i

Bridge Preservation Guide

Maintaining a Resilient Infrastructure 

to Preserve Mobility

Spring 2018
Notice

This document is disseminated under the sponsorship of the U.S. Department of 

Transportation in the interest of information exchange. The U.S. Government assumes no 

liability for use of the information contained in this document. This report does not constitute 

a standard, specification, or regulation.

The U.S. Government does not endorse products or manufacturers. Trademarks or 

manufacturers’ names appear in this report only because they are considered essential to 

the objective of the document.

Quality Assurance Statement

The Federal Highway Administration provides high-quality information to serve Government, 

industry, and the public in a manner that promotes public understanding. Standards and 

policies are used to ensure and maximize the quality, objectivity, utility, and integrity of its 

information. FHWA periodically reviews quality issues and adjusts its programs and processes 

to ensure continuous quality improvement.

Cover photo: Deception Pass Bridge on Washington State Route 20, connecting Whidbey Island to Fidalgo Island. 
i Bridge Preservation Guide – Maintaining a Resilient Infrastructure to Preserve Mobility

Contents

Introduction ....................................................................................................................... 1

Definitions and Related Commentaries ........................................................................... 2

Asset Management .................................................................................................................................... 2

Maintenance............................................................................................................................................... 2

Routine Maintenance................................................................................................................................. 2

Bridge Preservation ..................................................................................................................................... 3

Preventive Maintenance ........................................................................................................................... 4

Cyclical Maintenance Activities ............................................................................................................... 4

Condition-Based Maintenance Activities ............................................................................................... 5

Rehabilitation............................................................................................................................................... 7

Replacement............................................................................................................................................... 8

Summary .............................................................................................................................. 9

National Bridge Inventory General Condition Ratings ........................................................................... 9

Bridge and Culvert Classification ............................................................................................................. 9

Bridge Element Condition State ................................................................................................................ 10

Design Life.................................................................................................................................................... 11

Service Life ................................................................................................................................................... 11

Establishing a Bridge Preservation Program ..................................................................... 12

What Is a Bridge Preservation Program? .................................................................................................. 12

How to Establish a Bridge Preservation Program ..................................................................................... 12

Bridge Preservation Program Summary ............................................................................ 17

Appendix A. Common Actions Based on National Bridge Inventory General 

Condition Ratings ................................................................................................................ 18

Appendix B. Common Actions Based on Bridge Element Condition States ............... 19

Appendix C. Resources ...................................................................................................... 20
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List of Figures

Figure 1. Bridge snow removal. ..................................................................................................................... 2

Figure 2. Bridge action categories. ................................................................................................................ 3

Figure 3. Bridge washing. ................................................................................................................................ 5

Figure 4. Broadcasting aggregate on sealer. .............................................................................................. 5

Figure 5. Deck showing halo effect. ............................................................................................................ 6

Figure 6. Substructure repair. ......................................................................................................................... 7

Figure 7. Before bridge maintenance painting (left) and after (right). .................................................... 7

Figure 8. Joint replacement. .......................................................................................................................... 8

Figure 9. Joint seal replacement. ................................................................................................................... 8

Figure 10. Pier being prepared for ECE treatment. ..................................................................................... 8

Figure 11. Bridge components in various ratings. ........................................................................................ 9

Figure 12. Culvert coded as Item 62. Superstructure and substructure coded as N. .............................. 10

Figure 13. Diaphragms in straight steel bridges are not NBEs because they are not primary 

load-carrying elements, but they can be added as an ADE. .................................................................... 10

Figure 14. Bridge condition over time. ........................................................................................................... 12

Figure 15. Steps for establishing a bridge preservation program. .............................................................. 13

Figure 16. Examples showing the effects of BME preservation on NBEs. ................................................... 13

Figure 17. A comparison of bridge condition over time with and without bridge preservation. ........... 15

Figure 18. Measuring preservation performance. ....................................................................................... 16

Figure 19. Example website dashboard showing an analysis for bridge conditions. .............................. 17

List of Tables

Table 1. Examples of routine maintenance activities. ................................................................................ 3

Table 2. Examples of cyclical maintenance activities. ............................................................................... 4

Table 3: Examples of condition-based maintenance activities ................................................................. 6

Table 4. Federal funds eligibility summary. .................................................................................................... 9

Table 5. Examples of cyclical agency rule. .................................................................................................. 14

Table 6. Example of a condition-based agency rule. ................................................................................. 14
iii

Acronyms and Abbreviations

AASHTO ......... American Association of State Highway and Transportation Officials

ADE ................ Agency Developed Elements

BME ................ Bridge Management Elements

BMS ................ Bridge Management System

BSIR ................. Bridge Safety Inspection Report

CP .................. cathodic protection

DOT ................ Department of Transportation

ECE ................. electrochemical extraction

ECR ................ epoxy-coated rebar

FAST Act ......... Fixing America’s Surface Transportation Act

FHWA ............. Federal Highway Administration

GCR ............... general condition rating

HBP ................. Highway Bridge Program

HBRRP ............ Highway Bridge Replacement and Rehabilitation Program

LCP ................. Life Cycle Plan

MAP-21 .......... Moving Ahead for Progress in the 21st Century Act

NBI .................. National Bridge Inventory

NBE ................. National Bridge Elements

PM .................. preventive maintenance

TSP 2 ............... Transportation System Preservation Technical Services Program
iv

Photo source: FHWA
1

Bridge Preservation Guide

Maintaining a Resilient Infrastructure to Preserve Mobility

Introduction 

State departments of transportation (DOTs), local agencies, and other bridge owners 

face significant challenges in addressing the needs of their aging infrastructure. Due to 

limited funds and increased competition for funds among highway assets, bridge owners 

are challenged to cost effectively preserve and maintain their bridges to support overall 

highway mobility. However, having a “worst-first” approach to bridge management by 

focusing only on replacing poor bridges while ignoring the maintenance needs of good and 

fair bridges is inefficient and cost-prohibitive in the long term. 

A successful bridge program seeks a balanced approach to preservation and rehabilitation/

replacement. Bridge owners are striving to be more strategic by adopting and implementing 

systematic processes for bridge preservation as an integral component of their overall asset 

management.

Purpose

This guide defines bridge preservation terms and identifies commonly practiced bridge 

preservation activities. It also provides guidance to State governments and other bridgeowning agencies on establishing or improving existing bridge preservation programs as part 

of an asset management program. 

Scope

This guide is intended for Federal, State, and local bridge engineers; bridge owners; and 

bridge preservation practitioners to support the Federal-Aid Highway Program.

Eligibility

Over several decades, the Federal Highway Administration’s (FHWA) Highway Bridge 

Replacement and Rehabilitation Program (HBRRP), later known as the Highway Bridge 

Program (HBP), was the primary source of Federal funding for bridges. The HBP afforded State 

DOTs discretion to use funds not only for bridge rehabilitation and replacement, but also for a 

broad array of preventive maintenance activities. Bridge owners have taken advantage of 

the flexibilities in the HBP and have maintained their inventory in good to fair condition under 

constrained resources. 

The Moving Ahead for Progress in the 21st Century Act (MAP-21) and the Fixing America’s 

Surface Transportation (FAST) Act recognized preservation as a vital component of achieving 

and sustaining a desired state of good repair of highway facilities. Bridge preservation 

is eligible for Federal funding.1

 However, it is important to differentiate between routine 

maintenance and cost-effective preservation activities that extend the service life of a 

structure. Routine maintenance is not eligible for Federal funding.2

1 Section 1103 of MAP-21 amended the definition of “construction” in 23 U.S.C. 101 and adds preservation as an eligible cost of 

construction.

2 23 U.S.C. 116 (b)
2

Definitions and Related Commentaries

Several definitions are presented in this section along with commentary. The definitions are 

offered as a means of establishing clear and consistent terminology for bridge owners and 

preservation practitioners.

Asset Management

Definition: Asset management is defined as a “strategic and systematic process of operating, 

maintaining, and improving physical assets, with a focus on both engineering and economic 

analysis based on quality information, to identify a structured sequence of maintenance, 

preservation, repair, rehabilitation, and replacement actions that will achieve and sustain a 

desired state of good repair over the life cycle of the assets at a minimum practicable cost.”3

Commentary: MAP-21 brought transformative changes to the Federal-Aid Highway 

Program with its performance management and asset management requirements.4 Asset 

management plans are an important highway infrastructure management tool to improve 

and preserve the condition of assets and system performance. 

Maintenance5

Definition: Maintenance describes work that is performed to maintain the condition of the 

transportation system or respond to specific conditions or events that restore the highway 

system to a functional state of operations. Maintenance is a critical component of an 

agency’s asset management plan that includes both routine and preventive maintenance.

Routine Maintenance

Definition: Routine maintenance encompasses work that is performed in reaction to an 

event, season, or activities that are done for short-term operational need that do not have 

preservation value. This work requires regular reoccurring attention. 

Figure 1. Bridge snow removal. 

3 MAP-21 added this definition in 23 U.S.C. 101(a)(2).

4 The core performance management requirements are codified in 23 U.S.C. 150 and 23 U.S.C. 119. Asset management requirements 

are codified in 23 U.S.C. 119.

5 FHWA Guidance on Highway Preservation and Maintenance dated Feb. 25, 2016.

Photo courtesy of Oregon DOT
3

Commentary: Per 23 U.S.C. 116 (d), States 

and owner agencies are required to 

properly maintain projects financed with 

Federal-aid funds. Therefore, routine 

maintenance activities are not eligible for 

Federal funds. Examples of routine 

maintenance are listed in Table 1.

Bridge Preservation

Definition: Bridge preservation is defined as 

actions or strategies that prevent, delay, or 

reduce deterioration of bridges or bridge 

elements; restore the function of existing 

Table 1. Examples of routine maintenance activities. 

These are examples of routine maintenance 

activities not eligible for Federal funds:

Trash, Litter, and Dead Animal Removal

Snow Removal/Application of Salt/Deicing Chemicals

Graffiti Removal

Hazardous Material Removal

Asphalt Patch with No Membrane on Concrete Deck

Accident Damage to Bridge and Its Appurtenances

Storm Damage

bridges; keep bridges in good or fair condition; and extend their service life. Preservation 

actions may be cyclic or condition-driven.

Figure 2. Bridge action categories.

Commentary: Effective bridge preservation actions are intended to delay the need for costly 

rehabilitation or replacement while bridges are still in good or fair condition and before the 

onset of serious deterioration. 

Bridge preservation encompasses both cyclical and condition-based activities applied to 

highway structures (see Figure 2). Best practices for bridge preservation include the following:

• A needs identification method that is uniform, specific, and repeatable. It can

be based on National Bridge Inventory (NBI) major component condition ratings,

detailed inspections and scopes, or element-level condition data.

• A commitment by agency management to asset preservation.

• Resource allocation determined by agency network goals and a bridge

management system directed to preservation actions.

• A process for categorization and/or prioritization that integrates agency objectives.

• Verification and feedback on work completed.

 
4

Preventive Maintenance

Definition: Preventive maintenance (PM) is a cost-effective means of extending the service 

life of highway bridges.

Commentary: PM for highway bridges is a strategy of extending service life by applying costeffective treatments to bridge elements. PM activities retard future deterioration and avoid 

large expenses in bridge rehabilitation or replacements.

PM includes cyclical and condition-based activities, as illustrated in Figure 2. Examples are 

listed in Table 2 and Table 3.

Cyclical Maintenance Activities

Definition: Cyclical maintenance activities are performed on pre-determined intervals that 

aim to preserve and delay deterioration of bridge elements or component conditions.

Commentary: The frequency of cyclical PM activities can change as a result of 

environmental or condition changes. For example, superstructure cleaning that was 

occurring at a 3-year interval based on past accumulation of debris buildup could change if 

pigeons start routinely nesting on superstructure elements. 

Examples of cyclical PM activities that may be considered by bridge owners for 

implementation on good and fair condition bridges and components are shown in Table 2.

Bridge cleaning and/or washings: Cleaning of decks, joints, drains, superstructure, and 

substructure elements slows the deterioration of concrete and steel elements that would 

otherwise be accelerated by debris, bird droppings, and contaminants. 

Deck sealers: Deck sealers protect the reinforcing steel from corrosion by stopping or 

minimizing the intrusion of water and chloride through the concrete. 

Table 2. Examples of cyclical maintenance activities.

Cyclical Maintenance Activity Bridge Component

Clean/Wash Bridge Deck and/or Super/Substructure

Clean and Flush Drains Deck

Clean Joints Deck

Deck/Parapet/Rail Sealing and Crack Sealing Deck

Seal Concrete Super/Substructure
5

Condition-Based Maintenance 

Activities 

Definition: Condition-based 

maintenance activities are performed 

on bridge components or elements in 

response to known defects. Conditionbased maintenance improves the 

condition of that portion of the 

element, but may or may not result in 

an increase in the component 

condition rating. 

Commentary: Condition-based 

maintenance activities are identified 

through an inspection process. 

Condition ratings may be improved by 

a condition-based PM activity. One 

example is a substructure element that 

was once rated fair due to spalled 

concrete and exposed reinforcement. 

After maintenance removed loose 

concrete, cleaned the exposed 

reinforcement, and formed and 

placed new concrete, the inspection 

rating for the substructure was 

changed to good condition. 

Examples of condition-based 

maintenance activities that may 

be considered by bridge owners for 

implementation on fair condition 

bridges and components are shown in 

Table 3.

Photo courtesy of Washington State DOT

Figure 3. Bridge washing.

Photo courtesy of GPI

Figure 4. Broadcasting aggregate on sealer.
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Figure 5. Deck showing halo effect. 

Halo Effect

The “halo effect” (see Figure 5) in bridge 

decks results when a delaminated 

area (due to reinforcement corrosion 

resulting from chlorides and moisture 

in the concrete) is removed and repair 

material (containing no chlorides) is 

put in its place. If a high concentration 

of chlorides remains in the area 

surrounding the replaced concrete, the 

corrosion potential will lead to rapid 

corrosion in the area surrounding the 

repair. 

Table 3: Examples of condition-based maintenance activities

Examples of Condition-Based Maintenance Activity Bridge 

Component

Drains, Repair/Replace Deck

Joint Seal Replacement Deck

Joint Repair/Replace/Elimination Deck

Electrochemical Extraction (ECE)/Cathodic Protection (CP) Deck

Concrete Deck Repair (see halo effect below) in Conjunction with Overlays, CP 

Systems or ECE Treatment

Deck

Deck Overlays (thin polymer epoxy, asphalt with waterproof membrane, rigid overlays) Deck

Repair/Replace Approach Slabs Approach

Seal/Patch/Repair Superstructure Concrete Superstructure

Protective Coat Concrete/Steel Elements Superstructure

Spot/Zone/Full Painting Steel Elements Superstructure

Steel Member Repair Superstructure

Fatigue Crack Mitigation (pin-and-hanger replacement, retrofit fracture critical 

members)

Superstructure

Bearing Restoration (cleaning, lubrication, resetting, replacement) Superstructure

Movable Bridge Machinery Cleaning/Lubrication/Repair Superstructure

Patch/Repair Substructure Concrete Substructure/Culvert

Protective Coat/Concrete/Steel Substructure Substructure/Culvert

ECE/CP Substructure/Culvert

Spot/Zone/Full Painting Steel Substructure Substructure

Pile Preservation (jackets/wraps/CP) Substructure

Channel Cleaning / Debris Removal Channel

Scour Countermeasure (installation/repair) Channel

Photo courtesy of Vector Corrosion Technologies
7

Rehabilitation6

Definition: Rehabilitation involves major work required to restore the structural integrity of a 

bridge, as well as work necessary to correct major safety defects. 

Commentary: Bridge rehabilitation 

projects provide complete or nearly 

complete restoration of bridge elements or 

components. Rehabilitation work can be 

done on one or multiple elements and/or 

components of a structure. Agencies may 

choose to combine preservation activities 

on several elements while a component is 

being rehabilitated. These projects require 

significant engineering resources for design, 

a lengthy completion schedule, and 

considerable costs. 

Examples of bridge rehabilitation include, 

but are not limited to: partial or complete 

deck replacement, superstructure 

replacement, and substructure/culvert 

strengthening or partial/full replacement. 

Incidental widening is often associated with 

some of these activities. 

Figure 7. Before bridge maintenance painting (left) and after (right). 

6 23 CFR 650.403(c)

Photo courtesy of GPI

Figure 6. Substructure repair. 

Photos courtesy of Washington State DOT
8

Replacement

Definition: Total replacement of an existing 

bridge with a new facility constructed in 

the same general traffic corridor.

Commentary: The replacement structure 

must meet the current geometric, 

construction, and structural standards 

required for the types and volume of 

projected traffic on the facility over 

its design life. Replacement includes 

a nominal amount of approach work 

sufficient to connect the new facility to the 

existing roadway or to return the grade line 

to an attainable touchdown point. 

Similar to bridge rehabilitation, bridge 

replacement projects require engineering 

resources for design, a substantial and 

complex completion schedule, and 

considerable costs. Life-cycle costs and 

other economic factors are usually 

considered when weighing rehabilitation 

versus replacement costs. 

Photo courtesy of Oregon DOT

Figure 8. Joint replacement. 

Photo courtesy of Washington State DOT

Figure 9. Joint seal replacement.

Photo courtesy of Vector Corrosion Technologies

Figure 10. Pier being prepared for ECE treatment. 
9

Summary

Table 4 summarizes actions that are either eligible or not eligible for Federal funds.

National Bridge Inventory General Condition Ratings

NBI general condition ratings (GCRs) are used to describe the existing, in-place bridge 

or culvert as compared to the as-built condition. The materials used in the bridge are 

considered, as well as the physical condition of the deck, superstructure, and substructure 

components. This information is used to determine GCRs on a numerical scale that ranges 

from 0 (failed condition) to 9 (excellent condition) as described in the FHWA Coding Guide.7

Appendix A provides a description for each of these numeric values. The GCRs are used 

in evaluating bridge decks (NBI Item 58), bridge superstructures (NBI Item 59), bridge 

substructures (NBI Item 60), and culverts (NBI Item 62).

Figure 11. Bridge components in various ratings. 

Bridge and Culvert Classification8

Good Condition. When the minimum condition rating of the three NBI items for a bridge 

(Items 58-Deck, 59-Superstructure, 60-Substructure) is 7, 8, or 9, the bridge is classified as 

Good. Similarly, when the condition rating of NBI Item 62-Culvert is 7, 8, or 9, the culvert is 

classified as Good.

7 FHWA Report number PD-96-001 “Recording and Coding Guide for Structure Inventory and Appraisal of the Nation’s Bridges, 

December 1995. 

8 23 CFR 490.409 – Calculation of National Performance Management Measures for Assessing Bridge Condition

Table 4. Federal funds eligibility summary.

Action Activities Eligible for Federal Funds Reference

Maintenance Routine Maintenance No Table 1

Preservation/Preventive 

Maintenance

Cyclical Maintenance Yes Table 2

Condition-Based Maintenance Yes Table 3

Rehabilitation - Yes - 

Replacement - Yes - 

Photo source: FHWA Bridge Preservation Guide (2011)
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Fair Condition. When the minimum 

condition rating of the three NBI items for 

a bridge (Items 58-Deck, 

59-Superstructure, 60-Substructure) is 

either 5 or 6, the bridge is classified as Fair. 

Similarly, when the condition rating of NBI 

Item 62-Culvert is either 5 or 6, the culvert 

is classified as Fair. 

Poor Condition. When the minimum 

condition rating of any of the three 

NBI items for a bridge (Items 58-Deck, 

59-Superstructure, 60-Substructure) is 4 

or below, the bridge is classified as Poor. 

Similarly, when the condition rating of NBI 

Item 62-Culvert is 4 or below, the culvert is 

classified as Poor.

Photo source: National Highway Institute

Figure 12. Culvert coded as Item 62. Superstructure 

and substructure coded as N.

While GCRs may help in providing general categorization of preservation, rehabilitation, and 

replacement needs, they are too broad for determining specific activity on a bridge. If only 

GCRs are available, detailed scopes are necessary to determine the work activities and 

estimate cost for the project. 

Bridge Element Condition State

A bridge element condition state categorizes the severity and extent of damage or 

deterioration of a bridge element. 

Photo source: National Highway Institute

Figure 13. Diaphragms in straight steel bridges are not NBEs because they are not primary 

load-carrying elements, but they can be added as an ADE.
11

The American Association of State Highway and Transportation Officials (AASHTO) Manual for 

Bridge Element Inspection provides information on bridge elements and their corresponding 

condition states. Each bridge element has a unit of measure and four condition states (1–

good, 2–fair, 3–poor, and 4–severe) as shown in Appendix B. Condition states are denoted as 

CS1, CS2, CS3, and CS4. A higher condition state indicates a higher severity of the damage 

and/or deterioration of the element. An element’s total quantity is assigned to four condition 

states as applicable. 

National Bridge Elements (NBE) are the primary structural components of bridges necessary 

to determine the overall condition and safety of the primary load carrying members. 

These include various material and construction types of decks / slabs, bridge railings, 

superstructures, substructures, bearings, and culverts.

Bridge Management Elements (BME) are components that, through inspection monitoring 

and maintenance activities, support the preservation of the NBEs and the overall bridge. 

BMEs include joints, approach slabs, wearing surfaces, and protective systems. 

Agency Developed Elements (ADEs) are custom elements. ADEs can be defined within the 

AASHTO element framework as sub-elements of NBEs or BMEs, or ADEs may be agencydefined elements without ties. For example, a steel beam end ADE could be a sub-element 

of the steel open girder / beam NBE to document the condition of a beam under an 

expansion joint. A deck drain ADE could be a sub-element of the reinforced concrete deck 

NBE to monitor scuppers and downspouts.

Design Life

Definition: The design life is the period for which a component, element, or bridge is 

expected to function for its designated purpose when designed, constructed, and 

maintained as per standards.

Commentary: The design life of a bridge component or element is the period during which 

the item is expected, by its designers, to work within its specified parameters. Design codes 

and material specifications are important parameters in determining the expected design 

life of a highway structure. 

Service Life

Definition: The service life is the period for which a component, element, or bridge provides 

the desired function and remains in service with appropriate preservation activities. 

Commentary: Service life of bridge components or elements is the period during which the 

item actually performs. The service life of a bridge and components in good to fair condition 

can be extended with cyclical and/or condition-based PM activities. 

A steadfast bridge preservation program and quality workmanship practiced during the 

service life of an asset is necessary for the asset to reach its design life.
12

program can extend the service 

life of a bridge when it is in good 

or fair condition. This results in 

achieving the greatest value 

from the original construction 

cost by delaying the need for 

rehabilitation or replacement. 

Typically, when a bridge 

component enters into poor 

condition, bridge preservation 

ends until that bridge 

component is rehabilitated 

back into good or fair condition, 

or replaced.

Establishing a Bridge Preservation Program

What Is a Bridge Preservation Program?

A bridge preservation program consists of performing cost-effective cyclical and conditionbased PM activities that seek to prolong the service life of bridges and delay the need for 

rehabilitation or replacement.

Figure 14 is a representation of a bridge’s condition over time. The three types of work 

programs are shown based on the condition. PM activities as part of the bridge preservation 

Source: GPI

Figure 14. Bridge condition over time.

How to Establish a Bridge Preservation Program

Establishing a bridge preservation program can be simple. An owner agency can start by 

cyclically cleaning and/or washing bridges that are in good or fair condition and add more 

PM activities as the program is developed. 

Owner agency steps toward establishing a bridge preservation program:

• Identify agency goals and objectives.

• Identify bridges to preserve. 

• Develop a list of actions for preservation (a list of cyclical and condition-based PM 

activities are provided in this guide).

• Establish rules for the actions, a combination of either cyclical or condition-based.

• Use the actions to develop life cycle plans.

• Develop performance measures for the effectiveness of the actions, projects, and 

programs of projects to satisfy agency’s goals.

• Develop methods to evaluate benefits of the actions.

• Dedicate funds for preservation actions.

• Implement and evaluate projects.

• Monitor and measure performance of preservation program.

• Report and improve preservation program. 
13

Identify Agency Goals and 

Objectives

An agency outlines goals and 

objectives to preserve its bridges 

and identifies dedicated funds to 

perform preservation actions. 

Identify Bridges to Preserve

Bridges are preserved when 

preservation is feasible and 

beneficial, targeting bridges and 

components that are in good or 

fair condition, have adequate load 

capacity, and continue to meet the 

mobility (traffic) demands.

Develop a List of Actions for 

Preservation

Bridge preservation actions are 

either cyclical or condition-based. 

Examples of these actions are 

shown in Table 2 and Table 3, 

respectively. When developing a list 

of preservation actions, 

 

Figure 15. Steps for establishing a bridge preservation program.

Source: GPI

consideration needs to be given to the relationship of elements in a bridge. In bridge 

preservation, AASHTO’s BMEs are maintained, repaired, replaced, or retrofit in order to further 

protect the NBEs. Figure 16 shows two examples of how the preservation of a BME can 

protect one or more NBEs.

Figure 16. Examples showing the effects of BME preservation on NBEs.

In a few cases, the NBEs may also require additional NBE-specific preservation actions/

treatments to extend the service life of the bridge.

 

Source: George Hearn, University of Colorado Boulder
14

Establish Agency Rules for Actions, Either Cyclical or Condition-Based

An agency rule identifies when a preservation action may be appropriate. An agency rule 

serves as guidance to help identify when to perform an action and what action to perform. 

Rules may be cyclical or condition-based. A cyclical rule is set out as an action and an 

interval. A condition-based rule is set out as an action taken as a result of the condition of an 

element or component.

When a rule is satisfied, further evaluation is warranted to determine whether to conduct 

the action. Rules do not account for relative priority and benefit of different action types, or 

relative priority of bridges, which need to be considered when there are budget constraints. 

Also, an owner may consider other factors such as:

• net benefit of an action

• duration of extension of service life

• availability of specialty contractors

• coordination of work along route segments or bridge bundling contracts

• consideration of traffic operations

Table 5. Examples of cyclical agency rule.

NBI Item 58 Preservation Activity Interval Years

≥ 7

Deck Sweeping/Washing 1 to 2

Crack Sealing 3 to 5

Deck Sealing 3 to 5

Polymer Overlay 8 to 12

Polymer-Modified Asphalt Overlay 12 to 15

Table 6. Example of a condition-based agency rule.

Deck GCR, Before

Repair 

Option

Deck GCR, After

Service 

Life Years Top Surface Bottom Surface Top Surface Bottom 

Surface

BSIR #58a Defect Area BSIR #58b Defect Area BSIR #58a BSIR #58b

≥ 5 ≤ 5% > 5 ≤ 2% Epoxy 

Overlay

8, 9 No 

Change

10 to 15

N/A ≤ 10% N/A ≤ 25% Deck 

Patch

+ 1 No 

Change

3 to 10
15

Develop Life Cycle Plans Using the Actions 

Life Cycle Planning9 (LCP) is a process that estimates the cost of managing an asset class, 

or asset sub-group, over its service life with consideration for minimizing cost while preserving 

or improving its condition. LCP looks at different scenarios for performing preservation on a 

network of bridges. It evaluates different preservation actions and time of application on 

bridges; different proportions of preservation, rehabilitation, and replacement spending; and 

the effect of different funding levels. LCP leads to a strategy for managing a bridge network 

over the long term that minimizes life cycle cost while maintaining desired condition and 

performance. 

Develop Performance Measures for the Effectiveness of the Actions to Satisfy Agency’s Goals

Measures of accomplishment of preservation actions are comparative. From these 

scenarios, the numbers and quantities of preservation actions completed are compared to 

the numbers and quantities of actions planned. Average condition of bridge elements, as a 

measure of preservation, must be focused on bridges in the preservation population.

Agencies have different performance measures specific to their objectives and goals. A few 

examples include:

• GCR of bridge components in Good, Fair or Poor

• Percent of deck joints in condition state 2 or better

• Percent of steel protective coating elements in condition state 2 or better

Develop Methods of Evaluation of Benefits of the Actions

The goal of bridge preservation is to slow deterioration and extend service life. Longer service 

life means lower annualized costs of rehabilitation or replacement. Bridge preservation incurs 

costs, but lower annualized costs over the life of the structure are the monetized benefits 

of bridge preservation. Programs for preservation are adopted and adjusted based on net 

benefits of programs.

9 Refer to 23 CFR 515 Asset Management Plans and FHWA LCP Guidance for further information.

In Figure 17, the leftmost line 

represents a service life of a 

bridge without bridge 

preservation. The lack of PM 

activities allows debris and 

chemicals to attack the 

bridge elements, thereby 

deteriorating and leading to 

a shorter service life. The 

rightmost line represents the 

same bridge with both 

cyclical and conditionbased (blue vertical line) PM 

activities applied when the 

bridge elements are in Good 

and Fair condition. The 

comparison shows longevity 

of a bridge’s service life in a 

bridge preservation 

program. 

Source: GPI

Figure 17. A comparison of bridge condition over time with 

and without bridge preservation.
16

Determine Availability of Dedicated Funds for Preservation Actions

The work completed provides linkage of costs to preservation benefits. This can also be 

supplemented by running an unconstrained funding scenario using a Bridge Management 

System (BMS). Both actual work completed and results from the BMS can serve as the basis 

for advocating or maintaining current level of funding or requesting additional funds.

Implement and Evaluate Projects

Work orders and contracts can be prepared to implement the preservation program and 

projects. Evaluation of a completed project’s preservation actions in terms of work quality 

and completeness is essential to ensure the greatest fulfillment of the preservation program.

Monitor and Measure Performance of Preservation Program

The value of bridge preservation can be shown in several ways, as presented in Figure 18. 

One way is to monitor and measure performance of major component or element condition 

trends. Another is to monitor the number of bridges. Bridge needs, as determined by slowing 

or preventing deterioration of bridge elements, can also be used to monitor and measure 

preservation performance. Since the results of completed preservation projects are not 

recorded until the next scheduled bridge inspection, it may take multiple inspection cycles 

to effectively measure the program’s performance.

Figure 18. Measuring preservation performance.

Reporting and Improving Preservation Program

Reporting is essential to inform agency executives and the public of the accomplishments 

of the preservation program and help to sustain their continued support. This can be done 

through methods ranging from simple reports to elaborate website dashboards. An example 

of a website dashboard is an analysis of historical and forecasted bridge conditions posted 

by the Michigan Transportation Asset Management Council, shown in Figure 19. 

Preservation program improvement typically is a comparison of assumed and actual results 

along with improvement to one or more of these preservation program implementation 

steps.

 

Source: Raj Ailaney/FHWA
17

Source: Michigan Transportation Asset Management Council

Figure 19. Example website dashboard showing an analysis for bridge conditions.

Bridge Preservation Program Summary

In bridge preservation, an owner agency or a DOT can start by familiarizing its staff with 

preservation as a commonsense approach to maintenance of bridges. The agency or a 

DOT may consider a set of steps that begin with direct actions in preservation with shifts in 

policies that lead to promotion of bridge preservation through performance measures and 

dedicated funds. 

A few examples to consider:

• Start a bridge cleaning program using basic tools that most agencies have readily 

available, such as brooms and shovels, to remove accumulated debris and road grit. 

Afterward, hoses and pressure washers can dilute deicing chemical from concrete 

and remove any remaining debris and road grit not removed from sweeping.

• Encourage maintenance crews to check deck joints for leakage and to replace seals 

where needed. Encourage maintenance supervisors to note conditions of both joints 

and beam ends, and then prioritize new joint seals at bridges with beam ends in good 

condition. 

• In bridge maintenance, promote as a policy the scheduled replacement of wearing 

surfaces, coatings, surface sealers, and joint seals in place of policies that wait for 

defects before planning repairs.

• Using inspection data, track and monitor the conditions of wearing surfaces, coatings, 

surface sealers, and joint seals, and update intervals for scheduled replacement 

accordingly.

• Quantify and publicize the reductions in annualized costs of bridges achieved 

through preservation to gain and hold the support of owner agency or DOT 

executives for bridge preservation.

Each of these examples can be put forward as a regular procedure, as options in policy, or 

as requirements in policy as the benefits of bridge preservation are realized.
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Appendix A. Common Actions Based on National Bridge Inventory 

General Condition Ratings

Code Description Common Actions

9 EXCELLENT CONDITION

Preservation/Cyclic 

Maintenance

8 VERY GOOD CONDITION—No problems noted.

7 GOOD CONDITION—Some minor problems.

6 SATISFACTORY CONDITION—Structural elements show some minor 

deterioration.

Preservation/

Condition-Based 

Maintenance

5 FAIR CONDITION—All primary structural elements are sound but may have 

some minor section loss, cracking, spalling, or scour.

4 POOR CONDITION—Advanced section loss, deterioration, spalling, or scour.

Rehabilitation or 

Replacement

3

SERIOUS CONDITION—Loss of section, deterioration, spalling or scour have 

seriously affected primary structural components. Local failures are possible. 

Fatigue cracks in steel or shear cracks in concrete may be present.

2

CRITICAL CONDITION—Advanced deterioration of primary structural 

elements. Fatigue cracks in steel or shear cracks in concrete may be 

present, or scour may have removed substructure support. Unless closely 

monitored, the bridge may have to be closed until corrective action is 

taken.

1

IMMINENT FAILURE CONDITION—Major deterioration or section loss present 

in critical structural components, or obvious vertical or horizontal movement 

affecting structure stability. Bridge is closed to traffic, but corrective action 

may put it back in light service.

0 FAILED CONDITION—Out of service. Bridge is beyond corrective action.
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Appendix B. Common Actions Based on Bridge Element Condition States

Condition 

State Description Common Actions10

1 Varies depending on element—Good

Preservation/Cyclic Maintenance

2 Varies depending on element—Fair

Cyclic Maintenance or Condition-Based 

Maintenance when cost effective.

3 Varies depending on element—Poor

Condition-Based Maintenance, or

Rehabilitation—when quantity of poor 

exceeds a limit that condition-based 

maintenance is not cost effective, or 

Replacement—when rehabilitation is not cost 

effective.

4 Varies depending on element—Severe

Rehabilitation or Replacement

10 The appropriate action for an element will also be dependent on the element quantity in each condition state.
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Appendix C. Resources

FHWA Office of Bridges and Structures offers assistance in the areas of bridge design, 

construction, inspection, and preservation. 

FHWA Office of Asset Management offers assistance in the areas of system preservation 

techniques, pavement and bridge management systems, and materials usage and 

economic analysis tools. 

FHWA Recording and Coding Guide for the Structure Inventory and Appraisal of the Nation’s 

Bridges is located on the Office of Bridges and Structures’ Bridge Programs Publications 

website. 

AASHTO Manual for Bridge Element Inspection contains guidance on collecting elementlevel inspection data. The first edition of the manual, including 2015 and 2018 revisions, is 

available for purchase in the AASHTO bookstore. 

AASHTO’s Transportation System Preservation Technical Services Program (TSP 2) provides 

services on pavement- and bridge-related preservation topics .

FHWA Guidance on Highway Preservation and Maintenance (Feb. 25, 2016). This memo from 

the Associate Administrator for Infrastructure defined preservation and addressed MAP-21 

requirements for preservation programs. 

“Element-Level Performance Measures for Bridge Preservation” by George Hearn in a 2015 

issue of the Transportation Research Record: Journal of the Transportation Research Board

(volume 2481, p10-17) discusses highway bridge performance measures and the relationship 

between bridge element condition and preservation actions. 

Moving Ahead for Progress in the 21st Century Act (MAP-21). MAP-21 was signed into law 

by President Obama in 2012. It creates a streamlined and performance-based surface 

transportation program and builds on many of the highway, transit, bike, and pedestrian 

programs and policies established in 1991. 

Fixing America’s Surface Transportation (FAST) Act. The FAST Act was signed into law 

by President Obama in 2015. It provides authorization to govern U.S. Federal surface 

transportation spending. 

Title 23 of the United States Code (23 U.S.C.) outlines the role of highways in the United States 

Code. Sections address the Federal-Aid Highway Program, Highway Safety, Research and 

Technology, and other topics. 

Bridge Deck Preservation Matrix–Decks with Epoxy Coated Rebar (ECR). This 2011 publication 

by the Michigan DOT is a tool for bridge engineers to use in the selection of deck repair 

options when the concrete bridge deck has ECR. 

NBI 58 Deck GCR—Bridge Preservation Policy Guide Version 1.02 (2016). This publication 

by the Wisconsin DOT Bureau of Structures provides goals, measures, and strategies for the 

preservation of bridges. 
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For additional information, please contact:

Raj Ailaney, PE

Senior Bridge Engineer

FHWA Office of Bridges and Structures

Phone: (202) 366-6749

Email: raj.ailaney@dot.gov Publication No. FHWA-HIF-18-022