The Active Transportation and 

Demand Management Program 

(ATDM): Lessons Learned

FHWA-HOP-13-018

March 2013
Disclaimer

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

object of the document.

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Technical Report Documentation Page

1. Report No.

FHWA-HOP-13-018

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

4. Title and Subtitle

THE ACTIVE TRANSPORTATION AND DEMAND 

MANAGEMENT PROGRAM (ATDM): LESSONS LEARNED

5. Report Date

March 2013

6. Performing Organization Code

HOP

7. Author(s)

Beverly Kuhn (TTI), Deepak Gopalakrishna (Battelle), and Eric 

Schreffler (ESTC)

8. Performing Organization Report No.

9. Performing Organization Name and Address

Texas A&M Transportation Institute, The Texas A&M University 

System, College Station, Texas 77843-3135

Battelle, 505 King Ave, Columbus, OH 43201 

ESTC, San Diego, CA

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

Project No. DTFH61-06-D-0007

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

Technical

September 2010-September 

2012

14. Sponsoring Agency Code

FHWA

15. Supplementary Notes

Project performed in cooperation with the U.S. Department of Transportation, Federal Highway 

Administration.

Project Title: Support to FHWA in the Development of the Active Transportation and Demand 

Management (ATDM) Program

16. Abstract

Active transportation and demand management (ATDM) is the proactive and dynamic management, 

control, and influence of travel demand, traffic demand, and traffic flow of transportation facilities. 

Using available tools and assets, traffic flow is managed and traveler behavior is influenced in real time 

to achieve operational objectives, such as preventing or delaying breakdown conditions, improving 

safety, promoting sustainable travel modes, reducing emissions, or maximizing system efficiency. 

Under an ATDM approach, the transportation system is continuously monitored. This report 

documents the lessons learned and critical issues related to the deployment of ATDM across the United 

States to date. Common themes that resonate with transportation professionals regarding ATDM 

include agency approaches to incorporating ATDM in the planning process, regulatory and institutional 

obstacles that may need to be overcome prior to implementation, the importance of developing strong 

partnerships with stakeholders, the importance of outreach, addressing design exceptions created by 

ATDM applications, appropriate signage to adequately convey operational strategies to travelers, and 

operations and maintenance approaches and responsibilities.

17. Key Words

Active transportation and demand management, 

Active traffic management, Active demand 

management, Highway capacity, Operations, 

Deployment

18. Distribution Statement

No restrictions. 

19. Security Classif.(of this report)

Unclassified

20. Security Classif. (of this page)

Unclassified

21. No. of Pages

54

22. Price

Form DOT F 1700.7 (8-72) Reproduction of completed page authorized
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ATDM Program: Lessons Learned

i

Acknowledgments

This study was conducted in cooperation with the staff from FHWA, Battelle, and other agencies 

across the United States. Jim Hunt—Congestion Management and Pricing Team—served as the 

project director and provided guidance throughout the study. Special thanks are also extended to 

the following organizations for their participation in the peer exchange workshop and various 

case study interviews: Booz Allen Hamilton, California Department of Transportation, Center 

for Urban Transportation Research, Dallas Area Rapid Transit, Delaware Department of 

Transportation, Dowling Associates, Federal Transit Administration, Institute of Transportation 

Engineers, Iteris Inc., Kimley-Horn and Associates Inc., King County Metro Transit, 

Massachusetts Department of Transportation, Microsoft Real Estate and Facilities, Minnesota 

Department of Transportation, Mouchel Limited, New York City Department of Transportation, 

New York State Department of Transportation, Oregon Metro, Parsons Brinckerhoff, Puget 

Sound Regional Council, Rijkswaterstaat, Transportation Research Board, Virginia Department 

of Transportation, and Washington State Department of Transportation.
ATDM Program: Lessons Learned

ii

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ATDM Program: Lessons Learned

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Table of Contents

Page

ACKNOWLEDGMENTS.............................................................................................................I

EXECUTIVE SUMMARY ......................................................................................................... V

1.0 INTRODUCTION............................................................................................................. 1

1.1 The ATDM Operational Concept ........................................................................... 1

1.2 The International Influence..................................................................................... 3

1.3 Implementation Approaches................................................................................... 6

1.3.1 Active Demand Management .................................................................... 6

1.3.2 Active Traffic Management ....................................................................... 7

1.3.3 Active Parking Management..................................................................... 10

1.4 The Impact of Strategies on the Trip Chain.......................................................... 11

2.0 ATDM KNOWLEDGE AND TECH TRANSFER WORKSHOP 

HIGHLIGHTS ................................................................................................................ 13

2.1 Primary Questions and Lessons Learned.............................................................. 13

2.1.1 Key Peer Questions Regarding ATDM .................................................... 13

2.1.2 Key Lessons Learned................................................................................ 15

2.2 ATDM Peer Exchange Workshop Themes........................................................... 20

2.2.1 Requirements ............................................................................................ 20

2.2.2 A Customer Emphasis............................................................................... 20

2.2.3 Technology’s Role .................................................................................... 21

2.2.4 The Federal Role Change.......................................................................... 21

2.3 ATDM Executive Session..................................................................................... 21

2.3.1 The Operations Story ................................................................................ 21

2.3.2 Advancing ATDM Strategies ................................................................... 23

2.3.3 Developing an Agency’s Capability and Level of Maturity to 

Proactively Manage Its Transportation Systems....................................... 24

3.0 MOVING FROM IDEA TO IMPLEMENTATION................................................... 25

3.1 Keys Attributes for Success.................................................................................. 27

3.2 Goals and Objectives of Implementation.............................................................. 28

3.3 Measures of Effectiveness and Benefits............................................................... 29

3.4 Project Dis-benefits............................................................................................... 31

3.5 Securing Funding.................................................................................................. 32

3.6 Improvements for Future Deployments................................................................ 33

4.0 DISCUSSION.................................................................................................................. 37

REFERENCES............................................................................................................................ 39
ATDM Program: Lessons Learned

iv

Table of Contents (Continued)

Page

List of Figures

Figure ES-1. The Active Management Cycle. ............................................................................... v

Figure ES-2. Moving towards active management in the area of speed control. ......................... vi

Figure 1. The ATDM approach. .................................................................................................... 1

Figure 2. Moving towards active management in the area of speed control. ................................ 2

Figure 3. Modified Dutch model of travel demand and traffic management. ............................... 4

Figure 4. ATDM impact on the trip chain. .................................................................................. 11

Figure 5. Minnesota: priced dynamic shoulder lane on I-35. ..................................................... 25

Figure 6. Washington: ATM on I-5. ........................................................................................... 26

Figure 7. California: junction control on northbound SR-110.................................................... 26

List of Tables

Table 1. International Influence on the ATDM program............................................................... 5

Table 2. Key peer questions regarding ATDM............................................................................ 14

Table 3. Key ATDM planning lessons learned............................................................................ 16

Table 4. Key design lessons learned for ATM Systems.............................................................. 17

Table 5. Key operations lessons learned for ATM Systems........................................................ 18
ATDM Program: Lessons Learned

v

Executive Summary

In response to the growing pressure for agencies to do more with less and address congestion 

challenges from all aspects of the network, the Federal Highway Administration (FHWA) is 

working to promote a dynamic approach to manage the transportation network. The approach

seeks to optimize performance and increase efficiency throughout the entire trip chain as seen 

from the traveler’s perspective. Termed Active Transportation and Demand Management 

(ATDM), the program advances the ability to manage, control, and influence travel demand, 

traffic demand, and traffic flow of transportation facilities. 

The program builds off the existing investments that state and local agencies have made in 

transportation systems management and operations. Investments on our transportation facilities 

are wide-ranging and include monitoring systems (detectors), communication backbones, 

advisory systems (message signs, highway advisory radios), field personnel and vehicles (safety 

service patrols), centers (traffic management centers), public information portals (websites, 511), 

control systems (traffic signal systems, ramp meters, road/lane closure systems), and operational 

information exchanges (Computer Aided Dispatch [CAD] integration, data warehousing). 

Leveraging these investments to realize a greater degree of real-time, dynamic management and 

operational capability is the primary goal of the program. 

Figure ES-1 illustrates the continuous dynamic nature of ATDM when applied to system 

management and operations. Under an ATDM approach, the transportation system performance 

is continuously assessed; dynamic actions using existing tools and assets are constantly evaluated 

and implemented in real time to achieve performance objectives, such as preventing or delaying 

breakdown conditions, improving safety, promoting sustainable travel modes, reducing 

emissions, or maximizing system efficiency. Implemented actions are continuously monitored 

as they start to affect system performance. This cyclical approach can be carried out at various 

operational time-scales, ranging from longer-term strategic approaches to the short-term tactical 

decisions. 

As agencies move toward more active 

management, new and emerging 

implementation approaches allow for 

more dynamic operations by agencies 

leading to more fluid traveler 

behavior choices to positively affect 

the system. Broadly, these approaches 

can be classified into three categories:

• Active Traffic Management:

A suite of strategies that 

actively manage traffic on a 

facility. Examples include 

variable speed limits, dynamic 

shoulder use, queue warning 

and lane control strategies.

Source: FHWA

Figure ES-1. The Active Management Cycle.
ATDM Program: Lessons Learned

vi

• Active Demand Management: A suite of strategies intended to reduce or redistribute 

travel demand to alternate modes or routes. Examples include comparative multi-modal 

travel times, dynamic ride-sharing, pricing and incentive approaches.

• Active Parking Management: A suite of strategies designed to affect the demand, 

distribution, availability, and management of parking. Examples include dynamic 

parking pricing, real-time parking availability and reservation systems

All agencies and entities operating transportation systems can advance toward a more active 

management philosophy by making changes that move operations along the active management 

continuum. This progression on the continuum represents a natural evolution in an agency’s 

ability to provide and the public’s acceptance of active management as shown in Figure ES-2.

Figure ES-2. Moving towards active management in the area of speed control. 

Through a series of outreach workshops across the country, transportation professionals have 

learned about the concept of ATDM and had the opportunity to question early implementers of 

various approaches about specific issues and discuss the lessons they learned along the way to 

implementation. Peers across the country consistently challenged implementing agencies to 

answer questions regarding ATDM and their approach to implementation. These questions 

spanned the breadth of planning, design, and operations issues facing agencies and point to the 

recurring challenges agencies face when considering new approaches to managing congestion in 

their jurisdictions. Common themes that resonate with transportation professionals include 

agency approaches to incorporating ATDM in the planning process, regulatory and institutional 

obstacles that may need to be overcome prior to implementation, the importance of developing 

strong partnerships with stakeholders, the importance of outreach, addressing design exceptions 

created by ATDM applications, appropriate signage to adequately convey operational strategies 

to travelers, and operations and maintenance approaches and responsibilities. Sources for figures: left 

– Battelle, middle 

–

Washington DOT, right 

– UK Highways Agency
ATDM Program: Lessons Learned

vii

In general, ATDM requires that agencies increase their emphasis on customers, who will want to 

know how they can directly benefit from ATDM. Agencies need to understand that customers 

are more than highway users and that they need to be seen as an ally and advocate for ATDM. 

Providing real-time, accurate communications can help gain them as allies. It is also important 

to identify and demonstrate successful institutional arrangements for ATDM. Another key 

approach is to show customers what they gain from ATDM rather than focusing on how the 

agency benefits. The use of polls and focus groups can help agencies understand the public’s 

perspectives and help them to develop messages.

Technological capability is core to ATDM but it is also important for agencies to recognize that 

technology is not the end-all for managing the transportation system. They do not need to be on 

the cutting edge to manage their system efficiently. The fact that technologies change so rapidly 

could result in the public sector chasing technologies instead of maximizing what they have. The 

goal of agencies needs to be to maintain and/or operate their equipment to its fullest potential. 

Technology can enhance management and operations, but it is not a panacea or the necessary

end- result.

Policies and regulations can present challenges to the deployment of ATDM approaches, which

push the boundaries of operations, partnerships, and opportunities. Ensuring that laws are 

flexible enough to accommodate them and the myriad ways they are planned, developed, 

financed, and implemented helps move the state of the practice forward.

Effective communications is also essential to implementing ATDM on a broad basis. If an 

agency cannot convince the public that innovative approaches can help solve their problems, 

then it cannot hope to gain the attention of policymakers and decision makers. Members of the 

public can be critical partners, advocates, and champions. Consistent messages from all levels of 

the organization help sell the concept, especially when they resonate with the greater population 

and target issues that are of global concern, such as health and safety. How a message is crafted 

can make or break a project and a program. 
ATDM Program: Lessons Learned

viii

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ATDM Program: Lessons Learned

1 Source: FHWA

Figure 1. The ATDM approach.

1.0 Introduction

In response to the growing pressure for agencies to do more with less and address congestion 

challenges from all aspects of the network, the Federal Highway Administration (FHWA) is 

working to promote a dynamic approach to manage the transportation network. The approach

seeks to optimize performance and increase efficiency throughout the entire trip chain as seen 

from the traveler’s perspective. Termed Active Transportation and Demand Management 

(ATDM), the program advances the ability to manage, control, and influence travel demand, 

traffic demand, and traffic flow of transportation facilities. 

The program builds off the existing investments that state and local agencies have made in 

transportation systems management and operations. Investments on our transportation facilities 

are wide-ranging and include monitoring systems (detectors), communication backbones, 

advisory systems (message signs, highway advisory radios), field personnel and vehicles (safety 

service patrols), centers (traffic management centers), public information portals (websites, 511), 

control systems (traffic signal systems, ramp meters, road/lane closure systems), and operational 

information exchanges (Computer Aided Dispatch [CAD] integration, data warehousing). 

Leveraging these investments to realize a greater degree of real-time, dynamic management and 

operational capability is the primary goal of the program. 

As the popularity of ATDM approaches rises across the nation, it is important that agencies 

understand the impacts and the lessons learned so that they can begin utilizing similar 

approaches to help create smart transportation infrastructure and programs that are effective in 

their region for proactively and dynamically managing demand and operations. This document 

provides insight into lessons learned by early adopters of ATDM in the United States to help 

provide guidance for agencies considering ATDM for their region.

1.1 The ATDM Operational Concept

ATDM is the proactive and dynamic management, control, and influence of travel demand, 

traffic demand, and traffic flow of transportation facilities. Under an ATDM approach, the 

transportation system performance is continuously assessed; dynamic actions using existing tools 

and assets are constantly evaluated and 

implemented in real time to achieve 

performance objectives, such as preventing 

or delaying breakdown conditions, 

improving safety, promoting sustainable 

travel modes, reducing emissions, or 

maximizing system efficiency. Implemented 

actions are continuously monitored as they 

start to affect system performance. This 

cyclical approach can be carried out at 

various operational time-scales, ranging 

from longer-term strategic approaches to the 

short-term tactical decisions. The general 

phases of the ATDM approach are 

illustrated in Figure 1. (1)
ATDM Program: Lessons Learned

2

As agencies move toward more active management, new and emerging implementation 

approaches allow for more dynamic operations by agencies leading to more fluid traveler 

behavior choices to positively affect the system. Broadly, these approaches can be classified into 

three categories:

• Active Traffic Management: A suite of strategies that actively manage traffic on a 

facility. Examples include variable speed limits, dynamic shoulder use, queue warning 

and lane control strategies.

• Active Demand Management: A suite of strategies intended to reduce or redistribute 

travel demand to alternate modes or routes. Examples include comparative multi-modal 

travel times, dynamic ride-sharing, pricing and incentive approaches.

• Active Parking Management: A suite of strategies designed to affect the demand, 

distribution, availability, and management of parking. Examples include dynamic 

parking pricing, real-time parking availability and reservation systems

An agency can deploy a single ATDM approach in order to capitalize on a specific benefit or 

can deploy multiple active strategies to gain additional benefits across the entire transportation 

system. All agencies and entities operating transportation systems can advance toward a more 

active management philosophy by making changes that move operations along the active 

management continuum. This progression on the continuum represents a natural evolution in 

an agency’s ability to provide and the public’s acceptance of active management as shows in 

Figure 2.

Figure 2. Moving towards active management in the area of speed control. Sources for figures: left 

– Battelle, middle 

–

Washington DOT, right 

– UK Highways Agency
ATDM Program: Lessons Learned

3

ATDM builds upon existing capabilities, assets, and programs and enables agencies to leverage 

existing investments—creating a more efficient and effective system and extending the service 

life of existing capital investments. While active management can be applied to any part of our 

transportation system (such as implementing dynamic pricing on a facility to manage congestion 

or informing travelers of specific or compatible transit operations for their trip), it is most 

beneficial when the relationships and synergies to other parts of the system are considered. 

1.2 The International Influence

The origins and the evolution of active management concepts in Europe have considerably 

influenced the evolving ATDM program in the United States. The antecedents of the ATDM 

program in the United States emerged from international experience with active traffic 

management on key highways as well as observing how travel demand management and traffic 

management are more closely integrated in some other countries. For example, in 1995, the UK 

Highways Agency in England began to actively manage traffic via variable speed limits. In 

2002, full active traffic management (ATM) was installed on the M42 near Birmingham. This 

project has become the most widely cited example of ATM. The focus of ATM is to reduce 

bottlenecks and traffic perturbations by utilizing hard shoulder running during peak flows, ramp 

metering, variable speed limits, and dynamic lane control; detecting and clearing incidents 

quickly; and improving real-time traffic information. 

ATM planners in Europe and elsewhere now use a diverse and flexible set of tools to manage 

their facilities. Commonly used strategies now include variable speed limits, hard shoulder 

running, dynamic merge control, adaptive ramp metering, and queue warning and dynamic 

traveler information. The benefits of these ATM strategies, especially variable speed limits, 

have been reported to include compliant driver behavior, improved vehicle throughput, travel 

time reliability, improved safety (especially during inclement weather), and reduced emissions. 

A 3-year safety review of M-42 highlighted a reduction in the number and severity of personal 

injury crashes when the ATM operational regimes were in effect. (2)

As ATM tools continue to be applied in Europe, both the Dutch Ministry for Transport and the 

UK Department of Transport recognized that ATM addresses only part of the congestion 

problem and that there is a parallel and complementary need to manage the demand on the 

transportation system. The Dutch model of travel demand and traffic management involves a 

three-stage process that recognizes the difference between travel demand management and traffic 

management and places these concepts into a larger framework of travel choices and congestionreduction techniques. As shown in Figure 3, 

the process begins with the consideration of 

overall travel demand (the need to travel) and 

moves through traffic demand (the demand on 

the transportation system) and network 

demand (the demand on the individual 

facilities). Through both traffic and travel 

demand management strategies, the 

framework shows how travelers can be 

provided choices across mode, destination, 

route, and time. 

The ATDM program in the United States

emerged from international experience 

with active traffic management on key 

highways and how travel demand 

management and traffic management 

are more closely integrated in some 

other countries. 
ATDM Program: Lessons Learned

4

These international experiences have provided the impetus for the development of an ATDM 

program in the U.S., drawing from the three technical exchanges between U.S. and European 

transportation professionals in 2005, 2006, and 2011. The ATDM program has been adapted to 

meet the needs of the stakeholders in the U.S. Table 1 highlights the key influences from Europe 

and how they shape the ATDM program in the U.S.

Figure 3. Modified Dutch model of travel demand and traffic management. (3)
ATDM Program: Lessons Learned

5

Table 1. International Influence on the ATDM program.

Influences from 

Europe Adaptation to the U.S. Environment Key Thrusts of the ATDM Program

Active 

management as a 

tactical 

philosophy

Through the international scans, the 

value of being more proactive and 

dynamic in overall operations was 

noted. Current operations in the U.S. 

can benefit from such a shift.

Focus on increasing U.S. operating 

agency's capability to actively manage 

their facilities, maximizing the use of 

data, performance assessment and 

continuous improvement.

Use of ATM 

strategies to 

manage 

motorways

Many of the ATM strategies are of 

interest in the U.S. Several have been 

tried in isolation or as part of pilots 

here.

Continue to promote adoption of ATM 

strategies, elaborating on how they can 

be used in the U.S. environment. Focus 

on a wide range of tools and a wide 

range of application settings ranging 

from spot-specific deployments to 

synergistic large-scale ATM.

Moving toward a 

performance- or 

risk-based 

approach to 

design for ATM

ATM strategies need to be adapted to 

the U.S. environment focusing on the 

unique challenges faced by agencies in 

design, operations, maintenance and 

enforcement.

Specific focus is on how the ATM 

strategies used in Europe can be 

adapted to U.S. facilities including 

appropriate design, operations and 

maintenance, safety, and institutional 

considerations. A key aspect of the 

ATDM program involves the sharing of 

best practices and the development of 

guidance and technical support to help 

agencies evaluate and implement ATM 

in their regions.

Consideration of 

TDM strategies as 

part of traffic 

operations

Traditional TDM is well established in 

the U.S. In fact, some areas such as 

carpooling have a long and storied 

history in the U.S., more so than in 

Europe. However, traditional TDM 

approaches have focused on long-term 

behavior changes. Examples from 

Europe point to a more operational use 

of TDM to influence day-to-day travel 

behavior via incentives, partnerships 

and traveler information for a wider 

variety of applications.

The ATDM program in the U.S. supports 

the development and adoption of active 

or dynamic approaches to manage 

demand, especially for short-term travel 

behavior modifications.

While traditional TDM will continue to 

play an important role, the ATDM 

program is focused on strategies that 

involve influencing travel choices in an 

active manner.
ATDM Program: Lessons Learned

6

1.3 Implementation Approaches

As noted before, the tactics for ATDM can be classified into implementation categories like 

active demand management, active traffic management or active parking management. 

Typically, these represent the implementation bundles being considered by agencies as part of 

the ATDM framework. Several of these approaches have been successfully demonstrated in the 

United States. 

1.3.1 Active Demand Management

Active demand management (ADM) works to 

influence travel behavior in real time and

goes beyond traditional travel demand 

management (TDM) to use information and 

technology to dynamically manage demand 

including redistributing travel to less 

congested times of day or routes, or reducing 

overall vehicle trips by influencing a mode 

choice. 

ADM seeks to influence more fluid travel 

choices by users on a day to day or even hour 

to hour basis. Contrasting with traditional 

TDM, which seeks long-term behavior 

changes, ADM supports dynamic trip making behavior enabled by technology and connectivity 

of the modern age. It is supportive of other active measures by redistributing or reducing overall 

traffic levels during congested conditions, thus becoming an integral part of an overall 

management philosophy to actively manage a facility or system. (4)

ADM builds upon the success of traditional TDM programs by using new technologies to inform 

and influence travel choices, which are not limited to mode choice decisions. As with many 

TDM efforts, financial levers are important to ADM, either as incentives or disincentives (such 

as higher tolls for single-occupancy vehicle or peak period travel). Incentives can take various 

forms:

• Travel time savings (high-occupancy vehicle [HOV]/high-occupancy toll [HOT] lanes)

• Direct financial incentives for avoiding peak hour travel

• Gift certificates through points accumulated by offering rides with dynamic ridesharing 

vendors

• Shopping information or discounts to encourage changes in departure times during peak 

periods.

Active demand management works to 

influence travel behavior in real time, 

going beyond traditional demand 

management to use information and 

technology to dynamically manage 

demand to different routes, modes, 

and/or times of day.
ATDM Program: Lessons Learned

7

Information technology, especially with the connectivity and the social networking possibilities 

enabled by smartphones, is now being used to dynamically match en-route travelers with others 

needing a ride or providing comparative travel times for traffic and transit to induce an en-route 

mode or route shift after a trip as begun. Based on the results of early dynamic ridesharing pilot 

projects, program managers identified five critical success factors, which could be applied to 

many ADM strategies: 

1. A critical mass of travelers within a defined area 

2. An appropriate incentive program 

3. Minimal complexity for the user 

4. Demonstrated security and privacy 

5. Stakeholder engagements involving highway operators, transit, employers, and 

businesses to help ensure that the different needs of these groups are addressed by the 

ADM applications. 

The key to successful ADM projects is an integrated approach to offering a technically sound, 

user-friendly service, with incentives to make a different travel choice, as well as buy-in by key 

public and private stakeholders. The overall utilization and effectiveness of many of these 

approaches are still being tested. (4)

1.3.2 Active Traffic Management

Active traffic management (ATM) is the ability to dynamically manage recurrent and nonrecurrent congestion based on prevailing and 

predicted traffic conditions. 

Focusing on trip reliability, it maximizes the 

effectiveness and efficiency of the facility. 

ATM approaches seek to increase throughput 

and safety using integrated systems with new 

technology, including the automation of 

dynamic deployment to optimize performance 

quickly and immediately when operators 

must deploy operational strategies manually. 

ATM includes dynamic routing, dynamic 

junction control, adaptive signal control, and transit signal priority. These approaches can be 

described as follows:

• Adaptive ramp metering: The deployment of traffic signal(s) on ramps to dynamically 

control the rate at which vehicles enter a freeway facility. This in essence smooths the 

flow of traffic onto the mainline, allowing efficient use of existing freeway capacity. 

Adaptive ramp metering utilizes traffic responsive or adaptive algorithms (as opposed to 

pre-timed or fixed time rates) that can optimize either local or system-wide conditions. 

Adaptive ramp metering can also utilize advanced metering technologies such as 

dynamic bottleneck identification, automated incident detection, and integration with 

adjacent arterial traffic signal operations. In an ATDM approach, real-time and 

anticipated traffic volumes on the freeway facility will be used to control the rate of 

vehicles entering the freeway facility. Based on the conditions, the ramp meter rates will 

be adjusted dynamically.

Active traffic management approaches 

seek to increase throughput and safety 

using integrated systems with new 

technology, including the automation 

of dynamic deployment to optimize 

performance quickly.
ATDM Program: Lessons Learned

8

• Adaptive traffic signal control: The continuous monitoring of arterial traffic conditions 

and the queuing at intersections as well as the dynamic adjustment of the signal timing to 

optimize one or more operational objectives (such as minimize overall delays). Adaptive 

traffic signal control approaches typically monitor traffic flows upstream of signalized 

locations or segments with traffic signals, anticipating volumes and flow rates in advance 

of reaching the first signal, and then continuously adjusting timing parameters (e.g., 

phase length, offset, and cycle length) during each cycle to optimize operational 

objectives.

• Dynamic junction control: The dynamic allocation of lane access on mainline and ramp 

lanes in interchange areas where high traffic volumes are present and the relative demand 

on the mainline and ramps change throughout the day. For off-ramp locations, this may 

consist of assigning lanes dynamically either for through movements, shared through-exit 

movements, or exit-only movements. For on-ramp locations, this may involve a dynamic 

lane reduction on the mainline upstream of a high-volume entrance ramp, or might 

involve extended use of a shoulder lane as an acceleration lane for a two-lane entrance 

ramp that culminates in a lane drop. In an ATDM approach, the volumes on the mainline 

lanes and ramps are continuously monitored, and lane access is dynamically changed 

based on the real-time and anticipated conditions.

• Dynamic lane reversal or contraflow lane reversal: The reversal of lanes in order to 

dynamically allocate the capacity of congested roads, thereby allowing capacity to better 

match traffic demand throughout the day. In an ATDM approach, based on the real-time 

traffic conditions, the lane directionality is updated quickly and automatically in response 

to or in advance of anticipated traffic conditions.

• Dynamic lane use control: The dynamic closing or opening of individual traffic lanes as 

warranted and the providing of advance warning of the closure(s) (typically through 

dynamic lane control signs) in order to safely merge traffic into adjoining lanes. In an 

ATDM approach, as the network is continuously monitored, real-time incident and 

congestion data are used to control the lane use ahead of the lane closure(s) and 

dynamically manage the location to reduce rear-end and other secondary crashes.

• Dynamic merge control: Also known as dynamic late merge or dynamic early merge, 

this strategy consists of dynamically managing the entry of vehicles into merge areas 

with a series of advisory messages (e.g., displayed on a dynamic message sign [DMS] or 

lane control sign) approaching the merge point that prepare motorists for an upcoming 

merge and encouraging or directing a consistent merging behavior. Applied 

conditionally during congested (or near-congested) conditions, dynamic merge control 

can help create or maintain safe merging gaps and reduce shockwaves upstream of merge 

points. In an ATDM approach, conditions on the mainline lanes and ramps approaching 

merge areas are continuously monitored, and the dynamic merge system is activated 

dynamically based on real-time and anticipated congestion conditions.

• Dynamic shoulder lanes: The use of the shoulder as one or more travel lanes, known as 

hard shoulder running or temporary shoulder use, based on congestion levels during peak 

periods and in response to incidents or other conditions as warranted during non-peak 

periods. In contrast to a static time-of-day schedule for using a shoulder lane, an ATDM 

approach continuously monitors conditions and uses real-time and anticipated congestion 
ATDM Program: Lessons Learned

9

levels to determine the need for using a shoulder lane as a regular or special purpose 

travel lane (e.g., transit only).

• Dynamic speed limits: The adjustment of speed limits based on real-time traffic, 

roadway, and/or weather conditions. Dynamic speed limits can be either enforceable 

(regulatory) speed limits or recommended speed advisories, and they can be applied to an 

entire roadway segment or individual lanes. In an ATDM approach, real-time and 

anticipated traffic conditions are used to adjust the speed limits dynamically to meet an 

agency’s goals/objectives for safety, mobility, or environmental impacts.

• Queue warning: The real-time display of warning messages (typically on DMS and 

possibly coupled with flashing lights) along a roadway to alert motorists that queues or 

significant slowdowns are ahead, thus reducing rear-end crashes and improving safety. 

In an ATDM approach, as the traffic conditions are monitored continuously, the warning 

messages are dynamic based on the location and severity of the queues and slowdowns.

• Transit signal priority: The management of traffic signals by using sensors or probe 

vehicle technology to detect when a bus nears a signal controlled intersection, turning the 

traffic signals to green sooner or extending the green phase, thereby allowing the bus to 

pass through more quickly. In an ATDM approach, current and predicted traffic 

congestion, multiagency bus schedule adherence information, and number of passengers 

affected may all be considered to determine conditionally if, where, and when transit 

signal priority may be applied. 

The two fundamental concepts of ATM are active management of the capacity and direct 

interaction with drivers to encourage them to make tactical driving decisions (e.g., stopping, 

slowing down, and changing lanes). The idea is not to simply react to changing conditions but to 

anticipate them and actively manage the system prior to their occurrence. All agencies and 

entities operating transportation systems can advance toward a more active management 

philosophy by making changes that move operations along the active management continuum. 

This progression on the continuum represents a natural evolution in an agency’s ability to 

provide and the public’s acceptance of active management. 

Agencies can realize numerous benefits with ATM. General operational benefits include: 

• A decrease in primary incidents by alerting drivers to congested conditions and 

promoting more uniform speeds

• A decrease in secondary incidents by alerting drivers to the presence of queues or 

incidents and proactively managing traffic in and around incidents

• Increased throughput by reducing the delay associated with the number of primary and 

secondary incidents, reducing speed differential in traffic flow, and reducing the 

shockwave effects of excessive braking

• Increased overall capacity by adding shoulder use during congested periods when it is 

needed most
ATDM Program: Lessons Learned

10

• Overall improvement in speed uniformity during congested periods

• Increased trip reliability by increasing capacity and throughput, reducing incident delay, 

and improving vehicle throughput

1.3.3 Active Parking Management

Active parking management is the dynamic management of parking facilities in a region to 

optimize performance and utilization of those facilities while influencing travel behavior at 

various stages along the trip-making process, i.e., from origin to destination. Dynamically 

managing parking can affect travel demand by influencing trip timing choices, mode choice, and 

parking facility choice at the end of the trip. This ATDM approach can also have a positive 

impact on localized traffic flow by providing real-time parking information to users and ensuring 

the availability of spaces to reduce circling around parking facilities. The overall goal is to help 

maximize the nation’s transportation infrastructure investments, reduce congestion, and improve 

safety. (5)

A fundamental component of active parking 

management is information. With clear, 

detailed, relevant, and real-time parking 

information, travelers can make informed 

decisions regarding their trip. The 

information a user needs to make parkingrelated decisions can be conveyed in 

numerous ways and in various formats. 

These include, but are not limited to, 

traditional static road signs, dynamic 

message signs, the Internet, cell phones, 

smartphones and similar mobile devices, 

and navigation systems. Agencies can harness the power of an enhanced technology

infrastructure (wireless and wired communications, embedded sensors, etc.), combine it with the 

breadth of currently available technologies to convey information as well as to accept 

reservations and parking payments, monitor use, and conduct enforcement. These technologies 

can be applied to both on-street and off-street parking spaces to optimize use of all facilities in a 

region. (5)

Parking system operators also realize numerous benefits with active parking management. 

Agencies can reduce costs, improve efficiency, and increase parking utilization rates. By 

increasing the availability of limited parking spaces and optimizing the use of facilities at all 

times of the day, agencies can help reduce congestion in and around parking facilities, improve 

enforcement efficiency, foster public trust, and accommodate alternative payment methods. 

Active parking management also benefits a region as a whole by reducing pollution, encouraging 

the use of alternative modes, relieving congestion around commercial businesses, and helping 

improve access for emergency responders. In some cases, agencies can actually increase parking 

capacity within a limited footprint with innovative parking facility designs that stack vehicles 

and/or automate parking.

Active parking management is the 

dynamic management of regional 

parking facilities to optimize 

performance and utilization while 

influencing travel behavior at various 

stages along the trip-making process. 
ATDM Program: Lessons Learned

11

1.4 The Impact of Strategies on the Trip Chain

ATDM is intended to influence travel behavior throughout the entire trip chain, as shown in 

Figure 4. The process begins with the consideration of overall travel demand and moves through 

traffic demand and network demand. Through both traffic and travel demand management 

strategies, travelers can be provided choices across mode, destination, route, and time. By using 

the various ATDM approaches at each stage of the trip, agencies can work to influence behavior 

and the resulting demand on the system to optimize performance.

Figure 4. ATDM impact on the trip chain.
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ATDM Program: Lessons Learned

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2.0 ATDM Knowledge and Tech Transfer Workshop Highlights

Since its introduction into the United States, ATDM has garnered attention in many sectors of 

the transportation industry. To help promote the concept and develop programmatic direction, 

FHWA hosted several workshops across the country in 2011 and 2012. The following sections 

provide a summary of the primary questions generated by workshop attendees and lessons 

learned that were offered by those agencies that have implemented some aspect of ATDM. They 

also highlight the proceedings of those workshops, which were instrumental in the development 

of key tenets of the FHWA ATDM program.

2.1 Primary Questions and Lessons Learned

Through a series of outreach workshops across the country, transportation professionals learned 

about the concept of ATDM, had the opportunity to question early implementers about specific 

issues of concern, and discussed the lessons they learned along the way to implementation. The 

subsequent subsections highlight the themes from the following workshops:

• Active Transportation and Demand Management and Hard Shoulder Running Workshop, 

hosted by Delaware Valley Regional Planning Commission, May 2012

• Public Relations and Variable Speed Limit Workshop, hosted by Oregon Department of 

Transportation, May 2012

• Active Transportation and Demand Management Workshop, hosted by Intelligent 

Transportation System (ITS) Texas Chapter at the Houston Galveston Area Council, June 

2012

• Active Transportation and Demand Management Workshop, hosted by ITS Nevada 

Chapter at the Freeway and Arterial System of Transportation (FAST) Building, June 

2012

• Great Lakes Regional Transportation Operations Coalition Active Transportation and 

Demand Management Summit, hosted by Illinois Tollway Authority in coordination with 

Wisconsin Traffic Operations and Safety Lab, September 2012

• Active Transportation and Demand Management Workshop, hosted by California 

Department of Transportation (Caltrans) District 12 Transportation Management Center, 

November 2012.

2.1.1 Key Peer Questions Regarding ATDM

Peers across the country consistently challenged implementing agencies to answer questions 

regarding ATDM and their approach to implementation. These questions spanned the breadth of 

issues facing agencies and pointed to the recurring challenges agencies face when considering 

new approaches to managing congestion in their jurisdictions. Table 2 provides a summary of 

questions that emerged during the various outreach workshops. The planning questions 

addressed broader ATDM where some of the design and operations questions were focused on 

the traffic management side of ATDM. The questions are not presented in any particular order 

but are organized by primary topic.
ATDM Program: Lessons Learned

14

Table 2. Key peer questions regarding ATDM.

Topic Area Key Question

Planning What approach is an implementing agency taking to include ATDM and the various 

strategies in the regional planning process?

What regulatory obstacles did the agency face when trying to implement ATDM? 

Did temporary shoulder use require any reevaluation of sound laws/mitigation 

measures?

How did the agency address any air quality issues regarding temporary shoulder use?

Did the agency conduct any modeling prior to implementation?

What performance measures is the agency using to determine success when 

implementing ATDM?

What type of public outreach and education did the agency undertake with the 

implementation of ATDM?

Design of 

ATM 

systems

How did the agency select specific signage for the implementation for ATM?

How did the agency handle striping of the shoulder lane?

How did the agency design the facility to accommodate dynamic lane use control?

How far apart did the agency space overhead signs for the installation? Has the agency 

experienced issues with visibility of those signs?

Have there been any concerns with the presence of too many signs providing too much 

information in the corridor?

Did temporary shoulder use present design issues with entrance and exit ramps?

Operations

of ATM 

Systems

What agency is responsible for operations and maintenance?

Did the agency have to hire additional staff to support operations?

How is the implementing agency collecting data, what data are being collected, and for 

what purpose is that data being used?

What is the benefit to deploying temporary shoulder use over having a permanent lane 

and using ATM to control usage?

Is there a benefit to using the right vs. the left shoulder for temporary shoulder use?

How is enforcement handled? What, if any, fines are associated with violations?

What is the regional experience with compliance with the regulatory strategies, 

particularly during off-peak periods?

How did the implementation of ATDM impact motorist service patrols in the corridor?

What has been the experience with incident management when dynamic lane use 

control is operational?

How did the agency procure the software to operate the system, and what does that 

software entail?
ATDM Program: Lessons Learned

15

2.1.2 Key Lessons Learned

In response to the litany of questions, peer institutions with experience in implementing ATDM 

provided insight into lessons learned throughout the entire project development process. 

Table 3, Table 4, and Table 5 provide a concise inventory of lessons learned that can be 

beneficial to other agencies considering ATDM approaches for their region. The lessons are 

organized by topic (planning, design, and operations) and responding agency. Planning lessons 

learned are broader and pertain to all aspects of ATDM. Since a majority of the deployments that 

were discussed in the workshops pertained to ATM, design and operations lessons pertain more 

towards ATM systems. The deployments discussed in the various workshops included:

• Deployment of temporary shoulder lane use in the Boston, MA region

• Use of buses on shoulders in Chicago, IL

• Use of priced dynamic shoulder lanes on I-35W in Minneapolis, MN

• Use of variable speed limits in Missouri

• Deployment of variable speed limits in Oregon

• Evolution of shoulder use on I-66 in Virginia

• Use of ATM in Seattle, WA.
ATDM Program: Lessons Learned

16

Table 3. Key ATDM planning lessons learned.

Agency Planning Lesson(s) Learned

FHWA ATDM is about how technology is used in operations in a dynamic manner. 

Existing investments in ITS provide the foundation for active management. 

It is important to conduct an inventory of existing assets, resources, and capabilities 

so an agency knows the state of its assets, what resources can be leveraged, and 

what capabilities can be expanded to implement ATDM.

ATDM strategies need stakeholder buy-in, which should include identifying the need 

and vision to be accomplished by the strategy, developing a communication plan with 

a consistent and overarching message, identifying the location of stakeholders that 

interact with the transportation system, looking for opportunities to integrate systems 

with partners and the public, and conducting early and continual outreach to partners 

and the public.

Illinois Involve multiple stakeholders for ATDM. The bus on shoulder project was a 

cooperative effort between Pace Transit, the Illinois Department of Transportation, the 

Regional Transportation Authority, and the Illinois State Police. 

Massachusetts Consider evolutionary approaches starting with the easy options. For example, 

no separate speed limits for shoulder use have been implemented, as it would require 

legislation to allow for variable speed limits, and some believe it would confuse 

drivers. Outreach consisted of a media campaign and working with the regional 

planning agencies to promote the temporary use of the shoulder as having the 

potential to save time and lives.

Minnesota It is important to be consistent with terminology and messaging and to 

determine that messaging early in the project. Obtaining buy-in from decisionmakers makes these projects easier to move forward. Stakeholder support from 

lawmakers is important to ensure success.

Missouri Missouri Department of Transportation (MoDOT) found success by focusing 

outreach on three key areas: expectations, enforcement, and media relations. 

Oregon It is important to take the time to educate law enforcement and other 

emergency responders, bring them into the conversation early, and have them 

accompany agency staff when meeting with the media.

Virginia For implementing variable speed limits on the Woodrow Wilson Bridge reconstruction 

effort, Virginia Department of Transportation (VDOT) conducted targeted outreach 

to courts and judicial offices to obtain buy-in and enforcement support, though 

some judges were not comfortable enforcing some citations.

Creating a good website with solid information, along with television, is 

effective to reach a wide audience.

Ensuring a consistent and clear message is essential to gain support from 

elected officials.

Washington It is essential to educate elected officials, the media, and the public on the 

project. This education should be early, often, and consistent in its message. This 

outreach can help advocate specific projects and lay the groundwork for future 

projects and concepts.

When planning a project, plan ahead for software design and 

software/hardware test procedures throughout the life of the project. Tweaks 

and continual adjustments will most likely be needed.

Carefully consider standard operating procedures. Spend time thinking beyond 

normal situations to identify appropriate procedures before they are necessary in the 

field.

Take advantage of emerging opportunities due to reconstruction or other 

programs which can support active management. 
ATDM Program: Lessons Learned

17

Table 4. Key design lessons learned for ATM Systems

Agency Design Lesson(s) Learned

FHWA Currently, agencies interested in proceeding with dynamic lane use control will 

need to get a design exception to use the shoulder as a travel lane, which can be 

coordinated through the FHWA Division Office. A request for experimental 

treatments is required if signing will be used that is not currently in the Manual on 

Uniform Traffic Control Devices (MUTCD).

The decision to deploy dynamic lane use control on the right or left side of the facility is 

case dependent and requires specific analysis.

At entrance and exit ramps, an agency can either make the shoulder lane an exit-only 

lane or allow vehicles to travel through the interchange on the shoulder.

Drainage issues need to be assessed when considering dynamic lane use control 

involving the shoulder.

Minnesota The sign structures that support the intelligent lane control signals (ILCSs) were 

designed with maintenance of the system in mind. The structures are a catwalk 

design allowing crews access to the equipment mounted over the roadway, 

including the hinged ILCS.

Design considerations for emergency pull-offs included a goal to locate them every half 

mile and make them 14 ft wide and a minimum of 200 ft long.

Oregon Oregon Department of Transportation (ODOT) utilizes a battery backup to help offset 

power and telecommunications issues in a rural location. 

Virginia The spacing of emergency refuge areas is not necessarily consistent, but the agency 

installed them wherever feasible.

A different color pavement is used to differentiate the shoulder from the general 

purpose lanes.

Washington The agency has tried to limit the usage of static signs and is keeping to MUTCD 

guidance for DMS spacing where possible.

Washington State Department of Transportation (WSDOT) uses a three-gantry rule 

whereby successive speed changes are not more than 15 mph. Gantry spacing is half 

a mile. Initially, speeds were held constant across all lanes, but now the system allows 

for speed differentials to allow higher speeds in the adjacent HOV lane, up to a 15 mph 

speed differential.

Camera coverage is essential to successful operations.
ATDM Program: Lessons Learned

18

Table 5. Key operations lessons learned for ATM Systems

Agency Operations Lesson(s) Learned

FHWA The benefits of dynamic lane use control may not be equal for both directions 

and both peak periods. It is recommended to review performance and modify 

the hours of operation as necessary to maximize the benefit for all directions 

and times.

There is a need to have at least two layers of performance measures, one for the 

agency’s operational purposes and the other for the public to convey benefits.

Illinois The bus on shoulder project has increased on-time performance from 68 percent to 

92 percent and has increased ridership on impacted routes.

Initial safety concerns of both Illinois Department of Transportation and Illinois 

State Police have been diminished, as there have been no incidents with buses 

using the shoulder lanes. 

Massachusetts A series of crash reviews found that approximately 20 percent of crashes occurred in 

or were a direct result of the temporary shoulder use, which was deemed acceptable. 

Without the strategy, congestion would be much more severe.

By allowing shoulder use, the agency has seen a reduction in incidents and an 

improvement in traffic flow, which helps offset the loss of the shoulder for 

emergency response.

Incident management plans were updated to reflect shoulder usage and new 

protocols. Response and lane control are coordinated. 

Extensive snow removal is deployed after significant snow events. For long-lasting 

storms, the temporary shoulder use is closed to accommodate snow storage.

Minnesota The availability of emergency pull-off areas beyond the shoulder can help 

facilitate incident management when dynamic lane use control is operational.

State police and freeway service patrol coordinate to ensure rapid incident response, 

and traffic management center (TMC) operators have the ability to close the shoulder 

if necessary.

Deploying temporary shoulder use impacts snow storage and increases the amount 

of roadway an agency has to plow during snow events.

Operations and maintenance are conducted in-house, and MnPASS (electronic toll 

collection) revenue does help offset some of the related costs. These operations 

involve full-time staff dedicated to the system.

Off-peak violations are high, so the shoulder was kept open during the day but closed

in the evening.

By allowing shoulder use, the agency has seen a reduction in incidents and an 

improvement in traffic flow, which helps offset the loss of the shoulder for 

emergency response.

Early results from the variable speed limits (advisory) show improvements in mobility, 

including throughput and minimum speed during congestion, as well as improvements 

in safety regarding speed differentials approaching congestion and reduced 

shockwave.

Initially, the project included pavement lighting to mark when the priced dynamic 

shoulder lane (PDSL) was open or closed. After 2 years, the system failed as a result 

of the harsh climate, but early results showed no distinguishable difference in 

violation rates of the PDSL with or without the in-pavement lighting. It will not be 

replaced.

Minnesota Department of Transportation (MnDOT) has full camera coverage of the 

shoulder lanes, so the agency is able to quickly spot debris and use the motorist 
ATDM Program: Lessons Learned

Table 5. Key operations lessons learned (Continued)

19

Agency Operations Lesson(s) Learned

safety patrol to clear any obstructions.

Missouri MoDOT initially deployed variable speed limits and then went to variable 

advisory speeds. When speeds are below 40 mi/h, the signs are blank since 

they cannot post anything lower on an interstate. 

To determine if the system is operational, MoDOT’s system has a built-in alarm 

system to alert operators if the system is not functioning properly. 

Virginia Law enforcement has grown to accept the intermittent use of shoulders as a 

way to help ease congestion on the roadways. Local county courts are 

receptive to the enforcement efforts of law enforcement with respect to the 

illegal use of shoulders.

A quick clearance program for disabled or wrecked vehicles has helped reduce 

response time of wrecker service to incidents.

Ensuring that emergency responders have the correct information to best select a 

route to the scene is critical.

A safety impact study found no significant difference in crashes between when the 

shoulder lane is open and when it is closed.

Washington When the system was initially activated, the data were unstable at lower speeds, 

resulting in frequent changes in posted speeds under stop-and-go conditions. This 

condition was not desirable and led to the use of 40 mi/h as the lowest speed, which 

was later lowered to 35 mi/h with a possible manual override of 30 mi/h. WSDOT 

was able to identify the cause of the instability and develop a solution, thereby 

bringing the posted speed limit closer in line with what motorists are experiencing.

WSDOT believes that activating additional signs in advance of congestion, rather 

than leaving them blank, will give additional warning to travelers of upcoming 

conditions and begin the process of reducing speeds earlier. This change will result 

in the initial gantries posting 60 mi/h and warning of congestion ahead. Subsequent 

gantries will step the speed limit down to 30 or 35 mi/h, depending on conditions. 

WSDOT uses DMS signs that are located on the side of ATM gantries to post travel 

times. DMSs post both a distance to downtown and a travel time. One possible 

message could read as follows: “Downtown Seattle 9 miles; Downtown Seattle 

20 minutes.” This message can help drivers better understand the extent of the 

congestion in which they are driving and help them make informed decisions 

regarding route choice. Initially, the side-mount signs posted the message “Reduced 

Speed Zone.” Changing this message to indicate travel time provides additional 

usable information that would change to reflect upcoming conditions while reinforcing 

the understanding that the system recognizes that drivers are in stop-and-go 

conditions. 

Data collection includes the use of loop detection for detector occupancy and an 

algorithm to convert the occupancy to speed. WSDOT originally looked at Bluetooth 

technology but did not find that it would provide sufficient coverage to serve this 

purpose. 

Compliance has been acceptable. Because of the gantry spacing, when drivers see 

one speed limit and then another reading the same speed within half a minute 

downstream, they seem to trust the system’s display.

Think about maintenance procedures and staff and how staff will gain access 

to equipment, how much time they will need to be out in the field (reliability), 

and what preventive maintenance can be done.
ATDM Program: Lessons Learned

20

2.2 ATDM Peer Exchange Workshop Themes

FHWA hosted a peer exchange workshop in 

Seattle in June 2011 to gather information and 

direction from key thought leaders from 

around the United States based on their 

collective experience with innovative 

transportation solutions and ATDM in 

particular. The key message that emerged 

from this peer exchange was that 

transportation system management, 

operations, and partnerships can save money 

and time, provide quicker mobility solutions 

to their customers and constituents, expand 

travel options and choice, provide a better 

return on investment, and provide overall 

stability and reliability to the transportation 

system.

2.2.1 Requirements 

Thought leaders agreed that there is a vital need to optimize the existing system. Transportation 

departments in particular need to shift their institutional and organizational culture from one that 

focuses on construction and deployment of the transportation system to one that focuses on 

managing and operating it. This shift will require leadership of executive management, 

leadership of and collaboration with all transportation system partners, and significant outreach 

to customers. Furthermore, transportation departments will need to shift from an engineering 

focus to an operations and management focus when addressing their congestion challenges. 

The urban setting is critical. The majority of mobility problems and challenges are in the cities 

and urban suburbs. The challenge lies in the fact that transportation departments and FHWA do 

not have responsibility for much of the urban infrastructure. Therefore, States need to foster 

partnerships with their cities, metropolitan planning organizations (MPOs), regional planning 

authorities, transit agencies, and other stakeholders as equal partners. Furthermore, they need to 

reach out to a broader and less traditional audience of partners that can be strong advocates for 

ATDM. These potential audiences might be 

elected community leaders; associations 

representing transit agencies, tolling agencies, 

and MPOs; the communications industry; 

high-tech firms; and other similar stakeholder 

groups.

2.2.2 A Customer Emphasis 

ATDM requires that agencies increase their 

emphasis on customers, who will want to know how they can directly benefit from ATDM. 

Agencies need to understand that customers are more than highway users and that they need to 

be seen as allies and advocates for ATDM. Providing real-time, accurate communications can 

help gain allies. It is also important to demonstrate where an altered institutional approach 

Transportation system management, 

operations, and partnerships can save 

money and time, provide quicker 

mobility solutions to customer and 

constituent problems, expand travel 

options and choice, provide a better 

return on investment, and provide 

overall stability and reliability to the 

transportation system.

ATDM requires that agencies increase 

their emphasis on the customer, who 

can directly benefit from ATDM.
ATDM Program: Lessons Learned

21

regarding ATDM has worked and emphasize the success achieved. Another key approach is to 

show customers what they gain from ATDM rather than focus on how the agency benefits. The 

use of polls and focus groups can help agencies understand the public’s perspectives and develop 

messages.

2.2.3 Technology’s Role

It is important for agencies to recognize that 

technology is not a substitute for building or 

managing the transportation system. They 

need not be on the cutting edge to manage 

their system efficiently. The fact that 

technologies change so rapidly could result in 

the public sector chasing technologies instead 

of maximizing what they have. The goal of 

agencies needs to be to maintain and/or 

operate their equipment or capital assets to its fullest extent. Technology can enhance 

management and operations, but it is not a panacea or the end result.

2.2.4 The Federal Role Change

Thought leaders encouraged FHWA to lead the ATDM charge by example. The agency has 

established a modally integrated team composed of individuals in the United States Department 

of Transportation (USDOT) and in the regions who focus more on management and operations 

than on engineering. The intent would be to learn from transportation operators, the public, and 

the private sector on how to optimize the existing infrastructure. Other needs include rethinking 

laws that may be obstacles to ATDM, particularly regulations that are current barriers to 

managing and operating a transportation system. Other efforts that can help facilitate ATDM 

include providing incentives to encourage transportation departments, MPOs, and transit 

agencies to move from a project-focused State transportation improvement plan (STIP) and 

transportation improvement plan (TIP) to a STIP and TIP committed to managing and operating 

a transportation system beyond specific project investments. Agencies can also benefit from 

FHWA serving as a source of undisputed data quality. 

2.3 ATDM Executive Session

FHWA hosted an executive peer exchange on ATDM in 2012 to further the discussion of ATDM 

at the executive level of transportation agencies. The purpose of the workshop was to provide 

FHWA with guidance and insight regarding how best to advance and adjust institutional culture 

and organizational strategies to include a more proactive approach to traffic management 

programs and identify the necessary organizational and cultural strategies within State, local, and 

regional transportation agencies to sustain these programs. The following sections highlight the 

themes that emerged from this executive peer exchange.

2.3.1 The Operations Story

Perhaps the most significant issue facing the transportation profession is that its future is very 

different from what was envisioned 50 years ago. Today, the focus is on making the system 

better and more efficient rather than building new infrastructure. This major organizational 

Technology is not a substitute for 

building or managing the 

transportation system. An agency 

does not need to be on the cutting 

edge to manage its system efficiently. 
ATDM Program: Lessons Learned

22

change is a result of numerous external 

pressures, particularly the emphasis on doing 

more with less. FHWA is putting a primary 

focus on improving operations to improve 

efficiency, manage resources, improve 

sustainability, and enhance cost-effectiveness, 

as well as on promoting a proactive approach. 

Proactive transportation system operations 

require data collection, monitoring, analytics, 

technology, integration, and 

planning/managing all of these factors. 

A need exists for government to make the shift from construction to operations, from being 

builders to becoming maintainers and operators. The challenge is that the transportation 

profession is primarily driven by civil engineering, whereas a primary avenue to successful and 

efficient operations is technology. It is difficult to keep pace with the rapid advancements in 

technology as well as identify a way to develop lifecycle costs for technologies. Technology 

requires changing institutional structures, developing new skills and capabilities for the 

workforce, and changing how the procurement process works.

Another challenge is looking at the transportation network from a holistic perspective. No 

longer can agencies focus only on the freeways. They must work cooperatively with other 

agencies to identify the best approach to managing the entire network, from the freeways to the

surface street system to the other modes that 

share the network, and provide mobility 

solutions to travelers. Capitalizing on public 

and private partnerships and identifying 

champions can help build an environment that 

sees opportunities to meet the needs of the 

public with innovative solutions.

Policies and regulations also present 

challenges to the deployment of ATDM approaches. ATDM approaches push the boundaries of 

operations, partnerships, and opportunities. Ensuring that laws are flexible enough to 

accommodate them and the myriad ways they are planned, developed, financed, and 

implemented helps move the state of the practice forward.

Effective communications is also essential to implementing ATDM on a broad basis. If agencies 

cannot convince the public that innovative approaches can help solve their problems, then they 

cannot hope to gain the attention of policymakers and decision makers. Members of the public 

can be vital partners, advocates, and champions. Consistent messages from all levels of the 

organization help sell the concept, especially when they resonate with the greater population and 

target issues that are of global concern, such as health and safety. How a message is crafted can 

make or break a project and a program. 

FHWA is putting a primary focus on 

improving operations to improve 

efficiency, manage resources, improve 

sustainability, and enhance costeffectiveness, as well as on promoting 

a proactive approach.

Agencies must work cooperatively to 

identify the best approach to 

managing the entire network and 

provide mobility solutions to travelers.
ATDM Program: Lessons Learned

23

2.3.2 Advancing ATDM Strategies

In the past, State and Federal highway programs were traditionally centered on roadway and 

bridge infrastructure expansion and preservation. Today, programs are increasingly broad, 

including system reliability, safety, and performance. Current financial constraints require 

transportation departments to look for alternative delivery, operation, and management 

approaches, and ATDM can help agencies work within these constraints to meet the needs of the 

traveling public. While ATDM is a work in progress, many successes support the institutional 

shift to management and operations.

ATDM can help address safety and congestion, but it relies on performance and proactive 

management of demand: doing more with existing assets and technologies. ATDM relies on 

real-time information, technology, pricing, 

and policy to support the broad categories of 

ADM, ATM, and APM. For ATDM to be a 

success, agencies need to build upon current 

technology to ensure deployment-ready 

applications.

Numerous barriers impede full 

implementation of ATDM. Given that, 

agencies need to address the challenges of 

transferability, guidance, data, modeling, 

institutional barriers, and limited 

communications. For example, institutional barriers such as data acquisition and accuracy

hamper the transfer of predictive travel times. Another example is that the general public may 

not see the value in variable speed limits since they may not reflect existing conditions. These 

issues emphasize the fact that messaging and perception may be the most difficult challenges to 

overcome. To that end, agencies need to be diligent in communicating the concept to the public 

so that they understand and buy into the approaches being implemented. 

Knowledge and technology transfer (KTT) tools are valuable in helping emphasize 

transferability and encourage and foster the implementation of ATDM concepts. KTT can take 

many forms, including outreach, workshops, traveling road shows, lessons learned, best 

practices, and target messages for a variety of audiences. It is also important to utilize the best 

communication mediums to get the message out to the right audience.

ATDM can help address safety and 

congestion, but it relies on 

performance and proactive 

management of demand: doing more 

with existing assets and technologies. 
ATDM Program: Lessons Learned

24

2.3.3 Developing an Agency’s Capability and Level of Maturity to Proactively Manage Its 

Transportation Systems

There is a need to institutionalize continuous improvement, which requires business processes, 

standardization, metrics, cultural acceptance, 

organizational development, and collaboration 

on a continual basis. The American 

Association of State Highway and 

Transportation Officials (AASHTO) currently 

has system operations and management 

guidance that offers a set of strategies to 

anticipate and manage traffic congestion and 

minimize the impacts of non-recurrent 

congestion on the system. (6) This guidance 

can serve as a starting point for developing a 

capability framework for ATDM. Such a 

framework can help ensure that ATDM 

becomes part of the vernacular and a natural consideration when facing the challenges of 

operating the system. Using this approach can help encourage the deployment of technology and 

see it as a key facilitating component of the solution. Furthermore, the framework can help 

agencies determine where they are on the ATDM continuum, where they want to be, and how 

they get there. 

There is a need to institutionalize 

continuous improvement, which 

requires business processes, 

standardization, metrics, cultural 

acceptance, organizational 

development, and collaboration on a 

continual basis.
ATDM Program: Lessons Learned

25Source: MnDOT

Figure 5. Minnesota: priced dynamic shoulder 

lane on I-35.

3.0 Moving from Idea to Implementation

When deploying ATDM, certain elements are beneficial to help ensure success. To that end, 

early adopters of ATDM in the United States provided insight into prerequisites for 

implementation, the project development process, resources to sustain the concept, and benefits 

they have seen as a result of ATDM. Specific enquiries focused on the following:

• What were some important attributes that allowed buy-in for the concept?

• What procedures were used for project planning, development, design, and procurement? 

What are some lessons and success factors?

• Who are your key internal and external stakeholders?

• How have you approached the planning of your project? Which agencies and partners 

have been parts of that process?

• What were the goals and objectives of the implementation?

• Do you feel that those objectives have been met? 

• What do you see as the primary external public benefits (e.g., to the traveling public or 

broader society) of the implementation? Were these benefits expected or unexpected?

• What do you see as the primary internal agency benefits (e.g., more effective at your 

jobs, cost efficiencies, improved agency perception/reputation, improved worker safety)? 

• What do you see as the primary internal agency costs/dis-benefits (e.g., higher 

maintenance and operations costs, more staff required, degraded agency 

perception/reputation)?

• What measures of effectiveness did you use/do you plan to use to assess the success of 

the implementation?

• How have you approached securing the funding of your implementation? 

This chapter provides a summary of the 

viewpoints of early adopters regarding these 

issues. The following projects are 

summarized:

• Minnesota: I-35W ATM project in 

Minneapolis – This project, as shown 

in Figure 5, involved the opening 

of an HOT lane segment in 

the Crosstown Commons section 

of I-35W South between Highway 

13 and downtown Minneapolis, 

which provided a 16-mi HOT lane 

in the northbound direction and a 

14-mi HOT lane in the 

southbound direction. The 

installation included the creation of 

a PDSL and the display of advisory 

speed limits in the corridor (ATM). (7)
ATDM Program: Lessons Learned

26

• Washington: I-5, SR-520, and 

I-90 ATM deployments in 

Seattle – The project featured 

the installation of ATM on I-5, 

SR-520, and I-90 in Seattle. 

As shown in Figure 6, the 

installation included lane 

control, DMS, and enforceable 

speed limit signage to alert 

drivers of delays and to direct 

drivers out of incident-blocked 

lanes. (8) The installations on 

SR-520 and I-90 were part of 

the FHWA Urban Partnership 

Agreement (UPA) project.

• California: Junction Control 

on the Northbound SR-110 

Connector to Northbound I-5 

in Los Angeles – The project 

involved the installation of time-of-day junction control in the northbound connector 

from SR-110 to northbound I-5 in Los Angeles. The project, implemented by Caltrans

and shown in Figure 7, was intended to improve safety and mobility on the connector and 

to eliminate the occurrence of drivers traveling on the shoulder of the connector during 

peak periods.

Figure 7. California: junction control on northbound SR-110. Source: Caltrans Source: Texas A&M Transportation Institute

Figure 6. Washington: ATM on I-5.
ATDM Program: Lessons Learned

27

• California: SFpark – SFpark is a demand-based parking pricing system deployed in 

downtown San Francisco with the intent to reduce traffic congestion related to parking. 

Using ITS technologies such as parking occupancy sensors, networked parking meters, 

and real-time parking information, parking prices are modified based on demand to 

optimize occupancy. (9)

• Georgia: HOT Lanes on I-85 in Atlanta – The Atlanta project involved the conversion of 

existing HOV lanes on I-85 into dynamically priced HOT lanes called express lanes. The 

project is located on a 16-mi portion of northeast I-85 from Chamblee Tuck Road to Old 

Peachtree Road. (10)

3.1 Keys Attributes for Success

Numerous factors have played into the success of the ATDM projects across the country. For 

instance, Minnesota credits strong partnerships and a multiagency organizational structure—with 

strong support from agency leaders—as helping the project from the outset. Partner agencies 

capitalized on strong working relationships to successfully implement and operate the project. 

The project’s diverse partners included MnDOT; the Twin Cities Metropolitan Council; Metro 

Transit; the City of Minneapolis; Minnesota Valley Transit Authority; Anoka, Dakota, Ramsey, 

and Hennepin counties; the Center for Transportation Studies; the Hubert H. Humphrey School 

of Public Affairs at the University of Minnesota; and the transportation management 

organizations in the area. 

With the UPA installation in Washington, leaders in the partner agencies (WSDOT, King 

County, Washington State Patrol, Puget Sound Regional Council, University of Washington, 

Washington State House and Washington State Senate, and Washington Transportation 

Commission) saw the need for the project in the beginning and were willing to pursue it in the 

political arena to ensure that it met the requirements for FHWA UPA funding. This need was 

supported by the preexisting regional strategies targeting mobility and effective investment in 

strategic capacity, operating existing assets more efficiently, and managing demand. (8) Strong 

partnerships and regular communication were the foundation of the project and helped ensure 

that the ATM projects and their related implementations met with success as well. 

In Los Angeles, internal teamwork helped ensure the success of the project, with one group 

concentrating on the safety aspects and another concentrating on the mobility and operations 

aspects. The selling point for the project that garnered 

buy-in was the fact that the project would address a 

major crash problem at the interchange of the 

northbound SR-110 connector to northbound I-5. The 

interchange, which is a left-hand exit onto northbound 

I-5, is one where demand exceeds capacity. Problems 

were arising with drivers jumping the queue on the 

connector by using the shoulder to form a second lane 

at the split. Caltrans realized that the need for the 

additional capacity was only during the peak period. 

Thus, staff decided to formally open the second lane 

going into the connector during the peak period. Any 

major reconstruction of the connector was not feasible 

Relationships, partnerships, 

teamwork, and continual outreach 

are key attributes for success.
ATDM Program: Lessons Learned

28

given the geography of the interchange and the inability to realign the ramp. The project was 

justified given that its intent was to improve safety and mobility at the interchange, recognizing 

that they go hand in hand.

Intra-agency coordination helped move the SFpark project forward, and the UPA project 

provided the region with the opportunity to advance the congestion pricing discussion. (9) The 

challenges with the project lay in the fact that the project scope shifted, modifying the roles and 

responsibilities of the partners and increasing tensions related to project ownership and authority. 

USDOT was asked to increase its coordinating role to help overcome some of these challenges 

as the partner agencies felt isolated. Furthermore, the overall challenges with inter-agency 

coordination limited joint outreach efforts. Despite these challenges, the San Francisco County 

Transportation Authority (SFCTA) and the San Francisco Municipal Transportation Agency 

(SFMTA) saw this project as a new way of doing business and increased their ability to work 

internally to coordinate activities. (9) The Metropolitan Transportation Commission (MTC) 

valued the project and thus allowed it to deliver enhancements to the 511 program, with the UPA 

project closing a funding gap. 

Preexisting relationships among the partners in Georgia helped facilitate the HOT lane project, 

and clearly defined roles and responsibilities ensured continual cooperation. (10) A shared 

commitment for the project also helped maintain the strong partnerships among the various 

partners: the Georgia Department of Transportation (GDOT), Georgia Regional Transportation 

Authority, State Road and Tollway Authority, Atlanta Regional Commission, Georgia 

Department of Public Safety, Metropolitan Atlanta Rapid Transit Authority, Gwinnett County 

Government, Clean Air Campaign, and Georgia Institute of Technology. The past successful 

working relationships between these partners helped spell success for the project. The project 

presented an opportunity to implement a strategy to reduce congestion using pricing, which was 

new to the region. All of the partners agreed on the selected facility and the fact that it offered 

an excellent opportunity to move forward to reduce congestion in the absence of the funds to 

increase capacity. Stakeholders also concurred that the hands-on role of USDOT helped keep 

the project moving forward, and strong support from elected officials was invaluable as well.

(10)

3.2 Goals and Objectives of Implementation

The first and perhaps most critical step in moving forward with an ATDM project is the 

establishment of project goals and objectives. Without these components, agencies will struggle 

with communicating the concept to stakeholders and partners and will not have a benchmark 

against which the project can be measured. Those agencies that have implemented ATDM 

strategies clearly established goals and objectives early in the project development. For 

example, the Minnesota UPA projects, of which ATM was a component, focused on reducing 

traffic congestion on the I-35W corridor and in downtown Minneapolis. Twenty-four 

multimodal projects were planned and implemented in tandem to facilitate this goal, including 

the PDSL intended to increase HOT lane usage in the region via connectivity to downtown. 

The goal of the ATM project on I-5 was to improve operations and reduce crashes. The overall 

goal of the Seattle UPA projects, which included ATM implementation, was to reduce traffic 

congestion along the Lake Washington Corridor. Another example is that the primary goals for 

the Los Angeles project were to improve safety and mobility on the connector. The goal of the 
ATDM Program: Lessons Learned

29

SFpark project was to reduce traffic congestion related to parking in downtown San Francisco. 

The objectives were to increase parking availability, reduce the number and duration of vehicle 

trips, and reduce double parking. (9)

The goal of the Atlanta Congestion Reduction Demonstration (CRD) project was to reduce 

traffic congestion in the I-85 corridor, primarily by introducing congestion pricing on the facility 

by converting the HOV lane to a HOT lane. By enhancing transit availability and facilities in the 

corridor, it was anticipated that congestion would decrease on I-85 in the project section and 

reliability would improve. In each of these instances, the implementing agency had clear, 

concise, and measurable goals and objectives that resonated with stakeholders and the public at 

large. This approach helps ensure that agencies focus on a consistent message that carries 

through the entire project and works in tandem with regional transportation goals. 

3.3 Measures of Effectiveness and Benefits

Once an agency establishes goals and objectives for a project, the companion step is for the 

agency to select appropriate measures of effectiveness (MOEs) to determine if the project meets 

those goals and objectives. The selection of MOEs also drives the data that an agency must 

collect to calculate the MOEs and the equipment that must be installed to gather such data. 

Furthermore, the MOEs help an agency communicate with stakeholders and the public regarding 

the project and its realized benefits.

Specific MOEs for the MnDOT project include 

volumes in the HOT lanes and the number of vehicles 

violating the occupancy requirements. Evaluation 

results indicate that use of the HOT lanes and PDSL 

by MnPASS users has increased since opening, and 

that MnPASS users have resulted in increased vehicle 

volumes in the HOT lanes. At the same time, 

significant numbers of carpools, vanpools, and buses 

use the HOT lanes at no cost during the morning peak 

hours. (7) The number of vehicles violating the 

occupancy requirements has declined over time. From 

the perspective of transit, the new and expanded parkand-ride lots have helped to increase usage, and bus 

ridership on routes serving the I-35W South park-andride lots has increased by 13 percent. Increased 

operating speeds for transit in the downtown area have 

been reported as well as increased operating speeds 

and reduced travel times in the HOT lanes. From an 

agency perspective, the partners see the project as a 

testament to the strong working relationships that are 

normal for the community and illustrate that they can successfully work through a complex 

project with diligence, communication, and collaboration.

Measures of effectiveness help 

an agency determine success in 

meeting project goals and 

objectives.
ATDM Program: Lessons Learned

30

The measures of effectiveness identified for the Washington UPA project include travel time and 

travel speeds, travel time reliability and variability, spatial and temporal extent of congestion, 

vehicle and person throughput, and user perception of congestion on facilities crossing Lake 

Washington. (8) Early analyses of the project indicate that average daily traffic volumes have 

decreased in the SR-520 corridor and reliability has improved in terms of median travel times 

and the 95th percentile travel time on SR-520. Median travel speeds have also increased. The 

ATM project on I-5 was intended to improve mobility in the corridor and help reduce crashes on 

the congested facility. Early findings have indicated that travel reliability has improved. 

Anecdotally, the ATM system was beneficial during a major closure of the Alaskan Way 

Viaduct as part of a reconstruction project. It has also improved merging at congested on-ramps 

in the downtown area. Overall, the traveling public has accepted the ATM signage, but some 

confusion remains regarding how to interpret the displayed variable speed limits when they are 

higher than actual travel speeds. (8)

The primary MOEs for the Los Angeles project are safety (crash rates) and delay on the 

connector (minutes). The primary benefits to the public have been an increase in safety and 

mobility on the connector. The SR-110 connector project has helped staff look beyond 

traditional solutions to address unique problems. Their hope is that it encourages more 

innovative thinking and risk-taking in the region in terms of trying a new approach. A project 

like this encourages others to pursue their own ideas of what they can do in terms of innovative 

solutions and look at different ways they can do their job. 

SFpark has a primary MOE of parking occupancy. This measure is the percent of time that a 

parking space is occupied by vehicles. Preliminary analyses conducted as part of the UPA 

evaluation suggest that pricing appears to be shifting parking to blocks experiencing a price 

decrease, but the magnitude of that impact seems to be site specific. (9) Another trend seen is 

that the shift appears to be somewhat larger in parking areas served by large employment centers 

rather than area wide. 

The MOEs for GDOT’s Express Lanes are travel time and travel speeds, travel time reliability, 

vehicle throughput, and user perception of congestion on I-85. Preliminary results from the UPA 

evaluation indicate that express lanes have been successful, though more definitive results are yet 

to come. To date, volume on the express lanes is growing, and lane performance has either 

improved or not degraded compared to when the facility operated as an HOV lane. (10) The 

related transit improvements also appear to have helped make the project a success. Transit 

service performance has improved since the opening of the I-85 express lanes. Park-and-ride lot 

use has increased in three of the four lots for which data are available, and average weekday 

ridership for bus routes that use the express lanes has increased in the peak periods since the 

opening of the facilities. (10)
ATDM Program: Lessons Learned

31

3.4 Project Dis-benefits

ATDM projects may have some unforeseen impacts or dis-benefits that require agencies to 

modify operations, consider different approaches for current or future applications, or implement 

mitigation strategies. Learning how other 

agencies have handled unanticipated 

challenges and dis-benefits can help 

agencies considering similar ATDM 

applications. Agencies can use past 

experience to identify methods to overcome 

potential drawbacks prior to implementation 

and to establish policies and procedures to 

mitigate future challenges. 

The speed harmonization that sets variable 

advisory speed limits (implemented in 

Minnesota) often results in lower speed 

limits being posted than might ordinarily operate on the corridor. These lower speed limits result 

in slower speeds and longer travel times on I-35W South. This result conflicts with those 

expected from the other improvements in the corridor, which are intended to increase speeds and 

reduce travel times. (7) It is likely that these operational improvements may result in improved 

trip-time reliability and increased throughput, though the complex implementation of the diverse 

improvements in the corridor make it impossible to fully assess the impacts of these individual 

competing strategies.

Operational support for the ATM systems in Washington has most likely had the largest impact 

on WSDOT. As a result of implementing ATM, 3.5 full-time employees were added to the 

regional traffic management center, and operations migrated to 24/7 operations. The number of 

electronic signs increased from 60 to 300, which increased the agency’s maintenance budget and 

responsibilities. WSDOT has made efforts to secure dedicated funds for maintenance of the 

ATM system to ensure that operations do not suffer over the long term. 

The largest dis-benefit from the Los Angeles project is maintenance. The topography and 

physical attributes of the corridor make the system a challenge to maintain, and staff members 

are hesitant to make maintenance calls for the implementation, especially for anything that 

requires a lane closure. The in-pavement lighting and dynamic message signs are also a 

maintenance challenge. Operations personnel have worked diligently to meet with maintenance 

personnel to work out these issues, and they believe that many of the issues have been mitigated. 

The nature of the project means that the agency has devices that they have not used before in this 

application, which presents a challenge and is maintenance-intensive. A good lesson learned is 

that if the agency plans to deploy this in the future, maintenance input will be valuable from the 

beginning. 

Another challenge of the Los Angeles project has been the fact that operations personnel were 

not familiar with overseeing the operation of such a unique deployment, so they may not have 

had the necessary skills to be as efficient as possible. Engineers and TMC staff are responsible 

for overseeing operations and assessing how the project has impacted mobility, travel time, 

ATDM projects may have some 

unforeseen impacts or disbenefits that 

require agencies to modify operations, 

consider different approaches for current 

or future applications, or implement 

mitigation strategies. 
ATDM Program: Lessons Learned

32

speeds, delay, etc. This type of project requires analyzing data and operations differently, and 

staff may not necessarily have the skills or expertise to be able to say how it should operate. 

The most significant challenge associated with the SFpark project was the organizational 

tensions between the partners. The project shifted focus away from a major road pricing and 

reconstruction project to a demand-based parking project. This shift meant a shift in the UPA 

lead agency from SFCTA to SFMTA, which in turn affected the partnership collaboration, as 

SFMTA had the sole authority to plan, implement, and deliver the project since it was based on 

parking pricing. 

The primary drawback for the I-85 express lanes in Georgia to date has been the fact that the 

formation of 3+ carpools continues to be a challenge. Preliminary results of the evaluation also 

indicate that the effects on the general purpose lanes may be mixed. (10)

3.5 Securing Funding

Funding for ATDM, as with all other transportation projects, can be a challenge. Experience has 

shown that agencies are successful at securing funding for ATDM when it is part of a larger, 

more comprehensive project that may already be in the planning stages. Leveraging resources 

with partnering agencies has also proved fruitful. 

The Minnesota ATM and PDSL projects were part of the larger UPA project funded by the 

USDOT. The significant amount of Federal 

funding available through the UPA was a key 

mechanism for bringing the myriad of agencies 

and partners together in the initial application. 

The mix of funding and the flexibility in 

applying the funds were also important factors 

in the deployment process. (7) Specifically, 

non-Federal funding was used to pay for a 

Results Only Work Environment pilot program 

to increase teleworking and flexible work 

schedules in the I-35W corridor and to 

construct a southbound auxiliary lane on I-35W 

from 106th street to TH-13. (11)

The I-5 ATM project in Seattle was funded as 

part of a larger project, the SR-99 Alaskan Way 

Viaduct Replacement project. Funding for that 

project originated from a variety of sources, 

including gas taxes, State transportation funds, traditional Federal funds, local funds, toll 

revenues, and the Port of Seattle. Federal grant funding was secured for the UPA program. 

This included $43.7 million for the technology (ATM) portion of the program. (12)

Since the deployment of the Los Angeles project had a safety focus, Caltrans secured safety 

funding for the implementation. The crash rate was six to eight times what would be expected 

on a typical connector. Thus, Caltrans requested funds from the State Highway Operation and 

Leveraging resources with partners and 

incorporating ATDM in larger projects 

has helped agencies secure funding.
ATDM Program: Lessons Learned

33

Protection Program for the project, demonstrating that the agency was using technology to solve 

a safety problem. 

SFpark was funded through the USDOT UPA program. The funds aided MTC in closing a gap 

in its resources to implement 511 upgrades to enhance traveler information in the region. The 

project served as a mechanism to pilot congestion pricing in the region as well.

As with many of the other deployments, the Atlanta CRD was funded through the FHWA UPA 

program. The funds facilitated the introduction of congestion pricing in the region and also 

offered the opportunity to upgrade transit service on the congested I-85 corridor. The funds were 

also instrumental in implementing the new technologies necessary to make the project viable.

3.6 Improvements for Future Deployments

To promote the deployment of ATDM approaches on a broad basis, agencies are encouraged to 

include them in their long-range planning process and to consider specific implementations as 

they move forward with management and operations of their networks. Specific issues related to 

future deployments and planning for ATDM include but are not limited to anticipating future 

ATDM deployments and operational approaches, incorporating ATDM in a region’s congestion 

management process, and considering features in future facilities that might accommodate 

ATDM.

ATM was recently included in the MnDOT 

Metro District Highway Investment Plan 

2011–2030. (13) Specifically, the plan 

outlines a new investment strategy that 

recognizes that while congestion will not be 

eliminated within current fiscal constraints, its 

impacts can and must be mitigated to the 

fullest extent possible in order to preserve 

mobility levels essential to the region’s 

economic vitality and quality of life. To that 

end, the plan recommends that ATM 

applications be implemented system wide to 

smooth the effects of congestion and reduce 

the number of incidents. Specific ATM approaches noted in the plan include traveler 

information systems, incident response programs, dynamic signing and rerouting, dynamic 

shoulder lanes, hard shoulder running, speed harmonization, and queue warning. (13) The plan 

notes that comprehensive ATM implementation can be more effective when combined with other 

corridor-wide improvements, such as the construction of a new managed lane. However, it 

recognizes that more limited ATM strategies can be implemented in an effective manner, on a 

case-by-case basis, to improve freeway and non-freeway highways. 

WSDOT assessed the feasibility of ATM strategies in the Seattle region in 2008. The agency 

used the results to incorporate ATM into the regional ITS architecture and develop a concept of 

operations, which helped move the concept into implementation. WSDOT has adopted a policy, 

titled Moving Washington, which emphasizes the investment of resources in an integrated 

manner to operate the network more efficiently, to manage demand, and to strategically add 

To promote the deployment of ATDM 

approaches on a broad basis, agencies 

are encouraged to include them in 

their long-range planning process and 

to consider specific implementations as 

they move forward with management 

and operation of their networks. 
ATDM Program: Lessons Learned

34

capacity. (14) ATM has become part of that dialogue and is being considered in other corridors 

that are in need of attention. Moving forward, WSDOT has identified specific issues that can be 

considered to facilitate implementation. First, it is important to coordinate early with FHWA on 

sign messages, given that there are few accepted standards for MUTCD messaging. ATM 

messaging is the key mechanism for communicating with the traveling public, and working with 

FHWA is a key to success in that arena. Second, projects can benefit from the development of 

standard operating procedures. Partner agencies should spend time thinking beyond the normal 

situations to ensure that plans are in place when an unusual event occurs. They should also plan 

ahead to work through testing procedures prior to deployment to ensure that issues are addressed. 

Finally, education is essential—early, often, and continual. Agencies should take advantage of 

all media platforms to ensure that their messages are delivered to the right audience throughout 

the life of the project. 

To date, ATDM is not the long-range planning process in the Los Angeles region. Momentum 

exists to move the concept into planning for the future in the region. The LA Metro (Los 

Angeles Regional Transportation Authority) highway program is taking a greater interest in 

operations and maintenance of the State highway and freeway system and getting more engaged 

in ITS. They are working with other regional and sub-regional agencies to look at deploying 

ITS-type projects on freeways, and while ATDM is not necessarily mentioned as a program, it is 

likely that some of the concepts will get into the regional planning process. While ATDM has 

not been branded as such in the region, agencies have been deploying approaches. Currently, 

ATDM is not identified as a strategy in the congestion management process (CMP). 

Caltrans is likely to consider a variety of approaches and is working to secure funding to conduct 

a feasibility study and a preliminary concept of operations for ATM strategies in the district. 

This study is intended to be the first step, with the hopes that it could lead to implementation. 

Caltrans is not sure of the right strategies or where they should be implemented, so hopefully the 

study can help with that issue. The agency wants ATM as something to consider. It is being 

discussed from a planning perspective, though many issues make staff apprehensive, including 

the fact that many approaches can be very expensive. Caltrans is looking for criteria to use to 

determine what applications would be appropriate. The extra lane at the junction currently 

operates over a fixed time: from 3:00 to 7:00 p.m. Monday through Friday. Caltrans is 

considering moving to dynamic operations and connection of the application to the TMC. 

As with the Los Angeles region, ATDM is not currently part of San Francisco’s long-range 

planning process. The SFpark project has provided a starting point to consider, including similar 

approaches into planning for the future in the region. Currently, ATDM is not in the CMP for

the region either. However, SFCTA continues to pursue congestion pricing initiatives for the 

city, which indicates that the region sees the value of road pricing to mitigate congestion.

To date, ATDM approaches are not in the GDOT long-range planning process or CMP for the 

region. However, the success of the CRD may help bolster the consideration of other ATDM 

approaches if the public reaction is positive. The strong support received from elected officials 

shows promise moving forward. Also, the area will vote on an increase in the local sales tax 

next year to address the need for operating funds for the CRD. Should this initiative be passed 

by the voters, it could indicate that ATDM is seen as a viable congestion-reduction approach for 

the region. If the Atlanta CRD proves successful and viable with the public, it may serve as a 
ATDM Program: Lessons Learned

35

precedent for considering other innovative approaches to managing congestion. GDOT is 

already working to implement variable speed limits on I-285 as an additional measure to address 

congestion in the region. (15)
ATDM Program: Lessons Learned

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ATDM Program: Lessons Learned

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4.0 Discussion

In response to the growing pressure for agencies to do more with less and address congestion 

challenges from all aspects of the network, the Federal Highway Administration (FHWA) is 

working to promote a dynamic approach to manage the transportation network. The approach

seeks to optimize performance and increase efficiency throughout the entire trip chain as seen 

from the traveler’s perspective. Termed Active Transportation and Demand Management 

(ATDM), the program advances the ability to manage, control, and influence travel demand, 

traffic demand, and traffic flow of transportation facilities. 

The program builds off the existing investments that state and local agencies have made in 

transportation systems management and operations. Investments on our transportation facilities 

are wide-ranging and include monitoring systems (detectors), communication backbones, 

advisory systems (message signs, highway advisory radios), field personnel and vehicles (safety 

service patrols), centers (traffic management centers), public information portals (websites, 511), 

control systems (traffic signal systems, ramp meters, road/lane closure systems), and operational 

information exchanges (Computer Aided Dispatch [CAD] integration, data warehousing). 

Leveraging these investments to realize a greater degree of real-time, dynamic management and 

operational capability is the primary goal of the program. 

Active management is a tactical approach to operating systems, programs, and technologies 

differently; focusing on applying more “hands on” and dynamic approaches through real-time 

and predictive analyses. ATDM creates an environment where the occurrence and effects of 

problems can be reduced. 

ATDM builds upon existing capabilities, assets, and programs and enables agencies to leverage 

existing investments — creating a more efficient and effective system and extending the service 

life of existing capital investments. All agencies and entities operating transportation systems 

can advance toward a more active management philosophy. This report documents the lessons 

learned and critical issues related to the deployment of ATDM across the country to date. It is 

the intent of this document to help other agencies across the country learn from their 

predecessors’ experiences and work to move ATDM forward in their communities in the most 

appropriate ways to meet their regional goals and objectives and enhance mobility and the 

quality of life for the American traveler. 
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References

1. FHWA. ATDM Program Brief: An Introduction to Active Transportation and Demand 

Management. Washington, DC : FHWA, U.S. Department of Transportation, 2012. Report No. 

FHWA-HOP-12-032.

2. Highways Consultancy Group-Highways Research Group. M42 MM Monitoring and 

Evaluation Three Year Safety Review. London, England : Highways Agency, Department for 

Transport, 2012. Report No. 275509/HWY/ITS/002/B.

3. Berman, W., et al., et al. Managing Travel Demand: Applying European Perspectives to U.S. 

Practice. Alexandria, VA : American Trade Initiatives, 2006. Report No. FHWA-PL-06-015.

4. FHWA. ATDM Program Brief: Active Demand Management. Washington, DC : FHWA, U.S. 

Department of Transportation, 2012. Report No. FHWA-HOP-13-002.

5. FHWA. ATDM Program Brief: Active Parking Management. Washington, DC : FHWA, U.S. 

Department of Transportation, 2012. Report No. FHWA-HOP-12-033.

6. American Association of State Highway and Transportation Officials. AASHTO System 

Operations and Management Guidance. [Online, accessed 03/29/2013] 

http://www.aashtosomguidance.org.

7. Battelle. Minnesota Urban Partnership Agreement: National Evaluation Report. Columbus, 

OH : Battelle, 2012. Draft Report.

8. Battelle. Seattle/Lake Washington Corridor Urban Partnership Agreement - National 

Evaluation: Interim Technical Memorandum on Early Results. Columbus, OH : Battelle, 2012.

9. Battelle. San Francisco Urban Partnership Agreemnet-National Evaluation: Interim 

Technical Memorandum on Early Results. Columbus, OH : Battelle Memorial Institute, 2012.

10. Battelle. Atlanta Congestion Reduction Demonstration-Interim Technical Memorandum on 

Early Results. Columbus, OH : Battelle Memorial Institute, 2012.

11. U.S. Department of Transportation and Minnesota Department of Transportation.

Urban Partnership Agreement-Execution Copy. Minnesota Department of Transportation. 

[Online, accessed 03/29/2013] http://www.dot.state.mn.us/upa/agreement.pdf.

12. Washington State Department of Transportation. Lake Washington Congestion 

Management. Washington State Department of Transportation. [Online, accessed 03/29/2013] 

http://www.wsdot.wa.gov/Projects/LkWaMgt/.

13. Minnesota Department of Transportation. Mn/DOT Metro District: 20-Year Highway 

Investment Plan 2011-2030. Minnesota Department of Transportation. [Online, accessed 

03/29/2013] 

http://www.dot.state.mn.us/planning/stateplan/Final%20Plan%20Documents/Highway%20Invest

ment%20Plans/District/PDF/Metro%20District%20Highway%20Investment%20Plan.pdf .
ATDM Program: Lessons Learned

40

14. Washington State Department of Transportation. Moving Washington. Washington State 

Department of Transportation. [Online, accessed 03/29/2013] 

http://www.wsdot.wa.gov/movingwashington.

15. Atlanta Journal-Constitution. "Variable speed limit signs to go up on I-285". Atlanta 

Journal-Constitution. [Online, accessed 03/29/2013] 

http://www.ajc.com/news/news/transportation/variable-speed-limit-signs-to-go-up-on-i285/nSGPs/.

U.S Department of Transportation

Federal Highway Administration

Office of Operations

1200 New Jersey Avenue, SE

Washington, DC 20590

Office of Operations Web Site

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

March 2013

FHWA-HOP-13-018