CR 88-96 Pavement Management Study
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Ma y 1 1, I 988
Report:8B-96
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PAVEMENT MANAGEMENT STUDY
Proposed Action
Staff Recommends adoption of the fel lowIng motion: Move to
award a contract for a Comprehens f ve Pavement MansQement
Program For all st-:reets and non-concrete all eys to I M5.
InFrastructure Mana$lement Serv ices: For an amount not to
exceed $14,250.
This project can be scheduled for June and July Field work
and del Ivery of the complete report by August 15 for use for
the 1989 budget and 1989-94 CapItal Improvement Program.
Overview
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Over the last year the Council has had several dfscussions
concerning the condition of the streets and developing a
policy for roadway improvements. A new policy was 'n Fact
adopted In November or last year that is very progressive
I n regard to street reconstruct Ion. Th I s po I Icy pr-ov' des
for the City to part f c i pate 40 percent of reconstruct Ion
costs and construct all major storm sewer projects.
A comprehensive pavement management. system Is needed to
Implement the programming of necessary street repairs.
Primary Issues to Consider
o I s a comprehens i ve pavement management program
necessary?
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What syst em shou 1 d the City use to perrorm th i s
function,?
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o How can a system be runded?
SUJ?Port! ng I nformat ion,
o Portion of a Loveland, Colorado council report on
Pavemen~ Management.
o Portions of the IMS contract proposed.
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~ncil Rpt: 88-96
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DETAILED BACKGROUND
Pavement management has become much more complex and
d IFf 1 cuI t over the past decade. Funds for reps f r- are much
more difficult to acquire, and proJects where assessments
are levied must be JustiFied.
Hopkfns has used a system of repair as needed and/or
requested In areas where no state Aid or other funding was
available. This is a hIt or miss method that uses the
i nst i nct i ve judgement of the Publ i c Works Department along
with the demand or lack of demand of area resIdents.
This is not a "scientIfic" method by any means and is not
conducl ve to a well managed system. Projects cannot be
programmed to even the highs and lows of construction costs
and the streets are probably not repaired at the optimum
time to best utilize C~ty Funds.
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With the City now provIding 40 percent or
reconst ruct:, on costs and a 11 major storm sewer
planned system of street repairs is needed.
street
costs a
A review of the supporting documentation reveals the
rea son I ng beh f nd pavement management and shows how f t can
save money.
ANALYSIS
The development of a comprehensive pavement management
program has the fOllowing issues to consider:
I s a compr-ehens f ve pavement management system
necessary?
Arter struggling with the Hobby Acres area problems and
doing our own visual street survey, It definItely came to
our attention that an overal I review of all streets should
be undertaken.
There are systems avai laDle that could be implemented by our
own staFf. but they are very time consuming and do not use
any equipment that would r-eveal subgrade stabf 1 ity. Also
the data available for financial review Is limited unless a
great deal of time is invested doing calculations.
The contract systems by consultants are aecomp] fshed usi"g
special equipment that measures surface cracks. roughness,
smoothness and ba5e/sub-bclse conditions. Their personnel
are spec i a 1 i st s and have exper i ence on numerous mf 1 es of
t-oads.
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Counel I Rpt: 88-96
~age 3
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The Financial InFormation they supply can be used as
rece' 'led and updated w' th new I nformat ion. The f r data f s
based on numerous mi 1 es of road and can be acceptab I y
accurate for projecting future costs.
The pavement management study would mesh extremely well with
the recent comprehen 5 t 'Ie sto,'m sewer f nvest I gat' on to g ~ 'Ie
a complete report card or problems in any gIven area.
What system shou1d the City use to perform a
pavement. management program?
How can the project be funded?
During the past year we have had discussions with several
fi rms that perform pavement management ar1d have di scussed
approximate costs.
IMS~ Infrastructure Management Services, appears to have the
most comprehensive Field data review and the most complete
Finane i a 1 and techn i ca 1 report data for appr'ox i mate 1 y the
same cost as the others. We feel the data they supply fs
very easy to use and wi 11 assist us in deter-mining the
correct street maintenance programming.
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The information we would receive would also be on a computer
dl sc that cou 1 d be used as a bas i S Tor other inventory
systems such as signs and trees.
Please review their cover letter and selected pages from the
contract proposa 1 for more f nformat f on on the company and
the project.
This project can be funded by a transfer or runds bUdgeted
for the 1968 Seal Coat project. The project area for thfs
year contained many areas we have designated as red or in
poor cond i t i on . One of' thos e areas is Hobby Acres wh f ch
appears to be very close to being a reconstruction candIdate
f'or next year.
By postpon i ng these areas we can ut i I i ze the Funds to pay
for the Street Management System. We would be uti 1 izing
Funds budgeted f'or street projects allowing a more efFicient
use of funds on all str'ats in the future.
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Council Rpt: 88-96
14
ALTERNATIVES
The City has the following alternatfves regarding thIs
issue:
1. Disapprove the pursuit of a Pavement Menagement Study.
This would make a valId review of all streets very
diffIcult and delay a comprehensive maIntenance
plan.
2. Author f ze the Pavement Management Study to proceed as
outlined In the 1115. Infrastructure Management Services
cont r act proposa 1, at a cost not to exceed $14 , 250,
utilizing a transfer of seal coat budgeted funds.
3. Scale down th~ project to a smaller portIon of the Cfty
to accomplish a phased project.
This would not be cost efFective due to start up
costs. and wou 1 d cost more overa 1 1 and de 1 ay
~nFormatfon utilizatIon.
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RECOMMENDATION
StaFF recommends Alternate No.2.
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PAVBMENT MANAGBMRNT SYSTEM
Introduction
In rec&nt yeara, the concept of Pave_eet Manege.ent haa taken on
. aore r..poD.ible aDd technically *ophlat1cated ...aloc due to
the tlebten1ng ot .un1cip31 budgets. Today'. atreet condition i.
beco.lal tbe focal polot of public concern aa exe.pllfied by the
result. ot the laat two aonual citizen surveys. rh~ge two
coaponents are putting ever-increasing .apha8ia ~n the City's
ability to allocate re50urceB to effectively provide B network ot
aafe and comfortable streets.
Pavement MAnage.ent strives to do just that; optiaally allocate
materials and limited funding within a street network where
needed the Bost. The following discussion will review the
concept ot what Pave.eat Management 1. aDd why it ahnuld be
incorporated in Loveland.
. .How Does Pave.eat Work
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,Th~'pave..Dt structure is aade up of three main coapoments: the
paveaeDt it.elf. a.phalt or concrete; baa., typically. d..i'Ded
a1xture of various sized gravel and .tone (a"re.ate); and a aub-
base, .any ti.e. the native aoil it local conditlon. allow, aad
it not, a deaiened aaterial .i.ilar to that of the baee. Figure
1 illustrates the pave.ent structure.
2" - 4. A.SFHA.lT
6" - 18" BASE
o - 24" SUS-SA. SE
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TYPICAL PAVEMENT SECTION
FIGURE 1 \
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Design of the pavemeDt structure chiefly con.ists of deteraining
the adequate thicknes. of each laye~ to resi.t anticipated
traffic loading for the least expense over the life of the
roadway.
Once the roadMay has been built and opened to traffic, various
ele.ents begin to work i.mediately to deteriorate the pave.ent
structure. The aoet aignificnnt of these ele.enta are: traffic
vOlu.., vehicular weight, adequacy ot dealgn and asterials, local
e~viron..nt/dr8ina<<e. Many aaintenance techniques are available
to ext.nd the perfor.ance of a paveaent and .low down tbe
deterioration process, (1.e. seal coat, chip .ea1 [if locally
acceptable], pav~.ent overlay.eot, reconstruction, etc.)
Good Streets Cost Less to Maintain
During tbe first 75~ ot a pavement's life, it pertor.s well aDd,
to the untrained eye, look. g~od. After that, however, the
pave.ent deteriorates 80 rapidly it aee.. to tall apart. Figure
2 illu.tratea the way pave.ent generally deteriorate.
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__(OPTIMAL MAINTENA.NCE POINT
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:J EXCELt.ENT
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a GOOD
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W VERY POOR _ _ _ _$!.O..Q-..!.5...9tLCOST - - - -----
> TO RENCV A TE HERe
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FAIR
POOR
FAILED
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YEAR
PAVEMENT LIFE CYCLE COSTS
FIGURE 2
3
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Hu.erOU8 .tudie. indicate if the streets are properly maintained
in . perpetual ",ood" to ~excellent" condition, the total annual
.elmtenance investment i. four to five times le.s than if the
pave.ent 1. allowed to cycle through to the p;;r-and failed
conditione and then rehabilitated. Why? An over-a1.plirted
explanation, (see Filure 3), 1& that the engineer 1. ..lntainlnl
only the top porticm of the pavemcnt it it ia in <<ood condition.
In poor or failed condition, the entire base, and soaetimes tbe
sub-b.se, muet be repaired and rehabilitated.
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COMPARISON OF THE COST AND AMOUNT
OF MATERiALS NECESSARY TO REHABIliTATE
A PAYEMENT BEFORE AND AFiER FAI~URE
Z8.tO/S.Y.
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S2.40/S.V.
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BEFORE FAILURE
AFT ER FAILURE
SOURCE: LOVELAND 1884 OVE~LAY PROGRAM
FIGURE 3
Tberein lies the dile..a of municipal eDgiD~ers: To detersine
when a street is ready for .aintenance and how auch aeintenaDee
is needed. Now, Bultiply this dile.ma by the nuaber of paved
streets or blocks throughout the city. Todey Loveland .8iDtai~s
approxi.ately 3,475 lane-blocks ot pave.ent. It is easy to
roco.nixe the ..gnitude of data neceseary to decide io what
priority the 8t~eet should be .ainta1aed, .nd what techniq~.
should be used to capture that optimal ~ainten6nce point of each
ne.., aeg.eDt.
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PROPOSM.
CIn or HOPlIHS, KIliNES()'l'A (01-8189.100)
APRIL 25, 1988
1. st.mcar OJ QU&LInCAnOIl AID IIPD~
1 . 1 BUSINESS ORGANIZATION
IMS 1ntraatructure Kanaa_ant Services
3350 Salt Creek LaDe, Suite 111
Arlington BOigbta, n. 60005
Phone: (312) 506-1500
Fax; (312) 255-2938
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IHS Infraatructuro Management Services 18 an 111111018 Partnera~p
with a regional ot'tioe in Erea, Call1'orl1i.a. .ill work .ot1.,.1tlea pert&1za..
1I2c to this pt"ojeot "Ul be perfonac out or the _in ot'tloe in U!t.aataa
Se1pts, nU,nola. All work w111 be pertoraed bJ DIS pereoanel.. ~
vUl " 110 aUooDtraotor. or aUbOOUUltallta ..... tar tbe PI'OPDlId
proJeot.
IMS b.aa dealpatOd the tollOW1na penoeel as repreaetltat11'ea tbat
the City "J contaot reaard1ng this proposal:
David A. Vall18, Managing D1rector
Nathan C. JOhnsOD, Marketing RepreaentaUve
312/506-1500
312/506..1500
1 .2 EXPERIENCE
We ara incl ud1ng tor your review. a brief reaUlle ot' DfS' ( tONeI'll
Rovak) Dem~ae, & J.ai3oo1ates, Inc.) background and experience in the area
ot pavement evaluat1on. Tbe lira baa evaluated payeaente \Jains varioua
testing teehn1quea tor the last 28 years. S1noe 1976 the tirm haa
specialized in oOIDprebens1ve pav_oct evaluation and paveaea.t Jl8.Das_ent
prograu~ To date, IMS baa evaluated over 1&5,000 aUea Qt pa'laenta
using the techniques inoorporated in tl1e proposed PaVu8nt Manag.8Ilt
Program. We have COIIpleted pavement evaluation and pavement -naa-.ant
programs tor nUlDerous mUDioipal1t1e& &04 enolose as .APPi8Dd1x 8'1i .
partial list of c11ent:i who have received programs sImilar to the one
proposed for the City of Hopkins.
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City of Hopklns, MN (01-8189100)
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Our data bank DOW 1ucludee ln exoess ot 600,000 teat aeot1ona. Of
these, appro::dJD&tely 250,000 teat secUone bave beeD evaluated uelna the
Laser Road Surface Tester (RST). Eaoh test section inoludes data trom a
oOlDprehensl ve surtace study r envlromaental surTey r dynaaio deflection
analysis and traffic analysls portiona ot our ocaprebenslvo pay.oat
MaDageJilent ProglUll. V. bave a oompilation ot raw clata aDd analrzec1 data
showing the inter-relationships of the various tield te.ting prooedure..
thta data bank, ooabined with our e%per1enoe in both .aterials aya11able
tor atreet rehabilitation 1n the HiDneapolis Metropolitan area and
rehabilitation strates18s used thro~out North Aaer1ca, w111 asaure the
City that the reco.endaUoDS generated trOll tll'e SQttware program wm be
accurate and coat etfective.
IHS ovna its own field teatina equipment includina two Luer Road
Surfaoe Testera, tbrM Dynatleots, two o~plete seta or oor1na equ1a-ent.
support vehioles, and a variety ot .,av_ent and aubgrade toting equip.-
ment. The tield data is prooessed tbroUlh nine in-house oo.putera
oonaiat1og of DK PC, IT aDd PS/2 lIiorocoaputers, _Wit aDd apeolalt,
coraputera.
1.3 qUALIFICATIONS
Utilizing the data bank: tor the development ot a Pav6IJont HaDaaeaent
System for Hopkins 18 a 8taff ot Registered Professional EDaiDeora with
years ot experienoe in the evaluation of roadways an4 pavements tbroush-
out Nortb Amerlca. The staff is headed by Robert L. Novak, Director ot
Engineering, registered 88 a Civil Engineer in Minnesota (Registration
No. 0160238). and who is an internationally reoognized autbority in the
field ot compreheDs1 ve pavement eval ua tion aDd pave.out DUmas.ant
systell8. David E. Butler, Senior Engineer, w1ll coordinate ttle entire
project and develop tbe oomputer software.
Since experienoe at all evaluation levels is essential, it should be
noted that the field crews at IHS have tbousands of siles or experience
to ensure that the field data Is collected accurately. IKS consists ot
27 full-time staft. We enolose 88 Appendix "B" the rssUlles of key
personnel asslgned to th1s projeot.
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City ot Hopkins, HN (01-8189AOO)
Pase 3
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2.1 ~rATOON'1' OF OBJECTIVES
Baaed on our d1soussions of April 21, 1988, it 1s our UDderataDdlaa
tbat tbe City ot Hopkins 1J1tenda to obtain a atate-ot-th.....,-t Pa'Vael1t
Manage.ent Syatea that will enable taG City to eftectively aaint&1n their
present pav.ent :system through opt1rdzat1on of the available funcla.
The objective of the systea propoaa4 tor 18plementat1on 10 the CitJ
or Hopkins "ill be to provide thoee elementa necessary to generate .utt:1..
oient lntoraat1on ror the ettective plano.1ns, bud.&et1a.& aDd proV'.."q
Qt street rehabilitation. The 1Dto....t1on will be aailable 1A OYorY1_
to~t tor uae by the dedsioD Mkersf .. vell aa in a detail_ tonat
tor the statt charged vith the responsibility or designing and oarrrtnl
out the actual ..inteaanoe and rehabilitation prograaa.
The proposed Pav_ent Manas_Gilt Progru vUl identity tbe fixlatiq
condition ot the pav_ents aDd be able to deterJl1ne the 1DdlYid1l'l1 t'utwoo
performance ot each pav~ent section. It will ideot1ty ex1at1D& probl...
and determine the cause, whether it be 8urtaoe, baBe or aubarade related.
Onoe the problem 18 identified, coet effective rehabU1tat1on strateg1..
will be formulated.
81n09 a .cure all- rebabi11~at1on strat-sy baa yet to be develOped,
the Pavement Matl8g_ent PrO&J"U 18 designed to oonsider a vide var1dtJ ot
rehabilitation strategies. Coat effeotive rehabilitation techniques aro
not l1mit6Q m~rely to aapbalt overlaye. Therefore, it i8 :Important that
a1 tarnatives inolude not only overlays, but m1m.mal surtace treatments,
recyoling alternatives, stress ab:lorbing JD8IIbranes, baae repair and total
reoonstruction. With the variety o~ rehabilitation strategies avallable
t c; lIlunioipaU ties in the Hillneapol1a Me tropol 1 tan area, 1 t 1s 1apgrtlUlt
for the Pavement Management Program to identify the parameters in wbiob
&a.ch of these alternatives wlll work: and the resulting benefit after
ipplementation. The 1MS program meets this objective.
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City or Hopkins, MN C01-8189AOO)
Pas- II
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The Pavement Management Program wUl alao IdenUty the benefita tb&t
can be obtained trag leaa-thsn-opt1mum r~hab111tat1oD atratesl.. should
buc:1set oonstra1nts prevent implementation of an opt1mUJI altezonati"..
Thia faotol" 18 extr8llely 1IIportut "heD conal<ier1na atqed laprov...llt.
or temporary maintenanoe ot a atreet "~bJecte4 to unusual aUuat10Da .uGh
aa llajor utility outs or enr.e load!q oODditioDa.
In addition to identifying neoeasary struotural improY8IleI1ta, the
Pavement Managellent Program wlll aleo col18ider the econoalo upeotu
through ooat benefit ratios and 8st1illated budget requir....nt8. .ltter
analyzing both st~uctural and economic information, the Pav~eDt MaDaae-
_ant Program v111 identity both the opt~ua rehabilitation atrat.&J aDd
the t111e tor iap1_entation..
To peralt dec1aloll makera to eat.bl1ah . coat etfective rebabllita-
1;1011 program. tor the City ot Bopld.Da, the Pavement Hams-eAt Progru
w111 be able to provide buclset Wormat1QIl to aohieve various l...e1a ot
eQi"Viceabil1ty. Th. progJ"aa vU1 also be able to identity the ra:U'loa-
t10118 reaul t1aa tro. reduced buclpt leve16.
'file Pay_t ......1..& Procr-- JIrOpoaed IIere1II ....poDda to __ ~
Uae el-.b ~"17 to ...t u.e weral~ ob,jeotlft8 atated clar1Dc our
d1aoualolUl. It vUl proYide tbe Clt;w or Bopld.u nUl . ........t
~'-!-~rmt Prosra baaed 011 hJaI,Il~ &OOurate rlelcl data oolleoted 1r1t1a
Dta~-tbe-art equ1J1MJ1t..
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City ot Hopk1Da. MN (01-6189100)
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Using tbe map provided du.r1ca our disoussions J we estimate the n_ber ot
test aeations to be 450~
IMS IDtra8truoturlt Manasement ServiceJl propo"8 to pi'"ovide thia Pa"...t
Hanas.ent Proar8.ll, R.S'1' oondition sunG" defleotion te.Una, oOY1f'OlllaDtal
survey, aDd inventor,. bUed on tbe tollow1Da te. aohedw.e i
Laser BST aurt.ce oondition auney (consiata of
tbe tollow1D& investlgatioD8: orack, aorotextsre,
ru.tt1na, r.>ughoeas, enviro~Dt, and iJnreutory)
$15.00/teat
aectioD
Detlection To.tins
.'0.00lteat
$3,000.00
IIIlri OQPy prograa output
Baaed on the toreaoiD& DUllber of teat aeotioDa, we ..tillate the total
oharge tor the progr8111 to be Dot .or. thaA $1J&t250.
Due to the UIlcerta1nty ot tbe Aotual n_bar or teats to be pertoraecl, IllS
"111 prO'l1de the pav_ent ......ent ..nlces OD . un1t prioe basia. 'lb. C1tJ
11111 be bWed ollly tor tbe nuabel" ot teat sections aotually evaluated.
5.1 Invoio1wc
Invoices w111 be IIUbll1tted on a IIODthly bailie based on tbe tollov1Da
tee schedule:
Completion of Surtaoe Condition Survey
551 ot Contract
251 ot Contract
Completion ot deflection testing
Upon delivery ot Pavsent Manag..nt
prograa
Balance
Payments are due within 30 days ~t reoeipt ot inv01ces.
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