22. Pavement ManagementPUBLIC WORKS DEPARTMENT
CUPERTINO Summary
AGENDA ITEM a ~- AGENDA DATE May 6, 2008
SUBJECT AND ISSUE
Report on Pavement Management, Street Conditions and Preventative Maintenance
BACKGROUND
The City contracts with the Engineering Firm of Harris and Associates to update the
City's Pavement Management Program (PMP) which was completed on March 28, 2008.
The PMP provides an objective and scientific management tool to inventory street
pavement, assess pavement conditions, record historical maintenance activity, forecast
budget needs, and to view the impacts of the funding on the City-wide pavement
condition over time.
The PMP model for cities is based on standardized software and methodology developed
by the Metropolitan Transportation Commission and is used by most cities throughout the
bay area. It is also the model approved by the Valley Transportation Authority (VTA)
when allocating funds to city projects.
All city streets are constructed with asphalt pavement- that deteriorates over time by both
traffic loading and weathering. Preventative maintenance on city streets is very important
because it can sustain a street's condition over time with relatively low cost as compared
to having to reconstruct the entire street. Street reconstruction is at least 30 times more
costly than slurry seal and up to 5 times more expensive than an asphalt overlay. The
condition of city streets is based on a visual distress rating system resulting in an overall
Pavement Condition Index (PCI).
This methodology was adopted by cities many years ago to ensure that preventative
maintenance is applied through a uniform, objective, and engineering based process. Prior
to the adoption of the PMP and PCI methodology many cities were faced with what has
been characterized as a "first-come, first served'' process and/or based on who complains
loudest and longest. This approach while perhaps satisfying some residents in the short
term is neither objective nor fair to the entire city. It also does not effectively and
efficiently apply scarce resources to preventative street maintenance.
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DISCUSSION
Condition of Cupertino's Street Asphalt Pavement (PCI)
The City's average pavement condition is an overall PCI of 69 on a 100-point scale with
100 being a completely new street. The PCI number is misleading as it is often incorrectly
read as a "grade" like 69% out of 100%, «~hich in acadenuc terms would usually be called
a substandard of even failing grade. PCI does not mean that at all. What it means instead
is that the overall condition of Cupertino's street system is in the high range of MTC's
designation of Good condition.
In fact, the specific condition ranking of Cupertino's 142 miles of streets shows that 92%
of the street miles are in Good or Very Good condition requiring little more than periodic
slurry sealing or at most a thin asphalt overlay.
The balance of 8% is considered to be in poor condition requiring a thicker asphalt
overlay. Fortunately, although the PMP estunates that there may be only two tenths of a
mile of Cupertino streets that are in very poor condition- that v~~ould require complete
reconstruction, the report does not specify any segments of streets to which that might
apply.
The implication of the overall street conditions in Cupertino in terms of cost is that streets
in good, very good or new condition require maintenance that is mostly slurry seal ($2.50
/ sq yd), a cape seal ($5.50 / sq yd) or a thin asphalt overlay ($16.00 / sq yd). Very few
streets would require a thick asphalt overly ($25.00 / sq yd). As noted above no street
segments are identified as requiring complete structural reconstruction ($77.00 - $80.00
sq / yd) and therefore no street reconstruction is proposed by staff.
Descr~tion of Street Maintenance Methods
As noted above, there are three specific types of work that are employed to maintain the
life and condition of a street segment. These are Slurry Seal, Cape Seal and Pavement
Overlays. A brief description of each in ascending order of magnitude follows:
• Pavement Restoration -This is a small project that is designed to repair
particular sections of pavement where it is not required for the entire street to be
overlaid or sealed. This work consists of digging out and replacing discrete areas
of the pavement that have failed, or are about to fail, structurally.
Slurry Seal -This work consists of applying a mixture of hot asphalt oil, a
graded aggregate rock, water, and additives to the pavement surface. Slurry seals
are used for sealing aged and worn pavements, filling minor cracks, restoring skid
resistance and restoring aesthetic appeal. This application serves to protect and
preserve the pavement surface and extend its useful life.
zz-2
• Cape Seal -This work is the combination of t«~o sealuig and rehabilitation
methods, chip seal and slurry- seal. First a chip seal is applied, which is a hot
asphalt spray binder «nth a single size aggregate rock nixed into it. It is then
followed withui a few days by a slurry seal. While more expensive, this
combination method provides an additional measure of pavement surface
durability and has more restorative impact on the pavement than a straight slurry.
The only downside is that in the period betv,Teen the clop seal and the slurry seal,
sometimes the small aggregate comes loose as vehicles travel over it creating a
nuisance for drivers.
• Pavement Overlay - An overlay consists of placing an additional asphalt
pavement layer (generally 2" to 3"} oil top of the existing street surface. This
method is typically used it combination with surface nulling, i.e., the grinding of
several inches of the existing pavement and either re-using the b -findings v,~ith hot
oil additives or replacing it with a new layer of asphalt pavement. This is the most
comprehensive resurfacing method used to restore structural integrity.
BUDGET NEEDS ANALYSIS
Followiig the treatment strategy noted above, the PMP generates a budget needs analysis
wlich projects, based on current alit cost estimates, the amiual budget need to maintain
the City's streets in a condition that only requires minor preventative maintenance. The
intent is to maintain the streets with an overall pavement condition index (PCI) of 70 or
more.
The 2008 Pavement Management Program update recommends that the City's goal
should be to budget a mininum of $1.5 Million annually is expected to increase the PCI
and maintain the overall PCI at 70 over a four year period through 2012. The current
maiitenance of effort by the City includes an annual General Fund budget of $ 750,000
which when combined with various outside sources of funding such as gas tax, State
Transportation Program (STP) funds and others would be expected to keep pace with that
recommendation. Staff would, therefore, continue to recommend that same strategy for
the five year CIP.
The current program as shov~~1 on Exhibit A from all sources includes a total for 2008 of
$2,380,000. Proposition 1B Funds are also expected in June 2008 in the amount of
$890,000 and staff is recommending another annual amount in the proposed 2008-2009
Capital Improvement Program of $750,000. The total pavement. program for calendar
year 2008 is $4,020,000 as follows:
Current PM Funds (all sources) $ 2,380,000
Proposition 1B Funding 890,000
PM Funds Reconunended (08-09 CIP) 750.000
Total PM Funding 2008 $ 4,020,000
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PAVEMENT 1VIAINTENANCE PROJECT SCHEDULE
Exhibit A outlines the five pavement management projects that are nearing design
completion and will be competitively bid beginning in early May 2008. The bulk of the
work «-ill be underway by 3uly and will continue through September v,~ith some work
continuing to November 2008. One critical objective is to have all work that takes place
adjacent to or near a school be completed by the tune schools reopen in the fall.
Exhibit B is a listing of all street segments that are proposed to be included in each of the
projects for 2008. I~TOte that there are 3 segments ui each of the slurry seal, cape seal and
overlay projects listed (asterisk italic) that are designed but not funded and would be
added as additional funding becomes available u~ 2009.
This report is for the Couzlcil's information and no action is required.
Subnutted by:
`~. ~. CSC ~
Ralph A. Qualls, Jr.
Director of Public Works
EXPIII3IT A -Revenues and Expenditures 2008
EXHIBIT B -Pavement Projects 2008
rove for\submission:
C~J
David W. Knapp
City Manager
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EXHIBIT A - Pavctncut Mauagemcnt -Estimated Revenues and Expenditures 2008
Yavcmcnt Managcmcnt Funds Currently Available (P'cdcral S'I'P, Current FY Sc C/O General Fund) $'L,38U,000
Proposition 1B Funds to be Received 890,000
Pavcmenl Management l:unds Recommended 7-1-08 750,000
Total Yavcmcnt M:u~a emcnt i'nnds Available for ZOD8 I'ro'ccts $4,UZD,000
,.
_- __..
I'ro~ ID Pro'cct T c of Worlc Location/lone Cost -t- 10% Cont Advertise Date laid Datc Award Datc
A
Yavcmcnt Restoration Digvul & reconstruct
discrete areas v[ failing
Various City-wide
$ 220,000
May 7, 2008
June 3, 2008
June 17, 2008
pavement
13
STY (federal) Pavcmcnt Overlay Grind and overlay existing
pavcntcnt with new lift of
AC McClellan, Linda Vista to I3yntc
-I'vttau, Bollinger to Phil
409,000
May 7, 2008
.tune 3, 2008
Junc 17, 2008
C
Local 5h-ects Pavcmcnt Mgmt 1 Grind and overlay, slurry
seal, cape scat of existing Portions of Tones 3 ~ 10 (two
areas cast and west oC13uUb &
1,045,000
May 7, 2008
Junc 3, 2008
July 1, 2008
pavements South of McClellan}
D'`
Major 5trcets Yavcmcnt Mgmt Grind and overlay, slurry
scat, cape seal oI'cxisting
pavements Portions v[ Stelling, McClellan,
13andlcy, Valley Grccn
1,026,000
May 7, 2008
Junc 3, 2008
Junc 17, 2008
E*
Local 5U•ects Pavement Mgmt 2 Grind and overlay, slurry
seal, cape scat of existing Yorlions of7one 8 (area between
Stelling & De Arrza, Prospect &
1,320,000
May 28, 2008
July 1, 2008
July 15, 2008
pavements Rainbow)
Total Planucrl Pavcmcnt Managcmcnt Cxpcnditm•cs 2008 $ 4,OZD,ODD
*These projects will have second phases, D 2 and L 2, respectively, when additional funds arc available in 2009.
E~~TT B - Pa~'ement Projects 2008
4iasizoos
Proj ID
A Project
Pavement Restoration d Type of Rrork S
Dieout & reconstruct
iscrete areas of failing
pavement treets L
Various Streets. C imits
itywide
B
STP (federal) Pavement Overlay Grind and overlay existing
pavement with new lit3 of
AC McClellan Road Linda Vista Dr to B}-rne .4ve
Tantau Avenue Bollinger Rd to Phil Ln
C
Loca] Streets Pavement Mgmt 1 Grind and overlay, shirty
seal, cape seal of existing
pavements
Slum Seal Columbus Avenue Marina Rosa Way to Bubb Rd
Cape Seal Clarkston Avenue b7intshire Si to Columbus Ave
Castleton Street Clarkston Ave to Wilkinson Ave
Collinesworth Street R'ill~rtson Ave to Sutherland Ave
Coltmbus Avenue Bubb Rd to Vai .Ave
Columbus Avenue Linda Vista Dr to Marina Rosa VJay
Cranberry Circle Cranberry Dr to End
Cranberry Drive Hollv Oak Dr to End
Elm Court Bubb Rd to End
Flintshire Street Palos Verdes Dr to Clarkston Ave
Holly Oak Drive Bubb Rd to Cranbem Dr
Overlay Krdch Place Bubb Rd to End
Palos Verdes Drive Terrace Dr to Czstleton St
Pennington Lane Pumpkin Dr to Woodlark Way
n~p}jn Cottrt Pumpkin Dr to End
Pumpkin Drive Bubb Rd to Pennington Ln
~
Shannon Court '
Bubb Rd to End
Sutherland Avenue Collines+vorth St to Castleton St
\%ai Avenue Bubb Rd To Columbus Ave
R'tlkinson Avenue Collings+vorth St to Columbus Ave
R'oodlazk Wzy Pennington Ln to Cranberry Dr
D*
?v4ajor Streets Pavement M,ant Grind and overla}~, slurry
seal, cape seal of existing
pavements
Bandley Drive Stevens Creek Blvd to Valley Green Dr
Bubb Road Terrace Dr to McClellan Rd
Slurry Seal McClellan Rcad Bubb Rd to SR-BS OC
Murn.Svcnvc' Src,~ens Creek Blvd ro A~ereor Dr
Bandley Drive Stevetu Creek Bh~d to VaDey Green Dr
Cape Seal Valley Green Drive N De .4nza Blvd to Beazdon Dr
North Stalling Road vdaterford Dr tc SR-85
Overlay North Stalling Road Stevens Creek Blvd to I-?80
E°
Local Streets Pavement Mgtnt 2 Grind and overlay, slurry
seal, cape seal of existing
pavements
Aster Couri Aster Ln to End
Aster Lane Waterford Dr to Bamhari Pl
Barnhart Place Aster Ln to Gal+vay Dr
Donegal Drive Leeds Ave to Sta 17<j6
Slurry Seal Leeds Avenue Sta 1 1+80 to Donegal Dr
Rainbo+v Drive Poppy Way to De Anza Blvd
South Stalling Road Rainbo+v Dr to Prospect Rd
.9sler Lane° Atormm~dV N'OT'ro IZanthax~
Pra.cpacr Hoad'~ Stalling Rd fo Dc An_a Blvd
Galway Drive Prospect Rd to Battiltari P)
Plum Blossom Drive Primrose Way to Sta 12+18
\Vildflou~er v.'ay Poppy Way to S De Anna Blvd
Cape Seal dslerLane° Rainbox~ Dr to Sourlt End
.5ster Lane ° N'are,7rord Dr to Normandy if'oy
Orange Blossom Drive' Asicr Ln to Primrose R'ay
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E~IBIT B -Pavement Projects 2008
4/1S/?OOS
art Place Cral~j•ay Dr to Jamestown Dr
gal Drive Sta 17+56 to Primrose R'ay
.r Court Poppy VTay to End
ctoH~ Dtive Plum Blossom Dr to Prospect Rd
Avenue Primrose R'ay to SEa 17+80
Blossom Drive Poppy VJay to Jamestotam Dr
~ R'ay Rainbow Dr to Plum Blossom Dr
ese V,'ay Rainbo~+~ Dr to Barnhart
row Drive S Stelling Rd to Poppy Way
garden Lane Peach Blossom Dr to v,'atersord Dr
rford Drive S STelling Rd to Primrose Way
astle Drive' Aster Lane [o Rosegarden Ln
candy flray'~ AsferLane to Rosegarden Ln
6 Rlnccrnr• AsterLtt to Primrose fl'aP
projects will have second phases, D 2 and E 2; respectively, when additional funds are avai]able in 2009.
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2of2
EXHIBIT B -Pavement Projects 2008
4/2S/1005
Proj ID Project T\ e of Rork Streets Litniu
A
Pavement Restoration Digout R reconstruct
discrete areas of failing
pavement
Various Streets.
Cit}M'ide
B
STP (federal) Pavement Overlay Grind and o+'erlay existing
pavement with neyy lifr of
AC AcClellan Road Linda \%ista Dr to Byrne Ave
Tantau Avenue Bollinger Rd to Phil Ln
C
Lora] Streets Pavement Memt 1 Grind and overlay, shitty
seat, cape seal of existine
pavements
Slurry Seal Columbus Avenue Marina Rasa 1\'av to Bubb Rd
Cape Seal Clarkston Avenue Flintshirc St to Columbus Ave
Castleton Sveet Clarkston Ave to \\'illdnson Ave
Collines+vortlt Street Rrillanson Ave to Sutherland Ave
Columbus Avenue Bubb Rd to \'ai Ave
Columbus Avenue Linda \%ista Dr to Marina Rosa A'zy
Cranbcay Circle Cranberry Dr to End
Cranberr}~ Drive Holly Oak Dr to End
Elm Court Bubb Rd to End
Flinulure Street Palos \rerdes Dr to Clarkston Ave
Holly Oak Drive Bubb Rd to Cranberry Dr
Over)zv K.zich Place Bubb Rd to End
Palos \%erdes Drive Terrace Dr to Castleton St
Pennineton Lane Pumpkin Dr to Woodlark \','ay
Ptimpl~n Court Pumpkin Dr to End
Ptimplan Drive Bubb Rd to Petutinr_ton Ln
Shatmon Court Bubb Rd to End
Sutherland Avenue Collin~swmYh St to Castleton St
Vat Avenue Bubb Rd to Columbus Ave
Vr'illdnson Avenue Collines+vo,-th St to Columbus Ave
A'oodlazk Wav Penriineton Ln to Cranbe.~• Dr
D*
Major Streets Pavement ?\~~t Grind and overlay, shttry
seal, cape sea] of existing
pavements
Handley Drive Stevens Creei: Blvd to Valley Green Dr
Bubb Road Terrace Dr to McClellan Rd
Slurry Seal
' MrClellan Rnad Bubb Rd to SR-SS OC
A9an~.9venru•' .Srcrcns Creek Blr•d m Meteor Dr
Handley Drive Stevens Creek Blvd to Valley Green Dr
Cape Seel Valley Green Drive N De Anna Blvd to Beardon Dr
North Stalling Road H'aterford Dr to SR-BS
Overlay North Stcllin¢ Road Stevens Creek Blvd to I-280
E*
Local Streets Pavement MVutt 2 Grind and overlay, slurry
seal, cape seal of existing
pat'entents
4eter Court .Aster Ln to End
Aster Lane N'aterfnrd Dr to Barnhart PI
Bamhan Place Aster Ln to Gahvav llr
Done¢al Drive Leeds Ave to Sta 17~ i6
Slum Sarl Leeds .Avenue Sta l 1-8G to Donc~•al Dr
Rainho+y Drive Poppy \\'ay to De .4nza Blvd
South Stelline Rnad Rainbo+c Dr to Prospect Rd
.4.crcr l.uor' Ah,rnrundr H'ut• rn Roinbuto
1'ru.+lrccr Xuod+ .tircllut~ Rd ro Uc.4n_u Blvd
Gal+vey Drive Prospect Rd to Barnhart PI
Plum Blossom Drive Primrose N'ay to Sta 12+I S
1\'ildflower Vdav Poppy 1\'ap to 5 De Anna Blvd
Cape Seal ~
.9srcr Lune
Rmnhnw 1)r ro .South End
.9.crer Larre' N'arcrjord Dr to .knrmm7dy N'uy
Oranl;c Bluc.com Dror' .9srcr I,n ro 1'rimru.cc H'or
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1 of 2
EXHIBIT B - Pa`'ement Projects 2008
4/18/2D08
art Place Gals+ay Dr to Jamesto~jm Dr
al Drive Sta 17+56 to Primrose R'ay
r Court Poppy Way to End
towv Drive Plum Blossom Dr to Prospect Rd
Avenue P:iuuose Way to Sta 11+80
3iossom Drive Poppy Way to Jamesto~am Dr
Way Rainbow Dr to Plum Blossom Dr
use Way Rainbow Dr to Barnhart
ow Drive S Stalling Rd to Poppy R'ay
arden Lane Peach Blossom Dr to 1~'atert"ord Dr
ford Drive S Stalling Rd to Primrose Way
7sde 1?rive • -Aster Lane to Rose~arden Ln
v7dy A'a}'~ Aster Lane io Rose~arden Ln
Blossom "' Aster Ln to Primrose IAa t~
*These projects will have second phases, D 2 and E 2, respectively; when additional funds are available in 2009.
22-9
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EXHIBITS
BEGIN
HERE
2008 PAVEMENT
MANAGEMENT PROGRAM
CITY COUNCIL
MAY 6, 2008
PAVEMENT MANAGEMENT
PROGRAM
. PMS Model - MTC Program Methodology
. Pavement Condition Index (PCI)
. 90-100 =Excellent
. 70-89 =Very Good
. 50-69 =Good
. Below 50 =Poor
PRESENTATION AGENDA
. Pavement Management Program/
Methodology/Pavement Index
. Maintenance Treatments
. Cupertino Street Conditions
. Budget Needs Analysis
. 2008 Funding
. 2008 Projects and Schedule
MAINTENANCE METHODS
. Pavement Restoration =selected sections dug
out and replaced, not entire street
. Slurry Seal =Hot Asphalt and additives to seal,
fill cracks and protect pavement
. Cape Seal =Combination Slurry and Chip Seal
using heavier aggregates first with slurry
applied after
. Pavement Overlay =Complete layer of asphalt
pavement (2"~") either straight paving or grind
and fill methods
1
PAVEMENT TREATMENTS FOR
EACH CONDITION
. 90-100 =Excellent : No Action Required
. 70-89 =Very Good: Slurry Seal
. 50-69 =Good: Slurry or Cape Seal, some
thin overlays
^ Below 50 =Poor: Thin or Thick Pavement
overlays
BUDGET NEEDS ANALYSIS
. Current Maintenance of Effort = $750,000
^ PMP Recommends $1,500,000 Annually over 4
years to keep overall PCI = 70
^ Historically and in the future with Outside
Funding Sources (Gas Tax, VTA, Prop 42, etc.)
Cupertino meets or exceeds that amount.
^ Five year trend has gone from 67 to 69 overall
. Four years at $1,500,000 or more will bring PCI
up to and maintain 70
CUPERTINO STREET CONDITION
^ Total Centerline Miles = 142 (412 Lane Miles)
. Overall PCI Total System = 69
^ Arterial Streets = 76 (34 CL Miles)
^ Collector Streets = 71 (14 CL Miles)
. Residential = 67 (93 CL Miles)
^ 55% of Streets =Very Good Condition
^ 35% of Streets =Good Condition
^ 2% of Streets = New or Excellent Condition
. i.e., 92% of Cupertino's Streets are in Good or
Very Good Condition
2008 FUNDING SOURCES
. General Fund (07-08) $ 750,000
. STP (Federal) 409,000
^ Other (Gas Tax, VTA, etc.) 1,221,000
^ Subtotal $ 2,380,000
. Proposition 16 890,000
. General Fund (08-09 Proposed) 750,000
. Total 2008 Pavement Mgmt $ 4,020,000
^ Prop. 42 Funds (9/08) 530.000
.Total All Program Funds $ 4,550,000
2
2008 PRO]ECTS AND
SCHEDULE
. Pavement Restoration $ 220,000
. STP (Fed) Pavement Overlay 409,000
. Residential Streets I 1,045,000
. Residential Streets II 1,320,000
. Major Streets 1,026,000
. Total 2008 Pavement Mgmt $ 4,020,000
. Prop. 42 Funds (9/08) 530,000
. Total All Program Funds $ 4,550,000
. Schedule: July 2008 -October 2008