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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