Infrastructure Past, Present, and Future Casebook/Long Bridge

This page is for a case study on the Long Bridge, created by Zhenxian Ji, Xintong Dai, and Dian Jing. It is part of the GOVT 490-003 (Synthesis Seminar for Policy & Government) / CEIE 499-002 (Special Topics in Civil Engineering) class offered at George Mason University taught by Jonathon Gifford.

Summary

The Long Bridge Project is a major infrastructure initiative aimed at expanding rail capacity across the Potomac River between Arlington, Virginia, and Washington, D.C. The project involves constructing a new two-track railroad bridge adjacent to the existing Long Bridge, dating back to 1904. This will create a four-track rail corridor to alleviate severe congestion on the current two-track bridge operating at near full capacity.

The project has a long historical context, with previous bridges at this location serving various transportation modes like pedestrians, horses, carriages, and railroads since the early 19th century. The bridges played a strategic role during the Civil War. Over time, the current Long Bridge became devoted solely to railroad use.

Multiple government agencies at the federal and state levels are involved in this project through an institutional framework. Key players include the Federal Railroad Administration, District Department of Transportation, National Park Service, Army Corps of Engineers, Virginia agencies like the Department of Rail and Public Transportation, and railroad operators like CSX and VRE.

Major policy issues revolve around minimizing community impacts from construction like noise, traffic disruptions on roads/trails, and temporary closures on the Potomac River. Extensive public outreach and mitigation measures like timing restrictions are planned. Environmental considerations focus on tree protection by adjusting staging areas, using protective fencing/arborists, preventing invasive species, and revegetating disturbed areas.

Funding comes from federal programs like the Intercity Passenger Rail Grant matched with state funds, with Virginia recently securing $729 million. The project aims for completion around 2030 to transform rail operations along the Eastern Seaboard by separating passenger and freight traffic.

Map of Location

File:LongBridgeProjectStudyArea-180509.jpg

Long Bridge spans the Potomac River, connecting Washington, D.C., to Arlington, Virginia, in the United States.

Timeline

1809-1870: Pedestrians, horses, carriages, railroad

1808: Approval Granted

The Washington Bridge Company was authorized by regional commissioners and Congress in 1808 to shorten the distance of the nation's main mail route.

1809: Completion and Opening

The bridge was completed and opened to traffic on May 20, 1809. It was a wooden pile structure with two spans spanning 5,000 feet, including abutments. The bridge was 36 feet wide with a spacious roadway of 29 feet in the center. The remaining portions were pedestrian walkways protected from the central traffic by railings.

1814-1818: The Battle of Bladensburg Led to Bridge Burnt

After the Battle of Bladensburg on August 24, 1814, the American forces retreated to Virginia using the bridge and burnt its southern end. The next day, British forces, upon entering Washington City, burnt the northern end of the bridge. Fortunately, the bridge was restored by 1818.

1831-1835: Washout and Repair

On February 22, 1831, high water levels and ice washed away several bridge spans. The following year, the U.S. Congress allocated funds for the restoration of the bridge. It wasn't until October 30, 1835, that the bridge was fully repaired and reopened.

The Long Bridge in 1861 seen from the Virginia shore

1861: Civil War and Military Significance- Fort Jackson was constructed to guard the bridge

On May 25, 1861, federal troops occupied and controlled the bridge, along with Alexandria and its railways. Fort Jackson was constructed to guard the bridge, preventing espionage and incursions from the Confederate States.  

The outbreak of the Civil War and the secession of Virginia highlighted the military significance and strategic importance of the Long Bridge.

1864: Construction of the New Bridge- Railway Bridge

On July 23, a new and sturdier bridge, built by the Washington, Alexandria, and Georgetown Railroad Company, was completed.

1865: Bridge Span Breaks

On February 18, a U.S. military railway engine crossing the old bridge caused a bridge span to break due to its weight. Following this failure, the military deemed it easier and more crucial to occupy the new bridge and install railways on it rather than repairing the old bridge.

Consequently, railway traffic was diverted to the new bridge (Railway Bridge)

PS: Sometimes the two bridges, old and new, are collectively referred to as the Long Bridge and the Railway Bridge, or as two parts of a single "Long Bridge."

During the war, wounded Union soldiers were transported across the bridge to hospitals established throughout the city. The nearest one was the Armory Square Hospital, just a few blocks from the bridge, providing great convenience for treating the wounded.

1872–1904: Pedestrians, Horses, Vehicles, Railroad, Streetcars

1870: Flood

On October 1, a major flood struck, rendering the existing bridges irreparable as most of the embankments, wooden superstructures, and spans were washed away. The Baltimore and Potomac Railroad Company (B&P) opted to construct a replacement bridge.

The replacement bridge opened to traffic in May 1872 and was used for both vehicular and streetcar passage. The new bridge had lanes for vehicles and railways, standing 9 feet above the water surface, with sturdy abutments made of blue granite.

However, despite the adoption of new designs, the bridge still suffered damage from freshwater, hindering river traffic and lacking width to accommodate two railway tracks.

1881-1895: Ice Flows Cause Damage

In 1881, ice flows damaged the bridge, causing three spans of the bridge to be washed away. On February 7, 1895, the Evening Star reported that ice floes were blocking the Potomac near the wharf, held back by the Long Bridge, effectively acting as a dam and creating conditions that could lead to flooding.

1904–Present: Railroad Only

The 1904 Long Bridge (as modified in 1942)

1904: Construction of the New Railway Bridge

In 1899, the B&P Company urged Congress to authorize the replacement of the Long Bridge, built in 1872, to accommodate multiple carriers and address freshwater issues. In 1901, a congressional act authorized the construction.

The new Railway Bridge was a Pratt through-truss swing bridge, opened in 1904. It wasn't until the 1980s that this railway bridge began to be referred to again by the old "Long Bridge" name. The old Long Bridge was dismantled by the end of 1907.

2011-2019: Renovation

In 2011, the District Department of Transportation (DDOT) collaborated with the Federal Railroad Administration (FRA) to restore or replace the Long Bridge. They identified insufficient carrying capacity and redundancy of the bridge and carried out repairs in 2016.

In 2019, the DDOT and FRA reported the need for a second bridge to meet the growing demand for passenger rail. They also proposed building a third bridge to create a new bicycle/pedestrian crossing.  

Long Bridge, Washington DC, Aerial, Looking NE in 2022

2020-2030-future: Expansion Plans

The Long Bridge has historically been one of the most severe bottlenecks in the national railway system, often operating at 98% capacity. Environmental impact statements and FRA decision records were released on September 4, 2020. The approval cleared the way for the final engineering design, financing, and construction of the Long Bridge expansion.

Donald "DJ" Stadtler Jr., Executive Director of the Virginia Passenger Rail Authority, stated that the adequately funded Long Bridge expansion project is expected to be completed by 2030.

Funding and Financing

The latest funding comes from the Federal-State Partnership for Intercity Passenger Rail Grant Program, established under the bipartisan infrastructure law.  

By the end of 2023, Virginia announced that it had secured $729 million in federal funds to assist in covering the costs of expanding the Long Bridge over the Potomac River. The expansion funds are aimed at alleviating railroad congestion issues. Governor Glenn Youngkin stated, "This project enhances the resilience of our supply chain, improves freight movements to and from our world-class ports, and promotes the local economy." The funding will not only construct a new Long Bridge but also extend a third track along the railway corridor. The additional track will further allow the separation of freight and passenger rail services.

The Federal-State Partnership for Intercity Passenger Rail Grant Program:

This is a funding initiative managed by the Federal Railroad Administration (FRA) of the U.S. Department of Transportation. It was established under the Fixing America's Surface Transportation (FAST) Act of 2015 to provide funding for capital projects for intercity passenger rail.

The program provides matching federal funds, covering up to 80% of project costs, with the remaining 20% required from non-federal sources. Both Amtrak and individual states are eligible to apply for these competitive grants to invest in their intercity passenger rail services and infrastructure.

The 80/20 rule

This 20% non-federal share can come from several channels:

1. Contributions from state and local governments

2. Investments from private investors or companies

3. Funds from railway operators (such as Amtrak)

4. Other public or private funding sources from non-federal governments

This funding model aims to encourage active participation from state governments, local governments, private enterprises, and other stakeholders in investing in the modernization of local railway infrastructure and upgrading intercity passenger rail services. Grant funds can be used for projects such as laying new tracks, improving grade crossings, purchasing new trains and locomotives, station enhancements, and implementing positive train control.

The 80/20 cost-sharing mechanism not only avoids complete reliance on federal funding but also provides crucial financial support from localities, aimed at expediting project progress and effectively integrating resources from all parties. By sharing costs and risks among multiple stakeholders, it enhances the efficiency of fund utilization and better drives the modernization of intercity passenger rail services.

Institutional Arrangements

Federal Railroad Administration (FRA): The FRA, in partnership with the District Department of Transportation (DDOT), prepared the DEIS, demonstrating compliance with the National Environmental Policy Act of 1969 (NEPA) among other regulations. The FRA is responsible for ensuring that the project adheres to federal environmental laws and regulations.

District Department of Transportation (DDOT): As the joint lead with FRA, DDOT has played a crucial role in the development and compliance of the project with environmental and transportation regulations. It acts as a co-sponsor and has been pivotal in managing and guiding the project through its phases.

Cooperating and Participating Agencies

Several agencies have been identified as cooperating with the project, providing jurisdictional authority or special expertise:

National Park Service (NPS): With jurisdiction over Federal Park property in the project area, NPS's decisions are critical to the project's compliance with environmental policies and practices.

National Capital Planning Commission (NCPC): As the federal government's central planning agency for the National Capital Region, NCPC has significant influence over federal projects within the district, including land transfers and alterations to federal property.

United States Coast Guard (USCG): Responsible for permitting bridge projects over navigable waterways, the USCG's role is crucial for any modifications or constructions affecting the Potomac River.

United States Army Corps of Engineers (USACE): With responsibility for impacts to rivers, streams, and wetlands, the USACE's permitting process is essential for the project's adherence to the Rivers and Harbors Act and the Clean Water Act.

Federal Transit Administration (FTA): Providing expertise on public transportation and potentially a source of funding, the FTA's involvement underscores the importance of integrating the Long Bridge Project with the broader transit system.

Virginia Department of Rail and Public Transportation (DRPT): As the state agency overseeing rail and transit planning in Virginia, DRPT contributes funding and will be the project sponsor for the final design and construction phases.

Virginia Railway Express (VRE): As a commuter railroad agency operating on the existing bridge and a contributor to the project, VRE's involvement is key to ensuring that the project meets the needs of commuter rail services.

Narrative of the Case

Early History and Evolution

The Long Bridge has served as a vital connection between Arlington, Virginia, and Washington, D.C., across the Potomac River since the early 19th century. Originally constructed to facilitate foot, horse, and stagecoach traffic, it has undergone several reconstructions to accommodate the growing transportation needs of the region. Notably, during the Civil War, the bridge's strategic importance was underscored as it witnessed significant military movements and underwent modifications to support rail traffic, signaling the bridge's evolving role in the region's transportation infrastructure.

Long Bridge Back to 1809

The 20th Century Developments

The current Long Bridge was constructed in 1904, becoming the only railroad crossing over the Potomac River between the District and Virginia. Owned and operated by CSX Transportation (CSXT), it serves freight, Virginia Railway Express （VRE）for weekday commuting; and Amtrak for intercity passengers. Throughout the 20th century, the bridge underwent further modifications to address the challenges posed by floods and to support the increasing rail and vehicular traffic. A notable period of transition was marked by the rivalry between the B&O Railroad and The Pennsylvania Railroad, with the latter eventually gaining control and making significant upgrades to the bridge to handle the burgeoning traffic flow. This era also saw the construction of new bridge structures to replace the outdated ones, reflecting the ongoing efforts to modernize the transportation network in response to the capital city's growing demands.

Addressing Contemporary Challenges

In 2013, there were 79 daily trains using the Long Bridge. The freight use is approximately 30 percent of that traffic or 23 trains, and the passenger and commuter rail make up approximately 70 percent or 56 trains.  The current Long Bridge Project aims to dramatically increase rail capacity over the Potomac River by constructing a new, two-track railroad bridge adjacent to the existing structure, thereby creating a four-track corridor. This project, spearheaded by the Virginia Passenger Rail Authority, is a critical step towards alleviating the congestion that has plagued the existing two-track bridge, which is operating at nearly full capacity. The project not only focuses on expanding rail traffic capacity but also includes the construction of pedestrian bridges to enhance connectivity and accessibility, reflecting a comprehensive approach to transportation infrastructure development in the region.

Policy Issues

Traffic And Community Impacts During Construction:

The Long Bridge Project, spearheaded by the Virginia Passenger Rail Authority (VPRA), presents a multifaceted policy challenge revolving around minimizing community disruptions while undertaking a crucial infrastructure endeavor. This endeavor aims to augment rail capacity and alleviate congestion between Arlington, Virginia, and Washington, D.C., ultimately enhancing regional connectivity and mobility. However, the construction process necessitates a delicate balancing act between project expediency and mitigating adverse impacts on the surrounding communities.

A paramount policy issue lies in addressing noise pollution emanating from construction activities. The project team has committed to adhering to local ordinances that restrict excessively loud operations to daylight hours. Nonetheless, certain circumstances may warrant the acquisition of waivers to conduct limited night work, underscoring the need for a pragmatic approach that weighs project progress against potential disturbances.

Another critical policy consideration involves minimizing disruptions to transportation networks and ensuring the seamless flow of vehicular, pedestrian, and cyclist traffic. The construction of bridges over major arteries, such as I-395, Maine Avenue SW, the George Washington Memorial Parkway, and the Mount Vernon Trail, will necessitate temporary lane shifts, shoulder closures, and occasional brief full roadway closures. These measures, while unavoidable, will be meticulously planned and executed during off-peak and overnight hours, coupled with extensive public notification to minimize inconvenience.

Last but not least, the project team must address potential impacts on maritime navigation along the Potomac River. While temporary channel closures or detours are unavoidable during construction, the project's policy approach prioritizes adherence to U.S. Coast Guard regulations and the implementation of mitigation strategies, such as utilizing flaggers or designating auxiliary channels. Maintaining open lines of communication with mariners through various channels, including weekly notices and media outlets, is crucial to ensuring their safety and minimizing disruptions, particularly during peak river traffic periods.

Underpinning these policy considerations is VPRA's commitment to proactive community engagement and transparent communication. The authority has devised a comprehensive outreach strategy, leveraging various platforms, including flyers, social media, email alerts, newsletters, news stories, and pop-up events, to keep stakeholders informed about project-related impacts and mitigation measures.

Environmental Considerations Regarding Tree Protection:

FRA and DDOT have exerted efforts to mitigate impacts on natural resources, particularly terrestrial vegetation, throughout the Project Development process. This has involved minimizing the Project's footprint as much as possible, considering existing infrastructure and constraints from landowners. One notable action taken was the removal of a culvert extension at Roaches Run, which was initially part of earlier draft plans. DRPT intends to persist in these efforts to minimize impacts on terrestrial vegetation as the Project progresses into subsequent phases, refining design, and construction details. Proposed measures for mitigation include:

Adjusting temporary access and staging areas during the final design phase to avoid disturbing trees and vegetation, ensuring that vehicles and materials are stored on vegetated surfaces only when necessary. Mandating the implementation of tree protection measures and measures to limit equipment access to adjacent forested areas through the use of protective fencing, overseen by a licensed arborist or other qualified professional approved by NPS. The arborist would also conduct necessary pruning to maximize tree survival during and after bridge construction, adhering to all NPS regulations, including timing restrictions.

Requiring equipment washing before entering NPS lands to minimize the spread or introduction of invasive species. Ensuring that all introduced organic material, such as soil, mulch, and seed, is certified weed-free to prevent the spread or introduction of invasive species. Installing fencing, mulch, and planking to minimize injury and compaction when vegetated surfaces are the only viable option for staging near the Project. Reestablishing terrestrial vegetation removed for both permanent and temporary construction activities where feasible and in coordination with any reforestation requirements. Restoring areas to their pre-construction condition and appearance after construction completion, either through reseeding or replanting woody vegetation using native species.

Key Lessons and Takeaways

1. Bridge construction needs to keep pace with the times to meet constantly changing transportation demands (pedestrians, horses, vehicles, railroads, streetcars).

2. Bridges have significant strategic value during wartime. During the Civil War, long bridges were used for military mobilization and became critical military strongholds.

3. Cooperation between the government and private enterprises is crucial for advancing large-scale infrastructure projects. The long bridge project involves federal, state, and local government agencies, as well as railway companies.

4. Mitigating the impact on communities during construction is a major policy consideration. Comprehensive mitigation measures need to be implemented, such as noise control, traffic maintenance, and protection of maritime activities, while enhancing communication with the public.

5. Environmental impact assessments and mitigation measures are indispensable. The project team has taken a series of measures to minimize impacts on vegetation and ecosystems, such as adjusting construction areas, protecting trees, and restoring vegetation.

6. Funding sources for infrastructure investment can be diversified. The project has received federal funding, as well as state government and private investments. Rational cost-sharing can accelerate project progress.

7. Large-scale projects require clear institutional arrangements and division of responsibilities. The project involves multiple federal, state, and local agencies, each with clear roles and responsibilities to ensure legal compliance.

Discussion Questions

1. How can the Long Bridge Project effectively balance the need for infrastructure improvements while minimizing disruptions to local communities and the environment?
2. How are the military and transportation values of a long bridge reflected in scenarios such as civil war, repelling invasions, defense against floods and ice flows, and alleviating pressure on modernized railways?
3. How does the 80/20 cost-sharing mechanism in the Federal-State Partnership ensure adequate and reliable funding for long bridge projects, and do you think the massive federal funding is a positive or negative development?
4. What challenges and opportunities does the Long Bridge Project present for the future of transportation infrastructure in the Washington, D.C., and Arlington, VA, areas?
5. How is technological innovation being integrated into the design and construction of the Long Bridge to ensure its longevity and adaptability?
6. What specific strategies or platforms could be employed to ensure inclusive and effective communication with diverse stakeholder groups, including residents, businesses, and commuters?