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F.P. Salvucci 1
The "Big Dig"
of Boston, Massachusetts:
Lessons to Learn
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F.P. Salvucci 2
SUMMARY
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F.P. Salvucci 3
EQUITYECONOMY
ENVIRONMENT
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F.P. Salvucci 4
BENEFITS OF PROJECT ENORMOUS
A) Avoid gridlock
B) Improve environmental quality
C) Allow growth of downtown economy
D) Enormous short-term construction benefits
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F.P. Salvucci 5
DELAY IMPOSES SERIOUS CONSEQUENCES
A) Postponement of benefits
B) Inflation drives up construction cost
C) Delay leads to scope changes that may be costly
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F.P. Salvucci 6
TRANSITIONS
Transitions, both political and through disciplinary "cultures" of planning, design, construction, are difficult to manage
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F.P. Salvucci 7
ADEQUATE PUBLIC OVERSIGHT
ESSENTIAL TO SUCCESS
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F.P. Salvucci 8
CHALLENGES AND OPPORTUNITIES AHEAD
A. Boston Metropolitan Area• Operations and maintenance
• Transit
• Surface land over Artery
• Smart growth
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F.P. Salvucci 9
CHALLENGES AND OPPORTUNITIES AHEAD
B. National• Re-development of old infrastructure (not petrified wood)
• Maintenance of healthy city during construction
• Stable dedicated Federal funding
• Need for integrated environmental and construction oversight
C. Talent and competency in engineering/public policy interface
<1950s ethnic joke>
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F.P. Salvucci 10
INTRODUCTION: The Central Artery/Tunnel (CA/T) is Like an Escher
Print.I. A framework to consider large projects
II. "Pre-History": 1948-1959; 1959-1970
III. Project conceptualization; Environmental analysis: 1970-1990
“Doing the right job”
IV. Construction period history, 1991-2002
“Doing the job right”
V. Key questions
VI. Challenges and opportunities ahead, Boston and national significance
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F.P. Salvucci 11
ESCHER PRINT 1
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F.P. Salvucci 12
The Central Artery/Tunnel (CA/T) is Like an Escher Print
1) The biggest highway project in the U.S. grew out of the anti-highway movement
2) CA/T is about improved quality of mobility for core, or about increasing quantity of low-quality auto access.
3) The CA/T won't work unless continued improvements are made in mass transit
4) CA/T is about environmental improvement by replacing elevated highway primarily with open space.
5) CA/T is about major urban growth in the South Boston seaport district.
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F.P. Salvucci 13
... Escher Print (cont’d)
6) The CA/T is about construction jobs
7) The CA/T is about city building and "smart" economic growth
8) Conditions of political support are often ambiguous and imprecise
9) Dominant culture of project, as well as political leadership, can change over the life of the project
10) The CA/T is an example of Massachusetts gaining at the expense of the rest of the US
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F.P. Salvucci 14
... Escher Print (cont’d)
11) The CA/T is an example of partisan politics depriving Massachusetts of fair treatment under the Interstate Highway Program (1956) and the National Environmental Policy Act
12) The CA/T is the first interstate highway developed in substantial compliance with the National Environmental Policy Act
13) The cost of the CA/T is higher because of compliance with the National Environmental Policy Act
14) The cost of the CA/T is lower because of compliance with environmental law
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F.P. Salvucci 15
... Escher Print (cont’d)
15) The cost of the CA/T is higher because of Federal Interstate Highway standards and highway culture
16) The cost of the CA/T is higher because of an excessive practice of “mitigation”
17) The CA/T could be built only with a public/private partnership
18) The CA/T costs increased because of an excessive view of “privatization”
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F.P. Salvucci 16
THE BIG DIG
1. A major civic initiative for the improvement of the environment of the City of Boston
or
An agglomeration of “business” opportunities for:
• developers
• contractors
• consultants
• Massport
• Masspike
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F.P. Salvucci 17
THE BIG DIG
2) Civic enterprise consensus -- or 51/49 “spoils” politics; (.9)6 < .5
3) Full cost and benefit sharing -- or burden shifting
Public private partnership -- or privatization
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F.P. Salvucci 18
ESCHER PRINT 2
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F.P. Salvucci 19
FRAMEWORK
Basic Characteristics Which Distinguish Very Large Projects • Many phases (6) of life of project, over a long period of time, during
which new information and changing values may change the context of the project.
(1) Prehistory(2) Project conceptualization, environmental analysis(3) Design of project; procurement process(4) Construction(5) Operation & Maintenance(6) Land use accessibility and use changes
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F.P. Salvucci 20
FRAMEWORK
Basic Characteristics Which Distinguish Very Large Projects
• Changes in political leadership may occur every 2 to 4 years, changing the context, and key players appointed by governors are likely to change during course of the project development.
• Technical requirements of 6 phases bring large numbers of specialists and interest groups temporarily into and out of the project, and may change the “culture of the projects.”
• Changes in political leadership may change the philosophy of the project
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F.P. Salvucci 21
Phase Time Scale Political(GovernorsTerms)
Transportation Philosophies
Local & state highway, 1958-1956Prehistory Decades (1948-1969) 2 Year - 1968;
4 Year - 1968-present
SargentFederal Highway, 1956-2000
Interstate; 90% Federal funds
Federal Highway
National Environmental Policy Act
Multi-modal, highway/transit/ rail/airport
ProjectConceptualizationEIS
3-5 Year (1970-1980)
20-24 Years
Sargent
Dukakis
King
Dukakis
Dukakis
Weld
Procurement
Engineering Design
Land Acquisition
2-4 Years (1986-1991)
12 Years (1991-2003)
6 Years (1991-1997)
Dukakis
Weld
Cellucci
Swift
Romney
Construction 10 Years (1987-2000)
15 years (1991-2005)
Weld
Cellucci
Swift
Romney
Operation and
Maintenance
50 Years (1996->2046)
Weld
Cellucci
Swift
Romney
?
1991 ISTEA, 80% Federal funds but funding capped at $6 billion
FRAMEWORK
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F.P. Salvucci 22
Pre-1956• Bottleneck relief• Unimodal• Location standards• Externalize costs• State and local funds• Patronage politics
1956-1969• Interstate system• 90% Federal funds “cost-plus”• Uniform highway standards• Uniform relocation benefits• Patronage, but less corruption• Growth in use of models for design
TIMELINE
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F.P. Salvucci 23
1966-1991• Section 4(f)• National Environmental Policy Act (1969)• Internalize external costs• Multi-modal planning• Boston Transportation Planning Review (1970-1972)• Interstate transfer, flexibility (1973)• Operating subsidies for transit• Growth in use of models for planning
TIMELINE
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F.P. Salvucci 24
1991-1997• ISTEA - flexibility and fixed pot of State funds• Metropolitan planning organization• Flexible standards• Models vs. MPO• Management studies (bridges, congestion, air quality, etc.)
1997 - today• ISTEA continues• No Federal transit operating subsidy (1997)• Less emphasis on management studies
TIMELINE
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F.P. Salvucci 25
FRAMEWORK
Over-Arching Federal Funding Role
• A Tale of Two RepublicansEisenhower (Nixon, Ford)Reagan
• Nature of Public/Private Relationship
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F.P. Salvucci 26
FRAMEWORKStrong Federal Role with bipartisan support helps set priorities(Eisenhower, Nixon, Ford)
• Reduces peanut butter effect
• Prioritizes future
• accepts responsibility for external costs of Federal program
vs.
Ambiguous Federal role
Congressional Earmarks
Politicization of program (Reagan)
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F.P. Salvucci 27
John Volpe
Vincent Barletta
Kevin Lynch
Paul Lusk
Tony DiSarcina
Bill Reynolds
Kevin White
Tom Winship
Bill Lamb
Miguel Rosales
Rebecca Barnes
Norm Leventhal
Bob Weinberg
WHOSE IDEA WAS THE BIG DIG?
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F.P. Salvucci 28
FRAMEWORK
• Project Conceptualization and EIS• Doing the Right Job
Physical concept developed through interactive process of communication with key constituencies during EIS process
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F.P. Salvucci 29
ESSENTIAL ROLE OF PRESS
Supportive
Contrarian
Conflict will exist, so how does it work for you?
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F.P. Salvucci 30
FRAMEWORKDevelopment of Political Constituency of Support
• Identification of Opponents
Development of Modification and Mitigation to Compensate “Losers”
• Develop a Pareto Optimum
• Refuse to Pay Extortion
Embrace the EIS
• Institutionalize the Constituency
• Adopt Clear Mechanisms for Modification
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F.P. Salvucci 31
FRAMEWORK
Institutional Analysis - Who Are The Key Constituencies?
User Groups Drivers, Shippers, Real Estate Developers
Affected Third Parties & Environmentalists
Funding Groups FHWA, Congress, Legislature, Governor
“Surrogate Customers” Taxpayer/Toll Paying Constituents,
Operations & Maintenance Entity, City Planners, Construction Constituencies
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F.P. Salvucci 32
MITIGATION vs.
CO-PRODUCTION & SYNERGY
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SUMMARY OF PROJECT CONCEPTUALIZATION:
“Doing the Right Job”1) Fairness of Interstate money for CA/T
2) Combination of CA/T
3) Lack of suitable alternative to deal with:• physical decay of structure• traffic problems of elevated Central Artery• physical ugliness of elevated• need to maintain traffic during construction
4) Technical feasibility
5) Competency, public & private
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F.P. Salvucci 34
6) Building opportunities program to deal with construction labor
7) Lazard Freres financial study; operation and maintenance role
8) DeVillars certificate & CLF agreement. Park, Spectacle Island, cable-stayed bridge transit, Park & Ride ITS
9) Move Mass 2000; Artery business committee, environmental oversight committee, environmental process
10) Competent public sector project management, “second opinion committee”
SUMMARY OF PROJECT CONCEPTUALIZATION:
“Doing the Right Job”
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F.P. Salvucci 35
(VIDEO)
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F.P. Salvucci 36
Construction technology
Maintenance of traffic during construction
Excellent safety record
DOING THE JOB RIGHT
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• No designation of "owner" with operation and maintenance responsibility at the table
• Dismantling of second opinion capacity
-- other public agencies-- interfaces between basic design/final design-- value engineering threatening-- reduction of benefits and cost-shifting-- right-of-way acquisition-- government oversight of environmental commitments weak,
excessive reliance on unfunded advocacy groups-- neglect of "building opportunities program"-- unprogrammed traffic mitigation
• No longer an ICE process
DOING THE JOB NOT SO RIGHT
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F.P. Salvucci 38
Boston "PRE-HISTORY”
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F.P. Salvucci 39
1776 --> War of 1812 --> 1830s
Boston "PRE-HISTORY”
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F.P. Salvucci 40
1830s - 1870
Boston "PRE-HISTORY”
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F.P. Salvucci 41
Boston 1923
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F.P. Salvucci 42
"PRE-HISTORY": 1948-1959; 1959-1970
Original Central Artery
1948-1959: Development and Construction
• Good news: -- traffic• Bad news: -- disruption of city
-- demise of Old Colony Railroad
1959-1970: Living with the Artery
• Widen the highway/narrow the highway• Renewed interest in public transportation• Antibodies
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F.P. Salvucci 43
Grand Central Artery…
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F.P. Salvucci 44
Grand Central Artery…
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F.P. Salvucci 45
PROJECT CONCEPTUALIZATION: "Ancient" History 1969-1975
"Revolt" against the "Inner Belt" Highway;Shift to emphasis on public transportation, urban supportive transportation.
< Religious anecdote>Bill Reynolds, MIT graduateKevin White, Boston Globe <A Tale of Two Republicans; Sargent & Nixon>
(1971) Sargent philosphy; decisionMBTA institutional and financial capacity building
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F.P. Salvucci 46
Boston Skyline: 1958 - 1995
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F.P. Salvucci 47
CONSTRUCTION PERIOD HISTORY , 1991-present
1991 Weld
Partisanship
Denigration of public employees
Fund raising and Bechtel/Parsons
"Scheme Z" controversy
Schedule slippage
Tunnel focus
Change in Interstate Highway funding
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F.P. Salvucci 48
Bad News
Reneg on building opportunities program
• Transit• East Boston mitigation
Schedule slippage
Cost increases
Operation and maintenance ignored
Loss of public sector management
CONSTRUCTION PERIOD HISTORY , 1991-present
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F.P. Salvucci 49
Big Dig
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Good News
Project goes forward
Safety record extremely good
Technical ingenuity
Congressional delegation delivers $5 billion net during 1990s
Traffic mitigation goes well
CONSTRUCTION PERIOD HISTORY, 1991-present
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F.P. Salvucci 51
Big Dig
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F.P. Salvucci 52
KEY QUESTIONS
A. Why are costs up?1983 (uninflated) $2.8 billion
1990 (including mitigation and inflation) $6 billion
2001 $15 billion
Not environmental mitigation but land taking settlements and delay
<Tale of two more Republicans: Reagan and Weld>
Post 1991 scope changesCompare Big Dig and Boston Harbor Cleanup
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F.P. Salvucci 53
B. Is the project still worth it?
For the Boston Metropolitan area?-- Fiscal stimulus-- Economic value of core
C. Why should the Federal government pay for this?
-- National equity-- Rebuilding infrastructure
KEY QUESTIONS
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F.P. Salvucci 54
CHALLENGE AHEAD IS PRUDENT USE
1) Proper operation and maintenance
2) Continued improvement to transit
3) Continued limits on parking
4) Smart growth
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F.P. Salvucci 55
FEDERAL AND STATE OVERSIGHT ESSENTIAL
1) Environmental
2) Cost monitoring
3) I.C.E. and inflation, changed conditions
4) Federal funding essential
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F.P. Salvucci 56