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Digging up the Facts: Inspecting the Big Dig and the Performance of Federal and State Government in Providing Oversight of Federal Funds

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Digging up the Facts: Inspecting the Big Dig and the Performance of Federal and State Government in Providing Oversight of Federal Funds DIGGING UP THE FACTS: INSPECTING THE BIG DIG AND THE PERFORMANCE OF FEDERAL AND STATE GOVERNMENT IN PROVIDING OVERSIGHT OF FEDERAL FUNDS HEARING BEFORE THE COMMITTEE ON GOVERNMENT REFORM HOUSE OF REPRESENTATIVES ONE HUNDRED NINTH CONGRESS FIRST SESSION APRIL 22, 2005 Serial No. 109–29 Printed for the use of the Committee on Government Reform ( Available via the World Wide Web: http://www.gpo.gov/congress/house http://www.house.gov/reform U.S. GOVERNMENT PRINTING OFFICE 21–590 PDF WASHINGTON : 2005 For sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: toll free (866) 512–1800; DC area (202) 512–1800 Fax: (202) 512–2250 Mail: Stop SSOP, Washington, DC 20402–0001 VerDate 11-MAY-2000 10:52 Jun 23, 2005 Jkt 000000 PO 00000 Frm 00001 Fmt 5011 Sfmt 5011 D:\DOCS\21590.TXT HGOVREF1 PsN: HGOVREF1 COMMITTEE ON GOVERNMENT REFORM TOM DAVIS, Virginia, Chairman CHRISTOPHER SHAYS, Connecticut HENRY A. WAXMAN, California DAN BURTON, Indiana TOM LANTOS, California ILEANA ROS-LEHTINEN, Florida MAJOR R. OWENS, New York JOHN M. MCHUGH, New York EDOLPHUS TOWNS, New York JOHN L. MICA, Florida PAUL E. KANJORSKI, Pennsylvania GIL GUTKNECHT, Minnesota CAROLYN B. MALONEY, New York MARK E. SOUDER, Indiana ELIJAH E. CUMMINGS, Maryland STEVEN C. LATOURETTE, Ohio DENNIS J. KUCINICH, Ohio TODD RUSSELL PLATTS, Pennsylvania DANNY K. DAVIS, Illinois CHRIS CANNON, Utah WM. LACY CLAY, Missouri JOHN J. DUNCAN, JR., Tennessee DIANE E. WATSON, California CANDICE S. MILLER, Michigan STEPHEN F. LYNCH, Massachusetts MICHAEL R. TURNER, Ohio CHRIS VAN HOLLEN, Maryland DARRELL E. ISSA, California LINDA T. SANCHEZ, California GINNY BROWN-WAITE, Florida C.A. DUTCH RUPPERSBERGER, Maryland JON C. PORTER, Nevada BRIAN HIGGINS, New York KENNY MARCHANT, Texas ELEANOR HOLMES NORTON, District of LYNN A. WESTMORELAND, Georgia Columbia PATRICK T. MCHENRY, North Carolina ——— CHARLES W. DENT, Pennsylvania BERNARD SANDERS, Vermont VIRGINIA FOXX, North Carolina (Independent) ——— ——— MELISSA WOJCIAK, Staff Director DAVID MARIN, Deputy Staff Director/Communications Director ROB BORDEN, Parliamentarian TERESA AUSTIN, Chief Clerk PHIL BARNETT, Minority Chief of Staff/Chief Counsel (II) VerDate 11-MAY-2000 10:52 Jun 23, 2005 Jkt 000000 PO 00000 Frm 00002 Fmt 5904 Sfmt 5904 D:\DOCS\21590.TXT HGOVREF1 PsN: HGOVREF1 C O N T E N T S Page Hearing held on April 22, 2005 .............................................................................. 1 Statement of: Amorello, Matthew J., chairman, Massachusetts Turnpike Authority; John MacDonald, chairman, board of control, Bechtel/Parsons Brinckerhoff, accompanied by Morris Levy, senior vice president, Par- sons Brinckerhoff, Inc., and Keith S. Sibley, P.E., program manager, Central Artery/Tunnel Project, Bechtel/Parsons Brinckerhoff; and George J. Tamaro, partner, Mueser Rutledge Consulting Engineers ....... 70 Amorello, Matthew J. ................................................................................ 70 MacDonald, John ....................................................................................... 80 Tamaro, George J. ..................................................................................... 94 Gribbin, D.J., Chief Counsel, Federal Highway Administration, accom- panied by Stanley Gee, Administrator, Massachusetts Division, Federal Highway Administration; Kenneth Mead, Inspector General, U.S. De- partment of Transportation; and Tom Reilly, attorney general, Com- monwealth of Massachusetts ....................................................................... 14 Gribbin, D.J. .............................................................................................. 14 Mead, Kenneth .......................................................................................... 22 Reilly, Tom ................................................................................................. 44 Letters, statements, etc., submitted for the record by: Amorello, Matthew J., chairman, Massachusetts Turnpike Authority, pre- pared statement of ........................................................................................ 75 Davis, Chairman Tom, a Representative in Congress from the State of Virginia, prepared statement of ................................................................... 4 Gribbin, D.J., Chief Counsel, Federal Highway Administration, prepared statement of ................................................................................................... 16 Lynch, Hon. Stephen F., a Representative in Congress from the State of Massachusetts, prepared statement of ................................................... 9 MacDonald, John, chairman, board of control, Bechtel/Parsons Brinckerhoff, prepared statement of ........................................................... 82 Mead, Kenneth, Inspector General, U.S. Department of Transportation, prepared statement of ................................................................................... 26 Reilly, Tom, attorney general, Commonwealth of Massachusetts, prepared statement of ................................................................................................... 46 Tamaro, George J., partner, Mueser Rutledge Consulting Engineers, pre- pared statement of ........................................................................................ 96 (III) VerDate 11-MAY-2000 10:52 Jun 23, 2005 Jkt 000000 PO 00000 Frm 00003 Fmt 5904 Sfmt 5904 D:\DOCS\21590.TXT HGOVREF1 PsN: HGOVREF1 VerDate 11-MAY-2000 10:52 Jun 23, 2005 Jkt 000000 PO 00000 Frm 00004 Fmt 5904 Sfmt 5904 D:\DOCS\21590.TXT HGOVREF1 PsN: HGOVREF1 DIGGING UP THE FACTS: INSPECTING THE BIG DIG AND THE PERFORMANCE OF FED- ERAL AND STATE GOVERNMENT IN PROVID- ING OVERSIGHT OF FEDERAL FUNDS FRIDAY, APRIL 22, 2005 HOUSE OF REPRESENTATIVES, COMMITTEE ON GOVERNMENT REFORM, Washington, DC. The committee met, pursuant to notice, at 2 p.m., in the En Banc Courtroom, Moakley Courthouse, Boston, MA, Hon. Tom Davis (chairman of the committee) presiding. Present: Representatives Davis of Virginia, and Lynch. Also present: Representative Capuano. Staff present: Teresa Austin, chief clerk; Sarah D’Orsie, deputy clerk; Brian Stout, professional staff member; John Hunter, coun- sel; Drew Crockett, deputy director of communications; and Krista Boyd, minority counsel. Chairman TOM DAVIS. Good afternoon. A quorum being present, the committee will come to order. We are conducting this field hearing in Boston today to assess the status of the Central Tunnel/ Artery Project, or the Big Dig, one of the largest and most expen- sive Federal highway projects in the history of the United States. My colleague and good friend and member of this committee, Congressman Stephen Lynch, requested that this congressional committee convene a hearing here in Boston to witness firsthand the steps being taken to address the outstanding concerns and issues in terms of safety and cost associated with the Big Dig. As this project nears completion, it is vital that we assess the les- sons learned here in Boston and determine how to prevent such cost growth and improve oversight and coordination in the future. These are significant areas of concern to the Committee on Govern- ment Reform, and indeed to the entire Nation, as we seek solutions to increased urban congestion throughout the country. It is imperative for the Federal Government, which often pays 80 percent of the major highway projects, to play a role to ensure that taxpayer dollars, whether Federal or State, are being used effec- tively. In addition, the increase in the number of projects and the rapidly growing competition for both Federal and State funding de- mand that major transportation and infrastructure projects be managed efficiently and cost effectively, so we are able to fund the many needs we have across the Nation. It is for these important reasons that we decided to come to Bos- ton today and hold this important hearing. I am pleased that Con- (1) VerDate 11-MAY-2000 10:52 Jun 23, 2005 Jkt 000000 PO 00000 Frm 00005 Fmt 6633 Sfmt 6633 D:\DOCS\21590.TXT HGOVREF1 PsN: HGOVREF1 2 gressman Lynch is with us this morning, and I also want to wel- come Congressman Capuano to this field hearing as well. And I would ask unanimous consent that he be allowed to sit here as a member of the committee and ask questions. And, Mike, we appre- ciate you being here as well. I don’t need to remind anyone here about the traffic and related highway safety problems of the Central Artery in the 1980’s that led to the planning for this massive project. Preliminary designs began in the 1980’s, and construction commenced in 1991. As with all State highway projects such as this, the Federal Highway Administration is responsible for protecting the Federal funding of this project. As part of the Metropolitan Highway Sys- tem, the Massachusetts Turnpike Authority has given construction and operational authority for this project. The figures associated with the Big Dig are staggering. The na- ture and scope of the project, the time involved in planning and construction, and the cost overruns and safety concerns are unpar- alleled. What began in 1980 as a $2 billion project grew to $8 bil- lion in 1995, and the Authority currently estimates the project cost to be $14.625 billion. Upon completion, scheduled for later this year, the project will encompass 7.8 miles of highway, with 161 lane miles of pavement, 3 interstate tunnels, over 200 bridge structures, and 6 major inter- changes. So it comes close to $2 billion a mile.
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