The use of flexible macroblock ordering (FMO) in H.264/AVC improves error resiliency at the expense of reduced coding efficiency with added overhead bits for slice headers and signalling. The trade-off is most severe at low bit rates, where header bits occupy a significant portion of the total bit budget. To better manage the rate and improve coding efficiency, we propose enhancements to the H.264/AVC frame layer rate control, which take into consideration the effects of using FMO for video transmission. In this article, we propose a new header bits model, an enhanced frame complexity measure, a bit allocation and a quantization parameter adjustment scheme. Simulation results show that the proposed improvements achieve better visual quality compared with the JM 9.2 frame layer rate control with FMO enabled using a different number of slice groups. Using FMO as an error resilient tool with better rate management is suitable in applications that have limited bandwidth and in error prone environments such as video transmission for mobile terminals.