Strategic approaches to congestion management

The role of evolving travel patterns and emerging sources of data

Congestion is closely linked to regional travel demand. In order to completely eliminate congestion within transportation networks, travel demand would need to be either eliminated or substantially reduced. In reality, complete elimination of congestion is unfeasible. Its absence would suggest insufficient travel demand, potentially reflecting an economically stagnant area. The goal should be to effectively manage congestion, ensuring it remains at acceptable levels and does not adversely impact residents.

The COVID-19 pandemic provided a unique opportunity to observe the effects of a significant reduction in travel demand, as travel restrictions led to a significant increase in e-commerce and remote work. During the peak of the pandemic, congestion decreased markedly around the world. However, following the easing of restrictions, congestion has increased, displaying new patterns such as midday congestion and extended peak periods. These changes are largely attributed to shifts in travel habits, an increase in non-work errands during midday hours, and higher volumes of e-commerce delivery traffic.

As travel patterns continue to evolve, it is essential to regularly update the congestion management process with the most current data. This approach ensures a comprehensive understanding of present travel trends based on recent conditions. Emerging sources of data, such as location-based services (LBS) data, may be incorporated into updates, as they offer more current and timely travel metrics compared to traditional sources like the American Community Survey. LBS data provide insights into job accessibility, commute times by car and transit, pedestrian and bicycle activity levels, as well as transit boarding and alighting information.

It is important, however, to acknowledge the limitations associated with LBS data. ICF’s previous projects show that reduced coverage and smaller sample sizes in rural or sparsely populated regions can affect LBS data quality. Whenever possible, it’s advisable to validate LBS data against ground truth sources, even at an aggregate level. Additionally, LBS data may be subject to source-driven biases across different demographics and travel modes, such as biases introduced by smartphone adoption, app opt-in rates, and similar factors. Reviewing vendor documentation regarding their mitigation strategies is essential for understanding and addressing these potential issues.

Area-specific considerations and strategies to manage congestion

Congestion impacts various types of areas in distinct ways; therefore, strategies for managing congestion should be tailored by considering the unique characteristics and requirements of each area.

• In urban environments, congestion arises from the limited capacity of roadways and transit systems, coupled with the high density of population and employment. The congestion issue in the urban areas is exacerbated during peak commuting periods due to a large number of people attempting to reach the same destinations at the same time.
• In suburbs, the issue of congestion is more focused on corridors, especially during the peak commute. The challenge for suburbs is mostly due to limited transit options and automobile dependent land use. In recent years, large warehouses and distribution centers have been frequently located in clusters in suburban industrial zones, which poses a congestion challenge both for freight traffic and passenger automobile traffic.
• Although congestion in rural areas is less frequent, it significantly impacts these regions due to the limited availability of alternative routes, especially during incidents. This congestion creates access challenges for residents who already face long travel times to their destinations and often lack high-quality, timely transit options.

The strategies should extend beyond roadways, aiming to enhance overall mobility and accessibility. Since the congestion management process is intended to support multimodal performance, its focus must be broader than simply roadways. The strategies must be customized based on the context of the region and often include multimodal strategies such as Transportation System Management and Operations (TSMO) and Transportation Demand Management transit, land-use, etc.

A collaborative, inclusive, and data-driven approach to updating the congestion management process

As the author of the Federal Highway Administration (FHWA) Congestion Management Processes Guidebook, ICF has unmatched experience in shaping the national framework for performance-based congestion planning. Over the past two decades, ICF has developed most of FHWA’s guidebooks, case studies, and technical resources focused on TSMO and Transportation Demand Management (TDM). These strategic plans, corridor studies, and training programs have helped MPOs integrate congestion management into broader regional goals such as equity, climate resilience, and multimodal mobility.

Beyond national guidance, state and local transportation agencies can benefit from hands-on technical assistance such as workshops, webinars, and peer exchanges. We've used that approach to support CMP updates for the Baltimore Metropolitan Council, the North Jersey Transportation Planning Authority (NJTPA), Baltimore Metropolitan Council (BMC), and Chicago Metropolitan Agency for Planning (CMAP).

We work with agencies to develop a customized approach based on the unique characteristics of the region and agreeable to all the stakeholders. Our collaborative, inclusive, and data-driven approach includes:

• Performance-based planning: Use of multimodal performance measures and scenario analysis to guide investment decisions.
• Integration with regional planning: Use of the Congestion Management Processes as a strategic tool that informs investment decisions, supports the Regional Transportation Plan (RTP), and aligns with the Transportation Improvement Program (TIP).
• Stakeholder engagement: Use of inclusive outreach strategies that reflect the region’s demographics and ensure meaningful participation.