**Subject:** AIRPORT PAVEMENT MANAGEMENT **Date:** 9/01/06 **AC No:**
150/5380-7A

PROGRAM **Initiated by:** AAS-100 **Change:**

**1. PURPOSE OF THIS ADVISORY CIRCULAR.**

This advisory circular (AC) discusses the Airport Pavement Management
System (APMS) concept, its essential components, and how it can be used
to make cost-effective decisions about pavement maintenance and
rehabilitation.

**2. WHAT THIS AC CANCELS.**

This AC cancels AC 150/5380-7, Pavement Management System, dated
September 28, 1988.

**3. WHO THIS AC AFFECTS.**

This AC is intended for the airport operators, engineers, and
maintenance personnel responsible for implementing an airport pavement
management system.

**4. COMMENTS OR SUGGESTIONS.**

Send comments or suggestions for improving this AC to---

Manager, Airport Engineering Division

Federal Aviation Administration

ATTN: AAS-100

800 Independence Avenue SW

Washington DC 20591

**5. COPIES OF THIS AC.**

The Office of Airport Safety and Standards makes its ACs available
online at
**http://www.faa.gov/airports_airtraffic/airports/resources/advisory_circulars/**.

![](media/image1.png){width="2.5034722222222223in"
height="0.5847222222222223in"}

David L. Bennett

Director, Office of Airport Safety and Standards

#  {#section .AC-header1}

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###### TABLE OF CONTENTS

[1.0 BACKGROUND. 1](#background.)

[2.0 NEW DECISION-MAKING PROCESS. 1](#new-decision-making-process.)

[3.0 AIRPORT PAVEMENT MANAGEMENT SYSTEM (APMS).
2](#airport-pavement-management-system-apms.)

[FIGURE 1. Typical Pavement Condition Life Cycle
3](#__RefHeading___Toc144685744)

[3.1 BENEFITS OF AN AIRPORT PAVEMENT MANAGEMENT SYSTEM.
4](#benefits-of-an-airport-pavement-management-system.)

[3.2 COMPONENTS OF AN AIRPORT PAVEMENT MANAGEMENT SYSTEM.
4](#components-of-an-airport-pavement-management-system.)

[4.0 MICRO PAVER^TM^ AND OTHER COMMERCIAL PMS SOFTWARE.
6](#micro-pavertm-and-other-commercial-pms-software.)

[4.1 MANAGEMENT LEVELS. 6](#management-levels.)

[4.2 REPORT GENERATION AND USAGE. 7](#report-generation-and-usage.)

[4.3 SOURCES OF PMS SOFTWARE. 8](#sources-of-pms-software.)

[APPENDIX 1. RELATED READING MATERIAL
A1-1](#appendix-1.-related-reading-material)

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# **1.0 BACKGROUND.**  {#background. .AC-header1}

**a.** Historically, most airport sponsors have made decisions about
pavement maintenance and rehabilitation (M&R) based on immediate need or
experience rather than long-term planning or documented data. This
approach did not allow the airport sponsors to evaluate the cost
effectiveness of alternative maintenance and repair strategies, and it
led to an inefficient use of funds.

**b.** Every airport sponsor must decide how to allocate its available
funds most effectively. Typically, this is done using one of the
following methods:

**(1).** Many airport sponsors use an "ad hoc" approach, whereby the
staff applies the maintenance and repair procedure that their experience
indicates is the best solution for the immediate problem. This approach
usually results in the repeated application of a select few alternatives
and may not lead to the selection of a preferred rehabilitation strategy
that considers pavement performance and a life-cycle cost (LCC)
analysis.

**(2).** The "existing condition" approach is also used. Here, the
pavement network is first evaluated by means of various condition
indicators. Based on an analysis of these indicators, maintenance and
repair alternatives are selected. This method does not take into account
life-cycle cost comparisons of the alternatives because decisions are
based solely on the current condition of the pavement. This approach
selects the maintenance and repair procedures that relate to the current
deficiencies in the pavement, but the choice may not be the most
cost-effective method based on life-cycle costing.

**c.** Since these approaches worked reasonably well in the past, they
became part of the standard operating procedure in some agencies. Today,
however, with limited money to spend on maintenance and rehabilitation
and new technologies providing more options for repair, these
established procedures do not answer some basic questions. For example,
what if funds are available to do only half the overlays that the
procedure indicates are necessary in a particular year? Should some
pavements be overlaid to the proper thickness while the remaining
pavements receive no overlay? Should the thickness be reduced and a thin
overlay placed on all pavements? It is evident that decisions made today
will have an effect on the pavements' condition in future years. The
question must then become, which course of action should be taken and
what are the immediate and future consequences of such decisions.

# 2.0 NEW DECISION-MAKING PROCESS. {#new-decision-making-process. .AC-header1}

**a.** The selection of the best course of action can be determined
based on the predicted effects of each action. For example, by placing a
thin overlay on all pavements, there will be an immediate improvement to
all the pavements. However, due to rapid deterioration of the overlays,
there will probably be a need for further rehabilitation in a short
period of time. If, in addition to other pavements needing work, some of
the overlaid pavements need rehabilitation action again next year, the
overall condition of the pavement network will eventually deteriorate.
Alternatively, if a few selected pavements receive the full thickness
overlay, they will not need rehabilitation for many years. During
subsequent years, remaining pavements can then receive full thickness
overlays, so the number of pavements needing rehabilitation will
ultimately decrease. With this strategy, however, overall pavement
condition will be worse in the short term because those pavements that
have not been overlaid will continue to deteriorate until they are
rehabilitated.

In order to determine which of these actions is preferable, we must be
able to predict the future consequences of the various scenarios. This
requires an understanding of the life span of a thick (e.g., 4-inch)
versus thin (2-inch) overlay. Practitioners should also have a good
understanding of the rate of pavement deterioration, with and without
maintenance, and the causes of current pavement deterioration, such as
environmental conditions or pavement loading conditions.

**b.** Predicting consequences of rehabilitation scenarios requires
using "engineering judgment" in the decision-making process. However, if
the consequences are predicted using a predetermined methodology, it
becomes possible to analyze previous predictions and improve on the
prediction procedure over a period of time---regardless of management or
staff turnover.

**c.** One such methodology is an Airport Pavement Management System
(APMS), which can improve on the decision-making process, expand its
scope, allow for feedback based on choices made, and ensure that
consistent decisions are made throughout an organization.

# **3.0 AIRPORT PAVEMENT MANAGEMENT SYSTEM (APMS).**  {#airport-pavement-management-system-apms. .AC-header1}

An APMS---as identified in Appendix 1 of AC 150/5380-6, Guidelines and
Procedures for Maintenance of Airport Pavements---provides a consistent,
objective, and systematic procedure for establishing facility policies,
setting priorities and schedules, allocating resources, and budgeting
for pavement maintenance and rehabilitation. It can also quantify
information and provide specific recommendations for actions required to
maintain a pavement network at an acceptable level of service while
minimizing the cost of maintenance and rehabilitation.

**a. Theory Behind an Airport Pavement Management System.** An APMS not
only evaluates the present condition of a pavement, but also predicts
its future condition through the use of a pavement condition indicator.
By projecting the rate of deterioration, a life-cycle cost analysis can
be made for various alternatives. This analysis will help determine the
optimal time for applying the best alternative. Such a decision is
necessary to avoid higher maintenance and repair costs in the future.
Figure 1 illustrates how a pavement generally deteriorates and the
relative cost of rehabilitation at various times throughout its life. A
pavement generally performs well for the majority of its life, after
which it reaches a "critical condition" and begins to deteriorate
rapidly. Several studies have shown that maintaining a pavement in good
condition versus periodically rehabilitating a pavement in poor
condition is four to five times less expensive. The number of years a
pavement stays in "good" condition before rapidly deteriorating depends
on several factors, including construction type and quality, pavement
use, climate, and maintenance.

Figure 1 also shows that the ideal time for major rehabilitation is just
as a pavement's rate of deterioration begins to increase. Maintenance
and rehabilitation solutions would be easy to plan if pavements
exhibited clear signs they had reached this point, but unfortunately,
they do not. The shape of the deterioration curve, and therefore the
optimal maintenance and repair points, vary considerably within a
pavement network. A pavement experiencing a sudden increase in
operations or aircraft loading will have a tendency to deteriorate more
rapidly than a pavement deteriorating solely from environmental causes.
A pavement deteriorating from environmental damage may have a number of
cracks that need filling but still remain structurally sound.
Conversely, this same pavement may be in the early stages of load damage
deterioration, which can only be detected with proper testing.

Because it is difficult to determine when a pavement has reached the
critical condition, an APMS can help identify the optimal rehabilitation
point and help decision-makers target available resources where they
will be most effective. The APMS can do this by making use of data from
a pavement condition rating system that will predict future conditions
and indicate whether the distress is load or environmentally related.

![](media/image4.wmf){width="5.870833333333334in"
height="4.020833333333333in"}

[]{#__RefHeading___Toc144685744 .anchor}**FIGURE 1. Typical Pavement
Condition Life Cycle** (Springer 2005)

**b. Cost-Effective Solutions.** Information on pavement deterioration,
by itself, is not sufficient to answer questions involved in selecting
cost-effective maintenance and repair strategies. For example, should a
pavement be sealed, recycled, or resurfaced? This type of decision
requires information on the cost of various maintenance and repair
procedures and their effectiveness. Effectiveness in this case means---

-   The proposed solution targets the source of the deficiency and will
    improve the pavement's condition rating.

-   The pavement will stay in this improved condition for several years
    to optimally recover the cost of the solution.

A pavement management system will enable a user to store pavement
condition and maintenance information in a database and use the
program's resources to determine the most cost-effective solution for
pavement maintenance issues.

# **3.1 BENEFITS OF AN AIRPORT PAVEMENT MANAGEMENT SYSTEM.**  {#benefits-of-an-airport-pavement-management-system. .AC-header1}

An APMS can provide several benefits, including---

-   Providing an objective and consistent evaluation of the condition of
    a network of pavements.

-   Providing a systematic and documentable engineering basis for
    determining maintenance and rehabilitation needs.

-   Identifying budget requirements necessary to maintain pavements at
    various levels of serviceability.

-   Providing documentation on the present and future condition of the
    pavements in a network.

-   Determining life-cycle costs for various maintenance and
    rehabilitation alternatives.

-   Identifying the impact on the pavement network as a result of
    performing no major repairs.

# **3.2 COMPONENTS OF AN AIRPORT PAVEMENT MANAGEMENT SYSTEM.**  {#components-of-an-airport-pavement-management-system. .AC-header1}

In order to take full advantage of a pavement management system,
pavement condition information must be collected and periodically
updated. Alternative rehabilitation strategies must be identified along
with decision criteria and maintenance policy that will determine which
rehabilitation procedures are employed. Further, the pavement management
system must contain models for prediction of performance, cost of
alternate strategies, and optimization procedures that consider the
entire pavement life cycle.

A system for accomplishing these objectives must generally include---

-   A systematic means for collecting and storing information.

-   An objective and repeatable system for evaluating pavement
    condition.

-   Procedures for predicting future pavement condition.

-   Procedures for modeling pavement performance (both past and future
    condition).

-   Procedures for determining the consequence on pavement condition and
    life-cycle costing for a given M&R budget.

-   Procedures for determining budget requirements to meet management
    objectives, such as maintaining a minimum condition.

-   Procedures for formulating and prioritizing M&R projects. A project
    normally consists of multiple pavement sections and may include
    different M&R actions for different sections.

The essential components of a pavement management system include---

**a. Database.** There are several elements critical to making good
pavement maintenance and repair decisions: pavement structure;
maintenance history, including costs; traffic data; and information on
the condition of a pavement. This data can be stored in an APMS
database.

**(1). Pavement Structure.** Knowing when the pavement was originally
built, the structural composition (material and thickness), and
subsequent overlays, rehabilitation, etc., is key to analyzing problems
and designing solutions. "As built" records should provide this
information. If they are not available or if records are suspect, it
will be necessary to core the existing pavement to establish the
thickness and composition of the structural layers.

**(2). Maintenance History.** A history of maintenance performed and its
associated costs will provide valuable information on the effectiveness
of various maintenance procedures on flexible and rigid pavements. The
cost of each maintenance procedure is necessary when performing a
life-cycle cost analysis.

**(3). Traffic Data.** Data about the number of operations and type of
aircraft using the pavement is necessary when analyzing probable causes
of deterioration and when considering alternate M&R procedures.

**(4). Pavement Condition Data.** A fundamental component of any
pavement management system is the ability to track pavement condition.
This requires an evaluation process that is objective, systematic, and
repeatable. A pavement condition rating system---such as the pavement
condition index (PCI) rating system described in *ASTM D 5340, Standard
Test Method for Airport Pavement Condition Index Surveys* (and discussed
below), provides a rating of the surface condition of a pavement with
implications of structural performance. Periodically collecting
condition data is essential for tracking pavement performance, modeling
pavement performance, and determining when to schedule M&R.

**b. System Capabilities.**

**(1). Predicting Future Pavement Condition.** A pavement management
system must be capable of predicting future pavement condition.
Condition predictions are necessary in developing optimum, multi-year
M&R plans.

**(2). Determining Optimum M&R Plans for a Given Budget.** An APMS
should be capable of producing an optimum M&R plan that identifies where
and when M&R is required and approximately how much it will cost. This
data will assist in setting priorities that fit predetermined M&R
budgets.

**(3). Determining Budget Requirements to Meet Management Objectives.**
An APMS should be capable of determining the budget requirements for
meeting specified management objectives. Typical management objectives
include maintaining pavements above a specified condition and
eliminating major M&R requirements over a specified number of years.

**(4). Facilitating the Formulation and Prioritization of M&R
Projects.** In addition to developing optimum M&R plans at the section
level, an APMS should facilitate the formulation and prioritization of
M&R projects. Engineering judgment, however, remains a key component in
transforming the optimum M&R plans into practical executable projects.

# 4.0 MICRO PAVER^TM^ AND OTHER COMMERCIAL PMS SOFTWARE. {#micro-pavertm-and-other-commercial-pms-software. .AC-header1}

When developing an APMS, airports can make use of several existing
software options. Micro Paver^TM^ is a pavement management system (PMS)
application being used by airport pavement networks at the state and
local level. The U.S. Army Construction Engineering Research Laboratory
under contract to the Federal Aviation Administration developed this
computer program. The program has been continually updated by the FAA,
Federal Highway Administration, U.S. Corp of Engineers, U.S. Air Force,
U.S. Navy, and other authorities to meet the needs of current users. In
addition, various consulting firms have developed similar software using
the concept originally developed in Micro Paver^TM^.

PMS software allows for storage of pavement condition history,
nondestructive testing data, and construction and maintenance history,
including cost data. It provides many capabilities, including evaluation
of current conditions, prediction of future conditions, identification
of maintenance and rehabilitation needs, inspection scheduling, economic
analysis, and budget planning. PMS software not only evaluates the
present condition of the pavement using the PCI system described in
*ASTM D 5340,* but can also predict its future condition.

Note: The PCI is a numerical indicator that reflects the structural
integrity and surface operational condition of a pavement. It is based
on an objective measurement of distress type, severity, and quantity. By
projecting the rate of deterioration, a life-cycle cost analysis can be
performed for various M&R alternatives. Not only can the best
alternative be selected, but the optimal time of application can also be
determined.

#  {#section-7 .AC-header1}

# 4.1 MANAGEMENT LEVELS.  {#management-levels. .AC-header1}

Once an APMS has been established, PMS software can be used to assist in
making pavement management decisions. Managing a pavement system
effectively requires decision-making at two levels:

**a. Network-Level Management.** In network-level management, questions
are answered about short-term and long-term budget needs, the overall
condition of the network (currently and in the future), and pavements to
be considered at the project level. Decisions are made about the
management of an entire pavement network. At a local level, this might
comprise all the pavements on an airport, and at a state level, all the
pavements in the state airport system.

**(1).** **Using PMS Software at the Network Level.** In addition to
providing an automated tool for storing information about specific
pavements, PMS software provides a series of routines that access the
database and produce customized or user-defined reports. These reports
can help the user make decisions about inspection scheduling, pavements
needing rehabilitation, budget forecasting, routine maintenance
projects, current pavement conditions, and future condition predictions.

**(2). Condition Prediction.** Condition prediction is used as the basis
for developing inspection schedules and identifying pavements requiring
maintenance or rehabilitation. Once pavements requiring future work have
been identified, a budget for the current year and for several years
into the future can be developed. By using an agency's prioritization
scheme, maintenance policy, and M&R costs and then comparing the budget
to the actual funds available for the current year, the software
produces a list of potential projects. This list becomes the link into
project-level management.

**b.** P**roject-Level Management.** In project-level management,
decisions are made about the most cost-effective M&R alternative for the
pavements identified in the network analysis. At this level, each
specified pavement should have a detailed condition survey. In addition,
nondestructive and/or destructive tests should be made to determine the
pavement's load-carrying capacity. Roughness and friction measurements
may be useful for project development.

**(1).** **Roughness.** Roughness measurements can be helpful when there
is evidence of roughness, usually in the form of frequent pilot
complaints. Roughness measurement is of greater value when the pavement
is in very good condition with little or no distress. It has less value
if reconstruction is imminent.

**(2).** **Friction.** Friction measurements, on the other hand, should
be made on a periodic basis to measure the textural properties of the
pavement and determine the amount of deterioration that has occurred. AC
150/5320-12, *Measurement, Construction, and Maintenance of Skid
Resistant Airport Pavement Surfaces,* provides recommendations for
friction measurements.

**(3).** **Using PMS Software at the Project Level.** PMS software can
use a number of engineering measurements to quantify a pavement's
condition. Nondestructive test data, friction measurements, roughness
measurements, and drainage information may be entered into the APMS
database. This information is used to identify feasible alternatives
that can correct existing deficiencies. The various alternatives
identified, including no action, are then compared on a life-cycle cost
basis. The results, combined with budget and management constraints,
produce the current year's maintenance and repair program.

# **4.2 REPORT GENERATION AND USAGE.**  {#report-generation-and-usage. .AC-header1}

Micro Paver^TM^ and other PMS software can assist in the decision-making
process by allowing the user to run several standard reports. Standard
and customized reporting functions vary among PMS software packages. The
recommended minimum set of reports and the use of each report is
outlined below. PMS software should allow the user to customize the
reports to include only the pavements and/or conditions of interest and
to generate various budget/condition scenarios.

**a. Inventory Report.** This report lists all pavements in a network
and contains information such as surface type, location, area, and
pavement function, i.e., runway, taxiway, apron.

**b. Inspection Scheduling Report.** This report allows the user to
schedule inspections based on minimum acceptable condition levels and
rates of deterioration.

**c. Pavement Condition Report.** This report provides the user with a
tabulation of pavement condition for the current or future years. The
report should provide the condition of individual pavement sections and
the overall network condition. The projected condition can be used to
assist in planning future maintenance and repair needs and to inform
management of present and future conditions.

**d. Budget Planning Report.** This report allows the user to project
the budgets required to maintain the pavement network above a
user-specified condition level. For each pavement selected, the report
predicts the year in which the minimum condition or PCI will be reached
and calculates the cost of repair. To obtain this report, the user must
input three forms of data:

**(1).** Minimum pavement condition (often PCI) for each pavement type,

**(2).** Average unit repair costs based on surface type and PCI ranges,
and

**(3).** Inflation rate during the analysis period.

#  {#section-8 .AC-header1}

**e. Network Maintenance Report.** This report uses the agency's
maintenance strategy, which is stored in the database, and applies it to
the distresses identified in the latest PCI survey. This report can be
used to estimate both the type and cost of routine maintenance for the
development of an annual work plan.

**f. Economic Analysis Report.** This report can assist the user in
selecting the most cost-effective alternative for a pavement repair. For
each feasible alternative, the user must input initial costs, periodic
maintenance costs, one-time future maintenance costs, interest rates,
and discount rates. The program performs a life-cycle cost analysis and
provides the user with a means of comparing the effectiveness of the
various repair alternatives. The program should allow the user to vary
interest rates, repair costs, and timing so their effect on alternatives
can be analyzed.

# **4.3 SOURCES OF PMS SOFTWARE**.  {#sources-of-pms-software. .AC-header1}

**a. Micro Paver^TM^.** The Micro Paver^TM^ software package may be
obtained from an authorized distribution center. Currently, there are
two distribution centers, with each center responsible for establishing
individual fees for distribution and providing updates and corrections
as they become available. The fees vary according to the service
provided to the user (training, user guides, implementation assistance,
user's group membership, etc.). Users should contact each center and
determine which one will best suit their needs. The location of the
distribution centers, user manuals, and product updates are provided on
the Micro Paver^TM^ website at **http://www.cecer.army.mil/paver/.**

**b. Other PMS Software.** Other PMS software has been developed and
used by consulting engineer firms that provide pavement evaluation and
management services. Some firms may offer or sell their software
programs for use by an individual or an agency.

#  {#section-9 .AC-header1}

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# APPENDIX 1. RELATED READING MATERIAL {#appendix-1.-related-reading-material .AC-header1}

**1.** Electronic copies of the latest versions of the following FAA
publications are available on the FAA website at
**http://www.faa.gov/**. Printed copies can be requested from the
Department of Transportation, Subsequent Distribution Office, Ardmore
East Business Center, 3341 Q 75th Ave, Landover, MD 20785. The
Department of Transportation, however, will charge a fee for some of
these documents.

**a.** AC 150/5320-12, Measurement, Construction, and Maintenance of
Skid Resistant Airport Pavement Surfaces.

**b.** AC 150/5370-11, Use of Nondestructive Testing Devices in the
Evaluation of Airport Pavements.

**c.** AC 150/5380-6, Guidelines and Procedures for Maintenance of
Airport Pavements.

**2.** Copies of *(ASTM) D 5340, Standard Test Method for Airport
Pavement Condition Index Surveys,* can be obtained from the American
Society for Testing and Materials at **http://www.astm.org/.**

**3.** "Pavement Management for Airports, Roads, and Parking Lots", M.Y.
Shahin, Second Edition, Springer, 2005.