ROAD INSPECTION MANUAL a Risk-Based Approach to Managing Road Defects
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ROADS AND TRANSPORT DIRECTORATE ROAD INSPECTION MANUAL A risk-based approach to managing road defects NSW & ACT Institute of Public Works Engineering (NSW Division) Limited Roads & Transport Directorate MANAGE ROAD DEFECTS MANUAL First Published 2021 © IPWEA NSW and ACT 2021 This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without the prior written permission of IPWEA NSW and ACT. National Library of Australia Cataloguing in-Publication data: ISBN 978-0-6451183-0-8 Project Manager: Arjan Rensen, Manager Roads and Transport Directorate Manual prepared by WSP: Greg Evans Paul Robinson Matt Taylor Laurence Origlia Reference group: Geoff Paton, Blayney Shire Council Aaron Dunne, Eurobodalla Shire Council Masoud Mohammadi, City of Canterbury Bankstown Chris Worrell, Mid-Western Regional Council Clint Fitzsummons, Nambucca Shire Council Published by: Institute of Public Works Engineering (NSW Division) Limited Level 12, 447 Kent Street Sydney NSW 2000 Phone: +61 2 8267 3000 Fax: +61 2 8267 3070 Email: [email protected] https://www.roadsdirectorate.org.au/ IPWEA NSW and ACT believes this publication to be correct at the time of printing and does not accept responsibility for any consequences arising from the use of information herein. Table of Contents 1 Introduction 1 1.1 General 2 1.2 Background 2 1.3 Coverage 2 1.4 Scope 3 1.5 Objectives of the manual 3 1.6 Roads and Transport Directorate 4 1.7 AUS-SPEC 4 1.8 Statewide Mutual 5 2 IPWEA Functional Road Classification 7 3 Road Network Inspections 9 3.1 Inspection requirements 10 3.1.1 Routine inspections 10 3.1.2 Prompted inspections 10 3.1.3 Inspection framework 10 3.2 Inspection records 11 3.3 Information management 12 3.4 Inspection process 12 4 Defect types and intervention standards 13 5 Risk Management 17 6 Risk based defect priority scoring system 19 6.1 Defect priority score 20 6.1.1 Road score 20 6.1.2 Defect score 21 6.1.3 Defect priority score 23 6.2 Council Road Asset Inspection Framework Tool 23 APPENDIX A IPWEA Functional Road Hierarchy 25 APPENDIX B Illustrated defects guide 27 APPENDIX C Road Asset Inspection Framework Tool 37 A RISK-BASED APPROACH TO MANAGING ROAD DEFECTS i 1. INTRODUCTION 1. Introduction 1.1 General Local government in NSW is responsible for over 165,000km of roads, including local and regional roads. Road operators have a duty of care to make sure road and transport assets are fit for purpose and safe to use by the community. Inspecting road and transport assets to identify defects and managing known defects are an essential part of the responsibility of the road operator. The purpose of this manual is to provide technical guidance and training to improve the skills of council staff involved in the inspection and management of local and regional road assets and to assist councils to maintain quality infrastructure to the community. The manual presents councils with the background and methodology for carrying out road inspections and managing hazards and defects across their council road network. To manage liability issues related to road defects it is essential for councils to have qualified road inspectors and a system to manage defects identified. The manual is aligned with the guidance and training previously developed by Roads and Maritime Services NSW (RMS) and recently updated by Transport for NSW (TfNSW). 1.2 Background A Lismore Coroner’s Court ruling in 2011, based on the investigation of a fatal crash on the Bruxner Highway, recommended that “a system be put in place whereupon the RMS is notified by relevant councils of the name and qualifications of employees charged with road inspections and that no such person be employed for that purpose without prior RMS approval”. The Coroner further clarified that the recommendation pertains to all councils who perform work for RMS pursuant to a Road Maintenance Council Contract (RMCC). Since then, training courses have been developed by RMS and council asset inspectors are to undertake the training as part of the RMCC contractual obligations. The training is required for all asset inspectors with regular refresher courses when the relevant specifications change ensuring the training is current and relevant. Audits of the RMCC include checks that the training has been completed to ensure councils meet the obligations of the RMCC and the Coroner’s recommendations. If a council has an RMCC contract then it must ensure its asset inspectors are trained and competent. This requirement will be satisfied if the asset inspectors have undertaken the RMS training and it is kept up to date. Audits of the RMCC contract include checks on this requirement being met. Training currently provided by TfNSW is provided for asset inspectors in councils with an RMCC contract and this training is applicable to State Roads only. 1.3 Coverage The Manual covers inspections of roads managed by local government. Roads managed by local government are classified as local or regional roads. 2 A RISK-BASED APPROACH TO MANAGING ROAD DEFECTS Table 1-1: NSW Road Network Road Length in km Sealed Unsealed Total Regional Roads1 15,192 3,206 18,398 Local Roads 68,469 78,480 146,949 Total Council Roads 83,661 81,685 165,347 State Roads 18,000 3,000 21,000 Total NSW Roads 101,661 84,685 186,346 Source: IPWEA NSW Road Asset Benchmarking Project, 2017 Transport for NSW (TfNSW) utilises Road Maintenance Council Contracts (RMCC) to establish a collaborative contractual relationship between TfNSW and council to provide maintenance services on the State road network. TfNSW provides mandatory training for road inspectors employed by councils to be sufficiently trained to conduct inspections on state roads under the RMCC. This manual provides similar guidance to assist council staff to inspect the council road network. The terminology used in this manual is consistent with the terminology used by TfNSW in its Routine Maintenance Specification (M3) and associated training. 1.4 Scope The Manual addresses the following for each road class of council roads: • Inspection intervals • Defect and prescribed actions • Trigger levels for maintenance and repair • Assets included The IPWEA Condition Assessment and Asset Performance Guidelines, Practice Note 9 2015, Road Pavements (Visual Assets), introduces a set of important themes which are of direct relevance to the Manual (www.ipwea.org). 1.5 Objectives of the manual The manual is required to bring a degree of state-wide harmonisation in the method by which road hazard and defect information is recorded and acted upon across council road networks. This helps in establishing a more consistent risk-based approach to duty of care obligations. The manual has the following key objectives: • To monitor the condition of assets and determine when maintenance intervention is likely to be required. • To implement systems and processes that promote consistency in the identification and rectification of defects across the road network. • To establish a process that will effectively manage the identification and rectification of hazards. There are a wide range of statutory requirements relating to roads. Asset managers must be aware of the legislation and regulations applicable to their circumstances. A RISK-BASED APPROACH TO MANAGING ROAD DEFECTS 3 The community relies on the service providers to make sure that the road facilities are fit for purpose and safe to use. This is part of their stewardship role including their legal and regulatory obligations and their general obligation to the public at large. This involves an obligation to act diligently, with appropriate expertise to provide for public safety, environment protection and financial prudence. It has a bearing on the frequency and scope of inspections. It will determine when and what actions need to be initiated to achieve the desired outcomes. This is largely a risk management issue. Council staff and contractors need to have an understanding of potential exposure to claims of negligence in failing to maintain the roadway in a safe and proper manner. The old ‘highway rule’ considered the issues of malfeasance, nonfeasance and misfeasance. Malfeasance occurs when the act is intentional, whereas misfeasance is completed accidentally. Nonfeasance (not doing something) and misfeasance (doing something wrong) are very similar terms and courts often have a difficult time differentiating them. They both denote a failure to act when action is required. 1.6 Roads and Transport Directorate The Roads and Transport Directorate is a joint initiative between the Institute of Public Works Engineering Australasia NSW Division and Local Government NSW to optimise roads and transport outcomes. The purpose of the Directorate is to support our member councils to deliver an improved local road and transport network. A network that meets the future needs of the community, industry and economy. A network that is safer for all users and that meets movement and place expectations from local communities. A network that uses resources wisely and is mindful of its impact on the environment. Member councils are collectively responsible for the management of over 165,000 kilometres of roads valued at more than $70 billion representing the single largest community asset in New South Wales. To succeed in this task, the Directorate undertakes leading-edge road and transport research which underpins our input to policy development, our advocacy initiatives and our published guidance on the design, construction and management of the road network and its associated infrastructure. 1.7 AUS-SPEC AUS-SPEC covers planning and design, tendering, contract preliminaries, construction, maintenance, and operations of local government assets. AUS-SPEC provides standard specification to be used by councils to develop their own specifications for the construction and maintenance of council assets, including road and transport assets.