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A Self-Study Course on Terrorism-Related Risk Management of

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ISBN 978-0-309-37530-6 | DOI 10.17226/23418

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A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM

NCHRP REPORT 525

Surface Transportation Security
Volume 4
A Self-Study Course on
Terrorism-Related Risk
Management of Highway
Infrastructure

SCIENCE APPLICATIONS INTERNATIONAL CORPORATION (SAIC)

TRANSPORTATION DIVISION
McLean, VA

PB CONSULT
Herndon, VA

S UBJECT A REAS
Planning and Administration • Bridges, Other Structures, and Hydraulics and Hydrology • Public Transit

Research Sponsored by the American Association of State Highway and Transportation Officials
in Cooperation with the Federal Highway Administration

TRANSPORTATION RESEARCH BOARD

WASHINGTON, D.C.
2005
www.TRB.org

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

NATIONAL COOPERATIVE HIGHWAY RESEARCH NCHRP REPORT 525: Volume 4

PROGRAM

Systematic, well-designed research provides the most effective Project 20-59(02)

approach to the solution of many problems facing highway
administrators and engineers. Often, highway problems are of local ISSN 0077-5614
interest and can best be studied by highway departments ISBN 0-309-08803-8
individually or in cooperation with their state universities and
Library of Congress Control Number 2004111186
others. However, the accelerating growth of highway transportation
develops increasingly complex problems of wide interest to © 2005 Transportation Research Board
highway authorities. These problems are best studied through a
coordinated program of cooperative research. Price $35.00
In recognition of these needs, the highway administrators of the
American Association of State Highway and Transportation
Officials initiated in 1962 an objective national highway research
program employing modern scientific techniques. This program is
supported on a continuing basis by funds from participating
member states of the Association and it receives the full cooperation
and support of the Federal Highway Administration, United States NOTICE
Department of Transportation.
The project that is the subject of this report was a part of the National Cooperative
The Transportation Research Board of the National Academies
Highway Research Program conducted by the Transportation Research Board with the
was requested by the Association to administer the research
approval of the Governing Board of the National Research Council. Such approval
program because of the Board’s recognized objectivity and reflects the Governing Board’s judgment that the program concerned is of national
understanding of modern research practices. The Board is uniquely importance and appropriate with respect to both the purposes and resources of the
suited for this purpose as it maintains an extensive committee National Research Council.
structure from which authorities on any highway transportation
The members of the technical committee selected to monitor this project and to review
subject may be drawn; it possesses avenues of communications and
this report were chosen for recognized scholarly competence and with due
cooperation with federal, state and local governmental agencies, consideration for the balance of disciplines appropriate to the project. The opinions and
universities, and industry; its relationship to the National Research conclusions expressed or implied are those of the research agency that performed the
Council is an insurance of objectivity; it maintains a full-time research, and, while they have been accepted as appropriate by the technical committee,
research correlation staff of specialists in highway transportation they are not necessarily those of the Transportation Research Board, the National
matters to bring the findings of research directly to those who are in Research Council, the American Association of State Highway and Transportation
a position to use them. Officials, or the Federal Highway Administration, U.S. Department of Transportation.
The program is developed on the basis of research needs Each report is reviewed and accepted for publication by the technical committee
identified by chief administrators of the highway and transportation according to procedures established and monitored by the Transportation Research
departments and by committees of AASHTO. Each year, specific Board Executive Committee and the Governing Board of the National Research
areas of research needs to be included in the program are proposed Council.
to the National Research Council and the Board by the American To save time and money in disseminating the research findings, the report is
Association of State Highway and Transportation Officials. essentially the original text as submitted by the research agency. This report has
Research projects to fulfill these needs are defined by the Board, and not been edited by TRB.
qualified research agencies are selected from those that have
submitted proposals. Administration and surveillance of research
contracts are the responsibilities of the National Research Council
and the Transportation Research Board. Published reports of the
The needs for highway research are many, and the National
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
Cooperative Highway Research Program can make significant
contributions to the solution of highway transportation problems of are available from:
mutual concern to many responsible groups. The program,
however, is intended to complement rather than to substitute for or Transportation Research Board
duplicate other highway research programs. Business Office
500 Fifth Street, NW
Washington, DC 20001
and can be ordered through the Internet at:
Note: The Transportation Research Board of the National Academies, the
National Research Council, the Federal Highway Administration, the American
Association of State Highway and Transportation Officials, and the individual
http://www.national-academies.org/trb/bookstore
states participating in the National Cooperative Highway Research Program do
not endorse products or manufacturers. Trade or manufacturers’ names appear
herein solely because they are considered essential to the object of this report. Printed in the United States of America

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished schol-
ars engaged in scientific and engineering research, dedicated to the furtherance of science and technology
and to their use for the general welfare. On the authority of the charter granted to it by the Congress in
1863, the Academy has a mandate that requires it to advise the federal government on scientific and techni-
cal matters. Dr. Bruce M. Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Acad-
emy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration
and in the selection of its members, sharing with the National Academy of Sciences the responsibility for
advising the federal government. The National Academy of Engineering also sponsors engineering programs
aimed at meeting national needs, encourages education and research, and recognizes the superior achieve-
ments of engineers. Dr. William A. Wulf is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the
services of eminent members of appropriate professions in the examination of policy matters pertaining
to the health of the public. The Institute acts under the responsibility given to the National Academy of
Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative,
to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the
Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate
the broad community of science and technology with the Academy’s purposes of furthering knowledge and
advising the federal government. Functioning in accordance with general policies determined by the Acad-
emy, the Council has become the principal operating agency of both the National Academy of Sciences
and the National Academy of Engineering in providing services to the government, the public, and the
scientific and engineering communities. The Council is administered jointly by both the Academies and
the Institute of Medicine. Dr. Bruce M. Alberts and Dr. William A. Wulf are chair and vice chair,
respectively, of the National Research Council.
The Transportation Research Board is a division of the National Research Council, which serves the
National Academy of Sciences and the National Academy of Engineering. The Board’s mission is to promote
innovation and progress in transportation through research. In an objective and interdisciplinary setting,
the Board facilitates the sharing of information on transportation practice and policy by researchers and
practitioners; stimulates research and offers research management services that promote technical
excellence; provides expert advice on transportation policy and programs; and disseminates research
results broadly and encourages their implementation. The Board’s varied activities annually engage more
than 5,000 engineers, scientists, and other transportation researchers and practitioners from the public and
private sectors and academia, all of whom contribute their expertise in the public interest. The program is
supported by state transportation departments, federal agencies including the component administrations of
the U.S. Department of Transportation, and other organizations and individuals interested in the
development of transportation. www.TRB.org

www.national-academies.org

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

COOPERATIVE RESEARCH PROGRAMS STAFF FOR NCHRP REPORT 525

VOLUME 4
ROBERT J. REILLY, Director, Cooperative Research Programs
CRAWFORD F. JENCKS, Manager, NCHRP
S. A. PARKER, Senior Program Officer
EILEEN P. DELANEY, Director of Publications
ELLEN M. CHAFEE, Assistant Editor

NCHRP PROJECT SP20-59 PANEL FOR PROJECT 20-59(02)

Field of Special Projects—Area of Security
THOMAS HICKS, Maryland State Highway Administration (Chair)
DAVID P. ALBRIGHT, New Mexico State Highway and Transportation Department
PHILIP J. CARUSO, Institute of Transportation Engineers
ANTHONY R. KANE, AASHTO
VINCENT P. PEARCE, FHWA
MARY LOU RALLS, Ralls Newman, LLC, Austin, TX
TERRY SIMMONDS, Washington State DOT (Retired)
STEVEN L. ERNST, FHWA Liaison Representative
JOEDY W. CAMBRIDGE, TRB Liaison Representative

AUTHOR ACKNOWLEDGMENTS
This self-study course book on risk management—focusing on Department of Transportation (Texas DOT), the California Depart-
terrorism-related vulnerability assessment of bridges, tunnels, and ment of Transportation (Caltrans), and the New York State Depart-
other highway infrastructure—is the result of contributions from a ment of Transportation (NYSDOT). The lead state DOT sponsors
number of individuals, state highway departments of transportation of the workshops were the state bridge engineers: Mary Lou Ralls
(DOTs), and federal agencies. The National Cooperative Highway (Texas DOT), Richard Land (Caltrans), and George Christian
Research Program (NCHRP) of the Transportation Research Board (NYSDOT).
(TRB) funded the development of the original workshops and this The content of this self-study course reflects the best judgment
book on behalf of the American Association of State Highway and and experience of Science Applications International Corporation
Transportation Officials (AASHTO) Transportation Security Task (SAIC) and PB Consult, which developed and compiled the course
Force. The Federal Highway Administration (FHWA) served as the material and presented the material in the workshops. The principal
primary advisor for this course book. investigator of the project was Dr. Shahed Rowshan. The other
The information contained in this self-study course book is primary authors were Dr. Michael Smith (SAIC) and Stephen
derived from the contents of three national workshops conducted Lockwood (PB Consult). The contents of this study do not repre-
under NCHRP Project 20-59(02) in 2003. These workshops for sent an official view of any sponsor, highway administration, or
multiple state DOTs were hosted by three state DOTs—the Texas federal agency.

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

This fourth volume of NCHRP Report 525: Surface Transportation Security will be
FOREWORD of interest to state DOT and highway authorities with responsibility for state-level pro-
By S. A. Parker gram planning and policy, asset (e.g., bridge and tunnel) management, and security. The
Staff Officer law-enforcement community and emergency responders are essential in risk-management
Transportation Research planning and should be familiar with the concepts in this course. In federal agencies, secu-
Board rity decision makers, field office representatives, and bridge and tunnel engineers could
benefit from this course. In general, engineers, planners, and researchers involved in secu-
rity assessment and planning would find the concepts in this course beneficial.

The AASHTO Transportation Security Task Force, in cooperation with FHWA

and the Transportation Research Board (TRB), sponsored the NCHRP 20-59(02) proj-
ect to provide three national workshops to familiarize transportation agencies and other
interested parties with the AASHTO methodology published in the Guide to Highway
Vulnerability Assessment for Critical Asset Identification and Protection. Three state
DOTs—California, New York, and Texas—hosted national workshops that were con-
ducted in spring 2003.
The objectives of Volume 4: A Self-Study Course on Terrorism-Related Risk
Management of Highway Infrastructure are (1) to provide a general background in
terrorism-related risk management for highway infrastructure and (2) to assist bridge
and structures engineers and managers in

• Identifying critical highway assets and their potential vulnerabilities,

• Developing possible countermeasures to prevent or ameliorate threats to such
assets, and
• Determining the capital and operating costs of such countermeasures.

This volume of NCHRP Report 525 was prepared under NCHRP Project 20-59(02)
by Science Applications International Corporation with PB Consult; the report is pre-
sented in PowerPoint and portable document format (pdf) on CRP-CD-55.
Emergencies arising from terrorist threats highlight the need for transportation
managers to minimize the vulnerability of travelers, employees, and physical assets
through incident prevention (including deterrence), response preparedness, conse-
quence mitigation, effective response, and rapid recovery. Managers seek to reduce the
chances that transportation vehicles and facilities will be targets or instruments of ter-
rorist attacks and to be prepared to respond to and recover from such possibilities. By
being prepared to respond to terrorism, each transportation agency is simultaneously
prepared to respond to natural disasters such as hurricanes, floods, and wildfires, as well
as human-caused events such as hazardous materials spills and other incidents.
This is the fourth volume of NCHRP Report 525: Surface Transportation Security,
a series in which relevant information is assembled into single, concise volumes—each

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

pertaining to a specific security problem and closely related issues. These volumes
focus on the concerns that transportation agencies are addressing when developing pro-
grams in response to the terrorist attacks of September 11, 2001, and the anthrax attacks
that followed. Future volumes of the report will be issued as they are completed.
To develop this volume in a comprehensive manner and to ensure inclusion of sig-
nificant knowledge, available information was assembled from numerous sources,
including a number of state departments of transportation. A panel of topic experts in
the subject area was established to guide the researchers in organizing and evaluating
the collected data and to review the final document.
This volume was prepared to meet an urgent need for information in this area. It
records practices that were acceptable within the limitations of the knowledge avail-
able at the time of its preparation. Work in this area is proceeding swiftly, and readers
are encouraged to be on the lookout for the most up-to-date information.
Volumes issued under NCHRP Report 525: Surface Transportation Security
may be found on the TRB website at http://www4.trb.org/trb/crp.nsf/All+Projects/
NCHRP+20-59.

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

CONTENTS CRP - CD - 55
I-1 CHAPTER I Introduction and Background
I.1 Objective, I-1
I.2 Background, I-1
I.3 Scope, I-2
I.4 Audience, I-2
I.5 Methodology and ITS Applications, I-3
I.6 States and Provinces That Have Completed This Course, I-3
I.7 How to Use This Course Book, I-4
II-1 CHAPTER II Risk Management Self-Study Course
III-1 CHAPTER III Risk Management Discussions Specific to Bridges and Tunnels
IV-1 CHAPTER IV Sample Exercises
IV.1 Exercise I – Blue River City, IV-1
IV.2 Exercise II – Sample Bridge Vulnerability Assessment, IV-13

V-1 CHAPTER V Other Risk Management Studies

V.1 Blue Ribbon Panel, V-1
V.2 Office of Domestic Preparedness, V-3
V.3 Federal Transit Administration, V-6
V.4 U.S. Army Corps of Engineers, V-8
V.5 Transportation Research Board, V-8

A-1 APPENDIX A Acronyms

B-1 APPENDIX B Selected Security Web Sites
C-1 APPENDIX C List of Participating Agencies in NCHRP Workshops
D-1 APPENDIX D Biographies of NCHRP Workshop Presenters
E-1 APPENDIX E List of Presentations from the NCHRP Workshops
F-1 APPENDIX F Disclaimer
G-1 APPENDIX G Comment Form
H-1 APPENDIX H Vulnerability Assessment Worksheets
I-1 APPENDIX I Electronic Copies of Vulnerability Assessment Worksheets

Copyright National Academy of Sciences. All rights reserved.

A Self-Study Course on Terrorism-Related Risk Management of Highway Infrastructure

Abbreviations used without definitions in TRB publications:

AASHO American Association of State Highway Officials

AASHTO American Association of State Highway and Transportation Officials
APTA American Public Transportation Association
ASCE American Society of Civil Engineers
ASME American Society of Mechanical Engineers
ASTM American Society for Testing and Materials
ATA American Trucking Associations
CTAA Community Transportation Association of America
CTBSSP Commercial Truck and Bus Safety Synthesis Program
DHS Department of Homeland Security
FAA Federal Aviation Administration
FHWA Federal Highway Administration
FMCSA Federal Motor Carrier Safety Administration
FRA Federal Railroad Administration
FTA Federal Transit Administration
IEEE Institute of Electrical and Electronics Engineers
ITE Institute of Transportation Engineers
NCHRP National Cooperative Highway Research Program
NCTRP National Cooperative Transit Research and Development Program
NHTSA National Highway Traffic Safety Administration
NTSB National Transportation Safety Board
SAE Society of Automotive Engineers
TCRP Transit Cooperative Research Program
TRB Transportation Research Board
TSA Transportation Security Administration
U.S.DOT United States Department of Transportation

Copyright National Academy of Sciences. All rights reserved.