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96-096 - 10-15 Amend Pavement Management PolicyResolution 96-96 October 15, 1996 Member Russell introduced the following resolution and moved its adoption: RESOLUTION AMENDING THE CITY'S PAVEMENT MANAGEMENT POLICY WHEREAS, Resolution 95-5, adopting a Pavement Management Program ("Program") was approved by the Golden Valley City Council ("Council") on January 17, 1995; and, WHEREAS, the Council now wishes to amend the Program, to provide options related to curb and gutter and street design. NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Golden Valley that the Pavement Management Policy for the City of Golden Valley adopted in Resolution 95-5 is hereby amended and superseded by the Amended Pavement Management Policy dated "Amended October 15, 1996", and attached Thereto as Exhibit A. Mary E. Anderson, Mayor ATTEST: Shirley J. Nelson, City Clerk The motion for the adoption of the foregoing resolution was seconded by Member Micks and upon a vote being taken thereon, the following voted in favor thereof: Anderson, Johnson, LeSuer, Micks and Russell; and the following voted against the same: none, whereupon said resolution was declared duly passed and adopted, signed by the Mayor and her signature attested by the City Clerk. Ll 0 0 • Resolution 96-96 - Continued Exhibit A ctober 15, 1996 CITY OF GOLDEN VALLEY PAVEMENT MANAGEMENT POLICY ADOPTED AMENDED JANUARY 17, 1995 OCTOBER 15, 1996 RESOLUTION 95-5 RESOLUTION 96-96 Resolution 96-96 - Continued October 15, 1996 . Pavement Management Policy for The City of Golden Valley January 17, 1995 Amended October 151996 Purpose There are approximately 119 miles of street to be maintained within the City of Golden Valley. Of this total, 23 miles are designated as Municipal State Aid ;(MSA) roadways and the remaining 96 miles are local streets. Keeping the street system in good condition is necessary to provide safe and reasonable transportation to the citizens of the City, to maintain property values, and to keep the City an attractive and desirable place to live and do business. The goal of the Pavement Management Policy is to establish a Pavement Management Program (PMP) that systematically evaluates the street network to maximize the pavement lifespan, at minimum long-term .cost, by performing the proper rehabilitation measure at the proper time. • Background A street constructed to today's standards can be expected to have an average effective lifespan of 50 years if proper maintenance measures (crack sealing, !sealcoating, and bituminous overlays) are performed at the proper times. The average i age of the local streets within the City of Golden Valley is 30 years. In general, streets) more than 20 to 25 years old were not constructed properly when compared to today'si standards. Most were constructed without removing unsuitable soils from the street subgrade, which causes the street to crack, distort, and break-up under normal traffic loading. This breakup of the pavement allows moisture into the subgrade, which further accelerates deterioration. For streets with failed pavements and poor subgrades, reconstruction has been determined to be the most cost-effective method of long-term rehabilitation, followed by proper and timely maintenance procedures. Many of Golden Valley's streets are newer, having been constructed' or reconstructed to City standards within the last 20 years. Although the pavement on these streets also exhibits some distress, rehabilitation methods such as sealcoating and bituminous overlays are usually appropriate for prolonging their useful life. The Pavement Management Program (PMP) The entire street system under the jurisdiction of the City of Golden (Valley has been broken into segments, which are evaluated by staff and consultants to determine the type of pavement distresses present. Staff then records the severity and extent of each Resolution 96-96 - Continued October 15, 1996 • pavement distress as well as the quality of the ride .on each street segment. Using a pavement management computer program, staff analyzes the recorded information and assigns a pavement quality index (PQI) to each street segment. For example, a PQI of 10 represents a newly constructed street with little or no distress evident, and a PQI of 2 represents a street pavement that has completely failed. The PCI of each street segment is then inventoried, and streets are selected for rehabilitation measures based on staff opinion and the recommendations of the computer software. Because streets decay at different rates depending on subgrade and pavement conditions, staff will evaluate the pavement and assign PQls every year. Every third year, a consultant will conduct a complete inventory and evaluation of the street system. This will ensure that the baseline data being used for decision making is current and that each street in the system receives appropriate rehabilitation measures when the need for maintenance first arises. Rehabilitation measures will include sealcoating, edge and full -width milling and overlays, and total street reconstruction. Sealcoating Sealcoating is a preventive maintenance measure used to extend the life of a bituminous pavement. Oil and aggregate is applied to help seal out (moisture, reduce abrasion of the existing surface, increase skid resistance, and help prevent older 40 pavements from drying out and prematurely deteriorating. A properly installed sealcoat should last approximately six to 10 years. Sealcoating will be applied to those streets in the system that have- concrete curb and gutter and do not exhibit distresses indicative of poor street subgrade. The PQI of these streets will typically be greater than 7.0. The sealcoating process will include crack sealing, routine patching, and limited repair of concrete curb and gutter. Bituminous Milling and Overlay Bituminous milling and overlay consists of mechanically removing a portion of the existing bituminous pavement, usually up to one and one-half inches (1.5), and placing new pavement. After placement of a bituminous overlay, properly timed sealcoating can extend the life of a street for 20 to 25 years before another overlay is required. Bituminous overlays will be performed only on those streets that have been constructed to City standards and do not have distresses indicative of a poor subgrade. The streets receiving overlays also will be subject to crack sealing, curb repair, and patching before the placement of the overlays. The PQI of these streets will vary between 6.0 to 8.0, depending on the types of distress present. 0 • Resolution 96-96 - Continued October 15, 1996 Reconstruction Reconstruction will be performed on streets that do not currently have concrete curb and gutter as well as on streets with curb and gutter that have deteriorated to the point where reconstruction is the only cost-effective method of rehabilitation'; Sanitary sewer, watermain, and storm sewer systems on streets subject to reconstruction will also be investigated as part of the PMP. Those utilities that exhibit inadequate capacity, maintenance problems, and that do not meet specific state or federal' requirements for the utility will be repaired or replaced as part of the street reconstruction project. Based on the street ratings previously discussed, staff will recommend streets for reconstruction each year of the PMP. Highest priority for reconstruction is to be given to the worst streets, or those with the lowest PQls. However, if several ,streets within an area are projected for reconstruction within a five- year period, these streets may be recommended for reconstruction simultaneously to limit the number of years a neighborhood is disrupted by construction. Construction Standards As defined in the City Code, the standard for new residential roadways in the City of Golden Valley is 30 feet wide with concrete curb and gutter. Parking is allowed on both sides of a standard residential street. Whenever possible, design of streets subject to reconstruction will strive to maintain existing street widths, alignments and parking conditions. Variation from existing conditions, including parking and street width, will be considered in the following situations: 1. On Municipal State Aid streets where MSA standards must be followed. 2. On collector and local streets where traffic volumes exceed 500 vehicles per day. 3. Where there are existing unsafe conditions. 4. Where maintaining existing conditions creates undue hardship on adjacent properties or elsewhere on the project. 5. To avoid environmental impacts such as wetland filling and removal of significant trees. Concrete Curb and Gutter Concrete curb and gutter provides structural support for the edge of the paved roadway, aids in snow removal, and facilitates drainage of storm water for water quality treatment and minimizing damage to adjacent properties. Therefore, preliminary design of streets subject to reconstruction will include concrete curb and gutter. However, some residents may view curb and gutter as aesthetically undesirable in most . cases, residents will have an opportunity before the public hearing to petition to have curb and gutter removed from the proposed project. This Resolution 96-96 - Continued October 15, 1996 process is outlined in Appendix A of this report. Residents may not petition for removal of curb and gutter in situations where curb and gutter has been determined to be absolutely necessary, specifically when: 1. the grade of the street is one percent or less 2. the grade of the street is eight percent or greater 3. property abutting the street is below the elevation of the roadway The above situations where curb and gutter is mandatory will often occur adjacent to areas where curb is not mandatory. Strict adherence to these criteria could result in situations where curb is intermittent on a roadway. Therefore, when determining the extent of curb and gutter on each project, each situation will be reviewed individually to ensure that hardships and/or functional problems are not created. Driveway Reconstruction Contracts for street reconstruction will include contract unit prices for bituminous and concrete driveway pavement. Residents along streets being reconstructed will be given the option of having their driveways reconstructed at these contract unit prices. If a resident elects to have his or her driveway reconstructed, staff will measure the quantities installed. The cost of driveway reconstruction may . then be paid in cash by the resident or added to the assessment against the property. Petitions for Reconstruction Petitions for street reconstruction will continue to be accepted under the PMP. However, priority will be given to petitions on streets projected for reconstruction within five years of receipt. Petitions for street reconstruction must be received by the City no later than August 1 of the year before reconstruction is desired. Maintenance Typically, streets that need reconstruction also need mainter7ance measures beyond what is required for streets built to City standards. Those maintenance measures must also be performed more frequently on poor streets, resulting in an increasing burden on General Fund street maintenance and the need for more taxes to finance them. Therefore, those streets recommended for reconstruction consistent with the Pavement Management Policy but denied by the City Council because of resident opposition will no longer be subject to maintenance measures beyond those deemed necessary for public safety. Maintenance measures required for public safety will include, but are not limited to, repair of large potholes in the°driving lanes and patching of utility openings. 0 Resolution 96-96 - Continued October 15, 1996 Sidewalks The construction of sidewalks will be evaluated for each street in keeping with the goals of the Golden Valley Sidewalk Committee. Sidewalk 'I construction will be financed by the City. Concrete Streets Some of Golden Valley's streets currently have concrete pavement. Concrete streets can either be repaired or totally reconstructed, depending on the amount and types of distresses present. As with bituminous roadways, staff will recommend rehabilitation measures on concrete streets, giving priority to those with the lowest ratings. The rehabilitation of concrete streets will be included in the yearly PMP funding. Repair Repair of concrete pavement consists of crack sawing, routing and sealing, shallow - depth patching, full -depth patching, and panel replacement. In general, if more than one-third of a block of concrete street requires panel replacement, repair is not cost- effective and the street must be reconstructed. Reconstruction The cost of reconstructing a concrete street is approximately 49% higher than the cost of a bituminous street. In addition, maintenance and rehabilitation of concrete streets is also considerably more expensive than bituminous streets. Therefore, residents on concrete streets will be given two options: Option 1 is to reconstruct the street as a bituminous roadway, with an assessment consistent with the Spe ial Assessment Policy. Option 2 is to reconstruct the street as a concrete roadway, wit an assessment following the base unit assessment for a bituminous roadway plus 100% of the increased costs resulting from constructing the street with concrete. To reconstruct an existing concrete street as a new concrete street, a minimum of fifty- one percent (51%) of the abutting property owners must sign a petition requesting the concrete reconstruction. The petition form for a concrete street must b provided by the City. No other petition form will be accepted. Financing and Special Assessments The City of Golden Valley Pavement Management Program is to be ,financed through the general fund and general obligation bonds. The bonds will be repaid through tax levies and special assessments. Sealcoating will be financed completely through the general fund, with no assessments to adjacent properties. Bituminous overlays will be contracted with the reconstruction portion of the program and will be financed through bonding as funding allows. Special assessments will only be levied against those properties adjacent to streets being reconstructed. The amount of the special assessments will be set in the City's annual fee resolution based on to the Special Assessment Policy. • Resolution 96-96 - Continued ctober 15, 1996 Typical Yearly Project Schedule The following schedule is typical for a specific project under the Pavement Management Program: June: City staff makes recommendations to the City Council regarding proposed reconstruction projects for the following year. The City Council reviews the recommendations and orders feasibility reports for projects. July through November., Staff begins preliminary surveying as time permits during construction season and completes surveying in the fall. Staff also completes soil borings and televising of the sanitary sewer. September through December - Begin preliminary design and hold neighborhood meetings. December through January. Continue preliminary design, incorporating comments from residents. Prepare feasibility reports based on the preliminary design. Hold another round of neighborhood meetings before the public hearings. Mail forms for curb and gutter petitions Public hearings are also held during this time. The City Council will either order or deny a project at the public hearing. The City Council will also authorize preparation of plans and specifications and authorize bidding if the project is approved at the public hearing. January through March: Prepare final design and specifications. Staff reviews and revises plans (State Aid review when needed). March: Advertise for bids. April. Bids are received and a contract is awarded by the City Council. May though September - Construction begins in May, with completion dates no later than September 30 on each contract. • • C Resolution 96-96 - Continued October 15, 1996 Appendix A Pavement Management Policy Procedure for Petitioning for Street Improvements Concrete curb and gutter will initially be proposed for all streets being considered for reconstruction. However, with the exception of the conditions outlined within the Pavement Management Policy, property owners will be given an opportunity to have curb and gutter removed from the reconstruction plans. Property owners will be made aware of this procedure, as outlined in this appendix. The following procedure will be followed for petitioning to have concrete curb and gutter removed from a project: 1. Project development will proceed through the public input and preliminary design phases with concrete curb and gutter included in the design. 2. Property owners will be informed of their upcoming opportunity to petition to have curb and gutter removed. Information will include discussion of the different special assessment rates for reconstructed streets with and without curb and gutter. 3. Approximately three weeks before the public hearing for each project, each affected property owner will receive a postcard with the following', three options: a) Reconstruct my street with curb and gutter. b) Reconstruct my street without curb and gutter. c) Don't reconstruct my street at this time. 4. Property owners will have one week to return the postcard. 5. A minimum of 75% of the affected property owners must petition', for the removal of curb and gutter for it to be removed from the project. 6. Staff will tally the responses and present the information at the public hearing. Resolution 96-96 - Continued Pavement Management Program 1997 Proposed Schedule October 15, 1996 August through November: Preliminary survey work, preliminary desig November/December: Initial neighborhood meetings, resident participation, preliminary design continues, begin preparing feasibility reports January: Second neighborhood meetings, mail out petition February: Public hearings February through March: Final design and plan preparation i il: Contract letting is is