Performance Measures to Improve Transportation Systems and Agency Operations

230 Pages·2002·2.77 MB·English

Performance Measures to
Improve Transportation
Systems and
Agency Operations
Report of a Conference
TRANSPORTATION
RESEARCH
BOARD
THE NATIONAL ACADEMIES
C O N F E R E N C E P R O C E E D I N G S 2 6
TRANSPORTATIONRESEARCHBOARD
2001EXECUTIVECOMMITTEE*
Chairman:JohnM.Samuels,SeniorVicePresident,OperationsPlanningandSupport,NorfolkSouthernCorporation,
Norfolk,Virginia
ViceChairman:E.DeanCarlson,Secretary,KansasDepartmentofTransportation,Topeka
ExecutiveDirector:RobertE.Skinner,Jr.,TransportationResearchBoard
WilliamD.Ankner,Director,RhodeIslandDepartmentofTransportation,Providence
ThomasF.Barry,Jr.,SecretaryofTransportation,FloridaDepartmentofTransportation,Tallahassee
JackE.Buffington,AssociateDirectorandResearchProfessor,Mack-BlackwellNationalRuralTransportationStudy
Center,UniversityofArkansas,Fayetteville
SarahC.Campbell,President,TransManagement,Inc.,Washington,D.C.
JoanneF.Casey,President,IntermodalAssociationofNorthAmerica,Greenbelt,Maryland
JamesC.CodellIII,Secretary,KentuckyTransportationCabinet,Frankfort
JohnL.Craig,Director,NebraskaDepartmentofRoads,Lincoln
RobertA.Frosch,SeniorResearchFellow,BelferCenterforScienceandInternationalAffairs,JohnF.KennedySchoolof
Government,HarvardUniversity,Cambridge,Massachusetts
GormanGilbert,Director,OklahomaTransportationCenter,OklahomaStateUniversity,Stillwater
GenevieveGiuliano,Professor,SchoolofPolicy,Planning,andDevelopment,UniversityofSouthernCalifornia,
LosAngeles
LesterA.Hoel,L.A.LacyDistinguishedProfessor,DepartmentofCivilEngineering,UniversityofVirginia,Charlottesville
(PastChairman,1986)
H.ThomasKornegay,ExecutiveDirector,PortofHoustonAuthority,Houston,Texas
BradleyL.Mallory,SecretaryofTransportation,PennsylvaniaDepartmentofTransportation,Harrisburg
MichaelD.Meyer,Professor,SchoolofCivilandEnvironmentalEngineering,GeorgiaInstituteofTechnology,Atlanta
JeffP.Morales,DirectorofTransportation,CaliforniaDepartmentofTransportation,Sacramento
JeffreyR.Moreland,ExecutiveVicePresident—LawandChiefofStaff,BurlingtonNorthernSantaFeRailway,Fort
Worth,Texas
JohnP.Poorman,StaffDirector,CapitalDistrictTransportationCommittee,Albany,NewYork
CatherineL.Ross,ExecutiveDirector,GeorgiaRegionalTransportationAgency,Atlanta
WayneShackelford,SeniorVicePresident,GreshamSmith&Partners,Alpharetta,Georgia(PastChairman,1999)
PaulP.Skoutelas,CEO,PortAuthorityofAlleghenyCounty,Pittsburgh,Pennsylvania
MichaelS.Townes,ExecutiveDirector,TransportationDistrictCommissionofHamptonRoads,Hampton,Virginia
MartinWachs,Director,InstituteofTransportationStudies,UniversityofCalifornia,Berkeley(PastChairman,2000)
MichaelW.Wickham,ChairmanandCEO,RoadwayExpress,Inc.,Akron,Ohio
JamesA.Wilding,PresidentandCEO,MetropolitanWashingtonAirportsAuthority,Washington,D.C.
M.GordonWolman,ProfessorofGeographyandEnvironmentalEngineering,TheJohnsHopkinsUniversity,Baltimore,
Maryland
MikeAcott,President,NationalAsphaltPavementAssociation,Lanham,Maryland(exofficio)
JosephM.Clapp,Administrator,FederalMotorCarrierSafetyAdministration,U.S.DepartmentofTransportation
(exofficio)
SusanM.Coughlin,DirectorandChiefOperatingOfficer,TheAmericanTruckingAssociationsFoundation,Inc.,
Alexandria,Virginia(exofficio)
JenniferL.Dorn,Administrator,FederalTransitAdministration,U.S.DepartmentofTransportation(exofficio)
EllenG.Engleman,Administrator,ResearchandSpecialProgramsAdministration,U.S.DepartmentofTransportation
(exofficio)
RobertB.Flowers(Lt.Gen.,U.S.Army),ChiefofEngineersandCommander,U.S.ArmyCorpsofEngineers,
Washington,D.C.(exofficio)
HaroldK.Forsen,ForeignSecretary,NationalAcademyofEngineering,Washington,D.C.(exofficio)
JaneF.Garvey,Administrator,FederalAviationAdministration,U.S.DepartmentofTransportation(exofficio)
ThomasJ.Gross,DeputyAssistantSecretary,OfficeofTransportationTechnologies,U.S.DepartmentofEnergy
(exofficio)
EdwardR.Hamberger,PresidentandCEO,AssociationofAmericanRailroads,Washington,D.C.(exofficio)
JohnC.Horsley,ExecutiveDirector,AmericanAssociationofStateHighwayandTransportationOfficials,Washington,
D.C.(exofficio)
MichaelP.Jackson,DeputySecretary,U.S.DepartmentofTransportation(exofficio)
JamesM.Loy(Adm.,U.S.CoastGuard),Commandant,U.S.CoastGuard,Washington,D.C.(exofficio)
WilliamW.Millar,President,AmericanPublicTransportationAssociation,Washington,D.C.(exofficio)(PastChairman,
1992)
MargoT.Oge,Director,OfficeofTransportationandAirQuality,U.S.EnvironmentalProtectionAgency,Washington,
D.C.(exofficio)
MaryE.Peters,Administrator,FederalHighwayAdministration,U.S.DepartmentofTransportation(exofficio)
ValentinJ.Riva,PresidentandCEO,AmericanConcretePavementAssociation,Skokie,Illinois(exofficio)
JeffreyW.Runge,Administrator,NationalHighwayTrafficSafetyAdministration,U.S.DepartmentofTransportation
(exofficio)
JonAllanRutter,Administrator,FederalRailroadAdministration,U.S.DepartmentofTransportation(exofficio)
WilliamG.Schubert,Administrator,MaritimeAdministration,U.S.DepartmentofTransportation(exofficio)
AshishK.Sen,Director,BureauofTransportationStatistics,U.S.DepartmentofTransportation(exofficio)
RobertA.Venezia,EarthSciencesApplicationsSpecialist,NationalAeronauticsandSpaceAdministration,Washington,
D.C.(exofficio)
*MembershipasofDecember2001
C O N F E R E N C E P R O C E E D I N G S 2 6
Performance Measures to
Improve Transportation
Systems and
Agency Operations
Report of a Conference
Irvine, California
October 29–November 1, 2000
Committee for the Conference on
Performance Measures to Improve
Transportation Systems and Agency Operations
Sponsored by
Transportation Research Board
National Transit Institute
American Association of State Highway and Transportation Officials
Federal Highway Administration
TRANSPORTATION
RESEARCH
BOARD
NATIONAL
NATIONAL ACADEMY PRESS RESEARCH
COUNCIL
WASHINGTON, D.C.
2001
TransportationResearch Board Conference Proceedings26
ISSN 1073-1652
ISBN 0-309-07245-X
SubscriberCategory
IA planning and administration
Transportation Research Board publications are available by ordering individual publications
directly from the TRB BusinessOffice,throughtheInternetatnational-academies.org/trb,orby
annual subscription through organizational or individual affiliation with TRB. Affiliates and
library subscribers are eligible for substantial discounts. For further information, contact the
Transportation Research Board Business Office, National Research Council, 2101 Constitution
Avenue NW, Washington, DC 20418 (telephone [phone]; fax [phone]; or email
[email protected]).
Printed in the United States of America
NOTICE: The project that is the subject of this report was approved by the Governing Board
of the National Research Council,whose membersaredrawnfromthecouncilsoftheNational
Academy of Sciences, the National Academy of Engineering, and the Institute ofMedicine.The
members of the committee responsible for the reportwerechosenfortheirspecialcompetencies
and with regard for appropriatebalance.
This report has been reviewed by a group otherthanthe authorsaccordingtotheprocedures
approved by a Report Review Committee consisting of members of the National Academy of
Sciences, the National Academy of Engineering,and the Institute of Medicine.
The views expressed in the presentations and papers contained in this report are thoseofthe
authors and do not necessarily reflect the views of the committee, the TransportationResearch
Board, the National Research Council, or the sponsorsof the conference.
The conference was sponsored by the Transportation Research Board, the National Transit
Institute,theAmericanAssociationofStateHighwayandTransportationOfficials,andtheFed-
eral Highway Administration,which provided the primary funding for the conference.
Committee for the Conference on Performance Measures to
Improve TransportationSystems and Agency Operations
Lance A. Neumann, Cambridge Systematics, Inc., Cochair
Sandra Straehl, Montana Department of Transportation,Cochair
James J. Bednar, Parsons BrinckerhoffOhio, Inc.
Michelle Morris Brubaker, MetropolitanTransportationCommission
Randall K. Halvorson, Minnesota Department of Transportation
Robert C. Johns, Center for TransportationStudies, University of Minnesota
Paul F. Maxwell, Contra Costa TransportationAuthority
Lynn Ritter Otte, Multisystems,Inc.
Neil J. Pedersen, Maryland State Highway Administration
Kumares C. Sinha, School of Civil Engineering,Purdue University
Martha J. Tate-Glass,California Department of Transportation
Ronald W. Tweedie, New York State Department of Transportation
Amy L. Van Doren, Booz-Allen & Hamilton, Inc.
Anita Vandervalk, Florida Department of Transportation
Ernest F. Wittwer, WisconsinDepartment of Transportation
Liaison Members
Deborah Buchacz, American Associationof State Highway and TransportationOfficials
Neal Denno, National Transit Institute,Rutgers University
Sheldon M. Edner, Federal Highway Administration
Lee Giesbrecht,Bureau of TransportationStatistics
Henry L. Peyrebrune,TransportationConsultant
TransportationResearch Board Staff
Mark R. Norman, Director,Technical Activities
Kimberly M. Fisher, TransportationPlanner
Freda R. Morgan, Program Assistant
Nancy A. Ackerman, Director,Reports and Editorial Services
Advisers to the Nation on Science,Engineering, and Medicine
National Academy of Sciences
National Academy of Engineering
Institute of Medicine
National Research Council
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars
engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to
their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the
Academy has a mandate that requires it to advise the federal government on scientific and technical matters.
Dr. Bruce M. Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academyof
Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the
selection of its members, sharing with the National Academy of Sciences the responsibility for advising the
federal government. The National Academy of Engineering also sponsors engineeringprogramsaimedatmeet-
ing national needs, encourages education and research, and recognizes the superior achievements of engineers.
Dr. William A. Wulf is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services
of eminent members of appropriate professions in the examination of policy matters pertaining to the health
of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its
congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues
of medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the
broadcommunityofscienceandtechnologywiththeAcademy’spurposesoffurtheringknowledgeandadvising
thefederalgovernment.FunctioninginaccordancewithgeneralpoliciesdeterminedbytheAcademy,theCoun-
cil has become the principal operating agency of both the National Academy of Sciences and the National
Academy of Engineering in providing services to the government, the public, and the scientificandengineering
communities. The Council is administered jointly by both the Academies and the Institute of Medicine. Dr.
Bruce M. Alberts and Dr. William A. Wulf are chairman and vice chairman, respectively, of the National
Research Council.
The Transportation Research Board is a unit of the National Research Council, which serves the National
Academy of Sciences and the National Academy of Engineering. The Board’s mission is to promoteinnovation
and progress in transportation by stimulating and conducting research, facilitating the dissemination of infor-
mation, and encouraging the implementation of research results. The Board’s varied activities annually engage
more than 4,000 engineers, scientists, and other transportation researchers and practitioners from the public
and private sectors and academia, all of whom contribute their expertise in the public interest. The program
is supported by state transportation departments, federal agencies including the component administrationsof
the U.S. Department of Transportation, and other organizations and individuals interested in the development
of transportation.
Contents
GENERAL OVERVIEW
Introduction .................................................................................... 3
Executive Summary.............................................................................. 5
Conference and Proceedings Format............................................................... 8
Opening General Session......................................................................... 11
Opening Remarks, Lance Neumann and Sandra Straehl............................................. 11
Welcome, Tony Harris........................................................................... 12
LINKING PERFORMANCE MEASURES WITH DECISION MAKING
Resource Paper
Use of Performance Measures in Transportation Decision Making ................................... 17
Steven Pickrell and Lance Neumann
Panel Discussion ................................................................................ 34
Implementing Performance Measures, John Poorman ............................................... 34
The Minnesota Experience, David S. Ekern........................................................ 36
Balancing Performance Measurement with Real Life, Pilka Robinson................................. 37
General Discussion .............................................................................. 38
Workshop Summary............................................................................. 40
John Basilica, Daniela Bremmer, Peter Plumeau, Kenneth Sadeckas, Robert Winick, Ernest Wittwer,
Mark Wolfgram, and Douglas Zimmerman
AGENCY IMPLEMENTATION OF TRANSPORTATION SYSTEM PERFORMANCE MEASURES
Resource Paper
Implementing Performance Measurement in Transportation Agencies................................. 47
Hal Kassoff
Panel Discussion ................................................................................ 59
Integrating Performance Measures into Management Systems, Jennifer Finch.......................... 59
Role of Customer Input in Implementing and Using Performance Measures, Darwin Stuart............. 65
Transforming Bureaucracies, Mark Pisano ......................................................... 66
General Discussion .............................................................................. 69
Workshop Summary............................................................................. 70
David Busby, Jeffrey Ebert, Sandra Straehl, Leonard Evans, John Falcocchio, Charles Knowles,
G. Wayne Parrish, and Doug Wentworth
SELECTING MEASURES, DATA NEEDS, AND ANALYTICAL ISSUES
Resource Paper
Transportation Data and Performance Measurement................................................ 75
Doug Dalton, Joseph Nestler, John Nordbo, Bob St. Clair, Ernest Wittwer, and Mark Wolfgram
Panel Discussion, Part 1 ......................................................................... 88
TRB and Florida Examples, Anita Vandervalk ..................................................... 88
Transit Perspective, Paul O’Brien ................................................................. 90
Puget Sound’s Congestion Management System, Joel Pfundt......................................... 92
Panel Discussion, Part 2 ......................................................................... 94
Pennsylvania Department of Transportation’s Closed-Loop Process, Douglas Zimmerman.............. 94
Intelligent Transportation Systems and Performance Measurement, Rick Schuman..................... 97
Performance Measurement in Portland, Oregon, Michael Hoglund................................... 97
Customer Is Key in Houston, Jeffrey Arndt........................................................ 98
General Discussion .............................................................................. 99
Workshop Summary............................................................................. 100
Brenda Berg, Joy Dahlgren, Becky Duke, Mark Hallenbeck, Shirley Hsiao, Patricia Hu,
David Kuehn, Joseph Segale, Chuck Sonday, and Ronald Tweedie
CONNECTING SYSTEM PERFORMANCE MEASURES TO BROADER GOALS
Resource Paper
Measuring That Which Cannot Be Measured—At Least According to Conventional Wisdom .......... 105
Michael Meyer
Panel Discussion ................................................................................ 126
From Outputs to Incomes—No Perfect Indicators, Tarek Hatata..................................... 126
Society’s Values Change—And What Is Expected of Us, Neil Pedersen ............................... 129
Ways We Grow, Ways We Measure, James Corless ................................................. 132
General Discussion .............................................................................. 134
Workshop Summary............................................................................. 135
Scott Bassett, Bradley Beck, Conan Cheung, Jim Dorre, Tremain Downey, Lisa Klein,
Marian Lee-Skowronek, and Jon Williams
FREIGHT PERFORMANCE MEASURES
Panel Discussion, Part 1
Current Issues in Freight Movement............................................................... 139
Federal Highway Administration’s Freight Analysis Framework, Harry Caldwell ...................... 139
Issues and Trends in the Trucking Industry, Gary Nichols........................................... 140
Issues and Trends in the Railroad Industry, LaDonna DiCamillo..................................... 140
Panel Discussion, Part 2
Public-Sector Freight Performance Measures ....................................................... 141
Projections in Freight Planning, Gerald Rawlings................................................... 141
Goods Movement in California, Dilara Rodriguez.................................................. 142
Direction for Freight Performance Measures, Mark Larson.......................................... 143
SUMMARY AND CONCLUSIONS .............................................................. 147
APPENDIXES
A Summaries of 20 Poster Sessions .............................................................. 155
B Summary of Peer Exchange on Data for Performance Measures:
Madison, Wisconsin, August 25–26, 2000 ..................................................... 198
C Research Statements Developed During Peer Exchange .......................................... 214
D List of Participants........................................................................... 216
General Overview
Introduction
Executive Summary
Conference and Proceedings Format
Opening General Session