Strategic Issues Facing Transportation, Volume 7: Preservation, Maintenance, and Renewal of Highway Infrastructure (2020) / Chapter Skim
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P A R T C Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-3 Leadership's Guide Contents C4 Leadership's Guide Orientation C7 Guide Overview C7 Preparing for Emerging and Innovative PMR Practices C7 Fostering Innovative Practices Within the Agency C7 Remarks on the Practitioner's Guide to Emerging Highway Preservation, Maintenance and Renewal Practices C9 Preparing for Emerging and Innovative PMR Practices C9 Study Background C10 A LongRange Vision – Context for PMR in 2070 C11 The Future Context C12 Making the Case for PMR Innovative Practices C13 The Importance of Leadership C18 The Importance of Practitioner Pressure C19 Peer Agency Pressure and the Opportunities Presented C20 Overview of Emerging PMR Practices C28 Critical Success Factors (CSFs) C31 Fostering Innovative Practices within the Organization C31 Organization CMF C39 Organization Improvement Framework (OIF)
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C-4 Strategic Issues Facing Transportation Leadership's Guide Orientation This guide seeks to stimulate interest among leaders of transportation agencies in foster ing emerging and innovative practices as they relate to the preservation, maintenance, and renewal (PMR) of highways and in providing assistance in this effort.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-5 • The ways in which we preserve, maintain, and renew highway infrastructure will change over the next 30 to 50 years in response to inevitable changes in the level and patterns of usage of the system; innovations in materials, methods, and technologies; the availability of resources; and other external nontransportationrelated factors. While this guide highlights 16 exemplary emerging PMR practices worthy of familiarization and consideration for their beneficial impacts upon highway PMR over this timeframe, a key tenet of this guide is preparation rather than prediction.
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C-6 Strategic Issues Facing Transportation Definitions of PMR • Preservation: Includes work activities that are planned and performed to improve or sustain the asset condition in a state of good repair. Asset preservation primarily includes preventive maintenance, minor rehabilitation and retrofitting of infra structure elements [pavements, bridges, intelligent transportation system (ITS)
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-7 Guide Overview This guide is organized into two main sections. The first section provides information that sets the stage for innovative practices.
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C-8 Strategic Issues Facing Transportation Part C, Figure 1. How to use the leadership's guide.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-9 Preparing for Emerging and Innovative PMR Practices Study Background The following steps were taken in the preparation of this guide: • Identification of factors and trends that could significantly influence highway infrastructure PMR needs over a 30 to 50year horizon. • Identification of an initial "long list" of more than 60 potential emerging and innovative PMR practices that could significantly improve the ability of transportation agencies to address those needs.
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C-10 Strategic Issues Facing Transportation A Long-Range Vision -- Context for PMR in 2070 In the year 2070, the nation's multimodal transportation system remains anchored by a ubiquitous highway net work that has been transformed over the past halfcentury despite chronic limitations of available resources. These transformations have dramatically improved the safety, efficiency, reliability, and durability of what is now more accurately characterized as the vehiclehighway network, or VHN.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-11 The Future Context The vision presented in the previous section suggests that a robust and increasingly resilient and adaptive network of streets and highways will continue to be needed into the future. The building blocks of this network will continue to include pavements, bridges, tunnels, drainage systems, and other components of highway infrastructure that are available in today's world and will remain available in the future.
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C-12 Strategic Issues Facing Transportation Making the Case for PMR Innovative Practices While there is a certain qualitative "feelgood" benefit that may accompany doing something that is new and different, being innovative just for its own sake is not sound justification. There must be reasons that are sound and practical to justify the investment and commitment of time and energy required to advance from the stateofcurrent practice to the leading edge.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-13 ing motivated by advancements, particularly those requiring upfront outlays in expectation of downstream benefits. PMR Advancements Can Attract Talent It is common for highway agencies to have difficulty in attracting young professionals to preservation and maintenance functions.
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C-14 Strategic Issues Facing Transportation for PMR functions in general to receive less leadership attention than other, higher profile areas, it is worth focusing on the potential for this occurring and the implications for emerging and innovative PMR practices. Gaining Leadership Attention for PMR Not unique to transportation is the alltoooften, yet understandable, consumption of the attention of organizational leadership by the most visible and consequential areas of responsibility -- revenues, budgets, operations, system enhancement decisions, stakeholder engage ment, politics -- to the detriment of areas such as preservation, maintenance, and renewal of the physical plant.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-15 Some degree of organizational inertia and hesitancy (if not outright hostility) to change are virtually inevitable barriers to change, even in topnotch organizations.
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C-16 Strategic Issues Facing Transportation leaders "walk the talk" that counts in the end. Leaders talking up the value of advancements is an important step, but "taking the walk" requires a lot more than just talk.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-17 Leading Edge Versus Bleeding Edge A conscious strategy among agency leadership may be to strive to be on the leading edge of best practices, proven in peer agencies with similar circumstances, while simultaneously avoid ing the "bleeding edge" where costs and risks associated with potential innovative practices are likely to be greater. This may not be a bad strategy.
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C-18 Strategic Issues Facing Transportation Change Management Finally, it is important for agencies to consider the need for change management strategies when implementing innovative practices. The potential for resistance to change from legacy systems and practices should not be ignored, particularly among practitioners whose skillsets may no longer be needed and from managers whose area of responsibility may be diminished.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-19 they are practitioners who are excited about a prospective innovation in their area of expertise that could represent a significant step forward in enhancing the agency's efficiency and effec tiveness. The best innovation champions are wellsprings of passion, pressure, and persistence about the innovation that has captured their interest.
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C-20 Strategic Issues Facing Transportation • Identifying PMR innovative practices being advanced among peer transportation agencies and determining potential relevance and value added on the home turf. • Soliciting peer agency experience with specific practices to obtain objective feedback and to temper lessthanobjective claims from innovation advocates or critics.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-21 Part C, Table 4. Connected V2I technology providing communications between passing vehicles and roadside units.
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C-22 Strategic Issues Facing Transportation Part C, Table 6. Integrated building information modeling (iBIM)
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-23 Part C, Table 8. Remote sensing systems -- PMR applications.
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C-24 Strategic Issues Facing Transportation Part C, Table 10. Predictive-proactive maintenance regime for roadway assets.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-25 Part C, Table 12. Structural health monitoring.
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C-26 Strategic Issues Facing Transportation Part C, Table 14. Artificial intelligence -- PMR traffic management applications.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-27 Part C, Table 16. Self-diagnosing/reporting and work ordering.
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C-28 Strategic Issues Facing Transportation Part C, Table 18. The internet of things (IoT)
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-29 Many innovative practices are direct or indirect outcomes of the research and development that emanate from other sectors (e.g., information technology, telecommunications, and materials science) some of which are not well known or wholly unknown to the highway community.
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C-30 Strategic Issues Facing Transportation Systems, Programs, and Budgets Essential support functions and resources are the backbone for virtually any agency activity. This is particularly true for agencies interested in innovative practices.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-31 External Collaboration Advancements at transportation agencies will not occur without collaboration with exter nal partners. Leaders and practitioners often turn to their peers, academic institutions, and the transportation industry at large to gain an appreciation for leading and best practices and to see how worthy ideas, methods, or processes can be transferred or adapted.
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C-32 Strategic Issues Facing Transportation • Level 1: The agency generally has not considered the CSF with respect to fostering innovative practices. • Level 2: The agency has been considering the CSF with respect to fostering innovative prac tices, may have plans in place to develop an approach to provide the CSF capability, and may have begun to implement the approach.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-33 Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 1.
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C-34 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 3.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-35 Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 4.
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C-36 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 5. S up po rti ve St af f • Kn ow le dg e Ac qu is iti on an d Su st ai na bi lit y: Le ar ni ng p ra ct ic es C on tin uo us e du ca tio n an d tra in in g • St af f C ap ac ity • R ec ru itm en t a nd R et en tio n • Ac qu is iti on o f n ew k no w le dg e is ty pi ca lly th e re su lt of m od es t, in cr em en ta l i m pr ov em en t t o ex is tin g pr ac tic e • Su pp or t f or c on tin uo us e du ca tio n an d tra in in g th at m ig ht s tim ul at e in te re st in in no va tiv e pr ac tic es is s ev er el y lim ite d or u na va ila bl e • St af f c ap ac ity a nd te ch ni ca l e xp er tis e is s tre tc he d th in , a nd c om m itt ed to su pp or tin g ex is tin g pr og ra m s us in g cu rre nt p ra ct ic es , w ith li ttl e or n o tim e to in ve st in le ad in g ed ge /in no va tiv e pr ac tic es • R ec ru itm en t a nd re te nt io n de ci si on s ar e ba se d on c an di da te s' pr of es si on al kn ow le dg e re la te d to e xi st in g pr ac tic es ra th er th an a re as th at m ay s up po rt in no va tiv e pr ac tic es • So m e, b ut n ot a ll ke y st af f, pr oa ct ive ly s ee k op po rtu ni tie s to a cq ui re a nd in co rp or at e ne w k no w le dg e th at c an s ig ni fic an tly im pr ov e ex is tin g pr ac tic e • C on tin uo us e du ca tio n an d tra in in g op po rtu ni tie s to fo st er in no va tiv e pr ac tic es ha ve b ee n id en tifi ed , b ut li m ite d re so ur ce s ca n m ak e it di ffi cu lt to a cc es s th em • St af f c ap ac ity a nd te ch ni ca l e xp er tis e ne ed ed to s up po rt in no va tiv e pr ac tic es , ei th er in -h ou se o r a cc es si bl e th ro ug h ou ts ou rc in g, a re id en tifi ed a nd a dd re ss ed in a n ad h oc m an ne r • N ew h ire s po ss es si ng s ki lls a nd in te re st in le ad in g ed ge p ra ct ic es a nd a pp ly in g in no va tio n ar e of te n pr io rit iz ed b ut m ay b e di ffi cu lt to re cr ui t • St af f a re e xp ec te d to , a nd th e m aj or ity do , p ro ac tiv el y se ek o pp or tu ni tie s to a cc es s ne w k no w le dg e th at c an ad va nc e ex is tin g pr ac tic e to w ar d th e le ad in g ed ge • C on tin uo us e du ca tio n an d tra in in g op po rtu ni tie s to fo st er in no va tio n ar e tre at ed a s hi gh p rio rit ie s an d re ad ily ac ce ss ib le to s ta ff • Su ffi ci en t s ta ff ca pa ci ty a nd te ch ni ca l ex pe rti se to s up po rt in no va tiv e pr ac tic es c an g en er al ly b e as se m bl ed , ei th er in -h ou se o r t hr ou gh o ut so ur ci ng or p ar tn er in g • Ag en cy p ro ac tiv el y se ek s an d cu lti va te s st af f t ha t p os se ss th e de si re an d kn ow le dg e to a pp ly le ad in g ed ge / in no va tiv e pr ac tic es to th ei r r ol es a nd re sp on si bi lit ie s; a ge nc y's re pu ta tio n as a n in no va tiv e in st itu tio n he lp s to at tra ct th es e in di vi du al s P ar t C , T ab le 1 9.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-37 Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 6. L eg al , R eg ul at or y an d Po lic y Is su e M an ag em en t • Li ab ilit y Is su es • In te lle ct ua l P ro pe rty Is su es • Le ga l a nd R eg ul at or y C ha lle ng es • Po lic y Is su es • Le ga l a nd re gu la to ry is su es th at m ay im pe de in no va tiv e pr ac tic es (l ia bi lit y, in te lle ct ua l p ro pe rty is su es , l ow bi d pr oc ur em en ts )
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C-38 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Le ve l 1 Le ve l 2 Le ve l 3 7.
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-39 Organization Improvement Framework (OIF) The OIF provides an actionoriented framework that begins with the results of the Organiza tion CMF assessment and indicates actions required to advance the organization to the highest target level (Level 3)
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C-40 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Po te nt ia l T ar ge t ( Le ve l 3 )
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-41 Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Po te nt ia l T ar ge t ( Le ve l 3 )
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C-42 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Po te nt ia l T ar ge t ( Le ve l 3 )
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-43 Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Po te nt ia l T ar ge t ( Le ve l 3 )
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C-44 Strategic Issues Facing Transportation Cr iti ca l S uc ce ss Fa ct or Co m po ne nt s Po te nt ia l T ar ge t ( Le ve l 3 )
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Leadership's Guide to Emerging Highway Preservation, Maintenance, and Renewal Practices C-45 Remarks on the Practitioner's Guide to Emerging Practices Organization CMF at the Unit Level The OIF is geared toward assessing agencywide capability to foster innovative practices, and can also be used by discipline leaders and technical managers to assess the same capability of fostering innovative practices at the individual unit level. Enlightened leadership at the senior management level can be dampened -- indeed, undermined -- by less than enlightened leader ship at the middle management or firstline supervisory level.
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Abbreviations and acronyms used without definitions in TRB publications: A4A Airlines for America AAAE American Association of Airport Executives AASHO American Association of State Highway Officials AASHTO American Association of State Highway and Transportation Officials ACI–NA Airports Council International–North America ACRP Airport Cooperative Research Program ADA Americans with Disabilities Act APTA American Public Transportation Association ASCE American Society of Civil Engineers ASME American Society of Mechanical Engineers ASTM American Society for Testing and Materials ATA American Trucking Associations CTAA Community Transportation Association of America CTBSSP Commercial Truck and Bus Safety Synthesis Program DHS Department of Homeland Security DOE Department of Energy EPA Environmental Protection Agency FAA Federal Aviation Administration FAST Fixing America's Surface Transportation Act (2015) FHWA Federal Highway Administration FMCSA Federal Motor Carrier Safety Administration FRA Federal Railroad Administration FTA Federal Transit Administration HMCRP Hazardous Materials Cooperative Research Program IEEE Institute of Electrical and Electronics Engineers ISTEA Intermodal Surface Transportation Efficiency Act of 1991 ITE Institute of Transportation Engineers MAP-21 Moving Ahead for Progress in the 21st Century Act (2012)
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