TRANSPORTATION RESEARCH BOARD

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Strategic Issues Affecting Highway Preservation,

Maintenance, and RenewalJuly 23, 2020

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Learning Objectives

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1. Describe methodology used to assess impacts of "drivers of change" on PMR activities

2. List key products of the research and their relevance

3. Discuss how to frame the long-term strategic direction for and approach to highway PMR

4. List guidance available for agency success as the long-term future evolves

Long-Range Strategic Issues Affecting Preservation, Maintenance, and Renewal (PMR) of Highway Infrastructure

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

Overview

► David Huft, Chair South Dakota DOT ► Sreenivas Alampalli New York State DOT ► William H. Hoffman Nevada DOT ► Mostafa “Moe” Jamshidi Nebraska DOT ► Mr. David Lippert University of Illinois at Urbana-Champaign (formerly IL DOT)► Dr. Sue McNeil University of Delaware ► Mr. William N. Nickas Precast/Prestressed Concrete Institute (formerly FL DOT)► Dr. David W. Pittman US Corps of Engineers ► Mr. Michael M. Ryan Formerly Michael Baker and Pennsylvania DOT) ► Shakir R. Shatnawi Shatec Engineering Consultants, LLC (formerly Caltrans) ► Ms. Connie Yew FHWA Liaison Representative ► Dr. Amir N. Hanna NCHRP Staff

The Panel

► Preservation includes work activities to improve or sustain asset condition in a state of good repair— Includes minor rehabilitation, preventive maintenance and some aspects of routine

maintenance

► Maintenance includes work activities to maintain general condition or restore functional state of existing assets— Includes some aspects of routine maintenance, corrective and emergency maintenance

► Renewal includes work activities to fully or partially restore the structural integrity, correct safety defects and improve functional capability of the asset— Includes major rehabilitation and reconstruction

What is PMR?

The Problem: Identify and explore emerging PMR practices, and develop guidance for highway agency leaders and practitioners

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

Identifying/addressing emerging PMR practices over the long-term

Presentation Overview

Guides to Emerging PMR Practices

Framing a long-term strategic approach to PMR

Identifying/Addressing Emerging PMR Practices over the Long-Term

Research

Drivers of change and plausible future scenarios were explored in terms of their implications for PMR needs and emerging practices

Drivers of future change, plausible future scenarios, and implications

► Demographics, Economics, & Transportation Demand► Resilience & Security: Natural & Man-made Threats► Stewardship: Natural Resources & Communities► Financial Resources: Sources, Priorities & Effectiveness► Technology – Materials & Methods► Technology – Information & Analysis► Vehicle Characteristics & Operations► Institutional Changes & Choices

Drivers

Translating Drivers into Emerging PMR Practice Implications(Examples)

Future Drivers Scenarios/Trends Scenario Elements

Demographics, Economics, and Transportation Demand

Growing population and employment, expanding economy, changing patterns in regional development, increasing traffic, larger trucks, heavier loads

• Changes in economic output in terms of volume and weight

• Changes in freight characteristics - greater volumes of higher value cargo, need for greater trip time reliability, pressure to increase size/weight limits

Resilience and Security: Natural and Man-made Threats

Greater resiliency and ability to manage risks from man-made and natural threats

• Climate change and extreme weather impacts• Catastrophic geologically induced events• Cyber attacks impacting transportation operations

Stewardship: Natural Resources and Communities

Sustainable strategies to protect and enhance the natural and built environments

• Focus on clean air, greenhouse gas reduction, and sufficient availability of clean water

• Pressure to preserve and enhance the character and livability of communities

• Drive toward cleaner, cheaper, renewable energy

Financial Resources: Sources, Priorities and Effectiveness

Innovative models for financing and performance accountability from PMR investments

• Decline in the dominance of federal funding and expanded role of state and local funding

• Demand for data-driven, outcome-focused, performance measured assessments of “value for money”

Translating Drivers into Emerging PMR Practice Implications (cont’d)(Examples)

Future Drivers Scenarios/Trends Scenario Elements

Technology – Materials and Methods

Dramatically improved, high performance materials and methods

• Continued improvements in materials science (durability, maintainability, reusability, disposability and cost-effectiveness of construction materials)

Technology – Information and Analysis

Self-reporting, self-managing infrastructure via remote sensing & automated information flow

• Rapidly evolving, cost-effective sensor and communications technologies

• Massive capacity to manage, archive and retrieve data

Vehicle Characteristics and Operations

Automated self-driving, connected vehicles serve as probes reporting condition information

• Market penetration of automated and connected vehicles –light and heavy duty vehicles

• Commercial vehicle platooning for safety and efficiencies

Institutional Changes and Choices

Transformative institutional arrangements focusing on human resources and customer culture

• Pressure for, more customer-friendly, more responsive, more transparent, more accountable, more efficient and more effective government

Implications: Scenarios that Lead to Emerging PMR Practice(Example #1)

Scenarios/Trends Scenario Elements Implications for emerging PMR Applications

Growing population and employment, expanding economy, changing patterns in regional development, increasing traffic, larger trucks, heavier loads

• Changes in economic output in terms of volume and weight

• Changes in freight characteristics: greater volumes of higher value cargo, need for greater trip time reliability, pressure to increase size/weight limits

• VMT growth for passenger and freight traffic• Increased congestion – greater magnitude, increased frequency and

new locations• Less tolerance for traffic disruption due to PMR activities• Focus on off-peak hours (more nighttime activity) for PMR • Greater emphasis on work-zone safety with pressure for fewer lanes

and shorter segments taken out of service for PMR activity • Greater interest in truck-only lanes and facilities• Designs to accommodate longer combination vehicles, platooning

opportunities, platoon assembly-disassembly locations• Need for stronger, more durable pavements in truck-only and mixed

traffic lanes• Need for bridge strengthening to accommodate new axle weight and

axle configurations, particularly for longer combination vehicles/platoons

• Upgraded cross sections and geometry in renewal projects

Driver: Demographics, Economics, and Transportation Demand

60+ Emerging PMR Practices Identified Candidate List Reduced to 16 Examples

Evaluation Factor Relative Weight

Responsive to Scenario Elements 40%

Scale of Impact 30%

Departure from Current Practice 15%

Plausibility 15%

Reduced List - Emerging PMR PracticesMaterials

Hyper-Performance Materials

Tools

Structural Health Monitoring

Machine Learning – Artificial Intelligence for Asset Management

Integrated Building Information Modeling (iBIM) for Highways

Enterprise Information Systems – PMR Applications

Connected Vehicle Applications to Supply Real-Time Conditions Information

Artificial Intelligence – PMR Traffic Management Applications

Technologies

Construction Robotics

Remote Sensing Systems – PMR Applications

Approaches

Predictive-Proactive Maintenance Regime for Roadway Assets

The Internet of Things (IoT) – PMR Applications

Self-Diagnosing/Reporting and Work Ordering

Perpetual/Long-Life Highway Infrastructure

Advanced TSMO Device and Communications Systems Maintenance

Connected Vehicle to Infrastructure (V2I) Technology Providing Communications between Passing Vehicles and Roadside Units

Automated Enforcement for Work Zones

A Practitioner’s Guide to Emerging PMR Database was initiated— information regarding emerging PMR practices organized and customized by seven key discipline areas

Emerging PMR Practices Database

What are the PMR Disciplines?Pavement

Structures

Drainage and Roadside (D&R)

Transportation Systems Management and Operations (TSMO)

Connected and Automated Vehicles (C/AV)

Maintenance and Construction Equipment

Information Technology (IT) and Data

Emerging PMR Applications by DisciplineEmerging PMR Applications Pavement Structures D&R TSMO C/AV Equipment IT/Data

Hyper-Performance Materials X X X X X

Connected Vehicle to Infrastructure (V2I) Technology Providing Communications between Passing Vehicles and Roadside Units

X X X X X

Perpetual/Long-Life Highway Infrastructure X X X X

Integrated Building Information Modeling (iBIM) for Highways X X X X X X

Connected Vehicle Applications to Supply Real-Time Conditions Information X X X X X X X

Remote Sensing Systems – PMR Applications X X X X X X X

Machine Learning – Artificial Intelligence for Asset Management X X X X X X

Predictive-Proactive Maintenance Regime for Roadway Assets X X X X X X

Automated Enforcement for Work Zones X X X

Structural Health Monitoring X X X X

Construction Robotics X X X X X

Artificial Intelligence – PMR Traffic Management Applications X X X X

Enterprise Information Systems – PMR Applications X X X X X X X

Self-Diagnosing/Reporting and Work Ordering X X X X X X

Advanced TSMO Device and Communications Systems Maintenance X X X X

The Internet of Things (IoT) – PMR Applications X X X X X X X

Customized narratives were prepared providing insights into selected emerging practices and their relevance to each discipline

Discipline-specific narratives

Sample of Emerging PMR Practices Data Base

Practitioner’s Guide p.19-22

► Permits the information to be examined from two perspectives:— Selection of individual PMR practices and what their anticipated

impacts would be on a discipline of interest— Selection of individual disciplines and identification of which

emerging PMR practices would have an impact on those disciplines

► Content:— What each emerging PMR practice is and does— What future needs it best responds to— What are the anticipated applications — What benefits are expected— What challenges to implementation are likely to be encountered

► Tabular, web-ready format

Emerging PMR Practices Database

Framing a Long-term Strategic Approach to PMR

Framework

Who is the target audience? Highway agency. . .

LeadershipCEOs and senior management

Practitionertechnical or discipline managers or specialists

Framing a Strategic Approach

A robust and increasingly resilient and adaptive network of streets and highways, including pavements, bridges, tunnels, drainage systems, and other ancillary components of highway infrastructure will continue to be needed over the next half-century under any plausible set of circumstances, but . . .

Postulates

. . .the ways in which we preserve, maintain, and renew highway infrastructure will change 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 to invest in emerging practices; and customer expectations.

A Long-Range Vision looked at emerging PMR practices and their increasingly vital role for serving highway customers, as well as transportation agencies as they formulate future asset management strategies and investments

A Long-Range Vision

A Long-Range Vision

It’s 2070 and the nation’s multimodal transportation system remains anchored by a ubiquitous highway network that has been transformed over the past half-century, despite chronic limitations of available resources. The transformations have dramatically improved the safety, efficiency, reliability, and durability of what is now more accurately characterized as the vehicle-highway network, or VHN as it is commonly called. The term VHN reflects a paradigm shift toward an ever-increasing integration in the relationship between the infrastructure and its users through autonomous, self-driving vehicles as well as vehicles connected to one another and to the roads they are traversing.

The pervasive collection of data on both the usage and the infrastructure side of the VHN since the year 2020 when performance measurement came into its own among transportation organizations has enabled us to measure the magnitude of changes. And while

Highway infrastructure in 2070…

► PMR activities are (and must be) a priority► PMR activities consume a large share of highway agency budgets► PMR activities are never-ending ► Leading edge practices can attract leading edge talent► Applying emerging PMR practices can lead to “constructive cycles” for

transportation agencies:… increasing ability to grasp and focus on satisfying customer expectations, that …… improves agency credibility, which…… tends to attract the resources required to better serve customers…

The Case for Thinking Strategically about Emerging PMR Practices

► PMR activities have in the past been dominated by tactical responses to on the ground conditions that can’t wait

► Strategic thinking about PMR activities has been enhanced by the movement toward asset management and emphasis on performance

► Rapid advances in technologies (sensing, telecommunications, information processing, artificial intelligence, robotics, etc.) have presented opportunities and challenges to highway agencies

► Capabilities of leaders to foster PMR innovation, and practitioners to advocate and implement emerging practices - not universally strong

The Case for Thinking Strategically about Emerging PMR Practices – the Need for Guidance

Guides to Emerging PMR Practices

Achieving Success

Two Guides were prepared - for both leadership and practitioners - to facilitate interest, identification, investigation, and implementation of emerging PMR practices - those identified by this research, and those yet to emerge in coming decades

Guidance documents for Leadership and Practitioners

5

The Guides provide self-assessment tools to assess capabilities and action-oriented guidance. The Leadership’s Guide assesses interest and capability to foster emerging PMR practices across the agency. The Practitioner’s Guide examines the capability to advance individual emerging PMR practices and assists in making go/no-go decision to adopt the innovation and develop an implementation plan.

Assessment Tools

► Focus on “preparation” rather than prediction— How can agencies capitalize on the universe of emerging PMR practices?— Guides are designed to accommodate:

—Emerging practices identified in the research (60+ and reduced list of 16)—Others known today but not specifically identified in the research—Others not yet perceived but could emerge over the long-term

► Recognize the need to:— Foster interest in emerging PMR practices at the leadership level – addressing

agency-wide organizational, cultural, system and resource capabilities – and barriers— Facilitate advancement of individual emerging practices at the practitioner level that

respond to agency needs, customer expectations and drivers of change

Key Features of the GuidesAchieving Success

Navigating the Practitioner’s Guide► Setting the Stage for Innovation

— Study Background— A Long-range Vision – Context for PMR in 2070— The Future Context— Making the Case for PMR Innovation— The Importance of Leadership— The Importance of Practitioner Pressure— Peer Agency Pressure and the Opportunities Presented— Overview of Innovations and Benefits— Critical Success Factors

► Practitioner’s Guide Innovation Database► Innovation Capability Assessment and Advancement

— Innovation Capability Maturity Framework— Innovation Required Actions Framework

AWARENESS

ADVOCACY

AWARENESS

ASSESSMENT

ADOPTIONACTION PLAN

The Important role of Leadership is addressed in the Practitioner’s Guide

Stimulating leadership’s interest in emerging PMR practices

Gaining Leadership Attention for PMR

How Important is Front-Office Engagement…

External Communication

Top-Down Perspective

Bottoms-Up Listening

Leading Edge vs. Bleeding Edge

Critical Success FactorsCritical Success Factors Explanation

1. Innovation Awareness Being in-tune with the state of the art, innovation trends, and where we are in our practice

2. Performance Awareness and Application

Awareness of how well we are performing compared to others, how good is our performance tracking, and how do we use this performance awareness in evaluating outcomes and setting targets

3. Innovation-Supportive Systems, Programs and Budgets

Systems, programs, and budgets in place that facilitate consideration of innovations

4. Innovation-Friendly Culture and Organization

Commitment to continuous improvement, receptivity to change, willingness to invest in beneficial innovation, ability to assess risks vs. rewards, willingness to take prudent risks, tolerance for setbacks, ability to learn and adjust from experience

5. Innovation-Supportive Staff Possession of the right staff in knowledge, skills, experience and buy-in to a culture of innovation

6. Legal, Regulatory and Policy Issue Management Being adept at dealing with legal, regulatory, and policy challenges

7. External CollaborationCommunication and collaboration with key public and private sector interests and influences in innovation, within and outside the highway community

► Self-assessment - Capability re: specific PMR practices► Identify gaps in capability against threshold targets► Determine whether:

—There is a critical mass of capability (currently or soon achievable) to consider advancing a specific emerging PMR practice

—There is the need and the will to advance the practice.

Innovation Capability Maturity Framework

CAPABILITY MATURITY FRAMEWORK (EXAMPLE)

Practitioner’s Guide p.38

► If/When Capability Maturity Framework (CMF) assessment supports considering advancement of an emerging PMR practice, then Practitioner Guidance shifts to plan of action

► Uses (CMF) assessment results (strengths/weaknesses) to prepare Innovation Required Actions Framework (RAF) which consists of:— Investment proposal with justification for moving forward with

an agency commitment to the specific emerging PMR practice— Template for a high-level action plan for final go/no-go on

whether/how to advance the emerging PMR practice

Innovation Required Actions Framework

► Part A – Addressing the CMF Gaps► Part B – Agency-specific Required Actions► Part C – Preliminary Long-term Benefit/Cost

Assessment► Part D – Summary and Recommendation for

Go/No Go

Innovation Required Actions Framework – 4 Parts

Innovation Required Actions Framework – Template

Practitioner’s Guide p.46

► Go/No-Go Options — No-go: Do not advance for the foreseeable time horizon— Not-now: Monitor the innovation and revisit when appropriate — Slow-go: Advance at an “evolutionary pace” (behind others leading)— Go-now: Advance expeditiously (take the lead, collaborate as appropriate)

► Go/No-Go decision may logically rest with senior management, particularly when:— Costs are significant— Risks are not insignificant— Impacts multiple internal units— Affects external stakeholders — Public/Political/Press interest will be evident

Go/No-Go Decision

► Capability Maturity tool to assess agency-wide capability/interest/climate to advance emerging PMR practices (applies to innovation receptivity generally)

► Organization Improvement” tool to define strategic actions to advance emerging PMR practices (and innovation) across the agency

Leadership’s Guide, Includes:

Leadership’s Guide Content

► Guide Orientation► Guide Overview► Setting the Stage for Innovation

— Study Background— A Long-range Vision – Context for PMR in 2070— The Future Context— Making the Case for PMR Innovation— The Importance of Leadership— The Importance of Practitioner Pressure— Peer Agency Pressure and the Opportunities Presented— Overview of Innovations— Critical Success Factors

► Fostering Innovation within the Agency— Organization Capability Maturity Framework— Organization Improvement Framework

► Remarks on the Practitioner’s Guide to Highway PMR Innovation— Organization Capability Maturity Framework at the Unit Level— A Second CMF to Assess Specific Innovations

The Importance of Leadership

Leadership’s Guide p.13

► Conducted by:— Individual leaders— Collaborative group of senior managers— Outside facilitators

► How is the assessment conducted? — Similar to practitioner – “truth-to-power” is essential— Evaluate each Critical Success Factor and its

components against established criteria— 3 “Levels”

Organization Capability Maturity Framework

Leadership’s Guide p.32

► Indicates actions required to advance the organization to the highest target level (Level 3)

► Responds to gaps identified through the Organization CMF assessment► Recommended IOIF content

— Agency’s existing practices and capabilities— Gaps identified from the Organization CMF assessment— Goals, targets and performance metrics characterizing the identified target level— Actions to address the gaps and achieve defined target level

Innovation Organization Improvement Framework(IOIF)

Long-Range Strategic Issues Affecting Preservation, Maintenance, and Renewal of Highway Infrastructure

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

To Summarize:

Identified plausible/likely emerging PMR practices rooted in long-term drivers of change

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

Initiated an emerging PMR practice “data base” with information relating each of 16 such practices relevant to 7 highway agency PMR-related disciplines

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

Developed Guides for Practitioners and Leaders including tools to: - assess capabilities/gaps in advancing individual and agency-wide emerging PMR practices- take actions toward implementing individual practices and fostering agency-wide interest

Vol. 7 of NCHRP 750 (PROJECT 20-83(03)A):

Today’s Presenters

Jagannath Mallela, WSP

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Hal Kassoff

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