Communicating the Value of Transportation Research (2009)

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Guidebook Transportation Case Studies 45 Transportation Case Studies1Appendix Case Study 1: Adaptive Control Software (ACS) Lite Case Study 2: Northwestern University New Bridge Steel Case Study 3: California Seismic Bridge Retrofi t Program Case Study 4: Virginia Fiber-Reinforced Polymer Bridge Deck Case Study 5: Missouri Statewide Installation of Median Cable Barriers Case Study 6: Oregon Mileage Fee Concept and Road User Fee Pilot Program Case Study 7: National Cooperative Freight Research Program These are condensed from the full case studies presented in the fi nal report for NCHRP Project 20-78, “Communicating the Value of Research,” published as NCHRP Web-Only Document 131.

Guidebook Transportation Case Studies 47 Context In the mid-1990s when new technologies were booming, one of the innovations that changed the fi eld was adaptive control technology. Adaptive control systems “teach” themselves by measuring their own performance and adapting to improve based on changing conditions, making them good candidates to deal with the increasing congestion in urban areas. The Federal Highway Administration (FHWA)/Turner-Fairbank Highway Research Center embarked on research to improve traffi c signal control. The research yielded a program called Adaptive Control Software (ACS). ACS was well suited for large urban areas. However, in areas with small to medium population densities, installation and maintenance costs kept the ACS system from gaining wide acceptance. Given these barriers, FHWA identifi ed a need to adapt the software to be suitable for use in small and mid-sized cities. The result was a new software tool called ACS Lite. Strategy Two strategies were used to develop ACS Lite. First, developers had to convey the message that ACS Lite was a product with the ability to solve a problem on a national scale. Second, the FHWA research team off ered an incentive to the major industry players: they could obtain the ACS Lite software at no cost, and FHWA would pay half of the development costs for the “bridging” software to connect the old and new systems for each participating manufacturer. This incentive off ered a big reward—better product and low development cost—for the risk of participating in the research with fellow competitors. Content The FHWA communicated that ACS Lite was the best way to signifi cantly reduce congestion because it was designed to keep the signal settings and timing current. A second message was that ACS Lite, through the incentives off ered to manufacturers, could serve as a cost-eff ective retrofi t for existing systems, while requiring minimal equipment or replacement for its use. Channel and Style The channel and style used in this case were personal, conversational contact. The FHWA had to reach out to policy makers, technical researchers, and industry leaders to convey the industry-wide benefi ts of ACS Lite and to gain acceptance of the new software. By communicating directly with decision makers and industry infl uencers, the FHWA was able to successfully carry out its strategies. Adaptive Control Software Lite1Case Study Value to Sell: Public–private partnerships that advance signal software development.

48 GuidebookCommunicating the Value of Transportation Research Context The type of steel used in bridge construction is extremely important. Before investors and transportation entities will fund the use of new steel, research must prove the steel is reliable, durable, and feasible. Researchers at Northwestern University succeeded in developing Northwestern University copper, a new A710 Grade B structural steel. Its properties make it cheaper to produce, less expensive to maintain over the life of the structure, and equally as durable as the steel currently used in bridge construction. Despite these advantages, the challenge facing Northwestern was to sell the value of the new steel. To prove the new technology was useful, a steel bridge on State Route 83 (ILL-83) over a rail line near Lake Villa was constructed as the culmination of 10 years of research, collaboration, communication, testing, and, fi nally, gaining approval to use the new steel. Strategy The developers of Northwestern University copper demonstrated the benefi ts of their new steel to builders and decision makers through a variety of methods. They tested the steel under laboratory conditions and gained acceptance of the new steel in a retrofi t project of the existing Poplar Street bridge. Based on consistent testing and demonstrated advantages, the new steel was approved by the Illinois Department of Transportation (IDOT) and ultimately used in the ILL-83 bridge. Content Northwestern University gained approval for its new steel through a combination of scientifi c data (years of research testing) and a brand champion. A senior metallurgical engineer in IDOT’s Bureau of Materials and Physical Research contributed credibility to the project because of his status as a well-respected expert in the fi eld. Through the use of scientifi c reasoning and credible proponents, Northwestern University was able to introduce the new steel in smaller projects. This application confi rmed the laboratory results and ultimately paved the way to using Northwestern University copper for a full bridge application. Channel and Style The communication channel best suited for the IDOT ILL-83 bridge case study was personal, face-to- face interactions among professionals with shared activities and interests. Presentations of research and lab results at technical conferences was another avenue for communication that provided a forum for researchers and potential users to interact personally. Additional methods of communication included media coverage generated by news releases and more comprehensive stories from the public relations unit at Northwestern University, and written papers and reports in scholarly, professional, and trade publications. While the implementation of research results was successful, this case study illustrates the challenges involved in changing practices within an established fi eld. The active support of a brand champion, the standardization as A710 Grade B steel, and the persistence of the developers were key factors in overcoming the obstacles. Northwestern University New Bridge Steel2Case Study Value to Sell: Benefi cial properties of a new steel.

Guidebook Transportation Case Studies 49 Context Since the 1970s, four major earthquakes have struck California and, among other eff ects, demonstrated the serious impacts of earthquakes on transportation infrastructure. Researchers used information obtained from each quake for further investigations, and for the testing and deployment of materials and engineering modifi cations to bridges throughout the state. The goal of the research was to minimize the structural impacts and destruction caused by earthquakes and to maintain the integrity of bridges in vulnerable areas. Strategy California Department of Transportation’s (Caltrans) Seismic Bridge Retrofi t Program framed the issue around the serious threat of earthquakes and shared concern with offi cials and the public about transportation infrastructure stability and safety. To ensure rapid implementation of its recommendations, the program quickly summarized results from tests. In most cases, the program identifi ed a better design of a particular element of existing infrastructure, rather than advocating an entirely new structure. In addition, partnerships and coalitions were built among researchers, engineers, sponsors, legislators, state agencies, and utility companies to help foster a team environment that bred effi ciency and improved research results. The collaborations among research peers allowed for quality control—frequent review of papers, quarterly meetings—and better implementation of results. Furthermore, Caltrans allowed management to use streamlined processes, resulting in improved project fl exibility and a more responsive and nimble program that was able to take advantage of research opportunities as they arose. Content Clear and concise messaging of technical information to nontechnical decision makers, media, and the public was carried out in visual demonstrations of test results. Caltrans used simple graphics that highlighted relationships between the data and the factors considered by decision makers. To help nontechnical readers comprehend technical writing, most papers were only three to four pages and focused on personalizing the fi ndings as much as possible, as well as providing short illustrations or graphs with relevant and consistent scales. Channel and Style Personal interactions were the most popular channel used by Caltrans. The partnerships created among researchers, sponsors, and others allowed for a diverse group of experts to collaborate in solving problems. Interactions among researchers through open meetings provided the teams with avenues for peer review of papers and test results. Investment advisors were used to inform decisions on how funding should be allocated. The information used in these decisions was presented in short and concise printed reports that focused on presenting technical information in a comprehensive format. Broadcast and computer-based communication followed a similar format, with graphic displays being used to illustrate data in the form of video and slides. This format helped nontechnical audiences understand the technical information. California Seismic Bridge Retrofi t Program3Case Study Value to Sell: Th e life safety benefi ts expected from incremental research on seismic retrofi t methods.

50 GuidebookCommunicating the Value of Transportation Research Context The Federal Highway Administration (FHWA) classifi es many U.S. bridges as “structurally defi cient” or “functionally obsolete,” one of the many reasons the nation’s aging transportation infrastructure desperately needs more funding. FHWA awarded the Virginia Transportation Research Council (VTRC) funding from its Innovative Bridge Research and Construction (IBRC) program to employ a new lightweight fi ber-reinforced polymer (FRP) deck in the restoration of a deteriorating historic bridge. (FHWA’s IBRC program evolved into the Innovative Bridge and Research Deployment program, or IBRD, with the authorization of SAFETEA-LU.) VTRC is the research division of the Virginia Department of Transportation (VDOT). It led VDOT’s analysis and implementation of the FRP technology used in the deck replacement during the restoration of the Hawthorne Street bridge in Covington, VA. Under the auspices of the Virginia Cooperative Center for Bridge Engineering, a partnership of VTRC and Virginia Tech, these two entities worked with the innovative materials in the laboratory and on test sites for several years before installing this deck. The result: the Hawthorne Street bridge, built in the late 19th century, reopened after a one-year closure with a new and innovative deck that increased the structure’s load capacity nearly threefold, from seven to 20 tons. Strategy Selecting a relevant project on which to install an FRP bridge deck was an important fi rst step toward gaining funding for the project. VTRC and VDOT Structure and Bridge personnel identifi ed the Hawthorne Street bridge as the prime candidate because use of FRP for the deck would contribute to preserving the bridge’s overall historic iron thru-truss structure, while also increasing its load capacity. When selecting IBRC projects, VTRC and VDOT carefully match mature innovative technologies with structures suitable for application. Building on VTRC’s favorable reputation as an independent and objective research center, this attention to detail has resulted in Virginia receiving the most IBRC funding of any state over a fi ve-year period. In the case of the Hawthorne Street bridge, the preservation of a historic landmark also made communication about this project relevant and important to the public. Content VTRC’s proposal to FHWA focused on clearly presenting its prior research fi ndings and fi eld test results as a basis for using the FRP material for a bridge deck. VTRC wanted to show how VDOT could use FRP as a lightweight bridge deck in the rehabilitation of the Hawthorne Street bridge and how it could deploy the material in similar future cases. The positive and informative external communications VTRC and VDOT provided after completing the project also helped the public and policy makers understand the multifaceted research and materials involved in the project. Channel and Style Throughout the planning and rehabilitation of the Hawthorne Street bridge, VDOT and VTRC used both computer-based and personal-contact channels of communication. A systematic explanation of previous research fi ndings, the technology, and its benefi ts proved eff ective in communicating with FHWA for the IBRC funding. This communication style also brought focus to the positive research. Personal contact with the FHWA representatives paved the way for them to help guide the proposal through the IBRC evaluation process. It also provided important feedback for building stronger proposals in the future. Frequent face-to-face meetings between VTRC’s research team and VDOT’s construction team helped both groups work together and keep the project on track. VDOT’s regional offi ce gained further momentum for the project through media relations and news releases to increase public awareness. A ribbon-cutting ceremony celebrating the bridge’s reopening drew local offi cials and Virginia legislators as well as townspeople. This exposure helped to communicate the value of federal research funding for local transportation projects. Virginia Fiber-Reinforced Polymer Bridge Deck4Case Study Value to Sell: Th e value and performance of an innovative lightweight deck on a historic bridge, as well as the value of a state and federal partnership.

Guidebook Transportation Case Studies 51 Context The state of Missouri began to focus on improving traffi c safety by reducing cross-median fatalities after research using the state’s database on crash sites and crash types concluded that cross-median crashes were a major source of traffi c fatalities and severe injuries on Missouri roadways. Cross- median crashes typically involve head-on collisions, high speeds, and multiple fatalities. Using median cable barriers is a countermeasure to cross- median crashes that is both eff ective and relatively inexpensive. These factors eventually resulted in a unique situation where the state focused not on fatal crash locations (which are random), but on specifi c crash types (which are not random), and implemented a statewide solution. Strategy With a limited budget, the Missouri Department of Transportation (MoDOT) installed test sites in locations with a historically high frequency of cross- median crash sites. The test methods involved not only median guard cable, but also shoulder rumble strips and guardrail improvements. Throughout the late 1990s, after successful results with the test sites, additional mileage of median guard cable was placed along the interstates. The increased visibility of test sites to the public and policy makers served as references to the project’s success and provided the advocates of median guard cable the ammunition they needed when promoting its use on a statewide level. Persistent advocacy played a key role in keeping the topic fresh in the minds of decision makers. Content Results from test sites were summarized in reports that were used to promote the program’s early success. The earliest report on the original median guard cable located on I-44 indicated the cable had virtually eliminated cross-median fatalities. Other reports included information on improvements being made to installation design to increase the eff ectiveness of the cable on hills and turns. New installations were equally promoted to increase awareness, bringing attention to its eventual success. When presenting technical content to a nontechnical audience, MoDOT found the use of graphs and visual explanations helpful. Channel and Style Despite the multiple years that it took to deploy median guard cable as the statewide solution to cross-median crashes, many traffi c safety engineers and project managers consistently championed the program. This advocacy sustained momentum for the idea of improved safety and saved lives with a proven and cost-eff ective countermeasure to a specifi c crash type. In this MoDOT case, it was important for advocates of the program both to speak with decision makers and to be persistent in sending emails and letters to keep the issue visible. Increased visibility was also supported through broadcast channels or media sources, such as town hall meetings and news releases. After the public became aware of the success of median guard cable, the costs of implementing a statewide solution were easier to justify. Actively pursing other channels of communication, such as webinars and web conferences, helped to further increase awareness of the program. Missouri Statewide Installation of Median Cable Barriers5Case Study Value to Sell: A statewide solution to prevent a specifi c crash type.

52 GuidebookCommunicating the Value of Transportation Research Context In 2001, after an Oregon legislature hearing on the future of fuel-effi cient vehicles, there was concern that the fuel tax would become a declining revenue source for Oregon’s road systems. As a result, the 2001 Legislative Assembly addressed the long- term viability of Oregon’s road fi nance through the formation of a 12-member Road User Fee Task Force. The task force was charged with designing a revenue-collection strategy that could eff ectively replace the fuel tax as a long-term, stable source of funding for maintaining and improving Oregon’s road system. Strategy The task force identifi ed a mileage or user fee program as a favorable alternative to the gas tax, but the challenge was to help the public understand the problem of limited transportation funding so the fee program could be approved. The Oregon Department of Transportation (ODOT) used public outreach activities to educate the public on the innovative and experimental issues surrounding the mileage/user fee program. Additionally, ODOT and the task force made an eff ort to be accessible to the media, whose reports were used to further educate the public and gain support and visibility on both state and national levels. The program’s transparency provided the landscape for eff ective communication among interested parties. Content The public outreach eff ort was meant to ensure the public was educated on why Oregon was pursuing an alternative to the gas tax for fi nancing the road systems. Through open meetings with the task force, focus groups, presentations to stakeholders and transportation professionals, and so on, ODOT was able to educate the public and gain its support. The task force approached this public education eff ort with an understanding that the motoring public will not respond positively to change quickly and will need time to accept the nature of the problem and become comfortable with viable solutions. The task force also made eff orts to teach its allies about the program’s fundamentals so they too could become advocates. Channel and Style ODOT posted all process documents and reported all decisions on its interactive website. The task force’s reliance on web over paper documents allowed for immediate and effi cient communication with the public, greater transparency, and the ability to hear opposing views. This information helped to create better supporting arguments and helped ODOT understand weaknesses in its approach. Making numerous personal contacts was also eff ective in gaining acceptance for the program. The task force director served as a key spokesperson and champion, with his tireless presentations and advocacy of the program. The open meetings and geographically diverse public hearings allowed everyone the opportunity to learn and express their opinions about the program. If attending a meeting in person was not an option, the public could become educated through reports by the media, news articles, and radio interviews. Oregon Mileage Fee Concept and Road User Fee Pilot Program6Case Study Value to Sell: A more equitable and effi cient way to collect road user fees that is acceptable to the public.

Guidebook Transportation Case Studies 53 Context The deregulation of the freight industry in 1980 led to reduced focus on research due to a lack of public interest and the termination of data collection programs. As a result, freight research issues were not accounted for when decisions were made about public funding for transportation research. In recent years, the globalization of the industry and the increased demands on the movement of goods has heightened the public’s interest in freight issues. In response, the National Cooperative Freight Research Program (NCFRP) was created as the federally sponsored freight research program in the most recent surface transportation authorization act, the Safe, Accountable, Flexible, Effi cient Transportation Equity Act: A Legacy for Users (SAFETEA-LU). Strategy The Freight Stakeholders Coalition (FSC) began to coordinate eff orts to bring national attention to freight issues and to advocate for funding on freight research and public safety. Aided by the credibility of its members and support from industry, state, and local governments, the FSC became the major factor in the NCFRP’s inclusion in SAFETEA-LU. Equally infl uential was the FSC’s ability to build relationships with a diverse audience. By providing the groundwork for long-term interactions, the FSC was able to continually gain momentum with both the private and the public sectors. Content Rather than citing specifi c research while advocating for the NCFRP, the FSC chose a more general approach focusing on the importance of the fi eld, its problems, and its connection to the national economy. Consistent messaging that highlighted broad issues of national interest was key. The NCFRP was patterned to operate similarly to the successful National Cooperative Highway Research Program and Transit Cooperative Research Program, which are respected because of the responsiveness of their research agendas toward their constituencies. These programs provided a proven model for a successful implementation strategy and the participation of an Oversight Committee that represented the private and pubic sectors. Channel and Style The American Association of State Highway and Transportation Offi cials (AASHTO), in a partnership with the FSC, became the primary advocate for the NCFRP. The AASHTO’s commitment of resources to the program, along with its respected historical record, helped to escort the program through the passage of the bill. Both AASHTO’s ability to act as a lead advocate, along with the FSC’s eff orts to build relationships with Congress as an advocate for the NCFRP, provided the credibility and exposure needed to gain momentum for the NCFRP’s inclusion in SAFETEA-LU. Persistent and consistent collaboration among advocacy groups, government offi cials, and key stakeholders made personal contact the most important channel of communication for this research initiative. National Cooperative Freight Research Program7Case Study Value to Sell: Th e benefi ts derived from a national freight research program.