City of Orange
Public Works Department
Memo
To: Christopher Cash, Public Works Director
From: Frank Sun, Assistant PW Director/City Engineer Date: October 25, 2023
Re: CR&R Pavement Impact Fee
In April 2022, the City’s Pavement Management Program (PMP) was updated with the latest Pavement Condition Index (PCI) report that showed the pavement condition in the City’s pavement network.
Currently, both the arterial network (MPAH) and local network are in “Good” condition with a citywide PCI of 83.3. The PCI table below shows total section miles by Condition category. From the table, we can see close to 25% of the City’s streets are in the Very Poor to Fair condition that requires sustained pavement rehabilitation.
(Network are shown as centerline miles)
The total replacement value of the Orange pavement network is approximately $771,000,000 (2022).
This value clearly indicates that the City’s pavement network is the most valuable and essential asset to Orange. Necessary street maintenance effort needs to be consistent and adequately funded to keep this vital infrastructure in great condition and protect the substantial investment we have already made.
Well-maintained streets offer many benefits such as reduction of deferred maintenance, promoting economic development, and improving property values.
To maintain the existing average network PCI, the required annual funding is about $7.8 million per the 2022 PMP. However, due to continued construction cost escalation, we estimate the funding needed to effectively maintain similar scope of work is now close to be about $9 million. In current fiscal year (FY 24), $6.3 million (including $600,000 general fund) has been programmed in our capital improvement project as part of the City’s PMP. However, without relying on any inconsistent general fund investment, only $5.7 million is available from M2 (OCTA) and Road Maintenance and Rehabilitation Program (RMRP) on an annual basis. The $2.1 million shortfall between PMP recommended funding level and what is available (other than general fund) should be addressed urgently to implement the PMP’s maintenance requirement.
City of Orange
Public Works Department
⚫ Page 2
Pavement condition deterioration rate is mainly due to environmental, heavy vehicle load, and high average daily traffic (ADT) volumes. Heavy vehicles such as utility, buses, street sweeping, and refuse vehicles have a significant impact to the City’s annual pavement deterioration. Solid waste vehicles have been found to have a significant impact to pavement condition. A study conducted by the City of Santa Ana in 2016 found that 40.63% of pavement loading impacts are from solid waste trucks (38.13%) and street sweeping vehicles (2.5%) combined.
The 2016 City of Santa Ana study is used as a reference document for Orange to assess an impact cost because we have similar street networks and pavement types (Asphalt and Concrete); Santa Ana has 25% of its street networks in arterial and 75% in local vs Orange’s 30% in arterial and 70% in local networks. Adjusting for the difference in street network capacity between arterial and local streets, a pavement loading impact of 35% for solid waste trucks is very reasonable, and combined with 2.5% from street sweeping, resulting in a total 37.5% pavement impact cost determination for the City of Orange.
Utilizing the $7.8 million PMP recommended annual street pavement maintenance funding, and applying the 37.5% pavement loading impact, the proportional share of street deterioration impact costs from solid waste and street sweeping vehicles would be calculated at as much as $2.93 million ($7.8M x 37.5%) annually. To meet the more effective funding level of $9 million, the solid waste vehicle impact cost would be calculated at $3.38 million ($9M x 37.5%).