RD408 - Churchland Bridge Funding Feasibility Study - Item 444, H of Chapter 2 of the 2014 Acts of the Assembly - UPC 102715 - October 1, 2014


Executive Summary:
This report summarizes the response of the Virginia Department of Transportation (VDOT) to Item 444, H of Chapter 2 of the 2014 Acts of Assembly (Special Session I). Specifically, Item 444 H directs the Commissioner of Highways to investigate methods through which to fund the replacement of the Churchland Bridge in Portsmouth, Virginia, and report by October 1, 2014, to the Chairmen of the House Appropriations and Senate Finance Committees on the feasibility of including federal and/or state funding for the project in the Six-Year Improvement Program (SYIP).

The Churchland Bridge is an urban four lane bridge which carries traffic on U.S. Route 17 over the Western Branch of the Elizabeth River in the city of Portsmouth, Virginia. The bridge is owned, operated, and maintained by the city of Portsmouth (the City) as part of its urban highway system. The City has initiated a project that entails full replacement of the northbound lanes and includes minor rehabilitative repairs to the southbound lanes of the bridge. The existing structure has two distinct construction designs built at different times. The northbound lanes of the Churchland Bridge were constructed in 1951, and the structure was widened in 1973 with the newer portion carrying the southbound lanes of traffic. The northbound lanes of the bridge have obsolete details that would require significant rehabilitation or replacement for this portion of the structure to remain in service. Currently the entire bridge is classified as structurally deficient with a rating of 4 (poor) due to the older portion of the structure.

The project is fully funded to the City’s current estimate of $35.5 million (the SYIP currently reflects an estimate of $29.5 million which will be updated) including $2.5 million for the preliminary engineering phase, $2 million for the right of way phase, and $31 million for the construction phase. The City of Portsmouth (the City) has applied for and received two Revenue Sharing awards for a total of $7.25 million ($14.5 million including the required local match). The City has expended approximately $295 thousand to date on preliminary engineering, including the required environmental studies and development of 30% design plans. VDOT and the City have entered into a standard local project administration agreement whereby the City has committed to fund the project with a mix of Revenue Sharing and local funds. Pending funding availability, the City plans to advertise this project for construction in September 2015. Construction is expected to take two years.

As part of the Urban Maintenance Program, the Commissioner of Highways, subject to approval of the Commonwealth Transportation Board (CTB), makes payments to cities and towns in the urban system for maintenance, construction and reconstruction of roads and streets meeting specific criteria and under certain conditions. The City is a recipient of said annual payments and will receive $11.5 million for Fiscal Year (FY) 2015. Based on information that the City is required to submit, over the past six years, the City has expended all of the funding it receives under the Urban Maintenance Program, and expended from 10% to 55% in additional local funds on eligible maintenance activities.

This study evaluated funding options to supplement/replace the City’s local funds and to support their investment in this project. Options included a review of regional, state and federal fund sources. The City is designing the project to federal standards; however, the City has not yet pursued federal participation and federal authorization has not been obtained since the project is funded through Revenue Sharing and local funds. If federal authorization is obtained, the project would be eligible for federal funding. Based on the project schedule, funding of the Churchland Bridge project from VDOT’s construction program funds (federal or state) in lieu of the local funds currently allocated to the project would result in reduced funding and/or delays to other projects in the SYIP. Additionally, if state or federal funding designated for bridges is provided, other more highly rated (structurally deficient) bridges will be unfunded and/or delayed. Notwithstanding, it should be noted that, as a result of this report, VDOT has examined its processes for distribution of funding for bridges and intends to revise those processes to ensure equitable treatment of both state-maintained and locally-maintained bridges.

As a result of VDOT’s analysis and a determination of the feasibility of funding the Churchland Bridge project, it is recommended that City continue to submit applications for the Revenue Sharing program to further leverage local funds. If awarded, the City will be able to fully fund the project through Revenue Sharing funds and local match. The City should pursue regional funding options through the Hampton Roads Transportation Planning Organization which will require that the City obtain federal authorization. The City should coordinate with VDOT and Federal Highway Administration (FHWA) to obtain federal authorization. Finally, as part of the upcoming HB2 project prioritization, the City may submit the project as a candidate for prioritization.