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OVERVIEW Virginia Department of Transportation successfully restored 12 bridges along the I-95 corridor in Richmond, Virginia on time, under budget, and all without closing the interstate.

The portion of Interstate 95 that winds through Richmond, Virginia built in the 1950s is one of the oldest portions of the Interstate Highway System. This heavily traveled highway cuts through the center of the city, is elevated above street traffic, and crosses a number of streams and the James River at the southern limits of the city.

After 50 years of increasing traffic and truck use, it became evident that the I-95 Richmond bridges were aging and needed to be replaced. However, because of the critical nature of the I-95 corridor, the Virginia Department of Transportation (VDOT) had to develop a strategy to replace the bridges while keeping the highway open and maintain the flow of traffic. The plan for replacing the twelve bridges while maintaining the traffic flow was built upon three key ideas: 1.	Schedule major work at night when traffic counts were lower and congestion was normally reduced. 2.	Employ an innovative, state-of-the-art construction method which permitted sections of the bridges to be replaced overnight so all lanes of traffic could reopen for commuter traffic in the morning. 3.	Launch a robust communications strategy to keep the traveling public informed of the construction’s schedule so they could alter their route or time of travel to help avoid construction delays.

The project was completed in two phases over 14 years. With the cooperation of the business community, emergency services and the tourism industry, VDOT forged an alliance with opinion leaders in the region. By employing innovative construction techniques, VDOT was able to set a reliable work schedule which was then successfully communicated to the public through a variety of platforms including radio, television, billboards and Internet. In doing so, VDOT was able to empower drivers, minimize disruption, and strengthen its reputation for project management with the Richmond community.

Phase I: The James River Bridge

The project began in 2000 with the announcement that VDOT planned to replace the James River Bridge on the I-95 corridor, south of the city of Richmond. One of the busiest corridors on the east coast, I-95 is a six lane divided interstate that runs through the City of Richmond. Stakeholders in the region were concerned that a major construction project could interfere with travel and commerce, particularly retail and leisure travel to the region. To understand their concerns, leaders were invited to participate in a series of public forums to listen, share ideas and help VDOT plan how potential congestion could be managed with minimal disruption.

These public meetings helped VDOT develop a meaningful dialogue with stakeholders, and more importantly, it led to an overall collaborative strategy for replacing the bridges that resulted in an increased level of trust with employers, the travel industry and the Richmond area community as a whole. The strategy involved three key ideas:

1. To keep the flow of traffic moving as smoothly as possible, major work was to be scheduled at night when fewer vehicles used this portion of I-95. During the day up to 160,000 vehicles use this section of I-95, however, the number is reduced to 60,000 vehicles during the 8 p.m. - 6 a.m. period.

2. An innovative, cutting-edge construction approach was designed that permitted VDOT to work through the night and then reopen all lanes for commuter traffic on weekday mornings. VDOT employed state-of-the art accelerated techniques, replacing the bridge in large sections in a relatively brief period of time. Any construction on the I-95 corridor is, of course, extremely challenging due to the heavy traffic flow and the numerous stakeholders impacted by the work. These unique bridge rehabilitation construction activities require excellent communications among the project team, traveling public and business community.

3.Finally, VDOT launched a robust public information campaign to communicate with drivers while they were in their cars, commuters when they were watching the news and long distance travelers when they were planning their trips. VDOT wanted the public to understand the need for the project, how to avoid congestion and the benefits of the project once it was concluded. Like most new efforts, the traveling public’s knowledge of the project grew slowly and behavior changed over time. Research was designed to assess the ways in which motorists responded to the messaging and the extent to which it brought about changes in commuter behavior. The Southeastern Institute of Research (SIR) executed two studies for VDOT, one prior to the start of the James River Bridge construction in 2000 and again near the end in 2001. Research Findings:

•	VDOT communications about the construction on the James River Bridge kept motorists informed about the project and convinced them to change their commuting behavior. •	In order to avoid construction congestion, motorists changed their travel behavior. o	One-third (34%) altered or changed routine travel activity after the beginning of the repair construction on the bridge. o	Similarly, one-fourth (23%) said that they had changed their travel plans to avoid the bridge during construction. o	Most often, motorists changed their routes. Of those who changed their routine travel, 94% changed routes. 20% changed the time of their travel. •	Nearly 8 out of 10 motorists (78%) said the information helped them to avoid long delays and other traffic frustrations. (Only 17% said the information was not helpful.)

Phase II: Eleven bridges in four years

In 2008, the Virginia Department of Transportation (VDOT) started planning for the second phase of the project, replacement of the remaining eleven I-95 bridges in the Richmond area. Public meetings for the design work of the additional bridges validated the process that had guided the work for the James River Bridge six years earlier. Consequently, the same strategies were implemented.

Economic Benefits

In 2010, Chmura Economics & Analytics was engaged to provide an Economic Impact Study of the I-95 Richmond Bridge Restorations project, calculating the likely impact for the City of Richmond and Henrico County. The study concluded:

•	Restoration of the eleven bridges would extend their lifespan for at least 50 years. In that timeframe, the cumulative total cost savings for maintenance could save the Virginia Department of Transportation more than $9.9 million. •	The project was expected to directly generate 669 new jobs during the construction project and 456 jobs in the Richmond region as an economic ripple effect. •	Area restaurants and local businesses would benefit as construction workers and engineers spend their income at local establishments. The one-time economic impact was expected to reach approximately $166 million. •	The project was expected to bring Virginia state government $2.3 million in tax revenue during construction and $200,000 in fiscal benefits for local governments from 2010 to 2014. (“Economic Impact of I-95 Bridge Rehabilitation on the City of Richmond and Henrico County,” June 29, 2010)

Actual construction work began in mid-2010 and is expected to conclude in October 2014, with major traffic impacts ending in June 2014.

Communications Plan As previous experience had demonstrated, encouraging drivers to use alternate routes reduces congestion, increases safety within the work zone and reduces frustration for both drivers and workers. A multi-platform outreach program was designed to communicate construction schedules and empower drivers to take control of their commute. It was effective and travel continued throughout the region during construction.

Results of the communication effort: Traffic Counts

VDOT traffic counts showed that, during the construction period, traffic volume decreased by an average of 30% throughout the entire work zone. And, more to the point, traffic decreases were measured as high as 58% within sections of the work zone during periods of aggressive advertising.

Quantitative Tracking Study

In 2010, in 2012, and again in 2012, VDOT engaged the Southeastern Institute of Research (SIR) to survey Richmond area residents to track changes in awareness, behavior and attitudes toward the project.

Key findings from a questionnaire issued by VDOT: •	88% of residents were aware of the project. •	87% of Richmond residents reported changing route or time of travel to avoid the congestion. •	82% indicated they were “in favor of” or support the project. •	Public approval of VDOT’s management of the project grew from 28% to 62% by the end of the project. •	Approximately 60% responded that they had received all the information they needed to avoid construction delays. •	By 2014, 80% of respondents the “strongly favored” the project as necessary for the region’s transportation needs.

2013 Qualitative Driver Interviews In September 2013 SIR conducted 25 in-person, in-depth interviews with drivers who were, by design, familiar with the project. The goal of the study was to better understand driver attitudes towards the project and VDOT, as well as the effectiveness of the communications effort as a whole. Key findings include: •	All participants understood that the objective and benefit of the I-95 Bridge Restorations project was to address aging bridges. •	Almost all participants reported that inconvenience due to the I-95 Bridge Restorations project was considered to be minimal. •	Travelers, overall, felt they had, and continued to receive, adequate information about the I-95 Bridge Restorations project. •	Residents in the Greater Richmond metro area described the project as well managed compared to other projects in the immediate area and projects in other parts of the region.

History of the I-95 Bridge Restoration Milestones

1999 - Expanded public comment process with business community, tourism industry, trucking associations and emergency responders leads to an innovative approach: Work at night when traffic levels are reduced, schedule work with enough reliability to permit predictable planning for travel and communicate with the traveling public to empower drivers to avoid construction congestion. 2000 – Construction begins on Phase I, the James River Bridge, employing an innovative precast concrete system. This permits work at night and the reopening of all lanes in the morning. 2001 – Research demonstrates that public education is beginning to change behavior; 34% of drivers report altering their time or route to avoid construction. 2002 - AASHTO gives VDOT its highest award for communications with the public. 2002 -- Phase I completed early and under budget, validating VDOT’s innovative construction approach. 2008- Citizen Information Briefing held in December for Phase II to restore eleven additional bridges on Interstate 95 through the Richmond region. 2009 Business and government briefings held during the summer months. Public input validates the strategy used for the James River Bridge—limiting travel interruption with innovative construction techniques and keeping the traveler informed with a formal communications plan. 2010 - Construction begins on the first of eleven bridges. 2012 – Research reports that 85% of residents changed behavior to avoid the construction and 82% reported they were in favor of the project. 2013 – AASHTO again selects VDOT for the Excel Award, their top communication award. 2014 – Richmond Tourism Industry presents VDOT with 2014 Tourism Impact Award for skillfully completing the I-95 Richmond Bridge Restorations project with its successful plan to minimize inconvenience and congestion. 2014 - Phase Two completed early and on budget.

VDOT Awards and Distinction for this project  2000 Public Relations Society of America, Richmond Chapter Category: Web Site, I-95 James River Bridge Restoration Project Award: Award of Merit

2000 District 3 Winners Circle/International Association of Business Communicators Category: Posters, I-95 James River Bridge Restoration Project Award: Award of Excellence (highest honor)

2001 AASHTO* National Transportation Public Affairs Workshop Category: I-95 James River Bridge Restoration Project Award: Excel Award (highest honor)

2001 Public Relations Society of America, National Capital Chapter Category: Community Relations, I-95 James River Bridge Restoration Project Award: Thoth Award

2001 Public Relations Society of America, Richmond Chapter Category: Community Relations, I-95 James River Bridge Restoration Project Award: Medallion Award

2011 Public Relations Society of America, Richmond Chapter Category: Community Relations Award: Award of Merit

2012 Public Relations Society of America, Richmond Chapter Category: Community Relations Award: Award of Excellence

2013 AASHTO* National Transportation Public Affairs Workshop Category: I-95 Richmond Bridge Restorations Project Award: Excel Award (highest honor)

2014 Visit Richmond selects VDOT I-95 Richmond Bridge Restorations Project for 2014 Tourism Impact Award.