January 17, 2017


City Council Chamber

Ground Floor, City Hall

117 W. Duval Street


Attendance:   Council Members: Al Ferraro (Chair), Doyle Carter (Vice Chair), Greg Anderson, Anna Lopez Brosche, John Crescimbeni, Reggie Gaffney; Council Member Reggie Brown was excused;  Assistant General Counsel Paige Johnston; Kim Taylor, Council Auditor’s Office; Jordan Elsbury, Administration; Laurie Santana, Planning Department; Yvonne Mitchell, John J. Jackson,  Council Research Division; Legislative Assistant Philip Zamarron.


The Chairman called the special committee meeting to order at 2:09 p.m.


The focus of the Special Committee Meeting was pavement management.  John Pappas, Director, Public Works Department, was the presenter.


At the outset of his PowerPoint presentation, Mr. Pappas characterized Jacksonville’s roads as one of the City’s largest assets. Jacksonville has 3,697 miles of roads.  Public Works is responsible for the maintenance of the City’s roads, and this includes Pavement Management.  The Department’s Right of Way & Stormwater Maintenance Division manages the department’s Pavement Management Program. Steve Long is Division Chief.


Mr. Pappas noted that ADA upgrades (ADA ramp improvements) are now a component of the City’s resurfacing program.


Public Works Pavement Management’s mission is to provide the safest and smoothest travel surface possible at the most cost effective expense. The Pavement Management Program focuses on preventive maintenance and restoration.  The program utilizes the following techniques (listed in order of cost effectiveness):


-          Prolong existing pavement life – pavement rejuvenation

-          Restore pavement to extend pavement life – MicroSurfacing

-          Replace pavement – Resurfacing.



Pavement rejuvenation (prolonging existing pavement life) entails the process of restoring pavement chemical properties that have deteriorated since the moment asphalt was laid. The asphalt rejuvenators penetrate the asphalt surface to chemically revitalize and protect the asphalt binder by replacing the tars & oils lost to oxidation.  This process extends pavement life, on average, 5 years.

The process costs approximately 10% of traditional resurfacing.  The process is best suited for low volume, low speed thoroughfares such as residential roads.


MicroSurfacing (restoring pavement to extend pavement life) is the process of applying a thin treatment to the pavement’s surface to restore its condition and extend its life.  The treatment consists of asphalt and crushed aggregate to help preserve and protect the underlying pavement structure while providing a new driving surface.  This process extends pavement life, on average, 10 years.  The process costs approximately 30% of traditional resurfacing.  There is no limitation with respect to vehicular volume or speed on the thoroughfare.


Resurfacing (replacing pavement) entails milling the existing pavement surface and applying a 2 inch asphalt (with full aggregate) overlay.  This process extends pavement life, on average, 20 years.  The process costs approximately $189,000 per mile.  There is no limitation with respect to vehicular volume or speed on the thoroughfare.


The City’s General Fund provides funding for all City-wide resurfacing efforts.


By Ordinance 2015-428-E, the City has identified a “suggested minimum” annual funding allocation of $12 million for resurfacing.


Council Vice President John Crescimbeni noted that the City has not had funding in the CIP budgets for all of the resurfacing that is needed; as a result, roads are in a poorer state.  He further commented that while we are supposed to be spending $12 million annually, there have been times when the City has had only $2 million to spend on roads and re-surfacing initiatives.


In discussing pavement evaluation criteria, Mr. Pappas explained that once funding is allocated for a fiscal year, the worst rated roadways  that year are resurfaced until the funding is exhausted.  Roadways that are not resurfaced in a current fiscal year remain on the resurfacing list and compete

for funding during future budget cycles.


Council Member Anna Lopez Brosche asked about depressions. Particularly, when road depressions are a recurring issue, what does the Public Works Department do to assess the underlying causes for the road depression?


The Chair asked Mr. Pappas what is “enemy #1” when it comes to problems with roads.  Mr. Pappas explained that a paramount problem is a road not built properly.  Roads that are constantly wet is another major problem.


With no further business, the Special Meeting was adjourned at 2:49 p.m.


John J. Jackson, Council Research Division (904) 630-1729



Posted: 4:00 p.m.