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The Commonwealth of Massachusetts Massachusetts Department of Transportation (MassDOT) Office of Performance Management & Innovation Performance Management Report December 31, 2010 Jeffrey B. Mullan Secretary & CEO Leading the Nation in Transportation Excellence Table of Contents 1.0 Executive Summary 1.1 Statutory requirements 1.2 MassDOT’s Senior Leadership Team and Goal Development 2.0 MassDOT Goal #1: Safety 2.1 Total Number of Incidents That Have Caused Delays or Closures 2.1.1 Fatality Rate 2.1.2 Bus Accidents 2.1.3 Red/Green/Blue/Orange Accidents Incidents 3.0 MassDOT Goal #2: Build and Preserve 3.1 Number of Projects in Construction Phase 3.1.1 Active Construction 3.2 Assessments of Maintenance Performance by Class, Mode and Region 3.3 Assessments of Highway Pavement 3.3.1 National Highway System Pavement Smoothness IRI 3.4 Assessments of Bridge and Track for Subway, Commuter and Commonwealth-Owned Freight Rail 3.4.1 Red/Blue/Green/Orange Speed Restrictions 3.4.2 Structurally Deficient Bridges 3.5 Assessments by Condition Level 3.6 Assessments of the Categories of Maintenance-Related Activity 4.0 MassDOT Goal #3: Stewardship 4.1 Cost savings 4.1.1 Reform Savings achieved to date 4.2 Capital and operating funds and expenditures 4.2.1 Highway Construction Expenditures 4.2.2 Highway Capital Expenditures by type 4.2.3 Federal Reimbursement Rates 4.2.4 Additional Funds and Extra Work Orders 4.3 State of Good Repair 4.3.1 FY2011-FY2015 CIP Focus: State of Good Repair 4.4 System Availability 4.4.1 RMV System Availability 4.5 Salt Usage 4.5.1 Reduce Salt Usage in MassDOT’s Snow and Ice Program 4.6 Bicycle and Multi- Use Paths 4.6.1 Number of Bicycle and Multi-Use Path Projects 5.0 MassDOT Goal #4: Customer Service 5.1 Throughput of All Selected Divisions 5.1.1 Average Daily Vehicle Miles Traveled Per Day 5.1.2 Average Branch Wait Times 5.2 Utilization of All Modes 5.2.1 Annual Ridership 5.2.2 Regional Transit Authority (RTA) Ridership 5.3 Congestion on All Modes 1 6.0 MassDOT Goal #5: Efficiency 6.1 Number of Projects Completed 6.1.1 Aeronautics Grant Expenditures 6.1.2 Highway projects completed in the Fiscal Year 6.2 Percentage of Projects Completed Early or On-Time 6.2.1 Highway Project On-Time/ Early Completion 6.2.2 Highway Project Average Time of Consultant Procurement 6.2.3 Highway Project Bidding and Construction 6.3 Percentage of Projects Completed Under Budget or On-Budget 6.3.1 Highway Project On-Budget Completion 6.4 Percentage of Projects Advertised Early or On-Time 6.4.1 Annual Highway STIP compared to Advertisement 6.4.2 Trended Ads 6.5 On-Time Performance on All Modes 6.5.1 MBTA On-Time Performance 7.0 Conclusion 8.0 Appendix A – MassDOT’s Strategic Plan 2 1.0 Executive Summary In June 2009, Governor Deval Patrick signed Chapter 25 of the Acts of 2009, “An Act Modernizing the Transportation Systems of the Commonwealth of Massachusetts,” (as amended by Chapter 26 of the Acts of 2009). The transportation reform legislation required the Commonwealth to integrate the state’s former transportation agencies and authorities into the new Massachusetts Department of Transportation (MassDOT). As an independent authority, MassDOT has an appointed board and is organized as a body politic. As a component organization of the Commonwealth, MassDOT is governed by state laws, rules and policies. Since the enactment of the reform legislation, MassDOT has four new divisions: Highway, Rail and Transit, Aeronautics and the Registry of Motor Vehicles (RMV), in addition to an Office of Planning and Programming. In November 2009, the Office of Performance Management and Innovation was also established by the secretary. This office provides oversight for performance management efforts across all of the divisions and offices of MassDOT, and is responsible for providing annual program performance reports to the public, House and Senate Committees on Ways and Means and the Joint Committee on Transportation. This report complies with Section 6.0 of the Act. This section of the Act requires MassDOT to establish a performance measurement system for the divisions of the department that necessitates the establishment of program goals, the measurement of program performance against those goals and public reporting on progress to improve the effectiveness of transportation design and construction, service delivery and policy decision making. More specifically, this report provides factual information on critical performance indicators that measure success in meeting MassDOT’s strategic goals. The comparative and informative data assembled for this report allows MassDOT to evaluate the organization’s progress against specific goals and targets as the organization seeks to improve overall performance of programs and employees. 3 1.1 Statutory Requirements Effective November 1st 2009, MassDOT’s Office of Performance Management and Innovation assumed the performance reporting responsibilities for the department. Section 6 of Chapter 25 of the acts of 2009 outlines the responsibilities of the office as follows: “The secretary shall establish a performance measurement system for the divisions of the department, which shall establish program goals, measure program performance against those goals and report publicly on progress to improve the effectiveness of transportation design and construction, service delivery and policy decision making. Performance measurements shall include, for at least the then current fiscal year and the previous 5 fiscal years, all modes of transportation. Performance measurements shall include the number of projects completed, the percentage of projects completed early or on time, the percentage of projects completed under budget or on-budget, the number of projects in construction phase and the percentage of projects advertised early or on time. Performance measurements shall include usage information for all modes of transportation, including measures of throughput, utilization and ridership. This information shall be presented with measurements of congestion, on-time performance, if appropriate, and incidents that have caused delays or closures. Performance measurements shall include assessments of maintenance performance by asset class, mode and region, including a breakdown of highway pavement, bridge and track, for subway, commuter and commonwealth- owned freight rail, by condition level, with an explanation of current year and future year planned maintenance expenditures and the expected result thereof. …………..The office shall annually publish a ”scorecard” identifying the number of projects actively under construction and those completed in the previous year by type, value and location and those planned for the following year. Notwithstanding any other provision of law, the office shall determine the appropriate measures and standards of performance in all categories and reporting on performance trends.” 1.2 MassDOT’s Senior Leadership Team and Goal Development Over the course of the past year, MassDOT has created the first ever strategic plan for Massachusetts transportation. Chaired by the Secretary and CEO of MassDOT, the department’s senior leadership team conducts weekly meetings to ensure that the following common goals are implemented throughout the department: 4 Organizational Goals Safety - Actively manage the nation’s safest transportation system to minimize injuries whenever, wherever, and to whomever possible. Build and Preserve - Build a quality transportation system and maintain it in a state of good repair. Stewardship - Operate the transportation system in a manner that embraces our stewardship of the Commonwealth’s natural, cultural, and historic resources. Customer Service - Deliver superb service that both anticipates and responds to customer needs. Efficiency - Invest public funds and other resources wisely while fostering economic development. These goals are integrated into MassDOT’s Strategic and Operating Plans, and define the Performance categories for MassDOT’s Performance Measuring System - a system which ensures that MassDOT’s key indicators of performance are clear, specific, understandable and are aligned with MassDOT’s strategic goals. The strategic plan is also included as Appendix A to this report. The department’s strategic plan provides a big picture for leaders to focus on and for employees to understand. Each division and department of MassDOT has developed an operating plan that aligns to the strategic plan with specific objectives and measures that will achieve the goals laid out. The development of MassDOT’s goals has actuated a path for performance progress throughout the organization and the execution of these goals will drive MassDOT to becoming the best department of transportation in the United States. This report is structured around the five goals of MassDOT. 2.0 MassDOT Goal #1: Safety Actively manage the nation’s safest transportation system to minimize injuries whenever, wherever, and to whomever possible. 2.1 Total Number of Incidents That Have Caused Delays or Closures 2.1.1 Vehicle Crash Fatality Rate 5 According to data provided by the Federal Highway Administration (FHWA), Massachusetts’s vehicle crash fatality rate is currently the lowest in the United States. As shown in the graph, MassDOT’s fatality rate is 53 % lower than the national average. Decreasing rates of highway fatalities means MassDOT and its partners in safety are effectively eliminating unsafe road conditions and improving individual and commercial driver’s abilities and knowledge of proper driving habits. MassDOT focuses on locations with high accident rates and looks to improve driver education, or initiate construction projects to reduce the rate of fatalities in those areas. 2.1.2 Bus Accidents Bus accidents are tracked per 1,000 vehicle miles for ease of comparison between long and short bus routes within the MBTA service area. There are no clear patterns that predict the rate of accidents; however, the uptake in fall months could be caused by wet or icy road conditions. Overall the trend of accidents should decrease, but some accidents are outside of the control of the MBTA. To lower the bus accidents rate per 1,000 miles, MBTA focuses on routine, proper maintenance of buses and driver training. 6 Bus Accidents 0.100 Number of Bus Accidents per 1000 miles 0.090 0.080 0.070 0.060 0.050 0.040 0.030 0.020 0.010 0.000 Mar '10 Apr '10 May '10 Jun '10 Jul '10 Aug '10 Sept '10 Oct '10 Nov '10 Month 2.1.3 Red/Green/Blue/Orange Accidents Incidents Accidents are tracked per 1,000 vehicle miles traveled to allow longer lines (e.g. the Red Line) to be compared fairly against shorter (e.g. the Blue Line) lines. Values can fluctuate greatly from month to month based on weather conditions (slick rails from snow and ice), vehicle conditions and events (students returning to school, professional and collegiate games) that draw additional visitors and riders to the Greater Metropolitan area. Overall the trend should decrease. To lower the accidents per 1,000 vehicle miles, the MBTA focuses on vehicle and track maintenance, signal maintenance, transit police patrols and educational campaigns about safety on or near rail lines. 7 Accidents/ Incidents per 1000 miles 0.07 Number of accidents per 1000 miles 0.06 0.05 0.04 0.03 0.02 0.01 0 Mar '10 Apr '10 May '10 Jun '10 Jul '10 Aug '10 Sept '10 Oct '10 Nov '10 Red line Orange Line Blue Line Green Line 3.0 MassDOT Goal #2: Build and Preserve Build a quality transportation system and maintain it in a state of good repair. 3.1 Number of Projects in Construction Phase 3.1.1 Active Highway Construction Projects This measure represents the number of projects that were in the construction phase in a given fiscal year. The number of active construction projects is in large part a function of funding availability and, while not a performance measure, is a leading indicator of the department’s ability to build or maintain transportation assets. The graph should trend upward year to year with sustained funding and efficiencies that reduce the amount of time to scope, design, bid and award projects. This data does not include active maintenance projects. For the following graph, 2006-2009 statistics indicate MassHighway data and 2010 statistics indicate MassDOT data. 8 3.2 Assessments of Maintenance Performance by Class, Mode and Region MassDOT’s performance management program is new and, as such, does not have the ability to report on maintenance activities by class, by region of the state, or by specific categories of maintenance-related activity. Future performance management reports will include this information as it is developed. The following sections of the report provide information on MassDOT’s and the MBTA’s performance on certain maintenance activities that were requested in the Act as well as other meaningful measures that demonstrate our ability to deliver improvements to our road, rail, airport and other transportation assets. 3.3 Assessments of Highway Pavement 3.3.1 National Highway System Pavement Condition PSI MassDOT measures the overall condition of highway pavements using the Pavement Serviceability Index (or PSI). This measure applies to the National Highway System (NHS) roadways located in Massachusetts (such as interstate roads, major highways such as Route 1 and Route 24, and some major arterials). This chart shows the aggregate rating of all NHS roadways in excellent or good condition. Pavement condition has improved during the period 2007 to 2009 due to investments in paving projects and roadway resurfacing, but the average is still below MassDOT’s goal of 70%. 2010 pavement condition statistics will become available after January 1, 2011. 9 3.4 Assessments of Bridge and Track for Subway and Commuter Rail 3.4.1 Red/Blue/Green/Orange Speed Restrictions Speed restrictions measure the amount of slowdown caused by track conditions. Speed restrictions are a good indicator of bridge and track conditions: lines with lower numbers of speed restrictions are in better condition than those with higher numbers of speed restrictions. If a section of track falls below a specific maintenance standard or is somehow damaged, e.g. the rail is worn down, a speed restriction is put in place to ensure safe operation. As shown in this chart, Light Rail (Green Line) saw a growing number of speed restrictions from March through August due to wide gauge issues at 4 (four) grade crossings. Wide gauge is when the distance between the rails does not meet the MBTA track standard. Heavy Rail Lines speed restrictions have been declining overall for the past several months, due to the MBTA’s concentrated focus on eliminating restrictions on the Blue, Orange, and Red Lines. In general, as preventive maintenance and capital improvement projects are completed the trend should decrease on each line. 10 Speed Restrictions 8 7 Time travel impact/ minutes 6 5 4 3 2 1 0 Dec '09 Jan '10 Feb '10 Mar '10 Apr '10 May '10 Jun '10 Jul '10 Aug '10 Sept '10 Oct '10 Nov '10 Month Red line Orange Line Blue Line Green Line 3.4.2 Deficient Bridges One of the most important indicators of bridge safety and capacity is whether or not the bridge is structurally deficient. Bridges are rated on a scale of 1 to 10; a structurally deficient bridge is one with a rating of 4 or less. As of November 2010, of the 5108 bridges in the Commonwealth, 511 are rated as structurally deficient. Structural deficiency does not mean a bridge is unsafe; rather it means that it needs repairs to prevent weight or other restrictions on the bridge. Over the past several years, the Commonwealth, through the Patrick-Murray Administration’s Accelerated Bridge Program (ABP), has committed $3 billion in state bond funds toward bridge repair as well as hundreds of millions of dollars of federal funds. This increase in funding has enabled MassDOT and DCR to reduce the number of bridges from 518 to 494. The increase in structurally deficient bridges from October 2009 to January 2010 reflects the impact of the MassDOT reorganization when DCR and Turnpike bridges and the Tobin Bridge were transferred to MassDOT. In general, MassDOT expects the number of structurally deficient bridges to continue to decline; however, the number will never reach zero. As some bridges are repaired, others continue to age with resulting declines in structural integrity. Programs such as the ABP and federal bridge funding allow MassDOT to provide continued repairs to these assets. 11 Trend of Structurally Deficient Bridge Counts 540 532 530 524 521 518 520 512 511 507 509 507 504 SD Count 510 502 502 502 502 500 498 511 500 490 495 493 494 480 470 460 2010‐JAN 2006‐JAN* 2006‐APR* 2007‐JAN* 2007‐APR* 2008‐JAN* 2008‐APR* 2009‐JAN* 2009‐APR* 2010‐APR 2006‐JUL* 2006‐OCT* 2007‐JUL* 2007‐OCT* 2008‐JUL* 2008‐OCT* 2009‐JUL* 2009‐OCT* 2010‐OCT 2010‐JUL Quarter Reported * Indicates MassHighway Bridges Only (Data collected after Nov 2009 includes, MassHighway, DCR, Turnpike, Tobin) 3.5 Assessments by Condition Level –MassDOT is currently developing measures to meet this request and will include performance metrics on this topic in the next performance management report. 3.6 Assessments of the Categories of Maintenance-Related Activity -MassDOT is currently developing measures to meet this request and will include performance metrics on this topic in the next performance management report. 4.0 MassDOT Goal #3: Stewardship Operate the transportation system in a manner that embraces our stewardship of the Commonwealth’s natural, cultural, and historic resources. 4.1 Cost savings Over the past year since the Act went into effect, MassDOT has focused on reforming the business of transportation, seeking efficiencies, cost savings and improving collaboration by reorganizing the bureaucracy of state government. As independent authorities of the Commonwealth, MassDOT and the MBTA continue to aggressively identify and execute opportunities to reduce costs made possible through the Act. This following table provides a summary of initiatives that have been implemented by the Administration, with over $100 million in anticipated, annualized and one time savings from these efforts. Included are the results of major reform goals such as the standardization of health care benefits for all transportation employees and retirees as well as smaller reforms based on the sharing of resources and best practices made possible through an integrated workforce. As reflected in the FY11 MassDOT and MBTA budgets, through reinvestment in core services and maintenance, reform has changed the way transportation services are delivered in Massachusetts. 12 Number Reform Initiative Estimate Scope Lower Borrowing Costs 1 Swap Termination Avoidance $261.0 million One time 2 Metropolitan Highway System Debt $38.0 million Annual Restructuring Health Care 3 Transfer of MBTA Employees & $32.0 million Annual Retirees to GIC 1 4 Transfer of former Turnpike $5.1 million Annual Employees & Retirees to GIC Payroll and Personnel 5 MassDOT In-Sourcing Services $2.7 million Annual 6 MassDOT Payroll Savings (reduction $2.7 million Annual in force) 7 MBTA Payroll Savings (reduction in $6.6 million Annual force) Best Practices and Efficiencies 8 Flaggers & Traffic Management $15.5 million $7.75 million per year saved since 2008. 9 Salt & Snow Removal Contracts 2 $9.5 million Annual 10 511 Information Service $5.7 million $4.5 million one time; $1.2 million annual 11 MBTA Vendor Contract $4.8 million $4.8 million Renegotiations realized since 2009. A total of $10.2 million in savings is projected through FY16. 12 MassDOT IT Vendor Contract $1.0 million Annual Renegotiations 13 Toll Road Money Counting Services $500,000 Annual 14 MassDOT Vendor Contract $565,000 $303,000 saved in Renegotiations FY10; $262,000 in FY11. One time 15 Aeronautics Division Rent $131,000 $56,000 in FY10; $75,000 in FY11. Annual 16 Contractor Payment Website $81,000 One time Total Savings 3 $124.9 million 1 Savings will be fully realized in fiscal year 2012 after the expiration of applicable collective bargaining agreements. Implementation may be delayed by ongoing litigation. The savings estimate assumes litigation does not delay implementation of the law. $2 million has been saved since the passage of the Act. Estimates were provided by the Executive Office for Administration and Finance. 2 Does not include all savings realized through efficiencies made possible by changes in operations that will be measured during the 2010 – 2011 snow season. 3 Total does not include one time savings achieved through Swap Termination Avoidance. 13 4.2 Capital Expenditures 4.2.1 Highway Construction Expenditures Highway construction expenditures are a leading indicator of MassDOT’s ability to improve the Commonwealth’s roads and bridges. This chart provides trended information for the major spending categories within the department’s operations. Beginning in 2008, the passage of the Accelerated Bridge Program (ABP) provided additional funds to rehabilitate structurally deficient bridges. Likewise, the flow of federal ARRA funds starting in 2009 allowed the department to accelerate spending for many construction projects. Commonwealth funds have trended lower over the past two years due to the regional economic crisis that restricted the amount of bond funds available for projects. Highway Construction Expenditures by Source $1,400.0 $1,200.0 $1,000.0 $800.0 $600.0 $400.0 $200.0 $- FY06 FY07 FY08 FY09 FY10 FY11 Federal Funds ARRA Commonwealth Funds Accelerated Bridge 4.2.2 Highway Capital Expenditures by Project Type Similar to the previous section, it is important to review MassDOT expenditures by the type of programs to understand the performance of the department in meeting its strategic goals. This chart depicts a five year history of planned expenditures according to critical functions completed by the department. Since 2008, the department has focused on reducing both the number of structurally deficient bridges and improving the general condition of bridges in the Commonwealth. As such, spending for bridges (red line) has accelerated over the past several fiscal years. The blue and green lines representing roadway resurfacing (paving, grading) and reconstruction reflect the commitment of the department to improve the condition of both interstate and local roads. As noted elsewhere in this report, funds expended for this purpose improve the smoothness or comfort perceived by riders. General maintenance, guardrail and other 14 expenditures are relatively flat as a result of shifting funds towards bridges and roads, but also due to the use of a “whole road” approach that ensures all aspects of the road (guardrail, signs, drainage, and lights) are improved during the project. Thus the slight decline of spending in these categories does not mean a lack of focus, rather as we fix bridges and reconstruct roads – other maintenance activities are being completed as well. Highway Expenditures by Project Type $1,200.00 $1,000.00 $800.00 $600.00 $400.00 $200.00 $- FY06 FY07 FY08 FY09 FY10 Bridge Repair & Replacement Roadway Reconstruction Roadway Resurfacing Safety, General Maintenace, Facilities & Other 4.2.3 Federal Reimbursement Rates Federal Reimbursement Rates as a Percent of Total Construction Expenditures 100% 90% 80% 46.86% 57.23% 53.57% 70% 61.83% 61.04% 65.77% 60% 50% 40% 30% 53.14% 42.77% 46.43% 20% 38.17% 38.96% 34.23% 10% 0% FY06 FY07 FY08 FY09 FY10 FY11 Federal Highway Funds Commonwealth Funds 15 MassDOT relies on federal funds to complete highway and other transit projects. Year over year, MassDOT has been working with federal partners to increase the amount of federal reimbursement for actual construction costs and overhead (salaries, utilities, goods and services) associated with projects. Over the past four fiscal years, the total amount of federal reimbursements or shares in project costs has increased by an average of 25%. This means that as the total construction program has increased, the amount paid by the Commonwealth has remained constant. Federal Reimbursement Rates $1,800 $1,600 $1,400 Expenditures (in millions) $1,200 $1,000 $800 $600 $400 $200 $- FY06 FY07 FY08 FY09 FY10 FY11 Commonwealth Funds Highway Federal Funds 4.2.4 Additional Funds & Extra Work Orders Since 2008, MassDOT’s actual and planned capital investment program has increased by nearly 119% to over $1.1 billion in fiscal year 2011. Since 2007, the Administration has made a committed effort to reduce the number and dollar value of extra work orders for projects. Additional funds are an important indicator of how well projects are designed and managed. Decreasing amounts of funds is good – it means that contractors had adequate specifications to build the project and MassDOT engineers are providing adequate oversight of projects. However, additional funds will never trend to zero. Unforeseen issues at construction sites (e.g. ledge, rock or increases in raw material costs) mean that some projects will require additional funds beyond the budgeted amount. MassDOT reviews these requests to ensure that the request for additional funds is legitimate. 16 Additional Funds & Extra Work Orders $120.00 $100.00 Expenditures (in millions) $80.00 $60.00 $40.00 $20.00 $0.00 FY06 FY07 FY08 FY09 FY10 Federal Fiscal Year 4.3. State of Good Repair 4.3.1 FY2011-FY2015 CIP Focus: State of Good Repair (SGR) An MBTA asset is in State of Good Repair (SGR) when it functions properly and operates within its useful life. When the components of a transit system (revenue vehicles, bridges, stations, tracks, signals, power systems, etc.) degrade due to “wear and tear” and/or age, they become part of the SGR backlog. To maintain the current level of service and reduce future maintenance costs, the MBTA’s capital program focuses on funding SGR projects. The following bar chart excludes all State-funded projects but includes all ARRA-funded projects. Each bar represents planned capital investment for a 5-year period. The graph does not capture actual expenditures and does not measure the percent of SGR backlog completed. In FY2012, there will be a noticeable decrease in SGR investment (from 99% in FY2011 to an expected 93% in FY12). The explanation for this drop is the amount of ARRA funds going to projects other than SGR. The MBTA’s Draft Capital Investment Plan (CIP) (FY12-FY16), which is the Authority’s planned capital investment over a five- year cycle, contains approximately $240 million in projects outside the scope of SGR. 17 FY2011- FY2015 CIP Focus: State of Good Repair SGR $450 million annually over the last 5 years 120% 99% 97% Percent of CIP Allocated to SGR 100% 94% 94% 91% 86% 83% 80% 77% 80% 71% 71% 72% 68% 65% 63% 64% 61% 61% 62% 60% 40% 20% 0% 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 Year 4.4 System Availability 4.4.1 RMV System Availability 4 In an effort to improve RMV customer service delivery, the MassDOT Information Technology Department began in August to measure the uptime of computer systems that augment services to the public. This is part of an overall quality initiative launched by the office of the Chief Information Officer of MassDOT. In general, higher system availability means less wait time in branch locations while providing the full spectrum of services to the public. For the past quarter, the availability of automated RMV systems that support the public has improved at a steady rate, month over month; examples of these types of systems are license application and renewal, system networks and automated branch queuing. While the theoretical uptime goal for these systems is 100%, the actual uptime goal is set at 97%. This reflects the age of the related infrastructure components, system life cycle maturity and MassDOT’s dependency on outside service providers. 4 This measure directly supports Section 5.1.2 – Average Branch Wait Times 18 RMV Public Facing System Uptime 100.00 98.00 96.00 Percent (%) 94.00 92.00 90.00 88.00 Aug Sep Oct Nov Dec Month 4.5 Salt Usage 4.5.1 Reduce Salt Usage in MassDOT’s Snow and Ice Program Minimizing the use of salt demonstrates MassDOT’s willingness to become better stewards of our highway assets while ensuring safe driving conditions. This measure demonstrates commitment to preserving the environment, and illustrates commitment to reducing operating costs. Using less salt reduces the deterioration of highway structures, and increases the life expectancy of highway bridges. 19 4.6 Bicycle and Multi- Use Paths 4.6.1 Number of Bicycle and Multi-Use Path Projects Continuing to design and construct multi-modal transportation solutions that enhance communities and that embrace natural, cultural and historic resources, is consistent with MassDOT’s stewardship goals. The number of projects in a year does not necessarily equate to the amount of available funding. During some years MassDOT may be able to initiate a large number of projects with low individual values. The opposite is also true, when MassDOT can only initiate a few high value projects. MassDOT is committed to continuing to advance these projects and ensuring that they are designed to meet the public’s needs. 20 5.0 MassDOT Goal #4: Customer Service Deliver superb service that both anticipates and responds to customer needs. Each day, MassDOT’s transportation infrastructure serves approximately 5.5 million people, including over 4.7 million licensed drivers in the Commonwealth, an estimated half-million public transit customers, and several hundred-thousand drivers from out-of- state. Of this total using the system every day, over 5 million – 90% – are using our roads for some portion, or all, of their trips. While the figures above provide overall estimates for total system usage, the statistics below present a snapshot of daily commuting behavior for over 3.3 million workers in Massachusetts as compared to national averages: • Over 2.6 million, or 81%, drive their car (vs. 86.7% nationwide). • Around 293,000, or 8.9%, take transit (vs. 4.8% US). • About 152,000 (4.6%) walk to work (vs. 2.9% US) • About 24,000 (0.7%) ride a bicycle to work (vs. 0.5 % US) • The remaining 162,000 (4.9%) use other means, including working at home (vs. 5.1% US) Massachusetts Commuting Mode Shares 5 Walk 4.6% Transit 8.9% Bicycle 0.7% Other Means 4.9% Automobile 80.9% Additional information and statistics regarding customer usage of Massachusetts’ transportation system are further detailed in the sections that follow. 5 2008 data from the American Community Survey (ACS) 21 5.1 Throughput of Selected Divisions 5.1.1 Average Daily Vehicle Miles Traveled Per Day MassDOT’s Highway Division is responsible for managing the state’s highway system of over 9,000 lane miles of road, 27 tunnels and over 5,000 bridges. Average daily vehicle miles traveled per day is the total volume of vehicle traffic of a highway or road for a year divided by 365 days. This is a useful and simple measurement of how busy the Commonwealth roads are. 2010 statistics for the average daily vehicle miles traveled per day will become available after January 1, 2011. 5.1.2 Average Branch Wait Times MassDOT’s Registry of Motor Vehicles (RMV) Division thirty branch offices provide over five million customers with license, registration and other motor vehicle operation services. While a growing number of online services are available to residents, many continue to visit branch offices for routine transactions or services not available on the web. Recognizing the importance of prompt, accurate service to customers, the RMV has focused on meeting a 15-minute maximum wait time for all customers at branches. The following chart shows the performance of the RMV in meeting this goal over the past year. The 15-minute goal was exceeded through August for two primary reasons; (1) there were insufficient customer service representatives at branches and (2) April and August saw a seasonal spike in demand for services as students applied for driving permits and licenses during school vacation. Since the hiring of additional customer service 22 representatives in August, wait times have continued to decline with October and November falling below the targeted 15-minute mark. Branch Wait times 350,000 35 Number of Customers Served 300,000 30 250,000 25 200,000 20 150,000 15 100,000 10 50,000 5 0 0 ry ril ay ry ne r ly st r ch er be be Ju Ap gu a ua ob M Ju ar nu em em Au br M ct Ja Fe pt ov O Se N Months Number of Customers Served Average Wait Times 5.2 Utilization of All Modes The following subsections provide information on ridership of all modes at the MBTA and on RTA ridership. 5.2.1 Annual Ridership The chart notes how many people ride the MBTA’s subway, bus, commuter rail, boat and paratransit services on an annual basis. Specifically, ridership is measured by “unlinked trips”; meaning a customer who transferred from a bus to the subway would count as two unlinked trips, one on bus and one on subway. There are many factors, including the economy, gas prices and quality of service that impact ridership. In 2009, the regional recession and job losses meant fewer people were commuting for work, shopping or leisure. In some months where gas prices rose dramatically, more individuals perceived riding the MBTA as more cost effective than driving and so ridership increased. 23 Annual Ridership 160,000 140,000 120,000 Number of Riders 100,000 80,000 60,000 40,000 20,000 0 2006 2007 2008 2009 2010 Year CR Bus Trackless Heavy Rail Light Rail Boat Private Bus RIDE 5.2.2 Regional Transit Authority (RTA) Ridership MassDOT supports the operating assistance and capital investment programs for the fifteen RTAs, providing over $59 million in operating assistance in 2010. The RTAs work with the Rail and Transit Division to provide service to 256 communities across the Commonwealth. For the most recent reporting year available, the RTAs continued their successful ridership performance, serving 29.7 million customers in 2009- an increase of 3% over prior year levels despite a weakening economy. Strong performance at Brockton Area Transit (BAT), Lowell Regional Transit Authority (LRTA) and Vineyard Transit Authority (VTA) increased total ridership by 8.7%, 7.0% and 6.9% respectively. Record high gasoline prices after 2007 attracted new customers to local transit service. Additionally, an innovative change to the fare structure at the Pioneer Valley Transit Authority (PVTA) added 2.3 million trips from 2007 to 2008 when a new unlimited ride day pass was introduced. The new MetroWest Regional Transit Authority (MWRTA) began service in 2008, expanding the RTA network into the greater Framingham/Natick area. 24 RTA Ridership 2005- 2009 13,000,000 12,000,000 11,000,000 10,000,000 9,000,000 Number of trips 8,000,000 7,000,000 6,000,000 5,000,000 4,000,000 3,000,000 2,000,000 1,000,000 - TA T A RA TA TA TA TA A TA T A TA TA TA AR VT BA AT RT VR PV R R BR SR AT FR CR LR C M W W N M G C M Regional Transit Authorities 2005 2006 2007 2008 2009 5.3 Congestion on All Modes –MassDOT is currently putting measures in place to meet this request and will include performance metrics on this topic in the next performance management report. 6.0 MassDOT Goal #5: Efficiency Invest public funds and other resources wisely while fostering economic development. 6.1 Number of Projects Completed 6.1.1 Aeronautics Grant Expenditures 25 Amount of Grants Issued $70,000,000 $60,000,000 Total Amount of Grants Issued $50,000,000 State $40,000,000 Local Federal $30,000,000 $20,000,000 $10,000,000 $‐ 2006 2007 2008 2009 2010 Year Through the Federal Aviation Administration (FAA) and MassDOT’s Airport Safety and Maintenance program, MassDOT’s Aeronautics Division provides funding for airport capital improvement projects at 37 public-use general aviation airports. This chart notes the amount of grants issued under these two programs for capital improvement projects over the past five fiscal years. Aeronautics and the public use airports are able to use a mix of state (light blue) and local (black) funds to leverage the maximum amount of federal dollars (dark blue) available. Typically the FAA and MassDOT issues grants for runway or building safety, compliance and capacity projects first and then use the remainder for economic development projects such as terminal buildings. The rate of Aeronautics Grant expenditures is important as it connects to safety and maintenance projects. For example, in state fiscal year 2007, 33 grants were issued which was a slight increase from the 28 issued in fiscal year 2006. However, the dollar value of the projects issued in FY07 was much higher as eight major projects valued at over one million dollars each was issued. Thirty-one grants were issued in FY09, of which seventeen were valued at over one million dollars. The number of grants issued in FY10 declined as a number of proposed projects were unexpectedly delayed for environmental and other permitting reasons. The amount of grants issued was therefore reduced. 6.1.2 Highway Projects Completed in the Fiscal Year From year to year, the number of projects we complete can vary. In a particular year, MassDOT may construct fewer projects, but the dollar value associated with those projects could be significantly higher, based on the scope and complexity of the projects. This chart notes the number of highway related projects that were completed 26 in each fiscal year. With sustained funding MassDOT can continue to deliver more projects, creating more jobs, a healthier, safer infrastructure and benefits for all roadway users. This data does not include completed maintenance projects. The 2006-2009 statistics in the following graph represent projects completed by the former MassHighway Department only; 2010 statistics indicate MassDOT data for the new Highway Division. 6.2 Percentage of Projects Completed Early or On-Time 6.2.1 Highway Project On-Time/Early Completion On-time/early project completion is a measure of MassDOT’s ability to manage construction projects and hold contractors accountable for schedule adherence. On- time/early completion reduces impacts to the public and provides more rapid delivery of measurable infrastructure and travel improvements. MassDOT monitors internal and external causes for delays. Examples of potential delays include changes in conditions, unforeseen utilities, design omissions, and weather related delays. The 2006-2009 statistics in the following graph indicate MassHighway data, 2010 statistics indicate MassDOT data. 27 Since 2008 MassDOT has focused on eliminating delays in highway and bridge construction through a combination of careful project review during the design stage, improved communications with municipalities and utilities, a more robust public process and improved project scheduling to complete projects prior to the winter construction shutdown. As shown in the graph, MassDOT has made tremendous progress in improving on time performance. Completion rates are up by 175% from 2008 levels. For fiscal year 2011 and beyond, MassDOT’s goal is to have 80% of all Highway capital improvement projects completed on time. 6.2.2 Highway Project Average Time of Consultant Procurement One of the first steps in the project delivery process is the procurement of design services to prepare construction plans, specifications and cost estimates. This chart shows the average duration of the consultant contract procurement process for design projects, beginning with the approval of contract need, selection of a consultant firm and issuance of a notice to proceed (NTP) for the design work. 28 Since the implementation of streamlining projects in 2007 to reduce the time to procure, the trend has been positive. MassDOT’s goal is to sustain an average of six months for the procurement of consultants. This will be achieved by using a variety of strategies, including training on new procedures, eliminating duplicative procedures, improving oversight and tracking of procurement schedules. From 2007 to 2008, the average time to procure a design contract dropped by 39%. The 2009 average time increased largely from the huge volume of projects made possible through additional federal stimulus and state bond funds for construction projects. In 2010, MassDOT was able to refocus efforts to reduce the average to 6.2 months, which is still slightly above the goal of 6 months. 6.2.3 Highway Project Bidding and Construction Over the past four fiscal years, MassDOT has reduced the timeline for highway and bridge construction projects. One way MassDOT measures the success of the highway and bridge construction program is by the time it takes to move a designed, funded project from the advertisement phase (also called the bidding phase) to notice to proceed (authorization for a contractor to start construction). This is a key measure of design quality and effective program management. It also means MassDOT is creating jobs and supporting economic development. The 2006-2009 statistics in the following graph represtent projects completed by the former MassHighway Department only; 2010 statistics indicate MassDOT data for the new Highway Division. 29 MassDOT reduced the time between contract advertisement and construction start date from 422 days to 217 days in 2008, a 48% decrease. Since 2008, the time was further reduced to 111 days in 2010, an additional 48% decrease. This reduction is more impressive when placed within the context of MassDOT’s annual road and bridge construction program that increased from $515M in 2007 to more than $1 billion in 2010, a 46% increase in construction expenditures. 6.3 Percentage of Projects Completed Under Budget or On-Budget 6.3.1 Highway Project Under/On-Budget Completion In fiscal year 2010, MassDOT expended more than $1 billion on 375 highway and bridge construction projects. Ensuring on-budget completion of projects is a core value of MassDOT and an important factor in restoring the public’s confidence in the state transportation system. In 2010, 51% of all highway capital projects funded from federal and state bond funds were completed on/under budget. Through extensive project and internal controls, MassDOT monitors project timelines, schedules and performance in an effort to reduce or mitigate the number of projects that go over budget. Some of the projects currently in the construction phase were designed before these procedures were implemented in 2008. The trend for on budget completion should continue to move higher as more projects are designed using these controls. The 2006-2009 statistics in the following graph represent projects completed by the former MassHighway Department only; 2010 statistics indicate MassDOT data for the new Highway Division. 30 6.4 Percentage of Projects Advertised Early or On-Time 6.4.1 Annual Highway STIP Compared to Advertisement The Commonwealth’s State Transportation Improvement Program (STIP) is a federally- mandated compilation of priority roadway, bridge, transit, and intermodal projects as agreed to by the Commonwealth's ten Metropolitan Planning Organizations (MPOs) and the three non-MPOs. The STIP is a four year planning document, providing an annual “roadmap” of projects that are in the pipeline for funding, construction and completion. The STIP is used to anticipate how much federal highway, federal transit and Commonwealth bond proceeds will be spent in a fiscal year. MassDOT’s goal is to advertise 80% of the current year’s road and bridge projects. In the graph below, 2006-2009 statistics indicate MassHighway data and 2010 statistics indicate MassDOT data. 31 The percentage of projects advertised as programmed on the STIP is an important measure of the success of the project development and estimating process. This measure is a demonstration of MassDOT’s ability to fulfill it’s commitments to the public, and the efforts being implemented to improve this percentage reflect MassDOT’s increased emphasis on providing exceptional customer service. Since 2007 MassDOT has streamlined the entire project development process, implementing improved coordination between all project stakeholders to ensure comprehensive designs and eliminate advertising delays. The drop in the 2010 percentage is reflective of an increase in the number of projects advertised due to increases in funding from ARRA and ABP. 6.4.2 Trended Ads Project advertisements are another critical milestone in project development. An advertisement is the notification to contractors that a project has been designed, funded and is available for construction bids. Contractors then begin a project review process that culminates with a bid or price quote to complete the work. Year over year performance in meeting advertisement schedules signifies that MassDOT is developing well designed projects and our capital investment plan is fiscally constrained and balanced. To the extent that actual advertisements do not meet targets, it means that the design process is delayed or funding constraints materialized. Additionally, advertisements should be released over all four quarters of the fiscal year to ensure a balanced and competitive bidding environment. For all of these reasons, trended ads are an important indicator of MassDOT’s highway construction programs performance. 32 Trended Ads 700 653 600 524 500 412 400 358 300 270 243 248 200 155 167 136 138 94 100 44 49 27 25 23 34 0 10 - Q1 Q2 Q3 Q4 FFY 2006 FFY 2007 FFY 2008 FFY 2009 FFY 2010 6.5 On-Time Performance on All Modes 6.5.1 MBTA On-Time Performance On-time performance shows how well our service follows our schedules. For each type of service, MBTA measures on-time performance differently to reflect the way the customer experiences it. Subway customers walk to the subway platform at any time, expecting trains to run frequently. For this reason, subway (Red, Blue, Green, and Orange) compares the scheduled frequency of service to the actual frequency; in all cases trains must leave the first station within 150% of the scheduled interval between them. So for example, if a Blue Line train is scheduled to leave Wonderland four minutes after the previous train was scheduled to leave, but it actually leaves closer to six minutes after the previous train, then the train is late. o The MBTA strives to have an on-time performance rate of 95% on the Red Line. Recently, the on- time performance for the Red Line has averaged 94.8%. Fluctuations in Red Line performance were minimized by efforts to improve track infrastructure to reduce speed restrictions, scheduled changes and other maintenance improvements. o The MBTA strives to have an on-time performance goal of 95% on the Orange Line. Recently, the on time performance for the Orange Line has averaged 96.1%. Orange Line performance was consistent since September 2009, owing to good train maintenance, track maintenance and signal upgrades. The line 33 experiences only the occasional dip in performance, most recently in July 2010, when operational procedures transitioned to the single person train operation. o The MBTA strives to have an on-time performance goal of 95% on the Blue Line. Recently, the on- time performance for the Blue Line has averaged 94.8%. The Blue Line’s on-time performance has been steady with lower numbers recorded this past summer. Part of this is actually due to problems with the catenary wire between Orient Heights and Wonderland. Other delays were caused by track problems, which required implementation of speed restriction o The MBTA strives to have an on-time performance goal of 95% on the Commuter Rail. Recently, the on time performance for the Commuter Rail has averaged 86.1%. Small problems such as unusual track conditions have an impact. Track improvement projects will reduce speed restrictions. More recent delays are due to slippery rail (a seasonal problem in the fall); speed restrictions and other mechanical failures. o On- time performance for buses is impacted by road traffic and illegal parking in bus stops. A smaller cause is vehicle maintenance issue, where a vehicle is taken out of service for repair. The following series of graphs highlight on time performance for commuter rail and subways. On- Time Performance by Mode 100.0% 98.0% 96.0% 94.0% 92.0% Percent 90.0% 88.0% 86.0% 84.0% 82.0% 80.0% Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov '09 '09 '09 '09 '10 '10 '10 '10 '10 '10 '10 '10 '10 '10 '10 Month Red Orange Blue Commuter Rail 34 7.0 Conclusion MassDOT will continue to use Performance Management as a tool to ensure the organizational goals are being met in an effective and efficient manner. In an effort to ensure transparency and enhance accountability for outcomes and deliverables, the agency will communicate all performance results to MassDOT employees, to customers and to external stakeholders. MassDOT hopes this document will provide a starting point for open and frank discussions in both internal and external forums on how the agency can improve or maintain excellent performance throughout the organization. MassDOT welcomes any feedback on the results that are presented in this report. 35 8.0 Appendix A - MassDOT’s Strategic Plan 36 37