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Across the country, many public works superintendents still choose their annual paving lists using a method that’s as informal as it is risky: they simply “know” which roads look bad and need work. While decades of experience have value, this approach, often referred to as paving by the seat of your pants, has major flaws.
When decisions aren’t supported by objective measurements, clear records, and multi-year projections, you open the door to criticism from taxpayers, resistance from town boards, and the risk of costly mistakes. Worse, it means you’re always in reactive mode, tackling problems only after they’ve become expensive emergencies.
A data-driven paving plan changes that dynamic entirely. It transforms road maintenance from an annual scramble into a disciplined, transparent, and forward-looking program, one that protects your roads, your budget, and your credibility.
What a Comprehensive Paving Plan Looks Like
A true paving plan is not just a one-page list of streets you want to resurface next year. It’s a living, evolving document that should include:
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A complete road inventory - Every road in your jurisdiction, not just the ones you think will need attention soon.
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Pavement Condition Index (PCI) or equivalent scoring - Objective ratings, ideally on a scale of 0-100, based on visual inspections, crack mapping, rutting, drainage condition, and surface wear.
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Surface type and last treatment date - Asphalt overlay, full-depth reconstruction, chip seal, cold in-place recycling, or other treatment types.
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Detailed maintenance history - Records of patching, crack sealing, drainage work, or any other maintenance activities.
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Projected deterioration rates - Using past performance data and pavement management principles to estimate when a road will move from “Good” to “Fair” to “Poor.”
This plan is not static. It should be reviewed and updated annually so it reflects new inspection data, completed work, and budget changes.
The Power of Data in Budget Justification
Every superintendent knows that getting your budget approved is a negotiation. You’re competing with every other department for limited municipal dollars. Those who arrive at budget hearings with hard data, not just opinions, almost always have the advantage.
When you present your paving list alongside a full condition report of the town’s roads, you give decision-makers tangible proof that your requests are based on need, not favoritism or anecdotal complaints. You can show:
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The exact condition rating for every road.
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How many miles are in “Good,” “Fair,” or “Poor” condition.
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The projected number of miles that will drop below “Fair” within the next 3-5 years if maintenance is delayed.
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The financial impact of acting now versus later, how a $100,000 preventative resurfacing today can avoid a $400,000 full reconstruction in a few years.
Town boards appreciate this kind of risk-and-cost forecasting. It puts them in a position to approve funding with confidence and defend that decision to the public.
Beyond the One-Year Mentality
Far too many public works departments think of paving in single-year increments, a list for this season, then starting from scratch next season. This short-term thinking is dangerous because pavement deterioration isn’t sudden; it’s predictable.
Fleet managers understand this well. They often operate with 10-year equipment replacement schedules, projecting when each truck, grader, or loader will need replacement. Road supervisors should be doing the same with roads, but focusing on a rolling 3-5 year projection.
A good paving plan should include:
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Year 1 - Confirmed paving schedule based on current condition and funding.
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Years 2-3 - Roads expected to need intervention soon, based on projected condition decline.
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Years 4-5 - Early-warning list of roads that will likely require maintenance if trends continue.
This forward-looking model gives you time to coordinate with utility companies, schedule drainage improvements in advance, and prepare your budget requests long before the work is due.
Why It Matters to Your Town Board (and Taxpayers)
When you present a paving plan without data, you’re essentially asking your board to trust your judgment blindly. But in today’s climate, where every budget line is scrutinized, that’s a hard sell.
A well-documented paving plan says:
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“I can account for the condition of every road under my care.”
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“I can explain exactly why each road was chosen, and why others can wait.”
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“I have a plan not just for this year, but for the next five.”
It’s not just about getting money, it’s about building institutional trust. The more your board sees you making decisions based on verifiable, repeatable methods, the more likely they are to defend your department when funding is tight.
The Consequences of Going Without a Plan
Without a data-backed plan, your paving program will likely:
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Miss cost-saving maintenance opportunities - Waiting until a road is in “Poor” condition before acting means paying for reconstruction instead of cheaper preventative treatments.
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Suffer from political pressure - Roads might get paved because someone important complained, not because they needed it most.
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Fail to anticipate funding needs - If you don’t know which roads will fail in three years, you can’t ask for the money in time to fix them.
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Lose credibility with the public - Taxpayers notice when new roads are paved while old, crumbling ones are ignored.
In short: without a solid paving plan, you’re leaving both your roads and your reputation vulnerable.
A Plan is a Tool for Long-Term Savings
A well-managed paving plan isn’t just a budget defense tool, it’s a cost control mechanism. Roads are among the most expensive assets your town owns. Every mile has a service life curve, and proper timing of maintenance can extend that life by years at a fraction of the cost of full replacement.
By using PCI scores, inspection records, and degradation modeling, you can:
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Apply the right treatment at the right time.
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Stretch your paving dollars further.
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Show your board how strategic investments now will reduce costs later.
Road paving isn’t just about laying down asphalt; it’s about managing millions of dollars in public assets with foresight and discipline. Without a data-driven, well-organized paving plan, you are left with little more than educated guesses, and educated guesses don’t always win funding battles.
A complete plan lets you speak the language of budgets, risk, and return on investment. It positions you as not just a road builder, but as a strategic asset manager, exactly the kind of leader a town board will want to support.
Paving Plan Starter Checklist
A practical guide for highway departments building their first data-driven paving plan
1. Create a Complete Road Inventory
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☐ List every road under your jurisdiction - no exceptions.
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☐ Record road name, route number, and segment start/end points.
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☐ Note length (miles or feet) and width (feet) for each segment.
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☐ Document surface type (asphalt, chip seal, gravel, etc.).
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☐ Record the year of construction or last major rehabilitation.
2. Document Current Pavement Condition
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☐ Conduct a visual inspection of every road at least once every two years.
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☐ Assign a Pavement Condition Index (PCI) or equivalent score to each segment.
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☐ Note visible issues:
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Cracking (type and severity)
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Potholes
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Rutting or depressions
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Drainage problems
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Surface raveling or oxidation
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☐ Take photographs for documentation and comparison over time.
3. Record Maintenance History
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☐ Note all patching, crack sealing, or surface treatments - include dates and cost.
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☐ Include drainage improvements or culvert replacements that affect pavement longevity.
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☐ Track any utility work or trenching that may impact the road’s future condition.
4. Project Future Condition
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☐ Estimate annual PCI drop rate based on past performance and treatment type.
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☐ Identify roads that will fall below your “acceptable” threshold in:
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1 year (immediate need)
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3 years (short-term priority)
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5 years (long-term forecast)
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☐ Highlight roads where preventative maintenance now will delay major reconstruction.
5. Build a Multi-Year Paving Schedule
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☐ Create a Year 1 paving list based on current condition and available funding.
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☐ Prepare Years 2–3 lists based on projected deterioration rates.
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☐ Include Years 4–5 early-warning lists to guide long-term planning.
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☐ Cross-check with other departments (utilities, stormwater) to prevent cutting into new pavement.
6. Prepare for Budget Discussions
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☐ Summarize total miles by condition rating (e.g., Good, Fair, Poor).
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☐ Calculate the cost to bring all Poor roads to Good condition.
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☐ Prepare before-and-after visuals showing how proposed work improves condition ratings.
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☐ Include cost-benefit examples (preventative maintenance vs. full reconstruction).
7. Keep the Plan Updated
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☐ Review and update PCI scores annually or biannually.
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☐ Adjust forecasts as new maintenance work is completed.
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☐ Archive past versions for historical reference.
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☐ Use digital asset management tools (like Roadwurx) for easier data storage and reporting.
This checklist not only helps a superintendent get organized - it also produces a paper trail that can be handed to a town board, finance committee, or state auditor as proof of responsible asset management.