Highway Performance Monitoring SystemStrategic Reassessment

DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

[FHWA Docket No. 97-10]

Highway Performance Monitoring System--Strategic Reassessment

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Notice and request for comments.

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SUMMARY: This notice requests public comment on issues related to a

strategic reassessment of the Highway Performance Monitoring System

(HPMS) that the FHWA is initiating. Public comments are solicited at

this time on the conceptual plan for the reassessment described in this

notice, in addition to comments on other issues that should be

considered in planning and conducting the reassessment. The FHWA

working papers developed during the conduct of this reassessment will

be placed in the docket for review and comment.

DATES: This docket will remain open until the reassessment is complete.

However, in order for comments to be considered in the early stages of

the reassessment, comments should be submitted on or before February

21, 1997.

ADDRESSES: All signed, written comments should refer to the FHWA Docket

Number 97-10, and must be submitted to the Office of the Chief Counsel,

Federal Highway Administration, HCC-10, Room 4232, 400 Seventh Street,

SW., Washington, DC 20590. All comments received will be available for

examination at the above address from 8:30 a.m. to 3:30 p.m., e.t.,

Monday through Friday, except Federal holidays. Those desiring

notification of receipt of comments must include a self-addressed,

stamped postcard/envelope.

FOR FURTHER INFORMATION CONTACT: Mr. James Getzewich, Highway System

Performance Division, Office of Highway Information, (202) 366-0175,

Federal Highway Administration, Department of Transportation, 400

Seventh Street, SW., Washington, DC 20590. Office hours are from 7:30

a.m. to 4:00 p.m., e.t., Monday through Friday, except Federal

holidays.

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SUPPLEMENTARY INFORMATION: The HPMS was developed in 1978 as a national

highway transportation system data base. In its current configuration,

the HPMS includes limited data on all public roads, more detailed data

for a sample of the arterial and collector functional systems, and

area-wide summary information for urbanized, small urban, and rural

areas. The HPMS replaced numerous uncoordinated annual State data

reports and biennial special studies conducted by each State for the

FHWA. These reports and biennial special studies were conducted to

provide information to support requirements of title 23, U.S.C.,

section 307(h), which calls for a biennial report to Congress on the

future highway needs of the Nation. The first report, entitled 1968

National Highway Needs Report, was submitted to Congress in January

1968. The first report to make use of the HPMS data base, entitled The

Status of the Nation's Highways: Conditions and Performance, was

submitted to Congress in January 1981.

A major purpose of the HPMS has always been to provide data that

reflects the extent, condition, performance, use, and operating

characteristics of the Nation's highways. In order to meet this primary

objective, the HPMS has gone through an evolutionary process that has

recognized over time the changing needs for accurate and timely data

related to these purposes.

The HPMS was originally implemented in 1978 as a national sample-

based monitoring system designed to assess the use and condition of the

Nation's highway systems. The sample data was supplemented with area-

wide mileage, travel, and other data as a means to provide control

total information and for other analytical purposes. In 1980, the HPMS

merged with the Mileage Facilities Reporting System (MFRS), which was a

basic inventory system that included facility mileage, travel, and

accident statistics. After the HPMS and MFRS systems merged, a single

system evolved to include the universe data attributes of the MFRS, and

the sample and area-wide data attributes of the original HPMS.

In 1988, the HPMS was again enhanced with the addition of more

detailed pavement data, including International Roughness Index (IRI)

measurements of surface roughness. Most recently, in 1993, the HPMS was

again revised to meet needs brought about by changes in the FHWA

analysis and simulation models, including the shift to a geographic

information system (GIS) environment; the effects of the 1990 Census;

the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA),

Pub. L. 102-240, 105 Stat. 1914; the Clean Air Act Amendments of 1990,

Pub. L. 101-549, 104 Stat. 2399; and the Environmental Protection

Agency (EPA) requirements concerning vehicle miles of travel (VMT)

tracking data in air quality non-attainment areas. See Section 187, VMT

Forecasting and Tracking Guidance, 57 FR 9549 (March 19, 1992). The

1993 revision of the HPMS added nearly a dozen universe data items to

be collected for the National Highway System (NHS) and other principal

arterials. The amount of sample traffic data for urbanized air quality

non-attainment areas was increased, as were the percent truck data

requirements. Several pavement data items were deleted in their

entirety, as were sample data items for rural minor collectors.

For the most part, changes to the HPMS over its nearly 20 year life

reflect an evolutionary process by which the HPMS data base adjusts

responsively to legislative changes and other changes in the focus of

the highway program. The HPMS has evolved over time to stay responsive

to the demands placed upon it.

Purpose

The purpose of the strategic reassessment is to review the HPMS in

light of contemporary issues and anticipated future needs, and

determine what changes, if any, are necessary at this time. The

reauthorization of the ISTEA provides an appropriate opportunity and

framework for the FHWA to undertake a reassessment of the HPMS. Also

providing an impetus to this strategic review, are constant changes in

technology, the development and deployment of Intelligent

Transportation Infrastructure (ITI), requirements of the Government

Performance and Results Act of 1993 (GPRA), Pub. L. 103-62, 107 Stat.

285, changes to State data requirements, increased State use of

management systems, and reassessment of the roles of government and the

private sector.

Study Plan

The FHWA will undertake a multi-step approach to complete the

strategic reassessment. The first step will focus on the development of

an FHWA working paper that will explore several potential alternatives

for a future HPMS. The working paper will be placed in the docket noted

above for review and comment upon its completion. Completion of the

working paper is expected by December 31, 1996. The working paper

intends to address alternative HPMS futures including, but not

necessarily limited to, the following scenarios:

(a) Redefining the federal role in monitoring highway condition and

performance through the HPMS, to a role that concentrates on the NHS;

(b) Establishing a data collection process to replace the HPMS that

would focus, primarily, on the federal collection of a nationally

significant data sample to assess, and report on, conditions and

performance for all non-local functional systems;

(c) Changing the HPMS, while continuing to focus on a State

significant HPMS data sample that will serve both Federal and State

level policy and planning needs;

(d) Placing greater reliance on other sources for HPMS data, such

as State management systems and intelligent transportation system (ITS)

deployments; and,

(e) Maintaining the status quo--minor, or no change. Comments on

these, or other appropriate, scenarios are invited.

A second step will focus on an outside study of the existing HPMS.

This outside study will also include making an assessment on a number

of critical issues related to the future form, and direction, of the

HPMS. Completion of this step is expected by April 15, 1997. The

parameters of the outside study will likely include, but not

necessarily be limited to, the following issues:

(a) The purpose, scope and objectives of the existing HPMS;

(b) Whether collection of HPMS data is necessary;

(c) Uses, and users, of HPMS data;

(d) Better integration of the HPMS and the existing State, and

local, data processes;

(e) More effective collection of HPMS data; and,

(f) Appropriate alternatives to the current HPMS.

Comments on these, or other appropriate, issues are invited.

The third step will focus on the development, and execution, of a

public outreach and involvement program. The objective of this step is

to provide maximum opportunity for participation in the strategic

reassessment of the HPMS by those customers, stakeholders, partners,

and other interests that are impacted by the HPMS. This step is

expected to be completed by July 31, 1997. Mechanisms that are being

considered for this effort include, but are not limited to, the

following elements:

(a) Participation of the general public and interest groups through

the review and comment process of working

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documents, as well as interim and final products submitted pursuant to

this notice and docket;

(b) Participation of the general public and interest groups through

attendance at national workshop(s) and/or meeting(s);

(c) Participation of the transportation community at large through

the Transportation Research Board (TRB);

(d) Participation of States through the American Association of

State Highway and Transportation Officials (AASHTO);

(e) Participation of the metropolitan planning organizations (MPOs)

through the Association of Metropolitan Planning Organizations (AMPO);

(f) Participation of organizations which represent non-government

users of the HPMS data; and,

(g) Continued participation by the existing HPMS Steering

Committee. Comments on the elements of an appropriate outreach program

are invited.

The final step will focus upon the synthesis of the working paper

on alternatives, the outside study of the HPMS, and the results of the

outreach and involvement program to define appropriate changes to the

HPMS. The synthesis is expected to be completed by September 30, 1997;

and the results will be published for comment. The FHWA is initiating

this strategic reassessment with the intention to maximize public input

and provide as much flexibility as possible in meeting future HPMS data

needs. However, there are a number of principal objectives that will

guide the outcome of the reassessment effort. First, the future HPMS

will need to support any changes to the FHWA's stewardship

responsibilities that may result from the reauthorization of the ISTEA.

In addition, the future HPMS will need to continue to support various

Congressional requirements, including the Conditions and Performance

Reports and those imposed by the GPRA. Finally, the outcome of the

strategic reassessment process must recognize the national interest in

the NHS and the need to continue to assess highway conditions and

performance at the national level.

Authority: 23 U.S.C. 315; 49 CFR 1.48.

Issued on: December 12, 1996.

Rodney E. Slater,

Federal Highway Administrator.

[FR Doc. 96-32479 Filed 12-20-96; 8:45 am]

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