Objectives

To determine whether the Metropolitan Transportation Authority (MTA)—Bridges & Tunnels (B&T), MTA Bus Company (MTA Bus), and New York City Transit-Department of Buses (Transit Bus)—identified the potential damage to its transportation systems and developed plans to mitigate the effect of extreme weather conditions and flooding; and whether the plans were tested/updated and the weather-related equipment was inspected/maintained to ensure it can be deployed when needed. The audit covered the period from April 2009 through July 2023.

Background

MTA’s bus operating units (Transit Bus and MTA Bus; hereafter collectively referred to as “Bus Operations”) include 28 depots—20 operated by Transit and eight by MTA Bus. The Bus Command Center (BCC), located in East New York, Brooklyn, is responsible for overseeing all of MTA’s Bus Operations. Decisions are made at BCC that apply to both Transit Bus and MTA Bus. BCC reports to the Vice President of Bus Operations and ultimately to Transit’s Senior Vice President – Buses, who also serves as the Senior Vice President of MTA Bus.

In 2007, the Chair of the MTA appointed a Blue Ribbon Commission on Sustainability and the MTA (Blue Ribbon Commission), which was charged with making sustainability-related recommendations to MTA and its agencies. In 2009, MTA issued the Blue Ribbon Commission’s final report with recommendations in a number of key areas of sustainability planning. It sets apart 11 recommendations specifically related to climate adaptation to prepare for rising sea levels, storms, and severe weather events (one transformational that calls for MTA to develop and implement a climate-adaptation decision-making matrix and 10 near-term recommendations, including having a climate change adaptation master plan). The report predicted that, without an adequate investment in adaptation measures, climate change will have even greater adverse impacts on MTA’s vital infrastructure, operations, and revenue streams in the future.

Superstorm Sandy hit the New York area on October 29, 2012, causing significant coastal flooding and approximately $5 billion in damage to MTA assets. The Queens-Midtown Tunnel, a vehicular tunnel under the East River, filled with salt water. Although it reopened about 10 days later, repairs went on for years. Superstorm Sandy also took its toll on the bus system. While MTA prepared its buses for the storm by moving vehicles to higher ground, six bus depots in low-lying areas flooded.

The MTA network is considered an irreplaceable asset. MTA B&T has committed $4.95 billion in capital program funding from 2010–2019 and has another $3.33 billion in capital projects programmed for 2020–2024. MTA Bus has also committed $673 million in capital program funding from 2010–2019 and has another $871 million in capital projects programmed for 2020–2024. This includes the major restoration-resiliency projects stemming from Superstorm Sandy.

The development of the Master Plan (planned elements of the project, along with estimated budgets and, in some cases, schedules) serves as a tool for decision-making and consensus-building. Key strategic issues are identified and resolved as a result of the analysis performed during the Master Plan’s development. Project Management Procedures require that a budget estimate be prepared in the “year dollars” of the Master Plan document (i.e., an estimate as if the project were to be awarded immediately). Escalation to the year of award is handled when a project enters a future capital program.

Inspection and maintenance of B&T and Bus Operations equipment is critical to ensure the system is prepared for future extreme weather events. Consequently, both B&T and Bus Operations are required to conduct inspections of their storm equipment and vehicles periodically. Preventive maintenance (PM) is performed to detect or prevent the degradation of vehicles and equipment in order to sustain or extend their useful life.

In addition, both B&T and Bus Operations developed several weather plans/procedures that can be activated for extreme weather-related conditions and detailed procedures to be followed leading up to a storm event and following its impact.

Key Findings

• B&T and Bus Operations did not conduct a systemwide risk assessment to identify the potential for damage to their transportation systems. However, both have developed and carried out projects to mitigate the effects of coastal storms and related flooding, largely in the wake of Superstorm Sandy.
• Of nine capital projects that we reviewed (six at B&T and three for Bus Operations [bus depots]), we found that the amount expended exceeded the original contract award amount for five projects, was lower for three projects, and was within the contract award amount for one project. For the same nine projects, substantial completion¹ was late for six projects (from 1 to 6 months), on schedule for two projects, and ahead of schedule for one project.
• Inspections, PM, and corrective maintenance tasks were not completed as required or were not documented. At two B&T facilities, we found no inspections of flood-proof doors had been conducted as per the contract during our audit scope, and we identified broken gasket seals (designed to prevent water leakage on the doors). Additionally, we found that issues reflected in prior inspection reports, such as cracks in crash barriers for a portal flood gate, were not corrected promptly, and subsequent reports indicated worsening damage over time.
• Vehicle inspection records at B&T facilities did not indicate what was inspected. We reviewed work orders and mileage records for 38 vehicles. The work orders listed tasks, but staff did not check off to denote which were completed nor did they note any issues found.
• Inspections were not conducted in accordance with the Bus Operations’ Winter Operations Plan requirements or were insufficiently documented. For example, at four depots, records were provided for only 59 of the 336 inspections required for snow fighters (large trucks used for snow removal).

Key Recommendations

• Periodically update the systemwide assessment, document progress made, and report on any new conditions requiring mitigation.
• Monitor projects to ensure costs do not markedly exceed the contract award amount.
• Maintain and inspect equipment regularly and in a timely manner as required.
• Improve the vehicle PM by:
  • Recording each PM task completed on the work order.
  • Ensuring mileage is recorded and accurate for each vehicle for use in determining required maintenance.
• Clarify in the Winter Operations Plan the responsibility for performing weekly/monthly inspections of snow fighter equipment.

1. Substantial completion refers to a stage of construction where the construction manager determines that all contract work has been completed and it is acceptable to be placed in service, and all deliverables necessary to safely maintain all operating systems and equipment have been received, reviewed, and found acceptable.