Sustainable Highway Construction (2019)

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96 5 INTERVIEWS Twenty-six interviews (TABLE 15) were conducted using an online meeting application and they identified 32 SCPs (see Section 8 for the list). The goals of these interviews were to (1) generate leads for potential inclusion in the workshop, and (2) capture specific information on SCPs and perceptions within the highway construction industry. Their value is in uncovering information that is not typically published, and unable to be captured in the brief format of the survey (e.g., opinions on SCPs, influence of business practices on accomplishment of SCPs, impacts of SCPs on contractors and owners, etc.) TABLE 18. Interviews Descriptive Data Descriptor Data Total Interviews: 26 Interview subjects: 1 academic (4%) 12 contractors and material suppliers (46%) 8 owners (31%) 5 designer/consultant (19%) Interview time statistics: Total interview time: 16.2 hours Mean interview length: 37 minutes Shortest interview: 19 minutes Longest interview: 60 minutes 5.1 INTERVIEW METHOD Interviews were done via a web-based meeting application, phone, and in-person and were targeted to be 20-30 minutes long. The interview was designed to overrepresent contractors/suppliers who were under-represented in the survey. Ten interviewers were used; all were trained and followed written guidance in conducting the interviews. Interviews were conducted using a general conversational structure that allowed for the interviewer to engage with the subject in the most fruitful line of questioning. Importantly, interviews were designed to let the subjects describe their efforts and perspectives in their own words in a conversational manner. 5.2 INTERVIEW SUBJECT SELECTION Interview subjects were selected from project team personal contacts (10 subjects) and survey responses (16 subjects). Personal contacts were selected based on the project team’s evaluation of their expertise and/or perceived willingness and ability to discuss sustainability. Interview subjects selected from the survey responses were selected based on their responses to questions asking about the SCPs they had done or seen. 5.3 INTERVIEW STRUCTURE AND TRAINING The general interview process was as follows:  Record the interview. This was done to aid in writing the summary report. All interview recordings were subsequently destroyed based on our approved human subjects plan.  Summarize the interview. Provide a 1- to 3-page written summary of the interview.

97  Collect supporting documentation. Done if a subject offers to provide supporting documentation (e.g., project plans, specifications, company policy, etc.).  Interview procedure. The general procedure was as follows: o Introduction. Introduce the research and expectations for the interview. o Obtain informed consent from the subject. An informed consent script was read and the interview continued only if the subject agreed to proceed after acknowledging their rights. Subjects were also asked for their consent to be recorded and informed that the recording would be destroyed in August 2017. o Conduct the interview. General advice was given on conduct. o Conclusion. Thank the subject for their time, arrange any follow-up items. 5.4 INTERVIEW SUMMARY DATA Interviews were semi-directed, meaning interviewers had a limited agenda of subjects to cover based either on personal knowledge or survey responses of the subject, however the interview could cover whatever topics the interviewer thought could best be addressed in a conversational format. Therefore, a list of topics covered is informative, but may not be indicative of industry trends or consensus. TABLE 19 presents interview topics addressed and is organized by the original (before modification) Framework for Highway Construction (TABLE 6).

98 TABLE 19. Interview Topics Discussed Arranged by the Original Framework for Highway Construction (note: blank cells indicate no subjects discussed that topic) Framework for Highway Construction Interview Topics Discussed Interview Subjects Discussing the Topic Level Category Contractor Owner Other Programmatic Organizational strategy, culture, and exec. Suppt. Corporate approach to sustainability, sust. reporting 6 4 3 Policy/program Government policies as limitations 1 Planning to identify sustainability items in project 1 Human resources Disadvantaged business enterprises 1 Hiring programs for ex-convicts 1 Environmental Management Systems ISO 14000 1 Project Delivery Project delivery method Design-build 1 Best value with sustainability component 1 1 General project delivery 1 Project Procurement LCCA 3 1 EPD 2 LEED 1 Value engineering 1 Contract Contracting 1 2 1 Project Scheduling Accelerated construction 2 Estimating Project Controls Contract administration General 1 Earthwork Equipment 1 Drainage/Sewer/Water Water management 1 Structures Prefabrication 1 1 Pavement (base, hard surface) Pavement design & types 3 1 2 Work Zone Traffic Control Traffic management 1 1 Materials WMA 6 2 1 RAP 4 2 RAS 4 Rubber asphalt 1 1 Bio binders 1 General materials recovery/reuse 2 3 4 Materials that last longer 1 Materials transport 1 Energy 1 Carbon accounting/reduction 1 Waste management 1 Safety General safety as a priority 1 Employment Training Environmental training 1 General training and education 1 1 Public Outreach Public relations 1 Noise Light Lighting 1 Constructability Design for constructability 1 1

99 5.5 INTERVIEW TOPIC OBSERVATIONS  Interview topics were limited to what the interview subjects knew. Therefore, some things that their organizations may have done or experienced may not have been captured if the subject was unfamiliar with the topic.  Interview subjects were intentionally selected to ensure a diverse set of topics were addressed. The number of subjects addressing a topic is not necessarily indicative of its popularity in industry.  Many interview subjects discussed their organization’s approach to sustainability because it was often a question our interviewers began with to establish rapport. 5.6 SPECIFIC INSIGHT FROM THE INTERVIEWS This section summarizes specific insight gained from the interviews that go beyond or supplement the literature. The intention is to complement published literature with personal insight. This section is organized as follows:  General observations. Observations based on aggregate interview data.  Observations organized using the original Framework for Highway Construction. Portions of the framework where no specific interview insight exists are not listed.  Comments on sustainability implementation. Several interview subjects offered useful viewpoints on implementing sustainability.  Other. Observations that do not fit in other categories. Specific insights are attributed to one of three categories: contractor, owner, or consultant. 5.6.1 General Observations This section contains some general observations based on the 26 interviews. These observations are made based on multiple similar responses from interview subjects and/or a preponderance of responses on a similar subject. 5.6.1.1 Materials Recycling/Reuse Dominates  There is a strong sentiment to address materials recycling/reuse when asked about sustainability. This may be evidence that the message of recycling/reuse has penetrated the industry deeply, and it may also be evidence of a rather narrow view of sustainability. 5.6.1.2 Contractors Are Likely to Implement Sustainable Construction Practices (SCPs) that  Directly Reduce Their Costs; Other Practices Must be Compensated for by the Owner  Owners need not do anything more than allow (or not specifically forbid) such practices for them to occur. For example, use of RAP in asphalt pavement typically saves a contractor money and is allowed, but not required, by an owner. However, if a contractor incurs costs for a SCP and benefits accrue to the owner (or any other entity besides the contractor), then contractors are not likely to adopt that practice for fear of losing money or losing a bid because of added costs. In these instances, if an owner wants the benefits of the SCP, then the owner must specify what they wish to happen, and pay the contractor to offset their costs, or reward the contractor in some other way (e.g., points on a best value bid).

100 5.6.1.3 There Is No Leading Entity in Sustainable Highway Construction  Unlike the building industry, which has several leading entities (e.g., the U.S. Green Building Council and its Leadership in Energy and Environmental Design – LEED – rating system, or the Living Future Institute), there is no consensus leader in the highway industry that identifies SCPs and specifies what constitutes their accomplishments. While there are several rating authorities (e.g., INVEST, Greenroads, Envision, CEEQUAL), many organizations rely on their own definitions of SCPs and internally generated narrative to communicate their efforts. As a result, definitions differ from organization to organization, and quantification is rare beyond Global Reporting Initiative Standards, which are focused on the impact of a company’s operations (e.g., energy use for corporate operations) and not on the infrastructure it creates (e.g., roads, bridges, etc.). 5.6.1.4 Most SCPs Can Provide Benefit if Used in the Proper Context  Sustainability is context sensitive and there are few universal solutions. For example, there are several in-place recycling/reuse techniques (hot in-place recycling, cold in-place recycling, full- depth reclamation) that can reduce materials use and trucking (and associated emissions and fuel use), but they are only viable options under a limited set of existing conditions (e.g., pavement condition, subgrade support, etc.) and are not universally applicable. 5.6.2 Organizational Strategy, Culture, and Executive Support Formal sustainability strategies in the highway construction industry exist but are not commonplace. Often, organizations claim to be motivated by other drivers (e.g., cost, time) and view sustainability as a secondary consideration if time and money allow. There appears to be substantial knowledge of what a successful sustainability strategy might involve, but skepticism about how committed organizations are to its successful execution. In multiple cases, interview subjects identified external sustainability standards that their organization followed, most commonly, the Global Reporting Initiative. Specific insights are listed below.  Set organizational/project goals to give participants an idea of priority and value - CONTRACTOR  A focus on sustainability helps attract good people – CONTRACTOR  Track sustainability goals and performance - CONTRATOR  Use life-cycle thinking, go beyond first cost – CONTRACTORS (MULTIPLE)  Participate in programs that recognize sustainability efforts - CONTRACTOR  No formal sustainability program at some DOTs - OWNER  Many countries (owners in those countries) demand a Corporate Sustainability Report (CSR) and ratings for companies to bid on work - CONTRACTOR  Although many goals have been listed in the CSR to attain sustainability, their implementation in day-to-day activities is very minimal - CONTRACTOR  In many cases, policies have been set, but not enforced - OWNER  No specific sustainability strategy. Strategy is more driven by duration and lower cost - CONTRACTOR  Use CSR reporting standard: Global Reporting Initiative – CONTRACTOR  One organization’s home office has a geothermal heating system. Though the initial cost of the system was high, it leads to long-term energy savings. This same organization also reuses their waste oil to heat their shop facility floors. Their buildings are shooting for a LEED Gold certification - CONTRACTOR

101 5.6.3 Policy/Program Discussions of policies and programs were intertwined with organizational strategy. Specific insights were:  One metric for governments: Federal Energy Management Program (FEMP) Sustainability scorecard. The federal government has a sustainability/energy scorecard that they hold themselves to (https://energy.gov/eere/femp/federal-sustainabilityenergy-scorecard-goals) This scorecard, from FEMP supports federal agencies in meeting goals outlined in IMB Scorecard on Sustainability/Energy - OWNER o In all, the feds are doing quite well vs. their goals: https://energy.gov/sites/prod/files/2017/06/f35/fy16_facility_sustainability_goals.pdf However, much may be related to reduced activities because of budget cuts. 5.6.4 Project Delivery Method The general sentiment was that alternative project delivery (i.e., design-build and construction management) allow for better inclusion of sustainability. Specific insights were:  Design-build delivery is better able to incorporate sustainability requirements - CONSULTANT  Design-bid-build project delivery can be slow because there is no easy mechanism to speed up work - CONTRACTOR  There is more value from sustainability efforts in design-build and construction management projects than in design-bid-build projects - CONSULTANT  For bridge projects design-build project delivery method is more useful. This is because projects designed by DOT are not always constructible. Design-build helps the owner to get timely approvals and alterations in design for constructability. Adopting the design- build method leads to reduction in the design costs as design is part of the bid price. Additionally, the method helps the mid-size and small companies to compete - CONTRACTOR  P3s are more likely to have sustainability requirements – CONTRACTOR 5.6.5 Project Procurement 5.6.5.1 Life‐Cycle Thinking  Several interview subjects mentioned versions of “life-cycle thinking”, which implies decisions should be based on a total cost/benefit over the life of the infrastructure/product and not just first cost. One interview subject (CONSULTANT) mentioned that life cycle cost ought to be considered earlier in the design process; suggesting the 30% design milestone as an appropriate time. 5.6.5.2 Environmental Product Declarations (EPDs)  Some in the industry are aware of EPDs and their potential use. As of 2017, there is almost no call for them by owners, and it is unclear how their use will evolve. Specific insights were:  No general use yet, but future potential in procurement - PROFESSOR  The first use may be for internal improvements - CONTRACTOR  Ultimately, the owners decide whether or not to use EPDs in their procurement and this will drive there use to a great degree - CONTRACTOR  Industry is bad at mitigation of carbon. Usually overridden by other features like aesthetics - CONSULTANT

102 5.6.6 Contracting There is no consensus on how best to add sustainability considerations to a contract. Most often, general metrics derived from international standards like the Global Reporting Initiative are used, or in-house processes are developed. Specific insights were:  Typical sustainability requirements (derived from Global Reporting Initiative): fuel consumption, electricity, water use, waste, materials. Also seen are air quality, programs for community, compliance record – CONTRACTOR  Bid prices or contractor requirements drive sustainability. This means that contractors are reluctant to include added elements for sustainability for fear of losing a low bid contract by offering something that was not specifically asked for - CONSULTANT  Execute sustainability through value engineering - CONTRACTOR  DOT doesn't include separate sustainability items in contracts - OWNER  Example of sustainability in contracting - OWNER o Planning phase: Owner’s representative asked contractor to put together a sustainability plan based on the owner’s sustainability policy. They did this poorly, so the owner helped write the plan. o Monthly reports: owner’s representative required monthly submittals on quantifiable items in the sustainability plan. Owner’s representative emphasized to the contractor that even if an item was not actually done, it should still be reported on and explained why it was not done. o Upon project completion: Assemble a sustainability report that summarizes efforts for the project. o What is missing is any sort of method for tracking this information across the owner’s or owner’s representative projects. So, it is difficult to determine what common practice is, or what trends are. 5.6.7 Scheduling Discussion of scheduling was limited to accelerated construction and its effects. This is likely because most do not view scheduling, in its entirety, as a sustainability topic. Specific insights were:  Do paving and milling in the same work zone/time and open the next AM - CONTRACTOR  Reduced project duration helps to reduce traffic backups. Additionally, it leads to reduction in fuel usage - CONTRACTOR  Accelerated construction techniques can be achieved through employing more people to work for multiple shifts. However, there is need to evaluate the cost savings before employing accelerated construction techniques. Accelerated construction techniques use approximately same amount of energy as the conventional techniques - CONTRACTOR 5.6.8 Project Controls  Drones used to track material quantities in the field - CONTRACTOR 5.6.9 Earthwork Earthwork is a practice driven by cost. Usually, contractors, independent of being tasked by owners, will look for ways to minimize cost by minimizing and balancing (to reduce truck trips)

103 earthwork. Sustainability implications are byproducts of cost-driven decisions. Specific insights were:  GPS on machines saves lots of fuel – CONTRACTOR  The goal is to reduce earthwork to reduce truck trips, which is where the savings are - CONTRACTOR  Example earthwork sustainable best practice: For a project that involved the undercutting and construction of road underneath the existing facility, a value engineering solution was adopted. The project chose to stabilize the subgrade with cement and eliminated the need for virgin aggregates, which led to reduction in the cost – CONTRACTOR  One owner makes contractors turn in a trucking log and not just truck tickets - CONTRACTOR  Intelligent compaction does not work well yet on measurement of compaction in asphalt layers - CONTRACTOR 5.6.10 Structures (Bridges)  Prefabrication has large benefits in time and delay reduction since the prefabrication can take many actions off the critical path – CONSULTANT  Prefabrication results in a lower impact to surrounding community, and better control of noise, waste, pollution – CONTRACTOR  Latex modified concrete on bridge decks can be useful to protect from corrosion if properly constructed - CONSULTANT  Stainless steel bridges - CONSULTANT  Paint restrictions have no consensus: they vary by state - Caltrans 180-240 g/L VOC, while others are 340 g/L - but, if low VOC is required then typically a water-based paint is used and more must be used to achieve the same goal. Unclear, which alternative is better. – CONSULTANT 5.6.11 Work Zone Traffic Control Most work zone traffic control information came from one interview subject. Specific insights were:  A project should have a traffic management plan (TMP) in place before bidding documents are released - CONSULTANT  For design-build contracts, the design-builder should hire a firm for communications with the public and engage that firm on a regular basis - CONSULTANT  Projects should have a developed construction communications plan - CONSULTANT  Community impact is difficult to monetize, but if done the expenses to engage community would appear very small (this implies it is not monetized) - CONSULTANT  One design-build project used license plate recognition to measure travel time through work zone. Contractor required to keep this time within a certain range - OWNER 5.6.12 Materials 5.6.12.1 Warm Mix Asphalt (WMA)  Most WMA is done using the foaming process, and WMA is used primarily as a compaction aid and not for its energy or emissions reduction potential. Specific insights are listed below.

104  The foaming process (add water to foam asphalt) allows the contractor to better control supply chain (i.e., does not have to purchase an additive) - CONTRACTOR  Almost always use the foaming method. In some unique cases (e.g., long haul, need to get better compaction of a cooler mix) other WMA methods were used - CONTRACTOR  Main WMA benefit is constructability and not energy savings - CONTRACTOR  WMA mainly used as a compaction aid - CONTRACTOR  Not enough cost savings from fuel reduction alone to warrant WMA use – CONTRACTOR 5.6.12.2 Reclaimed Asphalt Pavement (RAP)  RAP is generally used at replacement fractions from 0 up to 30-40%, with some isolated cases going higher. It costs contractors money to properly process and produce higher RAP mixtures, and there have been some performance issues. Of note, Chinese incentives to use RAP (tax breaks, loan eligibility) are different than U.S. practice, but are not unusual among efforts to encourage more recycling. Specific insights were:  To properly produce mix with significant RAP content requires an investment of $75,000 - $500,000 to equip a HMA plant properly - CONTRACTOR  Sometimes there are issues with the pavement cracking in high RAP mixes - CONTRACTOR  Although rare, RAP has been specified a minimum amount in contracts – CONTRACTOR  In China, a high traffic road may use 30-40% RAP, while a low-traffic road my use 40- 80% RAP - CONTRACTOR  In China, no tax is levied on the material if more than 30% RAP is used - CONTRACTOR  In China, using RAP can qualify you for discounted government loans - CONTRACTOR  The cost of rejuvenators (to soften the aged binder in RAP) can be more than savings from using RAP - CONTRACTOR  A long time ago experimented with 60-70% RAP but pavement did not last long – OWNER 5.6.12.3 Recycled Asphalt Shingles (RAS)  The general sentiment is consistent with literature review results: RAS is typically used at low replacement fractions, and quality issues with RAS mixtures seem to be somewhat common. Specific insights were:  Performance questions have driven down RAS use - CONTRACTOR  Equipment to process RAS can be expensive – CONTRACTOR  Questions on performance of RAS - CONTRACTOR  Higher than 3-5% led to quality issues – CONTRACTOR 5.6.12.4 Hot In‐Place Recycling (HIR)  One interview subject had substantial experience with HIR. Specific insights were:  Rejuvenating the hot in-place recycled asphalt pavement does not decrease strength - CONTRACTOR  Usually, there are no general specs in place for HIR, they must be written as special provisions - CONTRACTOR

105  HIR has been on alternative bid contracts: e.g., plan A = mill/overlay, plan B = scarify/overlay – CONTRACTOR 5.6.12.5 General Comments on Recycled Materials   When using recycled materials, the standard is that performance of the end product must be as good as it would have been without the recycled materials - OWNER  The DOT goal is to replace 10% of virgin materials with recycled materials - OWNER  The DOT saw savings of $19 million (2016) and $20 million (Previous years) using recycled materials - OWNER  Use more recycled material in the lower lifts (of asphalt pavement) - CONTRACTOR  Recycling has been largely adopted, and makes economic sense - CONTRACTOR  Asphalt rubber IS used regularly in Arizona DOT - OWNER  The highway industry does materials recovery/reuse well, but often does not reuse for the highest value. For example, recycled aggregate would be used as a fill material but would not be used as base material – CONSULTANT 5.6.12.6 Other Comments on Materials Reuse  Outside of the accepted practice of RAP in asphalt and fly ash or slag in cement, much discussion of recycling focused on recycling or reusing materials for temporary construction components. The sentiment seems to be that owners’ risk aversion prevents widespread use in permanent facilities, but the temporary nature of temporary construction components relieves contractors of any long-term risk and thus makes recycled materials more desirable. This idea is rarely addressed by the literature, but appears to be quite common in industry. Specific insights were:  Risk aversion of owners limits innovative reuse/recycling on jobs - also "buy American" clauses limit - CONTRACTOR  Reuse works best on temporary project components (light fixtures, poles, wires for temporary lighting, steel beams and timber poles for temporary lighting) - CONTRACTOR  Reuse crushed concrete for quarry spalls at entrances - CONTRACTOR  Reuse old gravel, crushed concrete for crane pads – CONTRACTOR 5.6.12.7 Other Materials Comments   Use of SMA and polymer modification provide for extended life - CONTRACTOR  Dramatic recovery of materials. In cases where the contractor is asked to (or does on its own initiative) recover materials in a dramatic (nontraditional) way, it is not practical for the owner to ask for such recovery and then pass a perceived savings on to the owner (i.e., in a bid). Often it may take money to recover, making the benefit the materials recovered and not an economic savings - CONSULTANT  The Qualified Products List (QPL) is generally a very conservative list and difficult to overcome with innovative materials. For example: compost-based erosion control is generally deemed a sustainable practice (by multiple sources, evidence) but may not be on QPL so cannot be used on a project - CONSULTANT 5.6.13 Safety There was little discussion on safety. In general, most view it as a separate item from “sustainability” and, thus, safety was rarely discussed although it remains important.  In China: use 2% of project budget on safety and worker education - CONTRACTOR

106 5.6.14 Comments on Sustainability Implementation 5.6.14.1 Standards Requirements Prevent Incremental Improvement  In some cases, if a project is undertaken, or if a portion of a project is disturbed, then it must be upgraded to current standards. For instance, this often happens with drainage standards. Regulations may not allow for an incremental upgrade that is an improvement over existing conditions, but does not meet current standards. While such rules are in place to ensure that items worked on are brought up to current standards, these rules can often deter projects from addressing deficient items because they fear the cost/effort in achieving current standards is too much. Therefore, nothing is done - CONSULTANT For example: an old bridge used scuppers to direct runoff directly from the bridge deck into a body of water below. For minimal cost, the project could capture that runoff with a pipe and minimally treat it on shore. However, if the project chooses to address drainage, it had to go all the way to meet current standards (detention pond, etc.) which was too expensive. The pipe would have been a good minimal upgrade for little cost, but it was not done due to the cost of full upgrade that would be required if the drainage system was touched. 5.6.14.2 Programmatic vs. Project‐by‐Project  In some cases, sustainable highway construction practices only become economically feasible on a larger scale. When materials are bought per project, economies of scale are lost. Therefore, if they are to be done, they must be done programmatically rather than on a project-by-project basis - CONSULTANT  For example: Guardrail/sign posts. It is possible to replace the usual pressure treated lumber sign posts with metal or recycled plastic lumber. On an individual project level, this is typically prohibitively expensive. However, if an owner agency committed their entire program (all projects) to such a replacement, the materials could be purchased at substantial discount.  Common areas where this issue occurs: fuel, native plants, median barrier, painted rail. 5.6.14.3 Competitive Advantage from a New SCP  The competitive advantage for adopting new technology tends to be about three years before the practice is widely adopted and the advantage disappears. Therefore, organizations that adopt new practices can only expect a limited time where there is return on any investment they make to use that practice – CONTRACTOR (2 MENTION THE SAME TIME FRAME) 5.6.15 Other  Can use bio-based fuels for overwater work – CONTRACTOR  Industry does revegetation well, but sometimes not ecosystem specific - CONSULTANT  Toxicity: Generally, industry does poorly because toxicity concerns are controlled by liability issues and may override other good sustainability decisions. Example: Project was to replace an old wooden bridge. The bridge used tree trunks as piers but trunks soaked in creosote. Everyone wanted to reuse the trunks (including parks dept.) but ultimately city attorney did not allow because they didn’t want the liability - CONSULTANT