909.3 Congested Route (Recurring Delays)

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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:


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:


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:

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:

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:

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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