Techniques For Effective Highway Construction Projects in Congested Urban Areas (2011)

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Techniques for Effective Highway Construction Projects in Congested Urban Areas
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
NCHRP SYNTHESIS 413

Techniques for Effective Highway
Construction Projects
in Congested Urban Areas
A Synthesis of Highway Practice
CONSULTANT
THOMAS R. WARNE
Tom Warne and Associates, LLC
South Jordan, Utah
S UBSCRIBER C ATEGORIES
Construction • Highways
Research Sponsored by the American Association of State Highway and Transportation Officials
in Cooperation with the Federal Highway Administration
TRANSPORTATION RESEARCH BOARD

WASHINGTON, D.C.
2011
www.TRB.org
Copyright National Academy of Sciences. All rights reserved.

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM NCHRP SYNTHESIS 413
Systematic, well-designed research provides the most effective Project 20-05, Topic 41-09
approach to the solution of many problems facing highway ISSN 0547-5570
administrators and engineers. Often, highway problems are of local ISBN 978-0-309-14323-3
interest and can best be studied by highway departments Library of Congress Control No. 2010943180
individually or in cooperation with their state universities and © 2011 National Academy of Sciences. All rights reserved.
others. However, the accelerating growth of highway transportation
develops increasingly complex problems of wide interest to
highway authorities. These problems are best studied through a COPYRIGHT INFORMATION
coordinated program of cooperative research. Authors herein are responsible for the authenticity of their materials and for
In recognition of these needs, the highway administrators of the obtaining written permissions from publishers or persons who own the
American Association of State Highway and Transportation copyright to any previously published or copyrighted material used herein.
Officials initiated in 1962 an objective national highway research Cooperative Research Programs (CRP) grants permission to reproduce
program employing modern scientific techniques. This program is material in this publication for classroom and not-for-profit purposes.
supported on a continuing basis by funds from participating Permission is given with the understanding that none of the material will be
member states of the Association and it receives the full cooperation used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FTA, or Transit
and support of the Federal Highway Administration, United States Development Corporation endorsement of a particular product, method, or
Department of Transportation. practice. It is expected that those reproducing the material in this document
for educational and not-for-profit uses will give appropriate acknowledgment
The Transportation Research Board of the National Academies
of the source of any reprinted or reproduced material. For other uses of the
was requested by the Association to administer the research material, request permission from CRP.
program because of the Board’s recognized objectivity and
understanding of modern research practices. The Board is uniquely
suited for this purpose as it maintains an extensive committee
structure from which authorities on any highway transportation NOTICE
subject may be drawn; it possesses avenues of communications and The project that is the subject of this report was a part of the National
cooperation with federal, state, and local governmental agencies, Cooperative Highway Research Program, conducted by the Transportation
universities, and industry; its relationship to the National Research Research Board with the approval of the Governing Board of the National
Council is an insurance of objectivity; it maintains a full-time Research Council.
research correlation staff of specialists in highway transportation The members of the technical panel selected to monitor this project and
matters to bring the findings of research directly to those who are in to review this report were chosen for their special competencies and with
a position to use them. regard for appropriate balance. The report was reviewed by the technical
panel and accepted for publication according to procedures established and
The program is developed on the basis of research needs
overseen by the Transportation Research Board and approved by the
identified by chief administrators of the highway and transportation Governing Board of the National Research Council.
departments and by committees of AASHTO. Each year, specific The opinions and conclusions expressed or implied in this report are those
areas of research needs to be included in the program are proposed of the researchers who performed the research and are not necessarily those
to the National Research Council and the Board by the American of the Transportation Research Board, the National Research Council, or the
Association of State Highway and Transportation Officials. program sponsors.
Research projects to fulfill these needs are defined by the Board, and
qualified research agencies are selected from those that have
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contracts are the responsibilities of the National Research Council Research Council, and the sponsors of the National Cooperative Highway
and the Transportation Research Board. Research Program do not endorse products or manufacturers. Trade or
The needs for highway research are many, and the National manufacturers’ names appear herein solely because they are considered
Cooperative Highway Research Program can make significant essential to the object of the report.
contributions to the solution of highway transportation problems of
mutual concern to many responsible groups. The program,
however, is intended to complement rather than to substitute for or
duplicate other highway research programs.
Published reports of the
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
are available from:
Transportation Research Board

Business Office
500 Fifth Street, NW
NOTE: The Transportation Research Board of the National Academies, the
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NCHRP COMMITTEE FOR PROJECT 20-5 COOPERATIVE RESEARCH PROGRAMS STAFF

CHRISTOPHER W. JENKS, Director, Cooperative Research
CHAIR Programs
CATHERINE NELSON, Oregon DOT CRAWFORD F. JENCKS, Deputy Director, Cooperative Research
Programs
MEMBERS NANDA SRINIVASAN, Senior Program Officer
KATHLEEN S. AMES, Michael Baker Jr., Inc. EILEEN P. DELANEY, Director of Publications
STUART D. ANDERSON, Texas A&M University
CYNTHIA J. BURBANK, PB Americas, Inc. NCHRP SYNTHESIS STAFF
LISA FREESE, Scott County (MN) Public Works Division STEPHEN R. GODWIN, Director for Studies and Special Programs
MALCOLM T. KERLEY, Virginia DOT JON M. WILLIAMS, Program Director, IDEA and Synthesis Studies
RICHARD D. LAND, California DOT JO ALLEN GAUSE, Senior Program Officer
JAMES W. MARCH, Federal Highway Administration (retired) GAIL R. STABA, Senior Program Officer
JOHN M. MASON, JR., Auburn University DONNA L. VLASAK, Senior Program Officer
ANANTH PRASAD, Florida DOT DON TIPPMAN, Senior Editor
ROBERT L. SACK, New York State DOT CHERYL KEITH, Senior Program Assistant
FRANCINE SHAW-WHITSON, Federal Highway Administration DEBBIE IRVIN, Program Associate
MARY LYNN TISCHER, Federal Highway Administration
LARRY VELASQUEZ, QUALCON, Inc. TOPIC PANEL
NAVEEN CHANDRA, Oregon Department of Transportation
FHWA LIAISON TRACEY L. FRIGGLE, Texas Department of Transportation
JACK JERNIGAN FREDERICK HEJL, Transportation Research Board
JIM MCMINIMEE, Applied Research Associates, Salt Lake City, UT
TRB LIAISON MIKE PLESE, New Mexico Department of Transportation
STEPHEN F. MAHER LLOYD PORTA, Baton Rouge, LA
DAVID N. SILLARS, Oregon State University, Corvallis
RACHEL VANDENBERG, AECOM Transportation, Los Angeles
JULIE C. TRUNK, Federal Highway Administration (Liaison)
Cover figure: Looking southbound on US-75 approaching IH-635 to

view HOV overpass under construction (center of the photo), part of
High Five Interchange construction, in 2004. Photograph courtesy of
Raul Medina III, Raul’s Photography, San Antonio, Texas, www.rauls
photography.com.

FOREWORD Highway administrators, engineers, and researchers often face problems for which
information already exists, either in documented form or as undocumented experience and
practice. This information may be fragmented, scattered, and unevaluated. As a consequence,
full knowledge of what has been learned about a problem may not be brought to bear on its
solution. Costly research findings may go unused, valuable experience may be overlooked,
and due consideration may not be given to recommended practices for solving or alleviating
the problem.
There is information on nearly every subject of concern to highway administrators
and engineers. Much of it derives from research or from the work of practitioners faced
with problems in their day-to-day work. To provide a systematic means for assembling
and evaluating such useful information and to make it available to the entire highway
community, the American Association of State Highway and Transportation Officials—
through the mechanism of the National Cooperative Highway Research Program—authorized
the Transportation Research Board to undertake a continuing study. This study, NCHRP
Project 20-5, “Synthesis of Information Related to Highway Problems,” searches out and
synthesizes useful knowledge from all available sources and prepares concise, documented
reports on specific topics. Reports from this endeavor constitute an NCHRP report series,
Synthesis of Highway Practice.
This synthesis series reports on current knowledge and practice, in a compact format,
without the detailed directions usually found in handbooks or design manuals. Each report
in the series provides a compendium of the best knowledge available on those measures
found to be the most successful in resolving specific problems.
PREFACE Highway construction in congested urban areas is a challenge owing to high-traffic volumes,
By Jon M. Williams utility conflicts, complex right-of-way acquisition issues, a diverse stakeholder base, and
Program Director watchful news media. This study focused on techniques used by transportation agencies to
Transportation deal with these and other challenges. A highly diverse set of techniques were discovered,
Research Board suitable for different needs. Four case studies are included to illustrate effective construction
practices in congested urban areas.
Information was gathered through literature review and a survey of selected state DOTs
and city transportation agencies.
Thomas R. Warne, Tom Warne and Associates, South Jordan, Utah, collected and
synthesized the information and wrote the report. The members of the topic panel are
acknowledged on the preceding page. This synthesis is an immediately useful document that
records the practices that were acceptable within the limitations of the knowledge available
at the time of its preparation. As progress in research and practice continues, new knowledge
will be added to that now at hand.

CONTENTS
1 SUMMARY
3 CHAPTER ONE INTRODUCTION

Background, 3
Project Scope and Objectives, 3
Study Procedures, 3
Survey Response Rate, 4
Organization, 4
5 CHAPTER TWO LITERATURE REVIEW
10 CHAPTER THREE PROGRAM OVERVIEW
15 CHAPTER FOUR UTILITIES

Background, 15
Utility Impacts, 15
18 CHAPTER FIVE RIGHT-OF-WAY
22 CHAPTER SIX STAKEHOLDER AND PUBLIC INVOLVEMENT

Background, 22
Who Speaks for the Agency, 22
Branding, 22
Information Strategies, 22
Targeting Stakeholder Groups, 24
27 CHAPTER SEVEN MEDIA RELATIONS

Background, 27
Who Speaks to the Media, 27
Media Relationship, 27
Effective Communication Practices, 27
31 CHAPTER EIGHT MULTI-MODAL
33 CHAPTER NINE TRAFFIC MANAGEMENT
35 CHAPTER TEN CASE STUDIES

Indiana—Super 70, 35
Missouri—The New I-64, 35
Nevada—US-95 Widening, 36
Dallas High Five, 37

39 CHAPTER ELEVEN CONCLUSIONS
41 REFERENCES
43 APPENDIX A SURVEY QUESTIONNAIRE
54 APPENDIX B NARRATIVE SURVEY RESPONSES

TECHNIQUES FOR EFFECTIVE HIGHWAY CONSTRUCTION

PROJECTS IN CONGESTED URBAN AREAS
SUMMARY Construction projects in congested urban corridors have been a challenge for many years.
High-traffic volume is just one of many concerns that need to be resolved. Adding significant
utility conflicts and relocations, complex right-of-way (ROW) acquisition actions, a diverse
stakeholder base, and more attentive media markets makes normally difficult work even more
complicated.
This study focused on techniques used by transportation agencies to deal effectively with
these and other challenges. Many different tactics have been tried with varying success levels.
The purpose of this report was to identify strategies being used, determine how agencies rated
their success, and examine applicability to other projects.
This study is in three parts. First, a literature review was conducted to examine published
works relevant to this subject. Next, 21 states, and the city of Chicago and San Francisco
County responded to a survey consisting of 68 questions aimed at illuminating the impacts
and strategies associated with these urban projects. Finally, four case studies were examined
and specific strategies described as used on those projects that would be interesting to the
industry.
Key findings include:
• Contrary to common thought, most urban projects are valued at $100 million or less—
as opposed to being mega-projects. Therefore, strategies must be designed to accommodate
smaller projects in an urban environment.
• Design-bid-build is the most common contracting method used by these agencies for
their urban projects. The agencies and their industry partners are comfortable with this
long-proven contracting methodology.
• Financial incentives and disincentives are commonly used to address schedule concerns
held by the transportation agencies.
• Utility conflicts and relocations are major factors that impact cost and schedule. Virtually
every urban project is influenced by utility issues. Early and ongoing coordination are
key to mitigating these impacts; however, no agency indicated their total elimination of
such conflicts on urban projects.
• The ROW acquisition process continues to be cumbersome for both residential and
commercial properties. If condemnation is involved, in many cases the process extends
beyond a year. Under ideal conditions agencies would like to secure all ROWs before
construction begins; however, in many cases they move ahead anyway when they are
unable to fully clear all the parcels.
• The diversity of stakeholder groups is striking; however, agencies continue to focus
most specifically on businesses, the traveling public, and elected officials. Standard tools
such as public meetings and notices in the newspaper and on doorsteps are still used, but
Internet utilization has now become dominant in communicating project information.
Of interest is that the most common communication tools (e.g., newspapers and public
meetings) are seen as being among the least effective and yet they continue to be used.
The agencies do not typically have robust measurement tools in place for assessing the

effectiveness of their communication strategies. Emerging tools such as social networking

sites have been tried, but are not yet used extensively.
• The media is a large part of the agency’s efforts for disseminating information. In spite
of anecdotal evidence to the contrary, agencies find the media to be a positive partner in this
process and use that relationship to effectively communicate critical project information
to stakeholders. Typically, inside spokespersons are used to work directly with the media,
although agencies often augment their in-house staff with external resources.
• There is minimal reliance by these agencies on other modes of transportation to
mitigate the vehicle throughput restrictions on a given corridor during construction.
Little benefit is seen and commensurate effort is invested in these other modes. That
said, early coordination with transit, bicycle, and pedestrian groups is seen as a good
thing and most agencies do it but with the focus on accommodating their movements and
not as a diversion of ridership.
• Every project must address traffic management. The consistency of the common strategies
is significant, including frequent use of partial and full closures; liquidated damages
assessed for poor performance; and agency focus on impacts beyond project limits.
Almost every agency reported that they use their traffic management center as a tool for
managing traffic during construction.
• Various approaches emerged from the four case studies. The actions were not consistent
from project to project, but reflect conscious effort on the agencies’ part to use actions
unique to project circumstances. Actions such as incentives, management of road closures,
communications with stakeholders, and others are relatively common. Noteworthy is that
some of the common approaches were modified to suit the specific circumstances of the
given project. These were then coupled with new innovations, such as the “windowed
milestones” and “delayed start” clause, which further assisted in mitigating the impacts
of transportation work in urban areas.
No single strategy will fit every project; however, the available choices offer solutions for
many different needs. Early involvement is an important attribute of any mitigating strategy,
whether dealing with utilities, ROW, stakeholder relations, or working with the media. Agencies
use proven tools and modify them to meet current project needs. Innovation has paid off
in significant benefits where agencies have moved to implement new ideas. Ultimately, the
challenge for agencies is to find the right combination of new and old strategies to meet
project’s requirements.

CHAPTER ONE
INTRODUCTION
BACKGROUND PROJECT SCOPE AND OBJECTIVES
The challenges facing transportation agencies in delivering This project reviews strategies and practices employed by
capital programs are greater than ever. Inadequate funding, state DOTs and large cities to successfully deal with the aspects
congestion, increasing demands for service from users, freight of urban corridors while delivering complex transportation
issues, and mobility demands that outstrip available facilities projects. The attributes previously mentioned must each be
are just a few. The problems are more acute and have more mitigated or addressed. To secure the best possible data for
potential consequences in urban areas where, on some corridors, national application, information was gathered from 21 states,
hundreds of thousands of vehicles travel each day through the city of Chicago, and San Francisco County. This synthesis
locations where improvements are needed. provides a wealth of practical experience that may benefit all
who work or travel on urban highways.
One thing is certain—the number of complex projects in
urban areas will likely continue to increase in the future. Aging Among the predicaments facing transportation agencies
highway infrastructures, right-of-way (ROW) constraints, and are the following:
increasing urban populations lead to difficulties for construc-
tion projects on existing, congested, urban highways. • Utility conflicts,
• ROW acquisitions and constraints,
A number of factors add to the complexity of these • Corridor use by multiple modes,
projects: • High-traffic volumes,
• Complex stakeholder issues,
• Many infrastructure systems share the same public cor- • Schedule constraints, and
ridors as highways, including utilities, rail, bus, bicycle, • Financial considerations.
and pedestrian traffic.
• Urban highways often cross multiple political juris- Over the years transportation agencies have adopted a
dictions that are under the watchful eye of many stake- variety of techniques to respond to these challenges. Included
holders. Balancing the diverse needs of these jurisdictions in this list of techniques or strategies are:
and stakeholders requires special techniques and may
cause delays in design and construction. • Accelerated construction,
• These highways serve a variety of mobility needs includ- • Innovative contracting methods,
ing general public use, and commercial, freight, and • Selected lane and road closures,
emergency vehicle traffic. Maintaining traffic flow during • Public involvement, and
construction is an important issue. • The use of economic evaluation decision-making tools.
• Overall system mobility must be considered in a congested
urban area undergoing construction, reconstruction, or Used singly or in combination, each of these approaches offers
rehabilitation. agencies the chance to reduce possible impacts on urban
projects and find greater success in delivery efforts.
Construction on highways under these conditions creates
the need for special techniques. A wide variety of strategies STUDY PROCEDURES
has been employed across the country with varying levels of
success. The purpose of this study was to review the innovative To accomplish the intended purposes of this study, a number
approaches developed by various state departments of trans- of strategies were employed to obtain as much information as
portation (DOTs) and local governments in dealing specifi- possible. First, a literature review was conducted seeking
cally with construction on highways in highly congested urban current documented and published knowledge from around
environments. The scope focuses on construction issues and the country. Second, a survey was undertaken of state trans-
on actions taken during any stage of project development that portation agencies and major cities. Participants were selected
might lead to improved construction of highway projects. because they have one or more metropolitan areas of more

than one million people. In addition, this report contains practice of incentives and disincentives, and other
detailed information from four cases studies of large urban related information.
projects, their strategies used and any lessons learned. Each Chapter Four—Utilities: This chapter reviews how utilities
entity was asked for input regarding methods used that proved impact urban projects, the strategies used to mitigate
successful, and to identify those that were less than effective. those impacts, and an assessment of the strategies’
effectiveness.
The results of the literature review, findings from the Chapter Five—Right-of-Way: Important information
survey, and information gathered from the case study inter- about ROW acquisition for urban projects is presented.
views have all been compiled into this report. This issue is divided into private residential and commer-
cial transactions, with key measures provided for both.
Chapter Six—Stakeholder and Public Involvement: This
SURVEY RESPONSE RATE chapter contains a summary of the practices employed
by agencies to address the complex but important
One of the most difficult aspects of research involving state
relationships with stakeholders. Public involvement
DOTs is collecting data through a survey. Even with the
strategies and their effectiveness are also explored in
advent of Internet-based tools to expedite the collection of
some detail.
information, state DOTs and cities are surveyed so often that
Chapter Seven—Media Relations: Urban projects by
it is difficult to achieve an acceptable level of participation.
their nature have substantial media involvement. This
chapter examines what these agencies are doing to
For this study, the selection of states and cities to survey
effectively deal with the media and the approach they
focused on those with urban populations of greater than
most frequently use.
one million people in the urban area; a response rate of 80%
Chapter Eight—Multi-Modal: Few urban corridors service
was deemed acceptable. In the United States there are currently
single modes of transportation. The norm is that multiple
25 such states, thus requiring a response rate of 20 states.
modes co-exist and operate together before and during
Ultimately, 21 states responded. In addition, Chicago and
construction. This chapter assesses the dynamics of
San Francisco County responded from among the many large
intermodal issues in urban corridors.
cities that were solicited. This response rate provides a suffi-
Chapter Nine—Traffic Management: This chapter focuses
cient basis for achieving the desired outcomes of this project.
on how agencies contend with the substantial traffic
volumes found in urban corridors. Techniques used,
ORGANIZATION effective strategies, and the use of such tools as traffic
management centers are all considered.
The following is a summary of the 11 chapters and content: Chapter Ten—Case Studies: Four case studies of specific
projects are provided to offer further detail on how
Chapter One—Introduction: This chapter includes a states manage urban projects.
review of the study purpose, provides an overview of Chapter Eleven—Conclusions: Conclusions concerning
the issue of constructing projects in congested urban the collected information for this project are detailed,
corridors, and establishes a foundation for the discus- with suggestions for future research offered.
sion presented in the remaining chapters. A short review
of the study process is also included. Appendix A provides the complete survey instrument so
Chapter Two—Literature Review: A summary of the that each question and its responses can be seen in context of
literature for this project is presented that was analyzed the rest of the study, and Appendix B provides the complete
for relevancy and content. responses from each of the agencies. Not all of their specific
Chapter Three—Program Overview: This chapter includes responses were included in the body of the report; therefore,
information on contracting methods used for urban this allows for the capture of all the information provided
construction, how those methods are chosen, the through the survey.

CHAPTER TWO
LITERATURE REVIEW
Congestion is not a new phenomenon and is not strictly reserved Often, congestion is not just construction related. In
for urban areas. In some form it has been present since the Figure 2, the FHWA shows that work zones represent only
first automobiles traveled the rutted roads of the early 1900s. 10% of congestion problems, whereas other causes such
Over the years it has been defined or measured as level of as bottlenecks and incidents contribute significantly to the
service, speed, travel time, and delays (1). problem. Although bad weather merits its own notation,
adding it to any of the other problems creates even greater
The amount of congestion and its documented increase traffic nightmares.
is closely related to similar trends in population growth.
The U.S. population more than tripled, from 76 million to Without a doubt, population growth and roadway con-
281 million, for the period from 1900 to 2000, with a projection gestion are here to stay. Addressing these issues in a cost-
of a 10% increase to 310 million over the next 10 years. A effective and efficient manner, while gaining stakeholder
Texas Transportation Institute study showed that overcrowding buy-in, challenges all agencies. However, the concerns raised
of transportation corridors during peak travel times doubled by users of our nation’s transportation system go way beyond
in 75 metropolitan areas, from 33% in 1982 to 66% in 2000. the simple numbers reflected in any discussion on congestion.
Total congested time also increased from a daily average of More than “severity, magnitude or quantity of congestion,”
4.5 h in 1982 to approximately 7 h in 2000. However, con- motorists look for “reliability of the highway system” and
gestion is not simply driven by population growth. Nationwide, increasingly are unable to find it (5).
significant delays are attributed to work zones on highways,
traffic signals not synced, and weather (2). If the goal is to address the issue of increasing congestion
on our nation’s roads and highways then planning is critical
Metropolitan areas continue to show greater growth when to meeting this objective. Project costs and user demand are the
two components of planning most often faced when advancing
compared with their rural counterparts—80% of the nation’s
a major capacity initiative (6). An expert panel–focus group
population is estimated to reside in large metropolitan areas (3).
at the Midwest Transportation Consortium at Iowa State
The high growth rate in metropolitan areas brings attendant
University concluded that the primary intent of the planning
impacts to housing, schools, retail, government services, and
stage of a project should be to identify potential roadblocks
transportation. The Texas Transportation Institute studied
to meeting project objectives, no matter what the scope of the
85 urban areas and reported 3.7 billion hours of delay resulting
work itself may be (7).
from congestion, equating to an average of 43 h of delay
per person annually, costing more than $63 billion—$384 per Gransberg and Molenaar in their 2004 article “Life-Cycle
person—in wasted time and fuel (4). Cost Award Algorithms for Design/Build Highway Pavement
Projects” believed that the outdated nature of today’s highways
Although population areas of all sizes face congestion was based on the low-bid-always-wins philosophy. With the
problems and smaller regions are witnessing an ongoing rise new idea of design-build delivery, consideration is given to
in delays, congestion in metropolitan areas is growing at a the whole of the project rather than just procurement. The
much faster rate, as shown in Figure 1 (1). authors believe and provide “best-value award algorithms”
that support the concept that low bid is not always ideal in
Highway construction struggles to produce capacity suf- providing optimal solutions to transportation needs (8).
ficient to address the demands of growth, with a scarcity of
funding viewed as the primary reason for this failure. Two Three points help define the difficulty of perfectly timing
key factors exist that relate to available funding. First, much congestion relief projects: First, stakeholder support of a
of the current highway infrastructure was built during the 1950s project is not always measurable owing to the current eco-
and 1960s and is in desperate need of replacement and/or nomic conditions, more popular or newer projects being con-
repair. Second, and more importantly, road capacity has sidered, and changes in technology. Second, once investment
changed little over time compared with the rate of demand (5). in a project has begun, there is no turning back; should a
This increased use results in growing congestion, which in project be ill-planned or conceived, the investment cannot be
turn fuels public discontent. recovered. This is especially painful in high dollar projects.

70
60
50
Hours of Delay
per Traveler
40
30 1982
20 1992
10 2002
0
Small - Less than Medium - 500,000 Large - 1 Mill to Very Large - More
500,000 to 1 Mill 3 Mill than 3 Mill
Population Area Size
FIGURE 1 Hours of traveler delay by area population—Year-to-year comparison.
Third, delay in project completion results in a high level of and private), but also with the public (through television/
public dissatisfaction (6). radio announcements and variable sign boards).
• Cooperation and coordination—move beyond commu-
The Oregon Department of Transportation (DOT) devel- nication to establishment of protocols on how to work
oped a policy and standard for work zone mobility. The stan- together to manage the situation, protect the public, and
dard requires an analysis before every project involving traffic address transportation mobility issues.
flow concerns. Analysis is completed during the planning stage • Training—to ensure that public safety officers and other
and adjusted through the design phase. The DOT then tracks stakeholders have the understanding, knowledge, and
and monitors construction results, creating a history for future training needed to handle emergency situations as they
project planning (9). arise,
• Resources—response resources are commonly exchanged
Stakeholder support is important in the planning stage of in disasters through mutual aid agreements and are an inte-
a transportation project. The need for faster, less disruptive gral part of incident and emergency management” (11).
treatment of out-dated highways prompted the California DOT
(Caltrans) to conduct research in the form of their Long-Life The Wisconsin DOT Facilities Development Manual lists a
Pavement Rehabilitation Strategies. On the three projects in “Public Awareness Campaign” as the number one strategy
this study, traffic data supported the importance of planning when serious congestion is anticipated. Other strategies include
public communication campaigns. The study reported that advertising alternative routes, changeable message signs, radio,
advertising alternate routes or modes to motorists significantly temporary pullouts, and incident planning with other state
lowered traffic demand in the work zone (10). In Arizona, the agencies (12). In the end, decisions made for any high-traffic
Pima Association of Governments is creating a standard of work zone must consider development, environment, and
transportation safety for the Tucson metropolitan area. Through stakeholder concerns (10).
this plan, the Association has identified four techniques
agencies use for work zone incidents: When mitigating congestion, attention to ROWs and util-
ities is second only to planning in the overall effort. A survey
• “Communication—not only among agencies (jurisdic- conducted by NCHRP in 2000 found 11 states that listed
tional law enforcement and fire departments both public state, local, or federal requirements as major roadblocks to
FIGURE 2 Sources of traffic congestion.

timely completion of ROW clearance. Gaining stakeholder

trust during the ROW phase is a must, as transportation agen-
cies must contend with human emotions and complicated
legal requirements that could hinder the process and delay a
project (13).
In a survey conducted for NCHRP Synthesis 405: Utility

Location and Highway Design, only 20% of the states reported
FIGURE 3 FHWA logo for the
involving utility personnel in the planning stage of a project. 511 traffic information program.
As for collecting utility information, 10% reported gathering
information in the topographic survey phase, 52%, during
the early design phase, and the final 18% later in design or Capacity/Easing Bottlenecks, and 511 Traveler Information
occasionally just before construction (14). Telephone Services (see Figure 3) (20).
Utility conflicts occur at a high rate on most projects (15). The Work Zone Safety and Mobility Rule (see Figure 4)
In 2001, a similar survey to that of NCHRP Synthesis 405 is an example of available online help. This standard was first
identified utility issues as the number one cause of construction published in September 2004 in the Federal Register. The
delays (16). Transportation agencies, utility owners, and “Rule” addresses the most current issues dealing with work
the public will always have conflicts that must be addressed. zone safety and mobility. Resources on the site include imple-
Although these conflicts are generally resolved before con- mentation examples, frequently asked questions (FAQs),
struction the financial impact on public agencies is significant. guides and resources to assist in implementation, links to
In another NCHRP study effort, it was determined that in the brochures and fact sheets, and links to presentations given at
United States up to $120 million per year in contractor claims various meetings and conferences. States receiving federal-aid
result from utility issues (17). One suggested resolution to funding must comply with provisions of this rule (8).
this loss of construction dollars is inviting utilities to planning
even pre-bid meetings to increase the understanding of Another tool is the Accelerated Construction Technology
the scope of the project and agency expectations. Ultimately, Transfer (ACTT), a “strategic process that uses various inno-
communication between all agencies and companies results vative techniques, strategies and technologies to minimize
in a higher success rate (17). actual construction time, while enhancing quality and safety
on today’s large, complex multiphase projects.” Recom-
At the FHWA Making Work Zones Work Better workshop, mendations include Design-Build (DB) contracting, advance
authors Belobraydich, Mudd, and Griffin proposed a Utility coordination with utilities, using long-life pavements, improv-
Model Program, with the assumption that grouping common ing general materials specifications, and introducing traffic
tasks creates a uniform and efficient program. The first element flow strategies (21).
is training, including education with specific curriculum geared
to the appropriate level of responsibility. Second, standards The Regional Concept for Transportation Operations is a
with clear objectives must be established with procedures, management tool that has been developed to assist agencies
policies, updatable program features, and a focus on adherence perform in a “collaborative and sustained manner.” Using
to Manual on Uniform Traffic Control Devices (MUTCD) this blueprint, agencies can work through all contingencies
standards. Finally, defining responsibilities, including audits, that may arise during the life of a project and can reach a
enforcement, monitoring, established performance criteria, consensus on solutions and mitigating strategies. The Maricopa
and employee commitment is essential (18). Association of Governments in Arizona was a “trailblazer,”
using this tool in conjunction with the Maricopa Intelligent
Assuming the contractor is qualified and the utility is Transportation System (ITS) Committee. Using the Regional
willing, the contractor can often do the actual utility relocation Concept for Transportation Operations philosophy, opera-
or adjustment work. This may resolve many scheduling and tions were coordinated between the Maricopa Association
coordination issues between the utility and the agency, allow- of Governments and the communities in the Phoenix metro-
ing the contractor to be more efficient. As mentioned previ- politan region (22).
ously, solid communication strategies, early planning, and
close coordination are key to ensuring success (16).
Using established and proven tools is critical in overcoming

construction issues in all project phases. The FHWA maintains
a website with an interactive map linked to every state’s current
congestion mitigation activities (19). The FHWA also pub-
lishes an online “toolbox” with tutorials including Traffic
Incident Management, Arterial Management, Pricing, Adding FIGURE 4 FHWA work zone rule logo.

Additional tools include the Highway Performance results of the VA program happen with early implementation
Monitoring System. Data within the system defines “extent, (28). The VA program works under Value Engineering (VE),
condition, performance, use and operating characteristics of as described on the FHWA website. “A VE Program is com-
the Nation’s highways.” The Highway Performance Monitor- prised of more than just the collection of studies or workshops
ing System was originally developed in 1978 and is regularly that are completed, and the number of recommendations
updated to reflect most current systems, legislation, technology, implemented. The program also includes well-established
and reporting requirements (23). Additional tools include the policies and practices that fully integrate VE into the surface
Highway Capacity Manual (HCM)—including a specialized transportation program and increase the overall effectiveness
methodology used to collect traffic count data and capacity of the VE methodologies.” States that are successful have
information (24). Included in the HCM is the Critical Lane implemented training programs and worked to raise awareness
Volume Analysis, which is a planning tool for specific inter- of VE program benefits (29).
section analysis, and Synchro, a traffic signal optimization
tool. Some of these tools were used in the replacement of An example of how VE studies have been implemented
the Woodrow Wilson Bridge, which has a capacity of nearly to benefit a project includes the work done on the New Jersey
100,000 vehicles a day (25). Route 206 Bypass. This project covered two communities,
with the first supporting the project and the second being
In addition to planning and analysis tools, agencies are opposed. A VE study was conducted for the citizens of both
seeking project delivery methods that may assist them in areas. Through the VE process both sides expressed their con-
mitigating the impacts incident to urban construction efforts. cerns and ultimately the New Jersey DOT reached agreement
One of these is Construction Manager-at-Risk (CMR). CMR and buy-in from all involved (29).
represents “an integrated team approach to planning, design,
and construction, to help control schedule and budget and to Surprisingly, little exists in the literature about how agencies
help ensure quality for the project owner.” Members of the make decisions regarding the pursuit of urban projects as
team include individuals with a vested interest in all phases a whole from an economic benefit standpoint. What does
of the project. The end goal of the CMR method is to “enhance exist in the literature are descriptions of methodologies for
constructability, manage risk and facilitate concurrent execu- selection-specific project elements such as pavement type.
tion of design and construction.” Many states have used the The Gransberg and Molenaar report, “Life-Cycle Cost Award
CMR program. The city of Phoenix has completed more than Algorithms for Design/Build Highway Pavement Projects,”
200 CMR projects (26). focused on using life-cycle cost analysis in the use of a best
value selection process in a DB environment (8). The FHWA
Caltrans uses CA4PRS (Construction Analysis for Pave- established a policy in response to the National Highway
ment Rehabilitation Strategies) in the design phase of its System Act of 1995 that requires a life-cycle cost analysis on
projects. CA4PRS was developed by the Institute of Trans- high-cost projects. Again, the focus is on specific project
portation Studies at the University of California at Berkeley elements, usually pavements, and not on the greater economic
under an FHWA study. CA4PRS can be used to “identify impacts of the project as a whole (30). In the end, sharing
optimal rehabilitation strategies that balance the construction information and statistics among organizations results in
schedule with inconvenience to drivers and transportation optimal planning and design. This requires agency staff from
agency costs. The program considers ‘what if’ scenarios for all organizations to fully cooperate. In Houston, Dallas,
such variables as rehabilitation options, available construction Ft. Worth, and San Antonio, regional organizations house
windows (i.e., nighttime, weekend, or continuous closures), employees from multiple agencies in the same building,
number of lanes to be closed for rehabilitation, material allowing for frequent interaction. Field operations can con-
selection, pavement base type, and the contractor’s logistics, nect to central locations through systems such as SmartTrek
including access to the site and production rates. The CA4PRS in Seattle, Commuter Link in Salt Lake City, or AZTech in
results can also be integrated with traffic simulation tools to Phoenix (31).
estimate road-user delay costs arising from construction. The
software aids in establishing schedules, developing construction Transportation projects are complex at best. Congestion
staging plans, estimating cost (A) + schedule (B) contracts, continues to grow in relation to increases in population.
and calculating incentive and disincentive specifications for However, population growth is not the singular reason our
contracts” (27). nation’s highways are overcrowded and users experience
delay; incidents, bottlenecks, and other factors all contribute.
Another tool successfully used by Caltrans is their “VA” Effective planning is shown time and again as a key to not
(Value Analysis) program. It is a system for “enhancing only crafting proper solutions to relieve congestion but also
product value by improving the relationship of performance to implementing projects in such a way that construction
to cost through the study of function.” By using a function- efforts do not have an inordinate impact on travelers.
oriented, systematic team approach, Caltrans is successful in
improving the value of the product, design, system, or service. Utilities and ROW acquisition processes effect projects
VA is also key for problem solving and cost reduction. Best negatively and cannot be ignored. Early coordination is a

key, but many agencies are still frustrated with the financial for utilities that are in conflict with their highway work.
and scheduling impacts they cause. Efforts to improve the decision-making process to relocate or
avoid a utility have saved up to a year in the project delivery
In a recent study sponsored by NCHRP entitled “Utility schedule (14).
Location and Highway Design,” the state of the practice is
studied in depth. Actions taken by the state DOTs vary in terms A second report published as part of the Strategic
of what they do and when they do it to mitigate the impacts Highway Research Program, “Encouraging Innovation in
utility conflicts have on their projects. The author found that Locating and Characterizing Underground Utilities,” found
85% of the states do not have a specific policy governing the that a low-cost, effective means for locating all underground
decision to design around or relocate a conflicting utility. Of utilities does not exist and hampers designers in their plan
note are the actions of three states: Georgia, Pennsylvania, and preparations. Some advances in technology and “tagging”
Virginia. In Georgia they developed a Utility Redline Software of utilities offer promise, but widespread deployment is
package that facilitates the transmittal of plans between well into the future. Encouraging the use of subsurface utility
the agency and utility owners. They have also implemented engineering is seen as a strategy that can be combined with
an aggressive training program for their employees to raise greater coordination and the use of emerging and existing
awareness and improve effectiveness in dealing with utility technologies to avoid the impacts currently experienced with
companies. utility conflicts.
The Pennsylvania DOT has a policy where a contractor A variety of tools have been developed to help agencies in
can perform subsurface investigations at the agency’s expense the planning and execution of their construction projects. These
if it suspects that the information provided in the plans is in provide assistance and appear worthy of further examination
error. This has encouraged the DOT to be more attentive to and implementation by agencies across the country.
the information it provides and resulted in improved plan infor-
mation. Pennsylvania also had a change to their “One-Call” No silver bullet emerges from this review of the state of
statute, which requires the use of subsurface utility engineering the practice in mitigating the impacts of construction in urban
for all projects with a value in excess of $400,000. areas. Nevertheless, useful information is clearly available to
assist agencies in these endeavors. In crowded metropolitan
Finally, Virginia started a program in 2000 where the areas, complexities increase substantially; however, using
agency pays the utility companies for their cost of engineering established processes and tools enables success at any level.

10
CHAPTER THREE
PROGRAM OVERVIEW
The survey of transportation agencies solicited information measures at both project and programmatic levels, as shown
about the characteristics of their respective capital programs. in Figure 7.
This information serves as a backdrop to the other data obtained
and provides insights into the nature of each program in terms When asked if they used special measures to deal with urban
of dollars and other attributes. Figure 5 shows how the states projects, the most common one mentioned was managing
responded when asked about capital program size. traffic either through a traffic operations center, work hour
restrictions, or other management strategies to mitigate the
Thirteen states, or more than half of the responding states impacts of high volumes of vehicles.
with urban areas of more than 1 million people, have capital
programs of more than $1 billion per year. Another six identi- Seeking further clarification about these measures, the
fied expenditures of between $500 million and $1 billion. It is survey asked respondents to specifically identify those they
no surprise that states constructing projects in highly congested employed, with the results shown in Table 1. On this and other
corridors have large programs. Note that San Francisco County questions in this section of the survey the agencies mentioned
and Chicago have substantial programs in their own right. aggressive management of lane closures and night work, the
use of Context Sensitive Design and the use of ITS.
Further examination of project types revealed a number
of important trends. Responses to the question about what Examination of Table 1 reveals an interesting phenomenon.
typical projects are constructed in urban corridors included The five most commonly identified actions are:
all of the following:
• Coordination with local communities
• Improvements on urban arterial streets with minimal • Different contracting methods
access control, • Work hour modifications
• Improvements on urban arterial streets with aggressive • Context Sensitive Design or Context Sensitive Solutions
access control, and • More use of consultants.
• Improvements on controlled access highways.
The contrast between the most common and the least often
Each of the states reported having all three project types. The utilized strategies is noteworthy. The least-mentioned actions
uniformity of project type allows for greater correlation of the included training employees, offering pay differentials for
data found in the rest of this report. specialized work hours, and staffing changes. Each of these
would reflect an investment in the agency in-house staff.
Understanding trends in typical project size among respond- Conversely, the top five listed previously do not represent such
ing transportation agencies is useful. Note in Figure 6 that when a strategy. This is a clear message that actions employed to
agencies reported on size trend for urban projects, the majority address these complex construction projects center more on
of the projects were under $100 million. This indicates that external and physical actions and not on employees or organi-
the typical project would not be considered a “mega-project” zational actions that might be part of successful solutions.
and shows that the strategies identified in this report can be
applied to a significant size range of urban projects—not only For many years states used the standard design-bid-build
the very largest. Arizona, Missouri, San Francisco County, and (DBB) approach to project delivery for virtually all projects.
Texas reported more frequent use of projects valued in excess With DBB the owner designs or hires a consultant to design
of $100 million. the project, then procures a contractor for actual construction.
Typical benefits of using DBB include:
Recognizing the challenges and uniqueness of these urban
projects, the agencies all responded that they take special • A simple process that is well understood by all partic-
measures to address these circumstances. When queried about ipants,
whether the measures were implemented on a project-by- • Risk and rewards that are clear,
project basis or the programmatic level, 42% indicated a • A high level of public acceptance, and
project-specific approach and 48% reported that they employ • A process that is considered fair (32).

11
FIGURE 5 Size of state’s annual capital improvement program (see Question 9).
FIGURE 6 Trends in urban project size most prevalent in states (see Question 11).
Since the 1990s, transportation agencies have also used • More innovation that often results from the combined
the design-build (DB) process. With this approach the owner contractor/designer team; and
hires a team that includes a contractor and a designer; together • Owners that frequently specify project deliverables as
they are responsible for the finished project. Attributes of DB opposed to means and methods.
include:
The selection of DB as a delivery method is based on a
• A single contractor and designer team that provides for number of desired outcomes. They include in order of priority:
more effective coordination;
• Projects that are typically priced in a lump sum format, • Shorten duration
allowing for a level of price certainty not present with • Establish cost
DBB; • Reduce cost
FIGURE 7 Special measures taken as individual projects or programmatic

(see Question 13).

12
TABLE 1
TYPES OF ACTIONS TO ADDRESS CONGESTION IN URBAN PROJECTS
What types of actions has your agency taken to address the issues associated with
construction of projects in congested urban corridors?
% of State
Actions Taken Response
Coordination with local communities 96
Different contracting methods 87
Work hour modifications 87
Context sensitive design or context sensitive solutions 83
More use of consultants 65
Organizational or structural changes in your agency 30
Changes in staffing 26
Other 22
New or different equipment 17
New or specialized training for employees 17
Pay differentials for employees working on these projects 13
No actions 4
Owing to multiple choices percentages do not equal 100%.
• Constructability/innovation The most commonly used method was overwhelmingly

• Establish schedule (33). DBB. The comfort contractors and owners still have with DBB,
and the sheer number of projects using DBB, account for con-
Some states (e.g., Arizona and Utah) are beginning to tinuing its use. Nevertheless, states such as Arizona, Florida,
use Construction Manager/General Contractor (CM/GC) or Utah, and Washington are using DB for a large number of
Construction Manager at Risk. The name and attributes differ urban projects. Even in states that lead in using alternative
from state to state and their statutes will be different as well, project delivery methods such as DB, the vast majority of work
but the basic process remains the same. The owner, contractor, is still traditionally done using DBB.
and designer enter into an agreement where engineering and
When asked why they used the preferred contracting
construction are completed in a collaborative environment
method, the agencies offered the reasons found in Table 2.
and risks are shared in ways that result in project cost and
The rationale varies but the selected process, DBB, remains
time savings. Often, financial incentives are used that benefit
the same.
all parties (34).
In their narrative responses many agencies mentioned that
Agencies also identified a common use of A + B contract- legislative requirements often limited or controlled how they
ing where price is one factor (A) and time (B) is the other. were able to use innovative delivery methods such as DB or
Massachusetts, Nevada, Pennsylvania, Tennessee, and Utah CM/GC. Table 3 contains additional comments offered by the
have all used this approach. agencies.
TABLE 2
REASONS FOR CHOOSING DESIGN-BID-BUILD
What are the reasons for choosing the method identified in Question 15?
Reason for Choice % of state response
Ease of contract administration on the part of your agency 48
Required by rule or law 43
Other 35
Price certainty (knowing what the final cost will be) 26
Shorter construction schedule 22
Improved management of stakeholder issues during construction 17
Opportunities for innovation on the part of designers 13
Improved management of traffic during construction 13
Opportunities for innovation on the part of contractors 9
Pressure or input from elected officials 4
Pressure or input from industry groups or associations 4

13
TABLE 3
COMMENTS FOR QUESTION 16
DBB is our standard practice; we use DB on a limited basis. Louisiana
Traditional method for bulk of contracts. Alternatives being tested and considered. Massachusetts
DBB is the traditional project delivery method used at CDOT. Colorado
The reality is that the majority of work in our urban areas is approached through traditional Washington
methods.
It is our standard contracting method, thus it is used on most projects. Oregon
Standard procedure. Michigan
Our standard method used for many years. Nevada
Low bid. Arizona
The agencies were asked whether or not financial incentives of portland cement concrete pavement and less for other
were used to influence behavior and outcomes on urban con- contract work. This most likely accounts for the low ranking
struction projects and the majority answered in the affirmative. shown in the survey results.
The basis for using incentives to influence the outcome of a
project varied among the agencies, but several emerge as the All the agencies surveyed reported that they use financial
primary motivators, as shown in Table 4. disincentives to achieve certain objectives. Table 5 ranks
responses to this question. For these agencies, motivation to
Notably, the top two reasons focused on an owner’s desire use incentives follows the same order of priority as for the use
to influence the project schedule or overall completion. of disincentives.
The third most noted response was to reduce the impact on
the traveling public. Surprisingly, only 26% used financial Commonly, transportation agencies use incentives and
incentives to achieve quality objectives. Based on the author’s disincentives in combination with one another and the survey
experience, quality incentives are often used by agencies for instrument was designed to elicit information about this
work items such as asphalt pavement quality or smoothness relationship. Figure 8 shows how the agencies responded to
TABLE 4
REASONS FOR INCENTIVES ON URBAN CORRIDOR PROJECTS
What are the reason(s) for using incentives on your urban corridor projects?
% of state
Reason for Choice
response
Shortens the construction schedule 91
Finishes the project and opens it by a certain date 87
Reduces the impact of construction on the traveling public 83
Promises to the public or elected officials 57
Improves the overall quality of the project 26
Other 0
TABLE 5
REASONS FOR USING DISINCENTIVES
What are the reason(s) for using disincentives on your urban corridor projects?
% of state
Reason for Choice
response
Finishes the project and opens it by a certain date 91
Shortens the construction schedule 87
Reduces the impact of construction on the traveling public 87
Promises to the public or elected officials 70
Improves the overall quality of the project 30
Other (see Table 6 in chapter three) 13

14
FIGURE 8 Financial incentives and disincentives (see Question 21).
TABLE 6
Reduce the number of bidders with limited resources. Colorado
Reduce bad press of an ongoing project. Pennsylvania
Maintain contract work schedule to avoid special community events. Pennsylvania

Liquidated damages are considered as disincentives. Oregon
See comments for question 18. Utah
Disincentives are in the construction contract as road users liquidated damages. Pennsylvania
FDOT matches its incentives with equal disincentives. Florida
the question about whether or not they used financial incentives Urban projects are typically associated with the mega proj-
and disincentives on the same projects. Only one agency noted ect label; however, these agencies reported that the trend
that it never combines these strategies. On the other hand, is toward projects valued at $100 million or less. Incen-
61% use combined incentives and disincentives: “Often,” tives are used by the majority of the agencies to achieve
“Very Often,” or “Always.” schedule objectives and reduce the impact of the work on
the public.
This overview of projects and agency approaches to their
delivery offers a glimpse into the circumstances under which In addition to the quantitative information gathered through
they are constructing their work in urban corridors. The most the survey, agencies were also asked in many of the questions
common delivery method used is DBB, although some use of to provide qualitative information (see Table 6). The full
alternative methods such as DB and CM/GC were identified. account of these responses is found in Appendix B.

15
CHAPTER FOUR
UTILITIES
BACKGROUND identified “Schedule” as the top impact from utilities in the

urban corridors, the results from chapter three—Program
Urban corridors are not only congested with vehicles and Characteristics—become more interesting. The top reasons
people but also filled with utilities, each one a potential con- for offering incentives and disincentives as reported in that
flict for the planned work. For many years, the natural pattern chapter were the owners’ desire to influence the schedule and
has been to install utilities in streets and highways. Utilities complete projects on time. Given the schedule impacts of
can take many forms, whether aerial or underground. Some utilities on urban projects and the desire for on-time comple-
are privately owned and others owned by municipalities, such tion, the concern over this element is understandable.
as a local water company. A variety of telecommunications
providers have facilities in public ROWs. Power and gas lines Strategies used by the transportation agencies to mitigate the
are often public utilities regulated by a public utilities com- impacts of utilities on complex urban projects were examined
mission and found in the highway ROWs. In addition, local for trends and effectiveness. Tables 8 and 9 show how the states
irrigation districts, sewer districts, and others may have facil- responded to Questions 25 and 26, and Tables 10 and 11
ities in urban corridors under construction. Although not a provide comments (“Other”) to these questions.
utility per se, storm drains are a major underground element
on most urban projects. • Question 25—What strategies has your agency used to
mitigate the impacts of utilities on the urban corridor
Almost all projects require the relocation or adjustment of construction projects administered by your agency?
existing utilities. When conflicts exist, either the utility owner • Question 26—Which of the following have your agency
or the agency’s contractor must make necessary changes. The found to be most effective in dealing with the impacts
extent of relocation depends on the corridor and the nature of utilities in congested urban corridors?
of the work. Those familiar with urban corridor construction
may recall projects where the actual corridor improvements Answers to Question 25 reflected that early and ongoing
(e.g., new pavement, drainage, traffic signals, and bridge con- coordination are the most common strategies used. The
struction) appeared almost incidental to the amount of prelim- message from the agencies is that coordination starts long
inary utility work. Ultimately, the presence of utilities on these before a project is let or even in the advertisement phase. A
projects represents a potentially high-cost/high-risk factor dur- distant third action was paying some relocation expenses even
ing construction. if not required by law. Although anecdotal in nature, this
third strategy is gaining ground in terms of how widely it is
being used to expedite, remove conflicts, and generate good
UTILITY IMPACTS will with utility owners.
This project sought to better understand the frequency of In reviewing the information found in Table 8, even though
utility conflicts, impacts on the actual construction work, and early and ongoing coordination with utility owners is most
the best strategies agencies use to prevent negative outcomes common, they also indicated that not all of these efforts work
on urban projects. Figure 9 reflects on how the agencies well; 96% reported that they did early coordination, but only
responded to the question of how often utilities impact urban 83% said it was effective. In the case of ongoing coordination,
corridor projects. Thirty-nine percent reported that utilities 83% said they do it, but only 57% said it was effective.
were “Always” a problem in urban corridors and another
30% said “Very Often.” The total of “Often,” “Very Often,” The agencies were also asked to identify in narrative
and “Always” was 91%. Clearly, utility impacts are seen as fashion specific strategies they found useful in dealing with
a significant problem. utilities and their impact on urban construction. Again, the
most common was ongoing coordination during construction.
How these impacts influenced urban projects was the Nevada responded that it has quarterly coordination meetings
next logical query of the surveyed agencies. Table 7 shows in the northern part of the state and monthly meetings in the
the response. Top influences were “Schedule,” “Financial,” Las Vegas area. In Pennsylvania, meetings are held bi-monthly
and “Contract Administration.” Because 100% of responders in the regions and annually at the state level. The Pennsylvania

16
FIGURE 9 How often do utilities impact reconstruction efforts on urban corridors

(see Question 23)?
TABLE 7
IMPACTS UTILITIES HAVE ON CONSTRUCTION EFFORTS IN URBAN CORRIDORS
What is the nature of the impacts utilities have on the construction efforts in urban
corridors?
Influences or Impacts % of State Response
Schedule 100
Financial 70
Contract administration activities on the part of the agency 70
Stakeholder relations 43
Quality of the work 30
Number of bidders on a project 4
Other 4
TABLE 8
STRATEGIES USED TO MITIGATE IMPACTS ON UTILITIES
What strategies has your agency used to mitigate the impacts of utilities on the urban
corridor construction projects administered by your agency?
% of State
Strategies Response
Early coordination with impacted utility companies 96
Ongoing project-specific coordination meetings with utility companies even before
construction is started 83
Payment of some relocation expenses even if not required by law 39
Other (see Table 10) 31
Payment of all relocation expenses even if not required by law 13
Modifying state law to require more effective coordination between your agency and the
utility companies
13
Litigation 9

17
TABLE 9
ACTIONS FOUND TO BE EFFECTIVE IN DEALING WITH THE IMPACTS OF UTILITIES
Which of the following has your agency found to be most effective in dealing with the
impacts of utilities in congested urban corridors?
% of State
Strategy Response
Early coordination with impacted utility companies 83
Ongoing coordination meetings with utility companies even before a specific project is
started 57
Other (see Table 11) 30
Payment of some relocation expenses even if not required by law 17
Modifying state law to require more effective coordination between your agency and the
utility company 13
Payment of all relocation expenses even if not required by law 4
Litigation 0
TABLE 10
Contracted project-specific utility location staff to represent a local public utility owner Oregon
during construction.
With prior approval utility has been incorporated into the construction contract; when the Pennsylvania
work was completed, the utility has reimbursed the state for the cost.
Subsurface engineering (potholes) to identify conflicts. Nevada
Payment for utility relocation is precluded by constitution in Washington State. Washington

Communication with the utilities is proactive. The utilities are notified annually of upcoming Pennsylvania
construction projects in their area. Utilities are invited to state quarterly meetings and
regionally bimonthly meetings to discuss upcoming highway projects. To coordinate work
schedules for specific projects the utilities are invited to scoping and design field views, and
then during construction they are invited to the bi-weekly construction meetings.
TABLE 11
We have not found an effective method. Colorado
Including utility costs in contractor bid price for lump sum DB projects to incentivize Utah
minimization of utility relocations.
On DB—WSDOT has transferred our legal rights to the contractors. Washington
None of the above. Illinois
Include relocation as part of the contract so the prime contractor is responsible. Tennessee
Separate construction contract for early relocation of utilities. Arizona
Separate and advance utility relocation contracts. San Francisco
DOT also makes an effort to notify utility companies about of urban construction that utility impacts must be planned for
their upcoming annual program so that owners know what to and dealt with. Of most concern to the agencies is how utility
expect. Oregon uses specific staff members who focus on conflicts and relocations might impact their schedule or what
utility issues to ensure timely coordination. financial issues might emerge. They are proactive in efforts to
prevent even more schedule or cost issues than already occur,
The results from this portion of the survey show that agen- with early and ongoing coordination being the keys to mitigat-
cies identified utilities as a major area of concern and impact ing utility impacts. None of the agencies believed that the influ-
on urban construction projects. Indeed, it is one of the constants ence or issues relating to utilities could be totally eliminated.

18
CHAPTER FIVE
RIGHT-OF-WAY
ROW has unique issues when constructing projects in urban The responses are enlightening in how significant a time
corridors. Urban projects where ROW acquisition is not issue ROW acquisition is for urban projects. In both residential
required are rare. Even the simplest projects require purchasing and commercial cases, when an agency exercises its rights to
properties for newly aligned ramps, geometric changes at condemn a property, resolution requires from 6 months to
intersections or interchanges, or widening pavement sections. more than a year. Given that condemnation proceedings
cannot begin until an agency has completed the Record of
ROW impacts vary: this study first sought to understand Decision for a project, this means that a project is well
how urban projects were influenced. Figure 10 shows how advanced before the purchase process can begin. If condem-
the agencies responded to the question exploring this topic. nation is not required, then 57% of residential and 38% of
The agencies were asked to identify which aspects of ROW commercial properties are acquired in 6 months or less. The
key to this process appears to be avoiding condemnation if
acquisition were most challenging. The responses identified
schedule considerations are an issue.
three particular areas:
Combining the information found in Figures 12 and 13
1. Property owner expectations for compensation (56%).
with that in Tables 12 and 13, the relationship between the
2. Relocation of commercial property owners (50%). impacts of condemnation and its frequency become evident.
3. Too little time to complete acquisitions (40%). This shows that one-half of the commercial properties require
condemnation, and the time frame for that process could exceed
In completing projects such as this it is often informative a year. In residential condemnations, this situation does not
to see what elements of a particular process or activity are not occur as frequently and has less time impact. This trend must
as significant as the others (see Figure 11). In this case, the be recognized as a critical factor in scheduling activities.
following were least likely to be identified as problematic in
the overall acquisition process: This study sought to identify strategies used by agencies
to address the previously mentioned dynamic. Table 14
• Inability to hire outside staff to augment agency resources shows the strategies employed and how respondents rated the
(0%). effectiveness. The top three strategies employed were:
• Inadequate funding (17%).
• Real estate market conditions (17%). 1. Use private sector resources to fill critical roles and
augment agency staff (75%).
This query attempted to assess how the ROW acquisition 2. Add staff to accelerate the acquisition process (55%).
process might impact the project schedule. Although some 3. Advertise projects before all parcels have been acquired
states have difficulty completing the design in time to achieve or right of entry secured (50%).
the desired bid dates, in others, such as Indiana, property
acquisition is the critical path and determines when a project The four least commonly used strategies were:
is bid and constructed.
1. Pay incentives to private sector companies performing
acquisition services for your agency (0%).
Participants answered questions regarding both residential
2. Pay incentives to property owners that agree to sell early
and commercial properties. Three issues were explored for in the process (10%).
each type. The first two were: 3. Use of the construction contractor to acquire property
after awarding the construction contract (10%).
1. How long did the acquisition process take if condem- 4. Use of the construction contractor to acquire rights of
nation was not involved? entry after awarding the construction contract (15%).
2. How long did the acquisition take if condemnation was
involved? Questions 37 and 38 asked agencies to rate the effectiveness
of their strategies; a strong correlation exists between what
Tables 12 and 13 contain this information for residential they do and the effort’s effectiveness. Clearly, the agencies
and commercial properties, respectively. are doing what they believe is most effective.

19
0 10 20 30 40 50 60 70 80 90
FIGURE 10 How ROW acquisition and activities impact projects (see Question 28). (Owing
to multiple choices percentages do not equal 100%.)
FIGURE 11 Most difficult elements of the acquisition process (see Question 29). (Owing to
multiple choices percentages do not equal 100%.)
A final trend noted from the results is that 50% of agencies • Utilization of alternative dispute resolution processes
advertise projects before all the parcels are cleared. Although can help move decisions and agreements forward more
used frequently, this approach adds risk to the overall delivery quickly.
of the project and could result in financial and schedule impacts. • Seeking early right of entry can help reduce impacts.
• Early involvement of ROW staff is important during
The narrative comments in Appendix B offer further insight design.
into how states are dealing with ROW acquisition. From these • Utilization of outside resources can help to augment
responses certain themes emerge including: in-house staffing.
TABLE 12
AVERAGE TIME REQUIRED WHEN CONDEMNATION IS REQUIRED ON RESIDENTIAL PROPERTY
What is the average time to acquire a What is the average time to acquire
residential property that does not require a residential property when
condemnation? condemnation is required?
Average Time (% of state response) (% of state response)
Less than one month 0 0

Two to three months 14 5
Four to six months 43 0
Six months to a year 29 55
More than a year 14 40

20
TABLE 13
AVERAGE TIME REQUIRED WHEN CONDEMNATION IS REQUIRED ON COMMERCIAL PROPERTY
What is the average time to acquire a What is the average time to acquire a
commercial property that does not commercial property where
Average Time require condemnation? condemnation is required?
(% of state response) (% of state response)
Less than one month 0 0
Two to three months 5 5
Four to six months 33 0
Six months to a year 43 35
More than a year 19 60
Some states are trending toward streamlining the acquisition become the critical path. Condemnation is the discriminator.
process in the form of administrative settlements and payment If a residential property goes to condemnation, 95% of these
of incentives. parcels take at least 6 months to acquire and 40% more than
year. In the case of commercial property, 60% take more than
Urban projects are definitely affected by the acquisition a year to clear. Adding staff, either in-house or from the
of ROWs. Most common among the impacts are cost over- private sector, are the two most common strategies to combat
runs and schedule implications. Owner expectations and the the schedule impacts of the acquisition process. Although
relocation of commercial owners were noted by the agencies a great deal of effort is made to secure all of the ROWs for
as being particularly questionable. In looking at a project a project before advertisement, 50% of the agencies noted
schedule and what could delay construction it is clear that that they do move ahead to construction without 100% of the
once a Record of Decision is in hand that ROW acquisition can parcels cleared.
FIGURE 12 Percentage of residential properties requiring condemnation on urban

corridor projects (see Question 32).
FIGURE 13 Percentage of commercial properties requiring condemnation on urban

projects (see Question 35).

21
TABLE 14
RIGHT-OF-WAY ACTIONS BY STATES
Of the options listed in
Which of the Question 37, which do
following strategies Of the options listed in you find to be the least
does your agency Question 36, which do you effective in dealing with
employ to deal with find to be the most effective the impacts of right of
right of way issues in dealing with the impacts of way acquisition on the
relating to right of way acquisition on urban corridor projects
construction projects the urban corridor projects constructed by your
ROW Action by State in urban corridors? constructed by your agency? agency?
(% of state response) (% of state response) (% of state response)
Use private sector
resources to fill critical
75 61 8
roles and augment
agency staff
Add additional staff to
accelerate the acquisition 55 55 0
process
Advertise projects before
all parcels have been
50 44 15
acquired or right of entry
secured
Award projects before all
parcels have been
35 6 54
acquired or rights of
entry secured
Other 30 56 0
Use of the construction
contractor to acquire
rights of entry after 15 0 38
awarding the
construction contract
Pay incentives to
property owners that
10 6 0
agree to sell early in the
process
Use of the construction
contractor to acquire
10 6 38
property after awarding
the construction contract
Pay incentives to private
sector companies
0 0 15
performing acquisition
services for your agency

22
CHAPTER SIX
STAKEHOLDER AND PUBLIC INVOLVEMENT
Two areas relating to public involvement and the media were “outsider” speak on their behalf. However, 81% of the agencies
explored in the course of this study effort. The first, covered did use private contractors for this role at least sometimes.
in this chapter, relates to how the agencies engaged their
stakeholders and advanced the typical public involvement
activities. The second area, dealing with media relations, is BRANDING
included in chapter seven.
Sometimes urban projects take on a separate identity. Virtually
everyone in the transportation industry has heard of T-REX
BACKGROUND in Colorado. Those in the Indianapolis area are familiar with
Super 70 because of a major improvement to that corridor some
Stakeholder issues and public involvement increasingly have years ago. I-15 in Utah, the first major DB project constructed
become a major component of urban projects across the by a state DOT, has also achieved a somewhat iconic status.
country. The United States has become a nation of instant com-
munications, with the Internet, Twitter, Facebook, YouTube, Urban projects are often so big, with a huge impact on
and other means for sharing information real time. Transporta- large populations of people, that they become part of life for
tion agencies serve a society whose expectations for accurate the affected citizens over an extended period. In some cases,
and timely information have never been higher. Although agencies have even branded their work through special logos.
this societal trend is not unique to urban projects, the need for The I-64 improvements in St. Louis, completed in late 2009,
more and better communication appears higher than for their are a good example of this. This successful project was branded
rural counterparts. This survey analyzed what activities trans- by using the logo found in Figure 14.
portation agencies undertook to most effectively address
these needs. Utah also adopted a project logo for a number of its urban
projects. The ongoing expansion of I-15 in Utah County,
costing in excess of $1 billion and resulting in a major expan-
WHO SPEAKS FOR THE AGENCY sion of this critical roadway over a three-year period, has
been branded with the logo found in Figure 15.
The first series of questions focused on who spoke for the
agencies during construction. Table 15 shows how they
Surveyed agencies were asked if they specifically branded
responded to whether or not they have a project-specific
urban projects, with responses found in Figure 16. Although
spokesperson or individual to speak to the public or media on
not uniform, the trend is to do something to identify large urban
an urban project.
projects in ways that make them unique for communication
purposes.
Based on agency responses, one-half reported that they
do so “Always” or “Very Often.” Respondents indicated
that when a project-specific person is not assigned, existing INFORMATION STRATEGIES
staff with other responsibilities such as those within a central
community relations/media office typically handle these Keeping stakeholders informed throughout a project has
duties. The resident engineer who is onsite, but not solely become critical during complex urban work. It is a process that
dedicated to public involvement, may also manage handle such has evolved over time and demands sophisticated attention
communications. and effort.
Table 16 identifies the individual who speaks for the agency. The challenge for agencies is not the decision to provide
The question asked, when a specific person was assigned, were information but how best to do it and reach as many individ-
they an in-house employee, or if agencies used consultants for uals as possible. During the I-15 Reconstruction Project in
complex urban corridor projects. In most cases, transportation Salt Lake City in the late 1990s, the author determined that a
agencies retain this particular “spokesperson” role on urban 30-s television spot on the 10 p.m. news on the leading local
projects. Anecdotally, agencies appear to indicate a level of station was discovered to be the most cost-effective way to
trust and confidence in their own employees versus having an get information to a large audience. It was more expensive than

23
TABLE 15
PERCENT OF STATES WHO ASSIGN AN INDIVIDUAL TO MANAGE
STAKEHOLDER ISSUES ON URBAN PROJECTS
Does your agency assign a project specific individual to its urban corridor
projects for the purpose of managing stakeholder issues or
public/community involvement activities?
Options for Answers % of State Response
Never 4
Sometimes 35
Often 9
Very Often 17
Always 35
TABLE 16
EMPLOYEE VERSUS PRIVATE CONTRACTOR TO MANAGE STAKEHOLDER ISSUES
(IN REFERENCE TO QUESTION 40)
Is this person an agency employee? Is this person a private contractor?

Options for Answers (% of state response) (% of state response 2)
Never 0 13
Sometimes 32 64
Often 23 13
Very Often 27 5
Always 18 0
N/A 0 5
N/A = not available.
FIGURE 14 I-64 project logo (St. Louis).

FIGURE 15 I-15 core expansion
logo (Utah).
FIGURE 16 Percentage of individual projects “branded” for communication

or other purposes (see Question 43).

24
FIGURE 17 Activities used to involve and inform stakeholder groups (see Question 44).
other methods, but the audience was substantially greater than ect outreach programs. The second-most effective tool after
that reached by any other tool; therefore, the “per impression” town hall meetings is that which information stakeholders get
cost was very low compared with other strategies. from the agency website or a project-specific website. Addi-
tional comments from agencies are listed in Table 18.
This study solicited feedback concerning which information-
sharing processes were most effective for large urban projects. Further examination of the data in both Figure 18 and
Figure 17 shows how they responded, with additional com- Table 18 offers other insights. For example, even though there
ments in Table 17. is strong correlation between the first six activities in terms
of use, the first public notices in newspapers are seen as being
Of note is the striking uniformity of the responses. This is very effective in the overall process of communicating with
reflected by the top four activities having at least a 90% rate stakeholders. There may have been a time when this provided
among the agencies. the best possible way to communicate with various interested
parties to a project; however, agencies are now finding other
means to be more effective. That they persist in dropping fliers
Figure 18 then reflects on how these agencies felt about the
on doorsteps is curious because this activity is not seen as
effectiveness of various communication strategies used. The
useful. This perhaps represents an area for further research.
results presented in the figure illustrate the large array of com-
munication methods with how agencies view effectiveness.
Although few consider public newspaper notices as an effec- TARGETING STAKEHOLDER GROUPS
tive communications tool, legal requirements and tradition per-
petuate this tool, which is employed by all agencies. Town hall Those unfamiliar with urban corridor construction may not
meetings reflect how public comment has been sought since realize it but the list of stakeholders can be usually long.
our nations’ early years and are a mainstay of many urban proj- “Stakeholder,” when used in the context of complex urban
TABLE 17
Public hearings Illinois
Have news conferences for individual projects Pennsylvania
Transportation System Management (TSM) meetings Arizona
Public announcements Illinois
Mass text message notification Pennsylvania
Metropolitan planning organizations have e-mail distribution about projects Pennsylvania
TSM meetings include ADOT, local governments, contractors, media, DPS, and other Arizona
interested agencies or groups.
DPS = Department of Public Safety.

25
FIGURE 18 Activities found to be effective for involving and informing stakeholder groups (see
Question 45). (Owing to multiple choices percentages do not equal 100%)
TABLE 18
Focus groups, mass media Utah
TSM meetings Arizona
Public announcements Illinois
Agency currently looking into social media as an outreach strategy Oregon
TSM = transportation system management.
construction projects, identifies a wide array of groups and response. Answers reflect the diversity of stakeholder groups
individuals. Each group often requires a specific message. agencies seek for communications purposes.
When asked if they target specific stakeholder groups, the
overwhelming majority of the agencies participating (89%) The second question sought to assess which groups the
said they did. Table 19 explores further which groups were agencies believe were most important to communicate with
targeted for specific mitigation strategies. during a project. The majority of agencies focused on the
following:
The questions asked for this area of the survey may be
understood by context and correlation. The first question • Businesses (78%)
focused on targeted groups and indicated a “yes” or “no” • Residents (70%)
TABLE 19
GROUPS STATE AGENCIES TARGET WITH MITIGATION STRATEGIES—
WHICH GROUPS ARE MOST IMPORTANT
Please check those groups which your
agency has targeted mitigation Of these groups which are most
strategies/plans for dealing with their important to deal with on your
concerns: urban projects?
Group (% of state response) (% of state response 2)
Businesses 87 78
Residents 83 70
Travelers 61 9
Business deliveries 43 9
Truckers 61 4
Commuters 78 35
Elected officials 74 57
Recreationalists 22 0
Sports fans 52 4
Other 13 0

26
• Elected officials (57%) munication strategies offers a glimpse into the diversity of
• Commuters or those using the corridor (35%). attempts to get the “message out” to the people affected by the
project work. The agencies reflected a strong uniformity in the
Communicating with stakeholders is a complex but essen- kinds of efforts they use to communicate with some tradi-
tial part of the delivery process for urban projects. Agencies tional means such as newspapers and fliers being joined by
employ a wide variety of strategies to reach out to an increas- emerging strategies using the web-based communications. Of
ingly long list of stakeholders. Branding or some kind of interest is that some activities or strategies are frequently used
unique identifier is used on most projects, with some focusing but not seen as being effective by the agencies. Why they per-
on the agency and others on a specific project. The list of com- sist in their use could be the subject of additional research.

27
CHAPTER SEVEN
MEDIA RELATIONS
BACKGROUND always use an in-house employee for media management.

One might suppose they would never use private consul-
Working with the media has become an integral part of large tants if they always use in-house staff. However, only 36%
urban construction projects. High daily traffic counts, a public reported never using private sector resources. Research lim-
that is constantly exposed to the vagaries of the construction itations did not fully permit comprehending this disparity.
process, and the collateral impacts of the work on the local The major points taken from the last two questions are: most
community almost demand media attention. agencies use in-house resources to perform this function and,
in only a few cases, use private sector consultants. Also, a
Transportation agencies have changed considerably in trend exists where in-house staffing is augmented by outside
dealing with the media. For example, 30 years ago the Arizona resources.
DOT had a one-person community relations office doing all
media work, writing any newsletters that might be published,
who was always present to take pictures when awards were MEDIA RELATIONSHIP
given out. Today that person has been replaced by a fully
If it is a given that the media will be part of virtually every
staffed office prepared to deal with today’s sophisticated media
major urban construction job, then it stands to reason that a
market. Other state DOTs have taken similar measures given
better understanding of the ensuing relationship with the
the changing public relations demands.
transportation agency is needed. The next series of questions
in the survey explored how the DOTs feel about the media
Twenty-five years ago urban project media work would and this relationship. Figure 19 documents these responses.
have been almost an afterthought in the overall construction The presentation in this figure, with additional comments in
effort. Today, media relations personnel are an integral part of Table 21, shows that 87% of the respondents view the media
the project team. Accordingly, this study sought to understand as at least generally positive. Of that group, 52% view the
which practices transportation agencies were using while also media as a strong partner. Only 9% view the media as never
measuring effectiveness. wanting to provide a positive story. Also, no one said that the
media ignores their projects or that the media is suspect.
WHO SPEAKS TO THE MEDIA
EFFECTIVE COMMUNICATION PRACTICES
The first issue was the question of who actually dealt with or
spoke to the media on large projects. Questions sought to deter- The array of possibilities for communicating with stakeholders
mine who speaks to the media and their employment affiliation. is extensive. Not everyone is totally effective nor is there a
Table 20 reflects how the states responded to each one. single approach that will effectively communicate with all
groups affected by a project. Figures 20 and 21 and Tables 22
On urban projects the majority (56%—“Always” and “Very and 23 reflect the responses to which strategies are used the
Often”) uses a specific person to meet with and speak to the most and that are the most effective.
media. Only 9% never have such a person. These agencies
have the largest capital programs in the country and yet 35% The results show that the following three practices are most
either sometimes or do not have a designated spokesperson. often used when communicating with stakeholders about
Anecdotally, when no spokesperson or media manager is complex urban projects:
designated, public relations duties are handled by someone in
the agency’s central office or fall to the resident engineer or 1. We rely on our relationships with key media people to
project manager. access audiences and get the word out (83%).
2. We rely on the radio to cover our projects when they
In determining whether or not this person is a state employee have time and interest (83%).
or private contractor, analysis of the next two questions offers 3. We rely on television stations to cover our projects
insight but not total clarity. Half the agencies noted that they when they have time and interest (74%).

28
TABLE 20
HOW OFTEN IS AN INDIVIDUAL, AGENCY EMPLOYEE, OR PRIVATE CONTRACTOR
ASSIGNED TO MANAGE MEDIA
Does your agency assign a project-
specific individual to its urban corridor
Project Is this person an agency Is this person a private
projects for the purpose of managing
Specific employee? contractor?
media relations?
Media (% of state response) (% of state response)
(% of state response)
Never 9 0 36
Sometimes 26 23 50
Often 9 9 5
Very Often 17 18 0
Always 39 45 0
N/A 0 5 9
N/A = not available.
The least mentioned three are: another to influence or inform the public. Agencies rely on
relationships with key media people (from Figure 21) and
1. We purchase commercial time with radio stations (22%). believe this also to be the most effective strategy of all those
2. We purchase commercial time with television stations listed. No other strategies were mentioned as successful by
(26%). more than 35% of the participating agencies.
3. Paid “tags” on radio announcements such as traffic
reports (30%). To understand how effectiveness of media relations was
evaluated, the survey asked about performance measurement
Agencies rely on free access to television and radio over paid practices. Figure 22 shows the responses. Sixty-five percent rely
messages at a 4:1 ratio. on past experience to make decisions about strategies to use.
Public feedback at meetings (39%) and focus groups (26%)
The final question from this series asked about the effective- were the next most commonly mentioned. Surprisingly, only
ness of adopted strategies. Figure 21 and Table 23 provide 17% identified stakeholder surveys as a method for determin-
the responses. Clearly, it’s one thing to employ a strategy and ing if a communication strategy is effective. In an era when
FIGURE 19 Best description of agency’s view and relationship with the media (see
Question 53).
TABLE 21
B The Community Relations Coordinator and District Press Officer work on Pennsylvania
these relationships. The media has 24/7 access to the press office. The
Department is proactive in keeping them informed so we get fair coverage.
Overall, we have a good relationship.
B Overall I think they are positive. Some outlets sensationalize but I donít Nevada
think they are well respected in community.

29
FIGURE 20 Strategies used by the agency to communicate information to stakeholders (see Question 54).
(Owing to multiple choices percentages do not equal 100%.)
FIGURE 21 Strategies most effective in communicating information to stakeholders (see Question 54).
TABLE 22
Paid news ads to announce public meetings Oregon
Distribute news releases on major projects Massachusetts
Aggressive press releases, media tours Washington
Community meetings Illinois
PSA when available, social media activities, pitching feature Michigan
Website Tennessee
Public press releases Pennsylvania
Press releases Nevada
Cable TV within the project area(s), community Michigan
Additional signs in the project work zone with website information Pennsylvania
Provide free access to traffic video cameras New York
Reached out to minority groups through Spanish language ads, minority news publications Oregon
including bidding opportunities
Very heavy use of media relations to keep our topics on construction projects in the news Georgia
Traffic information is supplied to the radio and TV from the Traffic Management Center Pennsylvania
PSA = public service announcement.

30
TABLE 23
Unknown Illinois
Social media techniques, project managers broadcast/print interviews Michigan
Website Tennessee
Video cameras New York
Not sure Louisiana
Not sure Nevada
FIGURE 22 How agencies know the effectiveness of media strategies (see Question 56). (Owing to multiple
choices percentages do not equal 100%.)
performance measures and specific metrics are being exam- on their own staff to be the “up front” person dealing with
ined for a multitude of activities in the transportation arena it the media, but sometimes using outside resources to assist
is interesting that so little measurement is used to assess these in those efforts. Fifty-two percent of the agencies reported
strategies. a strong relationship with the media that reflects a delib-
erate effort to establish that connection. The majority (83%)
In reviewing the narrative responses Oregon mentioned rely on this relationship to further the messaging or com-
that social media is being examined. Arizona involves the munication strategies relating to their urban projects. Ulti-
public in Traffic System Management efforts. E-mail, focus mately, this approach reflects a healthy professional rela-
groups, and mass text messaging were also mentioned. tionship and respect that should exist for a positive outcome
on these projects. A particularly interesting point is the lack
Using the media relations and an effective strategy for of metrics and specific data being used to manage and make
using the media to communicate with stakeholders is an decisions relating to use of the media for urban project
important element of urban projects. Agencies are relying communications.

31
CHAPTER EIGHT
MULTI-MODAL
One attribute of constructing projects in urban corridors is Early coordination during the planning and design phases is
that often multiple modes are present in the same or proximate a strategy that most agencies use to address the impacts of
ROW. This can be a benefit when the other modes siphon sharing the ROW with other modes when improving urban
off vehicles or riders and relieve pressure on the rest of the corridors.
corridor. On the other hand, the presence of other modes can
complicate work zones, traffic control, productivity, costs, and If other modes are present in the ROW or adjacent to the
schedules. urban corridor under construction then leveraging that prox-
imity to carry some traffic would appear to be a good idea.
Transportation agencies participating in the survey reported Certainly, much depends on the nature of the project, the
that 69% of their projects either “Always,” “Very Often,” or alternative modes that exist, operational issues, the flexibil-
“Often” have other modes present in the project ROW. This ity of the alternate modes to adjust services to accommodate
frequency demands action to address such unique challenges. construction changes in the corridor, and various public
Figure 23 reflects these data and other findings for this question. policy issues such as available funding. Ultimately, in spite
of the apparent logic in leveraging multiple modes in a single
If other modes are present in the same corridor, then agen- corridor, it actually does not happen very often, as shown in
cies will most likely have to address specific issues during Figure 25.
construction. Among these are:
Only 9% of the responding agencies reported that diverting
• Geometric conflicts
volume to other modes was effective, whereas the majority
• Operational issues during construction
only found some effectiveness in doing so. The “Never” and
• Operational issues after construction is completed
“Sometimes” responses were provided 69% of the time,
• Construction impacts
reflecting a low level of reliance on other modes to accom-
• Dealing with multiple agencies or organizations
modate mobility needs during construction.
• Budgetary constraints present in other agencies or orga-
nizations.
Managing traffic through an urban project is a high priority
What measures are taken to address the operations of these for transportation agencies. This being the case, if agencies
other modes before construction begins is important. Figure 24 found value in using the other modes to help them divert
shows how the agencies responded. traffic to alleviate congestion then they would do so more
aggressively. Part of the reason this may be an issue is the
Note the four most commonly used measures are: relatively low level of ridership or usage that transit, pedes-
trian, and bicycle modes have in urban corridors in the first
• Coordination with other modes during the engineering place. For example, if current ridership on transit in a corri-
design process (87%). dor is 2% to 3% of all users, and this volume doubles during
• Coordination with other modes during the planning construction, the resulting numbers are still very small and
process (83%). barely relevant to the overall travel through the corridor.
• Project-specific meetings/committees with transit agen- Of note is that even with this limited impact on urban con-
cies (83%). struction projects the agencies still overwhelmingly identified
• Project-specific meetings/committees with bicycle and coordination with other modes before and during construction
pedestrian groups (65%). as important activities they engage in.

32
FIGURE 23 Frequency of other transportation modes present in projects

(see Question 58).
Coordination with the other modes during the engineering design process 87
Coordination with other modes during the planning process 83
Project specific meetings/committees with transit agencies 83
Project specific meetings/committees with bicycle and pedestrian groups 65
Permanent ongoing meetings/committees with transit agencies 39
Permanent ongoing meetings/committees with bi.. 30
Other 4
Our agency uses in-house staff who know about the.. 0
No coordination is necessary 0
No meaningful coordination 0
0 10 20 30 40 50 60 70 80 90
FIGURE 24 Measures taken to address other modes prior to construction (see Question 59). (Owing to multiple
choices percentages do not equal 100%.)
FIGURE 25 Reliance on other modes for assistance (see Question 60).

33
CHAPTER NINE
TRAFFIC MANAGEMENT
Managing the substantial volumes of traffic found in these • Colorado makes use of all the strategies found in
urban corridors is, perhaps, the most perplexing problem for Figure 26.
agencies. Sometimes alternative corridors exist to which traffic • Washington State—one focus area is heavy outreach to
can be diverted; traffic movement also can be facilitated by local communities and media before a significant closure.
other means in spite of the major impacts of actual construction. • Michigan deploys temporary ITS devices, tying them
The activities employed by transportation agencies that assist into its permanent system so that they are integrated into
them to effectively manage traffic during construction are its broader management efforts.
relevant to this report. • Missouri extensively uses customer surveys to assess
performance and change activities accordingly.
The first query in the survey asked respondents to list strate- • Pennsylvania uses rolling road blocks as motorists
gies used to manage traffic during construction. Figure 26 approach work zones.
provides this information (see additional agency comments • Several states, including Louisiana, Georgia, and Min-
in Table 24). nesota, shorten construction time to reduce the duration
of traffic impacts.
What is striking when analyzing these results is the uni-
• Traffic management plans are produced by contractors
formity of the responses. The top six strategies had over 80%
in Utah, thus allowing them to sync construction approach
use rates among the states. The second tier of responses, those
and activities.
ranging from 57% to 74%, included six additional approaches.
• Nighttime closures are used by many states.
Thus, the top 12 strategies have a usage rate of at least 57%.
• Indiana considers project phasing to reduce the amount
The agencies provided many useful insights into how they of temporary pavement and construction phase changes.
approach this critically important activity of urban construc-
tion. A short summary of responses provided here illustrates Management of traffic during the construction of urban
this point: projects can be challenging under the best of circumstances.
High-traffic volumes make the work difficult to manage. The
• Ninety-one percent of the agencies used a traffic man- agencies surveyed have identified practices that are common
agement center. in the industry that have been developed and matured over
• Oregon uses a traffic management plan and a web-based many years of experience. The uniformity of application of
work zone traffic analysis tool. these strategies is noteworthy.

34
FIGURE 26 Strategies for managing traffic during construction (see Question 63).
TABLE 24
Motorist assistance patrols Louisiana
Have utilized full or significant closures for extended periods. Heavy media push required Washington
prior.
Full weekend closures Oregon
Weekend work Tennessee
Contractor has a traffic control person, who is on call 24/7. Pennsylvania
Contractor provides full-time traffic control coordinator to monitor traffic inside the project Arizona
ensuring safety and mobility
TMP working group made up of all area agencies and stakeholders to plan and monitor San Francisco
traffic management.
Off-duty uniformed police at traffic signals and along detours. Pennsylvania
TMP = traffic management plan.

35
CHAPTER TEN
CASE STUDIES
To more specifically understand how states manage urban control plans called for closing many exits, with only a
construction contracts, four case studies were examined in few on-ramps and no off-ramps opened. This allowed
detail. This chapter focuses on the details of these four projects. traffic to move more freely through the corridor and
eliminated many of the weave movements typical of
this setup.
INDIANA—SUPER 70 • Business access was a concern in the planning phase of
the project and INDOT took deliberate steps to minimize
The Indiana DOT (INDOT) has tried various strategies to deal the impacts they would experience during construction.
with construction in urban corridors in the Indianapolis metro- The agency spent considerable time working with adja-
politan area. One of those efforts was the Super 70 Project, cent businesses to make sure the public would still be
which involved totally reconstructing 5 miles and eight lanes able to reach these properties. A combination of public
of Interstate 70. This $160 million project was completed in information and communications with the business
9 months. Much of the effort to complete this project involved owners resulted in a successful relationship between the
managing congestion, because the average daily traffic in this state and the important stakeholders. In the end, INDOT
corridor was in the range of 170,000 vehicles. Walsh was the found that these efforts allowed the businesses along the
contractor on this DB project, and American Structure Point, project length to flourish when the opposite could have
Janssen, and Spaans were the engineers. been true.
• Managing the remaining capacity during construction
Specific strategies employed by INDOT included: was paramount to the success of the project. With lane
restrictions and on- and off-ramp movements significantly
• One of the challenges that could have delayed the project impacted, finding ways to maximize capacity became
imperative. In the planning process, the use of movable
was a railroad crossing. INDOT engineers saw the poten-
barriers to change the flow in one freeway lane to accom-
tial impacts of making major changes to the railroad itself.
modate the directional split was determined to be a sound
Consequently, they redesigned the railroad crossing to
approach. The proof was in its successful application to
avoid major impacts and delay. This happened during
the benefit of the users in the corridor.
preliminary engineering so that it would not interrupt
construction.
In all, Super 70 was a great success for the state and the travel-
• Interstate 70 traverses Indianapolis as a key east–west
ing public. It showed how careful planning and thoughtful
corridor, with value regionally as well as nationally in
execution of the plan all contributed to a great project.
terms of freight movement. On any given day truck traffic
accounts for 20% to 25% of all traffic along this corridor.
To accommodate the accelerated construction sequence
MISSOURI—THE NEW I-64
and provide the optimal work areas for the contractor,
lanes were narrowed below the standard 12-ft width. The Missouri DOT (MoDOT) delivered one of its most sig-
With lanes narrowed during construction, it was imper- nificant projects in many years by rebuilding 11 miles of I-64
ative that truck traffic be reduced as much as possible. in St. Louis from west of Spoede Road to east of Kingshighway
To do this the agency sought a change in legislation that Boulevard. The contractor joint venture was called Gateway
allowed them to force trucks to I-465 as a detour and Constructors and consisted of a joint venture of Granite Con-
levy large fines for those who failed to comply. This struction Company, Fred Weber Inc., and Millstone Bangert
diversion was effective and significantly alleviated traffic Inc., with Parsons Transportation and URS as design engi-
in the corridor during construction. neers. MoDOT administered the project with in-house staff.
• Optimizing throughput in the corridor was essential to Work started in March 2007 and the project was finished in
managing congestion and public impacts during con- December 2009. Project work items included 12 traffic inter-
struction. In addition, the accelerated approach stipulated changes, new portland cement concrete pavement, drainage
in the contract allowed the state and contractor to manage features, sound walls, connector roads and streets, and other
merges on and off the freeway. Ultimately, the traffic typical urban work.

36
This $535 million DB project advanced several innova- • A unique approach to the project delivery methodology
tive project approaches worthy of use elsewhere in the coun- included a revision to the normal DB process. In this
try. The following include noteworthy project attributes: case, MoDOT determined that its budget was fixed but
desired that proposers offer their very best value for the
• Management support for the project was evident from available dollars. Sometimes referred to as “fixed price,
the beginning. Pete Rahn, then Director of MoDOT, variable scope,” this approach stipulates the amount of
along with other key members of the management team money available and then encourages the contractors
gave unqualified support to the project and staff. to propose as much scope as possible. In this case,
• The project allowed for closing the corridor in two halves MoDOT believes they received more value for their
to accommodate speedier construction. Milestone incen- budget than if they had used a more traditional procure-
tives and disincentives were established around opening ment approach.
both the east and west halves of the project. The east • During the Environmental Impact Study process, a
half was closed from January to December of 2008, with five-year period, the project manager, Lesley Hoffarth
an incentive of $2 million tied to the on-time reopening. developed relationships with all of the stakeholder groups.
The west half had a similar incentive if completed by She was then able to leverage and service these same
December 2009. In both cases, the contractor achieved relationships during the course of almost three years of
this goal. Actually, the project was completed approxi- construction. The trust developed before construction
mately a year ahead of the overall schedule. Many mem- benefited project staff during intense periods of dis-
bers of the project team associate this schedule gain with ruption to the traveling public during the actual work.
the ability to close down the east and west halves of
the project to create highly efficient construction work The New I-64 Project stands as an exemplar of the use
zones to accomplish the work. This also reduced the of many key strategies for successful urban construction.
number of traffic closures that would have been required Optimizing work zones, effective stakeholder management,
had the complete corridor remained open during the early planning, and effective execution of those plans as well
whole project. were all keys to their success. DB is also given credit by the
• Incentives were not just focused on the early or late team for many of the innovations that brought value to this
completion of the project. MoDOT believed that the important project.
contractor needed a greater stake in the overall success
of the agency’s efforts to address the mobility needs of
the region during construction. Consequently, $1 million NEVADA—US-95 WIDENING
in incentives were offered to the contractor’s work to
promote regional mobility during the contract. Actions In the Las Vegas metropolitan area, the Nevada DOT (NDOT)
assessed by MoDOT to determine payment of this has a most challenging urban environment for significant
amount included traffic signal timing, signage, detour transportation construction projects. Traffic volumes never
management, and context-sensitive mobility issues. seem to decrease, property values are high enough that the cost
Strong collaboration was required to make a difference of purchasing ROW can be a major impediment to advancing
in regional mobility, and the resulting joint efforts paid any project, and business interests have a strong say in how
off with high levels of acceptance by the public of the work is managed. The US-95 widening project was con-
inconveniences precipitated by the construction work structed under these circumstances and was successful in
itself. The full amount of this incentive was earned many ways.
as well.
• A strong public information team was formed with This project was one of six in this corridor and was
Linda Wilson and Dan Galvin leading the effort from designed to widen the freeway from 6 to 10 lanes and add
MoDOT and Gateway Constructors, respectively. The a high-occupancy vehicle lane in each direction from I-15
respective staffs were co-located and operated in a to Warm Springs Road. Frehner was the contractor, with
seamless manner. Responsibilities were divided with- PBS&J as the state’s General Engineering Consultant. The
out regard for who represented which organization and contract format was DBB. Interesting aspects of this project
many innovative public information strategies were that could be considered by other agencies included:
implemented. The transparency of affiliation for Linda
and Dan is noteworthy and reflects how well they worked • NDOT used penalties to ensure on-time pick up of traffic
together. Extensive use of the media, public interactions, control after night closures were completed owing to
very deliberate stakeholder management, and responsive- heavy commute volumes. It understood the impact of a
ness created a strong advocacy in the community for the late “pick up” and wanted the contractor to be sensitive
project. In addition, it was realized that stakeholder to this facet of commuting in the Las Vegas area.
relationships were an evolving effort, with messages • NDOT learned much about project scheduling. In the
and strategies fine-tuned throughout the project. planning process the state took into account many of

37
the factors that influence the project schedule as they The innovative strategies adopted by TxDOT for this
worked to determine the duration of the project. They project reduced the overall construction time frame from ten
recognized that urban construction demands that work years to five, with the resulting benefits accruing to the state,
proceed in a different manner than other typical projects. the contractor, and, most importantly, to the stakeholders on the
Everything from jobsite access, work hours, delivery of project. A number of the state’s innovations deserve mention:
materials, limited work zones, and other constraints all
influence the contractor’s ability to prosecute the work • This contract was originally intended to be divided up
and complete the project. In addition, work activities into five smaller projects and bid in succession as the
take more time and require different organizational efforts schedule allowed. As a result of the compact nature of the
than previously experienced. These factors must be taken job site it was going to be necessary to delay the award
into account so that such contract matters as liquidated of successive contracts to avoid impacts and conflicts
damages, incentives, completion dates, and milestones that would impede the work of adjacent contractors. By
can be properly established. Thoughtful analysis of all going to a single large contract, TxDOT was able to
these factors led NDOT to a better understanding of avoid the conflicts inherent with the smaller successive
the schedule. Time spent planning paid dividends dur- projects.
ing construction that would not have otherwise been • One of the reasons that TxDOT was able to construct
available. the Dallas High Five as one contract was an innovative
• NDOT bid this project as an A+B contract, meaning project financing strategy. On past projects the state
that in addition to price, a time component was associ- would set aside sufficient funding in advance for each
ated with picking the successful bidder. One lesson project and the use of such a practice would have pre-
learned was that they found their schedule for the max- cluded a single large contract owing to cash flow limi-
imum number of days to be so tight that the two firms tations. However, by creating a cash flow model that
bidding the project both selected the maximum number matched available funding to the work being performed,
as the “B” component of their bid. NDOT ultimately the Dallas District was able to create a plan whereby a
derived no schedule benefit from the “B” component of single contract could be awarded and then paid accord-
the bidding process, owing to the extremely tight end ing to the finance plan. TxDOT found savings in over-
date selected by the agency coupled with the work com- all time, reduced costs owing to contract conflicts, and
plexity. This result has caused them to assess their proj- value from economies of scale resulting from going to
ect impacts analysis previously mentioned and will the single contract.
assist them to further refine those efforts to gain a • A unique element of the project consisted in the delayed
greater benefit on future projects. start to the actual construction. The project was awarded
in April 2001, but the notice to proceed for construction
Constructing a project in an urban area such as Las Vegas was not issued until January 2002. It was referred to as
brings with it virtually every challenge possible for such a the “delayed-start” clause. What this did was provide an
project. High-traffic volumes, stakeholder issues that influence extended mobilization period where the contractor
daily decisions, exorbitant ROW expenses, and many other could prepare its forces and equipment for the intense
factors make this work difficult under the best of circum- period of construction that lay ahead. During this time
stances. NDOT did considerable planning leading up to the the contractor performed alternative design work and
contract letting, but concedes it learned lessons about project was able to bring innovations to the bridge design and
scheduling and how that may or may not influence the pro- erection process that saved additional time on the con-
curement of their successful contractor. tract. This would not have been possible without the
extra time allowed for mobilization. Although it may
appear counterintuitive to give more time to save overall
DALLAS HIGH FIVE time this is exactly what TxDOT did. They credit much of
the success of the project to his particular contract clause.
The Dallas High Five project represents a variety of innov- • TxDOT adopted the “windowed milestone” concept for
ative approaches to the construction of a complex freeway specific portions of the project instead of a specific date
interchange under some of the most challenging conditions in for completion of the work. A “windowed milestone”
the country. This DBB project consisted of the reconstruction offered the contractor a specific amount of time to com-
of the interchange between US-75 (North Central Expressway) plete the work, but did not stipulate when the work would
and I-635 (Lyndon B. Johnson Freeway). The original three- occur. In doing so they gave the contractor the flexibility
level facility was rebuilt to a five-level configuration to accom- to schedule and stage its work in an efficient manner.
modate the average daily traffic of 500,000 that pass through TxDOT believes that this strategy ultimately reduced the
the interchange. Valued at $262.9 million, it was the largest amount of time construction was occurring in front of
single contract ever awarded by the Texas DOT (TxDOT) at businesses and thereby significantly mitigated the con-
that time. struction impacts.

38
• Lane rental was another strategy used by TxDOT for outcomes in a complex work environment. They are now
this project. In the contract documents the state offered using many of these same approaches on projects elsewhere
the contractor the opportunity to close lanes and other in the state.
elements of the roadway for periods of time with values
assigned to each. The contractor could then plan its work These four case studies offer a more detailed glimpse into
according to the cost of the impact on the public, with how agencies are using specific strategies to advance their
the rental values varying depending on the time of day. projects and mitigate the normal impacts inherent in urban
TxDOT reported that this strategy resulted in 30% of projects. As noted, no single approach is going to solve all of
the work being performed at night when traffic volumes the problems on a given project but the thoughtful application
were less and the impact on the public reduced. of old strategies that have been successful in the past and
the use of new and innovative tools can bring substantial
The Dallas High Five project is an excellent example of benefits to everyone involved. Tailoring the tools to the
how a transportation agency can implement new tools and projects is the key to their value and the overall success of
even some more seasoned strategies to accomplish positive the effort (35).

39
CHAPTER ELEVEN
CONCLUSIONS
Construction in highly congested urban corridors is challeng- acquisition. Under ideal conditions, all property is cleared and
ing even under the best of circumstances. Traffic volumes are available for access before construction begins. However, of
often measured in excess of 100,000 average daily traffic, the agencies surveyed, about half noted that they do move
right-of-way (ROW) acquisition issues are complex and time ahead to construction without 100% of the parcels cleared.
consuming, and the list of utility conflicts and relocations is
often long and difficult to manage. Additionally, media cov- Stakeholder communication is an essential part of every
erage is typically very focused, adding a measure of visibility urban construction project. The list of stakeholders can be
not present on other projects, and a variety of stakeholders complex and messaging must be adjusted to meet the specific
are impacted. Combining all these elements requires pursu- needs of each group. This study found that one effective strat-
ing the construction process in ways that are innovative and egy for identifying a project is through branding. Branding
effective, and which lead to project completion in accordance gives a project identity and assists in communicating key
with project goals. information to the public. Communication strategies vary from
project to project; however, some specific activities remain
This study gathered information on what transportation constant from project to project. A transition is occurring in
agencies are doing to accommodate the impacts associated the industry as a consequence of society’s changing needs and
with building urban projects. The outcome is a long list of methods for communicating. Although newspapers and fliers
effective strategies that, once implemented, are bringing about are still common, the emergence of web-based tools and
measurable success. platforms is growing significantly. Of interest is that some
activities or strategies are frequently used but not seen as being
Most urban projects do not fall into the “mega-project” effective by the agencies.
category; they are valued at $100 million or less. Typically,
design-bid-build is used as the contracting methodology. Many The use of the media and its involvement in urban projects
strategies address the unique aspects of urban construction is accepted as a routine part of these projects. Although agen-
including special contract provisions, milestones, and incentive cies typically rely on an internal public relations practitioner
and disincentive programs. to be the “face” to the media, instances exist where an agency
has hired an outside contractor or consultant to support
The agencies identified utilities as a major area of concern, internal staff in fulfilling this role. Although one would expect
with the potential for significant financial and schedule impacts the agencies to see the media in an adversarial role, this did
on urban construction projects. It is clear that utility impacts not prove to be true in this study. One-half the agencies
be planned for and dealt with. They are proactive in efforts to reported a strong relationship with the media. In addition,
prevent even more schedule or cost issues than already occur, the majority (80%) rely on strong relationships with the media
with early and ongoing coordination being the keys to miti- to further the messaging or communication strategies relating
gating utility impacts. Early coordination is one key that lessens to urban projects. This situation reflects a healthy profes-
potential impacts. None of the agencies believed the influence sional relationship and respect that must exist for a positive
or issues relating to utilities could be totally eliminated. outcome on these projects. One surprise was the absence of
metrics and specific data that could be used to manage and
This study showed that urban projects are usually affected make decisions relating to use of the media for urban project
by the acquisition of ROWs. Cost overruns and schedule issues communications.
are the most common influences. Condemnations are frequent
and delays are often the outcome. It is not unusual for the In theory, it would appear logical that these projects
acquisition of ROWs to be on the critical path for project leverage all available resources to mitigate traffic impacts
delivery. This study showed that if a residential property goes during construction including using other modes as a means
to condemnation that 95% of the parcels take at least six months for diverting users from their vehicles. This study found that
to acquire, with 30% of the parcels taking more than a year to such efforts to use other modes to be limited in their use
be cleared. In the case of commercial property going through and ultimate value. On the other hand, agencies reported a
condemnation, 53% take more than a year to clear. Agencies clear pattern of early involvement of other modes in their
have added staff to mitigate the impacts associated with ROW planning processes as well as project-specific efforts to at

40
least coordinate how other modes are impacted by the con- examples provide additional insights into beneficial “real life”
struction work itself. application of some interesting initiatives.
Traffic management is at the core of every urban project, Finally, it is clear that no single answer deals with all the
because high-traffic volumes make it a necessity. Striking issues facing transportation agencies during project construc-
commonality exists in the strategies used to mitigate high tion in urban areas—even within the same agency. However,
average daily traffic impacts within project limits. Most orga- using the strategies found in this report may bring meaningful
nizations use standard closure practices, schedule constraints, benefits to capital projects across the country.
incentives, disincentives, and other common tools to accom-
plish this purpose. Proven approaches continue to be used There is much more to be learned about project delivery
with success and satisfaction among the agencies. in urban areas. Specific performance measures for the different
strategies would be useful to quantify potential benefits. The
Four case studies were presented that offered more detail lack of performance data relating to public outreach methods
about specific project attributes. Many of these attributes and their effectiveness speaks to the need for greater use
emerged in the study in some manner. Among the significant of metrics in decision making in this particular area alone. A
findings from the case studies is how the agencies have tailored methodology that would help the agencies bring a cost-benefit
the tools to fit the specific circumstances of each given project, analysis to the decision-making process would be useful and
further evidence that the suite of available tools is not to be assist in selecting the right application or strategy for a given
applied randomly or without thought or consideration but with situation. These areas present opportunities for future research
a deliberate focus on outcomes and impacts. Overall, these into this important subject area.

41
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hpms/abouthpms.cfm. tion, FHWA/TX-0-2129-1, Research Report 0-2129-1,
24. Highway Capacity Manual, Transportation Research Center for Transportation Research, The University of
Board, National Research Council, Washington, D.C., Texas at Austin, 2001, 116 pp. [Online]. Available: http://
2000. www.utexas.edu/research/ctr/pdf_reports/2129_1.pdf.
25. Scriba, T. and L. Feast, “Using Modeling and Simulation 33. Songer, A.D. and K.R. Molenaar, Selecting Design-
Tools for Work Zone Analysis,” ITE Journal, Vol. 79, Build-Build: Public and Private Sector Owner Attitudes,
No. 5, May 2009 [Online]. Available: http://www.all University of Colorado, Boulder, 1997 [Online]. Available:
business.com/transportation/road-transportation-trucking- http://www.colorado.edu/engineering/civil/db/papers/
road/12342476-1.html. slctdb/
26. Gransberg, D.D. and J.S. Shane, NCHRP Synthesis of 34. Best Practices in Project Delivery Management, NCHRP
Highway Practice 402: Construction Manager-at-Risk 20-68A, Scan 7-01, Scan Team Report, Washington, D.C.,
Project Delivery for Highway Programs, Transportation Oct. 2009 [Online]. Available: http://onlinepubs.trb.org/
Research Board of the National Academies, Washington, onlinepubs/nchrp/docs/nchrp20-68A_07-01.pdf.
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org/Main/Blurbs/Construction_ManageratRisk_Project_ High Five Project,” Transportation Research Record:
Delivery_for_Hi_162916.aspx. Journal of the Transportation Research Board, No. 1900,
27. “Accelerating Urban Highway Rehabilitation with Transportation Research Board of the National Acade-
Construction Analysis Software,” FOCUS, FHWA-HRT- mies, Washington, D.C., 2004, pp. 107–113 [Online].
06-026, Turner–Fairbank Highway Research Center, Available: http://pubsindex.trb.org/view.aspx?id=749699.

43
APPENDIX A
Survey Questionnaire
NCHRP Project 20-5

Synthesis Topic 41-09
Techniques for Effective Construction of Highway Projects in Congested Urban Areas
Survey Questionnaire
The National Academy of Sciences (NAS), through the Transportation Research Board (TRB), conducts studies relating to contem-
porary transportation issues. The National Cooperative Highway Research Program (NCHRP) of TRB was established to fund and
execute these research projects and publish these reports. As part of this on-going research program it has become clear that
transportation agencies are facing more and more challenging situations as they construct important road and highway projects in
congested urban areas. M any transportation agencies are seeking solutions to the vexing problems associated with these projects
including right-of-way concerns, utility relocations, high traffic volumes, sensitive stakeholder issues, environmental commitments,
and many more.
This survey is intended to solicit valuable input regarding how your agency is handling a variety of project implementation
challenges and how you are finding success in doing so. This research is being conducted by Tom Warne and Associates, who is
under contract to NCHRP to perform this work. Surveys have been sent to all state DOTs with urban areas that are larger than
1,000,000 residents. In addition, the survey has been sent to selected large cities that are facing similar issues on their urban
corridors.
INSTRUCTIONS
This survey will take approximately 30 minutes to complete. It must be completed at one sitting. Please answer the questions to
the best of your ability. If in doubt, just give us your best answer. The questions have been designed so that you will not have to
go get additional information or run reports to provide the answers sought. You should be able to answer each one based on your
knowledge of what your agency does on these projects. You already know the answers to these questions—we just need you to
respond to each one based on what you know. Your participation in this research effort is greatly appreciated.
If you have any questions about this survey, how the data will be used, or the final report for this project please feel free to contact
the Principal Investigator, Thomas R. Warne, PE of Tom Warne and Associates. His contact information is as follows:
Thomas R. Warne, PE
Tom Warne and Associates, LLC
9874 S. Spruce Grove Way
S. Jordan, UT 84095
801-302-8300 (office)
801-541-2619 (cell)
E-mail: [email protected]
Section 1—Background Information
1. Agency name:
2. Agency address:
3. Your name:
4. Your phone number:
5. Your e-mail address:
6. Your position:
7. How many years have you been with your agency?
a. Less than 1
b. 1–5
c. 6–10
d. 11–20
e. More than 20
8. How many years have you been in your position?
a. Less than 1
b. 1–5
c. 6–10
d. 11–20
e. More than 20

44
Section 2—Capital Program Characteristics
9. What is the size of your agency’s annual capital improvement program?

a. Less than $100 million
b. $101–200 million
c. $201–500 million
d. $501 million—1 billion
e. More than $1 billion
f. Comments:
10. Construction work in congested urban corridors can take many forms. Please identify the kind of work your agency
does on your urban corridors. (Check all that apply.)
a. Improvements on urban arterial streets with only some access control
b. Improvements on urban arterial streets with aggressive access control
c. Improvements on controlled access highways
d. None of the above
e. Comments:
11. If you had to identify a trend in the project types most often constructed on the urban corridors by your agency, which of
the following would be the most prevalent? (Check all that apply.)
a. No discernable trend
b. Minor non-pavement or safety improvements [landscaping, Intelligent Transportation System (ITS), sign
replacement, signal synchronization]
c. Minor pavement and safety rehabilitation (pavement rehabilitation or overlay, minor improvement to safety
features)
d. Major pavement and safety rehabilitation [pavement replacement, major improvements to safety features (e.g.,
barrier replacement)]
e. Major reconstruction including new capacity, pavement replacement, new structures
f. Other—Please specify:
g. Other—Please specify:
h. Comments:
12. Has your agency taken any special measures to address the issues associated with constructing projects in congested
urban corridors?
a. Yes
b. No
c. Not sure
d. Comments:
13. Are these special measures taken as individual project measures or are they programmatic? (e.g., Are you using
acceleration programmatically or on a project by project basis?)
a. Individual projects
b. Programmatic
c. Describe any programmatic measures taken:
14. What types of actions has your agency taken to address the issues associated with construction of projects in congested
urban corridors? (Check all that apply.)
a. No actions
b. Organizational or structural changes in your agency
c. Changes in staffing (e.g., additional staff, staff reductions, hiring individuals with different skill sets, etc.)
d. New or different equipment
e. Different contracting methods (e.g., design-build, job order contracting, CM/GC, A+B, etc.)
f. Work hour modifications
g. Coordination with local communities
h. New or specialized training for employees
i. More use of consultants
j. Context Sensitive Design or Context Sensitive Solutions
k. Pay differentials for employees working on these projects
l. Other—Please specify:
m. Other—Please specify:
n. Comments:

45
Section 3—Project Delivery Strategies
15. Which is the most commonly used project delivery method (by number of projects) on your urban corridors?
(Select one.)
a. Design-bid-build
b. Design-bid-build with A + B
c. Design-build
d. Construction Manager/General Contractor (CM/GC)
e. Construction Manager at Risk (CM at R)
h. Comments:
16. What are the reasons for choosing the method identified in Question 15? (Check all that apply.)
a. Shorter construction schedule
b. Price certainty (knowing what the final cost will be)
c. Opportunities for innovation on the part of designers
d. Opportunities for innovation on the part of contractors
e. Ease of contract administration on the part of your agency
f. Improved management of traffic during construction
g. Improved management of stakeholder issues during construction
h. Pressure or input from industry groups or associations
i. Required by rule or law
j. Pressure or input from elected officials
k. Other—Please specify:
m. Comments:
17. Do you use financial incentives for accelerating construction in your congested urban corridors?
a. Yes
b. No
If the answer to Question 17 is “Yes” then please answer the following. If Question 17 is “No” then proceed to Question 18.
18. What are the reason(s) for using incentives on your urban corridor projects? (Check all that apply.)
a. Shorten the construction schedule
b. Improve the overall quality of the project
c. Finish the project and open it by a certain date
d. Promises to the public or elected officials
e. Reduce the impact of construction on the traveling public
g. Other—Please specify
h. Comments:
19. Do you use financial disincentives for construction in your urban corridors?
a. Yes
b. No
If the answer to Question 19 is “Yes” then please answer the following. If Question 19 is “No” then proceed to Question 20.
20. What are the reason(s) for using disincentives on your urban corridor projects? (Check all that apply.)
h. Comments:
21. Does your agency use both financial incentives and disincentives on the same urban corridor projects? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:

46
22. Describe a project delivery technique that your agency uses to more effectively construct projects in urban corridors
which would be of value to other agencies.
Section 4—Utilities
23. How often do utilities have a significant impact on the reconstruction efforts of urban corridors? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:
24. What is the nature of the impacts utilities have on the construction efforts in urban corridors? (Check all that apply.)
a. Financial
b. Schedule
c. Quality of the work
d. Stakeholder relations
e. Contract administration activities on the part of the agency
f. Number of bidders on a project
h. Other—Please specify:
i. Comments:
25. What strategies has your agency used to mitigate the impacts of utilities on the urban corridor construction projects
administered by your agency? (Check all that apply.)
a. Early coordination with impacted utility companies
b. Payment of some relocation expenses even if not required by law
c. Payment of all relocation expenses even if not required by law
d. Litigation
e. Modifying state law to require more effective coordination between your agency and the utility companies
f. On-going project specific coordination meetings with utility companies even before construction is started
i. Comments:
26. Which of the following has your agency found to be most effective in dealing with the impacts of utilities in congested
urban corridors? (Check 2.)
d. Litigation
e. Modifying state law to require more effective coordination between your agency and the utility companies
f. On-going coordination meetings with utility companies even before a specific project is started
i. Comments:
27. Describe a technique your agency has used to mitigate the impact that utilities have had on your urban corridor projects
which you would like to share with other agencies?
Section 5—Right-of-Way
28. In what way does right-of-way acquisition and related activities impact urban corridor construction in your agency?
(Check all that apply.)
a. Construction schedule (delays)
b. Project schedule (delays before construction or letting)
c. Project costs (increases)
d. Increased project administration effort on the part of your agency
e. Decreased interest from potential bidders
f. Issues or problems with local communities
g. Issues or problems relating to property owners who are not acquired
i. Other—Please specify:
j. Comments:

47
29. What is most difficult about the right-of-way acquisition process in your state as it relates to constructing projects in
urban corridors? (Check 3.)
a. Statutory restrictions on the process
b. Too little time to complete acquisitions
c. Inadequate funding
d. Property owner expectations for compensation
e. Legal processes
f. Relocation of residential property owners
g. Relocation of commercial property owners
h. Staffing shortages
i. Real estate market conditions
j. Inability to hire outside staff to augment agency resources
m. Comments:
30. What is the average time to acquire a residential property that doesn’t require condemnation?
a. Less than one month
b. Two to three months
c. Four to six months
d. Six months to a year
e. More than a year
f. Comments:
31. What is the average time to acquire a residential property when condemnation is required?
e. More than a year
f. Comments:
32. What percentage of residential properties required condemnation on your urban corridor projects?
a. None
b. Less than 5%
c. 5–10%
d. 10–25%
e. 25–50%
f. More than 50%
g. Comments:
33. What is the average time to acquire a commercial property that doesn’t require condemnation?
e. More than a year
f. Comments:
34. What is the average time to acquire a commercial property where condemnation is required?
e. More than a year
f. Comments:
35. What percentage of commercial properties requires condemnation on your urban corridor projects?
a. None
b. Less than 5%
c. 5–10%
d. 10–25%
e. 25–50%
f. More than 50%
g. Comments:

48
36. Which of the following strategies does your agency employ to deal with right-of-way issues relating to construction
projects in urban corridors? (Check all that apply.)
a. Add additional staff to accelerate the acquisition process
b. Pay incentives to property owners that agree to sell early in the process
c. Use private sector resources to fill critical roles and augment agency staff (e.g., appraisers, relocation
specialists, etc.)
d. Pay incentives to private sector companies performing acquisition services for your agency
e. Advertise projects before all parcels have been acquired or right of entry secured
f. Award projects before all parcels have been acquired or rights of entry secured
g. Use of the construction contractor to acquire rights of entry after awarding the construction contract
h. Use of the construction contractor to acquire property after awarding the construction contract
j. Other—Please specify:
k. Comments:
37. Of the options listed in Question 36, which do you find to be the most effective in dealing with the impacts of right-of-
way acquisition on the urban corridor projects constructed by your agency? (Check 3.)
specialists, etc.)
k. Comments:
38. Of the options listed in Question 37, which do you find to be the least effective in dealing with the impacts of right-of-
way acquisition on the urban corridor projects constructed by your agency? (Check 3.)
c. Use private sector resources to fill critical roles and to augment agency staff (e.g., appraisers, relocation
specialists, etc.)
k. Comments:
39. Describe right-of-way acquisition techniques that your agency uses that make the process more effective which you
believe would bring value to other agencies.
Section 6—Stakeholder/Public Involvement
For the purposes of this survey, stakeholder/public involvement is defined as those activities directed at specific groups of
individuals or entities impacted by a project. For example, homeowners adjacent to the project and emergency medical services
are included in this group. Activities associated with working with the media, press releases or other public relations work is not
part of this section of the questionnaire.
40. Does your agency assign a project specific individual to its urban corridor projects for the purpose of managing
stakeholder issues or public/community involvement activities? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:

49
41. Is this person an agency employee? (Check one.)

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:
42. Is this person a private contractor? (Check one.)

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:
43. Are individual projects “branded” (giving the project a unique identity, logo, name or reference) for communications or
other purposes? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:
44. What activities does your agency use to involve and inform stakeholder groups on your urban corridor projects? (Check
all that apply.)
a. Town hall meetings
b. Public notices in the newspaper
c. Project specific website
d. Project specific web information found on your agency’s general website
e. Phone calls
f. Flyers distributed to residences or building occupants
g. Door to door visits by project personnel
h. Other newspaper advertising or stories
i. Mail distribution
j. Radio coverage
k. Television coverage
l. Social media (Facebook, Twitter, etc.)
m. Blog
n. Other—Please specify:
o. Other—Please specify:
p. Comments:
45. Which activities does your agency find to be most effective for involving and informing stakeholder groups on your
urban corridor projects? (Check 3.)
e. Phone calls
i. Radio coverage
j. Television coverage
k. Social media (Facebook, Twitter, etc.)
l. Blog
m. Other—Please specify:
n. Other—Please specify:
o. Comments:
46. Has your agency targeted specific stakeholder groups such as businesses with mitigation efforts?
a. Yes
b. No
c. Comment:

50
47. Please check those groups which your agency has targeted mitigation strategies/plans for dealing with their concerns:
a. Businesses
b. Residents
c. Travelers
d. Business deliveries
e. Truckers
f. Commuters
g. Elected officials
h. Recreationalists
i. Sports fans
l. Comments:
48. Of these groups which are most important to deal with? (Select 3.)
a. Businesses
b. Residents
c. Travelers
e. Truckers
f. Commuters
h. Recreationalists
i. Sports fans
l. Comments:
49. What techniques is your agency using to effectively deal with stakeholder groups that you believe would be of value to
other agencies?
Section 7—Media Relations
For the purpose of this survey media relations are those activities focused on communicating with the media (e.g., television,
radio, newspaper, etc.).
50. Does your agency assign a project specific individual to its urban corridor projects for the purpose of managing media
relations? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comments:

51
53. Which of the following best describes your agency’s view and relationship with the media? (Check one.)
a. The media is suspect and we don’t interact with them any more than we have to
b. The media isn’t looking for good news so they never write or say positive things about our agency or its
projects
c. The media has been neutral about our projects and largely ignore us
d. The media has responded in a generally positive way to our efforts to work with them
e. The media has been a strong partner in getting critical information to the public during construction
h. Comments:
54. Which of the following strategies does your agency use to communicate information to stakeholder groups? (Check all
that apply.)
a. Free “tags” on radio announcements such as traffic reports
b. Paid “tags” on radio announcements such as traffic reports
c. We rely on the radio to cover our projects when they have time and interest
d. We rely on television stations to cover our projects when they have time and interest
e. We purchase commercial time with radio stations
f. We purchase commercial time with television stations
g. Editorial board meetings
h. We rely on the relationships we have with key media people to access their audiences and get our word out
k. Comment:
55. Which of the strategies listed in Question 54 are most effective for your agency in getting information to your
stakeholders? (Check no more than three.)
a. Free tags on radio announcements such as traffic reports
b. Paid tags on radio announcements such as traffic reports
e. We purchase commercial time on radio stations
f. We purchase commercial time on television stations
g. We rely on the relationships we have with key media people to access their audiences and get our word out
j. Comment:
56. How did you know which ones to check in Question 55? (Check all that apply.)
a. Surveys of stakeholders
b. Experience
c. Informal statistics we keep based on calls to the agency
d. Feedback from the media
e. Public feedback at meetings
f. Neighborhood groups
g. Focus groups
j. Comment:
57. What techniques is your agency using to effectively deal with media relations that you believe would be of value to other
agencies?
Section 8—Intermodal Issues
58. How often are other modes (e.g., transit, bicycle, pedestrian) present in your congested urban corridor projects? (Check
one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comment:

52
59. If other modes are present in your urban corridor projects what measures do you take to address their operations before
construction? (Check all that apply.)
a. Coordination with other modes during the planning process
b. Coordination with the other modes during the engineering design process
c. Permanent on-going meetings/committees with transit agencies
d. Permanent on-going meetings/committees with bicycle and pedestrian groups
e. Project specific meetings/committees with transit agencies
f. Project specific meetings/committees with bicycle and pedestrian groups
g. No meaningful coordination
h. No coordination is necessary
i. Our agency uses in-house staff who know about the other modes so no external coordination is necessary
l. Comment:
60. Do you rely on the other modes to assist with throughput in the urban corridor during construction?
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. Comment:
61. How effective are the other modes in diverting traffic from automobiles and relieving congestion pressure during
construction of your urban corridors? (Check one.)
a. Not effective at all
b. Some effectiveness
c. Moderate effectiveness
d. Very effective
e. Not applicable
f. Comment:
62. What techniques is your agency using to effectively deal with other transportation modes that you believe would be of
value to other agencies?
Section 9—Traffic Management Issues
63. What strategies does your agency use to manage traffic during construction of projects in urban corridors? (Check all
that apply.)
a. Partial closures during the day
b. Partial closures during the night
c. Full closures during the day
d. Full closures at night
e. Aggressive detour routing
f. Some detour routing
g. Lane rental specifications
h. Penalties for late opening of closures
i. Milestones and/or construction phasing
j. Contractor developed traffic control plan
k. Agency developed traffic control plans
l. Contractor provided traffic control
m. Agency provided traffic control
n. Use of in-place ITS resources
o. Use of temporary ITS resources provided by the agency
p. Use of temporary ITS resources provided by the contractor
q. Other—Please specify:
r. Other—Please specify:
s. Comment:
64. What techniques is your agency using to effectively deal with traffic management that you believe would be of value to
other agencies? (Text block)
65. Given that traffic control and management are a substantial cost element for urban projects, how has your agency
endeavored to reduce these costs? (Text block)

53
66. Do you have a project that would be useful to share with other agencies that we could explore in greater detail as a case
study?
a. Yes
b. No
c. Not sure
If you answered “yes” to Question 66, what project is it and who would be the contact person to get further information?
67. Does your agency have or use a traffic management center (TOC, TMC) to help deal with project and program travel
demand management?
a. Yes
b. No
c. Comment:
68. What has your agency done to comply with the Federal regional mobility requirements for coordination of program
within urban areas?
Thank you for taking the time to participate in this survey. Your input is greatly appreciated and will contribute in a meaningful
way to the conclusions and recommendations for this report.
SUBMIT

54
APPENDIX B
Narrative Survey Responses
Section 1—Background Information
Section 2—Capital Program Characteristics
9. What is the size of your agency’s annual capital improvement program?

b. $101 million–$200 million
c. $201 million–$500 million
d. $501 million–$1 billion
Comments:
5 Based on 08-11 STIP program; Includes only $13.2 million for Columbia River Crossing Oregon
(CRC) project (Joint project by ODOT and WSDOT).
5 INDOT within current historic level of capital program investment between FY 2010–2012. Indiana
5 Includes Planning/Environment, ROW, Preliminary Engineering, Construction, and Tennessee
Maintenance.
10. Construction work in congested urban corridors can take many forms. Please identify the kind of work
your agency does on your urban corridors. (Check all that apply.)
a. Improvements on urban arterial streets with minimal access control
b. Improvements on urban arterial streets with aggressive access control
c. Improvements on controlled access highways
d. All of the above
e. None of the above
Comments:
11. If you had to identify a trend in the project size most often constructed on the urban corridors by your
agency which of the following would be the most prevalent?
b. $101 million–$200 million
c. $201 million–$500 million
d. $501 million–$1 billion
Comments:
4 State and federal funded projects generally under $100M, but developing several public Texas
private partnerships over $500M.
1 Many of the smaller projects are around $1 million. Louisiana
1 Typical is less than $100M. However we have several in excess of the threshold. Utah
1 WSDOT is engaging in several multi-million dollar mega projects. Washington
1 State and federal funded projects generally under $100M but developing several public New York
private partnerships over $500M

55
12. Has your agency taken any special measures to address the issues associated with constructing projects
in congested urban corridors?
a. Yes
b. No
Comments:
1 The Seattle area has an aggressive Traffic Control Management plan which controls all Washington
projects
1 Multiple projects at once, expedited schedule, night work, freeway closures for entire project Michigan
or for a few days at a time.
1 Using Traffic Management Plans, the maintenance and protection of traffic as shown on the Pennsylvania
plans are placed directly in the contract as a pay item, so that the contractor knows upfront
the responsibilities. Roadwork Restriction Permitting: notification to the traffic unit of proposed
lane closures, so they can be coordinated with other projects and events in the area. Project
Design is changed so that closures are not as long. Contra flow lanes have two lanes during
peak hours, shut one down during work, splitting directional lanes over structures or have lane
rentals to shorten closures. Work with local municipalities and developers on Highway
Occupancy Permits.
1 Addressed in ADOT’s Work Zone Safety and Mobility Policy. Arizona
1 Independent project reviews with numerous stakeholders and experts. New York
If the answer to Question 12 is "Yes" then please answer the following. If Question 12 is "No," then proceed
to Question 15.
13. Are these special measures taken as individual project measures or are they programmatic? (e.g., are you
using acceleration programmatically or on a project by project basis?)
a. Individual projects
b. Programmatic
c. Both
Describe any programmatic measures taken.
3 OTIA 3 Bridge Program has been delivered based on the programmatic basis by bundling or Oregon
on an individual project basis.
3 Alternate Contracting, P+T (A+B) bidding on all projects, Accelerated Construction Utah
Methodologies, and Community Council Public Incentives.
3 Context Sensitive Design Guide, policy encouraging alternatives in design and construction. Mass
2 Some outlying areas are controlled at the project level. Washington
3 R/W cost incentives. Indiana
3 All major projects in Ohio are approved as part of a system/programmatic basis but with Ohio
special considerations.
3 Consideration of combining and coordination of planned projects. Tennessee
3 The programmatic measures of Smart Transportation, Context Sensitive Design, Context Pennsylvania
Sensitive Solutions, and FHWA environmental agreements are used during design. Every
project starts with a general Traffic Management Plan that is then adjusted using a tool box of
items such as road users liquidated damages, lane rentals, and night or off-peak work hours.
3 Night time closures, liquidated damages for failure to open roadways in a timely manner, Arizona
communication and public involvement.
3 Required traffic management plans, coordination of closures by using a transportation California
management center.
3 Context sensitive design, sustainability policy San Francisco
14. What types of actions has your agency taken to address the issues associated with construction of
projects in congested urban corridors? (Check all that apply.)
a. No actions
b. Organizational or structural changes in your agency
c. Changes in staffing (e.g., additional staff, staff reductions, hiring individuals with
different skill sets, etc.)

56
d. New or different equipment

e. Different contracting methods (e.g., design-build, job order contracting, CMGC,
A+B, etc.)
f. Work hour modifications
g. Coordination with local communities
h. New or specialized training for employees
i. More use of consultants
j. Context Sensitive Design or Context Sensitive Solutions
l. Other—please specify:
Lane rental, milestones, incentives and disincentives for completion. Texas

Full partnering on projects with local agencies. Washington
Special coordination and use of two step Design Build recently used. Ohio
Night-time construction New York
Implemented design exceptions to achieve designs more appropriate for urban settings. San Francisco
m. Other—please specify:
Comments:
These actions are not specific to congested urban corridors Louisiana

Most work in congested urban areas is done as night or off-peak business hours. Metropolitan Pennsylvania
Planning Organizations attend meetings with community stakeholders. Less complex projects
have used design-build. Some projects have used the traffic sensors in the area Intelligent traffic
systems to inform the community of construction delays.
Standard is Design-Bid-Build. Alternative contracting methods is relatively new to us. Nevada
Section 3—Project Delivery Strategies
15. Which is the most commonly used project delivery method (by number of projects) on your urban
corridors? (Check one.)
a. Design-bid-build
b. Design-bid-build with A + B
c. Design-build
d. Construction Manager/General Contractor (CM/GC)
e. Construction Manager at Risk (CM at R)
f. Other—please specify:
Prime contractor Michigan
Comments:
Most common by #. However, by contract amount, D/B, and CM/GC significantly outweigh the Utah
numbers.
We are also starting to use Design-Build and are looking at A+B. Massachusetts
Have done some A+B as well. Tennessee DOT
The Department has done some Design-build, A+B, and Construction Managers, but are not the Pennsylvania
most common.
Design-Bid-Build has been our standard. We have done A+B in past but rarely. We are Nevada
working on our 2nd Design-Build and have plans for a third. We are also very interested in
CMGC but need legislation.
New York does not have enabling legislation for design-build for the agency. New York

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16. What are the reasons for choosing the method identified in Question 15? (Check all that apply.)
a. Shorter construction schedule
b. Price certainty (knowing what the final cost will be)
c. Opportunities for innovation on the part of designers
d. Opportunities for innovation on the part of contractors
e. Ease of contract administration on the part of your agency
f. Improved management of traffic during construction
g. Improved management of stakeholder issues during construction
h. Pressure or input from industry groups or associations
i. Required by rule or law
j. Pressure or input from elected officials
Design-bid-build is our standard practice; we use design-build on a limited basis. Louisiana

Traditional method for bulk of contracts. Alternatives being tested and considered. Massachusetts
Design-Bid-Build is the traditional project delivery method used at CDOT. Colorado
The reality is that the majority of work in our urban areas is approached through traditional Washington
methods.
It is our standard contracting method, thus it is used on most projects. Oregon
Standard procedure. Michigan
Our standard method used for many years. Nevada
Low bid. Arizona
m. Other—please specify:
Comments:
We utilize DB and CMGC on all “major” urban projects as well as many small Low-Bid D/B Utah
projects in the urban area for the reasons identified.
State law limited the amount of projects GDOT could build using design-build. The law was Georgia
changed this year so some restrictions will be lifted this summer.
Main reason for use of DBB is that it is required by law. FDOT is permitted by law to use other Florida
innovative contracting types and does so often. There is a limitation within the statutes on how
much of the work program can be delivered with innovative or alternative contracting methods.
17. Do you use financial incentives for accelerating construction in your congested urban corridors?
a. Yes
b. No
to Question 19.
18. What are the reason(s) for using incentives on your urban corridor projects? (Check all that apply.)
g. other—Please specify:

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Comments:
Material Incentives are used on all projects regardless of location. Time incentives are also used Utah
to accomplish the outcomes identified.
We use financial incentives occasionally. NOT on all projects. Michigan
Only used on a case by case basis. Most projects do not have incentives. Nevada
Prior to budgeting issues, FDOT used Incentives/Disincentives on many of its urban, higher profile Florida
projects. Have had to scale this back presently due to funding.
19. Do you use financial disincentives for construction in your urban corridors?
a. Yes
b. No
to Question 21.
20. What are the reason(s) for using disincentives on your urban corridor projects? (Check all that apply.)
Reduce the number of bidders with limited resources. Colorado

Reduce bad press of an ongoing project. Pennsylvania
g. Other—please specify:
Maintain contract work schedule to avoid special community events Pennsylvania
Comments:
Liquidated damages are considered as disincentives. Oregon

See comments for question 18. Utah
Disincentives are in the construction contract as road users liquidated damages. Pennsylvania
FDOT matches its incentives with equal disincentives. Florida
21. Does your agency use both financial incentives and disincentives on the same urban corridor projects?
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
Comments:
Sometimes I-5/Kruseway was the only project in Portland metro area, where this was utilized. Oregon
Always Incentive and disincentives apply on all projects. Utah
Always FDOT matches its incentives with equal disincentives. Florida

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Very Often Incentive—material quality; disincentive—reduce construction impact. Arizona

Very Often I/D clauses, A+B, lane rental. New York
22. Describe a project delivery technique that your agency uses to more effectively construct projects in
urban corridors which would be of value to other agencies.
Comment:
Lane Rental. Colorado

Design build is used to accelerate the pre-construction process. Louisiana
Discussed at various subsections of the survey. Oregon
Design Build, CMGC and Low-Bid Design Build. Utah
N/A. Massachusetts
Increased usage of alternative contracting such as Design-Build. Colorado
Traffic Management Strategies—engaging how to construct early on in a project. Washington
We have used weekend closures to allow contractors to work without dealing with traffic. Oregon
Lane or ramp rental. Contractor is “charged” for the length of time the lane or ramp is closed. Michigan
Two-step design-build. Ohio
Interstate road closure. Missouri
Included utility relocations as part of the contract. Tennessee
Usual mode of project delivery is Design-Bid-Build; however, the Department is beginning to rely Pennsylvania
on Design-Build projects for minor projects. The contractor submits plans to the district for review.
All of the required engineers review the plans at the same time. The first review has 10 days then
subsequent reviews have 5 days. For an extra fee, the contractor can have a faster review. The
contractor can also request that a consultant review the plans.
A+B with I/D has been used often with success. Also, DB with me /D or bonus. Florida
We always utilize design-bid-build. Chicago
Combination Design-Build, A+B and workmanship incentives. Arizona
Design, bid, build with A + B. This allows a contractor to shorten the duration by using efficiencies. California
This method is used when there are lower risks due to utilities, etc.
We always utilize design-bid-build Chicago
Project specific work-zone constructability reviews (bidability, buildability, M&PT) with construction New York
industry, engineering industry, state police, FHWA, in-house experts and outside experts.
Public private partnerships (P3) San Francisco
Section 4—Utilities
23. How often do utilities have a significant impact on the reconstruction efforts of urban corridors? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
Comments:
Sometimes Depends on the scope of the project. Ohio

Sometimes FDOT works closely with utility agencies to try to have facilities out of the way for Florida
construction.
If the answer to Question 23 is "Never," then proceed to Question 27.

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24. What is the nature of the impacts utilities have on the construction efforts in urban corridors? (Check all
that apply.)
a. Financial
b. Schedule
c. Quality of the work
d. Stakeholder relations
e. Contract administration activities on the part of the agency
f. Number of bidders on a projects
Coordination with other infrastructure projects can be impacted. Colorado

h. Other—please specify:
none
Comments:
none
25. What strategies has your agency used to mitigate the impacts of utilities on the urban corridor
construction projects administered by your agency? (Check all that apply.)
d. Litigation
e. Modifying state law to require more effective coordination between your agency and the utility
companies
f. Ongoing project specific coordination meetings with utility companies even before construction is
started
Contracted project specific utility location staff to represent a local public utility owner during Oregon
construction.
h. Other—please specifies:
With prior approval utility has been incorporated into the construction contract, when the work was Pennsylvania
completed, the utility has reimbursed the state for the cost.
Subsurface Engineering (potholes) to identify conflicts. Nevada
Separate and advance utility relocation contracts San Francisco
Comments:
Payment for utility relocation is precluded by constitution in Washington State. Washington

Communication with the utilities is proactive. The utilities are notified annually of upcoming Pennsylvania
construction projects in their area. Utilities are invited to state quarterly meetings and regionally
bimonthly meetings to discuss upcoming highway projects. To coordinate work schedules for
specific projects the utilities are invited to scoping and design field views and then during
construction they are invited to the bi-weekly construction meetings.
26. Which of the following has your agency found to be most effective in dealing with the impacts of utilities
in congested urban corridors? (Check 2.)
d. Litigation

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e. Modifying state law to require more effective coordination between your agency and the utility
companies
f. Ongoing coordination meetings with utility companies even before a specific project is started
g. Other—Please supply:
We have not found an effective method. Colorado

Including utility costs in contractor bid price for Lump Sum D/B projects to incentivize minimization Utah
of utility relocations.
On DB—WSDOT has transferred our legal rights to the contractors. Washington
None of the above. Illinois
Include relocation as part of the contract so the prime contractor is responsible. Tennessee
Separate construction contract for early relocation of utilities. Arizona
h. Other—Please supply:
Comments:
27. Describe a technique your agency has used to mitigate the impact that utilities have had on your urban
corridor projects which you would like to share with other agencies?
Comment:
Adding utility work to the contract. Oregon

Including utility relocation costs and relocation work in contractor scope on DB projects. Any Utah
unused “budget” is shared by contractor and Department. Any overrun is likewise shared.
Each District has an employee assigned to do early utility coordination during design. Massachusetts
# 25 E. Colorado
N DB—WSDOT has transferred our legal rights to the contractors. Washington
Have INDOT contractor construct utility relocation as part of contract, have INDOT contractor Indiana
oversee and verify locations of utility relocations, purchase utility easements as part of right-of-
way purchasing.
Subsurface utility engineering and including the utility work into the highway contract thereby Georgia
eliminating the “third party” work on construction.
Early coordination is the key. Ohio
To reduce impact on both agencies, the Department has employed utility location services during Pennsylvania
design to perform subsurface investigations to identify where underground facilities are located,
so that they can be avoided if possible. Part of the coordination efforts between the Department
and utilities is to match up resources for projects. Utility companies are downsizing, so scheduling
work for projects with the Department has become more critical. The Department has used the
technique Substitute Right-of-Way, where the Department will acquire the right-of-way for the
utility during the design process and for some projects the Department will contract the work with
the utility reimbursing the costs. The Department has participated on websites that share utility
information.
(See question 26 g.) Arizona
Communication, communication, communication and collaboration, and coordination! California
Section 5—Right of Way
28. In what way does right of way acquisition and related activities impact urban corridor construction in your
agency? (Check all that apply.)
a. Construction schedule (delays)
b. Project schedule (delays before construction or letting)
c. Project costs (increases)

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d. Increased project administration effort on the part of your agency

e. Decreased interest from potential bidders
f. Issues or problems with local communities
g. Issues or problems relating to property owners who are not acquired
h. Other—please specify:
Dealing with commercial properties that have leases or franchises in another state. Pennsylvania
I. Other—please specify:
Comments:
WSDOT avoids acquisition of ROW during construction. May be used on upcoming DB Washington
project(s).
The biggest issues are the lack of lead time given to projects which require R/W and the lack of Pennsylvania
R/W plan detail.
29. What is most difficult about the right of way acquisition process in your state as it relates to constructing
projects in urban corridors? (Check up to 3.)
a. Statutory restrictions on the process
b. Too little time to complete acquisitions
c. Inadequate funding
d. Property owner expectations for compensation
e. Legal processes
f. Relocation of residential property owners
g. Relocation of commercial property owners
h. Staffing shortages
i. Real estate market conditions
j. Inability to hire outside staff to augment agency resources
k. Other—please specify:
Dealing with tribal lands. Arizona

Comments:
30. What is the average time to acquire a residential property that doesn’t require condemnation?
e. More than a year
Comments:
This is acquisition time after the appraisal has been completed and reviewed. Michigan
For questions 30–35 the responses are for a whole property take. If the property has material and Pennsylvania
equipment to be sold off of it, the time will be more than a year.

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31. What is the average time to acquire a residential property when condemnation is required?
e. More than a year
Comments:
18–24 Months. Condemnation of residential is rare. Nevada

No Experience San Francisco
32. What percentage of residential properties required condemnation on your urban corridor projects?
a. None
b. Less than 5%
c. 5–10%
d. 10–25%
e. 25–50%
f. More than 50%
Comments:
We do not keep "urban corridor" records. Colorado
33. What is the average time to acquire a commercial property that doesn’t require condemnation?
e. More than a year
Comments:
This is the acquisition time after the appraisal has been completed and reviewed. Michigan
34. What is the average time to acquire a commercial property where condemnation is required?
e. More than a year
Comments:
We do not keep “urban corridor” records. Colorado

18–24 months. Nevada
No experience San Francisco
35. What percentage of commercial properties requires condemnation on your urban corridor projects?
a. None
b. Less than 5%

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c. 5–10%
d. 10–25%
e. 25–50%
f. More than 50%
Comments:
We do not keep “urban corridor” records. Colorado

New state (PISTOL) laws may affect this. Nevada
36. Which of the following strategies does your agency employ to deal with right of way issues relating to
construction projects in urban corridors? (Check all that apply.)
specialists, etc.)
i. Other—please specify:
Right of Occupancy. Utah

Early involvement of R/W staff at planning and base plans. Michigan
Advertise and award with tract availability dates in the contract. Tennessee
Additional time added into design schedule based on how many properties. Pennsylvania
j. Other—please specify:
Advanced acquisition funding (before F.E.I.S. and R.O.D.) for critical parcels. Michigan
Have local realtors help property owners with relocation. Pennsylvania
Comments:
Holdout with due dates are written into bidding documents. Bid lets will be delayed If for some Oregon
reason hold out dates are not met
However ADOT is in the process of reducing # of consultants and increasing agency staff. Arizona
No special strategies San Francisco
37. Of the options listed in Question 36, which do you find to be the most effective in dealing with the impacts
of right of way acquisition on the urban corridor projects constructed by your agency? (Check up to 3.)
specialists, etc.)
Early involvement of R/W staff to change some partial acquisitions Michigan

to total acquisitions and vice versa.
Advertise and award with tract availability dates in the contract. Tennessee

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Comments:
Haven't found anything great yet. Washington
38. Of the options listed in Question 37, which do you find to be the least effective in dealing with the impacts
of right of way acquisition on the urban corridor projects constructed by your agency? (Check up to 3.)
specialists, etc.)
Comments:
High risk business strategy. Indiana

We would only consider using the 3 identified in question 37, A, B & C Georgia
N/A —the only option listed above used by ADOT is (c), which is being reduced. Arizona
39. Describe right of way acquisition techniques that your agency uses that make the process more effective
which you believe would be of value to other agencies.
Agency’s—yet to be implemented. Right-of-way tracking system should streamline the process by Oregon
making tracking the process much easier and more efficient.
Use of Right of Occupancy, Incentive Payments and Negotiated Settlements, Mediation and Utah
Arbitration.
# 36 A. Colorado
Use consultants for large urban projects. Illinois
Full turnkey of all development (PE and RW) within same consultant team. Indiana
Early involvement of R/W staff in the planning and design process to suggest changes/revisions Michigan
and to protect the R/W budget.
1) GDOT utilizes an Agency Appeal process if negotiations are unsuccessful at District Level prior Georgia
to condemnation. 2) Creation of a graduated scale of approval levels for condemnation at various
levels of supervision/authority leading up the ROW Administrator having highest level of
approval/authority. 3) Tracking of critical events throughout acquisition of ROW.
Flexibility in R/W clearance certifications. Missouri
The Department has set statewide policy and procedures for our Districts to use for right-of-way Pennsylvania
acquisition. Right-of-way acquisition takes time; make sure the project design schedule has
enough of it. Use in house staff, but during busier months hire consultant acquisition firms that
are competent and qualified with the correct licenses.
Resource driven activity—takes time and people; when work load increases dramatically it New York
becomes difficult to maintain level of service.
Section 6—Stakeholder/Public Involvement
40. Does your agency assign a project specific individual to its urban corridor projects for the purpose of
managing stakeholder issues or public/community involvement activities? (Check one.)
a. Never
b. Sometimes

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c. Often
d. Very often
e. Always
Comments:
None
If the answer to Question 40 is “Never,” then proceed to Question 43.

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. N/A
Comments:
None

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. N/A
Comments:
The private contractor will work with a Department person, who will then talk to the public. Pennsylvania
Private consultants are used to perform task specific items, however, ADOT manages process. Arizona
43. Are individual projects “branded” (giving the project a unique identity, logo, name or reference) for
communications or other purposes?
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
Comments:
Department projects generally start out with an internal name, sometimes this carries throughout Pennsylvania
the life of the project with just the Department logo and any project contractor’s logos. Larger
projects are usually “branded” for the purpose of public identification and have had a logo
developed or a community logo contest.
This is relatively new for us. Nevada

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44. What activities does your agency use to involve and inform stakeholder groups on your urban corridor
projects? (Check all that apply.)
e. Phone calls
j. Radio coverage
m. Blog
n. Other—please specify:
Public Hearings. Illinois

Have news conferences for individual projects. Pennsylvania
Transportation System Management (TSM) meetings. Arizona
o. Other—please specify:
Public Announcements. Illinois

Mass text message notification. Pennsylvania
Comments:
Metropolitan Planning Organizations have email distribution about projects. Pennsylvania

TSM meetings include ADOT, local governments, contractors, media, DPS, and other interested Arizona
/agencies or groups.
45. Which activities does your agency find to be most effective for involving and informing stakeholder
groups on your urban corridor projects? (Check 3.)
e. Phone calls
j. Radio coverage
m. Blog
n. Other—please specify:
Focus groups, mass media. Utah

TSM meetings. Arizona

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o. Other—please specify:
Public Announcements. Illinois
Comments:
Agency is currently looking into social media as an outreach strategy. Oregon
46. Has your agency targeted specific stakeholder groups such as businesses with mitigation efforts?
a. Yes
b. No
Comments:
No All affected or potentially affected are considered. Tennessee
If the answer to Question 46 is "No," then proceed to Question 49.
47. Please check those groups which your agency has targeted mitigation strategies/plans for dealing with
their concerns: (Check all that apply.)
a. Businesses
b. Residents
c. Travelers
e. Truckers
f. Commuters
h. Recreationalists
i. Sports fans
Schools. Colorado
All. Tennessee
See comments. Pennsylvania
Comments:
Various interest (such as bike/pedestrian, etc.) and environmental justice groups. Oregon
Other groups taken into account are Emergency Management, School Districts, Hunting groups, Pennsylvania
Airports, Vacation Bureaus, and Live Entertainment.

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48. Of these groups which are most important to deal with on your urban projects? (Check 3.)
a. Businesses
b. Residents
c. Travelers
e. Truckers
f. Commuters
h. Recreationalists
i. Sports fans
j. other—Please specify:
Comments:
None
49. What techniques are your agency using to effectively deal with stakeholder groups that you believe would
be of value to other agencies?
Comment:
Alignment and coordination with local government agencies. Oregon

Know Where Know Why—Advertising Campaigns and Programs. Utah
# 45 A and C. Colorado
Effective outreach/communication via media, print, radio. Michigan
Citizen Advisory Committees and other stakeholder meetings. Georgia
Virtual Public Meetings. Missouri
Public meetings and discussions. Tennessee
Techniques that have been effective are early communication with the stakeholder groups and Pennsylvania
local elected officials. The Department can learn the stakeholder’s needs and explain how the
project schedule will be managed daily and overall. Establish a community advisory committee for
the project and continue meeting with this group as the project progresses. The Department has
mass communication through state, local and project specific websites, emails, and travel alert
subscriptions. We send out project newsletters, emails, and text messages. Also, we use the
permanent overhead Intelligent Transportation Systems to relay messages. Parkway Permitting;
The contractor has to submit approval application 3 days before they want to shut down a route.
The traffic unit reviews for project specifics, conflict with other projects and special events in the
area.
We bring stakeholders in very early in the process. In the case of elected officials, we send them Florida
email notifications including them in our design phase submittals.
Achieve consensus on major project issues before project approval. San Francisco
Section 7—Media Relations
For the purpose of this survey media relations are those activities focused communicating with the media
(e.g. television, radio, newspaper, etc.)
50. Does your agency assign a project-specific individual to its urban corridor projects for the purpose of
managing media relations? (Check one.)
a. Never
b. Sometimes

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c. Often
d. Very often
e. Always
Comments:
Depends on Project Magnitude. Utah

Usually the Project Manager, Community Relations Coordinator or District Press Officer. Pennsylvania

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. N/A
Comments:
None

a. Never
b. Sometimes
c. Often
d. Very often
e. Always
f. N/A
Comments:
Sometimes They do not do direct media interviews but they have helped. Michigan
53. Which of the following best describes your agency's view and relationship with the media? (Check one.)
a. The media is suspect and we don't interact with them any more than we have to
b. The media isn't looking for good news so they never write or say positive things about our agency or
projects
c. The media has been neutral about our projects and largely ignore us
d. The media has responded in a generally positive way to our efforts to work with them
e. The media has been a strong partner in getting critical information to the public during construction
Comments:
B The Community Relations Coordinator and District Press Officer work on these relationships. Pennsylvania
The media has 24/7 access to the press office. The Department is proactive, in keeping them
informed so we get fair coverage. Overall, we have a good relationship.

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B Overall I think they are positive. Some outlets sensationalize but I don’t think they are well Nevada
respected in community.
54. Which of the following strategies does your agency use to communicate information to stakeholder
groups? (Check all that apply.)
a. Free "tags" on radio announcements such as traffic reports
b. Paid "tags" on radio announcements such as traffic reports
Paid news ads to announce public meetings. Oregon

Distribute news releases on major projects. Massachusetts
Aggressive press releases, media tours. Washington
Community meetings. Illinois
PSA when available, Social Media activities, pitching feature. Michigan
Website. Tennessee
Public press releases. Pennsylvania
Press Releases. Nevada
Cable TV within the project area(s), community. Michigan

Additional signs in the project work zone with website information. Pennsylvania
Provide free access to traffic video cameras. New York
Comments:
Reached out to minority groups thru Spanish language ads, minority news publications including Oregon
bidding opportunities.
Very heavy use of media relations to keep our topics on construction projects in the news. Georgia
Traffic information is supplied to the radio and TV from the Traffic Management Center. Pennsylvania
55. Which of the strategies listed in Question 54 are most effective for your agency in getting information to
your stakeholders? (Check no more than three.)
a. Free "tags" on radio announcements such as traffic reports
b. Paid "tags" on radio announcements such as traffic reports
Unknown. Illinois
Social Media techniques, project managers broadcast/print interviews. Michigan

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Website. Tennessee
Video cameras New York
Comments:
Not sure. Louisiana

Not sure. Nevada
56. How did you know which ones to check in Question 55? (Check all that apply.)
a. Surveys of stakeholders
b. Experience
c. Informal statistics we keep based on calls to the agency
d. Feedback from the media
e. Public feedback at meetings
f. Neighborhood groups
g. Focus groups
h. Recreationalists
i. Sports fans
j. Other—please supply:
Event Managers. Pennsylvania

j. Other—please supply:
Comments:
None
57. What techniques are your agency using to effectively deal with media relations that you believe would be
of value to other agencies?
Comment:
Strong public outreach strategies, public awareness/educational media events. Oregon

# 55 H Colorado
Agency media integrity with key reporters (one to one) ; Identifying Social Media techniques Michigan
which will focus on the key objective to get the message to your customers; Developing an
informative up-to-date website; Consistently on time with information that is correct and
informative; Pitching projects with a predetermined goal and outcome desired....safety
improvements, graffiti issues....etc.; Using “Old School Media” techniques for those that are not
connected to the Internet...i.e.; local papers; supermarket free community papers/flyers with
information and the theater pre-movie advertising.
Building relationships, providing timely & reliable information, being accessible. Georgia
Virtual Public Meetings. Missouri
Have proactive interaction with the media; establish a good working relationship with them. Pennsylvania
Address issues immediately. Keep the media informed with daily email to press, radio, and TV.
Have publicity visits or news conferences when appropriate. One district has developed a strong

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relationship with media at the beginning of the construction season by guest speaking on a local
talk radio show about the upcoming construction projects.
When we have a large project or event, we will go to the media outlets and visit with them, Florida
explaining in detail our projects. We offer to take them on tours of our projects. Also, after
sending press releases or media alerts, we also follow up with phone calls. We ultimately make
ourselves available to the media, traveling to their stations to interview on various news programs,
etc. In the Tampa Bay area, we have very good relationships with all the reporters and they know
they can call us for story ideas and in turn, we can call them and pitch ideas which usually get
covered. We are respectful of their deadlines and they appreciate it.
Create a division within ADOT that deals specifically with communication and community Arizona
partnerships—media relations is a big part of this.
We have used lots of corridor-specific websites which have been very effective. California
Section 8—Intermodal Issues
58. How often are other modes (e.g., transit, bicycle, pedestrian) present in your congested urban corridor
projects? (Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
Comments:
D We determine impacts to all modes including bike/pedestrian and detours and mitigate as Oregon
appropriate.
59. If other modes are present in your urban corridor projects what measures do you take to address their
operations before construction? (Check all that apply.)
a. Coordination with other modes during the planning process
b. Coordination with the other modes during the engineering design process
c. Permanent ongoing meetings/committees with transit agencies
d. Permanent ongoing meetings/committees with bicycle and pedestrian groups
e. Project specific meetings/committees with transit agencies
f. Project specific meetings/committees with bicycle and pedestrian groups
g. No meaningful coordination
h. No coordination is necessary
i. Our agency uses in-house staff who knows about the other modes so no external coordination is necessary
US Coast Guard. Oregon

Work with local Municipal Planning Organization. Pennsylvania
k. Other—please specify:
Comments:

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2 Close coordination with transit on longer duration projects or dealing with special events. Washington
2 Project specific. Rare and infrequent. Indiana
60. Do you rely on the other modes to assist with throughput in the urban corridor during construction?
(Check one.)
a. Never
b. Sometimes
c. Often
d. Very often
e. Always
Comments:
2 It seems heavy messaging, combined with alternate routes (signed or discovered) are the Washington
most common.
61. How effective are the other modes in diverting traffic from automobiles and relieving congestion pressure
during construction of your urban corridors? (Check one.)
a. Not effective at all
b. Some effectiveness
c. Moderate effectiveness
d. Very effective
e. Not applicable
Comments:
Engaging key stake holders early and often in all phases of a project. Oregon
Coordination between modes. Utah
# 59 A to F Colorado
Coordination/Changeable message signs/Public info about other modes during construction or Georgia
major events.
Provide additional funding to transit agency to relieve congestion during construction. Missouri
Van/car pooling, bus. Tennessee
Meet with the other transportation modes before, during and after a project to make sure their Pennsylvania
needs are/or have been met with the temporary and final project. The other transportation modes
are invited to planning meetings. Their issues are represented by the Metropolitan Planning
Organizations. MPOs are invited to meetings that cover overall and specific projects.
62. What techniques are your agency using to effectively deal with other transportation modes that you
believe would be of value to other agencies?
Comment:
None
Section 9—Traffic Management Issues
63. What strategies does your agency use to manage traffic during construction of projects in urban
corridors? (Check all that apply.)
a. Partial closures during the day
b. Partial closures during the night

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c. Full closures during the day

d. Full closures at night
e. Aggressive detour routing
f. Some detour routing
g. Lane rental specifications
h. Penalties for late opening of closures
i. Milestones and/or construction phasing
j. Contractor developed traffic control plan
k. Agency developed traffic control plans
l. Contractor provided traffic control
m. Agency provided traffic control
n. Use of in-place ITS resources
o. Use of temporary ITS resources provided by the agency
p. Use of temporary ITS resources provided by the contractor
q. Other—please specify:
Motorist assistance patrols. Louisiana

Have utilized full or significant closures for extended periods. Heavy media push required prior. Washington
Full weekend closures. Oregon
Weekend work. Tennessee
Contractor has a traffic control person, who is on call 24/7. Pennsylvania
Contractor provides full time traffic control coordinator to monitor traffic inside the project insuring Arizona
safety and mobility.
TMP Working Group made up of all area agencies and stakeholders to plan and monitor traffic San Francisco
management
r. Other—please specify:
Off-duty uniformed police at traffic signals and along detours. Pennsylvania
Comments:
64. What techniques are your agency using to effectively deal with traffic management that you believe would
be of value to other agencies?
Comment:
Utilization of traffic management plan and the web based work zone traffic analysis tool. Full Oregon
closure during weekends.
All of # 63 except C. Colorado
Heavy outreach to communities and media prior to any significant closure. Washington
Full weekend closures with coordination from Traffic Operations center. Oregon
We are aggressively deploying “temporary” ITS devices, and tie them in to our permanent system, Michigan
so traffic can be managed through a team effort between project staff and TMC staff.
Customer satisfaction surveys. Missouri
Rolling road blocks using state police approaching traffic control zones. Ramps are shut down Pennsylvania
while this is happening.
(see questions 63) Arizona
TMP Working Group made up of all area agencies and stakeholders to plan and monitor traffic San Francisco
management
Communication, communication, communication. New York

76
65. Given that traffic control and management are a substantial cost element for urban projects, how has
your agency endeavored to reduce these costs?
Comment:
Reduce contract time. Louisiana

Coordination and collaboration with other agencies, constructability review, alternative contracting, Oregon
etc.
Allowed contractor to produce TC plans, thus only designing the plan once. Utah
VMSs, Alternate Route Advisories. Colorado
See #64. Oregon
Shorten duration of projects as much as possible. Minnesota
Phase project to minimize temporary pavement and reduce the number of phase changes. Indiana
Trying to use standardized special provisions for all work zone management approaches: Michigan
“traditional” approaches, as well as “new” SPs (such as real-time work zone systems, etc.).
Reducing total construction duration to the shortest time practical. Georgia
Low bid specifications. Ohio
Gateway Guide. Missouri
Traffic Management Plans use phasing for traffic control to reduce project impact. Plans are value Pennsylvania
engineered and have constructability reviews to verify efficiency. Internal coordination with design
and construction units when developing the TMPs. Traffic control phasing developed with
construction input. Road Users Liquidated Damages is balanced with actual construction
schedule.
Attempts to lower these costs have been mostly with A+B with I/D and DB with I/D or bonus. Florida
Allow nighttime full closures. We realize that safety to the traveling public is very important and Arizona
insure monies are available to administer and manage this.
Work zone project reviews as described in question 22. New York
We don't. We are much more concerned that efforts be effective. San Francisco
66. Do you have a project that would be useful to share with other agencies that we could explore in greater
detail as a case study for this research project?
If yes, please provide a name and contact information below so we can follow up with that individual.
a. Yes
b. No
c. Not sure
Name:
Phone:
Email:
67. Does your agency have or use a traffic management center (TOC, TMC) to help deal with project and
program travel demand management?
a. Yes
b. No
Comments:
Traffic Management and Operations Center. Oregon

In Region 1. Oregon
At the local level (in the city). Ohio
The individual Districts have Traffic Management Centers that are operational during the work day Pennsylvania
and then switch over to a regional Traffic Management Center for the remaining portion of the day.
Coverage is 24/7.
One in Las Vegas. Just developing one in Reno. Nevada

77
68. What has your agency done to comply with the Federal regional mobility requirements for coordination of
program within urban areas?
Comment:
Implementation of Highway Mobility policy and statewide freight/traffic mobility program; use Oregon
Traffic Management Plans including meeting delay thresholds on corridor basis.
Not sure. Utah
Drafted Specifications to comply with all Federal Regulations. Colorado
Developed internal policies. Illinois
Rewritten design and procedural manuals. Indiana
Not sure if we have done anything above and beyond are work zone mobility process; we already Michigan
have pretty good coordination, using our MPO SEMCOG as the coordinating unit, with
coordinating work zone mobility.
Coordination with local FHWA, and others to ensure compliance with all requirements. Ohio
Traffic Management Centers in St. Louis, Kansas City, and Springfield. Missouri
Not sure what you are asking here. Pennsylvania
Intensive planning and coordination efforts within the Department’s Transportation Planning Florida
Office.
Work Zone Safety and Mobility policy implemented on 10/07. Arizona
Work with, and as part of the MPO. ADA plan. New York
Follow state DOT guidelines San Francisco
Other Comments
If you have any other comments, please include them below:
Comment:
Project specific water quality/detention treatment within limited right-of-way, noise impacts, Oregon
projects associated with railroads can further complicate the delivery of the projects.
This survey is too long, and required a lot of research. It took about two hours to get all the Colorado
information from all the Specialty Groups. It definitely needs re-evaluated.
Please let me know when you publish your results. Thank you. Pennsylvania
For case study project I would need to discuss with our regional offices for potential projects. New York

Abbreviations used without definitions in TRB publications:
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 Air Transport Association
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
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
NASA National Aeronautics and Space Administration
NASAO National Association of State Aviation Officials
NCFRP National Cooperative Freight Research Program
NCHRP National Cooperative Highway Research Program
NHTSA National Highway Traffic Safety Administration
NTSB National Transportation Safety Board
PHMSA Pipeline and Hazardous Materials Safety Administration
RITA Research and Innovative Technology Administration
SAE Society of Automotive Engineers
SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act:
A Legacy for Users (2005)
TCRP Transit Cooperative Research Program
TEA-21 Transportation Equity Act for the 21st Century (1998)
TRB Transportation Research Board
TSA Transportation Security Administration
U.S.DOT United States Department of Transportation

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Techniques for Effective Highway

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FIND RELATED TITLES SUGGESTED CITATION

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

NCHRP SYNTHESIS 413

A Synthesis of Highway Practice

TRANSPORTATION RESEARCH BOARD

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NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM NCHRP SYNTHESIS 413

Published reports of the

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

are available from:

Transportation Research Board

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NCHRP COMMITTEE FOR PROJECT 20-5 COOPERATIVE RESEARCH PROGRAMS STAFF

Cover figure: Looking southbound on US-75 approaching IH-635 to

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3 CHAPTER ONE INTRODUCTION

5 CHAPTER TWO LITERATURE REVIEW

10 CHAPTER THREE PROGRAM OVERVIEW

15 CHAPTER FOUR UTILITIES

18 CHAPTER FIVE RIGHT-OF-WAY

22 CHAPTER SIX STAKEHOLDER AND PUBLIC INVOLVEMENT

27 CHAPTER SEVEN MEDIA RELATIONS

31 CHAPTER EIGHT MULTI-MODAL

33 CHAPTER NINE TRAFFIC MANAGEMENT

35 CHAPTER TEN CASE STUDIES

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39 CHAPTER ELEVEN CONCLUSIONS

43 APPENDIX A SURVEY QUESTIONNAIRE

54 APPENDIX B NARRATIVE SURVEY RESPONSES

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TECHNIQUES FOR EFFECTIVE HIGHWAY CONSTRUCTION

Key findings include:

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effectiveness of their communication strategies. Emerging tools such as social networking

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BACKGROUND PROJECT SCOPE AND OBJECTIVES

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FIGURE 1 Hours of traveler delay by area population—Year-to-year comparison.

FIGURE 2 Sources of traffic congestion.

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timely completion of ROW clearance. Gaining stakeholder

In a survey conducted for NCHRP Synthesis 405: Utility

Using established and proven tools is critical in overcoming

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FIGURE 7 Special measures taken as individual projects or programmatic

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• Constructability/innovation The most commonly used method was overwhelmingly

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