Program Review + Massachusetts Division Office Office of Infrastructure - Central Artery Project Office of Bridge Technology Tunnel Inspection Resource Center Structures Team Progam Virginia Division Office And October 2011 • Maryland Transportation Authority • Pennsylvania Department of Transportation • Virginia Department of Transportation FINAL REPORT u.s. Department 01 Transportation Federal Highway Administration Table of Contents Executive Summary .................................................................................................1 Background ..............................................................................................................3 Purpose and Objective .............................................................................................4 Scope and Methodology ..........................................................................................5 Team Members ........................................................................................................7 Observations and Recommendations .......................................................................9 Inspection Procedures ........................................................................................9 Inspection Response Activities ........................................................................15 Inspection Quality Management ......................................................................17 Staffing, Qualifications, and Training .............................................................19 Conclusion .............................................................................................................21 Attachments ...........................................................................................................23 A. Map of Central Artery Tunnel Sections B. Review Agenda Questions C. Meeting Agenda D. Tunnel Inspection Policy Directive E. Tunnel Inspection Master Tracking Spreadsheet F. Sample Overhead Items Inspection Form G. Notification Matrix H. Bridge/Tunnel Consultant Inspection Guidelines I. Bridge/Tunnel Inspection Review Guidelines J. Bridge/Tunnel Inspection Checklist u.s. Department 01 Transportation Federal Highway Administration Executive Summary In February 2011, a light fixture fell from the ceiling of the Central Artery at I-93 northbound inside the Tip O’Neill Tunnel. After that event, and considering the history of the Project, the Federal Highway Administration (FHWA) determined that it should conduct a review of the Central Artery tunnel inspection program. The objective of the review was to obtain an independent and objective assessment of the Massachusetts Department of Transportation’s (MassDOT) Central Artery tunnel inspection program to identify good practice and opportunities for improvement. The primary focus was on the tunnel system components that are over roadways and walkways, those that could fall and affect public safety. The review was facilitated by the FHWA Massachusetts Division Office, with technical direction and oversight provided by the FHWA Office of Bridge Technology. A team of representatives from the following organizations conducted the review: FHWA Massachusetts Division Office; FHWA Office of Bridge Technology; FHWA Resource Center Structures Team; FHWA Virginia Division Office; Maryland Transportation Authority; Pennsylvania Department of Transportation; and, the Virginia Department of Transportation. The program review took place from June 27 to July 1, 2011. The review team examined current MassDOT business processes, developed observations, and drafted recommendations related to four major focus areas: A. Inspection procedures B. Inspection response activities C. Inspection quality management D. Staffing, qualifications, and training Current Inspection Practices Each tunnel is divided into 215 sections of various lengths (depending on cross-section type) known as Bridge Inventory Numbers, or BINs. MassDOT conducts annual inspections of 15 different overhead items in each BIN twice during the three-year cycle; a three-year “all item” inspection, including the overhead items, is conducted once per cycle. In 2007, the first three- year inspection cycle was initiated using in-house forces and bridge inspection consultant contracts already in place; the second three-year cycle began in the 2010. The inspection program is funded through a five-year budgeting process, and costs approximately $2.7 to $3.2 million per year. During the inspection, inspectors take notes and photographs, and subsequently complete an inspection report that includes a narrative and photographs of observed deficiencies. Each of the - 1 ­ u.s. Department 01 Transportation Federal Highway Administration 15 overhead items within a BIN is assigned a summary numerical rating from 0 to 9, one of four deficiency rating codes, and an urgency of repair code. When the inspection reports are submitted, MassDOT enters the summary ratings for each item into a spreadsheet that tracks the ratings by BIN for that year. After MassDOT reviews the inspection reports for accuracy and completeness, staff develops and prioritizes corrective actions. If an inspection team observes a deficiency or safety hazard that may require immediate remedial action, they notify MassDOT, which in turn takes appropriate actions to address the issue. These actions may include performing an immediate repair, if warranted, or submitting a Corrective Work Order that allows the repair to be performed later. Observations and Recommendations Inspecting and maintaining the Central Artery tunnel system is a challenging endeavor. The system is complex and extensive, comprised of 214 lane-miles of tunnel and transition sections divided into 205 inspection sections and built using several different construction methods. High traffic volumes and a corrosive environment that may accelerate deterioration (due to leaks or other factors) add to the difficulty. MassDOT conducts annual inspections of the overhead tunnel items in accordance with the 2007 policy directive. The annual inspection schedule is appropriate, and funds are budgeted to conduct the inspections. However, the schedule of the tunnel inspections results in a significant amount of information to be reviewed and processed, as well as a large number of consequent maintenance actions to be prioritized and performed. Given the complexity of the task, MassDOT would benefit by more clearly defining and implementing improved inspection, response, and quality management procedures, and should fully utilize appropriate maintenance and asset management database applications. To help MassDOT accomplish these objectives, 24 specific recommendations are included in the review, including the following: • Define distinct and detailed procedures for inspecting each of the fifteen overhead items • Develop written guidelines to ensure consistent assignment of summary item ratings • Inspect roof beams, roof beam connections, roof slabs, and protective coatings biannually • Develop an action plan to implement methods to inspect obscured overhead items • Continually review and modify inspection procedures to account for “lessons learned” • Include a record of all defects in the inspection reports, especially critical defects • Enter all defects included in inspection reports into an appropriate database application • Define and document inspection response roles and procedures • Develop a more comprehensive inspection quality management program • Implement a program of field verification of inspection ratings and defect detection • Institute methods to ensure consistency of rating and defect detection - 2 ­ u.s. Department 01 Transportation Federal Highway Administration Background The Central Artery / Tunnel Project replaced a six-lane elevated highway with a network of tunnels, bridges, and surface roads comprising 161 lane-miles within a 7.5-mile corridor. The tunnel system includes three major facilities (as shown in Attachment A): • The Ted Williams Tunnel, completed in 1995, is a 1.6-mile long binocular steel concrete lined tunnel connecting South Boston to East Boston and Logan Airport • The I-90 Connector Tunnel, completed in 2003, connects the I-90/I-93 interchange and the entrance to the Ted Williams Tunnel. The I-90 Connector Tunnel includes the 200-foot long D Street Portal, which was completed in 1993. • The Tip O’Neill Tunnel, completed in 2003, is a 1.5-mile long system of tunnels and ramps, from Kneeland Street to Causeway Street, connecting to the Leonard P. Zakim Bunker Hill Bridge. In 2003, as part of the project, Bechtel/Parsons Brinkerhoff prepared the Inspection Manual for Tunnels and Boat Structures, to provide guidance related to inspection of tunnel elements. In 2007, the Massachusetts Turnpike Authority (which at that time was responsible for the Central Artery) adopted a revised policy and protocol for tunnel inspection that required all overhead tunnel components be inspected annually, and that all other structural components be inspected every three years. In March 2007, four three-year consulting contracts were executed by the Turnpike Authority to inspect all Central Artery tunnels in conformance with the revised policy. In June 2009, state legislation was adopted that required Massachusetts to integrate transportation agencies and authorities into a Massachusetts Department of Transportation by November 1, 2009. As part of that effort, responsibility for the Central Artery tunnels was vested in the MassDOT Highway