Accelerating Highway Project Delivery Under MAP-21

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Accelerating Highway Project Delivery Under MAP-21

OC

T 2012

The Council of State Governments

CAPITOL researChtransportation

The COunCil Of sTaTe gOvernmenTs

Executive Summary• MAP-21,thefederalsurfacetransportation

authorizationpassedbyCongressinthesummerof2012,incorporatesaseriesofprovisionsforacceleratingtransportationprojectdeliveryandstreamlininganenvironmentalreviewprocess,whichsomebelievehasbecomeamajorcontribu-tortoprojectdelays.MAP-21standsforMovingAheadforProgressinthe21stCentury,thenameofthelegislation.

• Manyoftheseprovisionshavelongbeensoughtbystatedepartmentsoftransportation.Somehavebeentriedonalimitedbasisaspartofprevi-ousauthorizationsandsomehavebeenencour-agedbyanongoingFederalHighwayAdministra-tioninitiativecalledEveryDayCounts.

• Anumberofprovisionsseektoimpacttheen-vironmentalreviewprocessrequiredundertheNationalEnvironmentalPolicyActof1970andthecommonpracticesthatareapartofit.Theseinclude:

y Establishingnewdecision-makingdeadlinesandfines;

y Allowingtheuseofplanningdocuments;y Expandingcategoricalexclusionsforcertaintypesofprojectsfromenvironmentalrequire-ments;

y Consolidatingenvironmentalpaperwork;y Allowingstategovernmentstoassumefed-eralresponsibilitiesintheenvironmentalactprocess;

y Allowingearlyacquisitionofrights-of-waypriortothecompletionofenvironmentalrequirements;and

y Encouragingthedevelopmentofprogram-maticmitigationplanstoaddressthepo-tentialenvironmentalimpactsoffuturetransportationprojectsonmorethanaproject-by-projectbasis.

• AmongtheMAP-21projectdeliveryprovisionsunrelatedtotheNationalEnvironmentalPolicyActarethosethatencouragetheuseofinnova-tiveconstructionmethodsandtechnologiesandcontractingprocedures.

• MAP-21setsa180-daydeadlinefortheconclu-sionofpermittingdecisionsbyfederalagencies

aftertheenvironmentalreviewprocesshasbeencompletedandwouldextractpenaltiesfromthoseagenciesforeveryweekaprojectisnotallowedtoproceed.Transportationexpertsbelievethenewapproachwillencourageagenciesatalllevelsofgovernmenttotakestockofexistingresourcesandsetmorerealisticprojecttimetables.Someintheenvironmentalcommunityworrysuchone-size-fits-alldeadlinesmayleadtohastyreviewsandbadprojectdecisions.

• MAP-21allowstheuseofcertainstate,regionalandmetropolitanplanningdocumentsinenvi-ronmentalreviewproceedings.Transportationconstructionexpertssaythatcanreducedelaybyavoidingduplicationofeffortandcouldproducegreaterbuy-inamongstakeholders.Butoth-erscautionthatbringingenvironmentalreviewprocessesintoplanningwouldbeamistakeandthatstatewideandregionalplanningdocumentsshouldn’tbeusedtopredetermineenvironmen-taldecisionsonindividualprojectsbecausesuchdocumentsseldomreceivemuchpublicinput.

• MAP-21allowsfederalagenciestoissueacom-bineddocumentthatincorporatestwodocumentsrequiredundertheNationalEnvironmentalPolicyAct:theFinalEnvironmentalImpact

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StatementandtheRecordofDecision.ExpertsbelievethedocumentconsolidationisoneofthemoreconcretechangesinMAP-21,whichhasthepotentialtoimproveefficiencyandaccelerateprocessesbyreducingtimeandpaperworkassoci-atedwithenvironmentalrequirements.

• MAP-21allowscertaintransportationprojectstobeexcludedfromrequirementsrelatedtoenvi-ronmentalassessmentsorenvironmentalimpactstatementsundertheNationalEnvironmentalPolicyAct,suchashighwaysandbridgesdamagedinemergenciesorprojectsreceivinglimitedfeder-alfunds.Environmentalistsarguetheseexclusionsservetolimitpublicinput.Othersarguecitizenparticipationmusthavelimitsoritcanunderminegoodplanning.

• MAP-21expandsapilotprogramcreatedunderSAFETEA-LUthatallowedsomestatestoassumecertainfederalenvironmentalreviewresponsibilities.Californiasawsignificanttimesavingsfromtakingpartinthepilotprogram.SomebelievemorestatesmaybewillingtotakeontheresponsibilitiesunderMAP-21,butotherssayitwilllikelydependonwhetherstatesseethepotentialforsignificantbenefits.

• MAP-21allowsstatesandmetropolitanplanningorganizationstodeveloponeormoreprogram-maticmitigationplanstoaddressthepotentialenvironmentalimpactsoffuturetransportationprojects.Theplans—whichcanbedevelopedonaregional,ecosystem,watershedorevenstatewidescale—havebeenshowntosavetimeandmoney.Expertsbelieveexpandeduseofsuchagreementshavethepotentialforlong-termbenefits,butmaynotproducedramaticresultsintheshortterm.

• MAP-21givesgovernmentagenciesaddedau-thoritytoacquirerights-of-wayfortransportationprojectspriortothecompletionoftheenviron-mentalreviewprocess.Itallowsfortheuseoffederalandstatefundsforadvancedpurchaseofrights-of-wayonaprojectifthereisagreementthereviewwillnotbeaffected.Earlyacquisi-tionispartofanefforttohavevariousaspectsof

transportationprojectsrunconcurrentlyratherthaninalinearfashionwhichrequiresmoretime.

• InMAP-21,Congresssaiditisinthenationalinteresttopromotetheuseoftechnologytoim-provetheefficiencyofconstructionandincreasethesafetyandlifeofhighwaysandbridges.

• Amongtheinnovativepracticesmentionedinthebillistheuseofprefabricatedbridgeelementsandsystems.TheFederalHighwayAdministrationhasencouragedtheiruseaspartofitsEveryDayCountsinitiative.Contractorscansavetimebyassemblingbridgesinoffsite,climate-controlledenvironments,thuslimitingdelaysduetoweather.

• Otherinnovativeconstructionequipment,materi-alsandtechniquesencouragedinthelegislationincludein-placerecycling,whichinvolvesreha-bilitatingroadpavementbymixinginadditionalcement,anddigitalthree-dimensionalmodelingtechnologies,whichallowforfaster,moreaccu-rateandmoreefficientplanningandconstruction.

• Intelligentcompaction,anothertechniqueencour-agedinthelegislation,usesspecialvibratingrollersandothertechnologiestoproduceamoreuniform,long-lastingroadpavementwithfewerpassesthantraditionalstaticrollers,thussavingtime.

• MAP-21encouragestheuseofinnovativecon-tractingmethods.Theseincludethedesign-builddeliverymethod,inwhichonecompanyassumesresponsibilityforboththedesignworkandallconstructionactivities;andtheconstructionmanager/generalcontractormethod,inwhichthegovernmentagencyhastheoptionofcontinuingtherelationshipwiththecompanycontractedfortheprojectdesignphaseorchoosingadifferentcompanyforactualconstruction.

• TheU.S.DepartmentofTransportationisintheprocessofcreatingguidanceandregulationstoimplementMAP-21thatwillhaveasignificantimpactonhowsuccessfulandusefultheacceler-atingprojectdeliveryprovisionsmaybe.Thewaystatesinterpretandusethelegislation’stoolsalsowillbeimportant.

• MostbelieveMAP-21willnotbethelastwordonacceleratingprojectdelivery.Itwilllikelybeontheagendaforthenextauthorizationbillin2014andbeyond.Intheinterim,stateshavetheopportunitytodemonstrateprogress.

IntroductionA2011reportfromtheCongressionalResearch

Servicesaidmajorhighwayprojectscantake10to15yearstoplanandbuild.Projectdelayscanbetheresultofcomplicationsinanyofthefivemainphasesofaproject:planning,preliminarydesignandenvironmentalreview,finaldesign,right-of-wayacquisitionandutilityrelocation,andconstruction.1

Thepassageofthenewfederalsurfacetransporta-tionauthorizationlegislation,knownasMAP-21,thisyearbringswithitaseriesofprovisionsforaccelerat-ingprojectdeliveryandstreamlininganenviron-mentalreviewprocessthatsomesayhasbecomeamajorcontributortoprojectdelays.Thebillincludesprovisionstoallowmoreprocessestorunconcur-


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rently,toencourageearlieragencycollaboration,toreducepaperworkandtoenforcedeadlines.

TheseprovisionsincludemanylongsoughtbystatedepartmentsoftransportationandsomethatalreadyhavebeenpartofanongoingFederalHighwayAdministrationinitiativecalledEveryDayCounts.Environmentalistsandotherswarn,however,thatitwillbeimportantthatenvironmentalimpacts,com-munityconcernsandpropertyowners’rightscontinuetobetakenintoaccountevenastheprocesstoensurespeediertransportationprojectstakesshape.

Transportationanalysts,meanwhile,warnthatit’sfartooearlytoassessthepotentialimpactoftheMAP-21provisionswithoutknowinghowthelawwillbeinterpreted,theguidancestateswillreceivefromthefederalgovernment,andthevariouswaysstateswillchoosetoadoptandmakeuseofthenewacceleratedprojectdeliverytools.

MAP-21islikelytobejustthestartofalongerconversationonwaystoimprovetheprojectdeliveryprocess.Thatconversationwilllikelycontinueasthenextauthorizationbillduein2014isdiscussedandbeyond.

Still,astheprocessofimplementingMAP-21getsunderway,it’sworthexaminingwhatwasinthebill,whyspecificstrategiesforacceleratingprojectdeliverywereemphasizedandwhatitcouldallmeanforstategovern-mentsandforthelengthoftransportationprojectsgoingforward.Thatisthefocusofthisbrief.

Streamlining Environmental ProcessesThenewfederaltransportationauthorization

knownasMAP-21,forMovingAheadforProgressinthe21stCentury,includesanumberofprovisionsfocusedonstreamliningtheenvironmentalreviewprocessrequiredundertheNationalEnvironmentalPolicyAct,the1970legislationthatputinplaceaninterdisciplinary,environmentalimpact-focusedap-proachtoprojectplanninganddecision-makingforprojectsthatreceivefederalfunding.2

Thereviewprocessincludesthreelevelsofanalysisoftheenvironmentaleffectsofaproject.First,afederalleadagency—theFederalHighwayAdministration,forexample—oftenincoordinationwithotherfederal,state,localortribalagencies,determineswhetheraprojectmaybecategoricallyexcludedfromadetailedenvironmentalanalysisduetoapreviousdeterminationthatsimilarprojectshavenosignificantenvironmentalimpact.Secondly,ifcategoricalexclusionisn’tanoption,theagencyproducesawrittenenvironmentalassessmenttodeterminewhethertheprojectwouldsignificantlyaffecttheenvironment.Ifitisdeterminedtheprojectwouldnot,theagencyissuesaFindingofNoSignificantImpact.Finally,onceit’sdeterminedthattheenvironmentalconsequencesmaybesignificant,theagencypreparesanEnvironmentalImpactStatement,whichisamoredetailedevaluationoftheproposedprojectandalternatives.Throughthedraftversionsofthestatement,thepublic,federalagenciesandoutsidepartiesallhaveanopportunitytoprovideinput.AFinalEnvironmentalImpactStatementincorporatesthatinputandlateraRecord

ofDecisionispreparedbytheleadagencytoaddresshowthefindingsofthestatement,includingprojectalternatives,wereincorporatedintotheagency’sdecision-makingprocess.3

“SinceNEPAwasadoptedabout40yearsago,theaveragetimeittakestogothroughtheenvi-ronmentalreviewprocesshasincreasedfromabouttwoyearsinthe1970stoovereightyearsin2011,”saidPetraTodorovich,directoroftheAmerica2050nationalinfrastructureplanningprogramfortheNewYork-NewJersey-ConnecticutRegionalPlanAsso-ciation,ataJuneconferencehostedbytheBipartisanPolicyCenterinWashington,D.C.Todorovichco-authoredarecentreportfortheRegionalPlanAssociationcalled“GettingInfrastructureGoing:ExpeditingtheEnvironmentalReviewProcess”thatistheproductofa2011roundtablediscussionamongexpertsontheprocess.

“Accordingtotheexpertsthatweconsultedthough,thelengthytimelinesofenvironmentalreviewarenotduetotheNEPAlawitself,”Todorov-ichsaid.“It’smoreaboutthepoliciesandproceduresthathavedevelopedovertimeandbecomecommonpracticethattheagenciesareexpectedtogothroughthatreallyarethecausefordelay.”4

AnumberofprovisionsincludedinMAP-21seektohaveanimpactonthecommonpracticesthathavebecomeapartoftheNationalEnvironmentalPolicyActprocess.Amongthem:• Itestablishesaframeworkforsettingdeadlines

fordecision-makingintheenvironmentalreviewprocess,withaprocessforissueresolutionandreferral,andpenaltiesforfederalagenciesthatfailtomakeadecision.

• Itallowsfortheuseofplanningdocumentsintheenvironmentalreviewprocess.

• Itofferstechnicalassistancefromfederalagen-ciesforprojectsstalledintheprocesstospeedcompletionwithinfouryears.

• Itexpandsthenumberandtypesofprojectsqualifyingforcategoricalexclusionsfromenvi-ronmentalactrequirements.

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• Itallows,undercertainconditions,fortheconsoli-dationoftwokeyenvironmentaldocuments,theFinalEnvironmentalImpactStatementandtheRecordofDecision.5

• Itallowsforthedelegationoffederalenvironmentalreviewresponsibilitiestostategovernments.

• Itplaceslimitsonjudicialchallengesandreducesthestatuteoflimitationsonclaimsfrom180daysto150.

• Itencouragesdevelopmentofprogrammaticmitigationplansbystatesormetropolitanplan-ningorganizationsaspartofthetransportationplanningprocess.

Accelerating Project DeliveryBeyondtheprovisionsrelatedtoenvironmental

processstreamlining,MAP-21alsoincludesanumberofotherprovisionsaimedataccelerat-ingprojectdeliverybyincreasinginnovationandimprovingefficienciesingovernmentoperations,contracting,right-of-wayacquisitionandconstruc-tion.Thelegislation:• Encouragesearlycoordinationbetweenrelevant

agencies;• Encouragestheuseoftheconstructionmanager/

generalcontractorprocurementmethod;• Encouragesinnovativeprojectdeliverymethods

andconstructiontechniques,suchasprefabri-catedbridgeelementsandhigh-techconstructionequipment.Thefederalshareofprojectcostsmaybeincreasedto100percentforprojectsthatuseinnovativeprojectdeliverymethods,cappedat10percentofallowableapportionments;

• Allowsforpurchaseofright-of-wayanddesignworktobeginpriortofinalenvironmentalclear-ance;and

• Providesforademonstrationprogramtostream-linetherelocationprocessbypermittingalumpsumpaymentfortheacquisitionandrelocationofpropertyifelectedbythepersondisplacedbytheproject.Manyoftheseprovisionsmirrorstrategiesempha-

sizedintheFederalHighwayAdministration’sEveryDayCountsinitiative.Theagencyefforttoidentifyanddeployinnovationsforshorteningprojecttime


framesandacceleratingtechnologydevelopmentlaunchedin2010with15specificinitiativesthathavealreadyseensignificantsupportandsuccess.Everystatetransportationagencyhasappliedoneormoreofthetechnologiesencouragedbythefirstphaseoftheprogramandmanyofthestrategiesarenowwidelyused.

InJuly2012,theFederalHighwayAdministrationannounceditwillpromote13newinnovationstostate,localandregionaltransportationagencies,aswellastothedesignandconstructionindustries.6TheinclusionofEveryDayCountsstrategiesinthetextofMAP-21allowsthemtobeevenmorefirmlyensconcedasbestpracticesinprojectdelivery,transportationofficialssay.

Deadlines and PenaltiesMAP-21setsafederalpermittingdeadlineof180

daysaftertheleadagencyonaproject—typicallytheU.S.DepartmentofTransportationandanystateorlocalgovernmentalentityservingasajointleadagency—hasissueditsfinaldecisionandacompletepermitapplicationisfiled.

Fundswouldberescindedfromtherelevantofficeatthedelinquentfederalagencyforeveryweekbe-yondthe180-daydeadline.Onmajorprojects—thosethatrequireafinancialplan—thepenaltywouldbe$20,000aweek.Thepenaltywouldbe$10,000aweekforallotherprojects.Nofunds,however,wouldberescindedifthestateconcursthatthedelaysarenotthefaultofthefederalpermittingagency.7

AttorneyWilliamMalleyexplainedthedeadlineandpenaltiesconceptinMAP-21evolvedfromanissueresolutionprocessinthepreviousauthorizationbill,SAFETEA-LU,thatneverreallygotofftheground.MalleyisamanagingpartneratthePerkinsCoielawfirminWashington,D.C.,andhasrepresent-edstatetransportationagenciesandotherprojectsponsorsduringtheenvironmentalreviewprocess.

“Theconcept(oftheissueresolutionprocessinSAFETEA-LU)wasto,inasense,giveeachsideanobligationtoputitscardsonthetableintheprocessatanearlystage,”MalleysaidinaSeptembertelephoneinterview.“Fortheleadagency,thatmeansdisclosingwhatthey’reseeingintermsofimpacts,here’stherouteswe’relookingat,etc.Andthenfortheparticipatingagencies,iftheyseesomethingthatwouldsuggestyou’regoingtorunintoamajorproblemgettingyourpermits,thentheyhavetosaythatatoneofthese(early)stages.

“IfyoufastforwardtoMAP-21,Congresscomesbackatitwithaslightlydifferentangleandmoreemphasisondeadline,timelinessofagencydecision-making.Theysetthis180-daydeadline.…Therewasactuallya180-daydeadlineofthesamenatureinSAFETEA-LU,buttheretheconsequenceformiss-ingitwasessentially,‘ReporttoCongress.…’Nowthey’veestablishedamoreconsequentialimpact,whichistosaythesefinancialpenalties.”

Butarethereunderlyingagencycapacityissuesthathavepreventedfederalagenciesfrommakingtimelydecisionsinthepastandwhatimpactare

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weekly$10,000or$20,000fineslikelytohaveifthemanpowersimplyisn’tthere?

“Ithinkthat’salwaysaquestion,”Malleysaid.“Doagencieshaveenoughcapacitytohandlethepermit-tingandreview,theworkloadthattheyhave?”

MalleynotedCongresshasputinplaceavarietyoftoolstohelpfederalandstateagenciesmeettheirstaffingneeds,includingallowingstatedepartmentsoftransportationtouseaportionoftheirfederalhighwayfundstosupporthighwayprojectreviewerstaffpositionsatresourceagencies.

ButMalleysaidtheultimateimpactofMAP-21’sdeadlinesandfineslikelywillbetoencourageagen-ciesatalllevelsofgovernmenttotakestockoftheirexistingresourcesandsetmorerealistictimetablesfortransportationprojects.

“Ithinkwecouldcertainlyimaginethatagencieswillwanttoavoidbeinginapositionwheretheyhavefundsrescindedfromtheheadoftheagency,”Malleysaid.“Nobodywantsthattohappen.Andsothequestionis:Howdotheyavoidhavingfundsrescinded?Myguessisthattheywillpaycloseattentiontoprojectschedulessothattheydon’tendupagreeingtoaschedulethattheyultimatelycan’tmeet.”

MalleysaidtheaimoftheprovisionsinMAP-21,aswellasearlieriterationsofissueresolution,is“tocreateastructureandprocessinwhichbothtrans-portationandenvironmentalagencieshavetoworktogetherandsortofthinkthrough(issueslike)‘whataretheconstraintswe’reunder?Whatcanwereason-ablydo?’Andthenputthatintoaschedule.”8

Someintheenvironmentalcommunityworry,how-ever,thatdeadlinesandfinescouldhavepotentiallynegativeeffectsonthequalityoftransportationprojects.

DeronLovaas,directoroffederaltransportationpolicyfortheNaturalResourcesDefenseCouncil,wroteinaJune2012blogpostthatthoseprovisionsinMAP-21are“likelytoyieldhastyreviewsandawfuldecisions.”9

Lovaasarguesthatenvironmentalreviewsdoandshouldtaketimeifthegoalsarethoroughnessandaccomplishingtheirintendedgoal.

“Ifreducingprojectdelaysisthenameofthegame,toolsotherthanbroadlegislativechangesthatinviteunintendedconsequences,suchasone-size-fits-alldeadlines,imperiousdefaultapprovalofprojectsorlimitson(thereviewofprojectalternatives)shouldbeconsidered,”hewroteinanotherJune2012blogpost.“And,asI’vesaidmanytimesbefore,statesandthefederalgovernmentneedtoperformmorerobuststatisticalanalysisofprojectdelaysandnotrelywhollyonanecdotalevidence.”

Lovaassaidsuchstatisticalanalysiswouldrevealthat,inadditiontoenvironmentalreviews,avastarrayofotherissuescandelayprojects,includinglocalcontro-versies,sheerprojectcomplexityandfinancing.10

MalleycounteredthatLovaas’concernsaboutMAP-21’semphasisondeadlinesaremisplaced.

“Ithinkthatthenotionthattheexistenceofthis180-dayclockisgoingtoleadtorusheddecisionsorwhathaveyou,isnotreallyrecognizingwhatthis

180-daydeadlineis,”hesaid.“TheCongresshasnotsetadeadlinetocompleteNEPA.The180-daydead-lineisthedeadlineforpermittingdecisionsbyotherfederalagenciestobeconcludedaftertwothingshavehappened:one,(theFederalHighwayAdmin-istration)hasconcludeditsNEPAprocess,andtwo,acompletepermitapplicationhasbeensubmittedtothatagency.Itsimplydoesn’taffectthetimingofcompletionofNEPAbecausethisisadeadlinethatonlystartsafterNEPAisover.IfbothofthoseconditionshavebeenmetandyouhaveacompletedpermitapplicationandyouhaveacompletedNEPAreview,thenthesenseofCongressisyoushouldbeabletomakeyourdecisionwithin180days.”11

Othersarguethatonsomeprojects,theenviron-mentalreviewprocessissometimesdelayedonpur-posebecausethefundingisn’tcompletelyinplace.Iftheprocessiscompletedtooearlyinthecycleofaproject,itmayhavetoberedoneperhapsyearslateroncetheprojectisactuallyshovel-ready.

“Marylandkeptthingsinenvironmentalpermit-tinglimboroutinelybecausethatwasawaytoparkprojectsthattheycouldn’tfund,”saidSusanBinderofCambridgeSystematics,whoservedastheFederalHighwayAdministration’sMarylandDivisionadmin-istratorinthe1990s.“Inreality,you’vegottokeepapipeline(ofprojects)going.”

WhiletheprojectpipelineisafocusinMaryland,otherstatessuchasDelawarehavetraditionallytakenadifferentapproach,BindersaidinaSeptem-ber2012telephoneinterviewwithCSG.Fearingthatanyenvironmentalworkwillbecompletedtooearlyintheprojectcycle,theysometimeschoosenottouseanyplanningmoneyforaprojectthatwon’tbeaconstructionpriorityforyearsandthatcouldrequirere-evaluationandnewpermitsinthefuture.12

ButJanetOakleyoftheAmericanAssociationofStateHighwayandTransportationOfficialsarguesthatit’smoreoftenthelengthofthereviewprocessthatimpactstheavailabilityoffundingratherthantheotherwayaround.

“That’ssomethingthattheenvironmentalcom-munityhasbeenarguingforsometime:thattherewasn’tanythingwrongwiththeenvironmental


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reviewprocess,itwasallfinancingandthat’swhatwasholdingeverythingup,that’sthereasonitwastaking10yearstogetaproject(done),”OakleytoldCSGinatelephoneinterview.“Typicallywhathappensistheenvironmentalprocesstakessolongthatyoucan’tgetthefinancialcommitmentbecauseoftheuncertaintyoftheenvironmentalprocessandnotonlyuncertaintyintermsofoutcome,butalsouncertaintyintermsofhowlongit’sgoingtotake.Thereareveryfewlegislaturesthatwanttotieupacommitmentoffundsfor10years.It’sreallynotthatyougettheenvironmentalassessmentdoneandyouwaitaroundforthefunding.”13

TheaforementionedRegionalPlanAssociationreportsaidthatwhilesomeexternalfactors—suchasshiftsinstateorlocalpoliticalandfundingpriori-ties—cancausedelays,theyaremoreoftencausedbyfouraspectsoftheprocessandinstitutionsinvolved.Theyinclude:• Lackofstakeholderconsensusoverfundamental

aspectsofaprojectduringtheplanningphase,whicharenotefficientlyresolvedduringtheenvi-ronmentalreviewprocess;

• DifferingandconflictinginterpretationsofNa-tionalEnvironmentalPolicyActrequirements,aswellasinconsistentimplementingpoliciesandproceduresamongthemultitudeofgovernmentagenciesinvolvedinaproject;

• Administrativebottlenecksandoutdatedpro-cedureswithinagenciesthathaveinsufficientstaffcapacityandtrainingtoefficientlycompleteenvironmentalstudiesorreviews;and

• Misdirectedresponsetothethreatofenviron-mentallitigation,whichleadstooverlycomplexandtechnicalenvironmentalanalysisandrigorousdocumentationefforts.14ButLovaasoftheNaturalResourcesDefense

Councilarguedthatevenwhentheenvironmentalreviewprocesstakesawhile,itcanultimatelyleadtoabettertransportationproject.HecitesasanexampletheGlenwoodCanyonsectionofInterstate70inwesternColorado,whereplannersinitiallyenvisionedblastingthroughthemountains,addingartificialsupportsandchannelingtheColoradoRivertoaccommodatetheroad.

“Acitizens’advisorycommittee,withbetterlocalknowledgethanlargergovernmentagenciesandbureaucracies,recognizedtheseriousimpactoftheproposedplan,”Lovaaswrote.“ThanksinlargepartduetoNEPA’sproceduralprotections,thecommitteebecameanactivepartoftheprocess.Theresultisa12.5-milestretchofhighwaywithlowerenvironmentalimpacts,theadditionofreststops,bikeandjoggingpathsandraftingsupport.”

Environmentalreviewscanallowfortheconsider-ationofalternativeprojectdesignsthatultimatelyresultinmorecontext-sensitiveapproachesthattakeintoaccounttheneedsofthecommunity,Lovaassaid.15

Integration of Planning & Environmental Review

MAP-21allowsfortheuseofcertainplanningdocumentsinenvironmentalproceedings.Planningdocumentsthatqualifyarethosethatresultfromanevaluationordecision-makingprocess,suchasdetailedcorridorplansoranalysesofimpactsonmobility,adjacentcommunitiesandtheenvironment.Thedocumenthastobeapprovedbythestate,alllocalandtribalgovernmentswheretheprojectislocated,andbyanyrelevantmetropolitanplanningorganization.16

PeteRuaneoftheAmericanRoadandTransporta-tionBuildersAssociationsaidthistypeofintegrationcanhelpavoidduplicationofeffort.

“Thiswouldreducedelaybyallowing,whereap-propriate,theuseofmaterialalreadycreatedinsteadofreinventingthewheel,”RuanewroteinAmerican City and County magazine.17

Malley,theWashingtonattorney,agreed.Hesaidinadditiontosavingtime,theintegrationofplanningdocumentsintheNationalEnvironmentalPolicyActprocessmayhavetheaddedbenefitofinvitinggreaterbuy-intotheplanningprocessatalllevelsofgovernment.

“What(theFederalHighwayandFederalTransitAdministrations)havebeensayinginpolicyforalongtimeandnowCongressissayingin(MAP-21)isthatplanningprocessesshouldbemeaningful,thatthegeneralintentof(planning)shouldbetomakesomebroadpolicydecisionsthatthencanbecarriedforwardandthatyoudon’tstartoverinNEPA,”hesaid.“Themoreweightthatisgiventothedecisionsthataremadeinplanning,Ithinkthemoreyou’llalsoseethatplanningprocessbecomingmorerobustandhavingmoreparticipationinitbecauseifthedecisionsaregoingtobeignored,nooneisgoingtopaymuchattentiontoit.”18

Somecaution,however,thatwhileincorporatingexistingplanningworkintotheenvironmentalreviewprocessmayhavebenefits,statesandmetropolitanplanningorganizationsshouldguardagainstbringingNationalEnvironmentalPolicyAct-likeprocessesintoplanning.

“IfNEPAactsasaclearinghouseandineffectstranglesprojectdevelopment,…you’regoingtoslowdownplanning,”saidBinderofCambridgeSystematics.“Ithinkthereareenoughstatesthatareworriedaboutthatandhopingthatwillnotbethepictureandthatthe


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picturewillbethatyoudoalotofworkinplanningandthenthatplanningworkhasstanding.”

Binderalsowarnedit’simportantthatstateandregionalplanningdocumentsnotbeusedto“pre-cookthedecision”onindividualprojectsbeforetheygothroughthereviewprocess.

“Ifwecollectivelyasacommunitystarttodothat,thentheenvironmentalistsareright,”shesaid.“Thenit’sabackroomdeal,becausewho’spayingattentionatthatstage?It’sveryhardtogetthepublicinvolvedinwrit-largeplanning(i.e.planningdoneatthestateorregionallevel).Butifwhatyouanalyzeinthatplanningprocessdoesnothavetoberepeatedinthecorridor(planning)particularlyorattheprojectlevel,thenthatwouldbe(a)verygood(outcome).”19

NEPA Document ConsolidationUnderMAP-21,federalagenciesareallowedto

issueacombineddocumentthatincorporatestwodocumentsrequiredundertheNationalEnviron-mentalPolicyAct:theFinalEnvironmentalImpactStatementandtheRecordofDecision.20

TheFederalHighwayAdministrationpreviouslyhasallowedacondensedfinalimpactstatement.TheCouncilonEnvironmentalQuality,theagencythatensuresfederalagenciesmeettheirenvironmentalreviewobligations,hasrequired30daysbetweenthefinalimpactstatementandtheRecordofDecision.

Malley,theWashingtonattorney,explainedthethinkingbehindthechange.

“IthinkthelogicofdoingsoisthattherealpublicinvolvementcomponentofNEPAisinthecommentperiodonthedraft(EnvironmentalImpactState-ment),”hesaid.“Essentially,that’swheretherealdecisionmakingoccursandwhat(Congressis)basicallysayingisbythetimeyougettothefinalEIS,thatreallyeffectivelyisyourdecisionandsoyoucancombinethatwiththeactualdecisiondocumentitself.”

Whileitmightseemlikearelativelyminorpolicychange,thedocumentconsolidationisoneofthemoreconcretechangesinMAP-21withthepotentialtoimproveefficiencyandaccelerateprocesses,Mal-leyandothersbelieve.

“AsNEPAdocumentshavegrownmorecomplex,theprocessofproducingafinalEISandarecordofdecisionisatime-consumingprocess,”Malleysaid.“Thereisoftenalagofmuchmorethan30daysbetweenafinalEISandaROD.Andsowhat(Congressis)basicallysayinghereisyoucanhaveamorecondensedfinalEISthatessentiallyisjustyourdraftEISplusindividualpagesthathavechangedandthenhavetherecordofdecisionissuedalongsideit.AndIthinkthisisonewhereit’sverymuchaboutreducingtimeandreducingpaperworkassociatedwiththatprocess.”21

Categorical Exclusions from NEPAMAP-21allowstheU.S.SecretaryofTransporta-

tiontodeclarecertainprojectsexcludedfromtherequirementsrelatedtoenvironmentalassessmentsorenvironmentalimpactstatementsundertheNationalEnvironmentalPolicyAct.Thesecategoricalexclusionsinclude:

• Highwaysandbridgesdamagedinemergencies;• Projectswithinanexistingoperationalright-of-

way;• Projectsthatreceivelessthan$5millioninfed-

eralfunds,orthosewithatotalestimatedcostofnotmorethan$30millionandfederalfundscom-prisinglessthan15percentofthetotalestimatedprojectcost;and

• Newcategoricalexclusionsdecideduponbythesecretaryandstategovernments.22Transportationexpertssayit’sfartooearlyto

knowwhatimpactthesenewcategoricalexclusionswillhaveorhowmuchstateswilltakeadvantageofthemfortransportationprojects.

“(It’s)goingtorequirerulemakingandit’sgoingtobehighlydependentonhow(theFederalHighwayAdministration)interprets(MAP-21)andsoit’shardtosay,”saidShannonEgglestonofthestatehighwaytransportationgroup.

ButMalleypointsoutthesecategoricalexclu-sionsaren’tentirelynewterritory.Therealreadyareexclusionsforemergencyprojects,projectswithintheright-of-wayandprojectswithlimitedfederalfunding,hesaid.

“Ithink(thenewcategoricalexclusions)will,tosomeextent,overlapwithsomeexistingcategoricalexclusions,”Malleysaid.“SoIdon’tthinkofitasbe-ingsomehowfundamentallynew,butwhatitisdoingisprobablyexpandingtosomeextentthetypesofprojectsthatfallwithin(categoricalexclusions)andmaybealsosimplifyingtheprocessfordeterminingif(one)applies.”23

ButsomeintheenvironmentalcommunityarguesuchexclusionswreakhavocwiththeintentoftheNationalEnvironmentalPolicyActandhavethepotentialtolimitpublicoversightandaccountability.

“Suchloopholesallowprojectstobebuiltwithminimalornoparticipationbytheaffectedpublic,”LovaasoftheNaturalResourcesDefenseCouncilwroteinaJune2012blogpost.“(MAP-21)pokesmanyholes,twoofthemostegregiousbeingexclu-sionofprojectsinanexistingright-of-way(what’stostopahighwayagencyfrombuildingasecondinter-changenexttoanotheroneifit’sintheright-of-way,withoutgettingpublicfeedback?)andcategorical

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exclusionofprojectsthatreceivelessthan$5millionoffederalfundingwhichmeansyourtaxpayerdollarscouldhelpbuildahighwayandwithoutyouhavingasayinitsdesign.”24

Oakley,ofthestatehighwayofficials’group,counterstherestillwillbeplentyofopportunitiesforcommunityinvolvementandconsiderationofbettersolutions.Suchthingsareingrainedintothetranspor-tationplanningprocessineverystate.

“Notwithstandingwhatthoseadvocatesaremaybeclaiming,…(thecategoricalexclusions)aregoingtohaveabsolutelynoimpactonthat,”shesaid.25

Malleynotes,however,thatprojectsthatqualifyforcategoricalexclusionsbytheirverynatureoftendon’tfitthemoldofthetraditionalprojectdeliveryprocess.

“Thefactisa(categoricalexclusion)onewayortheotherdoesnotinvolvethesamelevelofpublicinvolvementasan(environmentalassessment),”hesaid.“A(categoricalexclusion)prettymuchbydefini-tionissomethingthathasbeenshownbyexperiencenottohavesignificantenvironmentalimpact.Soifinfactthat’sthecase,thenit’sgoingtowarrantalowerlevelofdocumentationandadifferentkindofpublicinvolvementprocessthanonethathasthepotentialforsignificantimpacts.Soit’sallabouttryingtokeeptheprocessandkeepthepaperinproportiontothekindofprojectyouhave.”26

Otherssaywhilepublicinvolvementisanimpor-tantpartoftheprocessgenerally,theremustbelimitsanditcan’tgoonforever.Binder,theCambridgeSystematicsseniorassociatewhosecareerhasincludedstintsatboththeFederalHighwayAdmin-istrationandonCapitolHill,saidenvironmentalistsareoverreachinginsuggestinganythingwillbelostiftheyonlyget“threeandfourbitesattheapple”ratherthanfiveorsix.

“Theirtechniqueofconstruingcitizenparticipationasconstantlyreopeningissues,constantopportuni-tiestocritique,constantopportunitiestostallanddelay—Ithinkthat’sbadallaround,”shesaid.

Binderhopesiftheopportunitiesforpublicpartici-pationarereducedforaparticularproject,citizenswilldecidetogetinvolvedearlierintheprocessratherthanwaitinguntil“there’sabackhoepoisedintheirfrontyard.

“Ifyouknowthattherearegoingtobe…fivepassesatsomething,youdon’ttakeitseriouslyonthefirstthree,”shesaid.“That’swhyIthinkthatsomeofthesemultipleactionsreallyunderminegoodplanning.”

Delegation of Federal NEPA Responsibilities to State Governments

MAP-21’spredecessor,the2005authorizationlegislationknownasSAFETEA-LU,includedapilotprogramtopermitfivestatestoassumecertainfederalenvironmentalreviewresponsibilities,suchasthoserequiredundertheNationalEnvironmentalPolicyActandotherfederallaws.

Alaska,California,Ohio,OklahomaandTexaswereallpermittedtoparticipate,butonlyCaliforniachosetodoso.Eventually,theFederalHighwayAd-ministrationopenedthepilotprogramtoallstates,whilestilllimitingparticipationtofivestates.

SinceCaliforniawastheonlystatetoparticipateinthepilotprogram,thepotentialbenefitsoftheprogramaredifficulttoquantify.Butaccordingtoa2012GovernmentAccountabilityOfficereport,theCaliforniaDepartmentofTransportation—knownasCaltrans—reportedthathighwayprojectsrequiringanenvironmentalassessmentnowtakeabout30monthslesstocomplete.27

“Caltranshasdecreasedtheamountoftimerequiredforenvironmentaldocumentapprovals,”a2007-08departmentreportsaid.“Draftreviewwentfrommorethansixmonths,tolessthantwomonths.That’satimesavingsof69percentondraftreviewand68percentforfinaldocumentreview(from2.5monthstolessthanamonth).ThesesavingswereachievedaftereliminatingFHWAenvironmentaldocumentreviewandworkingdirectlywithfederalresourceagenciestomeettheirrequirements.”28

ButotherstatessaidtheydidnotparticipateinthepilotprogramunderSAFETEA-LUduetoarequirementthattheywouldhavetowaivesovereignimmunityandacceptfederalcourtjurisdictionfortheenvironmentalreviewdecisionstheymakeundertheprogram,theGAOreportsaid.Staffingconcernsmaybeanissueforstatesaswell.AtleasttwostatestoldGAOthattheylikehavingtheFederalHighwayAdministrationmakingtheenvironmentaldecisionsbecausetheagencyhasthestaffandexpertisetomakeinformeddecisionsonenvironmentalimpacts.29

Still,theAmericanAssociationofStateHighwayandTransportationOfficialsin2009recommendedexpandingtheprogramunderwhichstatetransporta-tionagenciescanassumetheseresponsibilities.

“Thelimitedexperiencetodatesuggeststhatdelegationiseffectiveatdeliveringimprovedperfor-manceaswellasfasterenvironmentalreviews,”saidthegroup’sauthorizationrecommendations.30

Oakley,ofthetransportationofficialsgroup,isconfidentmorestatesarenowreadyandwillingtotakeontherole.

“Thestatesrecommendedthatandthe(AASHTO)boardofdirectorsadoptedthatsoI’mnotsureiftherehadn’tbeeninterestthattheywouldhavepursuedthatasapolicythattheywereadvocating,”shesaid.“Ifthe


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statesthemselvesdidn’tfeelliketheyhadthecapacity,Idon’tthinktheywouldhavebeenrecommendingit…Inmoststates,theyhaveenvironmentallawsthatarecomparabletoNEPA.Theyhavetheirownlawsatthestatelevelthattheyhavetocomplywith,soIdon’tthinkcapacityisreallyanissue.”31

ButCambridgeSystematics’BinderdoubtsmanystatescanfollowinCalifornia’sfootsteps.

“Howmanyotherstateshaveafullyfleshed-outstateenvironmentalframeworkand,dareIsay,ethictocoverwhatitseemsliketheactivistpublicandothersreallywant?”sheasked.“CaliforniawasonthesamewavelengthwiththefederalNEPAandsoitworked.Idon’tseealotofstatessteppinginandtakingthewholeballofwaxlikethat.”32

Malleysaidthewillingnessofstatestoundertakethefederalgovernment’senvironmentalreviewrespon-sibilitiesunderMAP-21likelywillbedependentonwhethertheyseethepotentialforsignificantbenefit.

“Youare[takingon]anadditionalburdenbecauseyouwouldbetheprincipaldefendantinanylitiga-tionthat’sfiledchallengingaNEPAdecision,”hesaid.“Sowhatisthebenefitthatgoesalongwiththatburden?AndIthinkCalifornia’sexperienceshowsthereisaconsiderablebenefit.TheyhavefoundthattheyhaveshortenedthetimeneededtoproducetheirNEPAdocuments.Andastheyhavegainedmoreexperiencewithit,Ithinkthebenefitsthatthey’vebeenabletoachievearenowgoingtogivestatessomeadditionalinformationandsomestatesmaysay‘OK,basedonthosebenefits,we’rewillingtotakeontheburdenthatcomeswiththisdelegationof(federalagency)decision-making.’”33

Programmatic Agreements and Mitigation Plans

Aprogrammaticagreement,whichboththeFederalHighwayAdministration’sEveryDayCountsinitiativeandtheAmericanAssociationofStateHighwayandTransportationOfficialsrecom-mendexpandeduseof,definesthetermsofalegallybindingagreementbetweenastatedepartmentoftransportationandotherstateand/orfederalagen-ciesandestablishesaprocessforconsultation,reviewandcompliancewithoneormorefederallaws.Suchagreementscanshortenprojectdeliverytimebyallowingthosebuildingaprojecttoavoid,minimizeandmitigateimpactsontheenvironment.Theagree-mentsspecifyrolesandresponsibilities,standardizecoordinationandcomplianceprocedures,improveagency-to-agencyrelationships,andmakelimitedstaffandresourcesmorefocusedandeffective,ac-cordingtotheFederalHighwayAdministration.34

MAP-21allowsstatesandmetropolitanplanningorganizationstodeveloponeormoreprogrammaticmitigationplanstoaddressthepotentialenviron-mentalimpactsoffuturetransportationprojects.Thesecanbedevelopedonaregional,ecosystem,watershedorevenstatewidescale.Ifaplanisdevelopedinthewaydescribedinthelegislation,anyfederalagencyresponsibleforenvironmentalreviews,permitsorapprovalsforatransportationprojectmayusetherecommendationsintheplan

whencarryingoutNationalEnvironmentalPolicyActresponsibilities.35

TheFederalHighwayAdministrationhighlightssuccessinseveralstatesinexpandingtheuseofprogrammaticagreements.• Nebraska’sDepartmentofRoadsdeveloped

onesuchagreementforabiologicalevaluationprocess.Thedepartmentisnolongerrequiredtocoordinatewiththehighwayadministration,theU.S.FishandWildlifeServiceandtheNebraskaGameandParksCommissiononceprogrammaticconditionsaremetforaspecificproject.Officialssaytheagreementsresultinaminimumsavingsoffiveweeksintheprojectscheduleforanestimat-ed80percentofprojectsinthestate.

• Oklahoma’sDepartmentofTransportationputinplaceaprogrammaticagreementtodealwithwhathappenswhenatypeofcriticallyendan-geredspeciesofbeetleturnsupatatransporta-tionconstructionprojectsite.Astandardizedprocessallowedthedepartmenttoremovescheduleuncertaintiesandavoidlengthydelaysoncecausedbythepresenceofthebeetles.Asaresult,projectshavebeenexpeditedbyasmuchasoneyear.36

Accordingtoa2012GAOreport,somestatedepartmentsoftransportationhaveusedprogram-maticagreementsformorethanadecade;atleastfourstateshaveusedthemsincethe1990s.37

“Honestly,thisissomethingthatwe’vealwaysviewedasawin-winsituationforboththeenviron-mentandforthetransportationcommunity,”saidEgglestonofthestatehighwaytransportationofficials’group.“Ratherthandoingpiecemealmitiga-tionprojectbyproject,it’sbettertoreserveanentireareaforacertaintypeofmitigationinsteadofhavingbitsandpiecesofitallalongtheprojectcorridor.Youcandothingsonawatershedbasisanddoitonmoreofalargescale.Itactuallyimprovestheenvironmentandit’smorecosteffective.Andthenonthetrans-portationsideofthings,ifyouhavethoseresourcesalreadydesignatedformitigation,thentheprojectcanmovethroughpermittingmorequickly.”

Malleycautions,however,nottoexpectdramaticresultsovernightfromtheexpandeduseofprogram-maticmitigationplans.


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“Ithinkthattheyhaveapotentiallong-termbenefit,”hesaid.“Ithinkwhatyou’llseeintheshorttermisthatit’snotgoingtojustimmediatelyyieldbenefits.…Similartotheplanning-NEPAlinkage,theprogrammaticmitigationplan(isjusta)smartidea.…(But)allthe(MAP-21)statutesaysis…agenciesmayconsiderthoseprogrammaticmitiga-tionplansinmakingtheirdecisions.Well,it’sreallyjustprovidinginformation.It’snotimposinganewmandateorlimitinganagency’sauthority.SotheconceptIthinkwouldbethatthisprovidesanewtoolanditwillbeusedanditcouldleadtomoreeffectiveandmorevalue-addedmitigation.”

Early Right-of-Way Purchase OnekeygoalofMAP-21’sacceleratingproject

deliveryprovisionsistocreateaprocessinwhichthevariousprojectstagesrunmoreconcurrentlyandlessinalinearfashion,whichrequiressignoffsonvariousaspectsoftheprojectbeforeworkcanproceedinanotherarea.

Oakleysaidthatdoesn’tmeanit’saboutskippingimportantstepsintheprocess.

“Whenyou’redoingitmoreconcurrently,it’snotthatyou’renotcoordinatingwithresourceagencies,”shesaid.“It’snotthatyou’renotgettingcommunityinput.It’snotthatyou’renotdoinganyofthat.You’rejustdoingitfurtherupstreamintheprocess.”

OneexampleofthismovementtowardmoresimultaneousprocessesisaprovisioninMAP-21thatwillgivegovernmentagenciesaddedauthoritytoacquireright-of-wayforatransportationprojectpriortothecompletionoftheenvironmentalreviewprocess.

“Statesalreadyhavetheauthoritytodoearlyright-of-wayacquisition,”notedMalley.“Theydoitnowprimarilywithstatefunding.(MAP-21)givesthemabitmoreflexibilitytodoitwithfederalfund-ingandIthinkthattheymaytakeadvantageofthat.”

MAP-21willallowtheuseoffederalfundsforadvancedright-of-wayonaprojectifthestatecertifies,andtheU.S.DepartmentofTransportationconcurs,thattheenvironmentalreviewwillnotbeaffected.TheuseofstatefundsforearlyacquisitionisalsoallowedandcannowbereimbursedwithfederalfundsatthetimeofconstructioniftheU.S.DOTconcursthatthereviewwasnotaffected.38

“Thepolicybehind(earlyright-of-wayacquisi-tion)isthatNEPAtakesalongtimeandoftentimesthecostofacquiringright-of-waygoesuporitmaysimplybecomeunfeasibletoacquireitifyouwaittoolong,”Malleyexplained.“SotheCongressisbasicallysaying‘Here’salittlemoreflexibilitytousefederalfunds,butyouhavetomakesurethatyoudoitinawaythatdoesnotpredeterminetheoutcomeofyourNEPAreview.”

RepresentativesoftheAmericanAssociationofStateHighwayandTransportationOfficialssaythatwon’tbeaproblemforstatetransportationagencies.

“Wethinkthatstatesarefullycapableofhav-ingprojectsgothroughtheNEPAscrutinyinanunbiasedway,evenwithadvancedacquisitionofright-of-way,”Oakleysaid.

Egglestonpointsoutfewertransportationprojectsareundertakenthesedaysthataretruegreenfieldprojects—thatis,projectsinrights-of-waywherenostructuresexistedbefore.

“Alotofprojectsareadditionallanesorthingsofthatnaturewheretherearenotgoingtobealotofoptions(fortheproject’sdesignorrouting),”shesaid.

Thatmakesitlessimportantthatright-of-wayacquisitiontakeplacelateintheprocess,onceenvironmentalassessmentsarecompleteandafinalprojectdesignisaccepted.

Malleyalsonotedsafeguardsarebuiltintotheearlyright-of-wayacquisitionprovisionsincludedinMAP-21.

“Thekeytoitisthatearlyacquisitioncannotlimityourconsiderationofalternatives,”hesaid.“Essen-tially,ityoudon’tchoosethatalternative,youselloffthatright-of-way.…Butit’snotatallunusualwhenyou’regoingthroughNEPAforthestatetoownsomeportionsofright-of-wayforoneormoreofthealternativesthatthey’relookingat.”39

TheAmericanAssociationofStateHighwayandTransportationOfficials,inits2009authorizationrecommendations,saidadvancedright-of-wayacqui-sitionhadthepotentialtoproducetimesavingsofseveralmonthstoayear,asdesignandconstructioncanstartwithoutdelaysduetonegotiation,reloca-tionandcondemnation.

Thegroupsaiditalsocouldproducecostsavings,asMalleysuggested,sincethelandpurchasedpriortodevelopmentislikelytobecheaperthanitwouldbelater.Lessdisruptiontothecommunityisanaddedbenefit,therecommendationnoted.40


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Innovative Project Delivery MethodsInadditiontoitsmanyprovisionsrelatedtothe

processrequiredbytheNationalEnvironmentalPolicyAct,MAP-21alsohopestospeedtransporta-tionprojectsbyencouragingtheuseofinnovativeprojectdeliverymethods.

“Congressdeclaresthatitisinthenationalinteresttopromotetheuseofinnovativetechnologiesandpracticesthatincreasetheefficiencyofconstructionof,improvethesafetyof,andextendtheservicelifeofhighwaysandbridges,”thelegislationreads.

Amongtheinnovativetechnologiesandpracticesthebillreferstoarestate-of-the-artintelligenttrans-portationsystemtechnologies,elevatedperformancestandardsandnewhighwayconstructionbusinesspracticesthatimprovehighwaysafetyandquality,accelerateprojectdeliveryandreducecongestionrelatedtohighwayconstruction.

Thebillspecificallymentions:• Prefabricatedbridgeelementsandsystems;• Innovativeconstructionequipment,materialsor

techniques,includingin-placerecyclinganddigitalthree-dimensionalmodeling;

• Innovativecontractingmethods,includingthedesign-buildandconstructionmanager/generalcontractormethods;

• Intelligentcompactionequipment;and• Contractualprovisionsthatofferacontractoran

incentiveprogramforearlycompletionoftheproject,programoractivity,subjecttothecondi-tionthattheincentivesareaccountedforinthefinancialplanoftheproject,whenapplicable.41Thenextfewsectionsofthisbriefdescribeafewof

thesestrategies.

Prefabricated Bridge Elements & SystemsWhenthenewVeteransMemorialBridgeopened

inJune2012inPortland,Maine,onereasoncitedfortheproject’son-timedeliveryinjusttwoyearswastheuseofprecastconcrete.The$65millionbridge—acollaborationamonglocal,stateandfederalenti-ties—wasbuiltusing361piecesofprecastconcrete,eachweighingmorethan60tons.42

TheFederalHighwayAdministrationhasencour-agedtheuseofprefabricatedbridgeelementsandsystemsaspartofitsEveryDayCountsinitiative.Accordingtothefederalgovernment,prefabricationsavestimebyallowingdifferentbridgecomponentstobeassembledconcurrentlyandofteninoffsite,climate-controlledenvironments,whichlimitsdelaysduetoweather.Prefabricationalsocanproducecostsavings,safetyadvantages,easierconstruction,reducedinconveniencefortravelersandreducedenvironmentalimpact,theagencynotes.43

In2011,theMassachusettsDepartmentofTransportationwasabletoreplace14bridgesalongInterstate93inMedfordoverthecourseofjust10weekendsbetweenJuneandAugust.Theeffortwasmadepossibleduetotheuseofacceleratedbridgeconstructiontechniques,includingprefabricatedbridgeelements.Accordingtothedepartment,itwouldhavetakenatleastfouryearstoreplacethe14bridgesusingconventionalconstructiontech-

niquesandlong-termlaneclosureswouldhavebeenrequired.44

Innovative Construction Equipment, Materials or Techniques

MAP-21makesspecificmentionofin-placerecyclingtechnologyasaninnovativeconstructiontechniqueworthyofpromotion.Thetechniqueinvolvesrehabilitatingroadpavementbymillingupexistingasphaltandmixinginadditionalcement,thenlayingitbackdownwithouthaulingitoff-sitetobeprocessed.Avariationcalledhotin-placerecy-clingmixesinadditionalaggregatesandrejuvenatingagents.45

Digital,three-dimensionalmodelingtechnologiesalsoarementionedinthelegislation.Thesetechnolo-giesarealsoafocusoftheFederalHighwayAdmin-istration’sEveryDayCountsinitiative.Accordingtotheadministration’swebsitefortheinitiative:

“Thetechnologyallowsforfaster,moreaccurateandmoreefficientplanningandconstruction.…With3-Dmodelingsoftware,designandconstructionteamscanconnectvirtuallytodevelop,testandalterprojectdesignsthroughoutthedesignandconstruc-tionphases.Intricatedesignfeaturescanbeviewedgeospatially,orina3-Dview,frommultipleperspec-tives,andsimulationscanberuntodetectdesignflawsbeforeconstructionbegins.Data,exportedfromthe3-Dmodels,canbetransferredtoaglobalpositioningsystemmachinecontrolthatguidesanddirectsconstructionequipmentlikebulldozersandexcavators.Theconnectivityallowsworkerstoreceiveandworkwiththemostaccurate,up-to-datemodelsevenifmid-cycledesignchangesaremade.”

TheFederalHighwayAdministrationalsonotesthatGPS-enabledconstructionequipmentcanrunalldayandnightwiththeguidanceof3-Dmodelingdataandachievefirst-passaccuracy.Thetechnology


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allowsmanymanualtaskstobecompletedautomati-callyandwithmachine-likeprecision,reducingthenumberofonsiteworkersrequired.

“Withgrowingreceptionto3-Dtechnology,thetransferanduseof3-DmodeldatainGPSmachinecontrolequipmenthasbeensuccessfullydemon-stratedandusedinnumerousstatesnationwide,”thewebsitesays.“Thetechnologyprovestobeacosteffectivemethodforacceleratinghighwaypavementconstruction.”46

Intelligent Compaction EquipmentCompactionisthefinalprocessinroadconstruc-

tion.It’susedtoproduceauniformsurfacetexturetopavement.Whileconventionalcompactionequipmentcanresultinnon-uniformdensitiesofpavementmaterial,intelligentcompactionequipmentusesspecialvibratingrollers,uniformity-measuringdevicescalledaccelerometers,map-basedGPSandonboardcomputerstocollect,processandanalyzemeasurementsinrealtimetoproduceamoreuniform,long-lastingpavement.Thekeytoquickerprojectdeliveryaccelerationisintelligentcompactionrollerscandomoreworkwithfewerpassesthantraditionalstaticrollers,ofteninamuchshortertime.

AccordingtotheFederalHighwayAdministration:“(Intelligentcompaction)efficienciesproducetime,costandfuelsavings.Withmoreefficientpavingpro-cesses,productioncanincreaseandstatedepartmentsoftransportationcanconstructgreateramountsofroadwaydaily.”47

Innovative Contracting MethodsInAugust2012,theNewYorkStateDepartmentof

Transportationawardedthestate’sfirstdesign-buildcontract.The$29.3millioncontractwillrepair13bridgesintheHudsonValleyregionandcreate410jobs.Gov.AndrewCuomoworkedwiththeNewYorklegislaturein2011togetdesign-buildlegisla-tioninplace.

“Byusingthedesign-buildmethod,NewYorkstateischangingthewayweinvestinjobcreatingprojectsbycuttingdownonthetimebetweenwhenthebidsgooutandwhentheshovelsareintheground,whilesavingtaxpayerdollars,”Cuomosaidinastatement.48

ThetraditionalmethodofhighwaycontractingandconstructionintheUnitedStateswasdesign-bid-build.Thecontractsforthedesignandconstructionphasesareseparatecontractsandtheonlycriterionforfinalselectionislowesttotalconstructioncost.49

Withthedesign-buildprojectdeliverymethod,thereisonecontractandthedesigner/builderassumesresponsibilityforthemajorityofthedesignwork,aswellasallconstructionactivities.Sincethecontractorisinvolvedearlyonintheprocess,ithasincreasedflexibilitytobeinnovativeandtakegreaterrisks.Certainaspectsofdesignandconstructioncantakeplaceatthesametimeaswell.

AccordingtotheFederalHighwayAdministration,design-buildcanaccelerateprojectdeliveryinseveralways:

“Thecontractorhasflexibilityinselectingthedesign,materialsandconstructionmethodsbasedontheavailableequipment,workforceandresources.Thecontractoralsoworkscloselywiththedesigner,sharinghisorherexpertise,toreducetheriskofdesignerrorsandtheneedforredesign,whichcanaddtoprojectcostsanddelays.Allowingthecontrac-tortotailortheprojectdesignandapplyappropriateinnovationsprovidesflexibilityforthecontractortomanageandcompensateforcostincreasesinoneareathroughefficienciesinanother.”

Thehighwayadministrationalsonotesthatwithonlyonecontracttodealwith,adesign-buildcanallowfortheoverlappingofprojectphases:

“Forinstance,constructionpreparationcanbeginwhilethedesignisbeingcreatedandfinalizedandthedesignermightneedtobeinvolvedtoassistwithanyredesignsifproblemsorconcernsareencounteredduringtheconstructionphase.Teamworkbetweenthedesignerandcontractorallowsforgreatercollaborationandinnovationandacceleratedprojectdeliveryandoftenresultsinimprovedprojectquality.”50

While47statesauthorizedesign-buildauthorityfortransportationprocurement,18statesplacelimi-tationsonitsuseandthreestates—Iowa,NebraskaandOklahoma—don’thavelegislationspecificallyauthorizingit.51Moreover,a2012GovernmentAccountabilityOfficesurveyfoundthatamajorityofstatesusedesign-buildcontractingforlessthan10percentofallhighwayprojects.52Transportationexpertssaythatmaybebecausedesign-buildisoftenmoreappropriateforlarger-scaleprojectsandnotforthesmaller,moreroutineprojectsstateshaveemphasizedduringthetightbudgetsofrecentyears.


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Amiddlegroundbetweendesign-bid-buildanddesign-buildistheconstructionmanager/generalcon-tractormethod,underwhichtheownersofatrans-portationprojectcontractwithacompanytoserveastheconstructionmanagerduringthedesignprocess.Asthedesignnearscompletion,theownerandtheconstructionmanagercanrevisittheirarrangement.Iftheycanagreeonapriceforconstruction,theycansignaconstructioncontractandtheconstructionmanagerthenbecomesthegeneralcontractor.Ifnot,theycanagreetopartways.Suchamethodallowstheprojectowner—oftenthestatedepartmentoftransportation—toremainactiveintheprocessandmakechangesaccordingtobestvalue.53

Theuseoftheconstructionmanager/generalcon-tractormethodonheavytransportationconstructionprojectshasbeensomewhatrareandhashistoricallybeenmoreassociatedwithbuildingconstruction.Fifteenstatesstillprohibititsuse54andsomeinthecontractingcommunityhaveresistedit.Butsomestatesareconsideringchanginglawsandpoliciestoallowtheconstructionmanager/generalcontractormethodandseveralhavereceivedspecialapprovalfromtheFederalHighwayAdministrationtouseitonspecificprojects.55

TheUtahDepartmentofTransportationisamongthestateagenciesthathavealreadyfoundthemethodtohavesignificantbenefitsoverdesign-build.

“Weareabletobegintheprojectearlierbecausewedonotneedadesigntoadvertiseandtheselec-tionprocessissimpler,”saysabriefonthedepart-ment’swebsite.“Atypical(requestforproposal)foradesign-buildprocessisover500pagesandaverages250days.AtypicalRFPforCM/GCis30pagesandcanbeshortenedtolessthan90days.ItispossibletostarttheRFPdevelopmentduringtheenvironmentalprocessandreducetheselectiontimetoabout70days.Usingthisprocesswearealsoabletopurchaseselectitemsearly.Itemslikesteelgirdershavealonglead-timeandthecostfrequentlyincreasesovertime.Withthesebenefits,manyCM/GCprojectshavebeenabletosaveaconstructionseasonandreduceinfla-tioncostsbecausetheycouldgetstartedearly.”56

Challenges Ahead for States in MAP-21 Implementation

MAP-21coversalotofgroundinits584pages.Acceleratingprojectdeliveryisjustoneofthelegislation’smanygoals.Thoseprovisionsthatdealwithitaresprinkledthroughoutthebill.Sotakenasawhole,willtheymakeadifference?Expertssaythejuryisoutandwillbeforawhile.

“Ithinkthattherearesomethingsintherethatwillmakeadifference,”saidBinderofCambridgeSystematics.“Willtheymakeadifferenceontheoverallprogramsouptonuts?Myexpectationsarelower.Anumberofthingsthatareintherereallyjustputinlawwhathasbeenpolicyguidanceforawhile.WhatIamfondofsayingisyoucan’tlegislategoodbehavior.…ButtheCongresscouldandshouldanddidsay‘Guys,youneedtoplaywelltogether.Youneedtohavedeadlines.Youneedtohavecollaboration.’

“One-size-fits-alldeadlinesdon’twork,butifone-

size-fits-alldeadlinesaremeanttoleanonpeopletogettogetherandsetupproject-specificdeadlinesthattheywillthenworkonandthey’llberewardedforthat,fine.…AlthoughIthinktheseareverylimitedchanges,thedirectionisclear.Iftheexecutivebranchwantstotaketheball,they’vegotenoughheretoreallyencouragepeopletodowhatarealreadybecomingknownasbestpractice.”57

Despitetheanecdotalevidencethatindividualinitia-tivesincludedinMAP-21haveseensuccessorhavethepotentialforsuccess,whethertheyactuallyachievethatpotentialdependsonalotofthings.It’snowuptostatesandthefederalgovernmenttotaketheballandrunwithit,saidOakleyoftheAmericanAssociationofStateHighwayandTransportationOfficials.

“(TheU.S.DepartmentofTransportation)willbeputtingoutguidanceandregulationsandhowtheyputoutthatguidancewillhaveanimpactonhowusefulsomeoftheprovisionsmaybe,”shesaid.“Two,it’sjustgoingtotakesometestdriving(bystatedepartmentsoftransportation)andtryingitouttoknowwhatwillreallybehelpful.58

WhilemuchofwhatendedupinMAP-21mayseemfamiliar,thereareelementsthatarenewburiedinthelegislation’svoluminouslengththatwillrequireinterpretationinthemonthsahead.Expertssaythatmaypresentoneofthebiggestchallengesforpolicymakersastheygoabouttryingtoimplementit.

“Therearealwayssomechallengesjustinfiguringoutwhat’snewhereandevenifultimatelytheyarestraightforwardtoimplement,there’sjustalotofcontenthere,”saidMalley,theWashingtonattorney.“There’salotthatCongressdid.Ittakesawhiletojustfigureitallout.…Ithinkultimatelythechangesshouldbebeneficialforprojectdeliveryandthatstateswillultimatelyfindthatthesedomaketheprocessbetterandfaster,butitjusttakesawhiletoimplementitall.”59


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Binderco-authoreda2011reportfortheOrangeCounty,Calif.,TransportationAuthority,“Accelerat-ingFederalProgramandProjectDelivery,”whichincludedmanyrecommendationsultimatelyincludedinMAP-21.60ShesaidthetaskofMAP-21’sinter-pretersismademoredifficultbythefactthatmanyprovisionsrelatedtoacceleratingprojectdeliverydorequireregulationstogointoeffect.

“Thechallenge,Ithink,withthestatesisgoingtobe:(they)don’twanttowaitforfouryearstogetplanning(regulations)revised,”shesaid.“Whatdo(they)doinbetween?…Forthosestatesthathavebeenatthisandhaveshownamaturityandacommonsetofvalues,itwon’tbeaproblem.It’sgoingtobeaprobleminthisinterregnumforsomepeople(wondering)‘WhatcanIdo?WhatcanIstart?WhereshouldIgowiththiswhilethisthingispercolating?’That’sgoingtobeanimmediatechallenge.BecauseIthinksomestatesaregoingtoseesomeopportunitiesthatthey’dliketojumponrightaway.”61

Future Policy Avenues for Accelerating Project Delivery

WhileMAP-21includedmanyprovisionslongsoughtbystatedepartmentsoftransportation,contractorsandothersrelatedtoacceleratingprojectdelivery,therewereseveralprovisionsleftoutofthefinallegislationthatsomesaycouldhavehadanevengreaterimpact.

BinderandothersbelieveMAP-21willnotbethelastwordonacceleratingprojectdelivery.Theissuewillmorethanlikelyresurfacewhenitcomestimetotalkaboutthenextfederalauthorizationbillintwoyears.

“Ithinkthatit’sgoingtostillbeonthetable(in2014),”shesaid.“Ithinkthiscoupleofyearscande-velopsomeposterchildrenexamplesofplaceswherethingswereabletobedonefasterandjustaswellifnotbetter.…Ithinkit’sanopportunitytosaywe’vemadeprogress,we’regoingintherightdirectionandtheworldhasnotended.”

Asfaraswhatshapepolicyinthisareamighttakeinthefuture,BindersaiditmaybeworthstudyingwhatHouseRepublicansandotherssoughttomakeapartofMAP-21butwereultimatelyunsuccessfulwith.

“Theywouldhavehadamuchstricterseriesofdeadlineswhereeveryphasewouldhavehadmoreofacookiecutterkindof(approach)withsanctionsandregimes,”shesaid.“AndthemeasureofthatIthinkwasthatwouldgotoofar.…(But)theremaystillbesomeappetiteforthatamongsomestatesbecausethesenseofcertaintyis(still)missing(fromprojectdelivery).”62

Malleyhashisownlistofwhatdidn’tendupinthebill.HesaidmostoftheitemsonitwouldhavelikelyhadamoresignificantimpactthanwhatCongressactuallyapproved.

“Iwouldsayanythingthatinvolvesexemptions(fromNEPA),thatinvolveschangesinotheragen-cies’statutoryauthority,…thosearethekindsofthingsthatwouldgofartherandthosearethingsthatdidnotultimatelygetincluded,”hesaid.“What(Congresshas)doneisessentiallyhaveaseriesofchangesthatbyandlargepreserveagencies’existingauthority.Theycreateasomewhatmorestructuredprocesstocarryoutthoseauthorities,butthey’renotchangingtheauthoritiesthatagencieshavetoreviewandcommentandapprovepermitsforprojects.”

MalleynotedthatMAP-21containsnodeadlinesforcompletionofNationalEnvironmentalPolicyActreviews,noexemptionsfromtheact,noincreasedauthorityforleadagenciesoverotheragencies,andnochangestothestandardsforthesufficiencyofenvironmentalimpactstatements.63

Othersalsohaveweighedinonpolicyavenuesthatcouldbeexploredinthefutureforacceleratingprojectdelivery.

RobertThorntonisapartneratNossamanLLP,alawfirmthatpracticesininfrastructureandotherareas.InJuly2012,hewroteaboutMAP-21’s“missedopportunities.”Amongthem:• MAP-21excludedprovisionsmodeledontheClean

WaterActthatwereincludedintheHousebilltousecertifiedstateenvironmentalreviewsinlieuofNationalEnvironmentalPolicyActreviews.

• MAP-21failstoimposefirmdeadlinesonthefederalenvironmentalreviewprocessandreliesoncollabora-tionwithenvironmentalagenciesandthethreatoffundingpenaltiestoencouragetimelyreviewsanddecisionsbyenvironmentalagencies.

• MAP-21failstoestablishanysafeharboragainstenvironmentalreviewlitigationwheretheleadagencyhasfollowedapprovedregulatoryapproach-estoenvironmentalevaluations.

• MAP-21doesnotlimittheabilityofprojectopponentstochallengeindividualprojectenvironmentaldocu-mentsthatrelyoncorridorselection,modechoiceandothertransportationplanningdecisions.64Theaforementioned2012reportbytheRegional

PlanAssociationsaidwhat’sreallyneededtospeedupenvironmentalreviewsandaccelerateprojectsises-tablishingstrongleadershipandconsensusonaprojectbeforeevenenteringintotheenvironmentalreviewprocess.Amongthereport’srecommendationswere:• Establishingbroadagreementamongagencies


15

andstakeholdersonprojectgoalsandcarryingthemforwardintotheenvironmentalprocesstohelppreventcontroversiesfromarisinglateron.

• Spendingmoretimeatthebeginningoftheprocessestablishingmemorandaofunderstandingamongparticipatingagenciesontimelines,proce-dures,languageandenvironmentaloutcomes.

• Strengtheningfederalleadershiponmajoremployment-generatingprojectsandreducingfederalinvolvementinminorprojects.

• Trainingthenextgenerationofenvironmentalpractitionerstoadoptandsharebestpractices.

• Increasingtransparencyandaccountabilitywithafocusonproducingamorethoroughadministra-tiverecord,asopposedtoexcessiveanalysisofunlikelyimpacts.

• Modernizingoutdated,inefficientprocedureswithweb-based,data-sharingstakeholderinvolvementtoolsanddigitalsubmissionofenvironmentaldocuments.65TheCongressionalResearchServiceina2011

reportdeliveredsomeideasonbroadpolicyoptionsCongressmightconsiderforacceleratingprojectdelivery,noneofwhichwereactuallyincludedinMAP-21.Theirrecommendationsincluded:• CreatinganofficewithintheU.S.Departmentof

Transportationresponsibleforexpeditingprojectdelivery;and

• Developingnewinitiativesforencouragingandrewardingcollaborationbetweenfederal,stateandlocalagencies,suchasarequirementinlawforpartneringplans,anawardsprogramforout-standingcollaboration,oraspecialresearchandtechnicaltrainingcenterdevotedtotransporta-tionprojectdelivery.66Thereisclearlystillplentyofgroundtocoverand

plentyofdebatestobehadintheyearsaheadasstategovernmentspartnerwiththeirfederalcounter-partsandotherstoshapeamoreefficientandtimelyprocessfordeliveringtransportationprojects.


Sean Slone, CSG Senior Transportation Policy Analyst [email protected]

mailto:sslone%40csg.org?subject=

16 The COunCil Of sTaTe gOvernmenTs

1Congressional Research Service. “Accelerating Highway and Transit Project Delivery: Issues and Options for Congress.” August 3, 2011. Accessed from: http://bit.ly/CRS080311 2Council on Environmental Quality. “National Environmental Policy Act.” Accessed from: http://ceq.hss.doe.gov/welcome.html 3Environmental Protection Agency. “National Environmental Policy Act.” Accessed from: http://www.epa.gov/oecaerth/basics/nepa.html 4Bipartisan Policy Center. “Getting Infrastructure Going: Expediting Project Delivery and Environmental Review.” Presentation of Regional Plan Association research. June 28, 2012. Accessed from: http://bipartisanpolicy.org/events/2012/06/getting-infrastructure-going-expediting-project-delivery-and-environmental-review 5Federal Highway Administration. “Moving Ahead for Progress in the 21st Century Act (MAP-21): A Summary of Highway Provisions.” July 17, 2012. Accessed from: http://www.fhwa.dot.gov/map21/summaryinfo.cfm 6Federal Highway Administration. “FHWA Announces Next Wave of Highway Innovations Under Its Every Day Counts Initiative.” July 25, 2012. Accessed from: http://www.fhwa.dot.gov/everydaycounts/edctwo/index.cfm 7“MAP-21: What Will it Do to Expedite Project Delivery?” PowerPoint presentation by Bill Malley at Transportation Research Board Transportation Law Workshops. July 16, 2012. Accessed from: http://onlinepubs.trb.org/onlinepubs/conferences/2012/Law/Malley.pdf 8Telephone Interview with William Malley. September 2012.9Deron Lovaas. “Congress Takes Up a Throwback Highway—Not Transportation—Bill.” Switchboard: The Natural Resources Defense Council Staff Blog. June 29, 2012. Accessed from: http://switchboard.nrdc.org/blogs/dlovaas/congress_takes_up_a_throwback.html 10Deron Lovaas. “Earth to Congress: We Need Environmental Stewardship not Streamlining.” Switch-board: The Natural Resources Defense Council Staff Blog. June 14, 2012. Accessed from: http://switchboard.nrdc.org/blogs/dlovaas/stewardship_not_streamlining.html 11Malley.12Telephone Interview with Susan Binder, September 2012.13Telephone Interview with Janet Oakley and Shannon Eggleston, August 2012.14Regional Plan Association. “Getting Infrastructure Going: Expediting the Environmental Review Pro-cess.” June 2012. Accessed from: http://www.rpa.org/library/pdf/RPA-Getting-Infrastructure-Going.pdf15Lovaas. “Earth to Congress…”16H.R. 4348, Moving Ahead for Progress in the 21st Century (MAP-21). Accessed from: http://www.gpo.gov/fdsys/pkg/BILLS-112hr4348enr/pdf/BILLS-112hr4348enr.pdf 17Pete Ruane. “Funding for highways is ready to roll.” American City & County. August 15, 2012. Ac-cessed from: http://americancityandcounty.com/roadways/funding-highways-ready-roll 18Malley.19Binder.20“MAP-21: What Will It Do to Expedite Project Delivery?”21Malley.22H.R. 4348.23Malley.24Deron Lovaas. “Congress Takes Up a Throwback Highway—Not Transportation—Bill.”25Oakley.26Malley.27Government Accountability Office (GAO). “Highway Projects: Some Federal and State Practices to Expedite Completion Show Promise.” June 2012. Accessed from: http://www.gao.gov/assets/600/591420.pdf 28Caltrans. “2007-2008 Fiscal Year Highlights: Rebuilding California.” Accessed from: http://www.dot.ca.gov/docs/2008FiscalYearHighlights.pdf 29GAO.30American Association of State Highway and Transportation Officials. “AASHTO Authorization Policy: Topic IV: Project and Program Development and Delivery.” 2009. Accessed from: http://www.transportation.org/default.aspx?siteid=98 31Oakley.32Binder.33Malley.34Federal Highway Administration. “Every Day Counts: Expanding Use of Programmatic Agreements.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/projects/toolkit/programatic.cfm

REFERENCES35“MAP-21 Conference Report to Accompany H.R. 4348: Sec. 1311. Development of Programmatic Mitigation Plans.” Accessed from: http://thomas.loc.gov/cgi-bin/cpquery/?&dbname=cp112&sid=cp112X92ov&refer=&r_n=hr557.112&item=&&&sel=TOC_480490& 36Federal Highway Administration. “The Best of EDC: National Success Reported Through Every Day Counts.” May 2012. Accessed from: http://www.fhwa.dot.gov/everydaycounts/pdfs/bestofedc.pdf 37GAO38“MAP-21: What Will it Do to Expedite Project Delivery?”39Malley.40AASHTO.41H.R. 4348, Moving Ahead for Progress in the 21st Century (MAP-21). Accessed from: http://www.gpo.gov/fdsys/pkg/BILLS-112hr4348enr/pdf/BILLS-112hr4348enr.pdf 42Eric Russell. “Celebration opens new Veterans Memorial Bridge.” The Portland Press Herald. August 14, 2012. Accessed from: http://www.pressherald.com/news/New-Veterans-Memorial-Bridge-opens.html 43Federal Highway Administration. “Every Day Counts: Prefabricated Bridge Elements and Systems.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/technology/bridges/intro.cfm 44Massachusetts Department of Transportation. “93 Fast 14: I-93 Rapid Bridge Replacement Project.” Accessed from: http://93fast14.dot.state.ma.us/ 45Ontario Ministry of Transportation. “Performance of In-place Recycling Technologies in Ontario.” PowerPoint presentation. November 3, 2009. Accessed from: http://www.arra.org/index.php?option=com_docman&task=doc_view&gid=347&Itemid=122 46Federal Highway Administration. “Every Day Counts: EDC 2012 Initiatives: Three-Dimensional Model-ing.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/edctwo/2012/3d.cfm 47Federal Highway Administration. “Every Day Counts: EDC 2012 Initiatives: Intelligent Compaction.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/edctwo/2012/ic.cfm 48Office of the Governor. “Governor Cuomo Announces NY Works Program Advances Hudson Valley Bridge Projects with Innovative Design-Build Process.” Press Release. August 8, 2012. Accessed from: http://www.governor.ny.gov/press/08082012-NY-Works-Innovation-Design-Build 49Associated General Contractors of America. “Project Delivery: Design-Bid-Build.” Accessed from: http://www.agc.org/cs/industry_topics/project_delivery/designbidbuild 50Federal Highway Administration. “Every Day Counts: EDC 2012 Initiatives: Design-Build.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/edctwo/2012/designbuild.cfm 51Design Build Institute of America. “2012 Design-Build State Laws for Transportation Procurement.” Accessed from: http://www.dbia.org/NR/rdonlyres/231CFB85-2483-4D8A-87DF-BF72193C61D7/0/tran121514.pdf 52GAO.53Federal Highway Administration. “Every Day Counts: Accelerating Project Delivery Methods.” Accessed from: http://www.fhwa.dot.gov/everydaycounts/projects/methods/ 54Associated General Contractors of America. “CM At-Risk State-by-State Map.” Accessed from: http://www.agc.org/cs/industry_topics/project_delivery/cmatrisk 55Federal Highway Administration. “Every Day Counts Innovation Initiative.” Brochure. Accessed from: http://www.fhwa.dot.gov/everydaycounts/pdfs/edc_brochure_d.pdf 56Utah Department of Transportation. “Benefits of Contract Manager/General Contractor (CM/GC).” Accessed from: http://www.udot.utah.gov/main/uconowner.gf?n=3287906763319024 57Binder.58Oakley.59Malley.60Cambridge Systematics. “Accelerating Federal Program and Project Delivery.” March 28, 2011. Accessed from: http://www.camsys.com/pubs/accelerating_fedpro.pdf 61Binder.62Ibid. 63Malley.64Robert D. Thornton. “MAP-21 Creates Potential to Accelerate Project Delivery.” Nossaman LLP E-Alerts. July 9, 2012. Accessed from: http://www.nossaman.com/MAP_21_Environmental_Streamlining?print=1 65Regional Plan Association. 66Congressional Research Service.

http://bipartisanpolicy.org/events/2012/06/getting-infrastructure-going-expediting-project-delivery-and-environmental-review



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Accelerating Highway Project Delivery Under MAP-21

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