Routine Airport Maintenance Program RAMP

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1 Routine Airport Maintenance Program RAMP by Thomas J. Freeman, P.E. Engineering Research Associate Texas Transportation Institute Sponsored by the Texas Department of Transportation Aviation Division August 1999 TEXAS TRANSPORTATION INSTITUTE The Texas A&M University System College Station, Texas

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3 DISCLAIMER The contents of this report reflect the views of the author who is responsible for the facts, opinions, findings, and conclusions presented herein. The contents do not necessarily reflect the official views or policies of the Texas Department of Transportation (TxDOT). This report does not constitute a standard, specification, or regulation. It is not intended for construction, bidding, or permit purposes. Thomas J. Freeman, P.E., was the Principal Investigator for the project. iii

4 ACKNOWLEDGMENTS The research team would like to thank Kathy Griffin of the TxDOT Aviation Division for her assistance in the development of this report. They would also like to thank Barley Lenderman - Angelina County, Rob Pruitt - Galveston (Scholes Field), Buddy Miller - Mexia-Limestone, and Megan Caffall - City of Kerrville for their special assistance as panel members at the Aviation Conference. iv

5 TABLE OF CONTENTS LIST OF TABLES Vll SUMMARY... ix Chapter 1. Airport Surveys Chapter 2. Non-Participating Airports Awareness of the Program Aware, But Not Participating Chapter 3. Participating Airports General Response Continued Ramp Program Participation Positive Aspects of RAMP Program Negative Aspects of RAMP Program Improving the RAMP Program Work Performed Chapter 4. Recommendations Appendix A - Questionnaire Format v

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7 LIST OF TABLES TABLE PAGE Responses From Non-Participants... 4 Non-Participants by Airport Category... 5 Ramp Program Awareness by District... 6 General Response From Participants... 9 Ramp Program Satisfaction Continued Ramp Program Participation Positive Aspects of RAMP Program Negative Aspects of RAMP Program Methods to Improve the RAMP Program Type of Work Performed vu

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9 SUMMARY Since 1996, the Texas Department of Transportation (TxDOT) Aviation Division has supported the concept of reducing long-term costs by encouraging preventive maintenance through the Routine Airport Maintenance Program (RAMP). Since that time, the matching fund level has increased from $10,000 per airport per year, to $20,000 per airport per year, the allowable scope of services expanded, and more local participation and contracting is now allowed. These changes were made to improve the program and increase participation. As part of this continuing improvement process, the Aviation Division examined the program to identify areas for improvements and to assess the general satisfaction of the program. A contract with the Texas Transportation Institute (TTI) was developed and included a task to contact all the general aviation airports in the state to determine their satisfaction with the RAMP program and to discover whether additional improvements were needed. As an added benefit, those airports that were unaware of the program were provided copies of the memorandum describing the RAMP program and a grant application contract. The results of the phone surveys are discussed in detail later in the report, but some of the major findings are summarized below. The primary reason airports were not participating was that they were not aware of the program (27.6% ). Often this was due to turnover at the airport. Other reasons included recent or upcoming work (22.0%) or they were planning on participating soon (13.8% ). A majority of the airports have participated (56.5%) and nearly all would use it again (86.1 %). The two reasons given most often by the respondents for being satisfied with the program were access to TxDOT expertise and equipment (34.1 % ) and matching funds for maintenance (27.3% ). When asked for negative comments, a majority had no response (53.5% ), while some cited the delay between the time the contract was signed and funded and the time the work was performed (15.5% ), while others were not happy with the quality of the work (6.2%) performed. When asked for specific improvements to the program, many had no suggestions ( 4 7.4% ), while most of the other respondents either wanted more money (higher percentage (9.0%) or raise the funding limit (6.8% )), or improve communication (more communication (8.3%) or airfields need different expertise than highways (5.3% )). ix

10 The major conclusions and recommendations, explained later in the report, are listed below: continue the RAMP program; continue to promote awareness of the RAMP program; improve and increase communication; and develop creative funding. x

11 CHAPTERl.AIRPORTSURVEYS Since 1996, the Texas Department of Transportation (TxDOT) Aviation Division has supported the concept of reducing long-term costs by encouraging preventive maintenance through the Routine Airport Maintenance Program (RAMP). Since that time, the matching fund level has increased from $10,000 per airport per year, to $20,000 per airport per year, the allowable scope of services expanded, and more local participation and contracting is allowed. These changes were made to improve the program and increase participation. As part of this continuing improvement process, the Aviation Division began examining the program to identify areas for improvements and to assess the general satisfaction of the program. To accomplish this goal, researchers at the Texas Transportation Institute (TTI) began a project to determine why some airport sponsors are not participating in the program and to determine the level of satisfaction for those sponsors participating in the program. Researchers divided all of the RAMP eligible airports into those who had previously participated and those who had not yet participated. Researchers contacted the airports and asked questions to determine the level of satisfaction and identify problems with the program. The questionnaire developed for this project is included in Appendix A. Prior to contacting the airports, researchers assembled background information on all of the airports. This background information included past participation in the RAMP program, names and phone numbers of persons associated with the airport, current Airport Master Record, and data from the pavement management system on pavement conditions, dates of inspections, and dates of work. This allowed researchers to visualize the airport, and speak to the airport manager or staff with some knowledge of the airport layout and special characteristics. An important concession of strict privacy and anonymity was made to the airports to ensure that their responses were completely confidential and without fear of upsetting or offending TxDOT staff. This confidence was upheld and not even the direct TxDOT supervisor has seen the raw data. On rare occasions when coordination between an airport and a member of the Aviation Division could solve a particular problem, researchers contacted the airport to obtain permissions for communicating their response to TxDOT staff. An example of this was at an airport where they had signed the contract paid their portion but the work had not yet been completed. Responses to the questions were recorded in a spreadsheet and like responses were grouped together to make the analysis easier to understand. Tables in the following sections contain the general categories used to group the responses and an example of the most common or representative response. 1

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13 CHAPTER 2. NON-PARTICIPATING AIRPORTS AWARENESS OF THE PROGRAM Airports that had not participated in the RAMP program were contacted to determine why they had not participated and to encourage them to participate. Researchers found 276 airports eligible for the RAMP program. Of the eligible total, 156 airports were participating in the program. Airports not participating in the program were contacted to determine their awareness of the program. Of the airports not participating in RAMP, 87 (73%) were aware of the program and 33 (28%) were unaware of the program. From the interviews, researchers determined that 12% of all eligible airports were unaware of the RAMP program. Airports unaware of the program were provided copies of the memorandum describing RAMP, a grant application contract, and the name of the District RAMP Coordinator. Although researchers did not record the reason the airport was unaware of the program, many airports said they were new in the job, so any previous efforts to contact them would have been unsuccessful. A WARE, BUT NOT PARTICIPATING If an airport was aware of the program, but was not participating, researchers asked additional questions to determine why the airport had not participated. Table 1 lists the responses. The reason the "not familiar" response is 34 on this table while only 33 airports are unaware of the program is that one airport was aware of the program, but felt they were not familiar enough to become involved. Interestingly, the top three categories of "not familiar with the program" (27.6% ), "recent or upcoming work" (22.0% ), and "planning on participating soon" (13.8% ), a total of 63.4%, are all responses that are neutral or positive to the program and represent situations where the airport is not expected to participate. That is, if they were unaware of the program, just completed major rehabilitation work on the airport, or planned to participate in the next year, the airport would not be expected to have participated within the last year. Some of the remaining airports provided good reasons for not participating. These airports believe they can accomplish the work cost-effectively by themselves, i.e., using convict labor. TxDOT should encourage these airports to continue their efforts. The response that there was too much paperwork was interesting because it contradicts responses given by those who participated in the program. Respondents participating in the program said that one of the things they liked best about the program was the lack of paperwork. Many of the other responses arose from situations beyond the control of the Aviation Division. These situations cannot be resolved without the Division providing 100% funding for preventive maintenance-type projects. Researchers conducted a rudimentary statistical analysis of the airports not participating in the RAMP program to determine if participation was related to NPIAS status. The results are 3

14 shown in Table 2 and do not show a particular trend, except that Basic Utility airports were slightly less likely to participate than General Utility and Transport airports. Table 3 lists each TxDOT District, the number of participating airports in the RAMP program, the percentage of participation, and the names of the participating airports. This table identifies the Districts that should re-contact the airports to promote participation in the program. TABLEl Responses From Non-Participating Airports No. General Category Representative Response % 34 Not familiar Not completely familiar Recent or upcoming work Upcoming grant, probably use after work done Planning soon Planning on participating soon Local forces Local forces can do work cheaper than 50% No money No money for matching funds Paperwork Too much paperwork TxDOT Haven't had good experience with TxDOT year contract 20-year contract is too long Wanted 90/10 finding Wanted 90/10 funding Moving or closing Planning on closing since grant didn't come Didn't know they were eligible Didn't think they were eligible Other funds available Use other fund source City officials City officials dragging their Jeet Didn't provide needed work Didn't include mowing or things they needed 0.8 4

15 TABLE2 Non-Participants by Airport Category NPIAS Status Basic Utility General Utility Transport Number Not Percentage Total Participating Number Percentage

16 TABLE3 RAMP Program Awareness by District (Non-Participants) District Yes No Total % Not Aware Airports Abilene 3 Amarillo 3 Atlanta 0 Austin 3 Beaumont 6 Brownwood 4 Bryan 5 Childress 4 Corpus Christi 3 Dallas 3 El Paso 1 Fort Worth 6 Houston 1 Laredo 3 Lubbock 8 Lufkin 0 Odessa 6 Paris 5 Pharr 2 San Angelo 4 San Antonio 2 Tyler Dalhart Daingerfield, Jefferson Luling, Llano Kirbyville, Newton Cisco, Comanche, Eastland, San Saba Teague Knox City Bishop Van Horn Cleburne Crystal City, Del Rio Crosbyton, Denver City, Morton Clarksville, Commerce, Mt. Vernon Port Mansfield, Rio Grande City Leakey, Ozona, Rocksprings, Sonora Dilley, Pleasonton Wills Point 6

17 District Yes No Total % Not Aware Airports Waco Wichita Falls Yoakum Totals Percentages 73 28% 43 7

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19 CHAPTER 3. PARTICIPATING AIRPORTS If an airport participated in the RAMP program, researchers asked a different, more comprehensive list of questions (Appendix A). This helped researchers determine the level of satisfaction with the RAMP program, identify what aspects of the program the airports liked and disliked, obtain suggestions on methods to improve the program, catalog the work that was accomplished, and attempt to determine whether the work was performed properly. The original questionnaire was shortened to eliminate the questions on whether the work was performed properly when none of the first 20 airports were able to answer any of the questions. The conclusion drawn from this was that the airport managers were not actively involved in overseeing the work and were unable to accurately gauge whether the work had been performed properly. GENERAL RESPONSE Airports that had participated in the RAMP program were contacted to obtain their general impression of the RAMP program. Researchers classified the responses into the general categories listed in Table 4 below and assigned a point value to each response. A majority of respondents indicated the program was "Favorable" or "Very Favorable," illustrating the positive perception and support for this program. More than 90% or the respondents rated the program as "Favorable" or "Very Favorable." In addition to the overall rating, the responses were classified by type of airport. There was very little difference among the categories in the responses, except that the General Utility airports were more satisfied than other categories. This is presented in Table 5. TABLE4 General Response From Participants General Category Number Percent Angry (0) Unfavorable (1) Mixed (2) Favorable (3) Very Favorable ( 4) Total 114 9

20 TABLES RAMP Program Satisfaction Category Average Overall 3.40 General Utility 3.49 Basic Utility 3.29 Reliever 3.33 Transport 3.30 CONTINUED RAMP PROGRAM PARTICIPATION Researchers then sought to determine if airports that had participated in the RAMP program would use RAMP again. An overwhelming majority of the respondents (86%) said they would continue to use the RAMP program, and only 1 % said they would not use it again, clearly stressing support for the program. The 11 % in the "Don't Know" category are mainly new airport managers that were not involved with the airport when the work was performed, and airports where the work is scheduled for this year. Table 6 contains the responses received from the airports. 10

21 TABLE6 Continued RAMP Program Participation District Yes No Maybe Don't Know Abilene 7 1 Amarillo 11 1 Atlanta 2 3 Austin 7 Beaumont 2 Brownwood 1 Bryan 3 1 Childress 5 1 Corpus Christi 5 2 Dallas 1 El Paso 5 Fort Worth 7 Houston 4 Laredo 1 Lubbock 7 Lufkin 6 1 Odessa 4 1 Paris 2 Pharr 3 1 ' San Angelo 2 1 San Antonio 4 1 Tyler 5 1 Waco 3 1 Wichita Falls 3 Yoakum 6 Totals Percentages

22 POSITIVE ASPECTS OF RAMP PROGRAM In documenting the positive aspects of the RAMP program, researchers found that access to TxDOT equipment and expertise was more important to participants than participants who favored the matching funds ratio. Obviously, TxDOT is held in high regard in the airport community and interaction between TxDOT staff and the local airport is good for the airports. Researchers recorded responses in this section and assigned each response to a general category for analysis. Table 7 presents the responses and includes a column for "Representative Response." The responses in this column were the most common response or a response that reflects the flavor of the majority of the responses. Researchers investigated the "No Response" category to determine whether airports with a negative attitude toward RAMP were contained in this category. The responses were identified by the categories from the general response question (VF - Very Favorable, F - Favorable, M - Mixed, New - New in the job, DK - Didn't Know). TABLE7 Positive Aspects of RAMP Program General Category Representative Response No. Percent TxDOT Access to TxDOT equipment and expertise Funds Matching funds for maintenance No Response VF-5, F-3, M-1, U-3, New-4, DK Everything Everything - excellent program Theory Good concept Lack of red tape/paperwork Least bureaucratic, best program state has Convenience Faster, quicker, cheaper Nothing Nothing Improves airport Supplied needed maintenance for new RW, can keeprwnice Scope of services Expanded scope of services Unreachable NEGATIVE ASPECTS OF RAMP PROGRAM Researchers then asked questions to determine the negative aspects of the RAMP program. Responses were recorded and assigned to a general category for analysis. Table 8 contains those responses. The "No response" category was the most common answer and researchers subdivided this category as they did in the previous section. The responses labeled "Time Delay," "Contractor," and "Communication" are symptoms of a belief by the airports that they need more 12

23 communication with TxDOT. An additional telephone call or two could eliminate the time delay perception by informing the airport that TxDOT is not ignoring the airport, and would provide TxDOT the opportunity to explain why the delay exists. During or after the work, a telephone call would allow the airport to comment on the work that was performed before the contractor was paid. The response that the contractor showed up with a hangover was not the most common response, but was included because it was the most entertaining. The more common response was a lack of quality. Another interesting response was that the same number of airports said the amount of paperwork was a negative (6) as did the number of respondents that said that the lack of paperwork was a positive (Table 7). TABLES Negative Aspects of the RAMP Program General Category Representative Response No. Percent No response VF-47, F-16, DK Time delay Too long between signing contract and work Contractor Contractors showed up hung over, Quality of work/overlay Communication Information flow difficult-local TxDOT and Austin Hasn't begun yet Hasn't begun yet TxDOT Local TxDOT didn't want to get involved/bad experience Paperwork/ Accounting Paperwork Percentage too low ~ercentage too low Price High prices Everything Everything Unreachable Unreachable IMPROVING THE RAMP PROGRAM A majority of respondents had no suggestions for improving the program, however, some indicated the need for a higher funding percentage (9.0%) or a higher funding limit (6.8% ). Some respondents suggested raising the matching fund percentage from 50% to the 90% found on major rehabilitation grants. Another respondent suggested raising the funding limit to account for the size of an airport. For example, the $40,000 ($20,000 TxDOT plus $20,000 local) limit 13

24 would easily fog seal or perhaps slurry seal a runway at a small or medium-sized facility. However, at an airport with multiple 10,000' x 200' runways, the limit would fund far less than 50% of the cost for either project. The responses for improving communication (8.3%) and increased TxDOT airport training (5.3%) are similar to the responses in Table 8 about communication and educating TxDOT staff about the needs and responsibilities of airport facilities. TABLE9 Methods to Improve the RAMP Program General Category Representative Response No. Percent No Response VF-34, F-20, M-1, U-1, A-1, DK Higher percentage Higher percentage Communication Improve communication Raise limit Double limit TxDOT Airport Training Airfields need different expertise than highways Hasn't begun program yet Hasn't begun program yet Streamline process Cut out red tape, make user friendly Schedule Routine sweeping Reduce time delay Shorten time lag More inspections More inspections Lower price Get price down Increase scope Increase scope of services Wants to use concrete Wants to use concrete Quality Spray something that will kill the weeds Graduated cost sharing Graduated cost sharing Unreachable

25 WORK PERFORMED Researchers attempted to determine the quality of work performed at each participating airport, however, since so few airports were able to answer detailed questions about the treatments, researchers only asked questions about the type of project or work performed. Table 10 contains the results of the questions. TABLE 10 Type of Work Performed Category Example No. Percent Pavement Chip, crack, fog, or slurry seal Vegetation Herbicide Striping Striping Patching Base failure Drainage Drainage Other Fencing/gate Not sure He wasn't sure Lighting Reflectors Sweeping Sweeping

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27 CHAPTER 4. RECOMMENDATIONS From the interviews, the research team developed the following recommendations: Continue the RAMP Program From the responses of the participating airports, this program should continue. Many airports are taking advantage of the program, and their level of satisfaction is very high as evidenced by the general responses (Table 4) and those that would use the program again (Table 5). Continue Promoting the Awareness of RAMP Turnover greatly affects the success of this program. TxDOT districts should use Table 3 to identify airports to contact and promote the program. Additionally, the districts should continue to contact participating airports. Airports that participated one or two years ago may no longer be aware of the program. To increase participation, districts can highlight the ease of use of the program (lack of paperwork) and the benefit of easy access to TxDOT equipment and expertise. Districts should contact airports that have upcoming grants to advise them that preventive maintenance saves money, reduces complaints, and reduces the time their airport is closed. A recent Aviation Division pavement management system report showed that using the preventive maintenance strategy instead of reconstruction leads to much shorter runway closure time and improved overall condition. The report showed that, based on a 40-year analysis with a preventive maintenance strategy, the airport was only closed 6 to 10 days versus the 6 to 12 months needed under a reconstruction strategy. Improve and Increase Communication The one serious item, besides increased funding, that airports airports continued to raise, even by those who supported the program, was the need for more communication and a better understanding by TxDOT of what an airport needs. TxDOT personnel need to understand that to shut down the runway, even at a relatively low traffic airport, requires a call (approximately 48 hours in advance) to the regional flight service to issue a NOTAM (Notice to Airmen) to ensure that no planes attempt to land. Additionally, the airport must contact all tenants and businesses at the airport so that planes can be relocated as needed, repair and service schedules adjusted, and training schedules altered. TxDOT should treat airports the same as they treat the road in front of a major hospital, or as they would if they were working on the only road on and off an island. 17

28 Develop Creative Funding It is not surprising that some respondents suggested increasing the level of state funding. However, the recommendation that larger airports be allowed a higher match level needs consideration. As noted, the $40,000 level will allow a small airport to perform a substantial amount of preventive maintenance, but the same dollars may only provide partial funding for a striping project at a larger facility. The division should consider the idea of basing the funding level limit on the size of the facility. 18

29 Appendix A Questionnaire Format 19

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31 GENERAL INTRODUCTION QUESTIONNAIRE FORMAT Hello, my name is (Don Pinchott or Tom Freeman) with the Texas Transportation Institute. I perform the airport condition surveys for the Aviation Division of the Texas Department of Transportation and was last at your airport on I I. Did I see you there? Anyway, we have a contract with the Aviation Division to interview airports about the RAMP program. As you may know, TxDOT's Aviation Division has implemented a program to assist general aviation airports in performing preventive maintenance. The program is called RAMP (Routine Airport Maintenance Program) and now provides matching funds of up to $20,000 per year to perform maintenance activities. Preventive maintenance includes things like crack sealing, edge seals, slurry seals, lighting, herbicide applications, striping, sweeping, and other routine activities to extend the pavement life, but no, that doesn't include mowing. 21

32 NON-PARTICIPATING AIRPORTS Date I Airport Name: Date I Contact: Date I Phone: Date I Date I Were you aware of this program? (YES NO) (If yes, continue. If not, get address to send documentation and discuss benefits of the program and other general information.) Is there a reason why you haven't participated in this program? I assure you that the responses will be kept confidential and I am only reporting by class of airport such as General Utility, Basic Utility, etc. Reason: Paperwork No Money for PM Loss of Control No money for matching funds My records show that the last major runway work was in (see form for dates and layers). Have you done any seal coats, slurry seals or overlays since then? Well, thank you for your help. Again, we will be keeping these answers confidential. Is there anything else you want to add? If you have any questions, you can call me (Don Pinchott or Tom Freeman) at or call Kathy Griffin at the Division of Aviation at PILOT (74568). 22

33 PARTICIPATING AIRPORTS Date I Airport Name: Date I Contact: Phone: Date I Date I Date I You participated in the program, in general, how did you like it? I assure you that the responses will be kept confidential and I am only reporting by class of airport such as General Utility, Basic Utility, etc. Response: Very Favorable Favorable Mixed Unfavorable Angry or Upset What did you like about it? Response: Would you use it again? (Yes No) Response: What did you not like about it? Response: How could it be improved: Response: What type of work did you have done? Crack Sealing Edge Seals Slurry Seals Fog Seal Herbicide Applications Striping Sweeping Other 23

34 These questions were developed but so few responses were received that its use was discontinued Were you notified far enough in advance that they were corning to do the work? Was the work done by TxDOT personnel or did they contract it? Did TxDOT have inspectors to see that the work was done properly? Was the work done properly? Was the work appropriate? Did it solve the problem? (YES NO) (YES NO) (YES NO) (YES NO) (YES NO) If Crack Sealing: Did they use standard specifications? Did they blow out the cracks before sealing? Did they squeegee the cracks? Did they spread sand on the cracks (not required)? How is the crack sealing working? (YES NO (YES NO (YES NO (YES NO (GOOD DON'T KNOW) DON'T KNOW) DON'T KNOW) DON'T KNOW) FAIR POORLY) If poorly, why? If Edge Sealing: Did they use standard specifications? Did they remove grass or other vegetation? Did they sweep the area before sealing? Did it seal the edge? How is the edge sealing working? (YES NO (YES NO (YES NO (YES NO (GOOD DON'T KNOW) DON'T KNOW) DON'T KNOW) DON'T KNOW) FAIR POORLY) If poorly, why? If Slurry Seal: Did they use standard specifications? Did they remove grass or other vegetation? Did they sweep the area before sealing? Was the slurry spread evenly without streaking? Is it sealing the cracks? How is the slurry sealing working? (YES NO DON'T KNOW). (YES NO DON'T KNOW) (YES NO DON'T KNOW) (YES NO DON'T KNOW) (YES NO DON'T KNOW) (GOOD FAIR POORLY) If poorly, why? If Fog Seal: Did they remove grass or other vegetation? (YES NO DON'T KNOW) Did they sweep the area before sealing? (YES NO DON'T KNOW) Was the asphalt spread evenly without streaking? (YES NO DON'T KNOW) Is it sealing the cracks? (YES NO DON'T KNOW) How is the fog sealing working? (GOOD FAIR POORLY) If poorly, why?

35 If Herbicide Was Used: How is the herbicide working? (GOOD FAIR POORLY) If poorly, why? If Striping: Did they wash before painting? (YES NO DON'T KNOW) Did they sweep the area before sealing? (YES NO DON'T KNOW) Was the paint spread evenly without streaking? (YES NO DON'T KNOW) Was the result within guidelines? (YES NO DON'T KNOW) How is the striping working? (GOOD FAIR POORLY) If poorly, why? If Sweeping: Did they do a good job? (GOOD FAIR POORLY) If poorly, why? If Drainage: Did it fix the problem? (GOOD FAIR POORLY) If poorly, why? If Other: Is it working? (GOOD FAIR POORLY) If poorly, why? 25

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