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
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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
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.
City of Menifee Staff Report
2025-2030 Pavement Management Program Report
February 4, 2026
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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
City of Menifee Staff Report
2025-2030 Pavement Management Program Report
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.
City of Menifee Staff Report
2025-2030 Pavement Management Program Report
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