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05-42 - 06-07 - Amend City's Pavement Management Policy Resolution 05-42 June 7, 2005 Member Pentel 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 amended by Resolution 96-96, on October 15, 1996; and amended by Resolution 97-88 on December 9, 1997; WHEREAS, it is recommended the staff amend the Pavement Management Program by amending the policy including the following elements: • Changes the frequency of system re-evaluation from three years to five years. • Requires 100% petition and waiver of special assessment appeals from home owners wishing to have existing concrete pavement reconstructed with new concrete pavement. Linda R. Loomis, Mayor ATTEST: Donald G. a The motion for the adoption of the foregoing resolution was seconded by Member Shaffer and upon a vote being taken thereon, the following voted in favor thereof: Freiberg, Grayson, Loomis, Pentel and Shaffer; 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. Resolution 05-42 - Continued June 7, 2005 Pavement Management Policy for City of Golden Valley January 17, 1995 Amended October 15, 1996 Amended December 9, 1997 Amended June 7, 2005 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 50-60 years if proper maintenance measures (crack sealing, sealcoating, and bituminous overlays) are performed at the proper times. The average 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's 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. Streets with failed pavements will be evaluated for proper application of various rehabilitation techniques, such as, but not limited to, total reconstruction and varying degrees of in-place reclamation. Many of Golden Valley's streets are newer, having been constructed 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 usual life. Resolution 05-42 - Continued June 7, 2005 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 pavement distress as well as the quality of the ride, traffic volumes and structural capacity 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 10.0 represents a newly constructed street with little or no distress evident; and a PQI of 2.0 represents a street pavement that has completely failed. The PQI 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. The goal of the City is to maintain a street system with an average PQI of 6.0 to 7.0. Residential streets shall be designated for an axle loading of 7 ton. Because streets decay at different rates depending on subgrade and pavement conditions, staff will evaluate the pavement and assign PQls every year. At a minimum of every fifth 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, varying degrees of in-place reclamation and total street reconstruction. Sealcoating Sealcoating is a preventive maintenance measure used to extend the life of a bituminous pavement. Oil and aggregate are applied to help seal out moisture, reduce abrasion of the existing surface, increase skid resistance and help prevent older 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. Resolution 05-42 - Continued June 7, 2005 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 and 8.0, depending on the types of distress present. Reconstruction Reconstruction is defined as any major rehabilitation involving the removal or relaying of all surface material for a particular segment of street. Reconstruction will be performed on streets that have deteriorated to the point where reconstruction is the only cost-effective method of rehabilitation. Sanitary sewer, water main, 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. The City Forester shall comment on the proposed work via an impact statement in the feasibility report. 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 Pols. However, beginning in year 2000, streets will be recommended for rehabilitation techniques within a geographical area, based upon their condition, to limit the number of years a neighborhood is disrupted by construction. Construction Standards The City will strive to maintain the existing width and parking arrangements unless there is an over-riding safety reason to change. 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. Drainage Improvements The City will attempt to improve drainage conditions during reconstruction wherever possible and feasible. Landscaping Impacts The City will endeavor to minimize landscaping disturbances whenever possible, and shall consider reasonable replacements when disturbances are necessary. Resolution 05-42 - Continued June 7, 2005 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 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. Property Owner Involvement During the design phase of any reconstruction project, the City will hold two open houses for affected property owners. Property owners will be consulted and provided the opportunity to have input in the design process. One shall be held early on in the process and one toward completion of the process. However, this is not intended to exclude any other meetings with individual or groups of property owners during the design and construction process. The City will also endeavor to keep property owners informed during the construction phase. Driveway Reconstruction The City will work with property owners to improve driveway conditions where possible. 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. Resolution 05-42 - Continued June 7, 2005 Maintenance The City will perform major maintenance procedures in a timely and cost-effective manner to maintain condition over the life of the street, including overlays and sealcoating. However, streets that need reconstruction also need maintenance measures beyond what is required for streets built to City standards. These 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. Sidewalks The construction of sidewalks will be evaluated for each street in keeping with the goals of the Golden Valley Sidewalk Committee. Sidewalk 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 Special Assessment Policy. Option 2 is to reconstruct the street as a concrete roadway, with 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, 100% of the abutting property owners must sign a petition requesting the concrete reconstruction. The petition form for a concrete street must be provided by the City. No other petition form will be accepted. Resolution 05-42 - Continued June 7, 2005 In addition to the petition process, a neighborhood wishing to have its street reconstructed with concrete pavement must obtain Waivers of Special Assessment Appeals from 100% of the affected property owners. If new concrete pavement is constructed according to this policy, all property with frontage on the concrete pavement will be subject to a concrete street maintenance utility fee that will be adopted at the time the project is ordered. 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 the Special Assessment Policy. 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. Resolution 05-42 - Continued June 7, 2005 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. Resolution 05-42 - Continued June 7, 2005 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. Prior to the second open house meeting with the property owners, 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.