Ten- Year State Highway System Rehabilitation Plan
1998- 99 through 2007- 08
and
Recommendation for Funding within the
1998 State Transportation Improvement Program
Fund Estimate
February 1, 1998
Prepared by Department of Transportation
Maintenance and Transportation Programming
Approved by the California Transportation Commission March 31, 1998
Required by Streets and Highways Code Section 164.6
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Table of Contents
Introduction 1
Recommended 10- Year SHOPP Rehabilitation Plan 3
Traffic Safety 5
Roadway Rehabilitation 7
Roadside Rehabilitation 10
Operations 13
Strategies to Control Cost and Improve Efficiency 17
Attachment 1 - Pavement Distress on Class 1 Routes 19
Attachment 2 - Pavement Condition vs. Cost of Repair 20
Attachment 3 - Program Funding vs. Pavement Rehabilitation Needs 21
Attachment 4 - 1996 Baseline Funding 22
Attachment 5 - Department’s Recommendation 23
1
Ten- Year State Highway System Rehabilitation Plan
1998- 99 through 2007- 08 FY’s
and
Recommendation for Funding Within The
1998 State Transportation Improvement Program ( STIP)
Fund Estimate
INTRODUCTION:
Senate Bill 45 ( Kopp) became effective January 1, 1998. Under Streets and Highways
Code Section 164.6, the Department of Transportation is required to prepare and transmit to
the Governor and Legislature a 10- year state rehabilitation plan for the rehabilitation and
reconstruction of all state highways and bridges owned by the state. The plan is to be
submitted to the California Transportation Commission for review and comments, and is to
be the basis for the department’s budget request and for the adoption of the State Transpor-tation
Improvement Program ( STIP) Fund Estimate.
Streets and Highways Code Section 167, mandates that the operation, maintenance and
rehabilitation of the state highway system is the first priority for use of state highway
account funds. Government Code Section 14526.5 indicates that expenditures for the State
Highway Operation and Protection Program ( SHOPP) are for major capital improvements
needed to preserve and protect the state highway system. This 10- Year State Highway
System Rehabilitation Plan has been developed to address all of the program elements
included in the SHOPP.
The SHOPP is submitted, not later than January 31 of each even- numbered year, to the
California Transportation Commission ( CTC) for review of the program, level of funding
needed and impact of the proposed expenditures on the State Transportation Improvement
Program ( STIP). The CTC is to approve the SHOPP and submit the program to the Legis-lature
and Governor by April 1 of each even- numbered year.
During the July 1996, and the January 1997 CTC meetings, workshops were conducted to
discuss the program components within the SHOPP. The workshops were augmented by
two additional presentations on longer- life pavement during the October 1996 and March
1997 CTC meetings.
As required by Statutes, the Department has developed a 10- Year SHOPP Rehabilitation
Plan as a basis for the SHOPP funding recommendation for the 1998 STIP Fund Estimate.
The Plan will be updated every two years to confirm or revise future SHOPP recommenda-tions
for the Fund Estimate and the department’s budget request.
2
FINDINGS:
· The existing transportation system has an estimated worth of $ 300 billion. It took
100 years to build the system, and rehabilitation needs currently exist statewide.
( See Attachment 1).
· Annual vehicle miles traveled ( VMT) on the state highway system have increased
from 139 billion in 1990, to 146 billion in 1995, and is projected to increase to 186
billion by the year 2005.
· The increased VMT results in a faster rate of pavement deterioration, new accident
concentration locations, and increased hours of traffic congestion.
· The 1995 State Of The Pavement Report indicated that of the over 49,000 lane miles
of state highways, over 14,000 were in need of corrective maintenance or rehabilita-tion
with approximately 4,300 requiring immediate attention to avoid further dam-age
or loss of the facility. This immediate need is more than double the 2,000 lane
miles identified in the 1992 report.
· The system is aging. Over 50% of the state highway bridges are over 30 years old.
An increasing number are reaching the age where major rehabilitation or replace-ment
will be required.
· The 10- Year SHOPP Rehabilitation Plan is intended to identify system needs, and
recommend a long term investment/ management strategy to effectively protect the
public’s investment in the state highway system.
3
Recommended 10- Year SHOPP Rehabilitation Plan
The 1996 STIP Fund Estimate is considered to be a baseline for SHOPP funding purposes.
By extending the 1996 Fund Estimate to cover the ten- year period through 2007/ 08, the
baseline provides $ 7.3 billion for SHOPP purposes. The recommended funding during this
ten- year period is $ 8.6 billion or an increase of $ 1.3 billion over the 1996 Baseline. Below
the 10- Year SHOPP Rehabilitation Plan recommendation is compared to the 1996 Baseline.
· 1996 Baseline:
- reduction of deteriorated pavement to 5,500 lane miles.
· 10- Year Plan includes the 1996 Baseline plus:
- additional funding for safety,
- approximately 1,800 lane miles of longer- life pavement,
- increased future funding for bridge rehabilitation,
- increased funding for roadside rehabilitation, maintenance worker safety and
compliance with codes at existing roadside rest areas,
- additional operations funding to improve traffic flow, improve commercial vehicle
enforcement, and comply with codes at state operations sites.
Projects in the SHOPP have been grouped into four categories: Traffic Safety, Roadway
Rehabilitation, Roadside Rehabilitation, and Operations. Funding needs are escalated at
2.2% per year.
1998 STIP FUND ESTIMATE :
The 1998 STIP Fund Estimate is required to be a six- year estimate of all federal and state
funds reasonably expected to be available in each county for programming in the STIP. In
order to make this determination, it is necessary to establish the programming required for
SHOPP purposes during this six- year period ( 1998- 99 through 2003- 04). The annual
distribution of funds by category is shown in Attachments 4 and 5.
SUMMARY OF COSTS:
6- Year Fund Estimate - Millions 10- Year Plan - Millions
Category Baseline Recommendation Baseline Recommendation
Traffic Safety $ 344 $ 399 $ 587 $ 659
Roadway Rehab 3,013 3,740 5,524 6,517
Roadside Rehab 154 243 267 410
Operations 503 620 875 1,054
Totals $ 4,014 $ 5,002 $ 7,253 $ 8,640
Increase over Baseline 0 $ 988 0 $ 1,387
4
SUMMARY OF ECONOMIC BENEFITS:
10- Year Funding Economic Benefit to
Recommendation Benefits Cost
Category Millions Millions Ratio
Traffic Safety $ 659 $ 6,590 10: 1
Roadway Rehabilitation 6,517 24,350 4: 1
Roadside Rehabilitation 410 820 2: 1
Operations 1,054 3,372 3: 1
Total $ 8,640 $ 35,132 4: 1
5
Traffic Safety
MANAGEMENT STRATEGY:
Goal: Reduce the number and severity of accidents.
The fatal- plus- injury accident rate has decreased from 0.40 to 0.36 fatal- plus- injury acci-dents
per million vehicle miles of travel since 1991. The goal is to continue this declining
trend.
Traffic safety projects are designed to reduce the number and severity of accidents. Based
on the number of predicted traffic safety projects, the recommended funding for safety will
result in 350 to 400 fewer fatal accidents per year ( lives saved, fewer injuries, reduced
property damage and cost).
· Traffic Safety Projects: Approximately 6,800 accident locations are investigated
each year. About 35% of these locations require some correction. Corrections are
accomplished by: maintenance work orders, minor projects, SHOPP safety projects
and at times incorporating an improvement with a STIP project. SHOPP safety
projects provide a highway improvement at all locations where the benefit/ cost ratio
is greater than 2.0 ( i. e. Safety Index greater than 200). In the past about 80 SHOPP
safety projects have been completed each year.
· Median Barriers: Install concrete median barrier to replace metal median barriers on
high volume urban freeways; and, construct new barriers on freeways based on
traffic safety warrants to eliminate cross median accidents. About 45 miles of
existing median barriers need to be replaced and 600 miles of new median barriers
need to be installed. It is planned to install 400 miles of the new median barriers by
2002- 03.
· Two and Three- Lane Roads: Implement a new barrier component established by the
Department to reduce the number of fatalities on two and three- lane state highways.
Locations qualifying for improvements must meet specific criteria. About 450
miles of two and three- lane roads are expected to be improved during the 10- year
period.
· CURE Projects: Continue Clean Up the Roadside Environment program projects to
remove or shield obstructions near the traveled way. The Federal Highway Admin-istration
has requirements to upgrade traffic safety devices and this will be accom-plished
through the CURE component. Over the next three years there is $ 11
million for CURE projects. This will fund 12 projects per year to correct deficien-cies.
6
SUMMARY OF COSTS:
6- Year Fund Estimate - Millions 10- Year Plan – Millions
Traffic Safety Baseline Recommendation Baseline Recommendation
Traffic Safety $ 312 $ 154 $ 528 $ 270
Median Barriers 32 96 59 165
2 & 3 Lane Roads 0 65 0 106
CURE * 84 * 118
Totals $ 344 $ 399 $ 587 $ 659
Increase over Baseline 0 $ 55 0 $ 72
* Included with Traffic Safety Projects
ECONOMIC BENEFITS:
The 10- Year Traffic Safety economic benefits for the recommendation are estimated to be
$ 6.6 billion which results in a benefit to cost ratio of 10: 1. These benefits are based on the
expected reduction in the number of traffic accidents and their associated costs over an
assumed 15 year project life.
7
Roadway Rehabilitation
MANAGEMENT STRATEGY:
Goal: Reduce deteriorated pavement needs. The state highway system has over 15,000
centerline miles, with over 49,000 lane miles. The 1995 State of the Pavement Report
indicated that 14,100 lane miles ( 29% of the system) requires corrective maintenance or
rehabilitation, with 4,300 lane miles needing immediate rehabilitation. Immediate rehabili-tation
needs have more than doubled from the 2,000 lane miles identified in the 1992 State
of the Pavement Report. Reducing the inventory of deteriorated pavement to about 5,500
lane miles and maintaining it at that level will allow the Department to maintain and reha-bilitate
the system at the lowest overall annual cost. The recommendation provides for
increased funding for projects through 2007- 08, which will accelerate reduction in the
inventory of deteriorated pavement to 5,500 lane miles ( Attachment 3).
Goal: Switch from “ worst- first” to “ preventive treatment” management strategy.
Many pavement rehabilitation projects are currently programmed using a worst- first man-agement
strategy. Increased funding for pavement rehabilitation has allowed the Depart-ment
to implement a preventive treatment management strategy. The change from “ worst-first”
to emphasis of “ preventive treatment management strategy” is motivated by:
a) initiation of Capital Preventative Maintenance ( CAPM) strategies in the 1995- 96 fiscal
year,
b) adoption of a long- term performance goal, and
c) the implementation of benefit- cost analysis at the highway network and project selection
level within the Pavement Management System.
Changing from worst- first to preventive treatment management will reduce rehabilitation
cost by up to 10 percent ( Attachment 2).
Goal: Use longer- life pavement rehabilitation on roadways where the average daily
traffic is greater than 150,000 or average daily truck volume is greater than 15,000.
During the March 1997 CTC meeting, the longer- life pavement presentation identified
average daily traffic and truck volume thresholds where longer- life pavement provides high
user benefit and the most cost effective rehabilitation strategy. The recommended funding
level provides for implementation of longer- life pavement beginning with the 1998- 99
fiscal year. During the 10- year period it is planned to fund construction of 1,800 lane miles
of longer- life pavement.
Goal: Failure avoidance through preventative treatment management.
Over half of the nearly 12,000 bridges on the state highway system are over 30 years old.
The cost for rehabilitation or replacement of these bridges is expected to increase as the
bridges get older. Using the Department’s bridge management information system,
PONTIS, preventive treatments may be scheduled at the optimum point in time to defer
major rehabilitation and replacement costs. Analysis of potential critical bridge scour
8
problems has begun and corrective work is scheduled over a 10- year period beginning in
1998- 99. As the bridges get older, it is anticipated rehabilitation costs will increase from
$ 100 million per year to about $ 300 million per year in 2004- 05.
Number of Bridges Needing Rehabilitation
Fiscal Year
Pavement rehabilitation projects protect the public’s investment, repair major structural
problems, reduce the magnitude of maintenance effort and cost, optimize pavement life,
reduce the “ wear- and- tear” to vehicles operated on the state highway system, and allow the
switch to a preventive treatment management strategy.
Bridge rehabilitation and replacement projects have benefits similar to pavement rehabilita-tion
projects. Bridges provide a critical function to cross rivers, canyons, and other trans-portation
facilities. Due to high replacement cost and the significant travel and economic
impacts caused if they fail, it is paramount to keep bridges in a good state of repair.
SUMMARY OF COSTS:
6- Year Fund Estimate, Millions 10- Year Plan, Millions
Roadway Rehab Baseline Recommendation Baseline Recommendation
Pavement Rehab $ 2,204 $ 2,276 $ 3,866 $ 3,299
Longer- Life Pvmt. 0 493 0 1,051
Bridge Rehab 809 971 1,658 2,167
Totals $ 3,013 $ 3,740 $ 5,524 $ 6,517
Increase over Baseline 0 $ 727 0 $ 993
ECONOMIC BENEFITS:
Roadway Rehabilitation economic benefits for the 10- year funding recommendation are
estimated to be $ 24.4 billion which result in a benefit to cost ratio of 4: 1. These benefits
include:
0
50
100
150
200
250
98- 99
01- 02
04- 05
07- 08
9
SUMMARY OF ECONOMIC BENEFITS:
10- Year Funding Economic Benefit to
Recommendation Benefits Cost
Category Millions Millions Ratio
Pavement Rehab $ 3,299 $ 13,031 4: 1
Longer- Life Pavement 1,051 5,251 5: 1
Bridge Rehab 2,167 6,068 3: 1
Total $ 6,517 $ 24,350 4: 1
Pavement rehabilitation benefits were based on reduced construction, vehicle operating and
delay cost if rehabilitation projects are in the 10- Year funding recommendation.
Longer- life pavement benefits include a reduction in delays caused by conventional reha-bilitation,
savings to the department for long life versus conventional rehabilitation costs
and a reduction in pavement maintenance costs. Benefits were based on life cycle costs
over the 35 year life of the projects.
Bridge rehabilitation benefits were based on the life cycle cost benefits of using preventive
treatment strategies versus worst first selection of projects.
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Roadside Rehabilitation
MANAGEMENT STRATEGY:
Goal: Keep mitigation promises.
Commitments made during environmental clearance for roadside planting need to be kept.
Goal: Reduce worker exposure to traffic.
Strategically placed pull outs and automated irrigation systems are examples of improve-ments
that reduce worker exposure to traffic and improve safety.
Goal: Existing safety roadside rests must comply with health and safety codes &
ADA.
The 89 existing safety roadside rests need to be safe and meet current code requirements.
LANDSCAPE ELEMENT:
There are over 22,700 acres of existing landscaping in the state highway system. Most of
the landscaping represents commitments made during environmental clearance to mitigate
for erosion control or aesthetic impacts. The 10- year SHOPP projects will result in water
conservation, maintenance worker safety and efficiency, reduced soil erosion and satisfy
mitigation commitments made prior to 1987 for new landscaping at 15 locations.
The Landscape element in the 10- Year SHOPP Roadside Rehabilitation component in-cludes:
· Sprinkler Systems: The Department has 2,900 acres of landscaping that are irri-gated
by manual sprinkler systems. Installation of automatic systems will reduce
water use by 40%, reduce maintenance, and increase worker safety by reducing their
exposure to traffic. The goal is to have all of the manual irrigation systems up-graded
to automatic systems by 2008 except those included with the rehabilitation
projects.
· Planting Rehabilitation: There are about 9,000 acres of landscape that are near or
over 20 years old, the age that major maintenance or rehabilitation is usually
needed. With proper maintenance, approximately $ 300 million provides for these
needs over the next 20 years. Rehabilitation will improve roadside appearance,
reduce the use of herbicides, reduce water runoff, reduce maintenance and increase
worker safety by reducing their exposure to traffic.
· Worker Safety: Worker safety projects involve placing access gates in the freeway
fences ( allow parking and access from adjacent streets), vehicle pullouts and parking
areas along freeways and/ or modifications to irrigation systems with components in
hazardous locations. It is anticipated that all worker safety projects can be com-pleted
before 2008. The planting rehabilitation projects will include any remaining
worker safety type work when they are programmed.
11
· Freeze Damage: During 1990 some areas experienced extensive freeze damage to
vegetation and most areas have not been replanted. Over the years the plant materi-als
and root structure have rotted and are no longer protecting the slopes against soil
erosion during rainfall. The Department has identified 1,100 acres needing replace-ment
of ground cover planting material. All of the freeze damaged areas will be
programmed before the end of the 2000- 01 fiscal year.
· New Planting: There are fifteen locations that qualified for new landscaping prior to
eligibility changes in 1987. These projects satisfy mitigation commitments which
have been made to local agencies. The recommendation provides for funding these
projects through the 2004- 05 fiscal year.
· Mitigation Properties: As part of the implementation of some state highway
projects, the Department has been required to provide mitigation for endangered
species. We now own some mitigation properties that include maintenance respon-sibilities.
These funds will be used for the costs involved to transfer ownership and
maintenance responsibilities for these properties to agencies which are better pre-pared
to provide for the long term maintenance responsibilities. There are a total of
23 separate mitigation parcels that should be transferred to qualified organizations.
In San Diego County there are 10 sites with a combined area of over 700 acres. The
Department may be able to transfer these 10 sites to other agencies during 1998.
The remaining parcels will be transferred to other agencies before 2008.
SAFETY ROADSIDE REST AREA ELEMENT:
The state highway system includes 89 existing safety roadside rests, which attract over 90
million users annually. A majority of the rest areas were constructed in the mid- 1960s and
early 1970s. No new rest areas have been constructed since 1984. The Roadside Rest Area
Master Plan includes seven new rest areas located primarily on major routes in rural areas.
Statutes allow up to six rest areas to be constructed as part of a Joint Economic Develop-ment
Demonstration Project.
The Department has attempted privatization and joint development of rest areas for over a
decade without success. At least seven such projects have been attempted. Legal prohibi-tions;
perceptions of unfair competition; opposition by rehabilitation agencies; and devel-oper
reluctance to incur the expense and regulation which accompanies government in-volvement,
have made these efforts ineffective. Joint development interest should continue
to be sought prior to development of any new rest area location. In the absence of such
interest, state funding is proposed.
The Safety Roadside Rest element in the 10- Year SHOPP Roadside Rehabilitation compo-nent
includes:
· Rest Area Rehabilitation:
Projects include upgrading sewage capacity, water supplies and electrical systems to
meet health and safety codes and to bring the facilities up to current CAL- OSHA
12
and ADA code requirements. Some rest areas need to be expanded in size to reduce
the traffic congestion and related safety problems. In addition off and on ramps and
parking areas are in need of rehabilitation work. All of the ADA deficiencies have
been identified and recommendations are to fund these projects through the 2002- 03
fiscal year. Other rest areas that have rehabilitation work, will include ADA work
as part of that project and funding is recommended to be through the 2007- 08 fiscal
year to complete all of the rehabilitation needs.
· New Rest Areas:
At the December 1997 CTC meeting, the 1985 Revised Initial System Master Plan
was updated. During the meeting, seven rural rest areas were retained in the master
plan and four proposed rest areas in urban and commercial locations were removed
from the master plan. Emphasis remains focused on rural locations where few
other safe stopping opportunities are available; and on the role of rest areas in
enhancing the safety of California highways. Work will continue to develop sites
using provisions for the joint economic development demonstration. In absence of
joint development interests, state funding is proposed.
SUMMARY OF COSTS:
6- Year Fund Estimate, Millions 10- Year Plan, Millions
Roadside Rehab Baseline Recommendation Baseline Recommendation
Sprinkler Systems * $ 26 * $ 49
Planting Rehab $ 127 69 $ 220 120
Worker Safety 27 52 47 90
Freeze Damage * 10 * 10
New Planting * 12 * 14
Mitigation Properties 0 30 0 50
Rest Area Rehab 0 44 0 77
New Rest Areas 0 0 0 0
Totals $ 154 $ 243 $ 267 $ 410
Increase over Baseline 0 $ 89 0 $ 143
* Included with Planting Rehabilitation
ECONOMIC BENEFITS:
The Roadside Rehabilitation economic benefits for the 10- year funding recommendation
are estimated to be $ 0.8 billion which results in a benefit to cost ratio of 2: 1. These ben-efits
include: reduced maintenance cost, improved safety for workers and the public, re-duced
erosion, reduced water and herbicide use, and commitments to the public met to
maintain existing landscape areas and safety road side rests.
13
Operations
Many types of operations projects are required to maintain and operate the state highway
system. The projects provide a variety of benefits: reduced congestion at spot locations,
improved traffic flow and safety; commercial vehicle enforcement facilities; compliance
with code and statute requirements; and rehabilitation of maintenance stations, equipment
shops and office buildings.
MANAGEMENT STRATEGY:
Goal: Better utilize existing highway facilities.
Non- capacity increasing operational improvements are designed to improve traffic condi-tions
on the existing State highway system. The goal is to maintain or improve operational
characteristics of existing highways in response to motorists needs. Projects are cost effec-tive.
On the average, benefits outweigh project costs by 3 to 1. Motorists benefit from
travel time savings, and experience safer and more comfortable roadways. Cost effective
projects will be identified and recommended for implementation.
Goal: Protect the state highway system from over weight and illegal loads.
Commercial vehicle enforcement facilities are placed at key locations on the state highway
system. Benefits include:
· Legal Weight Enforcement - Overweight vehicles greatly accelerate the damage of
highway pavement and result in greater rehabilitation costs. The current violation
rate for overweight vehicles is about 2 percent.
· Safety Inspections - Commercial vehicles must pass a safety inspection in order to
operate on public highways in California. These inspections are an important factor
in reducing the number and severity of accidents involving commercial vehicles.
· Reduced Delay to Commercial Vehicles - Weigh- in- motion and automatic vehicle
identification system technology being implemented will minimize delay time to
commercial vehicles which are in compliance with weight limits and have recently
passed a safety inspection.
· Traffic census data is collected for traffic monitoring systems, freight movement
studies, truck weight cost allocation studies, pavement design, air quality planning
and California Highway Patrol ( CHP) enforcement strategies.
Goal: Implement land and building facilities consolidation studies.
Consolidation studies to improve efficiency and reduce costs have been completed for
office, maintenance and equipment shop facilities.
Goal: Bring facilities up to current standards for seismic, safety, ADA and asbestos
materials.
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NON- CAPACITY INCREASING OPERATIONAL IMPROVEMENTS
ELEMENT:
Non- capacity increasing operational improvements involve making physical changes to the
existing State highway system for the purpose of:
· Increasing level of service and improving traffic flow.
· Reducing traffic congestion and improving travel time.
· Making facilities safer and more comfortable for motorists.
· Correcting operational deficiencies that were unforeseen when the facility was
originally
· designed and constructed.
These projects do not increase the design- capacity of the State highway system, but rather
maintain or improve roadway characteristics commensurate with the safe, efficient move-ment
of people, goods and services throughout the State. Projects are triggered by com-plaints
from the general public, safety investigations, operational studies and investigations,
and congestion monitoring. Once identified, projects are prioritized by combining a Delay
Index with a modified Safety Index. Also considered are such factors as the number of
passing opportunities on the route, roadway geometrics, the amount of commercial and
recreational vehicle traffic, reduction in maintenance costs, local support, and continuity
with other projects. The pool of potential candidate projects is growing. In 1996, the
department identified almost 1,000 locations statewide where operational improvements
may be needed over the next ten years.
COMMERCIAL VEHICLE ENFORCEMENT FACILITIES COMPONENT:
Commercial Vehicle Enforcement Facilities ( weigh stations) protect highways from exces-sive
damage to the pavements by overweight vehicles. Another important service con-ducted
at weigh stations is safety inspections which reduce the number and severity of
traffic accidents involving commercial vehicles. Currently, there are 53 weigh stations
statewide and 58 mini sites ( special turnouts for random enforcement using portable equip-ment).
Weigh station needs include 11 new sites. The recommendation provides for
funding two of these new sites every three years and for rehabilitation, operational improve-ments
and weigh- in- motion facilities related to existing sites. While Caltrans provides the
weigh station facilities, the CHP staff and operate the facilities. At some locations other
state agencies perform their enforcement duties. These agencies include the Department of
Motor Vehicles, Public Utilities Commission, Board of Equalization, Air Resources Board,
and the Department of Food and Agriculture. By 2012, projected increases to California’s
external trade flows through major ports, from other states and Mexico are expected to
result in a significant increase in truck volumes. Improvements for weigh stations are
critical for handling these increased volumes.
15
LAND AND BUILDINGS ELEMENT:
The Land and Buildings Element provides funds for new facilities, consolidations and to
bring existing facilities up to current requirements for seismic, safety, ADA and asbestos.
Projects in the Land and Buildings element include:
· Office Facilities: These include the Department’s Headquarters, District Offices
and ancillary buildings, and material testing laboratories.
· Maintenance Facilities: The Department has maintenance facilities at 410 strategic
locations throughout the state with plans for consolidation.
· Equipment Facilities: The Department operates 25 equipment shops used to repair
and maintain a fleet of about 12,800 vehicles plus other equipment needed to main-tain
state highways.
Other projects included in the SHOPP Operations element are:
AMERICANS WITH DISABILITIES ACT ( ADA) FACILITIES: By 1999- 2000
the recommendation provides the funds to eliminate approximately 6,350 curb ramp
barriers and provide accessible parking in park- and- ride lots.
HAZARDOUS WASTE: By 1999- 2000 the recommendation provides the funds to
cleanup hazardous materials identified at locations that are not related to an ongoing or
programmed construction project.
LIGHTING UPGRADES: By 1999- 2000 the recommendation provides the funds to
replace obsolete illumination facilities which will result in an energy savings and will
provide facilities that can be maintained. Often repair parts are not available for the
obsolete facilities.
SUMMARY OF COSTS:
6- Year Fund Estimate, Millions 10- Year Plan, Mil-lions
Operations Baseline Recommendation Baseline Recommendation
Operational Improvements $ 190 $ 237 $ 354 $ 412
Weigh Stations 93 95 161 166
Land & Buildings 190 258 330 446
Americans With Disabilities 8 8 8 8
Hazardous Waste 10 10 10 10
Lighting Upgrades 12 12 12 12
Totals $ 503 $ 620 $ 875 $ 1,054
Increase over Baseline 0 $ 117 0 $ 179
ECONOMIC BENEFITS:
The Operations economic benefits for the 10- year funding recommendation are estimated to
be $ 3.4 billion, resulting in a benefit to cost ratio of 3: 1. The major components of these
benefits are operational improvements which have at least a 3: 1 benefit cost ratio ($ 1.2
billion) and weigh station projects that over the 10- Year fund recommendation period
reduce damage to highway pavements caused by overweight vehicles ($ 1.7 billion). The
remaining $ 0.5 billion in benefits is for Lands and Buildings and other work required to
operate the State highway system.
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Strategies to Control Cost and Improve Efficiency
Several quality team efforts are underway which have are expected to identify new business
practices and methods to control costs and improve efficiency. Additionally, the develop-ment
of this 10- Year SHOPP Rehabilitation Plan provides the framework to develop more
detailed plans for the various program components. Some of these efforts will provide
benefits for projects programmed in both the STIP and SHOPP.
NEW MANAGEMENT INFORMATION SYSTEMS
Pavement Management System
The department has a contract with Woodward- Clyde Consultants to develop a “ state- of-the-
art” Pavement Management System. The schedule calls for delivery of this new soft-ware
late- 1998, and the department will be loading data and testing its capabilities during
1998. This system will include the following capabilities: network policy recommenda-tions,
pavement performance prediction model, project selection and total cost minimiza-tion,
and tracking of performance goal achievements. The department has been in contact
with other large states, and none have a pavement management system with all of these
features. It is expected that this system will assist in making decisions regarding pavement
rehabilitation strategies, and improve efficiency by identifying rehabilitation projects at an
optimum time to make efficient use of support and capital resources.
Bridge Management System
The department has a relatively new bridge management system known as PONTIS. This
system has the ability to: predict deterioration, forecast future needs, assess and quantify
impacts of constrained budgets, and prioritize work using optima benefit/ cost. PONTIS
will be a very valuable tool in providing information for optimizing the use of resources.
Traffic Safety Program Management
Additional emphasis is planned for safety investigations and improvements to program
procedures. A new status/ tracking system for locations needing improvement will be
developed. These improvements assist in the overall management of the program.
Engineering Resources
The department is using XPM to develop project work plans which provide a schedule of
milestones and support needs for major projects on the state highway system. This infor-mation
will be utilized to develop information included in the department’s annual Budget
Request.
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Traffic Operations Management
The Traffic Operations Program is currently in the process of developing specific perfor-mance
measures for State highway routes. These performance measures are being devised
to increase uniformity of analysis and improve the project selection and prioritization
process from a statewide perspective.
QUALITY TEAMS
SHOPP Re- engineering
The department has a pilot program underway in three districts. The project implementa-tion
teams will develop about $ 25 million of SHOPP type projects using new processes and
delegated decision making. The goals for this quality effort were to reduce the engineering
costs by 50% and reduce the overall time from project identification to completion of
construction by 50%. The contracts developed by these teams will begin their construction
phase during the 1997- 98 fiscal year. A detailed evaluation of the new procedures will
compare the traditional methods, time- line, and costs. It is believed that a new way of
doing business for the less complex highway projects will emerge from this effort.
Environmental Documents
An environmental document quality team comprised of Caltrans staff from district and
corporate functional units has been chartered to improve the content and quality of environ-mental
documents. With input from staff at the Federal Highway Administration, the team
has identified several improvements in the existing environmental process, which will result
in efficiencies in the development and processing of documents. Among the recommenda-tions
for implementation are: peer review of documents, greater utilization of computer
technology to disseminate information, earlier review of documents by legal staff, forma-tion
of environmental document preparation teams, development of an advisory council to
provide technical assistance, and development of an environmental academy to better
address and focus on training, staff development, and continuing education needs. The
benefits will be a more timely, comprehensive document that responds to the issues in a
format understandable by the public.
Highway Planting
The Office of State Landscape Architecture is sponsoring a quality team than includes
representatives from Design, Construction and Office Engineer. The goal is to reduce the
cost of engineering by 50% for highway planting projects. The team will look at existing
standard plan development practices and determine areas where design effort can be re-duced
without affecting the quality of the project. A Design- Build pilot project will be
considered in the team’s discussion as a new way of doing business for smaller projects. A
meeting is scheduled with Landscape Contractors to discuss quality improvement concepts
for Caltrans Highway Planting projects. Their input will be used in the quality team analy-sis
for cost reduction. Changes will only be implemented if there is a net savings to the
projects.
18
Priority Process for Non- Capacity Increasing Operational Improvements
A quality team is currently in the conceptual stage. It is anticipated that the team will be
charged with making recommendations for improving the project selection and
prioritization process in reaction to Senate Bill 45 ( Statutes of 1997) that eliminated the
Traffic Systems Management Program. These projects will now have to compete in the
SHOPP against an already growing list of potential candidate projects. This accentuates the
need for a project selection process that ensures that only the best projects are proposed for
funding.
PROJECT SCOPE, COST AND SCHEDULE MANAGEMENT PROCEDURES
Since 1992, the department has utilized a formal process to obtain Deputy- level approvals
to changes in a project’s scope, cost or schedule change. At the same time the following
management objectives were established:
· Deliver 90% of the total number of programmed projects so they are ready to adver-tise
in the programmed year.
· Deliver 100% of the programmed dollars for the program year by using the mid
cycle SHOPP revision reservation dollars to advance projects and backfill projects
that have been delayed due to scheduling problems.
· Deliver projects for no more than the programmed funds.
These procedures resulted in significant improvements to project cost control and overall
program delivery. It is intended to continue this formal process as a part of the project
management procedures within the department.
SB45PLAN. DOC, 04/ 16/ 98
19
N
Pavement Distress on
Class 1 Routes
LEGEND
NO SCALE 01/ 97
Pavement Distress - Rough
ride and/ or Structural damage
Class 1 Routes
Note:
Class 1- Class 1 routes are rural principal arterial highways and thei r extensions into urbanized areas.
Annual average daily traffic ( AADT) of over 5,000 vehicl els per day.
Includes interstate highways and major freeways.
Attachment 1
20 Attachment 2
Pavement Condition vs. Costs of Repair
TIME
PAVEMENT CONDITION
0
100
200
300
400
500
600
700
800
REPAIR COSTS PER LANE MILE ($, 000)
EXCELLENT
GOOD
FAIR
POOR
VERY POOR
FAILED
LANE REPLACEMENT
REHABILITATION
CAPITAL MAINTENANCE
MAJOR MAINTENANCE
ROUTINE MAINTENANCE
PAVEMENT CONDITION
Maintaining pavements in good to excellent condition requires frequent, low- cost treatments.
Worst- First Program
Preventive Program
21 Attachment 3
Recommended Option ' A',
Highway Maintenance & Rehabilitation Programs Expenditures and Distress,
1978- 2005, 1996 dollars
$-
$ 100
$ 200
$ 300
$ 400
$ 500
$ 600
$ 700
$ 800
' 78 ' 80 ' 82 ' 84 ' 86 ' 88 ' 90 ' 92 ' 94 ' 96 ' 98 ' 00 ' 02 ' 04 ' 06
Fiscal Year
Annual Funding, Million $
0%
5%
10%
15%
20%
25%
30%
35%
40%
Distressed Pavements, Percent of System
Maintenance Expenditures Rehabilitation Expenditures Long- Life Distressed Pavements
Projected
Distressed Lanemiles
1 4 , 1 0 3
1 2 , 0 6 3
1 8 , 0 8 5
1 3 , 6 3 3
1 1 , 1 2 1
1 2 , 5 0 0
8 , 0 0 0
1 0 , 7 0 0
Rehabilitation Expenditures
Maintenance Expenditures
1 6 , 5 0 0
5 , 5 0 0
7 , 0 0 0
22
Program 98- 99 99- 00 00- 01 01- 02 02- 03 03- 04 04- 05 05- 06 06- 07 07- 08
6- Yr
98- 04
Total
10- Yr
98- 08
Total
SAFETY
Traffic Safety & CURE $ 49 $ 51 $ 54 $ 56 $ 50 $ 50 $ 52 $ 54 $ 54 $ 56 $ 312 $ 528
Median Barriers 5 5 5 5 6 6 6 7 7 7 32 59
Total $ 54 $ 56 $ 59 $ 61 $ 56 $ 58 $ 58 $ 61 $ 61 $ 63 $ 344 $ 587 8%
ROADWAY REHABILITATION
Pavement Rehab $ 332 $ 355 $ 368 $ 373 $ 384 $ 392 $ 401 $ 410 $ 419 $ 432 $ 2,204 $ 3,866
Bridge Rehab 61 83 115 154 196 200 205 210 214 220 809 1,658
Total $ 393 $ 438 $ 483 $ 527 $ 580 $ 592 $ 606 $ 620 $ 633 $ 652 $ 3,013 $ 5,524 76%
ROADSIDE REHABILITATION
Landscape $ 20 $ 21 $ 21 $ 21 $ 22 $ 22 $ 23 $ 23 $ 23 $ 24 $ 127 $ 220
Worker Safety 4 4 4 5 5 5 5 5 5 5 27 47
Rest Area Rehabilitation 0 0 0 0 0 0 0 0 0 0 0 0
Total $ 24 $ 25 $ 25 $ 26 $ 27 $ 27 $ 28 $ 28 $ 28 $ 29 $ 154 $ 267 4%
OPERATIONS
Operational Improvements $ 20 $ 21 $ 36 $ 37 $ 38 $ 38 $ 40 $ 39 $ 42 $ 43 $ 190 $ 354
Weigh Stations 15 15 16 16 15 16 16 17 17 18 93 161
Lands & Buildings 30 31 31 32 33 33 34 35 35 36 190 330
Americans With Disabilities 4 4 0 0 0 0 0 0 0 0 8 8
Hazardous Waste 5 5 0 0 0 0 0 0 0 0 10 10
Lighting Upgrades 6 6 0 0 0 0 0 0 0 0 12 12
Total $ 80 $ 82 $ 83 $ 85 $ 86 $ 87 $ 90 $ 91 $ 94 $ 97 $ 503 $ 875 12%
1996 Baseline Total $ 551 $ 601 $ 650 $ 699 $ 749 $ 764 $ 782 $ 800 $ 816 $ 841 $ 4,014 $ 7,253 100%
Note: Dollars escalated at 2.2% per year
1996 Baseline
Dollars in Millions
Attachment 4
23
Attachment 5
Program 98- 99 99- 00 00- 01 01- 02 02- 03 03- 04 04- 05 05- 06 06- 07 07- 08
6- Yr
98- 04
Total
10- Yr
98- 08
Total
SAFETY
Traffic Safety $ 24 $ 25 $ 25 $ 26 $ 27 $ 27 $ 28 $ 29 $ 29 $ 30 $ 154 $ 270
Median Barriers 15 15 17 16 16 17 17 17 17 18 96 165
2& 3 Lane Roads 11 11 11 11 11 10 10 10 10 11 65 106
CURE 15 15 15 15 14 10 9 9 8 8 84 118
Total $ 65 $ 66 $ 68 $ 68 $ 68 $ 64 $ 64 $ 65 $ 64 $ 67 $ 399 $ 659 8%
ROADWAY REHABILITATION
Pavement Rehab $ 424 $ 490 $ 420 $ 382 $ 278 $ 282 $ 289 $ 243 $ 243 $ 248 $ 2,276 $ 3,299
Long Life Pavement 53 50 54 54 167 115 116 141 149 152 493 1,051
Bridge Rehab 97 103 138 173 211 249 290 296 302 308 971 2,167
Total $ 574 $ 643 $ 612 $ 609 $ 656 $ 646 $ 695 $ 680 $ 694 $ 708 $ 3,740 $ 6,517 75%
ROADSIDE REHABILITATION
Sprinkler Systems $ 4 $ 4 $ 4 $ 4 $ 5 $ 5 $ 5 $ 6 $ 6 $ 6 $ 26 $ 49
Planting Rehabilitation 11 11 12 12 11 12 12 13 13 13 69 120
Worker Safety 8 8 9 9 9 9 9 9 10 10 52 90
Freeze Damage 2 2 2 2 2 0 0 0 0 0 10 10
New Planting 2 2 2 2 2 2 2 0 0 0 12 14
Mitigation Properties 5 5 5 5 5 5 5 5 5 5 30 50
Rest Area Rehabilitation 7 7 7 7 8 8 8 8 8 9 44 77
Total $ 39 $ 39 $ 41 $ 41 $ 42 $ 41 $ 41 $ 41 $ 42 $ 43 $ 243 $ 410 5%
OPERATIONS
Operational Improvements $ 37 $ 38 $ 38 $ 40 $ 41 $ 43 $ 44 $ 46 $ 42 $ 43 $ 237 $ 412
Weigh Stations 15 15 16 16 16 17 17 18 18 18 95 166
Lands & Buildings 41 42 42 43 44 46 46 47 47 48 258 446
Americans With Disabilities 5 3 0 0 0 0 0 0 0 0 8 8
Hazardous Waste 5 5 0 0 0 0 0 0 0 0 10 10
Lighting Upgrades 6 6 0 0 0 0 0 0 0 0 12 12
Total $ 109 $ 109 $ 96 $ 99 $ 101 $ 106 $ 107 $ 111 $ 107 $ 109 $ 620 $ 1,054 12%
SHOPP Total $ 787 $ 857 $ 817 $ 817 $ 867 $ 857 $ 907 $ 897 $ 907 $ 927 $ 5,002 $ 8,640 100%
1996 Baseline Total $ 551 $ 601 $ 650 $ 699 $ 749 $ 764 $ 782 $ 800 $ 816 $ 841 $ 4,014 $ 7,253
Increase from Baseline $ 236 $ 256 $ 167 $ 118 $ 118 $ 93 $ 125 $ 97 $ 91 $ 86 $ 988 $ 1,387
Note: Dollars escallated at 2.2% per year
Department's Recommendation
Dollars in Millions