Preservation 

Guide 

Bridge 

Maintaining a State of Good Repair Using 

Cost Effective Investment Strategies 
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. 

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. 

FHWA Publication Number: FHWA-HIF-11042 

Published Date: August 2011 

FHWA Contact for this publication: Anwar S. Ahmad, P.E. 

Telephone: (202) 366-8501 

Email: Anwar.Ahmad@dot.gov 
 

 

 

 

 

 

 

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Contents 

I. Introduction	 2
 

II. Purpose	 3
 

III. Scope 	 3
 

IV. Eligibility 	 3
 

V.	 Definitions and Related Commentaries 4
 

Figure 1 – Bridge Action Categories 5


 Bridge Preservation –Definition 6


 Bridge Preservation Commentary 6


 Preventive Maintenance Definition 6


 Preventive Maintenance Commentary 7
 

Cyclical Preventive Maintenance Activities – Definition 7
 

Cyclical Preventive Maintenance Activities – Commentary 7
 

Table 1: Examples of Cyclical PM Activities 8
 

Condition Based Preventive Maintenance Activities – Definition 8
 

Condition Based Preventive Maintenance Activities – Commentary 8


 Rehabilitation Definition 8


 Rehabilitation Commentary 9


 Replacement Definition 9


 Replacement Commentary 9


 Condition State: 9
 

National Bridge Inventory (NBI) General Condition Ratings (GCRs) 10


 State of Good Repair (SGR) 10


 Structurally Deficient (SD) 10


 Table 2- SD Criteria 11


 Functionally Obsolete (FO) 12


 Table 3 FO Criteria 12


 Sufficiency Rating (SR) 13
 

VI. 	 Systematic Preventive Maintenance (SPM) Program 14
 

Figure 2 - The SPM Process 14
 

What is Systematic Preventive Maintenance (SPM)? 14
 

A. Qualifying SPM Program Parameters for use of Federal-aid Funds 15


 SPM Program Parameters Commentary 15
 

B. Examples of PM Activities that may extend the life of bridges 21
 

Appendix A – National Bridge Inventory General Condition Rating Guidance 25
 

Appendix B- Bridge Element Condition State Guidance 25
 

Appendix C Resources 26
 

Appendix D –Preventive Maintenance Eligibility Memorandum 27
 
I. Introduction 

State departments of transportation and other bridge owners are faced 

with significant challenges in addressing the Nation’s highway bridge 

preservation and replacement needs. 

More than 25 percent of the Nation’s 600,000 bridges are rated as 

structurally deficient or functionally obsolete. More than 30 percent of

existing bridges have exceeded their 50-year theoretical design life1

 and 

are in need of various levels of repairs, rehabilitation, or replacement. 

This issue is exacerbated by increasing travel demands, limited funding, 

and increasing costs of labor and materials. These circumstances have 

caused most bridge owners to become more reactive than proactive 

in their approach to managing and addressing their bridge program 

needs. 

Bridge stewards and owners need to become, inevitably, more strategic 

by adopting and implementing systematic processes for bridge 

preservation as an integral component of their overall management of

bridge assets. 

A successful bridge program seeks a balanced approach to preservation

and replacement. Focusing only on replacing deficient bridges while 

ignoring preservation needs will be inefficient and cost-prohibitive in 

the long term. Adopting a “worst first” approach to managing bridge 

assets may also yield ineffective results that allows bridges in good

condition to deteriorate into the deficient category which generally is 

associated with higher costs and other challenges. 

The objective of a good bridge preservation program is to employ cost 

effective strategies and actions to maximize the useful life of bridges. 

Applying the appropriate bridge preservation treatments and activities 

at the appropriate time can extend bridge useful life at lower lifetime 

cost. 

Preservation activities often cost much less than major reconstruction

or replacement activities. Delaying or forgoing warranted 

preservation treatments will result in worsening condition and can 

escalate the feasible treatment or activity from preservation to replacement. The latter will result in extensive work and higher cost. A viable 

alternative is timely and effective bridge preservation of sound bridges 

to assure their structural integrity and extend their useful life before

they require replacement. 

1 The theoretical design life of a bridge has been 50 years, but with the evolution of new design guidelines 

and construction materials the anticipated service life for newly constructed bridges is 75 years or greater. 

2
 
II. Purpose
 

This guide provides bridge related definitions and corresponding commentaries, as well as the framework for a systematic approach to a preventive maintenance (PM) program. The goal is to provide guidance 

on bridge preservation. This guide does not create or confer any rights 

for or on any person or operate to bind the bridge owners or bridge 

operating agencies. Bridge owners or agencies may use an alternative 

approach if it satisfies the requirements of the applicable statutes and 

regulations. 

III. Scope 

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

area engineers, bridge owners, and bridge preservation practitioners. 

The success of a viable bridge preservation program will involve these 

individuals as well as others who support the Federal-aid highway 

program. 

IV. Eligibility 

Over the last 30 years, the Congress has provided approximately $77.6 

billion to the States through the Federal-aid bridge program. In 2008, 

Congress renewed emphasis in preservation of our Nation’s bridge 

infrastructure by changing the name from the Highway Bridge Replacement and Rehabilitation Program to the Highway Bridge Program 

(HBP) and adding systematic preventive maintenance (SPM)2 as an 

eligible activity. 

Title 23, United States Code (U.S.C.), Section 144 makes HBP funds 

available for highway bridge replacement and rehabilitation based on

the development of the following: (1) a bridge inventory (National 

Bridge Inventory); (2) a classification system (Deficiency Status and 

Sufficiency Rating); (3) a priority system within the classification system (Sufficiency Rating and Selection List); and (4) a cost evaluation

of the replacement and rehabilitation options. These funds may be expended for replacement, rehabilitation, painting, seismic retrofit, SPM, 

installation of scour countermeasures and application of anti-icing or

de-icing compositions to eligible (i.e., on Selection List) highway bridge 

projects on and off the Federal-aid highways. Additionally, 23 U.S.C. 

144(d) allows these funds to be expended for seismic retrofit, SPM, and 

2 The SAFETEA-LU Technical Corrections Bill was signed into law on June 5, 2008. What was formerly 

known as the Highway Bridge Replacement and Rehabilitation Program in 23 U.S.C. 144 is now legally 

known as the Highway Bridge Program (HBP). The Congress in making this change is placing greater 

emphasis on a program of SPM making HBP funds available for this type activity with less emphasis on 

replacement and rehabilitation. This flexibility allows State transportation departments to determine 

whether to spend HBP funds on replacement, rehabilitation, or SPM. 

3
 
scour countermeasures without regard to whether the bridge is eligible 

for replacement or rehabilitation. 

Please refer to the FHWA memorandum in Appendix C for additional 

information on the use of Federal-aid funds for preventive

maintenance. 

The commentary that follows goes into more detail regarding 

requirements and the kinds of activities included under each category. 

Recall that routine maintenance is ineligible for Federal-aid highway

funding. 

V. Definitions and Related Commentaries 

A successful bridge program is based on a strategic, systematic, and 

balanced approach to managing bridge preservation and replacement 

needs. 

Several definitions are presented within this section along with 

commentary. The definitions are offered as a means of establishing 

clear and consistent terminology for the bridge preservation

practitioners. 

4
 
Bridge Replacement 

Cyclical (Non-Condition 

Based)

Activities 

Condition 

Based 

Activities 

Preventive 

Maintenance 

Rehabilitation 

Bridge Preservation 

Figure 1 – Bridge Action Categories
 

5
 
 

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 bridges, keep bridges in good condition and extend 

their life. Preservation actions may be preventive or condition-driven. 

Source: FHWA Bridge Preservation Expert Task Group.3 

Bridge Preservation – Commentary

Effective bridge preservation actions are intended to delay the need for 

costly reconstruction or replacement actions by applying preservation

strategies and actions on bridges while they are still in good or fair condition and before the onset of serious deterioration. Bridge preservation encompasses preventive maintenance and rehabilitation activities 

(refer to figure 1). 

An effective bridge preservation program: 

 1) Employs long-term strategies and practices at the network level to

 preserve the condition of bridges and to extend their useful life; 

 2) Has sustained and adequate resources and funding sources; and

 3) Has adequate tools and processes to ensure that the appropriate 


 cost effective treatments are applied at the appropriate time. 


Preventive Maintenance – Definition 

Preventive maintenance is a planned strategy of cost-effective treatments to an existing roadway system and its appurtenances that

preserves the system, retards future deterioration, and maintains or

improves the functional condition of the system (without substantially 

increasing structural capacity). Source: AASHTO Subcommittee on 

Maintenance. 

3 This is a definition developed through the Bridge Preservation Expert Task Group that will be vetted 

through the AASHTO Subcommittee on Bridges and Structures (SCOBS) and Subcommittee on 

Maintenance (SCOM) at their 2011 meetings for approval as an AASHTO definition. 

6
 
 

Preventive Maintenance – Commentary

Bridge owners typically apply PM to elements or components of structures with significant remaining useful life. As a major part of bridge 

preservation, PM is a strategy of extending useful life by applying costeffective treatments to sound bridges (good or fair condition). The 

concept of preventive bridge maintenance suggests that a planned strategy of cost-effective treatments should be performed to keep bridges in 

good condition, retard future deterioration, and avoid large expenses in 

bridge reconstruction or replacements. 

Examples of PM activities may include but are not limited to the 

following: 

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Preventive maintenance includes cyclical (non-condition based) and 

condition-based activities as illustrated in figure 1. 

Cyclical Preventive Maintenance Activities – Definition

Activities performed on a pre-determined interval and aimed to preserve existing bridge element or component conditions. Bridge element or component conditions are not always directly improved as a 

result of these activities, but deterioration is expected to be delayed. 

Cyclical Preventive Maintenance Activities – Commentary 

Different performance measures and frequencies could be established 

for cyclical activities based on the desired level of service and program 

goals. For example, a bridge owner may establish performance targets 

for bridges that are on the National Highway System that are different from those for bridges on other roadway systems with lower traffic 

volumes. 

7
 
 

 

 

 

Examples of cyclical PM activities and commonly used frequencies 

that may be considered by bridge owners for implementation on sound 

bridges are shown in table 1 below: 

Cyclical PM Activity Examples Commonly Used 

Frequencies (Years)(4) 

Wash/clean bridge decks or entire bridge 1 to 2 

Install deck overlay on concrete decks such as: 

- Thin bonded polymer system overlays 10 to 15

- Asphalt overlays with waterproof membrane 10 to 15 

- Rigid overlays such as silica fume and latex modiβied 20 to 25 

Seal concrete decks with waterprooβing penetrating sealant 3 to 5 

Zone coat steel beam/girder ends 10 to 15 

Lubricate bearing devices 2 to 4 

(4) – Frequencies are based on FHWA’s knowledge of typical State DOT practices 

Table 1: Examples of Cyclical PM Activities 

Condition Based Preventive Maintenance Activities – Definition 

Activities that are performed on bridge elements as needed and identified through the bridge inspection process. 

Condition Based Preventive Maintenance Activities – 

Commentary

These activities are typically performed on a bridge that is in overall 

good to fair condition to restore bridge elements to a state of good

repair. Similar to cyclical preventive maintenance activities, the 

condition based preventive maintenance activities are designed to

extend the useful life of bridges. 

Examples of condition based preventive maintenance activities include 

but are not limited to: Sealing or replacement of leaking joints; Installation of deck overlays; Installation of cathodic protection (CP) systems; 

Complete, spot, or zone painting/coating of steel structural elements; 

Installation of scour countermeasures. These PM examples may also

be implemented in advance of any condition-based observations. For 

example, installation of scour countermeasures at a substructure

element that is deemed scour susceptible, but before observing any 

scour during the routine inspection. 

Rehabilitation – Definition 

Rehabilitation involves major work required to restore the structural 

integrity of a bridge as well as work necessary to correct major safety 

defects. Source: 23 CFR 650.403(c). 

8
 
Rehabilitation – Commentary

Rehabilitation work can be done on one or multiple elements and/or 

components. Bridge rehabilitation projects are often intended to restore 

the structural integrity of a bridge and correct major safety defects. 

As shown in figure 1, bridge rehabilitation activities are considered 

bridge preservation. However functional improvements such as adding 

a travel lane or raising vertical underclearance, while often is considered as rehabilitation are not considered preservation. 

Bridge rehabilitation projects provide complete or nearly complete 

restoration of bridge elements or components. These projects typically 

require significant engineering resources for design, a lengthy completion schedule, and considerable costs. Most rehabilitation projects include repairs to several bridge components but can be limited to bridge 

deck replacement. 

Examples of bridge rehabilitation include but are not limited to: Partial 

or complete deck replacement; Superstructure replacement; Strengthening. Incidental widening is often associated with some of these 

activities. 

Replacement – Definition

Total replacement of a structurally deficient or functionally obsolete 

bridge with a new facility constructed in the same general traffic corridor. A nominal amount of approach work, sufficient to connect the 

new facility to the existing roadway or to return the gradeline to an

attainable touchdown point in accordance with good design practice is 

also eligible. 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. Source: 

23 CFR 650.405(b)(1). 

Replacement – Commentary

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. 

Bridge replacement is not considered a preservation activity. 

9
 
 

Condition State 

A condition state categorizes the nature and extent of damage or deterioration of a bridge element. The AASHTO Guide Manual for Bridge 

Element Inspection, first edition, 2011, provides detailed information

on bridge elements and their corresponding condition states. According to the AASHTO guide manual, each bridge element can have four 

condition states. The higher the condition state, the higher the severity of the damage and/or deterioration. All elements defined in the 

AASHTO guide manual have the same general requirements: 

1. Standard number of condition states

 2. The condition states are generally comprised of good, fair, poor,


 and severe general descriptions
 

National Bridge Inventory (NBI) General Condition Ratings 

(GCRs) 

General condition ratings 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 Guide5

. Appendix A provides a description for each of these 

numeric values. The GCRs are used in evaluating bridge decks, bridge 

superstructures, bridge substructures, and culverts. 

State of Good Repair (SGR)

A condition in which the existing physical assets, both individually and 

as a system (a) are functioning as designed within their useful service 

life, (b) are sustained through regular maintenance and replacement 

programs. SGR represents just one element of a comprehensive capital 

investment program that also addresses system capacity and 

performance. 6 

Considering the aforementioned characterization of SGR as it applies 

to physical assets, for bridge assets, SGR would mean: the existing 

physical conditions of bridge elements, components or entire bridges 

are such that the bridges (a) are functioning as designed and (b) are 

sustained through regular maintenance, preservation, and replacement 

programs. 

5 FHWA Report number PD-96-001 “Recording and Coding Guide for Structure Inventory and Appraisal 

of the Nation’s Bridges, December 1995”. 

6 Secretary Mary Peters July 25, 2008 letter to Congress on this topic. 

10
 
 

 

Structurally Deficient (SD)

Bridges are considered SD if significant load carrying elements are 

found to be in poor condition due to deterioration and/or damage, or

the adequacy of the waterway opening provided by the bridge is determined to be extremely insufficient to the point of causing overtopping 

with intolerable traffic interruptions. 

SD is numerically defined as follows: 

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 culvert) having an NBI general condition rating of a 4 or less (poor 

 condition) 

or 

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 bridge with a very low load rating capacity, or a bridge that is sub

 ject to overtopping with significant or severe traffic delays). 

For a structure to be considered SD, one of the following items must be 

true7

: 

NBI GENERAL CONDITION RATINGS APPRAISAL RATINGS 

NBI Item# 58 59 60 62 67 71 

Deck Superstructure Substructure Culvert 

Structural 

Evaluation 

Waterway 

Adequacy 

Code <= 4 <= 4 <= 4 <= 4 <= 2 <= 2 

Table 2- SD Criteria 

Examples of Conditions Leading to an SD Classification 

Deck Superstructure Substructure 

7 Each NBI item number shown in the table is further described in the Recording and Coding Guide for 

the Structure Inventory and Appraisal of the Nation’s Bridges. 

11
 
 

Functionally Obsolete (FO)

Bridges are considered FO when the deck geometry, load carrying

capacity (comparison of the original design load to the current State 

legal load), clearance, or approach roadway alignment no longer meet 

the usual criteria for the system of which it is an integral part. In general, FO means that the bridge was built to standards that are not used 

today. Examples of characteristics leading to an FO classification: 

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For a structure to be considered FO, one of the following items must be 

true:

 APPRAISAL RATINGS 

NBI Item # 67 71 68 69 72 

Structural 

Evaluation 

Waterway

Adequacy 

Deck 

Geometry Underclearances 

Approach 

Roadway

Alignment 

Code = 3 = 3 <= 3 <= 3 <= 3 

Table 3 – FO Criteria 

Examples of Characteristics Resulting in FO Classifications 

Shoulder widths less than current standards 

12
 
Vertical Underclearance less than current standards 

Sufficiency Rating (SR)

The sufficiency rating formula provides a method of evaluating highway bridge data by calculating four separate factors to obtain a numeric 

value which is indicative of bridge sufficiency to remain in service. 

The result of this method is a percentage in which 100 percent would 

represent an entirely sufficient bridge and zero percent would represent 

an entirely insufficient or deficient bridge. The formula considers the 

structural adequacy; functional obsolescence and level of service; and 

essentiality for public use. The SR formula is described in Appendix B 

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

Appraisal of the Nation’s Bridges. 

13
 
VI. Systematic Preventive Maintenance (SPM) Program
 

Goals & 

Measures 

Performance 

Evaluation 

Plan 

Implementation 

Work 

Plan 

Budgeting & 

Alternatives 

Evaluation 

Needs 

Assessment 

Inventory & 

Condition 

Assesment 

What is Systematic Preventive Maintenance (SPM)?

The AASHTO Subcommittee on Maintenance’s definition of “preventive maintenance” includes the phrase “a planned strategy of cost-effective treatments.” An SPM program is based on a planned strategy that

is equivalent to having a systematic process that defines the strategy, 

how it is planned, and how activities are determined to be cost effective. 

An SPM program for bridges can be defined as a planned strategy of

cost-effective treatments to existing bridges that are intended to maintain or preserve the structural integrity and functionality of elements 

and/or components, and retard future deterioration, thus maintaining 

or extending the useful life of the bridge. 

14
 
 

 

An SPM program can also be defined as a documented methodology 

regularly applied to repeatedly achieve a desired outcome or goal.

An SPM program may be applied to bridges at the network, highway

system, area wide, or region wide basis. 

A. Qualifying SPM Program Parameters for use of Federal-aid 

 Funds 

23 U.S.C. 144(d) allows HBP funds to be expended for SPM on highway bridges located on public roads regardless of whether a bridge is 

eligible for replacement or rehabilitation. 

Additional information regarding the use of Federal-aid funds for PM 

is found in Appendix C (FHWA memorandum on Preventive Maintenance Eligibility, October 8, 2004). 

The use of a Bridge Management System (BMS) is highly encouraged as 

it facilitates the implementation of an SPM program. However, a BMS 

is not a prerequisite for an SPM program. An acceptable SPM program 

at a minimum should have the following six attributes: 

1. Goals and Objectives – Clearly defined goals and objectives for the 

SPM program.

 2. Inventory and Condition Assessment – Availability of tools and 

 resources to conduct bridge inspections and evaluation.

 3. Needs Assessment - Documented needs assessment process that

 outlines how PM needs are identified, prioritized, and 

 programmed.

 4. Cost Effective PM Activities – Ability to demonstrate that the 

 proposed PM activities are a cost-effective means of extending the 

 life of a bridge.

 5. Accomplishing the Work – Availability of tools and resources to

 accomplish the PM work.

 6. Reporting and Evaluation – Ability to track, evaluate, and report

 on the planned and accomplished PM work on an annual and/or 

as-needed basis. 

15
 
 

 

 

SPM Program Parameters Commentary

1. Goals & Objectives – Clearly defined goals and objectives for the 

 SPM program. 

 As with any effective bridge management program, an SPM program 

 should have objectives and measurable goals. An example of

 objective and overall goal that could be considered in adopting an

 SPM program is shown below. 

tObjective: Implement timely preservation treatments on

 structurally sound bridges, thereby extending their useful life.

 Structurally sound may be defined as having an overall NBI general 

 condition rating of 5 or greater for the deck, superstructure, sub

 structure, or culvert components, or AASHTO Element Condition 

 State of 1 or 2 for the elements associated with the deck, superstruc­

 ture, substructure, and culvert units. 

tOverall Program Goal: Maintain X percent of bridges in a state of

 good repair. 

Measure: Percent of bridges with element condition state ≤ 2. 

 Measure: Percent of bridges with NBI general condition rating ≥ 6.

 Measure: Percent of bridges with Health Index8

 ≥ “X” percent. 

Goals and measures can also be developed for specific PM strategies 

as shown in the following examples. 

Strategies for cyclical PM activities: 

1. Goal: Seal concrete decks with waterproof penetrating sealant 

 every “X” years.

 Measure: Percent of bridge decks sealed annually. 

2. Goal: Paint steel beam/girder ends every “X” years.

 Measure: Percent of beam/girder ends painted annually. 

3. Goal: Bridges are clean and free of debris and contaminating 

 chemicals.

 Measure: Percent of bridges washed/cleaned annually. 

8 Health Index or HI is used for the calculation of a single integral indicator of the structural health of the 

bridge. This indicator is expressed as a percentage value. This value may vary from 0%, which corresponds 

to the worst possible condition, to 100% in the best condition. Health index is calculated as a function of 

the fractional distribution of the bridge elements’ quantities across the range of their applicable condition 

states (CS). 

16
 
 

 

 

 

 

 

Strategies for condition-based PM activities: 


1. Goal: - Maintain “X” percent of expansion joints in condition 

 state 2 or better. 

 Measure: Percent of expansion joints in condition state 2 or

 better. 

2. Goal: Maintain “X” percent of coated steel surfaces in good

 condition.

 Measure: Percent of steel protective coating element in condi­

 tion state 2 or better.

 Measure: Percent of steel bridges with NBI general condition 

 rating of 6 or better for the superstructure. 

3. Goal: Maintain “X” percent of bridge decks in good condition. 

Measure: Percent of deck and slab elements in condition state 

 2 or better.

 Measure: Percent of bridges with NBI general condition 

 rating of 6 or better for the deck. 

4. Goal: All bridges are clean and free of debris.

 Measure: Any reported debris cleared within “X” days of

 notification. 

For additional examples of qualifying PM activities refer to section 

VI. B. 

An agency may wish to consider establishing different goals for different highway systems, functional classifications, or Average Daily 

Traffic (ADT) ranges. 

2. Inventory and Condition Assessment - Availability of tools and

 resources to conduct bridge inspections and evaluation.

 The foundation of a good SPM program is based on the availability 

 of quality inspection data and condition assessment outcomes from

 that data. Inventory and condition data are collected by bridge 

 owners in accordance with the NBI and the National Bridge 

 Inspection Standards. NBI general condition ratings are assigned by

 bridge inspectors during each inspection cycle for major 

 components: deck, superstructure, substructure, and culvert (see 

 appendix A). In addition to the NBI general condition rating for 

17
 
 

 

 bridge components, the majority of State DOTs have also been 

 collecting bridge element inspection data9

. Bridge element data can 

 be very instrumental in the implementation of various aspects of

 bridge management strategies including bridge preservation. 

3. Needs Assessment - Documented needs assessment process that

 outlines how PM needs are identified, prioritized and pro­

 grammed.

 An SPM program should include a needs assessment that describes 

 the bridge owner’s plan for identifying and prioritizing needs. 

Examples of components of a needs assessment include the following: 

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 assessment, such as annually or biennially. 

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 querying and the identification, quantification, and ranking of

 PM work candidates. 

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 the established program goals. 

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4. Cost Effective PM Activities – Ability to demonstrate that the pro 

 posed PM activities are a cost-effective means of extending the life 

 of a bridge.

 The examples of PM activities found in Section IV.B of this guide 

 may be considered cost effective when applied to the appropriate 

 bridges at the appropriate time using quality materials and 

 workmanship. For example, painting a steel superstructure with

 severe deterioration and section loss resulting in significant 

 reduction in the load carrying capacity of the bridge may not be

 considered cost effective, but painting a steel superstructure that is in 

 fair condition where the structural load carrying capacity has not 

 been adversely affected may be considered cost effective given that

 the entire bridge is expected to have a significant remaining life.

 Multiple activities may be warranted on single or multiple bridge 

 elements or components when planning and accomplishing bridge 

 work. Addressing the root cause of bridge problems is a key strategy

 to a successful bridge program. For example, an ineffective strategy

 9AASHTO Guide Manual for Bridge Element Inspection, first edition, 2011 

18

 would be repainting a partially failed paint zone along the beam ends 

 and repairing deterioration on a pier cap located beneath a leaking 

 deck joint without arresting the water leakage onto the 

 superstructure and substructure elements. In addition to the beam

 zone painting and repairing the deterioration on the pier cap, sealing 

 or replacing the leaking deck joint is an equally important 

 preservation activity. 

 Further examples will be found in Section VI.B, but other qualifying

 activities may be presented to the FHWA Division Office for 

 consideration and approval on a case-by-case basis. SPM program 

 attributes 5 and 6 discussed below are essential in evaluating the 

 effectiveness of employed PM activities and strategies and the impact

 of these activities and strategies on extending the life of the bridge 


 assets.
 

5. Accomplishing the Work – Availability of tools and resources to

 accomplish the PM work.

 The SPM program should have the means to deliver the qualifying

 PM activities and comply with all applicable Federal, State, and Local 

 requirements. 

6. Reporting and Evaluation – Ability to track, evaluate, and report

 on the planned and accomplished PM work on an annual and/or 

as needed basis. 

 The SPM program should have the means to report on all planned 

 and accomplished PM work on a periodic basis, such as annually or

 biennially.

 The SPM program should track and report on costs, both by work 

 type (e.g., $/sq ft for deck sealing), and in the aggregate (e.g., amount

 expended for deck sealing this year).

 The SPM program should track expenditures over time. In most 

 cases this would be the dollars expended annually for the SPM 

 program to allow the expenditures to be compared with the 

 condition of the system to ensure that the investment is providing 

 the return expected.

 In addition to the above discussed program attributes, the process 

 map shown in figure 3 can be used to assist in the evaluation process 

 of an agency’s systematic process to determine the eligibility of PM 

 activities for Federal-aid funds. 

19

 

 

 

 

 

 

 

 

Systematic Process 

7. 

Demonstrate Cost 

Effectiveness 

? 

8. 

Demonstrate 

extension of life 

? 

YES 

Implement Systematic 

Process for Preventive 

Maintenance(PM) 

NO 

NO 

1. 

Define How 

the Needs are 

ID? 

2. 

Prioritize the 

Need 

? 

3. 

Program Remedy

 to address the 

Need? 

4. 

Define Outcome 

? 

5. 

ID Resources 

to achieve goal 

? 

6. 

Define Timelines 

and/or timeframes 

? 

9. 

Dedicate adequate 

resources 

? 

Application does not 

meet the systematic 

process criteria 

NO 

YES 

YES 

YES 

YES 

YES 

YES 

YES 

YES 

NO 

NO 

NO 

NO 

NO 

NO 

Track the Progress 

Review Application for 

Systematic Process. : 

Does it 

Use of Federal-aid 

funds not appropriate

 for PM activities 

Adjust as necessary 

to reach goal 

And/or Goal 

Figure 3 – Systematic Process 

20
 
 

 

 

 

 

 

 

 

B. Examples of PM activities that may extend the life of bridges 

This section presents several examples of PM activities and treatments 

that may be considered cost effective when applied to the appropriate 

bridges at the appropriate time using quality material and workmanship as discussed in section VI-A of this document. These examples are 

not intended to be all inclusive. 

Decks: 

1. Seal or replace leaking joints or eliminate deck joints - minimizes 

the deterioration of superstructure and substructure elements 

 beneath the joints. 

2. Deck overlays - significantly increase the life of the deck by sealing 

of aging and weathering. Overlay systems include waterproofing

membrane with asphaltic concrete overlay, low permeability or high 

performance concrete overlays, and methyl methacrylate and 

 polymer-system overlays. 

the deck surface from aggressive solutions and reducing the impact

fi l h l f f h d k b l

3. Cathodic Protection (CP) systems for bridge decks - proven 


technology for stopping the corrosion of reinforcing steel.
 

4. Electrochemical Chloride Extraction

 (ECE) treatment - removes the chloride 

 ions from the vicinity of the reinforcing 

 steel and thus eliminates the source of

 corrosion. 

5. Concrete deck repairs in conjunction with installation of deck 

overlays, CP systems, or ECE treatment - proven technology for 

 stopping the corrosion of reinforcing steel. 

21
 
 

 

 

 

 

 

Superstructure:

6. CP systems for superstructure elements other than decks - proven 

 technology for stopping the corrosion of reinforcing steel. 

7. Spot and zone painting/coating - protects against corrosion. Target 

areas where the paint deteriorates the fastest to slow the deterioration process and thus extend the life of the paint system and the 

 painted element. 

8. Painting/coating or overcoating of structural steel - protects 

against corrosion. Reduces the deterioration of the structural steel. 

9. Retrofit of fracture critical members ­

methods to add redundancy to the 

structure such as installing a redundant

catch system for pin and link assemblies. 

10. Retrofit of fatigue prone details - methods to increase the life of

 fatigue prone details, such as using ultrasonic impact treatment on

 welds at ends of cover plates or connection plate welds not 

 positively connected to flanges or other conventional fatigue retrofit

 methods. 

Substructure: 

11. CP systems for substructure elements - proven technology for 

 stopping the corrosion of reinforcing steel. 

22
 
 

 

 

12. ECE treatment for substructure 

 elements - removes the chloride ions

 from the vicinity of the reinforcing steel 

 and thus eliminates the source of corrosion. Can be very effective when the 

 source of chlorides is eliminated. 

13. Installation of scour countermeasures ­

 protects the substructure elements from

 undermining and failure due to scour. 

14. Removing large debris from channels ­

 prevents channel bed material from

 scouring. 

15. Substructure concrete repairs in conjunction with installation 

 of CP systems or ECE treatment ­

 proven technology for stopping the 

 corrosion of reinforcing steel. 

16. Installation of jackets with CP 

 systems around concrete piles– protects 

 against corrosion and deterioration. 

Deck, Superstructure and Substructure: 

17. Bridge cleaning and/or washing services –

 cleaning of decks, joints, drains, superstruc­

 ture, and substructure horizontal elements. 

 Slows the deterioration of concrete and steel 

 elements since debris, bird droppings, and 

contaminants in conjunction with water will 

 accelerate the deterioration of concrete and 

 steel elements. Histoplasmosis from bird

droppings is a known health hazard to inspectors and maintenance personnel. 

23
 
 

 

18. Application of concrete sealants, coat­

 ings, and membranes for surface protec­

 tion of the concrete - protect the rein

 forcing steel from corrosion by stopping 

 or minimizing the intrusion of water and 

 chloride through the concrete. 

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Appendix A – National Bridge Inventory General Condition 

Rating Guidance 

Code Description Feasible Actions 

Commonly Employed 

9 EXCELLENT CONDITION 

8 VERY GOOD CONDITION No problems noted. Preventive Maintenance 

7 GOOD CONDITION Some minor problems. 

6 SATISFACTORY CONDITION Structural elements show some 

minor deterioration. 

Preventive Maintenance; 

and/or Repairs 

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 trafβic but corrective action may 

put back in light service. 

0 FAILED CONDITION Out of service - beyond corrective action. 

Appendix B- Bridge Element Condition State Guidance10 

Condition 

State Description Commonly Employed Feasible Actions 

1 Varies depending on element – Good Preventive Maintenance 

2 Varies depending on element – Fair Preventive Maintenance or 

Repairs

3 Varies depending on element – Poor Rehabilitation 

4 Varies depending on element - Severe Rehabilitation or Replacement 

10AASHTO Guide Manual for Bridge Element Inspection, first edition, 2011 

25 
Appendix C - Resources 

AASHTO’s TSP2 – AASHTO has created the Transportation System 

Preservation Technical Services Program that provides services on

pavement and bridge related preservation topics. Information on TSP2 

can be found at the following Web site: http://www.tsp2.org 

AASHTO Bridge Element Inspection Manual - Contains guidance 

on collecting element level inspection data. This manual is available 

for purchase at the following web site: https://bookstore.transportation.

org/collection_detail.aspx?ID=97 

FHWA Resource Center – The Structures Technical Services Team 

provides technical assistance, technology deployment and training. 

Information on the FHWA RC can be found at the following Web site: 

http://www.fhwa.dot.gov/resourcecenter/teams/structures/index.cfm 

FHWA Turner–Fairbank Highway Research Center - The FHWA 

Infrastructure Research and Development (R&D) program provides 

technologies and solutions to advance practices in highway infrastructure engineering. Information on the FHWA TFHRC can be found at 

the following Web site: http://www.fhwa.dot.gov/research/tfhrc/pro­ grams/infrastructure/index.cfm 

FHWA Office of Bridge Technology - Offers assistance in the areas of 

bridge design, construction, inspection and preservation. Information 

on the FHWA Office of Bridge technology can be found at the following Web site: http://www.fhwa.dot.gov/bridge/ 

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. Information 

on the FHWA Office of Asset Management can be found at the following Web site : http://www.fhwa.dot.gov/infrastructure/asstmgmt/index. cfm 

FHWA’s Recording and Coding Guide for the Structure, Inventory

and Appraisal of the Nation’s Bridges is located at: http://www.fhwa. 

dot.gov/bridge/bripub.htm 

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Appendix D –Preventive Maintenance Eligibility Memorandum
 

U.S. Department of MEMORANDUM 

Transportation 

Federal Highway 

Administration 

Subject: ACTION: Preventive Maintenance Eligibility Date: October 8, 2004 

From: /s/ Original signed by: Refer To: HIAM-20 

King W. Gee 

Associate Administrator for Infrastructure 

To: Directors of Field Services 

Division Administrators 

Federal Lands Highway Division Engineers 

Timely preventive maintenance and preservation activities are necessary to ensure proper performance 

of the transportation infrastructure. Experience has shown that when properly applied, preventive 

maintenance is a cost-effective way of extending the service life of highway facilities and therefore is 

eligible for Federal-aid funding. By using lower-cost system preservation methods, States can improve 

system conditions, minimize road construction impacts on the traveling public, and better manage their 

resources needed for long-term improvements such as reconstruction or expansion. Preventive 

maintenance offers State DOT's a way of increasing the return on their infrastructure investment. 

During the 1990's, Congress incrementally broadened, through legislation, the applicability of Federal-aid 

funding to preventive maintenance activities. Congress' acknowledgement of preventive maintenance 

activities as an eligible activity on Federal-aid highways is a logical step that reinforces the importance of 

implementing a continuing preventive maintenance program. Each of these actions was conveyed to the 

field through a series of memoranda. This policy memorandum supersedes the related memoranda listed 

in the attachment. 

The FHWA division offices have an important role in promoting system preservation and are encouraged 

to work closely with their State DOT counterparts to establish a program that identifies eligible preventive 

maintenance measures for all roadway assets on Federal-aid highways. The AASHTO defined preventive 

maintenance "as the planned strategy of cost effective treatments to an existing roadway system and its 

appurtenances that preserves the system, retards future deterioration, and maintains or improves the 

functional condition of the system without increasing structural capacity." Projects that address 

deficiencies in the pavement structure or increase the capacity of the facility are not considered 

preventive maintenance and should be designed using appropriate 3R standards. Functionally, Federalaid eligible preventive maintenance activities are those that address aging, oxidation, surface 

deterioration, and normal wear and tear from day-to-day performance and environmental conditions. 

Preventive maintenance activities extend the service life of the roadway asset or facility in a cost-effective 

manner. 

Division offices should proactively work with their State partners to establish a preservation component, 

which is composed of various preventive maintenance activities and treatments. These include roadway 

activities such as joint repair, seal coats, pavement patching, thin overlays, shoulder repair, restoration of 

drainage systems, and bridge activities such as crack sealing, joint repair, seismic retrofit, scour 

countermeasures, and painting. Many other activities that heretofore have been considered routine 

maintenance may be considered Federal-aid eligible on an area-wide or system-wide basis as preventive 

maintenance (i.e., extending the service life). This might include such work items as regionwide projects 

for periodic sign face cleaning, cleaning of drainage facilities, corrosion protection, spray-applied sealant 

for bridge parapets and piers, etc. These typical preventive maintenance work items are not intended to 

be all-inclusive but are rather a limited list of examples. 

The final eligibility determination should be the result of collaboration between the division and the State 

DOT. This determination should be based on sound engineering judgment and economic evaluation, 

allowing flexibility in determining cost-effective strategies for extending the service life of existing 

pavements, bridges, and essential highway appurtenances on Federal-aid highways. 

All preventive maintenance projects should consider appropriate ways to maintain or enhance the current 

level of safety and accessibility. Isolated or obvious deficiencies should always be addressed. Safety 

enhancements such as the installation or upgrading of guardrail and end treatments, installation or 

replacement of traffic signs and pavement markings, removal or shielding of roadside obstacles, 

mitigation of edge drop offs, the addition of paved or stabilization of unpaved shoulders, or installation of 

milled rumble strips should be encouraged and included in projects where they are determined to be a 

cost effective way to improve safety. To maintain preservation program flexibility, and in accordance with 

27
 
 

 

 

 

 

 

 

 

 

 

23 U.S.C. 109(q), safety enhancements can be deferred and included within an operative safety 

management system or included in a future project in the STIP. In no way shall preventive maintenance 

type projects adversely impact the safety of the traveled way or its users. 

As with any Federal-aid project, adequate warning devices for highway-rail grade crossings within the 

project limits or near the terminus shall be installed and functioning properly per 23 CFR 646 before 

opening the project to unrestricted use by traffic. For projects on the NHS, all traffic barriers shall comply 

with the FHWA September 29, 1994, memorandum entitled Traffic Barrier Safety Policy and Guidance, 

signed by E. Dean Carlson. This work can be accomplished by force account or through other existing 

contracts prior to final acceptance. 

The FHWA supports the increased flexibility for using Federal-aid funding for cost-effective preventive 

maintenance. The Maintenance Quality Action Team (MQAT) is developing technical guidance on 

preventive maintenance activities and transportation system preservation as a whole; that technical 

guidance is under development and will be issued in the near future. For further information please 

contact Christopher Newman of the Office of Asset Management, at (202) 366-2023 or 

Christopher.newman@fhwa.dot.gov, or visit the Transportation System Preservation website at 

http://www.fhwa.dot.gov/preservation/. 

Attachment 

Attachment: Memoranda Superseded by Preventive Maintenance Memorandum 

01/27/04 Stewardship of Preservation and Maintenance 

01/11/02 HBRRP Funds For Preventive Maintenance (23 U.S.C. 116(d)) 

10/30/98 Implementation of TEA-21 Interstate Maintenance Guidelines 

08/19/98 Phase Construction for Safety Considerations 

06/18/97 Transportation System Preservation 

03/21/96 Preventive Maintenance Revision to 23 U.S.C. 116 

10/12/93 Safety and Geometric Considerations for Interstate Maintenance Program Projects 

06/14/93 Interstate Maintenance Program 

07/27/92 Preventive Maintenance 

05/21/92 1991 Intermodal Surface Transportation Efficiency Act (ISTEA) Implementation Interstate 

Maintenance Program 

28
 

Publication No. FHWA-HIF-11-042