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IMAGE 1 – PROJECT LOCATION – AERIAL
GENERAL PLAN/ZONE
The General Plan land use and zoning designation(s) for the Project site are EDC-SG which is intended to provide economic vitality and flexibility in land use options to promote economic development along the City’s major corridors. For all EDC designated areas across the City, the intent is to identify areas where a mixture of residential, commercial, office, civic, industrial, entertainment, educational, and/or recreational uses or other uses are planned. The EDC areas citywide are envisioned to develop primarily as nonresidential uses, with residential uses playing a supporting role. The unique site layout and mix of building sizes provides opportunities for a range of business park uses, including manufacturing uses, as well as service commercial uses along the Zeiders Road frontage.
Immediate surrounding General Plan Land Use designations within the City of Menifee are also EDC-SG to the north, south and east. Properties to the west of the Project site have a designation of Rural Residential (RR2). Properties in the area have historically been used for dry farming operations. The proposed Project is consistent with surrounding land use designations and the intent of the EDC designation.
Item Title: 11.1
Appeal of Planning Commission Decision for the Menifee (Pemcor) Business Park Project Item Page Number: 542
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February 4, 2026
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IMAGE 2 – GENERAL PLAN/ZONING MAP
The approval of a plot plan application is required for a business park use in the EDC-SG zone.
The proposed Project/use is consistent with the underlying zoning and allowable use table. The surrounding land use designations and existing uses can be found in table form below.
TABLE 1 – LAND USE DESIGNATIONS
Location Existing Land Use General Plan Land Use Zoning Classification North Residential/Agriculture EDC-SG EDC-SG
East Industrial EDC-SG EDC-SG
South Residential/Agriculture EDC-SG EDC-SG
West Residential Rural Residential (RR2) Rural Residential (RR2) Item Title: 11.1
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DISCUSSION
The Project Applicant submitted for a Pre-Application Review (PAR) on March 8, 2023, to solicit feedback from the City on the proposed Project. The initial application consisted of six buildings with a maximum building size of 80,000 square feet. After collaborating with City staff, the Applicant revised the Project and submitted an official application on December 21, 2023. The revised site plan consisted of 11 buildings (opposed to six with the PAR) with a maximum building size of 37,840 square feet.
IMAGE 3 – PAR SITE PLAN
The proposed business park project involves the development of 337,770 square feet of building area, which would be spread across 11 buildings. The entire 20.03-acre site would be graded and the portions of the site not developed with buildings would either be landscaped or hardscaped (e.g., parking or sidewalks). Two buildings will front on to Zeiders Road and three buildings will face Howard Way; the remaining six buildings will be centrally located, with three buildings facing the north and south project boundary, creating an internal truck court. The buildings range in size from 23,100 square feet to 37,840 square feet and feature two truck dock bays each, that would be oriented toward the center of the site (a total of 22 truck docks at the site). The truck courts will not be visible from adjoining streets or neighboring properties.
Item Title: 11.1
Appeal of Planning Commission Decision for the Menifee (Pemcor) Business Park Project Item Page Number: 544
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February 4, 2026
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IMAGE 4 – PROPOSED SITE PLAN
Circulation and Parking
Regional Project access would be from I-215 via Scott Road Interchange, and eventually Zeiders Road. Local access to the site would be provided via two driveways on Zeiders Road. The southern driveway would provide truck and passenger car access to the site and would be a shared driveway with the southern property owner; while the northern/central driveway would only provide access to passenger vehicles. Due to site layout, trucks would travel from the southern driveway, through the drive aisle that runs through the middle of the site, to their building destination. The Project does not include vehicular access from Howard Way.
The City of Menifee Development Code outlines the parking requirements for the Project, as demonstrated in the table below. The Project meets and exceeds the City’s minimum parking requirements.
TABLE 2 – PARKING
Parking Summary
Industrial Uses Building SF Parking Spaces
Office: 1:250 SF 84,443 SF 338
Fabrication Area: 1:500 SF 50,666 SF 102
Storage Area: 1:1,000 SF 202,662 SF 203
Minimum Required 643
Total Provided 677
Using the City’s Parking and Loading Standards, the Project requires 643 parking spaces. The Project includes a total of 677 proposed off-site parking spaces, evenly distributed throughout the site. The Project does not include designated truck trailer parking stalls.
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Infrastructure Improvements
Onsite and Frontage Improvements
The Project Applicant would be responsible for the construction of public infrastructure improvements. Zeiders Road would be improved along the Project frontage to a Major Divided Roadway per the City’s Circulation Element. The required improvements shall include the construction of appropriate pavement transitions from the new improvements to existing improvements beyond the Project frontage.
The southern driveway will be a full access driveway, with a modified traffic signal and shared access with the parcel to the south. The northern driveway shall be restricted to right-in, right-out movements only. Truck circulation also should not utilize this driveway. Driveways shall be constructed to City Standard No. 208.
Howard Road is classified as a Rural Collector Roadway along the Project’s western frontage.
Given that Howard Road is not proposed to be utilized by the Project for circulation, the Public Works Director / City Engineer may opt to accept payment in-lieu of physical construction.
Road and Bridge Benefit District (RBBD), Fair Share Contributions, and Other Improvements The Project has also been conditioned to pay RBBD fees based on the designated land use and areas prior to the issuance of occupancy.
Fair share cost participation would be required for off-site intersections including Zeiders/Haun Road at Scott Road intersection and Menifee Road and Scott Road intersection. Utility improvements would be constructed, which includes new water lines, recycled water lines, sewer, and storm drain lines.
Landscaping
Landscape standards for the Project are outlined in the City’s Development Code. A minimum of ten percent of the Project site must be landscaped per the EDEC requirements. Irrigated onsite landscaped areas for the Project site would total approximately 115,976 square feet (13 percent of the site) and would be comprised of drought-tolerant shrubs and groundcover and evergreen and deciduous trees. The conceptual landscape plan includes trees at the perimeter, street frontages, parking areas, and adjacent to the building to soften the edges of the development and the proposed building.
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IMAGE 5 – CONCEPTUAL LANDSCAPE PLAN
The landscape and architectural plans feature site amenities that coordinate and complement the proposed Project. The buildings are separated by no less than 26-feet and include outdoor break areas with decorative paving, benches, tables, bike racks, and trash receptacles for employees and guests/customers. The primary driveway entrance has been enhanced with a wide driveway approach (30-feet) and an increase in entryway landscaping.
IMAGE 6 – ENHANCED LANDSCAPE VIEW – BETWEEN BUILDINGS
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IMAGE 7 – ENHANCED LANDSCAPE VIEW – ENTRY
Screening
The Project includes a six-foot-tall decorative block wall along the western boundary to assist in screening the proposed business park project from the adjacent residential properties. The wall will reduce visual impacts of the proposed Project, as well as possible noise impacts. The proposed block wall will run the entire 662-foot span from north to south and will match the color scheme of the business park project. Vines will be planted along the screen wall to soften the long-term appearance.
IMAGE 8 – SECTION, BLOCK WALL
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The Project includes dense perimeter landscaping to assist in screening the Project site and the parking stalls from adjacent land uses. Dense landscape hedges are provided between the parking stalls and the property line in the northwest corner of the Project site to to help screen headlights from the existing residential use to the north, in the EDC-SG Zone.
As shown in the conceptual landscape plan, the intent is to provide landscape coverage with a variety of trees, shrubs and ground cover to soften the wall and to provide a more aesthetically pleasing street scene on the project frontages.
IMAGE 9 – ENHANCED VIEW, NORTHWEST CORNER
Elevations
The proposed buildings have unique design features as well as shared architectural elements with approved developments within the City to provide for compatible development. There are complementing roof forms, colors, and materials. The various colors include white, multiple variations of gray and porcelain tile with a wooden appearance. The buildings will include significant glazing as well as tube steel canopies over the building entrances and a concrete “eyebrow” highlighting the prominent elevations along Zeiders Road. Visual interest is maintained throughout the Project by enhancing architectural detailing and façade articulation along all building elevations to reduce any large blank sections of walls. As previously mentioned, each building contains two truck bay doors, which are strategically cut into the buildings to assist in hiding from adjacent properties. The building heights are 38 to 40 feet above ground level.
IMAGE 10 – ARCHITECTURE
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IMAGE 11 – BUILDINGS J & K – ZEIDERS ROAD
IMAGE 12 – BUILDINGS A, B, C – HOWARD WAY
IMAGE 13 – BUILDINGS D – I (INTERNAL)
Item Title: 11.1
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Industrial Good Neighbor Policies
On March 2, 2022, the City Council adopted the Industrial Good Neighbor Policies. The focus of the policies can be summarized in three sections:
1. Minimize impacts to sensitve uses (residential, schools, parks, nursing homes, hospitals)
2. Protect public health, safety and welfare by regulating design, location and operations
3. Protect neighborhood character of adjacent residential communities Although the proposed Project is not a warehouse distribution facility project, in which the Good Neighbor Policies were intended for, the Project does comply with and is consistent with the requirements. Implemented policies include added landscape buffers, screen walls, improved building design, community outreach, increased building and loading dock setbacks, on-site truck queuing, on-site signage, and environmental mitigation measures.
Menifee Innovation District Specific Plan (MIDSP)
The City has undertaken an effort to establish an Innovation District Specific Plan for the surrounding properties within the EDC-SG area. The City initiated the MIDSP effort to develop a vision for a thriving innovation district at the City’s southern gateway west of the I-215 freeway.
The approximately 375-acre area proposed for the MIDSP is bounded by Scott Road to the north, the I-215 Freeway to the east, Keller Road to the south and Howard/Nancy Road to the west.
IMAGE 14 – MIDSP BOUNDARY
The goal of the MIDSP is to serve as an economic development effort aimed at diversifying the City's local economy while addressing job creation for the region. Since the beginning of the MIDSP effort, the City has conducted community outreach consisting of community workshops, Item Title: 11.1
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Planning Commission/City Council interviews, a design charrette and a joint Planning Commission/City Council workshop to develop and proceed with a vision for the MIDSP. The MIDSP intends to advance Menifee’s future through a Health and Med Tech Innovation District and directly addresses the questions and concerns regarding jobs-housing balance, fiscal sustainability, infrastructure obligations, and the need for bold leadership to elevate Menifee beyond a bedroom community. Work efforts on the MIDSP are an on-going effort. The proposed project would be complimentary to the MIDSP project.
ENVIRONMENTAL DETERMINATION
Notice of Preparation (NOP)
On July 24, 2024, the City of Menifee publicly noticed its decision to prepare an Environmental Impact Report (EIR) and hold a public scoping meeting for the Project by noticing the California Governor’s Office of Planning and Research, now known as the Office of Land Use and Climate Innovation (LCI) (SCH/LCI No. 2024071016) and distributed the NOP to various agencies and surrounding property owners and residents in accordance with California Environmental Quality Act (CEQA) requirements. The NOP review period was from July 24, 2024 to August 22, 2024.
City staff held an environmental scoping meeting on Wednesday, July 31, 2024 at City Hall to discuss the Project and to receive comments from the public. No members of the public attended outside the Project Applicant and Mayor Estrada. The purpose of the NOP is to solicit feedback on areas of environmental concern from interested/affected parties. Written comments were received from the following:
oSouthern California Gas Company (SoCal Gas)
oRiverside Transit Agency (RTA)
oRiverside County Flood Control District (RCFC)
oEastern Municipal Water District (EMWD)
oSouth Coast Air Quality Management District (SCAQMD)
oAndrew and Sharon Johnson
EIR Impacts
Within the EIR that has been prepared for the Project, mitigation measures are provided under the categories of Air Quality, Biological Resources, Greenhouse Gas Emissions, Hazards and Hazardous Materials and Noise. The EIR determined that the Project could result in significant and unavoidable impacts in Greenhouse Gas Emissions based on the analysis and findings in the Draft EIR and requires adoption of a Statement of Overriding Considerations (SOC).
Draft EIR Public Review
The City distributed the Draft EIR for public review beginning September 2, 2025 and ending October 16, 2025. For the Draft EIR 45-day comment period and public hearings, property owners and non-owner residents within 1,000 feet of the Project boundary were mailed notices at each step of the Project (scoping meeting, Draft EIR comment period, public hearing). During the public review period, comments on the Draft EIR were received from the following agencies, organizations, or individuals:
Agencies
oAirport Land Use Commission (ALUC)
oRiverside County Department of Waste Resources
Item Title: 11.1
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oSouth Coast Air Quality Management District (SCAQMD)
oRiverside County Flood Control District (RCFC)
oRiverside Transit Agency (RTA)
Organizations
oSupporters Alliance for Environmental Responsibility (SAFER) oGolden State Environmental Justice Alliance
Individuals
oAndrew and Sharon Johnson
The City prepared a Final Environmental Impact Report (FEIR), consisting of all comment letters received during the 45-day public review and comment period on the Draft EIR, written responses to those comments, and revisions and errata to the Draft EIR. The FEIR was distributed to the Draft EIR commenters 10 days prior to the Planning Commission hearing. The FEIR, and Draft EIR, including technical appendices can be accessed for review on the City website at https://www.cityofmenifee.us/325/Environmental-Notices-Documents.
Findings of Fact and SOC
Because the EIR identified unavoidable significant adverse impacts that could not be mitigated below the level of significance, Findings of Fact and a SOC are required to approve the Project.
The Findings of Fact and SOC are included within the resolution for the EIR for consideration by the Planning Commission.
FINDINGS
Findings for the FEIR and PP No. PLN24-0245 are included in the attached Resolutions.
PUBLIC NOTICE
The proposed Project was noticed on November 2, 2025, for the November 12, 2025, Planning Commission public hearing. A public notice was published in The Press Enterprise and notices were mailed to property owners and non-owner residents within a 1,000-foot radius of the Project site. The proper public notice was posted on-site, and in addition, all relevant public agencies and those requesting notification were notified of the public hearing.
ATTACHMENTS
1. Project Exhibits/Plans
2. Resolution – EIR
3. Exhibit A – FEIR
4. Exhibit B - MMRP
5. Exhibit C – Findings of Fact
6. Resolution – Plot Plan
7. Exhibit A – Conditions of Approval
8. Public Hearing Notice
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NOTICE OF PUBLIC HEARING
TIME OF HEARING:6:00 p.m. or as soon as possible thereafter.
DATE OF HEARING:January 21, 2026
PLACE OF HEARING:MENIFEE CITY COUNCIL CHAMBERS
29844 HAUN ROAD MENIFEE, CA 92586
A PUBLIC HEARING has been scheduled, pursuant to the City of Menifee Municipal Code, before the CITY OF MENIFEE CITY COUNCIL to consider the project shown below:
Project Title:
Appeal Nos. PLN25-0208 and PLN25-
0210 for the Menifee (Pemcor) Business
Park Project - Plot Plan PLN23-0245
Project Location:
The project site is located at 33521 Zeiders
Road, between Howard Way and Zeiders
Road, in the southern portion of the City of
Menifee. (Assessor’s Parcel Number {APN}
384-150-001)
General Plan Land Use and Zoning:
Economic Development Corridor Zone –
Southern Gateway (EDC-SG)
The City Council will consider the
following project at a public hearing:
On November 12, 2025, the Planning Commission held a duly noticed public hearing and voted to approve Plot Plan No. PLN23-0245 along with the related environmental analysis (Project). On November 19th and November 20th, 2025, the City received applications to appeal the November 12th, 2025 Planning Commission decision to the City Council.
Plot Plan (PP) No. PLN23-0245 Menifee (Pemcor) Business Park Project proposes a commercial/industrial business park development consisting of eleven single-story buildings ranging in size from approximately 23,100 square feet to 37,840 square feet (total 337,770 square feet) on approximately 20-acres. The project site is zoned Economic Development Corridor – Southern Gateway (EDC-SG). The anticipated end users are expected to provide services ranging from industrial and manufacturing users to service commercial and office (tenants are not known at this time). Each building includes two (2) dock-high doors for a total of 22 for the entire project.
The project proposes 677 parking spaces and 121,879 square feet (15%) of irrigated landscaped area. The applicant is proposing approximately 53,300 cubic yards of grading. Furthermore, the project includes two (2) driveways along Zeiders Road with the southernmost driveway being signalized and aligning with Scott Road Commerce Center.
Environmental Information:
A Notice of Availability of the Draft Environmental Impact Report (DEIR) was published in The Press Enterprise on September 2, 2025, mailed to responsible and trustee agencies, and mailed to surrounding property owners Item Title: 11.1
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within 1,000 feet of the project site, stating that copies of the DEIR were available for public review with the Office of Land Use and Climate Innovation (LCI), on the City’s website and at the City of Menifee City Hall. The public review period was for the State-mandated 45 days, from September 2, 2025, through October 16, 2025.
Analysis presented in the Draft EIR indicated that the proposed project would have certain significant and unavoidable greenhouse gas impacts as described in detail in the DEIR. The DEIR also presented mitigation measures, which will reduce project-specific and cumulative impacts. All other environmental effects evaluated in the DEIR are considered less than significant, or can be successfully mitigated below the applicable significance thresholds.
The Final Environmental Impact Report (FEIR) responds to the comments and includes text revisions to the DEIR in response to input received on the DEIR. Unlike the DEIR, comments on the FEIR are not required to be responded to by the City. If written comments are received, they will be provided to the City Council as part of the staff report for the Project. The DEIR and FEIR will be submitted to the City Council for requested certification and action on the Project.
The DEIR and FEIR are available on the City of Menifee Community Development Department website:
https://www.cityofmenifee.us/325/Environmental-Notices-Documents. Additionally, a hard copy of the DEIR and FEIR can be viewed at:
Menifee City Hall - 29844 Haun Road, Menifee, CA 92586 The Project site is not included on a list of hazardous materials sites compiled pursuant to Government Code Section 65962.5 (California Department of Toxic Substances Control list of various hazardous sites).
Any person wishing to comment on the proposed project may do so in writing between the date of this notice and the public hearing and be heard at the time and place noted above. All comments must be received prior to the time of public hearing. All such comments will be submitted to the City Council, and the City Council will consider such comments, in addition to any oral testimony, before making a decision on the proposed project.
If this project is challenged in court, the issues may be limited to those raised at the public hearing, described in this notice, or in written correspondence delivered to the City Council at, or prior to, the public hearing. Be advised that as a result of public hearings and comment, the City Council may amend, in whole or in part, the proposed project. Accordingly, the designations, development standards, design or improvements, or any properties or lands within the boundaries of the proposed project, may be changed in a way other than specifically proposed.
For further information regarding this project, please contact Russell Brown, at (951) 723-3745 or e-mail [email protected], or go to the City of Menifee’s agenda web page at http://www.cityofmenifee.us. To view the case file for the proposed project contact the Community Development Department office at (951) 672- 6777 Monday through Friday, from 8:00 A.M. to 5:00 P.M. Please send all written correspondence to:
CITY OF MENIFEE COMMUNITY DEVELOPMENT DEPARTMENT
Attn: Russell Brown, Senior Planner
29844 Haun Road
Menifee, CA 92584
Item Title: 11.1
Appeal of Planning Commission Decision for the Menifee (Pemcor) Business Park Project Item Page Number: 599
Menifee Mayor and City Council
February 4, 2026
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CITY OF MENIFEE
SUBJECT: 2025-2030 Pavement Management Program Report Update MEETING DATE: February 4, 2026
TO: Mayor and City Council
PREPARED BY: Rex Caballero, Assistant Engineer
REVIEWED BY: Nick Fidler, Public Works Director
APPROVED BY: Armando G. Villa, City Manager
-------------------------------------------------------------------------------------------------------------------------------
RECOMMENDED ACTION
1. Approve the 2025-2030 Pavement Management Program Report prepared by Bucknam Infrastructure Group.
DISCUSSION
The City of Menifee’s Pavement Management Program (PMP) Report serves as a tool in developing roadway maintenance and repair strategies and provides a means to proactively plan and prioritize projects to improve the overall condition of the roadway network. The purpose of the PMP is to combine pavement condition data collected in the field with construction unit-costs within the computer model to monitor the condition of the City’s network of roadways and develop a roster of projects which provides the most benefit. Pavement is a dynamic structure where deterioration is constantly occurring. For this reason, the pavement management system must be regularly assessed and updated to reflect these changes in pavement conditions, pavement maintenance histories, and maintenance strategies. As was shared in the Urban3 presentation on December 17, 2025, in the City Council workshop, from a financial reporting perspective our roadway infrastructure is required to be categorized as an asset, however from a maintenance operation perspective our roadway infrastructure is definitely categorized as a liability requiring regular and routine funding and maintenance to efficiently and effectively maintain the quality of pavement conditions.
The City of Menifee developed its PMP in 2011 with the use of an automated database program and Geographic Information Systems (GIS). The PMP Report has been updated over the years to keep pace with the City’s growth and increased traffic demands on its roadway network, with the last update completed in 2021.
On September 18, 2024, the City Council approved a contract with Bucknam Infrastructure Group (Bucknam), to update the City’s PMP Report for the fiscal years 2025-2030. The City has Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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February 4, 2026
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City of Menifee Staff Report
2025-2030 Pavement Management Program Report
February 4, 2026
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approximately 397 centerline miles of paved roads within its roadway network, ranging from local rural roads to urban arterial roads and expressways. The overall condition of the City’s roadway network is evaluated by means of the Pavement Condition Index (PCI). The PCI is used to measure roadway condition on a scale from 0 (failed pavement) to 100 (new or recently rehabilitated pavement); a typical range of road conditions based on PCI ranges is shown in Figure 1 below.
FIGURE 1 – PAVEMENT CONDITION INDEX RANGES
Bucknam utilized cloud-based artificial intelligence (AI) technology to analyze the City’s most recent aerial images. This technology automatically identified different types of pavement and road features, such as asphalt, concrete, medians, and bus pads. Using this process, Bucknam accurately measured the total pavement area across the City. The process verified roadway limits and identified missing or new streets in order to update the City’s pavement management and GIS databases. Following AI verification, inspections are performed by Bucknam’s staff who walk each pavement section and visually record pavement damage based on nationally accepted standards. At least 20% of each road segment was evaluated to ensure reliable results. The data was collected in the field using tablet devices and uploaded directly to the City’s pavement management system, allowing for real-time access and quality control.
The 2025-2030 PMP Report update provides a current assessment of the City’s overall weighted average PCI for all the paved roads in its roadway network to establish an average Citywide PCI.
It also recommends maintenance strategies and funding estimates for the City’s roadway network for the five-year period.
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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The current Citywide PCI is 75.1, which is categorized as “very good.” The weighted average PCI for the roads ranging from Arterials and Collectors is 71.1, which is a 6% decrease from the previous PCI of 75.7 in the 2021-2022 PMP Report. Comparatively, the weighted average PCI for local roads is 77.7, which is less than a 1% decrease from the previous PCI of 77.9 in the 2021-2022 PMP Report. Summaries of the results of the 2025-2030 PMP Report update are provided in Figures 2 and 3 below and on the following page.
FIGURE 2 – ARTERIAL/COLLECTOR CONDITION DISTRIBUTION
FIGURE 3 – LOCAL CONDITION DISTRIBUTION
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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February 4, 2026
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The City’s Strategic Plan includes a goal of maintaining a Citywide PCI of 70 or higher, which reflects roadways in generally good condition. While this threshold meets the City’s minimum performance objective, it is recommended that the City strive to maintain its current Citywide PCI of 75. Maintaining a higher PCI would allow the City to focus on cost-effective preventative maintenance strategies such as crack sealing, slurry sealing, chip sealing, and resurfacing, rather than more expensive rehabilitation or reconstruction projects. To maintain a Citywide PCI of 75, the estimated average annual funding requirement is approximately $53 million. Proactively preserving pavement at the City’s existing PCI of 75 would slow deterioration and prevent repair costs from increasing significantly as pavement conditions decline. The funding that would be required to maintain the Citywide average PCI at a level of 75 can be found in Table 1 below, which includes both arterial and local roads.
TABLE 1 - ANNUAL FUNDING REQURIED TO MAINTAIN CITYWIDE PCI OF 75 Plan Year Resulting PCI Slurry/Cape Overlay/Recon Total $ Deferred Maint.
Current 75.1 $49,174,700
2025-26 76.7 $5,290,000 $5,383,000 $10,673,000 $50,415,700 2026-27 77.0 $3,342,000 $7,243,000 $10,585,000 $52,226,400 2027-28 77.0 $7,144,000 $3,466,000 $10,610,000 $57,105,800 2028-29 76.3 $7,580,000 $3,005,000 $10,585,000 $60,515,300 2029-30 75.8 $5,138,000 $5,409,000 $10,547,000 $62,788,900 $28,494,000 $24,506,000 $53,000,000
The 2025-2030 PMP Report and the funding needs outlined above do not consider project budgets that were adopted within the Fiscal Year (FY) 2025-2030 Capital Improvement Program (CIP). A total of approximately $19 million has been programmed for PMP projects in the adopted FY 2025-2030 CIP, which includes $8 million allocated in FYs 2025/2026 and 2026/2027, and just under $11 million planned for annual slurry seals and local road resurfacing projects in the subsequent three fiscal years.
Over the past five fiscal years, the City has programmed an average of $4 million annually for pavement maintenance efforts while prioritizing larger capital investments focused on traffic mitigation. As part of the broader CIP, the City has invested nearly $80 million in major transportation infrastructure to reduce congestion and improve connectivity, including installation of 11 new traffic signals ($7 million), various roadway widening projects ($19 million), and the construction of the Holland Road/I-215 Overcrossing Project ($32 million), and the Bradley Bridge over Salt Creek Project ($21 million).
Maintaining the City’s current PCI of 75 would require approximately $10.6 million in annual funding over the next five years. Without sustained investment, deferred maintenance would continue to increase, resulting in higher long-term costs and greater impacts to public safety and mobility. Staff are actively pursuing multiple funding sources, including Community Facilities Districts (CFDs), which collect dedicated neighborhood-level revenue but require time to accumulate sufficient reserves to fund pavement maintenance projects. Additional Citywide sources such as Gas Tax, Measure A, and Measure DD may be used to support larger resurfacing and rehabilitation projects. A combined approach using both local and Citywide funding sources is recommended to create a stable and sustainable pavement funding strategy.
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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February 4, 2026
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Using the pavement condition information included in the 2025-2030 PMP Report, staff would evaluate road maintenance improvement projects based upon their PCI rating, anticipated maintenance costs, funding availability, and infrastructure investment needs. This information would be presented to the City Council for consideration and prioritization as part of the five-year CIP. The next CIP budget workshop will be scheduled in the Spring prior to the FY 2026/27 mid- cycle budget update.
STRATEGIC PLAN OBJECTIVE
Connectivity and Mobility
FISCAL IMPACT
There is no cost associated with the acceptance of the 2025-2030 PMP Report Update. The PMP funding allocation recommendations based upon the findings for this report will be considered in combination with available funding and other capital and infrastructure investment needs during the five-year CIP budget workshop in Spring of 2026.
ATTACHMENTS
1. Citywide PCI Map
2. 2025-2030 PMP Report Update
3. PMP Presentation
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
Item Page Number: 5
Menifee Mayor and City Council
February 4, 2026
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Section II
City of Menifee, CA
2025 Pavement Management Program
Final Report – January 2, 2026
Figure 10 – 2025 Menifee PCI Map
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
Item Page Number: 6
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February 4, 2026
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FINAL REPORT
UPDATE OF
PAVEMENT MANAGEMENT PROGRAM
(Citywide)
2025-2030
Submitted to:
City of Menifee, CA
January 2, 2026, revised
100-21
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
Item Page Number: 7
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February 4, 2026
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July 11, 2025
Mr. Rex Caballero, EIT
Assistant Engineer
Public Works Department
29844 Haun Road
Menifee, CA 92586
Subject: Final Report - Update of the Pavement Management Program
Dear Rex:
As part of the 2025 Update of the Pavement Ma nagement System for the City of Menifee, Bucknam Infrastructure Group, Inc. is pleased to submit the Final Report for the City’s pavement network.
The information contained in this report was used to develop the recommended improvement program for the pavement network. The report covers the following categories:
• Section I - Executive Summary
• Section II - Pavement Management Program Development and Reporting
• Section III - Pavement Conditions For Each Segment in the Network, PCI Report The Pavement Condition Index report shows the present condition of each street in the pavement network. In addition, the report shows the basic geometry of each street segment.
• Section IV - Forecast Maintenance Reports
• Recommended Maintenance and Repair (M&R) Strategies
The recommended maintenance and repair strategies were used to generate the Forecast Maintenance & Rehabilitation (FMR) Report and were based on our 2024-25 inspections. Additionally, we have assessed and incorporated unit cost and maintenance application practices/types with our strategies.
• Projected Projects based on M&R Strategies
The FMR projects the street maintenance activities required for the next five years, broken down to show maint enance levels for Arterials and Local streets. The report included in this section is broken down by fiscal year.
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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Our thorough analysis of previous and current Menifee PMP strategies enabled our staff to make proactive recommendations to the City’s pavement CIP. It has been a pleasure working with you and the City on updating your Pavement Management Program. We look forward to the continued success of this project and future teamwork with City staff.
Sincerely,
Bucknam Infrastructure Group, Inc.,
Peter J. Bucknam
Project Manager
Infrastructure Management – GIS Services
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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City of Menifee, CA Page i
2025 Pavement Management Program
Final Report – January 2, 2026
TABLE OF CONTENTS
I. Executive Summary
A. Summary of City’s Pavement Network
B. Current Citywide Conditions
C. Maintenance / Rehabilitation Strategy Development
D. Annual Budget Projections
E. Quality Control Efforts
F. Findings and Recommendations
II. Pavement Management System-Capital Improvement Program A. Pavement Management Program Update - 2025
B. Maintenance / Rehabilitation Strategy Assignment Table C. Multi-Year CIP/M&R Work Program Projections
D. Condition Distribution Report
E. Calculation of PCI
F. Menifee MyRoads® PMP Web-Portal
III. Pavement Condition Index (PCI) Reports
A. PCI Report – Data Definitions
B. Citywide Menifee PCI Map - 2025
C. PCI Report; Sorted by Street Name (A to Z)
D. PCI Report; Sorted by PCI (0-100)
IV. Forecast Maintenance / Rehabilitation (FMR) Reports A. Increase PCI to 78 Forecast
B. Maintain PCI of 75 Forecast
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
Item Page Number: 10
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City of Menifee, CA Page ii
2025 Pavement Management Program
Final Report – January 2, 2026
Table and Figure Reference Page #
Figure 1 – Pavement Area by Street Classification Sec 1-2 Figure 2 – Historical Menifee PCI (FY 2016-2025) Sec 1-3 Figure 3 – PCI Distribution by Section Miles for All Streets Sec 1-4 Figure 4 – Sample Pavement Life Cycle / Deterioration Rate Sec 2-16 Figure 5 – Five-Year Projection of Maintain Budget (PCI of 75) Sec 2-20 Figure 6 – Five-Year Projection; Increase PCI to 78 Budget Sec 2-22 Figure 7 – PCI Calculation Worksheet Sec 2-25
Figure 8 – Arterial / Collector Condition Distribution Sec 2-26 Figure 9 – Local Condition Distribution Sec 2-26
Figure 10 – 2025 Menifee PCI Map Sec 3-30
Table 1 – Present and Historical PCI Results Sec 1-3 Table 2 – Condition Distribution by Mileage for All Streets Sec 1-4 Table 3 – Necessary Annual Funding to Maintain PCI at 75 Sec 1-9 Table 4 – Necessary Annual Funding to Increase PCI to 78 Sec 1-9 Table 5 – PCI Conditional Ranges Sec 2-14
Table 6 – Maintenance Strategy Assignments Table Sec 2-15 Table 7 – Citywide CIP Projection to Maintain PCI at 75 Sec 2-19 Table 8 – Necessary Annual Funding to Increase PCI to 78 Sec 2-21
Acronym Listing
Army Corps of Engineers (USACE)
Asphalt Concrete (AC)
Asphalt Concreate over Existing AC (AAC)
Asphalt Rubber Hot Mix (ARHM)
Capital Improvement Program (CIP)
Geographic Information System (GIS)
Government Accounting Standards Board Statement 34 (GASB 34) Maintenance and Repair (M&R)
Portland Cement Concrete (PCC)
Pavement Condition Index (PCI)
Pavement Management Program (PMP)
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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February 4, 2026
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City of Menifee, CA Page 1
2025 Pavement Management Program
Final Report – January 2, 2026 Section I
SECTION I
EXECUTIVE SUMMARY
2025 PAVEMENT MANAGEMENT PROGRAM (PMP)
As the City of Menifee continues to show growth with its population, demographics, infrastructure and maintenance needs, the street network has followed this trend. The City of Menifee initially developed its Pavement Management Program (PMP) 10+ years ago with the use of an automated database program and geographic information systems. Today, the City is currently using the Army Corps of Engineers (USACE) software, MicroPAVER, to manage the street network. MicroPAVER has been in place for fifteen (15) years and has continued to produce solid recommendations for street maintenance. This system is essential to the City in that it assists Engineering staff in identifying the proper funding for its arterial highway system as well as cost -effectively managing the residential network through proactive maintenance and scheduling.
The purpose of the PMP is to combine pavement condition data collected in the field with budgetary constraints and construction unit-costs within the MicroPAVER computer model to monitor the condition of the City’s network of streets and develop a roster o f projects which provides the most benefit. T he new PMP document incorporates a project forecasting strategy developed by Bucknam Infrastructure Group (Bucknam) and City Public Works staff which not only follows the City’s pavement maintenance and rehabilitation project budgets but also addresses the needs of certain streets which would typically be excluded from the project roster generated by MicroPAVER due to their condition being below the baseline level of selection used within the computer model.
By annually using the PMP as one of its primary budgetary planning tools, Menifee Public Works staff has viable, forecast maintenance/rehabilitation recommendations in-hand that will measurably improve the condition of the City’s network of streets. The goal of any PMP should be to strive to reach and sustain the network at a weighted PCI level of 78 to 82. This study and the future biennial PMP studies scheduled within Public Works shows the commitment by the City Council in providing the necessary funding for Pavement Management within the City’s yearly budgets but also proper selection by staff.
The Menifee PMP has been updated to assist City personnel by providing current data on the City’s street network and to develop cost-effective maintenance strategies to maintain a desirable level of pavement service and performance on a network scale. In turn, this will optimize the expenditure of limited fiscal resources. The FY 2025 project consisted of inspecting all public owned streets in the City as well as assisting in updating the City’s 5-Year Capital Improvement Program (CIP). The updated PMP report has identified recommendations and deficiencies in the current operating and maintenance efforts put forth by the City.
Specifically, the program provides administrators and maintenance personnel with:
• The present condition status of the pavement network (arterial, collector, and local streets), as a whole and of any grouping or individual component within the City; • A ranked list of all streets, or segments of streets, by condition within the network; Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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February 4, 2026
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2025 Pavement Management Program
Final Report – January 2, 2026 Section I
• Rehabilitation/maintenance needs of each street segment by year; • An optimized priority maintenance and rehabilitation program based on cost/benefit analysis and various levels of funding;
• Optimum annual budget levels for pavement maintenance for the current and the following five (5) years;
• Prediction of the future performance of the City’s pavement network and each individual street section; and
• Pavement condition data and analysis presented in Arc GIS that is compatible with City’s existing GIS Enterprise and MyRoads®
Pavement is a dynamic structure where deterioration is constantly occurring; thus the pavement management system needs to be updated on a regular basis to reflect these changes in pavement conditions, pavement maintenance histories, and maintenance strategies based upon budgetary constraints. In our approach to develop the City’s forecast maintenance / rehabilitation recommendations we worked with Menifee staff in identifying unit costs for all maintenance practices used on an annual. Currently, based upon the City’s maintenance practices and their associated unit costs, the total replacement value of the Menifee pavement network is $ 902,230,800. This value clearly indicates that the City’s pavement network is the most valuable and essential asset to Menifee. The City’s use of slurry seal, ARHM Overlay and R&R practices are typically applied at a five year, ten year and 25 year frequency respectively. These frequencies are typical but the City may see increases in deterioration rates due to environmental, load and high average daily traffic (ADT) volumes. For example, high ADT volumes along one of Menifee’s arterial streets will increase deterioration rates for a previously applied AC Overlay compared to a small local street. These deterioration rates are monitored through frequent inspections and functional class deterioration analysis within the City’s PMP database.
This report reflects our findings and recommendations for the PMP and the current state of the City’s pavement network. Furthermore, we have recommended detailed funding and maintenance strategies for the arterial/collector and local networks for next five (5) years.
A. SUMMARY OF CITY’S PAVEMENT NETWORK
Within the Menifee pavement management
network there are approximately 128.7 section
miles of Arterial/Collector streets which
consists of approximately 31,422,980 SF and
424 pavement sections . The Local network
consists of approx. 268.8 section miles.
48,194,357 SF and 2, 049 pavement.
Combined, the entire network consists of
397.5 section miles of streets , 79,617,337 SF
and 2,473 total pavement sections.
Figure 1
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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2025 Pavement Management Program
Final Report – January 2, 2026 Section I
The City’s pavement network is broken down into manageable groups that have similar characteristics, such as pavement street classification , surface type and logical segmentation . Pavement segments are identified by their branch and section numbers. Pavement “branches” that have a common usage, such as Garfield Ave, defines a “branch” within MicroPAVER . Pavement “sections” are pavement segments within the defined branch that have consistent pavement street classifications, construction/maintenance histories and use. Representative inspection samples are then selected and visually surveyed to locate distress data. This data is used to calculate the pavement sections Pavement Condition Index (PCI) which includes distress type, extent of the distress and its severity.
The PCI is a condition rating that ranges from 100 (a new pavement section or recently overlaid or reconstructed) to 0 for a section that has structurally failed and deteriorated dramatically. Weighted average PCI of a given area/zone equals the pavement section PCI multiplied by its own area divided by the total square footage of the given area/zone. Table 2 summarizes the section conditions found within the City of Menifee pavement network by street classification.
• The weighted avg. PCI for the Arterials & Collectors is 71.1 (Previously 75.7; a 6% decrease). • The weighted avg. PCI for the Local network is 77.7 (Previously 77.9; a < 1% decrease).
The weighted PCI value associated with the Arterial and Local routes shown through our survey analysis is timely in that it is showing that a large amount of preventive, slurry seal, and overlay work will continue to be needed over the next several years to proactively increase the PCI level to ultimately achieve a “preventive maintenance” state (typically a weighted PCI of 78 or higher).
B. CURRENT CITYWIDE CONDITIONS (ARTERIALS, COLLECTORS AND LOCALS) Table 1 –Present and Historical PCI Results
Figure 2 – Historical Menifee PCI (FY 2016 – 2025)
Item Title: 12.1
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2025 Pavement Management Program
Final Report – January 2, 2026 Section I
The overall condition of the City’s pavement network is “Very Good” with a weighted average P CI of
75.1 based on the surface area of each segment. The distribution of the City’s overall pavement network is shown in Section III of this report (Condition Distribution).
Table 2 – Condition Distribution by Mileage for All Streets Figure 3 – PCI Distribution by Section Miles for All Streets
As shown above, a large majority of segments are evenly distributed through three condition categories (Very Good to Fair). For a network to be in a “preventive” condition status you would typically see Very Good to Good section percentage totals at the 60% to 70% range; Menifee’s network currently shows
68.7% of its sections within these PCI ranges. These findings indicate that the proper funding of the network over the past several years has been ample and needs to be continued over the next five years to improve the overall PCI above 78+; this will allow Public Works managers/staff to proactively establish preventive and reh abilitation schedules that will generate further high -value ROI for the City. At a minimum, to sustain this asset, continued amounts of overlay rehabilitation and slurry seal maintenance needs to be budgeted for and performed across all areas of the pavement network.
Excellent; 102.3;
26%
Very Good; 171.1;
43%
Good; 80.3; 20%
Fair; 22.6; 6%
Poor; 16.7; 4%
Very Poor; 4.3; 1% Failed; 0.2; 0%
PCI Distribution (Section Mi.)
-
All Streets
Excellent Very Good Good Fair Poor Very Poor Failed
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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2025 Pavement Management Program
Final Report – January 2, 2026 Section I
As shown in Table 2 , over 31 % of the City’s entire network falls within the fair to very poor condition categories based on the PCI findings, highlighting the need for continued funding of proactive slurry seal & overlay projects. More overlay rehabilitation activity will increase the City’s overall weighted PCI while reducing deferred maintenance costs in future fiscal years. Overlay projects applied to appropriate , qualifying segments is necessary to improve the City’s network and achieve a preventive condition status as described above. A network-wide preventive condition status is typically a network with a weighted average PCI over 75.
Regarding the Local network, detailed inspection analysis shows that 33% (6.6 miles) of the Local pavement networks require slurry seal maintenance activity while 19% (3.8 miles) requires overlay rehabilitation or full reconstruction.
With the major amount of L ocal sections needing rehabilitation the City should proactively appropriate the necessary amount of annual overlay funding to improve the network to a higher condition level . The Local network will continue to be a major contributor to the high amount of deferred rehabilitation cost burdens unless appropriate pavement funding is applied.
In regard to the Arterial / Collector network, detailed inspection analysis shows that 44% (9.1 miles) of the pavement network requires slurry seal maintenance activity while 13% (2.6 miles) requires overlay rehabilitation o r full reconstruction. O ver the past three years the Arterial / Collector weighted PCI has sustained at a high level (70+). This is due to the considerable amount of arterial CIP overlay projects that have been applied to the network since 2022. With the overall arterial PCI in the high-70’s, proactive planning and application of scheduled overlay projects needs to be sustained; this will maintain the overall conditions while freeing up additional funding for deferred Local overlay projects.
Through our assessment of the City’s annual pavement management budget allocation needs (Tables 4 & 5 below) we have identified the necessary annual funding levels to maintain or improve the City’s PCI by FY 2030.
This PMP update recommends pavement strategies for each segment based on the existing surface conditions. However, as large overlay and reconstruction projects are considered for funding, the City should make a final determination of the segment -specific pavement management approach based on subgrade R-values, structural design, and distress severities and extents.
PCI conditions reflect “surface” conditions; additional sub-surface data such as coring data, R-Values and ground penetrating radar (GPR) will provide the City with enhanced AC/PCC structural data that will assist in project prioritization.
Our 2025 findings indicate that the PMP network has been proactively managed over the past several years. This is evident in the sustainment of the citywide weighted PCI since 2022 and moderate amounts of deferred maintenance/rehabilitation projects. As the City strives to implement a stronger preventive state of M&R, cost efficient Arterial /Local rehabilitation and proactive use of available overlay funding should remain the focus.
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
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2025 Pavement Management Program
Final Report – January 2, 2026 Section I
C. MAINTENANCE / REHABILITATION STRATEGY DEVELOPMENT
Based on the results of the condition survey and input from the City, pavement maintenance/rehabilitation strategies were developed. At the outset, the City and Bucknam staff identified a distribution of City maintenance funds that would be applied to the network over the next five years. This was based upon the desire to prevent the decrease in street conditions and not allow an increase in the maintenance backlog funds over the five-year program.
With this approach, Bucknam has recommended a “minimal level of service” which creates a major dividing line in determining between prevent ive maintenance and major pavement rehabilitation.
Generally within pavement management programs, a PCI range between 55 to 70 determine s the threshold of when preven tive or major overlay maintenance is activated. Based on the City’s weighted average PCI, condition distribution, m aintenance practices, our team has identified a PCI of “65” as the minimum level of servic e. This means that any pavement section with a PCI greater than 65 will be recommended for preventive maintenance (i.e. slurry seal). This recommendation is indicated in Table 6, Section II.
Bucknam developed two multi-year Capital Improvement Programs for the City based on the pavement records, yearly capital expenditures , available funding and the most recent 2025 inspections. These recommendations and results are shown in Section II of this report where, for example, we have demonstrated what level of funding is necessary to maintain the current weighted condition level of 75 by FY 2030.
As shown in Figure 3, 69% of the City’s streets are in Very Good to Good condition. The majority of these sections within this range will be targeted for “preventive” maintenance within our Capital Improvement Program (CIP) recommendations. The reasoning in doing this is to extend the life cycles of those “ very good” pavement sections which accrues capital saving to aggressively rehabilitate those pavement sections that are below the “minimal level of service”.
In order to achieve the most effective and optimum program for the City, certain strategies have been selected and/or analyzed. Below is a listing of the maintenance activities utilized in strategy development.
Each activity is representative of the typical types of work that can be programmed as part of the long - term maintenance requirements of the City’s street network.
General Repairs-Stop Gap (Localized Maintenance*); PCI Range – 20 to 95 For this maintenance type, small localized surface treatments are utilized as “holding action” solutions (stop gaps) to delay the need for pavement structural strengthening. They typically include activities such as crack sealing, AC deep patching, AC skin patching, PCC slab replacement, grinding and leveling.
Microsurfacing - (Global Maintenance*); PCI Range – 60 to 85 Microsurfacing is similar to slurry seal. It consists of the application of a mixture of water, asphalt emulsion, aggregate (very small crushed rock), and chemical additives to an existing asphalt concrete pavement surface. Polymer is commonly added to the asphalt emulsion to provide better mixture properties. The major difference between slurry seal and microsurfacing is in how they “break” or harden. Slurry relies on evaporation of the water in the asphalt emulsion. The asphalt emulsion used in microsurfacing contains chemical additives which allow it to break without Item Title: 12.1
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relying on the sun or heat for evaporation to occur. Thus, microsurfacing is an application that hardens quicker than slurry seals and can be used when conditions would not allow slurry seal to be successfully placed. Streets that have a lot of shade and s treets that have a lot of traffic are good candidates for microsurfacing (source - LA County of Public Works).
Slurry Seals (Global Maintenance*); PCI Range – 60 to 85 Surface treatments applied to pavements with minimal surface distress to provide new wearing surfaces and extend pavement life. Generally consists of a mixture of conventional or latex-modified emulsified asphalt, well- graded fine aggregate, mineral fille r and water placed over an existing AC surface; Slurry seal application life-cycles are averaging 4 to 5 years . Type II Slurry is recommended for Local streets.
Cape Seals (Global Maintenance*); PCI Range – 40 to 65
This is an application of a single layer of asphalt binder to a road surface immediately followed by a single layer of cover aggregate (chips). The single layer chip seal is then followed with a slurry seal application; Conventional cape seal application life-cycles are averaging 6 to 7 years. For sections that have lower PCI’s in this range, leveling courses should be considered. City is currently considering this application as an alternative cost-saving tool.
Overlays (Major Rehabilitation*); PCI Range – 20 to 65
AC Overlay – Placement of a layer of hot-mixed asphalt concrete over the existing pavement surface (may include pavement fabric). Grinding (milling) is performed prior to the overlay to reduce the total height of asphalt and assure alignment with existing gutter lines. This also includes “dig -outs” and crack sealing prior to the application of an overlay. This treatment provides a new wearing surfac e and increased structural strength to the pavement section. A conventional overlay should be designed for a ten-year life.
Asphalt Rubber Hot-Mix Overlay - The ASTM definition is: Asphalt-Rubber is a blend of asphalt cement, reclaimed tire rubber and certain additives in which the rubber component is at least 15% by weight of the total blend and has reacted in the hot asphalt cement sufficiently to cause swelling of the rubber particles. Specifically, using crumb rubber modified binders in pavement application benefit local agencies in that cities find:
• Pavement resists cracking by being more flexible;
• Cost savings come from a longer life cycle (from Bucknam’s experience typically 20% longer), decreased maintenance and the use of less material
• Improvement in skid resistance;
• Decreased noise; and
• It provides long-lasting color contrast for marking and striping • Life cycles are averaging 8 to 12 years
Reconstruction (Major Rehabilitation*); PCI Range – 0 to 20 Reconstruction of an existing pavement section includes demolition and removal of the asphalt to a prescribed depth, grading, sub-base compaction, application of a binder/surface course followed by the placement of a conventional flexible pavement section using a structural AC Item Title: 12.1
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Hot Mix, ARHM or full depth asphalt. Each classification of road has a typical design cross -section based on anticipated traffic loading. Reconstruction resets a roadway section PCI to 100 and restarts the life-cycle deterioration curve of the section.
*Localized, Global and Major maintenance activities are default terms used within the MicroPAVER pavement software. Specific pavement repair applications are placed within each maintenance activity in order to develop multi-year maintenance forecast recommendations.
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D. ANNUAL BUDGET PROJECTIONS
The budgeting process was approached with the following in mind; generate two unique work programs for the next five (5) years based upon actual road pavement conditions in order to:
1. Identify the required annual citywide budget to “maintain” at the current 2025 PCI level of 75 after five years;
2. Identify the required annual funding to “increase” the City’s weighted PCI to 78 by FY 2030
Based on current and future pavement maintenance needs, two annual work programs have been prepared and summarized below. Table 3 demonstrates the required budget that is needed to maintain the citywide weighted average PCI at a level of 75 after five years (each scenario addresses arterial and local streets). Table 4 demonstrates the necessary revenues to increase the weighted PCI to 78 by FY 2030.
Table 3 – Necessary Annual Funding to Maintain PCI at 75
Table 4 – Necessary Annual Funding to Increase PCI to 78
Additional detail and breakdown of budget projections are demonstrated in Section IV of this report.
All work program budgets generated are presented in terms of current 2025 dollars. All repair activities were based on distresses observed at the time of the field survey . These are recommendations and are to be used as “the best case scenario” for improving the City of Menifee street network.
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E. QUALITY CONTROL EFFORTS
Quality control efforts for this PMP update, begin at the notice-to-proceed; this involved a full assessment of the previous PMP final reports, spreadsheets as well as available GIS data associated with the City of Menifee street network.
As indicated in our scope of work, Bucknam performed numerous quality control checks in the field during survey efforts. Field check efforts were performed at the end of each week of survey; 10% of the pavement inspection set was resurveyed by a second te am to ensure the quantities and distress types were collected properly (approx. 30 miles).
Through our internal/field quality control effort s combined with the annual segmentation increase , we found numerous sections that needed to be added to the PMP network. The City’s total mileage increased from 340.7 miles to 397.5 miles (a 17% increase) and from 68,953,600 SF to 79,617,300 (a 15% increase).
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F. FINDINGS AND RECOMMENDATIONS
Arterials/Collectors
The actual workload requirements identified indicate that the Arterial/Collector street network is currently in “ Very Good” condition (PCI = 71 ). To sustain this condition, it is essential that preventive maintenance and overlay rehabilitation activities are funded at the levels identified in Table 3.
Our arterial/collector findings for conditional data and recommendations for revenue expenditures are shown below:
• The Arterial/Collector network has a weighted PCI of 71.1;
• Currently, 13% of the arterial/collector network (approx. 2.6 miles) require overlay/reconstruction rehabilitation; 44% (approx. 9.1 miles) require slurry seal maintenance;
• At a minimum, Arterial/Collector maintenance projects should focus on achieving and maintaining a PCI of 78+ within the next five years;
• Develop a proactive fiscal and planned approach to identify arterial/collector overlay projects based on the deterioration modeling within MicroPAVER;
• Maintain arterial/collector revenues at the levels shown within the Section IV Forecast Maintenance & Rehabilitation (FMR) Report for a minimum of five years to generate the results identified within this report;
• Reassess/re-evaluate the arterial/collector rehabilitation budget programs every two years to improve on CIP forecasts for 2025-26 and beyond to ensure the results shown in Table 3 and 4;
• Perform pavement inspections on the arterial/collector network every three years to build a solid planning model within MicroPAVER/MyRoads® to track PCI deterioration;
• Demonstrated budget shown in Table 3 is ample to sustain the Arterial/Collector weighted PCI of 80 through five years, however, the citywide deferred maintenance (backlog) increases from a level of $ 49.2 million to $ 62.8 million after five years (see Section II, page 20 for backlog definition);
o Unique budget scenarios created in MicroPAVER calculate annual deferred maintenance amounts based on the available/projected budget applied and section SF’s that fall within preventive, slurry seal, overlay and reconstruction PCI ranges;
• Bucknam recommends that the City proactively budget overlay rehabilitation projects at the levels shown in Table 4 in order to improve upon the conditions found today as well as minimize the impact of a moderate increase deferred maintenance across the City.
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Locals
The actual workload requirements identified indicate that the Local street network is currently in “ Very Good” condition (PCI = 77.7). To improve this condition, it is essential that preventive maintenance and overlay activities are funded at the levels identified in Table 4 to increase the network weighted average PCI value within the “Very Good” category.
Our Local findings for conditional data and recommendations for revenue expenditures are shown below:
• The Local network has a weighted PCI of 77.7;
• Currently, 19% of the Local network (approx. 3.8 miles) require overlay/reconstruction rehabilitation; 33% (approx. 6.6 miles) require slurry seal maintenance;
• At a minimum, Local maintenance projects should focus on achieving and maintaining a weighted PCI above a level of 78 within the next five years;
• Current Local Forecast Maintenance & Rehabilitation (FMR) recommendations should be followed as shown in Section IV of this report;
• Develop a proactive fiscal and planned approach to identify Local overlay projects based on the deterioration modeling within MicroPAVER;
• Increase Local revenues at the levels shown within the Section IV Forecast Maintenance/Rehabilitation (FMR) Report for a minimum of five years to generate the results identified within this report;
• Reassess/re-evaluate the Local rehabilitation budget programs every two years to improve on budget forecasts for 2025-26 and beyond to ensure the results shown in Table 3 or 4;
• Perform pavement inspections on the Local network every three years to build a solid planning model within MicroPAVER/MyRoads® to track PCI deterioration;
• Demonstrated budget shown in Table 4 is sufficient to improve the Local weighted PCI as it includes necessary increased overlay funding. Additionally, the citywide deferred maintenance increases from a level of $49.2 million to $56.1 million after five years (see Section II, page 20 for backlog definition);
o Unique budget scenarios created in MicroPAVER calculate annual deferred maintenance amounts based on the available/projected budget applied and section SF’s that fall within preventive, slurry seal, overlay and reconstruction PCI ranges;
• Bucknam recommends that the City allocates budget for overlay rehabilitations at the levels shown in Table 4 in order to improve upon the conditions found today as well as minimize the impact of a high increase of deferred maintenance across the City.
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SECTION II
PAVEMENT MANAGEMENT PROGRAM – CAPITAL IMPROVEMENT PROGRAM
Bucknam performed the following services in accordance with the scope of services that was contracted with the City of Menifee. As a quick overview, the following tasks were performed to complete the work over the past several months:
2025 Pavement Management Work Efforts:
Task 1: Project Kickoff-Data Management
Task 2: Update of Maintenance / Rehabilitation Activities Task 3: Pavement Condition Survey (approx. 398 miles)
Task 4: Budgetary Analysis and Capital Improvement Reports Task 5: Executive Summary and Final CIP Reports
Task 6: GIS Mapping of the Pavement Network and MyRoads® PMP App
A. PAVEMENT MANAGEMENT PROGRAM UPDATE - 2025
As a part of the 2025 update of the pavement management program, a major element of work was to complete a comprehensive assessment of the existing street network and PMP data within the City. This included assessing the City’s existing 2021 PMP reports, GIS centerline, street naming conventions and work history information. From there, Bucknam worked with the City to confirm public and private street listings which set the foundation for accurate CIP reporting . All data was then updated into the City’s current MicroPAVER database.
Work history information was provided by the City in the form of institutional knowledge, maps and Excel documents. This information was entered into the proper pavement segments that match the limits of those projects. From there, CIP pavement recommendations were performed (discussed and demonstrated below) where the pavement maintenance information the City provided (PM P material practices, unit costs , and capital budgets) were used to generate recommendations through the MicroPAVER system.
Table 5 demonstrates PCI ranges identified within MicroPAVER. Once a pavement inspection is complete, a PCI is calculated for each pavement section. Each PCI calculated falls within a defined PCI range category (Very Good, Poor, etc.). Furthermore, a weighted PCI was calculated for the each functional class within the network (arterials, locals).
The PCI is a condition rating that ranges from 100 (a new pavement section or recently overlaid or reconstructed) to 0 for a section that has structurally failed and deteriorated dramatically. Weighted average PCI of a given area/zone equals the pavement section PCI multiplied by its own area divided by the total square footage of the given area/zone. This information can also be represented through MicroPAVER to show how much square footage or percentage of area falls within a PCI range category.
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Table 5 - PCI Conditional Ranges
These condition ranges are defined by the Army Corps of Engineers and defaulted within the MicroPAVER software. The summary of all roads condition data and their representative P CI's can been seen in the Pavement Condition Report in Section III.
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B. MAINTENANCE / REHABILITATION STRATEGY ASSIGNMENT TABLE
Once the appropriate activities from the above listings were selected by the City, a Maintenance / Rehabilitation Strategy Table was defined within the system that allocated the appropriate actions to the specific repair needs of the street. In defining the maintenance strategy list, emphasis was placed on defining pavement condition thresholds and using the PCI for the specific maintenance activities within these categories.
Maintenance / Rehabilitation Strategy Assignments
Table 6 – Maintenance / Rehabilitation Strategy Assignments Table
The Maintenance / Rehabilitation Strategy Assignments List, shown in Table 6, was developed to identify the most critical segments in each of the work programs (Arterial, Collector and Local). Segment priorities were established by determining the range of PCI's requiring first attention based on the relative value of each segment’s PCI, thus maximizing the annual maintenance budget. Also, distress quantity, area extent, type (load / climate) and distress severity levels were critical elements in the decision process for recommending maintenance. The assignment table is used as a guide within MicroPAVER to recommend maintenance, however, further assessment by City staff and/or outside parties can override maintenance recommendations. This can be done by reviewing and assessing distress extents and their weighted percentages.
Once the strategy assignments were set within the system, budgets and work assignments were generated for each work program on an annual basis. Using pavement deterioration curves for each type of pavement surface and class of road, both current year and future years work requirements for each pavement segment within the City were determined. In forecasting the maintenance requirements in future years, the current PCI value is reduced annually for each pavement segment based on the MicroPAVER deterioration curves within the City’s database.
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Likewise, maintenance activities performed in a given year increase the P CI value as they are applied to the segment. The overall program is dynamic in that each strategy consists of a cyclic series of actions that simulates the pavement anticipated life cycle.
Strategy Assignment Notes
1. Unit cost values were assessed , reviewed by City staff and benchmarked from neighboring Riverside County cities;
2. 25% contingency costs were applied to pavement material costs; additional soft costs that were not included were:
a. Mobilization / demobilization
b. Right-of-way improvements
c. Curb & gutter improvements
d. ADA ramp improvement
e. Utility improvement
f. Tree removals
3. Bucknam applied a 4% inflation rate on the annual budget within forecast maintenance & rehabilitation projections (Section IV)
Figure 4 – Sample Pavement Life Cycle / Deterioration Rate
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C. MULTI-YEAR CIP / M&R WORK PROGRAM PROJECTIONS
The goal of these projections is to assist City policy makers in utilizing the recommendations of the MicroPAVER system. By using the City of Menifee’s current budgets and maintenance practices the system will develop “section unique” improvements and strategies. Each segment will be tied to a specific fiscal year. As shown in the following pages, we have assessed the budgets that have been projected t o meet the maintenance and rehabilitations needed to maximize the City’s return on investment. The budget forecasting goal for the City network focused on:
Establishing a proactive multi-year Maintenance & Rehabilitation Program; Developing a preventive maintenance program; and
Selecting the most cost-effective repairs based on City strategies
MAINTAIN PCI BUDGET – A “maintain PCI” budget was generated for the City to demonstrate the necessary annual funding required to maintain the current weighted PCI level at 75 after five years.
INCREASE PCI TO 78 BUDGET – A “increase PCI to 78” budget was generated for the City to demonstrate the necessary annual funding required to improve the current weighted PCI to a level of 78 after five years.
*All multi-year budget projections include a 4% inflation rate for the term of the budget forecast.
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ARTERIAL-COLLECTOR / LOCAL
BUDGET PROJECTIONS
The annual projected revenues shown below only account for the cost of pavement maintenance and rehabilitation activities. A 25% contingency was applied to the pavement costs. Additional soft costs not included within the cost of pavement maintenance include:
• Tree Removal;
• Right-of-way improvements;
• Utility improvements;
• Bus pad improvements and slotted gutter replacement
Our projections demonstrate an industry standard five -year PCI / Deferred M&R program; the City of Menifee will assess and generate these types of budget scenarios every three-years through PMP studies.
This proactive methodology / audit allows staff to monitor Menifee’s weighted PCI’s and identify what level of annual fundings is needed to sustain or improve overall conditions.
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The first key step in developing a proactive PMP is to model the City’s existing conditions against an “actual” annual budget. In doing this, PCI performance, deferred maintenance and pavement application uses are able to be benchmarked and demonstrated in a positive or negative result. Bucknam utilized the City’s $3.3 mil/yr PMP budget to establish a benchmark scenario for pavement funding; the City provided Bucknam with current 2025 unit costs for pa vement maintenance applications currently being used by the City. From those results, Bucknam is recommending the following budget scenarios/recommendations to be considered by the City.
MAINTAIN PCI 75 BUDGET PROGRAM (FIVE YEAR MODEL)
Our goal under this model is to maintain the current 2025 weighted PCI of 75.1 through a five -year program. This model will demonstrate the necessary funding to achieve this goal. The “Maintain” program incorporates pavement sections that have a functional class of Arterial/Collector (A, B, C) and Local (E).
Table 7 – Citywide CIP Projection to Maintain PCI at 75
Referring to Table 7 above, it is noted that the weighted PCI consistently remains at a PCI of level of 75 throughout the five -year projection (75.1 to 75. 8). Furthermore, the resulting deferred maintenance/ backlog shows that it increases from $49.2 million to $ 62.8 million after the five years program which indicates that an annual average budget of $10,600,000 is not ample enough to reduce the high amount of deferred maintenance on the network.
Furthermore, if the City were to reduce their annual funding to a level lower than $10 million/yr the overall weighted PCI would drop to 70 by FY 2029 -30 and major overlay projects would
DEFERRED MAINTENANCE
Delaying repairs on streets where pavement condition indicates a need creates deferred maintenance. Deferred maintenance includes pavement maintenance / rehabilitation that is needed across the entire network, but cannot be performed due to the lack of available funding and is pushed to the next budget cycle. The actual repairs that are being deferred are often referred to as a “backlog”. As maintenance is deferred, the opportunity to apply life extending preventive pavement applications is lost and the ultimate cost of
rehabilitation multiples.
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continue to be delayed thus increasing the overall deferred backlog to a level of $7 5 million after five years.
Figure 5 – Five-Year Projection of Maintain Budget (PCI of 75)
We found average square footage breakdowns (zone/neighborhood maintenance) were consistent and well balanced; combined with the positive results found with the weighted PCI , we recommended, at a minimum, that this 5-yr maintenance schedule be followed.
But again, with the Local network showing a higher SF totals, a focus for zone district maintenance and proactive overlays should be applied.
As mentioned above, a local slurry/overlay M&R “ zone” strategy should be established for several reasons. With the City applying a maintenance area methodology to the local network, four beneficial impacts occur:
1) Planned / Maintenance areas are addressed every five years which creates a dedicated project schedule for City staff and constituent inquiries; 2) Deferred rehabilitation can be addressed in a more effective manner due to accrued revenues 3) A preventive maintenance strategy is more cost -effective in a long -term PMP rather than implementing a maintenance approach that addresses only the “worst-first” streets. 4) All maintenance alternatives are available due to the increased funding and focused maintenance within one zone per year.
Based on the City’s current four (4) Local Zones and the recent surveys we have listed Item Title: 12.1
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the conditional results below:
• Local Zone 1 – PCI 73.9; 13,813,369 SF
• Local Zone 2 – PCI 78.6; 13,152,013 SF
• Local Zone 3 – PCI 80.2; 10,399,224 SF
• Local Zone 4 – PCI 78.8; 10,829,752 SF
On the negative side, if low weighted PCI values occur within a given zone, all streets within that zone may not be able to be addressed with maintenance when that zone is scheduled for improvements . The deferred backlog will have to be scheduled for future years or simply will have to wait until the zone cycle repeats.
Additionally, it is recommended that the City continue to monitor the potential application of Cape Seal and/or High Density Mineral Bond (HDMB) as an asphalt application alternatives for the specific local sections. Specific sections are now qualifying for maintenance that warrants a stronger application rather than a typical slurry seal. With a five year cycle in motion, it is essential to address local sections that have PCI’s less than 65 with the proper maintenance since crews will not be back within that area for five to six years.
INCREASE PCI TO 78 PROGRAM (FIVE YEAR MODEL)
With the City striving to show proactive rehabilitation across all qualifying pavements an “Increase PCI” budget model was performed to show a potentially higher return on the City’s pavement investments.
We used the 5-yr Maintain PCI model (shown above) as a basis for our modeling within the “Increase PCI” program. Building upon the results of the previous reporting model we increased the amount of funding available for overlay/rehabilitation efforts and focused our recommendations within geographic zones/neighborhoods.
The “Increase PCI” program incorporates pavement sections that have a functional class of Arterial/Collector (A, B, C) and Local (E).
Table 8 – Necessary Annual Funding to Increase PCI to 78
Referring to Table 8, it is noted that the weighted PCI increases proactively through the five- year projection (75.1 to 78.5). Within the first year of expenditures, the weighted average increases to the level of 77. From there, we projected what level of annual funding would be necessary to Item Title: 12.1
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hold the PCI at that level.
Additionally, the annual deferred maintenance/backlog total increases from $49.2 million to $56.1 million at the end of the five- years (a 14% decrease) . If the City utilizes an average annual budget of $11,731,400/yr for slurry, overlay, and reconstruction projects as shown above, the City will be able to “increase” the current conditions and will continue to see a reduction of deferred maintenance (mostly overlay maintenance) by fiscal year 2030.
As mentioned in the Executive Summary, the goal of the agency should be to reach a weighted PCI of 78 to 82. Once that is achieved, annual project costs will dramatically decrease due to the need to perform preventive maintenance from that point forward. Residual overlays and reconstructions will still be needed but will be more manageable due to the fact that preventive maintenance costs roughly $0.60 to $0.80 / SF compared to $5.00 to $10.00 / SF.
Figure 6 – Five Year Projection; Increase PCI to 78 Budget
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PAVEMENT MANAGEMENT PROGRAM REPORTS
In addition to the annual budget scenario, this report contains a comprehensive and complementary assemblage of pavement management reports ranging from summary reports to annual maintenance and rehabilitation schedules (Forecast Maintenance / Rehabilitation (FMR) Report, Section IV). Collectively as well as individually, the reports represent reasonable projections of pavement maintenance needs and performance based on visual condition assessments, unit cost estimates, and pavement deterioration models.
It is important to note that pavement segment dimensions and surface area (recorded during 2013-2021 and 2025 inspections), along with the action and repair costs, as presented within the reports are accurate within tolerable limits. This is noteworthy due to the "implied" accuracy of reporting length and width to the nearest foot, surface area to the nearest square foot, and action and repair unit costs and project estimates to the nearest penny and dollar, respectively.
NEXT STEPS
As with any infrastructure management software program, time investments need to be made by key Public Works staff to maintain the integrity of the data as well as the accuracy. Bucknam can perform training sessions in the use of the MicroPAVER system and demonstrate how to generate standard maintenance reports to assist City staff in developing yearly budgets, project level analysis, and CIP projections. This will be key to future staff management of the pavement program and reporting. City personnel need to maintain their commitment to the preventive maintenance system, while working toward reducing the City's present backlog of rehabilitation projects.
In order to ensure that report outputs are accurate and credible, it is essential that the integrity of all data files be maintained. This will require performing all necessary updates when changes are made to scheduling scenarios, unit cost information, historical data, etc. In addition, the entire pavement network will have to be re-inventoried at regular intervals. This typically includes surveying arterial and collectors every two years and Locals every three. One recommendation the City may consider to keep the program “managed” is:
• Survey arterials every two years; and
• Survey locals every three years
This will not only allow work to be scheduled based on the most current condition data available, but will provide City personnel with a means to monitor actual rates of pavement deterioration so appropriate modifications can be made to the system curves.
Bucknam will be supporting the City with staff level support to assist in the continuous updates with the MicroPAVER system. This will include work history updates, generating reports from the system, unit cost updates, and future inspections.
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D. CONDITION DISTRIBUTION REPORT
This report graphically depicts the distribution of the pavement condition throughout the street network by area.
The condition scheme ranges from “Excellent” to “Failed”; with a “Excellent” condition corresponding to a pavement at the beginning of its life cycle, and a “ Failed” condition representing a badly deteriorated pavement with virtually no remaining life.
The table below shows the general description for each pavement condition:
Condition Description – PCI Range - Description
Excellent (86-100) - Minor to low distress, no significant distress;
Very Good (71-85) - Little distress, with the exception of utility patches in good condition, or slight hairline cracks; may be slightly weathered; (2025 City of Menifee weighted average PCI is 75.1).
Good (56-70) - Slight to moderately weathered, slight distress, possibly patching;
Fair (41-55) - Severely weathered or slight to moderate levels of distress, generally limited to patches and non-load-related cracking;
Poor (26-40) - Moderate to severe distresses including load-related types, such as alligator cracking;
Very Poor (11-25) - Severely distressed, large quantities of distortion or alligator cracking;
Failed (0-10) - Failure of the pavement, distress has surpassed tolerable rehabilitation limits.
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City of Menifee, CA Page 25
2025 Pavement Management Program
Final Report – January 2, 2026 Section II
E. CALCULATION OF PCI
In order to calculate a Pavement Condition Index (PCI) value within MicroPAVER, specific street section data needs to be inputted into MicroPAVER to define the survey limits, asphalt types, pavement age and metrics. Pavement “sections” are pavement segments within the defined branch that have consistent pavement street classifications, construction/maintenance histories and use. Representative inspection samples are then selected and visually surveyed to locate distress data. This data is used to calculate the pavement sections Pavement Condition Index (PCI) which includes distress t ype, extent of the distress and its severity.
The PCI is a condition rating that ranges from 100 (pavement section that is in perfect condition) to 0 for a section that has structurally failed and deteriorated dramatically. The PCI is calculated from three major data entries from our inspectors:
1. Distress Type (one of 20 AC or 19 PCC types); these include alligator cracking, bleeding, block cracking, corrugations, depressions, long/trans cracking, patch/utility cut, potholes, rutting, weathering, raveling, etc.
2. Distress Quantity (the square footage, length or count of a specific distress)
3. Distress Severity (the level of severity determined for each distress found; low, medium or high)
Figure 7 – PCI Calculation Worksheet
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2025 Pavement Management Program
Final Report – January 2, 2026 Section II
Figure 8 – Arterial / Collector Condition Distribution
Figure 9 – Local Condition Distribution
Item Title: 12.1
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2025 Pavement Management Program
Final Report – January 2, 2026 Section II
SECTION III
CITYWIDE
PAVEMENT CONDITION INDEX REPORT
A. PCI Report – Data Definitions
B. Citywide Menifee PCI Map - 2025
C. PCI Report; Sorted by Street Name (A to Z)
D. PCI Report; Sorted by PCI (0-100)
Item Title: 12.1
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2025 Pavement Management Program
Final Report – January 2, 2026 Section II
A PAVEMENT CONDITION INDEX REPORT – DATA DEFINITIONS
Listed alphabetically by street name or PCI, this report provides the City with a listing of pertinent inventory and pavement condition data for each inventory unit within the City's pavement network. The Pavement Condition Index (PCI) Report notes the na mes, limits, classification, dimension, surface type, and lane configuration of each inventory unit.
Detailed descriptions of the information appearing on this report are presented below:
BRANCH NAME - The name of each inventory unit appears in this column. Generally, the inventory unit name is taken directly from a street sign; however, where no street signs are posted, the name appearing on the network map is noted instead.
A sample set of street name suffix abbreviation definitions is presented below:
AVE - Avenue CT - Court CIR - Circle
DR - Drive LN - Lane RD - Road
ST - Street WY - Way EB - East Bound
NB - North Bound SB - South Bound WB - West Bound
TER - Terrace PL - Place
FROM - A description of the beginning limit of each inventory unit appears in this column. If the beginning limit exists between intersections, then the beginning limit description may be an address, post mile marker, or a distance from a known point of reference (e.g., "500' N/MAIN ST").
TO - A description of the ending limit of each inventory unit appears in this column. Like BEGIN limit, the END limit description may consist of a street name, an address, or a distance from a known point of reference. In the case of cul-de-sacs, or dead-ends, the END limit consists of and address, or a directional reference, such as "NORTH END," when no address is available.
STREET CLASSIFICATION / RANK - The codes for the four street classifications are represented below.
Basically, units are classified according the City classifications.
CODE DESCRIPTION
A Urban Arterial / Arterial / Expressway
B Major
C Collector / Rural Collector / Interconnected Collector/ Secondary E Local
SURFACE TYPE - A code was assigned to each inventory unit to describe surface type.
CODE DESCRIPTION
AC Asphalt Concrete
AAC Asphalt Concreate over AC
PCC Concrete
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2025 Pavement Management Program
Final Report – January 2, 2026 Section II
LENGTH - The length of the section within each branch.
• UNITS - The unit of measurement for the section length, typically linear feet (LF).
AREA - The area of each section within a branch.
• UNITS - The unit of measurement for the section area, typically square feet (SF).
PCI - Pavement Condition Indices were calculated for inventory units based on severity and extent of distress manifestations observed within the inventory unit. Ranging between 0 and 100, a PCI of "100" corresponds to a pavement at the beginning of its life cycle, while a PCI of "0" corresponds to a badly deteriorated pavement which is at or near the end of its life cycle.
PCI CLIMATE, LOAD AND OTHER – reflects “Section Extrapolated Distress”; these values are shown within the Sample Distresses tab within the PCI window. Distresses are aggregated based on the type and severity level. For random samples, distress quantities are adjusted to reflect th e extrapolated value based on the sections total area. Extrapolated distress deducts are classified as resulting from Climate, Load and Other distresses. The Distress Classification portion of the tab shows the “percent” of extrapolated distress deduct belonging to Climate, Load and Other (these %’s are shown within the PCI reports herein). These values are beneficial in that they support the decision whether recommend slurry seal, overlay or reconstruction project for street sections.
INSPECTION DATE – Represents the most recent inspection date performed on a given sections. PCI shown is historical in value and may not indicate what “today’s” PCI is due to variance in time. Pavement deterioration calculations can be performed on a section(s) to demonstrate a deteriorated PCI based upon a new current date
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Section II
City of Menifee, CA
2025 Pavement Management Program
Final Report – January 2, 2026
Figure 10 – 2025 Menifee PCI Map
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2025 Pavement Management Program
Final Report – January 2, 2026 Section IV
SECTION IV
FORECAST MAINTENANCE / REHABILITATION (FMR) REPORTS
A. Increase PCI Budget, Five Year Plan (2025-2030)
Item Title: 12.1
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2025 Pavement Management Program
Final Report – January 2, 2026 Section IV
FORECAST MAINTENANCE / REHABILITATION (FMR) REPORT
Listed in chronological order by plan year then alphabetically by street name, this report presents the year and action corresponding to the next recommended work activity for specific segments within the pavement network.
INCREASE PCI BUDGET – A recommended budget was generated for the City to identify the necessary annual funding that is required to increase the current weighted PCI level of 75.1 to 78 within five years.
MAINTAIN PCI BUDGET – A “maintain PCI” budget was generated for the City to demonstrate the necessary annual funding required to maintain the current weighted PCI level at 75 after five years.
We have sorted the following report by functional class (rank), fiscal year and street name for easy review (A to Z order).
In general sections are chosen first and foremost on available budget; secondly, the square footage of each section plays a large factor. The software initially chooses the draft sections that will increase PCI, sustain PCI or slow PCI deterioration within the budgeted timeframe. Additionally, the type s of distress, extents of distress and severities of distress (high, medium, low) also determine how sections are/can be selected.
*All multi -year budget projections include an annual 4% unit cost inflation rate for the term of the budget forecast, as well as a 25% contingency on material costs which typically cover additional project costs for contract administration, design, construction management.
The City of Menifee makes all final decisions on what pavement sections are scheduled for improvement and within which fiscal year.
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2025-2030 Pavement Management Program
Report
Peter Bucknam, President
February 4, 2026
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Objective:
“Work in collaboration with the County of
Riverside, surrounding communities, and
regional partners to assess and mitigate the
impacts of growth and development outside
City limits, providing for regional infrastructure
development and essential services.”
Goal:
Connectivity and Mobility
“Enhance accessibility and link
the community with sustainable
infrastructure to meet the City’s
needs.”
Performance Measure:
“Maintain an average roadway Pavement
Condition Index (PCI) of 70 year-over-year through
June 2028.”
Menifee Strategic Plan Alignment
1 Item Title: 12.1
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• Developed
PMP in 2011
• Bucknam
performed
studies in 2018
& 2021
PMP
History
• Pavement network is the
City’s largest asset:
• estimated valued of
$902.2 million
• 397.5 centerline miles
• 128.7 miles:
Arterial/Collectors
• 268.8 miles: Local roads
Background
2 Item Title: 12.1
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• Traffic volumes
• Static/dynamic loads
• Weather
• Type of pavement
• Water runoff
• Soil and base material
• Lack of preventative
maintenance
• Available funding
Factors
That
Affect
Pavement
Life
Why
Update the
PMP?
• Measure pavement network
• Measure overall pavement condition
• Measure deteriorating rates
• Establish timeframes for performing
repairs
• Develop plan for maintenance and CIP
projects
• Prioritize available funding
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• PCI is a condition rating that ranges from 0 to 100
• Pavement Condition Survey completed in June 2025
• Cloud-based artificial intelligence (AI) technology
• Quality Control: At least 20% of each road segment was evaluated Establishing
Pavement
Condition
Index
(PCI)
• Assess pavement
network
• Update pavement
repairs
• Survey pavement
condition
• Identify rehabilitation
strategies
• Forecast
rehabilitation costs
• Develop five-Year
Plan
How is the
Pavement
Management
Program is
Updated?
4 Item Title: 12.1
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• 75.1: City’s Pavement Condition
Index (PCI)
• 69% of network is VERY GOOD to
EXCELLENT
• 3.3: PCI decreased from 2021 (4%
decrease)
• 15% (58.8 miles) qualifies for
overlay/reconstruction.
• 71.1: Average PCI for
Arterials/Collectors ( 6% decrease)
• 77.7: Average PCI for Local Roads
(<1% decrease)
Findings of
Existing
Pavement
Conditions
5 Item Title: 12.1
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If feasible, opt for preventative
maintenance.
Global Maintenance
• General Repairs (crack
sealing, patching): PCI
of 20-95
• Slurry Seals: PCI of 65-
85 • Cape Seals: PCI of 40-70
Minimum Level of Service = 65
• This value will trigger
decisions between
preventive
maintenance vs.
rehabilitation
Major Rehabilitation
• Overlays: PCI of 20-70
• AC Reconstruction: PCI
of 0-20
PMP
Findings
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*Includes $1.23 million in reallocated budget from Bailey Park Blvd Widening and Fuel Station projects (placed on hold), a portion of which may be transferred to the Circulation Roadways category to support major roadway PMP projects programmed in current fiscal ye ar and next FY.
PMP CATEGORY 2021/22 2022/23 2023/24 2024/25 2025/26 2026/27 Slurry Seal
Program $0 $57,000 $870,000 $923,000 $900,000 $1,458,700 Local AC
Resurfacing $1,193,000$2,526,000 $1,270,000 $1,564,000 $1,578,041* $0 Circulation
Roadways $1,730,000$1,702,000 $2,590,000 $1,893,000 $2,019,890 $2,041,300 TOTALS:$2,923,000$4,285,000 $4,730,000 $4,380,000 $4,497,931 $3,500,000 Five-Year PMP Investment History & Current PMP Budget Allocations Goal: Maintain 75 PCI over next 5 FYs:
• $53 million: Funding required over next five years
• $31.5 million: For reconstruction/overlay investment
• $21.5 million: For preventive maintenance (slurry, cape seal) investment • $10.6 million: Annual funding needed to maintain current PCI • $4 million: Annual historical average PMP investment over past five FYs Funding to
Maintain
Current PCI
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• CIP budget
workshops will
require strategizing
to prioritize projects.
• CIP staff will bring
PMP project
recommendations
forward during
budget workshops
• Identify potential
funding sources for
PMP investments
Future
Annual
PMP
Funding
Needs
Plan Year Resulting PCI Slurry/Cape Overlay/Recon Total $ Deferred Maintenance Current 75.1 $49,174,700
2025-26 76.7 $5,290,000 $5,383,000 $10,673,000 $50,415,700 2026-27 77.0 $3,342,000 $7,243,000 $10,585,000 $52,226,400 2027-28 77.0 $7,144,000 $3,466,000 $10,610,000 $57,105,800 2028-29 76.3 $7,580,000 $3,005,000 $10,585,000 $60,515,300 2029-30 75.8 $5,138,000 $5,409,000 $10,547,000 $62,788,900 $28,494,000 $24,506,000 $53,000,000
8 Item Title: 12.1
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Item Page Number: 52
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Thank you.
QUESTIONS?
Item Title: 12.1
2025-2030 Pavement Management Program Report Update
Item Page Number: 53
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February 4, 2026
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CITY OF MENIFEE
SUBJECT: Naming of the Bridge over Salt Creek at Bradley Road MEETING DATE: February 4, 2026
TO: Mayor and City Council
PREPARED BY: Jeff Melching, City Attorney
REVIEWED BY: Rebekah Kramer, Deputy City Manager
APPROVED BY: Armando G. Villa, City Manager
-------------------------------------------------------------------------------------------------------------------------------
RECOMMENDED ACTION
1. Review and discuss naming the bridge over Salt Creek at Bradley Road the “Bradley Road Veterans Memorial Bridge.”
DISCUSSION
In February 2025, Councilmember Temple requested a future agenda item to consider naming the bridge over Salt Creek at Bradley Road the “Bradley Road Veterans Memorial Bridge” to appropriately honor veterans living in and near Menifee. This agenda report includes the steps that would be necessary to implement that change including revisions to the City’s existing naming policy and providing formal direction to name the bridge at Bradley and Salt Creek as the “Bradley Road Veterans Memorial Bridge.”
According to U.S. Census Bureau data, there are more than 8,300 veterans living in Menifee, which is more than 1.5 times the rate of nearby Riverside-San Bernardino-Ontario metro areas.
These veterans have represented the United States in conflicts dating to the Vietnam War era, and earlier. They have proudly and bravely defended our nation and are more-than-worthy of a facility naming that recognizes, honors, and serves as a reminder of their service.
The bridge over Salt Creek at Bradley Road is a signature capital improvement project for the City. It consists of a 365-foot structural, seismic and hydraulic state-of-the-art bridge, which will include two vehicle travel lanes together with dedicated bicycle lanes and sidewalks in each direction. The project will cost $16 million, which is fully funded through a combination of federal programs, County of Riverside Flood Control, Local Transportation Climate Adaptation Program, City of Menifee Quality of Life Measure, and other local funds.
The City has an adopted facility naming policy – Policy CC-17 – but it currently only applies to parks and recreation facilities. The purpose of that policy is to provide a formal structure to ensure Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 1
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February 4, 2026
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City of Menifee Staff Report
Bradley Road Bridge over Salt Creek Naming
February 4, 2026
3 1
6 4
the culture and history of Menifee, function, geographical location, and historic significance or geological features of a facility are considered in the naming process. To that end, the policy creates a process through which citizens can request a facility renaming, requires recommendations from the Parks, Recreation and Trails Commission, and imposes other guidelines and limitations when facilities are named after individuals.
Naming the bridge over Salt Creek at Bradley Road the “Bradley Road Veterans Memorial Bridge” would require amending the existing policy to include the naming of all City owned facilities and public infrastructure, not just parks and recreation facilities. Additionally, the City Council may wish to consider allowing a City owned facility or public infrastructure to be named or renamed without first submitting an application and/or obtaining input from a recommending body. A copy of the existing Park and Recreation Facility Naming Policy is attached for reference.
Should the City Council wish to move forward with naming the bridge over Salt Creek at Bradley Road, staff would begin by preparing an amendment to the existing Park and Recreation Facility Naming Policy to include all city parks, facilities, and public infrastructure, for review and consideration by the City Council at a future meeting. The policy parameters would establish the process for naming the bridge over Salt Creek at Bradley Road.
STRATEGIC PLAN OBJECTIVE
Unique Identity; Community Engagement and Social Infrastructure
FISCAL IMPACT
There is no fiscal impact with the recommended action.
ATTACHMENTS
1. Park and Recreation Facility Naming Policy, Policy CC-17 Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 2
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February 4, 2026
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CITY OF MENIFEE
City Council Policy
Policy Number: GC-i7
Approving Authority:
City Council
Subject
Park and Recreation Facility Naming Policy
Effective Dale. 121612017
Last Modified: 51112019
To provide a formal naming policy for City-owned parks and recreation facilities that will ensure the culture and history of Menifee, function, geographical location, and historic significance or geologic features of the park and recreation facility are considered.
2. SCOPE / BACKGROUND
As the City continues to grow and new parks and recreation facilities come on board the City will need a formal and consistent method for naming its parks and recreation facilities.
3. POLTCY
ln determining the names to be given to City-owned parks and recreation facilities, the City Council may receive recommendations from the public and related advisory body such as the Parks, Recreation and Trails Commission.
This policy establishes formal guidelines and procedures for considering naming requests by the public for City-owned parks and recreation facilities or portions thereof. ln naming City-owned parks and recreation facilities, the City Council and the Parks, Recreation and Trails Commission shall consider the following criterra:
A. Each park and community center building will be designated a name. Naming of specific areas within a park (garden, ballfield, etc.) should be kept at a minimum to avoid confusion.
B. The proposed policy will give priority to naming parks and recreation facilitles, or portions thereof, based on geographical location, residency in the City, historic significance or geologic features.
C. Naming a park or recreation facility after a person should only be considered if and when an individual has made a significant financial contribution toward the
1. PURPOSE
4. PROCEDURE
5. GUIDELINES
Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 3
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February 4, 2026
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City of Menifee
Park and Recreation Facility Naming Policy
acquisition and/or development of the park or facility, the individual has been an outstanding long-time community leader who has supported open space and recreational activities, or the individual has a historical significance at the location of the park or recreation facility.
D. Naming a park or recreation facility after an elected or appointed official or public emp oyee shall be considered if the percon has been deceased for five (5) or more years or after a minimum of eight (8) years from the time they left all public servtce or elected or appointed offices.
E. Park or recreation facility names should not be considered controversial by the community and will be supported by a recommended and preferred 4/5 Council vote.
F. All names selected shall be acceptable and meaningful to a majority of the neighborhood/community where the park or recreation facility is located. 6- ROLES AND RESPONSIBILITIES
A. Requestor:
Completes a Parks/Recreatlon Facility Naming Request Application with a minimum two hundred (200) word justification summary and submits to Community Services Department with application fee.
ii. Those submitting a naming request application should show how the proposed name is consistent with the Clty's policy.
ii. Receives naming request from the public and reviews proposal for adherence to City Policy.
iii. Evaluates request for naming/renaming to ensure that applicant has provided sufficient documentation/evidence that all criteria has been met iv. Determines the potential cost ot renaming the parufacility including replacing Policy CC-17
G. Renaming:
The intent of naming is for permanent recognition. The renaming of parks and recreation facilities should be strongly discouraged. Efforts to change a name should be subject to the most thorough examination to prevent the diminishing of the original justification for the name or discount the value of the prior contributors. Renaming after an individual shall meet the same criteria as naming a park and facility and applicant shall provide thorough justification for renaming park or facility, pay an application fee and bear 50% cost of renaming of the park or facility, including any cost of physicaliy replacing signs/structures and City staff time.
B. Community Services Department:
i. Responsible for communication of this policy to the public.
Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 4
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February 4, 2026
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City of Menifee Policy CC-17
Park and Recreation Facility Naming Policy
signs/structures and approximate cost of staff time to complete request. Cost is communicated to the applicant and applicant must agree to cover 50olo of costs before application can continue to be considered.
v. Forwards suggested names to the Parks, Recreation and Trails Commissjon for consideration at the next regularly scheduled meeting.
C. Parks, Recreation & Trails Commission
i. Receives proposed names for parks or recreation iacilities and any additional input from the community during a meeting.
ii. Selects name for the new park or recreation facility and recommends to City Council for consideration.
ln the absence of any naming requests, the Parks, Recreation and Trails Commission shall consider names that adhere to the City's Policy and forward their recommendation to the City Council.
D. Community Services Department
Posts for public hearing at least ten (10) days prior to City Council meeting.
Mails public hearing notice mailings with the next City Council meeting information to property owners within 300' of the proposed naming/renaming alea.
E. City CounciJ
Approves/Denies the recommendation from the Parks, Recreation and lrails Commission.
F. Community Services Depadment
Coordinates installation of signs or plaques lor the park or recreat on facility with the developer if park is part of a new residential development, or handles installation of signs/plaques in-house.
i.
Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 5
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February 4, 2026
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City of Menifee
Revision Histo
Policy CC-17
Park and Recreation Facility Naming Policy
-w I Xr'--
BriIzimmtr#Mayor
Revision
No.
Date
Approved
Approved
By: Comments
12t6t2017 City Council
1 511t2019 City Council
Item Title: 12.2
Naming of the Bridge over Salt Creek at Bradley Road
Item Page Number: 6
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