View metadata, citation and similar papers at core.ac.

uk brought to you by CORE

provided by Illinois Digital Environment for Access to Learning and Scholarship Repository

CIVIL ENGINEERING STUDIES

Illinois Center for Transportation Series No. 11-094-1
UILU-ENG-2011-2022
ISSN: 0197-9191

IMPLEMENTING PAVEMENT
MANAGEMENT SYSTEMS FOR LOCAL
AGENCIES

IMPLEMENTATION GUIDE
Prepared By

Angela Wolters
Kathryn Zimmerman
Applied Pavement Technology, Inc.

Kerrie Schattler
Ashley Rietgraf
Bradley University

Research Report ICT-11-094-1

A synthesis of
ICT R27-87
Implementing Pavement Management Systems for Local Agencies

Illinois Center for Transportation

December 2011
ACKNOWLEDGMENT, DISCLAIMER, MANUFACTURERS’ NAMES
This publication is based on the results of ICT-R27-87, Implementing Pavement
Management Systems for Local Agencies. ICT-R27-87 was conducted in cooperation with
the Illinois Center for Transportation; the Illinois Department of Transportation (IDOT),
Division of Highways; and the U.S. Department of Transportation, Federal Highway
Administration (FHWA).
The research team is thankful for the assistance provided by the project’s Technical
Review Panel (TRP) members and other IDOT staff with their assistance throughout the
progress of this project.
Members of the TRP are the following:

 Kevin Burke, TRP Chair, IDOT

 Ken Baker, McHenry County DOT
 Jon Hodel,
 Rhonda Leinberger, IDOT
 LaDonna Rowden, IDOT
 Brian Pfeifer, FHWA
 Amy Schutzbach, IDOT
 Susan Stitt, IDOT

The contents of this report reflect the view of the authors, who are responsible for the
facts and the accuracy of the data presented herein. The contents do not necessarily reflect
the official views or policies of the Illinois Center for Transportation, the Illinois Department
of Transportation, or the Federal Highway Administration. This report does not constitute a
standard, specification, or regulation.
Trademark or manufacturers’ names appear in this report only because they are
considered essential to the object of this document and do not constitute an endorsement of
product by the Federal Highway Administration, the Illinois Department of Transportation, or
the Illinois Center for Transportation.

i
EXECUTIVE SUMMARY
Systematic management of pavements has become increasingly important as
pavements continue to age and deteriorate and funding levels have decreased due to
reduced funding or increased competition for funds. The use of a pavement management
system (PMS) is intended to provide roadway managers with a systematic process for
generating answers to many of their pavement management questions.
Pavement management can be simply defined as the process of maintaining the
pavement infrastructure cost-effectively. The American Public Works Association (APWA)
defines pavement management in the following way (1993):

Pavement management is a systematic method for routinely collecting, storing, and

retrieving the kind of decision-making information needed
to make maximum use of limited maintenance (and construction) dollars.

Pavement management is, in essence, a process that includes a series of steps that
will help the user analyze work plan alternatives. Combined with practical judgment and
local knowledge, the pavement management recommendations can be used to help make
final roadway investment decisions.

COST AND BENEFITS

It is important to understand the benefits and associated costs of any investment in
pavement management before starting the process. Therefore, the types of benefits that
can be realized by an agency that implements a pavement management process include:
 Providing a centralized location for pavement inventory condition information,
construction, maintenance, and rehabilitation records.
 Providing a method to analyze the consequences of various funding levels on
pavement conditions.
 Improving scheduling of pavement works; assisting as a decision making tool
in optimizing rehabilitation, maintenance, and trade-off options.
 Providing the information needed to analyze the cost-effectiveness of
treatment repairs.
 Allowing an agency to answer “what-if” type questions regarding pavement
repair programs and funding levels.
 Justifying budget needs to elected officials and other stakeholders.

The costs associated with pavement management can include software acquisition
and installation, personnel training, data collection, database building, and system
maintenance and updates.

WHY INVEST IN PAVEMENT MANAGEMENT?

Many agencies are constrained by limited budgets and personnel resources. Even
with those constraints, the agencies that were interviewed about their pavement
management practices for this study had a variety of reasons for investing in pavement
management. They reported that the investment was worthwhile because pavement
management provides the tools an agency needs to address management challenges and
to provide a consistent and rational management method that helps in rational resource
allocation, optimal use of funds, pavement rehabilitation cost reductions, pavement
treatment selection, pavement life extensions, and increased credibility with stakeholders.

ii
DESIGNING A PAVEMENT MANAGEMENT PROCESS
The development of a systematic and repeatable pavement management process is
a key component in the effective planning and management of a pavement network. The
steps outlined below serve as a Guide for customizing a pavement management process
that fits the needs of each local agency.
Prior to starting the implementation process, it is recommended that agencies
consider naming a champion and forming a steering committee to work as a group in
establishing a process to meet the needs of the agency. For larger agencies, involving a
number of staff from all levels and a variety of divisions within the organization helps shape
the management process to meet the needs of all potential users in the organization.

Step 1: Define the Roadway Network and Collect Inventory Data

The first step in designing a pavement management process is to define the roadway
network. A roadway network is comprised of an inventory of the physical characteristics of
the roadways being managed by the agency. After segments are defined in a manner that
best fits the needs of the given agency, the inventory information for each segment is
collected by either estimating the data or collecting all needed information. The exact type
of inventory information required by an agency depends on what data will be used by the
agency to support its decisions.

Step 2: Collecting Condition Data

Pavement condition data are a major factor in any data-driven, decision-making
pavement management process. Within the pavement management process, the condition
data can be used to help identify current maintenance and rehabilitation needs, to predict
future needs, and to assess the overall impact on the network. Therefore, the type of
condition data required and the level of detail depends on the agency and the pavement
management process used. Condition data will be collected using either manual or
automated data collection methods. With either method, distress data will be estimated or
measured.

Step 3: Predict Condition

With current pavement condition assessed, agencies are equipped with the
information needed to predict the future condition of a segment. In pavement management,
conditions are predicted in terms of performance models that estimate the average rate of
pavement deterioration each year. Pavement conditions can be predicted for the pavement
network using either average deterioration rates or performance prediction models.

Step 4: Select Treatments

The fourth step in designing the pavement management process is to select
appropriate treatments for the roadway network. Treatments are selected using cyclical
schedules or treatment trigger rules. The recommended treatments are then prioritized
using ranking or benefit/cost analysis.

Step 5: Report Results

Project results can be reported using different methods to highlight important factors
which will assist decision makers with their final decisions. Data reporting is an effective
method of communicating not only the recommendations from the pavement management
process but also transferring related information to decision makers. The data can be used
to generate reports and charts to extract relevant information pertaining to any segments
under consideration. The results can be presented either by using standard charts and
reports or customized summaries.

iii
Step 6: Select Pavement Management Tool
The selection of a pavement management tool is influenced by the requirements of
the agency and users needs. The tool provides a platform to store the pavement
management information and to perform different types of analysis depending on whether a
spreadsheet, GIS tool, and/or a pavement management system (public or private) is
selected. Depending on the needs of the agency, a local agency can also opt to use a
combination of pavement management software and customized spreadsheets and/or GIS
software to suit their requirements.

Step 7: Keep the Process Current

Pavement management is a dynamic process that requires regular updates.
Pavement management is not a one-time activity, so agencies must make an effort to
update the information incorporated in the pavement management process. Data
management is a key component to maintaining the database and keeping the information
current.

iv
CONTENTS

Cost and benefits .................................................................................. ii

Why invest in pavement Management? .............................................. ii
Designing a Pavement Management Process ................................... iii
1. Introduction to the Guide.................................................................. 1
2. What Is Pavement Management?..................................................... 3
3. What are the Benefits and Costs Associated With Pavement
Management? ........................................................................................ 4
4. Why Invest In Pavement Management? .......................................... 5
5. Designing a Pavement Management Process ................................ 6
6. Summary .......................................................................................... 34
7. References ....................................................................................... 36
8. Bibliography..................................................................................... 38
9. Glossary of terms ............................................................................ 39

v
PAVEMENT MANAGEMENT IMPLEMENTATION GUIDE
1. INTRODUCTION TO THE GUIDE
Systematic management of pavements has become increasingly important as
pavements continue to age and deteriorate and funding levels have decreased due to
reduced funding or increased competition for funds. The use of a pavement management
system (PMS) is intended to provide roadway managers with a systematic process for
generating answers to questions such as:

 What roads am I responsible for? When were they built and last
rehabilitated?
 What is the existing condition of the road network?
 What is an acceptable condition goal (level of service) to provide?
 What amount of funding is needed to obtain the desired condition of the
roads now and into the future?
 How will the road network condition change if funding levels are changed?
 What maintenance, preservation, and rehabilitation strategies have been
most cost-effective on our road network?
 Are there alternate treatment strategies that would be more cost-effective and
result in better conditions?
 What is the most economical way to maintain the road network over time?

This Guide was developed to provide an overview of pavement management

practices for those individuals faced with the challenge of maintaining roadway networks.
The purpose of the Guide is to serve as a tool to assist local agencies in using pavement
management practices to the extent best suited for them.
In an effort to provide meaningful implementation recommendations to users of this
Guide, several agencies from around the state of Illinois (City of Macomb, City of Naperville,
City of Villa Park, Champaign County, Edgar County, McHenry County, and Stark County)
were selected to serve as case study examples to highlight the variety of processes and
procedures available for successful pavement management implementation. Their practices
and recommendations are shared throughout the Guide.
The Guide has been organized into the eight sections listed below:

1. Introduction to the Guide.

2. What is Pavement Management?
3. What are the Benefits and Costs Associated with Pavement Management?
4. Why Invest in Pavement Management?
5. Designing a Pavement Management Process.
6. Summary
7. References
8. Bibliography
9. Glossary of Terms

Sections 1 through 4 provide background information regarding pavement management,

while section 5 provides the step-by-step details to direct an agency in designing a
pavement management process. Section 6 summarizes the Guide contents. Section 7
provides the references used to create the document and section 8 includes additional

1
references for the agency that is interested in obtaining further information about pavement
management topics. Section 9 provides a glossary of terms used in the Guide.
In addition to this Guide, a State-of-the-Art and State-of-the-Practice Synthesis was created
that includes further details on local agency pavement management. It can serve as a
valuable resource for additional information regarding the various topics discussed in this
Guide. Copies of the Synthesis are available through the ICT website.

2
2. WHAT IS PAVEMENT MANAGEMENT?
Pavement management can simply be defined as the process of maintaining the
pavement infrastructure cost-effectively. The American Public Works Association (APWA)
defines pavement management as the following (1983):

Pavement management is a systematic method for routinely collecting, storing, and

retrieving the kind of decision-making information needed
to make maximum use of limited maintenance (and construction) dollars.

Pavement management is, in essence, a process that includes a series of steps that
will help the user analyze work plan alternatives. Those recommendations will then be
combined with practical judgment to make final investment decisions.
Pavement management can support decisions at various levels (strategic, network,
and project) within the organization. The decisions made at each level include (Zimmerman
and Wolters 2008):

 Strategic – At the strategic level, policy makers make decisions that

influence long-term strategic efforts within the organization. These decisions
may include setting performance targets, funding allocations, and
preservation strategies.
 Network – At the network level, information such as the current and future
network conditions are used to make tactical decisions about the effects of
various short- and long-range budgets, the consequences of various
investment strategies, and the work options for the pavement network over a
typical 5-year timeframe.
 Project – At the project level, the decisions are focused over a short
timeframe (e.g., 2 years) and can include the selection of maintenance
activities, materials, and pavement design thicknesses.

In this Guide, the pavement management practices discussed focus on network-level

management and apply to all pavements under the agency’s jurisdiction. The primary goal
of network-level management is to prioritize which pavement segments should be
maintained, rehabilitated, or reconstructed.

3
3. WHAT ARE THE BENEFITS AND COSTS ASSOCIATED WITH PAVEMENT
MANAGEMENT?
It is important to understand the benefits and associated costs of any investment in
pavement management before starting the process. Therefore, the types of benefits that
can be realized by an agency that implements a pavement management process include
(WSDOT 1994):

 Providing a centralized location for pavement inventory (location, pavement

type, area, mileage, and functional classification); condition information;
construction, maintenance, and rehabilitation records.
 Providing a method to analyze the consequences of various funding levels on
pavement conditions.
 Improving scheduling of pavement works to reduce excessive rehabilitation
costs.
 Assisting as a decision making tool in optimizing rehabilitation, maintenance,
and trade-off options.
 Providing the information needed to analyze the cost-effectiveness of
different treatment repairs.
 Allowing an agency to answer “what-if” type questions regarding pavement
repair programs and funding levels.
 Justifying budget needs to elected officials and other stakeholders.

The benefits an agency will realize from the use of pavement management will
depend on the methods and tools utilized. These factors also impact the costs associated
with pavement management, which generally include the following:

 Software acquisition and installation.

 Personnel training.
 Data collection.
 Database building.
 System maintenance and updates.

4
4. WHY INVEST IN PAVEMENT MANAGEMENT?
Many agencies are constrained by limited budgets and personnel resources. Even
with those constraints, the agencies that were interviewed to highlight their pavement
management practices had a variety of reasons for investing in pavement management,
including:

 Provides a rational engineering decision for selecting projects. – Stark County

 Helps identify the right treatments for the right roadways at the right time. –
Edgar County
 Reduces political pressure to
make certain treatment “The cost (of pavement management)
selections. – Champaign is worth it. You only have one chance
County
to make the right decision, and
 Serves as a tool to help an
pavement management helps you do
agency secure more funding
that.”
for pavement needs. –
‐Stark County, IL
McHenry County

Pavement management provides the tools an agency needs to address

management challenges and to provide a consistent and rational management method that
allows for the following practices:

 A rational and objective method to identify resource allocation.

 Optimal use of available funds.
 Reduction in pavement rehabilitation costs over time.
 Identification of accurate treatment for the pavement segments through
roadway assessment.
 Estimates of pavement life extensions correlated to treatment timing of
treatment applications.
 Increased credibility with stakeholders.

5
5. DESIGNING A PAVEMENT MANAGEMENT PROCESS
The development of a systematic and repeatable pavement management process is
a key component in the effective planning and management of a pavement network. The
steps outlined in this section serve as a Guide for customizing a pavement management
process that fits the needs of each local agency.
Prior to starting the implementation process, it is recommended that agencies
consider naming a champion and forming a steering committee to work as a group in
establishing a process to meet the needs of the
agency. The establishment of a champion is
“Involve a lot of people in the
imperative to seeing the successful completion of
selection and implementation
the project as the individual spearheads all
process….by forming a steering
needed activities. The selected individual should
understand the benefits of pavement committee.”
management and be able to convey those to all ‐McHenry County, IL
within the agency, including top management.
For larger agencies, involving a number of staff from all levels and a variety of
divisions within the organization helps shape the management process to meet the needs of
all potential users in the organization. The types of design decisions that should be directed
by the steering committee include (WSDOT 1994):

 What data should be included in the pavement management process?

 Which division will be accountable for pavement management?
 How will each division provide information to the pavement management
process?
 How will each division use the pavement management results?
 What should be the timeline for the implementation?

Incorporating a variety of staff members can help establish a sense of buy-in and
ownership in the process for all participants early on in the project. McHenry County used a
steering committee of more than ten individuals from various parts of the organization to
direct their pavement management implementation. The process was done as part of their
overall asset management program.
With a unified team formed and pavement management goals established, an
agency is ready to tackle the challenge of designing their pavement management process.
The steps of the process are defined in the following sections and follow the steps shown in
figure 1. The decisions associated with each step are highlighted in the figure.
While working through the pavement management process, agencies should
consider all steps needed to complete the implementation process and the impact of
choices at each step on subsequent decisions. Details of impacts are noted throughout the
discussion so that the users of the Guide can see how choices might impact future
implementation decisions.

6
 After defining the roadway network,
inventory information is collected by
Step 1: Define either estimating the data or collecting
Network & all needed information.
Collect Data

Distress data will be estimated or

measured and condition data will be
Step 2: Collect collected using either manual or
Condition Data automated data collection methods.

Pavement conditions can be predicted Step 7: Keep

for the pavement network using either the Process
Step 3: Predict average deterioration rates or Current
Condition prediction models using statistical
modeling such as regression analysis.

Treatments are selected using cyclical

placements or treatment trigger rules.
Step 4: Select The recommended treatments are then
Treatments prioritized using ranking or
benefit/cost analysis.

Analysis results can be shared with

users of the information using standard
Step 5: Report or customized reports.
Results

Depending on their needs, an agency

can opt to use a spreadsheet, GIS tool,
Step 6: Select and/or a pavement management
Pavement system (public or private).
Management
Tool

Figure 1. Pavement management process design steps.

7
5.1. Step 1: Define the Roadway Network and Collect Inventory Data

After defining the roadway network,

inventory information is collected by
Step 1: Define either estimating the data or collecting
Network & all needed information.
Collect Data

The first step in designing a pavement management process is to define the roadway
network. A roadway network is comprised of an inventory of the physical characteristics of
the roadways being managed by the agency. The inventories are typically built by dividing
the network roadways into manageable segments. These segments are divided based on
similar characteristics, and they are of specific importance since they will serve as the basis
for planning future maintenance and rehabilitation projects. Factors that may define the
boundary between roadway segments include changes in the following attributes:

 Pavement surface type (e.g., hot-mix asphalt or portland cement concrete).

 Pavement structure (e.g., pavement materials or thickness).
 Construction history (e.g., different construction periods, different contractors,
or different materials and techniques).
 Roadway geometry (e.g., number of traffic lanes).
 Traffic (e.g., volume or patterns).
 Pavement condition (e.g., significant variation in condition that is not simply
an isolated area).
 Geographic boundaries (e.g., intersections, bridges, waterways, jurisdiction
limits, railroad crossings).

Using these factors as a guideline, meaningful segments can be created and used
by the agency to identify pavement repair needs. Some municipalities utilize block-by-block
segments while counties tend to create longer roadway segments. For instance, McHenry
County recommends that agencies consider making the length of each pavement segment
equivalent to the length of a logical project. This
technique allows work recommendations to be more
“Make pavement segments of
meaningful since it promotes the use of one segment
logical project length”
to define the length of maintenance or rehabilitation
‐McHenry County, IL
project, which eliminates the need to group multiple
segments together to create recommended
maintenance and rehabilitation projects.
After segments are defined in a manner that best fits the needs of the given agency,
the inventory information for each segment is collected. Typical inventory data collected for
a pavement management system includes:

 Roadway Name – A written description of the roadway name and any

corresponding numeric references.
 Pavement Location – Physical reference to the location, including “beginning
location” and “ending location” designations.
 Pavement Dimensions – Values including length, width, and/or area.

8
  Pavement Type – The material that comprises, at a minimum, the pavement
surface.
 Construction History – Details of the latest maintenance and rehabilitation
treatments and construction date, and, if possible, original construction dates
and additional maintenance and rehabilitation records.

The data outlined above serves as the minimum amount of data needed to complete
the segment inventory. Additional data that may be beneficial to the agency to support the
pavement management processes includes, but is not limited to:

 Functional Classifications – Type of service the roadway was intended to

provide (e.g., arterial, collector, or local/residential).
 Layer Thicknesses – All the thicknesses of the layers above subgrade.
 Subgrade Information – Type and material classification.
 Drainage Characteristics – Occurrence of curb and gutter or ditches and
related details.
 Ownership information – Details on jurisdiction.
 Shoulder Data – Shoulder type and width.
 Traffic Information – Details on average daily traffic (ADT) and truck traffic.

The desired inventory data is summarized for each pavement segment defined in the
network. While some inventory data require updates with time, information such as names,
location, and dimensions do not normally require modifications unless changes have been
made to the network. Compiled inventory information can be stored a variety of ways:

 Paper records.
 Electronic spreadsheets.
 Databases (e.g., either stand-alone database or a database as part of
pavement management software).
 Maps (e.g., GIS-based maps).

5.1.1. Selecting the Appropriate Methodology

The exact type of inventory information required by an agency depends on what data
will be used by the agency to support its decisions. Further consideration of inventory data
requirements is needed when an agency decides to implement pavement management
software, as discussed in Step 6, Selecting Software.
The definition of the pavement
network and the collection of inventory data The City of Naperville estimated the
can be labor-intensive tasks. Therefore, as inventory quantities for the roadway network
the agency determines the extent of to begin setting up the pavement
needed inventory data for their agency’s management system. The City gradually
pavement management process, it can updated inventory information, such as
move forward by either estimating data or pavement thicknesses, while conducting work
collecting needed information for each on the streets during condition surveys and
pavement segment. pre‐construction scoping surveys.
Estimating data allows agencies
without readily available summaries of information to complete an inventory and move
forward with the pavement management process without needing to collect every detailed
piece of information. Estimated quantities can be updated in the future to correct the
inventory information. For example, roadway lengths and widths may be estimated to

9
complete the initial inventory, but the information can be updated to reflect field conditions
during a pavement condition survey.
Some agencies decide that it is worth the time and effort to complete the summary of
all inventory data prior to moving forward with the other implementation steps. For those
agencies that are planning to collect all information, data may be obtained from an agency’s
existing paper or electronic records that detail the attributes the agency is interested in
tracking. Also, missing data can often be supplemented by expert knowledge of those that
have been with the agency for a significant period of time (e.g., construction managers and
maintenance supervisors can often help populate information regarding construction
history). Data from the Illinois Road Information System (IRIS) may also be obtained
through the IDOT by contacting the Office of Programming and Planning or the Bureau of
Local Roads, Central Office. Additionally, available GIS files from IDOT can provide a
variety of inventory information.
The decision to estimate inventory quantities rather than collect data prior to other
implementation steps should be based on the agency’s analysis and reporting needs as well
as the resources available to collect and maintain the data with time.

5.2. Step 2: Collect Condition Data

Distress data will be estimated or
measured and condition data will be
Step 2: Collect collected using either manual or
Condition Data automated data collection methods.

Pavement condition data are a major factor in any data-driven, decision-making

pavement management process. Within the pavement management process, the condition
data can be used to help identify current maintenance and rehabilitation needs, to predict
future needs, and to assess the overall impact on the network. Therefore, the type of
condition data required and the level of detail depends on the agency and the pavement
management process used. Collecting pavement condition data can be an elaborate
process, so selecting an appropriate method is an important step for an agency.
Condition data that are not used to support decisions or are not needed for specific
reporting purposes should not be considered essential to the pavement management
process as it may be difficult to keep the data current. Special attention must be given to
balancing the level of desired data and the resources available to collect and maintain the
data into the future.
When selecting a condition data collection method, there are two main
considerations:

 Data quantity – Data quantity refers to what and how much information is
collected. Both have time and cost implications since the greater the volume
of data collected or the more detailed the collected data, the higher the cost
of data collection.
 Data quality - Although the associated cost of the data increases, more
detailed data for analysis can result in better analysis decisions. For most
agencies, the goals for network-level surveys are to develop appropriate
budgetary needs and to evaluate the performance of previously implemented
strategies.

10
 A trade-off exists between collecting all of the condition data that might be needed to
assist in making effective network decisions and collecting enough data to make good
decisions, and this trade-off is in large part governed by agency needs and the associated
resources (Zimmerman et al. 2011).
The main source of information to support pavement management is pavement
distress data, such as cracking, potholes, and rutting. For those agencies with expanded
resources for condition data collection, additional data related to surface characteristics,
subsurface characteristics, and structural conditions might also be collected. As mentioned
previously, all of this information may help an agency make strong network-level decisions.
However, most local agencies do not have the resources to fund all of these data collection
activities. Therefore, this section focuses on the collection of pavement distress information
through surface condition surveys. For those agencies interested in collecting additional
pavement condition data, resources can be found in the reference and bibliography
sections.
Pavement distress data can be collected using either a manual or automated
method. The type of survey performed can also vary. Some agencies perform pavement
condition surveys that require the raters to measure distress. Others simplify the rating
process by estimating distress quantities. The options discussed in this section have a
tremendous impact on the resources required to collect the data, so agencies should
consider these choices carefully. Additional details on the collection of condition data are
provided in the Synthesis document that was produced in conjunction with this Guide.

5.2.1. Distress Survey Approaches

There are a variety of methods available for determining distress quantities; the
methods typically involve surveys that focus on either an estimate of distress or a detailed
measurement of distress. Although many variations among these methodologies exist,
several examples are presented to illustrate the range of complexities in terms of the survey
procedures and methodologies used in pavement management systems.

5.2.1.1. Surveys Based on Estimated Distresses

When distresses are estimated during surveys, the distress severity and quantity
information is determined without direct measures. A survey based on estimated distress is
the Pavement Surface Evaluation and Rating (PASER) rating procedure, which involves
visually rating the surface condition of a pavement on a scale from 1 to 10, with 1 indicating
a pavement in failed condition and 10 being a pavement in excellent condition (Walker et al.
2002).
The PASER rating procedure is based on a series of descriptions and related
photographs for each of the individual rating categories (a sample is shown in figure 2) that
are used by a rater to evaluate the overall condition of an individual pavement segment.
During the procedure, the general condition of the roadway is determined (e.g., new
pavement, pavement in poor condition, etc.). Next, the pavement distresses are evaluated
subjectively and the rater selects an appropriate surface rating on the 1 to 10 scale
presented in the PASER manual. Individual pavements may not have all of the types of
distress listed for a particular rating, but the general description should match what is
observed in the field. The PASER rating scale can generally be translated into the
maintenance categories shown in table 1.

11
Figure 2. Sample PASER rating for asphalt pavement with rating of 5
(Walker et al. 2002).

12
 Table 1. PASER ratings related to maintenance
and repair strategies (Walker et al. 2002).

PASER Rating General Description of Maintenance/Repair Needs

9 & 10 No maintenance required
8 Little or no maintenance
7 Routine maintenance, crack sealing and minor patching
5&6 Preservative treatments (seal coating)
3&4 Structural improvements and leveling (overlay or recycle)
1&2 Reconstruction

Complete guidelines for rating the pavement surface using the PASER system are
available from the Transportation Information Center, University of Wisconsin – Madison
(Walker et al. 2002).
Another survey procedure that uses estimated distresses to determine the condition
of the pavement segment is the Condition Rating Survey (CRS) procedure used by IDOT
(IDOT 2004). CRS values range from 1.0 to 9.0 in tenth-point increments. A CRS rating of
a 1.0 denotes a pavement that has totally failed, and a CRS rating of 9.0 denotes a newly
constructed pavement surface. A summary of the ratings is provided below (IDOT 2004):

 Poor (1.0 ≤ CRS ≤ 4.5). The pavement is critically deficient and in need of
immediate improvement.
 Fair (4.6 ≤ CRS ≤ 6.0). The pavement is approaching a condition that will
likely necessitate improvement over the short term.
 Satisfactory (6.1 ≤ CRS ≤ 7.5). The pavement is in acceptable condition (low
end) to good condition (high end) and not in need of improvement.
 Excellent (7.6 ≤ CRS ≤ 9.0). The pavement is in excellent condition.

The CRS rating is calculated using deduct values that reduce the rating from a 9.0
when distresses are present. The deduct values are determined based on the five most
prevalent distress types occurring in a pavement segment. The Condition Rating Survey
Manual developed in April 2004 provides several images of distress ratings to aid a surveyor
in properly determining distress types and the related CRS rating for a pavement segment.
Figure 3 shows an example of an asphalt pavement with a CRS score of 5.9 compared to
another pavement with a CRS score of 5.8.

13
 Figure 3. Pavements with a CRS scores of 5.9 and 5.8 (Illinois Department of
Transportation 2004).

5.2.1.2. Surveys Based on Measured Distresses

The pavement condition index (PCI) survey is an example of a detailed survey
method. It was developed by the U.S. Army Corps of Engineers, adopted by the American
Public Works Association and ASTM International (formerly the American Society for
Testing and Materials), and documented in
ASTM D6433, Standard Test Method for Pavement Condition Index
Roads and Parking Lots Pavement
Condition Index Surveys (ASTM 2009). The
Good
PCI methodology is a rating system that
measures the pavement integrity and Satisfactory
surface operational condition based on a
100-point rating scale, as shown in figure 4 Fair
(ASTM 2009). According to this
methodology, the pavement network is first Poor
divided into branches (e.g., individual road),
sections (e.g., segments with consistent Very Poor
work history), and sample units.
Pavement surveys are conducted on Serious
sample units. A sample unit is a small
segment of pavement of required size, which Failed
is then inspected in detail. For example,
Figure 4. Pavement Condition
Index ratings.
14
sample units in asphalt-surfaced pavements are each approximately 2,500 square feet, plus
or minus 1,000 square feet (ASTM 2009). A representative percentage of sample units are
randomly selected and inspected. Since the inspected sample units are used to
characterize the condition of the entire section, it is important that they are representative of
that condition. Detailed pavement condition
surveys are conducted by identifying the Edgar County uses a customized PASER rating
type, severity, and amount of each distress (1 to 5) obtained during windshield surveys.
in representative sample units selected These ratings are used to define a desired
according to systematic sampling level of service for each segment. This rating
procedures. is used by the agency in combination with
A total of thirty-nine distress types Average Daily Traffic (ADT) to group roadway
(twenty types for asphalt pavements and characteristics on a scale of 1 to 5. The
nineteen for concrete pavements) are ratings are then converted to a customized
defined with three levels of severity (i.e., prioritization number which is used to arrive
high, medium, or low) (ASTM 2009). Each at applicable pavement maintenance fixes.
combination of distress type, severity, and
extent has a deduct value associated with it, Stark County uses a modified version of the
Pavement Condition Rating (PCR used by the
which is determined by using available
Ohio Department of Transportation (DOT)
graphs for different types of distresses.
and i available through the DOT’s website.
Distresses that are considered to be more
The methodology and related forms gave
damaging to the pavement (such as fatigue
Stark County the basis they needed to
cracking) have higher deduct points evaluate their pavements. Stark County
associated with them than distresses that customized the procedure to incorporate
are less critical (such as transverse cracks). adverse crown as a distress for the survey of
Once each distress’s deduct value is oil and chip roads. This distress is a critical
determined, they are added together to get driver in the maintenance and rehabilitation
the total deduct value for that sample unit. decisions by the County and, therefore, was
This value is then adjusted depending on added to the survey procedure to aid in
how many distresses were used. The project selection.
deduct values are subtracted from a perfect
score of 100 to determine the PCI for that In addition to PASER surveys that are
sample unit. A weighted average of all the collected each year, McHenry County has a
PCIs for the inspected sample units within a consultant perform CRS on a 2‐ to 3‐year
single section are then used to represent cycle using IDOT standards. These ratings are
the condition of that section. Many used by the County to develop work plans
pavement management systems calculate and condition prediction models for their
the PCI based on the distress inputs roadway network. The County also
entered into the software. recommends making sure “not to overstate
how much the treatment improves the
5.2.2. Distress Survey Collection Methods condition, as it can result in incorrect
After determining the survey performance curves.”
approach for collecting the distress data, an
agency must choose between the two
primary methods of collecting pavement condition data: manual and automated.

5.2.2.1. Manual Distress Survey Collection Method

Manual surveys are generally considered to be visual assessments of field
conditions conducted by one or more individuals who view the pavement through the
windshield of a vehicle or as they walk the pavement. Data from a manual survey may be
recorded on a sheet of paper, into a handheld tool, or in a computer.

15
5.2.2.2. Automated Distress Survey Collection Method
Automated surveys are conducted using vehicles equipped with specialized cameras
and sensing devices that record images and data related to the pavement being evaluated
(NCHRP 2004). An example data collection vehicle is shown in figure 5.

Figure 5. Data collection vehicle (SSI 2011).

The data collected with the automated equipment must be processed to convert it
into a usable format using fully or semi-automated means. “Fully automated” data collection
and processing uses computers to interpret, reduce, and analyze the images and sensor
data collected in the field without human intervention. Alternatively, “semi-automated” data
processing is also used to convert the data collected using automated collection means, but
images will be viewed by people who interpret the images to identify distress information.

5.2.3. Selecting Appropriate Methodology

With a range of levels of sophistication and required resources (time and money) to
complete condition data collection, a significant amount of consideration must be given to
this choice of survey procedures.
When choosing between estimated and measured distress procedures, it is
important to consider the advantages and disadvantages of each approach. For instance,
survey procedures that are based on estimated distress quantities have the advantage of
being able to be conducted fairly quickly and, therefore, very economical. However,
procedures such as the PASER rating, which estimates a condition rating instead of using
measured distress quantities, might not meet the analysis needs of the agency. Specifically,
if the agency desires to have detailed distress data for activities such as estimating localized
maintenance quantities (e.g., crack sealing or patching quantities), a survey procedure that
provides that type of information must be used, such as the PCI. Some agencies may elect
to develop their own unique pavement rating system by customizing other survey
procedures to better meet their needs, as have Edgar and Stark Counties, or elect to use
more than one survey method to describe the condition of their road network, as have
McHenry County.
The choice between using manual or automated surveys can be determined by
evaluating the advantages and disadvantages associated with each procedure listed in table
2. Agencies must also consider matching the formatting of the data collected with the
pavement management tool selected in step 6 of the implementation process.

16
 Table 2. Advantages and disadvantages of manual and automated surveys
(AASHTO 2006).

Survey
Advantages Disadvantages
Methodology
 Detailed distress information  Resource intensive
can be collected  High safety risk
 Simple to conduct  Potential for high variability in the
Manual  No capital expenditures data without strong training
required programs and quality control
checks

 Lends itself to capturing large  May require a large capital

quantities of data investment or contracting fees
 Multiple types of data can be  Data must be viewable from the
collected at the same time pavement lanes
Automated
 Data can be collected at traffic  Some distress characteristics are
speeds difficult to capture (e.g.
 Images are stored and weathering and raveling of the
available for other uses pavement surface)

Figure 6 provides a representation of the types of survey procedures available to the

agencies and the related level of sophistication and resources required to collect the
information.

Automated ‐
Measured
e.g., Van ‐ PCI
Automated ‐
Estimated
e.g., Van ‐ CRS

Manual ‐
Measured
e.g., Walking ‐ PCI
Manual ‐
Estimated
e.g., PASER

Resources

Figure 6. Selecting a survey method.

17
5.3. Step 3: Predict Condition
Pavement conditions can be predicted
for the pavement network using either
Step 3: Predict average deterioration rates or
Condition prediction models using statistical
modeling such as regression analysis.

With current pavement condition assessed, agencies are equipped with the
information needed to predict the future condition of a segment. In pavement management,
conditions are predicted in terms of performance models that estimate the average rate of
pavement deterioration each year. In addition to forecasting future conditions, performance
models assist with the following activities (Broten 1997):

 Identifying the appropriate timing for pavement maintenance and

rehabilitation for each segment.
 Identifying the most cost-effective treatment strategy for pavement segments
in the network.
 Estimating pavement needs and associated budgets required to address
agency-specified goals, objectives, and constraints.
 Demonstrating the consequences of different pavement investment
strategies.

If an agency wants to develop a multi-year pavement maintenance and repair

program, it needs to project pavement condition into the future. Prediction models are used
to determine the future condition of a pavement segment. A performance curve is
calculated by evaluating past historical data often in terms of pavement age and condition.
The models can be produced for any measure of condition according to agency need.
The most basic form of a performance model is an average rate of deterioration for a
single pavement section or a group of pavement sections with similar characteristics, known
as pavement families. The creation of average deterioration rates is a simple process that
works well when an agency is interested in using paper or spreadsheet methods of
evaluating the performance of their pavement network. More sophisticated performance
models are often used by agencies that invest in pavement management software, since the
programs often provide the tools to create and use the prediction equations for either
individual pavement segments or groups of pavements with similar characteristics.

5.3.1. Average Rates of Deterioration

Using the collected condition information, deterioration rates can be estimated for
pavement sections using the following equation:

( PastRating  CurrentRat ing )

Deteriorat ionRate 
NumberOfYe arsBetween Ratings
An agency can also calculate the deterioration rate for groups of pavement segments
using average conditions and pavement ages in the above equation to estimate an average
deterioration rate for the pavement family. The calculated deterioration rates for the
individual section or pavement families can then be used to estimate the condition of the

18
pavement segments for a year or two into the future based on the assumption that
deterioration will continue at the same rate. In addition, if distress types are recorded in the
selected condition survey, the types of distresses present can provide further insight into the
cause of pavement deterioration. Agencies using spreadsheet methods may be best served
using average deterioration rates to predict condition.

5.3.2. Prediction Models using Statistical Analysis

The development of prediction models using statistical analysis is a more complex
activity than creating average rates of deterioration. Often agencies accomplish the creation
of these models within the pavement management software they utilize. For example, those
agencies that use The MicroPAVER software developed by the U.S. Army Corps of
Engineers develop performance prediction models using a general procedure called the
Family Method. The method consists of the following steps (Shahin 1994):

1. Define the pavement family – A group of pavement sections with similar

deterioration curves is defined as the family. The MicroPAVER software allows
the user to define the family based on stored inventory data (e.g., pavement type,
functional classification, traffic information, etc.). Once a family is created, the
condition data, in terms of PCI, and pavement age information for all pavement
segments in the family are compiled into a file that is used to create the
performance model.
2. Filter the data – The MicroPAVER software flags data for sections that show
condition increases as the pavement section ages. Also, the software flags data
that is outside of defined boundaries that are used to indicate when pavement
sections have conditions that do not meet expected conditions over the life of the
pavement.
3. Conduct data outlier analysis – The software also allows for the statistical
removal of unusual data that may be improperly impacting the performance
modeling of a pavement family. Data is removed using statistical analysis to
detect data that exceed user-defined confidence intervals.
4. Develop the family model – With data filtered and outliers removed, the
MicroPAVER software allows for the creation of a prediction model. The model
is constrained to have a decreasing slope since the condition cannot increase
with age. The developed model, which defines the average behavior of the
pavement sections, extends across the available condition data and future
conditions are predicted by extrapolating the curve.
5. Predict the pavement section condition – Within MicroPAVER, the predicted
condition of pavement segments are defined by the pavement section’s position
relative to the family prediction curve. A modified prediction curve for each
pavement segment is created by “shifting” the family curve to the latest
condition/age point for the segment and using the shifted performance model to
predict future pavement section conditions. Example family and segment
performance prediction curves are shown in figure 7.

19
 Condition
Actual
data
point

Family
model Shifted performance
model

Age
Pavement
Age

Figure 7. Pavement segment prediction in relation to a family model (based upon

Shahin 1994).

Various agencies have created statistically developed performance models using

other pavement management software and spreadsheet tools. Figure 8 illustrates an
asphalt surface (AC) performance curve used by Champaign County. The curve is
representative of the pavement’s anticipated performance over time. The development of
pavement prediction models based on condition data were used by Champaign County to
gain approval for budget allocation for county roads.

Figure 8. Champaign County performance prediction model

for AC pavements (ARA 2009).

20
 There are a variety of approaches that can
be used to develop prediction models. For
instance, McHenry County created a deterioration “The PMS currently has
curve for the PCI based upon the average ages of deterioration curves, one for
its three surface types. The City of Naperville, on the three major surface types.”
the other hand, developed a PCI performance ‐ McHenry County, IL
curve that was then used to determine funding
needs for the City.

Figure 9. City of Naperville performance prediction model (City of Naperville 2008).

5.3.3. Selecting Appropriate Methodology

Most pavement management software can be used to generate database-specific
performance prediction models using the actual pavement condition data. Therefore,
agencies that choose to use pavement management software should be able to handle
pavement performance prediction inside of the software. For agencies using a spreadsheet
or databases outside of pavement management software, it is a more difficult to develop
and use statistically developed prediction models. Therefore, it is recommended that
average rates of deterioration be used to predict condition. In either scenario, the developed
models can be used to illustrate performance trends and develop budget scenarios to
analyze the impact of the funding availability and investments on the condition of the entire
network.

21
5.4. Step 4: Select Treatments
Treatments are selected using cyclical
placements or treatment trigger rules.
Step 4: Select The recommended treatments are then
Treatments prioritized using ranking or
benefit/cost analysis.

The fourth step in designing the pavement management process is to select

appropriate treatments for the roadway network. The selection of treatments is based on
the agency’s defined maintenance and rehabilitation strategy, which is created by selecting
trigger values to identify segments needing repair. Trigger values are thresholds that can be
used to signify the need for various treatments to be applied to pavement segments. For
example, pavement age, pavement surface condition, or traffic can be used as a factor to
determine the eligibility of a pavement for repair. The selection of a treatment can be based
on either a cyclical selection or the creation of treatment rules.

5.4.1. Cyclical Treatment Selection

One method of selecting a treatment for a pavement segment is through a cyclical
method of applying a treatment to given pavement sections. Many agencies select
maintenance strategies based on pavement age. These treatments are then repeated at
specific time intervals. For example, an agency may chose to chip seal all pavements on a
7-year cycle. The agency can then divide the pavement network into seven regions and
cycle through the regions every 7 years.
The placement of the treatment increases the pavement life and, if applied at the
correct time, can prolong the life of the pavement. However, the timing of such a treatment
is critical to its performance and overall cost-effectiveness. Therefore, it is difficult to
achieve the most effective treatment timing using cyclical treatment selection as the cyclical
placement is regimented and does not allow for flexibility in addressing the placement of the
treatment at the right time for each pavement segment independently.

5.4.2. Treatment Rules

In addition to the creation of cyclical treatment triggers, another method of treatment
selection is the use of treatment rules that
are developed into a matrix or a decision
Champaign County uses the treatment matrix
tree. To develop treatment rules, an agency
in conjunction with its pavement
needs to define its treatment strategy. That
management system to analyze PCI ratings
is, select treatments that will be applied at and pavement structural information to
specific condition levels for pavements with arrive at an appropriate and effective
specific inventories. An example treatment treatment method for particular pavement
matrix is shown in figure 10. This matrix is segments based on the traffic levels of the
used by Champaign County to select an roadway.
appropriate treatment and determine the
overall needs of the pavement network
based on collected surface and estimated
structural condition information in the form of PCI and Rolling Weight Deflectometer (RWD)
deflections, respectively.

22
 Figure 10. Champaign County treatment matrix (ARA 2009).

Other forms of treatment rules can be The City of Macomb developed a customized
developed, including decision trees for rating system to assess their network
selecting treatments for the roadway condition. The rating system is a non‐
segments. A decision tree contains a
measurable and manual method in which the
strategy for each branch of the tree,
generating specific treatment options for pavements are rated as either “good, fair,
various categories defined by the agency. poor, or failed”. This rating on the segment is
Some agencies, such as the City of Macomb, then used to determine possible maintenance
develop treatment rules based solely on the and rehabilitation strategies for each rating
condition rating of the pavement segments. level.
With treatment selection rules established, Good – minor maintenance (crack seal)
recommended projects must be selected to Fair – maintenance (crack seal and spot
match agency funding levels. repairs)
Poor – major repair (mill and overlay)
5.4.3. Ranking
Project priorities can be selected Failed – reconstruction roadway.
using a ranking of projects based on some
type of agency priority, such as pavement
condition, functional classification, and/or traffic levels as described in this section or by
using benefit/cost analysis as described in the next section. Ranking is the simplest method
of selecting projects and normally results in a yearly evaluation of selected projects. One
method of using the ranking approach is to fix the pavements in the worst condition first.
However, this “worst-first” approach does not help maintain those pavements that are in
good condition and can lead an agency into a costly cycle that does not provide any funding
for the preservation of pavements. If an agency decides to use a ranking technique, it
generally follows the steps listed below (Zimmerman 2011).

23
  Assess needs for a given year by identifying all pavement sections that are
not in excellent condition.
 Calculate treatment costs by multiplying the cost of the appropriate treatment
for each level of repair times the project area.
 Sort the needs in priority order using the ranking methodology established by
the agency. For a worst-first strategy, the road sections in worst condition
would be the highest priority.
 Select projects in accordance with the prioritized listing until there is no
funding left for that year.
 Consider any remaining unfunded needs in the next year and repeat the
process.

5.4.4. Benefit/Cost Analysis

A benefit/cost analysis allows an agency to work at prioritizing, or even optimizing,
the choice of treatments on a multi-year
period. This approach is preferred over a
ranking approach because multiple The Village of Villa Park utilizes the benefit/
treatments are considered, consequences cost ratio from the analysis of treatment
of delaying or accelerating a treatment are options from their IMS Pave Pro software to
evaluated, and the cost-effectiveness of a determine a list of candidate maintenance
treatment is taken into account in and rehabilitation projects. The benefit/cost
developing the program recommendations values are used to prioritize the work on the
(Broten 1997).
pavement network.
The benefits of the treatment, which
are normally represented as the increase in
pavement condition, are divided by the
construction cost to determine the benefit/cost ratios, as shown in figure 11. Therefore, the
longer the pavement stays in good condition, the more benefit will be accrued by the user
and the higher the benefit/cost ratio. Those projects which provide the greatest benefit for
the funds expended are considered the best choices.

Performance model
Condition
before repair
Performance model
after repair

Benefit
Area

Terminal serviceability may be used

to limit the benefit area

Age
Figure 11. Benefit determination using performance curves
(Broten 1997).

24
5.4.5. Selecting Appropriate Methodology
To help identify the most appropriate treatment for each project, agencies may
choose to use either a cyclical schedule or treatment rules. Cyclical timing works well for
agencies that utilize a spreadsheet to manage the pavement network, whereas the creation
of treatment rules, while possible within a spreadsheet, can be cumbersome. Treatment
rules are easily created within public and private pavement management software.
After treatments are determined they then must determine the prioritization of the
projects since most agencies have more needs than available funding. Agencies can
choose to prioritize projects based on ranking or through benefit/cost analysis. Benefit/cost
analysis is best conducted inside a PMS, while ranking can be easily accomplished in a
spreadsheet tool. The results of the treatment selection step provide final work plan
recommendations for the agency.

5.5. Step 5: Report Results

Analysis results can be shared with

users of the information using standard
Step 5: Report or customized reports.
Results

The reporting of project results is the fifth step in the implementation process, in
which the results of data analysis are presented. The findings can be reported using
different methods to highlight important factors, which will assist decision makers in making
various decisions. Data reporting is an effective method of communicating not only the
recommendations of the pavement management process but also transferring related
information to strategic decision makers. The data can be used to generate summaries of
relevant information pertaining to any segments under consideration. In general, the results
can be presented either by using standard reports or customized summaries.

5.5.1. Standard Reports

Typically, analyzed data can be represented in the form of standard reports and
charts that are available from various pavement management software programs or from
spreadsheets. The pavement management process tool provides a platform to utilize the
results of an analysis and generate different types of reports, such as work history
information, section information, and pavement condition information.
Standard graphics are often used to display percent of pavement mileage in various
condition categories. Example pie and bar graphs for the City of Macomb and Champaign
County are displayed in figures 12 and 13, respectively. These graphics provide a
representation of the overall condition of the roadway network for each entity.

25
Figure 12. City of Macomb condition summary (City of Macomb 2011).

Figure 13. Champaign County condition summary (ARA 2009).

26
 In 2010, the Public Works Group at the City of
5.5.2. Customized Summaries
One advantage to implementing Macomb proposed a half percent increase in
pavement management software is the ability to sales tax to support roadway needs. To gain
use the available data to generate user-defined support for the increased funding, the Public
reports that can be modified to suit the Works group developed a presentation
requirements of the agency. The customized (including GIS maps) showing how the
summaries could also be accomplished with the pavement network will perform with and
use of spreadsheets or other customized without the proposed increase in funds.
reporting tools. Some pavement management
software also facilitates the generation of reports
linked to the GIS component of the database or separately-managed GIS software. An
example of a summarized work plan that is linked to the GIS map is shown in figure 14.

Figure 14. Edgar County 5-year work plan (Edgar County 2011).

27
The results of the pavement management
The City of Naperville developed prediction
analysis can also be used to generate
models to conduct a budget analysis in 2010.
summaries for presentations to decision
makers. An example that displays a These models were used to determine that
comparison of budget scenarios that relay the $12 million was needed to maintain the
impact of the budget on the condition of the system at the current condition level. The
City of Naperville’s roadway network is shown results of the budget analysis were used to
in figure 15. The effect of budget changes on present the gap between the current
the network condition, often referred to as allocations and requirements for citywide
“what if” scenarios, are often very effective at maintenance and operations. As part of the
showing decision makers the need for
study, the budget analysis served as a key
continued and/or increase levels of funding for
component in helping decision makers justify
the road networks.
a new plan for city wide fees to cover the
monetary deficit.

Figure 15. City of Naperville proposed budget needs (City of Naperville 2008).

5.4.5. Selecting Appropriate Methodology

Most agencies use a combination of standard and customized summaries to display
their pavement management information. The visual aids generated depend on the needs
of an agency and the type of information to be represented. As shown throughout this
section, a variety of forms exist for creating visual aids to report pavement management
data. General guidance on the types of visual aids that work best for sharing data with
various users of pavement management information and examples of each is summarized
in table 3.

28
 Table 3. Visual aids for reporting information to the users of
pavement management data (Broten 1997).

Visual Aid When to Use Examples

Tables  Incorporate into a report or  Inventory listing (e.g., segment location
document for detailed- and name, surface type, age, traffic)
oriented user (engineers,  Condition listing (e.g., segment name,
planners, etc.) condition indices)
 Display extensive amount  Maintenance listing (e.g., segment
of detailed information name, year of maintenance activity,
 Support detailed analysis maintenance type and cost)
and provide technical  Budget listing (e.g., money proposed for
information repairs for each segment or for various
functional classifications)

Charts  Present information to  Pie chart (shows size of each part as a

nontechnical audiences, percentage of the whole) – figure 12
such as elected officials  Column chart (show how items change
and the public with time or compare to one another) –
 Emphasize points to be figure 13
made (easy method to  Line chart (shows how items change
convey simple over time and can compare “what if”
summaries) budget scenarios) – figure 15

Maps  Display single type of  Segment surface type

information on a  Color-coded current condition
geographical basis  Color-coded projects by year
 Present information to  Future condition for a funding scenario
nontechnical audiences,  Deferred projects
such as elected officials
and the public

29
5.6. Step 6: Select Pavement Management Tool

Depending on their needs, an agency

can opt to use a spreadsheet, GIS tool,
Step 6: Select and/or a pavement management
Pavement system (public or private).
Management
Tool

The selection of a pavement management tool is influenced by the requirements of

the agency and users’ needs. The tool provides a platform to store the pavement
management information and to perform different types of analysis depending on whether a
spreadsheet, GIS tool, and/or a pavement management system (public or private) is
selected.
Depending on the needs of the agency,
a local agency can also opt to use a The case studies indicated that the
combination of pavement management participating agencies use several different
software and customized spreadsheets and/or pavement management systems and some
GIS software to suit their requirements. The agencies use a combination of Excel
majority of case study agencies that
spreadsheets and pavement management
participated in this project use a combination
of spreadsheets, pavement management software. The City of Macomb uses Excel
software, and GIS tools to manage their road spreadsheets as a PMS to assess the
networks. In some cases the agencies use a condition of their network in combination
combination of all three tools to complete their with their GIS system for data reporting.
pavement management process. For Stark County worked with the Illinois GIS
example, they may use their pavement Transportation Coalition and used the street
management system to produce customized centerline from NAVTEQ to establish the
summaries of pavement information and also network limits and the GIS map to serve as
determine benefit/cost ratios for various
the basis for pavement data storage.
treatment scenarios for pavement segments in
their network. Then they might use the
spreadsheet tools to finalize work plan
recommendations and create further tables of pavement information. Finally, the
summarized information may be linked to a GIS map and shared graphically.
If an agency decides that pavement management software is the ideal tool for them,
there are a number of pavement management software programs to consider. Some of the
available public domain and proprietary pavement management software programs
commonly used in Illinois and highlighted in this Guide include:

Public Domain Software

 MicroPAVER by the U.S. Army Corps of Engineers.
 RoadSoft GIS by Center for Technology and Training at Michigan
Technological University.
 StreetSaver by the Metropolitan Transportation Commission in the San
Francisco Bay Area, California.
 Utah Local Assistance Program – Transportation Asset Management System
(Utah LTAP-TAMS).

30
 Proprietary Software
 PAVEMENTview by Cartegraph.
 PavePro Manager by Infrastructure Management Services (IMS).
 PubWorks by Tracker Software Corporation.
 RoadCare by Applied Research Associates, Inc.

Table 4 compares various features of these pavement management software

programs evaluated for this implementation Guide. The general capabilities of the
pavement management tools most commonly used are outlined in figure 16.

Spreadsheet and/or Public Domain Private Domain

GIS Software Software
•Useful for an agency with •Useful foran agency that •Useful foran agency that
a smaller network that wants a standard rating wants customized rating
wants a simple pavement system system
management system •Provides a variety of •Gives most robust and
•Modeling and analysis simple analysis scenarios customizable analysis
scenarios are very limited and reporting methods capabilities and reporting
•Addition of GIS allows for •Modest investment for analyzing funding
customized maps impacts
•Lowest cost investment •Largest investment

Figure 16. Comparison of pavement management tools.

5.6.1. Selecting Appropriate Methodology

Additional guidance on the selection of a pavement management tool is provided in
figure 17. The selection of a software tool is based on the decisions made by the agency in
steps 1 through 5 of the outlined pavement management process to meet the needs of the
agency and its customers. In general, if an agency made process decisions that fall
primarily on the left side of figure 17, then they are an agency that may be best suited with a
spreadsheet tool. Those agencies that are interested in robust, customizable survey
procedures and models, along with a variety of analysis scenarios, are best suited to
implement proprietary pavement management software. Those agencies that fall between
these two examples may be best suited with public domain software as it bridges the gap
between the other tools. Of course, these choices must be balanced against the cost of the
tools. When implementing the selected tool, agencies should look internally for expertise
and, when needed, work with universities, vendors, or consultants for assistance in the
implementation of the selected pavement management tool.

31
 Table 4. Comparison of pavement management software features1

PAVEMENT MANAGEMENT SOFTWARE PROGRAMS

PUBLIC PRIVATE
CRITERION DESCRIPTION
PavePro
MicroPAVER RoadSoft GIS Utah LTAP TAMS StreetSaver RoadCare PAVEMENTview Plus PubWorks
Manager
Michigan Technological Metropolitan Applied Infrastructure
US Army Corps Utah Local Technical Tracker Software
Vendor University - Center for Transportation Research Cartegraph Management
of Engineers Assistance Program Corporation
Technology & Training Commission Associates Services
Website www.apwa.net www.roadsoft.org www.utahltap.org www.mtcpms.org www.ara.com www.cartegraph.com www.pubworks.com www.ims-rst.com
Additional program
Laptop Data Collection Yes Yes Yes *2 Yes Yes *
needed
Yes, signs, pavement Yes, sidewalks, lights, Yes, bridges, signs,
Ability to Analyze Other Yes, sewer, signal, sign,
No markings, traffic counts, Yes sign, curb and gutter, & * culverts, guardrails, *
Assets storm, bridge, & lights
& traffic crashes user-defined parks, & buildings
Default Pavement
PCI PASER RSL PCI PCI, IRI OCI PASER *
Condition Rating Measure

Analyzes Different
Yes Yes Yes Yes Yes Yes No Yes
Maintenance Strategies

Analyzes Different Budget

Yes Yes Yes Yes Yes Yes No Yes
Scenarios

GASB 34 Reporting No Yes No Yes * Yes Yes *

Additional
Additional software Additional software Additional module-GIS Additional module Additional
GIS Integration Yes Yes software
needed needed director or own software MapViewer needed software needed
needed
Additional
Additional modules
Customization Capabilities Yes Only certain aspects Yes Yes * * modules
available
available
APWA
Varies,
members $995; Contact vendor for Utah-free/Out of state $1500+, contact vendor Varies, contact
Cost (2011) contact Varies, contact vendor Varies, contact vendor
non-members more information $500 for more information vendor
vendor
$1095
User's Manual Yes Yes Yes Yes * Yes Yes *
Training Formal training at 1-day
Free telephone or 4-day training class twice On-site or web-based
courses or four- Telephone or web- per module, free
Technical Assistance paid on-site per year and customized * training; technical support *
part web-based based training updates, software
arrangements on-site training by phone
training helpdesk

1
PCI – Pavement Condition Index; PASER – Pavement Surface Evaluation and Rating System; RSL – Remaining Service Life; IRI – International
Roughness Index; OCI – Overall Condition Index
(*) Denotes: Unable to obtain information at this time. Contact vendor for more information.

32
 Complexity, Functionality, and Cost

Step 1:
Define Estimate Inventory Collect All Inventory
Network & Quantities Information
Collect Data

Manual Collection Automated Collection

Step 2:
Collect
Condition Estimated Distress Measured Distress
Data

Step 3: Step 7:
Predict Average Deterioration Performance Models
Keep the
Condition Process
Current

Cyclical Treatments Treatment Rules

Step 4:
Select
Treatments Prioritized Ranking Benefit/Cost Analysis

Step 5:
Report Standard Customized
Results

Step 6: Select Pavement Management Process Tool

Spreadsheet Public Domain Private Domain

and/or Software Software
GIS Software

Figure 17. Pavement management options.

33
5.7. Step 7: Keep the Process Current

Step 7: Keep the Process Current

Pavement management is a dynamic process that requires regular updates.

Pavement management is not a one-time activity, so agencies must make an effort to
update the information incorporated in the pavement management process. Data
management is a key component to maintaining the database and keeping the information
current.
The required updates needed to keep the overall pavement management process
current are outlined for the first five pavement management process steps:

1. Define Network and Collect Data – Inventory information related to pavement

segments are relatively constant components of a database. These elements
need to be updated only in the case of major changes to the pavement network.
Work history details, however, should be updated on an annual basis to keep
proper track of maintenance and rehabilitation activities on the pavement
sections.
2. Collect Condition Data – General pavement management practices recommend
that condition information is collected on a minimum 3-year cycle on pavement
segments (Zimmerman 1996). Therefore, this data should be collected and
updated in the pavement management spreadsheet or software on the same
cycle.
3. Predict Condition – Average deterioration rates can be updated with each data
collection cycle. If prediction models are utilized, consider updating them every 3
years when initially developed and then on a 5-year cycle after they are
established.
4. Select Treatments – As agencies use the results of recommended treatments
based on treatment selection processes, the rules and priorities should be
updated to ensure that the process continues to improve in the future.
5. Report Results – Report results will be used by an agency with each new
pavement management plan, which ideally should be conducted each year or on
a maximum 3-year cycle to correspond with the 3-year data collection cycle.

6. SUMMARY
The details for implementing a pavement management program in a local agency are
outlined in this document. Recommendations are provided for how to develop a process
that best meets the given needs of an agency. As described throughout the document, the
implementation process is very customizable and should be molded to best meet the needs
of the agency. Overall, the implementation of a pavement management process will help
those responsible for the management of roadway networks to make more effective
management decisions. As the agencies highlighted in this Guide can attest, the use of
pavement management has been invaluable to them, especially in the current tight funding
environment, as they use the tools they have created to justify their pavement needs.
The case study agencies that were highlighted in the Guide include Champaign
County, Edgar County, McHenry County, Stark County, City of Macomb, City of Naperville,
and the Village of Villa Park. Full details of their implementation efforts, along with their

34
successes and challenges, are included in the Synthesis that was created as part of this
research project, but a few key quotes from the interview process include:
 The City of Naperville feels that “due to the state of the economy, the pavement
management system has become more important.”
 Since Champaign County implemented their PMS, they are “now able to reduce
political pressure,” when making pavement management decisions.
 The need for Edgar County’s PMS was recognized as the County wanted to have a
systematic process in place for completing the “right work at the right time for the
right reasons.”
 McHenry County encourages other agencies, “Don’t try to implement a PMS all at
once: slowly integrate the program into your routine.”
 Stark County decided to implement a PMS because they “wanted to have more
engineering behind decisions.”

Using the details of the case study agencies along with this Guide and information provided
in the Synthesis from this project, an agency has multiple resources at hand to begin the
pavement management implementation process.

35
7. REFERENCES

American Association of State Highway and Transportation Officials (AASHTO), Asset

Management Data Collection Guide, Task Force 45 Report, American Association of State
Highway and Transportation Officials, Washington, DC, 2006.

American Society for Testing and Materials (ASTM), Standard Test Method for Roads and
Parking Lots Pavement Condition Index Surveys, ASTM Standard D 6433, American
Society for Testing and Materials, West Conshohocken, PA, 2009.

Applied Research Associates (ARA), “Implementation of RWD-Based Pavement

Management System of Champaign County, IL,” Presented at Northwest Pavement
Management Association – Fall Conference, Vancouver, WA, 2009.

Broten, M., Local Agency Pavement Management Application Guide, Washington State
Department of Transportation, Olympia, WA, 1997.

City of Macomb, Street Improvement Plan for Macomb: FY2011-FY2020, Macomb, IL,
2011.

City of Naperville, City of Naperville, Street Maintenance: Program Goals and Funding,
Naperville, IL, 2008.

Edgar County, Edgar County Highway Department Pavement Management System, Paris,
IL, 2011.

Illinois Department of Transportation (IDOT), Condition Rating Survey Manual, State System
Condition Rating Survey (CRS), Illinois Department of Transportation, Springfield, IL, 2004.

Johnson, C., “Pavement (Maintenance) Management Systems,” APWA Reporter, APWA,

Kansas City, MO, 1983.

National Cooperative Highway Research Program (NCHRP), Automated Pavement Distress

Collection Techniques, NCHRP Synthesis 334, Transportation Research Board,
Washington, DC, 2004.

Schattler, K., A. Rietgraf, A. Wolters, and K. Zimmerman, Implementing Pavement

Management Systems for Local Agencies – State of the Art and State of the Practice, Illinois
Department of Transportation, Springfield, IL, 2010.

Shahin, M.Y., Pavement Management for Airports, Roads, and Parking Lots, Kluwer
Academic Publishers, Boston, MA, 1994.

Surface Systems and Instruments (SSI), Pavement Management Solutions,

www.smoothroad.com/products/pavementmanagement, accessed June 4, 2011.

Walker, D., L. Entine, and S. Kummer, Pavement Surface Evaluation and Rating PASER
Manual, University of Wisconsin – Madison, Transportation Information Center, Madison,
WI, 2002.

36
Washington State Department of Transportation (WSDOT), A Guide for Local Agency
Pavement Managers, Washington State Department of Transportation – Northwest
Technology Transfer Center, Olympia, WA, 1994.

Zimmerman, K. A., Pavement Management Systems Workshop, China Road Federation,

Taipei, Taiwan, 1996.

Zimmerman, K. A. and A. S. Wolters, “Assessing the Impact of Strategic-Level Pavement

Management Decisions,” 7th International Conference on Managing Pavement Assets,
Calgary, AB, Canada, 2008.

Zimmerman, K.A., O. Smadi, D. G. Peshkin, and A. S. Wolters, Update to AASHTO

Pavement Management Guide, AASHTO, Washington, DC, 2011

37
8. BIBLIOGRAPHY

There are a number of pavement management references that may be helpful with
implementing pavement management concepts.

American Association of State Highway and Transportation Officials (AASHTO), Pavement

Management Guide, American Association of State Highway and Transportation Officials,
Washington, DC, 2001.

American Association of State Highway and Transportation Officials (AASHTO), Asset

Management Data Collection Guide, TF 45-1, AASHTO, Washington, DC, 2006.

American Society for Testing and Materials (ASTM), “Calculating Pavement Macrotexture
Profile Depth,” ASTM Standard Practice E-1845, Book of ASTM Standards, Volume 04.03,
American Society for Testing and Materials, West Conshohocken, PA, 1999.

Federal Highway Administration (FHWA), An Advanced Course in Pavement Management

Systems, Reference Manual, Federal Highway Administration, Washington, DC, 1991.

Federal Highway Administration (FHWA), Pavement Management Analysis, Demonstration

Project 108A, Multiyear Prioritization, Reference Manual, Federal Highway Administration,
Washington, DC, 1997.

Federal Highway Administration (FHWA), Asset Management Primer, FHWA, Washington,

DC, 1999.

Flintsch, G. W., R. Dymond, and J. Collura, Pavement Management Applications Using

Geographic Information Systems, NCHRP Synthesis of Highway Practice 335,
Transportation Research Board, Washington, DC, 2004.

Haas, R, Pavement Design and Management Guide, Transportation Association of Canada,

Ottawa, Ontario, Canada, 1997.

Haas, R., W. R. Hudson, and J. Zaniewski, Modern Pavement Management, Krieger

Publishing Company, Malabar, FL, 1994.

Henry, J. J., Evaluation of Pavement Friction Characteristics, NCHRP Synthesis of Highway

Practice 291, Transportation Research Board, Washington, DC, 2000.

Roads and Transportation Association of Canada (RTAC), Pavement Management Guide.

Roads and Transportation Association of Canada, Toronto, Ontario, 1977.

McGhee, K. H., Automated Pavement Distress Collection Techniques, NCHRP Synthesis of

Highway Practice 334, Transportation Research Board, Washington, DC, 2004.

38
9. GLOSSARY OF TERMS

 Backlog – Amount of unfunded maintenance and rehabilitation.

 Benefit-Cost Analysis – Relates the economic benefits of a solution to the costs

incurred in providing that solution.

 Branch – A part of the network that is a distinct entity and has a unique function.
Each street in the City is considered a separate branch. Note that a branch does not
have to have consistent characteristics throughout its area, such as surface type or
age.

 Condition analysis – Determination of pavement current condition in terms of

overall condition, cause of deterioration, and deterioration rate.

 Deterioration rate – Change in condition index points per year.

 Effect on pavement life – The effect that a treatment has on the remaining life of a
section. For example, complete reconstruction yields an essentially new pavement
with all of its life (as defined by the performance model assigned to the section)
remaining.

 Family – Group of pavement sections that deteriorate in a similar manner.

 Impact analysis – Comparing different maintenance and rehabilitation (M&R) plans

to determine the impact that different decisions will have on the pavement network.

 Needs analysis – Determining maintenance and rehabilitation (M&R) requirements,

associated costs and scheduling subject to constraints (e.g., funding levels or
desired network condition) for a specified period of time (often 1 to 5 years).

 Network – A broad grouping of pavements within a specified physical area,

sometimes separately managed (such as districts within a city of subdivisions within
a town.)

 Pavement Condition – A quantitative representation of distress in pavement at a

given point in time.

 Pavement Maintenance – All routine actions, both responsive and preventive, which
are taken by the agency or other parties to preserve the pavement structure,
including joints, drainage, surface, and shoulders as necessary for its safe and
efficient utilization.

 Pavement Management System – A systematic method for routinely collecting,

storing, and retrieving the kind of decision-making information needed to make
maximum use of limited maintenance (and construction) dollars.

 Performance – Change in pavement condition over time.

39
 Performance model – Mathematical description of the expected values that
pavement attributes will take during a specified analysis period.

 Prioritization – Technique used to determine which maintenance and rehabilitation

(M&R) activities should be performed when insufficient funding exists to perform all
required M&R.

 Rehabilitation – Work undertaken to restore serviceability and extend the service

life of an existing facility.

 Resulting performance model – The performance model that a section is assigned

after a treatment has been applied. For example, complete Portland cement
concrete (PCC) reconstruction resulted in the section performance model being set
as PCC.

 Segment or section – A part of a branch that has consistent characteristics

throughout its area. The PMS analyzes pavement information at the section level;
therefore, a section is considered the management unit. This means that pavement
condition is analyzed at the section level and that pavement maintenance and
rehabilitation recommendations are made at the section level.

 Surface type – The material used for the wearing course.

 Treatments – Materials and methods used to correct a deficiency in a pavement

surface.

 Treatment trigger – A set of conditions that must exist in order for a treatment to be
considered.

40