[Federal Register Volume 61, Number 247 (Monday, December 23, 1996)]
[Notices]
[Pages 67590-67592]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-32479]


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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.


[[Page 67591]]


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

[[Page 67592]]

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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