HomeMy WebLinkAboutCitywide Street Pvmnt Preservation PgrmREQUEST:
CITY OF PALM DESERT
PUBLIC WORKS DEPARTMENT
STAFF REPORT
Adopt Citywide Street Pavement Preservation Program
SUBMITTED BY: Mark Greenwood, P.E., Director of Public Works
DATE: June 12, 2008
ATTACHMENT: Pavement Preservation Program Report
Recommendation:
By Minute Motion:
1. Receive and file the Pavement Preservation Program report; and
2. Adopt the recommendations contained in the report.
Discussion:
The City of Palm Desert's network of public streets is comprised of approximately 178
center -line miles or 43 million square feet of pavement. This equates to approximately
a $311 million investment or replacement value. It is evident that the City has invested
significantly in its road system. This makes it imperative that this investment be
protected and maintained by an effective and comprehensive Pavement Preservation
Program (PPP). The main goal of the PPP is to apply the right treatments at the right
time on the right streets to maintain the quality and condition of street pavements with
the most cost-effective methods.
The attached report has been prepared by staff to provide the nexus to maintain a
desirable condition, performance, and appearance of City public roadway pavements.
Specifically, the PPP will:
1. Provide a periodic inventory of all paved public streets to determine pavement
condition and identify current and future maintenance and rehabilitation needs.
2. Establish a pavement management system to maintain pavement condition and
life.
3. Forecast a yearly budget to maintain the condition and quality of pavements
while optimizing the expenditure of limited fiscal resources.
4. Maintain a record of pavement maintenance and rehabilitation (M&R) efforts via
GIS; track costs; and evaluate the performance of pavement M&R methods.
Adopt Pavement Preservation Program
Page 2 of 3
June 12, 2008
Pavement maintenance and rehabilitation treatments fall into three general categories:
• Preventive Maintenance (pothole repair, patching, crack sealing, and surface
seals)
• Corrective or Minor Rehabilitation (thin or thick overlays)
• Rehabilitation (reconstruction of the entire pavement structural section)
The preventive methods are less expensive, while reconstruction is correspondingly the
most expensive method. It is therefore more cost efficient to extend the life of your
good pavements by allocating the majority of your resources to preventive maintenance
treatments such as pothole repair, patching, crack sealing, slurry sealing, and thin
overlays. The analogy would be the maintenance on an automobile. If adequate
preventive maintenance is not performed, the result would be more costly repairs in the
future.
The Public Works Department contracted with a consultant to conduct a Pavement
Management Study that established the current pavement condition of the City public
roadway network and recommended a strategy and costs for pavement preservation
over the next five years. The final report was submitted in December 2007. The study
used the MicroPaver 5.2 software to perform the analysis of collected pavement
condition data and establish annual maintenance work programs. This software is used
by CVAG to inventory and assess the pavement condition and funding for maintenance
and rehabilitation of arterials in the Coachella Valley. The results and recommendations
of the study were as follows:
• The inventory of the condition of the citywide public roadway pavements resulted
in an average Pavement Condition Index (PCI) of 78.9 which is in the "Very
Good" range as defined between 71 and 85. (A PCI of "0" would correspond to a
badly deteriorated pavement, while a "100" would correspond to an excellent
pavement condition.)
• In developing an annual expenditure level required to maintain the street network
at its current average PCI level, various budget scenarios were developed. The
ideal budget scenario would not allow the "deferred" backlog to grow in quantity
and/or budget dollars. One scenario was developed for an annual $4.5 million
budget for street pavement preservation over the five-year period. This level of
funding is estimated to result in maintaining an average PCI of approximately
80.0 for all City streets and the backlog of work would drop from approximately
$15 million to $7 million. An ideal scenario to virtually eliminate any backlog of
work would require a $19 million expenditure in the first year.
In FY 2007-08, the Public Works Department is targeting to spend approximately $4.3
million on pavement preservation. In addition, on the Fred Waring Drive widening
project, approximately $1.5 million was attributed to pavement work. The Department
has budgeted $2 million in FY 2008-09 for pavement preservation activities. Also
Adopt Pavement Preservation Program
Page 3 of 3
June 12, 2008
budgeted is $1.6 million for overlay work on three segments of Country Club Drive
between Portola Avenue and Washington Street. Based upon the recommendations of
the pavement study, approximately $4 to $4.5 million should be budgeted annually over
the next three years to maintain the condition of the street pavements and not allow the
backlog of deferred preventative maintenance to grow.
Staff requests that City Council adopt the Pavement Preservation Program and the
following recommendations contained in the attached report:
1. Adopt a roadway Pavement Preservation Program for the City of Palm Desert's
roadway system that maintains the condition, performance, and appearance of
its pavements.
2. Inventory roadway pavements every three years to ascertain current pavement
conditions and determine maintenance and rehabilitation needs.
3. Select the right and most cost-effective pavement preservation methods.
4. Recommend a yearly budget based upon pavement preservation needs and
cost-efficient strategies that optimize the expenditure of limited fiscal resources.
Lower cost pavement treatments should comprise approximately 80% of the
annual pavement preservation budget.
5. Maintain an accurate record of pavement maintenance and rehabilitation
including locations, costs, and evaluating performance. This includes using GIS
and other methods.
Fiscal Impact: Future fiscal year budgets.
Prepared By:
John Varcia, P.E.
Engineering Manager
Mark Greerkood, P.E.
Director of Public Works
AGM for Develo ent Services Finance Director
Homer Croy CITY COUNCIL ACTSpt11t1 Gibson
APPROVED ✓ DENIED
RECEIVED OTHER
I : iid`I.i\;U DATE (o •
AYES: Fe LLSt,o ner%, Kelly, ,Spiedelssr�! �8e r
NOES: NO
ABSENT: one
ABSTAIN: AID
VERIFIED BY: RDK/i 1
Original on File with City Clerk's Office
City anag
Carlos L. Ortega
PAVEMENT PRESERVATION PROGRAM
CITY OF PALM DESERT
DEPARTMENT OF PUBLIC WORKS
73-510 Fred Waring Drive
Palm Desert, CA 92260-2578
(760) 341-7098
May 2008
INTRODUCTION
The Need for a Pavement Preservation Program
A Pavement Preservation Program (PPP) for the City of Palm Desert is necessary to
protect its investment and maintain a desirable level of condition, performance and
appearance of its public roadway pavements. Specifically, the PPP will:
1. Provide a periodic inventory all paved public streets to determine pavement
condition and identify current and future maintenance and rehabilitation needs
2. Establish a pavement management system to maintain pavement condition and
life
3. Forecast a yearly budget to maintain the condition and quality of pavements
while optimizing the expenditure of limited fiscal resources
4. Maintain a record of pavement maintenance and rehabilitation (M&R) efforts via
GIS, track costs, and evaluate the performance of pavement M&R methods.
The goal of pavement preservation is to apply the right treatments at the right time on
the right roads to maintain the quality and condition of City roadway pavements with the
most cost effective preservation methods.
Pavement Network
The entire street pavement network within the City of Palm Desert is comprised of
approximately 178 centerline miles or 43 million square feet of paved surface as shown
below:
AMOUNT OF PAVEMENT
CLASSIFICATION C-Line Miles Square Feet
Arterial 43 18,000,000
Thoroughfare, 135 25,000,000
Secondary,
Collector & Local
TOTALS 178 43,000,000
The entire pavement network represents a current investment or replacement value of
over $311.3 million as calculated below:
CLASSIFICATION Square Feet Unit Cost for Total Percent of
Replacement Replacement Replacement
Value Value
Arterial 18,000,000 $7.24 $130,320,000 42%
Thoroughfare, 25,000,000 $7.24 $181,000,000 58%
Secondary,
Collector & Local
TOTALS 43,000,000 $311,320,000 100%
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It is evident that the City of Palm Desert has invested significantly in its road system
pavements. This makes it imperative that its investment be protected and sustained via
an effective and comprehensive PPP.
Other roadway components and assets such as sidewalks, curb and gutters, striping
and markings, signing, signals, lighting, storm drains, and landscaping also need to be
protected and properly maintained are addressed in other City maintenance programs.
Pavement Condition
A Pavement Condition Index (PCI) is a rating mechanism used to describe the condition
of pavements that has been adopted by the American Association of State Highway and
Transportation Officials (AASHTO) and the American Society of Testing Materials
(ASTM). Ranging from “0” to “100”, a PCI of “0” would correspond to a badly
deteriorated pavement, while a “100” would correspond to a pavement with proper
engineering design and construction at the beginning of its life cycle.
The following table relates PCI ranges to general pavement condition definitions.
PCI RANGE CONDITION
86 – 100 Excellent
71 - 85 Very Good
56 - 70 Good
41 - 55 Fair
26 - 40 Poor
11 - 25 Very Poor
0 - 10 Failed
Pavement Preservation Treatments, Strategy and Costs
Pavement maintenance and rehabilitation treatments fall into three general categories:
Preventive Maintenance-pothole repair, patching, crack sealing, and surface
seals
Corrective or Minor Rehabilitation-thin or thick overlays
Rehabilitation-reconstruction of the entire pavement structural section.
The preventive methods are less expensive while reconstruction is correspondingly the
most expensive method.
The graph below illustrates the pavement life cycle for asphalt pavement and the
treatment for various pavement conditions. Preventive maintenance, when performed
early in the pavement life, extends the life and performance of the pavement at a lower
cost than waiting until the pavement deteriorates and more expensive overlay and
reconstruction is required.
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The critical point where pavement preventive maintenance becomes major rehabilitation
is shown in table below. Fortunately, the City has not allowed pavements to reach this
level of deterioration.
AC Streets Critical PCI Condition
Principal Arterial 55
Minor Arterial 55
Collector 41
Residential 41
PCC Streets
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The following table is the estimated life of some typical pavement treatments:
Treatment PCI Use On Recurrence
(Years)
Slurry Seal 60-80 Sound Structural Section 5
Overlay 40-70 Sound Structural Section 15-20
Reconstruction 0-10 Failed Structural Section 20+
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The table below is the cost per square foot for various pavement treatments:
Treatment Slurry Seal Thin Overlay Reconstruction
Construction $0.48 $2.01 $5.74
Design 10.00% $0.05 $0.20 $0.57
Inspection, 07.75% $0.04 $0.16 $0.44
surveying &
Testing
Construction 03.50% $0.02 $0.07 $0.20
Management
City 05.00% $0.02 $0.10 $0.29
Administration
Total Cost/SF $0.61 $2.54 $7.24
It is evident that it is more cost efficient and you extend the life of your good pavements
by allocating the majority of your resources to preventive maintenance treatments such
as pothole repair, patching, crack sealing, slurry sealing, and thin overlays. An analogy
would be the maintenance on an automobile. If adequate preventive maintenance is
not performed, the result would be future more expensive repairs.
CURRENT CITY PAVEMENT CONDITIONS
The City Public Works Department contracted with a consultant to conduct a Pavement
Management Study that established the current pavement condition of the City roadway
network and recommended a strategy and costs for pavement preservation over the
next five years. A Final Report was submitted in December 2007. Much of the
information and recommendations contained in the final report are included in this
Pavement Preservation Program. The following is a brief summary of the methodology
and recommendations of the study and report.
Inventory and Survey of Pavements
A visual survey of the pavement network was conducted to assess the existing surface
condition. Data, including distress types and quantities, segment length and width, etc.
was collected on all public streets. Data was categorized by street and maintenance
segment. Maintenance segment limits were established to be at least one mile long.
All collected data was entered into the MicroPaver, version 5.2 pavement software.
This software is used by the Coachella Valley Association of Governments (CVAG) to
inventory and assess the pavement condition of arterials in the Coachella Valley.
Upon completion of the survey, a PCI was calculated for each segment to reflect overall
pavement condition. The overall condition of the City’s road network based on current
conditions is “Very Good” with an average PCI of 78.9.
Methodology
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Once the PCI was established for a pavement section, the analysis and workload
predictions were established. The PCI is used by the MicroPAVER program to
schedule each pavement segment for maintenance activities. Once the maintenance
activities were selected and unit costs defined, budgets and work assignments were
generated for each work program on an annual basis. Using pavement deterioration
curves for each type of pavement surface and class of road, both current year and
future year work requirements for each pavement segment within the City were
determined. The current PCI is reduced annually based on the deterioration curve and
maintenance activities increase the PCI value as they are applied to the segment. The
overall program is dynamic in that each strategy consists of a cyclic series of actions
that stimulates a pavement’s anticipated life cycle.
Final project recommendations should be weighed against the City’s approach in
scheduling the workloads for contracting purposes. Pavement condition may indicate
that a particular pavement section needs attention earlier than the rest of the roads in its
localized area.
In developing an annual expenditure level required to maintain the street network at its
current average PCI level, various budget scenarios were developed. The ideal budget
scenario would not allow the “deferred” backlog of maintenance to grow in quantity
and/or budget dollars. The chart below is the Pavement Performance Curve for an
annual $4,500,000 budget for street pavement preservation during the five-year period.
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This level of funding is estimated to result in maintaining an average PCI of
approximately 80.0 for all City streets. The current average PCI was determined to be
78.9 (Very Good Range). The backlog of pavement maintenance would drop from
approximately $15 million to $7.0 million.
RECOMMENDATIONS
The following are the recommendations to establish and implement a PPP for the City
of Palm Desert:
1. Establish a roadway PPP that maintains the condition, performance, and
appearance of its public street pavements.
2. Inventory roadway pavements every three years to ascertain current pavement
conditions and determine maintenance and rehabilitation needs.
3. Select the right and most cost effective pavement preservation methods.
4. Recommend a yearly budget based upon pavement preservation needs and cost
efficient strategies that optimize the expenditure of limited fiscal resources.
Lower cost pavement treatments should comprise approximately 80% of the
annual pavement preservation budget.
5. Maintain an accurate record of pavement maintenance and rehabilitation
including locations, costs, and evaluating performance. This includes using GIS
and other methods.
“The Road to Pavement Preservation is Never Finished”
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