A Pre-Event Recovery Planning Guide for Transportation (2013)

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18 The limited guidance on pre-event planning for recovery of transportation systems required a compilation of observations from case studies of infrastructure recovery. Under NCHRP Project 20-59(33), five case studies were done that represent a cross-section of infrastructure owners and operators. Table 1 provides an overview of these case studies along with the rationale for the selection of each case for study. The complete NCHRP Project 20-59(33) case studies are provided in Appendix B. In addition to the case studies conducted in this research, exist- ing transportation infrastructure recovery case studies, identified through a literature search, were reviewed and are summarized in Table 2. Effective practices for transportation recovery are compiled in Table 3. Also included is a case study based on a few forward-looking jurisdictions that have instituted policies, programs, and tools that can assist in recovery. The states of Michigan, Vermont, and Montana were selected because these states represent examples of the importance of driving asset management with a well-defined strategic planning process that incorporates recovery planning. Michigan’s House Bill No. 5396 provides for annual appropriations to support and implement a statewide asset management program. Michigan Department of Transportation (MDOT) has instituted an agency-wide asset management program and introduced an integrated decision- support tool called the Transportation Management System (TMS). The General Assembly of Vermont recently passed Sections 24 and 25 of Act No. 64, which requires the Vermont Agency of Transportation (VTrans) to develop an asset management system that institutes a performance- driven and decision-making process for maintaining, upgrading, and operating transportation assets cost-effectively. In Montana, asset management is tightly linked to strategic planning without formal legislative, budgetary, or funding linkages. Lessons from the NCHRP Project 20-59(33) case studies are the following: • Formal and informal relationships and networks were keys to successful recovery. • Simplified designs can expedite reconstruction. • Make infrastructure improvements where possible. • Take a phased approach to recovery. • Use existing plans and footprints where possible. • Have emergency expedited processes in place. • Take a collaborative approach to recovery. • Use innovation in project development, oversight, and environmental management. • Understand interdependency of critical infrastructure as part of the hazard and risk assessment. • Maintain and provide access to designs, plans, and other key data. C h a p t e r 4 Case Studies of Infrastructure Recovery: Lessons and Effective Practices

Case Studies of Infrastructure recovery: Lessons and effective practices 19 Incident Synopsis Rationale 7/7 Bombing, London, United Kingdom, 2005 Four separate but connected explosions occurred on the public transport system in central London, creating an unprecedented cumulative effect. The London Bombing was a multimodal transportation event that had a rather far-reaching effect on transportation in London for a period of time. The incident provides an opportunity to explore integrated processes and effective practices from an international perspective. 9/11 World Trade Center Attack and Rebuilding, New York/New Jersey, United States, 2001 Attack on World Trade Center and collapse of buildings destroyed New York City transportation infrastructure. The attack on the World Trade Center in 2001 provides an opportunity to explore the infrastructure rebuilding efforts that have occurred since the event such as the Permanent PATH Terminal and Transit Center and South Ferry Terminal Station. Midwest Floods, United States, 2008 Flooding in large areas of Missouri and Arkansas and parts of southern Illinois, southern Indiana, southwestern Ohio, and Iowa disrupted major east-west shipping routes for trucks and the east-west rail lines through Iowa. Exploring the 2008 floods provides an opportunity to understand what changes and improvements have been made on the basis of what has been learned from previous flooding events. For example, in 2008, the Coast Guard Marine Transportation System Recovery Unit developed plans to use the Missouri and Illinois rivers as alternatives for commercial vessel inland water traffic because floods in the past have caused closures on the Mississippi. Howard Street Tunnel Fire, Baltimore, Maryland, United States, 2001 A CSX freight train derailment shut down Baltimore, disrupted east coast rail service, and U.S. Internet service. In addition, a water main ruptured causing significant street flooding. Tunnels present unique recovery issues. Researching the Baltimore Tunnel Fire recovery effort provides an opportunity to address numerous recovery issues including fire damage, flooding, and hazardous material clean-up. Interdependencies and cascading impacts can also be explored. Wildfires, Southern California, United States, 2007 At least 1,500 homes were destroyed and over 500,000 acres of land burned from Santa Barbara County to the United States–Mexico border. Wildfires have a major impact on regions and present significant recovery issues not only from fire, but also from the subsequent mudslides that can occur as a direct consequence of the fire. Table 1. Case studies conducted under NCHRP Project 20-59(33). Event Summary Hurricanes Gustav and Ike, 2008 Hurricane Gustav was primarily a wind event with the most prominent effect being widespread electrical outages. Pipeline Disruption, Hurricanes Gustav and Ike, 2008 On January 14 and 15, 2009, the Southeast Petroleum Disruption and After-Action Workshop was held to review the impacts to petroleum supply in the Southeast following Hurricanes Gustav and Ike. Flooding, Wisconsin, 2008 As a result of severe rains in June 2008, the Kickapoo River in Gays Mills, Wisconsin, flooded more than 90% of the village and severely damaged more than 50% of downtown homes. In conjunction with FEMA, the village of Gays Mills has developed a Long-Term Community Recovery Plan that contains several transportation projects including the creation of a new “Main Street” to attract commerce. Improvements were also proposed for a section of State Route 131. I-35 Bridge Collapse, Minneapolis, Minnesota, 2007 On August 1, 2007, the I-35 Bridge in Minneapolis, Minnesota, suddenly collapsed. The rebuilding of I-35 was completed within budget and ahead of time. The community—including community residents, local businesses, civic groups, government representatives from all levels, MnDOT, cultural institutions, educational interests, media, and a contract design team—was broadly involved in the design and rebuilding of the bridge. Table 2. Case studies from literature review. (continued on next page)

20 a pre-event recovery planning Guide for transportation Event Summary I-40 Bridge Collapse Caused by Arkansas River Accident, Oklahoma, 2002 On Sunday, May 26, 2002, a barge veered several hundred feet off course and struck the I-40 Bridge crossing the Arkansas River in Webbers Falls, Oklahoma. The collision compromised almost one third of the bridge, which plunged into the Arkansas River. Land ownership at both ends of the bridge is complex. A parcel is owned by the Cherokee Nation, and a parcel is owned by USACE but managed as a wildlife refuge by the U.S. Fish and Wildlife Service. The bridge reopened to traffic on Monday, July 29, 2002, only 65 days after the accident. Ice Storm in Canada and Northeastern United States, 1998 A severe freezing-rain storm hit Canada and the northeastern United States the week of January 5, 1998. The storm was notable for the large area it covered, the amount of ice that accreted on trees and structures, and widespread power outages. Northridge Earthquake, Los Angeles, California, 1994 When a strong earthquake struck the Los Angeles area in January 1994, several highways suffered major damage. Caltrans and FHWA agreed to innovative bidding procedures to speed up the rebuilding process. Tornado, I-54, Greensburg, Kansas, 2007 Most of the town of Greensburg, Kansas, was destroyed by an EF-5 tornado on May 4, 2007. One of the key elements in planning a new Greensburg was the location and design of the US-54 freeway. Greensburg city officials approached the Kansas DOT about reconsidering a southern bypass recommended in the 2002 US-54/US- 400 Location Design Concept Study. After extensive collaboration with Greensburg community leaders and input from city residents, the Kansas DOT developed a project to relocate US-54 along a route that provided the most desirable mix of visibility, access, and economic development opportunities. MacArthur Maze Collapse, Oakland, California, 2007 When a gasoline tanker accidentally crashed on the MacArthur Maze, one of the busiest freeway interchange systems in the United States, Caltrans swiftly issued an emergency proclamation and built significant incentives for early completion into the contract. The project was completed over a month ahead of schedule. Storms and Mudslides, California, 2006 In March and April of 2006, California experienced a series of intense storms, landslides, and flooding in more than 15 counties. As a result of these storms, many roads and highways were severely damaged, particularly as a result of landslides and mudslides. Blackout, New York City, New York, 2003 In August 2003, in approximately 11,300 signalized intersections located within New York City limits, traffic signal operations lost power because of a blackout. Because the blackout occurred on a Thursday afternoon and power was not fully restored by Saturday, the New York City DOT faced the difficult task of ensuring that traffic signal operations and coordination plans were in full working order for the Monday morning rush hour. Chlorine Spill, Graniteville, South Carolina, 2005 A railroad chlorine spill in Graniteville, South Carolina, highlighted the need for the documentation of transportation infrastructure to facilitate recovery after an event. The event displaced 5,400 people and killed 9 people. Norfolk Southern Railroad estimated that the total cost would range from $30 million to $40 million (Dunning and Oswalt 2007). Hurricanes Katrina and Rita, Louisiana, 2005 Hurricanes Katrina and Rita resulted in significant damages to transportation systems within the state of Louisiana. An initial assessment showed that 142 moveable bridges in the state were affected by storms and that nearly 20% were damaged severely enough that they were closed for a period of time to marine and/or vehicular traffic. Additional damages were also sustained by state and local highways and other local roads. Ramps on Interstate Highway 10 were submerged in water from flooding, U.S. Highway 90, which ran between New Orleans and Pascagoula, Mississippi, was essentially destroyed, and an 8-mile section of the Twin Span bridge, which connected New Orleans to Slidell, Louisiana, collapsed into Lake Ponchartrain. Hurricane Katrina Destruction of U.S. Highway 90 Biloxi Bay Bridge and Bay St. Louis Bridge, Mississippi, 2005 In late August of 2005, Hurricane Katrina destroyed approximately 90% of all structures located within 1/2 mile of the Mississippi coast. The 30-foot storm surge washed away the Bay St. Louis and the Biloxi Bay Bridges in Mississippi. In spite of the widespread emergency, regulations required both bridge reconstruction projects to comply with the standard environmental review process. In both cases, FHWA allowed the use of emergency action procedures (23 CFR 770.131). FLA I-10 Collapse, Hurricane Ivan, Florida, 2004 On September 16, 2004, Hurricane Ivan struck the Gulf Coast of Florida as a Category 3 hurricane. During the storm, a section of I-10 bridge crossing Escambia Bay collapsed into the water. Table 2. (Continued).

Case Studies of Infrastructure recovery: Lessons and effective practices 21 Effective Practices Illustrations Planning for Recovery Illinois DOT (IDOT) implemented a bridge recovery plan based on both earthquake and terrorist threats. To implement the recovery plan, IDOT hired consultants who were assigned specific bridges. If something happens to the bridge, they are to report to the bridge immediately to develop a strategy for recovery. Cited in Transportation Infrastructure Protection and Emergency Management: State DOT Workshop Results (AASHTO 2009). Taking a Regional Approach to Transportation Recovery Planning The Puget Sound Region has developed a Puget Sound Transportation Recovery Annex (Annex) that supplements the Puget Sound Regional Catastrophic Coordination Plan (Coordination Plan). The Annex provides recommended guidelines for coordinating multijurisdictional regional transportation system recovery in the Puget Sound Region after a catastrophic incident. Similar to efforts in California, Arizona, and Oregon are recognized in Regional Concept of Transportation Operations: Best Practices (IBI 2009). Collaborative Environment for Recovery Efforts In Minnesota, the I-35 Bridge project team involved the community extensively in the design and construction of a replacement bridge. A broad collaboration, deliberately carried out to enlist maximum participation, was key to rebuilding the collapsed bridge ahead of schedule and under budget. Cited as best practice in Recovering from Disasters: The National Transportation Recovery Strategy (U.S. DOT 2009). Limiting the Project Scope to Reduce Complexity When the I-35 Bridge collapsed, MnDOT and FHWA limited the scope of the bridge replacement project to bridge reconstruction early in the process and would not consider revisions to approaches or nearby interchanges until bridge construction was complete. This limited scope eliminated the expanded environmental review and possible controversies that are typical for large construction projects. Cited as effective practice in “Meeting Environmental Requirements After a Bridge Collapse,” a study on project management and environmental review (John A. Volpe National Transportation Systems Center 2008). Flexibility in Applying Transportation Resources Across Jurisdictions Following Hurricane Katrina, the LA Swift project, a multijurisdictional Louisiana effort, resulted in a free bus service for persons displaced to Baton Rouge who needed to commute to their jobs in New Orleans. This was accomplished through the collaboration of operating and funding agencies and recognition of the importance of transportation to economic recovery. Cited as best practice in Recovering from Disasters: The National Transportation Recovery Strategy (U.S. DOT 2009). Good Working Relationships and Open Lines of Communication Historically, the Florida Department of Environmental Protection (FDEP) and the Florida DOT (FDOT) in the 16-county region from Tallahassee to the Alabama border have had a strained working relationship. To improve their relationship, the two agencies held quarterly meetings and built trust between the agencies. In the aftermath of Hurricane Ivan and the destruction of the I-10 Bridge, the pre-existing interagency relationships facilitated communication between FDEP and FDOT and allowed state-level environmental permits to be quickly processed. Cited as effective practice in “Meeting Environmental Requirements After a Bridge Collapse,” a study on project management and environmental review (John A. Volpe National Transportation Systems Center 2008). Formal and Informal Emergency Procedures Hurricane Katrina led agencies to enact a series of formal and informal emergency procedures. These expedited the reconstruction of the U.S. 90 Biloxi Bay Bridge and Bay St. Louis Bridge in Mississippi. In addition to enacting Endangered Species Act (ESA) Section 7 emergency consultations, under the directive of the FHWA Mississippi division office, agencies opened their lines of communication and allowed some verbal agreements instead of standard written agreements. Cited as effective practice in “Meeting Environmental Requirements After a Bridge Collapse,” a study on project management and environmental review (John A. Volpe National Transportation Systems Center 2008). Table 3. Effective practices for transportation recovery. (continued on next page)

22 a pre-event recovery planning Guide for transportation • Plan for the unexpected by learning from previous experiences. • Integrate recovery planning with existing planning. Each lesson, with specific illustrations from the case studies, is discussed below. Formal and Informal Relationships and Networks Were Keys to Successful Recovery Based on experiences from past disaster events, Iowa DOT now works closely with multiple federal agencies as a part of the recovery process. For instance, Iowa DOT functions as the coordinator for the FHWA Emergency Relief (ER) program and is responsible for processing the Detailed Damage Inspection Report (DDIR). Recovery from the 9/11 incident in New York City was made possible by using pre-existing relationships, including those with retired personnel and volunteers. In the London 7/7 bombings, the fact that personnel knew each other played a very important role in coordination. Effective Practices Illustrations Innovative Contracting Techniques Several innovative methods expedited completion of multiple projects after the 1994 Northridge Earthquake in California: A+B bidding (a combination of cost and time), invitational bidding, and design-build bidding. Cited as a best practice in Recovering from Disasters: The National Transportation Recovery Strategy (U.S. DOT 2009). Use of design-build contracts expedited the environmental review process for the U.S. 90 Biloxi Bay Bridge and Bay St. Louis Bridge. Since the contractor could proceed before receiving all the necessary permits, reconstruction began quickly. Cited as effective practice in “Meeting Environmental Requirements After a Bridge Collapse,” a study on project management and environmental review (John A. Volpe National Transportation Systems Center 2008). Access to Good Data The Oklahoma DOT, the State Historical Preservation Office (SHPO), and the Oklahoma State Archeologist had taken (inventories of natural, cultural, and historic resources through ODOT’s Cultural Resources Program in the Arkansas River area, which helps identify potential cultural and historic sites that may require special attention as part of highway projects. When the I-40 Bridge accident occurred, these agencies were able to immediately identify potential natural and historic issues, eliminating the need for additional investigation and studies to identify and understand any potential environmental problems for the reconstruction project. Cited as effective practice in “Meeting Environmental Requirements After a Bridge Collapse,” a study on project management and environmental review (John A. Volpe National Transportation Systems Center 2008). Incorporating Long-Term Community Recovery Goals After a 2007 tornado destroyed the town of Greensburg, Kansas, the Kansas DOT reconsidered the long-term plan for I-54 based on community recovery goals because the location of the future freeway affected community rebuilding plans. A relocated route was developed because it provided the most desirable mix of visibility, access, and economic development opportunities for the community. Cited as best practice in Recovering from Disasters: The National Transportation Recovery Strategy (U.S. DOT 2009). Coordinated and/or Standardized Damage Assessments The Wisconsin DOT (WisDOT) serves as the coordinating agency for infrastructure damages in the state. June 2008 Midwest flooding provides example. Caltrans has established a Safety Assessment Program (SAP) to quickly produce damage assessments after an event. Table 3. (Continued).

Case Studies of Infrastructure recovery: Lessons and effective practices 23 In California, a multi-agency working group composed of key asset owners and stakeholders coordinates planning and implementation. Simplified Designs Can Expedite Reconstruction After 9/11, lack of architectural detail in the temporary Port Authority Trans-Hudson Corporation (PATH) stations allowed bidding on the necessary steel on a per-pound basis before the design was even finished. The conduit carrying the utilities and cabling was left exposed, eliminating the design time needed to artfully bury it. These strategies shaved 1 year off the construction schedule. Make Infrastructure Improvements Where Possible Bench walls, lighting, and communication enhancements in PATH tunnels after 9/11 in New York City were added during recovery construction. The Baltimore tunnel case study noted the need for upgrading aging infrastructure as part of the rehabilitation of critical infrastructure. Take a Phased Approach to Recovery After 9/11, PATH service to lower Manhattan was provided through a series of temporary transit stations and entrances. Use Existing Plans and Footprints Where Possible To restore train service to the World Trade Center site as quickly as possible, a temporary PATH terminal was built at the same location as the destroyed facility. This enabled engineers to utilize previous alignments and reduce additional excavation/foundation work. Have Emergency Expedited Processes in Place The California governor’s declaration of disaster can ease environmental requirements and other contracting requirements. Emergency contracts can be rapidly implemented using a ready list of pre-identified and pre-qualified contractors, even before federal funding is available. Take a Collaborative Approach to Recovery After 9/11, collaboration with contractors and designers was part of design and construction. For instance, the sequence of construction inside the tunnels was done differently, in a process developed in conjunction with the contractor, who wanted to use rubber-tired equipment to bring in materials. The contractor’s desired approach required locating everything first and then laying the track last. To accommodate this, a high level of survey control was developed along with a “clearance jig” to make sure the trains had enough clearance. Use Innovation in Project Development, Oversight, and Environmental Management After 9/11, FTA’s Lower Manhattan Recovery Office (LMRO) was created to work on innova- tive, streamlined project delivery processes with consensus among federal and local partners. Some of these processes included using one grant for the entire project, developing a master agreement

24 a pre-event recovery planning Guide for transportation for both FTA and FEMA requirements, creating a memorandum of understanding (MOU) among federal agencies for environmental oversight, and creating a Federal Interagency Review Team. Understand Interdependency of Critical Infrastructure as Part of the Hazard and Risk Assessment The Baltimore tunnel case study illustrated the interdependencies of transportation, commu- nications, and other critical infrastructure. Asset management systems, as discussed in the case study of Michigan, Montana, Ohio, and Vermont, can address the issue by helping in maintenance of statewide transportation assets and eliminating system deficiencies. Maintain and Provide Access to Designs, Plans, and Other Key Data After 9/11, the availability of designs, plans and other data became an issue because key plans and documents were stored in the World Trade Center. Key tunnel documents were not found until days after the incident in the Howard Tunnel in Baltimore. Many roadway and bridge design plans, shop drawings, and other infrastructure record documents are available on a 24-hour basis in Iowa DOT’s electronic record management system (ERMS). Plan for the Unexpected by Learning from Previous Experiences After the 1993 World Trade Center bombing, every agency and facility put emergency plans in place, but none of these entities was prepared for an event of the enormity and scale of 9/11. Similarly, after the London bombings, planning has been expanded to cover multisite scenarios. For tunnels, water intrusion is a critical issue, and infrastructure interdependencies can be identified. Integrate Recovery Planning with Existing Planning Iowa has a State Recovery Plan that includes a Transportation Appendix that details the roles, responsibilities, and framework for post-disaster transportation recovery. In California, the State Emergency Plan includes a Recovery section that Caltrans helped to develop, and recovery is integrated into hazard mitigation planning and COOP efforts.