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CITY OF GLENDALE, CALIFORNIA
REPORT TO THE CITY COUNCIL
AGENDA ITEM
Report: The Public Works Department (PWD) Pavement Management Program (PMP) - 2025 Update
1) Motion to note and file the PMP Report
COUNCIL ACTION
Item Type: Action Item
Approved for April 28, 2026 calendar
EXECUTIVE SUMMARY
Glendale maintains approximately 378 miles of roadway and 27 miles of alleys, representing one of the city’s largest public assets with an estimated replacement value of approximately $840.6 million. The PMP uses modern data collection technologies to evaluate roadway conditions and guide pavement rehabilitation priorities.
The most recent PMP indicates an overall Pavement Condition Index (PCI) of 65, reflecting a network in fair condition and a change from the PCI of 72 reported in the previous cycle five years ago. The analysis estimates that restoring the entire network to optimal condition would require approximately $238 million.
This report presents the latest PMP and updated PCI results, current and planned project delivery, and planning-level scenarios illustrating projected network condition under a range of investment levels over the next five years.
RECOMMENDATION
Approve the motion to note and file the PWD report on the PMP.
ANALYSIS
History and Background
Roadways are among the city’s largest capital assets. Historically, resurfacing and reconstruction decisions have relied primarily on field expertise. The growing demands on the street network, aging infrastructure, constrained revenues, and adopted policy commitments require a data-driven approach so that the right treatments are applied to the right street at the right time. The PMP provides discipline through routine condition 10c2
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surveys, a central database, and planning level scenario tools that help identify the most cost-effective preservation strategy.
The PMP provides staff and decision-makers with a current roadway inventory, segment-level PCI results by pavement type and roadway classification, prioritized project candidates, and forecast tools. It assigns a PCI from 0 to 100 for each roadway segment (0 for failed streets to 100 for newly paved streets) and recommends the most cost-effective maintenance and repair strategy at the segment level. At the network level, the PMP optimizes life-cycle return on investment by prioritizing preservation to keep pavement in the most cost-effective portion of the life-cycle curve, rather than relying on a “worst-first” approach, meaning the PMP recognizes preservation of existing street conditions in addition to addressing the segments in the worst condition.
Figure 1: PCI Rating Scale
This approach translates into a work plan that realizes substantial cost differences between early preservation and late rehabilitation or reconstruction. When pavement is still in good-to-fair condition (PCI 56 to 100), preservation can extend service life at a relatively low cost and help keep more lane-miles within the preservation window. If work is deferred until pavement deteriorates into poor condition (PCI less than 55), more intensive rehabilitation is typically required, increasing cost, construction duration, and disruption. In practical terms, treating streets earlier typically lends itself to addressing more streets per dollar than waiting until streets fail.
Failed
(0-10)
Serious
(11-25)
Very Poor
(26-40)
Poor
(41-55)
Fair
(56-70)
Satisfactory
(71-85)
Good
(86-100)PCI
0 20 40 60 80 100
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Figure 2: Pavement Condition vs. Rehabilitation Cost Over Time Building on this framework, Glendale has prepared PMPs for more than two decades.
Since 2020, the PWD has modernized its data collection using Laser Crack Measurement Systems (LCMS), Light Detection and Ranging (LiDAR), and 360-degree imaging across the entire roadway network. The 2021 and 2025 PMPs generated objective PCI scores for every segment, providing a more accurate and consistent assessment of pavement conditions. This represents a significant improvement over prior PMPs, which relied on windshield surveys that are visual evaluations by the human eye performed from a slow-moving vehicle that were inherently more subjective and less data-driven than today’s automated technologies.
After data collection and development of the PCI maps, the next step is to develop an implementation plan. When developing pavement projects, the PMP uses a PCI-based approach to recommend treatments that match pavement condition, roadway classification, and surface type. In general, lower-cost preservation treatments are most effective when applied while pavement remains in good-to-fair condition, while more intensive rehabilitation or reconstruction is typically required once pavement deteriorates into poor condition. Furthermore, recommendations are evaluated and refined corridor by corridor.
Since the PMP outputs are generated at the segment level and may identify multiple treatment types along a single corridor, staff consolidate recommendations to limit the number of treatment types within a package and apply them across adjacent segments where appropriate. This approach captures economies of scale, reduces mobilizations, streamlines traffic control, and improves bid competitiveness. Bundling PMP projects
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also helps deliver improvements across multiple neighborhoods while maintaining alignment with pavement condition priorities.
Our Network Today
Arterial and collector streets carry regional and citywide trips and support emergency response, schools, transit, goods movement, and neighborhood access. Residential streets provide front-door access, on-street parking, traffic calming, and connections to schools and parks. Alleys serve refuse collection, deliveries, utility access, and rear-lot circulation.
Glendale’s current network PCI is 65. A PCI of 65 generally reflects a network in fair condition, where preservation is still a cost-effective approach on many segments. The roadway system’s estimated replacement value is about $840.6 million, and the one- time cost to return the network to target condition as identified in the PMP is approximately $238 million.
As indicated in the History and Background section, a change in methodology was implemented in the PMP. This change has contributed to the decrease in overall PCI from 72 to 65. The shift from subjective visual assessments to more rigorous, objective measurement methods allow for the identification of a broader range of surface distresses with greater accuracy, which has partially influenced the lower PCI values.
However, this methodological change is not the primary driver of the decline. The decrease more accurately reflects the continued aging and deterioration of the pavement network, as well as the current level of funding allocated toward pavement rehabilitation.
Figure 3: Glendale PCI History
73 74.6 76.2 73.8 72
65 0
10 20
30 40
50 60
70 80
90 100
2007 2010 2012 2015 2020 2025
PCI
Year
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Figure 4: Roadway Mileage and Average PCI by Functional Classification Compliance With Adopted Plans and Policies
PMP implementation projects are planned and delivered in compliance with adopted plans and policies, including the Roadway Design Policy, Local Roadway Safety Plan, Bicycle Transportation Plan, Pedestrian Master Plan, Safe Routes to School, Vision Zero, the ADA Transition Plan, Complete-Streets policies, MS4 and Green Streets requirements, traffic signal and operations plans, the Wastewater Master Plan, and the Storm Drain Master Plan. Projects are also coordinated with transit-priority initiatives such as planned Bus Rapid Transit corridors, and with Glendale Water and Power, SoCalGas, and telecommunications utilities, to integrate or sequence pavement work with utility improvements and minimize rework.
Furthermore, Installing or rehabilitating concrete curb and gutter where needed is also a significant component of the work to restore proper drainage, reduce standing water, and address public-health and vector-control concerns. These improvements generally precede or accompany the pavement rehabilitation projects. These projects, primarily ADA and sidewalk repairs, are necessary to complete before pavement work. However, they require significant staff time and funding, which reduces the resources available for other efforts and does not improve the overall network PCI.
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Planning Scenarios
The PMP includes planning scenario modeling to illustrate how overall network PCI could change over the next five years under different annual investment levels, as shown in Figure 5 and summarized below:
“Baseline” scenario indicates a continued decline in network PCI to approximately 60 in five years if no PMP implementation investment is made and no pavement preservation or rehabilitation projects are constructed. This scenario is not practical and is included for planning comparison purposes only, to illustrate the ongoing need for pavement investment to avoid further deterioration and need for greater investment in the long run.
“Current Annual Investment of Approximately $3 Million” scenario reflects the approximate current investment level of the City’s Gas Tax Fund, leading to a downward trend of the PCI to approximately 62 within five years. This suggests the current annual investment may slow but not fully offset the overall network PCI decline over that time period. “$9.72 Million Budget to Maintain PCI 65” scenario generally maintains network condition near current levels over the five-year period and results in an overall PCI of approximately 65 at the end of the five-year program. This scenario reflects a more preservation-focused approach that reduces near-term deterioration.
“$22.3 Million Budget to Achieve PCI 72” scenario illustrates PCI increases to the low-70s by the end of the period, indicating substantial improvements in the pavement condition over time.
It should be noted that these estimates are planning level and reflect pavement rehabilitation expenditures associated with PMP recommended treatments only. They do not include other project components that are often required and delivered alongside paving, such as concrete and ADA work, signals and traffic devices, utility adjustments, or other corridor improvements.
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Planning Scenarios
Figure 5: Projected PCI Over the Next Five Years Under Various Budget Scenarios Cost Escalation Reality
The budget figures above are stated in 2025 dollars and not adjusted for long term inflation. In practice, construction costs are incurred during the year in which work is performed and are subject to annual escalation driven by labor, materials, and market conditions. PWD applies a compound escalation rate of 4.5 percent per year for multi- year program planning. At this rate, a project budgeted at $10 million in January 2025 would require approximately $10.5 million if delivered in the current fiscal year, $10.9 million in FY 2027, $11.4 million in FY 2028, and $13 million if deferred to FY 2031.
Applied across the full five-year program, escalation adds approximately $2.9 million to the $3 million scenario, $9.5 million to the $9.72 million scenario, and $21.7 million to the $22.3 million scenario. These cost increases occur regardless of project scope, while at the same time, the pavement condition continues to decline, thus requiring a greater investment to achieve the same PCI outcome. Therefore, ongoing deferral is not a cost-neutral decision.
City’s Gas Tax Fund
Projects focused primarily on pavement preservation and rehabilitation rely mainly on Highway User Tax Account (HUTA), Gas Tax, and Senate Bill 1 (SB1) Road Maintenance and Rehabilitation Account (RMRA), which make up the City’s Gas Tax Fund, account for approximately $10 million per year.
Maintaining a current, data-driven PMP supports SB1 accountability by informing annual project lists and year-end reporting under the California Transportation Commission’s Local Streets and Roads Program and by providing a transparent basis for pavement investment decisions. Of the approximately $10 million in annual HUTA and SB1
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receipts, a portion is allocated to support ADA and sidewalk programs, non-PMP infrastructure obligations, and program delivery overhead, leaving approximately $3 million per year in direct pavement rehabilitation.
To help close the funding gap, staff leverage subregional agency funds allocated to the city, pursue competitive external grant opportunities, and program recurring regional local return revenues allocated to Glendale. These funding sources are strategically combined to support predictable, multi-year pavement programs aligned with annual PMP implementation. When additional funds are secured, staff can accelerate project delivery, which helps maintain or improve the overall network PCI.
Past 5-Year Projects
Over the past five years, PWD has delivered a significant number of roadway and corridor improvement projects consistent with PMP priorities and incorporating other adopted plans. As listed in Exhibit 2, a total of 20 projects were completed, representing a combined construction contract value of approximately $97 million.
In addition to advancing PMP initiatives, these completed projects included various related improvements such as concrete sidewalk repairs and ADA upgrades, sewer and storm drain improvements, traffic signals, striping and pavement markings, green infrastructure, and other related elements. Of the total amount spent, approximately 14%, or about $14 million, was estimated to be directly attributable to pavement rehabilitation and asphalt improvements, resulting in an average delivery of approximately $3 million in pavement improvements.
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Figure 6: Last Five Years’ Average Distribution of Expenditure for PMP Projects Future Considerations for the Next PMP
PWD is in the process of issuing a new Request for Proposals (RFP) to develop the next round of the PMP and staff is evaluating additional measures to help protect the city’s pavement investment and improve long-term program performance. These future considerations may include strengthening trench moratorium enforcement for newly paved streets so that pavement cuts are limited and violations are tracked and enforced; improving pre-paving coordination with public and private utilities so that utility work is completed before resurfacing whenever feasible by holding them accountable for completing the work in time; updating trench restoration standards to help ensure that repairs more closely match surrounding pavement quality and extend service life tied to pavement conditions; and continuing to refine project packaging and unit-cost tracking practices to support competitive bids, efficient delivery, and maximum pavement coverage.
These measures would not replace the need for continued pavement investment, but they could help improve the durability, cost-effectiveness, and long-term value of the city’s roadway infrastructure. Staff expect these topics to be important considerations as future PMP updates and related implementation strategies are developed.
Asphalt Pavement
14%
Concrete Improvement
22%
Green Improvements
16%
Sewer and Stormwater
10%
Striping and Traffic
Signal
29%
Misc. Improvements
9%
Asphalt Pavement Concrete Improvement Green Improvements Sewer and Storwater Striping and Traffic Signal Misc. Improvements
TOTAL SPENT
$97 million
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Conclusion
The anticipated five-year CIP reflects a substantial delivery commitment. PWD has planned 35 projects to advance PMP delivery goals, 25 of which have identified funding sources, representing approximately $63 million in PMP-targeted pavement investment as part of a broader CIP program portfolio. This funded program presents a strong opportunity to maintain the overall network PCI and roadway conditions over the next five years.
PWD will continue to advance these projects through planning, design, and construction using efficient project sequencing and supplemental delivery strategies, including alternative delivery methods, on-call contracts, staff augmentation, and consultant support, to maximize delivery and ensure that available funding is converted into completed improvements.
STAKEHOLDERS/OUTREACH
PWD will continue to maintain the public-facing web maps on the department’s website and provide the PMP updates, including pavement conditions, planned and completed work, treatment types, funding sources, and schedule windows.
The department’s interactive GIS map will display PCI by street segment, the upcoming year work plan, and construction moratorium information, allowing residents to search by address or location and view projects planned as part of the CIP. Project-level information will also be posted on the project-dedicated webpage for each project individually.
FISCAL IMPACT
There is no fiscal impact associated with noting and filing this report.
ENVIRONMENTAL REVIEW (CEQA/NEPA)
Not applicable for this report.
CAMPAIGN DISCLOSURE
Not applicable for this report.
ALTERNATIVES TO STAFF RECOMMENDATION
Since this report is structured as informational, no staff recommendations or alternatives are included aside from a motion to note and file.
ADMINISTRATIVE ACTION
Submitted by:
Daniel Hernandez, Director of Public Works
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Prepared by:
Sarkis Oganesyan, P.E., Assistant Director of Public Works/City Engineer Armen Avazian, P.E., Principal Civil Engineer
Viktoriya Pakhanyan, P.E., Senior Civil Engineer
Rustom Tavitian, P.E., Senior Civil Engineer
Approved by:
Roubik R. Golanian, P.E., City Manager
EXHIBITS/ATTACHMENTS
Exhibit 1: PMP Report
Exhibit 2: List of Past 5-Year CIP
Exhibit 3: PMP GIS web map (available online): glendaleca.gov/PWPCIMap Exhibit 4: CIP GIS web map (available online): glendaleca.gov/PWCIPMap Exhibit 5: Moratorium Streets GIS web map (available online):
glendaleca.gov/PWStreetMoratorium