Agenda Item No. 6
CITY OF YUCAIPA
AGENDA REPORT
TO: Honorable Mayor and City Council
FROM: Fermin Preciado, Director of Development Services/City Engineer' Landon Kern, Assistant City Engineer
Kevin Garcia, Assistant Engineer ` 4
FOR: City Council Meeting of January 22, 2024
SUBJECT: Draft 2023 Pavement Management Report
RECOMMENDATION:
That the City Council receive an update regarding the Draft 2023 Pavement Management Report BACKGROUND/DISCUSSION:
The Pavement Management Program (PMP) was initially prepared and approved by the City Council in 1998. It has since been updated on an annual basis and "recalibrated" through field testing and analysis every five years in 2003, 2008, 2013 and 2018. The recalibration process is performed in order to provide an updated Citywide assessment of the current street network pavement conditions and has historically been the primary resource used as the basis for prioritizing the maintenance of the City's street network. There are a limited number of companies that offer professional services to provide a Citywide assessment of pavement conditions, using specialized equipment and analysis that is ultimately processed and developed into a scientific report that can be used to prioritize street maintenance efforts. Since 2008, Infrastructure Management Services (IMS) has provided these professional services to the City. Based on their experience, ability to accommodate the City's schedule, and high -quality work product, IMS was contracted to complete the 2023 recalibration.
The testing and field measurements for the 2023 recalibration have been completed, and IMS has provided the City with a Draft Pavement Management Report (2023 PMR) for review. The purpose of this update is to present the draft preliminary results included in the draft report, and discuss the prioritization of street maintenance in preparation for the upcoming FY2023/2024 PMP update which will prioritize the asphalt streets to be maintained over the next five-year period.
IMS followed the American Society for Testing and Materials (ASTM) standards to analyze the images and distress data collected by the testing equipment to determine the Pavement Condition Index (PCI) for each segment of the road. PCI values were recorded to provide an indication of the surface conditions and structural integrity of the asphalt.
PCI values provide an indication of the surface conditions and structural integrity of asphalt. The 0 to 100 PCI range is commonly divided into categories using descriptive terms: Very Poor (0-25), Poor
(25-40), Marginal (40-50), Fair (50-60), Good (60-70), Very Good (70-85), and Excellent (85-100).
Additionally, the percentage of network by area, falling in the Poor or Very Poor PCI range, is identified as the City's "backlog". These pavements typically require full or partial reconstruction.
The testing completed in 2018 by IMS used testing equipment with older technology and followed the same ASTM standards. The results of the 2018 survey showed that the City's street network average PCI was 64 with a backlog of 12%.
The testing used to prepare the 2023 PMR utilized updated testing equipment with newer technology.
This testing equipment was able to provide more accurate and verifiable data results when compared to the system used in 2018. The newer system has several advantages over the old system including the ability to detect special pavement surface features like surface treatments, crack seals, potholes, raveling, bleeding, delamination, shoving, pavement markings, etc. This results in more accurate PCI values for asphalt streets.
Using the updated testing equipment and technology, the methodology used by IMS in the most recent analysis incorporates more specific details and data resulting in more accurate results with enhanced precision. In comparison to the 2018 survey results, the 2023 PMR identifies an average PCI of 51 (Fair) and a Backlog of 34.3%. This represents a significant decrease from the previous average PCI of 64 (Good) and Backlog of 12%. Additionally, PCI values in 2018 were calculated by blending the surface distress (SDI) score (33% of PCI) and the roughness index (RI) score (66% of PCI). In 2023, and based on newer industry standards, the PCI was calculated only using the SDI. If the 2018 calculation methodology was to be applied to the 2023 recalibration data, the PCI would be calculated to an approximate PCI of 56 instead of 51. For comparison, the Citywide average PCI went from 64 in 2018 to 56 in 2023.
Below is a table summarizing the data and results from the 2018 and Draft 2023 analysis:
2018
Overall Network
(Average)
Arterial
Collector
Residential
SDI
61 55
64 61
RI
70 75
75 66
PCI
64 61
68 63
2023
Overall Network
(Average)
Arterial
Collector
Residential
SDI
51 48
49 54
RI
66 70
65 64
PCI
51 48
49 54
PCI
(Using 2018 methodology)
56 55
54 57
The decline in average PCI score is partially attributed to the improved testing methods and updated equipment. Adding to the decline in the PCI are the impacts to asphalt streets resulting from the El Dorado Fire and the various storm events over the last several years. Severe flooding and debris flows on roadways have impacted asphalt streets in the northeast section of the City and storm flows from these storms have impacted asphalt streets throughout the City. Impacts to asphalt streets were even greater on streets with a lower PCI since water penetrated the asphalt surface more and undermined the structural sections of the asphalt resulting in faster overall degradation of the asphalt. The extensive clean-up efforts after the storms by San Bernardino County and the City required heavy equipment and large trucks to move thousands of tons of material on City streets in wet conditions further hindering the condition of asphalt streets on collector and arterial streets.
The 2023 analysis also observed that the asphalt repairs completed through the on -call asphalt repair contracts improved the structural section of the streets resulting in a positive impact to the PCI on select roadway segments. While the smaller scale pothole patching repairs improved the drivability of the roadways, these repairs temporarily resulted in a negative impact to the PCI. Once the permanent rehabilitation of the roadway segments takes place, the PCI increases significantly.
Approximately 30% of the City's roadways were found to be in Excellent or Very Good condition. If structurally sound, these pavements are often suitable candidates for cost-effective preventive maintenance treatments. Approximately 34% of the City's roadways were found to be in Poor or Very -Poor condition. Pavements falling within the middle categories, such as Fair or Marginal condition, often benefit from mill and overlay projects.
Alignment with City Council Goals
The City Council adopted the following goals for 2023:
Goal No. 3: Take a more inclusive and aggressive approach to road maintenance.
Goal No. 8: Establish and execute a comprehensive communications plan.
This update aligns with Goal No. 3 by including the City Council and the public in the process of developing the City's pavement management strategy. Consistent with Goal No. 8, the City Council adopted a communications plan that aims to include the public in developing the City's PMP.
Additional outreach will follow this update.
FISCAL IMPACT:
Based on the 2018 analysis, the City Council prioritized the maintenance/rehabilitation of streets between 2018 and 2023, which included a shift toward the rehabilitation and maintenance of residential streets. This approach was approved in order to maintain or improve the citywide average PCI, and to improve the condition of asphalt on residential streets.
As a result of the 2018 analysis, the report provided two (2) budgetary options for consideration:
Description
Average Annual Budget
Anticipated PCI in 2023
Option 1
$2.4 million per year
65 Option 2
$1.5 million per year
62 Notes: 1. The PCI national average for cities is between 60 and 65.
2. The industry standard is a PCI of 60 or greater.
The City Council's direction was to budget an average of $1.5 million per year (Option 2) over the next five-year period. Due to an increase in annual revenues eligible to fund the PMP, the annual budget approved by the City Council increased each year, resulting in an average of approximately $1.72 million per year over the five-year period.
Attachments:
None (A Summary of the Draft 2023 PMR will be presented by staff at the City Council Meeting)
Approved by._ � �_T