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909 Transportation Systems Management and Operations (TSMO)

Several foundational documents guide MoDOT’s TSMO program:

• TSMO Program and Action Plan – outlines MoDOT’s statewide TSMO vision, goals, and implementation strategies.
• TSMO Informational Memoranda – provides background, technical details, and
• TSMO Benefit-Cost Reference Memo – provides the benefit-cost information on TSMO applications that are critical to MoDOT’s TSMO program and future work.
• Work Zone Management Guidebook – provides a comprehensive set of tools and strategies for work zone management and describes “advanced work zone” practices, guidance, and resources
• Connected and Automated Vehicle Action Plan – articulates MoDOT’s mission, vision, strengths, and strategic focus areas for leveraging CV/AV technologies, and lays out actions across institutional capability-building, outreach and education, and partnership development to support safe, efficient deployment.

Transportation Systems Management and Operations (TSMO) consists of operational strategies and systems that cost-effectively optimize the safety, reliability, efficiency, and capacity of the transportation system. TSMO emphasizes maximizing the performance of the existing system through proactive management and operational improvements.

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909.1 Introduction to TSMO

909.1.1 Overview of TSMO Strategies

TSMO strategies are the day-to-day operational actions MoDOT uses to actively manage the transportation system and address the primary causes of congestion without relying solely on capacity expansion.

Congestion generally falls into two categories:

• Non-recurring delays arise from unplanned or irregular events such as incidents, disasters, weather, work zones, and special events. These disruptions are inherently unpredictable, vary in severity and duration, and often require dynamic traffic management and interagency coordination to reduce their impact.
• Recurring delays occur regularly at specific locations, most often during peak traffic periods. This type of congestion is usually the result of demand exceeding the capacity of the existing system. Transportation agencies do not have the resources to construct enough highway capacity to eliminate all recurring congestion. Instead, TSMO strategies provide more cost-effective ways to manage demand and improve flow.

By addressing both types of congestion, TSMO supports MoDOT’s mission of moving Missourians safely and reliably while making the best use of available resources. These strategies are organized based on whether they address non-recurring delays or recurring delays, as described below.

909.2 Non-Congested Route (Non-Recurring Delays) – These strategies focus on managing temporary (whether short-term or long-term) capacity reductions caused by irregular or time-limited events that disrupt normal traffic conditions, with the goal of restoring mobility and safety efficiently and consistently.

• 909.2.1 Traffic Incident Management: Coordinates detection, response, and clearance across multiple agencies to minimize secondary crashes and return roadways to normal operation quickly.
• 909.2.2 Transportation Operations for Emergency Incidents or Disasters: Supports system readiness and coordinated response during natural or human-caused disasters through planning, communication, and multimodal evacuation procedures.
• 909.2.3 Road Weather Management: Integrates environmental monitoring, data-driven decision support, and targeted maintenance to mitigate the effects of adverse weather on safety and mobility.
• 909.2.4 Work Zone Traffic Management: Applies smart work zone technologies and comprehensive traffic management plans to maintain safe and reliable travel through construction and maintenance areas.
• 909.2.5 Planned Special Event Management: Coordinates transportation, enforcement, and communication activities for scheduled events to maintain efficient system operations and traveler safety.

909.3 Congested Route (Recurring Delays) – These strategies address predictable and routine congestion caused by daily travel demand and capacity constraints on specific facilities or corridors, emphasizing active traffic management, system integration, and multimodal coordination.

• 909.3.1 Freeway Operations and Management: Improves freeway performance through corridor-level monitoring, adaptive control, and coordinated operations to enhance safety and travel-time reliability.
• 909.3.2 Arterial Operations and Management: Optimizes signal timing, intersection design, and corridor coordination to improve mobility and safety on surface streets.
• 909.3.3 Freight Operation: Enhances the efficiency and safety of freight movement through improved access, parking management, and technology-based monitoring along key freight corridors.
• 909.3.4 Vulnerable Road Users: Improves safety, accessibility, and comfort for VRUs through targeted infrastructure, operational strategies, and multimodal coordination.
• 909.3.5 Transit Operation: Strengthens transit reliability and accessibility through operational strategies such as priority treatments, multimodal hubs, and corridor management.

909.1.2 Relationship with Other Programs

TSMO is not a standalone initiative—it complements and enhances MoDOT’s other programs:

• Safety Programs: TSMO contributes to MoDOT’s safety goals, as outlined in the Strategic Highway Safety Plan and the SAFER Program (see EPG 907.9 Safety Assessment For Every Roadway (SAFER)), by reducing secondary crashes, improving work zone management, and advancing road weather management capabilities.
• Asset Management: Proper maintenance of TSMO strategies and supporting systems can improve how facilities operate, reduce incidents that accelerate wear, and extend the life of infrastructure investments.
• Planning and Design: TSMO principles should be incorporated early in the planning and design process so that operational strategies are built into projects from the start.
• Maintenance: Maintenance activities can be coordinated with TSMO tools such as smart work zones and ITS devices to reduce traffic disruptions.
• Traveler Information: TSMO strengthens customer service by providing real-time, accurate, and actionable information to the traveling public.

In practice, TSMO serves as the operational thread that connects safety, planning, design, maintenance, and customer service into a unified system-management approach.

909.1.3 Roles and Contributions for TSMO Implementation

This guide is designed to provide MoDOT staff and partners with a clear, practical reference for TSMO strategies. Table 909.1.3 highlights the typical roles and potential TSMO contributions of different staff in implementing and supporting TSMO strategies, as applicable based on project context, needs, and available resources. These contributions are intended to guide coordination and consideration of TSMO strategies and may vary depending on the specific application.

Table 909.1.3. Typical Roles and Potential Contributions for TSMO Implementation

Role	Potential TSMO Contribution
Transportation Management Center (TMC) Operator	Monitor traffic conditions, manage information systems, and coordinate incident response and traveler communication to maintain safe and efficient roadway operations.
Emergency Response Operator	Provide on-scene incident management, motorist assistance, and roadway clearance to restore normal traffic flow and enhance safety during disruptions.
Maintenance Technician	Implement maintenance related TSMO strategies; provide feedback and effort for continual improvement of these strategies and tools.
Traffic Operations Engineer	Implement traffic operations related TSMO strategies; provide feedback and effort for continual improvement of these strategies and tools.
Transportation Planner	Incorporate TSMO and other traditional transportation improvement strategies into planning efforts, as appropriate.
Design Staff	Consider TSMO as a key element of design, where applicable, either as a direct improvement for the specific application or as an opportunity for the continuation of existing TSMO strategies.
Construction Inspector	Coordinate with appropriate personnel when modifying design elements or inspecting TSMO related infrastructure.
Work Zone Specialists	Oversee temporary traffic control in construction zones; review and manage Transportation Management Plans (TMPs), ensure proper setup and quality of traffic control devices, assess risks, and provide input during planning and post-construction reviews to enhance safety and minimize disruptions.
Information Systems Manager	Provide oversight and management of field and central communications systems, computer and software, and other information systems resources.
Human Resources Specialist	Incorporate relevant related skills and experience into position descriptions where TSMO expertise is needed; assist with training programs to improve the knowledge, skills, and abilities of existing operations personnel.
Emergency Management Agencies	Support TSMO implementation by providing coordinated incident response, traffic control, emergency medical services, and roadway clearance; collaborate with MoDOT and TMC staff, when applicable, to improve incident management, responder safety, and system recovery during emergencies and planned events.

909.1.4 TSMO Implementation Framework

The TSMO Implementation Framework provides a structured approach for MoDOT to translate its mission and agency goals into actionable objectives and strategies. It supports the development of purpose-driven, measurable strategies aligned with statewide priorities. This framework serves as a bridge between MoDOT’s overarching mission and the specific strategies implemented across the TSMO program. Effective implementation of these goals relies on coordination across disciplines, integration throughout project phases, and collaboration with internal and external partners.

Table 909.1.4.1 identifies the core programmatic elements, MoDOT’s goals and associated objectives, that guide how TSMO is planned, implemented, and evaluated.

Table 909.1.4.1 Programmatic Element

Goal	Objective
Safety	Reduce crash frequency and severity through proactive deployment of TSMO strategies (e.g., incident management, work zone safety, network operations).
Reliability	Support predictable and consistent travel times across the system by proactively managing congestion and incidents.
Efficiency	Operate MoDOT’s existing system efficiently and effectively through the application of TSMO strategies, as appropriate, to improve performance and inform decisions regarding potential capacity expansion.
Customer Service	Support timely, accurate, and useful traveler information that enables informed decision-making.

Table 909.1.4.2 links MoDOT’s mission to measurable outcomes and example TSMO strategies, demonstrating how operations initiatives directly support statewide goals.

Table 909.1.4.2. Linking MoDOT Mission to Outcomes and Example TSMO Strategies

Mission	High-Level Outcome	Example TSMO Strategy
Improving safety (Moving Missourians safely)	Reduction in crashes, fatalities, and serious injuries; safer travel for all users	• 909.2.1 Traffic Incident Management • 909.2.3 Road Weather Management • 909.2.4 Work Zone Traffic Management • 909.3.1 Freeway Operations and Management • 909.3.2 Arterial Operations and Management
Providing high-value, impactful solutions (Delivering efficient and innovative transportation projects; asset management)	Cost-effective improvements that maximize existing infrastructure and delay costly expansions	• 909.3.1 Freeway Operations and Management • 909.3.2 Arterial Operations and Management • 909.3.3 Freight Operation • 909.3.4 Vulnerable Road Users
Improving reliability and mobility (Operating a reliable transportation system; Building a prosperous economy for all Missourians)	Predictable travel times and improved system performance for people and freight	• 909.2.2 Transportation Operations for Emergency Incidents or Disasters • 909.2.4 Work Zone Traffic Management • 909.2.5 Planned Special Event Management • 909.3.1 Freeway Operations and Management • 909.3.5 Transit Operation
Providing useful and timely traveler information (Providing outstanding customer service)	Informed travel decisions by the public, increased user satisfaction	• 909.2.2 Transportation Operations for Emergency Incidents or Disasters • 909.2.3 Road Weather Management

909.1.5 Performance Metrics

Performance metrics provide the foundation for evaluating how TSMO strategies contribute to the safety, reliability, efficiency, and customer experience of Missouri’s transportation system. MoDOT currently tracks performance through a combination of federal performance measures and internal performance management tools (e.g. Tracker: Measures of Departmental Performance). The following tables present example performance measures that may be used to assess the effectiveness of TSMO strategies related to both non-recurring delays (Table 909.1.5.1) and recurring delays (Table 909.1.5.2).

These measures are not intended to represent required or standalone reporting metrics, but rather a menu of potential measures that can support analysis, planning, and evaluation efforts, as appropriate to the specific application, study type, or operational need. When applied, these metrics can help users identify opportunities for improvement and support data-driven decision-making.

Table 909.1.5.1 Linking MoDOT TSMO Strategies for Non-Recurring Delays to Performance Metrics

Strategy	Goals	Example Performance Metric
909.2.1 Traffic Incident Management	Enhance the safety of traveling public and incident responders	• Number of secondary crashes per incident • Severity (fatalities/serious injuries) of secondary crashes • Percent of incidents with secondary crashes recorded • Number of responders struck-by crashes • Severity of responder-involved crashes • Percent of incidents with responder crash data recorded
	Enhance reliability and efficiency of Missouri’s transportation system	• Average roadway clearance time • Average incident clearance time • Percent of incidents meeting clearance time targets
	Strengthen coordination, communication, and collaboration between MoDOT and TIM partners	• Number of formalized agreements signed • Number of multi-agency TIM meetings held annually • Number of TIM trainings held annually • Partner participation rate in meetings/exercises
	Establish TIM policies, procedures, and protocols within MoDOT	• Number of formal TIM policies/protocols adopted • Percent of TIM coordinator positions filled and active
909.2.2 Transportation Operations for Emergency Incidents or Disasters	Enhance safety and responder protection during emergency incidents	• Number of emergency-related crashes • Severity (fatal/serious injury) of emergency-related crashes • Percent of emergency incidents with responder safety data recorded
	Improve reliability and speed of emergency response and system restoration	• Time to activate emergency operations • Duration of emergency lane/road closures • Percent of priority routes restored within target timeframes • Emergency communication system uptime • Average time to deploy emergency traffic control
909.2.3 Road Weather Management	Improve safety under adverse weather conditions	• Number of weather-related crashes, fatalities, and serious injuries • Crash rate per weather event
	Enhance operational readiness and timely roadway treatment	• Time to treat priority routes during storms • Percent of network treated within specific time thresholds • Materials usage efficiency (salt, brine, abrasives)
	Improve traveler information accuracy during weather events	• Traveler information system accuracy rate during storms • Number of travel information interactions (511 apps, CMS messages)
909.2.4 Work Zone Traffic Management	Enhance safety for workers and motorists in work zones	• Number and rate of work zone crashes • Number of work zone fatalities and serious injuries • Number of work zone intrusions (near-miss events)
	Improve mobility and reduce unexpected work zone delays	• Work-zone related delays • Percent of work zones meeting mobility targets (queue length, speed, travel time) • Average incident clearance time for work zone-related incidents
909.2.5 Planned Special Event Management	Ensure safe travel conditions during special events	• Number and rate of special event-related crashes • Vulnerable Road User (VRU) level of comfort/safety index near event venues
	Improve mobility and minimize event-related congestion	• Travel time reliability during event periods • Vehicle and pedestrian throughput at key access points • Percent of events meeting planned operational performance targets

Table 909.1.5.2 Linking MoDOT TSMO Strategies for Recurring Delays to Performance Metrics

Strategy	Goals	Example Performance Metric
909.3.1 Freeway Operations and Management	Support safety on managed freeway facilities	• Number and rate of crashes on freeway segments • Number of secondary crashes
	Improve travel reliability on freeway corridors	• Travel time reliability index • Planning time index
	Enhance operational efficiency on freeway corridors	• Average travel speed and delay • Vehicle and truck throughput • Number of recurring congestion hotspots mitigated
909.3.2 Arterial Operations and Management	Enhance safety at signalized intersections and arterials	• Crash frequency and severity at signalized intersections • Pedestrian and bicycle crash rate
	Improve efficiency of arterial traffic flow	• Arterial travel time and delay • Signal progression quality (arrival on green, bandwidth) • Number of mitigated congestion hotspots
	Enhance reliability of multimodal arterial operations	• Transit signal delay at signals (if applicable) • Pedestrian crossing delay
909.3.3 Freight Operation	Improve efficiency on key freight corridors	• Truck delay at bottlenecks • Freight throughput (corridor or intermodal facility)
	Enhance reliability of freight travel	• Truck travel time reliability index • Number of freight-related congestion hotspots mitigated
909.3.4 Vulnerable Road Users	Enhance safety and comfort for Vulnerable Road Users (VRUs)	• Number and rate of VRU crashes • VRU level of comfort/safety index
	Improve connectivity for walking and bicycling	• Miles of connected pedestrian/bicycle facilities • Percent of network meeting connectivity standards
	Support sustainable, multimodal travel options	• Share of trips completed using active modes
909.3.5 Transit Operation	Enhance mobility of transit users	• Passenger throughput per route or corridor • Average transit travel time
	Improve transit reliability and on-time performance	• Percent of on-time arrivals • Transit travel time reliability (travel adherence)
	Improve customer experience and multimodal access	• Customer satisfaction survey results • Pedestrian access quality (stop accessibility index)

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909.2.1 Traffic Incident Management

Traffic Incident Management (TIM) can help reduce the impact of roadway incidents by coordinating detection, response, and clearance activities among transportation, law enforcement, fire, EMS, towing, and other partners.

While crashes, disabled vehicles, and cargo spills are the most common focus of TIM programs, there are a broader set of disruptions that can also be monitored including:

• Debris in the roadway
• Grass fires
• Lane-blocking emergency vehicles
• Vehicle fires
• Heavy congestion

By incorporating this broader incident set, TIM strategies ensure operators and responders are prepared for a wide range of events that may impact traveler safety and network performance. The following sections outline strategies for TIM.

Users:

• TMC Operators → Detect and coordinate response (909.2.1.3 Components), disseminate traveler information (909.2.1.1 Traffic Incident Management Plans).
• Maintenance Technicians → Assist with clearance and roadway restoration (909.2.1.3 Components).
• Emergency Management Agencies → Critical frontline responders (909.2.1.2 Stakeholders).

909.2.1.1 Traffic Incident Management Plans

Traffic incidents occur without warning at any time and location on the highway system. On all segments of the interstate and freeway highway system, TIM plans should be developed in coordination with law enforcement and local responders to:

• Reduce response and clearance times.
• Develop alternate plans for handling affected traffic.
• Communicate and coordinate between first responders.
• Communicate traffic impacts to motorists.

Reference EPG 948 Incident Response Plan and Emergency Response Management for additional information.

909.2.1.2 Stakeholders

Effective TIM depends on collaboration among a wide range of partners. Law enforcement, fire/rescue, EMS, and towing operators provide immediate on-scene response, while MoDOT personnel and TMCs deliver critical support through detection, traffic control, and traveler information. Each stakeholder brings unique capabilities, and coordinated multi-agency response supports faster clearance, safer conditions for responders, and more reliable outcomes for the traveling public.

909.2.1.3 Components

The core components of TIM—detection, verification, response, clearance, and recovery—create a structured framework for managing roadway incidents. Detection and verification confirm the incident type and location; coordinated response mobilizes the appropriate agencies; clearance restores traffic lanes and removes hazards; and recovery ensures the roadway is returned to normal operation. Addressing each component systematically reduces incident duration and enhances both safety and reliability.

909.2.2 Transportation Operations for Emergency Incidents or Disasters

Emergency operations support safe and effective evacuation and mobility during disasters such as floods, tornadoes, earthquakes, or other emergencies. The following sections outline strategies for emergency operations during disasters.

Users:

• Emergency Management Agencies → Coordinate disaster response (909.2.2.1 Frameworks and Coordination).
• Transportation Planners → Prepare evacuation plans (909.2.2.2 Preparedness and Planning).
• Traffic Operations Engineers → Manage ingress and egress traffic flow (909.2.2.3 Operational Strategies During Disasters).
• TMC Operators → Monitor evacuation routes and push real-time traveler information (909.2.2.3 Operational Strategies During Disasters).

909.2.2.1 Frameworks and Coordination

MoDOT’s emergency transportation operations should align with the National Incident Management System (NIMS) and the Incident Command System (ICS). These frameworks establish the standard structure, terminology, and coordination processes for incident and disaster response at the local, state, and federal levels.

National Incident Management System (NIMS):

• Provides a nationwide approach for incident management and coordination.
• Provides emergency transportation operations guidance for interoperable collaboration with law enforcement, fire, EMS, emergency management, and federal partners.
• Establishes common terminology, communication protocols, and resource management procedures to support multi-agency operations.

Incident Command System (ICS):

• Serves as the on-scene management structure for all types of incidents.
• Defines clear roles, responsibilities, and reporting relationships across agencies.
• Provides guidance on unified command structures, filling roles such as transportation branch directors, field observers, or technical specialists.
• Provides flexibility to scale operations for localized or statewide events.

For detailed response information, please contact MoDOT’s Safety and Emergency Management.

909.2.2.2 Preparedness and Planning

• Develop and exercise evacuation and emergency operations plans.
• Use simulation and scenario testing to identify gaps and strengthen interagency protocols.
• Establish pre-designated staging areas for resource allocation, evacuation support, and vehicle marshaling.

909.2.2.3 Operational Strategies During Disasters

• Traffic Management: Complete rapid damage assessment and plan and publish routes for ingress and egress to the impacted area.
• Multimodal Evacuations: Utilize buses, school buses, and regional transit providers to assist in large-scale evacuations.
• Route Monitoring: Employ field observations, cameras, and sensors to track evacuation route conditions in real time.
• Public Information: Provide timely traveler information, evacuation messaging, and updates in coordination with media partners.

909.2.3 Road Weather Management

Road Weather Management strategies improve mobility, reliability, and safety during weather events through strategies such as targeted traveler information, warnings, and operational interventions. The following sections outline strategies for road weather management.

Users:

• TMC Operators → Operate dynamic message signs and push alerts (909.2.3.1 Road Weather Warnings/Alerts and Dynamic Message Signs; 909.2.3.2 Road Weather Information Systems).
• Maintenance Technicians → Respond to weather conditions, deploy treatment (909.2.3.2 Road Weather Information Systems).
• Traffic Operations Engineers → Integrate road weather information systems data (909.2.3.1 Road Weather Warnings/Alerts and Dynamic Message Signs; 909.2.3.2 Road Weather Information Systems).

909.2.3.1 Road Weather Warnings/Alerts and Dynamic Message Signs

Used to display real-time information to warn motorists of roadway incidents, construction or congestion ahead that could pose a hazard or cause delays.

Procedures for Dynamic Message Signs are outlined in EPG 910.3 Dynamic Message Signs (DMS).

909.2.3.2 Road Weather Information Systems

Road Weather Information Systems (RWIS) provide real-time data on weather and roadway conditions to support transportation system operations and maintenance activities. These systems collect information such as air and pavement temperatures, precipitation, visibility, and surface conditions to help inform operational decisions. Data may be collected through field sensors, third-party weather service providers, or a combination of both, depending on system needs and available resources.

909.2.4 Work Zone Traffic Management

Work zone strategies reduce risk to workers and travelers while minimizing delays during construction and maintenance activities. These strategies apply to both short-term and long-term work zones, recognizing that every project, regardless of duration, can significantly affect roadway operations and safety.

Effective work zone traffic management begins early in project development. Once a project design has been determined, the MoDOT Work Zone Impact Analysis Spreadsheet assists in identifying which work zone strategies should be incorporated to provide real-time information and warnings to motorists, supporting both safety and traffic mobility through the project corridor.

The Work Zone Management Guidebook serves as a comprehensive reference for planning and implementing work zone traffic management. The Guidebook covers a range of tools and strategies, from temporary traffic control and traveler information systems to smart work zone technologies, and is intended to help project teams maximize safety and minimize traffic impacts across all project types and durations. It also includes information about the use of law enforcement in work zones, contractor management and work zone inspections. The following sections outline key strategies for work zone traffic management.

Users:

• Design Staff → Incorporate TMP and ITS strategies into project design, when practical (909.2.4.1 Traffic Management Plan; 909.2.4.4 Use of Intelligent Transportation Systems).
• Work Zone Specialists → Review and manage TMPs, oversee traffic control device setup, and ensure compliance with MoDOT standards (909.2.4.1 Traffic Management Plan; 909.2.4.2 Traffic Incident Management Plan).
• Construction Inspectors → Enforce work zone traffic control measures (909.2.4.2 Traffic Incident Management Plan).
• Traffic Operations Engineers → Oversee ITS integration and system strategies (909.2.4.3 Smart Work Zones; 909.2.4.4 Use of Intelligent Transportation Systems).
• TMC Operators → Monitor work zones and disseminate real-time traveler information (909.2.4.4 Use of Intelligent Transportation Systems).

909.2.4.1 Traffic Management Plan

The Transportation Management Plan (TMP) consists of strategies to manage the work zone impacts of a project. Each TMP is tailored to the unique conditions of a project and typically incorporates three coordinated elements: Traffic Control Plan (TCP), Traffic Operations (TO), and Public Information and Outreach (PIO).

As an initial step, a project design should be selected to eliminate or minimize additional delays and traffic queueing during construction. EPG 616.19 Work Zone Capacity, Queue and Travel Delay provides tools to assess the traffic impact of the proposed project design(s).

For additional detail on the required elements, development process, and documentation standards for TMPs, reference EPG 616.20.9 Work Zone Transportation Management Plan. For additional information on developing Work Zone Traffic Management JSPs for use in core team meetings, reference EPG 616.20.7 Significant Projects.

909.2.4.2 Traffic Incident Management Plan

When traffic incidents occur within a work zone, it is important to clear the incident and restore traffic as quickly as possible. To aid in this effort, a project-based traffic incident management (TIM) plan should be developed for all significant projects on interstate and freeways.

Reference EPG 909.2.1.1 Traffic Incident Management (TIM) Plans for additional information.

909.2.4.3 Smart Work Zones

Smart work zones integrate temporary Intelligent Transportation Systems (ITS) technologies into construction and maintenance areas to improve safety for workers and motorists and to reduce traffic delays. These systems use real-time monitoring, detection, and communication tools to provide dynamic information and warnings to travelers based on actual conditions within and upstream of the work zone.

Smart work zone strategy information is available at EPG 616.19.6.3 Smart Work Zone (SWZ) Strategy Selection. MoDOT has used, but is not limited to, the following smart work zone strategies:

• Construction Vehicle Warning System
• Dynamic Late (Zipper) Merge System
• Queue Warning System
• Speed Warning System
• Work Zone ITS and Temporary Traffic Incident Management System
• Travel Time Advisory System
• Travel Time Advisory System with Alternate Routes

For additional guidance on smart work zone strategy selection during project delivery and development, refer to EPG 616.20 Work Zone Safety and Mobility Policy. Additional information can also be found in EPG 616.19 Work Zone Capacity, Queue and Travel Delay.

909.2.4.4 Use of Intelligent Transportation Systems

Intelligent Transportation Systems (ITS) devices (cameras, sensors, communication systems) provide detection and real-time monitoring of work zones.

Procedures for ITS devices are outlined in EPG 910 Intelligent Transportation Systems.

909.2.5 Planned Special Event Management

Special event management strategies ensure safe and efficient mobility during large gatherings, sporting events, and other planned activities. The following sections outline strategies for planned special event management.

Users:

• Transportation Planners → Develop TMPs for special events and coordinate agencies (909.2.5.1 Pre-Event Planning; 909.2.5.4 Post-Event Evaluation).
• Traffic Operations Engineers → Design strategies for traffic flow and multimodal support (909.2.5.2 Implementation).
• TMC Operators → Manage day-of-event operations and traveler communications (909.2.5.3 Day-of-Event Operations).
• Emergency Management Agencies → Manage access, safety, and enforcement (909.2.5.2 Implementation).

909.2.5.1 Pre-Event Planning

• Develop Transportation Management Plans (TMPs) with input from MoDOT, local agencies, law enforcement, transit providers, and event organizers.
• Identify needs for Emergency Operations Center (EOC) and Joint Operations Center (JOC) activation, staffing augmentation, and resource staging for high-profile or large-scale events (e.g., sporting events, major concerts, parades, funerals, festivals, eclipse, political events).
• Plan for multimodal access (transit, walking, biking) and freight restrictions, where applicable.

909.2.5.2 Implementation

• Deploy traffic control devices, signage, and ITS in advance of the event.
• Coordinate with law enforcement and emergency management on enforcement zones, access control, and responder staging.
• Conduct interagency briefings to confirm roles, responsibilities, and communication protocols.

909.2.5.3 Day-of-Event Operations

• Manage traffic and crowd circulation using TMC monitoring, field staff, and real-time traveler information (dynamic message signs, push alerts, social media).
• Coordinate with EOC/JOC if activated to ensure situational awareness and resource support.
• Adjust plans dynamically to address congestion, incidents, or security needs.

909.2.5.4 Post-Event Evaluation

• Conduct after-action reviews with MoDOT staff, law enforcement, emergency management, and event organizers.
• Document lessons learned, identify gaps in staffing or coordination, and refine TMPs for future events.
• Capture performance measures such as clearance times, delay estimates, and traveler feedback.

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909.3.1 Freeway Operations and Management

Freeway operations strategies help enhance safety, reduce recurring congestion, and improve travel time reliability on major corridors. The following sections outline some strategies for freeway operations and management. Not all strategies discussed below are currently used in Missouri; however, they are included to provide a range of options that may be considered based on context, needs, and available resources.

Users:

• TMC Operators → Monitor and adjust dynamic controls, coordinate corridor operations, and manage incident response (909.3.1.1 Ramp Management and Control; 909.3.1.3 Dynamic Speed Limits; 909.3.1.4 Queue Warning; 909.3.1.5 Transportation Management Centers).
• Traffic Operations Engineers → Design freeway operations strategies, oversee policy-sensitive strategies, and evaluate corridor performance (909.3.1.2 Part-Time Shoulder Use; 909.3.1.5 Traffic Management Centers; 909.3.1.6 Managed Lanes).
• Information Systems Managers → Maintain ITS infrastructure, support automated detection, and ensure system integration for real-time operations (909.3.1.5 Transportation Management Centers; 909.3.1.7 Automated Incident Detection).

Policy Coordination – It is encouraged that any consideration or application of the following strategies should be closely coordinated with applicable Central Office staff, including the Highway Safety and Traffic Division, as well as other related divisions to support consistency with MoDOT policy, design standards, and operational practices.

909.3.1.1 Ramp Management and Control

Ramp management and control strategies, including ramp metering and adaptive ramp management, regulate vehicle entry onto freeways to improve merging operations, reduce conflicts, and smooth overall traffic flow. This remains a dynamic application where it is implemented, with operational adjustments based on corridor conditions.

Currently, Missouri does not operate continuous ramp metering systems. Instead, ramp meters are activated dynamically based on real-time traffic conditions when metrics (such as speed, volume, and/or density) exceed predefined thresholds.

909.3.1.2 Part-Time Shoulder Use (Hard Shoulder Running)

Part-time shoulder use, also known as hard shoulder running, allows roadway shoulders to serve as temporary travel lanes during peak periods, incidents, or emergencies. Applications may be designed for all vehicles or limited to transit operations.

This strategy is increasingly being implemented by peer agencies across the country, particularly in corridors with limited right-of-way or peak-period capacity needs. While Missouri does not currently have any active applications of part-time shoulder use, the concept may present opportunities in select corridors - especially where traditional widening is not feasible and where shoulders are constructed to full-depth pavement standards.

909.3.1.3 Dynamic Speed Limits

Dynamic speed limits adjust posted speed limits in real time based on conditions such as traffic flow, weather, or incidents. This approach has been applied by several peer agencies to improve safety, smooth traffic flow, and reduce crash risk.

In Missouri, there are no permanent applications of dynamic speed limits in routine freeway operations. However, the strategy may hold value in temporary, controlled environments, particularly in work zones, where changing conditions may warrant more flexible speed management.

909.3.1.4 Queue Warning

Queue warning systems are designed to alert motorists of slow or stopped traffic ahead, helping to reduce the likelihood of sudden braking and rear-end collisions. In Missouri, queue warning is typically implemented using probe data to identify travel times, including delays associated with downstream incidents or congestion, and to display warning messages on Dynamic Message Signs (DMS).

In work zones, queue warning applications commonly include the use of probe data linked to DMS, as well as sensor-based systems that detect traffic conditions and trigger messages on Changeable Message Signs (CMS). These approaches help provide advance warning to drivers when queues form due to temporary capacity constraints and changing traffic conditions.

Effective implementation requires appropriate placement of signs upstream of anticipated queue locations and consideration of roadway speeds to ensure adequate driver perception and reaction time.

909.3.1.5 Transportation Management Centers

Transportation Management Centers (TMCs) serve as the operational backbone of ICM. From TMCs, MoDOT staff monitor real-time traffic conditions, manage ITS devices, coordinate incident response, and adjust strategies such as ramp metering or queue warning. This centralized approach enables proactive management of corridors, supporting safety and reliability during incidents, work zones, and peak travel periods.

909.3.1.6 Managed Lanes

Managed lanes are roadway segments where access and use are actively regulated to improve traffic flow, safety, or reliability. Common approaches used nationally include bus-only lanes and truck-only lanes. These treatments are typically considered in locations with recurring congestion, limited right-of-way, or freight movement challenges.

At present, Missouri has no active managed lane facilities.

909.3.1.7 Automated Incident Detection

Automated incident detection systems use roadside sensors, video feeds, and software algorithms to identify crashes, stalled vehicles, or other disruptions in real time. These systems often integrate data analytics with CCTV camera footage to detect unusual traffic patterns or stopped vehicles more quickly than traditional operator observation alone. By providing earlier notification of likely incidents, automated detection enhances safety, reduces secondary crashes, and improves response times for emergency and traffic management personnel.

909.3.2 Arterial Operations and Management

Arterial operations strategies help improve mobility, safety, and reliability on surface streets through targeted improvements, signal operations, and multimodal accommodations. These strategies focus on reducing congestion at bottlenecks, enhancing intersection performance, and supporting consistent travel across urban and suburban corridors.

In Missouri, arterial management is often a shared responsibility between MoDOT and regional or local partners. For example, the Kansas City region’s Operation Green Light program coordinates arterial signal timing and corridor operations in collaboration with MoDOT and multiple local jurisdictions. Other examples include MoDOT’s partnership with St. Charles in the St. Louis region and collaboration with the City of Springfield and the Ozarks Transportation Organization. Similar arrangements may exist in other regions where MPOs, cities, or counties lead day-to-day arterial management. Practitioners should recognize that depending on the corridor and location, responsibility for arterial operations may rest with another entity, requiring coordination and partnership to ensure consistent system performance.

The following sections outline strategies for arterial operations and management.

Users:

• Traffic Operations Engineers → Manage signals, coordination, and adaptive timing (909.3.2.3 Traffic Signal Program Management; 909.3.2.4 Traffic Signal Timing and Coordination; 909.3.2.5 Transit Signal Priority).
• Design Staff → Implement innovative intersections and targeted improvements (909.3.2.1 Targeted Infrastructure Improvements; 909.3.2.2 Alternative Intersection Designs).
• TMC Operators → Oversee corridor signal adjustments and incident response (909.3.2.4 Traffic Signal Timing and Coordination; 909.3.2.6 Arterial Dynamic Shoulder Use).

Policy Coordination – It is encouraged that any consideration or application of the following strategies should be closely coordinated with applicable Central Office staff, including the Highway Safety and Traffic Division, as well as other related divisions to support consistency with MoDOT policy, design standards, and operational practices.

909.3.2.1 Targeted Infrastructure Improvements

Targeted infrastructure improvements are localized enhancements that address recurring bottlenecks or multimodal safety concerns on arterial corridors. Common treatments include new or extended turn lanes to reduce delay at intersections, access control to improve traffic flow and safety, and bus pullouts to minimize transit-related delays. Pedestrian and bicyclist accommodations such as crosswalk improvements, refuge islands, and protected lanes also support safer and more reliable mobility for all users.

909.3.2.2 Alternative Intersection Designs

Alternative intersection designs apply alternative layouts to improve safety and efficiency where traditional designs are constrained. Examples include restricted crossing U-turns (RCUTs), median U-turns, and displaced left-turn (continuous flow) intersections, which reduce conflict points and increase throughput. These designs are increasingly considered where right-of-way is limited, traffic volumes are high, or safety issues persist with conventional layouts.

Additional information can be found in EPG 233.5 Intersection Alternatives.

909.3.2.3 Traffic Signal Program Management

A comprehensive traffic signal program helps support effective corridor operations. Program elements include monitoring and evaluating existing signal systems, scheduling recurring retiming efforts, and integrating new technologies over time. A proactive, programmatic approach supports consistent signal management across jurisdictions, improving reliability and reducing the need for inefficient, piecemeal adjustments.

Procedures for signal operation and maintenance are outlined in 902.1.10 Responsibility for Operation and Maintenance (MUTCD Section 4A.10).

909.3.2.4 Traffic Signal Timing and Coordination

Traffic signal timing and coordination strategies are a cost-effective approach to improve arterial operations. By updating signal timing plans and coordinating operations across intersections, agencies can reduce delays and support more predictable travel along corridors. These strategies allow signal operations to reflect current traffic conditions, land use patterns, and system changes, while also providing a foundation for integrating advanced technologies such as adaptive control.

Applications:

• Traffic Signal Retiming – Updating the timing plans for one signalized intersection or a corridor of intersections based on the latest traffic volumes. Retiming is recommended every few years or after significant changes to transportation systems or land use within a given area.
• Traffic Signal Coordination – Coordinating traffic signal timing along a corridor to enable a “green wave” of vehicles traveling through a sequence of signals. Coordination optimizes the splits and offsets of signals to allow for smoother, progressive traffic flow.
• Adaptive Traffic Signal Control – Coordinating traffic signal timing across a network using real-time detector data to accommodate current, prevailing traffic patterns. This allows for dynamic adjustment of timing in response to fluctuating traffic conditions.

Procedures for signal phasing and operation are outlined in EPG 902.23 Traffic Signal Phasing and Operation.

909.3.2.5 Transit Signal Priority

Transit signal priority (TSP) strategies adjust signal phasing to reduce delay for buses and improve the efficiency of transit operations. TSP can extend green phases and/or provide early green intervals to help transit vehicles move more consistently through intersections. By enhancing the speed and reliability of bus service, TSP supports multimodal goals and encourages greater use of transit along arterial corridors.

909.3.2.6 Arterial Dynamic Shoulder Use

Arterial dynamic shoulder use provides additional capacity and helps improve multimodal efficiency by repurposing existing roadway space under defined conditions. Dynamic shoulder use allows roadway shoulders to operate as travel lanes during peak periods or special events, while maintaining their primary role for emergency access during off-peak times. When feasible, this strategy can help reduce delays, improve vehicle-throughput, and support multimodal goals in areas where right-of-way is constrained and traditional widening is not feasible. Successful implementation requires clear operational policies, appropriate signing and striping, and coordination with enforcement and transit partners to ensure safety and effectiveness.

Although Missouri does not currently implement arterial dynamic shoulder use, the approach may offer targeted benefits in select corridors. However, because shoulders are typically not constructed to full-depth pavement standards, implementation would likely require reconstruction or significant upgrades to support sustained traffic loading.

909.3.3 Freight Operation

Freight operations strategies address truck mobility, parking, and safety near freight generators such as ports and distribution centers. The following sections outline key strategies for freight operations.

Users:

• Transportation Planners → Coordinate freight corridors, permitting, and parking strategies (909.3.3.1 Freight Operations Around Ports and Generators; 909.3.3.2 Truck Parking; 909.3.3.3 Regional Permitting).
• Traffic Operations Engineers → Oversee technology applications and truck restrictions (909.3.3.1 Freight Operations Around Ports and Generators; 909.3.3.4 Technology Applications for Freight; 909.3.3.5 Connected and Automated Freight Vehicles).

Reference MoDOT’s 2022 State Freight and Rail Plan Documents for additional information.

909.3.3.1 Freight Operations Around Ports and Generators

Freight hubs such as ports, intermodal yards, and distribution centers generate concentrated truck activity that can create localized congestion and safety concerns. Targeted operational improvements may include intersection upgrades, dedicated freight lanes, improved signage, or optimized signal timing along key freight corridors. These measures reduce bottlenecks, improve travel time reliability for trucks, and minimize conflicts between freight and passenger vehicles in high-demand areas.

909.3.3.2 Truck Parking

Adequate truck parking supports driver safety, freight efficiency, and regulatory compliance. Strategies include the development of new truck parking facilities, upgrades to existing rest areas, and the integration of real-time availability systems that help drivers locate spaces. Reservation tools and wayfinding applications can further support efficient parking use and reduce the safety risks associated with unauthorized shoulder or ramp parking.

909.3.3.3 Regional Permitting

Freight often crosses multiple jurisdictions, and inconsistent permitting processes can add delay and administrative burden. Regional permitting strategies streamline requirements by coordinating across state, county, and local agencies. Harmonizing size, weight, and routing approvals enhances efficiency for carriers while reducing redundant processes for agencies, particularly along high-volume freight corridors.

909.3.3.4 Technology Applications for Freight

Technology provides powerful tools for managing freight mobility. Examples include routing platforms that help drivers avoid weight-restricted bridges or low-clearance structures, monitoring systems that track freight movement in real time, and automated clearance technologies at weigh stations or ports of entry. Collectively, these applications enhance efficiency, improve safety, and provide data to better manage freight corridors.

909.3.3.5 Connected and Automated Freight Vehicles

The freight industry is a leading sector for testing and deploying connected and automated vehicle (CV/AV) technologies. Applications may include platooning, automated truck-mounted attenuators, or fully automated long-haul freight operations. These technologies have the potential to improve safety, reduce driver fatigue, and increase efficiency in freight corridors. Early deployment efforts require coordination with industry, agencies, and technology providers to ensure infrastructure readiness and to evaluate operational impacts.

909.3.4 Vulnerable Road Users

Vulnerable road users (VRUs) are individuals who travel without the protection of an enclosed vehicle and therefore face a greater risk of serious injury in a collision. VRUs include pedestrians, roadway workers, individuals using wheelchairs or other personal mobility devices, bicyclists, motorcyclists, and users of electric scooters and other micromobility devices. The following sections outline strategies to improve safety, access, and comfort for these users within the transportation system.

Users:

• Design Staff → Implement bike lanes, pedestrian facilities, and safety enhancements (909.3.4.1 Safety Enhancements; 909.3.4.2 Pedestrian and Accessibility Facilities; 909.3.4.3 Bicycle Lanes and Cycle Tracks).
• Transportation Planners → Support multimodal planning and education programs (909.3.4.1 Safety Enhancements; 909.3.4.4 VRU Education).

909.3.4.1 Safety Enhancements

Selective deployment of safety enhancements should be informed by EPG 907 Traffic Safety and tailored to the needs of VRUs. Enhancements may include improved crossings, lighting, signing and pavement markings, speed management strategies, traffic calming measures, work zone protections for roadway workers, and design treatments that reduce conflicts involving motorcyclists and micromobility users.

909.3.4.2 Pedestrian and Accessibility Facilities

Sidewalks, shared-use paths, accessible curb ramps, transit stop connections and enhanced or grade-separated crossings should be prioritized where safety risks, accessibility needs, or network gaps are identified. Integrating these facilities in alignment with Complete Streets principles (EPG 907.10 Complete Streets), in coordination with regional and local partners, helps support safe, efficient access for pedestrians and individuals using wheelchairs or other mobility devices.

Additional information can be found in EPG 642 Pedestrian Facilities.

909.3.4.3 Bicycle Lanes and Cycle Tracks

Where conditions and community priorities warrant, dedicated bike lanes or protected cycle tracks can enhance comfort and safety for bicyclists and other micromobility users, including users of electric scooters and similar devices. MoDOT supports the Complete Street concept (as outlined in EPG 907.10 Complete Streets) and encourages coordination with communities and regional partners to consider these facilities where appropriate.

Additional information can be found in EPG 641 Bicycle Facilities.

909.3.4.4 VRU Education and Outreach

Support community-informed education and outreach programs that promote safe behaviors among VRUs. Programs may address the needs of pedestrians, bicyclists, micromobility users, motorcyclists, individuals with disabilities, and drivers, and may include collaboration with local schools, community organizations, advocacy groups, employers, transit agencies, and public safety partners.

909.3.5 Transit Operation

Transit operations strategies improve speed, reliability, and accessibility of transit services. The following sections outline strategies for transit operations.

Users:

• Transit Agencies → Operate BRT, implement TSP, and manage transit vehicles (909.3.5.1 Transit Signal Priority; 909.3.5.2 Bus Rapid Transit; 909.3.5.3 Transit-Only Lanes; 909.3.5.4 Transit Operation Vehicles).
• Transportation Planners → Plan multimodal centers and support dynamic transit strategies (909.3.5.2 Bus Rapid Transit; 909.3.5.3 Transit-Only Lanes; 909.3.5.5 Multimodal Transportation Centers).
• Traffic Operations Engineers → Support signal priority and corridor treatments (909.3.5.1 Transit Signal Priority; 909.3.5.2 Bus Rapid Transit; 909.3.5.3 Transit-Only Lanes).

909.3.5.1 Transit Signal Priority

Transit Signal Priority (TSP) strategies modify traffic signal operations to reduce delay and improve on-time arrivals for buses and other transit vehicles.

Additional information on TSP is provided in EPG 909.3.2.5 Transit Signal Priority.

909.3.5.2 Bus Rapid Transit

Bus Rapid Transit (BRT) incorporates a combination of dedicated lanes, intersection treatments, and enhanced stations to provide faster and more reliable bus service. Treatments such as queue jump lanes and high-capacity vehicles further enhance performance. BRT can serve as a cost-effective alternative to rail in high-demand corridors, delivering rapid, frequent, and reliable service with improved passenger amenities.

909.3.5.3 Transit-Only Lanes

Transit-only lanes provide additional capacity and improve multimodal efficiency by repurposing existing roadway space under defined conditions. Transit-only lanes dedicate roadway space to buses, enabling more reliable service and improving schedule adherence in congested corridors. This strategy can help reduce delays, improve person-throughput, and support multimodal goals in areas where right-of-way is constrained and traditional widening is not feasible. Successful implementation requires clear operational policies, appropriate signing and striping, and coordination with enforcement and transit partners to ensure safety and effectiveness.

This strategy may offer targeted benefits in select corridors where transit demand and roadway conditions support dedicated space for transit operations. In some cases, implementation could involve repurposing shoulder space where available. However, because shoulders are typically not constructed to full-depth pavement standards, such applications would likely require reconstruction or significant upgrades to support sustained transit operations.

Policy Coordination – It is encouraged that any consideration or application of the following strategies should be closely coordinated with applicable Central Office staff, including the Highway Safety and Traffic Division, as well as other related divisions to support consistency with MoDOT policy, design standards, and operational practices.

909.3.5.4 Transit Operation Vehicles

Transit vehicle operations may require unique roadway considerations. Streetcars, for example, share corridors with general traffic and necessitate signal coordination and geometric design adjustments for turning movements. Similarly, buses may require accommodations such as bus pullouts, curb extensions, or boarding islands to improve efficiency and passenger safety. These vehicle-specific considerations support smoother operations and minimize conflicts with other modes.

909.3.5.5 Multimodal Transportation Centers

Multimodal transportation centers serve as hubs that integrate multiple travel modes, including bus, rail, bike, and pedestrian connections. These facilities improve regional accessibility by consolidating transfers in a single location and providing amenities such as shelters, ticketing, and real-time traveler information.

In Missouri, existing park-and-ride facilities present opportunities to serve as future multimodal centers. These centers encourage greater transit use, strengthen first- and last-mile connections, and elevate the role of transit in supporting regional mobility.

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