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101-Staff Report.pdf PUBLICWORKS DEPARTMENT CITY HALL 1010300TORRE AVENUE • CUPERTINO, CA 95014-3255 TELEPHONE: (408)777-3354www.cupertino.org CITYCOUNCILSTAFFREPORT Meeting:May 17, 2011 Subject Report on thePavementManagementProgram,StreetConditions,andPreventative Maintenance. RecommendedAction ReceiveReport. Discussion TheCityisresponsibleformaintaininganetworkofapproximately142milesofpavedstreets.Comprising thisnetworkare34milesofarterials,14milesofcollectorsand94milesofresidentialstreets.Tofurther recognizethevariabilityofthestreetnetwork,eachofthesemilesisfurtherdividedintoover900separate managementsegments.Eachyear,thePublicWorksDepartmentdevelopsandimplementsanannual pavementmaintenanceplanbasedontheMetropolitanTransportationCommission’s(MTC)street conditionratingmethodology,availablefunds,andothercriteriathathelpsetpriorities.Staffsubmitsthis annualpavementmanagementreporttoCounciltodescribecurrentpavementconditions,anticipatedfuture pavementconditionsatvariousfundinglevelsandtoprovideanoverviewofthepavementmaintenance projects plannedforFY 2011/12. Program and FundingOverview The2011pavementmanagementreportratestheoverallpavementconditionindex(PCI)ofourstreet networkat71outofapossible100.Itisbestnottoequatetheseratingnumberswithhighschoolscores.A PCIof100wouldberepresentativeofanewstreetinoutstandingcondition.APCIof71isstillatthelower range ofa“VeryGood” pavementcondition.Thisconditionis based uponinformationcollectedby physical observationandmeasurementsinthefieldconductedinthesummerof2010forthebiennialPavement ManagementProgram(PMP)Update.TheMTCreceivespavementinformationfromtheCityof Cupertinoand100+otherpublicagencies.TostaycurrentwiththerequirementsestablishedbytheMTC, theCityisrequiredtoconductperiodicinspectionsofthestreetnetworkandtocertifythecondition.This waslastcompletedandsubmittedtoMTCinDecember2010.Thereportstatesthatinordertomaintaina PCIof71,anexpenditureofapproximately$2.4Millionperyearwouldberequired.Itisalsonotedinthe reportthatexpendituressufficienttomaintainaPCIdoesnotnecessarilyreducetheamountofdeferred spending.Deferredspendingisdefinedastheaccumulateddollarsnotspentinprovidingallrequired preventativemaintenance.Forillustration,refertoExhibit A. FundinglevelsinFY2010-2011fortheCity’spavementmanagementprogramdeclinedtoabout$1.55 Millionfromapproximately$2.05Millionthepreviousyear.WhereastheCityreceived$800,000inARRA and$500,000inProposition42fundstosupplementCitygeneralfund(GF)moniesof$750,000for pavementmanagementinFY2009-2010,$800,000inProposition1Bfundswastheonlysupplementtothe $750,000localGFallocationinFY2010-11.AlthoughtheCityexpectstoreceiveapproximately$500,000 inLocalStreetsandRoadsfundsfromfederal sources inFY 2012-2013,thereare no outsidefundsexpected to supplementthelocalGFallocation of $750,000inFY 2011-2012. PavementConditions TheCityusesthelatestversionoftheMetropolitanTransportationCommission’sPavement ® ManagementSystemStreetSaversoftware.StreetSaverisaneffectivetoolatpredictingfuture budgetneedsandatprovidinggeneralizedrecommendationsregardingfuturepavement treatments.Usingthistypeofprogramisneededtoremaineligibletoreceiveoutsidefunding. Thissoftware,alongwithotherinformationcollectedinthefield,enablesstafftorecommend streetnetworktreatmentsthataccomplishtimelypreventativeworktoday,whilereducingthe amount ofcostlyrehabilitativeworkinthefuture. PCI’sfortheCitypavementnetworkarebasedonavisualratingsystemthatquantifiesseven pavementconditiontypes.TheoverallconditionofCupertino’sstreetpavementisinthelower rangeofMTC’sdesignation“VeryGood.”Cupertino’saveragePCIconditionvaluebystreet classificationisasfollows: Table1 CLASSIFICATION2010PCI* 77 Arterial 74 Collector 68 ResidentialLocal TOTALSYSTEM71 *Calculatedby analgorithmdevelopedby theArmy CorpsofEngineers Table2describestheconditioncategories,theirequivalentPCIrange,andtypicalprescribed maintenancetreatments.ThemaintenancetreatmentsuggestedinTable2isbasedonPCI scores andthecorrespondingconditioncategory.StreetswithPCIscoresover90areconsideredtobe inexcellentconditionandrequireonlypreventativetreatment.Streetswithscoresfrom70to89 areconsidered“VeryGood”,butmayrequirecrackstobefilledorslurryseals.Streetswith scoresfrom50to69areconsidered“Good”,butmayrequireathickercapesealorathinasphalt overlay.Streetswithscoresfrom25to49areconsidered“Poor”andgenerallyrequireamilland asphaltoverlay.Streetswithscoresbelow25are“VeryPoor”andareinneedofsurface reconstruction. Table2 ConditionPCIRangeTypicalMaintenance Treatment DoNothing. Excellent90-100 VeryGood70-89CrackFill/SlurrySeal Good50-69CrackFill/CapeSeal/ThinACOverlay ACOverlay Poor25-49 VeryPoor0-24ReconstructStructure(AC) Thecategories oftreatmentscorrespondingtoTable 2 that Cupertinotypically usesareasfollows: Scrubcrackedpavementsurfacesthatare notyetactually breakingapart. CostTreatmentDescription Thisworkconsistsofapplyingamixtureofemulsifiedoil,rock,water,and LowestSlurry Seal additivestothepavementsurface.Slurrysealsareusedforsealingagedand wornpavements,fillingminorcracks,restoringskidresistanceandrestoring aestheticappeal.Thisapplicationservestoprotectandpreservethepavement surfaceandextenditsusefullife. Thisworkisthecombinationoftwosealingandrehabilitationmethods,chip CapeSeal sealandslurryseal.Firstachipsealisapplied,whichisahotasphaltspray binderwithrock.Itisthenfollowedwithinafewdaysbyaslurryseal.While moreexpensive,thiscombinationmethodprovidesanadditionalmeasureof pavementsurfacedurabilityandhasmorerestorativeimpactonthepavement thanastraightslurryseal.Theonlydownsideisthatintheperiodbetweenthe chipsealandtheslurryseal,sometimesthe smallaggregatemaybecomeloose anditcreate anuisancefordrivers. Aftercracksandpotholesintheroadsurfacearesealedorfilled,and ThinMaintenance atack coatis applied, a thin overlay(typically up to 1.5”) of asphaltis Overlay(TMO) placedonthestreetsurface.Thistreatmentcanextendtheusefullife ofastreetsectionthatisstillstructurallysoundbyseveralyears.In termsofextendingthetimeuntilapavementneedsstructural rehabilitation,thistreatmentismore effectivethan a capeseal. PavementOverlayAnoverlayconsistsofplacinganadditionalasphaltpavementlayer(generally 2”to3”)ontopoftheexistingstreetsurface.Thismethodistypicallyusedin combinationwithsurfacemilling,i.e.,thegrindingofseveralinchesofthe existingpavementandeitherre-usingthegrindingswithhotoiladditivesor replacingitwithanewlayerofasphaltpavement.Thisisthemost comprehensiveresurfacingmethodusedtorestorestructuralintegrity. Thisprocesstypicallyinvolvesgrindingandrecompactingthepavement Structural structuralsectiontoaconsiderablespecifieddepthandapplyingadditional Reconstruction basematerialand anewthickasphalticconcretesurface. Highest Note:Removalandreplacementoffailedasphaltmaybeneededformosttreatments.Thisis alimitedprojecttreatmentthatisdesignedtorepairparticularsectionsofpavementwhereit isnotrequiredfortheentirestreettobeoverlaidorsealed.Thisworkconsistsofdiggingout andreplacing discreteareas ofthepavementthathavefailed,orareabouttofail, structurally. Thefollowingchartillustratesthecosteffectivenessofkeepingthepavementconditionindex above 70 foratypical street. PAVEMENT Condition RECOMMENDEDTREATMENT (Approx.PCI) EXCELLENT (90) VERYGOOD 40% (70) QUALITY 75%OF GOOD PAVEMENT (50) 40% DROPIN QUALITY POOR (25) VERYPOOR (0) 481220 16 PavementAge(Years) OurcurrentPCIisbeingreducedannuallybasedonthisdeteriorationcurve.Maintenance activitiesincreasethePCIvalueastheyareappliedtothesegment.Asshownintheabove picture,atypicalpavementsectionwilldeteriorateapproximately40%inthefirst75%ofits lifespan,butthenwillbegintodegraderapidly.Asaresultofthiscontinueddeterioration,the quantityandcostofthemaintenanceactivitiesneededtorehabilitatethepavementwillincrease inbothscopeandcosts.Inotherwords,itisnotsimply“paytodayorpaytomorrow”,butrather a“paytodayor paymoretomorrow”proposition.Overallpavementmaintenancecostisreduced bythetimelyapplicationofcracksealing,fogseals,slurrysealsandpavementoverlaysbefore the subgradefailsandtotal pavementreconstructionisrequired. ForthebiennialstudyjustcertifiedbytheMTC,theBudgetNeedsAverageis$6.6millionper year.AftertheBudgetNeedshavebeencalculated,BudgetScenariosareruntodeterminethe fundinglevelsrequiredtomaintainand/orimprovethecurrentPCIlevelandgeneratealistof streetmaintenanceforthenextseven(7)years.Thesoftwareanalyzeseachpavementsection andpicksspecificmaintenancetomaximizetheimprovementoftheentirepavementsystem. Maintenancetreatmentsareallocatedtoasmanystreetsastheannualbudgetwillallow.These budgets do notaccountfor stopgapmaintenancerepairs, suchasemergencypotholerepair. PavementMaintenanceFundingNeeds Withtheadditionofoutsidesources,theCityhasbeenableoverthelastfewyearstocomenear the $2.4 Milliontotalmentionedabovethatis necessaryto sustainan overallPCIof 71. PavementFundingTrend 2007-2011 FiscalYear(FY)TotalPavementFundsAvailable 2007-2008$2.38 Million 2008-2009$2.17 Million 2009-2010$2.05 Million 2010-2011$1.55 Million Total $8.15Million ApproximateFour-YearAverage$2.04Million Therehasbeenanaverageannualshortfallofapproximately$400,000overthefour-yearperiod, andthedeclineinoutsidefundinghasledtoadownwardyear-on-yeartrendinthefunds availableforpavementmaintenance.Tohelpmitigatethistrend,staffwillberecommending duringtheapproachingbudgetreviewanddiscussionthatratherthanallocate$750,000eachto thePavementManagementandCurb,GutterandSidewalkRepair&ADARampsaccountsin theFY2011-12CIP,thetotalof$1.5Millionforthetwomaintenanceprogramsbeapportioned $1.25MillionforPavementManagementand$250,000forCurb,GutterandSidewalkRepair &ADARamps.Althoughthelatterprogrammayaccumulateabacklogofrequestedwork, immediatesafetyhazardswillcontinuetobeeliminated.Thiswillresultinapavementfunding trendasfollows. PavementFundingTrendThrough 2012 FiscalYear(FY)TotalPavementFundsAvailable 2007-2008$2.38 Million 2008-2009$2.17 Million 2009-2010$2.05 Million 2010-2011$1.55 Million 2011-2012$1.25 Million Total $9.40Million ApproximateFive-YearAverage$1.88Million Thisrepresentsanaverageannual shortfall ofjust over $500,000. Development ofMaintenance Projects and StreetLocations Eachyear,pavementmaintenanceprojectsaredevelopedandimplementedtopreserveor improvetheconditionofspecificstreetsandminimizefuturemaintenancecoststothegreatest extentpossible.Duetotheincreasingneedsofourstreetnetworkandthelimitedfunding available,staffhasdevelopedaprioritizationsystemtoselectthestreetsthatreceive maintenancetreatmentsthisyear based on thefollowingcriteria: 1.Pavement ManagementProgramrecommendations 2.Engineeringandmaintenance staffrecommendations. 3.Streetconditionsappropriatefor specifiedtreatment 4.Grantfundingrequirements 5.Streetswith unique needs 6.Streetswith sharedmaintenanceresponsibilitieswith otherjurisdictions ScheduledMaintenanceProjectsfor 2011 PublicWorkswillbeimplementingfourpavementmaintenanceprojectsforthe2011pavement season.ExhibitCcontainsthelistofstreetsegmentsestablishedforeachproject.Itisnotedthat thelistscouldbeslightlyalteredasunforeseenconditionsariseornewinformationregarding other streetrelated projects becomeavailable. Conclusions Tomosteffectivelyaddressthecurrentpavementneedswiththegivenbudget,staffis implementingamulti-prongedapproach: ·Use knowledgeofmaintenance personnelinrecommending street networktreatments ·Temporarilyshiftthebalanceofmaintenancefundingforconcreterepairandpavement maintenancetoward pavementmaintenance ¯ ·UseStreetSaverprimarilyasa budgetassessmenttool ·Implementacomprehensivemethodology,incorporatingasignificantdegreeofdirect and visual validation ofresults. ·Trainand usein-house staffasmuchas possible. ·Investigatealternatepavementtreatmentsthatwillprovideastopgapefforttomaintain streetsintheinterim untilPCIvaluescan stabilize. ThisreportisfortheCouncil’s informationandnoactionisrequired. _____________________________________ Preparedby:GlennGoepfert,AssistantDirector-PublicWorks Reviewedby: TimmBorden,Director ofPublicWorks ApprovedforSubmissionby:DavidW.Knapp,CityManager Attachments:EXHIBITA – Deferred MaintenanceCostbyAnnualFundingLevel EXHIBITB – PavementProjects 2001-2009 EXHIBITC – PavementProjects 2010 EXHIBITD – PavementProjectLocations 2011-12