A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure (2005)

Below is the uncorrected machine-read text of this chapter, intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text of each book. Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.

T R A N S P O R T A T I O N R E S E A R C H B O A R D WASHINGTON, D.C. 2005 www.TRB.org NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM NCHRP REPORT 525 Research Sponsored by the American Association of State Highway and Transportation Officials in Cooperation with the Federal Highway Administration SUBJECT AREAS Planning and Administration • Bridges, Other Structures, and Hydraulics and Hydrology • Public Transit Surface Transportation Security Volume 4 A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure SCIENCE APPLICATIONS INTERNATIONAL CORPORATION (SAIC) TRANSPORTATION DIVISION McLean, VA PB CONSULT Herndon, VA

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM Systematic, well-designed research provides the most effective approach to the solution of many problems facing highway administrators and engineers. Often, highway problems are of local interest and can best be studied by highway departments individually or in cooperation with their state universities and others. However, the accelerating growth of highway transportation develops increasingly complex problems of wide interest to highway authorities. These problems are best studied through a coordinated program of cooperative research. In recognition of these needs, the highway administrators of the American Association of State Highway and Transportation Officials initiated in 1962 an objective national highway research program employing modern scientific techniques. This program is supported on a continuing basis by funds from participating member states of the Association and it receives the full cooperation and support of the Federal Highway Administration, United States Department of Transportation. The Transportation Research Board of the National Academies was requested by the Association to administer the research program because of the Board’s recognized objectivity and understanding of modern research practices. The Board is uniquely suited for this purpose as it maintains an extensive committee structure from which authorities on any highway transportation subject may be drawn; it possesses avenues of communications and cooperation with federal, state and local governmental agencies, universities, and industry; its relationship to the National Research Council is an insurance of objectivity; it maintains a full-time research correlation staff of specialists in highway transportation matters to bring the findings of research directly to those who are in a position to use them. The program is developed on the basis of research needs identified by chief administrators of the highway and transportation departments and by committees of AASHTO. Each year, specific areas of research needs to be included in the program are proposed to the National Research Council and the Board by the American Association of State Highway and Transportation Officials. Research projects to fulfill these needs are defined by the Board, and qualified research agencies are selected from those that have submitted proposals. Administration and surveillance of research contracts are the responsibilities of the National Research Council and the Transportation Research Board. The needs for highway research are many, and the National Cooperative Highway Research Program can make significant contributions to the solution of highway transportation problems of mutual concern to many responsible groups. The program, however, is intended to complement rather than to substitute for or duplicate other highway research programs. Note: The Transportation Research Board of the National Academies, the National Research Council, the Federal Highway Administration, the American Association of State Highway and Transportation Officials, and the individual states participating in the National Cooperative Highway Research Program do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the object of this report. Published reports of the NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM are available from: Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet at: http://www.national-academies.org/trb/bookstore Printed in the United States of America NCHRP REPORT 525: Volume 4 Project 20-59(02) ISSN 0077-5614 ISBN 0-309-08803-8 Library of Congress Control Number 2004111186 © 2005 Transportation Research Board Price $35.00 NOTICE The project that is the subject of this report was a part of the National Cooperative Highway Research Program conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. Such approval reflects the Governing Board’s judgment that the program concerned is of national importance and appropriate with respect to both the purposes and resources of the National Research Council. The members of the technical committee selected to monitor this project and to review this report were chosen for recognized scholarly competence and with due consideration for the balance of disciplines appropriate to the project. The opinions and conclusions expressed or implied are those of the research agency that performed the research, and, while they have been accepted as appropriate by the technical committee, they are not necessarily those of the Transportation Research Board, the National Research Council, the American Association of State Highway and Transportation Officials, or the Federal Highway Administration, U.S. Department of Transportation. Each report is reviewed and accepted for publication by the technical committee according to procedures established and monitored by the Transportation Research Board Executive Committee and the Governing Board of the National Research Council. To save time and money in disseminating the research findings, the report is essentially the original text as submitted by the research agency. This report has not been edited by TRB.

The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished schol- ars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and techni- cal matters. Dr. Bruce M. Alberts is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Acad- emy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achieve- ments of engineers. Dr. William A. Wulf is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Acad- emy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both the Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. William A. Wulf are chair and vice chair, respectively, of the National Research Council. The Transportation Research Board is a division of the National Research Council, which serves the National Academy of Sciences and the National Academy of Engineering. The Board’s mission is to promote innovation and progress in transportation through research. In an objective and interdisciplinary setting, the Board facilitates the sharing of information on transportation practice and policy by researchers and practitioners; stimulates research and offers research management services that promote technical excellence; provides expert advice on transportation policy and programs; and disseminates research results broadly and encourages their implementation. The Board’s varied activities annually engage more than 5,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. www.TRB.org www.national-academies.org

COOPERATIVE RESEARCH PROGRAMS STAFF FOR NCHRP REPORT 525 VOLUME 4 ROBERT J. REILLY, Director, Cooperative Research Programs CRAWFORD F. JENCKS, Manager, NCHRP S. A. PARKER, Senior Program Officer EILEEN P. DELANEY, Director of Publications ELLEN M. CHAFEE, Assistant Editor NCHRP PROJECT SP20-59 PANEL FOR PROJECT 20-59(02) Field of Special Projects—Area of Security THOMAS HICKS, Maryland State Highway Administration (Chair) DAVID P. ALBRIGHT, New Mexico State Highway and Transportation Department PHILIP J. CARUSO, Institute of Transportation Engineers ANTHONY R. KANE, AASHTO VINCENT P. PEARCE, FHWA MARY LOU RALLS, Ralls Newman, LLC, Austin, TX TERRY SIMMONDS, Washington State DOT (Retired) STEVEN L. ERNST, FHWA Liaison Representative JOEDY W. CAMBRIDGE, TRB Liaison Representative AUTHOR ACKNOWLEDGMENTS This self-study course book on risk management—focusing on terrorism-related vulnerability assessment of bridges, tunnels, and other highway infrastructure—is the result of contributions from a number of individuals, state highway departments of transportation (DOTs), and federal agencies. The National Cooperative Highway Research Program (NCHRP) of the Transportation Research Board (TRB) funded the development of the original workshops and this book on behalf of the American Association of State Highway and Transportation Officials (AASHTO) Transportation Security Task Force. The Federal Highway Administration (FHWA) served as the primary advisor for this course book. The information contained in this self-study course book is derived from the contents of three national workshops conducted under NCHRP Project 20-59(02) in 2003. These workshops for multiple state DOTs were hosted by three state DOTs—the Texas Department of Transportation (Texas DOT), the California Depart- ment of Transportation (Caltrans), and the New York State Depart- ment of Transportation (NYSDOT). The lead state DOT sponsors of the workshops were the state bridge engineers: Mary Lou Ralls (Texas DOT), Richard Land (Caltrans), and George Christian (NYSDOT). The content of this self-study course reflects the best judgment and experience of Science Applications International Corporation (SAIC) and PB Consult, which developed and compiled the course material and presented the material in the workshops. The principal investigator of the project was Dr. Shahed Rowshan. The other primary authors were Dr. Michael Smith (SAIC) and Stephen Lockwood (PB Consult). The contents of this study do not repre- sent an official view of any sponsor, highway administration, or federal agency.

This fourth volume of NCHRP Report 525: Surface Transportation Security will be of interest to state DOT and highway authorities with responsibility for state-level pro- gram planning and policy, asset (e.g., bridge and tunnel) management, and security. The law-enforcement community and emergency responders are essential in risk-management planning and should be familiar with the concepts in this course. In federal agencies, secu- rity decision makers, field office representatives, and bridge and tunnel engineers could benefit from this course. In general, engineers, planners, and researchers involved in secu- rity assessment and planning would find the concepts in this course beneficial. The AASHTO Transportation Security Task Force, in cooperation with FHWA and the Transportation Research Board (TRB), sponsored the NCHRP 20-59(02) proj- ect to provide three national workshops to familiarize transportation agencies and other interested parties with the AASHTO methodology published in the Guide to Highway Vulnerability Assessment for Critical Asset Identification and Protection. Three state DOTs—California, New York, and Texas—hosted national workshops that were con- ducted in spring 2003. The objectives of Volume 4: A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure are (1) to provide a general background in terrorism-related risk management for highway infrastructure and (2) to assist bridge and structures engineers and managers in • Identifying critical highway assets and their potential vulnerabilities, • Developing possible countermeasures to prevent or ameliorate threats to such assets, and • Determining the capital and operating costs of such countermeasures. This volume of NCHRP Report 525 was prepared under NCHRP Project 20-59(02) by Science Applications International Corporation with PB Consult; the report is pre- sented in PowerPoint and portable document format (pdf) on CRP-CD-55. Emergencies arising from terrorist threats highlight the need for transportation managers to minimize the vulnerability of travelers, employees, and physical assets through incident prevention (including deterrence), response preparedness, conse- quence mitigation, effective response, and rapid recovery. Managers seek to reduce the chances that transportation vehicles and facilities will be targets or instruments of ter- rorist attacks and to be prepared to respond to and recover from such possibilities. By being prepared to respond to terrorism, each transportation agency is simultaneously prepared to respond to natural disasters such as hurricanes, floods, and wildfires, as well as human-caused events such as hazardous materials spills and other incidents. This is the fourth volume of NCHRP Report 525: Surface Transportation Security, a series in which relevant information is assembled into single, concise volumes—each FOREWORD By S. A. Parker Staff Officer Transportation Research Board

pertaining to a specific security problem and closely related issues. These volumes focus on the concerns that transportation agencies are addressing when developing pro- grams in response to the terrorist attacks of September 11, 2001, and the anthrax attacks that followed. Future volumes of the report will be issued as they are completed. To develop this volume in a comprehensive manner and to ensure inclusion of sig- nificant knowledge, available information was assembled from numerous sources, including a number of state departments of transportation. A panel of topic experts in the subject area was established to guide the researchers in organizing and evaluating the collected data and to review the final document. This volume was prepared to meet an urgent need for information in this area. It records practices that were acceptable within the limitations of the knowledge avail- able at the time of its preparation. Work in this area is proceeding swiftly, and readers are encouraged to be on the lookout for the most up-to-date information. Volumes issued under NCHRP Report 525: Surface Transportation Security may be found on the TRB website at http://www4.trb.org/trb/crp.nsf/All+Projects/ NCHRP+20-59.

CONTENTS CRP - CD - 55 I-1 CHAPTER I Introduction and Background I.1 Objective, I-1 I.2 Background, I-1 I.3 Scope, I-2 I.4 Audience, I-2 I.5 Methodology and ITS Applications, I-3 I.6 States and Provinces That Have Completed This Course, I-3 I.7 How to Use This Course Book, I-4 II-1 CHAPTER II Risk Management Self-Study Course III-1 CHAPTER III Risk Management Discussions Specific to Bridges and Tunnels IV-1 CHAPTER IV Sample Exercises IV.1 Exercise I – Blue River City, IV-1 IV.2 Exercise II – Sample Bridge Vulnerability Assessment, IV-13 V-1 CHAPTER V Other Risk Management Studies V.1 Blue Ribbon Panel, V-1 V.2 Office of Domestic Preparedness, V-3 V.3 Federal Transit Administration, V-6 V.4 U.S. Army Corps of Engineers, V-8 V.5 Transportation Research Board, V-8 A-1 APPENDIX A Acronyms B-1 APPENDIX B Selected Security Web Sites C-1 APPENDIX C List of Participating Agencies in NCHRP Workshops D-1 APPENDIX D Biographies of NCHRP Workshop Presenters E-1 APPENDIX E List of Presentations from the NCHRP Workshops F-1 APPENDIX F Disclaimer G-1 APPENDIX G Comment Form H-1 APPENDIX H Vulnerability Assessment Worksheets I-1 APPENDIX I Electronic Copies of Vulnerability Assessment Worksheets