Roadway Safety Data Program
 

UTAH’S AND KENTUCKY’ S INNOVATIVE USE 

OF GIS-BASED TOOLS
 

STRATEGIES FOR USING GIS TO ADVANCE HIGHWAY SAFETY 

CASE STUDY
 

FHWA-SA-16-028
 

Prepared for
 

Federal Highway Administration
 

Office of Safety
 

Fewer 

Fatalities & 

Serious 

Injuries 

Better 

Targeted 

Safety 

Investment 

More 

Informed 

Decision 

Making 

Improved 

Data 

Collection 

& Analysis 

September 2016
 
Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 
 

CASE STUDY OVERVIEW
 

OBJECTIVE 

 

 

The objective of this case study is to illustrate Kentucky and Utah DOTs effective use of usRAP 

and UPlan, respectively. Both programs include data collection, and analysis methods that 

facilitate highway safety improvements. 

BACKGROUND 

 

 

 

 

 

 

 

 

 

 

Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

The United States Road Assessment Program (usRAP) is a tool transportation agencies can use 

to rate their roadways for safety and identify strategies for systematic improvement.(1) UPlan is 

an interactive mapping platform that helps the Utah DOT (UDOT) visualize its data, track its 

assets, and strengthen its transportation planning through “better analysis and collaborative 

information.” UPlan’s Zero Fatalities safety component presents UDOT’s Safety and Crash 

Analysis, which is predicated on the mapping and road-rating tools first developed by usRAP.(3) 

usRAP and UPlan safety components both employ similar general processes and have the same 

objective: to increase safety by understanding and mitigating crash risks and roadside hazards. 

At the core of usRAP is a focus on risk assessment to identify practical solutions to roadway 

safety problems. usRAP uses crash and roadway data to map relative road risk using a number 

of standardized protocols. A roadway network is systematically divided into segments for data 

analysis and presentation of results. Attributes of each segment are used to quantify fatal and 

serious injury crash risk. Color-coded risk maps summarize the findings.(1,10) 

UDOT developed UPlan as part of an AASHTO Innovation Initiative. According to AASHTO: 

UPlan is a powerful, yet easy-to-use web-based decision-support mapping
 

and informational tool for completing complex planning and project 

development tasks. It allows complete or selective data sharing among
 

various work units within the state DOT. It also allows selective data 

sharing between state DOTs and with the public. 

– AASHTO Innovation Initiative (AASHTO 2016)(3) 

UPlan is a comprehensive infrastructure-management system that relies extensively on 

geospatial data. DOTs can use these available data to make safety, pavement, and roadway asset 

management decisions. In Utah, UPlan uses data-collection methods, such as LiDAR, digital 

imaging, workstation, and ArcGIS records to cover 5,845 centerline miles and 310 miles of 

ramps and collectors on State-maintained roads. Several government entities jointly performed 

the data collection, and each agency can use its products.(5) 

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UPlan deploys usRAP protocols for risk mapping and has customized these protocols to 

provide the following maps and data for the measures below, which are also available to the 

general public: 

	 Safety index 

	 Crash rate score 

	 Severe crash rate score 

	 Crashes per mile score 

	 Severe crashes per mile score 

UPlan also provides Safety State Transportation Improvement Plan mapping and data. UPlan 

provides a model that other States can use to develop improvement priorities and significantly 

reduce highway crashes.(5,9) 

The primary purposes of usRAP are to: 

	 Reduce the severity of crashes on U.S. roads through a program of systematic risk 

assessment that identifies roads where practical improvement measures can increase 

safety. 

	 Ensure that risk assessment lies at the heart of strategic decisions regarding route 

improvements, crash protection, and route 

management standards. 

	 Help agencies update design standards to
 

ensure that future planning and design reduces

roadway risk.4
 

Similarly, the primary objective of UPlan is to: 

	 Collect data to make informed decisions about

roadway assets.(5)
 

Both programs’ objectives are to improve road safety 

through wise investment in preventative measures. 

Highway agencies and individual road users will 

benefit from the information that the programs 

provide. 

The key products of the usRAP program are risk 

maps, star ratings based on road-protection scores, 

Figure 1: Crash rate map from 

usRAP Web site 

 

 

 

 

 

Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

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and Safer Roads Investment Plans (SRIPs). UPlan’s safety components focus on various risk 

mapping and data sets, as well as additional information provided to the public about Utah 

safety initiatives.(,5,7) 

usRAP maps present four risk measures based on observed crash history. The program 

calculates each measure for the road segments, which are classified into five risk categories, and 

displays color-coded risk maps.(1,2) The four risk measures and their corresponding maps are: 

	 Map 1. Fatal and serious injury crashes per mile of road. 

	 Map 2. Fatal and serious injury crashes per hundred million vehicle miles of travel. 

	 Map 3. Ratio of fatal and serious injury crash rates per hundred million vehicle miles of 

travel to the average crash rate for similar roads. 

	 Map 4. Potential number of fatal and serious injury crashes saved per mile in 5 years if 

crash rates per hundred million vehicle miles were reduced to the average crash rate 

for similar roads.1 

UPlan uses usRAP’s star ratings, which are a measure to indicate the level of safety built into a 

road. One-star roads have the least number of safety-related design and traffic-operational 

features, while five-star roads incorporate numerous safety-related design and traffic-control 

elements. The purpose of star ratings is to identify and record attributes that influence the 

likelihood or consequences of crashes and, in this way, define the level of road-user risk 

without the need for detailed crash data. There are distinct star ratings produced for vehicle 

occupants, motorcyclists, bicyclists, and pedestrians. Agencies can therefore develop star 

ratings and star-rating maps for existing roads and for roads where crash data are not yet 

available. Research has demonstrated a correlation between vehicle-occupant star ratings and 

the frequency of serious and fatal crashes.(4) 

Agencies can use the Web-based software package, usRAP Tools (now, ViDA), to generate star 

ratings from road data. The star ratings, in turn, can be used to develop usRAP SRIPs for 

network-level traffic safety. The plans prioritize potential road infrastructure improvement 

projects based on benefit-cost analysis tailored to an agency’s budget and countermeasure 

choices.(1,2) 

UPlan includes some unique features not included in usRAP. For example, road agencies can 

access UPlan through the Web site map center (http://uplan.maps.arcgis.com/home), which is a 

compilation of GIS-based data that the public and transportation agencies can use. UPlan also 

provides census data, FHWA data, and other jurisdictions’ and agencies’ information. Using 

UPlan, UDOT can estimate how proposed projects could affect system-performance 

(9) measures.

Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

usRAP can leverage the integration and visualization capabilities of GIS so that transportation 

agencies can integrate geometric and operational features of a roadway with crash data. Only 

aggregate (system level) crash data are required to calibrate usRAP road-protection scoring and 

SRIP protocols. Visualization capabilities of GIS enable data quality control and provide easy to 

understand information to decision makers and the public. 

TARGET AUDIENCE 

These programs are free of charge and any State, city, or county transportation department can 

use and customize them to meet the needs of different situations. Highway safety professionals, 

transportation planners, and transportation engineers are the most common users. The usRAP 

Team offers training on using its software and gathering input data.(1,2) To date, usRAP has been 

piloted in Alabama, Florida, Iowa, Michigan, New Jersey, Illinois, Kentucky, New Mexico, and 

Utah.10 UPlan is specific to Utah and, to date, no other State has implemented the program; 

however, any State can adopt it because it is part of the AASHTO Technology Implementation 

Group (TIG).(3,5) The information resulting from these two programs can benefit both highway 

agencies and individual road users. 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

PROGRAM AND PROCESSES 

IMPLEMENTING usRAP TO COLLECT AND ANALYZE DATA 

FOR KENTUCKY COUNTIES 

Most States do not collect or retain safety 

data elements for county secondary roads 

not maintained by State transportation 

agencies. However, crashes on these roads 

are often severe because of high speeds, 

narrow lanes, sharp curves, and dangerous 

roadsides. For example, of the 79,321 miles 

of public roads in Kentucky, the Kentucky 

Transportation Cabinet (KYTC) Highway 

Information System contains asset inventory 

information on just 40,000 miles. There is a 

need to improve safety on these facilities and 

address Fixing America’s Surface 

Transportation Act 2016 (FAST Act) 

objectives; unfortunately, a data-driven 

approach is challenging when the inventory 

includes only half of the public roadway 

mileage. 

Figure 2: Star Rating map and output 

from usRAP online tools 

Working on behalf of KYTC, the Kentucky Transportation Center (KTC) selected 10 pilot 

counties and small cities from which to collect roadway safety data. Using ArcGIS, researchers 

collected and processed roadway data, then uploaded the data to the usRAP Tools (ViDA) 

online program for processing. The KTC Team used usRAP to recommend countermeasures 

for safety improvements and SRIPs to highway authorities, which KTC made available to officials 

in each study area jurisdiction. KTC also delivered the processed data using a GIS format to 

KYTC for potential inclusion in the Highway Information System (HIS) database. The principle 

effect of this project was to demonstrate the level of effort required and usefulness of safety 

asset management to local agencies in the Commonwealth.(2,4) 

UTAH USES GIS PLATFORM TO SHARE DATA WITHIN THE DOT 

AND WITH THE PUBLIC 

According to UDOT planning director John Thomas, “UPLAN is a collaborative, Web-based 

tool that supports decision-making, mapping, information analysis, and planning and project 

development. The tool serves as a one-stop shop for UDOT staff, partner agencies, and the 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

public to upload, manage, and share a wide variety of geospatial data.” While it is still too early 

to formally evaluate UPlan, evaluation, anecdotal and some quantitative benefits ascertained 

include the following: 

	 Improved data accessibility, quality, and information sharing. 

	 Strengthened collaboration and partnerships. 

	 Streamlined project development and delivery. 

	 Focused use of resources. 

UPlan allows users to view multiple sources of data spatially, which improves communication 

among and within agencies and provides one-stop shopping for various disperse data. Data are 

more convenient for users and more easily maintained by providers. Data quality is improved 

because errors are easier to identify when visualized. Perhaps most importantly, fusion of 

various data in a spatial environment allows better understanding of the causes and potential 

solutions to highway safety issues 

KEY ACCOMPLISHMENTS 

	 There are already examples of cost savings facilitated by UPlan in Utah. “Prior to 

adopting a cloud-based GIS platform for the tool, staff working on UPLAN spent 

approximately 80 percent of their time on data management and maintenance. Now, 

staff spends a few hours per week (about 20 percent of their time) on these tasks.”(9) 

	 Agencies can now anticipate and mitigate potential safety problems earlier as UPlan data 

are available even in the planning stage of projects. Also, UPlan fosters multi-State 

collaboration and 12 States have implemented cloud-based GIS programs based on the 

UPlan design. 

SUMMARY 

BENEFITS/RESULTS(2,4,10) 

	 Transportation agencies can use GIS maps to better evaluate their road network 

performance. 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

	 Transportation agencies can use usRAP to identify areas where safety improvements are 

potentially warranted. 

	 The systems can help individual road users understand the risks involved in traveling on 

different road types and the safety performance of specific roads. 

	 Agencies can use usRAP and UPlan to quantify risk and ensure investment decisions are 

data driven. 

	 Agencies with limited budgets can also use usRAP because its tools generate a 

customized plan based on a minimum benefit-cost ratio defined by the agency.
 

	 The software and tools are free, and assistance is available through usRAP. 

IMPLEMENTATION CHALLENGES(1,2,4) 

	 Data collection can be labor intensive. Automated data collection requires investments 

in new technologies or outsourcing the job to contractors. 

	 Roadway imagery for a local network may be low quality or unavailable. 

	 Some GIS expertise is required to set up the coding environment. 

FUNDING/COST 

The cost of implementing this program varies and depends on the availability and cost of labor 

to collect data as well as the extent of system. Kentucky has collected data, 10,784 miles thus 

far.(2) Collecting data from imagery typically costs around $5 per mile. These costs include 

training, data collection and processing, and potentially the cost of hiring consultants for initial 

or ongoing support. These costs exclude implementing countermeasures. 

TIME FRAME 

Entering data into usRAP demands significant labor and time, but it is relatively straightforward. 

One data collector working half-time can collect and process up to 50–75 miles of data per 

week. 

LESSONS LEARNED 

	 The GIS based tools and approaches provide agencies with systemic as well as
 

prioritized site specific suggestions for safety improvement. 

	 The availability of roadway imagery continues to increase making practical 

implementation of the GIS based tools cost effective. 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

	 Because individual projects recommended by a USRAP evaluation were ranked by 

benefit-cost ratio, safety funds may go further to save more lives. KYTC and UDOT 

chose to recover the cost of implementing GIS safety approaches by selecting fewer but 

more cost-effective safety improvement projects and using some of the savings to 

implement the safety tools. 

	 Communication, coordination, and cooperation are facilitated when offices and agencies 

share spatial safety information resources. 

	 Training for workers on the project should be comprehensive. Providing an extensive 

catalog of reference examples will encourage participants to minimize subjective 

judgments 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

REFERENCES
 

1.	 AAA Foundation for Traffic Safety. usRAP: United States Roadside Assessment Program, 

2006. 

2.	 usRAP Overview, United States Road Assessment Program, 

http://www.usrap.us/home/, accessed October 2015. 

3.	 AASHTO (2016) UPlan, AASHTO Innovation Initiative, 

http://aii.transportation.org/Pages/UPlan.aspx, accessed May 2016. 

4.	 Harwood, D., K. Bauer, D. Gilmore, R. Souleyrette, and Z. Hans. Validation of the 

usRAP Star Rating Protocol for Application to Safety Management of U.S. Roads, 

Transportation Research Record, Journal of the Transportation Research Board, No. 

2147, TRB, National Research Council, Washington, DC, 2010, pp. 33–41. 

5.	 Harwood, D., and S. Jones. UTIBS, UPlan, and how both relate to usRAP. Utah DOT, 

iRAP Innovative Workshop, PowerPoint presentation, 2013. 

6.	 Higgins, C. Preconstruction honored with regional quality award, UDOT Transportation 

Blog, April 2015. 

7.	 Pinkerton, A. UPlan Tutorial. Utah DOT. PowerPoint presentation, 2013. 

8.	 British EuroRAP Results 2015, Road Safety Foundation, 

http://www.roadsafetyfoundation.org/media/32684/british_eurorap_report_2015_final.p 

df, retrieved October 2015. 

9.	 Thomas, J. UPLAN, Utah Department of Transportation, http://www.ssti.us/wp/wpcontent/uploads/2014/10/John-thomas_UDOT_UPLAN-summary.pdf, accessed May 

2016. 

10. usRAP: A New Tool for Road Safety Management, UTC Spotlight, U.S. Department of 

Transportation, Research and Innovative Technology Administration, 2009, 

http://www.rita.dot.gov/utc/publications/spotlight/2009_11/html/spotlight_0911.html, 

accessed October 2015. 

11. Utah’s GIS Database Enhancing Transportation Performance Management, FHWA 

Transportation Performance Management Noteworthy Practice Series, Federal Highway 

Administration, U.S. Department of Transportation, Washington, DC, October 2013. 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

EXPLANATION OF TERMS
 

AAA – The American Automobile Association 

AASHTO TIG – The American Association of State Highway & Transportation Officials 

Technology Implementation Group 

DOT – Department of Transportation 

FAST Act – Fixing America's Surface Transportation Act, 2016 

GIS – Geographic Information System 

HIS – Highway Information System 

KTC – Kentucky Transportation Center 

KYTC – Kentucky Transportation Cabinet 

LiDAR – Light Detection and Ranging 

SRIPS – Safer Roads Investment Plans 

UDOT – Utah Department of Transportation 

UPlan – Interactive mapping platform that supports UDOT by helping visualize 

its data, track assets and strengthen transportation planning with better 

analysis and collaborative information 

usRAP – United States Road Assessment Program 

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Utah’s and Kentucky’s Innovative Use of usRAP and UPlan 

AGENCY CONTACT INFORMATION
 

W. Scott Jones 

Safety Programs Engineer 

UDOT 

Salt Lake City, Utah 

Phone: 801-965-4285 

Email: wsjones@utah.gov 

John Thomas 

Project Manager 

UDOT 

Salt Lake City, Utah 

Phone: 801-550-2248 

Email: johnthomas@utah.gov 

Jarrod Stanley 

Highway Safety Engineer 

Kentucky Transportation Cabinet 

Frankfort, KY 

Phone: 502-564-4556 

Email: jarrod.stanley@ky.gov 

Bruce Hamilton 

Roadway Safety Foundation 

Washington, DC 

Phone: 202-857-1228 

Email: gregcohen@roadwaysafety.org 

Doug Harwood 

Program Director 

MRIGlobal Transportation Research Center 

Kansas City, Missouri 

Phone: 816-753-7600 ext. 1571 

Email: dharwood@mriglobal.org 

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