Maintaining the Streets through the Seasons

Engineering Director

James R. Hagerman, P.E.
(865) 215-2148

400 Main St., Suite 480
P.O. Box 1631
Knoxville, TN 37901

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Gay Street Weather that can’t make up its mind. Rain, ice, sleet, and snow. Salting components used to counter the winter weather. Rinse and repeat that cycle about ten times each winter.

It’s a rough life for a street. Add to that the millions of cars that pass over each year. Streets that receive a lot of truck traffic take an extra beating.

“This week may have experienced consistently low temperatures, but we’ve gone back and forth between the sixties and the teens over the last few weeks,” said Chad Weth, Director of Public Service. “For asphalt roads, that can be worse than places with colder climates because of the constant expanding and contracting.”

City of Knoxville Street Care SeasonsAge is another factor. Asphalt becomes brittle with age and the weight of passing traffic can start breaking it up. Surface cracks start to develop. These cracks provide an opportunity for water to penetrate the surface, leading to even bigger damage from freezing.

So, how are roads supposed to survive these conditions?

With more than 1,000 miles of roads to maintain, the City of Knoxville has an ongoing, mutlti-tiered plan to help keep Knoxville running smoothly.


Potholes typically form when asphalt expands and contracts due to temperature changes, allowing water to get under the sealed surface of the asphalt.

East Tennessee’s wavering winters often open the door for that process to happen. Just last year, in fact, City crews patched 480 potholes.

Pothole PatchWhen the City receives a pothole complaint through its 311 call center, crews work to make the repair within 48 hours.

In ideal conditions, a permanent pothole patch can be applied. This means hot asphalt is placed on the pothole, pressed, and sealed.

However, when temperatures are below freezing, hot asphalt cools and cannot be applied, so City crews are required to make a “cold patch” using a dry mix. It’s essentially a rocky mix with an adhesive component mixed in.

These cold patches can be washed out relatively quickly, making the roads feel a bit rough in the later stretches of the winter season (until a more permanent fix can be made in warmer weather).

However, even in the deepest stretches of winter, Knoxville can have temperatures above freezing, allowing for permanent asphalt patches. Therefore, it’s always helpful to immediately report a pothole.

To report a pothole, please call 311 or 865-215-4311.


“While pothole patching is a good tool to keep the road from deteriorating, the road is never truly restored until the resurfacing process happens,” said Jim Hagerman, Director of the Engineering Department.

“Pothole patching is comparable to a cavity filling for the tooth,” said Hagerman. “It prevents further damage, but once that enamel is compromised, there’s a likelihood that time and repetitive use will eventually catch up to it. Resurfacing the road is like giving a street its enamel back.”

The street resurfacing contract is one of the City’s largest ongoing capital projects, with $7.3 million dedicated toward the effort in the 2017/18 fiscal budget. KUB contributes a varying percentage of that funding each year to cover repaving expenses after utility work. City Engineers work to resurface 48 miles each year.

Street ResurfacingDue to temperature constraints, streets are typically resurfaced between March and November in East Tennessee.

Along with regular inspections, City engineers use road classifications to help determine the resurfacing schedule.


The Metropolitan Planning Commission has defined City of Knoxville roads under three categories in its Major Road Plan:

City's goal is to resurface these every 10 years
Examples: Central Street, Cherry Street, Sutherland Avenue, Moody Avenue

Major Collectors
City's goal is to resurface these every 15 years
Examples: Deane Hill Drive, Inskip Road, Kimberlin Heights Road, Chilhowee Drive

Minor Collectors
City's goal is to resurface these every 20 years
Examples: Island Home Avenue, Hill Avenue, Magazine Road, Sheffield Drive, Edgewood Avenue 

Local Streets
City's goal is to resurface these every 20 years
Minor streets, essentially neighborhood roads

Click HERE to view a copy of the Knoxville-Knox County Major Road Plan and to see a list of the classification for every road in Knox County.


There were approximately 200 road resurfacing projects as part of the 2017 Resurfacing Project. Some resurfacing projects finished in 2017 included:
• Baxter Avenue/Wray Street/Central Street
• Bradshaw Garden Drive from Clinton Highway to Pleasant Ridge Road
• Central Street from Churchwell Avenue to Woodland Avenue
• Cumberland Avenue from Seventeenth Street to Henley Street
• Davenport Road from Phillips Avenue to Moody Avenue
• Forest Park Boulevard from Sutherland Avenue to Kingston Pike
• Gallaher View Road from Middlebook Pike to Kingston Pike
• Harriet Tubman Street from McCalla Avenue to Martin Luther King, Jr. Avenue
• Wilson Road from Tillery Road to Gap Road
• Young High Pike from Martin Mill Pike to Chapman Highway

Because of major utility work completed by the Knoxville Utilities Board, 2015 and 2016 were some of the most productive years in recent decades for street paving in Knoxville. There were 65.32 miles resurfaced in 2015 and 68.05 miles completed in 2016.

Click HERE to view a full list of the 2017 resurfacing projects.


This project is the City’s annual resurfacing program and includes approximately 49.5 equivalent miles of resurfacing citywide. Additionally, in compliance with the Supplemental Memorandum of Understanding and Agreement between the City of Knoxville and Knoxville Utilities Board, and at KUB’s request, 4.1 additional equivalent miles have been included for resurfacing streets that were damaged through its utility cuts.

Some of the larger streets on the list this year’s $8.4 million contract already completed are primarily in the northeast part of town and include:
• Central Avenue Pike (Dante Road to Dutch Valley Drive)
• N. Cherry Street (North from railroad tracks to Magnolia Avenue)
• Martin Luther King Jr Avenue (from Beaman Street to Kirkwood Street)
• Washington Pike (from Greenway Drive to Centerline Drive, and Greenway Drive to Murphy Road)

The 2018 Resurfacing Project contract entails nearly 200 street paving projects. To view the full list of streets on the list, click HERE

It should be noted that the annual resurfacing miles total does not include state highways located within the city limits (such as Northshore Drive, Kingston Pike, Chapman Highway, Asheville Highway, or Western Avenue).