Gee is Associate

Administrator forInfrastructure; andMueller is SystemsPreservation Engineer,

Office of AssetManagement, FederalHighway Administration,

Washington, D.C

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AdvancinPavemenPreservationMovement

the

Federal Highway AdministrationCultivates PartnershipsKING W. GEE AND STEVE MUELLER

Americans are traveling on roads in recordnumbers. In 2000, Americans traveled

more than 2.7 trillion vehicle miles,nearly four times the amount in 1960,

and more than half of the travel was in urban areas,

on crowded and often congested highways.Nonetheless, large, new road construction proj-

ects, once considered routine, have shrunk dramat-

ically in number. Trends suggest that most roadconstruction will be limited to improving the level ofservice and efficiency within highway corridors. Theimmediate need of preserving and maintaining thehighway investment, therefore, has become a nation-wide challenge.

The nation's highways, built by earlier genera-tions, are valued at more than $1. 75 trillion. As

responsible stewards of the highway system, presentand future generations must not allow this invest-ment to deteriorate.

Preservation InvestmentsAlthough the methods and assumptions for estimat-ing highway and bridge investments are evolving,projects that preserve the infrastructure are goodinvestments from a public policy perspective. Preser-

Crack sealingis a first lineof defense in

pavementpreservation.

vation investments improve the condition and per-formance of the highway system and reduce thebacklog of deficiencies.

The deficiencies projected for the next 20 yearscan be attributed primarily to pavement deteriorationand travel growth. Since the early 1990s, when con-struction of the Interstate system wound down, theFederal Highway Administration (FHWA) hasincreased focus on preservation to address the dete-rioration of the nation's infrastructure. The approachcombines traditional engineering-based analyticaltools with sensible economic guidelines to preservetransportation investments.

Preservation activities make invested dollars gofarther. Pavement and bridge preservation approachesselect the most cost-effective action to address a spe-cificcondition and performance need, providing agen-cies with the optimal means of minimizing life-cyclecosts. Preservation extends highway service life andprovides smoother, safer, and more reliable roads.Preservation programs are important in implementingasset management concepts and are demonstratinggood returns on investments.

Evolving PolicyHistorically, the Federal-Aid Highway Program hascentered on capital improvement projects. Startingin the 1950s, emphasis was on construction andrehabilitation'of the Interstate Highway System; inthe 1990s, attention turned to the National High-way System.

For many years, federal regulations restrictedfederal-aid highway funds to capital improvements,prohibiting use for most activities involving preser-vation and maintenance. Maintenance was consid-

ered necessary to ensure that the highway was safeand serviceable in fulfilling the expectations of thetraveling public and in meeting functional needs.Maintaining highways generally was regarded asthe responsibility of the state or local jurisdictionand was a condition for receiving federal-aid con-struction dollars.

3R to 4R

The 1976 Federal-Aid Highway Act changed thatpolicy, giving greater flexibility to state and localhighway agencies in the use of federal funds. Thelegislation allowed for funding of resurfacing,restoration, and rehabilitation projects and becameknown as the 3R program. An objective was toenhance highway safety on nonfreeway projects byhaving each state develop its own criteria and pro-cedures for design.

In 1981, the Federal-Aid Highway Act redefinedInterstate system construction to provide a mini-mum level of acceptable service and added a fourthR, reconstruction, to the 3R program. The 4R pro-gram applied specifically to the Interstate HighwaySystem. Maintenance remained the responsibility ofthe states in the federal funding equation.

Macrosurfacing is a single-pass, cost-efficient treatment suitable for low- tohigh-volume roads in good condition but with minor surface distresses.

Funding PreservationThe landmark Intermodal Surface Transportation Effi-ciency Act of 1991 (ISTEA) restructured the Federal-

AidHighway Program in the post-Interstate era. ISTEAallowed federal-aid funds for preventive maintenanceactivities-but a state had to demonstrate, through itspavement management system, that the activitieswerecost-effective in extending the pavement life of theInterstate. ISTEAwas the first federal funding mecha-nism for system preservation by FHWA.

The National Highway System Designation Act of1995 presented another endorsement of systempreservation. Preventive maintenance became eligi-ble for federal assistance as a cost-effective means of

extending the useful life of all federal-aid highways,not just the Interstates. The act gave flexibility toeach state in determining the most cost-effectivestrategies to extend the service life of pavements,bridges, and highway appurtenances on federal-aidhighways. With this legislation, Congress acknowl-edged and underscored the importance of preventivemaintenance programs.

The Transportation Equity Act for the 21st Cen-tury (TEA-21), the 1998 reauthorization of ISTEA,removed some funding barriers, increased flexibilityfor addressing safety concerns, and substantiallyincreased transportation funding. In May 2003, theAdministration released the Safe,Accountable, Flex-ible, and Efficient Transportation Equity Act of 2003(SAFETEA), a proposal to reauthorize the TEA-21programs. The proposal makes preventive mainte-

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nance on any federal-aid highway eligible for fund-ing. As proposed, SAFETEA would increase federaltransportation funding by approximately 19 percentabove current levels.

Overseeing ImprovementsFHWA, working with state departments of transpor-tation (DOTs), is responsible for the general manage-ment and administration of the federal requirementsgoverning highway maintenance (Title 23, UnitedStates Code, Section 116). Each state DOT is

responsible for maintaining each project con-structed with federal-aid funds. FHWA providesgeneral oversight of the state DOT programs,including maintenance and preservation.

If FHWA finds that a state DOT is not properlymaintaining a federal-aid highway and that the stateDOT is not restoring the highway to proper condi-tion after receiving notice, FHWA may withholdproject approvals. Only once, however, has FHWAwithheld federal-aid funds from a state DOT because

of poor maintenance-a tribute to the partnershipbetween the state DOTs and FHWA.

Through this FHWA-state DOT partnership, theexpansion of highway funding, and the introductionof preventive maintenance concepts, roadway con-ditions on the nation's network generally are improv-ing. For example, the percentage of rural Interstatemiles in poor condition has declined from 8.7 per-cent in 1990 to 1.9 percent in 2001. Other functionalclasses of rural roads and highways have recordedsimilar success.

Hot in-placerecycling asphalt trainreplacing roadwaysurface in one pass.

Goals and ApproachesMeeting customer demands and improving customersatisfaction are primary goals of FHWi\s pavementpreservation program. When capital investments can

be made to last longer, available funding can stretchfarther, and the number of costly, time-consuming,traffic-disrupting rehabilitation and reconstructionprojects can be reduced.

Preservation is the best way to provide safe,smooth, and quiet pavements. In 1995, a survey indi-cated that 50 percent ofU.s. motorists were satisfiedwith the nation's highway system. A similar surveyconducted in 2000 indicated that 65 percent weresatisfied. This improvement correlates withimproved ride quality for rural and urban roadways,as measured by the International Roughness Index.

A single urban road segment in poor conditioncan taint opinions about the overall condition ofthe network. In the past, some favored theapproach of fixing "bad" roads first. This "worstfirst" approach, however, has proved costly formany jurisdictions-by the time the bad roadswere fixed, many other roadways had slipped fromfair into poor condition.

The lesson showed that it is significantly lessexpensive to "keep good roads good" and. toimprove and maintain the other roads from fallinginto poor condition. "Keep the good roads in goodcondition" is a fundamental tenet of roadway assetmanagement.

The concept applies to evaluating nearly all infra-structure assets, including bridges, water systems,sewer and drainage systems, buildings, waterways,and airports. Many agencies are moving toward com-prehensive asset management programs for severalreasons, including

. Funding constraints,

. Aginginfrastructure,

. User demands,

. Lossof experiencedsenior staff,and

. Public demands for accountability and forreturns on investments.

Preventive MaintenanceThe American Association of State Highway andTransportation Officials (AASHTO) recently adopteda definition of preventive maintenance. Preventivemaintenance activities include work that

. Prevents the intrusion of water into the pave-ment structure-for example, with seal coats, jointseals, crack seals, and thin overlays;

. Provides for the removal of water from the

pavement structure-for example, with underdrainsand restoration of drainage systems;

. Restores pavement rideability-for example,with profiling and milling; and

. Prevents deterioration of bridges-for exam-

ple, with cleaning and painting, scour countermea-sures, deck rehabilitation, and deck drain cleaning.

Under this definition, pavement preservationincludes preventive maintenance activities for pave-ments, minor rehabilitation, and some routinemaintenance. In contrast, pavement preservationdoes not include new pavement construction,reconstruction, major rehabilitation, or correctivemaintenance.

Partners in the CauseFHWA is developing partnerships with other fed-eral agencies, state and local governments, indus-try associations, academia, and others to supportand direct the pavement preservation movement.FHWA has committed staff for the effort and is

providing funds to assist partners in developingnew technology and curricula to manage publicassets effectively.

AASHTOIn January 2002, AASHTO launched a community-of-practice website offering a comprehensive sourceof information on transportation asset management,with 15 topic areas, including information on pave-ment preservation, as well as activities and studies byFHWAand state DOTs, plus chat rooms.! In addition,the Pavements Task Force of the AASHTO Subcom-

mittee on Maintenance has adopted several resolu-tions supporting pavement preservation.

Expert Task GroupFHWA established the Pavement Preservation ExpertTask Group (PPETG) in 1991, with members repre-senting government agencies and industry. ThePPETG provided support and technical assistance toFHWA on how to apply and implement performancefindings from the Specific Pavement Studies of theStrategic Highway Research Program.

The PPETG continues to evaluate and support

activities to promote and institutionalize pavementpreservation concepts and practices. The group hasassisted in the development of pavement preserva-tion training programs for managers and practi-tioners, of videos and other media outreaches, and

of national and regional workshops on pavementpreserva tion.

Foundation for Pavement PreservationIn 1992, related industry associations formed the

1 http://assetmanagement.transportation.org

Foundation for Pavement Rehabilitation and Main-

tenance Research to promote research and educa-tion on pavement preservation. Renamed theFoundation for Pavement Preservation (Fp2) in

1999, the group provides the funding, research, andtraining for the appropriate selection, design, andconstruction of pavement treatments and keepsagency and industry practitioners informed aboutpavement preservation.

FHWAhas worked with Fp2to foster and advance

pavement preservation programs and applications.The foundation also supports the activities of thePPETG. FHWA and Fp2 meet with industry tradeorganizations throughout the year to promote effec-tive public-private cooperation in advancing pave-ment preservation strategies.

An Fp2 partner, the University of Illinois atUrbana-Champaign, has developed an upper-levelcollege course on pavement preservation; a web-based version should be available later this year.

The course supplied a curriculum need, sinceengineering students receive minimal training inmaintenance, pavement preservation, or infra-structure renewal.

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Directions for ResearchManaging and preserving the nation's investment inthe highway system is a goal for state DOTs. Thebenefits of a sound pavement preservation programrange from improved performance and increasedhighway safety to reduced life-cycle costs. Becauseapplying pavement preservation treatments is fasterthan rehabilitating or reconstructing pavements,preservation can contribute to increased mobility,improved work zone safety, and overall customersatisfaction.

Transportation departments establishing pave-ment preservation programs face the challenge ofdetermining which pavement treatments are best.Preservation treatments must be carefully selectedand must be applied when the pavement is still ingood condition with no structural damage. Newand innovative research therefore is necessary toassist agencies in applying the right treatment to theright road at the right time.

Research, however, has lagged behind thedemand for knowledge. To meet this challenge andincrease the knowledge available to state and localagencies, FHWA is building partnerships amongstates, industry, academia, and the TransportationResearch Board.

FHWA also is exploring options for launching amultiyear, coordinated pavement preservationresearch program to address the research, develop-ment, and technology needs of the nation's trans-portation departments and to meet the safety,efficiency, and mobility requirements of the public.

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Expanding the VisionPavement preservation has been an active federalprogram for the past 12 years. The vision is expand-ing to embrace preservation for all roadway assets.FHWA has initiated a national program on trans-portation system preservation eTSP) to address allcomponents of the highway transportation infra-structure, such as bridges, roadside hardware, and

safety features.The FHWA Office of Bridge Technology has

expanded the use of federal bridge replacementfunds for acceptable preservation activities, advanc-ing preservation as a business strategy to protect thepublic investment. The policy does not offer addi-tional funding but allows state DOTs flexibility tospend federal-aid funds on appropriate projects.

A TSP team was formed to guide and advance theentire preservation program. The team has devel-oped a website compiling information on best prac-tices, promoting new materials to extend service life,

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offering technical guidance and policy, identifyingand developing the necessary training, and linking torelated websites.2

Research ActivitiesSeveral research activities relating to pavementpreservation are under way-on sealers and rejuve-nators and on emulsified sealers and binders for

extending the service life of asphalt pavements. TheNational Cooperative Highway Research ProgrameNCHRP) is developing a Guide for Optimal Timingof Pavement Preventive Maintenance Treatment

Application eNCHRP Project 14-14) for flexible andrigid pavements.

FHWA is supporting a multistate pool-fundedresearch project on the design and application ofslurry seal and microsurfacing treatments, as well asa study of crack sealant materials and applicationspecifications. Managed by the California Depart-ment of Transportation, this study is in its initialstages.

The Pavement Preservation Research Consor-

tium-a working group ofFHWA, state DOTs, acad-emia, and Fp2-met in June 2001 to identify and

prioritize more than 50 preservation-related researchtopics. The consortium drafted research problemstatements for 22 projects, published in a January2002 report.3

Technology TransferFHWA supports the development and distribution ofpublications and other products to promote the con-cept and applications of pavement preservation. Fol-lowing is a sample of the products:

. Fact sheets. The fact sheets relate the experi-ences of Ohio and North Carolina DOTs in pave-

ment preservation, advanced performance-relatedspecifications, accelerated reconstruction, and con-tract administration.

. Checklists. FHWA is preparing checklists forthe pavement preservation products in common usearound the United States. To aid agency inspectorsand contractors, the checklists include best practicesand are printed pocket -size, for easy use in the field.

. Videos. In conjunction with Fp2, FHWA hasproduced a video, Concepts of Pavement Preservationand the Selectionof ProperTreatments,which receivedan award from the Public Relations Society of Amer-ica. More videos are planned.

2 www.fhwa.dot.gov/preservation3 www.fhwa.dot.gov/preservation

. Toolbox. A resource toolbox, developed incooperation with Fp2 and available from Fp2, con-tains publications, CDs, and videos from industryand government sources.

. CD-ROMs. FHWA has updated a state-of-the-practice CD of publications and resources on pave-ment preservation. In addition, a CD with thepresentations and background materials from theNational Pavement Preservation Forum II, held inNovember 2001, is available, and another CD, withall of the materials in the toolbox, is in productionand will be available later this year.

Websites. FHWA websites offer extensive infor-

mation about pavement preservation.4

In addition, FHWA and its partners are cooperat-ing to provide national and regional workshops onpavement preservation materials, application tech-niques, specifications, and systems integration.

Best PracticesIn summer 2001, FHWA and AASHTOconducted an

international scanning tour of pavement preservationtechnologies. A team of government and industryprofessionals visited three nations that are imple-menting innovative programs and new treatmentsfor pavement preservation-Australia, France, andSouth Africa. The scanning tour reviewed and doc-umented the techniques, materials, procedures, andequipment used for pavement preservation and eval-uated applications in the United States (see relatedarticle, page 29).

The team discovered that u.s. pavement preser-vation initiatives are on target, sharing many tech-niques and a similar focus with countries at theleading edge of the technologies. The team identifiedseveral technologies for further evaluation and pos-sible implementation, including innovative chip sealdesign and construction procedures and contractmaintenance techniques. Demonstrations of thesetechnologies are planned.

Training CoursesFHWA's National Highway Institute (NHI) is work-ing with state DOTs and the pavement industry todevelop a series of courses in pavement preservation.The series will consist of four courses (Table 1), offer-

ing a comprehensive understanding of preservationstrategies and treatments. Two courses are availablenow for transportation departments initiating preser-vation programs.

4 www.fhwa.dot.gov/preservation and

www.fhwa.dot.gov/construction

TABLE I NHI Pavement Preservation

Training Courses

2004

A IS-minute video, Preventive Maintenance: Pro-

tecting Our Pavements, supports the first trainingcourse and presents the case for preventive mainte-nance programs. A 30-minute video, PreventiveMain-tenance: Project Selection, supports the second

training course, focusing on selection of the righttreatment for the right pavement at the right time.S

Continuing CommitmentPublic transportation agencies are responsible formain-taining, replacing, and preserving the country's largestpublicly owned assets-nearly 4 million miles ofstreets,roads, and highways and more than 590,000 bridges.The agencieshavelimited resourcesand are accountableto their stakeholders, the American public.

To advance the momentum in promoting andapplying pavement preservation, FHWA will con-tinue to strengthen and build partnerships with stateand local government agencies, industry, academia,and other parties. The partnerships have shown theadvantage~ of pavement preservation in maintain-ing the nation's highway infrastructure. Drawing onthe strengths and perspectives of all levels of gov-ernment and the private sector, as well as from tech-nologies in development abroad, the partnershipscan determine ways to enhance the decision-makingprocess, preserve transportation assets, and meet thetraveling public's present and future needs.

FHWA is committed to providing focus, policy,technical assistance, and support in technologydeployment to states and local agencies. The imple-mentation of improved asset management concepts,such as a cost-effective pavement preservation pro-gram, is here to stay

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5 Videos and other products are available without charge to

agencies, from the FHWA Office of Infrastructure, Divisionof Asset Management; e-mail requests to Steve.Mueller@fhwa.dot.gov. 21