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# Highway Performance Monitoring System (HPMS)

## Non-Federal Applications of the Highway Performance Monitoring System (HPMS)

### The Highway Performance Monitoring System (HPMS)

The Federal Highway Administration (FHWA) and the States, beginning in 1978,    jointly developed and implemented a continuous data collection system called    the Highway Performance Monitoring System (HPMS). Currently, the HPMS contains    over 110,000 highway sample segments, the most comprehensive nationwide data    system in use regarding the physical condition and usage of the Nation's    infrastructure. The HPMS database is the primary source of information for    the Federal government about the Nation's highway system.

To make use of the HPMS database, FHWA developed an Analytical Process (AP).    These models were originally developed and were subsequently enhanced over    the years so that the U.S. Department of Transportation and the U.S. Congress    can have available improved understanding of those factors which are of greatest    importance in the development of highway programs and policy.

The HPMS AP is being used by FHWA, States, Metropolitan Planning Organizations    (MPOs), and local government agencies to assess the physical condition, safety,    service, and efficiency of operation of their respective highway systems.    In addition to assessing the characteristics of the existing highway systems,    the HPMS AP also is being used to predict the effect that proposed highway    programs and policies are likely to have in the future. The capabilities    of the HPMS AP may be summarized as:
      - Assess Base Year Conditions and Performance
      - Forecast Highway System Needs
      - Simulate Highway System Conditions
      - Analyze Investment Strategies
      - Estimate User Costs 

### National Applications

Over the years, the HPMS has proven to be a useful tool for analyzing issues    and assessing policy and program options. This has led to increasing applications    at the national level. Current applications include:
      - The Status of the Nation's Surface Transportation System: Conditions        and Performance,  Biennial Report to Congress
      - Highway Statistics
      - Our Nation's Highways
      - Selected Highway Statistics and Charts
      - Highway Safety Performance -- Fatal and Injury Accident Rates on        Public Roads in the United States,  Report to Congress
      - Policy Planning/Decisionmaking
      - Legislative Initiatives
      - Support Federal Highway Funding Levels

### Non-Federal Applications

Some years ago, the FHWA modified the HPMS AP models so that they could    be used by State transportation agencies to assess the conditions and performance    of their own highway systems. Increasingly, the States, as well as MPOs,    have utilized the HPMS AP as they have addressed a wide variety of concerns    about their highway systems. This reflects the advantages the HPMS has to    offer to non-federal government agencies including: 
      - Since each State maintains its own HPMS database, no additional data      collection effort is required under typical conditions;
      - Use of the HPMS AP by non-federal government agencies does not involve      model development costs;
      - FHWA periodically provides HPMS AP software enhancements for both PC      and mainframe computers;
      - Operating costs for the HPMS AP are minimal (particularly in the case      of the PC version); 
      - FHWA provides technical assistance to State and local agencies who request      it; and
      - Criteria used by the model can be adjusted to reflect State or local      circumstance, practices, and funding constraints. 

This brochure illustrates ways selected non-federal government agencies    have utilized the HPMS to address a variety of their concerns. It illustrates    the considerable flexibility and extensive analytical capabilities included    in the design and operation of the HPMS AP.

### Highway Adequacy Ratings

For States, local government agencies and MPOs, one of the most useful features    of the HPMS AP is the ability to use it in development of Highway Adequacy    Ratings. The AP includes routines for developing four types of indices, that    is:
      - Condition
      - Safety
      - Service
      - Composite (combination of condition, safety, and service)

The AP includes provisions that allow the user to adjust the weights assigned    to various elements included in the component and composite indices.

### Example: Kentucky

Kentucky first used Adequacy Ratings for highway planning purposes in 1949    with occasional updates since that time. Because Kentucky's Adequacy Rating    approach addressed the same kinds of elements as the HPMS AP, an analysis    was undertaken to determine whether the HPMS AP, with appropriate weights    for various data elements, could be used as the standard model for the Adequacy    Rating. An analysis was undertaken in which the composite indices for individual    highway sections as developed by the HPMS and the Adequacy Rating program    were compared. For sections where compatible data were used, it was found    that there was "good correlation." The Kentucky Transportation    Cabinet anticipates producing an Adequacy Rating Report once some data refinements    have been completed.

**Contact:** Keith White, Division of Transportation Planning,    Kentucky Transportation Cabinet (502-562-7183) 

### Highway Needs (Investment Requirements)

HPMS AP-generated estimates of investment requirements can serve as benchmarks    for the development and evaluation of transportation policy and program options.    For instance, in the 1995 Report to Congress concerning the *Status of    the Nation's Surface Transportation System: Condition and Performance*,    the AP was used to develop the investment scenario "Cost to Maintain    Current Conditions and Performance." Previous reports to Congress also    included an AP-generated scenario "Cost to Improve Conditions and Performance."

### Example: Idaho

In 1995, Idaho completed its second comprehensive multi-jurisdiction highway    needs and finance study. These analyses addressed State, county, highway    district, and city road systems. The HPMS AP was used to determine deficiencies    and estimate investment requirements for roadways. It was modified so that    it could address needs on roads functionally classified as locals. Needs    assessment criteria (minimum conditions standards, design standards, unit    costs) were used which reflected Idaho conditions and practices. In addition    to needs estimates, the HPMS AP also was used to develop performance ratings    regarding condition, safety, operations and service, and a composite index. 

This comprehensive needs assessment also employed the Bridge Needs and Investment    Process (BNIP), a companion model to HPMS.

**Contact:** Ray Mickelson, Transportation Administrator, Idaho    Transportation Department (208-334-8203)

### Investment/Performance Relationships

The HPMS AP embodies an analysis which assesses the highway improvements    and highway system conditions that can be expected under various funding    scenarios. This is an important feature of the model because sufficient funds    typically are not available to correct all highway system deficiencies. This    feature enables an understanding of what kind of performance can be expected    when funding is not adequate.

### Example: North Carolina

The North Carolina Department of Transportation (NCDOT) utilized the HPMS    AP to conduct an analysis of highway needs along with an assessment of the    future performance and condition effects resulting from alternative policies    and funding scenarios. This was accomplished by using the AP's capabilities    to simulate conditions and performance at seven funding levels (100, 80 ,    70, 60, 40, 10 and 0 percent). For each funding level, HPMS outputs regarding    safety, service, condition and composite indices were plotted. Investment/performance    analyses were conducted for each functional classification to facilitate    evaluations of the future impacts of different funding strategies and improvement    programs.

North Carolina also employed the Bridge Needs and Investment Process (BNIP)    to conduct a similar investment/performance analysis for bridges.

NCDOT concluded that the HPMS AP and BNIP *"... can provide an informational      support basis to help management evaluate policy, analyze needs, develop      improvement programs, and allocate money to maintain optimally the North      Carolina highway and bridge systems."*

**Contact:** Marion R. Poole, Manager, Statewide Planning Branch,    North Carolina Department of Transportation (919-733-4705)

### Corridor Planning

While the HPMS AP was developed as a strategic planning tool, it embodies    a number of technical procedures that can be used for other purposes. For    instance, the AP includes analytical routines that assess the "adequacy" of    important highway features. In this context, "adequacy" implies    sufficiency to satisfy a specific requirement or standard (i.e., minimum    conditions standards). This is consistent with processes often used to assess    improvement needs by other means. Because the AP is automated, it can ease    the computational effort required by such evaluations.

### Examples: Oregon

The HPMS AP is used by the Oregon Department of Transportation (ODOT) to    assist in planning improvements to major corridors. Some 26 corridors have    been designated to be of statewide significance. For each corridor, an HPMS    dataset has been developed for 100 percent coverage. The HPMS AP is run with    these datasets to review geometric and operational improvement needs. For    each corridor, the HPMS AP is applied under two scenarios; i.e., the No Build    and Total Build (full needs) scenarios. Results are analyzed in terms of    congestion levels, travel speeds, geometric deficiencies, etc.

The results of these analyses are documented and transmitted to the appropriate    regional office of ODOT for review and consideration as they develop corridor    improvement plans. The information is an important part of the planning that    leads to the development of the 6-year Statewide Transportation Improvement    Program (STIP).

Oregon also used the HPMS AP in conjunction with a comprehensive multi-jurisdiction    highway needs and finance study. The model was customized to permit assessment    of a wider range of functional classifications than is covered by the FHWA    version of HPMS AP.

**Contact:** Rich Arnold, Senior Highway Needs Analyst, Oregon    Department of Transportation (503-986-4218)

### State Transportation Plans

A principal focus of the HPMS AP is the development of information required    for strategic and systems planning. That is, it has capabilities to:
      - Define the current status and existing backlog of highway deficiencies;
      - Identify, through simulation processes, the future conditions of the      highway system;
      - Estimate the investment requirements to address highway deficiencies;      and 
      - Assess the condition and performance of the highway system under alternative      funding scenarios.

These capabilities are valuable in the development of ISTEA-mandated Statewide    Transportation Plans. 

### Example: South Carolina

The South Carolina Department of Transportation (and its predecessor organization)    has been a user of the HPMS AP since 1988. Most recently, it was used in    conjunction with the development of the Statewide Transportation Plan. This    included identification of the existing backlog of deficiencies and the associated    cost to address the deficiencies. Future needs also were identified. It was    found that *"... future needs will grow at a faster rate than the    Department will be able to fund improvements to solve these problems. Consequently,    the condition of state highways will be expected to get much worse during    the next twenty years."* A funding proposal to address this problem    was included in the Plan.

**Contact:** James Campbell, Director of Planning, South Carolina    Department of Transportation (803-737-1444)

### Strategic Planning

As one of FHWA's major strategic planning tools, the HPMS is designed to    measure and monitor the condition, performance, usage, and operating characteristics    of the Nation's highways for use by policy decisionmakers and Congress in    developing and evaluating Federal-aid highway programs and funding levels.    Additionally, FHWA provides Congress with assessments of future highway investment    needs and investment/performance relationships for budget and program development    purposes.

These principal characteristics of the HPMS also are useful to State transportation    agencies involved in strategic planning.

### Example: Texas

Every two years, the Texas Department of Transportation (TxDOT) prepares    its Strategic Plan in compliance with a Texas State Legislative mandate that    applies to all state agencies. The most recent Strategic Plan covers the    period 1995-1999. One of the elements of the Strategic Plan is an External/Internal    Assessment which addresses a variety of topics. This includes fiscal aspects,    funding requirements, and other topics. The HPMS AP was used by TxDOT to    develop the highway component of the funding requirements analysis. The model    also was employed in development of the current version of the Texas Transportation    Plan.

TxDOT also used the HPMS AP to develop its Strategic Mobility Plan which    linked the Department's mission and strategic goals and the investment required    to fulfil those goals. This was followed by a review of the HPMS by the Office    of the State Auditor which supported and validated the Department's use of    the model and database. The Department concluded that *"In assessing    the tailoring of HPMS for Texas as well as reviewing activities related to    data gathering and computer modeling of needs, ... use of the HPMS has been    found to be quite satisfactory."*

**Contact:** Artie V. Elliott, Jr., Strategic Management Group,    Texas Department of Transportation (512-463-6083)

### Performance Monitoring

Because the HPMS database is updated periodically, it provides an excellent    opportunity for benchmarking/performance monitoring. That is, a time series    of system performance and condition indicators can be compiled from the database.    Further, outputs of the AP also can be employed on a time series basis to    ascertain trends in deficiencies, improvement requirements, and the four    performance indices developed by the AP.

### Example: California

Because of the value of transportation information to a wide range of public    and private organizations, the California State Department of Transportation    (Caltrans) annually produces a report containing HPMS data. In addition to    substantial information regarding system mileage and vehicle miles of travel,    the HPMS is used in the "Assembly of Statistical Reports" for system    performance monitoring, including compilations such as mileage and travel    by:
      - Weighted design speed;
      - Volume service flow ratio;
      - Pavement condition;
      - Lane width;
      - Horizontal alignment adequacy; and
      - Vertical alignment adequacy.

By comparing these annual HPMS-derived data, assessments can be made of    the effectiveness of transportation programs in improving system performance    over time.

**Contact:** Jane E. Wegge, Transportation System Information    Program, California Department of Transportation (916-653-3272)

### VMT Tracking

The HPMS provides a standard, recognized database that covers all regions    of the U.S. In recognition of these features, the Environmental Protection    Agency (EPA) now relies upon HPMS to estimate vehicle miles of travel (VMT)    in connection with air quality conformity analyses undertaken pursuant to    the 1990 Clean Air Act Amendments (CAAA). Consequently, in air quality nonattainment    areas, improved VMT tracking is becoming more important.

### Example: Illinois

The Illinois Department of Transportation (IDOT) is typical of large state    DOTs from a data management viewpoint. The Department has invested a substantial    amount of time and money to develop its own database to support planning    efforts and contribute statistics and information for other purposes. IDOT    produces/updates the HPMS from its Illinois Roadway Information System (IRIS)    annually.

Illinois has two nonattainment areas: Chicago and the Illinois portion of    St. Louis. While recognizing the role the HPMS will assume in monitoring    VMT for these two areas, the Department is sensitive to differences in VMT    estimates produced by its IRIS, the HPMS, and the Chicago Area Transportation    Study (CATS) Network Model. IDOT has engaged a consultant to review/evaluate    the HPMS sample in these two nonattainment areas and the IRIS, CATS, and    HPMS VMT estimation processes. By implementing the recommendations from this    study, IDOT and CATS hope to enhance their VMT estimation processes. This    is the only current study of its kind in the U.S.

**Contact:** James P. Hall, Chief, Planning and Services Section,    Illinois Department of Transportation (217-785-2752)

### System Classification

One of the values of the HPMS AP in highway planning applications is its    ability to estimate the investment requirement impacts of alternative needs    assessment criteria. The AP readily accommodates changes in minimum conditions    standards used to identify deficiencies. Likewise, the user can easily modify    design standards which apply to improvements simulated by the model. The    results of analyses regarding different criteria can help a transportation    agency evaluate the effect of various policies that are associated with such    matters, including system classification. 

### Example: Kansas

Like all states, Kansas has used the federal functional classification criteria    in its highway planning processes. However, the Kansas Department of Transportation    (KDOT) was concerned that application of the State's arterial standards to    the large mileage in the arterial classification would result in substantial    reconstruction and replacement costs. This was because, under the State's    standards, geometric improvements made to low-volume arterials had to be    made to full arterial standards. Therefore, the Department undertook a reclassification    process in connection with preparation of the State Transportation Plan (STP).    In this process, the federal designations were replaced with categories defined    as Classes A through E. The Department then assessed the impact upon road    user costs of program funding allocations and standards based upon the reclassified    system. These analyses determined that *"... user costs more than    double ... for the conventional functional classification ... with the same    funding level, the road user costs increased only slightly when the funds    were allocated according to the STP classification and standards."*

KDOT also has used the HPMS AP in other applications. This includes investigation    of the effects of a "maintenance only" funding scenario and the    cost of deferring maintenance.

**Contact:** Dean Landman, consultant to and recently retired    from the Kansas Department of Transportation (913-266-4467)

### Highway User Cost Analysis

The HPMS AP includes several impact analyses such as travel speeds, accidents,    emissions, fuel consumption, and operating costs. This analytical capability    can be used to determine the effects on these performance characteristics    of various policy scenarios, such as varying funding levels or emphasizing    certain improvement types.

### Example: North Carolina

In one of its applications of the HPMS AP, the North Carolina Department    of Transportation (NCDOT) undertook a study with these objectives in mind,    that is:
      - Estimation of needs (investment requirements);
      - Development of investment/system performance relationships; and
      - Assessment of the effect on user costs associated with three different      investment levels.

Methodologies developed by the FHWA were employed by NCDOT to compute user    costs. The three investment levels examined were:
      - Zero funding level;
      - Maintain conditions level; and
      - Total funding level.

The study concluded *"... that the HPMS procedures will continue      to be an important tool for identifying highway improvements that should      lead to optional achievement of North Carolina's highway transportation      goals."*

**Contact:** Marion R. Poole, Manager, Statewide Planning Branch,    North Carolina Department of Transportation (919-733-4705) 

### Roadway Inventory Database

The HPMS database is the primary source of information for the Federal government    about the Nation's highway infrastructure. The HPMS includes statistical    information about pavement condition, roadway features, traffic characteristics    and system performance.

The State-furnished HPMS data also is a valuable resource for State transportation    agencies. Indeed, a number of States have elected to expand the database    to serve better their own information needs.

### Example: North Dakota

The North Dakota Department of Transportation (NDDOT) relies heavily on    the HPMS as a highway database to support a variety of planning functions.    NDDOT does not maintain other independent databases for highways; it uses    the HPMS to develop mileage and traffic statistics used by DOT planners,    MPOs, local governments, and private concerns with a transportation focus    (e.g., trucking companies, railroads). The Planning Division is a primary    user of the VMT output of HPMS in its work (plan development, capital program).

The agency has downloaded the HPMS to a PC database that can be managed    within the Planning Division. The Planning Division is in the process of    converting the HPMS database to the NDDOT's GIS. Once this is accomplished,    the Division intends to use the HPMS even more extensively in the planning    process.

**Contact**: Robert Olzweski, Transportation Project Manager,    Planning Division, North Dakota Department of Transportation (701-328-3479)    - for HPMS

Brad Wentz, GIS Coordinator, Planning Division, North Dakota Department    of Transportation (701-328-3736) - for GIS 

### Budgeting Process

Some of the most useful functions of the HPMS AP are its capabilities to    evaluate a wide range of scenarios regarding budget allocations. The AP can    be executed with any specific budget allocation the user may wish to examine.    This can include varying budget ceilings for specific subsets of the total    highway system. Also, the AP can be executed with different total budget    amounts to examine the effects of increased funding. Using these capabilities,    the AP permits assessment of a variety of impacts and effects under each    scenario (e.g., changes in backlog deficiencies, effects of deferred improvements,    impacts on user costs, etc.). With this information, it is possible to make    informed decisions about optimal budget allocations.

### Example: Quebec

The Quebec Ministry of Transportation uses output from the HPMS Analytical    Process to support two key components of its capital budgeting and program    planning processes: developing annual capital budget requests and allocation    of capital resources to its regional offices.

The Ministry has such a "high level of confidence in its output" that    the Planning and Research Division uses direct AP output to determine annual    transportation capital budget requests. The Ministry diligently supports    the HPMS database and has developed a high degree of credibility with legislative    interests in using the HPMS AP to support capital budget requests.

HPMS AP output is also used by the Ministry to allocate available capital    resources to its regional offices. Using this technical, objective method    of resource allocation instills a high level of confidence agency-wide in    the Ministry's goal to provide quality transportation services in all geographic    portions of the province.

**Contact:** Yvan Demers, Assistant Deputy Minister, Quebec    Ministry of Transportation (418-528-0808)

### State Informational Booklet

At the minimum, the HPMS is a joint Federal and State undertaking. Whereas    FHWA has responsibility for the maintenance and enhancement of the AP and    analysis of national issues, the States supply the HPMS database upon which    these analyses are based.

In some instances, the HPMS partnership extends to MPOs and local governments.    In some States, local officials are asked to contribute data to the system.    Given this extended partnership, there are occasions in which there has been    a sharing of the information that is obtained from the database and analyses    employing the AP.

### Example: Washington State

As a means of providing local governments with improved explanations of    the purposes for which HPMS can be used, the Washington State Department    of Transportation (WSDOT) developed and distributed an informational booklet    entitled *"Washington State Roadways: Selected Data and Analysis    from the Highway Performance Monitoring System (HPMS)."* This provided    the Department an opportunity to highlight major concerns that emerged from    the HPMS analyses.

The informational booklet addressed a number of topics such as (1) an overall    description of the existing highway system; (2) travel characteristics; (3)    pavement types and conditions; (4) urban congestion; (5) performance ratings;    (6) backlog needs; (7) future roadway conditions; (8) future improvement    needs; and (9) roadway conditions at various funding levels.

**Contact:** Loyd R. Fergestrom, Transportation System Engineer,    Washington State Department of Transportation (360-705-7955)

### In Conclusion

For almost two decades, HPMS has provided a sound basis for evaluating highway    system deficiencies and improvement needs, for performing investment level/system    performance analyses, and for conducting a variety of impact analyses for    federal and other uses. No other model of this type has achieved the longevity    that HPMS has. In addition to the basic soundness of the HPMS, use by non-federal    organizations has increased as HPMS has been improved and enhanced a number    of times over the years.

### HPMS in the Future

As a dynamic, multipurpose information system, HPMS will continue to keep    abreast of emerging essential data and analytical needs. Future enhancements    will include technological and other advancements to maximize overall program    utility, effectiveness, and efficiency at all levels of government. These    include:
      - Development of highly efficient, state-of-the-art software systems;
      - Use of emerging electronic data access, delivery, and dissemination systems;
      - Development of electronic publications, including CD ROM; and
      - Data and analytical enhancements to keep abreast of essential needs of      the HPMS partnership, including those of the Federal-aid highway program      and the stewardship needs of the States and FHWA.

**Contact:** Beverly J. Harrison, Transportation Specialist,    Office of Highway Information Management, Federal Highway Administration    (202-366-4048)

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