Memo: ISTEA Pavement Management Systems
This order was canceled on July 27, 2004
|
ACTION: ISTEA Pavement Management Systems |
NOV 4 1994 |
| Director, Office of Engineering | HNG-41 |
| Regional Administrators |
We are approaching the first bench mark in implementing the Pavement Management System (PMS) provisions in ISTEA. By January 1, 1995, each State is required to submit to the division office the certification statement, work plan, and status for implementing its PMS. The division office should review the submission and forward its comments and a copy of the documents to the region. The regional office has the responsibility to review and accept the submission and notify the division office accordingly.
The purpose of this memorandum is twofold. First, we want to provide technical guidance and criteria in order to implement the PMS provisions in ISTEA in a complete and consistent manner. Secondly, we request your cooperation and assistance in providing us with PMS information, so we can continue to monitor the States' progress in developing and implementing their PMS's.
- During the past months, we have assisted several field offices in reviewing draft work plans and noted some deficiencies and inconsistencies that warrant attention. Presently, we need to focus on four technical items: (1) multi-year prioritization, (2) life-cycle cost analysis, (3) condition survey distresses, and (4) condition survey samples. Attached is technical guidance on these four items for your use. We have reiterated some of the fundamentals of PMS for the benefit of the States and divisions who are experiencing a high turnover and influx of engineers and managers who are new to PMS.
- For the past 8 years, the Pavement Management Branch has maintained a national database on the status of the States' PMS's that is used to assess and guide the national PMS program. With the advent of the ISTEA certification process, the information in the database will continue to play an important role in managing the national program. As you know, the information has always been collected and reported by the FHWA staff. We are requesting your cooperation and assistance to have the division office PMS specialists update this information when they concurrently review the States' PMS certifications and work plans. Please send the completed PMS survey form (copy attached) to the Pavement Management Branch, HNG-41 by January 17, 1995.
Implementing the PMS provisions in ISTEA is of vital importance to FHWA. The key to success is a strong joint effort between Headquarters and the field offices. We will continue to provide technical guidance and direction as needed to help achieve a comprehensive and consistent PMS program. If you have any questions, or need technical assistance, please contact Mr. Frank Botelho at 202-366-1336.
/s/ W. A. Weseman
William A. Weseman
- Multi-Year Prioritization. Multi-year prioritization is the heart of a PMS. It provides a prioritized listing of projects for which rehabilitation/preservation actions are recommended for each year of the planning horizon. The multi-year prioritized list of candidate projects and treatments is a "first cut" list that is normally produced by the Pavement Management Engineer(s) and submitted to the appropriate offices in the Agency to be used as input in developing the statewide pavement preservation program. The prioritization is based on priority factors, predicted performance, and economic analysis relative to the goals set by the State for its network. The candidate projects should have a high benefit cost ratio based on life-cycle cost analysis. The prioritization process must be objective, analytical, formalized, and automated (computerized for State and large local networks) in order to be stable and repeatable with time and changing of personnel. Its established engineering criteria and analytical methodology are the basis and means of producing and documenting an accountable and justifiable pavement preservation program.
Many States have not yet established or utilized the above criteria for multi-year prioritization. Rather, they are prioritizing projects solely on a subjective, manual, and "worst first" basis. The field offices need to promote and support major efforts by the State highway agencies (SHA's) to satisfy the intent of our regulation on multi-year prioritization.
- Life-Cycle Cost Analysis. The need and purpose for life- cycle cost analysis is strongly emphasized in ISTEA. The FHWA issued an interim policy statement on life-cycle cost on July 11, 1994. This policy statement should be used by the field when evaluating the States' life-cycle cost analysis procedures. Prioritization and life-cycle cost analysis are the analytical basis for demonstrating that the expenditure of Federal-aid funds are justifiable and cost effective.
A State PMS must include a life-cycle cost analysis (that is commensurate with the level of investment and types of preservation treatments) for candidate projects in order to compare alternative treatments and strategies to produce a cost effective preservation program that satisfies the goals of the Agency. The life-cycle cost analysis should be based on the performance prediction and economic models used in multi-year prioritization. Life-cycle cost analysis of specific project treatments should consider future treatments required to maintain the pavement until reconstruction. Life-cycle cost analysis of network-level strategies requires an analysis period of at least one complete cycle in the life of the network, which should be at least 35 years.
- Condition Survey Distresses. Pavement condition data are the foundation for measuring and monitoring, the "health" of the network, the current and predicted performance of pavements, and the remaining service life of the network. A PMS condition survey bridges the "information gap" between general planning data and detailed design data. Condition data are combined with performance data, life-cycle cost analysis, and priority factors to develop the multi-year list of prioritized projects. The type, extent, and severity of the individual distresses are also used to determine viable preservation treatments.
The types of distresses that are measured in a pavement condition survey should be chosen on the basis that they support the decisions on where, when, and how to preserve the network. A "sufficiency rating" (commonly used for planning purposes) or a single distress survey do not constitute a PMS condition survey. The premise of using either one as a "common denominator" does not provide the engineering detail needed in PMS's.
- Condition Survey Samples. The reliability of condition data is crucial to the credibility of a PMS. The least amount of error will occur if 100 percent of the pavement is sampled. The viability of sampling 100 percent is only possible when using automated survey equipment, such as the equipment that is currently used to measure roughness, rutting, and faulting. In the absence of automated equipment, SHA's customarily measure distress data using an approximate 10 percent representative sample. That is, a 10 percent sample on each and every mile of the network. This may somewhat increase or decrease depending on the variability in pavement condition.
Because of the expanded network coverage of ISTEA (i.e., a total of 936,000 centerline miles of Federal-aid highway), some SHA's are exploring cost cutting measures to reduce the added burden of collecting pavement condition data. Generally, reducing the number of distresses or reducing the sample size does not result in real cost savings because of the increased risk of errors in PMS. However, SHA's can achieve real cost savings by reducing the frequency of the condition surveys. Condition surveys can be conducted every 2 years instead of every year. Biennial surveys should be supplemented with annual updates for newly improved sections and when unexpected changes occur caused by either the environment, loading, premature failures, or accelerated deterioration.
While these fundamental criteria apply to all Federal-aid highways, we want to prevent unnecessary data collection and analysis burdens, so PMS practitioners should be reminded that the level of effort needed to do items 1, 2, and 3 is far less for lower order roads than for the proposed National Highway System.
(Question II(A) applies to both the NHS and Non-NHS)
I. ORGANIZATION
A. State _________________________
B. FHWA Region ____
C. State Staffing Resources
The following staffing information pertains only to the staff at
the central office. It does not apply to district staff or field
data collection crews.
1. Does the SHA have a person who is designated as the State's
PMS Engineer (1)? Yes____ No____ (If no, still provide a name,
address, etc. for the point of contact).
Name ____________________________________________________________
Address _________________________________________________________
_________________________________________________________________
_________________________________________________________________
City ______________________ ST __ Zipcode________PlusFour________
Phone ______________________ FAX _____________________________
2. Does the PMS Engineer work full time on PMS? Yes____ No____
If part-time, what percentage is spent on PMS? Part-Time
Percentage______.
3. Does the PMS Engineer have the full responsibility and
authority to lead the development, implementation, and operation
of PMS? Yes____ No____.
4. If NO, how is PMS managed?
_________________________________________________________________
_________________________________________________________________
5. If the PMS engineer has an assistant(s), staff, or in-house
support; indicate each position(person's name), percent time
spent on PMS, and a brief description of their primary
function(s). This pertains only to the central office and
excludes condition survey crews.(Add additional names on separate
sheet.)
Name Percent Time Primary Function(s)
a. ____________ ____________ _______________________________
b. ____________ ____________ _______________________________
c. ____________ ____________ _______________________________
____________________
(1) PMS Engineer is the person who is in charge of leading
and working on developing, implementing, and operating the PMS on
a day-to-day basis.
_________________________________________________________________
D. Does the State have an active PMS committee(s) or group(s)
that guide and update the PMS? Yes _____ No _____. Provide the
positions(i.e. pavement design, materials, etc.) of PMS
committee(s) members on an attached sheet.
II. PMS DATABASE
A. PMS Coverage
___________________________________________________
| Federal-aid Highway Mileage (Centerline) |
|__________________________________________________|
| Covered | Not Covered | |
|__________________|___________________|___________|
| NHS | Non NHS | NHS | Non NHS | Total |
___________|_______|__________|________|__________|___________|
| State | | | | | |
|__________|_______|__________|________|__________|___________|
| Local | | | | | |
|__________|_______|__________|________|__________|___________|
|Toll Roads| | | | | |
|__________|_______|__________|________|__________|___________|
B. Inventory Data Yes Under Considering No
Development In Future
1. Pavement type ___ ___ ___ ___
2. Pavement width ___ ___ ___ ___
3. Shoulder type ___ ___ ___ ___
4. Shoulder width ___ ___ ___ ___
5. Number of lanes ___ ___ ___ ___
6. Layer thicknesses ___ ___ ___ ___
7. Joint spacing ___ ___ ___ ___
8. Load transfer ___ ___ ___ ___
9. Subgrade classification ___ ___ ___ ___
10. Material properties ___ ___ ___ ___
11. Resilient modulus ___ ___ ___ ___
12. Drainage ___ ___ ___ ___
13. Other (specify) ___________________________________________
C. Project History Yes Under No
Development
1. Construction ___ ___ ___
2. Rehabilitation ___ ___ ___
3. Maintenance (2) ___ ___ ___
____________________
(2) "Maintenance" refers to preventive maintenance not
corrective maintenance. Corrective maintenance refers to pot
hole repair, etc.
_________________________________________________________________
D. Condition Survey Yes Under Considering No Equipment
Development In Future
1. Ride ___ ___ ___ ___ ________
2. Rutting ___ ___ ___ ___ ________
3. Faulting ___ ___ ___ ___ ________
4. Cracking ___ ___ ___ ___
5. Surface Friction ___ ___ ___ ___ ________
6. Network-level
Deflection ___ ___ ___ ___ ________
E. Distress Yes Under Considering No
Development In Future
1. High speed windshield
survey at 30 to 55 mph ____ ____ ____ ____
2. Low speed survey at
0 to 10 mph ____ ____ ____ ____
3. Combination of high
and low speed. ____ ____ ____ ____
4. 35mm film viewed at
a workstation. ____ ____ ____ ____
5. Video tape viewed at
a workstation. ____ ____ ____ ____
6. Distress Identification
Manual with pictorial
references used to
calibrate extent and
severity. ____ ____ ____ ____
7. Fully automated. ____ ____ ____ ____
Specify equipment: _________________________________________
F. What is the frequency of condition data collection on the
NHS? _______________________________________________________
G. How does the State collect their condition data?
In House _______ Contractor(specify) _____________________
H. Traffic/Load Data
1. Does the PMS database: Yes Under Considering No
contain: Development In Future
a. Annual ESAL's ___ ___ ___ ___
b. Forecast ESAL's ___ ___ ___ ___
c. Cumulative ESAL's ___ ___ ___ ___
2. Does the PMS have an ESAL flow map that is route specific?
Yes___ Under Development___ Considering in Future___ No___
I. Does the PMS provide IRI or PSR(circle one) to FHWA HQ for
the HPMS sample sites?
Yes ____ Under Development ____ No ____
J. Does the PMS have a relational database?
Yes ____ Under Development ____ No ____
K. How much work has been completed in developing the PMS
database? Development work would include: establishing data
files, collecting data, loading data, writing application
programs for analysis, etc..
0-25% ____ 25-50% ____ 50-75% ____ 75-100% ____
III. INVESTMENT ANALYSES
A. Prioritization
1. Does the PMS office/unit produce a multi-year prioritized
list of recommended candidate projects(this is considered a
"first cut" list)?
Yes ____ Under Development ____ No ___
2. What method does the PMS use to produce the multi-year
prioritized list of projects?
Yes Under Considering No
Development In Future
a. Subjective (3) ____ ____ ____ ____
b. Objective (4)
1. Priority Model ____ ____ ____ ____
2. Incremental
Benefit Cost ____ ____ ____ ____
3. Marginal Cost
Effectiveness ____ ____ ____ ____
4. Optimization
Yes Under Considering No
Development In Future
a. Linear Programming ___ ___ ___ ___
b. Non-Linear Programming ___ ___ ___ ___
c. Integer Programming ___ ___ ___ ___
d. Dynamic Programming ___ ___ ___ ___
e. Other (Specify)__________________________________________
____________________
(3) "Subjective" indicates that the projects were
prioritized by individuals using only personal knowledge of the
roads.
(4) "Objective" means that the projects were prioritized
using a repeatable analytical process.
_________________________________________________________________
3. If the answer to question 2(b) is Yes or Under Development,
who developed the software?
In House _______ Contractor(specify) ______________.
4. Check the factors used to prioritize projects:
Yes Under Considering No
Development In Future
a. Distress ___ ___ ___ ___
b. Ride ___ ___ ___ ___
c. Traffic ___ ___ ___ ___
d. Functional class ___ ___ ___ ___
e. Skid ___ ___ ___ ___
f. Structural adequacy ___ ___ ___ ___
g. Other (Specify) ________________________________________
B. Preservation Treatment
1. Does the PMS assign a preservation treatment to a
candidate project?
Yes ____ Under Development ____ No ___
2. If the answer to question 1 is Yes or Under Development,
which groups of treatments does the PMS cover?
Yes Under No
Development
a. Reconstruction ___ _____ ____
b. Rehabilitation ___ _____ ____
c. Maintenance (5) ___ _____ ____
3. What method is used to assign a preservation treatment
to a candidate project.
Yes Under Considering No
Development In Future
a. Subjective (6) ___ ___ ___ ___
b. Objective (7)
1. Matrix ___ ___ ___ ___
2. Decision tree ___ ___ ___ ___
3. Cost Benefit ___ ___ ___ ___
4. Optimization Method
listed previously. ___ ___ ___ ___
5. Other (Specify) _______________________________________
____________________
(5) "Maintenance" refers to preventive maintenance not
corrective maintenance. Corrective maintenance refers to pothole
repair, etc.
(6) "Subjective" indicates that the projects were
prioritized by individuals using only personal knowledge of the
roads.
(7) "Objective" means that the projects were prioritized
using a repeatable analytical process.
_________________________________________________________________
4. If the answer to question 3(b) is Yes or Under
Development, who developed the software?
In House ____ Contractor(specify) ___________________
5. Does the PMS do a life-cycle cost analysis for the
recommended preservation treatments?
Yes ____ Under Development ____ No ___
6. If the answer to question 5 is Yes or Under Development,
who developed the software?
In House ____ Contractor(specify) ____________________
C. Pavement Performance Monitoring and Projection
1. Does the PMS monitor pavement performance?
Yes ____ Under Development ____ No ___
2. Check all the pavement indices used to monitor pavement
performance:
Yes Under Considering No
Development In Future
a. Ride ___ ___ ___ ___
b. Distress ___ ___ ___ ___
c. Combined Index ___ ___ ___ ___
e. Other (Specify) _________________________________________
3. Is load data (cumulative ESAL's) used to monitor
pavement performance?
Yes___ Under Development___ Considering in Future___ No___
4. Does the PMS generate pavement performance curves?
Yes___ Under Development___ Considering in Future___ No___
5. Are the curves developed for?
Yes Under Considering No
Development In Future
Family of pavements ___ ___ ___ ___
Each pavement ___ ___ ___ ___
6. Does the PMS monitor and predict performance using?
Yes Under Considering No
Development In Future
Markov Transition ___ ___ ___ ___
Semi-Markov Transition ___ ___ ___ ___
7. Does the PMS monitor pavement performance using another
method? (specify) _____________________________________
_______________________________________________________
8. Does the PMS compute the Remaining Service Life of the
network?
Yes ____ Under Development ____ No ___
9. If the answer to question 8 is Yes or Under
Development, who developed the software? In House ____
Contractor(specify)_______________________________
IV. ENGINEERING ANALYSIS
A. Is the performance data in the PMS database used to evaluate
either the accuracy, quality, or the cost effectiveness for:
Yes Under Considering No
Development In Future
1. New pavement design
procedures ___ ___ ___ ___
2. Overlay design procedures ___ ___ ___ ___
3. Rehabilitation techniques ___ ___ ___ ___
4. Materials ___ ___ ___ ___
5. Construction ___ ___ ___ ___
6. Preventive maintenance ___ ___ ___ ___
7. Mix designs ___ ___ ___ ___
8. Other (Specify)___________________________________
V. PRODUCTS
A. Is the PMS's multi-year prioritized list of recommended
projects used as input in the development of the State's:
Yes Under No
Development
1. Pavement Preservation
Program ____ ____ ____
2. Statewide Transportation
Improvement Program(STIP) ____ ____ ____
3. Transportation Improvement
Program(TIP) ____ ____ ____
B. Is the PMS's multi-year prioritized list(first cut) compared
to the final approved list of pavement preservation projects
for reasonableness?
Yes___ Under Development___ Considering in Future___ No___
VI. UPDATE
Does the SHA annually evaluate and update the PMS relative to the
agency's policies, engineering criteria, practices, experience,
and current information?
Yes ____ Under Development ____ No
Last updated: Tuesday, July 27, 2004