Legislature(1997 - 1998)
02/11/1997 01:30 PM Senate TRA
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SENATE TRANSPORTATION COMMITTEE
February 11, 1997
1:30 p.m.
MEMBERS PRESENT
Senator Jerry Ward, Chairman
Senator Gary Wilken, Vice Chairman
Senator Lyda Green
Senator Georgianna Lincoln
MEMBERS ABSENT
Senator Rick Halford
COMMITTEE CALENDAR
Presentation by DOT/PF Commissioner Perkins
WITNESS REGISTER
Joseph Perkins, Commissioner
Department of Transportation & Public Facilities
3132 Channel Drive
Juneau, Alaska 99801-7898
ACTION NARRATIVE
TAPE 97-3, SIDE A
Presentation by DOT/PF Commissioner Perkins
Number 001
CHAIRMAN WARD called the Senate Transportation Committee meeting to
order at 1:30 p.m. and invited Commissioner Perkins to begin his
overview of DOT/PF.
COMMISSIONER JOSEPH PERKINS thanked the committee for the
opportunity to discuss DOT/PF. He introduced the following staff
present: Kurt Parkan, Deputy Commissioner; Tom Brigham, Director
of the Division of Statewide Planning; and Gary Hayden, System
Director of the Marine Highway System. Commissioner Perkins noted
that the committee had been given the FY98 Budget Overview booklet
which provides additional information.
Commissioner Perkins reviewed the accomplishments of DOT which
included chip sealing over 78 miles of National Highway System
(NHS) highways with mainly federal funds. That chip sealing
extends the life of the pavement about four or five years. This is
the first time federal money has been used for surface maintenance.
Further, 32 miles of existing gravel roads were paved in order to
reduce maintenance costs. During the year, 50 new lane miles were
added to the highway system. Five miles of new road was completed
and links the City of Kasaan with the Prince of Wales highway
system. In Fairbanks, 17 miles of new road was constructed which
accesses the Steese - White Mountain recreational system. The IS
was completed for the Whittier access project and the first
construction contract should be awarded within the next few weeks.
DOT transferred four roads to local governments which is one of the
department's goals. DOT/PF dealt with the extensive flooding this
year; the Hunter Creek bridge was replaced and the Seward airport
was saved from washing out. Commissioner Perkins emphasized that
the department issued a new policy of using chip seal and high flow
asphalt in areas of light traffic, permafrost, and remote areas
where hot mix plants are not available. This new policy will be
implemented in rural areas in particular.
Number 162
In response to Senator Green, COMMISSIONER PERKINS explained that
the only difference between high floating and chip sealing is that,
high floating uses a base material that is dusty and dirty.
Asphalt is sprayed and then rock is placed on top of that. The
chip sealing uses clean chips. He noted that the two types of
asphalt are different.
SENATOR GREEN commented that many local roads in the Mat-Su that
she thought were done with chip seal were not successful; was there
a different chip seal in the last eight years? COMMISSIONER
PERKINS said that much progress had been made in asphalt. An
emulsion, water-based, type asphalt is used. The Canadians are
very successful with this type. Commissioner Perkins pointed out
that the base is the determining factor; a bad base will come up.
The same failure with hot mix results in a total loss. Emulsion
asphalt is easy to repair. With regards to a cost comparison, the
emulsion type asphalt is roughly 50 percent cheaper.
CHAIRMAN WARD inquired as to the cost comparison between D1 and non
clean chips and the life expectancy of each. COMMISSIONER PERKINS
said that the chips are more expensive, but he did not know
specifically. The life expectancy is about the same. The D1 is
what goes under the pavement and is very dusty for the first two or
three weeks.
Number 225
COMMISSIONER PERKINS emphasized that DOT/PF is utilizing every type
of technology advance possible. In particular, construction is
being reviewed in order to determine how best to maintain it. With
regards to the Anchorage and Fairbanks airports, both continue to
grow. In 1996, Anchorage International Airport had over 2 million
plane passengers. Fairbanks International Airport had over 375,000
passengers. Anchorage International Airport is ranked number two
in the U.S. with regard to international freight. Fairbanks
International Airport ranks number nine in the U.S. Commissioner
Perkins informed the committee that nine percent of all Anchorage
employment is directly related to airport functions. It is very
clear that both these international airports are economic engines
for economic growth and therefore efforts to continue being
competitive should continue. Commissioner Perkins noted that the
Governor's proposed jet fuel tax will help continue the success.
In the rural airports, a ranking system has been established in
order to determine which airports should be built. Previously,
airports have been built according to which the FAA indicated were
desirable. The scoring system will attempt to identify the most
needy communities with airport projects. The FAA was so pleased
with this grading system that the system is being reviewed in
Washington, D.C. for national implementation. Commissioner Perkins
noted that last year, the National Transportation Board recommended
that radio communication on rural airports be improved. A
procedure to improve this situation has been implemented.
Number 277
Not much more than emergency work has been accomplished with the
harbors. Two facilities were turned over to the local governments
in Craig. Commissioner Perkins said that the department continues
to rely on the Corp of Engineers program for harbor facilities,
although this program has been reduced in the past and future
reductions are expected. This needs review in order to determine
a better state-run harbor program because many of Alaska's harbors
are in disrepair. Some emergency maintenance such as that for a
life-threatening electrical problem at Fort Lyons have been done.
With regard to the Marine Highway System (MHS), construction has
been initiated on the new vessel, Kennicott. Commissioner Perkins
reported that the vessel was on schedule and on budget. A photo of
the Kennicott was shown to the committee. The ship is being built
by modules in three different shipyards; the modules are then
shipped to one shipyard where they are assembled. In response to
Senator Wilken, Commissioner Perkins stated that the ship was worth
about $80 million. Commissioner Perkins informed the committee
that the department would decide within the next month or so what
to do with the Malaspina. An extensive study is being undertaken
to review the costs of committing the Malaspina to a day boat
status, running a different route, selling the boat, continuing
maintenance, and rehabilitating the vessel. The Malaspina will not
be able to serve Prince Rupert as of next year due to Safety of
Life at Sea (SOLAS) requirements. Twelve to fourteen million would
be required to upgrade the Malaspina to international standards.
This decision must be made quickly because the schedules for 1998
are being reviewed now. Also a new reservation system should be
complete by May.
Number 330
Commissioner Perkins noted that an effectiveness review of the
department is being undertaken in order to determine where and how
to proceed in the future. Further, the Southeast Transportation
Plan is being developed to attack the question of what should be
constructed in the future. The Alaska Long-Range Transportation
Plan has begun; this is a federal requirement. The federal
government has commented that the long-range plan is a model for
what is desired of other states. Regional plans at the
headquarters are also being done. Commissioner Perkins said that
at the same time this regional planning is occurring, local
communities should also be doing local transportation plans. For
the smaller communities that do not have the staff for such
implementation at the local level, DOT requests a contribution from
the community to assist the community with the local plan.
Planning is necessary due to the federal requirements as well as
the need for the state to know what and where to build.
The draft EIS for Juneau access has been completed and forwarded to
the Federal Highway Administration (FHWA) who will review and
comment. After the draft is returned, it will be released to the
public for hearings and comment. After the public comment period,
a preferred alternative will be determined for the final EIS.
Commissioner Perkins informed the committee of the location study
for a road connection to Rampart. The Rampart location study
should be completed within the next few months and will determine
whether an EIS would follow and potential problems.
Number 405
Commissioner Perkins reviewed the following positive
accomplishments of DOT:
(1) The elimination of 58 CIP positions from DOT.
(2) The electronic billing of FAA.
(3) The reduction in the janitorial service in the Anchorage
Airport by 50 percent.
(4) The purchase of a waterless street sweeper for Anchorage.
(5) The change of hot mix type that is more porous.
(6) Sanders for winter maintenance have been equipped with computer
controls.
(7) Anti-icing compounds are being tested in Petersburg.
With regards to the change of hot mix type, Commissioner Perkins
noted this type would reduce the rutting problem. He emphasized
the need to use light-weight studs, but most importantly to ensure
that studs are off vehicles in the summer when wear to the roads is
the most detrimental. A dollar amount should be attached to the
current fix it fine in order to encourage people to take off studs
in the summer. Commissioner Perkins informed the committee that a
task force would be established in order to review winter
maintenance from the standpoint of the state. The task force will
attempt to determine a better and cheaper way to do winter
maintenance. The task force is also reviewing refinements in
paperwork. Commissioner Perkins informed the committee that DOT/PF
had a RIP in which 97 would be eligible.
Number 465
Commissioner Perkins acknowledged that the department did have some
problems which should be addressed. The main problem is unfunded
essential maintenance and operation which are not being performed
on the roads, airports, harbors, and facilities. He was pleased
that the Legislature was going to appoint a legislative task force
to review the deferred maintenance problem. He offered his support
and assistance with deferred maintenance. The roads are also a
problem for DOT. Federal funds cannot be used for guard rail
repair, signs, striping, culvert repair, brushing, etc. The lack
of maintenance in these areas creates problems in the future that
could lead to replacement projects. The federal government is
concerned with Alaska's road maintenance and a letter stating such
was just received. Commissioner Perkins believed that the FHWA
letter could have an effect on ISTEA allocations.
The FAA also sent two letters concerning the safety of operations
of rural airports. Basically, some people are on 24 hour duty
seven days a week at these certified airports. Airports like those
in Sitka and Bethel are effected by this. The operations at the
certified airports were reviewed after receiving the FAA letters.
The deficiencies involve the number of people and the tremendous
amount of paperwork. The seriousness of this problem led to the
transfer of $800,000 from road and facility maintenance to rural
airports. Commissioner Perkins acknowledged that this transfer
would create more difficulty with road maintenance, but the
priority is the safe operation of these airports.
Number 517
Commissioner Perkins addressed the financial status of DOT. The
existing organization is not efficient. Therefore, an
effectiveness review of DOT in order to determine how to make the
operation more efficient will be undertaken. Commissioner Perkins
believed that the functions of DOT should be realigned, placing
more people on maintenance and less in the administrative
functions. For the first time, this review will also include
federal CIP personnel. There are two classes of employees in DOT:
one group is funded by the general fund and they do not have stable
jobs, while the other group is funded with federal funds and have
stable jobs. Any savings on the federal side can be applied to
projects. Commissioner Perkins informed the committee that the
initial review should be completed in May and implementation should
occur in July 1997. DOT's proposed budget expects $100,000 savings
from this review, however Commissioner Perkins expects more savings
than that. The transfer of the Division of Weights & Measures to
DOT will provide one-stop shopping. He hoped the committee would
support the transfer.
Number 562
Commissioner Perkins informed the committee that Alaska normally
receives $65 million from FAA per year for airport construction.
The nationwide budget for 1997 was $1.5 billion, the budget as
submitted from the President is for $1 billion which is a 33
percent reduction in the FAA program. This equates to a 30
percent, $20 million, reduction in Alaska's airport program.
Furthermore, the federal government is discussing the possibility
of these cuts only being applied to international airports because
international airports have other sources of funding. Commissioner
Perkins expressed concern with the fact that two-thirds, $35
million, of the money for the 1997 program has not been received.
The ticket tax which feeds the Aviation Trust Fund stopped as of
the first of January. Furthermore, the law states that money
collected after January 1 cannot be placed in the Aviation Trust
Fund. The FAA has stopped all projects. Commissioner Perkins
noted that Congress is attempting to expedite the schedule in order
to reinstate the 10 percent ticket tax on airlines to feed the
trust fund. He believed Congress would accomplish that.
TAPE 97-3, SIDE B
The future of airports encompasses more funding reductions,
particularly in the international airports.
Number 583
ISTEA provides $205-$220 million a year for construction. Those
distributions will be reauthorized this year. Commissioner Perkins
said that he had been told by the Congressional delegation that
this will be one of the most contentious issues this year. The
discussion also indicated that there may not be a bill by the first
of October. Currently, Alaska is not a target of other states.
Commissioner Perkins hoped Alaska would continue to have the same
funding. With regards to the highway reauthorizations legislation,
there could be demonstration projects. DOT determined that the
rebuilding of the Dalton Highway would compete nationally for a
demonstration project because it serves the largest oil field in
the U.S., a gas line will eventually be constructed, and it is the
only portion of the NHS that is gravel in the U.S. The Dalton
Highway is currently scheduled for a rebuild over the next 15
years, therefore a demonstration project would leave room for other
projects.
SENATOR LINCOLN noted that Close-Up students were present.
COMMISSIONER PERKINS discussed the Kennicott ferry for the
students.
Number 499
SENATOR LINCOLN congratulated Commissioner Perkins on the proposed
effectiveness review. The transportation plan is a very important
document that will shape the future of Alaska. Senator Lincoln
pointed out that 51 percent of all roads and highways in Alaska are
in the northern region, her district, which covers such a large
area. She expressed concern with placing the Division of Weights
& Measures in DOT. Senator Lincoln was also concerned with the
lack of maintenance on the highways and the safety consequences.
For example, Chenega Bay had a life and death emergency and with no
lights on the airport the plane had difficulties landing. On the
other end of the spectrum, McCarthy has a large airport that is not
necessary. Senator Lincoln stressed the need to do business
differently.
Senator Lincoln posed the following questions. What does the lack
of a state highway program mean to Alaska? Is the state highway
program the same as a long-range transportation plan? From where
do the project nominations come? How was the project nomination
deadline advertised, especially in the rural areas where there is
no city manager or planner to write such projects? Senator Lincoln
requested more information regarding the rural ranking system.
What happened to the recycling of tires for mixing in the roads?
She mentioned the light-weight studded tires. What is being done
about dust control? The vast majority of Senator Lincoln's
district is concerned about the health implications of the dust.
Number 414
COMMISSIONER PERKINS noted that Alaska and Rhode Island are the
only two states that do not have a state highway program. Under
the state highway program, the state does work on state roads with
state funds and did not wait for the federal government. Prior to
ISTEA, the federal government did not fund all roads. Commissioner
Perkins stressed that Alaska is totally dependent upon Washington,
D.C. for roads. There should be consideration of determining how
to help ourselves to some degree. Commissioner Perkins believed
that in the future, the federal government will fund those roads of
national interest, the NHS. If that occurred this year, Alaska
would not have a road program for all roads not on the NHS.
The recycling of tires, crumb rubber, was included in ISTEA. Some
states were required to grind up tires and put in asphalt; this was
a disaster. Therefore, last year Congress repealed any requirement
for crumb rubber. With regard to light-weight studs, Commissioner
Perkins said that all the tire dealers in Alaska had been contacted
and there was little opposition. Most tire dealers mainly use
light-weight studs. Also there should be a fine for those who
leave their studs on in the summer. In response to the problem
with dust control, Commissioner Perkins stated that DOT plans to
chip seal as much as possible in places like Bethel and Galena.
This should be done when repairing old roads or building new roads.
Number 345
In response to Senator Lincoln, COMMISSIONER PERKINS explained that
calcium chloride must be applied every year which is very
expensive. Once a year is missed, the effect of the previous
applications is lost which is the case on the Dalton Highway.
There has not been enough money to apply calcium chloride on the
Dalton Highway and so the base course is suffering. He believed
that the application of calcium chloride would far exceed the
financial capabilities of most communities. The solution would be
to chip seal as many roads as possible.
With regards to rural airports, the FAA allocates funds on a
project by project basis as well as allocating funds from a
discretionary fund. Prior to this project ranking system, the FAA
practically determined what the state would do. The ranking
system, which the FAA likes, should ensure that the most critical
needs are addressed first. The project submittals must come out of
the communities or other groups who so desire, then the submittals
are scored. Commissioner Perkins agreed that some of the
communities do not have the planning capability to do these
projects, DOT wants to help those communities. He offered to
describe the scoring in writing as well as addressing the Chenega
situation.
Number 298
SENATOR WILKEN commented that the City of Fairbanks does a
miserable job of snow removal. In comparison, DOT/PF does an
excellent job of snow removal in Fairbanks. He hoped that the
department would review the decision not to maintain the Elliot
Highway. Senator Wilken referred to a letter from Phil Anderson,
Vice President of Exclusive Landscaping. Mr. Anderson discusses
the fact that there are projects on the books that cannot be moved
which he feels could be moved and provides the details for such.
Senator Wilken requested that Commissioner Perkins review that
information in order to respond to Mr. Anderson. Mr. Anderson as
well as other persons have proposed a bipartisan commission board
to review transportation allocations; that is being reviewed. In
conclusion, Senator Wilken asked if the Legislature could do
anything to help Senator Stevens' initiative for understanding
Alaska's problem and helping to resolve that problem.
COMMISSIONER PERKINS stated that a resolution would not hurt.
Providing information to the Congressional delegation would be of
much help and Commissioner Perkins recognized that he should keep
the committee informed. He informed the committee that the new
Commissioner of DOT was Rodney Slater. Senator Stevens did receive
a commitment from Commissioner Slater to visit Alaska. Perhaps, a
ground breaking could be arranged when he visits.
In response to Senator Wilken, COMMISSIONER PERKINS explained that
SOLAS is the international law of the sea regulations. Most of
these regulations are the result of an accident. There was ferry
in another country that rolled over and killed many hundreds of
people. The ferry rolled because water seeped into the car deck
and began sloshing back and forth until it rolled. Therefore,
watertight doors are required for those serving internationally.
Alaska classifies as international because of its service to Prince
Rupert. Another example is the regulations for covered lifeboats
which also effects the method of launch. Commissioner Perkins
pointed out that the Coast Guard usually adopts these regulations
a year or so later which means that Alaska would have to comply.
All of the ships servicing Prince Rupert, except the Malaspina will
be SOLAS equipped.
Number 188
GARY HAYDEN , Director of the Marine Highway System, informed the
committee that the Malaspina was not in compliance with a sprinkler
system, fire alarm, and evacuation system. In addition to the
stability issue, there is a safety management system fleetwide
which will address the human factor of accidents. This system will
result in a review of the fleet's operational procedures.
Compliance must be met within the next 15 months.
In response to Chairman Wilken, Mr. Hayden stated that the
regulations are due because Prince Rupert is served. The Coast
Guard has served notice that within five years, the Coast Guard
will be adopting the SOLAS requirements for domestic voyages as
well. This will also effect Washington because they serve a port
in Canada. Therefore, it would be appropriate to begin a dialogue
with the leadership of Alaska, Washington, and Canada regarding how
transportation would be provided under these regulations. Alaska
could force all traffic to Bellingham or Haines in order to
eliminate the international status. However, the trip becomes more
expensive and the trips would occur less frequently.
SENATOR LINCOLN pointed out that the Edgerton Highway was to
receive $7.1 million in 1998, but an accounting error at the
national level resulted a reduction to $2.1 million. The Edgerton
Highway is dangerous, especially for children because there is no
shoulder. There is heavy logging traffic not to mention that
traffic is increasing due to the improvements with connector roads.
Senator Lincoln requested information on how the equipment fleet is
being managed. Senator Lincoln noted that 30 percent of Alaskans
are not connected by roads, and stressed that by land mass it is
much greater.
Number 084
COMMISSIONER PERKINS explained that the Edgerton Highway is the
connecting route between the Richardson to Chitina which is paved.
The road from Chitina to McCarthy is gravel. The Edgerton Highway
allocation was reduced because the commissioner drove the highway.
Commissioner Perkins said that the Edgerton is not in as bad a
shape as others. Instead of tearing up the whole highway which has
75 percent good pavement surface, the frost heave areas will be
fixed for only $2 million. The other $5 million will go towards
other roads in worse shape with heavier traffic. Commissioner
Perkins offered to send Senator Lincoln information regarding the
traffic count on the Edgerton Highway.
SENATOR LINCOLN interjected that there had been no upgrades on the
shoulders. COMMISSIONER PERKINS said that only about 50 people
live in Chitina with more in Kenny Lake. He offered to discuss
that issue later as well as the equipment management.
CHAIRMAN WARD inquired as to the details of a ferry surplus and the
loss of airlines at the Anchorage Airport due to wintertime eave;
is there a long-term plan? He thanked Commissioner Perkins and
there being no further business before the committee, the meeting
was adjourned at 2:05 p.m.
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