HomeMy WebLinkAboutStaff Report 2 04/25/2005April 25, 2005 Item 2
City of Petaluma, California
Memorandum
Public Facilities & Services Department, 555 DleDoivell Boulevard Nortb, Petaluma CA 94954
(707) 778-4303 Fxc(707) 778-4437 E-mail: pubfacilities@cipetaluata.ca.as
DATE: April 15, 2005
TO: Mike Biernian, City Manager
FROM: Gene Beatty, Interim Director, PF&S g . „
SUBJECT: State of the Streets Report
As stated in the Enhanced Street Maintenance And Reconstruction Program (Attachment
A), level -of -service (LOS - the flow of vehicle traffic), vertical alignment (profile or
overall ride -ability), and pavement condition (a measure of the integrity of the street
surface and its underlying sub -base) must all be considered when measuring street
quality. The level -of -service, if right-of-way allows, can be improved with the
reconfiguration of existing lanes or inclusion of additional lanes, and profile/ride-ability
can be improved to provide a smoother ride at the time of construction. Pavement
condition, the focus of this memo, refers to serviceability or condition of the surface
and/or sub -base, and can only be improved by maintenance treatments or
rehabilitation/reconstruction strategies. The pavement condition index (PCI), developed
by the Metropolitan Transportation Commission (MTC), utilizes a scale of 0 to 100 as a
measure of condition or serviceability. Zero represents an unpaved dirt path while one
hundred represents a newly constructed or rehabilitated street. The City of Petaluma was
in the lower tier of Bay Area Cities with a PCI of 40 three years ago.
In determining the PCI, the known and estimated condition of the City's street system,
circulation, congestion, and condition of service are factored, as well as the impact of
solid waste collection vehicles. In addition, the relationships of these factors as they
apply to street maintenance and rehabilitation/reconstruction are considered along with
the City's entire infrastructure needs as well (including underground work to first be
completed). Due to the number of streets in poor condition when we first embarked on
this program three years ago (an average PCI rating in the low 40's), it was imperative to
develop consensus on how to proceed. A Citizen Advisory Committee (CAC) was
formed and worked with staff to develop a comprehensive street repair program, along
with proposed funding solutions for Council action.
As a result of the CAC's work and subsequent report, the relevant questions of defining
the City's ideal average PCI, achieving a balance between the spot maintenance, annual
State of the Streets Report
April 15, 2005
Page 2
street program and the capital program, and funding of the chosen projects were
achieved. As a result of additional funding, we have achieved a PCI in the 70+ range, as
well as a balance between annual maintenance and capital programs.
For your review, I am enclosing updated information on street improvements we have
accomplished since 2003 (245 street segments), and those currently proposed or under
construction.
As a reference, Attachment B represents the annualized cost for those streets scheduled
for rehabilitation over a 10 year period, while maintaining a slurry seal program for
streets with a PCI above 70. Using the recommendations of the CAC list to develop
these estimates, we have projected that the total cost for rehabilitation (not including
slurry seal streets) would be $31,228,227. Completing the rehabilitation program over a
10 year period would cost $3,122,823 per year. Accounting for 5% inflation, this yearly
cost escalates to $4,844,523 in year ten. In addition to rehabilitating these "poor" streets,
we propose to slurry seal 20% of all City streets each year at a present cost of $996,521
per year. Therefore, the present cost of both rehabilitation and slurry seal is $4,119,343
per year. In year 11, 12 and beyond, the rehabilitation cost drops off and we are left with
only the slurry seal cost. The total cost for rehabilitation and slurry coating is estimated
to be approximately $51.8M over a ten year period (assuming 5% annual inflation).
Unfortunately, a ballot measure prepared to provide funding to implement the above
schedule was defeated by the voters in 2004. Therefore, without other additional funding
identified, the City will not be able to maintain the desired PCI of 70 into the future with
the current annual $1M in street repair and $1M in street maintenance.
MTC/SCTA (P -TAP 6 funding) has placed a request for street overlay projects, so we
have submitted Ely Blvd., from East Washington south to Frates Road. The engineer's
estimated cost would be around $750IC to $800K.
Also, I'm re -including the following list of proposed work for 2005, which also follows
the CAC list. Six of the top 13 streets have been completed already. Some are still
pending due to incomplete underground water utility work.
1. Ely Blvd. was eliminated this year, but the funding remains for early next year.
PF&S will need to wait for Water Resources to put a water service contract out to bid.
S\administration\reports & budget papers
State of the Streets Report
April 15, 2005
Page 3
2. So. McDowell Blvd. - funding to be in October or earlier, through SCTA.
Street Rehabilitation - all of Maria Dr. (#13 on CAC list) and other CAC streets, as
money is available.
4. Maintenance - slurry seal 82 streets in the northeast corner, crack seal, and possibly a
maintenance bond coat for Caulfield from Hwy. 101 Bridge to McDowell. Also all of
Crinella Dr. (#9 on CAC list).
Payran St. from Jefferson to Madison is being surveyed now. A consultant has been
retained to provide design this year.
6. Petaluma Blvd. is scheduled to start early summer.
With the completion of the aforementioned work, the City's Average PCI will have risen
from the low 40's in 1999, to 70 by the end of the 2005 construction season.
Significant work has been completed over the last two years to improve the condition of
Petaluma's street system. Approximately $14 million has been expended to date on street
rehabilitation and maintenance efforts covering 245 street segments in the City (108
rehabilitations and 137 slurry/crack sealings). A list of those projects is attached.
For 2005-06, we are programming $4.4 million in street work ($2.6M in CIP projects,
$1M for On -Call street programming, and $800K in pot -hole repairs performed by city
crews). A specific list of anticipated street work will be provided once an update is
completed of new damage cause over the winter rain season.
In closing, the City has made great strides towards improving the street system, and our
staff remains available to work closely as a team with the CAC, Redevelopment and
other associated committees, and will continue well into the f mare to maintain and
provide for improvements to the City's street infrastructure.
Attachments
A. Enhanced Street Maintenance And Reconstruction Program
B. Rehabilitation And Slurry Costs Per Year
C. State Of The Streets 2003 And 2005
D. 2003-2004 Street Project List
S\administration\reports & budget papers
ATTACHMENT A
City of Petaluma, California
Budget Paper No. 2
ENHANCED STREET MAINTENANCE AND RECONSTRUCTION PROGRAM
Executive Summary
This report provides an overview of the known and estimated condition of the City's
street system component of the City's transportation network. In examining street
conditions, factors such as circulation, congestion, and condition of service, as well as the
impact on roadways of solid waste collection and other heavy vehicles must be taken into
consideration. Each of these factors has a unique, yet similar connection to the others,
and the impact on street conditions and an enhanced street maintenance and
reconstruction program. Due to the critical condition of the streets (PCI -30) and the
extraordinary amount of money required to address the conditions, it is recommended
that the City create a process and a critical path to establish a comprehensive street
maintenance and reconstruction program, with financing alternatives, for action.
Background
Petaluma is subdivided by natural and man-made barriers such as the Petaluma River,
Northwestern Pacific Railroad, and U.S. Highway 101. There are three main arterial
streets within the City: Petaluma Boulevard which runs primarily north/south;
Washington Street which is an east/west street and dissects the community; and
McDowell Boulevard which parallels U.S. Highway 101 on the easterly side of U.S.
Highway 101.
Based on the information from the City's GIS mapping system, the City of Petaluma has
approximately 171 miles of streets, comprised of 28 miles of arterial streets, 24 miles of
collector streets and 119 miles of local/residential streets. Many of the streets on the east
side of U.S. Highway 101, were constructed 30 years ago, while many of those on the
west side are 50 years or older. In the City, based on the present mix design standards, an
asphalt street has a life cycle of 15 to 20 years and a concrete street has a design life of 30
to 50 years. The predominant surfacing material within the City is asphalt.
Like most communities, the larger proportion of thoroughfares are low volume residential
streets. However, while smaller in number of miles, arterials and collectors carry most of
the City's traffic from light vehicles to heavy tractor -trailer trucks.
The quality of any street system can be measured in at least three ways: (1) Level -of -
service (LOS), which measures the flow of vehicle traffic; (2) the vertical alignment,
which addresses the profile or overall ride -ability of the system; and (3) the pavement
condition index (PCI), which measures the integrity of the street surface and its
underlying sub -base. The level -of -service, if right-of-way allows, can be improved with
the reconfiguration of existing lanes or inclusion of additional lanes. The profile/ride-
1
ability can be improved to provide a smoother ride at the time of construction. The
condition (PCI) of the street refers to the serviceability or condition of the surface and/or
sub -base, and can only be improved by maintenance treatments or reconstruction. This
paper addresses only the street conditions (PCI). PCI is a system developed by the
Metropolitan Transportation Commission (San Francisco Bay Area), which utilizes a
scale of 0 to 100 as a measure of condition or serviceability. Zero represents an unpaved
dirt path while one hundred represents a newly constructed street.
Most Sonoma County cities seem to achieve an average PCI of 70 to 75. Data provided
by the Metropolitan Transportation Commission (MTC) shows that the majority of our
area, such as Santa Rosa and Rohnert Park, do maintain this standard, based on an
average.
PCI Rating by Jurisdiction — MTC's Report
Jurisdiction Current PCI Target PCI
Cloverdale
46
81
Cotati
70
76
Healdsburg
67
81
Petaluma
30
80
Rohnert Park
75
81
Santa Rosa
72
82
Sebastopol
66
78
Sonoma
74
83
Windsor
81
84
Sonoma County
45
80
Some communities have a preventive maintenance schedule to maintain the streets in
better condition at a sustainable level, as shown in Exhibit A, entitled "Why Pavement
Management? Impact of Deferred Maintenance". It is more cost effective to apply
pavement treatments, such as slurry seals, when the streets are still over 70 PCI, than
incur the expense of overlay or reconstruction after the pavement has deteriorated below
70 PCI.
According to the survey, the average condition of Petaluma's arterial and collector street
system has fallen from 38 in 1998 to an average PCI of 30 (see Exhibit B, Figure 1). The
City received $935,100 in gas tax in 1998 and in FY 01-02 received $1,050,600. To date,
Petaluma has focused its pavement condition surveys and improvements on arterial and
collector streets only. However, Section 2018.1 of the Streets and Highway Code
requires that all cities evaluate their entire street system, to include arterials, collectors,
and all residential streets, every three (3) years in order to retain a certified pavement
management program. If the City fails to remain certified, the City may be ineligible for
state or federal funding for street improvements.
Statement of Objectives
Through state and federal grants, MTC develops a street condition rating program
(Pavement Technical Assistance Program), including software and training, available free
to participating cities. To the allowable limits of this program, the data used is collected
by pavement condition surveys, and input into the City's pavement management software
program. This program then provides an array of repairs and/or maintenance options,
cost of repairs, and a priority list, based on various levels of funding. The goal is to
direct expenditure of funds toward improved safety, ride -ability and appearance of
Petaluma's street system, as well as an extension of pavement life. However, achieving
this goal requires establishing the average or minimum level PCI standard the City
wishes to adopt and maintain.
If the City chooses to maintain an average level PCI standard, this would indicate that the
City aclmowledge that some streets would not be improved; rather, only a certain
percentage would be improved in order to bring the average to the standard set. Only a
limited percentage of streets would need improvement in order for the City to meet an
average standard. Those improvements would have a positive effect on only a portion of
the population. A niinineu n standard would mean that all streets would be improved, if
necessary, to a certain level. For example, a minimum standard would mean that all
streets below that standard would be brought up to at least that level. All streets that are
at the standard or better can be maintained with overlays, while those falling below the
standard require reconstruction (see Exhibit B, Figure 2-11).
Proposal and Alternatives
Any active pavement management program needs to maintain a balance between three
activities. These are:
1. Spot Maintenance by City crews (i.e., pothole repair with the blow patching unit);
2. Annual Street Program Maintenance by contract services (e.g., slurry seal, micro
surfacing, or overlay, etc.);
3. Capital Improvement Program (e.g., full or partial street reconstruction).
For Petaluma, the relevant questions include defining the average and/or minimum PCI
the City wishes to maintain, achieving a balance between the spot maintenance, annual
street program and the capital program, and funding the chosen activities. The level of
funding required will often determine the "desired" PCI and the balance between annual
and capital programs.
Limitations
The information in this paper is dependent upon MTC's software for pavement
sufficiency ratings. However, since these ratings do not factor in streets with a
sufficiency rating (PCI) of 25 or less, this paper contains some hand calculations, blended
with MTC's report, in order to represent, as closely as possible, a complete picture of the
street conditions. In addition, until all the local streets are comprehensively
inventoried, the assumptions to date are not reflective of the complete mileage or
cost for the street system! Before progressing beyond the scope of this paper, the
following elements should be addressed:
• Complete the inspection and prepare a report on the combined local, arterial and
collector street conditions.
• Consider the need for an exacting, enforceable trench cut ordinance, with revised
maintenance patching standards, in order to halt deterioration due to unconstrained
utility activities. Limited maintenance money has been diverted to repair water and
sewer breaks (due to a 100+ year-old water/sewer system), and failed utility trench
cuts.
• Compile an overall cost for design and bid documents, construction, construction
management and inspection, and City administrative overhead.
• Prepare several budget and construction cost scenarios for various street PCI
ratings/serviceability levels.
• Adjust for accelerated deterioration of streets due to longer/heavier refuse trucks
and/or multiple trips for split collection practices.
• Include additional miles as a result of new development streets.
• Include additional cost for underground utility, curb, gutter, sidewalk and/or driveway
replacement.
• Consider the exponential loss of opportunity cost with continued deferred
maintenance of streets.
By actively maintaining its pavement management program and working to perform maintenance and
reconstructive wort: in accordance with the predictions provided by this model, the City will effectively be
implementing an "Asset Management" approach to its roadway network Asset Management is one
accepted way of complying with the new financial reporting standards set forth in the Governmental
Accounting Standards Board (GASB) Statement 34, which requires governments to report infrastructure
assets as part of their financial reporting requirements.
0
• Bring current the insufficient standards for pavement design/thiclmess for today's
traffic volumes and loads.
• Complete a Long Range Transportation Plan with truck routes and a new traffic
model.
Assumptions
The assumptions are based on MTC report:
1. The entire street system is at an average PCI of 30. Some streets, however, may be in
better condition.
2. Reconstruction costs, plus public input and total overhead expenses, are estimated at
approximately $156.5 million over five years, based on the MTC report.
Budget Scenarios
Assuming a five-year reconstruction program, Exhibit B, Figure 2 illustrates two budget
scenarios. The first involves committing enough money to bring the entire roadway
system up to an average PCI of 75 within 5 years. The second involves continuing at
current levels of funding which is minimal. A budget scenario somewhere between the
two extremes, based on the results of a completed pavement management program,
would be potentially more achievable.
While the $29.24 million/year expenditure required to achieve an average PCI of 75 is
beyond what the City can achieve, if maintenance continues at the current trend of
deferral, the cost of bringing the streets to an acceptable standard will likely increase by
42% over the five year period.
Many communities have to rely on long term financing for street reconstruction. Novato
has conducted a successful 30 -year bond issue in 2000 for $11.9 million for streets, $1.2
million for sidewallcs, $1.2 million for drainage, and $600,000 for curb and ramp
replacement and repair. This provided for 34 miles of street repair, or approximately
$350,000 per mile. This appears to be a maintenance program with the money used to
finish a 1989 bonded project. Another nearby example of a street maintenance program
is Santa Rosa, which has spent over $2.5 million on average during the past five years on
street maintenance with over $3 million in FY 00-01. However, Santa Rosa maintains
516 miles of streets, and has added almost 50 miles of streets during the past five years.
5
Financial Impact
Onetime Impact
In 1999, the estimate to bring the arterial and collector streets from a PCI of 41, up to a
PCI average score of 75 was $47.2 million dollars including 40% overhead. As of the
date of this report, the current year 2001 construction cost to raise the PCI from 30 to an
average of 75 is estimated to be 60.0 million including overhead. With the current annual
funding, spending $150,000 - $200,000 amorally on maintenance, the streets continue
deteriorating at a rate faster than repairs can be accomplished.
In regard to residential streets, the cost to improve this system in its present condition to a
sustainable condition of 75 is estimated to be $96 million, as calculated below.
Calculation: Utilize a ratio based on an average 6" overlay for arterials
and collectors versus a 4" overlay for local streets, and multiply by the
mileage difference between the arterial/collectors and local streets. The
percentage cost difference would be approximately 70% and the mileage
differential would be 119 - 52. This equates to an estimated cost for the
local streets as follows: ($60 million x 70%) x (119 miles of local streets
52 miles of arterial and collector streets) _ $96.2 million.
The total one-thne cost impact for is $146.2 million ($60 million + $84.6 million).
Recun- ne Imnact
MTCs' estimated projected annual cost to maintain a PCI of 75 throughout the City's
arterial and collector street system is $3,500,000. The estimated maintenance cost, based
on our present information, to keep the residential streets in a sustainable condition is
projected to cost $4,600,000. This amounts to a total annual cost of $8,100,000 to
maintain all of the city streets after a PCI average of 75 is reached. No City could afford
this level of maintenance in a comparable situation.
Source of Funding
The concern is how to fund repairs at a sufficient magnitude to halt/or reverse the
degradation of the system. Alternatives include:
1. "Fall Back" approach: Rearrange priorities and reduce the scope of activities
performed by the street crew in order to allow better utilization of existing funds,
providing for limited spot repairs.
2. "Critical Priority" method: Provide a small funding increase to selectively repair
sections in extreme need of maintenance.
I
Utilize an increment of the City's gas tax money to finance a large one-time
expenditure with the State's "Pothole Pool" program (see Exhibit Q. This would
jump-start the program. If the City could commit $200,000 annually to debt
service through the pool, it could leverage a one-time capital fund loan of about
$2.3 million towards the $8.1 million annual maintenance need. This essentially
uses future funding capabilities to fix the current problem in limited areas.
4. Add a surcharge to the monthly refuse service bill (e.g., $10 per month surcharge
would net $2,000,000 annually). This may be justified because of the impacts on
the streets of the refuse vehicles.
Reduce the level of service for our residents sufficiently to accomplish needed
repairs and upgrades to the streets on an annual basis utilizing some General Fund
money.
6. Assuming a 5 -year reconstruction program, provide for an alternate source of
funding. This could include General Obligation bond issue, special assessments
for street improvements, local options such as a motor vehicle fuel tax, or a sales
tax increase for improvements, etc. Based on 20,000 households, an annual street
improvement program of $29.24 million, equates to an assessment over 10 years
of approximately $731 per year per household. This would be in addition to
maintenance expenses and new increases coming from water/sewer, natural gas,
electricity motor fuels, and possibly refuse collection.
7. Evaluate private funding options which can also offer 5-20 year maintenance
options.
8. If it is determined that the community is taxed/assessed to its limit, the City may
want to explore the development of an alliance to petition for state aid on a one-
time basis to fund the street improvement program.
Schedule of Implementation
We would recommend implementing the City's program as pari of a 5-7 year CIP with
the Imowledge that this would allow the City to define and measure a very specific
program to preserve what is left of its existing investment and resolve the worst
problems. Through the PMS and CII' updates, the City would have a continual program
to address, not necessarily solve, street maintenance.
Performance Measures
How do we define success? Success is defined by adopting an approved average or
minimum PCI standard and approved budget/funding scenario for the street management
program, with allocations or provisions for ongoing maintenance. This would include
implementation of increased performance maintenance requirements for new construction
from the current I -year minimum to 7 years, or preferably a 10 to 20 year minimum.
How do we lntow when lve achieve success? We will know when we have achieved
success when the Council has defined its PCI standard and adopted and approved a
budget/funding scenario. If the approved scenario requires voter approved funding,
success will further be defined through the public input and ultimate approval process.
Recommendations
Establish a Task Force Committee to work with the community to evaluate the street
system, as well as all available revenue streams. This committee could advise and make
funding recommendations to the community and Council.
Conclusions and Action Steps
The City does not have sufficient funding sources or leverage options to generate enough
money to stem the continued decline, let alone improve, the condition of City streets.
Whatever solution(s) is chosen, a significant amount of money will be required to
improve the system, as well as provide for continued maintenance, if we are to achieve a
sustainable level of sufficiency.
Action steps could include:
1. Appointing a task force which will provide the necessary outreach to the
community as well as recommendation(s). A multiple approach may be necessary
to address the total infrastructure needs of the City.
2. Developing funding and a schedule for an annual maintenance program, i.e.,
crack seals, slurry seals, micro surfacing, etc., for streets with a PCI of 70 or
better to protect the sustainable sections of the existing system).
3. Completing the PMS surveys of the local streets through MTC's Pavement
Technical Assistance Program to gain a true condition/financial picture of our
system. This is a grant -type program, so there would not be an immediate need for
budgeted funds.
4. Returning to Council and the Committee with more refined budget scenarios and
funding solutions via the Task Force.
5. Using the additional studies and committee work to establish a dialogue with the
commmiity regarding improvement and funding needs, which will build a base of
support for any initiatives requiring voter -approval.
E:
ATTACHMENT B
REHABILITATION AND SLURRY COSTS PER YEAR
`1'11
1.63
$ -
7,118,004
$ 1,623,227
11
$ 1,623,227
$ 996,520.53
12
1.71
$
7,118,004
Cost
Cost of 1/10 of the
$ 1,704,388
$ 996,520.53
YearX
1.80
$ -
7,118,004
$ 1,789,253
YearX
$ 1,789,253
Escalation
remaining
1/5 (20%) of
5% Per
Rehabilitation
Total Area
Slurry
Cost @
Total (with 5%
Year
Year
Work
(SF) per year
$0.14/SF*
Year
escalation)**
Present Value
A
B
C=B*0.14
D=A+C
D present
$
31,228,227
35,590,019
With
Escalation
1
1.00
$
3,122,823
7,118,004
$
996,521
1
$
4,119,343
$
4,119,343.22
2
1.05
$
3,278,964
7,118,004
$
1,046,347
2
$
4,325,310
$
4,119,343.22
3
1.10
$
3,442,912
7,118,004
$
1,098,664
3
$
4,541,576
$
4,119,343.22
4
1.16
$
3,615,058
7,118,004
$
1,153,597
4
$
4,768,655
$
4,119,343.22
5
1.22
$
3,795,810
7,118,004
$
1,211,277
5
$
5,007,087
$
4,119,343.22
6
1.28
$
3,985,601
7,118,004
$
1,271,841
6
$
5,257,442
$
4,119,343.22
7
1.34
$
4,184,881
7,118,004
$
1,335,433
7
$
5,520,314
$
4,119,343.22
8
1.41
$
4,394,125
7,118,004
$
1,402,204
8
$
5,796,330
$
4,119,343.22
9
1.48
$
4,613,831
7,118,004
$
1,472,315
9
$
6,086,146
$
4,119,343.22
10
1.55
$
4,844,523
7,118,004
$
1,545,930
10
$
6,390,453
$
4,119,343.22
Total
Years 1-101
$
39,278,528 11
Total 1
$
12,534,128 1
Total
1 $
51,812,656
1 $
41,193,432.16
`1'11
1.63
$ -
7,118,004
$ 1,623,227
11
$ 1,623,227
$ 996,520.53
12
1.71
$
7,118,004
$ 1,704,388
12
$ 1,704,388
$ 996,520.53
YearX
1.80
$ -
7,118,004
$ 1,789,253
YearX
$ 1,789,253
$ 996,520.53
*Cost includes Crack Seal at $0.02/SF
**This is only the Construction Cost and does not include City GO (5%), Admin (5%), Design (1-10%), Construction
Management (2-10%) or Contingency. It is expected that the overlay and slurry designs can be performed in-house
,and the full reconstruction design will be done by outside consultant. It is anticipated that CM can be done in-house.
CFebruary 2005
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