Historic Bridge Manual: Programs

Section 2: Programs

Unified Transportation Program

The Unified Transportation Program (UTP) is TxDOT’s ten-year plan for authorizing transportation project planning and development within the various available funding categories. The UTP is submitted to the Texas Transportation Commission for approval on an annual basis.

Transportation projects identified in the UTP for the given funding categories are authorized in one of two levels of authorization:

DEVELOP. Authorizes TxDOT districts to prepare construction plans and acquire necessary right of way. Districts should substantially complete construction plans (geometric, structural, hydraulic, and pavement design) and required right-of-way acquisition before moving to CONSTRUCT authority. The number of projects in DEVELOP is constrained to seven years of anticipated funding.
CONSTRUCT. Authorizes TxDOT districts to complete construction plans, perform utility adjustments, and award a construction contract for the project in the fiscal year.

Bridge replacement and rehabilitation/improvement projects may be funded from any of several UTP funding categories with perhaps the most common one being Category 6, federal Highway Bridge Program.

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Federal Highway Bridge Program

Congress has earmarked a portion of federal-aid highway funds for the replacement or rehabilitation of deficient (either structurally deficient or functionally obsolete) highway bridges located on the public highways, roads, and streets. Title 23, U.S.C. Section 144, contains the law that governs this program. Section 144(o) deals with the Historic Bridge Program. Title 23, CFR, Part 650, Subpart D, provides guidance on implementation of the law. (See http://www.fhwa.dot.gov/legsregs/directives/fapg/0650dsup.htm.)

FHWA annually compiles a list of bridges that are identified as being deficient based on data submitted by TxDOT. The listing also includes a sufficiency rating (SR) computed for each deficient bridge. The SR is based on a numerical formula that attempts to combine the structural condition and geometric information, traffic, safety, and other pertinent factors into a single numerical representation of the sufficiency of the bridge. The SR ranges from 0 to 100. The lower the SR, the more deficient the bridge.

Federal Highway Bridge Program funds may be used to replace or rehabilitate deficient bridges where certain eligibility criteria can be met. Deficient bridges with a SR below 50 are eligible for replacement or rehabilitation under this program. Deficient bridges with a SR between 50 and 80 will be rehabilitated under this program unless replacement can be justified based on an economic analysis.

Replacement and rehabilitation projects using federal Highway Bridge Program funds should usually result in the removal of the bridges from deficient classification. Typically, federal funds will provide for reimbursement of 80% of the project costs. State and local funds usually are required to cover the remaining 20% of the costs.

Federal Highway Bridge Program funds are divided into two categories, one for on-system deficient bridges (Category ON) and the other for off-system deficient bridges (Category OFF). Each category is prioritized independently on a statewide basis using a scoring system known as the Texas Eligible Bridge Selection System (TEBSS). Generally, the lower the SR of the bridge, the higher the TEBSS score and prioritization. A full explanation of the TEBSS scoring system is included on the Bridge Division internal web site at http://crossroads/org/brg/PD/tebss.htm. (Note: The internal web site is available only to TxDOT personnel.) Usually bridges with the highest TEBSS scores are placed in the CONSTRUCT level of authorization for replacement or rehabilitation in the UTP. A second group of bridges is placed in the DEVELOP level based on TEBSS scores and cannot be let to contract until they are upgraded to CONSTRUCT, usually in a subsequent yearly edition of the UTP.

Subject to the limitations described in Chapter 2, Section 5, federal Highway Bridge Program funds may be used to help preserve a historic bridge being replaced or rehabilitated/improved under a federal Highway Bridge Program project.

When a local government expresses interest in pursuing a federal Highway Bridge Program project, an appropriate agreement must be executed between the state and local governments. This agreement must be executed before any preliminary engineering or construction work is performed. In addition to specifying the responsibilities of the two parties in the performance and funding of the work, the agreement form may provide for advance payments (escrow payments) by the local government of its share of the project funding responsibilities. Direct questions about the agreement form to the Bridge Project Development Section of the Bridge Division.

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Transportation Enhancement Program

In 1991, as part of the Intermodal Surface Transportation Efficiency Act (ISTEA), Congress earmarked funds for the Transportation Enhancement (TE) program. (For more information, see the Design Division web site at http://www.dot.state.tx.us/des/step/introduction.htm.) The TE program was continued under the Transportation Equity Act for the 21st Century (TEA-21) enacted in June 1998. Funding for the program is generated from a mandatory 10% set-aside from each state’s allocation of STP funds. Enhancement categories specified in the statute include historic preservation and rehabilitation of historic transportation structures and facilities. Preservation activities on transportation facilities that will continue to serve vehicular traffic normally are not eligible for TE program funding.

The matching fund ratio for TE projects is typically 80-20 federal-local. TE projects follow administrative procedures typical of the federal-aid highway program. The state expends money on eligible projects and asks for reimbursement from FHWA. Certain federal laws and regulations may apply. A TE project is a possible source of funding for the preservation of a historically significant bridge.

In Texas, the Statewide Transportation Enhancement Program (STEP) provides funding for the rehabilitation and operation of historic transportation facilities and structures, including historic bridges. The Texas Transportation Commission selects projects through a statewide competitive process. To be considered for selection, the project must:

have a relationship to surface transportation
incorporate one of 12 defined activities
go above and beyond standard or routine transportation activity

Projects undertaken with STEP funds are eligible for federal reimbursement of allowable costs up to 80% of the authorized funding. Allowable costs include property acquisition, preliminary engineering, environmental studies, construction, and construction management. The remaining cost share, including 100% of any cost overruns, must be provided by the public authority desiring the project.

In order to be eligible for TE funding, the historic bridge must be listed or determined eligible for listing in the National Register of Historic Places. Additionally, all work to be performed on historic bridges must be done in compliance with the U.S. Secretary of the Interior’s Standards for Rehabilitation (36 CFR Part 67). Design plans must have the approval of the State Historic Preservation Officer prior to the advertising for construction bids.

When historic bridge preservation under the Transportation Enhancement (TE) program is contemplated, guidance from the Design Division Transportation Enhancement program coordinator should be requested. (For more information, see the Design Division website at http://www.dot.state.tx.us/des/step/introduction.htm.)

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STEP Historic Bridge Preservation Program (HBPP)

The HBPP was established under the 2001 STEP to rehabilitate and restore historic metal trusses and suspension bridges for long-term preservation as pedestrian facilities. All bridges identified for the HBPP were historic off-system bridges that had either been taken out of vehicular service or were likely to be taken out of vehicular service due to their eligibility for replacement funding under the federal Highway Bridge Program.

State law does not allow the use of state funds for projects off the state highway system except as a match for federal programs. Federal Highway Bridge Program funding for the preservation of historic structures is limited to the estimated demolition cost. Therefore, the HBPP gives the state a means of preserving these off-system bridges that are unsuitable for vehicular service.

HBPP projects are fully funded state enhancement projects, and matched funding is not required by local governments. STEP-HBPP funding is set up as an 80%–20% federal/state split. These funds pay 100% of the rehabilitation and construction costs for the historic structure. The rehabilitation work includes:

Preliminary engineering including load rating analysis, structural field evaluation, and materials testing
Site survey and bridge layout
Environmental studies, mitigation, and regulatory coordination
Development of plans, specifications, and estimates (PS&E)
Transportation and offsite storage of the structure
Site preparation, repair, or construction of foundations and approach spans
Measures to protect against deterioration including cleaning and painting, galvanizing, and other corrosion-inhibiting systems
Installation of pedestrian or bicycle railings.

The recipient of the structure is responsible for, at a minimum, the following:

A suitable and appropriate site for use by the general public
Acquisition of any right of way, easements, or property
Work beyond the limits of the bridge that is required to develop pedestrian facilities.

An agreement or agreement amendment between the state and the recipient outlines the responsibilities and funding required of each party. For more information on the agreement/amendment, contact the Bridge Division project manager.

The initial implementation of the HBPP identified 43 historic structures as candidate projects. These structures were divided into an A list of 10 primary projects and a B list of 33 backup projects. The program was developed with flexibility allowing for the transfer of projects between the two lists, and if additional funding becomes available, the program can allow for additional structures. New structures need to meet the same qualifications as the original candidate projects before they are evaluated and submitted for approval to the Transportation Commission. This process allows for the most efficient use of the limited available funds. Contact the Bridge Division project manager for information concerning the structures on the A and B lists.

Click here for procedures for determining whether a structure is a good candidate for preservation. If a structure is determined to be ineligible for the program after all procedures have been followed, information gathered can be used to continue the project with another funding source such as the federal Highway Bridge Program.

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Other Programs

In rare instances, other Unified Transportation Program programs of work may involve historic bridge preservation work. Guidance in such instances should be requested from the Bridge Division bridge project manager.