Public Works Department
DA
TE: April 9, 2024
TO: Ci
ty Council
F
ROM: Edward Arango, Acting Public Works Director
VI
A: Kimbra McCarthy, City Manager
SUBJECT: Pavement Management Program Update
PURPOSE
O
n June 26, 2023, staff provided Council a memo regarding the Pavement Management Program Status and Funding. This memo provides an update on the current pavement condition, in process and planned paving projects already funded in the CIP, and an updated evaluation of future funding needs.
BACKGROUND
T
he City coordinates with the Metropolitan Transportation Commission (MTC) to evaluate the overall condition of the City’s street network and develop a rehabilitation and maintenance strategy that will improve the overall condition of the street network. The City’s street network is typically evaluated biennially by an MTC assigned consultant who provides a Pavement Management Plan (PMP) report with a network Pavement Condition Index (PCI) rating. The PCI is a measurement of pavement condition that ranges from zero to 100. A newly constructed or overlaid street would have a PCI of 100, while a poor/failed roadway (requiring major rehabilitation or reconstruction) would have a PCI under 49 (see Table 1).
T
able 1—Pavement Condition Categories
Very Good—Excellent
PCI = 80-100
Newly constructed for resurfaced pavement with few signs of distress.
Good
PCI=70-79
Pavement requiring mostly preventive maintenance and
showing only low levels of distress.
Fair
PCI=60-69
Pavement at the low end of this range is significantly
distressed and may require a combination of rehabilitation and preventive maintenance.
Attachment 4
Pavement Management Program Update
April 9, 2024
At Risk
PCI=50-59
Deteriorated pavement requiring immediate attention,
including rehabilitative work.
Poor
PCI=25-49
Pavement showing extensive distress and requiring major rehabilitation or reconstruction.
Failed
PCI=24
Extremely rough pavement that needs complete
reconstruction.
The MTC and the Santa Clara Valley Transportation Authority (VTA) expect cities to strive for a minimum network PCI of 70, representing a good condition. Below 70, it becomes exponentially more expensive to repair and maintain pavement. The most cost -effective way to maintain a good pavement condition is to avoid deferred maintenance and invest in preventive maintenance and pavement preservation.
The MTC’s PMP report published in 2022 identified the City’s PCI at 72 in 2021. In 2023, the MTC published the 2022 report of the rolling three -year average PCI for all Bay Area jurisdictions, showing Mountain View’s three -year average at 70 ( Exhibit A) . The City’s goal has been to maintain a C itywide network PCI above 75 . This spr ing, staff expects MTC to publish the 2023 report of the rolling three -year average . More information about the City’s PCI and maintenance strategies can be found on the City’s website at Roadway Pavement | Mountain
View, CA.
DISCUSSION
The MTC’s biennial pavement evaluation be gan with the MTC’s consultant conducting field reviews of the City’s pavement condition in fall 2023. The MTC has provided a draft PMP report with the City’s updated network PCI rating of 67 . As previously noted to Council in June 2023, while staff did anticipate a decline to the City’s PCI, this decline of the PCI by five points over three years is more than staff expected. Staff has identified the following factors that have contributed to the rating:
• During 2020 to 2022, the E ngineering Division of the Public Works Department had significant staffing challenges, particularly in the Civil Infrastructure Section that manages the pavement program.
• The staffing challenges required staff to prioritize capital projects with grant funding or other critical deadlines, creating a backlog and delayed delivery of road pavement projects for two years.
• During the backlog, the pavement condition continued to decline without paving projects constructed to stabilize the City’s overall PCI rating.
Pavement Management Program Update
April 9, 2024
Funded Pavement Projects
Staff has been aggressively addressing the backlog of projects by assigning paving projects to multiple project managers as well as combining similar paving projects from multiple years into one project. This effort is to speed up the project delivery. Tables 2, 3, 4, and 5 provide a detailed summary of the pavement projects and their current status.
In Table 2, the paving phase of Projects 19-48 and 21-01 are substantially complete, and Project 21-30 will be completed this spring.
Table 2—Pavement Projects Constructed or Nearing Construction Completion
Project
No. Category Streets Funding
(millions)
IN CONSTRUCTION
19-48 Street Reconstruction Park Avenue and Sonia Way $3.27 21-01 Annual Street Maintenance Leong Drive and Fairchild Drive 3.78 21-30 SB 1 Streets Various neighborhood streets (including 100 to 300 Castro Street) 1.30
TOTAL $8.35
Projects 20-01 and 21-40, listed in Table 3, are both anticipated to begin construction in 2024.
Table 3—Pavement Projects Starting Construction in 2024
Project
No. Category Streets Funding
(millions)
STARTING CONSTRUCTION
20-01 Annual Street Maintenance Miramonte Avenue, Cuesta Drive to Castro Street $3.40
21-40 California Complete Street
Pilot
California Street, Showers Drive to
Shoreline Boulevard 1.76
TOTAL $5.16
Table 4 lists the five projects in design. To catch up with the workload, staff combined several similar projects for efficiency. Projects 22-01 and 24-03 include grant funding. Design schedules range from nine to 18 months, allowing construction to start in 2025.
Pavement Management Program Update
April 9, 2024
Table 4—Pavement Projects In Design
Project
No. Category Streets Funding
(millions)
IN DESIGN
21-41,
22-31 Annual Street Maintenance Crittenden Lane and North Shoreline Boulevard $2.27
22-01 Annual Street Maintenance Middlefield Road Complete Street 5.29 22-03,
23-03 SB 1 Streets Various neighborhood streets 4.73
23-01,
24-01 Annual Street Maintenance Various neighborhood streets 4.68 24-03 SB 1 Streets Moffett Boulevard Complete Streets 5.15 TOTAL $22.12
Lastly, Table 5 list s the next set of projects, anticipated to start design within the next nine months. Staff expects to again be combining several similar projects listed to fully catch up with the backlog.
Table 5—Pavement Projects Not Yet Started
Project
No. Category Streets Funding
(millions)
NOT YET STARTED
23-31 Street Reconstruction
Miramonte Avenue: Castro Street to
El Camino Real $1.16
24-28 Street Reconstruction Various neighborhood streets 1.00 25-01 Annual Street Maintenance Various neighborhood streets 2.10 25-03 SB 1 Streets Various neighborhood streets 2.00
25-xx Street Reconstruction Various neighborhood streets 1.00 TOTAL $7.26
In total, the City has accumulated $34.54 million (Tables 3, 4, and 5 combined) from various funding sources for paving projects . S taff will be delivering $2 7.28 million (Table s 3 and 4 combined) in pavement projects by 2025 . This continues to be a high volume of projects , and additional funding this year would not likely result in delivering more pavement projects due to workload constraints.
Pavement Funding Analysis
The pavement program currently receives an annual allocation of approximately $5.8 million from various pavement fund sources, including the Gas Tax, 2010 Measure B Vehicle License Fee, Pavement Management Program Update
April 9, 2024
2016 Measure B Sales Tax, and SB 1. Often times, supplemental funding is provided by the Construction/Conveyance Tax (C/C Tax) and CIP Reserve funds, t hough these two sources have experienced significant decline due to the p andemic, new hybrid remote work trends, and current economic conditions . As shown in Figure 3, at current baseline funding levels of approximately $5.8 million per year, the PCI will continue to slowly decline . While the paving projects planned for construction in 2024 and 2025 may increase PCI, staff expects it will be offset due to the delay in full implementation for almost two years as the pavement continues to degrade.
Figure 1: Pavement Investment and PCI Status
Staff evaluated the program funding needs to maintain the network PCI at the current level as well as needs to increase the network PCI by five points, using the latest financial information from the draft 2024 PMP report and escalating costs due to inflation. To maintain PCI levels, there will be a need to increase baseline funding levels to avoid further decline . Approximately $8 million is needed per year (an increase of $2.2 million per year over current baseline funding) to maintain the PCI and $14 million per year for five years (an increase of $8.2 million per year over current baseline funding) to increase the PCI by five points (see Figure 2).
Pavement Management Program Update
April 9, 2024
Figure 2: Annual Funding Needs for Pavement Maintenance
NEXT STEPS
Staff sees a need for an increased investment in the pavement infrastructure. Staff recommends continuing to prioritize pavement projects, aiming to maintain and improve the network PCI toward our goal of a C itywide average of 75 . Considering the revenue decline from several funding sources and the magnitude of the pavement program funding needs, staff anticipates that this will require a new revenue source and/or moving CIP Reserve and C/C Tax funds away from discretionary projects, such as City buildings/facilities and bicycle/pedestrian improvement projects, and into pavement maintenance . A potential revenue measure is currently under consideration and staff will be bringing more information on this measure to Council this spring.
EA/LL/1/PWK
932-04-09-24M
Exhibit: A. Pavement Condition of Bay Area Jurisdictions 2022
cc: PWD (A)—Arango, PCE—Gonzales, SCE—Houghton
Exhibit A
Figure 1:Excellent or Very GoodGood or FairAt Risk Poor or Failed