HomeMy WebLinkAbout08-20-07 Agenda Item 2D, PMP Philosphy
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EN HILLS
DATE:
August 16, 2007
AGENDA ITEM 2.D
MEMORANDUM
TO:
Mayor and City Council
Michelle Wolfe, City Administra:~A /
Kristine Giga, Civil Engineer I'f-r
Greg Hoag, Public Works Director
FROM:
SUBJECT:
PMP Philosophy
BACKGROUND
Staff is working on the City's fIve-year Capital Improvement Plan (CIP) from 2008 to 2012,
particularly with respect to the Pavement Management Program (PMP) projects. The purpose of
this discussion is to receive feedback from the City Council on the PMP philosophy in order to
proceed with CIP planning in a manner that the City Council supports.
DISCUSSION
Attached is a copy of the Pavement Management philosophy that was adopted by the City
Council in 2001. Staff feels this document should be updated. In the last six years, standard
maintenance strategies have evolved, and as a result, the City has modifIed its approach to the
pavement management program.
Listed below are factors that staff considers when recommending the annual PMP improvement
projects. Some of these factors are currently included in the existing PMP policy; others are
items staff would like to incorporate into a revised document.
. Capture mill and overlays at the appropriate life of the pavement- not too late, but also
not too early.
. Consider other reasons for reconstruction: utility issues, storm water management,
structural/sub-grade problems that cannot be solved by a mill and overlay.
. Correct safety issues in deteriorated streets that may cause damage to vehicles, bicycles,
or walkers in our neighborhoods.
\\Metro-inctus\ardenhills\PR&PW\Engineering\2007\ Work _ Sessions\8-20-07 _Memo _PMP _Philosophy.doc
CIP Discussion
8/16/2007
Page 2
. Improve neighborhood aesthetics, property owner's quality oflife, and property values.
. Use the Pavement Condition Index (PC1) as a guideline to determine the appropriate
maintenance strategy.
. Neighborhood approach to annual maintenance/improvement projects where feasible.
. Budget management- how the project is funded (Assessments, Municipal State Aid
Funds, Enterprise Funds, etc.)
In 2006, the City contracted with GoodPointe Technologies to develop a database for pavement
management and perform a detailed, multi-year network level budget analysis on the City's
pavement network. At the May 2006 Work Session, staff presented the results of GoodPointe's
report; the meeting minutes are attached. Four scenarios were discussed:
. Scenario 1: Spend $] million per year on street improvements. Over a 20 year period, the
average pavement condition index (PCI) rating would increase from 64 to 77.
. Scenario 2: Maintain current average PCl of 64. Over a 20 year period, this would cost
$14.5 million.
. Scenario 3: Increase the average PCI from 64 to 75, an average benchmark PCl for cities
in the metro area. Over a 20 year period, this would cost $16 million.
. Scenario 4 modeled the existing five year CIP, which resulted in a PCI rating of 65 after
the fIve year period.
The general consensus at the May 2006 Work Session was that Scenario 3 was the most desired
option. Staff requests that the City Council discuss whether the consensus still exists and
consider formalizing the 20-year goals as part of the PMP policy update. Scenario 3 included an
aggressive approach, budgeting more projects in the fIrst five years to increase the PCI to 75, and
then maintain that rating for the rest of the 20-year period with a lower budget. Stafflessened the
intensity of the early "spike" in spending, and presented a revised Scenario 3 as the 2007 -20 II
CIP, which was adopted in January, 2007.
Staff had GoodPointe run the 2007-2011 CIP to see how it impacts the PC!. Based on the current
CIP, the average PCI rating will increase from 64 to 72 by 2011, increasing to 75 in the next five
years and then maintaining a rating of 75 to the end of the 20-year period. The cost of this
scenario over a 20 year time frame is $19.9 million.
CONCLUSION
Staff is requesting questions and comments from the City Council regarding the PMP
philosophy. Once we receive feedback, we will proceed with revising the 2001 PMP philosophy
and bring it to the City Council for review and approval.
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~HILLS
CITY OF ARDEN HILLS
PAVEMENT MANAGEMENT PROGRAM
Pavement Manaf.!ement Philosophy
The City of Arden Hills has the fIduciary and physical authority and responsibility for
upkeep of approximately 30 miles of city streets within its boundaries. This includes seasonal
maintenance activities such as snow removal, crack sealing, street patching, sweeping, as
well as structural maintenance of the pavement. The City of Arden Hills has made a
commitment to its residents to provide a systematic program of street rehabilitation and
repair in order to assure that the City streets are serviceable, safe, functional, and provided at
a reasonable cost to meet the needs of our residents and the traveling public. The City of
Arden Hills Pavement Management Program strives to expend tax payer funds in a cost
effective manner in order to ensure the most value for residents.
New Street Desif.!n Standards
The City has adopted a set of Design Standards for new street construction or reconstruction.
The standards have been developed in conjunction with recommendations from the City
Engineer, Public Works Director and staff, City residents and Council members. Street
design standards address such things as street widths (which measure from curb face to curb
face), pavement thickness, concrete curb and gutter and surface drainage. Thcre are four
functional classifications of streets within the City of Arden Hills (not including highways
and county roads). A brief description of each and the recommended standards follows:
Community Street:
Provide access to the residences, institutions and businesses on that strect, providing a
route through the neighborhood or business district for residents of other
neighborhoods. (6.0 miles throughout City)
Street Width: Case SpecifIc, (32 ft. minimum)
Neif.!hborhood Street:
Provide access to residences on that street and provide a route through neighborhood
for residents on other streets. A large proportion of trips have neither an origin or
destination on that street. (4.5 miles throughout City)
Street Width: 30 ft. minimum
Residential Street:
Primarily serve adjoining residents with little or no through traffic. Almost all trips
have either an origin or destination on that street. (18.5 miles throughout City).
Street Width: 28 ft. minimum
City of Arden Hills Pavement Management Program
Page I
4/12/2007
Special Cases:
DefInition: Streets which do not fIt into any of the three above descriptions and have
a very low usage, (1-3 residences), streets which provide secondary access (ie alleys)
or streets defIned by extreme limitations due to narrow ROW, topography etc.
(0.3 miles throughout City)
Street Width: Case SpecifIc
Additional Considerations for Street Width Determination
Arden Hills is a community with a wide variety of neighborhoods, each with special
conditions which must be taken into account when considering reconstruction of streets. The
residential and neighborhood street widths listed above are desired goals but exceptions to
these widths will be considered by the City Council on a case by case basis_ A number of
factors in addition to street classification will be considered including:
Topographical constraints (steep hills, lakes, etc.)
Existing street widths
Existing average daily traffic volumes
Existing right-of-way width
Existing trees
Pedestrian use of the road
All new street construction and street reconstruction in Arden Hills will include concrete
curb and gutter for a number of reasons:
Provide a stable maintenance edge for plowing and sweeping operations
Reduce plow damage to yards and mailboxes
Protect the edge of the bituminous surface from deteriorating
Channel storm water runoff away from street
Reduce erosion from boulevards/lawns
All new street construction in Arden Hills will be structurally designed for 9 ton loading
thereby eliminating the need for spring load restrictions (allowing year round access) and
slowing the rate of deterioration of the pavement system.
How Streets are Selected for Reconstruction or Overlav Work
The City Council select streets for reconstruction based on a variety of factors starting with
the Pavement Condition Index (PC!) of the pavement. The City Engineer conducts a field
survey of streets about once every 2 years at which time a PCI rating is calculated for each
street in the City. The PCl is a numeric reflection of the surface characteristics of the
pavement including potholes, cracking, rutting, etc.
Several other factors which will be considered in order to determine the best candidates for
street reconstruction are, but not limited to, the following:
Condition/effectiveness of existing surface drainage system
Condition of underground water and sewer system
Whether a street meets recommended standards for curb and gutter and width
Opportunities to improve water quality oflakes downstream of street
City of Arden Hills Pavement Management Program
Pagel
4/12/2007
Available State and City funding
Emergency cases
County construction projects on adjacent roadways
Reconstruction of adjacent City streets
Major redevelopment projects within City
Neighborhood petitions
As much as possible, the City Council will determine a reconstruction project or overlay
work for a particular area with as much advance notice as possible to the surrounding and
impacted neighborhoods. The City Council does desire to allow for at least one year advance
notice to the surrounding and impacted neighborhoods for improvement of the road or roads
within that neighborhood. The City Council and Staff will set up a neighborhood meeting, if
possible, in the neighborhood, to meet with surrounding and impacted properties to begin
discussion about the issues, identifIcation of additional concerns and solutions to the road
structure. The City Council does desire to have the neighborhood provide input into the
choices it would like to make for the reconstruction or overlay work to be done on the roads
within their neighborhood. The options provided for selection could include some variety in
road width, curb and gutter section, aesthetics including lighting, sidewalk and trail
construction, striping, and may include improvement of the subsurface water and sewer
system and installation of a comprehensive and coordinated water drainage system.
Process
The City of Arden Hills will use a variety of media sources to communicate with the
neighborhood about the intended roadway project. These communications may include, but
not be limited to the following: City of Arden Hills Notes (City newsletter), Cable TV, local
newspaper, articles in St. Paul Pioneer Press, individual flyers, and City website (ci.arden-
hills.ITh'1.us).
After meeting with the neighborhood, considering concerns identifying surrounding issues
and discussing solutions, the City Council will then direct the City Engineer to begin
preparation of a feasibility report. The neighborhood will still have input and process through
the feasibility report brought forward to the City Council, the Public Hearing necessary
according to Minnesota Statute 429 for public improvements, and prior to the City Council
making a determination of whether to proceed with a street reconstruction or milling overlay
work.
\\RVNASI\AHdata$\PR&PW\Public Works\Pavement Management Program (PMP)\2001 PMP\2001 - PMP.doc
City of Arden Hills Pavement Management Program
Page 3
4/12/2007
CITY OF ARDEN HILLS
COUNTY OF RAMSEY
STATE OF MINNESOTA
ADOPTION
PAVEMENT MANAGEMENT PROGRAM
The undersigned, being the duly qualifIed and acting City Administrator of the City of Arden
Hills, Minnesota, hereby certifIes the following:
The foregoing is a true and correct copy of the Pavement Management Program on
f1le and of offIcial, publicly available record in the office of the City. Said program
was duly adopted by the City Council at a regular meeting of the Council held on
October 29,2001 . Said meeting was duly called, regularly held, open to the public,
and held at the place at which meetings of the Council are regularly held.
WITNESS MY HAND AND SEAL OF OFFICE as the City Administrator of the City of
Arden Hills, Minnesota, this 30th day of October, 200 I.
JOSEPH P . LYNCH, CITY ADMINISTRATOR
(SEAL)
City of Arden Hills Pavement Management Program
Page 4
4/11/2007
May 15,2006
5
Councilmember Pellegrin was excused from the meeting at 6:45 PM.
CIP Discussion
Civil Engineer Kris Giga provided the City Council with of an overview of the GoodPointe
Technologies report. Ms. Giga also provided the City Council with an overview of the following
street maintenance practices and procedures:
Seal Coat-A seal coat is one of many types of surface treatment used in street maintenance. A
seal coat is an application of asphalt emulsion followed immediately with an aggregate cover.
Seal coat can waterproof the surface, provide low severity crack sealing, and restore surface
friction. Seal coating can be performed at any time during the life of pavement and lasts an
average of three to six years.
The primary purpose of seal coating a street is to protect the street from deterioration caused by
sun and water. A seal coat provides a waterproof membrane that keeps the pavement from
becoming brittle and cracking.
Mill and Overlay-There are several maintenance practices that involve milling. An edge mill
typically consists of grinding the old bituminous surface along the outer eight feet of the street.
This helps establish a uniform cross-section, especially in instances where the crown in the street
is relatively flat. A full width mill or resurfacing is necessary when the upper surface layer of a
pavement has deteriorated considerably.
A full depth mill can be used on a street that has already been reconstructed with a good base
section, but the pavement has deteriorated to a point where seal coating or a standard mill and
overlay is not effective. A pavement section with significant cracking will end up reflecting
through the new pavement. The full depth of the pavement is ground up and removed. This
process may also involve some sub grade soil corrections and some removal of aggregate base, if
it has been contaminated or is sub-standard. The street is paved with the same thickness of new
asphalt.
Reconstruction- When a street is fully reconstructed, the existing asphalt and base are completely
removed and replaced. Reconstruction may also involve sub-grade soil corrections. For streets
that do not meet current design standards for width, curb and gutter, and drainage, an upgrade
may be necessary.
Based upon the City's previous fIve year capital improvement program, GoodPointe
Technologies provided the City with four fInancial analyses using the following scenarios:
Scenario I-The City would spend $1 million dollars per year on street improvements over the
next twenty years. The existing fIve year CIP has been incorporated into the first fIve years of
the model. Over the next twenty years, the average PCI would increase from 64 to 77.
Scenario 2-The City would try to maintain a PCI rating of 64 and project the level of funding
over the next twenty years to maintain this rating. The streets are selected by the program for
May 15,2006
6
maintenance on an as needed basis. The results of this scenario indicate that approximately
$14.5 million will need to be budgeted for pavement management over the next 20 years.
Scenario 3- A PCI value of 75 is an average benchmark for a number of cities in the metro area.
In order to the City to maintain a PCI rating of 75, the City would invest approximately $16
million over the next twenty years for street improvements.
Scenario 4- If the City adopted the existing CIP, the average PCI rate for the City would be 65
after the fIve year period. The projected results would be very similar to scenario number 2.
Councilmember Grant asked what are the different types of seal coat that are available.
Roseville Public Works Director Duane Schwartz stated that most communities use pea gravel
and aggregate rock. Most cities use the aggregate rock because it wears better and is more
economical.
Councilmember Holden asked how long the top coat of a typical street lasts.
Mr. Schwartz said that the top coat of a street will usually last three to six years. It is important
for the City to develop a maintenance strategy to address street improvements, storm water
drainage, curbs, gutters, utilities, and other maintenance issues. Typically pothole patching is a
stop gap measure and not a permanent solution for repairing the roadways.
Councilmember Holden asked why the software program did not recommend more streets for
mill and overlay.
Mr. Duane Schwartz noted that streets, that have curb and gutter may not be considered a
candidate for an edge ruill and overlay.
Councilmember Holden said that it would be more advantageous for the City to mill and overly
streets if it is possible.
City Adrninsitrator Wolfe said that the proposed CIP will change based upon the PCI ratings. It
may be wise for the City to invest more money up-front to obtain a standard PCl rating for all of
the City's streets.
Councilmember Grant asked what Roseville's PCI goal is?
Mr. Duane Schwartz said that Roseville's PCl goal is 75. The City began with a PCI rating of 55
at the beginning of its street maintenance program. On a yearly basis, the City would reconstruct
four to fIve ruiles of street a year in order to bring the City's PCI rating up to 75. In the
beginning for the City of Roseville to get their street maintenance program off the ground, the
City bonded for street improvements in 1988. Recently the City of Roseville has not bonded for
improvement projects and has been able to utilize the interest earned from the bonds to pay for
future road improvements.
May 15,2006
7
Councilmember Larson noted that the PCl information presented tonight was very helpful. He
would be in favor of supporting option #3.
Mayor Aplikowski agreed with Councilmember Larson that a number of streets are at their
critical life point and need to have maintenance work. She would be in favor of researching the
bonding proposal as supplement funding to the City's PMP budget.
Councilmember Grant said that he is supportive of option #3, but not the idea of bonding for
road improvement projects.
Councilmember Holden said that she is supportive of option #3. She believes that the City
should adopt a road maintenance policy before proceeding with a funding discussion.
City Administrator Wolfe said that City staff will continue to research street improvements,
MSA projects, and the capital equipment replacement schedule for the proposed five year CIP.
Councilmember Holden asked if the City would continue to proceed with the neighborhood
approach to PMP projects.
City Administrator Wolfe said that the City will attempt to continue utilizing the neighborhood
PMP approach. The City may not be able to utilize the neighborhood approach for all of the
street improvement projects.
Councilmember Holden said that the City needs to concentrate on maintaining the marginal
streets that can be repaired using seal coats or mill and overlay.
Councilmember Larson agrees with Councilmember Holden's street improvement philosophy.
The City needs to fInd the necessary revenue needed to make these improvement projects a
reality.
Councilmember Holden requested that City staff prepare a road maintenance program for the
City.
City Adminsitrator Wolfe said that City staff will attempt to complete a draft program within the
next six months.
A draft CIP will be presented to the City Council at the work session meeting in July.
Proposed Chanl!:es to the City's Website
Members of the City Council reviewed the proposed changes to the City's web site and
requested that this item be placed on the agenda at the next City Council meeting for further
discussion.
City Council Retreat Follow-up
City Administrator Michelle Wolfe provided the City Council with a follow-up to the City
Council's retreat in March. The following is the proposed list of goals for the City Council for
2006-2009:
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