FINAL REPORT
UPDATE OF
PAVEMENT MANAGEMENT PROGRAM
(Citywide)
2025-2030
Submitted to:
City of Menifee, CA
January 2, 2026, revised
100-21
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.
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
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
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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)
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; City of Menifee, CA Page 2
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
City of Menifee, CA Page 3
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)
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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
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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.
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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 City of Menifee, CA Page 7
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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 City of Menifee, CA Page 8
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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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Final Report – January 2, 2026 Section I
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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Final Report – January 2, 2026 Section I
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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Final Report – January 2, 2026 Section II
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
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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
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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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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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Figure 8 – Arterial / Collector Condition Distribution
Figure 9 – Local Condition Distribution
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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)
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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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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
Section II
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Figure 10 – 2025 Menifee PCI Map
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SECTION IV
FORECAST MAINTENANCE / REHABILITATION (FMR) REPORTS
A. Increase PCI Budget, Five Year Plan (2025-2030)
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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.