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CHAPTER TWO
TRANSPORTATION AGENCIES
U.S. INSPECTION INVENTORY and, by reference, in FHWA guides and manuals (3,4),
AASHTO manuals (57), and National Highway Institute
U.S. federal regulations require the periodic inspection of (NHI) courses. State DOTs, acting within the limits of
bridges on public roads with a span of greater than 20 ft (1). federal regulation, develop additional requirements and
State DOTs may inspect other highway structures such as provide more detailed statements of inspection program
sign bridges, high mast lights, tunnels, and retaining walls, as requirements.
well as minor bridges with span of 20 ft or less. Structures
such as pedestrian bridges and railroad bridges that cross
ROAD AGENCIES IN OTHER NATIONS
public roads are also inspected, either directly by the DOT or
bridge owners. Denmark--Danish Road Directorate
The counts of National Bridge Inventory (NBI)-eligible The Danish Road Directorate administers 4000 km of road-
structures among U.S. states range from fewer than 800 in ways; approximately 5% of the total public road network in
Rhode Island to more than 49,000 in Texas (Table 5). These Denmark (see Table 6). The Directorate's responsibilities in-
include bridges owned by the state government, local gov- clude bridges, tunnels, retaining walls, noise barriers, sign
ernments, tollway authorities, and others. Although the re- structures, and ferry berths.
sponsibility for compliance with federal regulations at all
bridges is imposed on the state government and by extension In 2006, Denmark had national roads, regional roads, and
the state DOT, inspection of bridges may be done by bridge local roads, and a corresponding three levels of road agen-
owners, subject to review and approval by the state DOT. cies. A reorganization that became effective in 2007 elimi-
nated county agencies and reduced the number of municipal
The set of NBI-eligible structures includes approximately agencies (see Table 7). Some roads and major bridges are
471,000 bridges and 125,000 culverts. Of these, 499,000 are conceded, and some crossings, including the Great Belt and
water crossings, 38,000 require underwater inspection, the Oresund, are private roads.
22,000 are fracture-critical, and 84,000 are posted for load
capacity (see Table 5). The Road Directorate is responsible for planning, creation
of standards for road design and construction, and for inspec-
ADMINISTRATIVE LEVELS
tions of structures. The Directorate prepares a guide to inspec-
tion of bridges (8), which is followed by the Directorate and by
U.S. road agencies exist at national, state, and local levels. At local agencies. Local agencies frequently hire consultants for
the national level, the FHWA is concerned with the infra- bridge inspection, and inspection data for local bridges are
structure of public roads throughout the nation. The FHWA usually reported to the Directorate, although this is not manda-
executes the bridge inspection programs for many federally tory. Local agency bridges are designed, inspected, and rated
owned bridges on public roads and regulates the inspection of in conformance with Directorate standards.
public roads bridges owned by others. U.S. state transporta-
tion departments execute bridge inspection programs for Finland--Finnish Road Administration
state-owned bridges and variously execute, regulate, or re-
view inspection programs for bridges owned by others within The Finnish Road Administration (Finnra) manages 78 000 km
the state. Local governments are among these other owners. of roads, 11,191 bridges, and 2,935 culverts. Finnra oversees
Inspection of local governments bridges are performed by contract work, with design, construction, maintenance, and
local agency staff, by consultants hired by local road agen- most inspections performed by contractors.
cies, or by state DOT staff.
Finnra sets national standards for bridges, offers expert
Federal regulations address bridge inspection population, guidance to regional and local road agencies, and addresses
inspection intervals, inspection methods, inspection person- all issues that must be coordinated at the national level.
nel, and inspection reporting. Federal requirements are Finnra's guides and handbooks are followed by local road
presented primarily in the Code of Federal Regulations (1) agencies, by other Finnish agencies such as the forestry
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TABLE 5
U.S. NATIONAL BRIDGE INVENTORY STRUCTURES
Structures Owner Special Inspection Load Postings Water Crossings
Fracture Under- Other
DOT Bridges Culverts State Local Other Critical water Special Bridges Culverts Bridges Culverts
Alabama 9,921 5,784 5,602 9,925 178 260 945 380 2,982 47 8,342 5,783
Alaska 1,125 53 756 123 299 103 175 12 273 2 1,042 49
Arizona 3,361 3,849 4,469 2,268 473 65 12 43 201 26 2,242 3,844
Arkansas 9,690 2,792 7,084 5,239 159 347 7,536 707 1,836 13 8,822 2,791
California 20,757 3,274 11,900 11,342 789 1,007 638 80 803 25 12,699 3,164
Colorado 6,617 1,661 3,442 4,534 302 207 75 61 672 31 5,383 1,621
Connecticut 3,569 599 2,775 1,235 158 169 309 289 106 8 1,779 595
DC 244 2 211 0 35 13 13 2 29 1 91 2
Delaware 649 203 812 7 33 29 77 21 7 2 407 203
Florida 9,352 2,189 5,295 5,477 769 339 3,950 578 988 31 6,302 2,176
Georgia 9,081 5,444 6,499 7,767 259 82 2,170 94 2,050 15 6,843 5,430
Hawaii 948 158 704 370 32 10 102 19 146 4 762 157
Idaho 3,962 110 1,269 1,620 1,183 173 306 71 593 4 3,485 109
Illinois 21,664 4,142 7,513 17,613 680 550 1,293 271 1,128 8 18,068 4,131
Indiana 16,832 1,442 5,132 12,664 478 523 710 905 1,923 114 14,706 1,428
Iowa 21,270 3,583 3,972 20,665 216 1,660 144 939 5,298 20 19,722 3,582
Kansas 17,834 7,682 4,829 20,090 597 1,109 201 572 9,803 2,861 16,102 7,628
Kentucky 10,672 2,851 8,784 4,624 115 349 2,147 84 1,346 51 9,284 2,781
Louisiana 10,995 2,356 7,794 5,241 316 142 1,198 7 2,124 11 10,909 2,355
Maine 2,034 336 1,936 208 226 45 371 14 99 1 1,557 331
Maryland 3,914 1,170 2,504 2,174 406 285 421 135 356 26 2,346 1,161
Massachusetts 4,624 298 2,816 1,536 570 329 756 448 433 9 2,194 289
Michigan 9,488 1,399 4,408 6,368 111 105 353 187 1,253 51 6,485 1,391
Minnesota 7,261 5,773 3,571 9,245 218 248 338 187 350 76 5,400 5,593
Mississippi 13,647 3,258 5,537 10,879 489 244 304 1,715 3,828 151 12,269 3,252
Missouri 19,239 4,645 10,134 13,637 113 1,589 174 318 5,656 86 16,652 4,633
Montana 4,725 204 2,449 1,938 542 310 499 24 648 8 3,930 197
Nebraska 12,510 2,947 3,471 11,795 191 1,289 95 50 5,246 0 11,849 2,944
Nevada 952 682 956 613 65 34 122 25 25 2 365 668
New Hampshire 2,127 244 1,289 861 221 144 137 53 222 8 1,556 233
New Jersey 6,035 410 2,370 2,532 1,543 652 708 391 291 6 3,235 405
New Mexico 2,164 1,672 2,933 699 204 53 7 32 180 4 1,560 1,628
New York 15,665 1,677 7,424 8,512 1,406 1,777 804 4 1,145 19 10,425 1,651
North Carolina 12,725 4,788 16,531 712 270 140 2,142 27 4,427 9 9,802 4,780
North Dakota 3,641 837 1,111 3,298 69 239 38 37 1,040 4 3,273 829
Ohio 26,296 1,770 8,855 18,448 763 1,099 290 29 2,434 17 21,240 1,739
Oklahoma 16,722 6,665 6,759 15,767 861 754 71 1,129 5,818 144 14,748 6,633
Oregon 6,937 314 2,661 3,918 672 347 676 42 796 30 5,840 313
Pennsylvania 20,613 1,694 14,812 6,004 1,491 1,896 3,881 1,981 2,618 48 15,595 1,653
Puerto Rico 1,816 327 1,812 322 9 22 30 40 198 13 1,322 322
Rhode Island 721 28 588 138 23 35 89 97 70 1 321 28
South Carolina 8,120 1,084 8,326 818 60 65 241 322 601 26 6,845 1,075
South Dakota 4,811 1,150 1,811 4,021 129 228 112 26 1,333 54 4,313 1,144
Tennessee 11,388 8,381 8,038 11,330 401 271 543 46 1,258 32 8,775 8,376
Texas 31,408 17,818 32,086 16,467 673 624 796 108 3,602 86 23,501 17,815
Utah 2,302 526 1,706 967 155 62 78 46 211 8 1,387 503
Vermont 2,530 173 1,077 1,597 29 161 53 41 125 1 2,178 124
Virginia 10,275 2,974 11,696 1,086 467 344 697 134 1,269 18 7,341 2,969
Washington 7,395 250 3,080 3,869 696 364 315 170 802 17 5,574 238
West Virginia 6,417 504 6,628 108 185 563 256 337 314 3 5,755 474
Wisconsin 11,765 1,926 4,869 8,682 140 116 276 12 378 6 9,088 1,918
Wyoming 2,609 424 1,938 839 256 97 61 13 448 27 1,758 422
Source: National Bridge Inventory Data (2).
TABLE 6 TABLE 7
ROADS AND BRIDGES IN DENMARK ROAD AGENCIES IN DENMARK
National Directorate Local Agencies Prior to 2006 Current (2007)
Roads (route miles) 4000 km 70 000 km County Road Agencies 14 0
Bridges* 3,500 7,000 Municipal Road Agencies 273 99
*Approximate number.
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administration, and by private bridge owners. Local road placements of bridges. Funds for these activities come from
agencies (primarily municipal governments) can store their the national government, and decisions on repairs and replace-
bridge information in Finnra's registry if the local user is cer- ments are subject to review and approval by the national
tified for the registry. road directorate.
Documents prepared by Finnra include guidelines and pol- National funds for bridge repairs are allocated to interde-
icy for bridge maintenance, rehabilitation, and repair partmental road agencies through five general supervisors.
operation; guidelines for bridge inspection; a bridge inspec- The supervisors belong to the General Bridge Inspection
tion manual; and a bridge repair manual [SILKO Guidelines, Service and each supervisor is charged with a geographic
Siltojen Korjausohjeet (Bridge Repair Guidelines)]. region in France. General supervisors control DDE activities
that affect bridges.
France--French National Road Directorate
Local road agencies include approximately 100 Conseil
French road authorities exist at three levels: national, de- Général, and more than 38,000 towns and villages. Local
partmental (similar to U.S. states), and local (cities, towns, road agencies are assisted by the Assistance Technique
and villages). The French National Road Directorate, an fournie par l'etat pour des raisons de Solidarité et de l'Amé-
agency within the French Ministry of Equipment (Ministère nagement du Territoire (ATESAT), a program of the Min-
de l'Équipement, des Transports, de l'Aménagement du istry of Equipment, to ensure the safety of roadways.
territoire, du Tourisme et de la Mer (Ministry for Infra-
structure, Transport, Spatial Planning, Tourism, and the Technical organizations involved in bridge engineering
Sea), provides funding to national road agencies acting in and road operations include:
the departments (states) and establishes national policies
for road transport. The Directorate develops and operates SETRA (Service d'Etudes Techniques des Routes et
the bridge management system. Departmental agencies Autoroutes)--reviews proposed repair projects and operates
[Direction Départementale de l'Equipement (DDE), an LAGORA, the French bridge management system.
agency of the Ministry of Equipment] do repairs of bridges
and conduct specialized studies and investigations as
CETE (Centre d'Etudes Techniques de l'Equipement)--a
needed. Local agencies, called subdivisions, each guided
group of eight regional centers providing technical advice to
by its departmental agency, do routine bridge inspection
local road agencies and assisting in bridge investigations and
and maintenance.
planning for repair projects.
In France, the Instruction Technique pour la Surveillance et
LCPC (Laboratoire Central des Ponts et Chaussées)--the
l'Entretien des Ouvrages d'Art (ITSEOA) (9) establishes
central (national) laboratory performing bridge research and
procedures for inspection of most roadway infrastructure
providing expert technical advice on bridges.
including bridges, tunnels, culverts, retaining walls, and
embankments. The first part of the ITSEOA addresses admin-
istrative issues. The second part consists of 30 documents LRPC (Laboratoire Régional des Ponts et Chaussées)--a
addressing methods and techniques for particular materials and group of 17 regional laboratories engaged in detailed inspec-
structures. Condition assessment is further guided by the Image tion, testing, instrumentation, and diagnosis for bridges and
de la Qualité des Ouvrages d'Art (IQOA) (10), which presents structures.
standard classifications for each kind of deterioration and dam-
age encountered on some 25 types of structures. CETU (Centre d'Etudes des Tunnels)--performs detailed
inspection, testing, and studies of tunnels.
Two substantial reorganizations of French road agencies
have occurred since the 1980s. Before 1982, the Ministry of Road concessionaries are required to adhere to the guides
Equipment controlled 105,000 bridges. Between 1982 and and standards of the French National Road Directorate; local
2006, the ministry had direct control of 23,000 bridges and government road agencies are not. In practice, most local
controlled the activities of six private companies that man- agencies do follow national standards, and it is the policy of
aged conceded motorways. There are 7,000 bridges along Interior Ministry (Ministère de l'Intérieur, responsible for
these motorways. In 2006, further decentralization reduced departments, towns, and cities) to advise local governments
the Directorate's inventory to fewer than 15,000 bridges. on their bridge inspections.
Roadway concessionaires have consolidated, and there are
now three large corporations managing most conceded roads. Germany--German Federal Roads
Overall, maintenance responsibilities at most bridges are del-
egated to private companies. German federal roads are administered by the Bundesminis-
terium für Verkehr, Bau und Stadtentwicklung (BMVBS)
There are 11 interdepartmental road agencies that have (Federal Ministry of Transport, Building, and Urban
direct control of inspections, maintenance, repairs, and re- Affairs). The ministry provides advice and technical support
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to German states and to other federal agencies. States admin- nine provincial departments of transport and numerous
ister inspections, control data in the bridge management sys- municipal transport agencies.
tem, and develop five-year plans for maintenance programs.
There are approximately 120,000 bridges on all roads; of SANRAL is decentralized. Four regional branches admin-
these, 37,000 are on federal highways and trunk roads, and ister roads. SANRAL has a total staff complement of approx-
83,000 are on state, county, municipal, and rural routes. imately 140 individuals. SANRAL outsources most road de-
[A note on wording: Germany distinguishes federal roads sign and construction work to private firms.
from national roads. Two German states, Bavaria and Sax-
ony, refer to their state roads as national roads.] Inspections are also out-sourced. Firms hired by SANRAL
to provide inspection services are assigned a section of road
German guides and standards for inspection of structures and a set of bridges. On conceded roads, concessionaires
and for standardized reporting of condition include: arrange all inspections, using their own personnel or hiring
consulting engineers. Based on inspection reports, repair
· Inspection and Testing of Engineering Structures in needs are identified and prioritized. Design consultants, in-
Connection With Roads, DIN 1076, 1999 (11). dependent of inspection consultants, are hired to make de-
· Recording and Assessment of Damages, Guideline RI- tailed evaluations of bridges and to prepare plans and speci-
EBW-PRÜF, 2004 (12). fications for repair projects.
· Structure Inventory, ASB, 2004 (13).
Through training consultants, SANRAL offers certifica-
These publications are revised and updated by working tion courses for bridge inspectors. The agency reviews
groups that have representatives from BMVBS, from inspection reports; however, it does not verify inspection
Bundesanstalt für Strassenwesen (Bundesanstalt für Strassen- findings directly, although the overlapping work of inspec-
wesen is the Federal Highway Research Institute of tion consultants and project development consultants yields
BMVBS), and from some federal states. Deutsches Institut such verification for some bridges.
für Normung (DIN), the German Institute for Standardization,
provides standards for a wide range of engineering and man- SANRAL produces a manual for bridge inspection and
ufacturing activities. reporting and maintains standards for design and construc-
tion. These standards apply to the national roads whether
German federal standards for bridge inspection apply to maintained by SANRAL or by concessionaires. The agency
states for inspection of bridges on federal roads. Inspections does not formulate national regulations. It does not direct
of bridges on state roads and bridges on county and munici- inspection practices of provincial governments or local gov-
pal roads are not required to meet federal standards; how- ernments, nor does it receive inspection data or otherwise
ever, local agencies are strongly encouraged to do so. monitor the condition of bridges other than bridges on na-
tional roads.
Norway--Norwegian Public Roads Administration Road agencies in each of South Africa's nine provinces are
autonomous and perform all inspection and maintenance of
The Norwegian Public Roads Administration (Statens veg-
bridges on provincial roads. Provincial agencies often follow
vesen) has a central office, 5 regions, and 30 districts. All
SANRAL standards for bridge design, inspection, and main-
construction and maintenance are done by contract. In each
tenance, although this is not required. The provinces do not
region there is one engineer responsible for bridges. This
participate in the inspection or maintenance of national roads
engineer is involved in all activities including bridge man-
within their boundaries.
agement, inspection, maintenance, repair, strengthening, and
construction.
Swedish Road Administration
South Africa--South African
National Roads Agency Vagverket, the Swedish Road Administration (SRA), has
approximately 6,500 employees in 16 groups that include the
The South African National Department of Transport devel- head office; 2 support and development divisions; 7 regional
ops policy, strategy, and high-level regulation for all modes offices; and groups for vehicle registrations, driver licensing,
of transport. The Department of Transport directs the operat- ferry operations, engineering consulting, construction and
ing agencies. The operating agency for roads is the South maintenance, and road sector training.
African National Roads Agency Limited (SANRAL), which
administers the national road system. SANRAL's assets in Three groups are profit centers: construction and mainte-
roads, structures, and equipment are valued at 30 billion nance, consulting services, and ferry operations. Profit centers
Rand (US$3.8 billion). In addition to SANRAL, there are operate as subsidiary companies of SRA and compete with
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private contractors and engineering consultants for work in TABLE 8
bridge design, construction, and maintenance. SRA's con- STRUCTURES INSPECTED--FOREIGN AGENCIES
struction and maintenance group holds 62% of SRA routine Nation Structures Inspected
maintenance contracts. Work performed by SRA includes Denmark Bridges
Culverts
strategic management, planning of projects, specifications for Decks on piles
bridge works, procurement of bridge works, and supervision Sign bridges
of contract work. SRA performs about half of all bridge Retaining walls
Cable ducts
inspections, with other inspections done by consultants. Work Pipe ducts
by consultants and SRA profit centers include bridge design, Sluices
maintenance and repair projects, bridge construction, and All structures of importance to the traffic network
bridge inspections. Finland Inspectors are mostly employees of consulting firms that
inspect all varieties of civil structures and highway assets.
Germany Bridges
SRA maintains guides and manuals for bridge design, con- Culverts
struction, and inspection. These are mandatory only for SRA Sign structures
Signal structures
bridges. Sweden does not have national regulations for bridge Tunnels
inspection, but these may be developed in the near future. Noise barriers
Retaining walls
High mast lights
There are seven regional road agencies in Sweden. The Sweden Bridges
agencies maintain bridges on regional roads and on national Culverts
roads. SRA provides funding and sets standards for the Retaining walls
inspection and maintenance for SRA bridges, although the
work is executed through the regional road agencies.
The Design Manual for Roads and Bridges (14) was
created and is maintained by the Highways Agency. The
Municipal road agencies are autonomous, operate without
manual's provisions are mandatory for work on highways
SRA oversight, but usually adhere to SRA standards in bridge
controlled by the Highways Agency.
design, construction, and inspection.
The Highways Agency works in association with trunk road
United Kingdom of Great Britain and authorities in Scotland, Wales, and Northern Ireland to produce
Northern Ireland--United Kingdom Highways Agency requirements for the inspection and management of structures.
Requirements are published as BD 62/94 and BD 63/94.
The United Kingdom Highways Agency has a network of
These are not statutory instruments; instead, they are enforce-
9400 km of trunk roads that link population centers, ports,
able as contract provisions. Interim Advice Note IAN 45 mod-
and key cross-border routes. The network has approxi-
ifies the requirements in BD 62/94 and BD 63/94. The revised
mately 10,000 bridges and 6,000 other structures (tunnels,
BD62/BD63 will be supplemented by advice in a bridge in-
retaining walls, and sign structures). There are approxi-
spection manual, which will have a scope similar to the
mately 100,000 other bridges and structures that are the re-
FHWA/NHI training manual for inspectors.
sponsibility of local authorities. In total, the United King-
dom has approximately 155,000 bridges on roadways,
Highways Agency standards apply only to Highways
waterways, and rails.
Agency bridges; however, many regional and local road
agencies also follow agency standards. These agencies may
The Highways Agency has a staff of 1,700 people involved
in development of guides and specifications, and in contract include Highways Agency standards as contract clauses to
administration. It develops policies for the entire life cycle of
TABLE 9
bridges including construction, inspection, maintenance, and MINIMUM SIZE FOR INSPECTION--FOREIGN
improvement. The direct tasks of construction, maintenance, AGENCIES
inspection, etc., are done by contractors under Highways
Nation Structure Type Min. Inspection Size
Agency oversight. Denmark Highway bridge 2 m span
Finland 2m
All Highways Agency bridge inspections are performed France 2m
Germany 2m
under contract. Increasingly, the agency relies on long-term Norway 2.5 m
contracts for the operation and maintenance of roads. It has South Africa 6m
assigned 14 areas to Maintenance Area Contracts (MACs). Sweden (pre-1989) 3m
Sweden (today) 2m
MACs are usually let for 7 years. The 14 maintenance areas United Kingdom 1.8 m
are regional in extent, with exact boundaries adjusted to Germany Noise barrier 2 m height
achieve viable work programs. MACs operate in accordance Germany Tunnel 80 m length
with Highways Agency standards. Finland Pipe bridge 2 m span
