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2011-2012 Pavement Management Plan Millet' Pavement Management Program 400.Pavement Management Plan Update 2011 Prepared for City of Spokane Valley September, 2011 Adopted by Council on March 27 , 2012 rJUB J-U-B Engineers, Inc. 422 W. Riverside Avenue, Suite 304 Spokane, Washington 99201-0302 III TABLE OF CONTENTS PAVEMENT MANAGEMENT PLAN UPDATE 2011 1 INTRODUCTION 1 REPORT HIGHLIGHTS 3 2011 ANALYSIS AND UPDATE 7 1. Segment Consolidation 7 2. Automated Pavement Inspection 8 Local Access (residential) Street Deterioration 9 Pavement Performance Issues and Recommendations 10 Evaluation of Repair and Maintenance Treatments 11 BUDGET SCENARIO DEVELOPMENT 13 Arterial and Collectors 13 Local Access (residential) Streets 19 RECOMMENDATIONS 25 APPENDICES 1. AUTOMATED PAVEMENT INSPECTIONS METHODOLOGY 2, PROJECT EVALUATION RECOMMENDATIONS 3. DETERIORATION OF ROAD SEGMENTS 4. COMPARISON OF PAVEMENT CONDITION INDEX (PCI) AND OVERALL CONDITION INDEX (OCI) 5. ARTERIAL PROJECTS 2011 OCI Map: Arterials and Collectors Arterials and Collectors, 2012 -- 2017 Projects Map — Overlays, Reconstruction, and Preventative Maintenance • 2012-2017 Proposed Budget--Arterials and Collectors — Preservation and Maintenance Projects List and Cost 6. LOCAL ACCESS (RESIDENTIAL) PROJECTS 2011 OCI Map: Local Access (Residential) Local Access (Residential), 2012 -- 2017 Projects Map — Overlays, Reconstruction, and Preventative Maintenance • 2012-2017 Proposed Budget -- Local Access (Residential) — Preservation and Maintenance Projects List and Cost II PAVEMENT MANAGEMENT PLAN UPDATE 2011 INTRODUCTION In June of 2007, the city completed their first development of a citywide Pavement Management Plan (PMP) and in 2008 the first update was completed. This update to the PMP is intended as an effort to monitor roadway pavement conditions on an ongoing basis. RCW 46.68.113 requires "large cities" to collect pavement condition data on the functionally classified Arterial and Collector network every two years. The pavement condition data is due to the Washington State Department of Transportation in September every even numbered year. J-U-B ENGINEERS INC. (J-U-B) assisted the City of Spokane Valley with this effort and submitted the pavement conditions per the RCW. This 2011 update includes additional field condition inspections of city streets and input of updated data into a computer model, Cartegraph Pavement View and Pavement View Plus. The computer model allows the City to analyze and rate the city streets by Overall Condition Index (OCI) of 0 (failed) to 100 (new). The primary goal of a PMP is to develop long term maintenance strategies that minimize the costs to the city. Instrumental in that effort is maximizing the maintenance of roads through annual crack sealing and fog sealing, while minimizing major rehabilitation and reconstruction costs, Budget scenarios were developed for existing city funding levels to compare with proposed funding levels that attempt to maintain the streets at a minimum average 70 OCI for Arterials/Collectors and 65 OCI for Local Access (residential) roads. This report updates the results of 2010 field inspections, modeling updates and modified recommendations for budget strategies. As recommended in the 2007 report, roadway condition surveys should occur bi-annually for Arterials, and every three to five years for Local Access (residential) roads. Over time, the data will aid the city in establishing road condition trends and appropriate budget forecasting. Major components of the 2011 Update include the following: >> Use of an Automated Pavement Inspection Process, (Infrastructure Management Services [IMS] was tasked with completing the Automated Pavement Process) Previously inspections were conducted visually. 1 ➢ Field inspected one-third of Local Access (residential) streets. (PMP recommended re-inspecting all Local Access (residential) streets every three- five years.) ➢ Field inspected one-half of the Arterial roads. (WSDOT bi-annual report on Arterials was due in the fall of 2010). ➢ Consolidated the Road Network Segments from 5,000 to 2,000. > Updated the Cartegraph computer database. Updated Activity Unit Costs, input construction projects over the past three years including Septic Tank Elimination Program (STEP) projects. > Evaluated pavement condition changes experienced in 2010. ➢ Refined project prioritization, protocols, and strategy procedures. > Analyzed budget strategies to evaluate the impact on long term roadway conditions to include: o The current $2.3 million City budget o Budget needed to maintain the desired OCI and prevent additional road segments from falling into the reconstruction OCI range 2 REPORT HIGHLIGHTS Table 1 summarizes the City's estimated 2012 annual street Maintenance & Rehabilitation (M&R) revenue distribution. Preservation includes work such as crack sealing, fog sealing, patching, shoulder repair, grading, and overlays and mill & overlays. Major reconstruction involves total reconstruction of the roadway, including the base material. This estimated revenue was provided by City staff as the baseline for evaluating strategies for future recommendations. Table 1. 2012 Estimated Annual City Streets M&R Anticipated Revenue Distribution for Pavement Preservation 1 Estimate Future 2012 City Revenue City Revenue Capital Projects $300,000 $800000 Street Maintenance Fund $1,500,000 $1,500000 Street Maintenance $500,000 Fund* Total $2,300,000 $ 2,300,000 *One-time contribution from Street Maintenance Fund undesignated fund balance. The principle of pavement management is to perform regular maintenance of the roadways at lower costs and retain a higher overall pavement condition. The goal being to minimize or delay higher cost reconstruction in future years. The American Society for Testing and Materials (ASTM) is the agency that recommends historical pavement characteristics. The general overall Pavement Deterioration Curve recommended by ASTM shows that $1 of preservation at 75% of its life will cost $4 to $10 if delayed until 40% of its life remains. Figure 1 depicts this relationship of condition deterioration over time. For example, completing a maintenance project such as crack sealing on a road segment with 75% of life remaining will cost 8 to 10 times less than allowing that road to deteriorate to a level that would require a full reconstruction. The cost differential between mill and overlay and reconstruction is on the order of 4 to 6 times more for reconstruction projects. ' It should be noted that$1 million dollars of the$2.3 million dollar budget is typically allocated to PMP related projects to address immediate needs such as pothole repairs, patches, one-lane overlays. The dollars allocated for these repairs may or may not be listed in the PMP plan but these repairs do provide improvements to the road segment OCI. 3 Figure 1. General Pavement Deterioration Curve Crack Seal Mill & Overlay Excellent u a_ 40% drop in -c) Each Each $1 of repair 0 Good _ 75% of life not done here . . . . ,will cost $4 Fair to $10 if 40% drop i delayed to quality a) Poor - here a a) 12% of life ro Failed ill 1 1 1 I l l l l l l H l l l i 1 l l l l l l 5 10 15 20 25 30 Year Results of the field inspections and computer analysis of existing roads in 2011 finds that the overall OCI for the road network compared to 2008 is as follows: 2008 2011 2017 • Arterial/Collector OCI 67 64 58 • Local Access (residential) OCI 71 71 58 The projected OCI for the Arterial/Collector roads is expected to deteriorate to an OCI of 58 by the end of 2017 using the current estimated $2.1 million dollar Arterial budget. The projected OCI for the Local Access (residential) roads is expected to deteriorate to an OCI of 58 by the end of 2017 using the current $200,000 Local Access (residential) road budget. Figures 2a and 2b illustrate this predicted pavement condition 4 deterioration over the next 6 years for both Arterial and Local Access (residential) roads using the current $2.3 million dollar budget. The 2008 Report projected the 2010 Arterial OCI to be 68 using the City's projected budget of$2.9 million dollars annual average. The report also predicted a 2010 Local Access (residential) OCI of 63 using the City's projected average annual budget of$1.7 million dollars. The OCI increase for the Local Access (residential) roads can be attributed to the STEP projects as described below. The decrease in OCI for the Arterial roads from 67 in 2008 to 64 in 2011 can be attributed to several factors including a decline in grant funding and database refinements such as segment consolidation and updated pavement inspection information. The key factor for the OCI decrease was due to the lack of significant projects in the year 2010 and 2011. This budget does not include grant or STEP dollars received by the City to fund the reconstruction or upgrade of Arterial roads. The 2011 Updated Arterial OCI follows closely the projected trend from the 2008 report showing a difference in OCI of 4 points. The Local Access (residential) roads are showing a substantial increase in OCI from 2008 to 2011. Two reasons for the increase in Local Access (residential) roads OCI are 1) the analysis software did not account for predicted future STEP projects and 2) the 2010 analysis has included three years of substantial completed STEP projects. The software does not provide for the inclusion of future anticipated projects, only predicted projects defined by the program protocols. In the future, anticipated projects will need to be incorporated into the program by hand to account for their impact on road condition. 5 Figure 2a. Predicted Six-Year OCI Using 2010 M & R Revenue (Arterials) Arterials 100 90 - Excellent 80 69 Very Good 70 64 b3 62 61 60 60 - 59 58 M Good - .- a 50 _ • ■ ■ IN ■ ■ ■1.40 ■ ■ El 10 - III ■ ■ Very Poo ■ ■ ■ 0 ■ Failed ■ ■ ■ 0 1 2 3 4 5 6 7 (2010) Plan Year (2017) Figure 2b. Predicted Six-Year 001 Using 2010 M & R Revenue (Local) Locals 100 -- - 90 - Excellent -- 80 74 71 Very Good 70 69 68 66 6 58 60 63 61 r r Good - - L-5 50 - M II MI al . M . 40 .II■i i P . . . 30 - ill 20 - ery Poo 10 i ■ M 11 Failed 0 _ - 0 1 2 3 4 5 6 7 (2010) Plan Year (2017) 6 Several strategies were evaluated to develop a future budget that would continue to maintain the overall city roads. The 2011 recommendations are separated into functionally classified roads, (Arterials and Collectors), and Local Access (residential) roads. As established in previous reports, the goal over time is to maintain a 70 OCI for Arterials/Collectors and a 65 OCI for Local Access (residential) roads. Another condition was added to ensure additional road segments do not fall into the reconstruction status. Table 1 illustrates a comparison of funding levels for 2007 and 2011. Grant funds for maintenance and rehabilitation projects such as mill and overlays have decreased over the last three years. Table 1 also shows the 2012 estimated City Revenue for road preservation and rehabilitation for both Arterials and Local Access (residential) roads. 2011 ANALYSIS AND UPDATE Updating the citywide PMP began with field inspection of one-third of the Local Access (residential) streets and half of the Arterial streets. The PMP recommends inspecting all of the Local Access (residential) streets in a three year cycle and all of the Arterials and Collectors every two years. Two significant changes occurred this year in the process of analyzing the road systems. 1. The massive data files for each individual roadway segment were consolidated into more manageable segments, thus streamlining analysis. 2. Inspections were conducted using automated equipment rather than visual field inspections These two changes described in detail below, have added a significant level of difficulty to this year's analysis when compared against the old data. 1. Segment Consolidation The large pavement database was consolidated into larger road segments, reducing the database from 5,000 to approximately 2,000 segments. The consolidation process involved re-segmenting the roads into more logical and longer segments. Previously the database road segments were broken down by each city block, each segment being one block. The road network has been re-calibrated; segments now begin and end at a functionally classified road. For example, Sprague Avenue from University to 7 Evergreen is now two segments instead of 10. Since the 2008 update the amount of historical data in the database has grown substantially. This historical data, including, past mill and overlay projects, reconstruction projects, STEP projects, crack seal projects, mill and inlay projects, etc. have been used to update and refine the database. 2. Automated Pavement inspection A significant change to the field inspection procedures for the 2011 update included using Automated Inspection instead of the manual (visual) inspection conducted in the past. Automated field inspection provided several advantages such as: • Time savings • Safety y Consistency • Easily input into the Cartegraph database In previous updates field inspection was accomplished using manual inspection by field personnel consisting of 4 -6 people in groups of two. Each group went out into the field to measure pavement distress on a sample segment basis. The inspections covered approximately two-fifths of all of the Local Access (residential) roads and all of the Arterials and Collectors. This work took approximately three months to complete. Using the automated field inspection method one-half of the Arterials and Collectors and one-third of the Local Access (residential) roads were cataloged in five days. The automated inspection is by far safer in that staff will no longer have to venture into the traveled lanes to measure or review pavement distresses. All work is done inside the comfort of a vehicle. Consistency increased due to the highly technical equipment used for the automated inspection. The tools used to measure distress do not rely on a subjective human eye. All of the pavement inspection data collected using automation was successfully transferred into the existing Cartegraph database. This saved several days of database 8 manipulation and formatting. While the cost of inspection increased, the cost of data manipulation decreased for an overall net zero (0) cost differential. IMS was chosen to provide the automated pavement inspection for this project. IMS had the ability to meet the schedule and provide high quality inspection information for the model. IMS also has a Cartegraph expert on their staff to manage the data transfer into the existing database. Refer to Appendix for additional IMS inspection information. Local Access (residential) Street Deterioration Figure 3 shows the deterioration curves used in the City's analysis. The first line, "Fitted Spokane Valley OCI curve (Local)" is the deterioration curve for the Local Access (residential) roads only. The second curve is the default deterioration curve for the Arterials, Collector and Local Access (residential) roads as provided by the Cartegraph software and the third curve is the PCI curve. The difference between the OCI and PCI is that the PCI is calculated solely based on the pavement inspections. The OCI is calculated based on the pavement inspection, pavement age, pavement type. See Appendix 4.Figure 3. Option 1 — Comparison of Deterioration Curves Arterial/Collector OCI Comparison 120 -- 100 Fitted 80 - Spokane Valley OCI 60 Curve Lo a■ ��efacult al)) OCI 0 40 (Arterial & \11111,� Local) 20 Curve 0 PCI Curve -20 0 2 4 6 8 10 12 14 16 18 20 22 24 26 28 30 35 40 Age 9 Initially the standard, default ASTM deterioration curves were used in the analysis. Since the 2006 and 2008 updates a historical database has been collected. The historical data can now be used to refine the pavement deterioration and OCI curves to fit actual conditions. As a result, the Local Access (residential) OCI deterioration curve has been updated based on the historic information. See Figure 3. The OCI curve for Arterials and Collectors will be retained until the historic data analysis results in a curve update. The Local Access (residential) OCI deterioration curve was updated based on 1-2 years of pavement inspections between 2006 and the 2011 update. Over the past 4 years we have inspected all Local Access (residential) roads at least once and in some cases multiple times. The curve adjustment is based on the inspection of each of the approximately 1,700 Local Access (residential) road segments. It was very clear that the curve based on pavement inspections did not follow the standard ASTM curve as shown in Table 3, The Local Access (residential) road segments followed the fitted deterioration curve much more closely compared to the ASTM curve thus prompting the adjustment. The Arterial OCI deterioration curve is much more difficult to justify an adjustment with so few data points. There are 304 Arterial road segments, each road segment having been inspected at least 2 times. There are not enough inspection points to confidently adjust the Arterial deterioration curve at this time. Adjustments will be made after additional information is collected in future years. Pavement Performance Issues and Recommendations The City of Spokane Valley will need to continue to modify the deterioration curves to more accurately reflect the actual field conditions of the roadway network. There appears to be areas in which the Arterial/Collector roads are deteriorating prematurely. Included in the Appendix are examples of premature deterioration on Sprague and Appleway Boulevard. This section shows the OCI trends and an estimated cost to improve these road segments. Again, there is a serious need to reserve funds for ongoing maintenance of the road network. There is also a need to utilize current design 10 and construction standards to ensure that future overlay and reconstruction projects perform adequately for 20+ years. Road segments such as Sprague and Appleway, as described above, and Argonne are all showing signs of premature failure. These roads are showing substantial cracking and are nearing failure. These road segments are between 5-10 years old with a design pavement life of 20 years, yet these roads need overlays within the next few years. In order to prevent premature failure of the road section in the future the City conducted a pavement performance study in 2008. Some of the recommended changes are as follows: 1. Increased geotechnical investigations of existing soil. 2. Accurate truck traffic assessments. 3. Require "Engineered" pavement section design. 4. Careful evaluation of asphalt cement mix design. 5. Increase minimum pavement section. 6. Increase fractured face requirement. 7. Increase moisture and compaction compliance testing. 8. Enhanced joint and pavement density compaction requirements. 9. Improved asphalt temperature monitoring and placement. 10.Use of stabilized subbase (Asphalt or Cement Treated Base). The full extent of the report developed by J-U-B can be found under separate cover in "Pavement Performance Issues and Recommendations" October, 2008. Evaluation of Repair and Maintenance Treatments The City of Spokane Valley is in need of an effective surface treatment between crack sealing and overlay for the Arterial/Collector and Local Access (residential) road network. Potential solutions include Fog Seals, Seal Coats, Slurry Seals and Micro- Pave. Fog seal is not an effective treatment in extending the life of the pavement for the higher volume Arterials/Collectors roadways. As a result, the City may want to experiment with various treatments over time to find the most effective preventive maintenance treatment. Identifying and using a high quality surface treatment 2-3 years 'i1 prior to mill and overlay will bring down the long-term cost by further extending the life of the pavement. A high quality surface treatment could delay the need for a mill and overlay 3-5 years assuming the treatment is done on the correct road segment and at the appropriate time. It is recommended that the City select 2-3 treatments to be applied to several roadways throughout the city, City staff will evaluate the performance of the treatments on a yearly basis. Once the City is confident on the performance of a particular treatment it will be added to the PMP as a recommended activity for future years. This treatment will be used to bridge the gap between crack seal and mill and overlay. A potential solution to fill this gap is a seal coat called GSB88. GSB88 seal coat rejuvenates the asphalt by penetrating the surface asphalt. GSB$8 contains polymers that adhere to the aggregates thus adding new life the oxidized asphalt. Typical Fog Seals such as a CSS-1 h do not penetrate the asphalt; the oil remains on the top surface and tends to wear out more quickly over time. The goal being to extend the life of the pavement 3-5 years until an overlay can be completed. This type of treatment allows the City to extend the life of pavements while preventing the road segment from falling into the reconstruction category, a much more costly alternative. J-U-B's recommendation is to conduct site specific test seal coats to gauge the potential of this and other products. The City has discovered a treatment for severe longitudinal joint cracking. This crack seal material is used to seal the longitudinal pavement joints on Arterial/Collector roadways. The crack repair material is called Deery Level and Go, manufactured by Craftco. This product has been successfully applied to the failed longitudinal joints on Thierman, Dishman-Mica, 32nd with great success. The advantages of this product are as follows: • Structurally sound material — this material can withstand heavy traffic loads while being flexible to allow for shrinking and swelling. • Plastic— this material is very flexible and will not pull away from the existing asphalt during times of expansion and contraction. 12 e This product is very easy to apply and will setup quickly to minimize road closures/restrictions. This treatment will improve and extend the life of a road which a failed longitudinal pavement joint is the only real distress in the that particular segment. BUDGET SCENARIO DEVELOPMENT The 2011 Pavement Management Plan Update evaluated the impact to road conditions for various City budgets moving forward. In the current economic state, additional funding options are limited. This budget analysis update will attempt to keep as many of the pavements from serious deterioration as possible. The 2011 update evaluates two options for funding the maintenance of streets with limited budget over the next six years until a more focused program can be developed: Option 1 — Continue with 2011 revenue of$2,100,000 for Arterials and Collectors and $200,000 for Local Access (residential) streets. The overall network OCI is expected to be much lower than 70. Option 2 — Establish a budget that maintains a "good" rating equal to a 65 OCI for Local Access (residential) streets and a "very good" rating equal to a 70 OCI for Arterials and Collectors. The results of these options are presented herein for both the Arterial and Collectors and the Local Access (residential) streets separately. These are separated since they use different deterioration curves while preventing additional roads from falling into the reconstruction OCI range. Arterial and Collectors In general, the changes to the protocols and priorities have been refined and improved to give better OCI values and a project list that enables the City to select projects that will provide the most value for the dollar spent. Several of the high priority Arterial roads have mill & overlay work recommended within the six year forecast. As a result of not fully funding the 2008 pavement management plan, the analysis identified 14 road segments that are currently failed with an OCI less than 30. The list of failed road 13 segments is summarized below. The goal is to head off more expensive future reconstruction projects as well as preventing future roads from falling into the reconstruction OCI range. In addition to costing 4-6 times more than preservation projects, reconstruction results in other significant impacts. • Increase in the time needed to construct the project • Major Impact to businesses on or near the project • Traffic congestion for the motoring public • Traffic safety concerns during construction Tables 3 and 4, and figures 4a & 4b summarize the six year projects for both Option #1 and Option #2 and compares the OCI trend, Option 2 will maintain an average 70 001 and prevent future roads from falling into the reconstruction range. Reconstruction project costs are not included in the Option 2 budget at this time. The reconstruction project list is provided to give the City the option to reconstruct these roads as funds become available. Roads that are failed may not necessarily need to be reconstructed immediately, project evaluation should occur on a case-by-case basis. Over the six year program we recommend the reconstruction projects be systematically improved at a rate of $2.83 million per year. As described above, there are currently 14 road segments that are in need of a reconstruction. If steps are not taken to maintain the existing pavements immediately this number will steadily grow over time. For example, if no action is taken in 2012, the number of roads in the reconstruction category grows from 14 to 19 road segments. 14 Lo 6 r § r, y v z E c- o V U `y 'c 2 'O 3 d c m V 5 v g v O 5 E E u s -0 . a w . m w 7 0 1/1 o V nl .Qi n h V g l fii M 4 M O C N a V a i P L v ggg � ,` 3 C m m m - c c N g g $ 8g b t E O• U " c 6 p v U O4 Q 'n c *r rn a V P t p -54 ,2 N y d . 4 a v E. < i n 2 H nn .., N N n n IN av sv ✓ v C. 2 21 C E 3 • 1 2 2 E 2 d ■ E O u 4 p n �] A 4 j R R R R M .=' C C C Y Y t t r Y t o n t t , Q 4 Q a C 4 . ¢ c ' M E E Q 2 2 2 2 2 •R .g 2 4:44 n g c ' c c e 2 e a 888 8 ° ° aaa a a -...z rc , src � Ca v c Q 4 Q C `1 6 4 a rc f o E E . . u a r 2 ti 3 3 H . ac a .. c u 01:11 y v a a p c .,▪ C w ,0 n Q E Q. V PIP U ems_,=_ n O a ¢ 7v a -a ,2 > CC S S Q !S 4 2 Q , Q a Q U n n -nom no •, a n u E' 2 _ - u e - 17270, a o at E a . t c .. o F a - a U cn n C '. M " N N H , N LG][� n U UL LEA p © n yFF " V2 o ob s t 2 � r G E 12 14 8 co a d� » z m• d c z a Table 3 indicates that continuing at the present budget will result in a downward trend in overall pavement condition for Arterials and Collectors. If this is not reversed, the cost for future repairs will increase as described in the general ASTM Deterioration Curve Figure 1. Table 3. Option 1 —Six Year Budget at$2.1 Million Year Total OCI 2012 $2,100,000 65.1 2013 $2,100,000 63.4 2014 $2,100,000 61.7 2015 $2,100,000 60.3 2016 $2,100,000 58.9 2017 $2,100,000 57.5 Total $12,600,000 Figure 4a - Option 1 — Six Year Budget at $2.1 Million Arterials 100 90 -- —— 80 70 65 63 62 60 59 60 5$ O 50 - 40 ■ . . . -- 30 - ■ 20 ■ ■ ■ -- 10 --— -- • • 0 1 2 3 4 5 6 (2012) Plan Year 16 Table 4. Option 2 - Six Year Need Year Total OCI 2012 $5,663,000 67.8 2013 $6,058,000 68.4 2014 $6,184,000 69.2 2015 $6,163,000 70.1 2016 $6,203,000 71.0 2017 $6,053,000 71.5 Total $36,322,000 Table 4 shows the ongoing funding must be increased by approximately $4,000,000 annually to maintain a 70 OCI. The total plan year budget represents $175,000 in preventative maintenance with the balance dedicated to mill and overlay projects. Figure 4b - Option 2 - Six Year Budget Arterials 100 90 80 68 68 69 70 71 72 70 60 30 . ■ 20 0 ,— — ,- - r 1 2 3 4 5 6 (2012) Plan Year 17 Figures 5 and 6 graphically compare the budgets and OCI for Options 9 and 2. Figure 5. Arterial Streets Budget Comparison slot) - $9.0 $8.0 -- — - $7.0 - - $60 0 $50 $4.0 — $3.0 — — $2.0 = 4 $1.0 50.0 Jams= ter, 2011 2012 2013 2014 2015 2016 2017 Budget Year •2011 Option 1,$2 1M •2011 Option 2,Maintain Level 70 OCI Figure 6. Arterial Streets OCI Comparison Arterial/Collector OCI Comparison iH- 50 Option 1,$2.1M - Option 2 45 - - ..- Do Nothing 40 , 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 Budget Year 18 Local Access (residential) Streets The tables and charts below show the resultant pavement conditions using the existing funding level compared to a budget option for maintaining the Local Access (residential) street network at a 65 OCI level. Tables 5 and 6 summarize the six year needs for Options 1 and 2. Table 5. Option 1 - Six Year Budget at $200,000 Year Total OCI 2012 $200,000 70.8 2013 $200,000 68.3 2014 $200,000 65.8 2015 $200,000 63.3 2016 $200,000 60.7 2017 $200,000 58.2 $1,200,000 Fi•ure 7a — Six Year Bud•et at $200,000 Locals 100 90 80 - - - 71 70 --- 68 66 --- - 63 61 60 - 58 g 50 ----- — • ■ 40 E- 30 ----- - — 20 -- 10 1 2 3 4 5 6 (2012) Plan Year 19 Table 6. Option 2 —Six Year Need Year Total OCI 2012 $2,999,000 73.4 2013 $2,776,000 72.2 2014 $2,999,000 70.8 2015 $2,996,000 69.5 2016 $2,899,000 68.0 2017 $2,996,000 66.5 $18,001,000 Figure 7b — Six Year Budget at $3 Million Dollars Locals 100 - 90 80 73 72 71 70 68 67 70 60 • • • © 50 - . . . ■ A0 30 -- • • • • 20 10 • • 0 - _- ■ . - ---, 1 2 3 4 5 6 Plan Year At the present budget, the pavement condition will deteriorate beyond the desired 65 OCI level. Even with Option 2 funding increases, the pavement conditions will still deteriorate slowly over time. But the Option 2 funding level will keep the local access OCI at or above 65 though the year 2019. 20 Funding has been lacking for Local Access (residential) street projects. Local Access (residential) streets make up approximately 85% of the city's street network. Typically the maintenance treatment costs for these streets is lower than that for Arterials and Collectors so money spent on Local Access (residential) streets will go further and last longer than money spent on the classified roads. Figure 8 compares the funding levels for each option, Figure 8. Local Access (residential) Street Budget Comparison $4.0 $3.5 $3.0 ■ . ■ . . . . $2.5 o $2.0 . — . .. . 1 II 1 $1.0 ■ ■ . . . 5 • • • • 2010 2011 2012 2013 2014 2015 2016 2017 Budget Year •Oplion 1,$200K •Option 2,$3,000,000 21 Comparing pavement condition for each option in Figure 8, it can be seen that the Local Access (residential) street network is in good condition now but its condition is dropping rapidly under the existing funding level. Over the past three years the Local Access (residential) road OCI has improved due to the Spokane County STEP program. The program resulted in a complete reconstruction for many of the Local Access (residential) roads that otherwise would have not received a treatment. Each year of delay in increasing Local Access (residential) street funding adds a significant cost to keep the Local Access (residential) streets at a 65 OCI and maintaining that level. Figure 9. Local Access (residential) Street OCi Comparison Local Street OCI Comparison 75 70 65 U O 60 \ -Option 9 \ -Option 2 55 .— I7o Nothing –- 50 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 Budget Year Most of the recommended Local Access (residential) road work is focused in the area of the city south of Sprague between Dishman-Mica Road and Sullivan Road. Local Access (residential) street projects were grouped together by neighborhood as much as possible. This resulted in some streets being done ahead of others for the sake of efficiency over the identified priority of work. There may be situations where a street segment is omitted from work even when adjacent segments are done because it is in too poor of condition to be overlaid and there is not enough funding for reconstruction. It is possible some of these roads could 22 have minor repairs done and then be overlaid rather than reconstructed but the decision must be made by city staff on a case-by-case basis. Reconstruction project costs are not included in the Option 2 budget at this time. The reconstruction project list is provided to give the City the option to reconstruct these roads as funds become available. Roads that are failed may not necessarily need to be reconstructed immediately, project evaluation should occur on a case-by-case basis. Over the six year program we recommend the reconstruction projects be systematically improved at a rate of$1 .79 million per year. As described above, there are currently 27 road segments that are in need of a reconstruction. 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The current overall road condition is "very good", at the current funding levels the network will fall into the "fair" range within the next 4-5 years. The impact of which will result in future projects that will cost the City 4 — 10 times more than they would have if the road was maintained regularly. (Refer to Figure 1). The Arterial and collector roads need an annual funding level of approximately $6,000,000 to maintain a very good pavement condition. The Local Access (residential) roads represent approximately 85% of the City's road system. The maintenance budget for the Local Access (residential) streets needs to be increased to approximately $3,000,000 annually including funds allocated for overlays of those roads that are beyond maintenance. A list of the proposed Arterial and Local Access (residential) street projects for the next six years is provided in the Appendix. Table 7 summarizes the recommended street budget program to meet long-term maintenance needs of your facilities. Table 7 Recommended Annual Average Budget Local Access Arterials & (residential) Collectors Roads Preventive $ 175,000 $500,000 Mill and Overlay $5,825,000 $2,500,000 Total $6,000,000 $3,000,000 Reconstruction $2,500,000 $1,787,000 25 Appendix 1. Automated Pavement Inspections Methodology 2. Project Evaluation Recommendations 3, Deterioration of Road Segments 4. Comparison of Pavement Condition Index (PCI) and Overall Condition Index (OCI) 5. Arterial Projects 6. Local Access (residential) Projects Automated Pavement Inspections Methodology Automated Pavement Inspections Methodology For the Spokane Valley project, IMS used their Laser Road Surface Tester (RST) enhanced with digital imagery and ;-i 1 i GPS capabilities. The RST, with its 11 laser sensors collected a full : 4 I. 1tr array of pavement condition data I I ! 1 -= :1 r. IM- 11 !Jl d k _ ‘ i complete with high accuracy GPS it i _�. 1 r — t ;ti --- ' i€t nifi a coordinates and forward view digital images for both rigid and flexible pavements (in real time), as it traversed the roadway. An integrated Digital Condition Rating Subsystem supplements the RST data for additional distress data elements, quality assurance and inventory information. Specialized data processing, using GIS as its backbone, allows the pavement data to be quickly checked for completeness and quality. The main components of the Laser RST are: • A transducer bar with an array of 11 laser cameras, rate gyroscopes, inclinometers and accelerometers to measure pavement roughness, rutting, and cracking. • Digital Condition Rating Subsystem that was customized to collect a variety of roadway attributes and extent-severity based pavement distresses through trained operator input. • Ability to collect dual wheel path roughness to International Roughness Index (IRI) standards. A single forward facing camera was mounted for IMS QAIQC procedures. The images can be provided for digital viewing purposes. • High accuracy Global Positioning System (GPS) receiver with inertial navigation for geo-locating of pavement and asset information with excellent accuracy. • Dual distance measuring instruments to measure linear distances to within +1- 0.5%. The distress data was collected continuously and then reported in 100 foot intervals, complete with their respective GPS coordinates. The data was then aggregated to the section level, following the sectioning and referencing methodology contained in the existing Spokane Valley Cartegraph database. Laser Camera Array The laser camera array collects automated pavement condition data in the form of roughness to International Roughness Index (IRI) standards, wheel path rutting, transverse cracking, block cracking, alligator cracking and -- texture, The technology driving the laser-camera =' s,. r array removes the subjective nature of pavement condition data collection. The pavement condition data was processed to provide extent-severity distress ratings that were loaded into Cartegraph. The data was collected in accordance with the U.S. Army Corps of Engineers protocols commonly referred to as ASTM D6433-09. Digital Collection/Rating System (DCRS) The Digital Collection Rating System is a touch screen A } I based tablet computer that allows the user to define what 1, - information (distresses & attributes) is to be collected and ..r, f :- how it is to be quantified. The DCRS is integrated into the L ` data flow through time code, GPS, distance, and inventory control. In the context of this survey, the DCRS was configured to be used as a data collection and checking device. Distress data was collected continuously, while inventory and attribute data was checked as the survey proceeded. Survey events (such as detours or obstructions) and inventory related items were collected and noted in the data. RST operators note the surveyed lane and direction on a section-by-section basis. Automated Pavement Inspection Adjustments/Calibration One aspect of the Automated Pavement Inspection that warranted a closer look was the "rutting" distress. Initially an observer would measure rutting in the field by visual means. Occasionally, a straightedge was used to measure the depth of rut but due to time constraints a majority of the rutting inspection was just visual. IMS used a rut bar to measure the depth and extents of rutting in a particular road segment. The rut bar uses extremely sensitive lasers to measure rutting as the inspection vehicle travels roadways. The laser measures to the nearest millimeter every 4'±to develop an average every 100 feet. In order to develop a baseline for rutting sensitivity J-U-B and IMS worked together to modify the range at which rutting was recorded by the rut bar. The original rutting scale from 6 mm to 25 mm was as follows: 6 — 13 millimeters low severity rutting (approximately '/" - 1/2") 13 — 25 millimeters moderate severity rutting (approximately Y2" — 1") 25 millimeters high severity rutting (greater than 1") The baseline rutting scale shown above is based on ASTM D6433. However, the inspection procedures used for past pavement inspections where based on the Northwest Pavement Management Association's Pavement Surface Conditions Field Rating Manual for Asphalt Pavements, current edition. The discrepancy between the inspection methods leads to large discrepancies in the OCI. For example, in a typical road segment that is 2,640 feet long the IMS inspection would yield 660 data points where as the manual pavement inspection method would yield 2 points at best. Typically, the manual pavement inspection would yield a data point mid segment at a location most representative of the entire segment. Using the above scale the inspection by IMS using the rut bar is so accurate that any and all pavement anomalies would be interpreted as rutting which in turn translated in to a very low OCI for the actual age and condition of the roadway. J-U-B selected six roads to manually inspect this year (2011) in order to compare the overall inspection results as well as to more properly calibrate the rutting scale. Upon careful consideration and coordination with IMS, the rutting scale was adjusted to 10 mm to 25 mm as follows: 10 — 15 millimeters low severity rutting 15 -- 25 millimeters moderate severity rutting 25 millimeters high severity rutting The adjustment was made to reduce the occurrence of anomalies being interpreted as rutting but at the same time retain the accuracy and consistency of the rut bar technology. With fewer occurrences of rutting throughout the road network, the 001 became more in line with the six manual test inspections (2011) and the 2008 manual road inspections. Project Evaluation Recommendations Project Evaluation Recommendations The following recommendations should be used during the street preservation project evaluation process, for both Maintenance and Rehabilitation projects as well as capital projects, just prior to the Pavement Design Phase. All prospective Arterials/Collectors planned for an overlay, mill and overlay or reconstruction should be cored to a minimum depth of 6-inches below existing subgrade. The advantages of taking cores prior to the pavement design are as follows: ➢ Determine if there is moisture in the base and sub-base course ➢ If the road had been previously overlaid, look for delamination ➢ Determine if a Performance Grade (PG) adjustment is necessary in the mix design, i.e. PG 64-28 vs. PG 70-28. ➢ Verify assumptions generally used for a pavement design The following recommendations may be considered during the construction process as a supplement to the WSDOT Standard Specifications: ➢ Verify moisture and compaction requirements through increased testing (2008 Pavement Management Plan Update) ➢ Enhanced joint density testing (2008 Pavement Management Plan Update) • Enforce proper timing on asphalt delivery. Do not allow trucks to stack up waiting to be dumped. ➢ Diligent monitoring of asphalt temperature. Deterioration of Road Segments Deterioration of Road Segments The following section highlights 3 principle Arterial road segments and how each road has deteriorated over the past 3 years. The 3 road segments include: Route Route Back Route Ahead 2008 OCI 2010 OCI (Average) (Average) Sprague Havana to Fancher 67.5 55.6 Sprague Evergreen to Sullivan 31.5 24.3 Appleway Dishman-Mica to University 59.4 51.0 In 2008 the segment of Sprague from Evergreen to Sullivan would have been a borderline candidate for a mill and overlay. The OCI threshold for a mill and overlay is OCI 30-60, an OCI below 30 calls for a complete reconstruction. Had this section of Sprague been overlaid in 2008 the cost would have been approximately $2.7 million dollars. Moving forward as recommended in the current 2010 update would require a complete reconstruction with a cost of approximately $3.8 million dollars. The segments of Sprague from Havana to Fancher and Appleway from Dishman-Mica to University are currently great candidates for a mill and overlay because of the existing pavement condition. The 2011 update recommends Sprague from Havana to Carnahan be overlaid in 2014 and Sprague from Carnahan to Fancher be overlaid in 2013. Appleway from Dishman- Mica to Farr is recommended to be overlaid in 2014 and Appleway from Farr to University is recommended to be overlaid in 2012. Should no treatment be completed on these road segments, they will fall into the reconstruction range within the next 7 years. The currently recommended overlays costing $700k - $800k would cost well over $3 million per project if no treatments are done. In the interim between now and the time it would take to complete an overlay, the City may want to consider the following preventative maintenance: • Crack seal • Seal coat (GSB88 or similar) • One lane grind and overlay • Patching • Slurry Seal These maintenance measures will buy the city additional time until an overlay can be funded. This section is intended to emphasize the importance of following the PMP. It is recommended that the City increase funding so preventative maintenance is a top priority, followed by overlays, and lastly reconstruction projects. The goal is to maintain the City's roads at a high level 001 and to keep individual segments from falling into more costly treatment categories. This PMP update is especially critical because of the completion of the STEP projects. With the completion of the STEP projects the City will need to maintain hundreds of newly reconstructed roads both now and into the future to keep these roads in great condition. Comparison of Pavement Condition Index (PCI) and Overall Condition Index (OCI) Comparison of Pavement Condition Index (PCI) and Overall Condition Index (OCI) PCI OCI 1. Longitudinal Cracks 1. Longitudinal Cracks 2. Rutting 2. Rutting 3. Patches 3. Patches 4. Transverse Cracks 4. Transverse Cracks 5. Alligator Cracking 5. Alligator Cracking 6. Pavement Age 7. Pavement Type/ Structure Arterial Projects , Ii . 1 ,-- „ ---,..;---;—',.:''''''r,• .' ' 2 -- - - —7. -71 ' . 1 ' •• _..... 1 ,_ :1!„ • .rlk 1 I,rt.''i`: ' a.^ ,,4:1 t '.A:,.. a ' .,',. . N . , _1 .,-. • , .., p ....I(1", 1 m•k . i _f- '' 1 1 I r 1 " ' ; I 1 1'. l' -.,- '" , , 1,1 I, C 1 4 t' l 1 i .111.1' it 0 B . . P--- ,... g Iii 1—' 1 , II, ''--- i 1,,.., '':-.--, n 1 a ) P "•-", ' I r I" '', it .;'.., ., ..- ',1-, ' l'\‘. ") I _filii • r. 1 i• . ■ ' .-- t, • 1 -. i J . :_\...., ,... 1 , ,, ; , —..,,, '..,:J.-1•,1 . ,1. 1'• , 0. .. r' . ., Hi , '- .._, " i 4 ii,r1:-.7 1.•‘`, r I S.. 1:.'..-. 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