909.2 Non-Congested Route (Non-Recurring Delays)

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.