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/&=%1G Peat Marwick Management Consultants Focused experience for measurable results Manufacturing and Technology Industries Financial institutions Health Care Government Services Insurance Real Estate and Hospitality Airports Massachusetts Turnpike Authority Retail and Wholesale Education Energy and Utilities Corporate Transactions ANALYSIS OF THE Technology and Operations OPERATIONS AND STRUCTURE Compensation and Benefits OF THE AUTHORITY \ Final Report June 1992 r Digitized by the Internet Archive in 2015 https://archive.org/details/massachusettsturOOmass KPMG Peat Marwick Management Consultants 2199 2001 M. Street. N W Telephone 202 467 3000 Telefax 202 223 Washington. DC 20036 Telex 440477 PMMDCUl June 16. 1992 Mr. Allan R. McKinnon Chairman Massachusetts Turnpike Authority 10 Park Plaza, Suite 5170 Boston, Massachusetts 02116 Dear Mr. Chairman; KPMG Peat Marwick is pleased to submit our fmal report. Analysis of the Operations and Structure of the Authority. We believe the study's finding and recommendations will reinforce the Authority's ongoing initiatives to improve efficiency and effectiveness and will help the Authority to meet evolving future requirements and challenges. We wish to acknowledge the cooperation and extensive assistance of the Board, senior staff, and others in completing this important study. Very truly yours, A/) un 1 MASSACHUSETTS TURNPIKE AUTHORITY ANALYSIS OF THE FUTURE ROLE AND STRUCTURE OF THE AUTHORITY CONTENTS 1 Introduction 1.1 Background and evolution of the Massachusetts Turnpike Authority 1.2 Study purpose and objectives 1.3 Methodology 1.4 Considerations in the use of this report 1.5 2 Overview of the Authority 2.1 Authorized powers and responsibilities 2.1 Physical characteristics and condition of pavement and bridges 2.3 Operating characteristics and services 2.13 Financial characteristics 2.22 Organization and staffmg 2.23 3 Comparison of the Authority with other turnpikes 3. Survey sample 3.1 Survey results 3.2 4 Assessment of Authority organization and management practices 4.1 Legally authorized powers and responsibilities 4.1 Mission, goals, and policies 4.3 Operational structure 4.7 Capital improvement program 4.23 Financial structure 4.29 Conclusion 4.34 81 LIST OF EXHIBITS 2-1 Massachusetts Turnpike and Tunnels 2.4 2-2 Age of pavement: 1985 compared with 1991 2.8 2-3 Initial Turnpike bridges: Bridge Deck Condition 2. 1 2-4 Boston Extension bridge condition 2.10 2-5 Turnpike transaction and traffic growth 2.15 2-6 Comparison of Turnpike toll schedules for passenger vehicles and the Consumer Price Index 2.16 2-7 Sumner and Callahan Tunnels transaction growth 2.17 2-8 Passenger car toll comparisons for Northeast tunnels and major urban bridge crossings 2. 1 2-9 Massachusetts Turnpike Authority comparative safety record 2.20 2-10 Comparative Turnpike nonfatal accident statistics 2.20 2-11 Massachusetts Turnpike Authority revenue 2.24 2-12 Massachusetts Turnpike Authority expense 2.25 « 2- 13 Massachusetts Turnpike Authority current organization and staffing chart 2.27 3- 1 General characteristics of turnpikes and tunnels 3.3 3-2 Staffing comparisons (PTEs) 3.5 3-3 Staffing distribution (PTEs) 3.6 3-4 Work load and cost indicators 3.8 3-5 1990 safety indicators 3.10 3-6 Garden State Parkway capital plan 3.12 1 4-1 MassPike goal and key initiatives 4.5 4-2 1991 MassPike goals 4.6 4-3 Recommended MassPike goals 4.8 4-4 Existing policy and procedures manuals used by the Authority 4.9 4-5 PoUcy and procedures manuals required by the Authority 4.9 4-6 Former and current organizational structure - Massachusetts Turnpike and Tunnels 4. 1 4-7 Current organizational structure - Maintenance Division 4.14 4-8 Proposed organizational structure - Maintenance Division 4.16 4-9 Proposed organizational structure - Massachusetts Turnpike 4.24 Authority 1 MASSACHUSETTS TURNPIKE AUTHORITY ANALYSIS OF THE FUTURE ROLE AND STRUCTURE OF THE AUTHORITY^ CONTENTS 1 Introduction 1 . [ Background and evolution of the Massachusetts Turnpike Authority 1.2 Study purpose and objectives 1.3 Methodology 1.4 Considerations in the use of this report 1 .5 2 Overview of the Authority 2.1 Authorized powers and responsibilities 2.1 Physical characteristics and condition of pavement and bridges 2.3 Operating characteristics and services 2.13 Financial characteristics 2.22 Organization and staffing 2.23 3 Comparison of the Authority with other turnpikes 3. Survey sample 3.1 Survey results 3.2 4 Assessment of Authority organization and management practices 4. « Legally authorized powers and responsibilities 4. Mission, goals, and policies 4.3 Operational structure 4.7 Capital improvement program 4.23 Financial structure 4.29 Conclusion 4.34 Peat Marwick 1. INTRODUCTION There is widespread concern that our nation's declining economic competitiveness is, in part, related to our lack of investment in our existing infrastructure. There is clear evidence that the condition of our existing roads and bridges is deteriorating due, in large part, to the lack of spending for proper maintenance and rehabilitation. Adequate funds also have not been available for expanding and building new transportation facilities to serve growing and changing travel patterns. The federal government and the states are reevaluating many strategies for addressing these issues in the transportation sector. Nationally, state governments are reviewing their fiscal and program priorities, conducting studies to "right size" agencies and programs, and seeking ways to improve efficiency and effectiveness to, in effect, increase overall transportation infrastructure investment. This comes at a time when more than half of the states face serious projected budget deficits. The new Intermodal Surface Transportation Efficiency Act of 1991 is an important step in addressing the infrastructure problem. It dramatically changes polices and programs for meeting the nation's transportation needs. This legislation affects all the states and supports the development of toU roads and other innovative strategies, such as public-private partnerships, to help finance and meet the needs of the nation's citizens and businesses. The Massachusetts Turnpike Authority has, for almost four decades, administered an integral part of the nation's interstate system and one of the most significant transportation systems in the Commonwealth of Massachusetts. This system today includes the Massachusetts Turnpike, a 135-raile highway which extends from the City of Boston to the western border of the Commonwealth, plus the Sumner and Callahan Tunnels under Boston Harbor which connect downtown Boston with East Boston and Logan Airport. As the central spine of the Commonwealth's surface transportation network, the MassPike system serves both commuter and intercity highway travel needs and facilitates economic activity by permitting the efficient movement of both people and goods. Funded primarily by toll- based user fees, this system has been built, operated, and maintained at a high level of service without receiving either state or federal tax dollars. With the aging condition of its Turnpike and tunnel facilities, the Authority is faced with the challenge of financing a multimillion-doUar turnpike and tunnel reconstruction and improvement program that is vital to the continued structural iategrity and safety of the system. This program is the product of the Authority's in-depth annual inspection programs and extensive planning and engineering that indicated the need to reinvest in the turnpike and tunnels infrastructure. The Authority is also receiving increased pressures to alter or expand its fundamental mission, given the fiscal crisis confronting the Commonwealth. Already, suggestions have 1.1 KPMG Peat Marwick been made to have the Authority perform or pay for snow plowing on other highway facilities in the Commonwealth, to use Authority toU revenues to help fund other transportation projects or programs (such as the Central Artery/Third Harbor Tunnel project), to further privatize the Authority's functions, or to consolidate the Authority into a new multiagency transportation authority. As the Commonwealth and Authority look to the future, this study has been developed to (1) assess the efficacy of the Authority's reinvestment program which seeks to ensure that the Turnpike/tunnel system is kept in safe and efficient operating condition, and (2) provide suggestions to further improve its efficiency and effectiveness. This introductory section of the report is presented in four sections: Background and evolution of the Authority Smdy purpose and objectives Methodology Considerations in the use of this report BACKGROUND AND EVOLUTION OF THE MASSACHUSETTS TURNPIKE AUTHORTTY The Massachusetts Turnpike Authority was created by the Massachusetts Legislature in 1952 to construct, operate, and maintain a toll expressway extending from the Boston metropolitan area to the western border of the Commonwealth. The initial 123-mile section of the Massachusetts Turnpike was opened in 1957, following a two-year construction period. In 1958, the Legislature authorized the Authority to expand the MassPike system through the: Acquisition in 1958 of the two-lane Suranef Tunnel (first opened in 1934) from the City of Boston and construction of an adjacent two-lane Callahan Tunnel, which began operation in 1961 Acquisition in 1962 of land from the New York Central Railroad Company and construction of the 12-mile Boston Extension, which began operation in 1965 and extended the Turnpike into the heart of