cost Index (ECI - not seasonally adjusted, total 

compensation, total private industry) from BLS website. Note that region-specific ECI statistics can 

be obtained for BLS geographic regions (i.e. Midwest or South Atlantic region). 

CPI Index Number in December 2001 = 177.1 

CPI Index Number in December 2010 = 218.056 

Adjustment Factor = CPI(2010)/ CPI(2001) = 1.2313 

ECI Index Number in December 2001 = 85.95 

ECI Index Number in December 2010 = 112.55 

Adjustment Factor = ECI(2010)/ ECI(2001) = 1.3095 

The comprehensive cost for a given crash type is adjusted as follows: 

Adjusted comprehensive cost = human capital cost * CPI(2010)/ CPI(2001) + 

 (comprehensive – human capital cost) * ECI(2010)/ ECI(2001) 
44 

The calculations are shown below: 

 Severity Adjustment Factor Comprehensive Cost

CPI ECI (2010 dollars) 

Fatalities 1.2313 1.3095 = ($1,277,640 * 1.2313)

 + ($4,106,620 -1,277,640)* 1.3095 

= $5,277,707 

Injuries 1.2313 1.3095 = ($52,569 * 1.2313) 

+ ($98,752 -$52,569)* 1.3095 

=$125,205 

PDO 1.2313 1.3095 = ($6,497 * 1.2313) 

+ ($7,800 -$6,497)* 1.3095 

=$9,706 

Step 8. Compute work zone crash costs for the project

The work zone crash costs are computed by multiplying the work zone crash rate (by crash severity) 

with vehicle miles traveled and the corresponding cost per event. 

Severity Crash rate/ 

MVMT 

MVMT Cost/event Crash cost 

Fatalities 0.003538 3.6 $5,277,707 $67,221 

Injuries 0.035384 3.6 $125,205 $15,949 

PDO 0.088459 3.6 $9,706 $3,091 

U

Total estimated crash costs for the project = $67,221 + $15,949 + $3,091 = $86,261 

Work zone crash costs for the Route 101 reconstruction project are $86,261 (in 2010 dollars).

2.5 14BEMISSION COSTS

Work zone activities have adverse effects on the environment through additional vehicle 

emissions resulting from reduced speeds and queuing. Vehicle emissions generally are 

categorized as: 

 Air Pollutant Emissions – Include those emitted directly into the atmosphere, such as 

carbon monoxide (CO), volatile organic compounds, particulate matter (PM10), oxides 

of nitrogen (NOX), oxides of sulfur (SOX), and those formed in the atmosphere from 

the directly emitted pollutants, such as ozone and acidic depositions. 

 Greenhouse Gases – Include those direct emissions that are not yet recognized as an 

air pollutants but trap heat within the atmosphere and thus contributing undesirable 

climatic effects, such as carbon dioxide (CO2). 

Table 30 presents the list of major factors affecting the level and type of vehicular 

emissions.P46F

50,

,51

 

 

50 Thompson, M., A. Unnikrishnan, A. J. Conway and C. M. Walton, A Comprehensive Examination of 

Heavy Vehicle Emission Factors, Report No. SWUTC/10/476660-00067-1, Southwest Region University 

Transportation Center, College Station, TX, 2010. 

51 Nesamani, K. S., Estimating Vehicle Emissions in Transportation Planning Incorporating the Effect of 

Network Characteristics on Driving Patterns, Ph.D. Dissertation, University of California, Irvine, 2007. 
45 

In WZ RUC analysis, the expected increase in emissions (ton/mile) by emissions type is 

estimated as a function of vehicle type, reduced work zone speed, and increased congestion 

due to queuing and detours. Once the emission rates for different types of vehicles are 

estimated, the emissions cost is calculated as a function of vehicles miles traveled (VMT) and 

unit costs ($/ton) by emissions type. The emissions cost component of WZ RUC is the 

differential between emissions cost resulting from work zone activities and the preconstruction emissions costs 

Emissions Cost = ∑ (VMT x Emissions Rate x Cost/ton) by Emissions Type 

WZ RUC Emissions Cost = Emission Cost (work zone) - Emission Cost (pre-construction) 

Procedures for estimating emission rates and cost per ton values are presented in sections 

2.5.1 and 2.5.2, respectively. 

Table 30. Factors affecting vehicular emissions.

Roadway 

Characteristics 

Traffic 

Characteristics 

Driver 

Characteristics 

Vehicle 

Characteristics 

Weather 

Characteristics 

 Number of 

lanes 

 Lane width 

 Sight distance 

 Horizontal 

curves 

 Vertical 

curves 

 Grades 

 Roadway type 

 Speed limits 

 Pavement 

quality 

 Signal 

coordination 

 Other traffic 

control 

measures 

 Volume 

 Capacity 

 Volume/ 

Capacity ratio

 Vehicle 

composition 

 Vehicle Speed

 Attitude

 Experience 

 Gender 

 Age 

 Aggressiveness 

 Driving modes 

 Age

 Mileage 

 Weight 

 Fuel type 

 Engine size 

 Engine type and 

cycle 

characteristic 

 Air to fuel mass 

ratio 

 Catalyst 

 Maintenance 

 Aerodynamics 

 Emission control 

devices 

 Temperature

 Humidity 

 Visibility

 Acceleration and 

deceleration 

characteristics 

2.5.1 39BEstimating Emissions Rates 

There are several models for estimating roadway emissions. Based on the input parameters 

and the methodology used, these models are broadly classified into: 

 Static emission factor models. 

 Dynamic instantaneous emission models. 

2.5.1.1 79BStatic Emission Factor Models 

Static emission factor models use emission factors (i.e., amount of pollutants released to the 

atmosphere for a given activity) to calculate emissions based on average operation 

conditions. These models typically include separate emission factors for a given speed and the 

type of vehicle (passenger cars, buses, light-duty trucks, medium-duty trucks, etc). These 
46 

models generally are suitable for estimating emissions in large-scale planning studies where 

the estimations based on average speed are highly accurate; however, these models are not 

sensitive enough to capture the actual driving conditions such as acceleration, deceleration, 

idling, and cruising cycles in a work zone. For instance, an emission factor model will 

estimate the same quantity of emission for a vehicle that traveled smoothly at 15 mph speed 

in a non-work zone free flow condition and a vehicle that traveled across the work zone at an 

average speed of 15 mph speed under queuing and forced flow conditions. This limitation is 

due to the fact that the models lack sophisticated algorithms and data to account for 

variations in speed and acceleration profiles. 

Notable examples include: 

 Mobile 6.2: This model, developed by the EPA, is used in most of the U.S. except 

California. It provides estimates of criteria pollutants, toxic pollutants, and particulate 

matter by vehicle class (covering 28 vehicle types), roadway type (freeways, arterial, 

ramp and locals), time of day, fuel options, vehicle operating parameters, and other 

characteristics. It accounts separately for start emissions and running emissions. 

Mobile 6.2 can be used as a standalone program, while an earlier version of Mobile 

(version 5.0) is implemented in QUEWZ-98. 

 EMFAC model: This model, developed by the California Air Resource Board (CARB), is 

used in California to estimate the emission rates for HC, CO, NOR

xR, PM, SOR2R, lead, and 

COR

2R, as well as fuel consumption. The model provides rates for each emission type as 

a function of vehicle speed. The latest version of the EMFAC model includes low 

emission vehicle standards and EPA Tier II standards. The California Life-Cycle 

Benefit/Cost Analysis Model (Cal-B/C) version 3.2, a spreadsheet, uses EMFAC emission 

factors to estimate highway emissions cost. Table 31 provides a sample of EMFAC 

emission factors used in the Cal-B/C program for automobiles and trucks. 

Table 31. EMFAC emissions factors (g/mi) used in Cal-B/C program – model year 2003. 

Speed 

Auto Trucks 

CO NOR

X PMR10 SORX VOC CO NORX PMR10 SORX VOC

5 16.97 1.39 0.10 0.01 1.97 31.44 16.57 0.71 0.12 3.60

10 14.25 1.21 0.07 0.01 1.48 26.81 15.19 0.63 0.12 3.18

15 12.23 1.07 0.06 0.01 1.18 20.51 13.11 0.51 0.11 2.58

20 10.79 0.97 0.05 0.01 0.99 16.68 11.70 0.42 0.11 2.19

25 9.75 0.90 0.04 0.01 0.88 14.29 10.80 0.36 0.11 1.93

30 8.98 0.86 0.04 0.00 0.80 12.78 10.28 0.31 0.11 1.74

35 8.42 0.83 0.04 0.00 0.75 11.83 10.08 0.28 0.11 1.62

40 8.02 0.81 0.03 0.00 0.72 11.27 10.18 0.25 0.11 1.53

45 7.77 0.81 0.03 0.00 0.71 11.00 10.59 0.23 0.11 1.47

50 7.66 0.82 0.03 0.00 0.70 10.98 11.35 0.22 0.11 1.42

55 7.71 0.84 0.03 0.00 0.71 11.19 12.54 0.21 0.11 1.40

60 7.97 0.88 0.03 0.00 0.73 11.69 14.30 0.20 0.11 1.38

65 8.51 0.94 0.03 0.00 0.76 12.55 16.87 0.20 0.11 1.38
47 

2.5.1.2 Dynamic Instantaneous Emission Models 

Dynamic emission factor models, otherwise called modal emission models, incorporate 

the effects of instantaneous changes in vehicle operating conditions in emission 

estimations. These models typically require extensive data for different operating 

scenarios at second-by-second intervals (Nesamani, 2007). Unlike emission factor 

based models, the dynamic models can accommodate changes in speed and 

acceleration profiles, and thus are suitable for applications at a micro-scale level. 

Many of these models have been integrated with traffic simulation models for 

evaluating the emission impacts of various traffic management strategies (Thompson 

et al., 2010). Notable examples of dynamic instantaneous emission models include: 

 Motor Vehicle Emission Simulator (MOVES): This model is the new generation, stateof-the-art modeling tool, developed by the EPA, for estimating emissions from highway 

vehicles at a detailed level. The current version of this model, MOVES 10a, replaces 

Mobile 6.2 as the approved tool for use in transportation conformity analyses outside 

of California (EPA, 2010).P49F

52P This model is capable of estimating emissions on both a 

macro-scale (e.g., county level) and a micro-scale (e.g., work zone level). The model 

also can calculate emissions for the time aggregation level chosen (year, month, day, 

or hour). For example, if the user selects the hour option, the model will estimate 

emissions for each hour of a day based on the specific inputs for that hour 

(temperature, speed distribution, etc.). The model accounts for running, start, 

extended idle, evaporative, crank case, tire wear, brake wear, and life cycle process. 

The vehicle classification used in MOVES10a is consistent with the classification used in 

the Highway Performance Monitoring System (HPMS). This model uses five different 

road types: off-network (parking lots, rest areas), rural highways with restricted 

access (i.e., can only be accessed by an on-ramp), rural highways with unrestricted 

accesses (arterials, connectors and local streets), urban highways with restricted 

access, and urban highways with unrestricted access. 

 Comprehensive Model Emission Model (CMEM): This model, developed under NCHRP 

Project 25-11, can estimate emissions of cars and small trucks produced as a function 

of the vehicle’s operating mode with high precision(Barth et al., 2000).P50F

53P This model is 

suitable for applications in project-level or corridor-specific transportation control 

measures (such as high-occupancy vehicle lanes), intelligent transportation systems 

(ITS) implementations (such as electronic toll collection), and traffic flow 

improvements (such as traffic signal coordination). 

 Mobile Emission Assessment System for Urban and Regional Evaluation (MEASURES): 

This model, developed at Georgia Institute of Technology and North Carolina DOT, 

estimates emissions using an approach based on geographic information system (GIS) 

data.

 

52 EPA, Technical Guidance on the Use of MOVES2010 for Emission Inventory Preparation in State 

Implementation Plans and Transportation Conformity, Report No. EPA-420-B-10-023, Office of 

Transportation and Air Quality, United States Environmental Protection Agency, April, 2010. 

http://www.epa.gov/otaq/models/moves/420b10023.pdf 

53 Barth, M., F.An, T. Younglove, G. Scora, C. Levine, M. Ross and T. Wenzel, Development of a 

Comprehensive Modal Emissions Model, Final Report, NCHRP Project 25-11, National Cooperative 

Highway Research Program, Transportation Research Board, Washington DC, 2000. 

http://www.cert.ucr.edu/cmem/docs/NCHRP_Final_Report.pdf 
48 

2.5.2 40BMonetary Value of Emissions 

Emission costs are social costs that are not borne directly by the road users but are estimated 

based on the impacts borne by the society in general. There is no consensus on how to assign 

a dollar value to quantify the impacts of each pollutant type. Unit costs of emissions typically 

used in practice are derived based on the economic analysis of health impacts caused by air 

pollutants and greenhouse gases. 

Furthermore, the unit costs of emissions vary widely with source-related factors such as 

population density and land cover of the work zone location. Metropolitan areas with high 

population densities are affected more strongly by adverse health impacts of emissions than 

rural areas, and hence, higher unit costs are used. Therefore, practitioners should use 

emission costs that reflect region-specific values developed by the regional planning agency 

for each emission type. Examples of unit cost sources of emissions include: 

 California Department of Transportation (Caltrans) estimatesP51F

54P - See Table 32. 

 HERS-ST Technical Report (2005) – See Table 33. In addition, Appendix F of the HERSST report provides dollar cost estimates per vehicle mile as a function of vehicle 

speed, vehicle type, and roadway functional class. 

There is no consensus on guidelines on updating the existing year dollars to current year 

prices. The commonly used approach is to adjust the emission costs using Implicit Price 

Deflators for Gross Domestic Product-Goods.55P53

, 56P 

Table 32. Caltrans estimates ($/U.S. ton) of health cost of transportation emissions in 

2010 dollars. 

Pollutant L.A./South Coast CA Urban Area CA Rural Area

Carbon Monoxide $135 $70 $65 

Nitrogen Oxide (NOx) $55,700 $16,300 $12,100

Particular Matter (PM10) $456,500 $131,800 $94,000

Sulfur Oxide (SOx) $171,500 $65,800 $47,500

Volatile Organic Compounds $3,465 $1,140 $895 

Greenhouse Gases (CO2)* $37

Note: (*) Federal Register 74 FR 28759 (06-17-2009) suggests that the estimate of $33 per 

metric ton of carbon cited on page VIII-45 of National Highway Traffic Safety Administration 

(NHTSA)’s analysis may be used as a placeholder to measure the global benefits of reducing 

U.S. CO2 emissions.P52F

57P

 

 

54 http://www.dot.ca.gov/hq/tpp/offices/ote/benefit_cost/eab-econ-valuations.html

55 California Life-Cycle Benefit/Cost Analysis Model (Cal-B/C) Technical Supplement to User’s Guide, 

Prepared by Booz Allen & Hamilton Inc., California Department of Transportation, Sacramento, 1999. 

56 Implicit Price Deflators for GDP can be obtained from Table 1.1.9 of the National Income and Product 

Account (NIPA) published by the Bureau of Economic Analysis. Using GDP deflators for adjustment 

treats emission costs as an economic product and will not capture the quality of life or well being. 

http://www.bea.gov/national/nipaweb/SelectTable.asp

57 NHTSA Final Regulatory Impact Analysis, Corporate Average Fuel Economy for MY 2011 

Passenger Cars and Light Trucks, published March 2009. 

http://www.nhtsa.gov/DOT/NHTSA/Rulemaking/Rules/Associated%20Files/CAFE_Final_Rule_MY2011_FRIA.pdf 
49 

Table 33. HERS-ST estimates of air pollutant damage costs in 2000 dollars. 

Pollutant Damage Costs 

($/ton) 

Adjustment Factors 

Urban Rural 

Carbon Monoxide $100 1 0.5 

Volatile Organic Compounds $2,750 1.5 1 

Nitrogen Oxides $3,625 1.5 1 

Sulfur Dioxide $8,400 1.5 1 

Fine Particulate Matter (PM2.5) $4,825 1 0.5 

Road Dust $4,825 1 0.5 

2.6 NETWORK/CORRIDOR LEVEL IMPACTS OF NEARBY PROJECTS

Work zone can have more pronounced impacts at the corridor, network, and regional level 

than at the immediate work zone itself, particularly for significant projects. Hence, the 

analysis of work zone impacts and associated WZ RUC computation should extend beyond the 

immediate work zone area. Practitioners can use the guidance provided in the FHWA Traffic 

Analysis Toolbox Volume IX in selecting a work zone modeling program or approach to 

quantify impacts on a wider scale.58 The impact assessment and associated WZ RUC at the 

corridor, network, and regional level can help an agency to coordinate transportation 

management strategies within and outside the agency. 

2.7 15BNON-MONETARY QUANTITATIVE AND QUALITATIVE FACTORS

In addition to monetary components, other work zone effects that impact the community atlarge are also taken into consideration. These factors are generally hard to monetize and 

therefore should be considered as non-monetary or qualitative factors in the decision-making 

process. The key non-monetary and qualitative factors include: 

 Noise 

 Business and societal impacts 

2.7.1 41BNoise 

Excessive noise resulting from work zone construction activities can have adverse effects on 

road users and other stakeholders. Noise can be a significant issue, especially with nighttime 

construction in residential and business areas, and may violate compliance of local ordinance 

requirements. Apart from general nuisance, excessive noise can pose health problems. 

Therefore, it is essential for highway agencies to estimate the work zone noise level and 

employ appropriate noise mitigation and work schedule strategies. Additional costs associated 

with noise mitigation strategies, such as the installation of noise barriers, should be 

considered in the MOT alternative analysis. 

Practitioners can utilize the FHWA Roadway Construction Noise Model (RCNM) in predicting 

noise for highway construction projects of varying complexity. The RCNM is a Windows-based 

 

58 Hardy, M. and K. Wunderlich, Traffic Analysis Tools Volume IX: Work Zone Modeling and Simulation—

A Guide for Analysts, Report No. FHWA-HOP-09-001, Office of Operations, Federal Highway 

Administration, Washington, DC, 2009. 

http://ops.fhwa.dot.gov/wz/traffic_analysis/tatv9_wz/index.htm 
50 

computer program that enables the prediction of construction noise levels for various 

construction operations while requiring no additional effort of collecting extensive projectspecific input data. The RCNM is based on a compilation of empirical data and the application 

of acoustical propagation formulas. The RCNM provides the estimation of maximum, average, 

and percentile statistics of sound level at a work zone event over a given period of 

observation time for up to 10 receptor locations and 20 pieces of construction equipment. 

Little information is available on monetizing the damage caused by construction noise. 

Delucchi and Hsu (1998) provide a theoretical basis and cost estimates for monetizing the 

external damage caused by noise emitted from motor vehicles under normal operating 

conditions.59 FHWA’s highway cost allocation study uses noise damage costs in estimating the 

share of highway costs that various highway users pay; however, these costs provide per mile 

rates (cents per mile) based on highway functional classification and vehicle type under 

normal operating conditions and do not account for work zone effects. 

2.7.2 2BBusiness and Local Community Impacts 

Work zones can affect accessibility to local business premises, thus adversely impacting local 

commerce. Many business owners are concerned about the potential negative impacts on 

their businesses, which may include:P54F

60

 Customer access and parking, and delivery access. 

 Parking issues. 

 Utility outages and disruptions. 

 Congestion and traffic pattern changes. 

 Temporary loss of customers. 

 Decrease in gross sales revenue and net profits. 

 Adverse impacts on full time and part time employment. 

 Decrease in property and land values. 

Highway agencies address the concerns of individual business owners by conducting business 

impact studies in the project development phase to identify critical needs and priorities of 

different types of businesses. Agencies then implement management strategies in the 

construction phase to mitigate these impacts. 

Wolffing et al. (2004) conducted a survey to identify how State highway agencies gather 

information and manage business owners’ concerns.P5F

61P This study found that most State 

agencies involve the business owners and other stakeholders early in the project development 

process through public information meetings/hearings. In some cases, agencies may involve 

local government officials or hire facilitators/liaison officers in the process before scheduling 

public information meetings. 

 

59 Delucchi, M. and S. Hsu, The External Damage Cost of Noise Emitted from Motor Vehicles, Journal of 

Transportation and Statistics, Bureau of Transportation Statistics, 1998. 

http://ntl.bts.gov/lib/9000/9100/9106/1deluc.pdf 

60 Wildenthal, M.T. and J.L. Buffington, “Estimated Construction Period Impact of Widening State 

Highway 21, in Caldwell, Texas,” Transportation Research Record No. 1559, Journal of the 

Transportation Research Board, Washington, D.C, 1996. 

61 Wolffing, C., J. Liesman, R. Young and K. Ksaibati, Highway Construction Related Business Impacts: 

Phase I Report, Report No. FHWA-WY-04/01F, Wyoming Department of Transportation, Cheyenne, WY, 

March 2004. 
51 

In addition to public meetings, agencies use strategies such as surveys with business managers 

and door-to-door visits with residents and business owners to gather information of local 

community and business impacts. The purpose of these meetings is to provide project 

information to business owners, answer questions about the project, and solicit inputs 

regarding potential concerns and impacts. The inputs gathered at these meetings often are 

incorporated as mitigation strategies in devising MOT alternatives. 

Local communities have similar concerns, such as issues related to resident access, decrease 

in property and land values, noise, and air pollution. The strategies used for gathering 

information of societal impacts are similar to those for gathering information on business 

impacts. Some agencies, such as Florida DOT, have a community awareness program for every 

project to involve with adjacent communities early in the process and address local 

conditions during construction. 

2.8 16BDATA REQUIREMENTS FOR WZ RUC MOBILITY ANALYSIS

This section presents a discussion of the input data required for conducting work zone 

mobility impact analysis. The following inputs are required to estimate or assess work zone 

mobility impacts for WZ RUC computation: 

 Hourly traffic demand. 

 Traffic composition. 

 Work zone capacity. 

 Travel speed. 

 Work zone configuration. 

 MOT strategy. 

2.8.1 4BHourly Traffic Demand 

Hourly traffic demand is the 24-hour hourly distribution of vehicles passing through the work 

zone in a single direction under normal operating conditions. The hourly variations can be 

obtained from actual traffic count measurements at the work zone site or estimated from the 

projected ADT using hourly distribution factors (percent of ADT during the specific hour). In 

determining hourly demand, distinctions should be made among weekday, weekend, and 

seasonal traffic patterns. The hourly demand also may vary between urban and rural 

roadways, by location, and among various functional classes. 

Hourly distribution factors can be determined by analyzing traffic data obtained from data 

collection devices such as WIM systems, automatic vehicle recorders (ATR), and accumulative 

count recorders (ACR). In the absence of such site-specific data, regional estimates, typical, 

or default hourly patterns can be used. Table 34 presents an example of hourly distribution 

factors used in MicroBENCOST for urban and rural highways. Using default hourly traffic 

patterns may not be representative of the actual project conditions and can be appropriate 

for preliminary analyses. 
52 

Table 34. Sample hourly traffic distribution factors. 

Hour of the 

Day 

Urban Rural 

Hourly 

Factors 

Percent 

Inbound 

Direction 

Percent 

Outbound 

Direction 

Hourly 

Factors 

Percent 

Inbound 

Direction 

Percent 

Outbound 

Direction 

0 - 1 1.20 47.0 53.0 1.80 48.0 52.0

1 - 2 0.80 43.0 57.0 1.50 48.0 52.0

2 - 3 0.70 46.0 54.0 1.30 45.0 55.0

3 - 4 0.50 48.0 52.0 1.30 53.0 47.0

4 - 5 0.70 57.0 43.0 1.50 53.0 47.0

5 - 6 1.70 58.0 42.0 1.80 53.0 47.0

6 - 7 5.10 63.0 37.0 2.50 57.0 43.0

7 - 8 7.80 60.0 40.0 3.50 56.0 44.0

8 - 9 6.30 59.0 41.0 4.20 56.0 44.0

9 - 10 5.20 55.0 45.0 5.00 54.0 46.0

10 - 11 4.70 46.0 54.0 5.40 51.0 49.0

11 - 12 5.30 49.0 51.0 5.60 51.0 49.0

12 - 13 5.60 50.0 50.0 5.70 50.0 50.0

13 - 14 5.70 50.0 50.0 6.40 52.0 48.0

14 - 15 5.90 49.0 51.0 6.80 51.0 49.0

15 - 16 6.50 46.0 54.0 7.30 53.0 47.0

16 - 17 7.90 45.0 55.0 9.30 49.0 51.0

17 - 18 8.50 40.0 60.0 7.00 43.0 57.0

18 - 19 5.90 46.0 54.0 5.50 47.0 53.0

19 - 20 3.90 48.0 52.0 4.70 47.0 53.0

20 - 21 3.30 47.0 53.0 3.80 46.0 54.0

21 - 22 2.80 47.0 53.0 3.20 48.0 52.0

22 - 23 2.30 48.0 52.0 2.60 48.0 52.0

23 - 24 1.70 45.0 55.0 2.30 47.0 53.0

2.8.2 45BTraffic composition 

A traffic stream typically includes various vehicle types—passenger cars, buses, single-unit 

trucks, tractor-trailers, and multi-trailer trucks. These vehicle types are associated with 

different usage, operating characteristics, and performance, and thus, have different vehicle 

operating costs and monetary values of time. Furthermore, heavy vehicles occupy more 

roadway space than passenger cars, affecting roadway capacity. Inputs for traffic composition 

can be categorized broadly as: 

 Number of passenger cars (vehicle classes 1 through 3 as defined in the FHWA TMG)P56F

62

o Small automobilesP57F

63

o Medium/large automobiles 

o Pickups & vans 

 Number of single-unit trucks (FHWA TMG vehicle classes 4 through 7) 

o Six-tire trucks 

o Three or more axle single-unit trucks 

 

62 Traffic Monitoring Guide, Report No FHWA-PL-01-021, Office of Highway Policy Information, Federal 

Highway Administration, Washington, DC, 2001. http://www.fhwa.dot.gov/ohim/tmguide/index.htm

63 Highway Economic Requirement System (HERS) considers small automobiles as smaller cars as 

opposed to FHWA vehicle class 1 (i.e. motorcycles). 
53 

 Number of combination trucks (FHWA TMG vehicle classes 8 through 13) 

o Three/four axle combination trucks 

o Five or more axle combination trucks 

Typical sources of data include an agency’s traffic monitoring programs and HPMS data 

inventories; in the absence of location-specific data, typical values representative of project 

conditions can be substituted. 

2.8.2.1 81BPassenger Car Units 

As heavy vehicles in the traffic stream occupy more physical space than passenger cars, these 

vehicles affect the number of vehicles that can be served on a roadway segment. Therefore, 

to allow a consistent measure of traffic flow in demand-capacity analysis, each heavy vehicle 

is converted into an equivalent number of passenger cars using a heavy vehicle adjustment 

factor called passenger-car equivalents (ER

T). This conversion depends on the proportion of 

heavy vehicles in the traffic stream as well as the geometric alignment of the roadway. 

Chapters 11 and 14 of the HCM 2010 present ER

TR values for multilane highways and highways 

respectively, for various terrain types and grade geometries.4TP

7,58

F

64P4T 

2.8.3 46BWork Zone Configuration 

Work zone configuration inputs required for WZ RUC analysis typically include: 

• Number of lanes in each direction. 

• Number of open lanes through the work zone in each direction. 

• Length of the lane closure. 

• Lane width. 

• Lateral clearance restrictions. 

• Turn restrictions. 

• Layout of project sequencing. 

• Availability and traffic characteristics of alternative routes. 

• Hours of lane closure (begin and end time). 

• Hours of work activity (begin and end time). 

• Signalization 

• Segment information – network information 

2.8.4 47BWork Zone Capacity 

Work zone capacity is defined as the maximum sustainable flow rate at which vehicles can 

pass a given point or uniform segment of a lane or roadway in a work zone during a specified 

period under prevailing roadway, traffic, and control conditions. Capacity usually is expressed 

as passenger cars per hour per lane (pcphpl) or vehicles per hour per lane (vphpl). 

The vehicle capacity of a facility is a function of roadway and traffic characteristics; the 

capacity is at the maximum under base conditions and uninterrupted traffic flow. The base 

 

64 Highway Capacity Manual 2010, Transportation Research Board, Washington DC, 2010. 
54 

conditions of a facility represent best possible characteristics at which no further 

improvements would increase vehicle capacity. Base conditions include factors such as the 

criteria for minimum lane width and lateral clearance, level terrain (less than 2 percent), 

free-flow speed, flow of passenger cars only, no direct access points along the segment, and a 

good, rideable surface. 

The capacity values (at base conditions) for various highway types are recommended in the 

HCM 2010. HCM 2010 also presents guidelines to determine reduction in capacity resulting 

from work zone activities. The suggested values are 1,600 pcphpl for short-term work zones 

and a range of 1,550 to 2,060 pcphpl for long-term work zones. 

As the prevailing conditions of a facility deviate from the base conditions, appropriate 

adjustments to the capacity must be made. Factors that warrant adjustments to the work 

zone capacity estimates include: 

 Work zone configuration. 

o Number of opened lanes. 

o Number of closed lanes. 

o Location of closed lanes (left or right). 

o Work zone grade. 

o Work zone length. 

o Lane width. 

o Area type (rural/urban). 

o Presence of ramps. 

 Traffic characteristics. 

o Effect of heavy vehicles. 

o Driver population. 

o Entrance ramp volume. 

o Lateral distance to the open travel lanes. 

o Work zone speed. 

o Platoon factor (i.e., fluctuation in capacity utilization). 

 Intensity of work activity. 

 Work zone duration (short term or long term). 

 Weather condition. 

 Work time (day or night). 

In addition to the HCM 2010 guidelines, there are numerous work zone capacity models 

available. Notable examples include (presented in chronological order): 

 Weng and Meng (2011)P59F

65P – Presents a decision tree model based on 16 influencing 

factors and 182 data sets from 14 States and cities. 

 Benekohal et al (2004)P60F

66P – Presents a methodology based on data from 11 work zone 

sites in Illinois. 

 

65 Weng, J. and Q. Meng, A Decision Tree-based Model for Work Zone Capacity Estimation, Paper No. 

11-0865, DVD Compendium, Proceedings of 90th Annual Meeting, Transportation Research Board, 

Washington, DC, 2011. 

66 Benekohal, R. F. A. Kaja-Mohideen, M. V. Chitturi, A Methodology for Estimating Operating Speed 

and Capacity in Work Zones, Transportation Research Record No. 1883, Journal of the Transportation 

Research Board, Washington, DC, 2004. 
55 

 Sarasua et al. (2004)P61F

67P – Presents a prediction model based on data from 22 short-term 

work zone sites along South Carolina's Interstate system. 

 Al-Kaisy & Hall (2002)P62F

68P – Presents a prediction model based on data from 7 long-term 

work zone sites in Toronto, Ontario. 

 Kim’s model (2001)P63F

69P – Presents a prediction model based on data from 12 work zone 

sites in Maryland. 

 Jiang, Y (1999)P64F

70P – Presents the findings of work zone capacity studies of 12 data sets 

from 4 work zone sites in Indiana. 

 Dixon et al. (1996)P65F

71P – Presents the findings of capacity studies of 24 short-term 

freeway lane closures in North Carolina. 

 Krammes & Lopez (1992)P6F

72P – Adopted in QUEWZ-98, Cited in HCM 2000 for short-term 

work zone capacity. 

 Dudek & Richards (1981)P67F

73P – Adopted in 1984 version of QUEWZ. Presents the findings 

of work zone capacity studies conducted in Houston and Dallas, Texas. 

2.8.5 48BTravel Speed 

Two key inputs required for delay-capacity analysis are the free-flow speed (adjusted to 

roadway conditions) and the work zone speed limit. Free-flow speed is the operating speed at 

which the traffic travels under normal operating conditions (when there is no work zone). 

Work zone speed limit is the posted speed limit in a work zone. At this speed, the vehicles are 

expected to travel the work zone with no queuing and reduction in posted speed limit. As the 

demand/capacity ratio approaches 1.0 (i.e., the demand reaches saturation levels), the 

travel speed decreases. When the demand exceeds available capacity, queuing can result. 

Average travel speed can be measured using radar, roadside detectors, traveltime runs, etc. Recently, agencies have also started using private sector data 

for this purpose.74

 

67 Sarasua, W. A., W. J. Davis, D. B. Clarke, J. Kottapally, P. Mulukutla, Estimating Interstate Highway 

Capacity for Short-Term Work Zone Lane Closures: Development of Methodology, Transportation 

Research Record No. 1877, Journal of the Transportation Research Board, Washington, D.C., 2004. 

68 Al-Kaisy, A. and F. Hall, Guidelines for Estimating Freeway Capacity at Long-Term Reconstruction 

Zones, CDROM Compendium, Proceedings of 81th Annual Meeting, Transportation Research Board, 

Washington, DC, 2002. 

69 Kim, T., D. J. Lovell, and J. Paracha, A New Methodology to Estimate Capacity for Freeway Work 

Zones, Paper No. 01-0566, CDROM Compendium, Proceedings of 80th Annual Meeting, Transportation 

Research Board, Washington, DC, 2001. 

70 Jiang, Y. Traffic capacity, Speed and Queue-discharge rate for Indiana’s Four-lane Freeway Work 

Zones. Transportation Research Record No. 1657, Journal of the Transportation Research Board, 

Washington, D.C.,1999 

71 Dixon, K. K., Hummer, J. E. and Lorscheider, A. R. Capacity for North Carolina Freeway Work Zones. 

Transportation Research Record No. 1529, Journal of the Transportation Research Board, Washington, 

D.C., 1996. 

72 Krammes, R. A. and G. O. Lopez, Updated Short-Term Freeway Work Zone Lane Closure Capacity 

Values, Report No. FHWA/TX-92/1108-5, Texas Department of Transportation, Austin, TX, 1992. 

73 Dudek, C. L. and S. H. Richards. Traffic Capacity through Work Zones on Urban Freeways. Report 

FHWA/TX-81/228-6, Texas Department of Transportation, Austin, TX, 1981. 

74 Eisele, B., Schrank, D. and T. Lomax, 2011 Congested Corridors Report - Appendix B, Texas 

Transportation Institute, College Station, TX, 2011. http://mobility.tamu.edu/corridors/methodology/ 
56 

2.8.6 49BMaintenance of Traffic Strategy 

MOT is a set of coordinated strategies to meet the traffic mobility and safety needs within a 

work zone. MOT traditionally has included temporary traffic control strategies and devices for 

managing work zone traffic; however, with the implementation of the FHWA Final Rule on 

Work Zone Safety and Mobility, the scope of MOT has expanded to include strategies for 

addressing public information and transportation operations needs for all projects with 

significant work zone impacts including Federal-aid projects.4TP68F

75, 69F76These strategies are grouped 

taxonomically as follows: 

 Temporary traffic control (TTC) strategies. 

o Traffic control strategies – include various traffic control approaches to 

accommodate road users within the work zone or the adjoining corridor in an 

efficient and safe manner, while providing adequate access to construction 

activities. 

o Traffic control devices – include various traffic control devices installed for 

maintaining work zone traffic as outlined in the MUTCD standards. 

o Project coordination, contracting, and innovative construction strategies – 

include coordination strategies with other projects and infrastructure elements 

(e.g., railroad, utilities). 

 Transportation operations strategies 

o Demand management strategies - include various strategies intended to reduce 

the volume of traffic traveling through the work zone. 

o Corridor/network management strategies- include various traffic operations 

techniques and technologies to optimize traffic flow through the work zone and 

adjacent roadways. 

o Work zone safety management strategies – include various devices, features, 

and management procedures to address work zone safety concerns. 

o Traffic/incident management and enforcement strategies – include various 

strategies to monitor traffic conditions and make adjustments as required to 

traffic operations based on changing conditions. 

 Public information strategies 

o Public awareness strategies - include various methods to educate and reach out 

to the public, businesses, and the community on the upcoming/ongoing project 

work zones and potential impacts. 

o Motorist information strategies – provide current and/or real-time information 

to road users regarding the project work zone. 

Tables 35 through 37 presents specific strategies classified under each of these groups.P70F

77P 

 

75 A significant project is one that, alone or in combination with other concurrent projects nearby is 

anticipated to cause sustained work zone impacts (or high level of disruption) that are greater than 

what is considered tolerable based on the respective agency’s policy and/or engineering judgment. The 

agency's work zone policy provisions, the project's characteristics, and the magnitude and extent of the 

anticipated work zone impacts should be considered when determining if a project is significant or not. 

76Frequently Asked Questions for the Work Zone Safety and Mobility Rule 

http://www.ops.fhwa.dot.gov/wz/resources/final_rule/rule_faqs.htm 77 Jeannotte, K., and A. Chandra, Developing and Implementing Transportation Management Plans for 

Work Zones, Report No. FHWA-HOP-05-066, Office of Transportation Operations, Federal Highway 

Administration, Washington, DC, 2005. 

http://www.ops.fhwa.dot.gov/wz/resources/publications/trans_mgmt_plans/trans_mgmt_plans.pdf
57 

Table 35. Work zone management strategies by category – temporary traffic control.

Traffic Control Traffic Control Devices Project Coordination, Con

Innovative Constru

 Construction phasing/staging  Full roadway closures  Lane shifts or closures 

o Reduced lane widths to 

maintain number of lanes (constriction) 

o Lane closures to provide 

worker safety 

o Reduced shoulder width to 

maintain number of lanes 

o Shoulder closures to provide 

worker safety 

o Lane shift to 

shoulder/median to maintain number of lanes 

 One-lane, two-way operation  Two-way traffic on one side of 

divided facility (crossover) 

 Reversible lanes  Ramp closures/relocation 

 Freeway-to-freeway interchange 

closures 

 Night work  Weekend work  Work hour restrictions for peak travel  Pedestrian/bicycle access 

improvements 

 Business access improvements 

 Off-site detours/use of alternate 

routes 

 Temporary signs

o Warning o Regulatory o Guide/ information 

 Changeable message signs  Arrow panels  Channelizing devices  Temporary pavement 

markings 

 Flaggers and uniformed 

traffic control officers 

 Temporary traffic signals  Lighting devices 

 Project coordination

o Coordination with o Utilities coordinato Right-of-way cooro Coordination with 

transportation infr

 Contracting strategies 

o Design-build o A+B bidding o Incentive/disinceno Lane rental 

 Innovative construction te

members, rapid cure mate

Source: Jeannotte and Chandra (2005)77
58 

Table 36. Work zone management strategies by category – transportation operations.

Demand Management Corridor/ Network Management Work Zone Safety Management Traffic/ Incide

and Enfo

 Transit service 

improvements 

 Transit incentives  Shuttle services  Ridesharing/carpooling 

incentives 

 Park-and-ride 

promotion 

 High-occupancy vehicle 

lanes 

 Toll/congestion pricing  Ramp metering  Parking supply 

management 

 Variable work hours 

 Telecommuting 

 Signal timing/ coordination 

improvements 

 Temporary traffic signals  Street/ intersection 

improvements 

 Bus turnouts  Turn restrictions  Parking restrictions  Truck/heavy vehicle 

restrictions 

 Separate truck lanes  Reversible lanes  Dynamic lane closure 

system 

 Ramp metering  Temporary suspension of 

ramp metering 

 Ramp closures  Railroad crossings controls  Coordination with adjacent 

construction site(s) 

 Speed limit reduction/ 

variable speed limits 

 Temporary traffic signals  Temporary traffic barrier  Movable traffic barrier 

systems 

 Crash-cushions  Temporary rumble strips  Intrusion alarms  Warning lights  Automated flagger assistance 

devices 

 Project task 

force/committee 

 Construction safety 

supervisors/inspectors 

 Road safety audits  TMP monitor/ inspection 

team 

 Team meetings  Project on-site safety 

training 

 Safety awards/incentives  Windshield surveys 

 ITS for traffic 

management 

 Transportatio

center 

 Surveillance  Helicopter for 

surveillance 

 Traffic Screen Call boxes  Mile-post mar Tow/freeway  Total station  Photogramme Coordination w Local detour r Contract supp

management 

 Incident/eme

management 

 Incident/eme

plan 

 Dedicated (p

enforcement 

 Cooperative 

enforcement 

 Automated e Increased pe

zone violatio

Source: Jeannotte and Chandra (2005)77
59 

Table 37. Work zone management strategies by category – public information.

Public Awareness Motorist Informat

 Brochures and mailers  Press releases/media alerts  Paid advertisements  Public information center 

 Telephone hotline  Planned lane closure web site  Project web site  Public meetings/hearings  Community task forces  Coordination with media/schools/ businesses/emergency services 

 Work zone education and safety campaigns  Work zone safety highway signs  Rideshare promotions  Visual information (videos, slides, presentations) for meetings and web 

 Traffic radio Changeable message signs  Temporary motorist inform Dynamic speed message si Highway advisory radio  Extinguishable signs  Highway information netw 511 traveler information s

handhelds) 

 Freight travel information  Transportation manageme

Source: Jeannotte and Chandra (2005)77
60 

2.9 TOOLS FOR WZ RUC COMPUTATION

Available WZ RUC computation tools can be categorized into two groups: work zone traffic 

analysis and economic analysis tools. 

2.9.1 Work Zone Traffic Impact Analysis Tools 

Traffic analysis tools help practitioners to understand and assess the mobility impacts of work 

zone strategies prior to deployment and monitor performance during construction. While the 

traffic analysis tools focus on quantifying the mobility impacts, a robust mobility analysis is 

often instrumental in the assessment of factors such as safety, economic, environmental and 

other work zone related impacts.P71F

78P The mobility impacts form the core for aggregating user 

delay costs, VOC, impacts to local businesses, and costs to the local agency.

Various traffic analysis tools are available for analyzing work zone related mobility impacts at 

various stages of a project. The FHWA Traffic Analysis Toolbox (TAT) provides detailed 

guidance on using various traffic analysis methodologies and tools.P72F

79P FHWA TAT organizes 

currently available tools into six categories: 

 Sketch-planning/HCM based methods. 

 Travel demand models. 

 Traffic signal optimization. 

 Macroscopic simulation. 

 Mesoscopic simulation. 

 Microscopic simulation. 

The following section limits the discussion to sketch-planning and HCM based tools. 

Selection of an appropriate traffic analysis tool for work zone impact analysis 

depends on factors such as project size, level of details needed, geographic 

scale, work zone configuration, and so on. More detailed guidance on tool 

selection is presented in Traffic Analysis Tools Volume IX: Work Zone 

Modeling and Simulation —A Guide for Analysts.

58

2.9.1.1 82BSketch-Planning and HCM Methodologies 

These tools utilize hourly traffic demand data and capacity analyses to estimate and quantify 

work zone impacts. These estimates may be less precise, owing to the simplistic approach 

adopted by these tools, and thus often are considered more appropriate for use in the early 

stages of a project. 

Some tools have advanced functionalities. For example, Quick Zone can handle delay impacts 

at the corridor level and facilitates tradeoff analyses between construction costs and delay 

costs, while CA4PRS is equipped to handle “what if” scenarios for highway rehabilitation to 

 

78 Hardy, M., and K. Wunderlich, Traffic Analysis Tools Volume VIII: Work Zone Analysis - A Guide for 

Decision-Makers, Report No. FHWA-HOP-08-029, Office of Operations, Federal Highway Administration, 

Washington, DC, 2008. 

79 FHWA Traffic Analysis Toolbox, http://ops.fhwa.dot.gov/trafficanalysistools/index.htm
61 

identify solutions that balance on-schedule construction production, traffic inconvenience, 

and agency costs. Commonly used sketch-planning and HCM based tools are listed in Appendix 

A, Volume I of the TAT.P73F

80P Notable examples include: 

 Spreadsheet-based tools. 

 QUEWZ-98. 

 Quick Zone. 

 CA4PRS. 

89BUSpreadsheet-based Tools

Several State DOTs have developed spreadsheet-based tools to analyze the traffic impacts at 

work zones. Typical examples include those developed by Arizona, Florida, Idaho, Illinois, 

Maryland, Michigan, Missouri New Jersey, Ohio, Pennsylvania, and Virginia. While most 

spreadsheet-based tools use analytical equations and HCM procedures, some tools use only 

simple mathematical formulae. 

12BIn addition to these general capabilities, some spreadsheet-based tools possess unique 

functionalities tailored to a particular agency’s needs. Some of the salient features are 

summarized as follows: 

 Maryland’s Loss of Public Benefit (LOPB) spreadsheet can estimate crash costs and has 

a separate module for temporary signal and flagging operations. 

 Florida’s spreadsheet can perform demand-capacity analysis for two-lane, two-way 

operations, and urban streets. This tool includes formulae for calculating crash costs 

and a general impact factor to adjust the overall WZ RUC results. 

 Illinois's tool is equipped with an improved queuing analysis methodology calibrated 

using field data from 13 work zones. This approach includes separate speed-flow 

curves for work zones with speed limit of 45 mph and a flagger, work zones with speed 

limit of 45 mph and without a flagger, and work zones with speed limit of 55 mph. 

 Highway User Benefit-Cost Analysis Program (HUB-CAP), a Virginia DOT benefit-cost 

analysis spreadsheet tool, includes a comprehensive crash cost estimation tool based 

on the KABCO crash severity scale. This tool also includes look-up tables of source 

information used for deriving unit costs. 

 The Construction Congestion Cost (CO3) tool, developed for Michigan DOT, has an 

additional module for analyzing the impact of different construction methods on 

construction costs. This module includes individual components for calculating project 

costs associated with labor, equipment, materials, traffic control, and project-related 

agency costs. Notable among them is the labor cost component, which takes the fixed 

mobilization costs and productivity-based variable labor wage costs into account for 

standard and overtime conditions. 

 Oregon DOT has replaced its spreadsheet-based package with a web-based tool, Work 

Zone Traffic Analysis Tool (WZTA), that allows users to access location-specific traffic 

data, free flow capacity, and vertical and horizontal geometric features of the work 

zone location and generate delay times and queue length for a user-specified lane 

closure period. 

 

80Alexiadis, V., K. Jeannotte and A. Chandra, Traffic Analysis Toolbox Volume I: Traffic Analysis Tools 

Primer, Report No. FHWA-HRT-04-038, Office of Operations, Federal Highway Administration, 

Washington, DC, 2004. http://ops.fhwa.dot.gov/trafficanalysistools/tat_vol1/sectapp_a.htm
62 

 Colorado DOT uses a standalone program, Work Zone-RUC that possesses typical 

capabilities of a spreadsheet-based tool. This tool contains productivity rates (number 

of estimated days to complete a specific unit of work) for typical highway construction 

related activities. It also allows adjustments to lane capacity based on the activity 

type, lateral distance to obstruction, and geometric features of the work zone 

location. It allows only two types of MOT strategies: crossovers and single lane 

closures. 

Figures 04 through 07 present screenshots of some spreadsheet tools. 1

Figure 4. Sample screenshot from the New Jersey DOT spreadsheet tool. 

Figure 5. Sample screenshot from the Colorado WZ RUC program with input screens (left) and 

the productivity rates for various highway construction activities and the corresponding lane 

capacity adjustment values (right). 

Worksheet 3.5: Road User Costs

3.5(A) 3.5(B) 3.5(C) 3.5(D) 3.5(E) 3.5(F) 3.5(G) 3.5(H)

Road User Cost Component Vehicle 

Class

Percent 

Class 

(%)

Total 

Vehicles 

(#)

Added Travel 

Length 

(mile/veh)

Added 

Time 

(hr/veh)

Cost 

Rate 

($/veh-hr, $/mile)

Road User 

Cost 

($)

Queue Delay CAR 90 27,900 0.109 12.75 34,897

(Added Time) TRUCK 10 27,900 0.109 21.25 6,462

Queue Idling VOC CAR 90 27,900 0.109 0.6821 1,867

(Added Cost) TRUCK 10 27,900 0.109 0.7845 239

Work Zone Delay CAR 90 50,000 0.012 12.75 6,885

(Added Time) TRUCK 10 50,000 0.012 21.25 1,275

Circuity Delay CAR

(Added Time) TRUCK

Circuity VOC CAR

(Added Cost) TRUCK

Total Vehicles that Travel Queue: 27,900 Daily Road User Cost 51,625

Total Vehicles that Travel Work Zone: 50,000 Calculated Road User Cost (CRUC) 25,813

Total Vehicles that Travel Detour: 0 Number of Work Zone Days 75

Percent Passenger Cars: 90% Total Road User Cost 1,935,938

Percent Trucks: 10%

Project: EXAMPLE #1 Date: July 1999

Description: 24 Hour Lane Reduction
63 

Figure 6. Sample screenshot from the Maryland LOPB tool, showing work zone flagger 

operation inputs. 

Figure 7. Sample screenshot from the Michigan CO3 spreadsheet, showing the construction 

cost module. 

CONSTRUCTION COST SHEET Project:

By: important

Other:

CONSTRUCTION COST Standard Case Alternative 1 Alternative 2 Alternative 3

General Input method

contract cost ($) NA NA NA

lane-closed days (day) NA NA NA

lane-closed days per work day 1.00 1.00 1.00 1.00

lane-closed hours per day (hr/day)

relative productivity 1111

Labor Cost

labor cost % NA NA NA

fixed mobilization (standard crew hr) 0.00 0.00 0.00 0.00

shifts 1.00 1.00 1.00 1.00

crews per shift 1.00 1.00 1.00 1.00

workers per crew (relative) 1.00 1.00 1.00 1.00

productive hours per shift (hr)

paid hours per shift (hr) 10.00 10.00 10.00 10.00

% premium time 0% 0% 0% 0%

premium cost ($PT/$ST) 1.40 1.40 1.40 1.40

workers (relative) 1.0 1.0 1.0 1.0

Copy This 
64 

Inputs and Outputs 

The basic inputs required for spreadsheet-based tools are: 

 Work zone configuration- total number of lanes, number of closed lanes, lane width, 

normal and work zone speed, period of lane closure, normal and work zone lane 

capacity, etc. 

 Traffic – hourly traffic demand, percent trucks, etc. 

 Unit costs - hourly cost of travel delay, VOC for various vehicle types, etc. 

The typical outputs reported by spreadsheet-based tools are travel delay time, number of 

queued vehicles, queue lengths, and in some cases, crash costs and emission estimates. 

QUEWZ-98

Developed for the Texas DOT, QUEWZ-98 is a DOS-based analysis tool for evaluating freeway 

work zone lane closures. This tool simulates traffic conditions on a freeway segment with and 

without a lane closure in place and provides estimates of the queue lengths and additional 

road user costs resulting from work zone lane closures. The computed WZ RUC include travel 

time costs, VOC, and excess emissions. QUEWZ-98 can be used to identify time schedules for 

lane closures that will not produce excessive queue lengths and delays. 

QUEWZ-98 has two output options: 

• RUC option - this option analyzes a user-specified lane closure configuration and 

schedule of work activities. The outputs include estimates of traffic volumes, 

capacities, speeds, queue lengths, emissions, and additional road user costs for each 

hour affected by the lane closure. 

• Lane closure schedule option - this option summarizes the hours of the day for a given 

number of closed lanes without causing user-defined excessive queuing. 

91BUQuickZone

Developed by FHWA, QuickZone is a sketch-planning tool for analyzing work zone mobility 

impacts such as traffic delays, queuing, and associated delay costs. The tool uses a link-node 

system for network layout and configuration and a deterministic delay estimation algorithm 

to estimate traffic delays and queuing. 

This tool can be used in quantifying delay at the corridor level resulting from work zone 

related mobility constraints, identifying the mobility impacts of alternative project phasing 

plans, evaluating the impacts of various construction staging strategies, and supporting 

tradeoff analyses between construction costs and delay costs. 

18BCapabilities 

QuickZone can estimate travel delay time, queuing, and delay costs per vehicle hour for not 

only the roadway segment under work zone but also all available alternative segments of the 

roadway network defined in the program. This tool can be used in estimating traffic delays, 

potential backups, and associated delay costs for both an average day of work and for the 

whole life cycle of construction. 
65 

19BInputs and Outputs 

QuickZone requires the following data for evaluating mobility impacts in work zones: 

 Network (Nodes and Links) - a network of nodes and links, segment (link) capacity, 

segment length, free-flow speed, and jam density. 

 Traffic volume - hourly demand for each link and each day of a week. 

 Project Information - project description, start date, project duration, yearly demand 

increase, yearly capacity decrease. 

 Construction Phase Data - phase description, duration, infrastructure cost. 

 Work Zone Plan - work zone start and end times, links and nodes affected by work 

zone, mitigation strategies, travel behavior (mode change, trip cancellation). 

QuickZone reports the following outputs: 

 Delay Graph - delay graphs comparing up to six phases of the project for the whole or 

any day of the week or delay graph for just a single phase. 

 Travel Behavior Summary - a summary of the number of vehicles that choose one of 

the four travel behaviors determined for each phase: cancel trip, mode shift, hour 

time shift, and takes detours. 

 Life Cycle Costing Graph - a summary of both delay and infrastructure costs for the 

project by year. 

 Summary Table - provides estimates of queue length, delay, travel behavior, and 

costs. The table provides average, total, or maximum values for each phase as well as 

for the individual work zone plans within each phase. 

Advantages and Disadvantages 

Unlike similar spreadsheet based tools, QuickZone is capable of modeling the entire network 

for work zone mobility impact analysis. In addition, the tool evaluates traveler behavior to 

prevailing traffic conditions such as route changes, peak-spreading, mode shifts, and trip 

losses. While the interface is simple and easier to use, it may require more time and effort 

than similar spreadsheet-based tools.P75F

81

92BUCA4PRS

CA4PRS is a construction schedule, staging, and traffic analysis tool that helps to identify 

optimal rehabilitation strategies by balancing project duration, lane closure strategies, and 

road user impacts. The traffic analysis module quantifies the impact of various work zone 

lane closure strategies on the traveling public in terms of WZ RUC and travel delay time, 

while the scheduling module estimates the required number of lane closures for project 

completion by taking into account the alternative strategies for pavement designs, lane 

closure tactics, and contractor logistics. The tool employs “what if scenarios” to determine 

which rehabilitation strategies maximize production without creating unacceptable traffic 

delays.P76F

82P 

 

81 Edara, P., Estimation of Traffic Impacts at Work Zones: State of the Practice, Report No. VTRC 06-

R25, Virginia Department of Transportation, Richmond, VA, 2006. 

82 Lee, E. B., and C. W. Ibbs, Computer Simulation Model: Construction Analysis for Pavement 

Rehabilitation Strategies, ASCE Journal of Construction Engineering and Management, Vol. 131, No. 4, 

2005. 
66 

Capabilities 

The CA4PRS tool can be used in establishing schedules, developing staging construction plans, 

estimating cost (A) + schedule (B) contracts, and calculating incentive and disincentive 

specifications for contracts. CA4PRS uses an HCM-based demand-capacity algorithm for 

quantifying mobility impacts; this tool also can be integrated with macro and microscopic 

traffic simulation tools to estimate road user delay costs arising from construction. 

12BInputs and Outputs 

CA4PRS uses the following input variables in evaluating “what-if” scenarios: 

 Work zone constraints - number of lanes before and during construction, number of 

partial or full lane closures, roadway capacity, traffic composition, hourly demand, 

unit costs for delay time and VOC, lane width, lateral clearance. 

 Construction window - nighttime closures, weekend closure, continuous closure, or 

combinations of the above. 

 Pavement strategy – portland cement concrete (PCC) reconstruction, asphalt overlay 

of crack and seat PCC, or full-depth asphalt concrete replacement. 

 Material constraints - concrete mix design and curing time or asphalt cooling time for 

asphalt 

 Pavement cross section - thickness of new concrete or asphalt concrete, concrete 

pavement base types. 

 Contractor’s logistical resource constraints - location, capacity, and numbers of 

rehabilitation equipment available (paver, batch plant, delivery and hauling trucks). 

 Scheduling interfaces - mobilization/demobilization time, traffic control time, and 

activity lead-lag time relationships (e.g., lag time from demolition to PCC pavement 

installation), and buffer sizes. 

The outputs reported by CA4PRS include: 

 Mobility impacts - maximum delay time and queue length before and during 

construction. 

 Road user costs - daily, per closure and total road user costs. 

 Project costs - pavement, non-pavement and indirect costs. 

 Traffic handling and management costs - daily traffic handling, extra TMP and incident 

management costs. 

Figure 8 presents a sample screenshot showing lane closure analysis of I-80 pavement 

rehabilitation project using CA4PRS.P7F

83

Advantages and Disadvantages 

The primary advantage of CA4PRS is its capability to perform comprehensive analysis for WZ 

RUC computations by integrating traffic mobility analysis with construction scheduling, 

constructability and logistics, and pavement rehabilitation alternatives. It supports decision 

making by identifying the resource bottleneck limiting the project acceleration and allows 

users to specify the type of operations, concurrent or sequential. Another advantage is its 

 

83 Pyeon, J. H., and E. B. Lee, "CA4PRS Application for Determination of Incentive/Disincentive Dollar 

Amount," CA4PRS Peer Exchange Workshop, St. Louis, MO, 2010. 
67 

ability to verify contractor submitted schedules. This tool can be used in conjunction with 

macroscopic or microscopic simulation tools for wider coverage of work zone influence and 

more in-depth impact analysis. 

The current version of CA4PRS (version 2.5) is limited to pavement rehabilitation activities. 

Future versions of this tool plan to extend its scope to roadway widening, bridge and 

interchange replacement and include life-cycle cost analysis. WZ RUC computation using this 

tool is limited to travel delay costs and VOC; it does not compute emission or crash costs. 

12B

Figure 8. Sample screenshot showing lane closure analysis using CA4PRS. 

2.9.1.2 8BWork Zone Traffic Analysis Tools used by State DOTs 

State DOTs typically use more than one tool for evaluating work zone impacts. These agencies 

typically use sketch-planning and HCM–based tools for projects where: 

 The work zone mobility, safety, and economical impacts are expected to be low to 

moderate. 

 The proposed work zone has limited impacts on the network. 

 The agency resources are limited. 

 The project completion time is not a major factor. 

 Rough estimation of performance measures is sufficient. 

State agencies also use sophisticated traffic analysis tools, such as microscopic and 

mesoscopic simulation tools, for projects where: 
68 

 The work zone mobility, safety, and economical impacts are expected be high. 

 The work zone impacts are expected over a large geographic area. 

 The project completion time is a critical factor. 

 Accurate estimation of performance measures is a requirement. 

Table 38 provides a partial list of traffic analysis tools used by various State DOTs. 

86F

84,87F85

Table 38. Traffic analysis tools used by State DOTs. 

State RUC-specific Non-RUC Specific (traffic analysis only)

California CA4PRS86 HCM, SYNCHRO

Colorado WorkZone RUC N.A.

Delaware N.A. HCS, spreadsheet , Quick Zone, SYNCHRO 

District of 

Columbia 

QuickZone, QUEWZ-98, SYNCHRO/SimTraffic, CORSIM 

Florida FDOT RUC N.A.

Hawaii N.A. HCM

Illinois DOT-specific spreadsheet, 

Quickzone 

N.A.

Iowa QuickZone N.A.

Kansas N.A. HCM, Travel Demand Models, Simulations 

Maryland LOPB, LCAP HCS, SYNCHRO, CORSIM

Massachusetts N.A. HCS, SYNCHRO, SIDRA, Transyt-7F, TSIS-CORSIM, 

GDOT Roundabout Analysis Tool, VISSIM 

Michigan CO3 HCM, SYNCHRO

Missouri QuickZone MoDOT Work Zone Impact Analysis Spreadsheet, 

VISSIM, CORSIM, SYNCHRO 

New Hampshire QuickZone HCM, SYNCHRO

New Mexico N.A. HCM and Simulation

New Jersey DOT-specific spreadsheet N.A.

New York State QuickZone, AASHTO User 

Benefit Analysis 

CORSIM

North Carolina QUEWZ-98 in-house detour and flagging programs 

Ohio DOT-specific spreadsheet

Oklahoma N.A. HCM-based spreadsheet

Oregon N.A. Work Zone Traffic Analysis Tool 

Pennsylvania DOT-specific spreadsheet

Rhode Island N.A. HCM, QuickZone

Texas RUC Tables PASSER V

Utah N.A. HCM, SYNCHRO, VISSIM

Virginia HUB-CAP N.A.

Washington QUEWZ-98 SYNCHRO

Wisconsin N.A. HCM w/spreadsheet, Quadro, SYNCHRO 

Tennessee N.A. HCM, Web-based Queue/Delay Prediction Model

Wyoming N.A. HCM, SYNCHRO

AASHTO = American Association of State Highway and Transportation Officials. 

 

84 http://www.mhd.state.ma.us/downloads/trafficMgmt/TrafficAnalysisToolsGuide.pdf

85 Work Zone Traffic Analysis Strategies Webinar, Recording, FHWA/National Transportation Operations 

Coalition, July 9, 2008. http://www.ops.fhwa.dot.gov/wz/traffic_analysis/index.htm 86 CA4PRS has been used in several other States, such as Minnesota, Oklahoma, Utah, Virginia, and 

Washington State. 
69 

2.9.2 51BEconomic Analysis Tools 

Economic analysis tools help decision makers to identify and quantify the value of economic 

costs and benefits of highway projects/programs over a multi-year period. These tools allow 

highway agencies to utilize the available resources to their best for maximizing benefits to 

the public.P90F

87P Notable examples of economic analysis tools are discussed below. 

9BURealCost

RealCost is a tool for conducting life cycle cost analysis in pavement design. Developed by the 

FHWA, this tool can be used for selecting a cost-effective pavement alternative among 

competing alternatives that offer essentially identical benefits. RealCost has a built-in tool 

for capacity flow analysis and for calculating road user costs associated with establishing a 

work zone. The capacity flow analysis is based on the traffic flow concepts presented in the 

1994 edition of the HCM. 

RealCost version 2.5 allows users to compute travel delay costs and VOC. Though illustrated in 

the interim technical bulletin, the computation of crash costs is not yet implemented in the 

software. RealCost has adopted the approach presented in NCHRP Report 133 for computing 

travel delay costs and VOC. Figure 9a presents a RealCost screenshot illustrating the hourly 

traffic demand and capacity analysis, lane closure timings, and resulting queue conditions for 

a typical work zone project. Figure 9b presents an example of various WZ RUC components 

computed for that project. 

HERS-ST

HERS-ST is a benefit-cost analysis tool for selecting an economically efficient highway 

investment alternative among competing alternatives based on their potential impacts on 

highway condition, performance, and users. The benefits include reductions in user costs, 

agency maintenance costs, and externalities over the life of the improvement, while the costs 

include initial capital costs of the improvement. HERS-ST is designed to select only those 

projects where benefits will exceed initial costs. Developed by FHWA, HERS-ST has a suite of 

comprehensive submodels for computing various cost components of WZ RUC, including crash 

and emission costs. 

MicroBENCOST

MicroBENCOST, developed under NCHRP Project 7-12, is an economic analysis tool for 

calculating road user benefit and costs of highway investments on a wide range of projects 

from individual intersection improvements to major road upgradings and construction of new 

roads. MicroBENCOST allows computation of travel delay costs, VOC, safety costs, and 

emission costs (considers the estimation of carbon monoxide only) for various work zone lane 

closure scenarios. Figure 10 presents a screenshot of work zone impact analysis functionalities 

of MicroBENCOST for use in WZ RUC computation. 

BCA.Net

BCA.Net is the FHWA’s web-based benefit-cost analysis tool to support the highway project 

decision making process. The tool evaluates the economic merits of investment alternatives 

by comparing their relative costs and benefits. BCA.Net takes the capital costs, physical and 

performance characteristics, and forecast travel demand for the evaluation of a highway 

project. 

 

87 Economic Analysis Primer, Office of Asset Management, Federal Highway Administration, U.S. 

Department of Transportation, August 2003. 
70 

The user specifies strategies for improvements and maintenance for a base case and an 

alternate case. The tool performs traffic impact analysis and calculates the agency and user 

costs and benefits for each case. The expected benefits and costs are compared on a time 

scale (i.e., discounted using the time value of money concept) to calculate the net benefits. 

The results of the simulation include various measures of economic worth such as the net 

present value, benefit-cost ratio, and internal rate of return for both base and alternate 

cases. For user costs, the BCA.Net tool is capable of calculating the following components: 

delay costs, VOC, crash and emission costs. Figure 11 presents a screenshot of RUC analysis 

functionalities of BCA.Net. 

a. An example of work zone traffic analysis illustrating lane closure timings and queuing 

conditions. 

b. An example showing computed RUC components for a typical work zone project. 

Figure 9. Screenshot showing the WZ RUC analysis in RealCost version 2.5. 

Cost Component Cost ($1000) Percent

WZ Speed Change VOC $3.90 0%

WZ Speed Change Delay $1.67 0%

WZ Reduced Speed Delay $3.66 0%

Queue Stopping Delay $22.73 2%

Queue Stopping VOC $40.49 4%

Queue Added Travel Time $921.75 86%

Queue Idle Time $77.00 7%

Total Cost $1,071.20 100%

Step 7 - Sum User Costs
71 

Figure 10. Screenshot showing the work zone analysis functionalities of MicroBENCOST. 

Figure 11. Screenshot showing the RUC analysis functionalities of BCA.Net. 
72 

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73 

CHAPTER 3.2BAPPLICATION OF WZ RUC DURING MOT 

ALTERNATIVE ANALYSIS 

3.1 18BOVERVIEW

A MOT strategy is a temporary application of traffic control measures and devices to facilitate 

road users through work zones. The functions of a MOT strategy are to (1) provide reasonably 

safe and effective movement of traffic through or around the work zones, (2) reasonably 

protect road users, workers, responders to traffic incidents, and equipment, and (3) facilitate 

the efficient completion of the highway construction activities. 

A temporary traffic control strategy can be enhanced into a comprehensive TMP by adding 

features such as construction staging, phasing, safety improvements, enforcement of traffic 

regulations, incident management, public involvement and outreach programs, traffic 

operations at the corridor or network level, non-traditional contractual arrangements, and 

innovative construction techniques. 

MOT alternative analysis is an assessment of competing strategies to determine one that best 

mitigates the adverse mobility, safety, environmental, business, and community impacts of a 

construction work zone at reasonable agency and WZ RUC. The analysis considers potential 

benefits, costs, and constraints associated with each feasible alternative and their 

effectiveness in managing work zone impacts. 

The selection of an MOT alternative for a project depends on factors such as the significance 

of mobility and safety impacts, project type and complexity, urban/rural location, 

construction factors, constructability constraints, agency and road user costs, agency policies, 

and aspects of the surrounding area (e.g., availability of alternate routes, nearby businesses). 

Therefore, to devise an effective MOT strategy, it is imperative to take these influencing 

factors into consideration in a systematic manner on a project-by-project basis. 

3.2 19BMAINTENANCE OF TRAFFIC ALTERNATIVE ANALYSIS

The MOT alternative analysis evolves over the various stages of project development. In the 

planning stage, the agency conducts a cursory qualitative assessment to evaluate the 

criticality of the proposed work zone impacts as well as the system needs, constraints, and 

deficiencies (e.g., agency policies or resource availability). Based on the impact assessment, 

a decision is made whether there is a need for conducting a detailed MOT alternative 

analysis. For projects with low to moderate impacts, the agency may find conventional 

strategies adequate (e.g., permitted lane closure timings), while the projects with significant 

impacts may require a more detailed impact assessment and MOT alternative analysis. 

In the preliminary engineering stage, candidate MOT strategies are identified based on the 

potential design, construction techniques, phasing, and contracting strategies. Quantitative 

analysis of work zone impacts is conducted at this point using sketch-planning tools and 

deterministic tools to analyze the effectiveness of each candidate strategy. For projects with 

low to moderate impacts, this level of analysis would suffice. For more complex projects with 

significant impacts, simulation tools can be employed. 
74 

The agency sets performance goals (threshold values) for each performance measure based on 

agency policies and project-specific needs to ensure a minimum acceptable level of work 

zone performance. The expected benefits, costs, and constraints associated with each 

candidate alternative are evaluated against the performance thresholds, and against each 

other, and ranked to determine the preferred alternative. Based on this evaluation, an 

alternative that best meets the criteria is selected as the preferred alternative using decision 

analysis tools. 

In the design stage, a further work zone impacts assessment is conducted, if required, to 

finalize the preferred MOT strategy. The design and construction details are refined as the 

project progresses from preliminary engineering and design stages, and therefore, inputs and 

assumptions used in the MOT alternative analysis will have to be revised accordingly. 

In the construction stage, unforeseen situations such as a change in the original construction 

schedule, construction technique, or the TMP may warrant reassessing the selected MOT 

strategy or reanalyzing the work zone impacts. The contractor also may propose value 

engineering solutions to the selected MOT strategy. 

The steps involved in the MOT alternative analysis process are listed below and discussed in 

greater detail in the following sections: 

1. Perform preliminary analysis of work zone impacts using available project information. 

2. Identify the need for MOT alternative analysis based on preliminary analysis of work 

zone impacts. If there is a need for MOT alternative analysis, go to Step 3. 

3. Identify candidate strategies for MOT alternative analysis. 

4. Identify performance measures and thresholds. 

5. Conduct detailed analysis of work zone impacts when the final design is complete. 

6. Use Kepner-Tregoe method to select a preferred MOT strategy. 

3.2.1 52BPreliminary Assessment of Work Zone Impacts (Step 1) 

MOT alternative analysis typically begins with a cursory assessment of work zone impacts in 

the early planning stages of the project. The available information on project scope and 

duration, roadway/traffic characteristics, and other contributing factors (local communities, 

businesses, traveling public, etc.) is compiled and evaluated. More detailed discussion can be 

found in the FHWA’s guidance on the work zone impact assessment.9

Though qualitative in nature, this assessment evaluates how the proposed work zone will 

affect the mobility, safety, and economical impacts of the traveling public and the 

community at large. It provides a general sense on the magnitude of work zone impacts, 

which are in turn used to establish the significance of the project type and the need for 

conducting a detailed MOT alternative analysis. 

The assessment helps to identify issues relating to project scheduling, potential construction 

approaches and contractual arrangements, funding constraints, availability of agency 

resources and analysis tools, agency policies, concurrent projects and coordination issues, and 

their potential effects on work zone impacts. The findings of this assessment are used in 

identifying candidate strategies for the MOT selection process. Early impact assessment helps 
75 

to limit the number of candidate strategies considered in the MOT alternative analysis and to 

develop a better end product.P92F

88P 

Some of the typical factors that would be considered in the preliminary evaluation include: 

 Facility type: freeway, principal arterial, collector, local etc. 

 Area type: rural or urban. 

 Project type and complexity. 

 Expected construction duration. 

 Need for early completion. 

 Strategic importance of the roadway. 

 Traffic volume. 

 Level of service – the adequacy of roadway capacity to accommodate traffic demand. 

 Peak hour traffic demand. 

 Commuter traffic. 

 Availability of detour alternatives. 

 Ability of detour routes to accommodate diverted traffic volume. 

 Likelihood of getting lost in detours. 

 Adequacy of lane shoulder width. 

 Interference with contractor access to work zone. 

 Need to consider business impacts. 

 Level of public interest. 

 Need to consider local ordinances on noise for night work. 

 Safety risks to motorists and construction workers. 

 High incidence areas. 

3.2.2 53BIdentifying the Significance of Projects (Step 2) 

The next step in the MOT alternative analysis process is to determine the relative impact 

based on the project size and complexity, expected duration of construction, traffic volume 

affected, and the magnitude of mobility, safety, and economical impacts. The purpose of this 

step is to identify the level of effort and resources required for MOT alternative analysis 

commensurate with the magnitude of work zone impacts. 

Based on this guidance, FHWA specifies the following criteria for designating a project as 

“significant”: 

All Interstate system projects that occupy a location for more than three days 

with either intermittent or continuous lane closures, and located within the 

boundaries of a designated Transportation Management Area (TMA). A TMA is 

an urbanized area with a population of over 200,000 individuals. 

The FHWA Work Zone Mobility and Safety Self-Assessment Guide presents another scheme for 

categorizing work zone projects based on the expected impact levels.P93F

89P Under this 

 

88 Bourne, J. S. et al, Best Practices In Work Zone Assessment, Data Collection, and Performance 

Evaluation, NCHRP Project 20-68A Scan 08-04, National Cooperative Highway Research Program, 

Transportation Research Board, Washington, DC, 2010. 
76 

classification, projects are categorized into Types I, II, III, and IV (see Table 39). Projects 

classified as Types I and II may require MOT alternative analysis. 

Table 39. Classification of project types based on work zone impacts.

Type Characteristics

Type I  Affects the traveling public at the metropolitan, regional, intrastate, and possibly 

interstate level. 

 Very high level of public interest. 

 Directly affects a very large number of travelers. 

 Significant user cost impacts. 

 Very long duration. 

Type II  Affects the traveling public predominantly at the metropolitan and regional level.

 Moderate to high level of public interest. 

 Directly affects a moderate to high number of travelers. 

 Moderate to high user cost impacts. 

 Duration is moderate to long. 

Type III  Affects the traveling public at the metropolitan or regional level. 

 Low to moderate level of public interest. 

 Directly affects a low to moderate level of travelers. 

 Low to moderate user cost impacts. 

 May include lane closures for a moderate duration. 

Type IV  Affects the traveling public to a small degree.

 Low public interest. 

 Duration is short to moderate. 

 Work zones are usually mobile and typically recurring. 

In addition, State and local highway agencies have developed their own criteria to define 

whether a project is “significant.” Some of the typical criteria include: 

 Volume/capacity ratio exceeding a specified value. 

 Work zone travel time delay exceeding a specified value. 

 Queue length exceeding a specified value. 

 Reduction in level of service exceeding a specified level. 

 Estimated project cost exceeding a specified value. 

 Projects based on functional classification. 

 Projects on the safety improvement list. 

 Worker safety considerations. 

 Traffic volume. 

 Restrictions on emergency vehicle access. 

 Impacts on public/private access. 

 Early completion goal. 

 Time of work. 

 High level of public interest. 

 Regional significance. 

 Network/corridor level significance. 

 Anticipated performance not meeting thresholds. 

 89 FHWA Work Zone Mobility and Safety Self-Assessment Guide, Office of Operations, Federal Highway 

Administration, Washington, DC, 2004. http://ops.fhwa.dot.gov/wz/docs/wz-sadocs/sa_guide_s1.htm. 
77 

Table 40 presents a sample of criteria used by the North Carolina DOT for defining significant 

projects.P94F

90

3.2.3 Identifying the Need for MOT Alternative Analysis (Step 3) 

The need for an MOT alternative analysis is established based on the significance of the 

project size and complexity, project duration, traffic volume, and severity of work zone 

impacts. 

Highway agencies typically use partial width reconstruction for low volume, low-impact roads 

as the baseline MOT strategy where the partial lane closure is in effect during weekday, 

daytime, or off-peak hours for lane-by-lane construction until the corresponding phase of 

construction is completed. The closure timings typically are determined based on the latest 

traffic data, actual field operation experience, and highway capacity calculations. These predetermined strategies can be effective when the hourly traffic demand does not exceed the 

work zone capacity. In such cases, the MOT alternative analysis may not be warranted. 

When the hourly demand exceeds the agency-estimated work zone capacity values, it is 

necessary to check whether the projected work zone performance exceeds the allowable 

targets using quantitative impact analysis. If the projected performance exceeds the 

allowable targets, a MOT alternative analysis is required to select a strategy that projects 

work zone performance below the thresholds. 

In practice, the requirement for a MOT alternative analysis is waived for non-significant 

projects with moderate work zone impacts if: 

 The hourly traffic demand does not exceed the work zone capacity during lane 

closure. 

 The measured work zone performance does not exceed agency-specified thresholds. 

Similar to the approach mentioned above, Figure 12 presents a schematic of lane closure 

process adopted by the Maryland State Highway Administration (SHA) for arterial highways. 

MOT alternative analysis is required for all significant projects where moderate to high 

impacts are anticipated on work zone traffic and the local area. For such projects, the traffic 

demand is likely to exceed the lane capacity of the proposed work zone. In such cases, a 

quantitative analysis is required to model the expected mobility and safety impacts using 

sketch-planning or deterministic tools. If the estimated impacts do not meet the agency’s 

thresholds, an alternative analysis should be conducted to select the preferred MOT strategy. 

 

90 NCDOT, Guidelines for Implementation of the Work Zone Safety and Mobility Policy, Draft, 2007. 

http://www.ncdot.org/doh/preconstruct/wztc/final%20rule/ImportantDocs/WZSafety&MobilityDraftGu

idelines07_23_2007.pdf. 
78 

Table 40. North Carolina DOT criteria for determining level of project significance.

Level USE FOR DIVISION ACTIVITIES AND TIP PROJECTS USE F

Level On an interstate within a TMA? Has intermittent or continuous lane closures for 3 days or longer? 

Existing AADT (Also may use Anticipated AADT if available) 

Total Truck Traffic 

Anticipated Additional Travel Times 

Anticipated Level Adverse Impacts to existing transportation infrastructure and/or high volume traffic generators 

Duration of TrafImpacts(change include corridoretc.) (using conventional estimating/lettinmethods) 

SIGNIFICANT 

1 meets ANY of these criteria 

Yes to both questions, project/ activity is significant Yes to one, refer to remaining columns in chart 

AADT per lane > 15,000 

> 20% Exceeding 15 

minutes 

High > 3 Years 

2 meets at least TWO of these criteria

Yes to both questions, project/ activity is significant Yes to one, refer to remaining columns in chart 

AADT per lane > 

10,000 but < 15,000 

> 15% but < 20% 

> 10 minutes but < 15 minutes 

Moderate 2 Years but < 3 Ye

3 meets at least TWO of these criteria

No to one question refer to remaining columns in the chart 

AADT per lane >

7,500 but < 10,000 

> 10% but < 15% 

> 5 minutes but < 10 minutes 

Low > 1 Year but < 2 Y

4 meets ANY of these criteria

No to one question refer to remaining columns in the chart 

AADT per lane < 7,500 

< 10% < 5 minutes N/A < 1 Year 
79 

Figure 12. Maryland SHA’s lane closure process for arterials. 

3.2.4 5BWork Zone Performance Measures and Thresholds (Step 4) 

Work zone performance measures are defined, quantifiable, outcome-based conditions or 

response times that are used to evaluate success of work zone policies, procedures, and 

performance. Performance measures focus on what to achieve, not how to achieve it.P97F

91P There 

are four key measures of work zone performance: mobility (or construction congestion), 

safety, construction efficiency and effectiveness, and public perception and satisfaction. 

Table 41 presents a list of performance measures recommended for use in the MOT 

alternative analysis for each performance category. 

At the project level, performance measures are used in evaluating the projected performance 

of proposed work zone strategies in the pre-construction stages and monitoring the actual 

performance of those strategies during construction. At the agency level, performance 

measures are used in evaluating the performance of work zone policies, management 

strategies, practices, and techniques. In the MOT alternative analysis, the performance 

measures quantify the impacts outcomes associated with each MOT alternative to determine 

what would work for the given work zone conditions. 

 

 

91 Work Zone Safety Performance Measures Guidance Booklet, Prepared by American Traffic Safety 

Services Association (ATSSA), Fredericksburg, VA, 2010. 

http://www.workzonesafety.org/files/documents/training/fhwa_wz_grant/atssa_performance_measur

es_guide.pdf 
80 

Table 41. Performance measures for MOT alternative analysis. 

(Sources: HfL,P98F

92P Ullman et al.,P9F93P and Sankar et al.9

) 

Performance Category Element Performance Measure 

Mobility Overall  RUC estimates for travel time, delays and vehicle 

operating costs. 

Queue length  Average length per hour of lane closure. 

 Percent of lane closure hours creating a queue. 

 Percent of lane closure hours creating a queue 

exceeding L mile. 

Capacity  Percent difference between pre-construction 

capacity and work zone capacity. 

Delay or travel 

time 

 Average total delay time (vehicle-hours) per hour of 

lane closure. 

 Percent of total delays occurring when average 

vehicle delay exceeds T minutes per vehicle. 

 Percent of total delays occurring when lane closure 

queue lengths exceed L mile. 

 Average delay per vehicle per hour of lane closure. 

 Percent of lane closure hours when average delays 

exceed T minutes per vehicle. 

Incident 

clearance time 

 Average time to clear non-injury incidents.

 Average number of non-injury incidents cleared 

within T minutes. 

Buffer indexP10F

94  Average change in buffer index. 

Safety (includes workers 

as well as motorists) 

Overall  Crash-related WZ RUC estimates. 

Injuries  Increase in crash rates per million vehicle miles for 

injuries. 

 Increase in crash rates for million vehicle miles for 

fatalities. 

Vehicle crashes  Increase in crash rates for million vehicle miles for 

PDO. 

Construction Efficiency 

and EffectivenessP10F

95

Time  Percent savings in the estimated project schedule.

 Reduction in the number of days used WZ RUC 

computation (i.e., number of days * daily WZ RUC) 

Cost  Percent savings in the estimated overall project 

costs. 

 Percent savings in WZ RUC estimates. 

Needs 

satisfaction 

 Adjectival rating whether the construction related 

issues were addressed. 

Public perception and Pre-construction  Number/frequency of complaints 

 

92 Highways for Life, Performance Contracting Framework, Prepared by Science Applications 

International Corporation, Federal Highway Administration, Washington, DC, 2006. 

http://www.fhwa.dot.gov/hfl/framework/framework.pdf

93 Ullman, G. L., R. J. Porter, and G. J. Karkee, Monitoring Work Zone Safety and Mobility Impacts in 

Texas, Report No. FHWA/TX-09/0-5771-1, Submitted to Texas Department of Transportation, Austin, 

TX, 2009. http://tti.tamu.edu/documents/0-5771-1.pdf 94 Buffer Index is a measure of the reliability of travel service calculated as the ratio between the 

difference of the 95th percentile travel time and the average travel time divided by the average travel 

time. 

95 Quality as a performance measure is typically used to evaluate the post-construction performance of 

work zones, and therefore not considered in the MOTAA. 

 
81 

Table 41. Performance measures for MOT alternative analysis. 

(Sources: HfL,P98F

92P Ullman et al.,P9F93P and Sankar et al.9

) 

Performance Category Element Performance Measure 

satisfaction public surveys  Customer satisfaction index

Historic surveys 

on projects with 

similar strategies 

 Number/frequency of complaints 

 Customer satisfaction index 

Performance thresholds set the benchmark of minimum acceptable level for comparing 

candidate alternatives and further determine what would work best for the given work zone 

conditions. These values are set by the agency based on the institutional policies and may 

vary with individual project needs. Table 42 presents a summary of performance thresholds 

used by various highway agencies for managing work zone impacts. 

Table 42. Performance thresholds used by various agencies. 

(Sources: HfL92 and NCHRP 20-68A Scan 08-0488) 

Agency Category Performance Threshold 

FHWA HfL Safety  Work zone crash rate during construction—≤ than the 

preconstruction rate. 

 Incident rate for worker injuries during construction—< 4.0, 

based on incidents reported via Occupational Safety and Health 

Administration (OSHA) Form 300. 

FHWA HfL Mobility  Trip time during construction—< 10 percent increase in trip time 

compared to the average preconstruction speed, using 100 

percent sampling. 

 Queue length during construction—A moving queue length of < 

0.5 mile in a rural area or < 1.5 mi in an urban area 

FHWA HfL Construction 

Time 

 50 percent reduction in the time highway users are impacted, 

compared to traditional methods. 

FHWA HfL Public 

perception 

 User satisfaction - measurement of 4-plus on a 7-point Likert 

scale. 

California DOT Mobility  0-minute delay for most freeway projects. 

 < 15-minute delay if aggressive TMP is being used. 

 < 30-minute delay on complex projects. 

 On other highways, < 20-min delay for flagging operations. 

Florida DOT Mobility  Lane closures shall not exceed 2 miles in length on interstates or 

highways with speed limits >55mph. 

Indiana DOT Mobility  Queues cannot be present > 6 continuous hours or 12 hours total 

per day. 

 0.5 mile < queues < 1.0 miles limited to four continuous hours. 

 1.0 mile < queues < 1.5 miles limited to two continuous hours. 

 Queues > 1.5 miles are not permitted. 

Maryland SHA Mobility  Queues < 1.0 miles acceptable on freeways. 

 1.0 < queues < 1.5 miles limited to two hours on freeways. 

 Queues > 2.0 miles not acceptable on freeways. 

 Delays < 15 minutes on arterials. 

 Level of Service (LOS) - Signalized Intersections: 

o C < LOS < A, loss of LOS to D, maximum control delay of 30 

seconds. 

o LOS = D, maximum control delay increase is 30%. 

o LOS = E, maximum control delay increase is 30% up to 50 

seconds. 
82 

Table 42. Performance thresholds used by various agencies. 

(Sources: HfL92 and NCHRP 20-68A Scan 08-0488) 

Agency Category Performance Threshold 

o LOS = F, no control delay increase is acceptable. 

 LOS - Unsignalized Intersections: 

o C < LOS < A, loss of LOS to D, maximum control delay of 45 

seconds. 

o LOS = D, maximum control delay increase is 30%LOS = E, 

maximum control delay increase is 30% up to 80 seconds. 

o LOS = F, no control delay increase is acceptable. 

Michigan DOT Mobility  Delays < 10 minutes.

 Volume/capacity ratio < 0.8. 

 Drop in LOS < 2 levels. 

 LOS no worse than D. 

Missouri DOT Mobility  Delays > 15 minutes are considered excessive. 

New Hampshire 

DOT 

Mobility  0 < delays < 5 minutes are acceptable.

 5 < delays < 10 minutes are not preferable. 

 Delays > 10 minutes are undesirable; field staff will consider 

suspending work. 

New Jersey 

DOT 

Mobility  Delays < 15 minutes.

Ohio DOT Mobility  Queues < 0.75 miles acceptable.

 0.75 < queues < 1.5 miles limited to two hours. 

 Queues > 1.5 miles are not acceptable. 

Pennsylvania 

DOT 

Mobility  Delays < 15 minutes are acceptable.

 15 minutes < delays < 30 minutes limited to two consecutive 

hours. 

Oregon DOT Mobility  Project delays < 10% of the peak travel times 

 Corridor delays (all projects combined) < 10% of peak travel 

times. 

Wisconsin DOT Mobility  Maximum of 15 minutes of added delay between major city nodes 

(all potential projects along route combined). 

3.2.5 56BCandidate Strategies for MOT Alternative Analysis (Step 5)

Tables 35 and 36 in Chapter 2 provide an array of candidate strategies for work zone 

management for consideration in the MOT alternative analysis. FHWA’s TMP Matrix77 provides 

a brief description of the strategies listed in these tables, their pros and cons, what project 

characteristics may trigger their inclusion in the TMP, and their contributions toward possible 

improvements in mobility and motorist and worker safety. This information can be used as 

guidance in the selection of candidate MOT alternatives. 

The candidate selection depends largely on the expected mobility and safety impacts, 

economical impacts to local business and the community, construction phasing and staging, 

traffic control costs, capacity reduction, feasibility of full lane closure (necessary in some 

cases), and the distance to feasible detour routes. The findings of the initial assessment 

conducted in Step 1 should be taken into consideration in identifying the candidate strategies 

for the MOT alternative analysis. In addition, it is necessary to review the constructability 

options of the candidate strategies for inclusion in the MOT alternative analysis. 
83 

The following factors, used by Maryland SHA for identifying possible work zone constraints, 

can be used as additional factors for candidate selection: 

 Ability to meet performance thresholds. 

 Ability to maintain access (businesses, communities, etc.). 

 Ability to provide required ramp merge distances. 

 Right-of-way impacts. 

 Environmental impacts. 

 Bridge widths. 

 Significant impacts on construction duration. 

 Significant impacts to earthwork, retaining walls, pier clearances, profile differences, 

etc. 

 Ability to maintain existing drainage, utility and lighting systems. 

 Constructability and construction equipment access. 

 Impacts on pedestrian and bicycle facilities. 

 Impacts on emergency services (fire, ambulance, police, hospitals). 

 Safety (of traveling public and workers). 

 Ramp capacity. 

 Construction and MOT costs. 

Table 43 presents a list of possible strategies for identifying possible candidate strategies 

based on the preliminary assessment. 

Table 43. Candidate strategies for MOT alternative analysis. 

Objective Strategy 

Baseline (traditional strategy)  Partial lane closure

To reduce overall work zone 

impacts 

 Construction phasing/staging 

 Continuous full road closure 

 Business access improvements 

To restrict work zone operational 

time 

 Lane rental

 Off-peak/night/weekend/intermittent full road closure 

 Night work – lane shift/full or partial width closure 

 Weekend work – lane shift/full or partial width closure 

 Work hour restrictions for peak travel 

To reduce or divert work zone 

traffic demand 

 Truck/heavy vehicle restrictions 

 Off-site detours/use of alternate routes 

 Ramp closures/relocation 

 Freeway-to- freeway interchange closures 

To maintain/add work zone 

capacity 

 Street/intersection improvements

 Reduced lane widths to maintain number of lanes 

 Reduced shoulder width to maintain number of lanes 

 Lane shift to shoulder/median 

To manage work zone capacity 

constraints 

 One-lane, two-way operation 

 Crossover 

 Reversible lanes 

To manage traffic flow within work 

zone 

 Signal timing/coordination improvements 

 Temporary traffic signals 

 Speed limit reduction/variable speed limits 

 Separate truck lanes 

 Dynamic lane closure system 
84 

3.2.6 Detailed Assessment of Work Zone Impacts (Step 6) 

In this step, a more rigorous reassessment of work zone impacts and issues, qualitative as well 

as quantitative, is conducted to facilitate the selection of preferred MOT strategy. The level 

of detail varies depending on the significance of the impacts and the project itself. More 

detailed discussion can be found in the FHWA’s guidance on work zone impact assessment.9

 

During the detailed assessment, the performance impacts are quantified for each candidate 

strategy and qualitative criteria, if any, are reconfirmed. Specific issues pertinent to 

mobility, safety, construction, and coordination (e.g., right-of-way, utility) are identified and 

addressed. At this stage, the use of work zone impact analysis tools is considered more 

suitable for a detailed quantitative analysis. Section 2.9 provides a detailed discussion on the 

available work zone impact analysis tools, their advantages, and their disadvantages. 

Example 3.1: Identifying alternatives for MOT analysis

US 00 serves as a major arterial road connecting the regional industrial hub with the twin metros 

located in Polk County, District 1. The existing pavement between mileposts 100 and 110 has reached 

the end of its useful life and needs reconstruction. The route carries significant amounts of commuter 

and truck traffic. The alternative routes for detour have limited lane capacity and can accommodate 

only a portion of the work zone traffic volume. This industrial hub is paramount to the economic 

vitality of the metro region, so long delays are not acceptable. This route also serves a hurricane 

evacuation route connecting the twin metros to interstate highways. The construction is expected to 

be scheduled in late summer and early fall seasons. 

For the US 00 pavement reconstruction project, the following candidate alternatives can be considered 

for MOT alternative analysis: 

 Alternatives that restrict the operational time of work zones to off-peak hours 

o Off-peak full closure. 

o Nighttime full closure. 

o Weekend full closure. 

o Reversible lanes. 

o Nighttime partial width closure. 

o Weekend partial width closure. 

o Work hour restrictions for peak travel. 

 Alternatives that divert work zone traffic demand 

o Diverting trucks to alternative routes during peak hours. 

o Restricting truck travel through the work zone during peak hours. 

3.2.7 58BDecision Analysis for MOT Strategy Selection (Step 7) 

The MOT alternative analysis involves the consideration of both qualitative and quantitative 

factors. Recognizing that the possibility for an ideal MOT strategy is impractical, the selection 

process should focus on identifying an option that more or less meets the project goals. 

Selecting a meaningful and justifiable option involves weighing both quantifiable performance 

metrics and policy directives to ensure that both agency and project-specific needs are 

incorporated in decision making. Decision analysis tools provide a structured, systematic 

framework for gathering, organizing, and evaluating information to make informed choices. 
85 

While any appropriate decision analysis tool can be used, the Kepner-Tregoe (K-T) decision 

analysis method is recommended here for MOT alternative analysis.P102F

96P Not only does this tool 

allow combining quantitative and qualitative criteria of work zone road user impacts, but it 

also provides flexibility to make project-specific choices. The steps include: 

1. Prepare decision statement. 

2. Define MUST and WANT objectives. 

3. Assign weights to WANT objectives. 

4. Identify candidate MOT alternatives. 

5. Summarize the findings of work zone impact assessment. 

6. Evaluate alternatives against MUST objectives. 

7. Evaluate alternatives against WANT objectives. 

8. Calculate the weighted scores of alternatives. 

9. Evaluate adverse consequences. 

10. Select the preferred MOT strategy. 

Example 3.2: Illustrating the K-T decision analysis method

The "US 00 Pavement Rehabilitation" example presented in Example 3.1 has been selected for 

illustrating the K-T decision analysis method. 

Step 7.1 Prepare Decision Statement 

The K-T decision analysis process begins with a precise statement of what needs to be done 

and how it will be done. This statement provides the focus for all other steps that follow and 

sets the limits on the range of alternatives that would be considered in the decision analysis. 

This statement must be defined consistent with the agency’s work zone related policies and 

project-specific needs. 

The decision statement for the project presented in Example 3.2 is as follows: 

The purpose of the decision analysis is to identify the most appropriate strategy for maintaining traffic 

on US 00 during the reconstruction of the pavement segments between mileposts 100 and 110.

Step 7.2 Define Objectives 

Objectives are the decision criteria that describe the required and desired attributes of the 

resulting choice, and the explicit limits imposed on the decision process. The objectives 

include: 

 MUSTS: These are the mandatory attributes required for an alternative to be 

considered in the decision process. These attributes are considered mandatory to 

guarantee a successful decision. Any alternative that cannot comply with a MUST 

objective is eliminated for further consideration, while those comply with all the 

MUST objectives qualify as feasible alternatives. The MUST objectives should be 

measurable, and all MUST objectives are assigned with GO and NO GO options. 

 

96 Kepner, C. H., and B. B. Tregoe, The New Rational Manager, Princeton Research Press, Princeton, 

NJ, 1981. 
86 

 WANTS: These are the desired attributes based on which a preferred alternative is 

selected from the pool of feasible alternatives (i.e., alternatives that fulfill all the 

MUST objectives). A mandatory or high-priority objective can be considered as a WANT 

objective, if that objective is not measurable or a relative assessment is preferred 

over an absolute GO/NO GO judgment. A MUST objective can also be considered as a 

WANT objective by rephrasing the objective statement for relative assessment of 

feasible alternatives. Numerical weights indicating their relative importance are 

assigned. 

In other words, “the MUSTS decide who gets to play, but the WANTS decide who wins.”P103F

97P

A list of MUST objectives for Example 3.2 is as follows: 

1. Maintain a minimum of one lane each direction for work zone traffic during 

weekdays 

Go/No Go

2. No lane closure from 7a.m. to 10 a.m. and 4 p.m. to 8 p.m. on weekdays Go/No Go

3. Queue length not more than 0.75 for more than 1 hour Go/No Go

4. Delay time not more than 30 minutes Go/No Go

5. Available detour routes exceed capacity? Go/No Go

6. MOT alternative has no constructability issues Go/No Go

A list of WANT objectives for Example 3.2 is presented as follows: 

1. Minimize daily road user costs ($)

2. Minimize number of days for project completion

3. Minimize traffic control & construction engineering costs ($)

4. Minimize length of detour (miles)

5. Minimize queue length (lane-miles)

6. Minimize average delay time per vehicle (min.)

7. Minimize percent motorist traveling at a speed 15 mph less than the posted limit 

8. Minimize average time to clear a non-injury incidence (min.)

9. Maintain emergency services (adjectival ratings—poor, average, good)

10. Reduce environmental impacts (adjectival ratings—low, moderate, severe) 

102BUSelection of Objectives

One of the commonly cited concerns with decision analysis is the interdependency among 

objectives. It is a phenomenon where two or more objectives are highly correlated. The 

presence of interdependence among objectives in decision analysis can produce erroneous or 

misleading outcomes. Interdependence leads to lead to double counting and tend to weigh 

heavily toward the interdependent factors, while diminishing the significance of other factors 

in the analysis. Therefore, it is imperative that a decision analyst screen for interdependency 

among the objectives and validate them. 

For example, consider the list of WANT objectives presented above. The factor “daily road 

user costs” is highly correlated with the following factors: length of detour, maximum queue 

length, average delay time, average time to clear non-injury incidence, percent traveling at a 

speed 15 mph less than the posted speed limit. The factors all contribute to the computation 

of daily road user cost value. Similarly, the factors “the number of days for project 

completion” and “traffic control & construction engineering costs” are highly correlated. 

 

97 Kepner, C. H., and B. B. Tregoe, The New Rational Manager, Princeton Research Press, Princeton, 

NJ, 1981. 
87 

One common technique used in screening the interdependency among objectives is sensitivity 

analysis. A sensitivity analysis can be conducted formally or informally to evaluate the effects 

of varying one objective (numerical or adjectival) on other objectives and final outcomes. 

The results of the sensitivity analysis will help to identify correlations among analysis factors. 

Both the degree of correlation and the logical dependency between the factors should be 

taken into account while identifying the dependent pairs. The purpose here is to avoid double 

counting rather than eliminating all correlated factors. 

Consider the dependency between two pairs: 

 Average delay time vs. daily road user cost. In this case, considering both factors in 

the analysis will lead to double counting, as the factor “daily road user cost” is a 

monetized aggregation of various impacts including the factor “average delay time.” 

Any change in the average delay time will result in a proportional change in the daily 

road user cost. In such cases, it is suggested that the analyst eliminate the factor 

“average delay time” or break the factor “daily road user cost” into individual 

components. 

 Average delay time vs. average time to clear a non-injury incident. In this case, the 

factor “the change in average time to clear a non-injury incidence” also causes a 

proportional change in the average delay time, and hence is highly correlated. 

However, considering the probability of a non-injury incident and the importance of 

clearing the incident, the analyst may prefer to list both factors to emphasize the 

effectiveness on traffic incident management in MOT alternative selection and 

distinguish it from other traffic delay control strategies. Therefore, it is imperative to 

use engineering judgment and experience in selecting the objectives so that the 

intended purpose of the analysis and the complexity of the problem are not diluted. 

The problem of interdependency may occur if one objective is defined at the 

aggregate/generic level while another is defined at the component/specific level. For 

example, in the list of WANT objectives presented above, the interdependency between the 

factor “daily road user cost” and other factors is a result of mixing up the factors from 

different hierarchical order, as illustrated in Figure 13. This figure presents the relationship 

between “daily road user costs” and only those delay-related WANT objectives listed in the 

example. All the factors listed on the left (queue length, average time to clear a non-injury 

incidence etc) contribute in determining the average delay time, which in turn, is used in the 

daily road user cost computation. 

 

Figure 13. Illustration of relationships among factors. 
88 

A modified list of WANT objectives for Example 3.2 is presented as follows: 

1. Minimize delay costs 

2. Minimize vehicle operating costs

3. Minimize number of days for project completion 

4. Minimize traffic control and associated construction costs (e.g., shoulder widening, temp 

bridges) 

5. Minimize average time to clear a non-injury incidence (min.)

6. Maintain emergency services (adjectival ratings—poor, average, good)

7. Reduce environmental impacts (adjectival ratings—low, moderate, severe) 

Step 7.3 Assign Weights to WANT Objectives 

The WANT objectives are not all equally important. Therefore, it is necessary to allocate 

weights to the items listed in Step 7.2 to reflect their relative priority in the decision. A 

simple approach is to give the most important criterion a weight of 10 and then assign 

weights to the rest against that standard. 

In this way, each WANT objective is weighted on a scale of 1 to 10 based on its relative 

importance in the decision process, with 1 indicating “least preferable” and 10 indicating 

“most preferable” or “equally preferable.” The weights assigned to the WANT objectives 

should reflect the agency’s policies, results of work zone impact assessment, and projectspecific needs. The contribution of the WANT objective to the overall work zone impacts 

should be taken into account while assigning weights. In addition, the following issues should 

be evaluated while assigning the weights: 

 Too many high weights may indicate unrealistic expectations or a faulty perception of 

which objectives can guarantee success. 

 Too many low weights suggest the possible inclusion of unimportant details in the 

analysis. 

 Biased objectives may produce an ineffective analysis. 

Sensitivity analysis can be used in screening such issues. 

The following illustrates the assigning of weights to each of the WANT objectives considered 

in Example 3.2: 

 No. WANT Objective Assigned Weight 

1. Delay costs 10 

2. Vehicle operating costs 

3. Number of days for project completion 

8 

10 

4. Traffic control & associated construction costs ($) 8 

5. Average time to clear a non-injury incidence (min.) 4 

6. Maintenance of emergency services (adjectival ratings—

poor, average, good) 

6 

7. Environmental impacts (adjectival ratings—low, moderate, 

severe) 

3 

 
89 

Step 7.4 Identify Candidate MOT Alternatives 

Identify all potential alternatives to be evaluated and measured as MUST and WANT 

objectives. The viable alternatives that could succeed in identifying the preferred MOT 

strategy are listed herein. Use the alternatives identified in Step 5 as candidate alternatives 

for decision analysis. No attempt is made in this step to evaluate these alternatives, only to 

list them. 

The candidate alternatives for Example 3.2 are as follows: 

Alternative A. Daytime partial lane closure –closed between 7 a.m. and 5 p.m. 

Alternative B. Nighttime partial lane closure –closed between 8 p.m. and 6 a.m. 

Alternative C. Nighttime partial lane closure –closed between 9 p.m. and 7 a.m. 

Alternative D. Nighttime full lane closure –closed between 9 p.m. to 7 a.m. 

Alternative E. Truck traffic diverted through detour routes during peak hours. 

Step 7.5 Summarize the Findings of Work Zone Impact Assessment 

A detailed work zone impact assessment for each candidate alternative should be done to 

evaluate both MUSTs and WANTs. Use the findings of the preliminary and detailed impact 

assessments conducted in Step 1 and Step 5, respectively, for evaluation. The assessment 

findings must be summarized for each alternative against the objectives. 

The following summarizes the impact assessment findings of all alternatives against the MUST 

objectives considered in Example 3.2: 

MUST Objective Alternative Evaluation 

A B C D E

1. Maintain a minimum of one lane each direction 

for work zone traffic during weekdays 

No Yes Yes Yes Yes

2. No lane closure from 7 a.m. to 10 a.m. and 4 

p.m. to 8 p.m. on weekdays 

No Yes Yes Yes Yes

3. Average delay time per vehicle (min) 19.0 6.0 3.0 10.0* 20.0**

4. Maximum queue length (mi.) 1.6 0.0 0.0 0.5* 0.5**

5. Available detour route exceed capacity? No No No No Yes

6. MOT alternative has no constructability issues No No No No No

Note: 

(*) Calculated for the selected detour route. 

(**) Weighted average for both mainline and detour routes.

The following summarizes the impact assessment findings of all alternatives against the WANT 

objectives considered in Example 3.2: 

WANT Objective Alternative Evaluation 

A B C D E

1. Delay costs $5,300 $3,125 $2,800 $4,700 $6,800

2. Vehicle operating costs $1,484 $656 $728 $1,175 $1,836

3. Number of days for project 

completion 

150 84 84 60 90

4. Traffic control & associated 

construction costs ($) 

$55,000 $94,000 $75,000 $109,000 $85,000

5. Average time to clear a non-injury 20 25 25 15 10
90 

WANT Objective Alternative Evaluation 

A B C D E

incidence (min.) 

6. Maintenance of emergency services 

(adjectival ratings—poor, average, 

good) 

moderate moderate moderate good good

7. Environmental impacts (adjectival 

ratings—low, moderate, severe) 

moderate severe severe low low

Step 7.6 Evaluate Alternatives against MUST Objectives 

Evaluate all available alternatives against each of the MUST objectives identified in the 

earlier step. Any alternative is eliminated from further consideration if it fails to satisfy one 

or more of the MUST objectives; only those satisfying all the objectives are considered as 

feasible alternatives. 

For Example 3.2, the results obtained from the evaluation of alternatives against MUST 

objectives are presented as follows: 

MUST Objective Alternatives 

A B C D E

1. Maintain a minimum of one lane each 

direction for work zone traffic during 

weekdays 

Go Go Go Go Go 

2. No lane closure from 7 a.m. to 10 

a.m. and 4 p.m. to 8 p.m. on 

weekdays 

No-Go Go Go Go Go 

3. Queue length not more than 0.75 

miles for more than 1 hour No-Go Go Go Go Go 

4. Delay time not more than 30 min. Go Go Go Go Go

5. Alternative detour route exceeds 

capacity? Go Go Go Go No-Go 

6. MOT alternative has no 

constructability issues Go Go Go Go Go

Outcome: 

Alternatives A and E are eliminated. 

Alternatives B, C and D qualify as feasible alternatives 

Based on the evaluation results, Alternatives A and E are eliminated from further 

consideration, as these alternatives did not satisfy all the required attributes. Alternatives B, 

C, and D are carried into the next step. 

Step 7.7 Evaluate Alternatives against WANT Objectives 

In this step, each alternative is assigned with a score of 1 to 10 against each WANT objective 

based on how well the alternative meets that objective. This step involves assessing each 

alternative individually against each WANT objective and comparing the alternatives with 

each other against each WANT objective. 

For Example 3.2, the results obtained from the evaluation of alternatives against WANT 

objectives are presented as follows: 
91 

WANT Objective Weight Alternative Score

A B C D E

1. Delay costs 10 9 10 6

2. Vehicle operating costs 8 10 8 7

3. Number of days for project completion 10 7 7 10

4. Traffic control & associated construction costs ($) 8 8 8 10

5. Average time to clear a non-injury incidence 4 6 6 10

6. Maintenance of emergency services 6 6 6 10

7. Environmental impacts 3 3 3 10

Step 7.8 Calculate the Weighted Scores of Alternatives 

The weighted score of each feasible alternative should be computed to determine the 

relative performance of the alternatives. The weighted score is the score of an alternative 

multiplied by the weight of the WANT objective to which the score refers. For example, the 

weight of the objective “length of detour” is 7, and the score of Alternative D against this 

objective is 2. Therefore, the weighted score of Alternative D on that objective is 14. For 

each alternative, all the weighted scores are added up to calculate the total weighted score 

for that alternative. 

The total weighted score of an alternative indicates how well an alternative stack up against 

each of the other alternatives on overall performance against WANT objectives. In other 

words, the total weighted scores indicate the comparative performance of the alternatives. 

For Example 3.2, the individual and the total weighted scores of each feasible alternative are 

as follows: 

WANT Objective Alternative Score 

A B C D E

1. Delay costs 90 100 60 

2. Vehicle operating costs 80 64 56 

3. Number of days for project completion 70 70 100 

4. Traffic control & associated construction costs ($) 64 64 80 

5. Average time to clear a non-injury incidence 24 24 40 

6. Maintenance of emergency services 36 36 60 

7. Environmental impacts 9 9 30 

Total weighted score 373 367 426 

In this example, Alternative D is considered as the tentative choice. 

Step 7.9 Evaluate Adverse Consequences 

After the completion of alternative evaluation using MUST and WANT objectives, the feasible 

alternatives should be evaluated against potential risks identified in the work zone impact 

assessment. The objective of this step is to understand the consequences of selecting an 

alternative by evaluating them separately. No comparative assessment is made as to identify 

which alternative is more likely to produce adverse consequences than other alternatives. 

The risk assessment begins with the tentative choice (i.e., the alternative with the highest 

total weighted score). For this alternative, the probability of the occurrence of an adverse 
92 

consequence is rated on a scale from “Low” to “High,” with a rating of “Low” indicating “an 

unlikely event” and “High” indicating “a most probable event.” The severity of the impact 

(i.e., performance of an alternative under that event) is assessed and rated on a similar 

scale, with a value of “Low” indicating “inconsequential” and “High” indicating “very 

severe.” This evaluation is repeated for each alternative that passes all the MUST objectives. 

The likelihood of the adverse events occurring and the performance of an alternative under 

these situations were rated as probability and severity ratings, respectively. An alternative is 

considered a high-risk choice if it has at least one potential adverse consequence that is 

considered both highly probable and very severe, while those alternatives with low 

probability and low-severity consequences are considered low-risk choices. 

For Example 3.2, three potential risks were considered: 

• Event of flooding. 

• High-severity crashes (involving multiple crashes and longer incidence time). 

• Event of an emergency evacuation due to hurricanes. 

The evaluation of adverse consequences for the MOT alternatives B, C, and D considered in 

the example are shown as follows: 

Adverse 

Consequence 

Alternative

B C D 

Probability Severity Probability Severity Probability Severity 

Flood impact LM HM LM HM LM HM

High-severity 

crashes HM L HM L HM LM 

Emergency 

evacuation HM L HM L HM H 

H=High 

HM=High-medium 

M=Medium 

LM=Low-medium 

L=Low 

Based on this evaluation, the adverse consequences of implementing Alternative B or 

Alternative C are deemed less significant, and therefore, selected for further consideration. 

Implementing Alternative D is more likely to create problems and confusion during emergency 

evaluation for the following reasons: 

 An emergency mass evacuation is more probable during late summer and early fall 

(the period when the construction is expected to be scheduled). 

 Failure to remove full closure traffic controls within a shorter period of time could be 

problematic. 

 Local users are more likely to avoid this route, assuming that the full closure would 

still be in place, thus resulting in network-level bottlenecks and confusion. 

Alternative D is considered as a high-risk choice, while Alternatives B and C are deemed lowrisk choices. 
93 

Step 7.10 Select the Preferred MOT Strategy 

The total weighted score and the results of adverse consequence evaluation are summarized 

for each alternative from steps 7.8 and 7.9. 

High-risk choices can be eliminated from further consideration. Other alternatives are then 

ranked based on their weighted scores. The alternative with the lowest rank is selected as the 

preferred MOT strategy. 

Alternatively, high-risk choices may be enhanced with additional measures to mitigate the 

impacts of an adverse consequence. These enhancements may incur additional costs and may 

impact work zone performance. Therefore, these revised choices may need to be reevaluated through the decision analysis process with other alternatives. Engineering judgment 

should be exercised in making any decisions relating to eliminating, reviewing, and/or reevaluating high-risk choices. 

In Example 3.2, Alternative D is identified as a high-risk choice despite its highest total 

weighted score. However, a decision was made to review Alternative D for possible 

enhancements rather than eliminating it. Since only nighttime full closures are made under 

Alternative D, there was scope for addressing the concerns related to emergency evacuation 

with no requirement for re-evaluation. Risks associated with emergency evacuation can be 

mitigated effectively through improvements in public awareness and motorist information 

strategies. The cost of implementing mitigation measures is marginal and can be justified 

with road user cost savings. 

For Example 3.2, the recommended MOT strategy is Alternative D with additional public 

awareness and motorist information strategies. 

Alternative Description Total 

Weighted 

Score 

Adverse 

Consequence 

Rank

A Daytime partial lane closure –closed 

between 7 a.m. to 5 p.m. Eliminated – – 

B Nighttime partial lane closure –closed 

between 8 p.m. to 6 a.m. 373 Low Risk 2 

C Nighttime partial lane closure –closed 

between 9 p.m. to 7 a.m. 367 Low Risk 3 

D Nighttime full lane closure –closed 

between 9 p.m. to 7 a.m. 426 

High Risk

Improvements 

identified 

1 

E 

Truck traffic diverted through 

alternative detour routes during peak 

hours. 

Eliminated – – 

Appendix A provides a worksheet for performing K-T decision analysis for MOT strategy 

selection. 

 
94 

THIS PAGE INTENTIONALLY LEFT BLANK 
95 

CHAPTER 4.3BAPPLICATION OF WZ RUC ANALYSIS IN 

CONTRACTING/PROJECT DELIVERY METHODS 

4.1 20BOVERVIEW

Time delay has been a chronic problem in the delivery of highway construction projects. In 

2002, the General Accounting Office (GAO) observed that it typically takes about 9 to 19 

years to plan, gain approval for, and construct a new, major Federally funded highway 

project that has significant environmental impacts.98 Construction delays not only result in 

cost overruns but also cause adverse economic impacts and disruption to traveling public and 

local neighborhood. These impacts are more significant in urban areas with high traffic 

volumes. 

Highway agencies increasingly are interested in shortening project delivery to manage the 

overall impacts of construction delays and associated road user costs. The benefits of shorter 

construction time are obvious: minimizes inconvenience and disruption of the traveling 

public, improves the safety performance of both construction crew and traffic, minimizes the 

adverse economic impacts on local businesses, provides savings in direct agency costs, and 

minimizes the social costs of traffic delays and additional travel. 

Highway agencies use schedule-focused contracting methods and accelerated construction 

techniques to shorten construction time and minimize WZ RUC. P104F

99,105F100,106F101P The schedule-focused 

methods focus on reducing the number of calendar days of construction, completing the 

critical project milestones within the intended timeframe, stipulating the hours and days the 

contractor is allowed to close the roadway lanes for work, and incentivizing the contractor to 

complete the project ahead of schedule. These contracting methods can be pursued through 

any project delivery method: traditional, design-build, or construction manager/general 

contracting (CMGC). Accelerated construction uses various innovative planning, design, 

materials, and construction methods to reduce the installation time. 

Both schedule-focused contracting methods and accelerated construction techniques focus on 

reducing the onsite construction time, which in turn, minimizes the work zone exposure time 

and associated costs. The deployment of non-traditional contracting methods or accelerated 

construction techniques to achieve shorter construction time often carries additional costs 

associated with innovations. This cost premium generally is offset partially or fully with WZ 

RUC savings gained from shorter work zone time. The computation of WZ RUC thus plays an 

 

98 Siggerud, Highway Infrastructure: Preliminary Information on the Timely Completion of Highway 

Construction Projects, Report No. GAO-02-1067T, United States General Accounting Office, 

Washington, DC, 2002. 

99 Fick, G., E. T. Cackler, S. Trost, and L. Vanzler, Time-Related Incentive and Disincentive Provisions 

in Highway Construction Contracts, Final Report, NCHRP Report No. 652, National Cooperative Highway 

Research Program, Transportation Research Board, Washington, D.C., 2010. 

100 Ellis, R., J. Pyeon, Z. Herbsman, E. Minchin, and K. Molenaar, Evaluation of Alternative Contracting 

Techniques on Florida DOT Construction Projects, Final Report, Contract No. FDOT BDC51, Submitted 

to the Florida Department of Transportation, Gainesville, 2007. 

101 Anderson, S.D., and I. Damnjanovic, Selection and Evaluation of Alternative Contracting Methods to 

Accelerate Project Completion, NCHRP Synthesis 379, National Cooperative Highway Research Program, 

Transportation Research Board, Washington, D.C., 2008. 
96 

important role in evaluating the economic efficiency of deploying non-traditional contracting/ 

construction strategies. 

Furthermore, the computation of WZ RUC forms the basis for calculating contractor 

incentives/disincentives (I/D) set by an agency for early and late project completion. In the 

Milton Construction Company vs. Alabama case, the Alabama Supreme Court ruled that State 

of Alabama failed to adequately demonstrate that the disincentive amount was set based on 

the work zone road user costs. Though the outcome of this case did not set legal precedence 

for I/D provisions, the ruling emphasizes the primary role of road user costs in establishing I/D 

provisions. 

This chapter presents an overview of schedule-focused alternative contracting strategies, 

identifying the need for their application, selecting an appropriate strategy based on project 

needs, determining I/D amounts, and identifying a balance between construction costs and 

the level of schedule acceleration required for early completion.

4.2 21BSCHEDULE-FOCUSED ALTERNATIVE CONTRACTING STRATEGIES

4.2.1 59BNeed for Schedule-focused Alternative Contracting Strategies 

Traditionally, the owners of highway facilities have focused on acquiring construction services 

through low bid contracts—maximum value at minimum cost (Thomas et al., 2006).P107F

102P To 

ensure construction completion on time, owners have used liquidated damages clauses in 

their contracts. Liquidated damages are imposed to recover the additional construction 

oversight costs incurred by the owners if the contractor fails to complete the construction on 

time. Though these penalty mechanisms were put in place to enforce mandatory completion, 

nearly half of projects were not completed on time. On-schedule performance was worse for 

larger projects over 5 million dollars, as nearly two-thirds of these projects were not 

completed on time (Crossett and Hines, 2007).P108F

103P These findings suggest that the liquidated 

damages were only partially effective in enforcing project completion time. 

With increasing pressures to complete construction on time, owner agencies have turned to 

non-traditional, schedule-focused contracting methods for use in conjunction with liquidated 

damages. These methods include: 

 I/D for early/late completion. 

 Lane rental. 

 Cost (A) + time (B) bidding with I/D. 

 Interim milestones. 

 No-excuse bonus (otherwise called locked incentives). 

 Liquidated savings. 

 Accelerated construction techniques.P109F

104

 

102 Thomas, H. R., R. D. Ellis, and S. K. Sinha, Improving the Time Performance of Highway 

Construction Contracts, Final Report, NCHRP Project No. 20-24(12)A, National Cooperative Highway 

Research Program, Transportation Research Board, Washington, D.C., 2006. 

103 Crossett, J., and Hines, Comparing State Dots’ Construction Project Cost & Schedule Performance –

28 Best Practices from 9 States, Final Report, NCHRP Project 20-24, Task 37A, National Cooperative 

Highway Research Program, Transportation Research Board, Washington, D.C., 2007. 

104 Although an accelerated construction technique is not considered as a contracting strategy, it is 

often used to shorten project completion time and minimize road user impacts. 
97 

Except for accelerated construction techniques, all these contracting methods have been 

evaluated on select Federal-aid projects since the 1990s under the FHWA’s SEP-14 program. 

Of these strategies, A+B bidding and lane rental were declared operational (no longer 

considered experimental) after a period of evaluation, while the others are under evaluation. 

These strategies, including accelerated construction techniques, were put in practice in 

several highway projects under the FHWA’s HfL program. 

Schedule-focused methods augment the traditional design-bid-build delivery method by 

focusing on improving its schedule performance. In addition, design-build and CMGC have 

been found effective in shortening the construction completion time. The use of CMGC in 

Federal-aid projects is under SEP-14 evaluation, while the design-build method is no longer 

considered experimental. Though CMGC and design-build primarily focus on improving the 

overall project delivery time (i.e., preliminary engineering through construction), the early 

involvement of the contractor in the pre-construction phases has helped the owner agencies 

manage work zone impacts and achieve early completion through increased coordination and 

better planning. 

In this guide, the term “contracting strategy” refers to both the contracting 

method and the project delivery method. 

4.2.2 60BOverview of Schedule-focused Contracting Methods and Alternative 

Delivery Methods 

This section presents an overview of the schedule-focused contracting methods and 

alternative delivery methods. 

4.2.2.1 103BUIncentive/Disincentive for Early Completion 

FHWA’s Contract Administration Core Curriculum (CACC) Manual defines I/D for early 

completion as “a contract provision which compensates the contractor for each day that 

identified critical work is completed ahead of schedule and assesses a deduction for each day 

that completion of the critical work is delayed.”P10F

105P In this approach, the contractor is 

required to complete the project by the engineer’s estimate of the contract time specified in 

the bid documents. Upon completion, the contractor is rewarded with bonus payments for 

completing the project ahead of schedule and penalized with disincentive charges for late 

completion. The owner agency determines both the maximum allowable time and the I/D 

structure. 

The I/D structure and the engineer’s estimate of the contract time should be well justified 

and determined on a project-by-project basis. The incentive payments should be adequate 

enough to motivate the contractor to complete the work on or ahead of schedule; in other 

words, the incentives paid to the contractor should be higher than the additional costs 

incurred by the contractor for accelerating the work. On the other hand, the disincentive 

charges for delivery delay should compensate the additional costs incurred by the owner 

agency and road users. 

 

105 FHWA, Contract Administration Core Curriculum Participant’s Manual and Reference Guide, Office 

of Program Administration, Federal Highway Administration, Washington, D.C., 2006. 
98 

When both liquidated damages and disincentives are applied in a project, care 

should be taken not to double count the cost items. 

The I/D structure should be established using the road user costs, traffic control and 

maintenance costs, and construction engineering inspection costs. FHWA recommends a cap 

of 5 percent of the total contract amount for the maximum incentive payment, while no such 

cap is recommended on the maximum disincentive amount. 

Similarly, the maximum time for completion allowed in the contract (engineer’s estimate) 

should be well balanced and effective. An unreasonable completion date may attract 

unbalanced bids, while an incentive payment to contractors is unjustified for little or no 

effort. Project scheduling using the critical path method (CPM) can help determine an optimal 

completion time. 

The use of I/D provisions is suitable for virtually all types of projects, but especially those 

with high-traffic volumes in urban areas. Typical projects include new/reconstruction, 

rehabilitation projects, detour projects, intersection upgrades, and bridge rehabilitation 

projects. However, I/D generally is not used on non-critical, low WZ RUC projects that create 

little disruption to traffic, such as signal systems, landscaping, and signing projects. 

The advantages and disadvantages of using I/D provisions are summarized in Table 44. 

Table 44. Advantages and disadvantages of incentives/disincentives. 

Advantages Disadvantages 

• Reduces WZ RUC 

• Shortens project completion time 

• Enhances work zone safety 

• Encourages contractor efficiency and 

productivity 

• Accommodates local traffic flow 

• Opens critical phases of a project earlier 

• Reduces construction engineering 

inspection, traffic control costs 

• Would not necessarily result in time savings

• Additional agency resources 

• Increased construction costs 

• Negotiations difficult with contract 

changes 

• May lead to adversarial relationship 

• Additional documentation and coordination 

• Risks of unbalanced bids with both cost and 

time component if planned not properly. 

• Needs additional planning 

Incentive/disincentive provisions are effective when the agency goal is to 

minimize work zone impacts and associated road user costs through early 

completion. 

4.2.2.2 A+B Bidding (with I/D) 

A+B bidding allows an owner agency to solicit bids for the cost of work items and the time to 

complete the work and procure them in a single contract. This method involves two 

components: 

 Cost (A): The dollar amount of contract items (equipment, materials, and manpower) 

for all work to be performed under the traditional low-bid contract. 
99 

 Time (B): The dollar amount for the time component of a contract, estimated by 

multiplying the number of calendar days to complete the work by the daily road user 

cost. 

The cost and time components are combined to arrive at a bid value: 

Bid value = (A) + (B x Daily Road User Cost) 

The contract is then award to the lowest bid value for contract award. This formula is not 

used in determining the payment to the contractor. The contractor receives incentives for 

early completion and is required to pay disincentives (and liquidated damages) for delaying 

beyond the completion date agreed in the contract. 

A+B bidding generally is suitable for time-critical projects such as high-traffic volume 

roadways, business, tourist, and environmentally sensitive areas. Typical projects include 

new/reconstruction, rehabilitation projects, simple bridge replacement projects, detour 

projects, intersection upgrades, and bridge rehabilitation projects. A+B bidding is not 

required for non-critical, low impact projects such as signal systems, landscaping, and signing 

projects. 

Example 4.1: Illustration of A+B bidding

RUC specified by the agency = $2,000/day 

Bidder Cost Number of 

Calendar Days 

Total Bid Amount 

A $ 195,000 23 =$ 195,000 + 23 * $ 2,000 =$ 241,000 

B $ 198,000 22 =$ 198,000 + 22 * $ 2,000 =$ 242,000 

C $ 210,000 17 =$ 210,000 + 17 * $ 2,000 =$ 244,000 

D $ 200,000 20 =$ 200,000 + 20 * $ 2,000 =$ 240,000 

E $ 205,000 19 =$ 205,000 + 19 * $ 2,000 =$ 243,000 

Winning Bidder: D

The advantages and disadvantages of this method are summarized in Table 45. 

Table 45. Advantages and disadvantages of A+B bidding. 

Advantages Disadvantages 

• Reduces WZ RUC 

• Shortens project completion time 

• Enhances work zone safety 

• Encourages contractor efficiency and 

productivity 

• Accommodates local traffic flow 

• Opens critical phases of a project earlier 

• Reduces construction engineering 

inspection, traffic control costs 

• Would not necessarily result in time savings

• Additional agency resources 

• Increased construction costs 

• Negotiations difficult with contract 

changes 

• May lead to adversarial relationship 

• Additional documentation and coordination 

• Bidding risks with insufficient competition 

• Risks of unbalanced bids with both cost and 

time component if planned not properly. 

• Needs additional planning 
100 

A+B bidding allows the market to determine the required contract time to 

complete the project. It is effective when the owner agency is not certain of its 

completion time estimates. It is not recommended when few bids are expected. 

Suitable for time-sensitive projects when combined with I/D. 

4.2.2.3 105BULane Rental 

In lane rental, the contractor pays a rental fee for the time period a lane is closed to through 

traffic for construction activities. This provision is intended to minimize the disruption of the 

work zone traffic and to encourage minimal use of lanes for construction activities. 

In this approach, the owner agency determines the number and duration of lane closures. The 

lane rental fee is estimated using the WZ RUC of the closure period. Closures may be 

continuous or intermittent, restricted to off-peak hours, night work, weekend, or during the 

execution of specific tasks, such as blasting.P1F

106P The owner must estimate the closure time 

accurately, and the methodology for determining closure time should be defined clearly in 

the specifications. In some cases, the contractor may be allowed to propose the required 

amount of closure time and number of closures in their bid submissions.4TP

 99P4T Lane rental fee can 

be combined with an I/D provision or may apply only for the period of schedule overrun. Lane 

rental also can be combined with the A+B bidding method. 

Lane rental generally is suitable when detours are long, unavailable, or impractical, or when 

peak hour traffic is impacted adversely. It is well suited for multiple lane roads with high 

traffic volumes where there is flexibility for intermittent or temporary lane closures to keep 

at least one lane open to traffic through the work zone. Typical projects include mill and 

overlay, temporary widening, patching, diamond grinding, dowel retrofitting, reclamation and 

recycling, guardrails, striping, signing, bridge painting, crack sealing, signal systems, and 

traffic management projects. Lane rental is not suitable for projects where long-term 

permanent lane closures are required, such as bridge re-deck or concrete rehabilitation 

projects. 

The advantages and disadvantages of this method are summarized in Table 46. 

Lane rental is effective for projects where the owner wants to encourage the 

work to done during non-peak hour periods. It is not suitable when full closure is 

inevitable. For long-term projects, combine lane rental with A+B bidding. 

Table 46. Advantages and disadvantages of lane rental. 

Advantages Disadvantages 

• Reduces WZ RUC 

• Shortens project completion time 

• Enhances work zone safety 

• Encourages contractor efficiency and 

productivity 

• Accommodates local traffic flow 

• Work at night and worker safety

• Would not necessarily result in time savings 

• Additional agency resources 

• Negotiations difficult with contract changes 

• May lead to adversarial relationship 

• Additional documentation and coordination 

 

106 Caputo, F., and S. Scott, Criteria and Guidelines for Innovative Contracting, Final Report, Study No. 

SD95-07, Submitted to the South Dakota Department of Transportation, Pierre, SD, 1996. 
101 

4.2.2.4 No-Excuse Incentives 

In this method, the contractor is given a “firm completion date” with no excuses for delay. 

The contractor receives incentives for completing by or before the specified date but there 

are no disincentives applied for failure to meet the target date (liquidated damages may 

apply). This method is also referred to as locked incentive dates. 

No-excuse incentive clauses have been successful in encouraging early completion for 

projects that must be open by an event date, such as a sporting event. However, if 

construction is not completed by that date, appropriate disincentive or liquidated damage 

provisions may be used to recover public and agency costs. 

No-excuse incentives are suitable for time-critical and full closure projects such as in urban, 

business, tourist, or environmentally sensitive areas. They are well suited for larger projects 

with multiple phases where the pace of work progress needs to be controlled. 

No-excuse incentives are effective when the owner agency is confident of the 

contract time estimates. They are suitable for time-critical projects and when 

few bids are anticipated. 

The advantages and disadvantages of this method are summarized in Table 47. 

Table 47. Advantages and disadvantages of no-excuse incentives. 

Advantages Disadvantages 

• Reduces WZ RUC 

• Shortens project completion time 

• Enhances work zone safety 

• Encourages contractor efficiency and 

productivity 

• Opens critical phases of a project earlier 

• Better control of project acceleration 

compared to A+B 

• Reduces construction engineering 

inspection, traffic control costs 

• Additional agency resources 

• Increased construction costs 

• Negotiations difficult with contract 

changes 

• May lead to adversarial relationship 

• Needs additional planning 

• Legal constraints may not permit 

4.2.2.5 Interim Completion Dates (with or without I/D) 

In this method, the contractor is required to complete one or more specific portions of a 

project within a set duration or by a firm completion date. Schedule-related incentives and 

disincentives may apply. 

Interim completion date is effective when the completion of one or more 

intermediate phases of a project is critical. 

4.2.2.6 Liquidated Savings 

Under this provision, the contractor receives an incentive amount equal to the savings in the 

owner agency’s construction oversight costs for completing the project ahead of schedule. 

The same approach is used for calculating both liquidated savings and liquidated damages. 
102 

4.2.2.7 Accelerated Construction Techniques 

Accelerated construction uses various techniques and technologies to help reduce 

construction time while enhancing/maintaining safety and quality. Accelerated construction 

techniques offer significant advantages over the traditional construction techniques: 

 Reduces the on-site construction time. 

 Minimizes inconvenience to traveling public. 

 Makes the construction process efficient. 

 Improves the work zone safety (with reduced exposure time). 

 Reduces environmental impacts by minimizing the site access footprint. 

 Reduces the associated road user costs. 

Acceleration construction techniques include: 

 Prefabricated Bridge Elements and Systems (PBES): These prefabricated elements are 

manufactured at an off-site location under controlled conditions, assembled as 

structural systems, transported to the construction site, and installed on a prepared 

foundation. Prefabricated elements include individual structural elements such as 

partial-depth or full-depth deck panels, pre-cast beams, pier cap, abutment wall, 

wingwall, and/or footing column, and/or footing. Prefabricated elements include 

superstructure, substructure, or the entire bridge system itself. 

 Heavy Cranes/Transporters for Bridges: Self Propelled Modular Transporters (SPMT) 

facilitate quick removal of demolished bridge structures and rapid installation of a 

new superstructure. The SPMT technology reduces the sequential processes of 

conventional on-site bridge superstructure construction into one step: move 

prefabricated bridge superstructure to its final position. SPMTs can move the new 

bridge superstructure or the entire bridge into place in minutes, with construction 

inspection completed and traffic flow restored within several hours (FHWA, 2007).P12F

107

 Pre-cast Concrete Pavement Construction: Prefabricated concrete panels facilitate 

rapid repair, rehabilitation, and construction of pavements in high-volume-traffic 

roadways. These panels can be used for single lane replacements, full-depth repairs or 

full-width construction. These panels can be made thinner than cast-in-place panels, 

making them ideal for installation under overpasses with limited height clearances.P13F

108

 Material Innovations: Use of non-conventional materials, such as rapid strength 

concrete and polymer modified concrete, minimizes the lane closure time required for 

constructability reasons and facilitates the early opening of lanes to traffic. 

 Non-destructive Testing: Use of non-destructive test devices, such as the light weight 

falling weight deflectometer and intelligent compaction, provides real-time 

monitoring of construction quality and saves construction time. 

Accelerated construction techniques are effective in high traffic volume areas. 

They also are effective in areas where detours are long and full closure is 

inevitable. They are suitable for both emergency and as-planned projects. 

 

107 FHWA Manual on Use of Self-Propelled Modular Transporters to Move Bridges, Publication No. FHWAHIF-07-022, Federal Highway Administration, 2007. 

http://www.fhwa.dot.gov/bridge/pubs/07022/hif07022.pdf

108 FHWA, Modular systems reduce traffic congestion and speed project completion, 

http://www.fhwa.dot.gov/hfl/innovations/pdfs/precast.pdf
103 

Accelerated construction techniques are appropriate for projects that require the least 

possible lane closure times. Installation of prefabricated bridge elements, systems, or 

concrete panels requires fewer hours of lane closure, thus limiting traffic disruption to 

shorter periods during non-peak hours, nights, or weekends. These techniques are suitable for 

high volume roadways, emergency bridge replacement, evacuation routes, over a railroad or 

navigable waterway, and locations where detours are long or impractical. These techniques 

also are suitable for bridges or concrete pavements that impact the critical path duration of 

the project.P14F

109

4.2.2.8 Design-Build Projects 

Design-build is a project delivery method in which an owner combines procurement for both 

design and construction services into a single contract from a single private sector entity. In 

design-build contracting, the owner is responsible for defining the scope and requirements of 

the project, performing initial design and design oversight, soliciting proposals from bidders 

to procure services for both final design and construction, and evaluating those proposals for 

selection, while the responsibilities for final design is shifted to the design-builder. 

In the design-build approach, the performance criteria for the project include schedule, 

project management, and technical and cost factors. Schedule is particularly important 

because owners typically select design-build as a means to compress the project delivery 

method.P15F

110P The owner agency may require potential contractors to propose a time schedule 

for project completion in their bid submittal that may include interim milestones to control 

the pace of the project and a final completion date. The owner agency also may specify 

criteria for schedule restrictions in the proposal solicitation that include lane closure hours, 

forbidding certain types of work during specified periods of time, mandating holidays, and 

implementing security precautions. The contractor-proposed time schedule will then be 

evaluated (along with other criteria) for award. For low-bid awards, the owner agency can 

propose the schedule for project completion. 

From the WZ RUC perspective, the direct involvement of the design-builder in the preconstruction phases helps to identify appropriate strategies for reducing work zone impacts 

and overall project delivery time; however, it is imperative that the responsibilities of the 

design-builder are defined clearly in the proposal solicitation. 

Design-build is effective when the owner agency is certain of the design scope. 

It is suitable for large, innovative, and more complex projects. 

The advantages and disadvantages of the design-build contracting are summarized in Table 

48. 

 

 

109 FHWA, Decision-Making Framework for Prefabricated Bridge Elements and Systems (PBES), 

Publication Number FHWA-HIF-06-030, Federal Highway Administration, May 2006. 

110 Molenaar, K. R., and A. D. Songer, “Model for Public Sector Design-Build Project Selection,” 

Journal of Construction Engineering and Management, American Society of Civil Engineering, Vol. 24, 

Issue 6, 1998. 
104 

Table 48. Advantages and disadvantages of design-build project delivery. 

Advantages Disadvantages 

 Shortened construction completion time

 Less time impact on design errors and 

omissions as the design-build is in control 

on both design and construction details 

 More flexibility for contractor innovation 

in selecting design, materials and 

construction methods 

 Reduced change orders and claims 

 Inclusion of innovations and new 

technologies. 

 Risks over the owner’s inability to 

precisely define the project scope 

 Loss of owner’s control over design details 

 Change orders are expensive 

 Uncertainty over life cycle performance 

and potential conflicts with the 

contractor’s design. 

4.2.2.9 Construction Manager/General Contractor 

CMGC is a two-phase project delivery method where a construction manager, selected by an 

owner based on qualifications for both preconstruction and construction services of a project, 

will be at risk for the final cost and time of construction. As W. Strang puts it, “the 

construction manager is an agent of the Owner in managing the design process, but takes the 

role of a vendor when a total cost guarantee is given.”111

In the first phase, the selected contractor collaborates with the owner and designer in the 

pre-construction phases to provide inputs particularly on constructability, budgeting, 

schedule, and materials ; assist in developing a complete contract package; and establish a 

guaranteed maximum price (GMP), delivery schedule, and construction quality when the 

design is nearly complete. 

In the second phase, the contractor builds the project for a GMP acceptable to the owner. 

Upon failure to reach an acceptable price, the construction manager is entitled to payment 

for the pre-construction services, while the owner may put out the project as a low bid 

design-bid-build project in the market. Upon acceptance, the construction manager is at risk 

for any expenditure exceeding the GMP. Any cost savings realized in the project may be 

shared between the owner and the construction manager. 

In the pre-construction phase, the construction manager’s services may be utilized in all 

phases of the project, including but not limited to not limited to planning, design, third-party 

coordination, constructability reviews, budgeting, cost estimating, scheduling, value 

engineering, material selection, construction logistics plan, market surveys of construction 

materials and equipment, contract package development, and other services required in the 

contract. 

The advantages and disadvantages of the CMGC are summarized in Table 49. Note that the 

advantages listed in this table of are basically linked to the cost, schedule, quality 

performance of the project, while the disadvantages are mostly related to the contract 

administration. 

 

111 Strang, W., “The Risk in CM at-Risk,” CM eJournal, Construction Management Association of 

America, McLean, Va., 2004. 
105 

Table 49. Advantages and disadvantages of CMGC. 

Advantages Disadvantages 

 Contractor’s inputs in the design decisions 

 Relatively higher precision cost estimates 

at early stages of the project 

 More realistic and faster delivery schedule 

 Early bid packages 

 Teaming atmosphere 

 Owner control over the details of the 

design 

 Identifies risks early and allocate to 

parties that better manage them. 

 Conflict of interest between the 

construction manager and the designer 

(i.e., cost control versus conservative 

design to reduce design liability). 

 Additional owner responsibility to 

coordinate both design and construction 

phases of the contract. 

 Final cost unknown until the GMP is 

established 

 Inadequate training and experience. 

In the context of WZ RUC, CMGC allows for the collaboration between the owner and the 

construction manager in developing a construction phasing and delivery schedule for the 

project. This approach may be advantageous in expediting project completion time and 

minimizing the work zone impacts on traffic and the local community, thus reducing road user 

costs. 

In this method, at the time GMP is established, the construction manager establishes 

construction completion dates for final or substantial completion and any intermediate phases 

and milestones. The completion dates typically are established in terms of calendar days 

following the commencement date of the construction phase. In the event the construction 

manager fails to complete the project or any intermediate phases by the completion dates 

agreed upon, the construction manager may attract disincentives for late completion. 

Similarly, depending on the contract agreements, the construction manager may attract 

incentive bonus for early completion. 

Another advantage of CMGC is the ability to incorporate the construction manager’s 

perspective and inputs in developing MOT strategies. The construction manager either 

collaborates with the designer in preparing better MOT plans or improves on a prepared plan. 

CMGC allows for early participation of the contractor in the planning and design 

process. It is effective when the owner agency is uncertain of the design scope 

and is suitable for large, innovative, and more complex projects. 

Though suitable for projects of all sizes and complexity, CMGC typically is used for larger, 

more complex projects with high road user costs. CMGC is appropriate when the owner has 

difficulties in identifying reasonable schedules and cost estimates for a project and when 

there is a need for optimizing design and improve constructability. 

4.3 2BSELECTING A CONTRACTING STRATEGY TO EXPEDITE PROJECT COMPLETION

An owner agency decides on the contracting strategy to be used in the initiation and 

preliminary phase of a project. The process involves the selection of an appropriate project 

delivery method followed by a schedule-focused contracting strategy for early completion. 

The decision making process is influenced by the agency goals, project objectives, and the 

need to accelerate the project in particular. 
106 

In the earlier phases of the project, the owner agency typically establishes the preliminary 

cost estimates, a tentative time schedule, and milestones, and conducts public meetings and 

work zone traffic analyses to assess the impact the project will have on the public. Based on 

the preliminary estimates and impact assessment, the owner agency then establishes the 

need to accelerate the project, evaluates the project criteria for effective use of schedulefocused contracting methods, and selects an appropriate strategy for early completion. 

Estimates of key contract parameters, such as daily WZ RUC, I/D structure, accelerated 

schedule, and associated costs are refined as the design phase progresses. The process 

typically extends until all the pertinent design details are finalized. 

Figure 14 presents a sample process proposed by Sillars (2007) for implementing schedulefocused contracting methods.P16F

112P 

Figure 14. Sample flow chart of the I/D contracting implementation process (Sillars, 2007). 

 

112 Sillars, S. N. Establishing Guidelines for Incentive/Disincentive Contracting at Oregon DOT, Report 

No. FHWA-OR-RD-07-07, Oregon Department of Transportation, Salem OR, 2007. 
107 

For practitioners, the following references provide a more in-depth review of schedulefocused contracting methods: 

 NCHRP Synthesis No. 379: Selection and Evaluation of Alternative Contracting Methods 

to Accelerate Project Completion — This report summarizes the state of practice of 

selecting schedule-focused contracting methods to accelerate project completion and 

to identify driving factors for selecting one method over another.101

 NCHRP Report No. 652: Time-Related Incentive and Disincentive Provisions in Highway 

Construction Contracts — This report provides recommendations for the effective use 

of time-related I/D provisions in highway construction contracts.99

The key steps involved in selecting a contracting strategy to expedite project completion are 

listed as follows: 

1. Identifying the need for project acceleration 

2. Selecting a project delivery method 

3. Selecting a schedule-focused contracting strategy 

4.3.1 Need for Project Acceleration 

The first step of the process is to establish the need for using a schedule-focused contracting 

strategy and shortening the duration of the project. The owner agency may choose to 

accelerate the project completion to reduce work zone impacts and associated road user 

costs, in the larger interests of local community and political interests, to complete the 

project on or before an intended date or to close a gap in the local highway network. The 

impact assessment also helps in identifying the work zone needs by characterizing the travel 

and safety impacts on commuter and freight traffic, the economic effects on local business 

and inconvenience on neighborhood, and associated road user costs. 

The agency can develop minimum guidelines to identify the need for project acceleration in 

the earlier phases of project development based on project characteristics, duration, and 

threshold levels of traffic delay time and road user costs. If a project meets such minimum 

guidelines for using schedule-focused contracting methods, the project team can further 

establish the potential benefits for its use. 

FHWA’s Technical Advisory T 5080.10 states that time-related I/D provisions are appropriate 

for projects identified with selective characteristics and not for routine use.P17F

113P The advisory 

identifies projects with the following characteristics appropriate for its application: 

 High-traffic volumes generally found in urban areas. 

 Work that will complete a gap in the highway system. 

 Major reconstruction or rehabilitation on an existing facility that will severely disrupt 

traffic. 

 Major bridges out of service. 

 

113 Willett, T. O., Incentive/Disincentive (I/D) for Early Completion, Technical Advisory T 5080.10, 

Federal Highway Administration, dated February 8, 1989. 

http://www.fhwa.dot.gov/construction/contracts/t508010.cfm
108 

 Significant impacts to local business and adjacent neighborhood. 

 Lengthy detours. 

 Significant increase in road user costs. 

In addition, an agency may consider the following factors: 

 Significant safety issues of workers and traffic are anticipated during construction. 

 Where political and local community interests are needed to be accommodated. 

 Time-sensitive projects. 

 To encourage innovative construction processes. 

Table 50 presents a list of questions that can help to identify the need for accelerating 

project completion. If the answer to several of these questions is YES, choosing a schedulefocused contracting strategy may help achieve the project goals. Guidance on selecting an 

appropriate contracting strategy is presented in section 4.3.2. 

Table 50. Questions on identifying the need for accelerating a project schedule.

Question Yes Maybe No

Is the project goal to shorten the duration of construction phase?

Is the estimated WZ RUC high for the baseline duration?

Is the traffic volume high enough to cause significant disruptions? Does 

the work zone affect the intersecting traffic? 

Is this roadway located in an urban area? Does the local traffic depend 

on this highway for commute? 

Does this area lack any viable detour alternative that does not adversely 

impact the local network? 

Are there local community and political interests to be considered?

Does the work zone adversely impact the local business and 

neighborhood? 

Are the safety issues of construction workers and traffic a concern?

Is the project time-sensitive? 

Does this project close a gap in the local highway network?

Is the project located in tourist or environmentally sensitive areas?

However, the effectiveness of schedule-focused strategy would be lost if the project 

development process fails to provide complete and well-defined set of plans, specifications, 

and estimate (PS&E). Schedule-focused methods can be very costly in time as well as money 

with change orders, design omissions and errors and conflicts, and finally, may lose its 

effectiveness. These strategies are not recommended for use until the following 

complications are resolved: 

 Right-of-way not secured before the letting date or such issues hinders the sequencing 

and overall progress of work. 

 Third-party conflicts such as permits, municipal agreements, utilities, railroad 

agreements, hazardous materials environmental/archaeological issues. 

 Design is either incomplete; change orders or plan additions are anticipated. 

 Field review does not guarantee against restrictions any unfavorable site conditions 

such as geotechnical and environmental issues. 

 Design uncertainties or incomplete design. 
109 

 Agency-wide activities that may restrict available resources (staffing, labor, 

equipment, and material shortages) typically demanded by an accelerated schedule. 

Therefore, the owner agency should make sure to resolve these issues before the 

commencement of construction schedule. The P&SE submittal should be complete before the 

letting date. 

4.3.2 63BSelecting an Appropriate Schedule-Focused Alternative Strategy 

This section provides guidance on selecting a particular contracting strategy for a project to 

achieve schedule-related objectives. This guidance is intended to support the decision making 

process of an owner agency and should be used in conjunction with agency goals and any 

applicable State laws. 

4.3.2.1 Selecting a Project Delivery Method 

Project Size, Scope, and Complexity

 For small, medium sized, and routine projects, the design-bid-build method will be 

more appropriate for project delivery. The owner agency will have knowledge, 

experience, and control over planning, design details, and cost of the project. 

 For medium to large, innovative, and more complex projects, alternative project 

delivery methods (design-build and CMGC) are recommended. Early involvement of the 

contractor in the design or pre-construction phases will help in better coordination, 

planning, and sequencing. 

Design Scope

 When the owner agency is less certain over the design scope of the project, CMGC will 

be a more pragmatic choice over design-build. Bringing the contractor into the preconstruction process helps refining the design scope through direct contractor inputs 

and feedback over design and costs, thereby reducing related risks. Design-build is 

more appropriate when the owner agency has a clearer vision of the design scope. 

Innovations

 CMGC is a good choice for introducing innovations and new technologies, as the 

process allows collaboration and control with the contractor. CMGC encourages out-of 

box innovations that the contractors would not have chosen independently. With the 

agency’s willingness to share risks and costs, CMGC makes this choice possible by 

involving the contractor early in the process and thereby providing more time and 

options to identify the appropriate strategies for risk reduction (Alder, 2007).P18F

114P CMGC 

is preferable to design-build for introducing innovations, as owners sometimes have 

questions concerning life cycle decisions made by design-builders. Design-build is more 

appropriate when the owner has knowledge and confidence over the innovations. 

Table 51 presents a simple matrix to select an appropriate project delivery method based 

on road user costs and project completion factors only. 

 

114 Alder, R. "UDOT Construction Manager General Contract (CMGC) Annual Report," Utah Department of 

Transportation Project Development Group, Engineering Services and Bridge Design Section, Salt Lake 

City Utah, 2007, 39pp. 
110 

Table 51. Project delivery method selection matrix. 

Project size Is project

routine or

innovative?

Certain over

design

scope?

In‐house

design ?

Early cost

certainty?

Certain over

constructability?

Suggested strategy

Small‐medium Routine Yes Yes Yes Yes DBB

Follow Table 52 for schedule

related strategies.

Small‐medium Innovative Yes Yes Yes/No Yes/No DBB++

Medium‐large Routine Yes Yes Yes Yes DBB/DB/

CMGC

Medium‐large Innovative Yes Yes Yes No DBB++

Medium‐large Innovative Yes Yes No Yes/No CMGC/DB

Medium‐large Innovative Yes No Yes Yes/No DB

Medium‐large Innovative Yes No No Yes/No DB

Medium‐large Innovative No Yes Yes Yes/No CMGC

Medium‐large Innovative No Yes No Yes/No CMGC

Medium‐large Innovative No No Yes Yes/No CMGC

Medium‐large Innovative No No No Yes/No CMGC ++May hire consultants or seek constructability advice from local contractors or trade associations.

The actual selection of an appropriate project delivery method requires a 

comprehensive evaluation of a broader range of factors not mentioned herein. 

For selection of an appropriate project delivery method, practitioners are 

referred to the following publications: 

 State DOT design-build guidelines. 

 FHWA’s Design-Build Web Page115

 AASHTO Joint Task Force on Design-Build Web Page116

 Construction Manager-at-Risk Contracting for Highway Projects117

4.3.2.2 Selecting a Schedule-Focused Contracting Strategy 

Early Completion Required

 I/D will be more appropriate if the project goal is early completion. Incentives provide 

motivation to the contractor to complete the project early, whereas disincentives 

discourage schedule delays. 

 Liquidated damages will be more appropriate to ensure completion on time if early 

completion is not a priority. 

Time-Sensitive Projects

 For time-sensitive projects, A+B bidding, no-excuse incentives, and interim milestones 

are more appropriate. These methods can be used when the project is required to be 

completed by a specific date. These methods also are appropriate where early 

completion is preferred, such as in urban, tourist, and environmentally sensitive areas. 

 When the project is not time-sensitive, lane rental can help achieve the desired level 

of work zone performance. 

 

115 http://www.fhwa.dot.gov/construction/cqit/desbuild.cfm

116 http://designbuild.transportation.org/?siteid=63&pageid=1223 117 Gransberg, D. and J. S. Shane, Construction Manager-at-Risk Project Delivery for Highway 

Programs, NCHRP Synthesis 402, National Cooperative Highway Research Program, Transportation 

Research Board, Washington DC, 2010. http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_syn_402.pdf
111 

Project Duration

 Generally, for short-term projects, lane rental and no-excuse incentives are 

suggested. 

 For long-term projects, A+B bidding and no-excuse incentives are preferable. 

Intermediate or Multiple Phases

 If the completion of one or more intermediate phases of a project is critical, A+B 

bidding, no-excuse incentives, and interim milestones are recommended. For noncritical phases, lane rental can help achieve the desired level of work zone 

performance. 

 If the goal is to control the pace of a large, multi-phase project, A+B bidding, noexcuse incentives, and interim milestones will be more appropriate. 

Detours are Long, Impractical, or Unavailable

 Use of lane rental is recommended when detour alternatives are not feasible and full 

closure is not required. To be effective, lane rental requires at least one lane should 

be available for through traffic at all times. Accelerated techniques can be considered 

for use on case-by-case basis when cost-effective. 

 When detour alternatives are not feasible and full closure is inevitable, accelerated 

construction techniques will be effective. Installation of prefabricated elements and 

systems requires fewer hours of lane closure and can be scheduled during non-peak 

hours, nighttime, or weekends, in one or more stages. 

Urban Commuter Traffic

 Use of lane rental during non-peak hours is recommended for urban commuter traffic 

when full closure is not required. Accelerated techniques can be considered for use on 

case-by-case basis when cost-effective. 

 When full closure is inevitable, accelerated construction techniques will be effective. 

Use of accelerated techniques is recommended in emergency projects. 

Owner’s Confidence on Estimated Duration

 When the owner agency is not confident about the estimated project duration, A+B 

bidding allows the market to determine the number of days of completion. It also 

provides flexibility to reject bids with unreasonably high or unjustified completion 

time. 

 When the owner agency is confident about the estimated project duration, both A+B 

bidding and no-excuse incentives can be used. 

Table 52 provides a matrix for selecting an appropriate contracting strategy based on the 

decision rules discussed above. 

Schedule-focused contracting strategies typically are used in traditional designbid-build projects. When design-build and CMGC delivery methods are used, the 

time-related provisions of schedule-focused contracting methods, such as the 

number of calendar days for completion of A+B bidding, lane closure restrictions 

of lane rental method, or interim milestones can be incorporated in the 

contract provisions of a project utilizing design-build or CMGC methods. 
112

Table 52. Schedule-focused contracting strategy selection matrix. 

Notes: LR = lane rental; L/D = liquidated damages; A+B = cost plus time bidding with incentives and disincentives; 

NEB = no-excuse bonus (or no-excuse incentives); I/D = incentives and disincentives for early completion; ACT = accelerated construction techniques; IMS = interim milestones (or interim completion dates).

Short Long Yes No Yes No Critical Not

critical

Yes ‐ Full closurerequired

Yes‐full

closurenotrequired

No High Low

     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

    (A+

     (A+

     (L/D     (L/D   LR + 

    LR + 

     (L/D   (L/D

     (A+

     (A+

     (A+

     (A+

     (A+     (A+

Baseline Project 

duration

Time sensitivity Complete Early Intermediate

Phases

Detours impractical/long, Urban

commuter traffic

Owner’s

confidence on

estimated duration
113

Table 52. Schedule-focused contracting strategy selection matrix. 

Short Long Yes No Yes No Critical Not

critical

Yes ‐ Full closurerequired

Yes‐full

closurenotrequired

No High Low

     (A+

     (A+

     (A+

     (A+

     (A+     (A+     (A+

     (A+

     (A+

     (A+

    (A+

     (A+

     (A+

     (A+

     (A+

     (A+    (A+     (A+     (A+

     (A+

     (A+

     (A+

     (A+

     (A+

Baseline Project 

duration

Time sensitivity Complete Early Intermediate

Phases

Detours impractical/long, Urban

commuter traffic

Owner’s

confidence on

estimated duration
114 

Example 4.2: HfL demonstration project, “Improvements to the 24th Street–I-29/80 

Interchange in Council Bluffs” 

This example illustrates the selection for appropriate schedule-focused strategy for the 24PthP 

Street Intersection project in Iowa, an HfL demonstration project, using Tables 52 and 53. 

Project Overview: 

The Iowa DOT, Nebraska Department of Roads, and FHWA, in coordination with the City of 

Council Bluffs and the Metropolitan Area Planning Agency, proposed improvements to the Council 

Bluffs Interstate System (CBIS) around Council Bluffs, IA, with improvements extending across the 

Missouri River on I–80 into Omaha, NE. The proposed improvements were intended to upgrade 

mobility through the I–80, I–29, and I–480 corridors. The 24th Street interchange reconstruction 

was selected as a part of the proposed improvements to the CBIS. The primary component of this 

project was to replace the existing four-span concrete bridge with a wider and longer two-span 

steel girder bridge. The owner, Iowa DOT, has used partial–depth panels for low–volume bridges, 

but full–depth panels are still a new concept for high–volume corridors. 

24th Street carried AADT of 12,400 vehicles per day (vpd) in 2004 with 14 percent truck volume, 

while I-29/80 carried an AADT was 81,900 vpd in 2004 with 11 percent truck volume. The 24th 

Street interchange provides vital access to major businesses and regional attractions in the area 

that includes a large outdoor retailer, a convention and event center, and several casinos, 

hotels, and semitruck service centers. Access to these businesses and attractions was a major 

concern when access from the interstate to 24th Street was restricted. Both the City and the 

State made a commitment to provide access to these businesses during construction. 

Using a conventional cast-in-place construction for bridge replacement would have extended the 

construction duration over 2 seasons (16 months), and thus resulting in negative mobility and 

safety impacts on the 24th Street and I-29/80 traffic, and economic implications on local 

businesses. Therefore, the owner examined the possibility of using accelerated construction 

methods to reduce construction duration and minimize work zone impacts. The owner convened 

a constructability review meeting with local contractors to discuss the feasibility of accelerated 

methods for the project. The contractors were found to favor of a staged construction for one 

full construction season. Completely closing the bridge to 24th Street traffic and reconstructing 

the entire bridge would have been the least expensive option in terms of construction costs, but 

it would have been unacceptable to the surrounding businesses that rely heavily on the 

interchange. The MOT alternative analysis indicated that it was possible to maintain at least one 

lane of traffic in each direction and left-turn lanes at all times on 24th Street with the use of 

phased construction. 

Strategy Selection: 

Using the information presented above, the 24P

thP Street Intersection project was evaluated to 

identify appropriate contracting strategies for schedule acceleration and project delivery. The 

selection factors and evaluation results are presented below: 

Project Delivery Method: 

 Project size = Medium to large. 

 Is project routine or innovative? = Innovative. 

 Certain over design scope? = Yes. 

 In-house design? = Information unavailable. Assumed to be Yes. 

 Early cost certainty? = Information unavailable. Assumed to be Yes. 

 Certain over constructability? = Partially No. Partial–depth panels for low–volume bridges 

were used in the past, but full–depth panels in high-volume corridors were for Iowa DOT.

 
115 

Suggested project delivery strategy (from Table 51) = Design-bid-build. May hire consultants 

or seek constructability advice from local contractors and trade associations. 

Schedule-Focused Contracting Strategy: 

 Baseline project duration = Long. 

 Time sensitivity? = No. 

 Complete early? = Yes. 

 Intermediate phases? = No. 

 Detours impractical? = No. 

 Urban commuter traffic = Yes 

 Full closure required? = No. 

 Owners confidence on estimated duration? = Low. 

Suggested schedule-focused contracting strategy (from Table 52) = A+B bidding with 

incentive and disincentive, lane rental and/or accelerated construction techniques. 

Actual contracting strategies used in the 24P

thP Street Intersection project were: 

 Design-bid-build. 

 Convened constructability review from local contractors. 

 A+B bidding with I/D. 

 Accelerated construction techniques.

4.4 23BESTABLISH KEY I/D PARAMETERS

Upon the selection of an appropriate contracting strategy for the project, key cost and 

schedule parameters must be determined in the design stage. These parameters are 

paramount for the successful execution of the selected strategy and include: 

 Daily WZ RUC. 

 I/D amount. 

 Baseline and accelerated schedule. 

 Costs of acceleration. 

Figure 17 presents a theoretical construct to illustrate the relationships among these key 

parameters. Combining the concepts of “time-cost tradeoff” and “time is money,” this model 

is based on the following rationale: 

 Project acceleration requires additional labor, materials, and equipment and 

therefore costs more money. 

 Delaying the project beyond the normal completion time results in increased costs due 

to inefficient allocation and utilization of resources. 

 The longer construction takes, the greater the road user costs and agency overhead 

costs will be. 

Proposed by McFarland et al. (1994), this model can be used to determine the optimum 

construction completion time at which the direct agency costs and road user costs are 

balanced.P12F

118P This model presents at least three cost curves: construction costs, road user 

 

118 McFarland, W. F., R.J. Kabat, and R. A. Krammes, Comparison of Contracting Strategies for 

Reducing Project Completion Time, Report No. FHWA/TX-94/1310-F, Texas Department of 

Transportation, Austin, TX, 1994. 
116 

costs and construction engineering costs (combined for the presentation purposes), and total 

project costs. 

The construction cost curve represents the contractor’s cost for completing the project 

(assumed to include a normal profit). For every construction project, the construction cost is 

the lowest at the baseline duration (point CR

LR). Any deviation from this baseline schedule will 

result in increased construction costs. Expediting completion requires additional contractor 

effort through tighter schedules and overtime, additional resource mobilization and 

deployment and/or innovation, and incurs additional costs to the contractor. Extending the 

completion beyond the baseline duration results in penalty and misallocation and 

underutilization of resources, and hence incurs additional costs to the contractor. In other 

words, the construction costs increase with each additional day saved or delayed from the 

standard schedule. 

Figure 15. Relationship between project cost and duration. 

On the other hand, the agency’s construction oversight cost and WZ RUC increase linearly 

with project duration. When these indirect costs are combined with the construction costs, 

the resulting cost curve shifts to the left. In other words, the combined costs are lowest at an 

optimal duration (point TR

LR) shorter than the normal expected duration. Any further 

acceleration will no longer be justifiable, as the difference between benefits and costs would 

be negative. 

Any difference between the total costs and the construction costs will be used in calculating 

incentives and disincentives. While the disincentives will be based on the differential road 

user and construction engineering costs, the incentives should be lower than the 

disincentives, as the incentive calculation will take the additional amount paid by the agency 

toward the contractor’s costs of acceleration. However, for practical purposes, both 

incentives and disincentives are generally kept the same. COST

DURATION

TL

CL

Total project 

costs

Normal 

duration

Optimum 

Duration

Total project cost = construction cost + RUC+ construction engineering costs

Duration 

overrun

Construction 

costs

Road user and 

construction 

engineering 

costs

TL = lowest total project cost at optimum duration

CL = lowest construction cost at normal duration

Incentive

Disincentive
117 

These curves can be used as a basis for establishing the key parameters of schedule-focused 

contracting strategies. However, it should be noted that the cost curves are merely the 

theoretical constructs of “real world” scenarios. There are several key assumptions behind 

the development of these curves: 

 The owner agency has adequate projects (for sample size) and detailed cost data for 

developing statistically valid models. 

 The agency costs, road user costs, and duration data are estimated accurately. 

 There is effective competition among contractors with no collusion. 

 The cost curves are deterministic, as opposed to a stochastic model. 

Practitioners can use one of the following methods in developing construction cost curves: 

 Generic cost vs. duration models can be developed using regression analysis of 

multiple project data utilizing alternative contracting projects. Such models generally 

are less sensitive to project specifics and may provide less accurate cost estimates. 

Therefore, these models should be limited to cursory estimations in the early stages 

for project delivery. To cite an example, Shr et al. (2000)P 123F

119P developed polynomial 

cost models for Florida DOT to estimate project acceleration costs. Cost and duration 

data from 15 construction projects were used in developing this model. Schedulefocused (alternative) contracting projects were used on all of these projects that 

included I/D, no-excuse bonus, and A+B bidding. 

The polynomial cost model developed to estimate the construction costs is presented 

as follows: 

ܥܥ ൌ 1.0059 כ ܥை െ 0.1048ܥை ቀ

஽ି଴.଼଼଻ହכ஽ೀ

஽ೀ

ቁ ൅ 0.4657ܥை ቀ

஽ି଴.଼଼଻ହכ஽ೀ

஽ೀ

ቁ

ଶ

(Eq. 1) 

where, 

CC= actual project cost 

CR

oR = contractor bid price 

D = actual days used by the contractor 

DR

oR = contract time specified in the bid 

 More accurate, project-specific cost vs. duration models can be developed using 

detailed time-cost tradeoff analysis. These models can be developed for project-level 

applications by computing cost and duration estimates for activities (interchangeably 

used with work items) on the critical path schedule at various levels of acceleration 

(by applying different production rates). Developing these models can be cumbersome 

and computation-intensive, as real-world projects involve hundreds of activities. 

Furthermore, detailed cost and productivity data are required for each activity. 

 

 

119 Shr, J. F., B. P.Thompson, J. S. Russell, B. Ran, and H. P. Tserng, “Determining Minimum Contract 

Time for Highway Projects,” Transportation Research Record No. 1742, Journal of the Transportation 

Research Board, Transportation Research Board, Washington, D.C., 2000. 
118 

64B

Example 4.3: Illustration of cost vs. duration relationship

The following example illustrates the relationship between construction costs, road user costs, and 

duration for a hypothetical highway construction project. Assume that the contract time specified in 

the bid is same as the normal construction time at which the contractor’s construction costs would be 

lowest. For sake of illustration, the construction cost model developed by Shr et al. (2000) was used in 

this example. 

1. Using the construction cost model presented in Eq. 1, develop cost vs. duration curve similar to the 

one shown in Figure 15. Assume that the actual duration used by contractor would vary from the bid 

duration by +/- 10 days. Identify the optimum duration for project acceleration at which the total 

project cost will be minimum. The inputs are as follows: 

 Road user costs (RUC) = $3,500/day 

 Agency’s construction engineering costs (AGCEC) = $500/day 

 Contract time specified in the bid (DR

oR) = 60 days 

 Contractor’s bid price (CR

oR) = $3,000,000 

The following table presents the information required for constructing the curve: 

 Actual duration (D) = DR

oR +/- 10 days 

 Construction cost CC = use Eq. 1 (proposed by Shr et al., 2000) 

 RUC+CC =(Daily WZ RUC + AGCEC) * D 

 Total project costs (TCP) = CC + (Daily WZ RUC + AGCEC) * D (i.e. Columns 2+3) 

Actual Duration D

(days)

Construction Cost

CC ($, 000)

RUC+AGCEC

($,000)

Total Project

Cost ($,000)

50 3038.8 200.0 3238.8

51 3031.5 204.0 3235.5

52 3024.9 208.0 3232.9

53 3019.0 212.0 3231.0

54 3014.0 216.0 3230.0

55 3009.7 220.0 3229.7 Optimum duration

56 3006.2 224.0 3230.2

57 3003.5 228.0 3231.5

58 3001.6 232.0 3233.6

59 3000.4 236.0 3236.4

60 3000.0 240.0 3240.0 Normal duration

61 3000.4 244.0 3244.4

62 3001.6 248.0 3249.6

63 3003.5 252.0 3255.5

64 3006.2 256.0 3262.2

65 3009.7 260.0 3269.7

66 3014.0 264.0 3278.0

67 3019.0 268.0 3287.0

68 3024.8 272.0 3296.8

69 3031.4 276.0 3307.4

70 3038.8 280.0 3318.8
119 

The cost vs. duration curve developed using the information presented in the above table is shown 

below: 

The optimum number of days for project acceleration is 55 days.

4.4.1 Establishing I/D Amount 

Each schedule-focused contracting strategy discussed herein is based on the concept that the 

owner agency would reimburse a portion of the delay costs to the contractor for shortening 

the construction delivery time, while the contractor is penalized for delaying the project 

delivery beyond the allowable time.P124F

120P To accomplish the objectives of shorter delivery time, 

the incentive amount must be sufficient to motivate the contractor to accelerate the project. 

If the acceleration costs are equal to or greater than the incentive amount, then there is no 

real incentive to accelerate production, and the use of I/D provisions will not produce the 

intended results. If the incentive amount exceeds the costs of delay, the agency cannot 

justify the use of incentives based on road user cost savings. 

The contractor’s costs of acceleration (CA) and road user costs form the lower and upper 

limits for the incentive/disincentive amount. Therefore, a balance must be struck between 

the two bounds in determining an appropriate incentive/disincentive amount for the project. 

P125F

121,126F122P The following equation illustrates the relationship among the I/D amount, WZ RUC, and 

CA: 

CA ≤ I /D ≤ WZ RUC 

 

120 Herbsman, Z. J., W. T. Chen, and W. C. Epstein, “Time is Money: Innovative Contracting Methods in 

Highway Construction,” Journal of Construction Engineering and Management, American Society of 

Civil Engineering, Vol. 121, No. 3, 1995. 

121 Jaraiedi,M., R. W. Plummer, and M. S. Aber, “Incentive/Disincentive Guidelines for Highway 

Construction Contracts”, Journal of Construction Engineering and Management, American Society of 

Civil Engineering, Vol.121, No. 1, 1995. 

122 Sillars, D. N., and J. Riedl, “Framework Model for Determining Incentive and Disincentive Amounts,” 

Transportation Research Record No. 2040, Journal of the Transportation Research Board, 

Transportation Research Board, Washington, D.C., 2007. 

$0

$50

$100

$150

$200

$250

$300

$2,900

$3,000

$3,100

$3,200

$3,300

$3,400

48 50 52 54 56 58 60 62 64 66 68 70 72

WZ RUC and Construction

Engineering Costs (in thousands)

Total Project and Construction Costs

(in thousands)

Number of Construction Days

Construction Cost

Total Project Cost

WZ RUC and Construction Engineering Costs

Optimal

duration
120 

While most owner agencies can estimate daily road user costs, there is no standardized 

approach for determining CA. Furthermore, this information generally is not available to 

agencies. However, individual highway contractors regularly determine this value for their 

firms112. In such cases, the owner agencies may use a discount factor (DF) to convert WZ RUC 

to I/D values as illustrated as follows:P 127F

123,128F124

I/D = DF * WZ RUC 

In either case, the maximum incentive and disincentive amounts should follow the guidelines 

of the FHWA’s Technical Advisory T 5080.10.113 The advisory stipulates the maximum 

incentive payment at 5 percent of the total contract amount, while no cap should be placed 

on the maximum disincentive amount. Generally, the incentive daily rate should equal the 

disincentive daily rate. If different rates are selected, the incentive daily rate should not 

exceed the disincentive daily rate. 

4.4.2 Establishing Daily WZ RUC 

At the end of the design stage (i.e., 90 percent design), the daily WZ RUC estimates should be 

finalized for use in the bidding documents. At this stage, the agency should have finalized the 

MOT strategy that will be implemented in the construction phase. 

Example 4.4: Computing incentives

As a continuation of Example 4.3, assume that the contractor took 58 days to complete the work (2 

days earlier than the contract time specified in the bid). Calculate the incentive amount paid the 

contractor. Assume that the agency paid 40 percent of the total savings to the contractor. 

Contractor’s bid price (C) = $3,000,000 (from Example 4.3) 

Contract time specified in the bid (D) = 60 days 

Actual days used = 58 days 

UStep 1. Determine the contractor’s CA.

Actual construction cost (for 58 days) = $3,001,600 (from Example 4.3) 

Contractor’s CA = $1,600 

UStep 2. Calculate the agency savings through WZ RUC and AGCEC.

Bid WZ RUC+AGCEC (for 60 days) = $240,000 (from Example 4.3) 

Actual WZ RUC+AGCEC (for 58 days) = $232,000 (from Example 4.3) 

Savings through WZ RUC and AGCEC = $8,000 

UStep 3.Compute the I/D paid by the agency to the contractor. 

Total savings = $8,000 

Discount factor = 40 % 

Incentives paid to the contractor = 40% of $8,000 = $3,200

 

123 Pyeon, J. H., and E. B. Lee, CA4PRS Application for Determination of Incentive/Disincentive Dollar 

Amount, Presented at the CA4PRS Peer Exchange Workshop, St. Louis, MO, 2010. 

124 NJDOT, Road User Cost Manual, New Jersey Department of Transportation, Trenton, NJ, 2001. 

http://www.state.nj.us/transportation/eng/documents/RUCM/pdf/RUCManual.pdf
121 

4.4.3 Establishing Baseline and Accelerated Schedule 

The owner agency should establish a final baseline and accelerated schedule at the end of the 

design stage. FHWA Technical Advisory 1TTA 5080.151TP29F

125P1T provides procedures for determining 

contract time, baseline or accelerated, for construction projects. 1TThe use of calendar days or 

completion date is recommended, as it has proven to be most effective in controlling contract 

times. 

1TThe baseline schedule typically is developed using standard production rates, which in turn 

are based on the agency’s historical productivity rates of 1Tan average contractor working 5 

days a week, 8 hours a day. The accelerated schedule can be developed by compressing the 

baseline schedule using the performance of a good typical contractor working extended shifts 

with extra workers for 6 or 7 days a week. However, such extended periods of work will result 

in declining productivity (Mubarak, 2010).P130F

126P 

Several highway agencies use the CPMP13F

127P to determine and control project scheduling. The 

prerequisite for using CPM or other techniques to analyze project schedules is to create a 

work breakdown structure (WBS).P132F

128P The WBS activities are then mapped to determine the 

duration of the critical path, which is same as the minimum time required to complete the 

entire project. 

The accelerated project schedule can be established first by identifying the WBS activities on 

the critical path and then exploring the feasibility of shortening the duration of those 

activities. As a rule of thumb, the work item with the least acceleration cost is selected first. 

For example, the baseline schedule may assume that an activity C cannot start until activity B 

is complete. Reviewing these finish-to-start relationships can help to identify if activity C can 

be started before activity B is complete. 

Another common approach is to shorten the activity duration by achieving higher production 

rates through efforts such as extended work hours, multiple crews, additional equipment 

accelerated construction techniques etc. The production rate required to achieve the desired 

level of acceleration is ascertained. For example, if the baseline duration of an activity is 3 

calendar weeks (15 working days), it takes 120 hours to complete that activity. With the same 

crew size and assuming no productivity loss, extending the work shifts to 10-hr, 6-day weeks 

means the same activity can be completed in 2 calendar weeks (10 working days). 

The level of acceleration that can be achieved depends on the number of critical work items 

selected for acceleration and the production rates.P13F

129P This iterative process is continued until 

a satisfactory level is achieved. Some examples of different productivity rates include: 

 

125 FHWA Guide for Construction Contract Time Determination Procedures, Technical Advisory TA 

5080.15, Office of Program Administration, Federal Highway Administration, Washington, DC, 2002. 

http://www.fhwa.dot.gov/construction/contracts/t508015.cfm

126 Mubarak, S. Construction Project Scheduling and Control, Second Edition, John Wiley & Sons, Inc., 

2010. 

127 More detailed information of CPM scheduling can be found in text books on construction project 

scheduling and control. 

128 The work breakdown structure is defined as the decomposition of the total project work into 

discrete work items or activities in a way that helps to accomplish the work in an organized and 

detailed manner. 

129 To compute the accelerated duration of critical work items, refer to standard text books on 

construction project scheduling and control. 
122 

 8-hr day, 5-day week with standard crew size. 

 10-hr day, 5-day week with standard crew size. 

 8-hr day, 5-day week with increased crew size. 

 10-hr day, 5-day week with standard crew size. 

 10-hr day, 7-day week with increased crew size. 

For more guidance on establishing accelerated project schedules, refer to FHWA Technical 

Advisory 1TTA 5080.15, agency-specific documents, and other sources such as textbooks and 

training materials on project scheduling. 

4.4.4 67BEstablishing Contractor’s Costs of Acceleration 

Achieving higher production rate often carries a cost premium; higher the production rate, 

shorter the activity duration, greater are the costs incurred for additional resources or 

innovative processes. Typically the production rate required for the desired level of 

acceleration is not finalized unless it is cost-feasible. Often trade-offs are to be made by the 

owner agency to balance between the level of acceleration and the corresponding costs. 

Furthermore, if the incentive plans are not adequate enough to cover the additional costs, 

the contractor will have no real incentive to accelerate the project. Hence there is a need to 

establish the costs of acceleration for determine the required level of acceleration as well as 

the lower bound of the incentives. This section provides some insights in computing the 

additional costs associated with the schedule acceleration. 

Direct costs typically increase non-linearly with the level and duration of 

project acceleration due to use of expensive materials and process methods, 

extended work hours, and related productivity effects, while indirect costs 

increase linearly with the same. The net increase in acceleration costs is nonlinear. 

Owner agencies are well equipped to estimate the construction costs for a normal schedule 

within an acceptable level of tolerance. Most highway agencies develop cost estimates for a 

project using unit cost data extracted from historical bids with appropriate adjustments for 

project characteristics, market conditions, and prevailing prices. Though less frequent, some 

agencies use production rates and cost associated with equipment, labor, materials, and 

overhead (i.e., cost-based estimationP134F

130P) in developing cost estimates for a project. 

While historical cost data may be adequate for developing project cost estimates at standard 

production rates, these data may not represent the conditions typically encountered in 

schedule acceleration, such as the change in construction techniques, crew size and 

productivity, daily and weekly working patterns, and overtime policy. If an agency has 

historical cost data for projects constructed under schedule acceleration, the agency can 

develop parametric models using statistical regression to develop preliminary cost estimates 

for use in early stages of project delivery only. 

On the other hand, the owner agencies can use the cost-based estimation method to estimate 

the contractor’s costs of schedule acceleration. This method allows the agencies to develop 

 

130 Cost-Based Estimates contain six basic elements: Material, Equipment, Labor, Time, Overhead and 

Profit. Each item of work on a project can be broken up into tasks that it takes to complete the item of 

work. Each of these tasks contains the six basic elements that result in the cost for the project. 
123 

more detailed and accurate cost estimates using the accelerated production rates and 

individual cost components. It also allows the agencies to take into consideration the projectspecific characteristics such as type and complexity, geographical location, market factors, 

and volatility of material prices.131

Anderson et al. (2008)P135F

131P conducted an online survey to identify how State 

highway agencies develop unit prices for construction and maintenance 

projects. Out of the 38 respondent DOTs, 32 states use historical bid-based 

estimation and 10 states use cost-based estimation as their primary 

estimation technique. 

Under this method, the costs of activities defined in the project’s WBS are broken down into 

the following elements: 

 Direct costs—these costs are attributed directly to the production activities of a 

project. The computation of direct costs takes into account the quantity of a WBS 

activity, its production rates and unit costs for the following sub-elements: 

o Labor – includes mobilization, hourly wages for additional resources and 

overtime wages for extended shifts. 

o Equipment – includes mobilization and rental costs of equipment. 

o Materials – includes additional costs associated with early delivery of materials. 

o Subcontractors – Includes the subcontractor’s costs for materials, labor, 

equipment, profit and overhead. 

Some of the common sources of direct unit cost data are presented in Table 53. 

 Indirect costs— these are overhead expenses related to a specific project but not 

directly linked to any specific work item. They include: 

o Mobilization and demobilization. 

o Staffing for project management and supervision. 

o Office trailers and vehicles assigned to project team. 

o Lighting during night work and other indirect expenses. 

o Insurance and taxes. 

Typically the percentage of overhead can range from 7 to 10 percent of volume of 

work for larger contractors to over 15 percent for smaller contractors (AASHTO, 

2009).P136F

132

 General overheadP137F

133P— these are company level general and administrative overhead 

expenses incurred by the contractor in support of the overall construction program. 

These costs are usually shared by all projects in proportion to their cost and duration. 

Examples include: 

o Office maintenance (e.g., rent, utilities). 

o Office personnel. 

 

131 Anderson, S., I. Damnjanovic, A. Nejat, and S. Ramesh, Synthesis on Construction Unit Cost 

Development: Technical Report, Report No. FHWA/TX-09/0-6023-1, Texas Department of 

Transportation, Austin, Texas, 2008. 

132 AASHTO, A Practical Guide to Estimating, Prepared by AASHTO Technical Committee on Cost 

Estimating, American Association of State Highway and Transportation Officials, Washington, DC, 2009. 

133 For the purpose of taxonomy, the general overhead costs are sometimes listed either under the 

indirect costs category or the markup costs category. Therefore, to avoid any confusion, the general 

overhead costs are defined herein as a separate category. Nevertheless, the general overhead costs 

should be included in the cost estimations. 
124 

o Office equipment and vehicles. 

o Office services (e.g., lawyers and accountants). 

Table 53. Common sources of unit cost data.

Direct Cost Components Common Data Sources

Material costs Quotes from supplies, cost information for in-stock materials 

Labor rates State Department of Labor

Equipment costs Bluebook equipment rental

Production rates Agency experience, RS Means,P138F

134P Site Manager (Trns*port)P139F135

 Markup costs— these include the project contingency costs as well as the contractor 

profit. Adjusting the cost estimates for market condition and contractor’s markup 

costs is highly subjective and requires engineering judgment. 

o Contingency costs— these are an additional sum of money allocated for the 

unknown and uncertain events that are most likely occur during the life of the 

project such as scope changes, scope increase, high-risk elements, and 

unforeseen site conditions; they are directly proportional to the risk taken in 

the project. The contingency costs typically are 5 to 10 percent of the total 

project costs at the PS&E stage of the project. 

o Profit margin—The contractor‘s profit margin typically includes 3 to 10 percent 

of the total project costs though it is likely to be outside this range (AASHTO, 

2009)132. The profit margins on construction projects are highly variable and are 

often unknown to an agency. However, the profit margins marked by the 

contractor are likely to vary based on the project size and complexity, size of 

the contracting company, market condition and the total project costs. In 

proposing a I/D framework for Oregon DOT, Sillars (2007) has proposed a 

generic formulaP140F

136P to estimate the contractor’s profit margin and is presented 

as follows: 

ܲ ൌ ݂

௠ܥ log

Where, 

P = forecasted profit at the time of bid 

C = estimated total project cost 

f = project type (see Table 54 ) 

m = market condition (see Table 54) 

Table 54. Empirical factors for estimating profit margin. 

Project Type f Market Condition m 

Roadway 

Interchange 

Bridge 

Complex 

1.0

1.1 

1.25 

1.35 

Busy

Normal 

Slow 

1.40 

1.50 

1.60 

 

134 Reed Construction Data, http://rsmeans.reedconstructiondata.com/. 135 AASHTOWare®, http://www.aashtoware.org/Pages/Trnsport.aspx

136 Sillars (2007) has adopted the general form of the formula proposed by Carr and Beyor (2004) to 

estimate the professional compensation fees for consultants on construction projects. Refer to: 

Carr, P. G., and P. S. Beyor, "Design Fees, the State of the Profession, and a Time for Corrective 

Action,” Journal of Management in Engineering, American Society of Civil Engineering, Vol. 21, No. 

3, July 1, 2005. 
125 

Detailed information typically is required for cost-based estimation. Such level of detail may 

not be available to some owner agencies, and not likely in the preliminary stages of the 

design process. In such situations, owner agencies can apply project knowledge and 

engineering judgment, through common tools such as parametric estimating, to estimate the 

percentage increase in each of the cost elements aggregated at a project level (Sillars, 2007), 

until detailed analysis can be done. 

Minnesota DOT uses the 80/20 rule (or the Pareto principle). According to this 

rule, 20 percent of project work items contribute to 80 percent of the total 

estimated cost. DOT estimators use cost-based estimating for major items 

(i.e., 80 percent cost items ), while the minor items are estimated using 

arithmetic averages of historical bid data.13

The generalized proportions of direct, indirect, and markup costs, as a percentage of total 

project costs, are likely to vary from project to project and from one geographic location to 

another; however, their statistical averages based on the project type generally are robust 

enough for preliminary estimations. Sillars (2007) presented the generalized percentages of 

cost elements developed by Oregon DOT using historical costs and breakdown presented in 

trade guides such as RS Means and Trns*port (see Table 55). 

Table 55. Typical cost breakdown by project type (Sillars, 2007). 

Cost Category Project Type

Roadway Interchange Bridge Complex

Direct cost 81% 78% 79% 77% 

Labor 25% 30% 30% 33% 

Materials 45% 35% 30% 37% 

Equipment 30% 35% 40% 30% 

Subcontract 0% 0% 0% 0% 

Indirect cost 6% 9% 8% 9% 

Supervision 2% 3% 2% 4% 

Time-related facilities 1% 1% 1% 1% 

Non-time-related 1% 1% 1% 1% 

Mobilization/demobilization 

facilities 

3% 5% 5% 5% 

Insurance and taxes 1% 1% 1% 1% 

Markup 12% 13% 14% 14% 

Risk 3% 5% 5% 6% 

Home Office G&A 8% 8% 8% 8% 

Profit (Calculated separately) 

The acceleration costs at a given production rate can be calculated by determining the direct 

costs for equipment, labor, and materials required for maintaining that production rate, and 

then adjusting the direct costs for overhead and markup costs. The acceleration costs are 

calculated typically for the activities on the critical duration path. 

4.4.5 Establishing Time-Cost Tradeoff Point 

The level of schedule acceleration depends on the level to which the contractor deploys 

additional resources, multiple crew shifts, overtime work, and supervision. The higher the 

level of acceleration, the shorter the project duration and the higher the acceleration costs. 
126 

Figure 16 presents the relationship among the acceleration costs, time savings, and the level 

of acceleration.99 

Figure 16. Relationship among the level of acceleration, acceleration costs, and time savings 

(adopted from Fick et al., 2010). 

At some point, the acceleration costs may exceed the perceived benefits of time savings (i.e., 

CA > WZ RUC), and the goal of expediting construction time may not prove beneficial. In 

other words, there is an optimum level of acceleration beyond which there are no benefits of 

time savings. Hence, a tradeoff is needed between the level of acceleration (or CA) and the 

benefits of time savings (RUC).P14F

137P This can be accomplished by evaluating the cost and time 

impacts of various productivity rates on work items on the project’s critical duration path. 

4.4.6 69BCalculating Incentives/Disincentives – Discount Factor Approach 

The steps involved in calculating I/D using discount factors are as follows: 

1. Establish baseline schedule for the project using standard production rates. See 

section 0 for further discussion. 

2. Establish road user cost estimates for project using baseline schedule and a preferred 

MOT strategy. See section 0 for more discussion. 

3. Determine the discount factor. The value typically ranges from 0.2 to 1.0. 

4. Calculate daily I/D value by multiplying daily WZ RUC by the discount factor. 

Daily I/D = Discount factor * daily WZ RUC 

 

137 For more information on time-cost trade off analysis, refer to standard textbooks on construction 

project scheduling and control. 

0%

10%

20%

30%

40%

50%

60%

Approximate Time Savings

5 days/week

with 

increased 

resources

6 days/week

with 

increased 

resources

7 days/week

with 

increased 

resources

7 days/week

with multiple 

shifts
127 

Example 4.5: Calculation of I/D 

An 8.6-mile section of Interstate 80 in the City of Sacramento will be closed for concrete pavement 

rehabilitation. The MOT selected for this project is 55-hour weekend closure. Work zone impact 

analysis using CA4PRS produced an estimate of approximately $300,000 for each 55-hour weekend 

closure. Determine the I/D rates for each closure using a discount factor of 0.25 and 0.20. 

I/D at a discount rate of 0.25 = $300,000*0.25 =$75,000 for each closure 

I/D at a discount rate of 0.20 = $300,000*0.20 =$60,000 for each closure

The discount factor is the portion of road user cost savings that an owner is willing to share 

with the contractor. The selection of this factor typically is an owner agency’s management 

decision by taking factors into account such as market conditions, confidence on the accuracy 

of WZ RUC estimates, work zone factors, and time sensitivity of project completion. The 

discount factor is selected in such a way that the value of the WZ RUC matches the agency 

cost (Pyeon and Lee, 2010) particularly when the total WZ RUC of the project exceeds the 

agency costs. As several agencies have limited the total incentive amount at 5 percent of the 

total contract amount, this requirement is also taken into consideration in selecting a 

discount factor. 

While selecting a discount factor for I/D, the agency should check if the liquidated damages 

clause still applies in the event of a schedule overrun. In the absence of a liquidated damages 

clause, the discount factor may not adequately cover the agency’s construction engineering 

charges and a justifiable proportion of road user costs. Note that the lower discount factor 

has a diminishing effect on the contractor’s I/D—in other words, the contractor is paid a 

lower incentive amount for early completion and pays a lower disincentive amount for 

schedule overrun. However, the trend reverses for the owner agency (combined societal and 

agency costs) when the liquidated damage clause does not apply—at a lower discount factor, 

the agency’s savings are higher for early completion while the unrecovered losses are also 

higher when there is a schedule overrun. 

Example 4.6: Computing disincentives

As a continuation of Example 4.3, assume that the contractor took 63 days (3 days more than the 

contract time specified in the bid) to complete the work. Calculate the disincentive amount to be paid. 

Use the same discount factor for disincentive calculation. Estimate the direct loss to the agency as well 

as the unrecovered road user costs, if any, assuming that the only the disincentive clause apply but not 

the liquidated damages. Assume a discount factor of 25%. 

Contractor’s bid price (C) = $3,000,000 (from Example 4.3) 

Contract time specified in the bid (D) = 60 days (from Example 4.3) 

Actual days used = 63 days 

Bid WZ RUC+AGCEC (for 60 days) = $240,000 (from Example 4.3) 

Actual WZ RUC+AGCEC (for 63 days) = $252,000 (from Example 4.3) 

Additional costs incurred through WZ RUC and AGCEC = $12,000 

Discount factor = 25 % 

Disincentives paid by the contractor = $3,000 

Uncovered agency and user costs = $12,000-3,000 = $9,000

The agency has incurred a total loss of $12,000 through additional costs in WZ RUC and AGCEC; 

however, it has recovered only $3,000 through disincentives. Since the liquidated damage clause 

does not apply to recover the remaining amount, the combined loss incurred by the agency and 

road users is $9,000. 
128 

Out of the recovered disincentives of $3,000, the direct cost incurred by the agency is only the 

construction engineering costs (i.e. $500/day). 

AGCEC = $500/day 

Additional AGCEC due to project delay = 3 days * 500 = $1,500 

Road user costs recovered from disincentives = $3,000 - $1,500 = $1,500 

Unrecovered road user costs = $9,000 - $1,500 = $7,500 

In this example, the agency was able to cover the construction engineering costs, while nearly 71 

percent of the road user costs were uncovered. Note that agencies typically do not consider the dollar 

value of WZ RUC at par with the dollar value of I/D.

4.4.7 70BCalculating Incentives/Disincentives – Cost of Acceleration Approach 

1. Establish baseline schedule for the project using standard production rates. See 

section 0 for further discussion. 

2. Establish road user cost estimates for project using baseline schedule and a preferred 

MOT strategy. See section 0 for more discussion. 

3. Analyze the CPM schedule of baseline duration by using increased production rates for 

activities on the critical path. See section 0 for further discussion. 

4. Estimate the contractor’s CA for increased production rates. See section 4.4.4 for 

further discussion. 

5. Select an I/D amount that is less than or equal to unit WZ RUC costs but greater than 

the acceleration costs for the desired optimal duration. A discount factor can also be 

introduced to discount the road user costs. 

Cost of Project Acceleration < I/D ≤ WZ RUC 

Cost of Project Acceleration < I/D = DF* WZ RUC 

The practitioners can make use of tools such as sensitivity analysis to identify an appropriate 

discount factor and evaluate its effectiveness. As illustrated in Example 4.7, the contractor 

and agency profits and losses can be estimated for various combinations of discount factors 

and project completion scenarios. In Example 4.7, a hypothetical project scenario was 

assumed and the cost model presented in Eq. 1 was utilized. 

At higher discount factors, the agency pays a larger portion of WZ RUC savings to the 

contractor as incentives for early completion and recovers an equal portion of WZ RUC losses 

from the contractor as disincentives for late completion. Put briefly, the agency transfers a 

large portion of schedule related risks, including benefits and costs, to the contractor at 

higher discount factors. 

At lower discount factors, the agency pays only a smaller portion of WZ RUC savings to the 

contractor for early completion and recovers an equal portion of the losses from the 

contractor for late completion. To be effective, the incentives paid to the contractor must to 

be adequate enough to compensate the contractor costs of acceleration, while the 

disincentives recovered from the contractor should commensurate with the WZ RUC losses. 

With increasing discount factor, the contractor receives more incentives to complete earlier 

as long as the costs of acceleration do not exceed the incentive amount. To summarize, the 

discount factor selected by the agency should be adequate enough to ensure that the 

agency’s early completion goals are met. 
129 

Example 4.7: Sensitivity of the I/D discount factor

As a continuation of Example 4.3, perform a sensitivity analysis to demonstrate the effect of discount 

factor on: 

 Agency’s savings and losses (road user costs + construction engineering cost) 

 Contractor’s profits and losses 

The calculation steps presented in the previous example 4.2.3 was repeated over a range of discount 

factors and actual days of construction. Here are the results: 

Case 1. Agency’s savings and losses (RUC + construction engineering cost only):

 Red (negative) and Green (positive) indicate the magnitude of agency’s losses and savings, 

respectively. The profit and loss magnitude increases with hue density.

 Loss to the agency is the difference between additional construction engineering and road user 

costs due to completion delays and the amount recovered from the contractor as disincentives.

 Savings to the agency is the difference between savings in construction engineering and road user 

costs due to early completion and the incentives paid to the contractor.

 At a discount factor of 1, the agency has no savings or losses since the cost differentials are 

either paid to or recovered from the contractor through incentives and disincentives. 

 When the project is delayed, the agency recovers only a smaller portion of additional 

construction engineering and road user costs at lower discount factors; and hence, the agency’s 

losses increase with the increasing delay period. 

 When the project is completed earlier than the schedule, the agency shares only a smaller 

portion of savings to the contractor; and hence, the agency’s savings increase with the increased 

number of days saved. 

0.1 0.2 0.3 0.4 0.5 0.6 0.7 0.8 0.9 1

70 ‐36 ‐32 ‐28 ‐24 ‐20 ‐16 ‐12 ‐8 ‐4 0

69 ‐32 ‐29 ‐25 ‐22 ‐18 ‐14 ‐11 ‐7 ‐4 0

68 ‐29 ‐26 ‐22 ‐19 ‐16 ‐13 ‐10 ‐6 ‐3 0

67 ‐25 ‐22 ‐20 ‐17 ‐14 ‐11 ‐8 ‐6 ‐3 0

66 ‐22 ‐19 ‐17 ‐14 ‐12 ‐10 ‐7 ‐5 ‐2 0

65 ‐18 ‐16 ‐14 ‐12 ‐10 ‐8 ‐6 ‐4 ‐2 0

64 ‐14 ‐13 ‐11 ‐10 ‐8 ‐6 ‐5 ‐3 ‐2 0

63 ‐11 ‐10 ‐8 ‐7 ‐6 ‐5 ‐4 ‐2 ‐1 0

62 ‐7 ‐6 ‐6 ‐5 ‐4 ‐3 ‐2 ‐2 ‐1 0

61 ‐4 ‐3 ‐3 ‐2 ‐2 ‐2 ‐1 ‐100

60 0000000000

59 4332221100

58 7665432210

57 11 10 8 7 6 5 4 2 1 0

56 14 13 11 10 8 6 5 3 2 0

55 18 16 14 12 10 8 6 4 2 0

54 22 19 17 14 12 10 7 5 2 0

53 25 22 20 17 14 11 8 6 3 0

52 29 26 22 19 16 13 10 6 3 0

51 32 29 25 22 18 14 11 7 4 0

50 36 32 28 24 20 16 12 8 4 0

Actual days to complete the project (normal = 60 days)

Discount Factors
130 

Case 2. Contractor’s profits and losses:

 Red (negative) and Green (positive) indicate the magnitude of losses and profits, respectively.

 Loss to the contractor is the sum of disincentive amount paid to the agency and contractor cost 

of delay for late completion or the negative cost differential between the incentives received 

from the agency and the contractor cost of acceleration for early completion.

 Profit to the contractor is the positive cost differential between the incentives received from the 

agency and the contractor cost of acceleration.

 As expected, the contractor’s total loss increases as the number of days exceeding the normal 

duration increases. This amount also increases as the discount factor increases. 

 The contractor’s net profit increases with the number of days saved; however, depending on the 

discount factor used in incentive calculation, the amount of net profit peaks at a certain number 

of saved days beyond which the incentives are not adequate enough to compensate the 

contractor cost of acceleration. 

 At lower discount factors, for instance at 0.3, the contractor realizes no savings, and hence has 

no incentive to complete the project in less than 58 days. At even lower discount factors, the 

contractor sees no incentive at all to accelerate project completion. 

 At higher discount factors, for instance at 0.8, the contractor maximizes the savings through 

incentives when the project the complete in 56 days. Contractor incentives are not adequate 

enough to complete the project in less than 56 days. In other words, the contractor is 

encouraged to accelerate completion schedule further with increasing discount factor. 

 

0.1 0.2 0.3 0.4 0.5 0.6 0.7 0.8 0.9 1

70 ‐43 ‐47 ‐51 ‐55 ‐59 ‐63 ‐67 ‐71 ‐75 ‐79

69 ‐35 ‐39 ‐42 ‐46 ‐49 ‐53 ‐57 ‐60 ‐64 ‐67

68 ‐28 ‐31 ‐34 ‐38 ‐41 ‐44 ‐47 ‐50 ‐54 ‐57

67 ‐22 ‐25 ‐27 ‐30 ‐33 ‐36 ‐39 ‐41 ‐44 ‐47

66 ‐16 ‐19 ‐21 ‐24 ‐26 ‐28 ‐31 ‐33 ‐36 ‐38

65 ‐12 ‐14 ‐16 ‐18 ‐20 ‐22 ‐24 ‐26 ‐28 ‐30

64 ‐8 ‐9 ‐11 ‐13 ‐14 ‐16 ‐17 ‐19 ‐21 ‐22

63 ‐5 ‐6 ‐7 ‐8 ‐9 ‐11 ‐12 ‐13 ‐14 ‐15

62 ‐2 ‐3 ‐4 ‐5 ‐6 ‐6 ‐7 ‐8 ‐9 ‐10

61 ‐1 ‐1 ‐2 ‐2 ‐2 ‐3 ‐3 ‐4 ‐4 ‐4

60 0000000000

59 0011222334

58 ‐1012234566

57 ‐2 ‐101345679

56 ‐5 ‐3 ‐1 0 2 3 5 7 8 10

55 ‐8 ‐6 ‐4 ‐2 0 2 4 6 8 10

54 ‐12 ‐9 ‐7 ‐4 ‐2 0 3 5 8 10

53 ‐16 ‐13 ‐11 ‐8 ‐5 ‐21369

52 ‐22 ‐18 ‐15 ‐12 ‐9 ‐6 ‐2147

51 ‐28 ‐24 ‐21 ‐17 ‐13 ‐10 ‐6 ‐315

50 ‐35 ‐31 ‐27 ‐23 ‐19 ‐15 ‐11 ‐7 ‐3 1

Actual days to complete the project (normal = 60 days)

Discount Factors
131 

CHAPTER 5.4BCASE STUDIES 

5.1 CONCRETE PAVEMENT REHABILITATION ON INTERSTATE-66, FAIRFAX COUNTY,

VIRGINIA

A concrete pavement rehabilitation project on Interstate 66 in Fairfax County was selected to 

illustrate the application of WZ RUC in the selection of a schedule-focused contracting 

method for a given project. This case study illustrates the computation of various monetary 

components of WZ RUC; the selection of an appropriate project delivery/contracting strategy; 

and the computation of lane rental charges. The actual information obtained for this project 

was modified with a number of assumptions for illustration purposes. 

5.1.1 Project Description 

Location

I-66 in Fairfax County is an urban interstate highway that primarily serves as a commuter 

route in the Washington metropolitan area. It is the main non-toll connector between Fairfax 

County and Washington, DC. Virginia Department of Transportation (VDOT) was owner of this 

project. 

The project limits included the westbound traffic lanes on the mainline I-66 located between 

US 50 (Milepost 58) and SR 123 Chain Bridge Road (Milepost 60) interchanges and the ramp 

from I-66 leading to US 50W towards Chantilly. The general location of the project is shown in 

Figure 17. 

Figure 17. Project location on I-66 in Fairfax County, Virginia. (Map Source: Google) 

Traffic Data and Operations

The westbound direction of I-66 mainline has four lanes: high occupancy vehicle (HOV) lane 

(inside), passing lane (middle), travel lane (outside), and auxiliary shoulder. The auxiliary 

shoulders are used only during peak hours from 5:30 am to 11:00 am in the eastbound 

direction and from 2:00 pm to 8:00 pm in the westbound direction, while only three lanes are 

open during non-peak hours (see Figure 18). The estimated ADT in westbound direction was 

90,000 vehicles (with 5 percent trucks) in 2009. 
132 

Figure 18. Number of lanes open during peak and non-peak hours on I-66 mainline. 

The ramp leading from I-66 mainline to the US 50 W ramp has two lanes and a shoulder. The 

3-mile-long ramp carried an estimated traffic volume of 28,000 vehicles per day. The speed 

limit on both mainline and the ramp under normal conditions is 55 mph. 

The hourly traffic distributions for weekday and weekend traffic are shown in Table 56, Table 

57, and Figure 19. The figure suggests that weekday traffic peaks at about 7:30 am and again 

between 3:00 and 7:00 pm. The traffic peaks between 11:00 am and 6:00 pm on weekends. 

Table 56. Weekday hourly traffic distribution over a 24-hour period for I-66 westbound lanes. 

Hour % of daily 

traffic Hour % of daily 

traffic Hour % of daily 

traffic 

Midnight 1.46% 8:00 AM 5.22% 4:00 PM 6.66% 

1:00 AM 0.95% 9:00 AM 4.85% 5:00 PM 6.56% 

2:00 AM 0.72% 10:00 AM 4.45% 6:00 PM 6.30% 

3:00 AM 0.63% 11:00 AM 4.63% 7:00 PM 6.10% 

4:00 AM 0.86% Noon 5.21% 8:00 PM 4.91% 

5:00 AM 2.52% 1:00 PM 5.48% 9:00 PM 4.17% 

6:00 AM 4.36% 2:00 PM 6.15% 10:00 PM 3.38% 

7:00 AM 5.23% 3:00 PM 6.85% 11:00 PM 2.36% 

 
133 

Table 57. Weekend hourly traffic distribution over a 24-hour period for I-66 westbound lanes. 

Hour % of daily 

traffic Hour % of daily 

traffic Hour % of daily 

traffic 

Midnight 2.77% 8:00 AM 3.82% 4:00 PM 6.40% 

1:00 AM 1.97% 9:00 AM 4.81% 5:00 PM 6.38% 

2:00 AM 1.58% 10:00 AM 5.53% 6:00 PM 6.01% 

3:00 AM 1.25% 11:00 AM 6.08% 7:00 PM 5.13% 

4:00 AM 0.90% Noon 6.36% 8:00 PM 4.41% 

5:00 AM 1.17% 1:00 PM 6.51% 9:00 PM 4.03% 

6:00 AM 1.87% 2:00 PM 6.47% 10:00 PM 4.02% 

7:00 AM 2.89% 3:00 PM 6.27% 11:00 PM 3.36% 

0

200

400

600

800

1,000

1,200

1,400

1,600

1,800

2,000

Vehicles in 15 min

Time

Average 15-min on I-66 WB lanes at MP 61.43

Mon

Fri

Sat

Figure 19. Hourly traffic distribution on I-66 westbound lanes. 

Pre-construction Crash Data

The 3-year averages of pre-construction crash data for both mainline and ramp segments are 

shown in Table 58. No fatalities were reported. Three of the five events involved injuries. The 

severity of these injuries was not reported. The total value of property damage resulting from 

the accidents was $39,620. 

Existing Project Condition

The PCC pavement in this roadway segment was built in the 1960s. The pavement was in a 

highly deteriorated condition and exhibited extensive cracking and deteriorated joints. 

Although the pavement in this segment had undergone maintenance repairs over the last 

several years, the condition was deteriorated enough to warrant an overall replacement. 
134 

Table 58. VDOT’s accident records along I-66 project site. 

Incident 1 2 3 4 5

Location mainline ramp ramp ramp ramp

Type Rear end Fixed object off road 

from outside of ditch Deer Deer Rear end 

Weather Clear Snowing Mist Clear Clear

Surface Dry Snowy Dry Dry Dry

Vehicle count 2 1 2 1 2

Fatality 0 0 0 0 0

Injury 1 0 1 2

Property Damage $1,000 $20,620 $6,000 $5,000 $7,000

Construction Technique

Pre-cast concrete technology was adopted as the preferred construction technique for this 

project. The feasibility of using two other alternatives, cast-in-place rigid pavement 

reconstruction options with a regular concrete mix and cast-in-place with a high early 

strength mix, were considered. 

Contracting Strategy

For this project, VDOT adopted the “fixed price best value” contracting method. The bidders 

were allowed to compete on the extent of pavement replacement for a fixed bid price of $5 

million. A repair plan outlining the required repairs as well as optional repair areas was 

provided. The bid advertisement specified the use of pre-cast pavement technology for 

repair, while the responsibility for the design of pre-cast systems was left to the contractor. 

The bid that proposed the greater square yards of pavement repair in optional areas, 

including all necessary work such as the required repairs, traffic control, pavement making, 

and mobilization, was awarded the contract. 

Maintenance of Traffic Strategy

For the I-66 mainline, the construction was scheduled during nighttimes: two lanes were 

closed at 9:00 pm, a third lane was closed at 10:00 pm, and all lanes were opened to traffic 

by 5:00 am. At least one lane was kept open for traffic at all times. The slab installation was 

carried in two construction stages. In Stage 1, the two inner lanes (HOV and passing lanes) 

and the inside shoulder were closed for slab removal and installation. In Stage 2, the outside 

travel lane and the auxiliary shoulder were closed for slab removal and installation (see 

Figure 20). The posted speed limit in the work zone was 45 mph. For the I-66 ramp leading to 

US 50W, VDOT selected nighttime full closure for traffic maintenance. The traffic entering 

the US 50W ramp was diverted through designated detour routes. Figure 21 shows VDOT 

posted detours for motorists as marked on the plans and the agency website. 

Travel Time Studies

The per-vehicle delays and queue lengths were measured during construction through the 

travel time studies. The floating car methodology was used in collecting travel time statistics. 

The maximum queue length, delay time, and associated timing are summarized in Table 59. 
135 

Figure 20. Construction staging on I-66 mainline. 

Figure 21. VDOT designated detour for I-66 ramp closure. (Source: VDOT) 
136 

Table 59. I-66 project: travel time statistics. 

Day Time Maximum Queue, 

miles 

Maximum delay, 

minutes 

1 11:00 pm 1.5 14.3 

2 11:00 pm 2.0 22.9 

3 11:00 pm 2.1 25.9 

Construction Duration

The as-built construction duration for the I-66 mainline involved 44 nighttime closures with 3 

lanes closed and 27 nighttime closures with 2 lanes closed. The ramp was fully closed at night 

for 30 days. 

Work Hour/Lane Closure Restrictions

VDOT issued special provisions placing restrictions on lane closures and work hours. The key 

features of the limitations are as follows: 

 The lane closure schedule shall follow the restrictions specified in Tables 60 and 61 for 

mainline and ramp. 

 No lane closures between Friday at 5:00 am and Sunday at 9:00 pm. 

 Complete I-66 mainline closures performed at night will be permitted from 12:00 am 

to 5:00 am only, for a maximum of 15 minutes. 

 The ramp from I-66 westbound to US 50 westbound was allowed to be closed to 

through traffic for a maximum of 24 closures without substantiation of need by the 

contractor and written authorization by the Area Construction Engineer. 

 The charges for failure to restore all lanes to traffic by the previously designated 

times would be assessed user fee charges at the rates reflected in Table 62 for every 

15 minutes interval starting from the approved time. 

Table 60. Lane closure restrictions for mainline I-66.

Day Open all lanes to 

traffic no later than 

Reduce to 2 lanes of 

traffic no earlier than 

Reduce to 1 lane of 

traffic no earlier than 

Monday 5 AM 9 PM 10 PM 

Tuesday 5 AM 9 PM 10 PM 

Wednesday 5 AM 9 PM 10 PM 

Thursday 5 AM 9 PM 10 PM 

Friday 5 AM NO LANE CLOSURES NO LANE CLOSURES 

Saturday NO LANE CLOSURES NO LANE CLOSURES NO LANE CLOSURES 

Sunday NO LANE CLOSURES 9 PM 10 PM 

Table 61. Lane closure restrictions for ramp from I-66 westbound to US 50 westbound.

Day Open all lanes to traffic 

no later than 

Reduce to 1 lanes of traffic 

no earlier than 

Close to thru traffic with 

detour no earlier than

Monday 5 AM 9 PM 10 PM 

Tuesday 5 AM 9 PM 10 PM 

Wednesday 5 AM 9 PM 10 PM 

Thursday 5 AM 9 PM 10 PM 

Friday 5 AM NO LANE CLOSURES NO LANE CLOSURES 

Saturday NO LANE CLOSURES NO LANE CLOSURES NO LANE CLOSURES 

Sunday NO LANE CLOSURES 9 PM 10 PM 
137 

Table 62. I-66 project user fees for lane closures.

Monday-Friday Failure to Remove Double 

Lane Closure By: 

Failure to Remove Single 

Lane Closure By: 

6:01 AM—6:15 AM $1,000

6:16 AM—6:30 AM $2,000

6:31 AM—6:45 AM $3,000 $100 

6:46 AM—7:00 AM $3,000 $100 

7:01 AM—7:15 AM $4,000 $100 

7:16 AM—7:30 AM $5,000 $100 

7:31 AM—7:45 AM $5,000 $100 

7:46 AM—8:00 AM $5,000 $100 

8:01 AM—8:15 AM $5,000 $100 

8:16 AM—8:30 AM $5,000 $100 

8:31 AM—8:45 AM $5,000 $100 

8:46 AM—9:00 AM $5,000 $100 

9:01 AM—9:15 AM $5,000 $100 

9:16 AM—9:30 AM $5,000 $100 

9:31 AM—9:45 AM $5,000 $100 

9:46 AM—10:00 AM $5,000 $100 

10:01 AM—10:15 AM $10,000 $1,000 

And continues until all lanes 

are restored to traffic 

at the rate of $10,000 per 

15 minute period 

at the rate of $1,000 per 15 

minute period 

5.1.2 Case Study Objectives 

The objectives of this case study are: 

 To demonstrate the calculation of WZ RUC. 

 To demonstrate the derivation of unit cost data for use in WZ RUC calculation. 

 To demonstrate the application of WZ RUC and work zone impacts in selecting an 

appropriate construction strategy. 

 To demonstrate the application of WZ RUC and work zone impacts in selecting 

appropriate project delivery and schedule-focused contracting strategies. 

 To demonstrate the application of WZ RUC in determining lane closure timings and 

lane closure user fees (otherwise called lane rental charges). 

5.1.3 RUC Computation 

The computation of WZ RUC involved a two step process: (1) the estimation of work zone 

impacts for a given MOT strategy and (2) the computation of unit cost data. The estimated 

impacts were then multiplied by the unit cost data to compute daily WZ RUCs. 

RealCost was used to compute delay and vehicle operating costs for mainline lane closures. 

For ramps, the additional time and distance resulting from traffic detours were calculated 

using simple mathematical formulae. The as-built lane closure strategies and timings were 

used for both mainline and ramp closures. The following components were considered: 

 Mainline I-66 

o Work zone travel delay costs 

o Work zone VOC 

o Crash costs 
138 

 Ramps 

o Detour travel delay costs 

o Detour VOC 

o Crash costs 

VDOT used Highway User Benefit-Cost Analysis Program (HUB-CAP) to quantify WZ RUC and 

benefits for this project and evaluate the cost-effectiveness of alternatives including detours, 

night work, and various project delivery methods. 

5.1.3.1 Computation of Unit Costs 

This case study demonstrates the derivation of unit cost data using regional data in the 

computation of travel delay costs in lieu of unit cost data provided in HUB-CAP lookup tables. 

The wage statistics in the Washington metropolitan area, designated by the Office of 

Management and Budget (OMB) as the Washington-Baltimore-Northern Virginia, DC-MD-VA-WV 

Combined Statistical Area (CSA), were used. For VOC and crash-related injury costs, the 

national averages presented in Chapter 2 were used due to the absence of region-specific 

data. 

The unit cost data requirements for the computation of WZ RUC components mentioned 

above are shown in Table 63. 

Table 63. I-66 project: unit cost data requirements for WZ RUC computation.

Unit Cost Mainline Ramp

WZ Travel Crash 

Delay 

WZ 

VOC 

Detour 

Travel Delay 

Detour 

VOC 

Value of personal travel time ($/hr)  

Value of business travel time ($/hr)  

Value of truck travel time ($/hr)  

Time-related vehicle depreciation 

($/hr)  

Cost of Freight Inventory ($/hr)  

Composite VOC($/mile) 

Idling cost VOC ($/hour) 

Speed Change VOC($/1000 stops) 

Queue stopping VOC ($/1000 stops) 

Fatalities 

Injury 

Property Damage 

Value of Travel Time for Passenger Cars

The monetary value of time for passenger cars is the weighted average of two components: 

travel time value of passenger cars on personal travel and travel time value of passenger cars 

on business travel. Per 2009 NHTS statistics, the passenger cars on personal and business 

travel were estimated to be 93.7 and 6.3 percent, respectively. 

The computations of travel time values for passenger cars on both personal and business 

travel are presented as follows: 
139 

Hourly $ Value of Personal Travel Time 

Median annual household income in 2010 inflation-adjusted dollars for the WashingtonArlington-Alexandria, DC-VA-MD-WV Metro Area was $84,523.138 The steps presented in section 

2.2.2.1 were followed. 

Median annual household income of the area = $84,523 

Hourly time value of a person on personal travel (assuming local travel) 

 = 50% of $84,523÷2080 hrs 

Hourly time value of a person on personal travel = $20.32/person-hr 

Average vehicle occupancy for personal travel = 1.24 persons per vehicle139

Hourly travel time value of a passenger car on personal travel = 1.24 * 20.32 

= $25.19/vehicle-hr 

Hourly $ Value of Business Travel Time 

The sum of hourly wages and benefits for the Washington Metropolitan area were estimated 

using the CSA-specific ECEC statistics available on the BLS website. The steps presented in 

section 2.2.2.2 were followed. 

Hourly employment cost for the quarter March 2010= $33.79140

Hourly time value of a person on business travel = $33.79/person-hr 

Average vehicle occupancy = 1.24 persons per vehicle 

Hourly travel time value of a passenger car on business travel = $33.79 * 1.24 

 = $41.90/vehicle-hr 

Weighted Average of Travel Time Value 

The weighted average of travel delay time values for passenger cars on both personal and 

business travel were computed using the ratios presented in 2009 NHTS statistics. 

Travel delay value of a passenger car on personal travel = $25.19/vehicle-hr 

Travel delay value of a passenger car on business travel = $41.90/vehicle-hr 

Weighted average of hourly time value of passenger cars = 93.7% of $25.19 + 6.3% of $41.90 

 = $26.25/ hr 

Travel delay value of a passenger car = $26.25/hr 

Value of Truck Travel Time

Following the steps presented in section 2.2.2.3, the hourly compensation of truck drivers was 

used in computing the value of truck travel time. 

Average compensation of single-unit truck drivers = $28.50/person-hr 

Average vehicle occupancy of single-unit trucks = 1.025 

 

138 Source: American Fact Finder, U.S. Census Bureau, 2010 American Community Survey (Item Code 

B19013) http://factfinder2.census.gov/faces/nav/jsf/pages/index.xhtml 139 Assumed based on the value reported in “A Look Back at Rezoning Cases to Compare Projected and 

Actual Transportation Impacts” Fairfax County Technical Assistance Project, 2008. 

http://www.mwcog.org/transportation/activities/tlc/pdf/Ffx_FinalReport.pdf

140 http://www.bls.gov/news.release/archives/ecec_06092010.pdf
140 

Hourly time value of single-unit trucks = 1.025 * $28.50 = $29.21/hr 

Average compensation of combination truck drivers = $27.95/person-hr 

Average vehicle occupancy of combination trucks = 1.12 

Hourly time value of combination trucks = 1.12 * $27.95 = $31.30/hr 

Due to lack of data, the proportion of single-unit and combination trucks on I-66 was assumed 

to be typical of urban interstate highways. 

Percent single unit trucks = 12.9% of total trucks141

Percent combination trucks = 87.1% of total trucks 

Hourly $ value of truck travel time = 12.9% of $29.21 + 87.1% of $31.30 = $31.03/hr 

Hourly $ Value of Vehicle Depreciation Cost

The values presented in the Step 1 of Example 2.5 (section 2.2.2.4) were used. 

Hourly depreciation cost for passenger cars = $1.23/hr 

Hourly depreciation cost for single-unit trucks = $3.09/hr 

Hourly depreciation cost for combination trucks = $9.29/hr 

Hourly $ Value of Freight Inventory Cost

The values presented in Step 7 of section 2.2.2.5 were used. 

Hourly vehicle inventory cost for single-unit trucks = $0.18/hr 

Hourly vehicle inventory cost for combination trucks = $0.31/hr 

Total Delay Costs

Hourly costs for passenger cars = time value + depreciation cost 

 = $26.25 + 1.23 =$27.48/hr 

Hourly costs for single-unit trucks = time value + depreciation + freight inventory 

 = $29.21 + 3.09 + 0.18 = $32.48/hr 

Hourly costs for combination trucks = time value + depreciation + freight inventory 

 = $31.30 + 9.29 + 0.31 = $40.90/hr 

Hourly costs for all trucks = 12.9% of $32.48 + 87.1% of $40.90 = $39.81/hr 

Composite Vehicle Operating Costs

Composite VOC (per mile cost) was used for diverted vehicles on detour routes only. For 

passenger cars, the AAA estimates presented in Table 16 were used. A median sedan car was 

assumed to represent all passenger cars on I-66. For trucks, the ATRI estimates presented in 

Table 17 were used. 

VOC for passenger cars = $0.403/mile 

VOC for trucks = $0.818/mile 

 

141 Based on the Long-term Pavement Performance (LTPP_ Truck Traffic Classification (TTC) national 

averages for urban interstate highways. 
141 

Individual Vehicle Operating Costs

Individual VOC components for idling, speed change, and queue stopping were obtained from 

the RealCost cost tables presented in Table 12. 

Crash Costs

Based on the accident information presented in Table 58, the crash costs are presented as 

follows: 

Since the VDOT accident data contain the dollar value of property damage, no unit costs were 

computed. The sum of property damage values presented in Table 58 was used. 

Total monetary value of property damage = $39,620 

Number of injuries = 4 (all incidents involving two vehicles with crash geometry resembling 

rear end collisions). 

Using the data provided in Appendix A, Table 2 of the FHWA report “Crash Cost Estimates by 

Maximum Police-Reported Injury Severity within Selected Crash Geometries,” 49 the mean 

human capital and comprehensive costs (in 2001 dollars) were obtained. For the given set of 

factors—crash geometry code No. 15, injured but severity unknown, speed limit > 50 mph—the 

mean human capital and comprehensive costs in 2001 dollars are $34,399 and $68,218, 

respectively. The crash costs were then adjusted to 2010 dollars using the approach 

illustrated in the Step 7 of Example 2.10 in section 2.4.3. 

Adjustment factor for human capital costs = 1.2313 

Adjustment factor for comprehensive costs = 1.3095 

Adjusted comprehensive cost = ($34,399*1.2313) + ($68,218 -$34,399)*1.3095 

=$86,641.47/injury 

Cost per injury = $86,641.47 

There were no fatalities reported, and therefore, the crash cost for a fatal event was not 

computed. 

5.1.3.2 RUC for Mainline I-66 through Traffic (Delay and VOC only) 

RealCost was used to estimate work zone traffic impacts and compute the delay and VOC 

components of WZ RUC for the mainline I-66 through traffic. The following inputs were used: 

 One-way AADT = 90,000 

 Percent single-unit trucks = 0.6% 

 Percent combination trucks = 4.4% 

 Diverted traffic = 0% (assumed) 

 Normal speed limit= 55 mph 

 Work zone speed limit = 45 mph 

 Normal lane capacity = 2250 passenger cars/hr/lane 

 Work zone lane capacity = 2100 passenger cars/hr/lane (obtained from VDOT's HUBCAP estimate) 
142 

Two different lane closure conditions were used: 

 Two of four lanes closed from 9:00 pm to 5:00 am 

 Three of four lanes closed from 10:00 pm to 5:00 am 

Tables 64 and 65 present the estimated queue length, delay time, and associated delay and 

VOC components of WZ RUC for two- and three-lane closures, respectively. The estimated 

daily costs of the delay and VOC components for these conditions are $2,247 and $72,291, 

respectively. 

The estimations presented in these tables indicate that the traffic impacts were severe when 

three lanes were closed, particularly between 11:00 pm and 12:00 am. The estimated 

maximum queue length and delay time with the three-lane closure was 2.2 miles and 

approximately 34 minutes during this time period. These values were similar to the travel 

time statistics presented in Table 59, thus validating the RealCost estimations. 

Table 64. I-66 mainline traffic impacts (two of four lanes closed). 

Time WZ Conditions RUC per 

Hour 

Queue 

Length 

(miles) 

Delay (min) 

Car Single Unit 

Trucks 

Combination 

Trucks 

0 - 1 WZ & No Queue $230 0.0 0.4 0.4 1.1

1 - 2 WZ & No Queue $139 0.0 0.4 0.4 1.1 

2 - 3 WZ & No Queue $112 0.0 0.4 0.4 1.1

3 - 4 WZ & No Queue $88 0.0 0.4 0.4 1.1

4 - 5 WZ & No Queue $88 0.0 0.4 0.4 1.1

5 - 6 No WZ & No Queue $0 0.0 0.0 0.0 0.0

6 - 7 No WZ & No Queue $0 0.0 0.0 0.0 0.0

7 - 8 No WZ & No Queue $0 0.0 0.0 0.0 0.0

8 - 9 No WZ & No Queue $0 0.0 0.0 0.0 0.0

9 - 10 No WZ & No Queue $0 0.0 0.0 0.0 0.0

10 - 11 No WZ & No Queue $0 0.0 0.0 0.0 0.0

11 - 12 No WZ & No Queue $0 0.0 0.0 0.0 0.0

12 - 13 No WZ & No Queue $0 0.0 0.0 0.0 0.0

13 - 14 No WZ & No Queue $0 0.0 0.0 0.0 0.0

14 - 15 No WZ & No Queue $0 0.0 0.0 0.0 0.0

15 - 16 No WZ & No Queue $0 0.0 0.0 0.0 0.0

16 - 17 No WZ & No Queue $0 0.0 0.0 0.0 0.0

17 - 18 No WZ & No Queue $0 0.0 0.0 0.0 0.0

18 - 19 No WZ & No Queue $0 0.0 0.0 0.0 0.0

19 - 20 No WZ & No Queue $0 0.0 0.0 0.0 0.0

20 - 21 No WZ & No Queue $0 0.0 0.0 0.0 0.0

21 - 22 WZ & No Queue $647 0.0 0.4 0.4 1.1

22 - 23 WZ & No Queue $562 0.0 0.4 0.4 1.1 

23 - 24 WZ & No Queue $380 0.0 0.4 0.4 1.1

Total $2,247

Maximum 0.0 0.4 0.4 1.1
143 

Table 65. I-66 mainline traffic impacts (three of four lanes closed). 

Time WZ Conditions RUC per 

Hour 

Queue 

Length 

(miles) 

Delay (min) 

Car Single Unit 

Trucks 

Combination 

Trucks 

0 - 1 WZ & Queue $21,362 1.5 22.9 23.1 24.7 

1 - 2 WZ & Queue $1,795 0.4 6.5 6.8 9.0 

2 - 3 WZ & No Queue $112 0.0 0.4 0.4 1.1 

3 - 4 WZ & No Queue $88 0.0 0.4 0.4 1.1 

4 - 5 WZ & No Queue $88 0.0 0.4 0.4 1.1 

5 - 6 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

6 - 7 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

7 - 8 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

8 - 9 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

9 - 10 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

10 - 11 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

11 - 12 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

12 - 13 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

13 - 14 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

14 - 15 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

15 - 16 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

16 - 17 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

17 - 18 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

18 - 19 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

19 - 20 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

20 - 21 No WZ & No Queue $0 0.0 0.0 0.0 0.0 

21 - 22 WZ & No Queue $0 0.0 0.0 0.0 0.0 

22 - 23 WZ & Queue $16,890 1.1 17.5 17.8 19.3 

23 - 24 WZ & Queue $31,956 2.2 33.8 34.1 35.6 

Total $72,291

Maximum 2.2 33.8 34.1 35.6

Two of four lanes closed: 

Number of work days = 27 

Daily WZ RUC (delay and VOC only) = $2,247 

Total WZ RUC (delay and VOC only) = 27 * $2,247 = $60,669 

Three of four lanes closed: 

Number of work days = 44 

Daily WZ RUC (delay and VOC only) = $72,291 

Total WZ RUC (delay and VOC only) = 44 * $72,291 = $3,180,804 

Total WZ RUC (delay and VOC only) = $60,669 + $3,180,804 = $3,241,473 

5.1.3.3 RUC for I-66 Ramp Closure and Detours (Delay and VOC only) 

The I-66 ramp leading to US 50 was fully closed for traffic between 9:00 pm and 5:00 am for 

30 days. The following inputs were used: 
144 

Number of work days = 30 

Lane closure timing = 9:00 pm to 5:00 am 

Number of vehicles diverted during closure = 5,460 

 

Normal travel distance = 3.1 miles (with no work zone in place and no detours) 

Normal speed = 55 mph 

Detour travel distance = 5.3 miles (as a result of ramp closure) 

Detour speed = 40 mph 

Additional travel time per vehicle = (5.3/40) – (3.1/55) = 0.076 hour = 4.57 minutes 

Total travel delay time for all diverted vehicles = 5,460 * 0.076 = 415.7 hours 

Delay costs per day = 95%*415.7*$27.48 + 5%*415.7*$39.81 

 = $10,852.26+827.45 = $11,679.72 

Additional distance traveled per vehicle = 5.3 – 3.1= 2.2 miles 

VOC for passenger cars = $0.403/mile 

VOC for trucks = $0.818/mile 

VOC per day = 95%*5460*$0.403 + 5%*5460*$0.818 =$2,313.68 

Total delay and VOC for all working days = ($11,679.72 + $2,313.68) * 30 days 

= $13,993.4 * 30 days = $419,802 

On this project (as would be standard procedure in most real-world scenarios), the pavement 

repairs on the ramp were undertaken concurrently with repairs on the mainline. The ramps 

were fully closed for traffic when the lane closures on the mainline were in effect. Therefore, 

while analyzing the traffic impacts of mainline lane closures, the demand-capacity analysis 

should duly account for the diverted vehicles in computing the mainline hourly traffic volume. 

However, as no information on the exact dates of ramp closures was available, the number of 

diverted vehicles was not deducted from the mainline hourly traffic volume. Therefore, it was 

assumed for the sake of simplicity that the mainline closures and ramp closures were not in 

effect concurrently, and they were considered separately. 

5.1.3.4 Crash Costs 

Crash costs were determined based on the crash rates reported in Table 58 for the ramp and 

the mainline. The key steps involved in computing the crash costs are as follows: 

1. Compute the pre-construction crash rate 

2. Compute the work zone crash rate using work zone crash modification factor 

3. Estimate the measure of work zone exposure 

4. Compute unit cost for crashes 

5. Compute work zone crash costs for the project 

The detailed discussion of these steps is presented in section 2.4. 

Pre-construction Crash Rate 

The pre-construction crash statistics reported in Table 58 were converted to crash rates using 

the following equation: 
145 

ൌ ܴܥ

଺10 כ ܣ

365 כ ܶܦܣܣ כ ܮ כ ܶ

Length of roadway section (L) = 4 mile 

Exposure period (T) = 3 years 

Average AADT per year = 90,000 vehicles/day 

Number of fatalities = 0 

Pre-construction crash rate for fatalities = 0 

Number of injuries = 4 

Pre-construction crash rate for injuries = (4*10^6)/(3*4*90,000*365) = 0.01015/MVMT 

Since the property damage values were available for each incident, those values were 

directly used in computing the pre-construction crash rates. 

Value of Property Damage (APDO) = $39,620 

Pre-construction crash rate for PDO (Pre-CRPDO)= (39,620*10^6)/(3*4*90,000*365) 

= $100.50/MVMT 

Work Zone Crash Rate 

No agency-specific work zone crash rates or CMFs were available for this project. To account 

for crash-related risk escalation in work zones, a CMF value of 1.61 was assumed for nighttime temporary lane closures in this project based on the work done by Ullman et al. 42 See 

section 2.4.1 for more discussion on selecting a work zone crash rate. 

Crash modification factor for work zone = 1.61 

Work zone crash rate for fatalities = 0 

Work zone crash rate for injuries (WZ-CRINJ)= 0.01015 * 1.61 = 0.01634/MVMT 

Work zone crash rate for PDO (WZ-CRPDO)= $100.50 * 1.61 = $161.81/MVMT 

Work Zone Exposure 

The VMT during the work zone period is computed for both ramp and mainline traffic. Note 

that the exposure periods and work zone length were different for both ramp and mainline 

traffic. The mainline traffic is exposed to I-66 work zone related crash risks for the entire 

construction duration of 71 days, while the ramp traffic is exposed to the I-66 work zone 

related crash risks only for the time period when the ramps are opened for traffic during 

construction (i.e., 71-30 = 41 days). When the full ramp closure was in effect, the ramp 

traffic was exposed to the crash risks of detour routes. Since no crash data are available for 

detour routes, it was not considered in this case study. 

Mainline Traffic: 

Exposure period (T*365) = 71 days 

AADT (mainline) = 90,000 

Work zone length (mainline) = 1 mile 

Ramp Traffic: 

Exposure period = 41 days 

ADT(ramp) = 28, 000 vehicles/day 

Work zone length (ramp) = 4 miles 
146 

Million vehicle miles traveled = (71*90,000*1/10^6)+ (41*28,000*4/10^6) = 10.982 MVMT 

Unit Cost of Crashes 

Refer to section 5.1.3.1 for computation of unit costs of crashes. 

Cost per injury = $86,641.47 

Note that the monetary values of property damage were directly used in computing the 

pre-construction crash rate for PDO, and hence, unit costs were not required. 

Crash Costs 

The crash costs were computed by multiplying work zone crash rate with the measure of 

exposure (MVMT) and the corresponding mean comprehensive costs. 

Work zone crash rate for fatalities = 0 

WZ costs for fatalities = 0 

Work zone crash rate for injuries=0.01634/MVMT 

WZ exposure = 10.982 MVMT 

Cost per injury = $86,641.47 

WZ costs for injuries = 0.01634*10.982*$86,641.47 = $15,547.46 

Work zone crash rate for PDO = $161.83/MVMT 

WZ exposure = 10.982 MVMT 

WZ costs for PDO= $161.81*10.982= $1,777.00 

Total crash costs = $15,547.46 + $1,777.00 = $17,324.46 

Daily crash costs = $17,324.46/71 = $244.00 

5.1.3.5 Total WZ RUC 

Total WZ RUC for the entire project is the sum of delay costs and VOC for mainline and ramp 

traffic and crash costs. 

Total WZ RUC = total delay costs and VOC for mainline + 

total delay costs and VOC for ramp + crash costs 

= $3,241,473 + 419,802 + 17,324.46 = $3,678,599.46 

Daily WZ RUC for two lanes closed (mainline) = $2,247 + 244.00 = $2,491.00 

Daily WZ RUC for three lanes closed (mainline) = $72,291 + 244.00 = $72,535.00 

Daily WZ RUC for detour traffic = $13,993.40 + 244.00 = $14,237.40 
147 

5.1.4 Selection of Construction Technique 

VDOT’s selection of pre-cast pavement technology as the preferred technique over other 

feasible alternatives appeared to have taken the following factors into account: 

 Anticipated work zone impacts on mobility and safety: This segment of I-66 primarily 

serves as a commuter route carrying high volumes of traffic in both directions on both 

weekdays and weekends. Any daytime or continuous lane closures would have resulted 

in severe disruption of work zone traffic. 

In such situations, the use of pre-cast pavement technology typically allows all 

construction activities to be accomplished during nighttime hours, including traffic 

control set-up and removal, with no significant disruption to traffic. This was evident 

as the production rates achieved during construction ranged between 8 to 12 panels 

for the single lane width installation in a 6-hour work window. 

The use of cast-in-place concrete with high early strength concrete mix may result in 

similar productivity rates and lane closure requirements; however, the placement of 

conventional concrete mix requires several days of continuous lane closure to allow 

concrete curing, resulting in severe disruptions to work zone traffic. 

 Cost-effectiveness: The use of conventional concrete mix is cheaper and typically 

provides a 30-year service life with minimal intervention needed for pavement 

maintenance but would require longer construction time (or higher road user costs). 

On the other hand, the use of high early strength concrete typically carries a cost 

premium and can be cost-prohibitive for large-scale construction. Despite the 

advantage of shorter construction time, the cast-in-place pavement with high early 

strength mix may exhibit material durability problems leading to shorter service life 

and may warrant frequent intervention for pavement maintenance and rehabilitation 

(M&R). Over the pavement’s life cycle, frequent M&R interventions typically offset the 

WZ RUC savings gained from shorter construction time. 

Thus, the use of pre-cast pavement technology seemed to provide a balance with 

lower life cycle costs (including road user costs), long-term pavement performance, 

and shorter construction time requirements. 

5.1.5 Selection of Contracting Strategy 

As mentioned earlier, VDOT adopted the “fixed price best value” contracting method for this 

project. The fixed price best value approach is being widely used under the SEP-14 program. 

The basic element of this method (i.e., bid that provides maximum value for a fixed price) is 

commonly used as a bid award basis in design-build contracting. 

The bidders were allowed to compete on the extent, in terms of square yard size, of 

pavement repair for a fixed bid price of $5 million. This alternative contracting approach was 

used for this project to maximize the square yardage of pavement repair. VDOT adopted a 

lane rental strategy for this project, given the fact that the I-66 mainline is an urban 

interstate carrying a high volume of commuter traffic each day. 
148 

Step 1. Identifying the need for project acceleration.

This case study critically analyzes the need for a schedule-focused contracting strategy for 

this project and provides suggestions for selecting a particular contracting strategy to achieve 

schedule-related objectives. The approach presented in section 4.3 was used herein to 

evaluate the need for such strategies for this project. The questions presented in Table 66 

were answered based on the available information. The evaluation results indicate that the 

answers to several of these questions were YES, thus indicating the need for a scheduledfocused contracting strategy for this project. 

Table 66. I-66 project: evaluating the need for a schedule-focused contracting strategy.

Question Yes Maybe No

Is the project goal to shorten the duration of construction phase? 

Is the estimated WZ RUC high for the baseline duration? 

Is the traffic volume high enough to cause significant disruptions? Does 

the work zone affect the intersecting traffic? 



Is this roadway located in an urban area? Does the local traffic depend 

on this highway for commute? 



Does this area lack any viable detour alternative that does not adversely 

impact the local network? 



Are there local community and political interests to be considered? 

Does the work zone adversely impact the local business and 

neighborhood? 



Are the safety issues of construction workers and traffic a concern? 

Is the project time-sensitive? 

Does this project close a gap in the local highway network? 

Is the project located in tourist or environmentally sensitive areas? 

Step 2. Selecting a project delivery method.

Upon establishing the need for schedule acceleration, an appropriate project delivery method 

was selected using the guidelines presented in Table 51 (see section 4.3.2). An evaluation was 

performed to identify the suggested project delivery method, and the discussion is presented 

as follows: 

 Project size, scope and complexity: Small-Medium — The project size was $5 million. 

The scope primarily involved pavement repairs and some roadway realignment of 

ramps for pre-cast pavement slab installation. 

 Is project routine or innovative?: Innovative — The use of pre-cast pavement 

technology was an innovative venture for VDOT. 

 Certainty over design scope: Yes — VDOT was certain over the design scope. The 

agency specified the use of pre-cast pavement technology in the bid advertisement. It 

also outlined the repair areas that were required under the contract and the optional 

areas. 

 In-house design: Yes — VDOT specified the design for pre-cast slabs on the plans. VDOT 

also hired a design consultant for this project. 

 Early cost certainty: Yes — The project cost was fixed at $5 million. The bid 

advertisement also specified the required repair areas. 

 Certainty over constructability: Yes — VDOT specified the use of pre-cast pavement 

technology in the bid advertisement. It also hired a design consultant for this project. 
149 

The suggested strategy, in accordance with the recommendations presented in Table 51, was 

to adopt design-bid-build and, in addition, to hire consultants to seek design/constructability 

advice. 

Step 3. Selecting a schedule-focused contracting method.

Following the project delivery method, another evaluation was performed to identify an 

appropriate schedule-focused contracting method based on the selection factors presented in 

Table 52. The discussion is presented as follows: 

 Is the project required to complete before the expected normal duration?: YES – Since 

this roadway carries heavy commuter traffic, VDOT was interested in early completion. 

 Is the project time-sensitive?: YES – This project was not time-sensitive. 

 Project duration: Long— the expected project duration was 2-3 months. 

 Intermediate or Multiple Phases: NO. 

 Detours are long, impractical, or unavailable: YES for mainline, NO for ramp. 

 Urban commuter traffic: YES 

 Owner’s confidence on estimated duration: Low - This project involved the adoption of 

a new, innovative technology. VDOT has no or little prior experience with the 

installation of the pre-cast pavement technology, and hence the owner’s confidence 

was considered low. 

Based on the discussion above, the suggested strategy, in accordance with the 

recommendations presented in Table 52 is A+B with I/D, lane rental, and accelerated 

construction. VDOT adopted only lane rental and accelerated construction techniques for this 

project; the A+B bidding was not used. 

5.1.6 Computing Lane Rental Fee 

This section illustrates the computation of lane rental fee for a given closure period using WZ 

RUC as the basis. RealCost was used in estimating the traffic impacts and mobility-related WZ 

RUC components for various lane closure scenarios. Tables 67 and 68 present the summary of 

the estimated WZ RUC and mobility impacts for both two-lane and three-lane closures at 

various lane closure timings. The daily WZ RUC values presented in these tables includes both 

mobility costs and crash costs. The net difference values indicate the difference in the daily 

WZ RUC estimates between the actual and the allowable closure period. In this project, the 

VDOT defined the allowable closure as the period between 9 pm and 5 am for two-lane 

closures, and between 10 pm and 5 am for three-lane closures. 

As indicated in the Tables 67 and 68, closing a lane earlier than the scheduled time or failing 

to restore lanes per schedule results in increased WZ RUC. For the two-lane closure, the 

effect apparently is not significant if the lane closure is in effect as early as 8:00 pm or as 

late as 8:00 am the next day. Any closure outside this period is expected to cause longer 

delays and queue lengths with time, and accordingly, the estimated WZ RUC increases 

exponentially until the lanes are restored to traffic. For the three-lane closure, there is no 

buffer time for earlier closure, and the lane opening can only be delayed by an hour. As 

expected, the adverse impact of early closure or late restoration is more significant when 

three lanes are closed to traffic. 
150 

Table 67. I-66 mainline: RealCost WZ RUC estimates for different lane closure 

timings (two of four lanes closed). 

Lane Closure Timings Daily WZ 

RUC 

Net 

Difference 

Maximum 

Queue Length 

(miles) 

Maximum Delay 

Time (minutes) Closed Opened 

6 pm 5 am $457,844 $455,353 9.8 59.3 

7 pm 5 am $124,172 $121,681 3.9 25.4 

8 pm 5 am $3,219 $728 0 1.1 

9 pm 5 am $2,491 $0 0 1.1 Allowable closure period 

9 pm 6 am $2,711 $220 0 1.1 

9 pm 7 am $3,253 $762 0 1.1 

9 pm 8 am $3,981 $1,490 0 1.1 

9 pm 9 am $12,635 $10,144 0.8 6.0 

Table 68. I-66 mainline: RealCost WZ RUC estimates for different lane closure 

timings (three of four lanes closed). 

Lane Closure Timings Daily WZ 

RUC 

Net 

Difference 

Maximum Queue 

Length (miles) 

Maximum Delay 

Closed Opened Time (minutes) 

7 pm 5 am $1,590,723 $1,518,188 16.7 246.5 

8 pm 5 am $637,481 $564,946 9.4 140.3 

9 pm 5 am $264,440 $191,904 5.4 81.3 

10 pm 5 am $72,535 $0 2.2 35.6 Allowable closure period 

10 pm 6 am $72,755 $220 2.2 35.6 

10 pm 7 am $90,072 $17,537 2.2 35.6 

10 pm 8 am $169,940 $97,405 5.7 65.2 

10 pm 9 am $351,057 $278,522 13.1 138.8 

Table 69 presents a comparison of the VDOT and RealCost-based lane rental fees. The lane 

rental fee for a given closure period is calculated as the difference in the WZ RUC estimates 

between the actual and the allowable closure periods, and adjusted using a discount factor. 

Negative differences indicate that the adverse impacts for a given lane closure period are not 

worse than those allowed in the contract (i.e. impacts of the allowable closure period), and 

hence, no fees apply. The WZ RUC estimates presented in Tables 67 and 68 were used. A 

discount factor of 1.0 was used in developing RealCost-based lane rental fees. 

Note that a one-to-one comparison between the VDOT and RealCost-based fees cannot be 

made for the comparison presented herein because of the differences in assumptions used in 

VDOT calculations such as the unit costs and the use of discount factors. 

Table 69. I-66 project: comparison of VDOT and RealCost-based lane rental fees.

Two of Four Lanes Closed Three of Four Lanes Closed 

Closure Period VDOT RealCost Closure Period VDOT RealCost

9:00 PM to 5:00 AM $0 $0 10:00 PM to 5:00 AM $0 $0

9:00 PM to 6:00 AM $200 $220 10:00 PM to 6:00 AM $9,000 $220

9:00 PM to 7:00 AM $600 $762 10:00 PM to 7:00 AM $28,000 $17,537

9:00 PM to 8:00 AM $1,000 $1,490 10:00 PM to 8:00 AM $48,000 $97,405

9:00 PM to 9:00 AM $1,400 $10,144 10:00 PM to 9:00 AM $68,000 $278,522

Table 70 presents a comparison of lane rental fees at different discount factors for three lane 

closures only. 
151 

Table 70. I-66 project: comparison of lane rental fees at different discount factors 

(three of four lanes closed condition only). 

Closure Period VDOT

Fee 

RealCost-based Fees at a discount factor of :

DF =1.0 DF =0.5 DF =0.25

10:00 PM to 5:00 AM $0 $0 $0 $0 

10:00 PM to 6:00 AM $9,000 $220 $110 $55 

10:00 PM to 7:00 AM $28,000 $17,537 $8,769 $4,384

10:00 PM to 8:00 AM $48,000 $97,405 $48,703 $24,351

10:00 PM to 9:00 AM $68,000 $278,522 $139,261 $69,631

5.2 IMPROVEMENTS TO THE 24TH STREET–I-29/80 INTERCHANGE IN COUNCIL BLUFFS,

IOWA

This case study illustrates the application of WZ RUC in the benefit-cost analysis for a project 

to determine whether using an accelerated construction technique would be economically 

justifiable. A bridge replacement project at the interchange of 24th street and Interstate 

29/80 in Council Bluffs, Iowa was selected for this case study. 

The bridge replacement on the 24th Street and I-29/80 interchange was completed and 

opened to traffic in 2008. The post-construction information of this project was obtained for 

this case study; however, for the sake of illustration, it is assumed that the key pieces of 

during-construction information, such as the agency costs and work zone delay time, were 

available before construction for decision making. Note that the decision to use the 

accelerated construction technique is made in the pre-construction phase of a project. 

5.2.1 Project Description 

Background and Location

The Iowa DOT, Nebraska Department of Roads, and FHWA, in coordination with the city of 

Council Bluffs and the Metropolitan Area Planning Agency, proposed improvements to the 

Council Bluffs Interstate System around Council Bluffs, Iowa. The proposed improvements 

were intended to upgrade mobility through the interstate corridors and modernize them to 

accommodate future traffic needs. 

As a part of the CBIS improvement plan, the Iowa DOT undertook a construction project to 

replace the existing four–span concrete bridge serving 24th Street over I-80 with a wider and 

longer two–span steel girder bridge. Figure 22 shows the general project location. The 

existing four–span pretensioned, prestressed concrete beam bridge was replaced with a two–

span steel welded girder bridge. The roadway improvements were completed on 24th Street 

south of the bridge consisting of a five–lane roadway with a raised median. 

Traffic Volume

24th street carried an estimated AADT of 12,400 vehicles in 2004 with 14 percent trucks and 

is expected to carry 27,700 vehicles in 2030. For I–29/80, the 2004 AADT was 81,900 vehicles 

per day and the estimated 2030 AADT is 124,400 vehicles per day with 11 percent trucks (see 

Figure 23). The interchange serves major businesses, such as a large outdoor retailer, a 

convention and event center, and several casinos, hotels, and semi truck service centers. 
152 

Figure 22. General project location of 24th Street Reconstruction Project. (Map Source: Bing) 

Figure 23. Traffic volume at the 24th Street Interchange. 

Travel Time Estimates

During construction, none of the exit ramps of 24th Street was expected to create queue back 

onto the I-29/80 freeway mainline lanes. Travel speeds were estimated to be 60 mph on I–

29/80. Travel times along the 1.5–mile length of 24th Street were estimated to be 5.8 and 6.5 

minutes in the northbound and southbound directions, respectively. For eastbound I–29/80 

traffic exiting at 24th Street and then turning left, travel times to the northern terminus of 

24th Street were estimated to be 4.0 minutes over the 0.9–mile distance. For westbound I–

29/80 traffic exiting and then turning left, the travel time for the 1.4–mile journey to the 

southern terminus of 24th Street were estimated to be 4.5 minutes. Table 71 presents per–

vehicle travel time and delay estimates. For simplicity, a delay time value of 2.6 minutes per 

vehicle was deemed reasonable for use in delay cost calculations for all movement types 

within the interchange. 

I-80

2004 AADT = 81,900 

24th St

2004 AADT = 12,400 

Project Location
153 

Table 71. 24th street reconstruction project: per vehicle travel time and delay estimates. 

Movement Normal travel time 

(min) 

Travel time during 

construction (min) 

Estimated 

Delay (min) 

24th Street northbound 3.3 5.8 2.3

24th Street southbound 3.3 6.5 3.2

I–29/80 eastbound to 24th Street 

northbound 

1.4 4.0 2.6

I–29/80 westbound to 24th Street 

southbound 

1.9 4.5 2.6

Pre - Construction Crash Data

According to the Iowa DOT 2001-2005 crash statistics, the project area has experienced an 

average 0.215 crashes/MVMT. The crash rates for personal injury (injuries and fatalities) and 

property damage were 0.069 crashes/MVMT and 0.146 crashes/MVMT, respectively. 

Construction Technique and Project Duration

The Iowa DOT considered the use of full-depth pre-cast concrete panels for bridge decks. The 

pre-cast panels would be cast offsite in a controlled environment, steam cured, and made 

with an innovative self–consolidating concrete to improve consolidation around the 

complicated arrangement of reinforcing and post–tension ducts. The panels would be 

prestressed transversely during casting and post–tensioned longitudinally after placement. 

Pre-cast concrete technology was considered in place of conventional cast–in–place 

construction techniques primarily to reduce the project delivery time and open all lanes on 

the new bridge within one construction season (213 days). Standard phased construction with 

conventional cast–in–place construction techniques would have resulted in two or three open 

lanes, but would have taken more than two construction seasons for completion (426 calendar 

days). The use of pre-cast deck panels was expected to shorten the construction time to only 

6 months (175 days). 

Full closure of the bridge was expected to take less time but would have been unacceptable 

to the surrounding businesses that rely heavily on the interchange. The selection of pre-cast 

deck panels over cast-in-place construction was expected to save over 251 calendar days 

(i.e., 426-175 days) in construction time. 

5.2.2 Case Study Objectives 

The primary objective of this case study is to demonstrate the application of WZ RUC in 

benefit cost analysis to evaluate whether the use of pre-cast deck panels to minimize the 

work zone impacts would be an economically justifiable option for this project. The analysis 

entails an objective comparison of the cost premium associated with the use of pre-cast deck 

panels and the benefits through savings in WZ RUC and agency construction engineering costs. 

The conventional construction option is designated as the baseline option, while the pre-cast 

option is designated as the proposed option. 

5.2.3 Construction Costs 

The Iowa DOT provided the construction cost estimates for both baseline and pre-cast 

options. The construction costs included the design and engineering costs, bridge 

replacement costs, cost of roadway improvements, traffic control and miscellaneous costs. 
154 

Table 72 presents the differences in construction costs between the baseline and the pre-cast 

options. The following assumptions were used in determining the construction costs: 

 The Iowa DOT used 6 and 8 percent of the total project costs for design and 

engineering for the baseline and pre-cast options, respectively. 

 Since the agency was expected to use the same traffic management plan regardless of 

the use of pre-cast deck panels, the costs for traffic control and roadway 

improvements were assumed to be the same for both options. 

 The agency assumed that the typical construction inspection costs would be about 1 

percent of the bridge construction costs. The construction inspection costs for the precast option were estimated to be 10 percent higher than the baseline option. 

Table 72. 24th street reconstruction project: agency costs. 

Cost Category Baseline Option Proposed Option 

Design and Engineering $ 304,380 $ 516,032 

Bridge Construction $ 5,073,000 $ 6,450,398 

Roadway Improvements $ 4,807,721 $ 4,807,721 

Traffic Control $ 272,521 $ 272,521 

Construction Inspection $ 50,730 $ 70,954 

Other $ 620,512 $ 388,636 

Total Cost $ 11,128,864 $ 12,506,262

Table 72 indicates that the use of pre-cast concrete panels would incur an additional cost of 

$1,377,398 or 12.4 percent for the agency when compared to the cast in-place option. 

5.2.4 Work Zone Road User Costs 

The WZ RUC considered in this case study included only travel delay and crash costs. The cost 

differentials between the proposed and baseline option were computed for each component. 

5.2.4.1 Travel Delay Costs 

Since the Iowa DOT would use the same traffic management plan for both proposed and 

baseline option, the delay time statistics reported in Table 71 were used in computing delay 

costs. The unit cost data were provided by the Iowa DOT. The Iowa DOT contracting office 

estimates the cost to the public at $8 an hour per private vehicle and $24 an hour per single 

and multiple–unit commercial truck in 2008. 

The 2008 AADT of the 24th Street intersection was interpolated using the 2004 and 2030 AADT 

values. 

AADT in 2004 = 12,400 vehicles/day 

AADT in 2030 = 27,700 vehicles/day 

AADT in 2008 = 14,000 vehicles/day (interpolated) 

Percent trucks = 14 % 

The delay cost computations are presented as follows: 

Average delay time per vehicle = 2.6 minutes (from Table 71) 

Delay time for passenger cars per day = number of passenger cars * delay time/vehicle 

= 14,000 * 0.86 * 2.6 min/60 = 521.7 vehicle-hours/day 
155 

Delay costs per day for passenger cars = 521.7 * $ 8.00 = $4,173.87 

Delay time for trucks per day = number of trucks * delay time/vehicle 

= 14,000 * 0.14 * 2.6 min/60 = 84.9 vehicle-hours/day 

Delay costs per day for trucks = 84.9 * $ 24.00 = $2038.40 

Delay costs per day for all vehicles = $4,173.87 + 2038.40 = $6,212.27/day 

The selection of accelerated construction techniques has saved 251 days of construction time. 

Total days saved = 251 

Total savings in delay costs = 251 * $6,212.27/day = $1,559,280 

Therefore, it is estimated that an amount of $1,559,280 would be saved in delay costs as a 

direct result of accelerating the construction to only a single season. 

5.2.4.2 Crash Costs 

The approach presented in section 2.4 was used in computing the crash costs. The key steps 

included: 

1. Compute the pre-construction crash rate. 

2. Compute the work zone crash rate. 

3. Estimate the measure of work zone exposure for both proposed and baseline options. 

4. Compute unit cost for crashes. 

5. Compute work zone crash costs for both options. 

Pre-construction Crash Rate 

The crash rates for personal injury (injuries and fatalities) and property damage were 0.069 

and 0.146 crashes/MVMT, respectively. 

Work Zone Crash Rate 

No agency-specific work zone crash rates or CMFs were available for this project. To account 

for crash-related risk escalation in work zones, a CMF value of 1.63 was assumed for 

temporary lane closures in this project based on the work done by Ullman et al. 42 See section 

2.4.1 for more discussion on selecting a work zone crash rate. 

Crash modification factor for work zone = 1.63 

Crash rate for personal injury =0.069 * 1.63 = 0.112 crashes /MVMT 

Crash rate for crash = 0.146 * 1.63 = 0.238 crashes/MVMT 

Work Zone Exposure 

The VMT during work zone period is computed for both options. The affected area includes 

both 24th Street and I-29/80. Table 73 shows that the total volume of traffic exposed to crash 

risk was much lower for the pre-cast option than the baseline option. 
156 

Unit Cost of Crashes 

The unit costs (in 2001 dollars) of personal injury and non-injury crashes were obtained from 

FHWA cost estimates.49 The crash geometry of an accident is unknown, and therefore, Level 5 

estimates were used. The mean comprehensive costs per crash for a rural highway with a 

posted traffic speed greater than or equal to 50 mph and an arterial highway with a posted 

traffic speed less than 45 mph were used for I-29/80 and 24th Street, respectively. Table 74 

summarizes the mean comprehensive costs of personal injury and non-injury crashes in 2009 

dollars for both I-29/80 (speed>50 mph) and 24th Street (speed <45 mph). 

Table 73. 24th street reconstruction project: work zone exposure for baseline and pre-cast

options.

 Parameter

 

Baseline Case Proposed Case

I–29/80 24th Street I–29/80 24th Street

2008 AADT, vehicles/day 88,348 14,000 88,348 14,000

Construction period 426 426 175 175

Total Traffic Volume (millions) 37.64 5.96 15.46 2.45

43.60 17.91 

Table 74. 24th street reconstruction project: unit cost data for crashes.

 Parameter 

 

I–29/80 24th Street 

Injury–causing 

crash 

Non-injury 

crash 

Injury–causing 

crash 

Non-injury 

crash 

Human capital costs* 

(2001 dollars) $49,624 $16,027 $38,344 $14,577 

Mean comprehensive costs 

(2001 dollars) $95,368 $25,735 $72,002 23,993 

Mean comprehensive costs 

 (2008 dollars)** $117,391 $31,594 $88,601 $29,467 

Note (*): Level 5 estimates from cost tables provided by Council et al.49

 (**) : Follow the procedure presented in Section 2.4.3

Work Zone Crash Costs 

The crash costs were computed by multiplying work zone crash rate with the measure of 

exposure (MVMT) and the corresponding mean comprehensive costs. Tables 75 and 76 present 

the crash cost computations for the baseline and pre-cast options, respectively. The selection 

of pre-cast option would result in $517,829 savings of crash costs. 

Table 75. 24th street reconstruction project: crash costs for the baseline option.

Parameter I–29/80 24th Street Parameter I–29/80

Injury–causing 

crash 

Non-injury crash Injury–causing 

crash 

Non-injury crash

Crash Rate 0.112 0.238 0.112 0.238

Exposure (MVMT) 37.64 37.64 5.96 5.96

Unit cost $117,391 $31,594 $88,601 $29,467

Crash Cost $494,883 $283,005 $59,143 $41,795

Total $878,826
157 

Table 76. 24th street reconstruction project: crash costs for the pre-cast option.

Parameter I–29/80 24th Street Parameter I–29/80

Injury–causing 

crash 

Non-injury crash Injury–causing 

crash 

Non-injury crash

Crash Rate 0.112 0.238 0.112 0.238

Exposure (MVMT) 15.46 15.46 2.45 2.45

Unit cost $117,391 $31,594 $88,601 $29,467

Crash Cost $203,265 $116,240 $24,312 $17,181

Total $360,998

5.2.4.3 Savings in WZ RUC 

The total savings in WZ RUC is the sum of savings in delay and crash costs. The selection of 

pre-cast option would result in WZ RUC savings of $2,077,108. 

Total savings in WZ RUC = savings in delay costs + savings in crash costs 

 = $1,559,280 + 517,828 = $2,077,108 

5.2.5 Benefit-Cost Analysis 

The expected savings in WZ RUC that will be realized through the use of pre-cast panels were 

compared with its additional construction costs. 

Increase in construction costs ( cost) = $1,377,398 (from section 5.2.3) 

Savings in WZRUC ( benefit) = $2,077,108 (from section 0) 

Cost difference ( benefit - cost) = $2,077,108 - 1,377,398 = $699,710 

Incremental benefit-cost ratio is the ratio between the savings in WZ RUC ( benefit) and the 

increase in construction costs ( cost). An incremental benefit-cost ratio greater than 1.0 

would indicate that the benefit of using pre-cast deck panels in this project would outweigh 

its costs. 

Incremental benefit-cost ratio =  benefit / cost = $2,077,108/ 1,377,398 = 1.51 > 1.0 

Percent benefit of total cost is the ratio of difference between the WZ RUC savings and the 

net cost increase ( benefit - cost) relative to the total cost of the baseline option. Any 

positive difference between the WZ RUC savings and the construction cost premium would 

indicate that the benefit of using pre-cast deck panels in this project would outweigh its 

costs. 

Percent benefit of total cost = ( benefit - cost) / cost (baseline option) 

=$699,710/11,128,864 = 6.3 percent 

These computations clearly show that the benefit of using pre-cast concrete deck panels in 

this project outweighs its cost premium. Using pre-cast concrete deck panels would save an 

estimated $699,710 in this project. In other words, selecting the pre-cast panel option for this 

project would have a 6.3 percent cost benefit over traditional cast in-place methods. 
158 

5.3 RECONSTRUCTION OF EASTERN AVENUE BRIDGE OVER KENILWORTH AVENUE IN 

WASHINGTON, DC 

The reconstruction of Eastern Avenue Bridge over Kenilworth Avenue was selected for this 

case study to demonstrate the application of the Kepner-Tregoe decision analysis method in 

MOT alternative analysis. The actual information obtained for this project was modified with 

a number of assumptions for illustration purposes. 

5.3.1 Project Description 

Project Location and Background

This project is located along Eastern Avenue in the northeastern corner of Washington, DC, at 

the border with Prince George’s County, MD. The bridge crosses over Kenilworth Avenue, 

which is the continuation of the Baltimore Washington Parkway/I-295 through Washington, 

DC. 

Kenilworth Avenue is a six-lane principal urban expressway that serves commuters between 

Washington, DC, and Prince George’s County, Maryland. It also serves as a homeland security 

evacuation route for DC wards 7 and 8. US 50 (John Hanson Highway/New York Avenue) just 

north of the project site feeds a large portion of traffic to this segment of DC 295. Figure 24 

shows the general location of the project. 

Figure 24. Location of Eastern Avenue project. (Map Source: Bing) 

Figure 25 presents an aerial view of the project location and the conditions before 

reconstruction. The profile of Kenilworth Avenue is depressed to cross under Eastern Avenue 

at their intersection. Parallel to Kenilworth Avenue and on either side are two one-way 

service roads more than 24 ft wide that provide access to local homes and businesses. 

The Eastern Avenue Bridge before reconstruction was a single-span bridge crossing all six 

lanes of Kenilworth Avenue. The intersection is signalized on top for turns between Eastern 

Avenue and Kenilworth Avenue service roads. Ramps between mainline Kenilworth Avenue 

and its parallel service roads provide access between Kenilworth Avenue and Eastern Avenue. 

Project Location 
159 

Kenilworth Aquatic Gardens, administered by the National Park Service, are located 

northwest of the intersection. The bridge serves as a pedestrian crossing, truck turnaround, 

and link between portions of northeast DC. 

Figure 25. Preconstruction aerial photograph of Eastern Avenue bridge. 

The existing bridge allows for a minimum vertical clearance of 14 ft along Kenilworth Avenue. 

Due to its low vertical clearance, it has been struck several times. As a result, the bridge 

structure was damaged and deteriorating. The Washington DC DOT reconstructed the bridge 

to increase the minimum vertical clearance to 16 ft, the maximum extent practicable, and to 

increase safety at the crossing for both pedestrians and vehicular traffic. 

Pre-construction Crash Data

Statistics collected between 2001 and 2003 indicate a crash rate of 156 crashes/MVMT on the 

segment of Kenilworth Avenue south of Eastern Avenue. For the intersection of Eastern 

Avenue and the service roads, the crash data indicate there were a total of 70 accidents in 

the 3-year study period between 2003 and 2005. The majority of accidents at the intersection 

involved rear-end type hits, sideswipes, left turn accidents, broadsides, and fixed object 

accidents. Almost 50 percent of the accidents occurred between the hours of 6:30 pm and 

7:30 am, indicating the possibility of lighting and visibility issues. 

Traffic Volume

Kenilworth Avenue carries an ADT of approximately 150,000 vehicles with 4.9 percent trucks 

on the northbound lanes and 6.3 percent trucks on the southbound lanes. Figure 26 presents 

the typical hourly demand in both the northbound and southbound directions. The posted 

speed limits in the project area are 45 mph on mainline Kenilworth Avenue, 30 mph on the 

service roads, and 25 mph on Eastern Avenue. 

Eastern Avenue is a minor arterial with 37,000 ADT and 7 percent commercial vehicles that 

runs in a northwest-to-southeast direction beginning at Kenilworth Avenue and continues 

southeast along the boundary between Washington, DC, and Prince George’s County, MD. 

Service road 

Service road

Eastern 

Avenue 

Kenilworth 

Avenue 
160 

0

1000

2000

3000

4000

5000

6000

7000

0:001:002:003:004:005:006:007:008:009:00

10:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00

Hourly Volume (veh/hr)

Time of Day

Northbound

Southbound

Figure 26. Hourly traffic volumes on Kenilworth Avenue. 

Construction Strategies

Based on the feasibility analysis of several design and construction alternatives, the following 

strategies were selected: 

1. Reconstruct the bridge pier using prefabricated pier units on a cast-in-place 

foundation. 

2. Replace the existing single-span superstructure with a two-span bridge using 

prefabricated units. 

Note: This case study focuses only on the MOT alternative analysis for the bridge pier 

construction. 

Nearby Projects

Several nearby highway construction projects were undertaken during the same period: 

 Reconstruction of MD 201 bridge over Amtrak railroad lines. 

 Reconstruction of Kenilworth Avenue bridges over Nannie Helen Burroughs Avenue. 

 Installation of utility lines along Nannie Helen Burroughs Avenue. 

 Signalization improvements the intersection of Minnesota Avenue and Nannie Helen 

Burroughs Avenue. 

Project Coordination

The DOT undertook project coordination efforts to manage the work zone impacts resulting 

from adjacent projects. Traffic control plans were refined to improve the traffic along Nannie 

Helen Burroughs Avenue, which serves as one of the detour routes for the Eastern Avenue 

project. In addition, the agency coordinated with Maryland SHA, Virginia DOT, and the 

National Park Service to manage any traffic spillback on adjacent routes and implement 

public information strategies such as overhead message signs. 
161 

MOT Strategies

A formal traffic impact assessment and MOT alternative analysis was conducted by project 

consultant Greenhorne & O'Mara, Inc.142 Two MOT alternative schemes were considered for 

the mainline Kenilworth Avenue through traffic: 

 MOT Option 1 – close one of three lanes in each direction on mainline Kenilworth 

Avenue. 

 MOT Option 2 – close one of three lanes in each direction on mainline Kenilworth 

Avenue and supplement with two-lane service roads in each direction. 

Detour routes were devised to facilitate all left turns at the Eastern Avenue/Kenilworth 

Avenue Intersection. 

Note: This case study considers only the MOT strategies devised for the mainline Kenilworth 

Avenue through traffic. In addition to the two alternatives mentioned above, the following 

MOT strategies were considered for illustration purposes: 

 MOT Option 3 - close two of three lanes in each direction on mainline Kenilworth 

Avenue and supplement with two-lane service roads in each direction. 

 MOT Option 4 - full closure of this segment of Kenilworth Ave and divert traffic 

through detour. 

 MOT Option 5 - close one of three lanes in each direction only during nighttime. 

5.3.2 Objectives 

The primary objective of this case study is to demonstrate the application of Kepner-Tregoe 

Decision Analysis framework in MOT alternative analysis. 

5.3.3 Need for MOT Alternative Analysis 

In accordance with the FHWA’s Work Zone Rule, MOT alternative analysis is required for any 

project that is designated as significant. The DOT’s Work Zone Safety and Mobility Policy 

defines a significant project as the one that, alone or in combination with other concurrent 

projects nearby, is anticipated to cause sustained work zone impacts that are greater than 

what is considered tolerable based on DOT policy and/or engineering judgment. The DOT 

considers the work zone impacts acceptable if the queue length is less than 1.0 mile. MOT 

alternative analysis is required for any project that is identified as a significant project. 

The DOT identified this project as significant based on the following factors: 

 Kenilworth Avenue is an urban interstate highway in a metropolitan area that carries 

heavy traffic volumes each day. 

 Traffic disruption caused by work zone activities would directly affect a large number 

of travelers and result in unacceptable travel delay times and queues. 

 

142 Greenhorne & O’Mara, Inc. Eastern Avenue Over Kenilworth Avenue, N.E. Work Zone Transportation 

Management Plan, Washington, D.C. Prepared for District Department of Transportation Infrastructure 

Project Management Administration/Team 4. May 2009. 
162 

 This project was expected to occupy the Kenilworth Avenue and Eastern Avenue 

roadways for more than 2 months with intermittent or continuous lane closure. 

Based on the above assessment, there is a need for conducting a comprehensive MOT 

alternative analysis for this project. 

5.3.4 Kepner-Tregoe Decision Analysis 

As detailed in section 3.2.7, the steps involved in the K-T decision analysis method are as 

follows: 

1. Prepare decision statement. 

2. Define MUST and WANT objectives. 

3. Assign weights to WANT objectives. 

4. Identify candidate MOT alternatives. 

5. Summarize the findings of work zone impact assessment. 

6. Evaluate alternatives against MUST objectives. 

7. Evaluate alternatives against WANT objectives. 

8. Calculate the weighted scores of alternatives. 

9. Evaluate adverse consequences. 

10. Select the preferred MOT strategy. 

Step 1. Prepare a decision statement

The purpose of the decision analysis is to identify the most appropriate strategy for 

maintaining traffic on mainline Kenilworth Avenue during the reconstruction of bridge piers of 

the Eastern Avenue bridge. 

Step 2. Define MUST and WANT objectives

The MUST objectives are mandatory attributes to be considered in the decision process. Any 

alternative that cannot comply with a MUST objective is eliminated from further 

consideration, while those comply with all the MUST objectives qualify as feasible 

alternatives. The MUST objectives identified for this project are as follows: 

1. Does an MOT option satisfy constructability requirements? — Limited work zone space 

on mainline Kenilworth Avenue was identified as a key constraint of this project. 

Therefore, it is imperative to check whether the MOT alternative to be implemented 

in this project satisfies the constructability requirements. 

2. Are there any alternate detour routes to accommodate full diversion of Kenilworth 

Avenue traffic? — The goal is to check whether there are any alternative detour routes 

that can accommodate full diversion of Kenilworth Avenue traffic to facilitate full 

closure for longer periods of time, such as a 55-hour weekend closure. 

The WANT objectives are desired attributes based on which a preferred alternative is 

selected from those alternatives satisfying all of the MUST objectives. The WANT objectives 

identified for this project are as follows: 

1. Travel delay time — Total delay in vehicle-hours was selected as the measure of 

effectiveness for this analysis. 
163 

2. Spillback on MD 201 southbound, US 50 westbound, and other routes— Queuing 

conditions on Kenilworth Avenue southbound lanes would cause spillback congestion 

on MD 201 and US 50. Traffic backup on northbound lanes would cause similar impacts 

on East Capitol Street, Benning Road, and Nannie Helen Burroughs Avenue 

interchanges. Queuing on Kenilworth Avenue mainlines is used as a surrogate measure 

for traffic spillback. 

3. Crash-related risks — The work zone influence area of this project extends into a 

larger area and is more complex depending on the queuing conditions and detour 

arrangements. The crash costs were not computed in this case study for the purpose of 

simplicity, while a subjective assessment of crash-related risks will be taken into 

consideration. 

4. Inconvenience to local residents — Large residential areas are located southwest and 

northeast of the site, especially along Eastern Avenue. The service roads parallel to 

Kenilworth Avenue serve as transit points (bus stop locations) for local residents using 

the Washington Metropolitan Area Transit Authority (WMATA) services. There may be a 

need to relocate WMATA bus stops and impose temporary parking restrictions on these 

service roads. The inconvenience caused by the work zone MOT implementation on 

local residents should be considered. 

5. Emergency response and school transportation — There are several schools in the 

vicinity of the project area. Therefore, the effect of any traffic diversion, congestion 

and restriction imposed in the work zone vicinity on emergency response and school 

transportation should be taken into account. 

6. Pedestrian access — The Eastern Avenue bridge and nearby service roads are used by 

many pedestrians, including school children and transit users. There are limited 

pedestrian bridges to cross Kenilworth Avenue. Therefore, the impact of the selected 

MOT option on pedestrians, such as the pedestrian restrictions or the distance to the 

proximate pedestrian bridge, should be considered. 

7. Construction duration — The number of days for project completion associated with 

each MOT option should be considered. 

8. Traffic control and improvement costs — The expenditure for traffic control devices, 

related roadway improvements (to maintain traffic), and public information strategies 

should be taken into account. 

Step 3. Assign weights to WANT objectives

Each WANT objective is weighted on a scale of 1 to 10 based on their relative importance in 

the decision process, with 1 indicating “least preferable” and 10 indicating “most preferable” 

or “equally preferable” (see Table 77). 

Table 77. Eastern Avenue project: weighting WANT objectives. 

WANT Objective Weights

Travel delay time 10 

Spillback on nearby roadways 10 

Crash-related risks 10 

Inconvenience to local residents 5

Emergency response and school 

transportation 

4

Pedestrian access 5

Construction duration 8

Traffic control and improvement costs 6
164 

Step 4. Identify candidate MOT alternatives

The MOT alternatives identified for the decision analysis are listed as follows: 

 MOT Option 1 – close one of three lanes in each direction on mainline Kenilworth 

Avenue. 

 MOT Option 2 – close one of three lanes in each direction on mainline Kenilworth 

Avenue and supplement with two-lane service roads in each direction. 

 MOT Option 3 - close two of three lanes in each direction on mainline Kenilworth 

Avenue and supplement with two-lane service roads in each direction. 

 MOT Option 4 - full closure of this segment of Kenilworth Ave and divert traffic 

through detour. 

 MOT Option 5 - close one of three lanes in each direction during nighttime only. 

Step 5. Summarize the findings of work zone impact assessment

This step summarizes the findings of quantitative and qualitative assessment conducted to 

evaluate the impact of MOT alternative on work zone mobility, safety, constructability, and 

local community. 

Constructability 

A constructability review was conducted to evaluate the feasibility of the available MOT 

options. Options 1, 2, 3, and 4 appeared to be feasible from a constructability standpoint. 

These options allowed a continuous closure of one or more lanes until the bridge piers were 

installed. 

Option 5, which allows only nighttime closure, appeared to be unfeasible, given the work 

zone space constraint on Kenilworth Avenue. A new foundation had to be cast-in-place before 

the installation of prefabricated components for the bridge pier, and hence, opening to 

traffic in the morning after a night closure was not feasible. Furthermore, since large 

residential areas are located in the work zone vicinity, the impact of construction noise had 

to be factored in. Though much of the construction work was accomplished at night, some 

types of activities were not permitted for night work. Therefore, Option 5 was removed from 

consideration. 

Detour Alternatives 

Given the volume of traffic, a feasibility analysis was conducted to identify any detour 

alternatives that would accommodate full diversion of Kenilworth Avenue traffic. The 

adjacent routes, including US 50 and Capital Beltway (i.e., I-95/I-495), carry similar volumes 

of traffic each day. As mentioned earlier, Kenilworth Avenue remains the only viable 

alternative available for commuters between downtown Washington, DC, and northern and 

eastern locations in Maryland. No alternative route appeared to have adequate capacity to 

accommodate the traffic that Kenilworth Avenue serves to facilitate a full closure of this 

segment for an extended period of time. Therefore, Option 4 was removed from 

consideration. 

Service Roads 

MOT Options 2 and 3 require using service roads to supplement the roadway capacity on 

Kenilworth Avenue. To open service roads for Kenilworth Avenue mainline traffic, the WMATA 
165 

bus stops would have to be relocated. Temporary parking restrictions would have to be 

needed along the service lanes. 

Pedestrian Access 

Pedestrians typically use the Eastern Avenue bridge to cross Kenilworth Avenue. With the 

implementation of Options 2 and 3, pedestrians would have to detour approximately 0.5 mile 

round-trip to the nearest pedestrian bridge over Kenilworth Avenue. Pedestrian access 

improvements, such as temporary pedestrian bridge, were considered, but the high costs of 

these improvements would outweigh the likely minimal benefits to the low number of 

pedestrians using the intersection. 

Emergency Response and School Transportation 

With the selection of MOT Options 2 and 3, the DOT was required to provide advice on 

detours to emergency responder and school transportation officials. The adverse mobility 

impacts associated with an MOT alternative would have a proportional impact on emergency 

response time and incident management. The contractor was required to prepare 

incident/emergency response plan per the contract special provisions. 

Construction Duration 

The estimated construction duration with MOT Options 1, 2, and 3 was 2 months. 

Traffic Control and Improvement Costs 

No discernable difference in traffic control and related improvement cost was found among 

MOT Options 1, 2, and 3. 

Mobility Impacts 

Maryland SHA’s Lane Closure Analysis Program (LCAP) was used to estimate delays along 

mainline Kenilworth Ave for Options 1, 2, and 3. Traffic demand volumes for a 48-hour period 

(Wednesday-Thursday) were entered into LCAP to determine the expected impacts of the 

lane closures. Traffic counts were taken along mainline Kenilworth Avenue for the same 48-

hour period using automated machine count in October 2006. The work zone capacity values 

were obtained from Appendix B of the District of Columbia Work Zone Safety and Mobility 

Policy (dated 2007). The work zone capacity values assumed in the analysis were 1,490 and 

1,170 vphpl for a single and two lane closures, respectively. The assumed work zone capacity 

was 1,000 vphpl for service roads. 

Figures 27, 28, and 29 present the delay estimates varying along the time of day on 

northbound and southbound lanes of Kenilworth Avenue for MOT Options 1, 2, and 3, 

respectively. Table 78 presents the average and maximum delay time estimates for the three 

options. The statistics of delay time estimates indicate that the mobility impacts were much 

more severe with Options 1 and 3 than with Option 2. Figures 30, 31 and 32 present the delay 

estimates varying along the time of day on northbound and southbound lanes of Kenilworth 

Avenue for Options 1, 2, and 3, respectively. Table 78 presents the average and maximum 

queue estimates for these options. The average and maximum delay estimates with Option 2 

appeared to be more tolerable than those with the other options. 

Based on the LCAP estimates, Option 2 appeared to be the most advantageous from a mobility 

standpoint and was likely to result in much lower delay costs and VOC than other options. 
166 

Figure 27. Eastern Avenue project: travel delay estimates for Option 1. 

Figure 28. Eastern Avenue project: travel delay estimates for Option 2. 

 

0

60

120

180

240

300

360

420

480

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00Fri-3:00

Delay Time (mins)

Time of Day

MOT Option-1

Option 1-NB Option 1-SB

0

5

10

15

20

25

30

35

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00Fri-3:00

Delay Time (mins)

Time of Day

MOT Option-2

Option 2-NB Option 2-SB
167 

Figure 29. Eastern Avenue project: travel delay estimates for Option 3. 

Figure 30. Eastern Avenue project: queue length estimates for Option 1. 

0

60

120

180

240

300

360

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00Fri-3:00

Delay Time (mins)

Time of Day

MOT Option-3

Option 3-NB Option 3-SB

0

5

10

15

20

25

30

35

40

45

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00

Queue Length (miles)

Time of Day

MOT Option-1

Option 1-NB Option 1-SB
168 

Figure 31. Eastern Avenue project: queue length estimates for Option 2. 

Figure 32. Eastern Avenue project: queue length estimates for Option 3. 

 

0

0.5

1

1.5

2

2.5

3

3.5

4

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00

Queue Length (miles)

Time of Day

MOT Option-2

Option 2-NB Option 2-SB

0

5

10

15

20

25

30

35

Tue-23:00

Wed-1:00Wed-3:00Wed-5:00Wed-7:00Wed-9:00

Wed-11:00Wed-13:00Wed-15:00Wed-17:00Wed-19:00Wed-21:00Wed-23:00

Thr-1:00Thr-3:00Thr-5:00Thr-7:00Thr-9:00

Thr-11:00Thr-13:00Thr-15:00Thr-17:00Thr-19:00Thr-21:00Thr-23:00

Fri-1:00

Queue Length (miles)

Time of Day

MOT Option-3

Option 3-NB Option 3-SB
169 

Table 78. Eastern Avenue project: summary of LCAP analysis. 

Parameter MOT Option 1 MOT Option 2 MOT Option 3

NB SB NB SB NB SB

Delay timeAverage (mins) 208.0 294.4 18.4 8.3 133.0 203.7 

Delay timeMaximum (mins) 448.3 477.8 32.3 19.1 304.7 332.1 

Queue lengthAverage (miles) 18.6 26.1 1.6 1.9 12.5 19.0 

Queue length -

Maximum (miles) 39.1 41.6 2.8 3.6 28.2 30.8 

Crash-related Risks 

Based on the LCAP estimates of work zone mobility, the degree of delay and queue length 

estimated for Options 1 and 2 is likely to increase crash-related risks. Longer delays result in 

increased driver frustration and aggressiveness, and longer duration of congestion will likely 

increase the incidence of queues and rear-end accidents, particularly on mainline Kenilworth 

Avenue. On the other hand, Option 2 would produce a relatively unusual traffic pattern of 

dividing the lanes with all lanes proceeding through. Drivers who comprehend the posted signs 

relating to service roads might end up with erratic maneuvers, thus increasing the probability 

of crashes. 

Step 6. Evaluate alternatives against MUST objective

All available alternatives were evaluated against two of the MUST objectives identified in 

Step 2. The discussion focusing on the availability of detour routes and constructability review 

(see Step 5) was used in the evaluation against MUST objectives. The results obtained from 

the evaluation are presented in Table 79. 

Table 79. Eastern Avenue project: evaluation against MUST objectives. 

MUST Objective MOT Options

1 2 3 4 5

Does an MOT option satisfy 

constructability requirements?     

Are there any alternate detour routes 

to accommodate full diversion of 

Kenilworth Avenue traffic? 

    

Option 4 was eliminated from further consideration as it failed to meet the constructability 

requirements. As discussed in Step 5, restricting lane closure to nighttime only would not 

satisfy the constructability requirements, and hence failed to meet the first MUST objective. 

Similarly, Option 5 was considered unfeasible as there were no alternative detours to 

accommodate full closure of Kenilworth Avenue, and therefore, was eliminated from further 

consideration. 

Options 1, 2, and 3 successfully satisfied the MUST criteria and would be evaluated further 

against WANT objectives. 
170 

Step 7. Evaluate alternatives against WANT objective

Options 1, 2, and 3 were evaluated against each of the WANT criteria. The discussion 

presented in Step 5 was used as a basis in determining how well the alternatives meet these 

objectives. Based on the strengths and weakness that became evident during evaluation, each 

alternative was assigned with a score on a 1 to 10 with 10 being most advantageous and 1 

being least advantageous. The results obtained from the evaluation are presented in Table 

80. 

The following discussion presents the rationale behind scoring these alternatives: 

 Travel delay time – As evident in Table 78, Option 2 is likely to result in shorter travel 

delay time when compared to other options. Option 3 is likely to produce lesser 

impact than Option 1, although still at an unacceptable level. 

 Spillback on nearby roadways – Similar to travel delay time, Option 2 is likely to result 

in shorter queue lengths than the other options, and hence least likely to cause 

spillback on nearby roadways. 

 Crash-related risks - Options 1 and 3 were assigned low scores for their high likelihood 

of safety risks resulting from longer work zone exposure period and severe mobility 

disruptions. Option 2 was assigned a score less than 10 because of the risks associated 

with detour patterns and split traffic at the fork of mainline and service roads. 

 Inconvenience to local residents – Opening the service roads to the mainline freeway 

traffic would result in greater inconvenience for local residents. The bus stops would 

have to be relocated, and no road-side parking would be allowed. Hence, the MOT 

options using service roads for traffic maintenance received low scores. 

 Emergency response and school transportation - Options 1 and 3 were assigned low 

scores based on the mobility disruptions they are expected to create. The closure of 

service roads to local traffic and the detour patterns in-place pose some risks for 

emergency responders with the implementation of Option 2. 

 Pedestrian access – Opening the service roads to the mainline freeway traffic would 

restrictions to pedestrian access, and hence lower scores for Options 2 and 3. 

 Construction duration – Since Options 1, 2, and 3 appeared to have no impact on 

construction duration, they were not evaluated against this objective (or receives 

equal scores). 

 Traffic control and improvement costs – Since Options 1, 2, and 3 appeared incur 

similar level of traffic control/roadway improvement costs, the options were not 

evaluated against this objective. 

Table 80. Eastern Avenue project: evaluation against WANT objectives. 

WANT Objective MOT Options 

1 2 3 4 5

Travel delay time 2 10 4 

Not 

considered 

for further 

analysis 

since they 

did not 

meet MUST 

objectives.

Spillback on nearby roadways 2 10 4 

Crash-related risks 4 8 6 

Inconvenience to local residents 10 3 3 

Emergency response and school transportation 5 7 5 

Pedestrian access 8 4 4 

Construction duration Not considered for further analysis 

since these objectives will be scored 

equally against Options 1, 2 and 3. Traffic control and improvement costs
171 

Step 8. Calculate the weighted scores of alternatives

The weighted scores for MOT Options 1, 2, and 3 were computed by multiplying their scores 

by the weights identified in Step 3. The sum of these scores represents an evaluation of each 

alternative against the previously established criteria and weights. Table 81 presents the 

weighted score for each alternative. The last row in this table presented the total weighted 

score. 

The alternative with the highest total weighted score—Option 2—was selected as a tentative 

choice. 

Table 81. Eastern Avenue project: weighted scores. 

WANT Objective Weight MOT Options

1 2 3 4 5

Travel delay time 10 20 100 40 

Spillback on nearby roadways 10 20 100 40 

Crash-related risks 10 40 80 60 

Inconvenience to local residents 5 50 15 15 

Emergency response and school transportation 4 20 28 20 

Pedestrian access 5 40 20 20 

Construction duration 8 - - - 

Traffic control and improvement costs 6 - - - 

Total Weighted Score 190 343 195 

Step 9. Evaluate adverse consequences

After the computation of total weighted score, each MOT alternative was evaluated 

individually against potential risks identified in the work zone impact assessment. Since the 

Kenilworth Avenue route serves as a homeland security evacuation route for DC wards 7 and 

8, the risk of selecting an alternative against a probable event of an emergency evaluation 

was considered. 

The likelihood of an emergency evacuation was selected on a rating scale from “Low” to 

“High,” with a rating of “Low” indicating “an unlikely event” and “High” indicating “a most 

probable event.” A probability rating of “Low-Medium (LM)” was selected, indicating that 

such an event is less likely. Next, the performance of the MOT options under this scenario was 

evaluated. The alternatives were rated on a similar scale, with a value of “Low” indicating 

“inconsequential” and “High” indicating “very severe.” 

As Options 1 and 3 were likely to cause longer delay times and queue lengths, a rating of 

“High-medium (HM)” was assigned to both options, while Option 2 was rating as “Medium (M)” 

(see Table 82). Option 2 appeared to perform better than other options under an adverse 

event. 

Table 82. Eastern Avenue project: analyzing adverse consequences.

Adverse 

Consequence

MOT Option 1 MOT Option 2 MOT Option 3

Probability Severity Probability Severity Probability Severity 

Emergency 

Evacuation LM HM LM HM LM M 

H=High M=Medium L=Low

HM=High-medium LM=Low-medium 
172 

Based on this evaluation, no MOT option was identified as a high-risk choice. All alternatives 

were considered as “low-risk” alternatives. 

Step 10. Select the preferred MOT strategy

The total weighted score were summarized and ranked for each alternative (see Table 83). 

The results of adverse consequence evaluation are also summarized. Based on the information 

presented in Table 83, Option 2 fared better against both WANT objectives and adverse 

events than other alternatives, and hence was selected as the preferred MOT strategy. 

Table 83. Eastern Avenue project: selection of a preferred alternative.

Alternative Description Total 

Weighted 

Score 

Total Adverse 

Consequence 

Score 

Rank

Option 1 

Close one of three lanes in each 

direction on mainline Kenilworth 

Avenue. 

190 Low-risk 3 

Option 2 

Close one of three lanes in each 

direction on mainline Kenilworth 

Avenue and supplement with twolane service roads in each 

direction. 

343 Low-risk 1 

Option 3 

Close two of three lanes in each 

direction on mainline Kenilworth 

Avenue and supplement with twolane service roads in each 

direction. 

195 Low-risk 2 

Option 4 

Full closure of this segment of 

Kenilworth Ave and divert traffic 

through detour. 

Eliminated – – 

Option 5 Close one of three lanes in each 

direction during nighttime only. Eliminated – – 
173 

CHAPTER 6.5BRUC ANALYSIS REPORT STRUCTURE 

The nature of work zone-related decisions often is associated with scheduling, application of 

techniques and methods, or TMP. The decision making process evolves over different stages 

of the project development process: planning, preliminary engineering/design, and 

construction. Decision making begins at a conceptual feasibility level in the planning stage 

and culminates with a detailed level in the design/construction stage. Irrespective of the 

stage or level of detail involved in the strategy selection, a WZ RUC analysis report should 

provide a complete picture of work zone configuration, potential constraints and impacts, 

feasible alternatives, performance measures and thresholds, and recommendations, to aid in 

the decision making process. The report also should present the justification for the selection 

of the optimal strategy. 

The following sections discuss the information that should be included in the report. 

6.1 24BBACKGROUND

The analysis report should begin with a background section presenting information on the 

project location and the limits of work. Inclusion of an area map indicating the project 

location, the study limits, and other nearby highways is suggested. 

 

Information about the functional classification, project size, rural or urban area, traffic 

volume, traffic composition (percent trucks), and intersection descriptions should be 

included. Information also should be included regarding the degree of public interest and 

possible impacts on nearby roadways and businesses. 

The background section should include information such as the project description, 

anticipated project duration, work zone length, existing lane widths and configuration, speed 

limits, horizontal curves and grades, turn restrictions, proposed changes to geometric 

features, existing traffic control, and pedestrian and bicycle facilities. Any potential right-of 

way and utilities conflicts should be documented. 

6.2 25BDATA COLLECTION

This section of the report should include information about the data used in safety and traffic 

analysis. The report should mention whether new data or existing information was used. If 

new data were collected, the report should include the type of data collected, when and how 

the data were collected, and who collected the data. The following information is 

recommended for inclusion in this section: 

 Safety analysis — Historical crash rate (3 to 5 year history is recommended) by crash 

severity, influence area, crash geometry, and crash costs (if available). 

 Traffic data collection — Hourly or peak-hour traffic demand on the roadway where 

the work zone is located, as well as the nearby roadways, number of vehicles entering 

or leaving the highway through exit ramps, turn counts, and corresponding turn 

direction at intersections. Information about vehicle composition (percent by vehicle 

types or class), appropriate adjustment factors applied to traffic volumes to account 

for traffic growth, seasonal variations, or day of week should be included. 

 Work zone capacity and operational analysis—Inputs and assumptions, the estimation 

model used in the capacity analysis, and the results should be documented. 
174 

Operational analysis performed for unsignalized and signalized intersections also 

should be documented. 

 Unit cost data — Travel delay, vehicle operating costs, crashes, and emissions. Any 

adjustment factors used in deriving unit costs should be stated. 

6.3 26BFIELD OBSERVATIONS

This section of report should include all field activities undertaken to characterize the 

existing project conditions, such as: 

 Travel time studies— Data collection methodology, begin and end periods, days of the 

week, travel speed, distances and routes covered, sample size, and the results. 

 Sight distance analysis— Field study to review the intersection and stopping sight 

distance conflicts. 

6.4 27BDISCUSSION ON THE IMPACTS OF WORK ZONE

This section should document any efforts undertaken to assess and address the impacts on 

local businesses and community. Inputs gathered at public information meetings/hearings and 

through facilitators/ liaison officers should be documented. 

6.5 28BDETAILED NARRATIVE

This section should provide a detailed narrative on the proposed sequence of construction, 

staging, and the work zone alternatives that were considered for each construction phase. 

The narrative should document assumptions made and justification for including the selected 

alternatives. It also should include the selection criteria that were used in determining 

feasible alternatives. 

6.6 29BALTERNATIVES ANALYSIS

This section of the report should present the analysis method, tools used, summary of impact 

assessment, performance measures and agency goals, advantages and disadvantages of each 

alternative, comparative analysis of alternatives, risk assessment, and the analysis results. 

6.7 30BRECOMMENDATIONS 

This section of the report should present a summary of WZ RUC analysis, a description of the 

preferred alternative, the justification for selection, and recommendations. 
175 

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GLOSSARY 

Abbreviated Injury Scale (AIS) 

An anatomically based severity scoring scheme that classifies each injury in every region of 

the human body according to its relative severity on a six-point adjectival scale. 

Air Pollutant Emissions 

Air pollutant emissions include those emitted directly into the atmosphere, such as carbon 

monoxide (CO), volatile organic compounds, particulate matter (PM10), oxides of nitrogen 

(NOX), oxides of sulfur (SOX), and those formed in the atmosphere from the directly emitted 

pollutants, such as ozone and acidic depositions. 

Annual Average Daily Traffic (AADT) 

The total volume of traffic passing a point or segment of a highway facility in both directions 

for 1 year divided by the number of days in the year. 

Benefit/Cost Analysis 

A measure of economic value that compares the net discounted benefits of an alternative to 

its net discounted costs. B/C ratios greater than 1.0 indicate that benefits exceed cost. 

Calendar Day 

Every day listed on the calendar, regardless of whether work is accomplished or allowed by 

other specifications. 

Capacity 

The maximum sustainable flow rate at which vehicles or persons reasonably can be expected 

to traverse a point or uniform segment of a lane or roadway during a specified time period 

under given roadway, geometric, traffic, environmental, and control conditions; usually 

expressed as vehicles per hour or passenger cars per hour. 

Combination Truck 

Defined as vehicle classes 8 through 13 in the FHWA Traffic Monitoring Guide. Includes 

vehicles consisting of two or more units, one of which is a tractor or straight truck power 

unit. 

Comprehensive Crash Cost 

Includes the intangible nonmonetary losses or consequences to individuals, families, and 

society over the crash victim’s expected life span, in addition to the human capital costs. 

Construction Manager/General Contractor (CMGC) 

A two-phase project delivery method where a construction manager, selected by an owner 

based on qualifications for both preconstruction and construction services of a project, will 

be at risk for the final cost and time of construction. 
184 

Construction Phasing 

Refers to the sequencing of the aspects of a project, completing portions of the project one 

part at a time. 

Construction Staging 

Refers to how the contractor will position the equipment and materials. 

Consumer Price Index (CPI) 

A measure of the average change over time in the prices paid by urban consumers for goods 

and services. 

Contract Time 

The total time (calendar days, working days, or completion date) established to complete the 

project. 

Cost of Acceleration 

An additional cost incurred by a contractor for expediting the contract delivery. 

Cost-Based Estimating 

A method to estimate the bid cost of a work item by estimating the cost of resources (time, 

equipment, labor, and materials) for each task necessary to complete the work item, and 

then adding a reasonable amount for contractor’s overhead and profit. 

Cost-Plus-Time (A+B) Bidding 

A contract provision that allows both cost and time to be considered in the low bid 

determination. The "A" component is the traditional bid for the contract items and is the 

dollar amount for all work to be performed under the contract. The "B" component is the 

total number of calendar days the bidder stipulates will be required to complete the project. 

Calendar days are used to avoid any potential controversy. 

Crash 

A collision involving at least one moving vehicle (car, truck, etc.) and another vehicle or 

object. 

Crash Frequency 

The number of crashes normalized to the roadway segment length and time period, typically 

expressed as crashes per mile per year. 

Crash Modification Factor 

A multiplicative factor used to compute the expected number of crashes after implementing a 

given countermeasure. 
185 

Crash Rate 

The number of crashes expected or observed along a roadway segment during a time period 

normalized to the roadway segment length and the traffic volume over the same period, 

typically expressed in terms for crashes per million vehicle miles of travel. 

Crash Reduction Factor 

An estimate of the percentage reduction in crashes due to a particular countermeasure. 

Decision Analysis 

A systematic process within which a choice among specific options will be made. 

Delay Time 

The additional travel time necessary to traverse the work zone or to detour around it. 

Demand to Capacity Ratio 

The ratio of demand flow rate to capacity for a traffic facility. 

Design-Bid-Build 

A project delivery method in which the public agency procures design and construction 

services from two separate entities. The agency either performs designs in-house or procures 

services from a private engineering services entity to perform the design work, and then 

makes a separate procurement with a private construction services entity to perform the 

construction work. 

Design-Build 

A project delivery method in which the public agency combines procurement for both design 

and construction services into a single contract and from the same private sector entity (the 

design-builder). 

Detour Delay 

The additional time necessary to travel the excess distance by selecting a detour route. 

Detour VOC 

The additional vehicle operating cost associated with the excess distance to be traveled by 

selecting a detour route under unrestricted or restricted conditions. 

Discount Factor 

A portion of road user cost savings that an owner specifies as incentive and disincentive 

amount for a project. The selection of this factor typically is an owner agency’s management 

decision by taking factors into account such as market conditions, confidence on the accuracy 

of WZ RUC estimates, work zone factors, and time sensitivity of project completion. 

Economic Analysis Technique 

The approach used in the planning process to analyze the relative costs and benefits of a 

potential investment. The most common include Net Present Value (NPV), Benefit/Cost (B/C) 
186 

ratios, Internal Rate of Return (IRR), Modified Internal Rate of Return (MIRR), and Equivalent 

Uniform Annual Costs (EUAC). 

Employer Costs for Employee Compensation (ECEC) 

Measures employer costs for wages, salaries, and employee benefits for nonfarm private and 

State and local government workers. 

Employment Cost Index 

A measure of the average change over time in the wages, benefits, and bonuses for a specific 

group of occupations. 

Forced Flow 

A condition where a traffic flow breaks down and a queue of vehicles develops. 

Free Flow 

A condition where a traffic flow is unaffected by upstream or downstream conditions. 

Free Flow Capacity 

The maximum capacity a facility can handle under free-flow conditions. 

Free Flow Speed 

The average speed of vehicles over a basic freeway, multilane highway or an urban street 

segment without signalized intersections under conditions of low volume. 

Greenhouse Gases 

Include those direct emissions that are not yet recognized as an air pollutants but trap heat 

within the atmosphere and thus contributing undesirable climatic effects, such as carbon 

dioxide (CO2). 

Gross Domestic Product (GDP) Implicit Price Deflator 

An economic metric that accounts for inflation by converting output measured at current 

prices into constant-dollar GDP. The GDP deflator shows how much a change in the base 

year's GDP relies upon changes in the price level. 

Hourly Traffic Demand 

The 24-hour hourly distribution of vehicles passing through the work zone in a single direction 

under normal operating conditions. 

Human Capital Crash Cost 

Includes the “hard dollar” costs related directly to a crash, such as property damage, medical 

care, compensations, and legal costs. 

Incentive/Disincentive (I/D) 

A contract provision which compensates the contractor for each day that identified critical 

work is completed ahead of schedule and assesses a deduction for each day that completion 
187 

of the critical work is delayed. The primary function of an I/D provision is to motivate the 

contractor to complete the work on, or ahead of, schedule, and recover damages to the 

traveling public for late completion. 

Incident 

Any occurrence on a roadway that impedes the normal flow of traffic. 

Interim Completion Date 

A contract provision that provides a contractor with an incentive or disincentive to expedite 

the completion of specific portions of a contract within a set duration or by a specified date. 

KABCO Injury Scale 

A coding scheme designed for police officers assessing a crash scene where K, A, B, C, and O 

are the different levels of classification. 

Lane Rental 

A rental fee paid by the contractor for the time period a lane is closed to through traffic for 

construction activities. 

Life Cycle Cost Analysis 

An economic assessment of an item, area, system, or facility and competing design 

alternatives considering all significant costs of ownership over the economic life, expressed in 

equivalent dollars. 

Liquidated Damages 

Monetary damages recovered from the contractor to compensate the agency’s additional 

construction oversight costs associated with the contractor's failure to complete the project 

on time. 

Liquidated Savings 

Under this provision, the contractor receives an incentive amount equal to the savings in the 

owner agency’s construction oversight costs for completing the project ahead of schedule. 

Maintenance of Traffic (MOT) 

A set of coordinated transportation management strategies to meet the traffic mobility and 

safety needs within a work zone. 

Normal Operation 

Reflects the condition during which a facility is free of construction, maintenance, and/or 

rehabilitation that restrict the capacity of the facility. 

No-Excuse Incentives (also called Locked Incentives) 

An incentive paid to the contractor to complete a phase of work or the entire project on or 

before a firm completion date specified in the contract. There are no excuses, such as 

weather delays, for not meeting the completion date. No disincentives (other than normal 

liquidated damages) apply for not meeting the target date. 
188 

Passenger Car 

Defined as vehicle classes 1 through 3 in the FHWA Traffic Monitoring Guide. Includes 

automobiles (small, medium, or large), pickup trucks, and vans. 

Passenger-Car Equivalent (PCE)

The number of passenger cars displaced by a single heavy vehicle of a particular type under 

specified roadway, traffic, and control conditions. 

Producer Price Index (PPI) 

A measure of the average change over time in the selling prices received by domestic 

producers of goods and services. The PPI measures price change from the perspective of the 

seller. This contrasts with other measures, such as the Consumer Price Index (CPI), that 

measure price change from the purchaser's perspective. 

Queue 

A line of vehicles, bicycles, or persons waiting to be served by the system in which the flow 

rate from the front of the queue determines the average speed within the queue. Slowly 

moving vehicles or people joining the rear of the queue usually are considered part of the 

queue. The internal queue dynamics can involve starts and stops. A faster-moving line of 

vehicles often is referred to as a moving queue. 

Queue Delay 

The additional time necessary to travel through the queue under restricted traffic flow. 

Queue Idling VOC 

The additional vehicle operating cost associated with stop-and-go driving in the queue. The 

idling cost rate multiplied by the additional time spent in the queue is an approximation of 

actual VOC associated with stop-and-go conditions. When a queue exists, stopping delay and 

VOC replace the free-flow speed change delay and VOC. 

Reduced Speed Delay 

The additional time necessary to traverse the work zone at the lower posted speed; it 

depends on the upstream and work zone speed differential and length of the work zone under 

both unrestricted and restricted (forced) traffic flow. 

Significant Project 

A project that, alone or in combination with concurrent projects nearby, is anticipated to 

cause sustained work zone impacts (or high level of disruption) that are greater than what is 

considered tolerable based on an agency’s policy and/or engineering judgment. 

Single-Unit Truck 

Defined as vehicle classes 4 through 7 in the FHWA Traffic Monitoring Guide. Includes six-tire 

trucks and trucks on a single frame with three or more axles. 
189 

Speed Change Delay 

The additional time necessary to decelerate from the upstream approach speed to the work 

zone speed and then to accelerate back to the initial approach speed after traversing the 

work zone under unrestricted (free) traffic flow. 

Speed Change VOC 

The additional vehicle operating cost under unrestricted conditions associated with 

decelerating from the upstream approach speed to the work zone speed and then 

accelerating back to the approach speed after leaving the work zone. 

Stopping Delay 

The additional time necessary to come to a complete stop from the upstream approach speed 

(instead of just slowing to the work zone speed) and the additional time to accelerate back to 

the approach speed after traversing the work zone under restricted traffic flow. 

Stopping VOC 

The additional vehicle operating cost under restricted conditions associated with stopping 

from the upstream approach speed and accelerating back up to the approach speed after 

traversing the work zone. 

Transportation Management Plan (TMP) 

A plan that lays out a set of coordinated strategies and describes how they will be used to 

manage the work zone impacts of a road project. Strategies include temporary traffic control 

measures and devices, public information and outreach, and operational strategies such as 

travel demand management, signal retiming, and traffic incident management. 

Travel Delay Cost 

A product of total travel delay time of all vehicles caused by work zone conditions and the 

value of travel time (by vehicle type). 

Travel Speed 

The average speed, in miles per hour, of a traffic stream computed as the length of a highway 

segment divided by the average travel time of the vehicles traversing the segment. 

Value of Travel Time 

Economic value of travel time usually expressed in terms of dollar per hour per vehicle or 

dollar per hour per person. 

Vehicle Operating Costs (VOC) 

The expenses incurred by the road users as a result of vehicle use. 

Working Day 

Any day on which work is planned and could be performed. Weekends and holidays frequently 

are excluded from a working day contract. 
190 

Work Zone 

A segment of highway in which maintenance and construction operations impinge on the 

number of lanes available to traffic or affect the operational characteristics of traffic flowing 

through the segment. A work zone typically is marked by signs, channelizing devices, barriers, 

pavement markings, and/or work vehicles. It extends from the first warning sign or highintensity rotating, flashing, oscillating, or strobe lights on a vehicle to the END ROAD WORK 

sign or the last temporary traffic control device. 

Work Zone Capacity 

The maximum sustainable flow rate at which vehicles can pass a given point or uniform 

segment of a lane or roadway in a work zone during a specified period under prevailing 

roadway, traffic, and control conditions. Capacity usually is expressed as passenger cars per 

hour per lane (pcphpl) or vehicles per hour per lane (vphpl). 

Work Zone Delay Time 

The additional travel time experienced by a vehicle to traverse the work zone or to detour 

around it. 

Work Zone Mobility 

Pertains to moving road users efficiently through or around a work zone area with a minimum 

delay compared to baseline travel when no work zone is present, while not compromising the 

safety of highway workers or road users. The commonly used performance measures for the 

assessment of mobility include delay, speed, travel time, and queue length. 

Work Zone Performance Measurement 

The process of collecting and using quantifiable statistical evidence to measure, monitor, and 

evaluate the efficiency of work zone operations. 

Work Zone Performance Measures 

Well defined, outcome-based conditions or response times that are used to evaluate the 

success of work zone policies, procedures, and performance. 

Work Zone Road User Cost 

An incremental cost or value incurred by highway users and the community at-large as a 

result of work zone activity. 

Work Zone Safety 

Refers to minimizing potential hazards to travelers and highway workers in the vicinity of a 

work zone. 
A-1 

APPENDIX A. KEPNER-TREGOE DECISION ANALYSIS WORKSHEET 

FOR MOT STRATEGY SELECTION 

Project Information

Facility Name  US 00 Pavement Reconstruction 

Facility Type  Arterial 

Project Number  # A600000 

Route & Milepost  US 00, MP 100 to 105 

District/County  District 1, Polk County 

By  H. Miller 

Date  05/05/2005 

Step 1 ­ Prepare Decision Statement

To identify the most appropriate strategy for maintaining traffic on US 00 during the 

reconstruction of the pavement segments between mileposts 100 and 105. 

Step 2A – Define MUST Objectives

List the mandatory attributes of a preferred MOT strategy for this project. 

Performance Measure/Criteria Go/No Go

Maintain a minimum of one lane each direction for work zone traffic on 

weekdays 

No lane closure from 7 a.m. to 10 a.m. and 4 p.m. to 8 p.m. on weekdays 

Queue length not more than 0.75 for more than 1 hour

Delay time not more than 30 minutes

Available detour routes exceed capacity?

MOT alternative has no constructability issues

Step 2B & 3 – Define & Weight WANT Objectives

List the desired attributes of a preferred MOT strategy for this project. Assign weights to each 

attribute based on their relative importance on a scale of 1 to 10, with 1 indicating “least preferable” 

and 10 indicating “most preferable” or “equally preferable.” 

Performance Measure/Criteria Weight

Delay costs ($) 10

Vehicle operating costs 8

Number of days for project completion 10

Traffic control & associated construction costs ($) 8

Average time to clear a non-injury incidence (min.) 4

Maintenance of emergency services (adjectival ratings – poor, average, good) 6

Environmental impacts (adjectival ratings – low, moderate, severe) 3
A-2 

Step 4 – Identify Candidate MOT Alternatives

Identify and list the candidate MOT alternatives for considered in the decision analysis. 

Alternative Description

A Daytime partial lane closure –closed between 7 a.m. to 5 p.m 

B Nighttime partial lane closure –closed between 8 p.m. to 6 a.m. 

C Nighttime partial lane closure –closed between 9 p.m. to 7 a.m. 

D Nighttime full lane closure –closed between 9 p.m. to 7 a.m. 

E Truck traffic diverted through detour routes during peak hours. 

Step 5 – Conduct Work Zone Impact Assessment and Summarize Findings

Summarize the findings of the work zone impact assessment. 

Performance Measure/Criteria A B C D E

Maintain a minimum of 1 lane each 

direction for WZ traffic during weekdays No Yes Yes Yes Yes 

No lane closure between 7a.m. through 

10 a.m. and 4 p.m. through 8 p.m. 

during weekdays 

No Yes Yes Yes Yes 

MOT alternative has no constructability 

issues No No No No No 

Average delay time per vehicle (min) 19.0 6.0 3.0 10.0* 20.0**

Maximum queue length (mi.) 1.6 0.0 0.0 0.5* 0.5**

Available detour route exceed capacity? No No No No Yes

Average time to clear a non-injury 

incidence (min.) 20 25 25 15 10 

Delay costs $5,300 $3,125 $2,800 $4,700 $6,800

Vehicle operating costs $1,484 $656 $728 $1,175 $1,836

Traffic control & associated 

construction costs $55,000 $94,000 $75,000 $109,000 $85,000

Number of days for project completion 150 84 84 60 90

Maintenance of emergency services moderate moderate moderate good good

Environmental impacts moderate severe severe low low
A-3 

Step 6 – Evaluate Alternatives against MUST Objectives

Evaluate each alternative against the MUST objectives and check whether the attributes of an 

alternative satisfy all of the MUST requirements. Use the findings of the impact assessment 

summarized in Step 5. Assign Go () or No Go () outcome based on your evaluation indicating your 

decision to retain or eliminate an alternative for the next step. Any alternative with a No Go () 

outcome will be eliminated from further evaluation. 

Performance Measure/Criteria A B C D E

Maintain a minimum of 1 lane each direction for WZ traffic 

during weekdays 

    

No lane closure between 7a.m. through 10 a.m. and 4 p.m. 

through 8 p.m. during weekdays 

    

Queue length not more than 0.75 for more than 1 hour     

Delay time not more than 30 minutes     

Alternative detour route exceeds capacity?     

Alternative has no constructability constraints     

Step 7 – Evaluate Alternatives against WANT Objectives

Evaluate each alternative against the WANT objectives based on the findings of the impact assessment 

summarized in Step 5. Assign scores to each alternative against the listed objectives indicating how 

well the alternative meets that objective. Use a scale of 1 to 10, with a score of 1 indicating “least 

preferable” and 10 indicating “most preferable” or “equally preferable.”

Performance Measure/Criteria Alternative Score

A B C D E

Delay costs ($) 9 10 6 

Vehicle operating costs 10 8 7

Number of days for project completion 7 7 10

Traffic control & associated construction costs ($) 8 8 10 

Average time to clear a non-injury incidence (min.) 6 6 10 

Maintenance of emergency services (adjectival ratings –

poor, average, good) 6 6 10 

Environmental impacts (adjectival ratings – low, moderate, 

severe) 3 3 10 
A-4 

Step 8 – Calculate the Weighted Scores of Alternatives

Calculate the weighted scores by multiplying the alternative score (Step 7) with the corresponding 

objective weights (Step 2B) to determine the relative performance of the alternatives. Calculate the 

total weighted score for each alternative. Indicate the alternative with the highest total score as the 

tentative choice. 

Performance Measure/Criteria Alternative Score

A B C D E

Delay costs ($) 90 100 60 

Vehicle operating costs 80 64 56

Number of days for project completion 70 70 100

Traffic control & associated construction costs ($) 64 64 80 

Average time to clear a non-injury incidence (min.) 24 24 40 

Maintenance of emergency services (adjectival ratings –

poor, average, good) 36 36 60 

Environmental impacts (adjectival ratings – low, moderate, 

severe) 9 9 30 

Total weighted score 373 367 426 

Tentative choice: Alternative D

Step 9 –Evaluate of Adverse Consequences (optional)

Identify the potential risk factors and list under the “Adverse Consequences” column. Indicate the 

probability of the event under “Pr” column for each alternative on a scale from “Low” to “High,” with 

a rating of “Low” indicating “an unlikely event” and “High” indicating “a most probable event.” 

Indicate the severity of the event under “Sr” column for each alternative on a similar scale, with a 

value of “Low” indicating “inconsequential” and “High” indicating “very severe.” Identify “high-risk” 

and “low-risk” alternatives. 

Adverse Consequences

B C D

Pr Sv Pr Sv Pr Sv

Flood impact LM HM LM HM LM HM 

High severity crashes HM L HM L HM LM 

Emergency evacuation HM L HM L HM H 

 H=High M=Medium L=Low

HM=High-medium LM=Low-medium 

High-risk choice: Alternative D 

Low-risk choice: Alternatives B and C 
A-5 

Step 10 –Select the Preferred MOT Strategy

Summarize the total weighted score (from Step 8) as well as the risk score (from Step 9) for each 

alternative and rank them. 

Alternative Description

Weighted

Score Risk Score

Rank

A Daytime partial lane closure –closed 

between 7 a.m. to 5 p.m Eliminated 

B Nighttime partial lane closure –

closed between 8 p.m. to 6 a.m. 373 Low-risk 1 

C Nighttime partial lane closure –

closed between 9 p.m. to 7 a.m. 367 Low-risk 2 

D Nighttime full lane closure –closed 

between 9 p.m. to 7 a.m. 426 High-risk Eliminated

E Truck traffic diverted through 

detour routes during peak hours. Eliminated 

Result

Indicate the preferred MOT strategy from Step 9. 

Alternative Description

B Nighttime partial lane closure –closed between 8 p.m. to 6 a.m. 
FHWA-HOP-12-005

U.S. Department of Transportation

Federal Highway Administration

Office of Operations (HOP)

1200 New Jersey Avenue, SE

Washington, DC 20590

www.fhwa.dot.gov