Template revised January 10, 2019.
COMMISSION
AGENDA MEMORANDUM
Item No.
6c
ACTION ITEM
Date of Meeting
October 22, 2019
DATE: October 14, 2019
TO: Stephen P. Metruck, Executive Director
FROM: Laurel Dunphy, Director, Aviation Operations
Wayne Grotheer, Director, Aviation Project Management
SUBJECT: 2021-2025 Airfield Pavement and Supporting Infrastructure Replacement Program
(CIP #C800930)
Amount of this request:
$ 16,000,000
Total estimated project cost:
$156,300,000
ACTION REQUESTED
Request Commission authorization for the Executive Director to authorize design and
preparation of construction documents for the 2021-2025 Airfield Pavement and Supporting
Infrastructure Replacement Projects at the Seattle-Tacoma International Airport in the amount
of $16,000,000 and approve the use of a project labor agreement (PLA) for each year’s
construction contract. The use of a PLA will be subject to approval by the Federal Aviation
Administration (FAA) for work receiving federal funding.
EXECUTIVE SUMMARY
An ongoing program of airfield pavement maintenance and replacement is required to provide
safe and efficient conditions for aircraft operations and meet FAA requirements; the 2021-2025
Airfield Pavement and Supporting Infrastructure Replacement Program is a continuation of the
programmatic approach of replacing distressed airfield pavement (concrete and asphalt), joint
sealant, related and supporting infrastructure at the Airport. The Airport’s Pavement
Replacement Management Program supports the FAA mandated Pavement Maintenance
Management Program (PMMP), which identifies pavement replacement priorities and is
directly related to grant funding. With many of the pavements and supporting airfield
infrastructure having long exceeded their planned lifespan, a robust pavement and utility
infrastructure replacement program is required.
The pavements and utility infrastructure identified for this 2021-2025 Capital Improvement
Program (CIP) have been determined by annual pavement inspections and reporting. While this
program is not inclusive of all distressed airfield pavements and infrastructure, the scope of the
program focusses on those assets having the three following criteria: (1) exceptionally high age,
(2) continual need for repair, and (3) high strategic value to airfield operations.
COMMISSION AGENDA – Action Item No. _6c_ Page 2 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
This program is included in the annual FAA Airport Capital Improvement Program (ACIP) letter
for FAA Airport Improvement Program (AIP) Grant funding. Moving forward, this replacement
program is set to continue to align with the rolling 5-year FAA ACIP to utilize available federal
funds. To better align with both FAA grant schedules and to plan and execute the work
efficiently we are requesting full 2021-2025 CIP program design authorization. Yearly
construction design phases, significantly overlap the preceding year’s construction contracts.
Full design authorization allows each year’s project to move forward meeting FAA grant
required schedule milestones and to do programmatic level planning for airfield operational
impacts. Yearly issuance of construction contracts, will still receive separate authorizations
from Commission.
JUSTIFICATION
The Airport has approximately 21,850,000 square feet of runway, taxiway, taxilane, and apron
pavement. To comply with the Federal Aviation Administration Pavement Management
Program requirement, the Airport must complete yearly pavement inspections detailing
pavement conditions according to specific FAA criteria.
These yearly inspections support FAA project funding requests and aid in the development of
prioritized work plans. Most airfield pavements included in this proposed CIP are 40 to 50 years
old and 14 to 16 inches thick; much thinner than the 20- to 22-inch standard used in the current
airfield pavements at the Airport. Having far exceeded their 20-year design service life and
lacking the thickness to support the weight and growing volume of the Airport’s current aircraft
operations, these pavements have become cracked and damaged.
Previous pavement and utility investments over the last 20 years have focused on the airfield’s
runway and connecting taxiway system (i.e., the Movement Area). The apron and taxilanes
around the terminal areas (i.e., the Non-Movement Area) have been managed through a focus
on individual replacement of failed panels. This ad hoc approach does not result in a logical
progression of planned investments and is ineligible for federal grant funding.
This proposed CIP will focus on comprehensive replacements of aging and damaged pavements
and utilities with an emphasis on the taxilane centerline areas around the terminals, which
receive the highest traffic. This program focuses on strategic assets, combines work to make
the most of grant funding, and will perform phasing work in advance to reduce airline impacts.
Diversity in Contracting
One of the Century Agenda goals is to use the Port’s influence as an institution to promote
small business growth and workforce development. This program includes federally assisted
funding that requires the use of the federal Disadvantaged Business Enterprise (DBE) program
rules, which includes the setting of DBE goals.
COMMISSION AGENDA – Action Item No. _6c_ Page 3 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
The Port’s Diversity in Contracting program will support minority and women business
enterprise (MWBE) for specific projects, where federal funding is not applied.
DETAILS
The overall purpose of this program is to replace distressed and/or damaged pavements on the
airfield that will cause Foreign Object Debris (FOD) in the aircraft operational areas. It also
replaces joint seal in areas that are most problematic or where missing; and replaces
infrastructure/utilities in close proximity to pavement work areas or in support of airfield
operations.
Scope of Work
Each year of work will include pavement replacement of apron and/or keel sections, joint
reconstruction, replacement and repair of miscellaneous infrastructure/utilities within the
footprint and close to pavement, or in support of airfield operations. Where operationally
necessary, a limited number of individual damaged concrete panels will be replaced with Quick
Setting High Early Strength Concrete, which is not eligible for federal funding. Some scope
items or the schedule may change based on the continued aging of the airfield infrastructure
and the need to prioritize replacements of failing infrastructure. Yearly issuance of construction
contracts will receive separate authorizations from Commission.
Project Scope:
• Replace portions of damaged pavements in the taxilanes and taxiways serving gates at
the Satellites and Concourses
• Replace pavements in cargo apron areas
• Replace failing and aging airfield utilities and related airfield infrastructure
• Extend an airfield electrical power ductbank
• Perform airfield compliance upgrades to runway and taxiway systems
• Replace various runway, taxiway and taxilane joint seal
Schedule
2021:
2020 Quarter 1
2020 Quarter 4
2021 Quarter 1
2021 Quarter 1
2021 Quarter 4
COMMISSION AGENDA – Action Item No. _6c_ Page 4 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
2022:
2021 Quarter 1
2021 Quarter 4
2022 Quarter 1
2022 Quarter 1
2022 Quarter 4
2023 – 2025: Follows above scheduling format meeting FAA Grant milestone time frames.
Cost Breakdown
This Request
Total Program
Design
$16,000,000
$16,000,000
Construction
$0
$140,300,000
Total
$16,000,000
$156,300,000
ALTERNATIVES AND IMPLICATIONS CONSIDERED
Alternative 1 – Only replace individual damaged concrete panels on taxiway, taxilanes and
runways.
Cost Implications: Average number of panels = 50 per year; Cost in 2021: $7,700,000
Pros:
(1) Reduced capital spending in the short term.
(2) Meets minimum Pavement Management Program requirements.
(3) Replacement of damaged panels helps to reduce Foreign Object Debris (FOD) safety
hazards.
(4) Less prolonged construction impact to airport/airline operations.
Cons:
(1) Continued use of aging and distressed asphalt and concrete pavement increases risk of
producing FOD and potentially increased risk of ingestion and aircraft damage.
(2) Delay in aging concrete replacement pushes full replacement into future, escalating
actual cost.
(3) No federal funding for maintenance work.
(4) Scope of work is uncertain and needs to be determined each year.
(5) Return each year for both design and construction authorization.
(6) Cost to escalate 5 percent per year.
This is not the recommended alternative.
Alternative 2 – Reduce this CIP to pavement only – supporting infrastructure becomes an
independent CIP.
Cost Implications: $114,200,000
COMMISSION AGENDA – Action Item No. _6c_ Page 5 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
Pros:
(1) Reduced pavement CIP budget.
(2) Pavement replacement portions already identified.
(3) Portions of construction are eligible for federal funding.
(4) In alignment with FAA’s 5-year ACIP.
Cons:
(1) Loss of synergy and coordination between airfield resources.
(2) Increased airport/airlines operational impacts with repeated closure of areas for
construction.
(3) Infrastructure CIP cost would be more than $42,100,000 due to the loss of synergies
between the programs.
This is not the recommended alternative.
Alternative 3 – Replace distressed and damaged airfield pavement and supporting
infrastructure for program period 2021 – 2025.
Cost Implications: $156,300,000
Pros:
(1) Programmatic replacement of aged and distressed pavements and related
infrastructures.
(2) Coordination between resource assets increases efficiencies and minimizes airport
and airline operational disruption and impacts during construction.
(3) Portions of construction are eligible for Federal Funding.
(4) In alignment with FAA’s 5-year ACIP.
(5) Full program design authorization supports the Port’s LEAN objectives by reducing
both time and document preparation for repeat design authorizations.
Cons:
(1) Higher capital spending.
(2) Airport/Airline operational impacts during construction.
This is the recommended alternative.
FINANCIAL IMPLICATIONS
Total CIP estimate includes: construction bid estimate, design development allowance,
escalation, construction contingency, sales tax, maintenance and Port construction support,
soft costs, and project contingency.
The anticipated FAA grant reimbursement as detailed in the 2019 FAA ACIP is $49,400,000. The
pavement and utilities construction if packaged together as proposed by this program will have
an approximate FAA eligible cost of up to $81,000,000, should additional FAA grant funding
become available.
COMMISSION AGENDA – Action Item No. _6c_ Page 6 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
FAA eligible items are limited to bid items meeting FAA specifications within discernible,
previously identified apron and taxiway replacements. It excludes maintenance and repair,
individual panel replacements, force account, change orders, rapid-set, stand-alone utility
replacement, contingency, and sales tax.
Cost Estimate/Authorization Summary
Capital
Expense
Total
COST ESTIMATE
Original estimate
$72,649,000
$0
$72,649,000
Previous changes – net CIP transfers
($15,200,000)
0
($15,200,000)
Current change
$98,851,000
0
$98,851,000
Revised estimate
$156,300,000
0
$156,300,000
AUTHORIZATION
Previous authorizations
$295,000
0
$295,000
Current request for authorization
$16,000,000
0
$16,000,000
Total authorizations, including this request
$16,295,000
0
$16,295,000
Remaining amount to be authorized
$140,005,000
$0
$140,005,000
Annual Budget Status and Source of Funds
This project C800930 Airfield Pavement Program was included in the 2019-2023 capital plan
with a cost estimate of $72,649,000. The revised estimate includes the overall airfield
pavement and support infrastructure program. The cost increase has been transferred from the
Aeronautical Reserve CIP (C800753); resulting in no net change to the Aviation capital budget.
The funding sources will be the Airport Development Fund, AIP grants, and revenue bonds. The
cost-per-enplanement calculation below assumes $49.4 million in AIP grants.
Financial Analysis and Summary
Project cost for analysis
$156,3000,000
Business Unit (BU)
Airfield Movement Area and Airfield Apron Area
Effect on business performance
(NOI after depreciation)
NOI after depreciation will increase
IRR/NPV (if relevant)
N/A
CPE Impact
Approximately $0.07 annually, or $0.36 total by 2026
ADDITIONAL BACKGROUND
Previous five-year pavement replacement programs have focused on individual panel repairs
and replacement – all as part of the required pavement management program – but did not
serve as a holistic program for maintaining the overall airfield pavement system. Previous
program projects have not been covered by federal grant funding. Age has caught up with
Airport pavement and a more robust pavement replacement is now required above and beyond
COMMISSION AGENDA – Action Item No. _6c_ Page 7 of 7
Meeting Date: October 22, 2019
Template revised June 27, 2019 (Diversity in Contracting).
individual panel repair and replacement. Extensive review and identification of the 2021-2025
Airfield Pavement and Supporting Infrastructure Replacement Program is in alignment with and
has been submitted to the FAA’s five-year ACIP look ahead program.
ATTACHMENTS TO THIS REQUEST
(1) Presentation slides
PREVIOUS COMMISSION ACTIONS OR BRIEFINGS
2016-2020 Pavement Replacement Program
October 9, 2018 – The Commission authorized design funds for construction documents for
replacement of distressed pavement and related utilities in the 2019 portion of the
2016-2020 Airfield Pavement Program.
November 14, 2017 – The Commission authorized advertisement and execution of a single
construction contract which included the 2018 Airfield Pavement Replacement as part
of the 2018 Taxiway Improvement Projects and approved non-use of PLA.
May 9, 2017 – The Commission authorized design funds for construction documents for
replacement of distressed pavement and joint sealant replacement in the 2018 portion
of the 2016-2020 Airfield Pavement Program, and approved use of PLA.
October 25, 2016 – The Commission authorized advertisement and execution of contract
for retrofits of 400 Hz In-ground power units and reconstruction of existing pavement at
Cargo 2.
February 24, 2015 – The Commission authorized design funds for construction documents,
for replacement of distressed pavement and joint seal in the 2016 portion of the 2016-
2020 Pavement Program.