State Highway Infrastructure Report - Tennessee - State - Reporting - Transportation Performance Management

State Highway Infrastructure Report - Tennessee

The information below summarizes the TPM Highway Infrastructure performance measures, which include four pavement condition measures and two bridge condition measures. Per 23 CFR 490, State Departments of Transportation (DOTs) are required to establish 2- and 4-year targets for these measures. The targets should represent the anticipated condition/performance at the mid-point and end of the 4-year performance period. State DOTs establish targets at the beginning of each 4-year performance period, and report on progress every two years. When establishing targets, State DOTs have the flexibility to use the methodology they deem most appropriate. FHWA encourages States to review data sets and trends and consider factors that may affect targets. Performance targets should be data-driven, realistic, and attainable and should align with the performance management framework and legislative intent.

The targets and discussion of basis for targets, optional adjustment of targets, progress, and planned activities were provided by the State DOT in its most recent biennial performance report. FHWA has not edited this information. It is provided to help bring context to the State DOT’s performance targets and progress. The data in the tables and graphs is from the biennial performance report or HPMS data submittal as noted below each measure summary. Any questions about the information should be directed to the State DOT.

Data reported by State DOTs was collected in the previous year, representing the condition/performance at the time of collection. Thus, in the tables and graphs below, FHWA labels data with the year representing the condition/performance, rather than the year the data was reported. The same thing is done for the targets--the year represents when the corresponding actual condition/performance data will be collected, not reported. More Information.

Significant Progress Determination
FHWA determines significant progress for these measures after the mid-point and end of each performance period. A State has met or made significant progress toward target achievement if “actual” condition/performance is equal to or better than the established two-year target or “actual” condition/performance is better than baseline performance 23 CFR 490.109(e). As provided in 23 CFR 490.107(b)(2)(ii)(A), baseline condition/performance is derived from the latest data collected through the beginning date of the performance period. FHWA will classify the assessment of progress toward the achievement of an individual 2-year or 4-year target as “progress not determined” if a State provides the extenuating circumstance information required in 23 CFR 490.109(e)(5), and FHWA accepts the information.

Most recent Significant Progress Determination for the Infrastructure measures

Most Recent Significant Progress Determination for all applicable measures

Interstate Pavement in Good Condition
- Trend through 2021
  
  Desired trend: ↑
  
  Tennessee % Interstate Lane Miles Good Condition
Interstate Pavement in Good Condition 2017 2018 2019 2020 2021

Condition/Performance -- 72.0 71.5 71.7 70.8

Target -- -- -- -- 60.0

Behind the data: For the first performance period only, baseline condition and 2-year targets are not required for the Pavements on the Interstate System measures.
Interstate Pavement in Good Condition
The 4-year target selected considers four years’ worth of projected decline plus a percentage equivalent to the expected variability for the % cracking individual distress metric, which could affect interstate pavement condition ratings.
Network analysis findings indicate funding required to affect good rating values is significant while funding required to maintain percent poor is minimal.
Based on full distress measure, all three pavement distresses must be rated as good for an overall good rating; variability with percent cracking distress data has potential to impact good values significantly (as much as 8%).

N/A

N/A

N/A

The actual condition for interstates in good condition for this performance cycle is 70.8% which outperforms the 60.0% target. TDOT expects to meet the significant progress determination for this measure. Since the mid-performance report, TDOT has been able to provide resurfacing preservation treatments to approximately 688 miles of interstate.
TDOT has funding that is devoted specifically to the interstate resurfacing program. This funding has remained consistent over many years, but has allowed for increases when deemed necessary. This includes an additional $18M allotted to the interstate resurfacing program in FY21. Increased use of pavement management data as a resource for efficient resurfacing project selection is expected to have contributed to success in meeting targets.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2019, 2020, 2021, 2022 HPMS Data Submittal

Interstate Pavement in Good Condition	2017	2018	2019	2020	2021
Condition/Performance	--	72.0	71.5	71.7	70.8
Target	--	--	--	--	60.0

Interstate Pavement in Poor Condition
- Trend through 2021
  
  Desired trend: ↓
  
  Tennessee % Interstate Lane Miles in Poor Condition
Interstate Pavement in Poor Condition 2017 2018 2019 2020 2021

Condition/Performance -- 0.3 0.3 0.2 0.2

Target -- -- -- -- 1.0
Behind the data: For the first performance period only, baseline condition and 2-year targets are not required for the Pavements on the Interstate System measures.
Interstate Pavement in Poor Condition
Based on network analysis of pavement management data, it is expected that values for % poor will stay within reasonable range of recent historical observations. Thus, targets were set within a similar range.
Minimum pavement condition requirement for Interstates is no more than 5.0% in poor condition.

N/A

N/A

N/A

The actual condition for interstates in poor condition for this performance cycle is 0.2% which outperforms the 1.0% target. TDOT’s percentage of interstate pavements in poor condition has decreased since the baseline of 0.3% in 2018. TDOT expects to meet the significant progress determination for this measure.
TDOT has funding that is devoted specifically to the interstate resurfacing program. This funding has remained consistent over many years, but has allowed for increases when deemed necessary. This includes an additional $18M allotted to the interstate resurfacing program in FY21. Increased use of pavement management data as a resource for efficient resurfacing project selection is expected to have contributed to success in meeting targets. Additionally, select interstate sections which were affecting or projected to affect % Poor ratings were rehabilitated contributing positively to results.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2019, 2020, 2021, 2022 HPMS Data Submittal

Interstate Pavement in Poor Condition	2017	2018	2019	2020	2021
Condition/Performance	--	0.3	0.3	0.2	0.2
Target	--	--	--	--	1.0

Non-Interstate National Highway System (NHS) Pavement in Good Condition (Full-distress + IRI)
- Trend through 2021
  
  Desired trend: ↑
  
  Tennessee % Non-Interstate NHS Lane Miles In Good Condition

Non-Interstate National Highway System (NHS) Pavement in Good Condition (Full-distress + IRI)	2017	2018	2019	2020	2021
Condition/Performance	--	--	41.6	41.9	40.3
Target	--	--	42.0	--	40.0

Behind the data: Because Tennessee State DOT has established targets based on full-distress plus IRI data, FHWA has calculated the value for Actual using full-distress plus IRI data for assessing target achievement.
Non-Interstate National Highway System (NHS) Pavement in Good Condition (Full-distress + IRI)
Non-interstate targets are based on the "full measure" as defined in 23 CFR 490.313(c), not IRI alone as defined in paragraph e of the same section. Targets were established per the full measure on time in accordance with the law as defined in 23 CFR 490.105(e). Using the “full measure”, TDOT estimated a baseline value of 44.8%. Performance projections of the full measure at current funding levels extended below what TDOT considers an acceptable state of good repair, so a minimum target was selected within range of TDOT’s historical state of good repair.
Performance projections using IRI alone, in which projected decline is much less severe, indicate non-interstate NHS % Good will be 72.8% at the mid-performance period and 72.2% by the end of the performance period.

The 2-year target of 41.6 was not met by a margin of 0.4%. The baseline value per the “full measure” was 44.8%, indicating a 2-year decline of 3.2%. Local state-of-good-repair metrics indicate a slow decline in the condition of the non-interstate NHS. It is expected that the end-of-cycle 4-year calculation will be very close to the 4-year target value.

N/A

In late 2020, funding for the state route resurfacing program was increased from $164-milion to $195-million. These added funds will affect the 2021 resurfacing year but are expected to not affect reported condition data until the 2022 data collection period. Thus, benefits from the increase may not be visible until the next performance cycle. Increased use of pavement management data in support of project selection is expected to improve efficiency in meeting targets, but as this program evolves we expect it will take a few more years before positive results are observed.

In late 2020, funding for the state route resurfacing program was increased from $161 million to $195 million. The added funds were expected to begin showing positive impacts to reported condition during the 2022 data collection period and were not expected to be realized during this performance cycle. TDOT’s actual performance of Non-interstate NHS pavements in good condition is 40.3% which narrowly outperforms the 40.0% target. TDOT expects to meet the requirements for a significant progress determination for this measure. Since the mid-point performance report, TDOT has been able to provide resurfacing or preservation treatments to approximately 729 miles of state routes.
TDOT has funding that is devoted specifically to the resurfacing program. This funding has remained consistent over many years, but has allowed for increases when deemed necessary. Increased use of pavement management data as a resource for efficient resurfacing project selection is expected to have contributed to success in meeting targets. The Department has also implemented a notable preservation program including treatments such as microsurface, scrub seals, thin overlays, chip seals and in-place recycling. Implementation of these work types has diversified project selection and increased TDOT’s ability to identify cost-effective solutions.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2020, 2021, 2022 HPMS Data Submittal

Non-Interstate National Highway System (NHS) Pavement in Good Condition (IRI Only)
- Trend through 2021
  
  Desired trend: ↑
  
  Tennessee % Non-Interstate NHS Lane Miles In Good Condition
Non-Interstate National Highway System (NHS) Pavement in Good Condition (IRI Only) 2017 2018 2019 2020 2021

Condition/Performance 72.7 69.7 70.6 70.2 69.9
Behind the data: For the first performance period, FHWA has calculated the values for Baseline and Actual using International Roughness Index (IRI) only (or Present Serviceability Rating (PSR) values for road sections where speed is less than 40 mph) for assessing condition change from the baseline.
Non-Interstate National Highway System (NHS) Pavement in Good Condition (IRI Only)
See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2018, 2019, 2020, 2021, 2022 HPMS Data Submittal

Non-Interstate National Highway System (NHS) Pavement in Good Condition (IRI Only)	2017	2018	2019	2020	2021
Condition/Performance	72.7	69.7	70.6	70.2	69.9

Non-Interstate National Highway System (NHS) Pavement in Poor Condition (Full-distress + IRI)
- Trend through 2021
  
  Desired trend: ↓
  
  Tennessee % Non-Interstate NHS Lane Miles In Poor Condition

Non-Interstate National Highway System (NHS) Pavement in Poor Condition (Full-distress + IRI)	2017	2018	2019	2020	2021
Condition/Performance	--	--	4.0	4.0	4.1
Target	--	--	4.0	--	5.0

Behind the data: Because Tennessee State DOT has established targets based on full-distress plus IRI data, FHWA has calculated the value for Actual using full-distress plus IRI data for assessing target achievement.
Non-Interstate National Highway System (NHS) Pavement in Poor Condition (Full-distress + IRI)
Non-interstate targets are based on the "full measure" as defined in 23 CFR 490.313(c), not IRI alone as defined in paragraph e of the same section. Targets were established per the full measure on time in accordance with the law as defined in 23 CFR 490.105(e) and may be adjusted during the mid-performance period. Using the “full measure”, TDOT estimated a baseline value of 3.2%. Based on network analysis of the full measure using pavement management data, it is expected that values for % Poor will stay within reasonable range of recent historical observations. Thus, targets were set within a similar range.
Historical calculations of using IRI alone indicate a gradual increase in %Poor. Projects for 2019 and 2021 % Poor using IRI alone are 7.0 and 7.3%, respectively.

The 2017 baseline data calculated by TDOT for the "full measure" was 3.24%. TDOT estimates the percentage of Poor routes will continue to increase at a similar rate of 0.4% per year for the remainder of the performance cycle.

TDOT is already at the target level for poor routes at the mid-point of the performance cycle. We are also observing an increase in poor routes and expect the percentage of Poor routes will continue to increase at a similar rate of 0.4% per year for the remainder of the performance cycle. Use of pavement management data in support of project selection is expected to improve efficiency in meeting targets, but as this program evolves we expect it will take a few more years before positive results are observed.

In late 2020, funding for the state route resurfacing program was increased from $164-milion to $195-million. These added funds will affect the 2021 resurfacing year but are expected to not affect reported condition data until the 2022 data collection, 2023 reporting. Thus, benefits from the increase may not be visible until the next performance cycle. Additionally, use of pavement management data in support of project selection is expected to improve efficiency in meeting targets, but as this program evolves we expect it will take a few more years before positive results are observed.

In late 2020, funding for the state route resurfacing program was increased from $161 million to $195 million. The added funds are expected to begin showing positive impacts to reported condition during the 2022 data collection period and were not expected to be realized during this performance cycle. TDOT’s actual performance of Non-interstate NHS pavements in poor condition is 4.1% which outperforms the 5.0% target. TDOT expects to meet the requirements for a significant progress determination for this measure. Since the mid-point performance report, TDOT has been able to provide resurfacing or preservation treatments to approximately 729 miles of state routes.
TDOT has funding that is devoted specifically to the resurfacing program. This funding has remained consistent over many years, but has allowed for increases when deemed necessary. Increased use of pavement management data as a resource for efficient resurfacing project selection is expected to have contributed to success in meeting targets. The Department has also implemented a notable preservation program including treatments such as microsurface, scrub seals, thin overlays, chip seals and in-place recycling. Implementation of these work types has diversified project selection and increased TDOT’s ability to identify cost-effective solutions.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2020, 2021, 2022 HPMS Data Submittal

Non-Interstate National Highway System (NHS) Pavement in Poor Condition (IRI Only)
- Trend through 2021
  
  Desired trend: ↓
  
  Tennessee % Non-Interstate NHS Lane Miles In Poor Condition
Non-Interstate National Highway System (NHS) Pavement in Poor Condition (IRI Only) 2017 2018 2019 2020 2021

Condition/Performance 6.7 7.6 7.6 7.6 7.5
Behind the data: For the first performance period, FHWA has calculated the values for Baseline and Actual using International Roughness Index (IRI) only (or Present Serviceability Rating (PSR) values for road sections where speed is less than 40 mph) for assessing condition change from the baseline.
Non-Interstate National Highway System (NHS) Pavement in Poor Condition (IRI Only)
See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.

See Full-distress + IRI above.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2018, 2019, 2020, 2021, 2022 HPMS Data Submittal

Non-Interstate National Highway System (NHS) Pavement in Poor Condition (IRI Only)	2017	2018	2019	2020	2021
Condition/Performance	6.7	7.6	7.6	7.6	7.5

National Highway System (NHS) Bridges in Good Condition
- Trend through 2021
  
  Desired trend: ↑
  
  Tennessee % Deck Area in Good Condition on NHS Bridges

National Highway System (NHS) Bridges in Good Condition	2017	2018	2019	2020	2021
Condition/Performance	39.5	36.8	35.1	33.2	32.5
Target	--	--	36.0	--	36.0

National Highway System (NHS) Bridges in Good Condition
TDOT utilized National Bridge Inventory (NBI) historic data to derive a percentage of bridge deck in Good Condition for the years 2011 – 2017. The analysis of the data revealed a linear trend that has remained fairly constant over this time period. TDOT’s bridge program funding has remained relatively stable with bridge program replacement and repair projects helping to maintain fairly consistent good condition levels slightly above 40%.
Key influencing factors for target setting include age of infrastructure assets. The average age of Tennessee bridges is currently 42 years. As bridges continue to age, deterioration rate for bridge inventory increases. Growing truck traffic on the highway system is also likely to accelerate the overall deterioration of the bridge inventory
TDOT has received additional state funding for bridge replacements and other transportation improvements due to the IMPROVE Act passage in 2017. Some of the funding can be used to address NHS bridge condition, however, the time required to develop and deliver these new projects will generally exceed the timeline (2018-2021) covered by the performance targets. With all of these factors, TDOT expects a gradual decline so that the good condition will remain at or above 36.0% through the first four year reporting period.

TDOT missed the “good” mid-year target by 0.9% based on our initial goal. We understand the average age and number of bridges in our inventory will lead to a decline in the network overall condition. Our efforts to address this include the development of asset preservation projects designed to extend the current condition of various bridge elements. TDOT has instituted various deck preservation initiatives including epoxy deck seals, concrete overlays, and polymer concrete overlays to mitigate the damaging effects of chloride penetration into the bridge decks and beam ends. Results of these efforts should be reflected in the next reporting cycle as many of these bridges will have new inspection data uploaded.

N/A

TDOT has increased funding for preservation efforts. The impacts of this funding increase should be reflected in the next reporting cycle. as TDOT has instituted various deck preservation initiatives to mitigate the damaging effects of chloride penetration into the bridge decks and beam ends.

TDOT’s expected performance for the percent of bridges in good condition for calendar year 2021 is 32.5% which is not expected to meet the requirements for a significant progress determination. The target of 36% of bridges in good condition was set using historical trend data and linear projection of future condition. The target was overly optimistic and did not adequately account for increased deterioration due to age of structures. Bridges in good condition have been declining from 2016 to 2021 and the average age of TDOT-maintained bridges is approximately 48 years which is a typical age for bridges rated in fair condition. The target was also selected with the expectation that more bridge projects included in the IMPROVE Act would be completed during the performance period. The fuel tax increases contained within the IMPROVE Act were not indexed for inflation which has slowed TDOT’s ability to complete the projects identified in the act. Of the 962 projects identified in the IMPROVE Act, 689 are devoted to improving bridges.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2018, 2019, 2020, 2021, 2022 NBI Data Submittal

National Highway System (NHS) Bridges in Poor Condition
- Trend through 2021
  
  Desired trend: ↓
  
  Tennessee % Deck Area in Poor Condition on NHS Bridges

National Highway System (NHS) Bridges in Poor Condition	2017	2018	2019	2020	2021
Condition/Performance	3.5	3.8	4.1	4.6	5.0
Target	--	--	6.0	--	6.0

National Highway System (NHS) Bridges in Poor Condition
TDOT utilized NBI historic data to derive a percentage of bridge deck in Poor Condition for the years 2011 – 2017. The analysis of the data revealed a linear trend that has remained relatively constant over this time period demonstrating a gradual increase in percent of bridges in poor condition. TDOT’s bridge program funding has remained relatively stable from 2011-2017.
The average age of Tennessee’s bridge inventory is currently 42 years; as bridges continue to age, a gradual decline in condition is anticipated. Growing truck traffic on the highway system is also likely to accelerate the overall deterioration of the NHS bridge inventory.
Other factors that were considered in the target setting process include the uncertainties in Federal funding which can impact certain aspects of TDOT’s bridge program. Additionally, potential changes in condition of large area bridges can have significant impact. For example, data from 2015-2017 showed where three large structures influenced percentage poor rating increase by 3% due to isolated issues needing repair.
TDOT has received additional state funding for bridge replacements and other transportation improvements due to the IMPROVE Act passage in 2017. Some of the funding can be used for NHS bridge condition, however, the time required to develop and deliver these new projects will generally exceed the timeline (2018-2021) covered by the performance targets. TDOT expects the gradual decline in bridge condition to continue over the next four years. In consideration of trend data and influencing factors, it is anticipated that the Poor condition will remain at or below 6.0% through the first four year reporting period. Target evaluation will be conducted at the performance cycle mid-point.

TDOT maintained better results than our submitted goal. With a target goal of 6% and an actual result of 4.1%, we understand that one or two large structures shifting into the poor category would be enough to shift the results above our target goal. We elect to hold this target until the next reporting cycle.

N/A

As previously mentioned, TDOT has funded a new preservation program to help address the good bridge inventory. Many of these projects are under development and will be delivered and reflected in the next reporting cycle.
The Improve Act passed in 2017 is based on addressing poor rated bridges on and off the NHS system. As these projects come online, we will be able to assess the impact on our overall bridge inventory and reevaluate out bridge targets for the next cycle.

TDOT’s expected performance for the percent of bridge deck area in poor condition for calendar year 2021 is 5.0% which will outperform the target of 6.0% and meet the requirements for a significant progress determination. The target was selected with the expectation that bridge projects included in the IMPROVE Act would be completed during the performance period. Of the 962 projects identified in the IMPROVE Act, 689 are devoted to improving bridges.
Data Sources:
Tennessee 2018, 2020, 2022 Biennial Performance Report
Tennessee 2018, 2019, 2020, 2021, 2022 NBI Data Submittal

Significant Progress Determination

This table shows FHWA’s most recent determination for the Infrastructure performance measures.

PLEASE NOTE: Each State’s performance target assessment is based on its own State-specific target methodology and program philosophy. Therefore, conclusions should not be drawn based only on the information in the Significant Progress Determination Results table. FHWA understands that each State’s program is unique and therefore does not prescribe a methodology for States to set targets. States have the flexibility to use the methodology they deem most appropriate when setting their performance targets.

Tennessee 2022 Full Performance Period Significant Progress Determination Results
Measure Area	Measures		Baseline	Target	Actual	Better than Baseline?	Achieved Target?	Made Significant Progress?	Consequences [23 CFR 490.109(f)]
The condition of pavements on the Interstate System	Percentage of pavements of the Interstate System in Good condition		71.5¹	60.0	70.8	No	Yes	Yes	None
The condition of pavements on the Interstate System	Percentage of pavements of the Interstate System in Poor condition		0.3²	1.0	0.2	Yes	Yes	Yes	None
The condition of pavements on the National Highway System (NHS) (excluding the Interstate)	Percentage of pavements of the non-Interstate NHS in Good condition	Based only on IRI	72.7	---	69.9	No	---	Yes	None
		Based on Full Distress + IRI	---	40.0	40.3	---	Yes	Yes
	Percentage of pavements of the non-Interstate NHS in Poor condition	Based only on IRI	6.7	---	7.5	No	---	Yes
		Based on Full Distress + IRI	---	5.0	4.1	---	Yes	Yes
The condition of bridges on the National Highway System	Percentage of NHS bridges classified as in Good condition		39.5	36.0	32.5	No	No	No	Additional Reporting
The condition of bridges on the National Highway System	Percentage of NHS bridges classified as in Poor condition		3.5	6.0	5.0	No	Yes	Yes	Additional Reporting

¹ The 2-year condition/performance, in 2020 Mid Performance Period Progress Report, as the baseline condition/performance, as required in 23 CFR 490.105(e)(7)(iii).
² Ibid.

Transportation Performance Management