Addressing Alabama’s Transportation Infrastructure: Roads .

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Addressing Alabama’sTransportation Infrastructure:Roads and BridgesPOLICY REPORT ATPRC-2019-001January 2019ALABAMA TRANSPORTATION INSTITUTECyber Hall Suite 3000 · Box 870288 · Tuscaloosa, AL 35487-0288 · 205-348-0741

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019This page is deliberately blank.Policy Research CenterAlabama Transportation InstituteThe University of Alabama

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019Contents1Introduction . 32Alabama’s Infrastructure . 53452.1Extent and Physical Characteristics . 62.2Condition - Pavement. 92.3Condition – Bridges . 102.4Usage . 122.5Safety . 142.6Finance . 16The Challenge . 203.1Traffic Congestion . 203.2Population Growth and Demographic Change . 213.3Economy/Workforce/Unemployment . 223.4System Use. 233.5Freight . 253.6Ports and Waterways . 283.7Erosion of Traditional Funding Mechanisms . 30Options and Strategies for Addressing Transportation . 364.1Transportation System Management and Operations . 364.2Travel Demand Management . 374.3Revenue Enhancement Options . 384.4Variable Rate Gas Taxes . 384.5Working Group Discussions. 42Possible Future Scenarios . 445.1Mobility Scenarios . 455.2What Does it Cost and What are the Benefits?. 556Conclusions . 607Acknowledgements . 60Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage i

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019FiguresFigure 1: Map of Alabama . 5Figure 2: Alabama Road Miles by Use and Functional Classification . 7Figure 3: Urban/Rural Functional System (lane-miles) . 8Figure 4: Alabama Roads by Ownership and Functional Classification (Centerline Miles) . 8Figure 5: Pavement Condition – All ALDOT Maintained Roads . 9Figure 6: Alabama Bridge Ownership and Condition . 10Figure 7: Age of Existing Alabama Bridges . 11Figure 8: Annual Hours of Delay per Commuter 2014 . 12Figure 9: Annual Excess Fuel Consumed per Commuter 2014. 13Figure 10: Annual Cost of Delay per Commuter 2014 . 14Figure 11: Number of crashes recorded between 2003 and 2016 (in thousands) . 14Figure 12: Fatalities by location of crash between 2003 and 2016. 15Figure 13: Economic impact of Alabama crashes between 2003 and 2016 (losses in billions ofdollars) . 15Figure 14: ALDOT Receipts (2005-2015) . 16Figure 15: Sources of ALDOT Funds (Average 2005-2015) . 17Figure 16: ALDOT Revenue Sources (Average 2005-2015) . 18Figure 17: ALDOT Expenditures (Average 2005-2015) . 19Figure 18: Percent Increase 1990 to 2015 in Population, Registered Vehicles, Vehicle MilesTraveled and Lane-miles of Roadway . 21Figure 19: Population Change between 2010 and 2040 for MPOs in Alabama . 22Figure 20: Unemployment Rate – Alabama and Southeastern States . 23Figure 21: Historical and Projected Alabama Population, Vehicle Registration, and VMT . 24Figure 22: Tonnage on Highways, Railroads, and Inland Waterways . 25Figure 23: Freight by Mode and Origin/Destination – 2012 vs. 2040 . 26Figure 24: Annual Truck Cargo Originating From Alabama Shipped by Commodity (in Kilotons)– 2012 vs. 2040 . 27Figure 25: Annual Truck Cargo Destinations in Alabama Shipped by Commodity (in Kilotons) –2012 vs. 2040 . 27Figure 26: Annual Inland Waterway Cargo Originating in Alabama Shipped by Commodity (inKilotons) – 2012 vs. 2040. 28Figure 27: Annual Inland Waterway Cargo Destinations in Alabama Shipped by Commodity (inKilotons) – 2012 vs. 2040. 28Figure 28: Port Facilities in Alabama . 29Figure 29: Gas Taxes and Diesel Taxes . 32Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage ii

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019Figure 30: Miles per Gallon Compared To Gasoline Consumed Per Vehicle . 33Figure 31: Alabama Highway VMT (in millions) compared to Highway Use of Gasoline(thousands of gallons) . 33Figure 32: Alabama Motor Fuels Tax Revenue Compared to Population . 34Figure 33: Purchasing Power of the Federal and State Motor Fuel Tax Rate . 34Figure 34: Alabama Gas Tax Purchasing Power (Cents per Gallon) . 35Figure 35: Projected Revenues, in millions of dollars, based on 2 percent annual inflation . 35Figure 36: Travel Demand Management Approaches . 37Figure 37: CPI vs NHCCI (March 2003 Index – 1.0) . 39Figure 38: Outcomes if Alabama Gas Tax had been Indexed . 40Figure 39: Comparison of Fuel Indexing Scenarios (Changes in Gas Tax Rate) . 41Figure 40: Weekly US All Grades All Formulations Retail Gasoline Prices (Dollars per Gallon) . 42Figure 41: Present Value of Congestion and Cost of New Capacity - Anniston . 47Figure 42: Present Value of Congestion and Cost of New Capacity - Auburn-Opelika . 47Figure 43: Present Value of Congestion and Cost of New Capacity - Birmingham . 48Figure 44: Present Value of Congestion and Cost of New Capacity - Decatur . 48Figure 45: Present Value of Congestion and Cost of New Capacity - Dothan . 49Figure 46: Present Value of Congestion and Cost of New Capacity - Eastern Shore . 49Figure 47: Present Value of Congestion and Cost of New Capacity - Gadsden . 50Figure 48: Present Value of Congestion and Cost of New Capacity - Huntsville . 50Figure 49: Present Value of Congestion and Cost of New Capacity - Mobile . 51Figure 50: Present Value of Congestion and Cost of New Capacity - Montgomery . 51Figure 51: Present Value of Congestion and Cost of New Capacity - Shoals . 52Figure 52: Present Value of Congestion and Cost of New Capacity - Tuscaloosa . 52Figure 53: Metro Area Scenario Comparisons . 54Figure 54: Capacity and Congestion Costs. 55Figure 55: Cost of Improvements per Household . 55Figure 56: Scenario Impact on Employment, Labor Income, and Output . 57Figure 57: Scenario Economic Impact and Marginal Capacity Cost . 58Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage iii

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019This page is deliberately blank.Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage iv

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019Addressing Alabama’s TransportationInfrastructure: Roads and BridgesExecutive SummaryIn the year 2040, Alabamians will take stock of their transportation network and how itprovides for economic growth and quality of life. They will look back on decisions made in 2019by Alabama’s citizens, business community and Legislature.Exotic and disruptive innovations such as automated and autonomous vehicles,networked ridesharing, and cars and trucks communicating electronically with each other andthe roadside are moving through research and development phases into real-world testing andeventual deployment. However, infrastructure demand for the next 20 years is expected to focuson well-constructed and maintained roads and bridges with sufficient capacity and considerationfor safety to enable efficient freight and passenger movement across the state.Alabama’s methods of paying for transportation infrastructure have lost and continue tolose purchasing power due to inflation, increasing fuel efficiency, and fleet changes, erasing theeffects of the 1992 gas tax increase (Exhibit A). Population, the number of registered vehicles,and vehicle miles traveled are increasing at a more rapid rate than the system has been addingcapacity to accommodate them. From 1990 to 2015 the number of lane-miles increased 14percent while Alabama’s population increased 20 percent; registered vehicles increased 46percent; and vehicle miles travelled increased 57 percent.Working groups and researchers developed a range of cost and outcome scenarios. Thefirst five scenarios result in similar target outcomes for Alabama’s urban regions; the final twoachieve results that vary according to city size and expected return on investments.1.2.3.4.5.6.7.Maintain 2016 urban congestion levelsCongestion would be less than in similar size southeastern citiesCongestion would be in the middle of similar southeastern citiesContinue the current spending trend (business as usual)Invest in maintenance rather than new road capacityCreate the best achievable congestion conditionsCreate congestion levels that ensure Alabama cities are economically competitivePolicy Research Center · Alabama Transportation Institute · The University of AlabamaPage 1

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019Exhibit A: Alabama Gas Tax Purchasing Power (Cents per Gallon)201818.01617.8 12.412.411.611.310.6 10.510810.411.511.2 11.1642Loss of Purchasing 419931992199119900Purchasing Power in 1992 dollarsImproved mobility can have a positive impact on the economy. If all state transportationfunds are spent on maintenance after currently committed projects are completed (the Invest inMaintenance scenario), Exhibit B summarizes the estimated total economic benefits associatedwith investing in additional capacity under each scenario over the next 20 years.Exhibit B: Scenario Economic Impact and Marginal Capacity Cost over the Next 20 YearsTotal Cost over the next 20 yearsScenarioROI (EconomicImpact divided byMarginal Cost)Statewide EconomicImpact ( Millions)Marginal Capacity Cost( Millions)Maintain 2016 Congestion Level 33,305 13,8672.4Best Among Southeastern States 34,727 14,0002.5Middle of Southeastern States 19,127 6,9332.8Current Trend - Business as Usual 6,317 3,7331.7Optimum Conditions Alternative 37,755 13,4672.8 28,145 9,4673.0Minimum Cost Competitive Alternative(least that can be invested in new capacity and stillallow the state to be economically competitive)To address the need for additional funding, working groups have focused on optionsrelated to the motor fuels tax. Indexing the tax is a way to reduce the impact of inflation. ForAlabama, indexing gas and diesel taxes would have raised between 1.3 billion and 5.3 billionabove the amounts derived from the existing 18 cents per gallon gas and 19 cents per gallondiesel taxes between 1992 and 2016, depending on the selected index.Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage 2

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019Addressing Alabama’s TransportationInfrastructure: Roads and Bridges1IntroductionIn the year 2040, Alabamians will take stock of their transportation network and how itprovides for economic growth and quality of life. They will look back on decisions made in 2019by Alabama’s citizens, business community, and elected leadership.At the time of writing this report (2018), exotic and disruptive innovations such as selfdriving vehicles, networked ridesharing, cars and trucks communicating electronically with eachother and the roadside, and unmanned aerial, marine, and terrestrial vehicles are movingthrough research and development phases into real-world testing and eventual deployment.Regardless of their future promise or impact, infrastructure demand for the next 20 years isexpected to be overwhelmingly focused on well-constructed and maintained roads and bridgeswith sufficient capacity and consideration for safety to enable efficient freight and passengermovement across the state.This report examines the extent, condition, and use of the Alabama road network. Theauthors received input from a wide range of stakeholders, including legislators, residents, thebusiness community, shippers, truck and auto drivers, passengers, and others involved in thedevelopment and use of the network.Why Transportation MattersAn adequate transportation system serves a wide variety of customers. For employers, itprovides access to raw materials, markets for finished products, a labor force and education forthat labor force. For families, the transportation system provides a path to jobs, healthcare,education, community, tourism, and a number of other services. To those who live elsewhere, itprovides the means for enjoying what Alabama has to offer for education, work, commerce,tourism, sports, or other pursuits. In survey after survey, the adequacy of a state’s transportationsystem consistently ranks as one of the top three items companies assess when making businessrelocation or expansion decisions. Our economy relies on a functioning, efficient transportationsystem to prosper and grow.Policy Research Center · Alabama Transportation Institute · The University of AlabamaPage 3

Addressing Alabama’s Transportation Infrastructure: Roads and BridgesJanuary 2019About This ReportAlabama’s legislative leaders sought assistance to establish a baseline body of knowledge,a capacity for analysis, and an understanding of implications of various paths forward. Thisreport’s primary purpose is to summarize the extent, condition, and use of the state’s roadsystem. This information is compared to other states so that Alabama’s ranking among itsneighbors and economic competitors may be used as a benchmark. The authors seek toanticipate how demographic and economic growth, as well as technological and other changes,will affect demand for transportation and assess the funding mechanisms that maintain thecurrent system and provide for additional capacity. This report also offers policy options toaddress road funding. This report does not address county or municipal level information,commercial or general aviation, public transit, passenger rail, cyber considerations, or bicycle orpedestrian travel. These are expected to be addressed in subsequent products. Further,discussions on ports and waterways are not extensive.Where possible, the authors have used sources that are recent, reliable, and readilyavailable to the public, allowing the reader to verify the data and findings as may be desired. Theauthors relied heavily on data originating at ALDOT and reported to the USDOT FederalHighway Administration as this information is usually available on the Internet and coversmultiple years in a format that allows comparison among states.Organization of Thi

Addressing Alabama’s Transportation Infrastructure: Roads and Bridges January 2019 . Policy Research Center · Alabama Transportation Institute · The University of Alabama Page 2 . Exhibit A: Alabama Gas Tax Purchasing Power (Cents per Gallon) Improved mobility can have a positive impact on

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