TES-004 - Quality Asphalt Pavements_2009SAINT 101 IN
Subject: Quality Asphalt Pavements I Category: Policy
Policy No.: TES -004 M&C Report No.: 2009-175
Effective Date: 2009-07-20 Next Review Date: (3 years)
Area(s) this policy applies to: Transportation and Office Responsible for review of this Policy:
Environment Transportation and Environment
Related Instruments: Policy Sponsor:
Revision History:
Document Pages: This document consists of 35
Dames.
Common Clerk's Annotation for Official eRecord
Date of Passage of Policy: July 20, 2009
I certify that this Policy was adopted by Common Council as indicated above.
Date Created
2009-06-10
Common Clerk
_May 18, 2017
Common Council Approval Date:
2009-07-20
Date
11
Contact:
Commissioner Transportation and
Environment
TABLE OF CONTENTS
1. COUNCIL RESOLUTION.................................................................................................................1
2. COUNCIL REPORT.........................................................................................................................2
3. POLICY........................................................................................................................................16
POLICY — QUALITY ASPHALT
PAVEMENTS
Common Council Meeting — July 20, 2009
RESOLVED that Common Council:
1. Support the strategy outlined in the submitted report to improve asphalt pavements;
2. Adopt a Pavement Condition Index (PCI) of 70 as the policy goal for the average or overall
network condition of asphalt pavements
3. Consider the funding levels required annually to raise the average PCI towards the desired
condition rating of 70 and be prepared to increase Operating Budget allocations for streets as
outlined in this report;
4. Expect specific resurfacing projects to be determined on a ational basis tied to improvement
of street condition, considering street condition (PCI) and other planned infrastructure renewals
in the street right-of-way;
5. Expect specific street reconstruction projects to be selected based on the needs and priorities
of the community, with consideration of street condition (PCI), possible redevelopment and
planned underground infrastructure renewal;
6. Be prepared to consider reports on the status of pavement condition to be submitted not later
than mid-October of each year; and
7. Schedule a full presentation of the submitted report
REPORT TO COMMON COUNCIL
M & C 2009 -175
June 101h 2009
M>, -
His Worship Mayor Ivan Court The Cily of Saint John
And Members of Common Council
Your Worship and Members of Council,
SUBJECT: QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
AN INVESTMENT IN VALUE
A functional, well maintained network of streets is important to the community - for
citizens and theirneighbourhoodsfor motorists
, ,
commerce, industry and our public institutions.
Asphalt pavements also represent a major
investment in public infrastructure.
The City of Saint John has an expanding urban -
suburban -rural network of 1,137 streets; 1,206
lane kilometres of pavements, comprising about
4,462,200 square metres of asphalt.
As is the case for infrastructure generally, asphalt streets present a service and financial
challenge for government.
ca Can a standard be attained that meets expectations, creates a positive image for
the community and minimizes adverse direct costs on users?
ca Can asphalt streets be kept in good repair and the growing "infrastructure
deficit" related to asphalt pavements brought under control?
ca Can such a standard be achieved in a manner that is affordable to taxpayers?
Tangible Infrastructure Assets
The replacement cost of tangible street assets (pavement and base materials only, not the
entire street) is substantial; currently estimated at over $300 million. Factoring in
everything that roads and streets mean to the life of the community and its economy, the
all-inclusive value of this infrastructure is much higher.
INVESTMENT IN THE COMMUNITY
71
QUALITY ASPHALT PAVEMENTS M&C 2009 — 175, PAGE 2
A COMMITMENT TO IMPROVING SAINTJOHN STREETS JUNE 10'", 2009
POLICY OF QUALITY STREETS
A commitment to quality streets is good policy -
social, economic and financial. This report
follows -up on dialogue with Council during
2009 budget deliberations; it reviews the nature
of asphalt pavements, the need for life -cycle
management of these assets, and the level of
investment required for Saint John streets.
Councils have been warned for many, many
years that the City has not invested adequately in
its invento of as halt avements — in a
ry P P
consistent, pay-as-you-go manner necessary to maintain desired service standards and to
assure value for money over time. The consequence of insufficient renewal and
resurfacing is seen in the deteriorating standard of many streets.
The strategy set out herein seeks to chart a new direction.
FINITE SERVICE LIFE OF ASPHALT PAVEMENTS
Asphaltic concrete is a mixture of dried aggregates, heated and bound together into a
mass by asphalt cement (an oil-based binder). The "hot mix" material is hauled from the
mixing plant to a paving site where it is dumped into a mechanical spreader and placed in
a smooth layer to be compacted by rollers. Compaction must be performed while the
asphalt is sufficiently hot. Pavements are typically placed in two courses (base and seal)
directly on a prepared sub -base or a single layer over an existing milled surface.
Hot mix pavements are relatively durable and flexible, allowing streets to handle traffic
loading, weather conditions, extreme temperatures and the contraction -expansion of
freeze -thaw cycles. But, even the best constructed pavements have a finite life.
The asphalt materials used in street construction deteriorate over time. As asphalt
pavements age, several factors contribute to breaking down the asphalt oil (cement) that
binds the material components together causing loss of ability to flex.
The hot asphalt begins to cool immediately upon being laid; beginning a process that
eventually robs the pavement of its life. Oxygen and water bathe the street surface
reacting chemically with the "binder". Initially necessary for pavement hardening, the
reaction also causes materials to become more and more brittle. As aging progresses, the
"binder" breaks down; resulting in the ravelling or breaking apart of aggregates.
Regular maintenance such as crack -filling, patching and overlaying is essential to
maximizing pavement life. However, maintenance alone will not preserve pavements
indefinitely; replacement will be ultimately necessary.
INVESTMENT IN THE COMMUNITY
72
Ar�
111111M
r,_
ry P P
consistent, pay-as-you-go manner necessary to maintain desired service standards and to
assure value for money over time. The consequence of insufficient renewal and
resurfacing is seen in the deteriorating standard of many streets.
The strategy set out herein seeks to chart a new direction.
FINITE SERVICE LIFE OF ASPHALT PAVEMENTS
Asphaltic concrete is a mixture of dried aggregates, heated and bound together into a
mass by asphalt cement (an oil-based binder). The "hot mix" material is hauled from the
mixing plant to a paving site where it is dumped into a mechanical spreader and placed in
a smooth layer to be compacted by rollers. Compaction must be performed while the
asphalt is sufficiently hot. Pavements are typically placed in two courses (base and seal)
directly on a prepared sub -base or a single layer over an existing milled surface.
Hot mix pavements are relatively durable and flexible, allowing streets to handle traffic
loading, weather conditions, extreme temperatures and the contraction -expansion of
freeze -thaw cycles. But, even the best constructed pavements have a finite life.
The asphalt materials used in street construction deteriorate over time. As asphalt
pavements age, several factors contribute to breaking down the asphalt oil (cement) that
binds the material components together causing loss of ability to flex.
The hot asphalt begins to cool immediately upon being laid; beginning a process that
eventually robs the pavement of its life. Oxygen and water bathe the street surface
reacting chemically with the "binder". Initially necessary for pavement hardening, the
reaction also causes materials to become more and more brittle. As aging progresses, the
"binder" breaks down; resulting in the ravelling or breaking apart of aggregates.
Regular maintenance such as crack -filling, patching and overlaying is essential to
maximizing pavement life. However, maintenance alone will not preserve pavements
indefinitely; replacement will be ultimately necessary.
INVESTMENT IN THE COMMUNITY
72
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 - 175, PAGE 3
JUNE 10'", 2009
Asphalt pavements age in a predictable way; moderate at first, the rate of deterioration
accelerates after a number of years. Without timely maintenance and resurfacing
intervention, the pavement structure and, hence, its surface condition transforms
relatively quickly from fair to poor, to serious and then failure. Cost implications also
increase significantly through this process of deterioration.
GOOD h Typical Pavement Deterioration Curve
SATISFACTORY
$1.00 FOR
FAI R R EHAa LI,ATTON
HERE
POOR
SIGNIFICANT DROP
VERY POOR IN CONDITION
VVI LLCOST
$4.00 TO $5.00
HERE
SERIOUS SMALL 4. OF
PAVEMENT LIFE
FAILED
TIME
As asphalt ages, it becomes brittle and loses its ability to flex. Heavy loading (for
example, heavy trucks and transports) causes pavement fatigue and combines with the
effects of climate to cause more severe cracking, weathering and ravelling. The aging
process is hastened where there are poor soils, utility cuts and other breaches of the
surface, poor drainage and water infiltration. Heat and the ultra -violet rays of the sun
accelerate decline. Water that penetrates the surface gets into the base course and
undermines its integrity, leading to oxidization of the asphaltic cement binding the
pavement materials together. Gasoline and oil spillage also soften and deform asphalt,
speeding up its eventual failure. Adding to this "conspiracy" is winter; moisture trapped
in the pavement structure freezes and thaws, leading to break-up and potholes.
PRESERVATION - MAXIMIZING PAVEMENT LIFE
A newly constructed (or reconstructed) and well paved roadway represents an ideal
pavement state. Engineering standards, good design and proper construction are all part
of achieving quality pavements. Once the asphalt surface is in place, the focus must
become preservation; tracking condition, carrying out regular maintenance and timely
pavement rehabilitation - to maximize economic service life of the pavement structure.
Pavement preservation is the sum of activities that provide for and maintain streets in
user-friendly condition. It aims to protect the investment in the street network, enhance
its performance and minimize disruptions in service. Preservation activities optimize
benefits over costs and extend the service life of streets by providing for a cost-effective
set of treatments and repairs.
INVESTMENT IN THE COMMUNITY
73
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 - 175, PAGE 4
JUNE 10'", 2009
Based on the needs of the streets inventory and the
service priorities of the community, pavements
should be managed rationally and invested in on a
system -wide, life -cycle basis - as a policy of
Council. Regular maintenance and rehabilitation
will prolong pavement life, but will not preserve
street surfaces indefinitely. The timeliness of
resurfacing, however, is very important.
Inadequate investment in asphalt pavements is not good economics. All too common in
Canadian cities is a tendency to defer necessary renewal of existing infrastructures; and,
instead, to focus attention and resources on new, higher profile capital initiatives.
Eventually, this lack of commitment to infrastructure renewal leads to a level of
deterioration that becomes plainly evident, along with a growing "pavements deficit".
When a "need for renewal" becomes a "need for replacement", cost implications increase
substantially. It is more economical over the long-term to invest in and look after streets
on an ongoing basis, spreading out costs over time - to all who benefit from the network.
Municipal councils and administrators are generally familiar with this reasoning and,
probably, agree with it. The real challenge, however, arises when the time comes to make
the essential policy commitment in the annual budget.
The outcomes possible are related directly to consistency of investments made.
PAVEMENT CONDITION INDEX (PCI)
A newly constructed (or reconstructed) and well paved roadway (ideal pavement state)
has a Pavement Condition Index (PCI) of 100. PCI is a quantitative condition assessment
of asphalt pavement based on distress type, severity and extent.
INVESTMENT IN THE COMMUNITY
74
Stand4rd PC]
rating 3401*
PCI along Typical Pavement Deterioration Curve
100
85
fit lar
70
Rehabllltalie�rt
Fair
M+.hria
r
Sic;,,iti,.nr•t Drcip
:ri 'a:`tli7it7r L':ill C 5t
• •
S4 to $S
25
Mare
. ,
Pa-,orrior!I Lille
Time
INVESTMENT IN THE COMMUNITY
74
a
QUALITY ASPHALT PAVEMENTS M&C 2009 — 175, PAGE 5
—ti A COMMITMENT TO IMPROVING SAINT JOHN STREETS JUNE 10'", 2009
MicroPAVERTM, an automated program developed by the US Army Corps of Engineers,
has been introduced to help better understand and manage pavements from a full -system,
life -cycle perspective. From inspection data, MicroPAVER produces a composite
pavement condition index (PCI) - from 0 to 100 — that summarizes structural integrity
and surface operational condition, and predicts maintenance and rehabilitation (M&R)
needs into the future. Shown below are examples of pavement conditions in five of the
seven PCI categories.
Serious PCI: 10-25
Hillcrest Drive
PCI: 22.32
Fair PCI: 56-70
Dorchester Street
PCI: 64.12
Satisfactory PCI: 71-85
*tu;
Sandy Point Road
PCI: 81.78
INVESTMENT IN THE COMMUNITY
75
a
QUALITY ASPHALT PAVEMENTS
—ti A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 — 175, PAGE 6
JUNE 10'", 2009
The network of streets has undergone its first full set of inspections; condition surveys of
distress type, severity and quality. With this data, the predictability model has produced a
full set of PCI ratings for city streets, showing an average network PCI of 67.04 (June
2009); this with average annual investments in recent years of about $4.5 million in
resurfacing and pavement construction combined.
PCI Summary Current PCI ratings of streets by category are summarized as follows:
1. Good PCI: 86-100 220.14 lane -kilometres 18.25%
2.
Satisfactory
PCI: 71-85
441.85 lane -kilometres
36.64%
3.
Fair
PCI: 56-70
240.91 lane -kilometres
19.98% "critical" range
4.
Poor
PCI: 41-55
146.12 lane -kilometres
12.12%
5.
Very Poor
PCI: 26-40
86.02 lane -kilometres
7.13%
6.
Serious
PCI: 11-25
32.67 lane -kilometres
2.71%
7.
Failed
PCI: 0-10
38.29 lane -kilometres
3.17%
The regular program of inspections kicked off this summer will update condition
information and enhance the level of confidence in the database. The full inventory of
streets will be inspected on a two or three-year cycle, allowing the MicroPAVER
predictability model to update condition ratings and PCI of street sections annually.
Sample PCIS A small sample of individual street PCI ratings (2009) is set out below:
Alvic Place
Gault Road to end
94.00
City Road
Garden Street to Delhi Street
62.86
Danells Drive
Allingham Crescent to West Vale Park
56.43
Dorothea Drive
Champlain Drive to Robar Court
42.69
Douglas Avenue
Chesley Drive to Bentley Street
95.50
Douglas Avenue
Clarendon Street to Alexandra Street
50.60
Golden Grove Rd
Harmony Drive to John T MacMillan Ave
32.19
King Street
Chipman Hill to Charlotte Street
89.50
Main Street West
Church Avenue to Ready Street
73.51
Somerset Street
Wellesley Avenue to Frink Street
47.70
Station Street
Sewell Street to Garden Street
84.87
University Avenue
Millidge Avenue to Candelwood Lane
42.40
Westmorland Road
Consumers Drive to McAllister Drive
82.57
Westmorland Road
Mountain Road to Glengarry Drive
34.18
INVESTMENT IN THE COMMUNITY
76
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
CRITICAL PCI
M&C 2009 - 175, PAGE 7
JUNE 10'", 2009
The concept of "critical PCI" is based on the principle that it is more economical to
maintain pavements in good condition, rather than try to recover deteriorated streets.
"Critical PCI" is the point at which the rate of condition deterioration (PCI loss) begins to
speed up with time and where the cost of applying localized preventive maintenance also
rises sharply; usually in the range of 56 to 70 (fair PCI). It is generally recognized that
repair and reconstruction costs for streets below the "critical PCI" range will be four to
five times those of timely rehabilitation (resurfacing).
101
ac
6C
4C
2(
PCI
:..J ISP, ,:s ..-
Cost
!A
Time ... Dependent on Local Conditions
Although this might seem counter -intuitive, the primary focus should be on investing in
streets that have not fallen below the "critical PCI" range. After that point, resurfacing
and other preventive maintenance applications are, in most cases, not cost-effective.*
M&R Activities Maintenance and rehabilitation (M&R) activities, organized into
four levels, should reflect pavement condition and "critical PCI": i
1. Localized Repair Safetyl: to keep pavement surface operationally safe (repair
broken sections, fill potholes); applied to pavements below "critical PCI".
2. Localized Preventive: distress maintenance performed with primary objective of
slowing the rate of deterioration (crack sealing, area patching, including the T -
patch standard); applied to pavements above "critical PCF.*
3. Global Preventive: resurfacing and other extensive surface treatments applied to
pavement sections with primary objective of slowing the rate of deterioration;
applied to pavements above "critical PCI"*.
4. Major Rehabilitation: reconstruction and structural overlays applied to entire
pavement sections to renew, correct or improve structural condition; to upgrade
pavements that are below "critical PCI".
' Pavement Management for Airports, Roads, and Parking Lots, M.Y. Shahin, Kluwer Academic
Publishing, Boston, 1994/2002
INVESTMENT IN THE COMMUNITY
77
a
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 — 175, PAGE 8
JUNE 10'", 2009
PAVEMENT MANAGEMENT: RECOGNIZING VALUE, UNDERSTANDING NEEDS
The basic goals of pavement management are safety, maximizing the service life of
streets and protecting the investment in these tangible assets. Asphalt streets have
monetary value and, to optimize value for money and extend service life, adequate and
ongoing funding for their care and renewal is essential; allocating resources in a way that
recognizes the fundamental value to the community of good roads.
Value of Good Roads The value of roadway infrastructure is linked directly to our city's
functionality, its economy, the quality of life it offers and the strength of its tax base.
A focused pavement management strategy should factor in:
1. Council policy on desired condition for the overall inventory of pavements;
2. Quality pavement design, construction, maintenance, and rehabilitation;
3. Ongoing research into long-lasting, low -maintenance asphalt pavements;
4. Systematic asphalt pavement management and preservation procedures;
5. Strict criteria for all excavations in and restorations of paved streets;
6. Adequate and ongoing funding for the network of municipal streets; and
7. Asset value accounting within a comprehensive asset management program.
Policy Aim Common Council should adopt a policy aim of attaining and maintaining
an overall network PCI (condition) of at least 70 for paved streets in Saint John;
understanding that the higher the level sought in the near term, the greater the short-range
financial outlay required to achieve that goal.
Life -Cycle Management Pavement management is an ongoing, life -cycle process; it
identifies when specific streets require work and chooses the appropriate treatment. The
strategy being proposed would budget systematically for maintenance and renewal, and
establish the "right time" for the "right type" of repair. Timely rehabilitation during the
early stages of deterioration is far less expensive than rebuilding failed streets.
Council's Challenge The challenge for Common Council is to fundamentally
change long standing investment patterns; to commit to a level of annual funding for
asphalt pavements that will achieve the quality standard set out in its policy. Failure to
appreciably alter the status quo will mean decline, dissatisfied citizens and, important to
understand, poor "value for money" over the long term.
INVESTMENT SCENARIOS
With substantial one-time funding assistance from the Province of New Brunswick, along
with an expanded inventory, the City has invested in the order of $4.5 million per year
over the past five years in resurfacing and reconstruction of asphalt pavements.
INVESTMENT IN THE COMMUNITY
78
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 — 175, PAGE 9
JUNE 10'", 2009
We will discuss next these two broad types of "streets investment"; first, the more
economical maintenance resurfacing and, then, the very expensive Capital reconstruction.
Maintenance Resurfacing
It is more economical to maintain pavements in good condition than to allow
deterioration to reach the point of needing full reconstruction. Streets below the "critical
PCI" range of 56 to 70 typically require more expensive reconstruction.
MicroPAVER indicates that 240.9 lane -kilometres or about 20% of the inventory of
asphalt pavements is in the "critical PCI" range and, as such, in need of resurfacing in the
relatively near term. We are confident this is a reasonable reflection of actual condition.
The status of streets closer to the bottom of that range is more urgent than for those at the
top end. This amount of resurfacing is estimated to cost $15.15 million in 2009 dollars.
Proposed 5 -Year Maintenance Resurfacing Program Of the street sections in the
"critical PCI" range, 68.8 lane -kilometres should be resurfaced in 2010, at an estimated
cost of $4,330,000. Further deterioration of condition could mean the need for full
reconstruction of those streets. As such, Option "A" averages the remaining amount in
the "critical" range over the following four years (2011 to 2014); milling and resurfacing
an average of 43.0 lane -kilometres annually. Alternatively, Option `B" spreads the work
in the "critical" range evenly over the five years; 48.2 lane -kilometres per year.
Year
2010
2011
2012
2013
2014
Option "A"
Ln -Km Investment
Option `B"
Ln -Km Investment
68.8
$4,330,000
48.2
$3,030,000
43.0
$2,700,000
48.2
$3,030,000
43.0
$2,700,000
48.2
$3,030,000
43.1
$2,710,000
48.2
$3,030,000
43.1
$2,710,000
48.2
$3,030,000
Total 241.0 $15,150,000 241.0 $15,150,000
The amount available in the 2009 Operating Budget for resurfacing amounts to just over
$2,100,000, representing an increase of $750,000 over previous years. The budget line
has also covered the annual crack sealing and chip seal programs, as well as funding
shortfalls for the adjustment of roadway structures (manholes and catch basins).
We point out again that the ongoing system of inspections will update condition data and
suggest program adjustments each year. Estimates will be adjusted (for inflation, contract
costs and the like) and annual funding needs re -defined from one year to the next.
INVESTMENT IN THE COMMUNITY
79
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
Capital Reconstruction of Asphalt Pavements
M&C 2009 - 175, PAGE 10
JUNE 10'", 2009
From the perspective of both service and financing, it is prudent to extend the life of a
street and, along with that, defer the need for reconstruction for as long as possible. While
asphalt pavements deteriorate in a predictable manner, service life can be extended by
timely maintenance, including resurfacing before pavement condition falls below "critical
PCI". A well constructed roadway, to begin with, can provide good service for many,
many years — as long as it receives ongoing care, with an appropriate level of resurfacing
investment.
But, streets eventually need to be reconstructed. Given the complexity of variables, we
will not try to suggest an average reconstruction cycle (i.e. reconstruct every "x" number
of years); focus on actual condition is more meaningful.
MicroPAVER currently says that 303.1 lane -kilometres are below "critical PCI"
(including currently programmed street projects) and, therefore, in need of
reconstruction. This represents just over 25% of the overall inventory of asphalt
pavements. (The actual condition of each of these street sections needs to be verified in
the field. For example, staff has determined that some streets rated slightly below the
critical range can be "saved".) The estimated cost (2009 $) to reconstruct pavement and
underlying base materials for this many streets is about $78.5 million. Additional street
sections will reach the reconstruction stage each year, while others will be rebuilt in the
same year.
Several substantial street reconstruction projects are currently underway or planned in the
2009 Capital Program. Most of these projects involve the reconstruction of more than the
asphalt pavement, and include new underground water and sanitary services, curb and
sidewalk, stormwater systems and landscaping. Projects underway, soon to be underway
or at various stages of engineering include:
cat Princess Street (Prince William to Charlotte): 0.55 lane -kilometres
ca Manawagonish Road (Westgate to Gault): 1.42
ca Paul Harris and Brunswick Drive (Paul Harris to Waterloo): 0.98
ca Braemar Drive (Westmorland to ): 0.68
ca Fairville Boulevard (Intersection at Catherwood to Mall entrance): 0.72
ca Rothesay Road (Railroad Overpass to Colony Road): 4.50
ca Westfield Road (Acamac Backland to Civic #2300): 4.10
ca Market Place (Saint John Street to King Street West): 1.26
ca Albert Street (Victoria to Main): 0.32
ca Bonner Place (Woodville to end): 0.52
ca Fishermans Road (Sand Cove to Seawood): 0.40
ca Latimore Lake Road (Phase III — Hickey to Civic #454): 2.80
INVESTMENT IN THE COMMUNITY
-1
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 — 175, PAGE 11
JUNE 10'", 2009
Inspections by technical staff responsible for asphalt pavements have verified that at least
147.6 lane -kilometres (12.3% of inventory) are, in fact, in need of full reconstruction -
beyond 2009 plans. The estimated cost of reconstructing this lesser amount (pavement
and underlying base materials only) is still considerable, about $38,230,000 (2009 $).
Assuming 147.6 lane -kilometres for major rehabilitation at this time would still mean
substantial reconstruction programs annually, if Council sought to have streets brought up
to an acceptable standard in a reasonable timeframe. Also, given the need to do a certain
level of reconstruction each and every year, it also important to consider how the work is
to be funded. As a basic principle, the City should not borrow money to fund continuous
programs of infrastructure renewal. Incurring debt for such work simply adds to the debt
load, with interest costs eating up an ever growing share of funding capacity.
A plan for Capital reconstruction will be put forward with 2010 budget submissions and
include long range projections. Common Council will decide the specific Capital projects
to be implemented - based on its assessment of community needs and priorities, and the
engineering and financial advice put forward.
Improving Overall Network PCI
There is no simple, inexpensive answer for improving city streets. Common sense would
advocate that a municipality adequately maintain the streets it operates. Alternatively, if it
cannot afford to do so, it should reduce the size of its inventory. Failure to invest
sufficiently leads to network deterioration, premature failure and a declining level of
service. It is well established in the industry that greater economy (optimization) is
achieved over the long term through an ongoing and adequate level of investment in
maintenance and timely renewal of asphalt pavements.
One of the particular challenges of this community is the relatively low density of tax
base per lane -kilometre of roadway. This raises the question of inventory size; can the
City of Saint John tax base support the size of its network of streets?
Apart from seeking additional revenues, opportunities should be sought to "shrink" the
inventory. This could include closing sections of street when the opportunity arises; for
example, reducing Heatherway (between Hickey and Grandview) from four lanes to two.
Such a move would align with an initiative to calm traffic in the neighbourhood. Other
ideas include implementing a narrower roadway standard where possible and installing
wider grass medians where under-utilized asphalt surfaces currently exist.
If Council invests in the resurfacing of streets to the level proposed and implements
substantial (to be defined) reconstruction programs each year going forward, it should
expect to see gradual improvement in network condition (PCI). The actual level of
improvement achieved will be verified through inspection and system analysis each year
as progress is tracked. Actual dollar values needed are subject, of course, to the cost of
materials, labour and contractor mark-up in any particular construction season.
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QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
M&C 2009 — 175, PAGE 12
JUNE 10'", 2009
A commitment to improving asphalt pavements is proposed, based on the following:
A. System PCI of 70 The City of Saint John commit to achieving an average PCI
of 70 for its network of streets, and then to maintain the system at that level or higher.
B. Investment Required Achieving desired network condition will require
considerable investment in resurfacing and reconstruction over a decade or more; a
long-term plan of finances and outcomes would be updated in each annual budget.
C. Better Level of Service Improved network condition will mean better service for
motorists, cyclist and pedestrians, and increased public satisfaction with streets and
neighbourhoods. Also, maintaining a PCI of 70, once attained, will be less expensive
than operating within or below the "critical PCI" range.
D. Inspection Cycle The inventory of street sections will be inspected on an ongoing
basis, at least once every three years or less. Condition surveys and regular input of
distress type, severity and quality information will allow the MicroPAVER
predictability model to update condition ratings and PCI of street sections annually.
E. Field/Engineering Judgements Notwithstanding the value of automated systems,
field and engineering judgements will still have to be made on planned resurfacing
and roadway construction projects. Factors beyond pavement condition are
considered and surface work is coordinated with underground renewal plans and
other reconstruction priorities.
F. Reporting on Status Staff will report annually to Council on status of asphalt
pavements, including progress towards the overall system PCI goal. Subject to
resources and technical feasibility, staff will seek to provide PCI information on
about 2,500 separate street sections through the City of Saint John website in 2010.
G. Maintenance and Rehabilitation M&R activities for asphalt pavements will
be organized around the principle of "critical PCI", as follows:
i. Localized Repair (Safety) - only for pavements below the "critical PCI"
2. Localized Preventive - for pavements above the "critical PCI"
3. Global Preventive - for pavements above the "critical PCI"
4. Major Rehabilitation/Reconstruction - for pavements below "critical PCI"
H. Infrastructure Asset Management Infrastructure assets require attention and an
ongoing commitment of funding for necessary maintenance and rehabilitation - to
prolong pavement life. Timely resurfacing is very important.
INVESTMENT IN THE COMMUNITY
82
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
FINANCIAL IMPLICATIONS
M&C 2009 - 175, PAGE 13
JUNE 10'", 2009
How much should be invested to achieve the desired pavement standard? What will a
pavement condition index of "70" actually cost the municipality? Alternatively, what is
the status quo currently costing taxpayers and users of streets? Every road user and
property owner pays a price for poor road conditions. Deferring maintenance has cost
implications beyond municipal budgets; it is not good economics.
Localized Repair (Safety) and Preventive Maintenance
The basic repair and preventive maintenance of asphalt pavements is carried out by
municipal forces organized in crews of four to six people, depending on task scope and
street circumstances. Current allocations for minor pavement repairs (material, personnel,
contract and other costs) are at about $1,130,000 annually. That amount should be
increased by $500,000 to $1,630,000, with additional work undertaken by internal and/or
external resources. This funding would provide for M&R Category 1 [localized repair
(safety)], and M&R Category 2 [localized preventive] activities.
Street Resurfacing
Funding for resurfacing, M&R Category 3 [global preventive], needs to be increased
substantially. Two investment scenarios are presented for a 5 -Year Maintenance
Resurfacing Program (2010 to 2014), with cost implications (2009 $) as shown.
Street Reconstruction - 2009
The most costly challenge related to streets is the "infrastructure deficit" that has grown
over decades. Substantial monies need to be allocated for the full reconstruction of
asphalt pavements (M&R Category 4, major rehabilitation); a continuous level of
renewal funding. Given the magnitude of the financial implications, it should be the
subject of a broad-based dialogue in conjunction with the upcoming 2010 budget
development process.
INVESTMENT IN THE COMMUNITY
83
Option
"A"
Option
`B"
Year
Ln -Km
Investment
Ln -Km
Investment
2010
68.8
$4,330,000
48.2
$3,030,000
2011
43.0
$2,700,000
48.2
$3,030,000
2012
43.0
$2,700,000
48.2
$3,030,000
2013
43.1
$2,710,000
48.2
$3,030,000
2014
43.1
$2,710,000
48.2
$3,030,000
Total
241.0
$15,150,000
241.0
$15,150,000
Street Reconstruction - 2009
The most costly challenge related to streets is the "infrastructure deficit" that has grown
over decades. Substantial monies need to be allocated for the full reconstruction of
asphalt pavements (M&R Category 4, major rehabilitation); a continuous level of
renewal funding. Given the magnitude of the financial implications, it should be the
subject of a broad-based dialogue in conjunction with the upcoming 2010 budget
development process.
INVESTMENT IN THE COMMUNITY
83
QUALITY ASPHALT PAVEMENTS
A COMMITMENT TO IMPROVING SAINT JOHN STREETS
RECOMMENDATIONS
It is recommended that Common Council:
M&C 2009 — 175, PAGE 14
JUNE 10'", 2009
1. Support the strategy outlined herein to improve asphalt pavements;
2. Adopt a Pavement Condition Index (PCI) of 70 as the policy goal for the
average or overall network condition of asphalt pavements;
3. Consider the funding levels required annually to raise the average PCI towards
the desired condition rating of 70 and be prepared to increase Operating
Budget allocations for streets as outlined in this report;
4. Expect specific resurfacing projects to be determined on a rational basis tied to
improvement of street condition, considering street condition (PCI) and other
planned infrastructure renewals in the street right-of-way;
5. Expect specific street reconstruction projects to be selected based on the needs
and priorities of the community, with consideration of street condition (PCI),
possible redevelopment and planned underground infrastructure renewal;
6. Be prepared to consider reports on the status of pavement condition to be
submitted not later than mid-October of each year; and
7. Schedule a full presentation of this report and the strategy presented herein.
Respectfully submitted,
J.M. Paul Groody, P. Eng.
Commissioner,
Municipal Operations and Engineering
Patrick Woods, CGA
Acting City Manager
INVESTMENT IN THE COMMUNITY
84
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