HomeMy WebLinkAboutINF 04-26
Report to
Council
Report Number: INF 04-26
Date: March 23, 2026
From: Kevin Heathcote
Director, City Infrastructure
Subject:
Hot-In-Place Asphalt Recycling Feasibility Assessment
File: A-1440-001
Recommendation:
1. That Report INF-04-26 regarding Hot-in-Place Asphalt Resurfacing Feasibility be received;
2. That staff report back by Q2 2027 with an update on the performance feedback from the
Region of Durham pilot project, and the suitability of implementing a Hot-In-Place Asphalt
Resurfacing 2028 pilot project in the City of Pickering; and,
3. That the appropriate City of Pickering officials be authorized to take the actions necessary
to implement the recommendations in this report.
1.0 Executive Summary:
The purpose of this report is to provide a feasibility assessment of hot‑in‑place asphalt
resurfacing (HIR) technology in response to Resolution #876/25 passed on October 27, 2025,
comparing its cost, service life, environmental impacts, and warranty terms to traditional paving
methods.
2.0 Relationship to the Pickering Strategic Plan:
The recommendations in this report respond to the Pickering Strategic Plan Priority of Advance
Innovation & Responsible Planning to Support a Connected, Well-Serviced Community and
Lead & Advocate for Environmental Stewardship, Innovation & Resiliency.
3.0 Financial Implications:
There are no direct financial implications arising from the recommendations of this report.
4.0 Discussion:
The purpose of this report is to report back to Council on the use of hot‑in‑place asphalt
recycling (HIR) in response to Resolution #876/25, evaluating its feasibility based on cost,
environmental impacts, and candidate selection compared to traditional paving methods.
4.1 What is hot-in-place asphalt recycling?
Hot‑in‑place asphalt recycling (HIR) is a way to fix and renew an existing asphalt road without
removing it and hauling it away. Instead of tearing out the old pavement and bringing in all
new material, crews heat the top layer of the road right where it is. The heat softens the
asphalt so it can be loosened, mixed, and refreshed. The recycled asphalt is then re‑shaped
and compacted back into a smooth driving surface—all in one continuous operation on the
road itself.
This method is most comparable to the traditional mill and overlay process which includes
milling and removing the top layer of existing asphalt and placing a new surface lift of asphalt
to extend the life of the roadway.
4.2 How the Process Works
a) Heat – Specialized equipment gently heats the road surface, so the asphalt becomes soft
and workable.
b) Loosen and mix – The softened asphalt is broken up and mixed with a combination of new
material and a rejuvenating agent to restore flexibility of existing asphalt cement.
c) Re-lay and compact – The refreshed asphalt is placed back down and compacted to create
a smooth, renewed surface.
This process happens on the roadway using a treatment train approach, eliminating the need
to truck away the old asphalt or bring new asphalt back to site.
4.3 Candidate Considerations
This method of asphalt rehabilitation is most suitable on roads where the underlying road
structure (both granular and base asphalt) is still in good condition, but the surface shows wear
such as cracking, roughness or aging. Core samples are used to analyze the properties of the
existing asphalt in order to determine the appropriate additives required during the asphalt
recycling process.
HIR is less favourable on roads where base defects such as rutting, large cracking or potholes
are prevalent and extensive base repairs at the granular and / or base asphalt level are
required.
Location also plays a factor for candidate selection. Due to a longer treatment train process,
longer stretches of rural roads with less obstacles such as maintenance holes, utilities and
entrances offer easier execution.
4.4 Environmental Impacts and Benefits
HIR offers several environmental advantages compared to traditional road resurfacing.
a) Reduces material waste – The existing asphalt is reused rather than removed and
discarded, keeping material out of landfills and stockpiles. In one of the Region of Durham
Pilot projects, additional recycled asphalt product (RAP) was used to widen and pave the
shoulders which actually increased the reused material to over 100%.
b) Conserves natural resources – By reusing existing asphalt, the need for new aggregates
and asphalt binder is reduced, lowering demand for resource extraction.
c) Lowers greenhouse gas emissions – Fewer trucks are required because material is not
hauled away or replaced with new asphalt which reduces fuel use and associated
emissions. For example, 1 km of road with a width of 8.5m would produce approximately
1,000 tonnes of waste and require the same amount of new asphalt. This results in
approximately 100 truckloads of material being transferred to and from site with a
conventional mill and overlay treatment.
d) Reduces construction impacts on community – Shorter construction duration, fewer truck
movements and less noise help minimize impacts on residents, businesses and road users.
4.5 Region of Durham Pilot Project
In 2025, the Region of Durham completed its first HIR pilot project at the following three
locations:
Location 1 – Highway 2
From: west side of Ovens Road
To: east of East Townline Road
Municipality of Clarington
Length: 4.2 km
Width: 7.0 - 8.0 m (Existing) – 11.0 m (Proposed)
Average Annual Daily Traffic (AADT): 2,370
Location 2 – Shirley Road (Regional Road 19)
From: east of Simcoe Street (Regional Road 2)
To: 0.5 km east of Graham Road
Township of Scugog
Length: 4.6 km
Width: 7.0 - 8.0 m (Existing) – 10.0 m (Proposed)
AADT: 2,510
Location 3 – Lake Ridge Road (Regional Road 23)
From: 340 metres north of Regional Road 12
To: South side of Highway 48
Township of Brock
Length: 1.8 km
Width: 7.0 - 8.0 m (Existing) – 11.0 m (Proposed)
AADT: 5,130
Based on feedback from Region of Durham staff, the Contract was completed on time and
within the approved budget. This contract offered a 2-year warranty on the work which is equal
to traditional linear construction work in the City of Pickering.
While the work was successfully completed, it is too early to analyze the quality of the material
that was recycled. The Region will continue to monitor and assess the performance of the
road, and the results will be shared with the City of Pickering.
4.6 Financial Comparison
As a result of the savings from reusing excess material, reduced hauling and trucking and
shorter construction duration, it is estimated that cost savings range from roughly 20-40%
compared to a traditional mill and overlay treatment in the industry.
Using estimated costs for a traditional mill and overlay treatment, the Region of Durham’s pilot
project using hot-in-place asphalt recycling resulted in a cost savings of approximately 33%.
While HIR and mill and overlay treatments are similar in nature, it is not a like for like
comparison from a cost perspective. The HIR treatment has proven to be a viable option;
however, several variables make each recycling process unique compared to a standard virgin
asphalt mix that is used in traditional treatments. It is important to note that it isn’t a like for like
comparison when analyzing cost.
4.7 City of Pickering’s Asphalt Resurfacing Program
The City of Pickering has historically invested in an annual asphalt resurfacing program which
consists of full depth asphalt replacement, minor grading works, curb and sidewalk repairs and
maintenance hole adjustments. This type of program would not typically offer itself to a HIR
treatment as both base and surface asphalt are being removed and replaced at a later stage in
service life where base defects are typically present.
4.8 Future Pavement Rehabilitation Strategy
By Q2 2026, the City of Pickering will have a newly completed Roads Needs Study that will
support City’s pavement rehabilitation program and decision making for the next several years.
The Roads Needs Study completes a physical conditional assessment of all City roads and
creates a rehabilitation forecast based on characteristics such as road class, pavement
condition, drainage, geometry and traffic volumes. The City intends to utilize a new strategy
which includes a variety of treatments based on pavement asset management best practices.
This would include a mill and overlay treatment when a road meets the typical criteria.
4.9 Potential Candidates / Pilot Projects
The Region of Durham completed its HIR pilot project in 2025, with a performance assessment
expected to be completed by the end of the maintenance period in 2027. City staff believe this
information should be used to support decision‑making prior to implementing this treatment
locally. This will provide a better understanding of how the pilot roads perform over the next
two to three years through multiple freeze‑thaw cycles.
Based on the results of the new Roads Needs Study and Region of Durham pilot project, the
City will be in a better position to propose potential candidates for an HIR treatment during the
2028 budget cycle.
Conclusion
Hot-in-place asphalt recycling can be a cost-effective and environmentally responsible
pavement preservation treatment when applied to suitable candidates. Compared to a
traditional mill and overlay treatment, it offers potential cost savings, reduced environmental
impact and comparable lifecycle value.
However, the Region of Durham’s performance assessment of its 2025 HIR pilot project will
provide valuable information for the City to consider before implementing a similar pilot in
Pickering. In addition, the City should first complete its updated Roads Needs Study in 2026,
which will inform the pavement rehabilitation program for the 2027 capital budget and forecast.
Accordingly, it is recommended that staff report in Q2 2027 with an update on the performance
feedback from the Region of Durham pilot project, and the suitability of implementing an HIR
pilot project in the City of Pickering which would be reflected in the staff recommended 2028
Budget.
Attachment:
1. Resolution #876/25
Prepared By: Kevin Heathcote, Director, City Infrastructure
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Recommended for the consideration of Pickering City Council By:
Marisa Carpino, M.A.
Chief Administrative Officer
Legislative Services Division Clerk’s Office Directive Memorandum
October 30, 2025
To: Kevin Heathcoate Director, City Infrastructure
From: Susan Cassel City Clerk
Subject: Direction as per Minutes of the Regular Meeting of City Council held on
October 27, 2025
Feasibility of Hot-In-Place Recycling Methods for Road Maintenance and Rehabilitation
Council Decision Resolution #876/25
Please take any action deemed necessary.
SC:am
Copy: Chief Administrative Officer
That the Director, City Infrastructure be directed to report back to Council in Q1, 2026 regarding:
1.The feasibility of incorporating Hot In-Place Recycling into Pickering’s roadmaintenance and rehabilitation program;2.Cost comparisons between traditional resurfacing methods and Hot In-PlaceRecycling, including potential long-term taxpayer savings;3.Warranty terms, life-cycle benefits, and projected service life;
4.Environmental advantages such as reduced trucking, material reuse, and loweremissions; and,5.Opportunities for pilot projects within the City of Pickering.
Attachment 1 - Report INF 04-26