transportation i agencies meet fiscal...

TR NEWS 230 JANUARY–FEBRUARY 2004

17

In what many believe is theworst fiscal crisis since WorldWar II, states responded to a third consecutive year of

reduced revenues.The National Governors Association andthe National Association of State Budget Officers reportedthat 37 states were forced to trim approved budgets bynearly $14.5 billion—the largest reduction recorded by the27-year-old fiscal survey.

State departments of transportation (DOTs) and othertransportation agencies have dealt with budget problems in avariety of ways beyond reductions in staff and in spending.Transportation Research Board (TRB) staff found thattransportation agencies are developing and deployinginnovative approaches to meeting today’s transportationneeds. For example, state DOTs are

◆ Changing procurement laws to permit design–build,best value procurement, job order contracting, and otherinnovative approaches;

◆ Applying more sophisticated technology in thecollection and analysis of data;

◆ Integrating many data sources into databases tosupport more comprehensive analyses of transportationprograms;

◆ Deploying alternatives to conventional materials andconstruction methods to build structures more efficientlyand with greater durability;

◆ Accelerating the delivery of completed projects tominimize the inconvenience and costs to the traveling publicand adjacent businesses;

◆ Using asset management to integrate managementsystems for maintenance, pavements, bridges, road weather,and traveler information supported by geographicreferencing;

◆ Developing total storm management techniques forwinter services so that the state and contractors canintegrate and coordinate responses to changing weatherconditions and traffic characteristics; and

◆ Addressing freight transportation in highway planning,multimodal systems, and multijurisdictional regions andcorridors.

These and other innovations are described in thefollowing sections.

TransportationAgenciesMeet Fiscal ChallengesThe Transportation Research Board’s2003 Field Visit Program

28065_TRB_Book 3/2/04 12:20 PM 7

TR N

EWS 23

0 JANU

ARY–

FEBR

UARY 2

004

18

Institutional IssuesManagement and LeadershipStates are reeling from the economic slowdown, whichreduced income tax revenues and decreased fundingfor transportation initiatives. Moreover, reauthoriza-tion of the federal funding in the TransportationEquity Act for the 21st Century (TEA-21) is in limbo.This double blow has required strategic allocation ofresources to maintain the condition, safety, and con-venience of transportation systems for users.

Economic concerns, however, are only one man-agerial hot-button issue. Efforts to flatten the organi-zational structures in state DOTs, coupled with earlyretirement programs and the aging of top manage-ment, have produced a crisis of succession. More than50 percent of the state transportation agency work-force will retire in the next 10 years, including manyin upper management. With few middle managers topromote, many state DOTs must begin successionplanning.

TRB Special Report 275, The Workforce Challenge,highlights issues in recruiting, training, and retainingqualified workers in the transportation industry.Acknowledging state fiscal conditions, the report rec-ommends that agencies position human resourcesactivity strategically to meet future needs, not to fillcurrent vacancies.

Top management therefore must target funds foreducation and training to prepare the future work-force. All too often, however, professional develop-ment budgets are among the first cut. States arerethinking this approach, to ensure that staff has thetools to handle upcoming transportation challenges.

In May 2003 top officials from 27 states met at aChief Executive Officer (CEO) Leadership Forumsponsored by the American Association of State Highway and Transportation Officials (AASHTO), theFederal Highway Administration (FHWA), and TRB,to discuss common organizational challenges andopportunities. The forum focused on three sharedconcerns: strategic leadership, systems operations, andprogram delivery.

The state DOT leaders developed action plans toshare strategic themes, performance measures, bench-marks, and best practices; to cultivate public supportfor DOT programs; to identify core competencies fortransportation officials; and to develop organizationalmodels for more effective operations. The state visitsconfirmed that CEOs are focusing on these commonconcerns and that TRB can be the vehicle for sharingeffective strategies.

Legal IssuesLegal concerns are prevalent throughout transporta-tion agency operations. Recurrent issues include thefollowing:

SecurityEach curtailment or restriction of transportation ser-vices raises a question about infringements on indi-vidual civil liberties. According to the U.S. SupremeCourt, if federal funding is involved, service benefitsshould not be terminated without a hearing. The TRBLegal Resources Group is responding to requests toresearch and clarify this issue.

Tort LiabilityThe federal highway safety program, codified in 23USC 409, requires the collection of data, including col-lision reports. The law prohibits use of these data indamage lawsuits against highway agencies, but statecourts often have resisted. In Guillen v. Pierce County,the Washington Supreme Court declared a major partof Section 409 unconstitutional. The U.S. SupremeCourt reversed that ruling in January 2003, explain-ing the rationale and purpose of the section. TheGuillen decision is helping state and local govern-ments obtain more favorable results in court whenapplying Section 409 to protect the federal safetyimprovements program.

Emerging TechnologyTransportation professionals are involved in significantlegal issues over high technology. The bankruptcies oftechnology and communications companies haveprompted reviews of intellectual property and bank-ruptcy laws. With more transportation services rely-ing on intelligent transportation systems (ITS)

T R B ’ S 2 0 0 3 F I E L D V I S I T P R O G R A M

TRB’s Field VisitProgramSpecialists in the Transportation Research Board’s Technical Activities Divisionidentify current issues, collect and generate information on the issues, and dis-seminate the information throughout the transportation community. The TRBAnnual Meeting, TRB-sponsored conferences and workshops, standing com-mittee meetings and communications, publications, and contact with thousandsof organizations and individuals provide TRB staff with information from the pub-lic and private sectors on all modes of transportation.

A major source of this information is the annual field visit program.TRB staff meetson site with representatives of each state department of transportation and also withrepresentatives of universities, transit and other modal agencies, and industry. Theobjectives of the field visit program are to

◆ Identify problems and issues of importance to the department and otherorganizations visited,

◆ Provide assistance and information to help the organization address theproblems and issues,

◆ Identify problems and issues that TRB should address to assist transporta-tion organizations, and

◆ Identify activities that TRB should continue or undertake,to provide the bestservice to sponsors and other customers.

28065_TRB_Book 3/4/04 8:39 AM Page 18

incorporating communications technologies, legalissues also have involved the Federal Communica-tions Commission and the laws that govern commu-nications providers.

Infrastructure RenewalFaced with reductions in workforce and increasedpublic demands for quicker project delivery, manypublic agencies have made radical changes to pro-curement laws to permit experimentation withdesign–build, best value procurement, job order con-tracting, and other innovative practices, turning awayfrom the low-bid system that helped build moderninfrastructure. New procurement systems create newchallenges for construction attorneys, changing thelegal landscape and introducing new legal issues.

Transit LawThe Americans with Disabilities Act (ADA) requiresthe provision of transit services to the elderly and dis-abled. As the nation grays, the demand for paratransitservice increases, but local agencies are experiencinggreater shortfalls in funding.

Advocates of ADA are calling for stricter adher-ence to the regulations. Agencies argue that their ser-vices “come close” to the regulatory requirements andconstitute “a large part of the budget.” ADA advocatesmaintain that the regulations imply strict liability, with“zero tolerance,” and that the services are a civil right.

EmploymentEmployment and labor-related issues persist as major

concerns for agency officials. Sexual harassment, com-pliance with the ADA requirements, and the laborprotection provisions in Section 13(c) of the FederalTransit Act are among the issues dominating trans-portation employment and labor law. TRB releasedseveral reports on these issues in 2003, including Tran-sit Cooperative Research Program Legal ResearchDigest 19, Impact of the Americans with Disabilities Acton Transit Operations (August 2003) and SelectedStudies in Transportation Law, Volume 6, TransitLabor—13(c) Decisions (2003).

PlanningFor years the transportation planning community hasheard so many calls to break through the “silos” iso-lating the different sectors of transportation that manyplanners do not want to hear the word silo. Nonethe-less, three trends continue in most transportationagencies:

◆ Professionals within the silos are facingincreasingly complex issues,

◆ Coordination among the silos has increased inimportance, and yet

◆ Breaking out of the isolation has becomeincreasingly difficult.

All transportation professionals have encounteredan increase in the issues, concerns, and communitiesto involve in decision making. The trend cuts acrossmodes and is accelerated by the goal of establishing amultimodal system.

Washington (D.C.) Metropolitan Area Transit Authority provides wheelchair accessibility in 93 percent of itsactive fleet of 1,442 buses. Buses are on order that will bring the fleet up to 100 percent.


19

28065_TRB_Book 3/2/04 12:20 PM Page 19

TR N

EWS 23

0 JANU

ARY–

FEBR

UARY 2

004

20

Transportation planners must consider the grow-ing number and variety of positive and negative effectsfrom the transportation system. The list of new trans-portation planning considerations is well documentedand includes environmental justice, air quality issues,and effects on land use.

Transportation programmers face added difficultiesin programming for large projects because of financialconstraints and the difficulty of assembling largeamounts of money. “Project scope creep”—the grad-ual increase in the activities included in a project—andthe accompanying cost increases are difficult to predictand to accommodate. Project creep affects projects ofall sizes and types, including nonmotorized projectsand transit projects.

Nonetheless, in responding to the increasedresponsibilities, transportation professionals are devel-oping more and more connections among the silos.Discussions with transportation agency staff yield twoclear impressions. First, transportation planning pro-fessionals are committed to their jobs and to theincreased responsibility for environmental steward-ship, capacity increases, and other tasks. Second, theycontinue to develop and implement innovativeapproaches to overcome the many obstacles to doingthe job they want to do.

EnvironmentExecutive Order 13274, Environmental Stewardshipand Transportation Infrastructure Project Review,issued in September 2002, emphasized transportationproject delivery combined with good stewardship ofthe environment. In December 2002, FHWA Admin-istrator Mary Peters established the Vital Few Goals,a set of agencywide performance expectations forimproving the quality and timeliness of the environ-mental review process.

In 2002, FHWA identified five Exemplary Ecosys-tem Initiatives, adding three more in 2003:

◆ Arizona’s Comprehensive Approach to WildlifeProtection and Habitat Connectivity on the StateRoute 260 Project,

◆ Nevada’s Washoe Lake Wetland MitigationArea, and

◆ New Hampshire’s Route 101 Ecological Protec-tion and Enhancement Features.

These and other successful projects around thecountry are providing a strong foundation and a richliterature for environmental streamlining, and theexperience has yielded three key lessons:

◆ Agencywide commitment to environmentalstreamlining and to strong relationships with stake-holders are the two first steps to success.

◆ Education and training of DOT staff, stake-holder staff, consultants, and interest groups must beongoing.

◆ Communication with and among stakehold-ers is critical at all phases, from project planning tooperations.

State DOTs are finding new and creative ways toachieve environmental streamlining goals.

FHWA is considering ways to balance transportationproject delivery with good stewardship of theenvironment.

The Central Artery/Tunnel Project, also known as the Big Dig, in Boston, Massachusetts, is expected to reducecongestion and improve mobility, but the project has exemplified “project scope creep” with its growing price tagand completion delays.


PHO

TO:T

HE

MA

SSA

CH

USE

TT

ST

RA

NSI

TA

UT

HO

RIT

Y

28065_TRB_Book 3/2/04 12:20 PM Page 20

Data and Information TechnologiesFreight DataStates, metropolitan planning organizations (MPOs),and metropolitan areas face substantial challenges inobtaining and using appropriate freight transporta-tion data. Agencies had to make decisions with datafrom the 1997 Commodity Flow Survey (CFS) formultimodal freight activity patterns, while waiting forthe release of the 2002 CFS data at the end of 2003.

The new data may offer less of the geographic detailneeded by agencies than the 1997 version offered,because of reductions in the 2002 survey sample.Some agencies with sufficient funding may purchaseprivate-sector freight data. Funding local or regionalfreight data collection programs to supplement thenational data programs are a substantial cost for agen-cies, as are data modeling and synthesis efforts to esti-mate the geographic detail required for freight flows.

Urban DataThe users of personal travel data at the metropolitanand state levels also are waiting for major data sets.The 2000 decennial census data are now becomingavailable, along with the geographic details useful totransportation planners.

Of particular interest is the Census TransportationPlanning Package, a special tabulation paid for bystates and MPOs that includes journey-to-work data.Another data source for travel patterns is the NationalHousehold Travel Survey, jointly collected by theBureau of Transportation Statistics and FHWA.

State Data ProgramsStatewide data programs reflect industry trends, inte-grating many data sources to support more compre-hensive analyses of transportation programs. Withbudget pressures during the economic downturn,departments are looking to make the widest use ofavailable data.

Departments also are striving to align data collec-tion and analysis with DOT priorities and to demon-strate value for program delivery. Initiatives such astransportation system performance measurement andasset management accentuate the need for data shar-ing and integration.

Geographic Information SystemsGeographic information systems (GIS) are gaininguse; most DOTs have units that manage applications.1

Many are moving away from an orientation to map-ping, to set up an enterprise organizational structurewith staff performing technical support.

Web technologies are a key to supporting moreusers and broader applications of GIS. The requiredtechnical interoperability has increased emphasis ondata sharing and integration.

Information TechnologyState DOT information technology (IT) activities alsoare affected by reductions in resources and funding.The technology priority for most state DOTs is tomaintain a stable IT environment, replacing old hard-ware (personal computers, servers, and network andinfrastructure upgrades) as necessary to keep appli-cations and business functions operating.

Upgrades of business software applications and ofAASHTOWare—AASHTO’s technical service programfor software development—are priorities. New applica-tions are focusing on operations to improve efficiencyand reduce IT costs, particularly through the integrationof systems. Few large IT projects are starting up.

AviationCommercial aviation capacity has not been a front-burner issue for the public, but planners are aware thatcapacity is likely to regain attention as soon as travelreturns to the levels that prevailed before September11, 2001. Although generating public concern andfunding for the enhancement of airport capacity maybe difficult, planners are aware that acting now isimperative, because of the long lead times for infra-structure development.

Low passenger volumes, a related concern, trans-late into a diminished Aviation Trust Fund andreduced revenues for capacity-enhancing projects.Safety and capacity enhancement remain major goalsfor the Federal Aviation Administration.

Some states may decide to halt airport improvementprograms and decline federal matching grants becauseof state budget crises. Major cuts in the Essential AirService program are under consideration.

1 A summary of GIS in state DOTs by the AASHTO GIS forTransportation Task Force is posted at www.gis-t.org/yr2003/2003_GIST_Summary.htm.


21

28065_TRB_Book 3/2/04 12:20 PM Page 21

State AviationThe state budget crisis is the overriding concern forstate aviation directors. Some states are selling off air-craft. Fiscal year 2004 is expected to require deepercuts in budgets.

Some states may decide to halt airport improve-ment programs (AIP) and refuse federal AIP grants,because state and local funds may be insufficient tomeet the required 10 percent matching share. TheBush Administration and Congress also are consider-ing major cuts in the Essential Air Service program.

States maintain concerns about aviation security,and most have taken steps to prohibit the unautho-rized use of general aviation aircraft. Nonetheless, thedeepest concerns seem to arise from the possibility ofunfunded mandates for security.

Major AirlinesThe major airlines do not expect to return to a full-year, industrywide profit until 2005. With financinghighly leveraged, the airlines remain ultrasensitive toexternal shocks and are uncertain about growth.

The legacy network carriers—such as United Air-lines and American Airlines—have reduced fleets andpersonnel. At the same time, others—such as AirTran,Frontier, and JetBlue—have announced substantialaircraft orders.

Although increasing, passenger demand is nearlyone-third below 2000 levels. Weak traffic and lowprices have driven passenger revenue down to levelsnot seen since the mid-1990s.

Cargo also remains weak, with freight volumes 5percent below 2000 levels and mail volumes down 45percent. Grounding aircraft and seeking labor con-cessions have been primary tactics for cutting costs.

Regional AirlinesIn general, the regional airlines have been profitableand are growing. Their size and flexibility allows aquick match of capacity to demand. Lower labor costs,fast turnarounds, high use, and lower breakeven loadfactors contribute to the flexibility. Trading olderturboprops for newer jets has been another plus.

AirportsSecurity and the airlines’ economic problems remainforemost among many airport managers’ concerns. Theairport segment of the aviation industry is experiencingmuch the same financial pressures as the airlines duringthe post–September 11 recession. Reductions in pas-senger volume and flight frequency have reduced rev-enue, leading to rescheduled capital spending, costreductions, and other expense-saving measures untilthe industry recovers.

Airport managers believe that when the recessionends, the congestion experienced throughout the U.S.aviation system during the summers of 2000 and 2001will return. Accordingly, airports prone to major delaysare continuing with critical runway development proj-ects, and airport managers are urging progress on keyNational Airspace System modernization projects toaddress congestion and delay.

General AviationAs with the major airlines and airports, security and fund-ing are the principal challenges facing the general aviationindustry. General aviation is on the verge of profitingfrom the advanced and sophisticated technologies thathave benefited airlines and upscale business aircraft.

Freight SystemsExcept for freight trains at grade crossings and truckson the highways, freight transportation tends to beinvisible to the general public. Long considered rele-vant only to the private sector, freight transportationis gaining attention in most state DOTs.

State decision makers are beginning to understandthe importance of freight transportation to state andlocal economies and the need for public-sectorinvolvement in some aspects of freight. Many stateplanners and analysts face a steep learning curve, how-ever, in comprehending the forces that drive private-sector decision making and how to coordinate public-and private-sector planning and investment processes.

In the past, states handled investments in ports,freight railroads, and airports that benefited freightmovements through programs and processes separatefrom highway programs. Many states now are recog-nizing the need to address freight transportation in thecontext of highway planning, multimodal systems, andmultijurisdictional regions and corridors.

Airport managers are continuing critical runwaydevelopment projects to address congestion anddelays they believe will return once the recessionends; (above) the proposed runway expansion atPittsfield Municipal Airport in Massachusetts.


PHO

TO:D

UFR

SNE-

HEN

RYO

FPO

RTLA

ND,M

AIN

E

TR N

EWS 23

0 JANU

ARY–

FEBR

UARY 2

004

22

28065_TRB_Book 3/2/04 12:20 PM Page 22

Freight is important to state economies. For exam-ple, in California, where one in every seven jobs is con-nected to international trade through the seaports,concerns are growing about the transportation system’sability to handle growth in container traffic, which isprojected to triple by 2020. California’s 10 most con-gested highways are also the major gateways for inter-national freight moving through the state, and the railfreight system will reach capacity in the next few years.

Other states face similar problems on a smallerscale. Although private freight railroad systems havestreamlined operations for efficiency and cost consid-erations, capacity concerns are increasing.

Truck volumes also are pushing the capacity lim-its on many Interstates. For example, truck freight inOhio, a large manufacturing state, is valued at $1.3 tril-lion, ranking third nationwide. Truck miles traveled inOhio have grown by 89 percent in the last 25 years andare expected to increase by another 60 percent in thenext 20 years. Trucks now comprise about one-fifth ofInterstate traffic volumes and will increase to one-quarter by 2020.

Heavy truck volumes on Interstates are com-mon in many areas. Arizona reports that 40 to 50percent of traffic on I-40 consists of trucks; trucksare 60 percent of the volume on I-40 between Lit-tle Rock, Arkansas, and Memphis, Tennessee, withmany heading to or from a large intermodal yardin West Memphis.

Freight corridor studies are under way in manyareas. Sponsored by eight state DOTs—California, Arizona, New Mexico, Texas, Louisiana, Mississippi,Alabama, and Florida—the I-10 Freight CorridorStudy was completed in 2003. The study assessed theimportance of freight on I-10 to the economy of thestates and the nation, looked for impediments to traf-fic flow and safety, and evaluated strategies to facilitatefreight flow within the corridor.

The six-state Upper Midwest Freight CorridorStudy aims at establishing a regional approach forimproving freight transportation through multistate,multijurisdictional, public–private partnerships thatwill address short- and long-term issues.

State decision makers also are working on otherfreight-related issues, such as tools for cross-modalinvestment analysis, innovative funding mechanisms,mainstreaming freight considerations to the attentionof transportation professionals and the public, andmeasures for evaluating public investments in freightfacilities and services.

HighwaysMany states are completing highway designs with theassistance of contractors, because of reductions in stateworkforces and increases in the need for designs tomeet the demands of construction programs. The inte-gration of design data through GIS and the Global

The I-10 Freight Corridor Study assessed traffic flowand safety concerns.

Truck traffic on Ohio highways has grown dramatically over the last 25 years and is expected to increase in thenext 20 years. Ohio DOT is addressing the short- and long-term issues of freight transportation by participatingin a six-state Upper Midwest Freight Corridor Study that seeks solutions through multistate, multijurisdictional,public–private partnerships.

PHO

TO:W

ILBE

RSM

ITH

ASS

OC

IAT

ESTR NEW

S 230 JANUARY–FEBRUARY 2004

23

28065_TRB_Book 3/2/04 12:20 PM Page 23

Positioning System is contributing to the timelier pro-duction of design plans.

Design–build contracting is increasing in fre-quency and value as more states have passed sup-porting legislation, overcoming liability concerns, andare initiating, completing, and monitoring the resultsof pilot projects. In general, states report savings fromdecreases in the number of change orders and fromshorter durations for projects.

Context-sensitive design has evolved into context-sensitive solutions and has gained the attention of thepublic, designers, traffic operations personnel, andother practitioners. Many states are developing bestpractices for effective public involvement, tapping intothe growing portfolio of case histories.

Pavement DesignStates are applying more sophisticated technology inthe collection and analysis of pavement conditiondata—for example, infrared and laser equipment,videostreaming, and advanced computer software. Asa result, pavement management systems have morereliable data for prioritizing projects and resources.

Rapid, cost-effective testing for pavement mixdesign is allowing more routine use of new mixdesigns in the field. Many states are reporting fullimplementation of the Superpave® mix design, andseveral others are adapting the mix design—for exam-ple, by adjusting the restricted zone in aggregate gra-dation specifications.

States are preparing for implementation of the newAASHTO Pavement Design Guide. Many are devel-oping implementation plans, but adoption may followthe model of the Superpave mix design implementa-tion—that is, several states may take the lead, witheducational efforts complementing experience.

Bridge DesignThe load and resistance factor design (LRFD) methodfor bridges and other structures is increasing in use asthe 2007 implementation deadline approaches, butadoption is not uniform. Many states are working tomeet the LRFD calibration and substructure require-ments. Pressed to move projects into construction,DOTs are challenged to find time for training engi-neers in the new method.

States are looking for alternatives to conventionalmaterials and construction methods to build struc-tures more efficiently and with greater durability.High-performance concrete, structural fiber-reinforcedplastics, improved precast concrete production andsteel fabrication, and innovative construction tech-niques are increasing in use. Material and design spec-ifications are in development, including identificationof appropriate projects and locations.

Materials and Construction Resurfacing, reconstruction, and rehabilitation of theinfrastructure have become the major activities in con-struction, and the public expects timely completion ofprojects. Reducing project delays is a major focus formost state DOTs, and a few have taken the initiativeto find ways to accelerate delivery of completed proj-ects to minimize the inconvenience and costs to thetraveling public and adjacent businesses.

New Jersey and Texas DOTs will be hosting Accel-erated Construction Technology Team (ACTT) work-

Many states have fully implemented the Superpave mixdesign.

States are constructing bridges with high-performanceconcrete, which is more durable than conventionalmaterials.


PHO

TO:N

ORT

HC

ARO

LIN

AD

OT

PHO

TO:N

ATIO

NA

LA

SPH

ALT

PAV

EMEN

TA

SSO

CIA

TIO

N

TR N

EWS 23

0 JANU

ARY–

FEBR

UARY 2

004

24

28065_TRB_Book 3/2/04 12:20 PM Page 24

shops in summer 2004. Initiated by the TRB Task Forceon Accelerating Innovation in the Highway Industry,ACTT was pilot-tested in Indiana and Pennsylvania in2003 and is now an FHWA and AASHTO activity.2

Texas plans to use the ACTT procedures in recon-structing two major Interstate freeways serving down-town Dallas. The New Jersey ACTT will work on amajor bridge improvement project. Other states haveexpressed interest in ACTT workshops to assist in keyreconstruction projects.

Utility relocation is one of the primary causes of proj-ect delays in most states. Tennessee is seeking state leg-islation to address the problem. The legislation wouldallow the DOT either to reimburse the utility companyfor relocating the equipment before the project begins orto include utility relocation in the project contract.

Every year, more states must hire consultants forconstruction engineering and inspection, as work-loads exceed what the in-house workforce can handle.Tennessee is starting to use consultants on one proj-ect in each region. In some state DOTs, the reducedworkforce may lack the training and experience tomanage large projects. North Dakota cites more claimsand arbitration because of contracting, and Iowareports difficulty in achieving standards of quality.

All states are working to improve the durability ofthe constructed infrastructure. California DOT(Caltrans) has taken the lead in addressing moisturesensitivity issues in hot-mix asphalt. Working withseveral cosponsors, Caltrans convened experts fromaround the country to a seminar to discuss moisturesensitivity in asphalt pavements and to develop a

strategic plan or “road map” for mitigating the prob-lem. TRB has published a report on the seminar.3

Early bridge deck cracking, alkali-silica reactivity, lon-gitudinal joint compaction, and segregation in asphaltpavements are issues for a few states. Hawaii joined thesmall group of states using stone matrix asphalt. Virginiais exploring self-consolidating concrete, a techniquedeveloped and used in other countries.

Soils, Geology, and Foundations More state DOTs are developing inventories of rock-fall hazard areas along transportation corridors;Hawaii is the latest to join the group. The primaryobjective is to assist in planning and budgeting withlimited resources.

Hawaii DOT investigated 400 potential rock-fallsites, assessing the risks and developing hazard ratings.According to the study, addressing the state’s rock-fallhazard areas requires an estimated $20 million, indi-cating the magnitude of resources required nation-wide to prevent rock falls and landslides.

A recently completed National Cooperative High-way Research Program (NCHRP) project developed amethod for assessing the condition of buried metaltension systems, such as rock bolts, in geotechnicalapplications. Workshops have presented the methodand related findings at regional and state geotechnicalmeetings. Some states are considering the method toassess the condition of rock reinforcements alonghighway corridors.

How to identify subsurface cavities near transpor-tation corridors—for example, abandoned under-

2 See TRB Circular E-C059, Accelerated HighwayConstruction: Workshop Series Summary,http://gulliver.trb.org/publications/circulars/ec059.pdf.

3 Moisture Sensitivity of Asphalt Pavements: A NationalSeminar, is available in print and CD-ROM from the TRBBookstore, www.TRB.org/bookstore/.

Crews working on Chicago’s Wacker Drive had to tackle a complicated design in constrained workspace.

PHO

TO:C

HIC

AG

OD

OT


25

28065_TRB_Book 3/2/04 12:20 PM Page 25

ground mines or sinkholes—and how to mitigate theproblems that may arise remain concerns. TRB hasestablished an Abandoned Underground Mines Sub-committee and a Geophysics Subcommittee to pro-vide a forum for technology transfer. A workshop onabandoned underground mines, cosponsored by thesubcommittee, convenes in April 2004 to facilitate theexchange of information among practitioners.

Other ongoing efforts are focusing on advances inLRFD, geophysical methods for subsurface investiga-tion, databases to store the vast amount of informationcollected in field investigations and tests, and tools toassess compacted soils and intelligent compaction sys-tems, which provide a system for quality assurance.

Highway MaintenanceSafety for the traveling public and road workersremains the priority in maintenance operations.Improving the efficiency and effectiveness of the pro-cedures can reduce workers’ time on the roadway.Temporarily closing roadway sections to performmaintenance also can reduce exposure to hazards.

One agency is exploring electronic data sharing byadjoining jurisdictions, to improve work zone trafficflow efficiency and safety. Other agencies are evaluat-ing smart work zone technologies, decision tools forwork zone speed controls, vehicle detection and infor-mation display technologies to provide real-time deci-sion information to drivers in work zones, and postingwork zone information on the Internet for motoristtrip planning.

State DOTs are applying asset management princi-ples to integrate systems for maintenance, pavements,bridges, road weather, and traveler information sup-ported by geographic referencing. The maintenancemanagement systems have retained planning, bud-geting, and resource management functions but are

adding roadway feature inventories, condition assess-ments, customer input from complaint and surveysystems, workload planning and forecasting, statisti-cal sampling for quality assurance, and performancemeasures. Interface development, however, mustestablish common data definitions across agencyunits, handle a variety of location reference systems,and gain management support to underwrite the costs.

States are developing and implementing pavementpreservation programs—part of asset and pavementmanagement efforts—to extend service life and reducedeficiencies. One challenge is determining the righttime to apply the right treatment for maximum bene-fit; another is evaluating performance not from howlong the treatment lasts but from the extended servicelife imparted to the pavement.

Development and implementation of bridge man-agement systems is on the agenda as states restoredeficient and functionally obsolete structures. Digitalphotographs from bridge inspections are proving help-ful in making condition comparisons and in planningmaintenance repair activities. Several states establish-ing preventive maintenance programs have noted theneeds for an “owner’s manual” to maintain newbridges, for the sharing of best practices in bridge ele-ment maintenance and repair, and for improved non-destructive testing to assess structural conditions.

Total storm management techniques for winter ser-vices are in development to integrate and coordinatestate and contractor efforts in response to changes in

Total storm management techniques for winterservices include bridge anti-icing systems.

Bridge deterioration is captured on digitalphotography during inspection process.


PHO

TO:S

AI C

ON

SULT

ING

ENG

INEE

RS,

INC.

PHO

TO:E

NER

GY

ABS

OR

PTIO

NSY

STEM

S,IN

C.

TR N

EWS 23

0 JANU

ARY–

FEBR

UARY 2

004

26

28065_TRB_Book 3/2/04 12:20 PM Page 26


27

storm and traffic characteristics. States also are inves-tigating several technologies, including automaticvehicle location for snowplows, bridge anti-icing sys-tems, indexes to measure winter weather severity, saltreduction and frost forecasting models, performancemeasures, and noncorrosive and corrosion-reducingtreatments for deicing, for example with agriculturaladditives.

The Road Weather Management Program ofFHWA’s Office of Transportation Operations is sup-porting development of a prototype winter road Main-tenance Decision Support System (MDSS). MDSS willprovide decision makers with information on pre-dicted weather and roadway conditions and will iden-tify appropriate treatment scenarios that rely onavailable local resources.

Agencies are integrating environmental consider-ations into maintenance operations and activities suchas winter services, storm water runoff, pavementsweepings and marking materials, vehicle and equip-ment maintenance, alternative fuel programs, andenvironmental awareness training. Best managementpractices are needed to support improved environ-mental stewardship. One state is exploring modifica-tions to its Adopt-a-Highway program to allowcorporate sponsors that adopt an interchange to pay aprovider for mowing and litter removal.

Highway OperationsTransportation agencies are applying operations mea-sures to address a variety of issues: unacceptable andcostly congestion; nonrecurring delays; increases andchanges in travel demand, such as expanded peakhours and more freight movements for just-in-timedelivery; reconstruction and maintenance of roadwayfacilities while maintaining traffic flow; the security ofcritical transportation structures; traffic incidents;weather and special events; and emergencies.

Addressing CongestionFHWA estimates that traffic congestion causes 5.7 bil-lion person-hours of delay annually in the UnitedStates. Temporary disruptions that reduce the vehicle-carrying capacity of the roadway and the reliability ofthe transportation system are the source of approxi-mately half of this congestion.

According to FHWA, the three main causes of non-recurring congestion are incidents ranging from a tem-porarily disabled vehicle to an overturned truckcontaining hazardous material (25 percent of conges-tion), work zones (10 percent of congestion), andweather (15 percent of congestion). This unexpectedcongestion affects the scheduled personal activities oftravelers and the timely distribution of goods andmanufacturing materials by shippers.

Focused management of temporary traffic disrup-tions can reduce the impacts and return the system tocapacity. Many state DOTs therefore are committingresources to strategies for mitigating unexpected con-gestion, such as traffic incident management, work zonemanagement, road weather management, special eventstraffic management, and congestion mitigation.

Roughly half of the congestion experienced byAmericans occurs daily, as the demand for highwaytravel exceeds capacity. In most urban areas, conges-tion persists for many hours. Recent operations inno-vations include the following:

◆ Managed lanes. Managed high-occupancy vehi-cle lanes provide preferential treatment for buses, car-pools, and vanpools and employ other managementstrategies—such as pricing, access for additional usergroups, and controlled access—to maintain free-flowspeeds and promote full use of the facility.

◆ 511 traveler information. In mid-2000, respond-ing to a petition by U.S. DOT, the Federal Communi-cations Commission designated 511 as the nationaltelephone number for traveler information. Nineteen511 services now operate around the country, serving anestimated population of more than 50 million.

◆ Adaptive signal control. Several agencies haveimplemented systems that adjust to traffic fluctua-tions in real time.

◆ Corridor management. Many states are deploy-ing traffic management systems at the corridor level,applying real-time data from surveillance systems tocoordinate the operation of freeways with arterialstreet networks.

◆ Roundabouts. Roundabouts are attracting atten-tion as an alternative to signalized intersections ordiamond interchanges. Advocates cite the safety advan-tages of roundabouts in comparison with signal-controlled intersections. Major issues and concerns,however, are the safe movements of pedestrians—particularly seniors and those with impaired vision—and of bicycles; the design of multilane roundabouts; andsignalization at high-volume roundabouts.

Real-Time InformationAccurate and real-time systemwide transportationinformation is critical to operations. Travelers needreliable system data to make informed decisions abouttravel mode and route. Traffic managers need reliabledata to evaluate system performance; determine inci-dent location for response; make informed decisionsabout diverting traffic in response to an incident;implement evacuations if necessary; and inform dri-vers about conditions ahead and alternative routes.

A few state DOTs have decided that instrumentingthe roadway network for systemwide surveillance is

States are attempting to mitigatetraffic congestion withconstruction solutions such asroundabouts (above, inAlexandria, Virginia). Pedestrianand bicycle safety and thesignalization at high-volumeroundabouts are issues ofconcern.

28065_TRB_Book 3/2/04 12:20 PM Page 27

not necessary. Instead, these states are focusing onimproving interfaces with the 911 emergency report-ing system and are relying on cellular telephonereports of crashes and other incidents to identify loca-tions and response needs.

Organizing for OperationsFor operational tools and techniques to achieve fullpotential, the many jurisdictions responsible for trans-portation in an area or region must work together.Traditionally, the primary focus of public transporta-tion organizations has been on capital projects toincrease system capacity, not on continuous systemsmanagement and operations. A total system manage-ment approach would incorporate system manage-ment and operations into the transportation planningand decision-making processes.

TRB therefore has created the Committee onRegional Transportation System Management andOperations to examine ways to maximize transporta-tion system performance in metropolitan areas. Thecommittee’s scope will include coordinated and inte-grated decision-making approaches to operations andthe harmonization of operations with planning, con-struction, preservation, and maintenance of transpor-tation facilities.

Highway SafetyTraffic deaths increased in 2002—a total of 42,815compared with 42,196 in 2001. Deaths in passengercars, light trucks and vans, and motorcycles also rosein 2002, but bicycle, pedestrian, and railroad grade-crossing fatalities declined.

U.S. DOT, AASHTO, the Governors Highway SafetyAssociation, and others have adopted the goal of reduc-ing highway deaths to a rate of 1.0 per 100 million vehi-cle-miles by 2008. State DOTs are implementing theAASHTO Strategic Highway Safety Plan. Guidebooksfor 6 of the 22 strategies in the plan were published asNCHRP Report 500: Run-off-the-Road Collisions;Unsignalized Intersection Collisions; Head-On Collisions;Trees in Hazardous Locations; Collisions Involving Unli-censed Drivers and Drivers with Revoked or SuspendedLicenses; and Aggressive Driving Collisions. The remain-ing guidebooks will be published in the coming year.

States have grappled with making crash data avail-able in an accessible and meaningful way. A majorconsideration is linking databases for crashes, roadwayinventories, drivers, vehicles, and emergency medicalservices, trauma units, and hospitals.

Utah DOT has developed a website that providescrash data through maps. By delimiting areas of theroadway system map using the computer screen cursor,a user can access crash data for that specific area—forexample, a corridor, county or city, urban or suburban

area, rural area, or specific intersection. The web crashdata are readily available to DOT safety, engineering,planning, and district staff, as well as to users in MPOs,state and local police agencies, and others.

Oklahoma has developed a Geographic ResourceIntranet Portal, an enterprise architecture system thatbrings together many data sources and reports. Thearchitecture allows various offices to access crash datathrough a single, DOT-wide system.

The National Highway Traffic Safety Administra-tion expanded CODES (Crash Outcome Data Evalu-ation System), a probabilistic software that links crashdata with trauma unit and hospital data. The softwarenow can link nonmedical databases to crash data.

“Click It or Ticket” campaigns, which combinefocused enforcement with paid and public servicemedia announcements, are proving successful inincreasing seat belt use. For example, Texas Trans-portation Institute found that Texas DOT’s campaignin 10 urban areas increased seat belt use by more than8 percent in one year. In Washington State, seat beltuse rose to 94.75 percent, the highest level in theUnited States, and the Washington Traffic SafetyCommission attributed much of the gain to “Click Itor Ticket” programs.

In 2002, 41 percent of crashes—a total of 17,419—involved alcohol, a growing trend since 2000. TheNational Transportation Safety Board has identifiedone group for particular attention—hard-core drink-ing drivers, who make up approximately 1 percent ofthe driving population, are involved in 27 percent ofalcohol-related crashes.

Safety-conscious planning (SCP) continues todevelop in response to a TEA-21 requirement. SCPforums convene the diverse partners working in high-way and transit safety and transportation planning tolearn about each other’s activities, discuss data andresources, and create an action plan to include safety asa deciding consideration in transportation planning.

Utah DOT provides online maps that track crashesinvolving drunk driving, inclement weather, and traffictrouble spots.

T R B ’ S 2 0 0 3 F I E L D V I S I T P R O G R A MTR

NEW

S 23

0 JANU

ARY–

FEBR

UARY 2

004

28

28065_TRB_Book 3/2/04 12:20 PM Page 28

South Carolina, Arizona, Iowa, and several states inthe Mid-America Regional Council planned or heldSCP forums, and California and Ohio DOTs heldinternal forums. Eight forums, including one interna-tional, are planned for 2004.

Marine and IntermodalTransportationSecurity, the environment, congestion, and safety wereamong the port issues discussed during 2003 fieldvisits. An overall challenge is the integration of themarine transportation system into the overall trans-portation system. The projected growth in freight vol-umes and concerns about air quality and congestionsuggest that more attention be given to increasing theuse of water and rail links.

The Port Authority of New York and New Jersey(PANYNJ) has launched a port inland distributionnetwork, a two-state initiative to relieve highway con-gestion and free up space at PANYNJ marine termi-nals. One of the first components of the network is aweekly barge shuttle, subsidized by a federal grant, onthe 150-mile route between the coastal terminals andthe Port of Albany, New York.

Financing security improvements and the effect ofnew security requirements on day-to-day operationsare major concerns. The U.S. Coast Guard has estimated that implementing security for U.S. portswill cost approximately $1 billion in the first yearand $5 billion over 10 years. The port security grantprogram, funded through the Department of Homeland Security and administered by the U.S.Maritime Administration, provides only a fraction of the funds needed by large and small ports for secu-rity enhancements.

The International Ship and Port Facility SecurityCode, introduced by the International Maritime Orga-nization (IMO), provides a framework for the appli-cation of global standards of security for the marineindustry. Several major port operators, including thePort of Houston, have partnered in the Smart andSecure Tradelanes initiative, a global security networkdeploying advanced security practices, businessprocesses, and technologies to improve the securityand efficiency of container movements.

Other key topics for ports are how to address pol-lution attributed to vessels, container yard equipment,trucks, and rail locomotives, and how to tackle theenvironmental challenges of dredging and vessel oper-ations. Southern California ports have installed elec-trical outlets so that ships at berth can shut downengines and rely on shoreside power.

Port authorities also have taken steps to re-enginetrucks and vessels to reduce emissions. Legislation inCalifornia aims at reducing emissions from trucksidling at marine terminals and ports. The South CoastAir Quality Management District enforces the law, anda grant program assists truckers replacing or retro-fitting engines. The National Resources DefenseCouncil has developed a “green port” model that out-lines best practices for operations.

Container crane was installed at the Port of Albany tosupport flows on Port Inland Distribution Network.

Legislation in California aims at reducing emissionsfrom idling trucks at Port of Long Beach. The NationalResources Defense Council has developed a “greenport” model that outlines best practices foroperations.

PHO

TO:S

EMO

PO

RTA

UT

HO

RIT

Y.


29

28065_TRB_Book 3/2/04 12:20 PM Page 29

Complying with environmental needs while meet-ing the needs of commercial navigation continues tobe a challenge for inland waterways, particularly forthe Missouri River. In the Great Lakes region, atten-tion is focused on preventing the introduction of non-indigenous aquatic species, which can affect nativespecies adversely. IMO has established voluntaryguidelines for ballast water management, which havebeen adopted by the U.S. Coast Guard and are manda-tory in California.

RailMany states view intercity rail passenger service as acritical element of the transportation network and onethat can relieve congestion in other modes. One-quarter of the states financially support the intercityrail passenger corridor services provided by Amtrak,and two-thirds of the states—some singly and some incorridors or networks—are planning rail services thatmay relieve highway and airline congestion. Theseplanned passenger services generally would operate atincrementally higher speeds on rail lines mostlyowned and operated by private freight railroads.

States are concerned that if adequate federal sup-port does not continue for intercity passenger rail,excessive contributions from the states will be neces-sary. Many rural states rely on long-distance trains foraccess to remote areas but cannot provide additionalfinancial support.

Several states are making substantial investmentsin intercity passenger rail to allow for higher-speedoperations. For example, California is investing inincrementally higher-speed operations and is con-sidering a dedicated high-speed system linking largepopulation centers.

Illinois is contributing state funds for track andtrain control improvements in the Chicago–St. Louis,Missouri, corridor, in conjunction with a positive train

control demonstration project funded by the FederalRailroad Administration and the Association of Amer-ican Railroads. Illinois is part of the nine-state MidwestRegional Rail Initiative, which is working to improvethe speed, frequency, reliability, and accessibility ofpassenger rail services.

Two major issues confronting states involved inintercity passenger rail are (a) funding for operationsand capital investment and (b) access to freight railroadtracks. Freight railroads in turn are facing capacity con-straints in many corridors—even without the additionof passenger trains—and are concerned about the lia-bility issues associated with passenger operations.

Many states continue to invest in freight railimprovements, for economic development and tomaintain access for commodities appropriate forshipment by rail. For example, Wisconsin lendsapproximately $5 million each year under theFreight Railroad Infrastructure Improvement Pro-gram to assist industries in making use of railfreight, primarily for bulk commodities.

State agency funding decisions for passenger andfreight rail improvements are complicated by the lack ofcross-modal investment tools to analyze expenditureson alternative solutions, locations, or corridors; to jus-tify public investment in private railroad property; andto measure the performance of previous investments.

Public TransportationFiscal constraints at the state level extended to manylocal governments and special districts, which provideor fund transit. By mid-2003, long-term borrowing rateswere rising, constraining local agency bonding capac-ity and adding to loan and lease costs.

After six straight years of increases dating back tothe mid-1990s, a majority of large, medium, and smalltransit agencies reported ridership declines in 2002and 2003 (see article, page 40). Light rail ridership,

Trucks carrying hazardous materials are transported by ferry between Detroit, Michigan, and Windsor, Canada,taking the trucks off highways and the Ambassador Bridge.

T R B ’ S 2 0 0 3 F I E L D V I S I T P R O G R A MTR

NEW

S 23

0 JANU

ARY–

FEBR

UARY 2

004

30

28065_TRB_Book 3/2/04 12:21 PM Page 30

however, increased by 1.9 percent, reflecting new sys-tem startups. Overall transit ridership is expected toincrease as the economy continues to improve.

Transit agencies are implementing new services,system expansions, technologies, and equipment.Despite long lead-times, large capital programs arenow in service or under consideration.

In California, the Bay Area Rapid Transit Districtopened an extension to San Francisco InternationalAirport (SFO) in June. The $1.45 billion projectincluded four new stations and a link to SFO, plus anintermodal facility for rail transit, commuter rail, bus,and parking. The 8.7 miles of double track connect toa new international terminal and to an airport tramsystem serving all terminals, parking, rental cars, andairport support facilities.

In Southern California, the Los Angeles CountyMetropolitan Transportation Authority (LACMTA)opened the 13.7-mile Metro Gold Line, offering lightrail transit service between Los Angeles and Pasadena,in July. LACMTA also extended the Metro Rapid Bussystem in December 2002—with the 11.9-mile Ver-mont line and the 10.5-mile South Broadway line. By2008, 24 rapid bus lines will be operating in metro-politan Los Angeles.

The New York Metropolitan Transit Authority’s(MTA) Metro-North is upgrading commuter rail linesserving Connecticut. These large projects include 72route-miles of track in New York and Connecticut, aswell as stations, electrification, fleet replacement,maintenance, and rehabilitation. Dual-mode locomo-tives operate on a direct-power third rail into GrandCentral Station and on catenary alternating current onthe Connecticut lines.

More systems are installing alternative fuel propul-sion systems, such as liquid natural gas or hydrogen.CTTransit in Hartford, Connecticut, is testing hybridbuses powered by an internal combustion, clean-diesel

engine with a generator, electric storage system, andtwo electric motors.

More bus systems are improving accessibility andacquiring accessible vehicles. The MTA’s New YorkCity Transit, for example, is fully accessible with afleet of 4,500 wheelchair-accessible vehicles.

The stalled reauthorization of the federal-aid high-way and transit program contributed to the financialuncertainty for transit systems. Transit system budgetsalso had to reckon with enhancing system securityagainst terrorism, coping with severe weather events,and resolving union–management disputes:

◆ The 2003 President’s Day Weekend snowstormcovered much of the East Coast from Washington,D.C., to New England with 2 feet or more of snow,affecting transit.

◆ Hurricane Isabel struck the Middle Atlanticregion in September, closing the Washington, D.C.,Metro system completely for the first time ever.

◆ In November 2003, the fourth week of a unionstrike closed down Los Angeles MTA bus and rail ser-vice, affecting more than 400,000 daily riders.

◆ Transit services in San Diego, California, had tocope with forest and brush fires in the eastern foothillsand mountains.

For public transportation, 2003 was a year ofaccomplishment and progress, tempered by uncer-tainties manmade and natural.

The Bay Area Rapid Transit completed a $1.45 billionproject to connect to the San Francisco InternationalAirport and an intermodal facility for rail transit,commuter rail, bus, and parking.

Electric storage system of a hybrid gas–electric bus,now being tested by CTTransit in Hartford,Connecticut.


31

28065_TRB_Book 3/2/04 12:21 PM Page 31

transportation i agencies meet fiscal...

Documents