PAVEMENT MANAGEMENT Annual Report 2009 Legislative Session54.172.27.91/transportation/pavement/PavementMgmt... · Category Proposed 2009 2008 2007 2006 2005 2004 2003 2002 2001 Interstate

PAVEMENT

MANAGEMENT

Annual Report

2009

Legislative Session

Table of Contents

Summary and Contact Information 2

Paving Mileage Summary 3

2008 Accomplishments 4

2008 Preventive Maintenance 5

2008 State Funded Projects 6

Preventive Maintenance Highlight 7-8

Recycled-Asphalt-Pavement (RAP) Report 9

Performance Measures 10

Pavement Conditions Description and Photos 11-15

Network Pavement Structural Conditions 16

Project Prioritization 17

2009 Proposed Paving Program 18

2008 National Highway System Pavement Condition 19

2008 State Highway System Pavement Condition 20

2008 National Highway System Pavement History 21

2008 State Highway System Pavement History 22

SUMMARY

The Pavement Management Unit of VTrans’ Highway Safety and Design Section is responsible for

the condition of one of Vermont’s most valuable assets: 3200 two-lane miles of state highway. With

ever increasing traffic volumes and loadings, combined with our harsh winters, the challenge of

maintaining the condition of Vermont’s pavements is crucial to the movement of people and goods.

During the 2008 construction season, the paving program treated 346 miles of Interstate, US, State

and Class 1 Town Highways. This represents a 135-mile increase over the 2007 construction

season, 82 miles of which was achieved through supplemental state funding for the one-time

emergency maintenance project Operation Smooth Ride combined with bonding for several projects.

For the 2009 construction season, VTrans as part of its regular budget recommends treatment of 291

miles of highway, which is a 38 percent increase from two years ago. However, the Agency expects

to significantly increase this total through the use of federal stimulus funds. Just how many more

miles can be treated depends on how much money the federal government provides, but we trust the

package will be robust and allow VTrans to significantly beef up its investment in the short term.

There is also optimism for the long-term as a new, six-year federal reauthorization bill is due in

2009, which is expected to provide Vermont with substantial additional revenue well into the future.

Over the past several years, emphasis has been placed on all four classifications of pavement

condition: good, fair, poor and very poor. While very poor pavements continue to receive needed

attention and funding, emphasis has been added to preventive maintenance. On sections of highway

where costly investments were previously made, extending the pavement’s service life through

preventive maintenance will maintain the percentage of highways that are in good to fair condition.

These efforts represent a delicate balance that is critical to maintaining the overall network.

This past year also marked the beginning of an important new dialogue between the paving industry

and VTrans. For years, communication existed in the form of a Pavement Technical Committee.

This committee meets during the winter months to review issues and concerns from the previous

paving season. The Legislature in 2008 challenged VTrans and industry officials to move the

technology, materials, and the cost effectiveness of Vermont’s paving to a higher level. Discussions

are bearing fruit that will result in a better end product for the traveling public.

Over the past two decades, much has been done to preserve and improve Vermont’s pavements. As

with any aging infrastructure, much is still left to be done. VTrans will continue its commitment to

look for new opportunities to improve and provide cost-effective pavement treatments.

For information regarding the VTrans Paving Program, contact:

Kevin Marshia

Program Manager

(802) 828-2932

[email protected]

For Information regarding network conditions, or

project selection and timing, contact:

For Information regarding the design of a particular

paving project, contact:

Mike Fowler Ted Domey

Pavement Management Engineer Paving Project Manager

(802) 828-0160 (802) 828-3578

[email protected] [email protected]

2 of 22

Category

Proposed 2009 2008 2007 2006 2005 2004 2003 2002 2001

Interstate 25 30 24 21 41 59 34 14 31Carried forward from previous year 0 0 12 0 0 0 3 15 0Incomplete, to be carried forward 0 0 0 12 0 0 0 3 15Rutfilling (single lane miles) 0 0 6 12 22 36 26 25 40Surface Treatments 51 21 15 9 0 0 0 0 0

State Highway 50 59 68 83 41 51 53 18 102Carried forward from previous year 0 10 0 15 8 0 0 17 18Incomplete, to be carried forward 0 0 10 4 15 8 0 0 17Surface Treatments 7 14 0 0 0 0 0 0 0

Class 1 Town Highway 8 6 9 2 0 4 3 0 6Carried forward from previous year 2 0 0 1 0 3 0 0 0Incomplete, to be carried forward 0 2 0 0 1 0 3 0 0

State Paving (SMA's) 0 82 0 0 0 0 0 0 24

Crack Seal 150 124 77 82 153 150 158 146 116Carried forward from previous year 0 0 0 9 19 25 40 22 0Incomplete, to be carried forward 0 0 0 0 9 19 25 74 22

Paving Mileage Summary(two-lane miles, rounded to nearest mile)

Construction Season

Paving Project Total (items in green) 85 187 113 122 90 117 93 64 181Preventive Maintenance Total (items in blue) 208 159 98 112 194 211 224 193 156

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PAVEMENT MANAGEMENT

2008 ACCOMPLISHMENTS

2008 COMPLETED PROJECTS2008 CARRYOVER

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PAVEMENT MANAGEMENT

2008PREVENTIVE MAINTENACE

2008 SURFACE TREATMENTS2008 CRACKFILL LOCATIONS

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PAVEMENT MANAGEMENT

2008STATE FUNDED PROJECTS

2008 BONDING PROJECTS2008 OPERATION SMOOTH RIDE

6 of 22

Preventive Maintenance Highlight

Pavement is akin to any other physical system, once it is put into operation it begins to deteriorate. While this is

well known, we also know that through regularly scheduled preventive maintenance we often can significantly

extend the life of these systems, as well as reduce the long-term costs of keeping them in good working order.

When preventive pavement treatments are applied, it is not always apparent that work is needed on the system.

But based on testing and/or practical experience, a schedule has been developed for the application of these life-

extending treatments. It is critical that this intervention in the deterioration happens at a point in time where the

rate of decay is just about to hit an accelerated rate. Intervention at this time is critical to ensuring a preventive

treatment can be applied effectively at a low cost. It is after this point that effective treatments to restore the

original health to the system become increasingly more expensive and, with constrained budgets, eventually cost

prohibitive.

Experience with pavement structures, and their respective surfaces indicates that they respond very effectively to

preventive maintenance treatments. The challenge is to maintain the commitment of allocating limited resources

for treating pavement surfaces that do not appear in need when there are many others that are becoming less

serviceable every year. However, if evaluated from a long-term perspective it can be demonstrated that even

though overall network surface conditions will initially get worse, utilizing a rigorous preventive maintenance

strategy is the most practical approach to reversing this deterioration trend over the next 5-to-10 year timeframe.

When assessing surfaces for treatment using preventive maintenance applications, a candidate typically will be

ideal when its VTrans Composite Pavement Condition Index rating is in the range of “Fair.” Depending upon

how the pavement is distressed, treatments at this point in time may be as minimal as a crack seal or as extensive

as a thin, full-width bituminous surface seal. In rough terms, and based on VTrans bid data over the last few

years, these treatments range between $5,000 per mile to $200,000 per mile for a two-lane highway, and may be

applied multiple times over a surfaces’ life to maintain high levels of serviceability. When compared to treating a

structure that has fallen to the “Very Poor” rating where costs for effective treatment can range from a minimum

of $500,000 per mile to $5,000,000 per mile, it is evident how quickly budgets can be consumed if preventive

treatments are not applied and surfaces must be completely reconstructed due to their deteriorated state. The

illustrations on the following page depict pavement deterioration and how these two strategies differ over time

based on multiple interventions – the preventive maintenance approach versus a onetime

rehabilitation/reconstruction approach – once a pavement neared the end of its useful life.

SOURCE: WORLD BANK

“Each $1.00 spent during the first 40% drop in quality will cost $4.00

to $5.00 if delayed until the pavement loses 80% of its original quality.”

7 of 22

With material costs for paving at what they are today, it is now more important than ever that we find any and all

efficiencies in the way we manage our highway network to keep it in the best condition possible with the budgets

made available. Preventive maintenance is one of the tools we can use to ensure we keep good roads good. A

“worst-first” treatment approach to the entire network can be tempting, but from an asset management perspective

has proven to be the wrong direction. Balancing treatments between our “very poor” highways and extending the

remaining service life of our roadways that are in better condition is a long-term solution that will allow us to

achieve our overall network goals. Communicating this message to the traveling public is critical for Vermonters

to understand an approach to treatment of our highways that will provide long term results.

8 of 22

Recycled-Asphalt-Pavement (RAP) Report

600 TONS, 0.3% 11,500 TONS, 6.1%

46,900 TONS, 24.7%

46,200 TONS, 24.3%

84,800 TONS, 44.6%

2008 Paving Program RAP Inventory

TOTAL SALVAGED BY STATE/MAINTENANCE DISTRICTS

TOTAL SALVAGED BY MUNICIPALITIES

TOTAL UTILIZED ON PROJECTS (COLD MIX, SHOULDERS, ETC.)

TONS UTILIZED WITHIN JOB MIX

TOTAL SALVAGED TO CONTRACTOR

The VTrans 2008 Paving Program

generated approximately 190,000

TONS of Recycled-Asphalt-Pavement

(RAP)

NOTE: All tonnage values are approximate.

During the 2008 legislative session, lawmakers challenged the Agency to develop specifications that will

facilitate the increased use of recycled-asphalt pavement (RAP) in Vermont’s hot mix asphalt pavements. In

concert with that requirement, the Legislature asked that VTrans also monitor its production and usage of the

material to get a better understanding of its true value. This report is the first step in that process. Initiatives

underway for the 2009 paving season will begin the data collection necessary to derive the value of the RAP

material owned by the Agency.

About 190,000 tons of RAP was generated by VTrans’ projects during the 2008 construction season. During

construction activities, 93,100 tons of RAP was used on VTrans projects, a total equivalent to 49 percent of the

total amount generated. The highest percentage of rap used in any single project was 25 percent, a threshold

reached twice in 2008. Overall, VTrans projects produced 370,000 tons of hot mix asphalt pavement, which

included 46,200 tons (or 12.3 percent) of RAP.

9 of 22

Performance Measures

Automated surveys are conducted annually to determine pavement conditions across the state. Each segment of road is rated on a scale

of 1 to 100 based on rutting, cracking, and roughness. These are then weighted by their respective traffic volumes. The VTrans goal

for this performance measure is 70.

6467 67 68

6561

0

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20

30

40

50

60

70

80

90

100

2003 2004 2005 2006 2007 2008 2009

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TRAVEL WEIGHTED AVERAGE NETWORK CONDITION2008

HISTORIC PERFORMANCE GOAL

Percent of Network in “Very Poor” Condition – While the “Travel Weighted Average Network Condition” graph measures VTrans’

performance for the majority of road users, these graphs measure the agency’s performance for all users, including those on low

volume roads. The percentage of roads in very poor condition is expected to increase even with a considerable funding effort. The

VTrans goal for the percentage of roads in very poor condition is no more than 25%.

0%

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Fair

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At the current status of approximately 36% Very Poor, the cost of bringing that category back to 25% would be roughly estimated to

be $150,000,000 spent over a two to three year period assuming cost effective treatments and based on costs experienced in 2008.

10 of 22

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11 of 22

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12 of 22

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13 of 22

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14 of 22

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15 of 22

Network Pavement Structural Conditions

Pavement Type Distribution

Two Lane Miles, % of Network Miles

Engineered-Interstate,

641, 21%

Engineered-Non

Interstate, 458, 15%

Non-Engineered

Strong, 1310, 41%

Non-Engineered Weak,

430, 14%

Asphalt on Concrete,

284, 9%

The chart above represents the breakdown of the various pavement structural elements a motorist

will encounter throughout the Agency’s highway network. This information provides a sense of

how the network structures vary, and how that can pose a challenge from a management perspective.

Interstate travel provides a motorist to the best example of an Engineered pavement/highway.

Engineered pavement is designed and constructed from the bottom up with the expectation that if

maintained properly over time, the pavement will stand up very well to Vermont’s harsh climate for

40 years or more. About 36 percent of the State’s pavements are Engineered, and it is these

pavements which can be managed the most effectively, both in terms of cost and serviceability.

About 55 percent of the network is composed of Non-Engineered pavements. A Non-Engineered

pavement is a structure that has been built-up over the years based on minor treatments and

maintenance activities. The end result is a highway evolving from what may have once been a

logging road into what is now a paved roadway. Some of these pavements perform reasonably well

over time. Fortunately, 41 percent of the network’s pavements respond in this manner and are

considered Non-Engineered Strong. It is the remaining percent – the 14 percent of the network that

is Non-Engineered Weak pavements – that pose the greatest challenge to the Agency. A significant

investment is required to keep these pavements in good condition for a reasonable amount of time.

The last pavement structure classification is Asphalt on Concrete. These comprise 9 percent of the

state highway network pavements, and they are a challenge to manage effectively. Often times they

are discernable to the untrained eye where cracks reflect through the asphalt revealing the slabs

beneath. While strong, problems exist where a lane has been widened beyond the slab’s edge

because the additional pavement will distress or settle differently creating a poor ride.

Unfortunately, these structures are typically maintenance intensive and do not perform well with a

conventional resurfacing treatment.

16 of 22

Project Prioritization

PCI20.0%

Benefit Cost (B/C)60.0%

RPC20.0%

2008 Pavement Management Prioritization

Category Scores and Weights

PCI Score0 - 29 = 20

30 - 34 = 16

35 - 39 = 1240 - 44 = 445 -100 = 0

RPC Rank Score1 = 202 = 18

3 = 174 = 165 = 15

6 = 147 = 138 = 12

9 = 1110 = 1011 = 9

12 = 813 = 714 = 6

15 = 516 = 417 = 3

18 = 219 = 120 = 0

B/C Score

B/C - B/C(min) X (60)

B/C(max) - B/C(min)

The chart above illustrates the weighting and scoring of the components built into the Pavement

Management Section’s project prioritization system. Below each component is defined in terms of

their respective characteristics and the effect of the measure on a project’s overall rating. The

system was developed in 2005 and continues to play an integral role in the development of our

annual programs.

Asset Condition (PCI)

• Pavement Condition Index • Combination of ; Ride, Rut, Cracking

• Scoring structured to recognize need to address roads in very poor conditions regardless of traffic

Project Economics (Benefit Cost) • Benefit Cost Ratio

• Benefit compares condition difference between the selected treatment and doing nothing on the project

section over the lifespan of the treatment

• Benefits are weighted by traffic volume

• Cost is present value financial cost to the agency

• Measures the “Bang for the buck” amongst candidate projects

Regional Planning Commission (RPC) Rank

• Regional Importance • Allows RPCs to address; socio-economic, cultural/local importance and impact on local economy of

candidate projects

• Scoring structure helps create a geographically distributed program

17 of 22

H I G H G A T E

S W A N T O N

G E O R G I A

S H E L D O N

F A I R F I E L D


E N O S B U R G


M O N T G O M E R Y

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E D E N

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H A R D W I C K

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U N D E R H I L L

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J E R I C H O



C H A R L O T T E

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F A Y S T O N


B R I S T O L

N E W H A V E N

P A N T O N


WA

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W A S H I N G T O N

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MONTPELIERNH 2604 US2 & M.S.H.

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NORWICHSTP 2602(1) US5 & VT10A & N.S.H.HARTFORD-NORWICHSTP 2206 US5 & W.S.H.

WEATHERSFIELDSTP 2711 VT106

ROCKINGHAM-CHESTERNH 2628(1) VT103

BURLINGTONSTP 2727 US7SO.BURLINGTON-BURLINGTONNH 2726 US7 & I189

TROY (NORTH TROY)STP 2620 VT105 & VT243

BRADFORD-ORANGESTP 2213(1)S VT25

HARTFORD (WHITE RIVER JCT.)STP 2701 US4 & VT14

COLCHESTER-ESSEXSTP 2616 VT15

COLCHESTERIM SURF(12) I89 NB&SB

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NORTON-CANAANSTP SURF(13) VT114

ROCKINGHAM-SPRINGFIELDIM SURF(10) I91 SB

BROOKFIELD-BERLINIM SURF(11) I89 NB

MONTPELIERSTP 2618 US302

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PAVEMENT MANAGEMENT

2009 PROPOSEDPAVING PROGRAM

PAVING PROJECTSSURFACE TREATMENTS

18 of 22

H I G H G A T E

S W A N T O N

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2008NATIONAL HIGHWAY SYSTEM

PAVEMENT CONDITIONGOODFAIRPOORVERY POOR

19 of 22

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PAVEMENT MANAGEMENT

2008NATIONAL HIGHWAY SYSTEM

PAVEMENT HISTORY

2005200620072008

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21 of 22

H I G H G A T E

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PAVEMENT MANAGEMENT

2008STATE HIGHWAY SYSTEM

PAVEMENT HISTORY

2005200620072008

2001200220032004 2000

19991998PRIOR YEARS

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