HomeMy WebLinkAboutAGENDA REPORT 1996 0619 CC REG ITEM 10HiTEM
AGENDA REPORT
C = TY OF MOORPARK
TO: The Honorable City Council
FROM: Kenneth C. Gilbert, Director of Public Works
DATE: June 7, 1996 (Council Meeting 6- 19 -96)
SUBJECT: Consider Approval of the City's Pavement
System
BACKGROUND
Management
In April 1995 the City Council authorized staff to proceed with the
steps necessary to develop a Pavement Management System for the
City.
DISCUSSION
A. Pavement Management Systems
Public Works Departments can no longer afford to manage street
pavement on a hit and miss basis or to merely wait to respond to
complaints of pot holes. Proper street maintenance requires the
use of a computerized program to assist in the performance of a
number of tasks, including:
1) the gathering of data on the condition of all City streets;
2) the objective analysis of that data for the purpose of
categorizing all City streets according to their condition
and /or repairs needed;
3) the development of a street inventory pertaining to
condition, width, traffic volume, etc.; and,
4) the listing of street resurfacing needs, in priority order by
need or condition, for each street resurfacing program
(reconstruction, overlay, patching, crack filling, slurry
seal, etc.)
This technique has been the "state of the art" for a number of
years. It is used by most cities and counties as a tool in
providing an objective analysis of street conditions for the
purpose of developing street maintenance budgets and street
repair recommendations. The Federal Intermodal Surface
Transportation Efficiency Act ( ISTEA) recognizes the value of
this tool and requires that all local agencies receiving ISTEA
monies implement such a program by January 1997. The City has
received approval of a Surface Transportation Program (STP) [an
element of the ISTEA program] grant in the amount of $480,000,
as partial funding for the 1995 Asphalt Overlay Project, and
must, therefore, establish a Pavement Management System in order
to comply with grant requirements.
PME2 0 00 4c l
Pavement Management System
June 1996
Page 2
Absent these federal requirements, staff would still recommend
the establishment of a Pavement Management System. Such a
program offers many benefits. Of particular value is the
ability to provide policy makers, as well as the general public,
objective recommendations for street repair projects. If such
a system had been in place in past years, the justification for
certain staff recommended street resurfacing projects would have
been more clearly stated. All of the street resurfacing needs
of the City would be objectively evaluated, scored, ranked and
prioritized. The projects recommended to the community and the
City Council by staff would be presented in light of this
comprehensive street resurfacing needs analysis.
B. Contract
The actions taken by the City Council in April 1995, included
approval of the selection of Dwight French & Associates (DFA) to
prepare a Pavement Management System for the City. The services
which have and /or will be provided to the City by DFA include
the following:
1. Program Description:
• an inventory of street segments for the entire City
(includes an analysis of every street in the City);
• a description of a each segment;
• a segment numbering system;
• traffic data;
• a condition survey;
• unit costs for various repair methods;
• a Pavement Condition Report;
• street repair recommendations;
• a seven -year street improvement plan; and,
• Survey and Operations Manuals.
2. Program Maintenance: In order to protect the City's initial
investment by assuring that the system is updated and
maintained properly, DFA will provide the City with forms and
procedures for the submittal to the City Manager, of Annual
Compliance Reports confirming that these update tasks have
been performed.
3. Training: As required by the contract, DFA provided some
training to City staff on performing field investigations and
pavement evaluations.
C. Completed Program
DFA has completed and delivered the draft Pavement Management
System. A copy of the Executive Summary is attached as Exhibit
1.
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Pavement Management System
June 1996
Page 3
D. Committee Review
On May 28, 1996, John Whitman, of DFA, gave a presentation to
the City Council Transportation and Streets Committee
(Councilmembers Hunter and Brown) on the subject program. The
Committee was given an opportunity to review hard copies of the
work product (charts and maps), plus witness the operations of
the associated computer software. The Committee was quite
impressed and requested that some form of that presentation be
made to the full City Council.
E. Presentation
Mr. John Whitman of DFA will be present to give a brief
presentation to the City Council on the Pavement Management
System. Various maps produced by the program will be available.
In addition, demonstrations of the computer program will be
given to those interested during a break or at other convenient
times. If possible an interface between the computer program
and the community telecast will be established to allow the
viewing public to see some of the cap[ability of this program.
F. Future Program Updates
1. Pavement Evaluations: The above mentioned training
demonstrated that the art and science of pavement evaluation
is very technical in nature. It is a skill which must be
used on a regular basis if is to be developed to a useful
level of consistency required to yield comparable results.
For these reasons it is not recommended that the City attempt
to undertake the future field inspections and pavement
evaluations required to maintain and update the pavement
condition inventory. Rather, it is recommended that the City
utilize DFA, or another qualified firm, to periodically
provide these services.
2. Database: The data gathering and analysis elements of this
program uses dBase software. All future revisions and /or
entries to the data base, such as the addition of new street
segments or a change in the street condition (e.g. slurry
seal applied) will be performed by City Public Works
personnel.
3. Mapping: The mapping element of the program utilizes AutoCad
software. When it becomes necessary to add new street
segments to the program, it is recommended that the City
retain the services of DFA, or another qualified firm, to
update the AutoCad program. It is the intent of staff to
develop a recommended developer fee designed to recover these
costs, and to have the work performed as a part of reviewing
as -built plans prepared by developers. In the rare instance
where a new street is added by a City project, the map
revisions would be a part of the construction engineering.
pm ®Z
000463
Pavement Management System
June 1996
Page 4
G. Inventories
The layout and format of the database used for the pavement
condition inventory has been structured to be compatible with
the development of a Public Works Inventory. It is the intent
of staff to develop, with the assistance of DFA, a number of
such inventories for a number of areas, to possibly include some
or all of the following:
• Speed zones (speed limit signs)
• STOP signs
• Other Traffic Regulatory Signs
• Striping and Markings
• Pavement repair history
• Street trees
• Bus routes, signs, benches, shelters, etc.
• Street Sweeping Parking Restriction signs
• Truck Routes, signs etc.
H. Fiscal Impact
1. Initial Set -up Costs: The costs the City has or will incur
for DFA to establish the subject program is $39,990.
2. Update Costs: In order to properly utilize and maintain this
program it is recommended that certain elements of the
program be updated on an annual, bi- annual and five -year
basis. The average annual cost for these services is
approximately $4,000.
3. Inventories: DFA costs to assist in the development of the
dBase templates for a number of Public Works inventories is
estimated to cost less than $500.
4. Special Mapping Services: DFA costs to provide special
mapping services (Speed Zone Map, etc.) to the City could
range from $500 to $2,000.
5. Budget: Any of the above mentioned costs incurred in FY
1996/97 or subsequent years will be charged to the line item
budget provided for Engineering studies (03- 142 -641).
RECOMMENDATION
Staff recommends that the City Council approve the subject Pavement
Management System.
Attachments
PM92
000464
fy1�.yr i
The City of Moorpark has responsibility for maintenance and rehabilitation of
approximately 81.5 miles of streets throughout the City. The total replacement value of
this street system is estimated to be more than $65 million, including curb, gutter and
sidewalk. To assist in meeting that responsibility, the City is using a computerized
approach to examine funding policies and to develop a Street Rehabilitation /Overlay
Program. This approach uses the City's new Pavement Management System (PMS).
This new PMS is composed of the following major elements.
• A complete field inventory of all city streets, which recorded data for street
dimensions, as well as street conditions.
• A determination of the rehabilitation needs for each street based on its
physical conditions.
• A prioritization of each street rehabilitation program based on the traffic
volume on the street, the construction cost of the recommended
improvement and the amount of added life achieved by the improvement
to each street.
• Graphical as numerical presentation of street conditions, improvements
and priorities.
This approach assures the City that it will receive the maximum return on street
rehabilitation expenditures.
The PMS rates all streets in Moorpark and assigns a condition rating from 0 to 100 for
each street segment. The range of conditions is as follow:
EXCELLENT (90 - 100) The street surface has few very minor or no defects
and rides like a new street. Generally, only minor
routine maintenance is needed.
pma*=028a.sum
GOOD (80 - 89) The street has some surface defect which generally
indicates the need for surface treatment. The street
performs well with minor roughness and tire noise.
FAIR (70 - 79) The street has cracking, settling and surface
distortions, generally indicating the need for
increasing surface treatment such as cape sealing,
overlaying or slab replacement. There may be some
noticeable roughness in ride quality.
POOR (60 - 69) The street has major cracking, settling and surface
distortions indicating the need to repair defects and
provide additional pavement structure. There is
noticeable roughness and tire noise.
CRITICAL (0 - 59) The street no longer has structural integrity with
missing paving material and rough ride
characteristics. The street requires major
rehabilitation and perhaps reconstruction.
The current local street system conditions in Moorpark are as follows:
Of course the street system in Moorpark deteriorates every day. Deterioration results
from the following:
• _ heavy traffic including trucks and buses;
• the sun's rays hardening the asphalt;
• other weather conditions including rain;
2
Percentage
Miles
of Street System
EXCELLENT
47.3
58%
GOOD
24.8
30%
FAIR
4.5
6%
POOR'
1.9
2%
CRITICAL
2.9
4%
81.5
100%
Of course the street system in Moorpark deteriorates every day. Deterioration results
from the following:
• _ heavy traffic including trucks and buses;
• the sun's rays hardening the asphalt;
• other weather conditions including rain;
2
• utility company operations which involve cutting the asphalt; and
• other spot emergencies such as fires and chemical spills.
Generally public works' professionals believe that a city street system should have the
following spread of conditions.
EXCELLENT
20-30%
GOOD
30-50%
FAIR
20-30%
POOR
0%
CRITICAL
0%
Compared to this standard, Moorpark's street system is generally in better condition
than a typical city street system. However, Moorpark should rehabilitate all poor and
critical sections of streets.
It is not necessarily the best policy for a city to rehabilitate all critical and poor sections
of streets with available revenues, particularly if the projected revenue stream is not
sufficient to cover all street rehabilitation needs. It is better to perform a cost benefit
analysis to guide street prioritization because the cost of repairing a good street may
be only $.07 - $10 per square foot, while the cost of repairing a critical street may be
$2.50 - $4.00 per square foot. The following table shows the average cost of repair for
one mile of Moorpark local streets by condition rating. A systematic approach can
assure a city of wise street investment policies, allow decision making to include the
benefits as well as costs of improvements and factor in the number of citizens using a
specific street.
AVERAGE ESTIMATED REPAIR/REHABILITATION COST
PER MILE BY CONDITION RATING
Average Repair
Condition Cost Per Mile
Critical
$750,000
Poor
$250,000
Fair
$125,000
Good
$85,000
Excellent
$15,000
Rehabilitation strategies for Moorpark are defined as follows:
ASPHALTIC CONCRETE STREETS
Slurry Seal (SS) This low cost treatment consists of a mixture of liquid
asphalt and sand which is spread on the existing
surface. This treatment is intended to seal small
cracks in the pavement and retards the destructive
oxidation of the sun. This treatment has a life of 5 to
7 years.
Thin (OL) This treatment consists of the application of up to 2
Overlay inches of asphalt hot mix to the existing structure.
This treatment adds significant strength to the
existing surface. A thin overlay has a life of
approximately 10 years.
Overlay with (OS) This treatment consists of placing a geotechnical
Stress Relief fabric on the existing pavement to retard the existing
cracks from reflecting through to the new surface. An
asphalt concrete overlay is then applied on top of the
fabric adding significant strength to the pavement
structure. This treatment has a life of 10 to 15 years.
Structural Overlay (SO) This treatment consists of the application of more
than 2 inches of asphalt hot mix to the existing
surface. This treatment requires grinding of the
existing pavement to allow the new material to match
existing curb and gutter elevations. A structural
overlay has a life of 10 to 12 years.
Reconstruction (RS) This treatment consists of removing existing
pavement and base (which no longer has structural
integrity) and replacing with a new pavement section.
This treatment may also necessitate replacing curb
and gutter. This treatment has a life of 15 to 20
years.
4
TAT-ION NEED
The PMS has helped the City identify the current pavement condition and total backlog
of rehabilitation needs for Moorpark's street system. The PMS defines backlog as all
work necessary at the start of the condition survey to bring the arterial street system to
an acceptable level of condition as portrayed on page 3 of this report. In other words,
all streets would be in fair to excellent condition if the backlogged work were performed.
Based on the PMS, only 6% of the street network has deferred maintenance, which
needs to be brought to an acceptable condition. To eliminate the deferred
maintenance backlog will cost approximately $1.63 million, including curb and gutter.
The total rehabilitation needs for the City are $6.65 million now and an additional
$900,000 over the next 10 years, for a total need of $7.5 million.
With the current annual funding of $700,000, the current rehabilitation needs can
generally be met during the next 10 years, assuming the annual funding levels keep
pace with inflation. If it is assumed that annual inflation is 3.5 %, the annual funding will
need to grow to $987,000/ year by the year 2005.
EHABILITATION PROGRAM
The City's PMS establishes priorities for each street segment. The prioritization
process is based on the philosophy that funding should be spent on projects which will
best protect the existing investment in the street system and benefit the maximum
number of citizens. Using this philosophy, higher priorities are assigned to streets
which serve the highest traffic volumes and require less expensive rehabilitation.
Therefore, a local street with a high volume of traffic, which only requires a thin overlay,
will receive a higher priority than a local street which requires complete reconstruction.
In the beginning of selecting projects from the priority list, engineering judgment must
be used. Currently, several projects have been designed and will be constructed over
the next few months. These streets were listed at the top of the priority list. After these
streets were placed on the list, the City staff and the Consultant determined logical
construction projects built around the highest priority street segments and developed
on priority streets as identified by the Pavement Management System.
Priority street rehabilitation projects for local streets are listed in Table 1.
In addition, an annual slurry seal program, consisting of approximately 15 miles of
streets per year, is planned.
5
The City will have the PMS software installed on Public Works computers. With this
new capability, the 5 -year Program will be updated on an annual basis. The major
actions in this update process are:
• Update traffic counts semi - annually.
• Adjust unit costs annually.
• Re- inventory condition of arterials and collectors every two (2)
years and residential streets every five (5) years.
• Rerun the PMS where there have been significant changes in
costs, conditions, or traffic.
• Annually close the fiscal year and add other years of projects from
the most current priority listing.
• Present the updated 5 -Year Program with next year's rehabilitation
project program to the City Council annually.
Over a period of years, as the PMS develops a history of street conditions, it will
become readily apparent as to how the City's street system is performing, based on
actual funding levels. Funding policy can be set on a very rational basis of the desired
performance level of City streets.
K*JD"I,&-K9IZ
The street system in Moorpark consists of 81.5 miles of streets. The total street
rehabilitation needs is $1.6 million. Backlog is defined as the total amount of
rehabilitation work necessary to bring the street network to an acceptable condition
level -- that is, no critical or poor segments and a distribution of all segments in
Excellent, Good and Fair conditions. By eliminating the backlog, all segments of the
system will have a condition rating of 70 or better.
The current funding of $700,000 /year is adequate for City street needs, assuming that
the annual funding keeps pace with inflation.
6 000470