HomeMy WebLinkAbout2025 09 08 Consent 301 - Pavement Management Program ServicesCONSENT AGENDA ITEM 301
CITY COMMISSION AGENDA | SEPTEMBER 8, 2025 REGULAR MEETING
TITLE
Pavement Management Program Services
SUMMARY
A roadway pavement management program (PMP) is a structured, data-driven system
for assessing, maintaining, and rehabilitating road infrastructure. It involves regular
condition surveys, predictive modeling, prioritization of repairs, and long-term
budgeting to optimize resources and extend pavement life.
The City manages about 110 centerline miles of local roads, many of which are
showing signs of wear due to age, traffic volume, and environmental factors. Steady
population growth has heightened vehicle usage and accelerated pavement
deterioration. Additionally, flooding concerns, such as those experienced from
Hurricanes Ian and Milton, exacerbate pavement damage through erosion and water
infiltration, leading to potholes and structural failures. Without a dedicated PMP, the
City has relied upon reactive resurfacing, as illustrated in the February 2025 pavement
overlay project. Continuing this approach risks higher long-term costs, as preventive
maintenance (e.g., seal coating) is far cheaper than full reconstruction—potentially
saving 75-80% in expenses over time by addressing issues early.
Establishing a PMP would enable the City to transition from piecemeal repairs to
proactive, cost-effective management. By using tools like condition indexing and
lifecycle analysis, the City could prioritize high-impact projects, reducing the frequency
of emergency expenditures. As an example, Seminole County's PMP model
emphasizes maintaining pavements above critical thresholds to avoid accelerated
deterioration; a strategy that could help address future funding challenges.
The proposal from Kimley-Horn and Associates offers professional consulting services
for developing a Pavement Management Program (PMP). The provided PMP services
will involve the use of automated data collection equipment to establish an inventory
and pavement condition assessment of up to 110 centerline miles of city-maintained
street pavements. Data collected during the assessment will be used to populate the
City's Pavement Management System using Kimley-Horn's DRIVE software for detailed
analysis, budgeting, and planning. Staff recommends City Commission approval of this
agenda item.
FUNDING SOURCE
This project will be funded from the Transportation Fund (120) as a line code transfer
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from unspent resurfacing to consulting.
RECOMMENDATION
Staff requests City Commission approval of a task order for Kimley-Horn and
Associates, Inc. to provide professional engineering services related to the
development of a Citywide Roadway Pavement Management Program in the amount
of $152,016.
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July 15, 2025
Clete Saunier, P.E.
Director of Public Works and Utilities
City of Winter Springs
400 Old Sanford Oviedo Road
Winter Springs, FL 32708
Re: Proposal for Pavement Management Services
City of Winter Springs, Florida
Dear Mr. Saunier:
Kimley-Horn and Associates, Inc. (“Kimley-Horn” or “Consultant”), in connection with the City of Winter
Springs [RFP #01-21 Civil Engineering Continuing Service Contract], is pleased to submit this letter
agreement (the “Agreement”) to the City of Winter Springs (“Client”) for providing professional
consulting services for the above referenced projects.
SCOPE OF SERVICES
Based on the information provided, Consultant understands that the Client wishes to execute a
pavement management program (PMP) across the City’s roadway network in Winter Springs. The
project will involve use of automated data collection equipment that will result in an inventory and
condition assessment of existing City-maintained street pavements. Based on initial discussions with
the Client, the Consultant anticipates collection on up to 110 centerline miles of roadway network. Data
collected during the assessment will be used to populate a pavement management system (PMS) to
help prioritize projects according to various funding scenarios.
Our Scope of Services, Fee, and Schedule are as follows:
Task 1 – Project Administration
This task will consist of general project management, administrative, and accounting activities for the
project. It will further consist of progress meetings, monthly work planning efforts, and will comprise the
initial schedule development and monthly maintenance of the scope of services and project milestones.
Consultant will facilitate a kick-off meeting with Winter Springs upon Notice to Proceed. Consultant will
coordinate and facilitate up to four (4) additional project meetings during project execution, included in
later tasks. Meetings will be conducted in-person or virtually at the discretion of the City. Consultant will
prepare and distribute meeting notes for each meeting as needed.
Deliverables and Meetings:
• Kick-Off meeting between Consultant and City (Meeting #1)
Task 2 – Network Definition
This task involves the pre-field activities related to defining the roadway system inventory and specific
data collection requirements.
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Task 2.1 – Data Gathering
The City will provide all existing GIS mapping files, CAD files, maintenance data, recent record
drawings, pavement compliant information, and any other updated information related to the City’s
roadway pavements for development of the pavement network database.
Task 2.2 – GIS Integration
Consultant will review the existing City GIS files for integrity and completeness. GIS files will be updated
to include additional fields required for pavement management analysis and formatting.
Task 2.3 – Network Definition Development
The Consultant will divide the existing roadway network into branches and sections as defined by the
ASTM D6433-24. Each street will make up a Branch. Each branch will be further segmented into
Sections. Sections will be determined by street intersection (block-to-block), unless a change in
construction (age or material) or observed condition difference dictates otherwise. A section is the
planning-level unit at which condition data will be analyzed and maintenance and rehabilitation
recommendations will be made.
In coordination with the City, Consultant will compile relevant roadway inventory data related to roadway
surface type, segmentation limits (to/from streets), lane widths, work history, and other maintenance
and rehabilitation efforts. Additionally, based on ongoing coordination with the City, Consultant will
integrate existing City data related to paving/resurfacing history
pavement core and boring data containing information such as pavement type and thickness, and base
type and thickness. This information will be utilized in conjunction with pavement condition information
and, if scoped, pavement strength data to develop highly reliable deterioration models for the network
pavements and to develop robust, objective decision-making processes that form the basis of a
pavement Capital Improvement Plan in later tasks.
Consultant will use ESRI GIS software to compile, store, and visualize the roadway inventory data. GIS
inventory updates will be limited to the update of existing asset GIS shapefiles provided by the City. If
the City cannot provide GIS data, existing Seminole County GIS data will be utilized. Development of
new GIS layers/feature class data will be considered additional services not included in this scope.
Task 2.4 – Database Development
The Consultant will develop a PAVERTM database using the defined system inventory. The database
will be calibrated to identify branch identification, section data, and inspection data. The Section data
will consist of the following: pavement geometry, to, from, surface type, and maintenance history,
pavement and base information, and estimated construction history. Construction history will be
updated based on a limited aerial review and documents received from the City.
Task 3 – Data Collection and Integration
Consultant, through our subconsultant International Cybernetics Company (ICC), will complete a
comprehensive pavement data collection effort using high-speed automated equipment. Task 3
involves the collection, quality management, and integration of condition data and inventories into the
PMS. Based on preliminary estimates, Consultant anticipates data collection on no more than 100
centerline miles of City-maintained roadway.
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Task 3.1 – Pavement Automated Data Collection
Pavement data collection will be coordinated with the City in advance of data collection according to
the roadway network defined in Task 2. Data collection will be completed by ICC using its IrisPRO Pave
data collection vehicles that are equipped with a laser crack measurement system (LCMS-2), inertial
profiler, and Ladybug 5+ right-of -way imaging system. Data will be collected in accordance with ASTM
D6433 standards and established Data Dictionary and approved by the City. Collection will occur in
one direction of travel for all 2-lane roadways. The City-approved network definition shapefile
developed in Task 2 will indicate collection for in-scope roadways. Extracted assets will consist of
pavement inventory and ASTM distress data, international roughness index (IRI) data, rutting data, and
right-of-way imaging.
Task 3.2 – Quality Management
To confirm pavement condition ratings, Consultant will verify pavement conditions using a two-step
process. First, Consultant will process and review pavement distress types, severities, and extents to
confirm that automated data collection processes are accurately characterizing pavement conditions.
In the second step, Consultant will perform a visual verification of pavement conditions using trained
pavement inspectors on approximately 5% of the network.
Task 4 – Pavement Condition Analysis
Task 4.1 – Pavement Condition Analysis
Upon performing a quality management review of distress data, Consultant will make necessary
adjustments and confirm final pavement distress data. The PCI will be calculated using PAVERTM
pavement management software. The distress mechanisms (load, climate, and other) will be
inventoried and calculated for each segment. Each segment inventory (length, width, surface type,
estimated construction history, and observed maintenance) will be updated within the network based
on the observed conditions during the inspection.
Consultant will develop a Pavement Condition Index (PCI) Exhibit depicting the condition results at the
section level. The exhibit will be color coded to represent the ASTM D6433-24 rating system and
annotated to detail the condition information. The exhibit will be developed in GIS software and later
uploaded to the DRIVE pavement management system for visualization and analysis.
Task 4.2 – Performance Modeling
Based on the inventory data compiled (Task 2) and the data collection (Task 3) and the deterioration
analysis, Consultant will develop performance models of the pavement deterioration (also known as
prediction curves) to estimate the future PCI values for all pavement segments. Consultant will integrate
the data collected in Task 2 to further refine PCI “Families” for more accurate, customized prediction
modeling. Consultant will assign each street segment to the appropriate family of pavements to more
accurately plan timing and type of future maintenance and rehabilitation efforts. Consultant will estimate
future PCI trends for a 5-year period. Consultant will prepare a 5-Year milestone from current year PCI
(2025).
Deliverables and Meetings:
• Current and 5-Year Future PCI values
• Meeting to review results of the PCI calculations and deterioration analysis (Meeting #2)
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Task 5 – Unit Cost Estimates
Consultant will request from the City any available pavement construction cost bid submittals for the
purpose of evaluating material and labor costs. Consultant will utilize this data for the preparation of
planning-level unit costs opinions of probable costs for the purpose of M&R Planning. Consultant has
no control over the cost of labor, materials, equipment, or over the Contractor's methods of determining
prices or over competitive bidding or market conditions.
Consultant will develop unit costs for the repair methods identified as appropriate maintenance or
rehabilitation alternatives for City pavements. Unit costs will consider results of recent bid tabulations,
FDOT Average Unit Price data, and recent market trends. A meeting will be held between the City
and the Consultant to review unit costs and making any revisions necessary.
Deliverables and Meetings:
• Localized Maintenance, Global Rehabilitation, and Major Rehabilitation Unit Costs
• Meeting to review unit costs (Meeting #3)
Task 6 – DRIVE Software and Treatment Analysis
Task 6.1 – Maintenance Policy Development
Consultant shall conduct an in-depth review of current maintenance practices performed by the City.
The analysis shall include assigning past maintenance activities to each road segment as applicable
and comparing deterioration rates of pavements with differing treatments. This analysis will support the
development of custom maintenance policies for the City network.
Consultant shall develop a localized maintenance policy based on the Section-level extrapolation of
distress manifestations observed as part of the Functional Data Collection. Maintenance estimates
shall be made for the current year. Future maintenance needs will not be analyzed due to the
unpredictability of specific distress manifestations in future years.
Consultant shall develop a critical PCI level that triggers the need for rehabilitation and
reconstruction. The rehabilitation and reconstruction for pavements shall utilize conceptual pavement
sections for planning level estimates. The conceptual pavement sections will have estimated costs
that can assist in the determination of the overall needs.
Task 6.2 – DRIVE Software Customization
Consultant will import tabular and GIS shapefile data related to inventory and condition into its DRIVE
software tool. Consultant will customize the software with methods for repair, maintenance, minor
rehabilitation, and major rehabilitation into the PAVER database software for analysis. Prediction
Models will be assigned to pavement segments based on the families developed in Task 4. M&R
costs and policies will be assigned to pavement segments based on the policies developed in this
task. Based on the specific policies and treatment types developed for the Client, Consultant will
program treatment consequence parameters such as resulting surface type, and estimated life
extension.
Task 6.3 – Budget Analysis
Consultant shall utilize DRIVE to perform Budget Scenario Analysis to evaluate the City’s forecasted
network-level PCI values for a 5-year period based on budgetary inputs. The results of this analysis will
be a targeted budget to serve as the basis for future funding levels and capital improvement plan
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development. The following annual funding scenarios may be evaluated:
1. Unlimited Funding
2. Current Funding (information provided by Client)
3. Maintain Current Network-Level PCI
4. Up to three (3) Funding Alternatives
5. No Spending
Task 6.4 – Priority Analysis
Consultant will utilize the results of the scenarios to develop a prioritized plan of street maintenance
and rehabilitation projects. The plan will identify, prioritize, and assign treatment types to each
pavement section as determined by the analyzed data, engineering judgement, and City staff
involvement/feedback. DRIVE integrates factors such as pavement condition, street type, traffic, rank,
and consequence of deferral to formulate a Cost-Benefit Value (CBV) for each street in the network.
This CBV value will be used by DRIVE to identify priority street treatments, particularly when
budgetary constraints are introduced.
Task 6.5 – Meeting and Training
Consultant will provide City staff with the training required to operate the DRIVE software. Following
the initial configuration and data integration into DRIVE, Consultant will meet with the City to
demonstrate software features and functions with the goal of providing City staff with the training
required to operate the system independently. The software will be web-based and allow for users to
access the site remotely. The initial DRIVE software licensing period will remain in effect for two (2)
years and can be renewed further by the City annually under a separate contract.
Client will receive access to DRIVE software complete with results of analysis performed in this task.
Client will have ability to access, visualize, and export all data within the software. Client will be able
to perform new analysis, or revise existing analysis, related to maintenance and rehabilitation
prioritization and treatment selection. Client will be able to select streets for project selection, and
store projects within the software for purposes of developing a Capital Improvement Plan.
Deliverables:
• Access to DRIVE Software for two (2) 1-year licensing periods (Beginning at final software
delivery)
• M&R Policies
• 5-Year Budget Scenario Results Summary List
• List of M&R priorities based on policies and prioritization criteria
• One (1) half-day meeting/training session on DRIVE software functionality and review of
prioritization results (Meeting #4)
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DRIVE Interface – Summary Dashboard
DRIVE Interface – Budget Scenario Module
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DRIVE Interface – Project Planner Module
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Task 7 – Reporting
Consultant will develop a technical report that discusses the data collection methodology, data
collection results, analysis scenarios, and maintenance and repair priorities. The Report will summarize
pavement network condition and provide recommendations on strategies for structuring a pavement
management program over the next 5 years. Consultant will provide draft and final versions. This Task
includes addressing one round of non-conflicting comments from the Client. The deliverable for this
Task will be a Final Report that addresses these comments.
Consultant will deliver final GIS shapefiles and map packages to the City containing relevant roadway
inventory and condition data. Files will be provided in .SHP and .MPK file formats and will be suitable
for integration into a City GIS platform.
Deliverables:
• Draft Pavement Management Program Report
• Final Pavement Management Program Report
• Meeting to review draft report and make up to 1 round of revisions (Meeting #6)
Task 8 – CIP Development Support
Consultant will assist the City in development of a 5- to 10-Year Capital Improvement Plan (CIP).
Consultant will prepare for and attend CIP workshop meetings with City staff to work through, develop,
and refine a CIP to be implemented by the City in future years. Consultant will consider priorities
identified by the City as well as the results of the project prioritization from Task 6. A proximity analysis
will be performed to identify maintenance and rehabilitation projects consisting of multiple adjacent
high-priority segments of common work types, and choose the most appropriate timing and work type
for each. The results of the budget analysis will be used as a baseline for the funding levels targeted in
the CIP. Additional factors that should be considered include traffic impacts, adjacent utility priorities,
upcoming areas of development, and currently programmed projects, to name a few.
Based on pavement rehabilitation needs identified, a preliminary CIP will be developed for pavement
M&R. The evaluation and design sequences will have identified areas of pavement requiring
rehabilitation and preferred options such as surface treatments, mill and overlay, reclamation, or
reconstruction. This task will include preparation of opinion of probable construction costs (OPCC) for
each identified project alternative. The OPCC will be based on FDOT average unit costs and recent
cost trends.
Deliverables:
• Up to three (3) working sessions
• Capital Improvement Plan – GIS and Tabular Formats
o Stored in DRIVE Software if applicable
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ADDITIONAL SERVICES
Any services not specifically provided for in the above scope will be billed as additional services and
performed at our then current hourly rates. Additional services Consultant can provide include, but are
not limited to, the following:
▪ Construction Plans
▪ Engineering Design and Permitting
▪ Geotechnical investigations, including coring and boring
▪ Ground-penetrating radar (GPR) investigations
▪ Non-destructive testing (NDT)
▪ Structural inspections on bridges
▪ Pavement condition evaluations beyond the scoped mileage of 90 miles
▪ Pavement design services
▪ Extraction of other assets from right-of-way imagery
▪ Public meetings
▪ Development of City GIS online platform
▪ Others as requested by the City
INFORMATION PROVIDED BY CLIENT
The Consultant shall be entitled to rely on the completeness and accuracy of all information provided
by the Client or the Client’s consultants or representatives. The Client shall provide all information
requested by Consultant during the project, including but not limited to the following:
▪ Existing GIS and/or digital photography data for the project area
▪ Existing PAVER database
▪ Construction history documentation including dates for last major work
▪ Existing construction plans and as-built surveys
▪ Bid tabulations containing material unit cost information
SCHEDULE
Consultant will provide the services described in the scope of services in an expeditious manner based
upon a mutually agreed upon schedule.
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FEE AND BILLING
Consultant will perform the Scope of Services in Tasks 1 - 8 for the total lump sum fee below. Individual
tasks may be agreed upon and authorized on an as needed basis. All permitting, application, and similar
project fees will be paid directly by the Client.
Task Description Lump Sum Fee
1 Project Administration $ 11,496
2 Network Definition $ 18,763
3 Data Collection And Integration $ 8,879
4 Pavement Condition Analysis $ 14,722
5 Unit Cost Estimates $ 7,637
6 DRIVE Software and Treatment Analysis $ 18,426
7 Reporting $ 23,200
8 CIP Development Support $ 17,492
Labor Subtotal $ 120,616
Data Collection Subconsultant - ICC $ 24,310
Project Expenses $ 1,089
DRIVE Software Licensing (Year-1) $ 5,000
DRIVE Software Licensing (Year-2) $ 1,000
Project Total $ 152,016
Lump sum fees will be invoiced monthly based upon the overall percentage of services performed.
Payment will be due within 25 days of your receipt of the invoice and should include the invoice number
and Kimley-Horn project number.
Closure
We appreciate the opportunity to provide these services to you. Please contact us if you have any
questions.
Sincerely,
KIMLEY-HORN AND ASSOCIATES, INC.
By: Kevin Stone, P.E. Lance Littrell, P.E.
Associate Vice President
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