Preventive Maintenance of Roads and Sidewalks, a case study

Transcription

1 I Preventive Maintenance of Roads and Sidewalks, a case study Pay now, or pay much more later Partnership between Bangalore City Corporation, Madhya Pradesh, India With City of Reno, Nevada, USA Sept 2002-Sept 2004 Resource Cities Cooperative Agreement LAG-A and CityLinks Leader with Associates Cooperative Agreement GEW-A Prepared for U.S. Agency for International Development (USAID) Bureau for Economic Growth, Agriculture, and Trade Office of Poverty Reduction, Urban Programs Team and USAID/New Delhi Prepared by International City/County Management Association (ICMA)

2 Acknowledgments

3 Resource Cities Program Bangalore City Corporation, Karnataka, India City of Reno, Nevada, USA Subject: Preventative Maintenance of Roads & Sidewalks I. Bangalore City Profile Form of Government The organizational setup of the Bangalore City Municipality, BCC, comprises of a political (deliberative) wing and an executive wing. The executive wing is headed by the municipal commissioner, who is responsible for the day-to-day functioning of the Corporation and assists the deliberative wing in decision making process. The city is divided into 100 wards, from each of which one councilor is elected. Population 4,297,223 Area (in square kilometers) No. of Households Density of population persons per sq. km. Revenue Rs. 94, Crore Expenditure 97, Major Types of Revenue Sources Number of Employees 15,915 Other Distinguishing Characteristics Aircraft, automobiles, steel and consumer durables, pharmaceuticals, electronic and electrical equipment. IT capital of the country. Bangalore is today the main administrative, cultural and commercial centre of Karnataka nurturing one of the largest agglomerations of information technology in India. Having a strategic location in the country s southern region and a pleasant climate, Bangalore has from the beginning, attracted numerous public and private enterprises and industries manufacturing a variety of products. In 1996 Business Today rated it as Best City for Business. In research and education too. Bangalore provides some of the best educational institutions in the country. Starting of as a defence establishment many of which still continue Bangalore has grown into a thriving metropolis. The City also enjoys a vibrant community of about 350 resident welfare Associations and 100 NGOs. In the new millennium, Bangalore continues to grow at a dizzy pace. The decadal growth rate is percent, which is much more than the national average of any other city. Hence it s not surprising that the city s urban infrastructure is constantly being challenged to develop newer and more innovative initiatives to keep up. The urban local bodies are the main agencies that are responsible for the city s civic facilities. There are more than 20 laws operating in Bangalore Metropolitan Region (BMRDA), which directly or indirectly

4 URL affect the lives of citizens. About 25 organizations are engaged in the implementation of these laws. Broadly these organizations can be classified into three types local bodies (which are elected bodies like Bangalore City Corporation or non elected bodies like ITI notifies areas, HAL sanitary boards) statutory authorities and Government departments. I. Introduction The USAID funded, ICMA Resource Cities Program, which partners U.S. cities and counties with counterparts in developing and transitional countries to help improve urban management and service delivery, is in full swing in India as the program prepares to wrap up its first three exchanges. One such exchange is that of the Indian city of Bangalore with Reno, Nevada. The two cities have come together to create some dramatic and sustainable improvements in a number of areas. While the primary focus of the partnership has been to create a Citizen Service Center and develop a program for preventive maintenance of roads, a number of other initiatives have developed in areas ranging from street naming and house numbering, an information management system and GIS, solid waste management, and even advertisement sign regulation. Because Bangalore is developing at such a rapid pace and has enormous capacity to accomplish their own technical improvements, their partnership with Reno is focused on understanding how to integrate strategic planning with growth as opposed to the more direct technical assistance characteristic of the other Indian partnerships. The collaboration will help the city to develop a vision document for Bangalore which will involve setting long term goals for development, understanding their financial implications and ensuring successful implementation of all goals. Bangalore is finishing up an extensive road pavement project insert investment that Bangalore has made where almost all of the cities roads have been brought to the minimum acceptable standard and in most cases even higher than that. The city has also undertaken an extensive sidewalk pavement program so that most major roads in Bangalore have paved sidewalks for people to walk on insert no. of.kms. paved. Once the city finishes this project, they want to create a maintenance system for the roads. Most Indian cities have little experience with O&M projects and budgeting and Bangalore wishes to create systemize the process of operating and maintenance of its roads and sidewalks. Bangalore therefore has looked to Reno for guidance in this area. Based on the Reno model, Bangalore has created a pavement condition index which it will use to evaluate which treatment methods should apply to each stage of pavement deterioration. They also were able to observe Reno s methods for collecting the data from roads and sidewalks to enter into the index and even some of the common maintenance techniques Reno uses. They ultimately have been able to create a complete maintenance program for their roads and sidewalks which will help ensure that the city use the right treatments on roads and fairly distribute those treatments throughout the city and remove the subjectivity in deciding which roads/sidewalks to maintain. II. Problem Statement

5 Bangalore in the year has undertaken development of xx kms of roads and xx kms of sidewalks. Length of each Category in Km Division Asphalt Concrete Metal Gravel B.S. slab Total West South East Total Construction of Roads with WBM and asphalting. 549 Kms Construction of roads side drain- 211 Kms Strengthening of existing asphalt roads- 555 Kms Total Cost of the project 1400 Million Rupees. During the first visit of Reno to Bangalore, it was identified that Bangalore also has constructed a very impressive road network and is now in a position to take up preventive maintenance to ensure their roads remain in good condition. Preventive maintenance is defined as a planned strategy of cost-effective treatments applied at the proper time to preserve and extend the useful life of a road/sidewalk. Traditionally, there was no system or budgeting for preventative maintenance of roadways in the city, they were simply repaved when conditions got bad enough. Yet, there was no official measure for road conditions either. Roads are usually redone based on citizen complaints or the propensities of politicians, an unfair and inefficient method. There was no system with the city to go about inspecting and documenting data regarding the conditions of roads and sidewalks. Without uniform standards, it was difficult for the city to compare roads across the city to determine which were in most need of work. Lastly, Bangalore required assistance determining which level of maintenance was required for each pavement condition and which maintenance options they had. Bangalore s objective of ranking pavements is to provide an orderly arrangement for maintenance and rehabilitation actions.

6 Bangalore is also outsourcing a lot of its maintenance works to private contractors; such a pavement index manual would lead to standardization of procedures and would facilitate BCC to compare two contractors/road lengths. In any Indian city, managing a road/pavement network has become more complex as ULBs grapple with other pressing fund demands. As a result, tools that can help cities collect, analyze, and summarize data have become increasingly important. As a result, asset management tools, such as road/pavement management systems, have emerged as efficient tools. Concept of Preventive Maintenance 1 Road/pavement Preventive maintenance treatments intend to improve the functional condition of the network and retard the overall rate of deterioration. Since preventive maintenance treatments are relatively inexpensive in comparison to resurfacing or reconstruction projects, preventive maintenance programs have been found to be a costeffective means of meeting pavement performance goals. The use of preventive maintenance treatments also slows the rate of pavement deterioration, thereby delaying the need for major rehabilitation by several years, as shown in the following figure. The delay in rehabilitation needs is more than offset by the fairly low cost of preventive maintenance treatments, which results in a fairly dramatic cost savings in the total costs associated with preserving the pavement network. Some of the benefits of having a preventive maintenance Plan are: Higher customer satisfaction with the road network. The ability to make better, more informed decisions on an objective basis. The more appropriate use of maintenance techniques. Improved pavement conditions over time. 1 Integrating Preventive Maintenance and Pavement Management Practices : a paper by Kathryn A. Zimmerman and David G. Peshkin

7 Increased safety. Reduced overall costs for maintaining the road network. In the following case, the agency compared the resulting conditions from two preservation strategies using the same level of funding for each. In the worst-first strategy, the pavements that were in the worst condition were addressed before any other pavements in the network. In the pavement preservation strategy, a preventive maintenance program was implemented in conjunction with traditional rehabilitation and reconstruction activities. III. Project Description The project of developing a preventative maintenance plan for roads originally resulted when Bangalore neared the completion of an extensive city wide road pavement program. As stated earlier, the city corporation created a network of beautifully paved roads as well as paved sidewalks throughout the city. BCC did not want to see the condition of these roads immediately deteriorate so they determined that some kind of preventative maintenance should be used to preserve the condition of the streets as long as possible. They also wanted a scientific and objective system for determining what kind of maintenance each road required and at what point a road would need to be repaved entirely. However, the city was unsure how to go about inspecting streets and sidewalks, evaluating which needed maintenance and what kind of maintenance would be appropriate to use. The city of Reno found that the best way it had seen to go about these processes was to create a uniform standard for judging road conditions. The City of Reno currently has 2 full time inspectors to rate the streets on a 3 year cycle. It uses Micro Paver, an off the shelf software where inspectors enter in details of street or sidewalk conditions and the program processes the information and then gives back a number indicating where that road would fall between 0 (being the worst road condition-a failed street) to 100 (a new road or a road with no distresses). Roads falling within a certain increment on this scale would receive a certain type of treatment.

8 Micro Paver Software Bangalore also learnt the different types of treatment done by Reno: Fog Seal A coating of emulsified asphalt used to lock the surface fines after light weathering, and to protect the pavement from surface oxidation. This treatment is performed on pavements with a PCI between 86-90, 6 years after construction, or 2 years after reconstruction. Crack Seal A flexible sealant used to prevent water from entering the base and subgrade, prevent the loss of fines due to pumping action, and to allow for thermal expansion/contraction. This treatment is used in conjunction with Fog Seals, Slurry Seals, and Structural Overlays. Slurry Seal A mixture of emulsified asphalt and aggregate used to protect the pavement after moderate to severe weathering, smooth out light cracking, mitigate friction issues, and to used as a wearing course. This treatment is performed on pavements with a PCI between Full Depth Patching Removes localized areas of structural distress in an otherwise structurally sound pavement. This treatment is used in conjunction with Slurry Seals and Structural Overlays. Reno had found out that what costs $1/unit for rehabilitation before the pavement condition worsens, costs $4-$5 after the pavement life worsens.

9 Reno decides project selection on the basis of the following: Projects for Minor M&R (which includes Crack, Fog, Slurry, and Patching) are selected citywide based on PCI range and age. Projects for Major M&R (which includes Overlay and Reconstruction) are selected based on geographical location, PCI, and as a tie breaker, complaints. Local roadways are rehabilitated by the City of Reno. Arterial and Collector roadways are rehabilitated by the Regional Transportation Commission. Reno shared its problems with Bangalore to re-emphaise the fact that timely maintenance of roads/sidewalks is financially cheaper in the long run. Prior to 1995, it did not adequately fund the maintenance of roads and sidewalks. In 1997 it adopted a comprehensive long term plan to reduce the backlog. The exchanges to Reno allowed Bangalore officials to observe all parts of this process. They first observed the pavement condition index. They were able to see what sort of level of pavement condition a road might be and then what Reno s recommended treatment program for each type of road would be. Upon their return to India, Bangalore immediately set to work creating a draft of their own pavement condition index. Bangalore has taken assistance from a local university in developing a pavement condition index. The program would include, the development of parameters for a rating system based on a periodical inspection system, development of quality standards/specifications benchmarking present Indian standards with those adopted by Reno through documenting the same, utilizing a software such as the Micro- Paver to monitor the preventive maintenance of streets, modifying pavement design to make ramps for the handicapped, and exploring possibility of using stamped concrete. The Pavement Condition Index developed by Bangalore includes following: Factors viz. pavement Distress (directed towards assessing the maintenance measures needed to prevent accelerated distress, parameters being cracking, rutting and potholes) Method for conducting pavement condition rating studies viz., visual rating and ride rating. According to the BCC, the PCI that they have developed will serve: As an index of present condition in terms of both structural integrity and surface operational condition

10 As an objective, rational basis for determining maintenance and rehabilitation needs and priorities, and A warning system for early identification or projection of major repair requirements. Insert pics- cover page of the PCI manual (Pl. refer Annexure xx for further details) The partnership also worked to develop a pilot project that utilizes Reno s specifications for materials, piping, manhole covers, catch basins, etc to improve the design and construction of streets, storm drains, and sidewalks. To do this, the team conducted a review of Reno s standards details and specifications for public construction. They, then, selected standards that would be most applicable to conditions in Bangalore and contextualise the standards selected so that they precisely met Bangalore s needs and could be used experimentally in a pilot project. After the Bangalore delegation s first visit to the City of Reno, Bangalore initiated constructing concrete sidewalks as per Reno standard which although are a little expensive than the interlocking blocks, but have a higher life and lower maintenance requirements. Insert pics During a visit to Reno, Bangalore officials were able to observe how Reno engineers went out to collect distress data on the roads and roads that is eventually entered into the pavement condition index. They were able to see what sort of factors Reno engineers looked for regarding pavement damage and how they were measured. Lastly, Bangalore officials were able to study maintenance work done by the city of Reno on its roads. The visits of Reno officials to Bangalore were equally productive. Reno officials were able to go out in Bangalore to examine the different types of road and sidewalks Bangalore has constructed. Because some of the roads and sidewalks are different from those in Reno and also the problems and issues faced by Bangalore are different the Reno officials were able to see the differences and work with Bangalore to modify the pavement condition index, methods for inspecting roads, and even maintenance practices to suit differing situations in Bangalore. They were also able to account for different stressors on the roads (for instance, extreme weather conditions are a more

11 pressing problem in Reno, whereas overuse is more pertinent to Bangalore) and modify the maintenance plan accordingly. IV. Solutions The Reno-Bangalore partnership allowed Bangalore to develop an effective road preventative maintenance plan. They were able to develop a Pavement Condition Index similar to the one used by Reno and were able to observe and eventually duplicated how Reno does its inspections and maintenance of roads (with modifications of course). The result of this entire project is that Bangalore now has a comprehensive preventative road maintenance plan to protect and preserve the beautiful roads it worked so hard to create. Benefits As this partnership draws to a close, the benefits for both sides are already apparent. The exchanges have allowed Bangalore officials to travel to the US so that they might have a chance to understand the inner workings of a municipality abroad and learn its best practices and professional management. They then are able to have American officials come to Bangalore to discuss how US models and practices can be transferred to the city. In this case, the partnership was able to create a pavement condition index and determine a preventative maintenance program using the technology that Bangalore has available to keep the roads of the quality they are now. With this guidance, Bangalore will be better able to maintain its road systems at a lower cost. The alliance has been extremely beneficial for Reno as well. They have been impressed by the extent of public private participation that the BCC has forged and the way it mobilizes civic participation in city affairs. They hope to initiate a few of such practices at Reno.A partnership with such a high tech focused city like Bangalore will hopefully entice technology companies to do business in Reno, thereby serving as a way to potentially develop the city s business base to more high tech industries. Reno officials also benefit by forcing themselves to break down systems that have been in place for years. They were able to better understand and appreciate the benefits of their own processes and by examining them in a new light, potentially come across ways to improve them. Within the realm of public works, the City of Reno has learnt how to involve public participation in financing road/sidewalk stretches, signages and streetlighting. Reno Officials also mentioned that the storm water drain sections and details were something that Reno can take back home. Most importantly, they are able to assist a partner city, struggling with problems that they once struggled with and helping that city to attain a successful solution in the best way they can. V. Way Forward Bangalore now has the tools it needs to perform preventative maintenance techniques to its roads. It has done so in a few wards but has yet to expand the program throughout the city. It is up to the city to make use of the information provided by Reno to carry out road maintenance measures city wide. It would also be beneficial for Bangalore to stay in contact with Reno to continue to receive advice and updates about new practices in preventative maintenance of roads so that their practices can evolve with the growing city.

12 Exchanges: First exchange: June 16-20, 2003, Bangalore, India Participants: 1. Charles McNeely, City Manager, City of Reno 2. Rick Vandenberg, 3. Steve Varela Second exchange: September 29 th Sept-3 rd October, 2003, Sacramento County Participants: 1. M.R Sreenivasa Murthy, Commissioner, Bangalore City Corporation 2. Ramegowda 3. Dr. G. Lokesh Third exchange: February 9-13, 2004, Bangalore, India Participants: 1. Susan Schlerf, Assistant City Manager, City of Reno 2. Gary Stockhoff, 3. Doug Youngs Fourth exchange: April 19-23, 2004, City of Reno Participants: 1. Subhash Chandra, Special Commissioner, Bangalore City Corporation 2. Dr. Ramani, IT Advisor 3. R.S. Topgi, Joint Director, Town Planning Department Fifth exchange: June 21-25, 2004, Bangalore, India Participants: 1. Susan Mcelroy, Chief of Staff, City of Reno 2. Charla Bos, 3. Ron Peek, Database Administrator Sixth exchange: August 23-27, 2004, City of Reno Participants: 1. K,Jothiramalingam, Municipal Commissioner, Bangalore City Corporation 2. Ramesh Pamadi, Executive Engineer 3. Venkatesh Ramadas, Executive Engineer

13 Sidewalks for over 200 kms of Arterial roads(400 kms of sidewalks) has been taken up at an estimated cost of Rs. 70 crores.