Public Works Department
DATE: March 25, 2025
TO: City Council
FROM: Edward Arango, Assistant Public Works Director/City Engineer Jennifer Ng, Public Works Director
VIA: Kimbra McCarthy, City Manager
SUBJECT: Pavement Management Program Update
PURPOSE
This memo randum provides an update on the pavement condition, in process and planned paving projects already funded in the Capital Improvement Program (CIP), and an updated evaluation of future funding needs.
BACKGROUND
Staff provided an update on the Pavement Management Program to Council in April 9, 2024 as part of the CIP Study Session. Council agreed with staff’s recommendation to continue prioritizing pavement projects, including the integration of bicycle and pedestrian improvements and to continue to seek opportunities to deliver active transportation projects.
Biennially, t he City coordinates with the Metropolitan Transportation Commission (MTC) to evaluate the overall condition of the City’s street network and develop a rehabilitation and maintenance strategy that will improve the overall condition of the street network. T he City’s street network is typically evaluated biennially by an MTC -assigned consultant who provides a Pavement Management Plan (PMP) report with a network Pavement Condition Index (PCI) rating.
The PCI is a measurement of pavement condition that ranges from zero to 100. A newly constructed or overlaid street would have a PCI of 100 while a poor/failed roadway (requiring major rehabilitation or reconstruction) would have a PCI under 49 (see Table 1).
Pavement Management Program Update
March 25, 2025
Table 1: Pavement Condition Categories
Very Good—Excellent
PCI = 80-100
Newly constructed or resurfaced pavement with few signs of distress.
Good
PCI=70-79
Pavement requiring mostly preventive maintenance and
showing only low levels of distress.
Fair
PCI=60-69
Pavement at the low end of this range is significantly
distressed and may require a combination of rehabilitation and preventive maintenance.
At Risk
PCI=50-59
Deteriorated pavement requiring immediate attention,
including rehabilitative work.
Poor
PCI=25-49
Pavement showing extensive distress and requiring major rehabilitation or reconstruction.
Failed
PCI=24
Extremely rough pavement that needs complete
reconstruction.
The MTC and the Santa Clara Valley Transportation Authority (VTA) expect cities to strive for a minimum network PCI of 70, representing a good condition. Below 70, it becomes exponentially more expensive to repair and maintain pavement. The most cost -effective way to maintain a good pavement condition is to avoid deferred maintenance and invest in preventive maintenance and pavement preservation.
The MTC’s PMP report published in 2024 identified the City’s PCI at 67. In October 2024, the MTC published the 2023 report of the rolling three-year average PCI for all Bay Area jurisdictions, showing Mountain View’s three-year average at 68 (see Exhibit A). The City’s goal is to maintain a Citywide -network PCI above 7 0. More information about the City’s PCI and maintenance strategies can be found on the City’s website at Roadway Pavement . The next MTC PMP report
identifying the City’s PCI is expected in early 2026.
The PCI is in a state of constant decline due to normal wear and tear. Normally, a city can expect its pavement index to drop 2 -3 points over the course of a year. However, the high amount of construction activity in the roadways occurring in the City aggravates this decline. Add on top of that, it is very common in this a rea to add trips (i.e. , wear and tear) to the road via front -door delivery services with the increasing numbers of electric vehicles (which are heavier than internal combustion engine vehicles), and the pavement is actually degrading more quickly than it has historically.
Pavement Management Program Update
March 25, 2025
DISCUSSION
The MTC’s biennial pavement evaluation reported that the City’s network PCI rating was 67 in 2024. As previously noted to Council in April 2024, the City’s PCI is in decline. Staff previously identified the following factors that contributed to the rating:
• During 2020 to 2022, the Engineering Division of the Public Works Department had significant staffing challenges, particularly in the Civil Infrastructure Section that manages the pavement program.
• The staffing challenges required prioritization of capital projects with grant funding or other critical deadlines, creating a backlog and delayed delivery of road pavement projects for several years.
• During the backlog, the pavement condition continued to decline without paving projects constructed to stabilize the City’s overall PCI rating.
Funded Pavement Projects
Staff has been aggressively addressing the backlog of projects over the past 12 months by assigning paving projects to multiple project managers as well as combining similar paving projects from multiple years into one project. Staff will continue this effort to speed up the project delivery. Tables 2, 3, and 4 provide a detailed summary of the pavement projects and their current status.
In Table 2, Project 21- 40 has started construction, and the remaining projects will be starting construction in summer and fall 2025.
Table 2: Pavement Projects Starting Construction in 2025
Project
No. Category Streets Funding (millions)
STARTING CONSTRUCTION
16-48
East Whisman Transit
Oriented Development
Improvements, Phase II:
Ellis Street
Ellis Street between Fairchild
Drive and Manila Avenue $4.72
18-43
Shoreline Boulevard
Interim Bus Lane and Utility
Improvements, Phase 1
Shoreline Boulevard between
Middlefield and Pear 2.63*
20-01 Annual Street Maintenance Miramonte Avenue, Cuesta Drive to Castro Street 5.88
Pavement Management Program Update
March 25, 2025
Project
No. Category Streets Funding (millions)
21-40 California Complete Street
Pilot
California Street, Showers Drive
to Shoreline Boulevard 5.90
21-41 Street Reconstruction Crittenden Lane and North
Shoreline Boulevard 2.27
23-03 SB 1 Streets Various neighborhood streets 4.73
TOTAL $26.13
* Pavement portion of project
Table 3 lists the five projects in design. To catch up with the workload, staff combined several similar projects for efficiency and economy of scale . Projects 22 -01 and 24 -03 include grant funding. Design schedules range from nine to 12 months, allowing construction to start in 2026.
Table 3: Pavement Projects in Design
Project
No. Category Streets Funding
(millions)
IN DESIGN
20-40 Plymouth/Space Park
Realignment, Phase 3
Plymouth Street between Joaquin
and Shoreline $2.75*
21-38 El Monte Corridor
Improvements
El Monte between Springer and
El Camino Real 4.03
22-01 Annual Street Maintenance Middlefield Road Complete Street 5.32 24-01 Annual Street Maintenance
Various streets: Central
Neighborhood and Monta
Loma/Farley/Rock neighborhood
1.57 24-03 SB 1 Streets Moffett Boulevard Complete Streets 5.14 TOTAL $18.81
* Pavement portion of project
Lastly, Table 4 lists the next set of projects, anticipated to start design within the next nine to 12 months. Staff expects to again be combining several similar projects listed to fully catch up with the pavement project backlog.
Pavement Management Program Update
March 25, 2025
Table 4: Pavement Projects Not Yet Started
Project
No. Category Streets Funding
(millions)
NOT YET STARTED
23-31 Street Reconstruction Miramonte Avenue: Castro
Street to El Camino Real $1.16
24-28 Street Reconstruction Various neighborhood streets 1.00 25-01 Annual Street Maintenance Various neighborhood streets 2.15 25-03 SB 1 Streets Various neighborhood streets 2.00
25-28 Street Reconstruction Various neighborhood streets 1.00 26-01 Annual Street Maintenance Various neighborhood streets 2.24 26-03 SB 1 Streets Various neighborhood streets 2.0
26-xx Street Reconstruction Various neighborhood streets 1.0 TOTAL $12.55
In total, the City has accumulated $ 57.49 million (Tables 2 , 3, and 4 combined) from various funding sources for paving projects. Staff will be delivering $ 44.94 million (Tables 2 and 3 combined) in pavement projects by 2026. This continues to be a high volume of projects.
Pavement Funding Analysis
The pavement program currently receives an annual allocation of approximately $ 6.5 million from various pavement fund sources, including the Gas Tax, 2010 Measure B Vehicle Registration Fee, 2016 Measure B Sales Tax, SB 1, and Measure G. Measure G was newly passed by the voters in November 2024, and Council identified the spending priorities for staff allocating 5 to 15% to Other Government Services, including road maintenance. It is too early to identify to what extent Measure G will be able to supplement the pavement program funding.
Often times, supplemental funding is provided by the Construction/Conveyance Tax (C/C Tax) and CIP Reserve funds, however these two sources have experienced significant decline due to new hybrid remote work trends and current economic conditions. While some bounce back of funding has occurred, it has been slow. As shown in Figure 1, at current baseline funding levels of approximately $6.5 million per year, the PCI will continue to slowly decline. While the planned paving projects may temporarily increase PCI, staff expects over the longer run, it will be offset due to the delay in full implementation for almost two years as the pavement continues to degrade.
Pavement Management Program Update
March 25, 2025
Figure 1: Pavement Investment and PCI Status
In 2024, staff evaluated the program funding needs to maintain the network PCI at the current level as well as needs to increase the network PCI by five points, using the latest financial information from the 2024 PMP report. To maintain PCI levels, there will be a need to increase baseline funding levels to avoid further decline. A minimum of $8 million is needed per year (an increase of $ 1.5 million per year over current baseline funding) to maintain the PCI and a minimum of $14 million per year for five years (an increase of $7.5 million per year over current baseline funding) to increase the PCI by five points (see Figure 2).
Figure 2: Annual Funding Needs for Pavement Maintenance
Pavement Management Program Update
March 25, 2025
NEXT STEPS
Staff continues to see a need for an increased investment in the pavement infrastructure. Staff recommends continuing to prioritize pavement projects, aiming to maintain and improve the network PCI toward our goal of a Citywide average of 71 , as expressed in the 2025 Council Strategic Priorities session. Considering the expected flat trending revenues from several funding sources and the magnitude of the pavement program funding needs, staff anticipates that this will require moving CIP Reserve and C/C Tax funds away from discretionary projects, such as City buildings/facilities and bicycle/pedestrian improvement projects, and into pavement maintenance.
EA-JN/LL/1/PWK
932-03-25-25M
Exhibit: A. Pavement Condition of Bay Area Jurisdictions 2023
cc: PWD , APWD—Arango, PCE—Gonzales, SCE—Houghton
Pavement Condition of
Bay Area Jurisdictions
2023
Exhibit A
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 Very Good (PCI = 80–89)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Larkspur Marin 65.8 59 75 83
Orinda Contra Costa 189.9 81 84 83
Palo Alto Santa Clara 414.5 84 83 83
Cupertino Santa Clara 297.7 85 83 82
Hillsborough San Mateo 166.4 78 79 81
Solano County Solano 931.6 80 80 81
Good (PCI = 70–79)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Brentwood Contra Costa 425.9 81 80 79
Dublin Alameda 349.7 84 80 79
Los Altos Hills Santa Clara 124.4 79 79 79
Yountville Napa 16.4 74 78 79
Daly City San Mateo 256.8 79 77 78
Danville Contra Costa 324.4 80 79 78
Emeryville Alameda 47.4 74 76 78
Foster City San Mateo 117.9 80 78 78
San Ramon Contra Costa 509.4 78 78 78
Menlo Park San Mateo 196.8 79 78 77
Burlingame San Mateo 170.8 79 77 77
Clayton Contra Costa 94.2 81 78 77
Livermore Alameda 733.9 79 78 77
(Continued…)
2 | Pavement Condition of Bay Area Jurisdictions 2023
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued)Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued) Good (PCI = 70–79)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Pleasanton Alameda 519.6 78 78 77
Portola Valley San Mateo 70.9 77 77 77
Ross Marin 21.6 77 77 77
Sunnyvale Santa Clara 641.5 76 77 76
Colma San Mateo 26.9 78 76 75
South San Francisco San Mateo 295.4 73 73 75
Woodside San Mateo 96.3 81 76 75
Atherton San Mateo 105.4 75 75 74
Lafayette Contra Costa 199.3 75 75 74
Mill Valley Marin 116.4 73 73 74
Morgan Hill Santa Clara 302.4 73 73 74
San Francisco San Francisco 2,148.3 74 74 74
San Mateo County San Mateo 629.0 74 74 74
Santa Clara Santa Clara 609.7 75 74 74
Brisbane San Mateo 67.9 76 74 73
Moraga Contra Costa 113.3 74 73 73
Vacaville Solano 696.3 70 72 73
Windsor Sonoma 172.2 76 75 73
Alameda County Alameda 993.1 72 72 72
Belvedere Marin 23.4 71 70 72
Los Gatos Santa Clara 239.0 69 70 72
Newark Alameda 262.8 74 72 72
Tiburon Marin 67.7 77 74 72
Contra Costa County Contra Costa 1,347.7 71 70 71
(Continued…)
3 | Pavement Condition of Bay Area Jurisdictions 2023
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued) Good (PCI = 70–79)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Fremont Alameda 1,095.2 73 72 71
Hayward Alameda 681.4 70 69 71
Los Altos Santa Clara 227.1 68 69 71
Monte Sereno Santa Clara 31.3 68 71 71
Oakley Contra Costa 294.2 76 73 71
San José Santa Clara 4,469.1 66 69 71
San Mateo San Mateo 428.9 73 70 71
Milpitas Santa Clara 308.4 73 70 70
Pleasant Hill Contra Costa 225.4 67 69 70
Union City Alameda 329.9 77 73 70
Walnut Creek Contra Costa 398.8 73 72 70
Fair (PCI = 60–69)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Cotati Sonoma 49.7 59 65 69
El Cerrito Contra Costa 137.0 76 70 69
Healdsburg Sonoma 96.9 63 68 69
Redwood City San Mateo 359.3 73 70 69
San Anselmo Marin 81.0 68 68 69
Campbell Santa Clara 218.5 70 69 68
Corte Madera Marin 72.1 66 66 68
Martinez Contra Costa 236.2 64 67 68
(Continued…)
4 | Pavement Condition of Bay Area Jurisdictions 2023
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued) Fair (PCI = 60–69)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Mountain View Santa Clara 353.3 73 70 68
Belmont San Mateo 139.2 60 65 67
Marin County Marin 851.7 65 66 67
Rohnert Park Sonoma 222.1 68 67 67
San Pablo Contra Costa 104.2 71 69 67
Saratoga Santa Clara 283.5 67 67 67
Alameda Alameda 308.5 70 67 66
Half Moon Bay San Mateo 55.4 66 67 66
Sonoma Sonoma 68.4 71 69 66
Dixon Solano 158.2 64 64 65
Fairfield Solano 793.0 69 66 65
Santa Clara County Santa Clara 1,424.3 66 64 65
Antioch Contra Costa 683.2 66 64 64
Hercules Contra Costa 124.6 67 65 64
Novato Marin 319.8 68 66 64
Napa Napa 498.7 69 65 63
Piedmont Alameda 78.4 64 63 63
San Bruno San Mateo 180.5 62 62 63
San Rafael Marin 332.2 65 63 62
Gilroy Santa Clara 274.1 62 59 61
Rio Vista Solano 54.7 59 60 61
Santa Rosa Sonoma 1,137.3 62 62 61
East Palo Alto San Mateo 82.6 62 60 60
Pittsburg Contra Costa 354.4 61 60 60
(Continued…)
5 | Pavement Condition of Bay Area Jurisdictions 2023
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued) At Risk (PCI = 50–59)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
American Canyon Napa 113.4 62 60 59
Calistoga Napa 30.6 61 60 59
Richmond Contra Costa 580.4 63 60 59
Albany Alameda 62.6 56 57 58
Sausalito Marin 57.6 62 59 58
Cloverdale Sonoma 65.1 56 55 57
Oakland Alameda 2,052.3 52 54 57
San Carlos San Mateo 179.3 61 58 57
Berkeley Alameda 449.6 58 56 56
Pinole Contra Costa 118.5 59 56 56
San Leandro Alameda 393.8 55 55 56
Concord Contra Costa 720.7 59 56 55
Suisun City Solano 153.6 59 55 54
Fairfax Marin 54.7 58 55 54
Benicia Solano 197.7 51 52 54
Millbrae San Mateo 112.6 56 55 53
Sonoma County Sonoma 2,698.5 50 52 53
St Helena Napa 50.7 54 49 50
Sebastopol Sonoma 47.5 48 48 50
(Continued…)
6 | Pavement Condition of Bay Area Jurisdictions 2023
Poor (PCI = 40–49)
blank blank blank 3-YEAR MOVING AVERAGE
Jurisdiction County Total Lane Miles 2021 2022 2023
Napa County Napa 819.6 45 45 48
Petaluma Sonoma 393.3 44 44 48
Pacifica San Mateo 189.1 42 43 47
Vallejo Solano 744.4 49 46 45
Bay Area blank 44,108 67 67 67
Pavement Condition Index (PCI) for Bay Area Jurisdictions, 2023 (continued) 7 | Pavement Condition of Bay Area Jurisdictions 2023
Aggregate City and County PCI for Bay Area Counties, 2023 Good (PCI = 70–79)
blank blank 3-YEAR MOVING AVERAGE
Jurisdiction Total Lane Miles 2021 2022 2023
San Francisco County 2,148 74 74 74
Santa Clara County 10,219 70 70 71
San Mateo County 3,927 70 70 70
Fair (PCI = 60–69)
blank blank 3-YEAR MOVING AVERAGE
Jurisdiction Total Lane Miles 2021 2022 2023
Contra Costa County 7,128 69 68 68
Alameda County 8,358 67 67 67
Marin County 2,064 66 66 66
Solano County 3,729 66 65 65
At Risk (PCI = 50–59)
blank blank 3-YEAR MOVING AVERAGE
Jurisdiction Total Lane Miles 2021 2022 2023
Sonoma County 4,951 55 56 57
Napa County 1,529 55 54 54
Bay Area 44,108 67 67 67
8 | Pavement Condition of Bay Area Jurisdictions 2023
Figure 1. Year-Over-Year Comparison of Pavement Conditions for Local Roadways 2006–2023 (Lane Miles)
Year Excellent or Very Good
(100-80)
Good or Fair
(79-60)
At Risk
(59-50)
Poor or Failed
(49-0)
2023 35% 35% 9% 21%
2022 35% 34% 9% 22%
2021 35% 34% 9% 22%
2020 36% 33% 10% 21%
2019 37% 33% 9% 21%
2018 37% 31% 9% 23%
2017 37% 32% 9% 22%
2016 34% 34% 10% 23%
2015 34% 34% 10% 23%
2014 31% 35% 10% 23%*
2013 32% 34% 10% 23%*
2012 31% 35% 11% 23%
2011 31% 35% 11% 23%
2010 32% 34% 11% 23%
2008/09 33% 34% 11% 21%*
2007 35% 32% 10% 22%*
2006 34% 31% 10% 25%
*No Data
Regional Weighted Network PCI (Year over Year)
blank 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Weighted PCI 66 66 66 67 67 67 67 67 67 67 67 67
9 | Pavement Condition of Bay Area Jurisdictions 2023