HomeMy WebLinkAbout2015 Paving of Five City Streetsmf
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HOME OF PELICAN ISLAND CITY COUNCIL AGENDA TRANSMITTAL FORM
Council Meeting Date: 18 November 2015
Agenda Item Title: 2015 Pavement Assessment
Recommendation: Approve Reallocation of $726,000 for the Reconstruction of Five
Street Pavement Projects.
Background: Due to the reassessment of the Main Street project following heavy
rains, the City Engineer conducted a Citywide Pavement review. He has identified five street
segments which require immediate base and pavement repair. These streets are: Bevan Drive,
Benedictine, Concha, Melrose Avenue and Schumann Drive. The engineering cost estimate for
the reconstruction of these street segments is $660,000. These proposed reconstruction projects
were not identified, or programmed, into the FY15/16 CIP/budget. Therefore, Staff is
recommending a reallocation of funds to ensure the City does not fall behind on street
improvements.
Two projects have been identified as candidates to be adjusted.
They are: 1. replacement of the Barber Street Bridge would reallocate $500,000; 2. reducing the
scope of multiple columbarium(s) construction at the Cemetery reallocates $80,000. Also, there
is FY16 sidewalk repair funds of $17,000 and $129,000 from unbudgeted Local Option Gas Tax
reserves available. Total for street repaving/reconstruction would be: $726,000. This would
include $66,000 for construction contingencies as necessary.
If Agenda Item Requires Expenditure of Funds:
Total Costs: $726,000
Amount Budgeted in Current FY: -0-
If Cost Requires Appropriation: $17,000 from FYI sidewalk repairs
$129,000 Local Option Gas Tax reserves
$500,000 DST cancelling FY17 Barber Bridge project
$80,000 DST from cemetery Columbarium(s)
Amount of Appropriation Required: $726,000
Fund to Be Utilized for Appropriation: various funding sources assiidentified
Administrative Services Department Review/CFO: 4 1
Attachments: 1. Pavement Assessment
2. PowerPoint Presentation
City Manager Authorization:
Date: I O November 2015
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City of Sebastian
Pavement Assessment
FY 2015
Date
November 5, 2015
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FY 2015 FZ0�
Pavement Assessment HOME OF PELICAN ISLAND
I. BACKGROUND
The City of Sebastian maintains approximately 157 miles of paved roadways which includes
local residential and major collector streets. A majority of these roadways were constructed
in the late 1950's and 1960's approximately 30 to 40 years ago. Most of these roadways are
local residential street with pavement sections typically 17-19 feet wide with no curb and
gutter. The City has the following major collector roadways per the City's Circulation
Element:
• Indian River Drive
• Schumann Drive
• Barber Street
• Fleming Street
• Easy Street
• Vocelle Avenue
• Main Street
• Laconia Street
• Englar Avenue
• Wimbrow Drive
• Lousiana Avenue
These collector streets vary in pavement width from 20 to 24 foot wide. Past roadway
construction practices were typically to install 6 to 8 inches of a soil cement base material
under an asphalt pavement surface that has been observed to vary from 1 inch to 2 inch
thickness of new asphalt pavement. The drainage for most of the roadways is handled by
roadside swales which drain into side & rear ditches which eventually all drain into the Indian
River Lagoon.
Since 2012, the City's Public Works Department has completed several major pavement
overlays and street reconstruction projects. These improved streets include: Laconia Street,
Periwinkle Drive, Easy Street, Englar Drive, South Barber Street, Schumann Drive, Pelican
Island Drive, Douglas Drive, Empire Terrace, Miller Drive, Tracy Drive, Fleming Street and
currently completing Main Street. The photo above is Main Street under construction taken in
October 2015.
The City has historically made a financial commitment to fund roadway maintenance within
the City's Capital Improvement Program. In an effort to be proactive with a Citywide
Pavement Management System, in July 2015, the City Engineer conducted a pavement
assessment to identify which streets are in "poor" or "bad" condition. Accordingly, this
report has been prepared to present the existing street pavement conditions and enable the
City to update the annual pavement repairs and funding. It is the aim of this plan to ensure
2015 Pavement Assessment Page 1
that the City's limited resources are used in the most cost effective and practical manner
possible to manage pavement repairs and maintain the City's street system.
II. FIELD REVIEW PHASE
A typical pavement assessment includes the visual inspection of the pavement surface,
evaluation of the surface condition and then a possible detailed structural analysis. The
pavement surfaces are evaluated to judge the adequacy of the existing pavement for current
vehicle use. Streets are rated on the pavement surface condition, ride -ability and the present
serviceability life. Any damaged or any visible surface distress will require a more detailed
structural analysis of the base. Before embarking upon a substantial investment in the
roadway base infrastructure, the pavement assessment will summarize all findings to
determine the ranking of the severity to analyze how each problem should be solved.
The pavement review process was developed using basic pavement management system
requirements and modified to meet the City's paving needs. The first step includes the
development of a field inventory of all city roadways. Each roadway is given a rating based
upon the quality and pavement condition of the road surface based on site observation. As
part of this rating, each roadway is rated in four basic categories:
• Good condition of the roadway surface
• Fair condition of the roadway surface
• Poor condition (minor/medium surface cracking and pot holes)
• Bad condition of the roadway (large cracking and base failures)
Other parts of this phase included a determination of the level of repairs that were necessary
to those roads that were rated as poor or bad. The amount of asphalt tons required were
estimated and the associated costs are calculated to determine the overall cost to repair poor
and bad roadways.
A. Roadway Rating Survey.
A rating survey of the City's existing pavement condition was conducted from July to August
of 2015. All of the City streets were driven and visually inspected on the surface condition of
the existing pavement. The field ratings were categories into four pavement conditions by the
City Engineer. These ratings are subjective based on the engineer's field review of the
surface condition. As mentioned, the roadways were ranked in four different levels of road
classification in which to determine the amount of service that would be required on each
roadway. The following is a brief definition of each classification.
• Good. Roads that have been paved within the last 10-12 years and are holding up
well. They are in good condition and can be expected to not require paving for
several years or more.
• Fair. Fair roads rated as one, two or three have been grouped together for the
maintenance program. Road is in fair condition, but has limited expected life.
Maintenance should occur in the near term, that is, in a 3 to 5 year time period.
2015 Pavement Assessment Page 2
• Poor. Roads that are in poor pavement condition and need repair. It is potholed
and/or cracked and is in need of significant repair, and then resurfacing may need to
be addressed. Immediate attention is indicated.
• Bad. Roads are bad condition with base failure and major surface cracking. The
roadway base material such as the coquina rock or lime rock is failing. Additional
work will be required to reconstruct the road base and apply more material, if
necessary.
A color inventory map of the City Street system is shown on page 4 of this report. This map
identifies each street per color rating classification as listed above.
B. Roads Recommend for Resurfacing/Micro-surfacing
Those roadways ranked as "Poor" or "Bad"
will be considered as possible candidates for
resurfacing or reconstruction based on
additional structural review. As shown on the
following page in the color map, there are
several roadways within the City that falls
within these two categories. Each of these
collector roadways will be reviewed to
determine the extent of work that would be
required prior to resurfacing or possible
micro -surfacing of these roads. This was necessary in order to:
1) Determine the extent of work that will be required for each road, and
2) Estimate the cost for repairing each of the roads.
The following table is a summary of the 2015 pavement assessment findings which identifies
the street miles and percentage of streets within each of the four categories. The findings
show only 6.9% of streets with the two "Poor" and "Bad" pavement condition. The majority
of the City streets are within the Fair to Good conditions.
Bad 5.57 3.5%
Poor 5.32 3.4%
Fair 13.5 8.6%
Good 132.6 84.5%
2015 Pavement Assessment Page 3
The following streets listed below are shown on the color pavement map as in Bad condition. These
streets will need some major repair or full reconstruction within a short period. The list below
identifies the street which will need reconstruction since these roads are showing signs of base failure.
1.
Benedictine Dr.
from Barber to east of Coverbrook
Reconstruct
2.
Concha Drive
from Eastlake to Pleasant View
Reconstruct
3.
Bevan Drive
from Granduer Ave to Genesse Ave
Partial Reconstruct
4.
Melrose Ln.
from CR 512 to Autumn Terrace
Partial Reconstruct
5.
Schumann Dr.
from US 1 to Bailey Drive
Reconstruct
6.
Concha Dr
from Ridgely to Ocean
Reconstruct
7.
Barber St
from CR 512 to Lake
Partial Reconstruct
8.
Vocelle Ave
from Roseland to Barber St
Partial Reconstruct
9.
Day Drive
Maltz to Pelican Ave
Partial Reconstruct
10.
Del Monte Rd.
from Aspen to S Wimbrow
Pot Hole/Overlay
11.
Balboa St.
full length of street
Pot Hole/Overlay
12.
Barber St
Intersection of Schumann
Reconstruction
In addition to the streets listed above in "Bad" condition, there are several streets which are in
the "Poor" condition category which will require some type of minor base repair or overlay to
help prevent any additional pavement distress and protect the asphalt and base from being
damaged. These Poor condition roadways could be micro -surfaced with the following construction
items: a double micro surfacing, pot hole or street repairs, traffic control, mobilization and cleaning
and side grass clearing
2015 Pavement Assessment Page 5
C. Preparation for Resurfacing.
The purpose of this section is to outline and plan the specific work items that will be
contracted under the overlay program. Both road work and drainage items are anticipated.
1. Streets and Roadways. Each road will require a certain amount of preparation
prior to resurfacing. It is of the utmost importance to the life of the new asphalt road
to have a clean, stabilized surface upon which to place asphalt. A sound base is
required as well. Areas that have evidence of deterioration due to standing water
should be reviewed and given additional consideration.
Roadway preparation will consist of the following tasks:
Edging. The existing edge of the pavement must be clear and clean from grass and
debris. Procedures for clearing the edge consist of grading or excavating
overgrowth, exposing the edge of the original pavement. Brooming off the loose
material. Herbicide application if there is vegetation growth through the base.
Crack Sealing. Cracks that have formed in the roadway surface should be sealed if
they have greater than 1 inch width. Herbicide is applied if there is vegetation
growth. Sealants will repair the crack and give a smooth surface upon which new
asphalt overlay can be applied.
• Patches. Potholes and broken asphalt must be repaired if they are 3 inches in depth
or greater. Imperfections less than 3 inches can be smoothed out with an application
of a leveling course of asphalt prior to the overlay. Some areas that have asphalt
peeled away can be scraped off with a motor grader to the original base and a
leveling course applied. Only those potholes greater than 3 inches deep will require
more attention than a leveling course. In-house labor will supplement the contractor
as much as possible.
Spraying. Areas where grass and other vegetation are growing from beneath the
paved surface will require herbicide spraying prior to asphalt application.
Brooming. The road surface must be clean and dry prior to the placement of new
asphalt application.
• Milling. Milling is the process in which the top 8 inches of asphalt and road base
are ground and mixed together. Oil is added to the mixture and it is reapplied as
new base. Once the new base is graded, an asphalt overlay can be applied. Milling
is only proposed for roads that meet the following conditions:
a) The existing condition of the road is extremely deteriorated and there is
substantial indication of base failure, and
b) The traffic volumes and service level of the road warrants the additional
investment.
2015 Pavement Assessment Page 6
2. Asphalt Overlays & Leveling Course. All roads shall be resurfaced with a
minimum of 1 inch and up to 1 '/, inch overlay. Dependent upon the existing road
surface, a leveling course may be applied prior to the overlay. Roads with rough
surfaces, imperfections, or wheel ruts will be leveled prior to resurfacing. Most of
the roads will require leveling. One half inch (1/2) of asphalt over each lane was
used to estimate the number of tons required for the level course.
3. Full Depth Reclamation (FDR) with Recycled Cement Treated Base. Full depth
reclamation recycles the materials from the deteriorated asphalt pavement, base
material and with the addition of cement, creates a new stabilized base. A surface
consisting of a then bituminous hot mix asphalt or concrete cement completes the
rebuilt roadway. The recycled base is stronger, more uniform and more moisture
resistant than the original base resulting in a long, low -maintenance life.
4. Drainage. Roads that have a history of drainage problems shall be reviewed to
determine what level of work needs to be done to eliminate standing water on the
road surface. Many road failures are due to lack of roadway drainage. Clogged or
collapsed pipes, inadequate swales and lack of ditch maintenance contribute to road
failure when the water cannot run off the pavement surface into a drainage facility.
Prior to the implementation of the roadway improvement and pavement application,
drainage facilities, such as storm drain pipes under the roadway, culverts and
drainage boxes will be inspected for any needed improvements. These drainage
improvements should typically be construction as separate drainage improvement
projects and not tied into the roadway and pavement application project.
5. Shoulders & Swales. The shoulders will be inspected to see what its relative
elevation is with that of the road. If the shoulder is too high, then water will not be
able to drain off of the road. Roads that have evidence of holding water due to high
swales will be more closely scrutinized to determine if the seriousness of the water
retainage warrants additional drainage work prior to resurfacing. The swales will
only be improved to the end result of getting water off of the road. The drainage
efforts expended under the paving program will only involve repairing failed pipes,
cut shoulders to provide positive drainage off of the road, sod and/or seed and mulch
disturbed shoulders.
2015 Pavement Assessment Page 7
D. Estimating Pavement Budget Items
There are several work or bid items associated with an annual pavement repair. These
pavement bid items are listed below:
• Prime and Tack Coats for Base. The FDOT standards require for base materials to
be applied with bituminous prime coats on previously prepared base material and
apply bituminous tack coats on previously prepared bases and on existing pavement
surfaces. Per FDOT standards Section 300 — Prime and Tack Coat for Base Courses,
this bid item is usually in gallons.
• Asphalt Overlay. Tons of asphalt necessary to level the road and overlay the road
with 1-1/2 inches of asphalt. The asphalt concrete is typically paid in a unit price per
tons for the leveling. FDOT uses the pay measurement of tons for asphalt contracts
in neighboring communities. Per FDOT standards, Section 334 for Hot Mix Asphalt
for Local agencies will be used for the specification for all asphalt, aggregate
materials and milling or reclaimed asphalt pavement.
• Milling and Resurface. Milling consists of grinding the road base and asphalt
together and reapplying the new mixture as a new base. Typically, milling and
surfacing is measured as a pay item in per square yard of roadway surface area. Per
FDOT standards, Section 334 for Hot Mix Asphalt for Local agencies will be used
for the specification for all asphalt, aggregate materials and milling or reclaimed
asphalt pavement.
• Full Depth Reclamation (FDR) with Recycled Cement Treated Base. Full depth
reclamation recycles the materials from the deteriorated asphalt pavement, base
material and with the addition of cement, creates a new stabilized base. A surface
consisting of a then bituminous hot mix asphalt or concrete cement completes the
rebuilt roadway. The recycled base is stronger and more uniform and more moisture
resistant than the original base resulting in a long, low -maintenance life.
• Micro -Surfacing. Micro -surfacing consists of a mixture of polymer -modified
emulsified asphalt, mineral aggregate, water and additives proportioned and mixed
and uniformly spread over a properly prepared surface. Micro -surfacing should be
capable of performing in variable thickness cross-sections such as ruts, scratch
courses and milled roadways. The micro surfacing should be applied as a
homogeneous mat, adhere firmly to the prepared surface and have the skid resistant
texture throughout the service life. For the pavement maintenance program, the city
has identified the use of the FDOT Section 335 for Micro -Surfacing.
• Construction Engineering Inspections (CEI). As part of the overall construction
of the asphalt application, is the need to provide adequate construction engineering
inspection (CEI) services which will ensure that the project is constructed per the
specifications. Typically, these CEI services are handled through consultant
services for the duration of the project.
2015 Pavement Assessment Page 8
E. Micro -Surfacing Option
What is Micro -Surfacing?
Micro surfacing is a polymer cold mix paving system designed to remedy many roadway
surface problems. Micro -surfacing is perfect for high traffic streets showing signs of surface
rutting, texturing and sealing.
Micro -surfacing is a type of slurry seal application, with a mixture of dense graded aggregate,
asphalt emulsion, water and mineral fillers. It is applied with specialized paving equipment
which carries and mixes all of the components. The applied finished surface is initially dark
brown and then changes to black. The curing is completed within an hour after application
and roadways can be open to traffic.
Micro -Surfacing is a thin maintenance treatment for roadways. Unlike a street slurry seal
application, which eventually lead to breaking and curing due to evaporation, micro -surfacing
is a chemical reaction which causes the material to set-up.
Why Use Micro -Surfacing?
It is cost effective when compared to the cost of an asphalt overlay and benefits of the
application include:
• Minimize oxidation/aging, reduces water infiltration, correct raveling and weathering.
• Provides skid resistance.
• Improves aesthetic (black color).
• Corrects rutting and minor surface profile irregularities.
• Average performance life is 5 to 7 years.
When not to use Micro -Surfacing?
As mentioned, micro -surfacing is a good and cost effective application for surface
irregularities such as rutting, texturing and sealing. Micro -surfacing is not an application for
roadways with structural defects. These defects include:
• Alligator cracking
• Extensive rutting
• Bumps and depressions
• Major potholes
• Base failures
There are several state DOT's that are not providing technical specifications for using Micro -
surfacing on state projects. The Florida Department of Transportation (FDOT) does not
provide a standard specification for the application of Micro -surfacing for state projects, but
does provide one for local agency projects. As noted, micro -surfacing should only be used for
surfacing pavements with minor cracking and rutting to extend the life of the pavement for
another 5-7 years. Roadways that are already showing signs of major alligator cracking, base
failure and structural failure will require the structural base or sections of the base to be
repaired and then a thin layer of bituminous asphalt overlay applied.
2015 Pavement Assessment Page 9
III. PROCUREMENT PHASE
The procurement phase consists of specification development, contract document preparation,
bid solicitation, and contract award. This section will outline what contracts will be prepared.
The schedule for completing this phase of the program is also presented in this section.
A. Technical Specifications.
Technical specifications will be prepared per the city's standard bid documents which will
consist of all roadway preparation (base repair and milling), asphaltic application, micro -
surfacing and any drainage work (if needed). These specifications for the materials and for
the installation and construction will follow those defined in the Florida Department of
Transportation (FDOT) Standard Specifications for Road and Bridge Construction as
specified in this document. The following specific work items will be prepared as part of this
technical specification:
Bid Items: Description
Units
• Prime and Tack Coat
Gallons
• Asphalt emulsion
Gallons
• Milling of Existing Asphalt
Square Yard
• Reclamation Cement Treated Base
Cubic Yard
• Hot mix asphalt
Tons
• Micro -Surfacing
Square Yard
B. Contracts.
This section describes the typical capital improvement project contract which will be used as
part of the paving program for advertising and selecting the contractor under a competitive
bid process. The major items for this contract will be for the road preparation and application
of asphalt as described above in the bid items. The Contractor shall be responsible for all
tasks associated with preparing the roadway for and the application of asphalt. Other
Contracts include milling and resurfacing, micro -surfacing and inspection services.
The price for the contract will be for road preparation and application of asphalt as defined in
the technical specifications. A list of roads and associated mileage to be resurfaced will be
listed in the contract. Each bidder shall submit unit price bids for tons of asphalt applied for
overlays, tons of asphalt for leveling, patches, square yards of shoulder rework, for the
estimated total amount of roads that are proposed for resurface. After the bids are received,
the low bid price can be added or subtracted dependent upon how the cost compares to the
budget.
Due to the magnitude of the streets, a part time inspector or CEI should be considered to assist
city staff in monitoring the activities of the paving program, contractor, inspect the
workmanship, monitor progress and schedule, and approve the payments. The inspector will
be representing the Town to make sure that the contractor works efficiently, within technical
specifications, and to the plans. The inspector will coordinate all of the activities associated
with the paving program with the Public Works Director/City Engineer.
2015 Pavement Assessment Page 10
IV. CONCLUSION
In summary, there are approximately 157 miles of roadways within the City of Sebastian and
based on this 2015 Pavement Assessment, only 6.9% of roadways need some minor repair to
major reconstruction. Based on this assessment, the majority of the residential local and
collector streets are rated in the "Good" to "Fair" pavement condition. However, there are a
few "Poor" and "Bad" pavement condition roadways.
The roadways that are rated in Bad condition which will need immediate attention are the
following:
1. Benedictine Dr.
from Barber to east of Coverbrook
Reconstruct
2. Concha Drive
from Eastlake to Pleasant View
Reconstruct
3. Bevan Drive
from Granduer Ave to Genesse Ave
Partial Reconstruct
4. Melrose Ln.
from CR 512 to Autumn Terrace
Partial Reconstruct
5. Schumann Dr.
from US 1 to Bailey Drive
Reconstruct
It is the finding of this assessment that these five streets will require immediate repair or
reconstruction pending an additional analysis of the structural base material. At this time,
these streets are assessed with some type of partial or full street reconstruction.
2015 Pavement Assessment Page 11
2015 Pavement Assessment
Overlay -Base Repair -Reconstruct
By Frank Watanabe, PE
City Engineer
November 11, City Council Meeting
Pavement Assessment
® Inventory of
existing pavement
surfaces
® Drive the street for
visual inspection
® Rating Survey into
four categories
® Engineering cost of
the high ranked
Streets
Pavement Repairs
• Minor pot hole
repairs
® Slurry Seal
• Micro Seal
• Asphalt Overlay
• Base repair and
Overlay
• Reconstruction
• Full Depth
Reconstruction
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Streets Limits Type Cost
• Benedictine
• Concha Dr.
• Bevan Dr.
• Melrose
• Schumann
Barber to Coverbrook
Eastlake to Pleasant View
Granduer to Genesse
CR512 to Autumn
US 1 to Bailey Dr.
Reconst.
$77,000
Reconst.
$165.000
Partial Reconst.
$72,000
Partial Reconst.
$218,000
Reconst.
$128,000
Total Cost
$660,000
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