bjective: Development of an instrument to form measures aimed at improving and monitoring their im- plementation, which will consider deviations from the specified parameters. The formation instrument is regarded as a complete set of elements for performing a function by systematizing a set of units (objects, phenomena), i. e., step-by-step application of tools compiled into a single algorithm. Methods: The main tools for analyzing and managing the passenger complex during ongoing activities are: Pareto chart, cause & effect diagram (Ishikawa), correlation, risk management (3-map method), strategic management (X-matrix), etc. Results: The study has revealed that the formation instrument consists of a sequence of systematic forecasting and evaluation of the algorithm of sequential operations: statistics, analysis, risk calculation, verification, control, etc. It has been established that it is necessary to strive for the ability to achieve a given parameter of the process stability in the passenger complex avoiding critical devia- tions from the desired result. Practical importance: Using the example of the 2019/2020 Oktyabrskaya Railway passenger complex winterization, the apparently universal principle of using the formation in- strument has been demonstrated. This principle can be not only applied to other passenger complex pro- cesses but also used in the processes of other facilities in the Russian Railways network.