Road Maintenance

Maintenance and Repair of Roadways

The District of Muskoka plans for the maintenance and repair of roadways to optimize road conditions across Muskoka. The District’s Transportation Network (DTN) has an estimated replacement cost of $1.95 billion as of 2024.
This replacement cost is an estimate based on how much funding it would take to fully upgrade the entire DTN to "brand new" conditions. To look after this valuable road network, the District employs a range of programs and strategies that range from regular road patrols to ensuring compliance with provincially regulated Minimum Maintenance Standards (MMS) through to full reconstruction projects.
The District also maintains a database of the District roads and their condition.

What does maintaining this database look like?

To maintain this database, street scans are conducted on the DTN to generate objective data on pavement and road conditions. This information is then inputted into a software program called Street Logix, which analyzes the data to determine the most effective repair methods based on the condition of the road. Based on the results of this analysis, each section of road is given a score with a Pavement Condition Index (PCI) out of 100. This approach ensures maintenance efforts are both efficient and targeted, ultimately enhancing the longevity of road infrastructure at the lowest possible cost. Additional information on assessed road sections and their current condition is available on the District of Muskoka Pavement Management Story Map.

We routinely assess:

The layers of a road and what they do,
How our roads perform and how our roads deteriorate,
Prioritization of pavement maintenance and repair,
Traffic counts, and
Road signs and signals.

Based on this data, the District develops a capital plan to project repair locations for the upcoming year. These planned locations are available to view on the 2025 roads capital project maps. Please note, while staff carefully analyze the data to ensure the most accurate forecasts, unforeseen circumstances may result in changes to the schedule.

To help inform this assessment, the District collects seasonal traffic counts for the entire DTN each year. This information is used to determine the class of roadway and informs which type of road surface is to be applied. This data is also used to determine the level of patrol frequency and repair timelines (for things such as potholes) to ensure compliance with the MMS regulation. Traffic volumes in the District range from 60 to 13,000 plus vehicles per day depending on the location. The average number of vehicles per day is 2,319. Any road with a traffic volume below 500 vehicles per day is considered low volume. More information on both conditions assessments and low volume roads is available in the staff report PW-10-2024-1 and its supporting presentation PW-10-2024-1.

The road ahead: Modernizing Muskoka's road maintenance

The District of Muskoka is taking a data-driven approach to road maintenance and upgrades. In 2024, the first-ever Pavement Condition Index (PCI) assessment was conducted using advanced AI technology from StreetScan.

DTN Road Maintenance PCI Graph

What is the Pavement Condition Index (PCI)?

The StreetScan system can scan every road within the District Transportation Network (DTN), identifying cracks, potholes, and other surface defects to generate a Pavement Condition Index (PCI) score for each road segment. This score provides a standardized measure of pavement health, helping to prioritize maintenance and rehabilitation efforts.

Average PCI Score across Muskoka: 59 out of 100
Goal: Reduce the number of road segments with a PCI below 55
Annual PCI scans: Planned for 5 years to track progress and guide investments

Explore results and learn more through an interactive: PCI Story Map.

What are Low Volume Roads (LVRs)?

Some roads serve thousands of vehicles a day, while others, including many in rural areas of Muskoka, see far less traffic. These roads are called Low Volume Roads (LVRs).

LVRs: Roads with fewer than 500 vehicles per day.
They make up 19 per cent of the DTN (135 km).
Average PCI for LVRs: 55
Capital backlog for LVRs: $26.7 million

Because LVRs serve fewer people, they often fall lower on the priority list for upgrades. But these roads are still vital to communities. The District is developing a dedicated LVR Strategy to ensure fair, cost-effective, and sustainable improvements for all roads in the DTN.

Challenges with LVRs

Reconstruction costs can exceed $1 million per kilometre.
Investment per vehicle is significantly higher, up to five times more than high-volume roads.
Public expectations for service levels on LVRs often match those for higher-volume roads, despite the cost disparity.

Pilot projects: Testing smarter solutions

The District is piloting innovative road treatments on select LVRs. These pilot projects are designed to improve road conditions without the high cost of full reconstruction.

2025 Pilot locations and treatments

Twelve Mile Bay Rd. (Muskoka Rd. 12)

Geogrid reinforcement plus double surface treatment
Estimated cost: $234,000

Fraserburg Rd. (Muskoka Rd. 14)

Section 1: Cement base stabilization plus double surface treatment
Section 2: Expanded asphalt with recycled pavement plus microsurfacing
Combined estimated cost: $350,000

Echo Lake Rd. (Muskoka Rd. 51)

Pulverize plus double surface treatment (2026)

These treatments are being single-sourced to ensure quality and consistency during the pilot phase. Road staff will monitor their performance through winter and spring to see how they hold up under Muskoka’s unique conditions.

Planning for the Future

The District is committed to not just fixing roads, but building a smarter system to manage them. Creating an LVR Policy in 2025 will guide:

How LVRs are prioritized, funded and maintained,
Recommend appropriate surface types (gravel, asphalt, or other), and
Support transparent, data-backed decision-making.

Next Steps

Continue annual PCI scans to refine cost modeling and deterioration curves.
Integrate findings into the District’s Asset Management Plan and future capital budgets.
Ongoing research into emerging pavement technologies and collaboration with industry experts.

Stay Informed

The District is committed to keeping residents informed. Project updates, road closures, and pilot results are shared on:

2025 Capital road project maps

Layers of a road

Roads are constructed in multiple layers. The thickness and requirements of each layer, and the total number of layers is dependent on factors such as weather, traffic volumes, and the subgrade type. The subgrade is the underlying soil which the road is built on. Generally, in Muskoka our subgrade consists of granite rock (which is costly to build on) and/or swamp (which is challenging to build on due to drainage and frost heave).In general, Muskoka’s roads are constructed in three layers: the wearing surface, the aggregate base and the subgrade.

Wearing surface

The wearing surface acts as a “cap” on top of the pavement structure. The most common wearing surface is asphalt. Asphalt is used to provide a smooth riding surface and prevent water from entering the pavement structure.

There are three different types of asphalt used on Muskoka roads, referred to as Low Class Bituminous (LCB), Intermediate Class Bituminous (ICB) or High Class Bituminous (HCB). The type of asphalt selected for the wearing surface is dependent on the volume of traffic and weight load the road is subject to. LCB asphalt is typically designed for low traffic volumes/weight loads, ICB asphalt for medium traffic/weight, and HCB for high traffic volume and weight loads.

High-volume roads carry many vehicles daily and are designed for fast traffic, often connecting urban centers and communities with efficient travel. Medium-volume roads handle a moderate amount of traffic, serving as important links within neighborhoods and commercial areas. Low-volume roads experience relatively few vehicles, primarily serving local traffic in rural or less developed regions.

Aggregate base

Placed in multiple layers, the aggregate base normally has larger sized granular material on the bottom and granular material with smaller particle sizes on top. This material is considered “free draining,” which means it allows water to permeate through the layers and absorb into the native soil (subgrade).

Subgrade

The subgrade refers to the layer of native soil or rock that lies beneath a constructed surface, which in this case is a road. It serves as a foundational support layer, providing stability and load-bearing capacity for the road above it.

The layers of a road.

Together, the layers allow water to move from one layer to another until it is absorbed in the subgrade. Preservation activities completed on roads early in their life prevent water from seeping into the pavement structure through cracks and holes in the lop later of asphalt. Using these preservation techniques, the semi-impervious “cap” on the road is maintained.

How do roads deteriorate?

Road deterioration is a complex process driven by several natural factors, with oxidization and water infiltration being two of the most significant contributors. Over time, water seeps into the road structure, weakening both the asphalt surface and the underlying aggregate base. This gradual breakdown is accelerated by the weight of traffic, which further stresses the road, leading to cracks, potholes, and structural damage.

The freeze-thaw cycles in Muskoka—caused by the area's cold winters and warm summers—intensify this deterioration. When water enters cracks in the asphalt, it can freeze during colder temperatures. As it freezes, the water expands, putting pressure on the cracks, which causes new cracks to form and existing ones to widen. This cycle of freezing and thawing continues over time, progressively degrading the road.

Additionally, Muskoka’s subgrade soils are particularly challenging. The region sits atop the largest mass of Precambrian rock, and the soils found here—primarily silty clays—are naturally poor at draining water. As a result, water tends to remain trapped beneath the surface, exacerbating the freeze-thaw damage to the road’s foundation. Without effective drainage, moisture is unable to escape, further weakening the road base and accelerating the deterioration process.

These challenging conditions make road maintenance and repair an ongoing operation in Muskoka, requiring careful monitoring and timely intervention to ensure that roads remain safe and functional for the long term.

Pavement Repairs and Treatments

Proactive repairs help maintain and extend the life of District roads.

Slurry seal

The most basic treatment used, slurry seal, applies a thin layer of asphalt emulsion mixed with fine aggregate and mineral filler to the road surface on low volume roads (high float treated). Specialized equipment spreads the mixture evenly, sealing the pavement and creating a smooth road surface that extends the lifespan of the road. It can be used on both asphalt and concrete surfaces and is especially effective on roads with minor defects or needing preventive maintenance.

One key benefit of slurry seal is its ability to fill minor cracks, preventing water penetration and further damage. It also protects against sunlight, oxidation, and other environmental factors. The application process includes surface preparation—cleaning and repairing major defects—followed by the slurry application and curing before reopening to traffic.

Microsurfacing

One step up from slurry seal, microsurfacing is a road maintenance technique that applies a thin layer of asphalt-based material, composed of asphalt, water, aggregate, and additives to the road surface on higher volume roads.

A specialized machine sprays the mixture evenly, which is then smoothed and allowed to cure, forming a durable wearing surface resistant to water, UV rays, and environmental damage.

This method is often used as preventative maintenance for roads showing early signs of wear, extending their lifespan by several years and reducing the need for costly repairs. Additionally, microsurfacing is a quick and cost-effective maintenance option, crucial for ensuring safe and smooth travel for all that use the road.

Road Resurfacing

Resurfacing addresses problems on the roadway surface by replacing all or part of the top layer of asphalt. It addresses issues like potholes, cracking, bumps, and patches of street cuts (created by utility or other underground work). This work can usually be completed within a few days and is substantially less expensive than full road reconstruction.

Resurfacing is good for pavement in fair to good condition where the subsurface infrastructure (things such as sewers and watermains) don’t require rehabilitation. The resurfacing method chosen for the road depends on the volume of traffic and weight loads it transports.

Pulverization

Pulverization is the essential first step in the resurfacing process. A specialized machine called a pulveriser is used to crush the existing pavement into small pieces. The pulveriser grinds the pavement to a depth of several inches, breaking it down into small particles that are then mixed with the underlying soil. The resulting mixture is then compacted to form a stable base for the new road surface.

Pulverization is an effective way of recycling old road materials and reducing waste. By pulverizing the old pavement, the material is reused as a base for the new road surface, eliminating the need to transport and dispose of the old pavement in a landfill.

High float surface emulsion

High float surface emulsion, commonly known as tar and chip, is a pavement treatment for low volume roads that involves applying a specialized asphalt emulsion mixture. This mixture, rich in polymers and additives, enhances resistance to wear and damage.High float surface emulsion is applied after the road surface has been prepared via pulverization.

The emulsion is spread evenly across the pavement using specialized equipment, creating a durable wearing course that extends the pavement’s life and protects it from traffic, weather, and environmental factors.

A key benefit of high float surface emulsion is its ability to withstand heavy traffic and seal the pavement, preventing water damage and oxidation. The application process includes surface preparation—cleaning and repairing defects, followed by adding specialized gravel—before applying the emulsion and allowing it to cure before reopening to traffic.

Open grade paving

Open grade paving is used for low to medium volume roadways and consists of coarse aggregates, an asphalt binder, and sometimes mineral fillers or fiber stabilizers. The mixture is applied after pulverization and allows for effective drainage and reduced noise in comparison to other asphalt types.

The process begins by clearing debris and grading the surface for proper drainage. A stable subbase of crushed stone is then installed and compacted. The open grade asphalt, which has a higher void content for better drainage, is mixed, heated, and laid down using a paving machine. The mixture is heated to about 110-150 degrees Celsius for easier handling and proper compaction. After spreading, heavy rollers compact the pavement to create a smooth surface. Finally, the new pavement is allowed to cure before traffic is allowed through. This method not only enhances road performance but also improves safety by reducing water accumulation and road noise while providing a highly flexible surface which is more resistant to frost heaves and freeze/thaw cycles.

Hot mix asphalt (HMA) paving

Hot mix asphalt paving is used for higher volume roadways and involves laying a mixture of hot asphalt binder and aggregate (gravel, sand, crushed stone) on a prepared surface. The mixture is heated to about 150-175 degrees Celsius for easier handling and proper compaction and is applied after the road has been pulverized.

The process begins with surface preparation, which includes cleaning and removing debris. Once the surface is ready, the heated asphalt mixture is transported to the site, where specialized equipment spreads and compacts it to the desired thickness. Heavy rollers compact the mixture to ensure a strong, durable pavement that can withstand heavy traffic.

After laying and compacting, the pavement must cool and cure before opening to traffic. This allows the asphalt to harden and gain strength. Hot mix asphalt is favoured for its durability, flexibility, and resistance to environmental factors, making it ideal for roadways, parking lots, and other high-traffic areas tailored to meet specific performance needs.

Treatment Timing is Essential

There is a window of opportunity in the life of pavement where some treatments are suitable, and others are not. For example:

Preservation activities performed on a road that has failed will have little to no impact and will be wasted effort.
Full reconstruction of a road that is young and in fair condition is unnecessary.

By completing treatments at the appropriate time within the recommended window of opportunity, the District can extend the life of a road and reduce the total investment over the long term.

As outlined in the figure below, the cost to reconstruct a road is five times that of pavement preservation. This means by investing $1 in proactive pavement preservation, we can defer $5-8worth of reconstruction.

Base stabilization

Granular base repairs are a road maintenance activity that involves repairing or replacing the base layer of a roadway that has been damaged or deteriorated. The base layer is the layer of material that sits beneath the asphalt surface and provides support and stability to the roadway structure.

Granular base repairs are typically used on roads that have widespread areas of damage or deterioration, or that are experiencing problems such as subsidence or settlement. The process involves removing the damaged or deteriorated section of the base layer and replacing it with new granular material, such as crushed stone or gravel.

The repair process begins with identifying the damaged or deteriorated section of the base layer and removing the damaged material using specialized equipment such as a backhoe or excavator. The area is then compacted to ensure a stable base, and new granular material is added to fill in the void left by the removed material.

Once the new material has been added, it is compacted to ensure that it is tightly packed and level, and the surface is graded to ensure a smooth, even surface. The repaired section is then covered with a layer of asphalt or other surface material to complete the road surface.

Granular base repairs are an important part of a comprehensive road maintenance program, as they help to prevent further damage to the road surface and ensure the long-term durability and safety of the roadway. Properly maintained base layers can also help to reduce the frequency and cost of more extensive repairs or reconstruction efforts in the future.

Seasonal operations

Winter operations

The District of Muskoka is committed to keeping roads safe for residents and visitors, no matter what winter weather brings.

Road crews, alongside contracted operators and five of the six area municipalities, work diligently to provide efficient and consistent snow removal services across more than 700 kilometers of District-owned roads.

The District follows Ministry of Transportation standards for patrolling, plowing, sanding, and salting. These standards ensure road maintenance is prioritized based on the class of the road, which is determined by its average daily traffic use.

Significant weather event

A significant weather event is (SWE) is declared when there is an approaching or occurring weather hazard with the potential to pose a significant danger to users of roadways within a municipality.

During a SWE, residents are advised to limit all travel on all District roads across Muskoka unless necessary.

SWEs are declared to keep the community safe, and provide a warning of impending or current conditions. When declaring a SWE, the following conditions are considered:

the amount of snow accumulation during a 24-hour period,
unpredicted ice formation,
extreme cold temperatures that hinders de-icing efforts, and
high winds leading to blowing snow and snow drifts.

An SWE declaration applies to all District roads in Muskoka. Declaring a SWE for all District roads allows staff and resources from across the District to be called in to support the crews in communities most impacted.

There are timelines set by the District and Ministry of Transportation on how long municipalities have to clear roadways during the winter. When a SWE is in effect, District service levels do not change, however winter clearing activities take longer to complete and can significantly affect response timelines.

From the time a SWE is declared until the time it ends, the District closely monitors weather reports and deploys resources when it’s appropriate to do so - keeping the safety of operators in mind. Once an end to the significant weather event has been declared, the standard of time for removal begins to apply.

How can you help?

Play your role

Residents and business owners have a role to play in allowing winter operations to run smoothly and safely throughout the District of Muskoka.

Did you know it’s illegal to shovel snow or ice onto roadways under the Ontario Highway Traffic Act? When shovelling or snow blowing be mindful of where it’s landing and don’t shovel or blow it onto the road.
If there is a fire hydrant near your home or business, please make sure there is a three-foot clearance of snow around the hydrant and a pathway to it.
If there is a catch basin near your home or business, please help keep it clear to allow for proper drainage and to prevent pooling and flooding along roadways.
Follow your municipalities parking bylaw regarding overnight parking during winter months. This allows crews to safely plow and clear areas like main streets.
Place garbage, recycling and composting bins on the left-hand side of the driveway about one metre (three feet) away from the curb to help avoid plows.

Be prepared

If you are travelling in winter weather, please remember to take time to plan ahead and drive according to weather conditions based on your local forecast.

Anticipate the presence of plows on the road and be patient as they work to make our roads safe,
Don’t use cruise control features during winter driving,
Make sure you have snow tires installed,
Leave extra distance between your vehicle and those in front of you,
Ensure snow and ice are cleared off your vehicle, including your roof and rear window,
Turn on your lights to let others see you more easily, and
Leave yourself plenty of time to get to where you’re going.

Prevent flooding, help clear catch basins

During the winter months it’s easy for snow or ice to build up around catch basins. Blockages may prevent water from draining properly and may cause flooding, road or property damage and unsafe conditions for motorists and pedestrians.

Help keep roads safe by clearing snow, ice or other debris from catch basins near or on your property when it’s safe to do so.

With over 1,000 catch basins throughout Muskoka, helping to clear catch basins will keep roadways safe for travel by vehicles and pedestrians.

If choosing to help clear a catch basin, please follow the below safety guidelines.

Use a long-handled shovel, broom or rake to clear away materials,
Stay visible with bright clothing or a safety vest when clearing a catch basin,
Be aware of traffic and keep out of the street whenever possible,
Do not open the catch basin, and
Do not attempt to move or pick up hazardous materials like needles, broken glass, or deceased wildlife. Report hazardous materials to publicworks@muskoka.on.ca

Let’s work together to keep roadways safe.

How do catch basins work?

Catch basins are typically found on roadways near curbs or parking lots and have a slotted lid or grate. They are essential to remove excess stormwater from urban areas to stormwater management ponds and ultimately to nearby natural waterways, such as lakes and rivers.

Stormwater is rainwater and melted snow that runs off lawns, streets, parking lots etc. and can pick up particulates, pollutants and sediments from construction, winter road sanding/de-icing, vehicle emissions and residential properties as it works its way into area lakes and rivers, which supplies Muskoka’s drinking water.

With this in mind, it’s important to avoid putting materials in catch basins that don’t belong there, such as

Chemicals,
Construction material,
Food, and
Residential, hazardous and yard wastes.

Keeping these materials out helps protect Muskoka’s natural waterways including those we get our drinking water from.

Spring operations

The nature of road maintenance changes with the seasons throughout Muskoka. Each spring, as snow plowing, sanding and salting come to an end, our roads crews adjust the way our road network is maintained. Moving away from winter control to repairing the effects of freeze-thaw cycles and increase in water levels on our roadways becomes an emerging priority. As the District, Towns and Townships look to repair winter and spring damage to the roadways, we also put weight restrictions in place on certain roads to provide some additional protection as we move through the spring frost melt.

How do potholes form?

Every spring, we see an increase in potholes throughout the province. Potholes typically form in areas of the road where water has been able to penetrate through cracks in the pavement. When this water freezes, it expands and can cause the cracks to widen. As vehicles drive over the weakened pavement, the weight and impact can cause chunks of the pavement to break away, eventually creating a depression or hole in the road surface. Over time, traffic and freeze and thaw cycles can further worsen the damage, creating larger and deeper potholes.

Potholes are typically repaired with a cold-mix, temporary patch during the winter and early spring until hot-mix asphalt is available. Once the asphalt plants are up and running for the season, we look to provide more permanent repairs through complete road resurfacing, localized base and surface repairs or fixing any areas with longer lasting material to get us through summer. Engineering staff at the District drive our entire road network each spring to review road conditions throughout the District and assist in the development for short, medium and long-term repair strategies. A list of our larger capital and maintenance plans for 2023 and any 2022 carry-over work is available on our website at: https://www.muskoka.on.ca/en/roads-and-transportation/road-construction-and-closures.aspx

How do you know when it's time to fix a pothole?

Maintenance on our municipal roadways is governed by Ontario Regulation 239/02 - the Minimum Maintenance Standards (or MMS). These standards refer to the set of guidelines and requirements established to ensure the safe, efficient and economical operation of our roadways. Levels of service for each roadway is based on the MMS Road Class which considers both the posted speed limit and traffic volume. Higher speed, higher volume roads require more frequent inspections and have shorter repair timelines when compared to lower speed, lower volume roads. The MMS outline the minimum level of maintenance required for roads, including everything from snow and ice removal to regular pavement repair and maintenance.

The specific requirements and guidelines included in the standards include such things as:

The frequency of maintenance activities, such as pothole filling, pavement repair, and roadside clearing.
The type and quality of materials used for maintenance, such as asphalt mixtures and deicing agents.
The training and qualifications required for maintenance personnel.
The inspection procedures and protocols used to identify and assess road surface issues.
The performance and quality standards required for maintenance work.

Having these maintenance standards in place allows us to ensure that roads are maintained to a safe and effective standard, reducing the risk of accidents and minimizing damage to vehicles. These standards also help to establish a baseline level of maintenance that can be expected by drivers and other road users, which can help to improve overall road safety and usability

What are half-loads?

Spring half load restrictions, known commonly as half-loads, are measures put in place during the spring thaw period while frost comes out of the ground. During this time, warmer temperatures cause the ground to thaw which means the road base is saturated. This can weaken the road surface and make it vulnerable to damage from heavy vehicles- particularly in low-lying, swampy areas. Half-loads, limit the weight of vehicles allowed on certain roads and highways during the spring thaw period. The restrictions are typically put in place from late winter through early spring, depending on local conditions and weather patterns. Exemptions from spring half load restrictions may be granted for emergency vehicles, farm equipment, and other essential services. Violating the restrictions can result in fines and other penalties. Spring half load restrictions are an important measure to help protect roads and highways during the vulnerable spring thaw period, ensuring that they remain safe and usable for all road users. More information on which roads have half-load restrictions as well as when they are in effect can be found here on the Half-loads Page.

Summer operations

During the summer months road crews maintain roads as needed. Whether it's repairing pot poles, repainting road lines, resurfacing work, shoulder maintenance, ditch maintenance etc.

Fall operations

In addition to wrapping up summer operations, each fall our road crews prepare our roadways for the approaching winter and its change in operational requirements. This includes switching over to 24/7 road patrol, outfitting trucks with winter equipment such as plows blades, installing and calibrating salt and sand spreaders, installing road surface monitoring hardware as well as ordering and stockpiling materials such as sand and salt for the coming season.