Flintshire Highway Asset Management: HAMP
FLINTSHIRE COUNTY COUNCIL
Highway Asset Management Plan
Issue 1 March 2012
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Highway Asset Management Plan
Contents
0Executive Summary; ...... 4
1Introduction ...... 8 0.1 Highway Asset Management ...... 8 0.2 Drivers for Highway Asset Management ...... 9 0.3 Flintshire County Council Highway Asset Management Plan ...... 10 0.4 Council Expectations from the HAMP ...... 10 0.5 Goals and Objectives of the Highway Asset ...... 10 0.6 Corporate Asset Management within Flintshire County Council ...... 12 0.7 Time period and updating of this HAMP ...... 12 0.8 Uses of the HAMP ...... 12 0.9 Strategic Document Framework ...... 12
2Asset Description ...... 14 0.10 The Highway Asset ...... 14 0.11 Assets Not Covered by this Plan ...... 15 0.12 Asset Growth ...... 15
3Community Requirements ...... 17 0.13 Customer Consultation ...... 17
4Future Demands ...... 19 0.14 Traffic Growth ...... 19 0.15 Traffic Composition ...... 20 0.16 Utility Activity ...... 20 0.17 Climate Change ...... 21 0.18 Regional Transport Plan ...... 21
5Levels of Service ...... 24 0.19 Establishment of Levels of Service ...... 24 0.20 Primary Levels of Service ...... 24 0.21 Dimensions for Levels of Service ...... 25 0.22 Current Levels of Service ...... 26
6Lifecycle Planning ...... 30 0.23 Purpose of Lifecycle Planning ...... 30 0.24 Output from Lifecycle Planning ...... 30 0.25 Importance of Lifecycle Plans ...... 30 0.26 Lifecycle Plan Contents ...... 30 0.27 Status of Lifecycle Plans ...... 31
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0.28 Asset Group Status Reports (Major Asset Groups) ...... 33
7Financial Summary ...... 45 0.29 Sources of Funding ...... 45 0.30 Budget Allocation ...... 45 0.31 Historical Expenditure ...... 46 0.32 Long Term Funding Requirement ...... 46 0.33 Predicted Available Short – Term Funding ...... 46 0.34 Asset Valuation ...... 47
8Risk Management ...... 48 0.35 Context: Corporate Risk Management Strategy ...... 48 0.36 Element of Risk Management ...... 48 0.37 Risk Identification ...... 49 0.38 Risk Evaluation ...... 49 0.39 Prioritise Risks ...... 49 0.40 Risk Control ...... 50 0.41 Monitor Risks ...... 51 0.42 Reviewing & Reporting ...... 51 0.43 Risk Register ...... 52 0.44 Major Asset Risks ...... 52
9Improvement Plan ...... 60 0.45 Milestones ...... 60 0.46 Progress Reporting ...... 60
10Management & Control of the Plan ...... 61 0.47 Responsibility for Delivery ...... 61 0.48 Review and Update ...... 61
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0 Executive Summary;
0.1 Introduction
As part of its commitment in the Regional Transport Plan Flintshire County Council (FCC) has developed this Highway Asset Management Plan (HAMP)), to show the strategic approach that is needed to maintain the infrastructure to the required service level. This is FCC’s second HAMP which will next to be reviewed in three years time. In the first HAMP procedures and processes were developed for use in managing the asset more efficiently. The asset which benefited the most was the carriageway which has some of the best condition levels in the whole of Wales. This illustrates that the asset management process is successful. The HAMP will provide a robust and systematic management regime that will enable a strategic approach to decision making for capital and revenue expenditure.
The introduction of a fully developed asset management approach cannot be achieved overnight. Time and appropriate resource is required to collect relevant asset data, to analyse both new and existing data, to consult upon the outcome and to modify management practices progressively, improving skills and performance.
This plan represents the start of this improvement process. It has been developed by undertaking a thorough and rigorous review of current practice. This review has highlighted a number of areas where, like most authorities, current practice does not support an asset management approach.
Improvement actions required to address these issues have been identified within the relevant sections of the plan and are summarised and prioritised the Improvement Action Register.
The purpose of the updated HAMP for Flintshire’s highway network is to document and articulate current procedures and processes used for the management of the highway asset, to highlight the strengths and weaknesses of the current management approach and to seek ways to improve the current practices.
The development of this HAMP will enable Flintshire County Council to respond to the issues raised in a consistent structured manner accounting for FCC wide objectives and aims rather than departmental, financial and politically led demands.
It is recognised that the implementation of the HAMP may have significant implications for the future management of services.
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0.2 Network Definition
The highway network comprises many differing and diverse assets. Asset management principles are to be applied to all of these components using the groupings as follows:
Table 2.1 Highway Asset Management Groups and Elements Asset Area Elements Carriageway (including Carriageway, traffic calming features, bus lanes, cycle bus lanes) lanes, high friction surfacing, central reserves, carriageway markings. Footways & Cycleways Footway (Adjacent to carriageway), Footpath (remote from (except cycleways that carriageway), Cycleway form part of the carriageway) Public Rights of Way Footpaths (both surfaced and un-surfaced), gates, stiles, non-highway bridges, marker posts, footpath signs. Structures Bridges, subways, sign gantries, culverts, embankments, retaining walls, other highway structures. Street Lighting & Lighting columns, illuminated signs, illuminated bollards, Illuminated Signs lamps, cabling, ducts, feeder pillars, seasonal illuminations, subway lighting. Traffic Signals Signalised junctions, UTC systems, detection equipment, cabling, ductwork and access control bollards. Pedestrian Crossings All pedestrian and cycle crossings (Toucan, Pelican, zebra, etc.), pedestrian refuges. Safety Fences & Safety barriers, pedestrian barriers. Pedestrian Barriers Signs (Non-illuminated) Non-illuminated signs, Warning, Regulatory, Local & Bollards direction/information, posts, bollards, information boards, street name plates. Street Furniture (Public Cycle stands, litter bins, benches/seats, public art, Art, Fountains, etc.) fountains, etc. Drainage Gullies & linear drainage channels (road and footpath), highway drains (including pipework, manholes & outfalls), land drainage ditches and watercourses, roadside ditches, etc. Winter Maintenance Weather Station, Gritting plant, salt/grit bins, salt stock Trees, Planted Areas, Verges, trees, areas of planting, hedges Verges and Hedges
Effective asset management planning requires knowledge of an asset, its condition and its use. This entails the collection and maintenance of asset data that can assist managers to assess, analyse and report on performance and progress.
As part of the preparation of this plan an initial review of current data and data management practice was undertaken.
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The current extent and quality of some of the asset data is inhibiting the development of highway management practices and the planned improvements in asset data will help to rectify this.
0.3 Goals & Objectives
While the basic duty of a Highway Authority relates to safe passage, Flintshire County Council has upgraded the highway network over time such that it now provides a strong contribution to the quality of life in the local neighbourhood and is vital for economic prosperity. As such the highway network now makes a significant contribution to achieving the Councils Corporate Objectives as related in the Corporate Plan, as well as contributing to a number of transport and highway related goals and objectives for Flintshire County and the surrounding area.
0.4 Policies
In order to meet the council’s objectives, a number of policies are required to assist in the management of the highway asset and to meet statutory duties, enable the exercise of discretionary powers, and to ensure the authority complies with best practice guidelines, codes of practice and customer expectations. Work to develop and ratify these policies through the appropriate elected body has been highlighted as one of the major improvement actions within the HAMP document
0.5 Levels of Service
Levels of service are integral to the asset management process. They are used to determine service delivery levels (or service options) of an asset. These are used to prioritise maintenance schemes and to establish suitable performance measures to check on level of service delivered. The levels of service are determined by a combination of legislative requirements, customer expectations, the council’s expressed goals and objectives, and best practice guidelines. In addition to this, levels of service will vary between groups of assets, and between elements within those groups. The establishment of initial levels of service will be based on current practice and will be the subject of continuous monitoring and subsequent development. Once the requirements driving the asset group’s service level have been identified it is necessary to develop service options around these and to evaluate them. Once the final service options are in place for each asset group it is imperative, from an asset management perspective, to measure their actual performance against that desired. This is done by developing level of service groupings with accompanying performance indicators.
0.6 Asset Lifecycle Planning
The purpose of a life cycle plan is to document how a particular asset is managed and to identify current and future needs in terms of predicted works and anticipated funding need. Life cycle plans consider the condition of the asset and assess its future performance by applying agreed risk and investment policies. From this information it is possible to develop the works programmes and strategies that are necessary to achieve the specified levels of service. Future asset funding requirements, calculated from consideration of the life cycle, are determined by reference to several sources including: • Asset condition and age data with reference to predictive deterioration models based on asset lives and historical rates of deterioration. • Projects identified in the forward works programme and Corporate Forward Plan • Long term financial strategy projections. • Historical cost trends (where sufficient information is available to substantiate budget forecasts).
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Lifecycle plans for each significant asset group are being developed.
0.7 Financial Summary
Maintenance of highway assets is funded by a combination of Capital and Revenue budgets. Capital allocations are made by the Welsh Assembly Government taking into account factors such as road length, classification, traffic figures and road condition data derived from the NPI’s, National Road Maintenance Condition Surveys (NRMCS) and local condition surveys. Revenue allocations are funded from a combination of local council tax, business rates, Central Government revenue support and other grants. The highway maintenance budget is derived from historical budget allocations amended to take account of inflation and influences on the network. The budget does not currently take into consideration inventory information, life cycle planning or predicted funding requirements: information which will in the future be generated using HAMP financial projections. Estimated financial projections for the largest asset groups have been made and financial projections for other asset groups will be added to these and all will be updated annually. Following a recent report published by CIPFA highway asset valuation has become more of a priority as it is expected that authorities will be asked to provide updated valuation figures to central government. At present some valuations of Flintshire’s highway assets has been carried out however work is ongoing within the CSS Wales Asset Management Group which has developed a valuation process and unit cost rates that can be used for all authorities within Wales.
0.8 Risk Management
The Council has an established Risk management process that entails; Risk Identification, Risk Analysis, Risk Financing, Risk Monitoring and Risk Control. The Risk Management Strategy requires both departmental and corporate risk registers to be developed and regularly reviewed. The register records an assessment of the potential severity and likelihood of the risk with the current levels of control in place. It then looks at what actions could be taken to reduce or manage the risks further. The risk is then reassessed and a senior officer nominated with responsibility for project managing the agreed improvements.
0.9 Forward Works Programme
A fully integrated long term Forward Works Programme (FWP) is currently being prepared by the Council. However several of the maintenance work-streams have individual work programmes covering more than one year. In general terms, there is a 2 year, project by project programme and a 3 year outline programme dealing with maintenance issues. Implementation of an asset management approach to the operation and maintenance of a highway network entails a change to the programming of work on a best value (or whole of life cost) basis. This is only possible when longer-term views of the programming process are adopted. The development of a long term programme to enable the application of whole life costing requires the production of programmes long enough to incorporate the expected lives of the assets. Within the life of this HAMP, the Council will move to a Forward Works Programme covering five years, with an additional five year identification of funding strategy.
0.10 Physical Works and Service Delivery
In common with many highway authorities, Flintshire County Council has a number of arrangements and contracts in place to enable the undertaking of physical works and the delivery of services.
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The organisation undertaking the majority of the physical works associated with the routine maintenance of the highway asset is County Services, which is an internal arm of Flintshire County Council (formerly known as a Direct Labour Organisation (DLO)). Additional contracts with external service providers are in place for a number of other work areas. The service delivery and physical works options related to each asset group are discussed more fully within the appropriate lifecycle plans.
0.11 Performance Measurement and Management
Performance is currently measured against National Performance Indicators and Local Performance Indicators. A number of suggested local performance indicators have been set out in the HAMP. However these need to be fully reviewed in relation to the new NPI’s and in respect to the changes to the service that may be forthcoming following the conclusion of the HAMP.
0.12 Management and Control of the Plan
Throughout this HAMP, issues and corresponding improvement actions have been established. These actions will need to be prioritised, programmed, resourced and implemented in order for an asset management approach to be fully introduced. The HAMP itself will be updated on a regular basis, with an annual asset management performance report and a full update of the plan.
1 Introduction
0.1 Highway Asset Management
Highway asset management is defined as:
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“Asset management is a strategic approach that identifies the optimal allocation of resources for the management, operation, preservation and enhancement of the highway infrastructure to meet the needs of current and future customers”
County Surveyors Society Framework for Highway Asset Management (1)
Asset management is used to ensure that public infrastructure is managed cost effectively and that every penny spent on the asset is put to the best use.
The adoption of asset management has been proven to provide significant financial benefits (2). This plan records how Flintshire County Council intends to access those benefits.
This asset management plan commits Flintshire County Council to:
− Affordable standards; the plan establishes standards that can be afforded and communicates them to the public such that they know what service to expect − Long term planning; the plan covers a long (10yr) time period to ensure the right balance of short term fixes, preventative actions and replacement of aged assets − Budget allocation; the plan requires data to be collected about our assets that will enable informed decisions to be made about how best to spend our budgets. − Managing risk : the plan requires to analysis of asset data to gauge and mange the risk associated with our decisions
0.2 Drivers for Highway Asset Management
The implementation of the plan will support:
− The introduction of Whole of Government Accounts (WGA) and specifically the CIPFA Transport Asset Code − The desire of the Welsh Government to see authorities use asset management for highways and to access the associated cost benefits − The pressing need to manage ever increasing budget pressures results from the national financial position − It is anticipated that Welsh Assembly Government funding will be assessed using asset management methods following the ending of the SSA in 2013. References to Add at the End
CSS Framework for Highway Asset Management, CSS , 2004 LOCAL AUTHORITY TRANSPORT INFRASTRUCTURE ASSETS, REVIEW OF ACCOUNTING, MANAGEMENT AND FINANCE MECHANISMS FINAL REPORT Published – June 2008 (this report identified “Early findings from local government, combined with the greater
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experience in the water and rail industries, indicate that improved long term value for money from proper Asset Management Planning could be equivalent to at least 5% p.a (worth some £250m on the 2005/06 capital and revenue budget spent on roads maintenance).”
0.3 Flintshire County Council Highway Asset Management Plan
This is Flintshire County Council’s second HAMP. In the first HAMP there were varying degrees of progress within the different asset groups. The biggest improvement was achieved in the asset management of carriageways where the planned work schedule is identified using the processes from within the plan. The street lighting asset management has also progressed and there now exists an accurate inventory, regular monitoring of condition and completed work which enable efficient management regimes to be implemented. This HAMP is going to be used as a way of ensuring the best use of available resources and to enable the identification of appropriate levels of service and funding requirements. A minimum of five years data is available for asset condition and annual budgets, this data is used in financial asset models to project future relationships between cost and condition. An array of scenarios will be analysed and then provided to the members as part of the annual budget application process.
0.4 Council Expectations from the HAMP
The implementation of this plan is intended to ensure that the Council adopts a strategic approach for the management and operation of its highway infrastructure. To preserve and enhance those assets associated with that infrastructure in order to meet the current and future expectations of its citizens and those wishing to enjoy the county of Flintshire. It will be utilised as a vehicle for: Identifying the most effective use of budgets Allocating resources based on needs Identifying customer expectations and aspirations Formalisation of service standards Developing longer term views of highway maintenance To monitor and report upon performance
0.5 Goals and Objectives of the Highway Asset
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l l d a n CP1: To be a modern, efficient and cost effective public organisation through our E5.1: Introduce Civil Parking Enforcement (CPE) a g
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0.6 Corporate Asset Management within Flintshire County Council
Flintshire County Council does not have an overriding Corporate Asset Management Approach which incorporates all assets. The other main asset managed by the Council is Property and this has a well developed Asset Management Plan based on the guidance from within that industry.
0.7 Time period and updating of this HAMP
Flintshire County Council expects that the HAMP and associated documents will cover the period 2012-2015. a.An Annual Status and Options Report will be completed highlighting the results of the asset management undertaken within the year. This report will include a section detailing any issues or changes that will need to be covered in the following HAMP b.The Appendices: will be “living” documents. They will be updated as their contents demand them to be changed; this will typically be either annually, quarterly or monthly. Updating will be linked to the management processes introduced to manage the implementation of the plan.
c.Implementation Plan: it is anticipated that the implementation plan will have a duration that mirrors the plan i.e. it will contain proposals that will target the embedding of highway asset management practice within Flintshire County Council. At the end of the 3 year period the HAMP will be fully reviewed and will be updated with the issues detailed in the annual report.
0.8 Uses of the HAMP
Detail what the Council intends to use this plan for: - Input into budget setting. - Formalisation of service standards - Monitor and report upon performance
0.9 Strategic Document Framework
The linkage between the Council’s strategic documents and the HAMP is shown in Figure 1.1.
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Network Management Policies
Safety Inspection Policy Community Strategy for Flintshire (2009 – 2019) Winter Maintenance Plan
Improvement Plan 2011- Highway Asset 2012 Management Plan Well Maintained Highways (2012 – 2015) Code of Practice for Highway Maintenance Management . Directive Business Plan North Wales Regional Transport Plan Management of Highway Structures: A Code of Practice
Well Lit Highways Code of Practice Figure 1.1 Strategic Document Framework
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2 Asset Description
0.10 The Highway Asset
The highway assets covered by this plan are:
Table 2.1 Size of the Highway Asset
Quantity Included in Asset Group Element Quantity Confidence HAMP Carriageway; including lay-bys, bus Carriageway Carriageway 2,138 km High lanes etc. LCP Footway, - adjacent to the Footway 1,250 km Low Footway LCP carriageway Cycleways – constructed off Cycleway carriageway, cycleways and shared 32 km Low Footway LCP cycle/footways; cycle/carriageway Road Bridge 68 No. High Structures LCP Footbridge 125 No. High Structures LCP Retaining Wall 210 No. High Structures LCP Culvert 201 No. High Structures LCP Structures Subway 1 No. High Structures LCP Cellar / Vault No. High Structures LCP Underpass No. High Structures LCP Traffic Signal Masts 2 No High Structures LCP Piled Rafts 2 No. High Structures LCP
Lighting (incl. Lighting columns 19,333 No. High Lighting LCP lamps, cabling, Illuminated signs, flashing ambers & 4,408 No. High Lighting LCP ducts, feeder bollards pillars Cables 107,500 m. Low Lighting LCP Signalised Junctions 31 No. High Traffic Signals Pedestrian Crossings 47 No. High Rising Bollards 5 No High Vehicle safety fences High Safety Fence Safety Fences 29,598m LCP Non-illuminated signs, Warning, Non illuminated Regulatory and local 11127 No High Signs direction/information posts, information boards. Drainage Gullies 46,000 No. Low Traffic Calming Features – including Traffic Calming Low Tables, Humps, Chicanes etc. Verges and Verges, soft landscaped areas High Planted Areas All car parks maintained and Car Park 54 High operated by the authority? Street Furniture All Low
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*Table 2.2: Quantity Confidence Descriptions Rating Rating Description High Quantity has been validated and is more than 70% accurate Medium Quantity has been validated and is between 30% and 70% accurate Low Quantity has been validated and is less than 30% accurate Quantity has not been validated No quantity is known
0.11 Assets Not Covered by this Plan
All Local Authorities do not have the same structure in place for managing their services. The composition of the council management structure is reviewed regularly and can change where additional benefits are predicted. Table 2.1 provides the list of assets that the Highway Department currently has responsibility for managing. The remaining assets which are sometimes linked with highways are listed in Table 2.2 and include a contact organisation.
Table 2.2: Assets Not Included in Flintshire County Council HAMP Asset Responsible Organisation Car Parks Assets and Transportation Salt Bins (Part) Community/Town Councils Various Street Furniture Community/Town Councils
0.12 Asset Growth
This HAMP provides budget decision makers with long term funding needs. To increase the accuracy of these projections it is important to identify any known future growth as early as possible. Table 2.3 shows the growth of assets that is predicted for the next five years.
Table 2.3: Historic and Future Growth of Assets Asset Type Sub Type Current Growth Predicted Comment Growth (next 5 years) Principal (A) -0.3 km between 0 Change due to re- Roads 2006 and 2010 measure of existing asset Classified (B and 2.1 km between 0 Change due to re- C) Roads 2006 and 2010 measure of existing asset Carriageway Unclassified 54.4km between 3km per year Adoption of new Roads 2006 and 2010 assets under sections 38 and 228 of the Highway Act 1980. Footway All 6km per year Adoption of new assets under
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Table 2.3: Historic and Future Growth of Assets Asset Type Sub Type Current Growth Predicted Comment Growth (next 5 years) sections 38 and 228 of the Highway Act 1980. Cycleway All 3.5km between Asset will grow as 2004 and 2008 Capital allocations from the Welsh Assembly Government have been approved for the construction of new cycleways Street Lighting All 6% annually between 2004 and 2008 Bridges / Culverts 4 between 2004 Highway and 2008 Structures Retaining Walls 184 between 2004 and 2008 Signalised Junctions Traffic Signals Pedestrian Crossings Rising Bollards Signs All Drainage Gullies
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3 Community Requirements
0.13 Customer Consultation
Customer Satisfaction Survey 2010
There have been a recent customer surveys relating to the maintenance or management of the carriageway asset. This was procured through TAITH and was conducted in the 6 North Wales Councils. Questions relating to the importance of particular assets was asked and in Flintshire ‘The condition of highways’ scored highly reflected in a % score in the highest band 60 – 100 %. A sub question of Condition of Roads and Pavements asked ‘How satisfied or dissatisfied are you with each of these locally….Condition of road surface?’ The result of this has been represented graphically below by Council Ward.
Individual consultation exercises are also carried out for schemes the feedback received is generally used only to affect the works undertaken and is not kept as a guide to future requirements.
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Customer Enquiry / Complaint System
A customer relationship management system is used to manage the Streetscene Services customer contacts. When reports are received details are entered onto the complaints database within Lotus Notes at the Alltami & Halkyn depots, referenced against a unique identifying number. The report is faxed through to the appropriate officer who has five working days to investigate and respond by providing a hard copy of the report form, annotated with the action taken, back to the customer enquiry co-ordinators at Alltami or Halkyn. The electronic records are then updated with the action taken and any supporting information such as a works order number. This information is a valuable source for understanding what matters to the customer and should be used in other asset management functions. Patterns could develop which if identified could enable proactive responses compared with the current reactive approach. This information could be used in prioritising work. Currently this information is not used and there is an action to identify where the most benefit can be made of this information.
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4 Future Demands
0.14 Traffic Growth
Flintshire County Council traffic section has 26 permanent traffic counters located on most of the A roads and on some of the busier B roads throughout the county. Reports on the volumes of traffic passing the counters are received on a monthly basis. Locations of the counters and the annual average daily traffic volumes for the past five years are detailed below in Table 4.2. Traffic counts for C and U roads are undertaken only for assessment of individual schemes in particular locations and as such the results of these cannot be used to identify the average traffic flows across the network or the changes in traffic volume over a number of years. At present the traffic data recorded relates only to the total volume of vehicular traffic and does not break this information down into vehicle type. (IA6) The traffic volume and composition can be very significant for some asset groups. For example for certain rural roads the growth of heavy vehicle use can be the major driver of asset deterioration. The traffic flows detailed in Table 4.1 below do not show any significant growth in traffic volume over the last 5 years, and in fact shows a decrease in traffic volumes.
Annual Average Daily Traffic flows
2004 2005 2006 2007 2008 2009 30,000
25,000
20,000
AADT 15,000
10,000
5,000
0 Site 1 2 Site 3 Site 4 Site 5 Site 6 Site 7 Site 8 Site 9 Site Site Site 10 11 Site 12 Site 13 Site 14 Site 15 Site 16 Site 17 Site 18 Site 19 Site 20 Site 21 Site 22 Site 23 Site 24 Site Site
Locations Figure 4.1: Annual Average Daily Traffic Flows
Table 4.1: Traffic Growth (2005 to 2009) 2006 2007 2008 2009 2010 Annual Growth -2.60% -1.15% -2.00% -1.84% -0.57%
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Table 4.2: Sites within Figure 4.1 Site No. Site Name Site No. Site Name Site 1 B5129 Connah’s Quay East of Pen y Site 13 A5104 Saltney Llan Site 2 A541 Nannerch Site 14 A548 Oakenholt Site 3 B5129 Near B&Q Store Shotton Site 15 B5126 East of Connah’s Quay Site 4 A5104 Broughton East of Warren Site 16 A550 Penyffordd Interchange Site 5 B5441 Station Road Queensferry Site 17 A548 Shotwick Road Site 6 A550 Gladstone Way Site 18 B5373 Caer Estyn Site 7 A550 North of B5373 Site 19 A541 Talwrn Site 8 A5151 West of Lloc Site 20 A548 East of Flint Site 9 A548 Dee Crossing Site 21 Parkway, Deeside Industrial Estate Site 10 A5119 South of Flint Site 22 A5026 West of Holywell Site 11 A548 County Boundary Site 23 A5118 East of Bannel Lane Site 12 A548 East of Ffynnongroyw Site 24 Bannel Lane @ Junct with A5118
0.15 Traffic Composition
There is no regular monitoring of vehicle composition completed by Flintshire County Council. Surveys are completed on request for specific scheme investigations and this information is held by the traffic department.
0.16 Utility Activity
Utility activity can have a major effect on the maintenance and management of the carriageway asset, although not yet quantified it is believed that there is a significant increase in the number of defects found following the disturbance of the carriageway due to utilities. This is apparent even when the utility has reinstated the carriageway to the required standard. Co-ordination of utility and authority works is undertaken by the street works team in accordance with the New Roads and Street Works Act. Quarterly co-ordination meetings are attended by all statutory undertakers, representatives of County Services and the street works team. The number of statutory undertaker openings undertaken within the last 5 years is detailed in Figure 4.3 below, and although exact figures for carriageway and footway openings is not known it is believed that approximately 50% of these have been located within the carriageway.
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Number of Road Opening Notices
7000
6000
5000
4000
3000
2000
1000
No. of Road Opening Notices Opening Road of No. 0 2003-04 2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 Number of Notices 5840 6312 6331 6067 4893 5877 6639
Financial Year
Figure 4.3: Number of Road Opening Notices
0.17 Climate Change
Climate change is a change in the statistical properties of the climate system when considered over long periods of time, regardless of cause. Currently the average temperatures around the United Kingdom are rising causing warmer summers and wetter winters. The biggest influence on highway maintenance is the unpredictability of flooding events which cause the most damage to the highway infrastructure. Risks include Undermining of bridge components by high water levels causing the failure of structures. Reduced asset condition and safety caused by assets deteriorating quicker as a result of the extreme climatic events Reduced network availability caused while highways are restricted or are being repaired. Increased costs to maintain the highway in a safe condition Increase programme and quality risk due to required changes in construction activities. Flintshire County Council does not currently have sufficient levels of information to be able to quantify these risks. The first step to complete this exercise is to identify a list of appropriate information sources for this information and the process for collecting the information. 0.18 Regional Transport Plan
The Regional Transport Plan (RTP) is an integrated strategy for North Wales prepared in accordance with the Welsh Assembly Guidance by TAITH the North Wales Regional Transport Consortium. The North Wales region incorporates the local authority areas of Anglesey, Gwynedd, Conwy, Denbighshire, Flintshire and Wrexham. The RTP has the following Vision, seven objectives and nine priorities for the Region which shape the approach to developing economically efficient and environmentally sustainable transport systems to serve the communities and businesses of North Wales
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The overall Vision for the TAITH region is: “TAITH will deliver safe, sustainable and efficient transport networks to support the economic and social activities of North Wales’ diverse communities and businesses having regard to its strategic European role” The nine priorities of the RTP and associated affects on the HAMP are shown in Table 4.5:
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Table 4.5: Regional Transport Plan Objectives and Priorities Objective 1: Optimise Objective 2: Improve Objective 3: Facilitate the Objective 4: Provide, Objective 5: Improve Objective 6: Enhance Objective 7: Upgrade accessibility to the quality and efficient movement of promote and improve safety of all forms of the efficiency and use and maintain the employment, provision of passenger freight supporting the sustainable forms of transport of the transport transport infrastructure, education, health and transport throughout Region’s industry and transport and network providing new where services for all the North Wales and to and commerce and its infrastructure to minimise necessary diverse communities from the Region International Gateway the negative impacts of of North Wales functions transport on the local and global environment Priority 1: Efficiently meeting North Wales’ diverse transport needs Priority 2: Passenger transport profile and performance Priority 3: Reducing congestion and journey times Priority 4: Supporting development Priority 5: Safe, efficient, sustainable transport networks Priority 6: I mproving rail services for North Wales Priority 7: Environmentally- friendly and efficient freight movement Priority 8: Smart traffic planning and management Priority 9: Sustainable transport
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5 Levels of Service
0.19 Establishment of Levels of Service
Flintshire County Council does not have a formalised process for establishing levels of service in regard to the maintenance and management of the road asset. However a number of proposed levels of service (LoS) have been identified and will be refined over the coming months to suit elected member and customer expectations and budgetary constraints. The proposed LoS identified are included within Appendix E along with their associated performance measures and targets. The further development and agreement of these LoS has been included within the improvement action plan. Levels of service describe both what the customer wants from the asset and what is necessary to ensure that a proper maintenance regime is in place. A clear understanding of customer views is therefore fundamental in defining them, as is a comprehensively planned maintenance regime. Both aspects will be influenced further by legislative requirements, the Council’s objectives and policies and best practice from elsewhere. A critical part is of course played by available funding, since aspirational levels of service will have to be compromised if there are insufficient funds to afford them.
0.20 Primary Levels of Service
Primary levels of service have been developed which link to the Corporate Objectives. The four primary levels of service and their definitions are as follows:
Health and Well Being – We will endeavour to provide a service that focuses on the long term sustainability of the network.
Safe and Supportive Communities - We will endeavour to maintain the public highway in a safe condition for all highway users.
Economic Prosperity - We will endeavour to maintain the public highway network that will provide the infrastructure to protect and develop the local economy.
Living Sustainability - We will endeavour to introduce new technology and processes to reduce the environmental costs
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0.21 Dimensions for Levels of Service
Four dimensions for levels of service will be used in this HAMP: • Safety • Availability • Customer Service • Condition
Safety describes the risk to the customer in using the asset and will in all cases be required to meet very high standards. Road safety in the wider sense, which depends substantially on the behaviour of road users, is not initially covered by this dimension. To illustrate the difference, a worn road which has a slippery surface is not meeting the required level of service, but a bend with perfectly good surface which has a record of accidents because drivers drive too fast is meeting it. In the longer term, as noted below, the HAMP may be expanded to include the improvements to overcome problems such as this which are currently considered separately. Availability is largely self-explanatory and will vary according to the asset and location. A single street light not working is unavailable and may cause minor nuisance to road users and residents, but a bridge on an ‘A’ road closed because of structural weakness will be a major problem. Customer Service deals with the way in which the customer requirements are met within the management of the highway asset and include the assessment of customer requirements from various sources including surveys, special interest groups and customer enquiries. It deals with how these interactions are undertaken and how the information is then used to set other service levels. The Condition dimension is judged relative to minimising the long-term cost of maintaining the asset and not relative to customer requirements. For example, a rusting steel lamp column may be safe, working and acceptable in appearance to customers. The fact that it is in rusty condition is, in these circumstances, only of concern if the optimum maintenance regime to minimise whole-life costs would have had it repainted before rust appeared. Such an optimum maintenance regime will, for many assets, include periodic preventative maintenance before more extensive maintenance, or full replacement, is undertaken. A maintenance regime which involves little investment over many years followed by major renewals may be more expensive overall than a ‘little and often’ regime which applies regular preventative maintenance; hence the emphasis given to minimising whole-life cost.
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Environmental sustainability is growing rapidly in importance and the Council already takes many steps to minimise the environmental damage done by its management of roads assets. It is likely that this will be added as a specific additional dimension of levels of service in future editions of the HAMP. All aspects of level of service include elements of risk. As examples, the collapse of a bridge immediately makes the service unavailable; inadequate monitoring of skid resistance may increase the risk of road accidents. The analysis of levels of service needs to take such risks into consideration.
0.22 Current Levels of Service
The current levels of service achieved by the Council are identified within appendix E along with a number of service options based on differing levels of investment. These will be updated annually and reported as part of the Status and Options appraisal report.
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Table 5.4.1 Key Levels of Service - Carriageways Primary Level of Secondary level of Current Current Steady Target Target Level Comment Service Service Level Cost State Cost Level Cost Safe and THS 011a Supportive Condition of Principal 3.42% 6% Communities (Class A) Roads [RED] Safe and THS 011b Supportive Condition of Non 3.55% 6% Communities Principal (Class B) Roads [RED] Safe and THS 011c Supportive Condition of Non 11.35% 6% Communities Principal (Class C) Roads [RED] Safe and Condition of Non Supportive Principal (Class C) 26.42% 18% Communities Roads [AMBER] Safe and Condition of Unclassified Supportive Roads [RED] 3.37% 6% Communities Safe and Condition of Unclassified Supportive Roads [AMBER] 28.42% 18% Communities Safe and Percentage of Supportive carriageways with low 2.43% £29,000 0% £446,000 Communities skid resistance (below -0.10)
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Table 5.4.2 Key Levels of Service - Footways Steady Primary Level of Secondary level of Current Current Target Target Level State Comment Service Service Level Cost Level Cost Cost Safe and Condition of Footways Supportive (Condition 4 – 0.03% 0% Communities Structurally unsound) Safe and Condition of Footways Supportive (Condition 3 – 13.93% 5% Communities Functionally Impaired)
Table 5.4.3 Key Levels of Service – Street Lighting Steady Primary Level of Secondary level of Current Current Target Target Level State Comment Service Service Level Cost Level Cost Cost Safe and Time taken to repair Supportive street lighting where it is 5 days 5 days Communities the Council's responsibility Safe and Number of steel columns Evaluate current ESL based Supportive outside Expected Service 3240 TBA on structural survey results. Communities Life Safe and Number of concrete Supportive columns outside 2067 0 £4,500,000 Communities Expected Service Life
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Table 5.4.4 Key Levels of Service – Safety Barriers Steady Primary Level of Secondary level of Current Current Target Target Level State Comment Service Service Level Cost Level Cost Cost Safe and Safety / Condition Inspection Schedule started in Supportive Inspection once every 3 33% 33% 2011/12 to undertake 33% in Communities years asset. Safe and Number of sub standard Supportive safety fence on Urban 11% 0% Communities roads ( wooden posts) Safe and Number of sub standard Supportive safety fence on Urban n/a Communities roads. Safe and Number of sub standard Supportive safety fence on Rural n/a Communities roads.
Table 5.4.5 Key Levels of Service – Structures Steady Primary Level of Secondary level of Current Current Target Target Level State Comment Service Service Level Cost Level Cost Cost Safe and Complete Principal Supportive Inspections within 6 year 50% 100% Communities cycle. Safe and Complete General Supportive Inspections within 2 year 100% 100% Communities cycle.
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6 Lifecycle Planning
0.23 Purpose of Lifecycle Planning
As part of the development of this plan we have created lifecycle plans to document how each of the asset groups that make up our road infrastructure is managed. Each lifecycle plan provides definition of the standards that are applied to the management of the asset group in question and details of the processes that are used to ensure that these standards are delivered. Production and updating of the lifecycle plans is also enabling local knowledge to be captured. Documenting the LCPs has allowed us to capture the knowledge of individuals, to record this and enable it to be shared and developed.
0.24 Output from Lifecycle Planning
The output from the lifecycle planning process is long term prediction of the cost of the continued management and operation of the asset in question. These should be in the form of financial projections (contained in section 7) and are linked to target levels of service (included in section 5).
0.25 Importance of Lifecycle Plans
Lifecycle plans are the core of our approach to Highway Asset Management planning. They contain the detail that enables asset management practices, such as long term cost projection, performance management and risk management, to be applied consistently across all asset groups.
0.26 Lifecycle Plan Contents
Lifecycle plans are living documents, updated as we gather and analyse information on each asset group. When fully populated each LCP will contain the following information:
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Section Answers Contains The Asset What assets do the council Inventory details (type size, etc) own? Asset growth statistics Service What is each asset group Customer expectations Expectations required to do? Council objectives for transport Specific user requirements Safety considerations, 3rd party use Environmental requirements, Network availability, Amenity considerations Management How is this asset group Policies Practices managed? Inspection Regime Condition Assessment Asset Acquisition standards Routine Maintenance standards Operational/Cyclic Maintenance Planned Maintenance standards Disposal standards Investment How much should be and is Historical Investment spent on this asset group? Output from historical investment Forecast Financial Needs Valuation: GRC, DRC & ADC Works How are works programmed Existing forward works programme 3yrs+ Programme for this asset group? Works programme coordination Option Appraisal: treatment selection - At a project level - At a budget category level? Risk What are the risks Risk identification associated with this asset Major asset risks group? Works and How are works delivered or Service Delivery procured on this asset group? Performance How is the performance of Measurement this asset group measured Performance indicators and managed? Current performance figures Target performance figures Strategies What strategies are there for the future management of this asset group? Service What improvement would Asset specific improvement actions Improvement improve the council’s actions management of this asset group?
0.27 Status of Lifecycle Plans
Separate lifecycle plans have been produced for each of the following asset groups and are currently in the state of development noted.
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Asset Group Status Comments Carriageways 90% complete Reactive Quantities Levels of Service
Footways 10% complete Inventory Condition Customer Contacts Historical Budgets Reactive Quantities Future Cost Projection Analysis Levels of Service Bridges and other highway 50% complete Inventory structures Condition Customer Contacts Historical Budgets Future Cost Projection Analysis Levels of Service Street-lighting 90% complete Updated Condition Customer Contacts Historical Budgets Updated Future Cost Projection Analysis Levels of Service
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0.28 Asset Group Status Reports (Major Asset Groups)
Asset Group: Carriageway
Statistics Commentary
t Inventory and condition e
s Road Class Urban Rural Total Length data are stored WDM’s s Length (km) Length (km) (km) A
UKPMS
e A Road 55.9 95.8 151.7
h Inventory is of high
T B Road 40.8 35.6 76.4 C Road 66.9 195.5 262.4 confidence. Unclassified Road 411.6 254.7 666.3 There is currently no road Total Length (m) 575.2 581.6 1,156.8 width information Future growth will be 3km per year which represents the adoption of new developments.
s Two years of customer
n
o information relating to
i Customer Contacts (Carriageway) t
a carriageways. t
c 700 Increase in the second e 600 p year due to worse x 500 E . 400 2009/10 weather. o r N e 300 2010/11 This information is
m 200
o currently not used in
t 100
s 0 prioritising work f / u * * *
f o s / s y g o
t d e g C a n n l s e c g a i
n n programmes. o o c i d w e c n i o i o f t h a a h i e i a s t R f t e f c i o g d r r s t o d D a n u R u e i a P n r r o s S P r o e D C a C R C
) Class A and B condition R
E is stable.
N RCI 2010-11 (6 Bands) by Type & Class of Road N Currently no work is been 100.00% A completed on these roads C 90.00% S
( allowing the condition to
80.00% n 70.00% deteriorate to the desired o i t
i 60.00% 6%. d
RCI (%) RCI 50.00% n Class C and U is o 40.00%
C deteriorating despite an 30.00% increased level of 20.00%
10.00% expenditure. 0.00% The current strategy is to R R R R U U U U ------A A B C C U A A B C C U focus on alleviating the Road Class amber condition roads which shall reduce the level of red condition roads.
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Asset Group: Carriageway
Statistics Commentary
t Planned maintenance
n
e Investment made on Carriageways information only. m
t £1,800,000
s Improvement action to
e £1,600,000
v £1,400,000 start recording reactive n I
£1,200,000 t
l maintenance more n e a £1,000,000 m t c
s accurately. i e £800,000 v r n I
o £600,000 t
s £400,000 i £200,000 H £0 2007-08 2008-09 2009-10 2010-11 2011-12 Financial Year n o i
t Gross Replacement Cost
a £1,045,145,000 u l a Depreciated Replacement Cost £1,009,386,000 V Annualised Depreciation Charge £4,000,000
t Planned Maintenance n e
m Considered six options t
s Future Ten Year Cost Projection e
v (Carriageways) Selected Option allocates n I £5,000 the majority of the budget e
r to C and U Roads while
u £4,000 t allowing A and B roads to u
F £3,000 Cyclic deteriorate to 8%. d
e £2,000 Reactive n Cyclic and Reactive n s £1,000 Planned a k l
r budgets are based on the P o £0 current investment levels. W
d 11/12 12/13 13/14 14/15 15/16 16/17 18/19 19/20 20/21 21/22 r a w
r Unfunded Prioritised Planned Lists Contains all sites identified o
F from councillors, members of Resurfacing - £3,630,000 e public, inspectors and m Surface Dressing - £1,892,000 condition surveys. m a r
g Micro Surfacing - £999,000 o r P
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Asset Group: Carriageway
Statistics Commentary
e As part of the introduction of c i
v Streetscene work has started r
e of determining the appropriate S
f levels of service o
l e v e L
s Currently there is a requirement to carry out a number of operations outside of normal e
u working hours to minimise disruption to the travelling public. Due to the control of s
s drivers hours and working time directive there is currently an under capacity within the I
y workforce to deliver these services effectively. e
K The increase in landfill tax will place an additional burden on ever decreasing allocations. There is a lack of highway maintenance policies and standards available for undertaking the management of the asset. Increased fuel charges for Neighbourhood Services Vehicles. Above inflation increases in the cost of construction materials. Lack of forward works programme to cover three to five years
s The production of the Highway Asset Management Plan of which this LCP forms a e i part. g e t
a The production of a number of highway maintenance and street scene policies and r t
S standards.
t n
e Maximise budget by producing a scheduled tender for planned works r r u C
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Asset Group: Footways
Statistics Commentary t
e No inventory s
s Approximately 1,200km information. A
e Inventory being h
T collected in conjunction with condition survey. Action is to insert inventory onto GIS s
n No customer o i
t information on a t footways has been c
e collected p x E
r e m o t s u C
n Condition description: o i
t i
d Condition Rating (Footways) 1. As New n
o 2. Aesthetically Impaired 60.00% C 3. Functionally Impaired 50.00%
d 4. Structurally unsound n
a 40.00% B
n
o 30.00% i t i This chart represents d
n 20.00% o
C 10% of the footway 10.00% network. 0.00% 1 2 3 4 % 36.03% 50.01% 13.93% 0.03% Length of footway in % Condition 4 will be further investigated and added to the footway programme. l
a The increase in Slurry Seal c i
r 2009/10 due to o t development of programme s i
H of schemes through
t condition assessment by n e inspectors. m t s e
v A further formal n I collection of inventory and condition data will
Page 36 of 61 Flintshire Highway Asset Management: HAMP
Asset Group: Footways
Statistics Commentary continue until 100% Historical Costs (Footway) information is acquired 200000 by 2013.
150000 2008-09 )
£ 100000 2009-10 ( 2010-11 50000
0 slurry seal Reactive Maintenance (Includes other assets)
n GRC is an estimate based o i t Gross Replacement Cost £124,301,000 on carriageway length. a u
l Depreciated Replacement Cost a A more accurate value will V Annualised Depreciation Charge be realised for GRC; DRC & AD when inventory and condition survey is completed. t
n The future budgets are e
m currently based on t
s Future Ten Year Cost Projection historical costs. e
v (Footways)
n An exercise to identify I £200
e the output achieved r
u with the previous t £150 u budgets is underway. F Cyclic d £100 These results will help e Reactive n to further increase the n £50 Planned a accuracy of the l P £0 projected budgets. 11/12 12/13 13/14 14/15 15/16 16/17 18/19 19/20 20/21 21/22 s
k Unfunded Prioritised Planned Lists Contains all sites identified r
o from councillors, members
W Resurfacing – £216,000 of public, inspectors and d r condition surveys. a Slurry Seal - £630,000 w r o F
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Asset Group: Footways
Statistics Commentary
e As part of the introduction c i
v of Streetscene work has r
e started of determining the S
f appropriate levels of o
l service e v e L s
e The increase in landfill tax will place an additional burden on ever decreasing u
s allocations. s I
y There is a lack of highway maintenance policies and standards available for e
K undertaking the management of the asset.
Increased fuel charges for Neighbourhood Services Vehicles.
Above inflation increases in the cost of construction materials. s
e The production of the Highway Asset Management Plan of which this LCP forms a i
g part. e t a r
t The production of a number of highway maintenance policies and standards. S
t
n Compliance with the new requirements of Chapter 8 of the Traffic Signs Manual. e r r u Fundamental review of all existing DSO functions C
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Asset Group: Highway Structures
Statistics Commentary t
e Structures inventory s
s Asset Type Number and condition A
e Road Bridge 68 information is stored in h BMX. T Footbridge 125 Retaining Wall 210 The level of inventory Culvert 201 information held is Subway 1 Medium Traffic Signal Masts 2 Future growth Piled Rafts 2 Bridges – 1 per year Total Structures 609 Walls – ten per year s
n No customer o i
t information on footways a t has been collected c e p x E
r e m o t s u C n o i t i Structure Structures BSCIav BSCIcrit d
n Type Inspected o
C Bridge 137 88 80 Retaining Wall 0 100 100 Culvert 28 94 93 Sign / Gantry 0 100 100 Subway 1 95 100 l
a An exercise is currently c i
r underway to identify the o t annual investment on s i
H structures over the last five
t years. n e m t s e v n I
Page 39 of 61 Flintshire Highway Asset Management: HAMP
Asset Group: Highway Structures
Statistics Commentary n o i t
a Gross Replacement Cost £330,000,000 u l Depreciated Replacement Cost a
V Annualised Depreciation Charge t
n Initial reviews of the e
m previous years budgets t
s Future Ten Year Cost Projection show £70,000 is e v (Structures) allocated for reactive n I £100 maintenance on e r
u structures every year. t u F Cyclic Until further information d £50 e Reactive is identified the future n
n Planned annual budget of a l £70,000 will remain over P £0 the following ten years. 11/12 12/13 13/14 14/15 15/16 16/17 18/19 19/20 20/21 21/22
e There is currently no m
m forward works a
r programme available for g
o structures. r P
s k r o W
d r a w r o F
e As part of the introduction of c i
v Streetscene work has r
e started of determining the S
f appropriate levels of service o
l e v e L s
e Flintshire County Council are not complying fully with the “Management of Highway u
s Structures Code of Practice - September 2005”. This is not an approved policy within s I
Flintshire but it is seen as being good practice. t n e
r Flintshire County Council are not meeting its target for undertaking annual r
u inspections on 100% of its bridges due to shortage of staff resources. An outside C contractor has been procured to inspect problematic sites only.
Year on year reduction in budget and the loss of a service provided by the Neighbourhood County Services as a result of the Streetscene Reorganisation. This
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Asset Group: Highway Structures
Statistics Commentary will result in capital and routine maintenance work requiring a tender process to be undertaken and an expected increase in works costs. s
e The production of a number of structures policies and standards i g e
t Population of the inventory and historical information in this plan in order to provide an a r
t historical analysis, trends and forward works programmes. S
t
n Population of the BMX structures data management system with historical inspection e
r data. r u C
Asset Group: Street Lighting
Statistics Commentary t
e These quantities reflect the s
s Material Type Total No. assets owned by Flintshire A
e Galvanised Steel 17,638 County Council and does not h include assets belonging to the T Concrete 2,067 Aluminium 76 Community Councils Wood 695 Street lighting is managed within Total 20,476 the Mayrise Asset Management System. Cable Location Total (m) The street light asset has grown Carriageway 49,500 an average of 6% each year for Footway 39,200 the last five years Verge 18,800 Total 107,500
Other Assets Quantity Illuminated Signs 3,820 Illuminated Bollards 588
r
e No customer information on m
o street lighting has been collected t s u C
Page 41 of 61 Flintshire Highway Asset Management: HAMP
Asset Group: Street Lighting
Statistics Commentary s n o i t a t c e p x E n
o All streetlights are structurally i t i Structural Inspection Results 2008 and 2009 inspected every four years d
n 2008 2009 and electrically inspected o Condition No. Col. % Col. No. Col. % Col. C every five years 1 175 7.8 97 4.7 2 859 38.5 1260 60.8 3 1075 48.2 643 31.0 Structural Testing Results 4 65 2.9 53 2.6 Columns in condition 5 are 5 57 2.6 21 1.0 treated urgently
Other Columns are allocated a re-inspection period e g A Age Profile Columns
700
600
500
400
300
No of Columns of No 200
100
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 50 Age (years) l
a An exercise is currently underway to c i
r identify the annual investment on o t structures over the last five years. s i H
t n e m t s e v n I n o i t
a Gross Replacement Cost £31,042,000 u l Depreciated Replacement Cost £13,601,000 a
V Annualised Depreciated Cost £873,700
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Asset Group: Street Lighting
Statistics Commentary t
n The future budgets are currently e
m based on historical costs. t
s Future Ten Year Cost Projection
e An exercise to identify the output
v (Street Lighting)
n achieved with the previous I
£3,000
e budgets is underway. These r
u results will help to further t £2,000 u Operating increase the accuracy of the F Cyclic d projected budgets. e £1,000 Reactive n
n Planned a l £0 P 11/12 12/13 13/14 14/15 15/16 16/17 18/19 19/20 20/21 21/22
e There is currently no forward m
m works programme available for a r street lighting. g o r P
s k r o W
d r a w r o F
e . As part of the introduction of c i
v Streetscene work has started of r
e determining the appropriate levels of S
f service o
l e v e L s
e FCC street lighting policy has been rewritten and requires official approval. u s s I
FCC street lighting specification has been rewritten and requires official approval. y e
K Many of the recommendations within the “Well Lit Highways” Code of practice have been implemented but a full assessment of council practice against the CoP identifying exclusions has yet to be undertaken and approved. (IA3)
Backlog of concrete columns that are past their expected life
Backlog of Galvanised Steel columns that are past their expected life.
Page 43 of 61 Flintshire Highway Asset Management: HAMP
Asset Group: Street Lighting
Statistics Commentary s e i FCC is in the process of producing a street lighting policy document and g e t specification. a r t S
t Energy saving practices n e r r u C
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7 Financial Summary
0.29 Sources of Funding
Maintenance of highway assets is generally funded by a combination of Capital and Revenue budgets.
Capital allocations are made by Welsh Assembly Government taking into account factors such as road length, classification, traffic figures and road condition data derived from the BVPI’s, National Road Maintenance Condition Surveys (NRMCS) and local condition surveys.
Revenue allocations are generally funded from a combination of local council tax, business rates, Central Government revenue support and other grants.
The WAG settlement is apportioned to both principal and non-principal roads. The non-principal road funds are granted as a block settlement to reduce the maintenance backlog under the Governments backlog reduction scheme and are supplemented by revenue funds.
Other sources of funding include Government Grants by way of Emergency Capital Funding, for example, and Council Reserves.
Prudential Borrowing provides an additional funding source, provided that a robust “spend to save” business case can be developed.
0.30 Budget Allocation
The Revenue budget has been allocated across the various assets using an historical formula with percentage increases for inflation. Over a number of years the capital budget is allocated using the same historical formula used for the revenue budget, however as the development of the HAMP has progressed and condition information has become known a greater emphasis has been placed on using this information. An example is determining the available budget requirement for different types of treatment.
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0.31 Historical Expenditure
Table 7.3: Historical Funding by Asset and Work Type (£000) Asset Works 08/09 09/10 10/11 11/12 Carriageways Cyclic Reactive Planned Footways Cyclic Reactive Planned Structures Cyclic Reactive Planned Streetlighting Cyclic Reactive Planned Winter Maintenance
0.32 Long Term Funding Requirement
Table 7.4: Long Term Funding Requirements for all Assets 2011/12 – 2021/22 Asset Works 11/12 12/13 13/14 14/15 15/16 16/17 18/19 19/20 20/21 21/22 Carriageways Cyclic Reactive Planned Footways Cyclic Reactive Planned Structures Cyclic Reactive Planned Streetlighting Cyclic Reactive Planned Operating Winter Maintenance Total
0.33 Predicted Available Short – Term Funding
Table 7.5: Predicted Available Short-Term Funding Asset Works 11/12 12/13 13/14 Carriageways Cyclic Reactive Planned Footways Cyclic Reactive Planned
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Structures Cyclic Reactive Planned Streetlighting Cyclic Reactive Planned Winter Maintenance
0.34 Asset Valuation
Gross Accumulated Depreciated Annualised Asset Type Replacement Cost Consumption Replacement Cost Depreciation Cost (£) (£000) (£) (£) Carriageways 1,045,145,000 1,009,386,000 4,000,000 Footways & 124,301,000 Cycleways Structures 330,000,000 Street Lighting 31,042,000 13,601,000 873,800 Safety Fence 4,754,796 237,739 Other Total £ £ £ £
Page 47 of 61 Flintshire Highway Asset Management: HAMP
8 Risk Management
0.35 Context: Corporate Risk Management Strategy
Flintshire County Council has established a risk management framework, which it is intended should be implemented to deal with business, financial and political risks to the organisation and individual business and service units. However as yet it has not been formally implemented throughout the authority.
A consistent approach to managing risk should be adopted across the Council. The framework is designed to ensure that potential opportunities and threats are proactively and systematically identified, assessed and addressed. It also provides for the monitoring and reporting of risk on an ongoing basis, and is capable of independent verification. Within the context of corporate guidance on risk appetite (extent to which risks can be taken) the framework acknowledges that Directorates need to be able to set the tolerance for each risk viz the level of exposure to risk that will and will not be accepted. The framework identifies the essential elements of controls and procedures that reflect good practice in managing risks. The framework provides generic guidance that allows Directorates to implement risk management by integrating it within existing/revised service management processes.
0.36 Element of Risk Management
The identification, evaluation and management of risk are part of every manager’s day-to-day responsibilities. This framework provides operational managers with the practical guidance and information they need to effectively implement the corporate risk management approach into their every day work. The diagram below identifies the individual stages that form our approach to risk management. The sections that follow provide guidance for each stage of the process.
Step 2 Step 3 Step 4 Identify Risks Assess Risks Prioritise Risks
Step 1 Review Service Objectives
Step 7 Step 6 Step 5 Review and Report Monitor Risks Respond to Risks
Flintshire Approach to Risk Management
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0.37 Risk Identification
Risk identification attempts to reduce uncertainty/unexpected events that may have a negative effect on meeting a service objective and attempts to encourage opportunities for service delivery. Risks should therefore be linked, as relevant, to objectives within the Council Plan, Directorate Plan and Service Plan. Each risk must be identified as either a strategic risk (concerned with achieving the Council’s objectives) or an operational risk (concerned with service delivery). Risks identified are recorded in the Council’s software, known as Ffynnon, that supports risk management. This software also allows the management of risks to be monitored and reports to be produced.
0.38 Risk Evaluation
There will probably already be measures in place to minimise any identified risks – such measures are known as mitigating actions. However, the first time a risk is assessed the assessment should assume that there are no effective mitigating actions in place - the worst-case scenario should the risk occur. This is known as the gross risk and the impact and likelihood scores should be recorded in Ffynnon together with an explanation of how each score has been reached. When one or more mitigating actions have been put in place then the risk is assessed again taking these actions into account. This is known as the net risk; again the impact and likelihood scores should be recorded in Ffynnon together with an explanation of how each score has been reached. Each mitigating action is recorded together with the person, known as the Risk Owner, responsible for it. Mitigating actions for red high and amber medium risks should be agreed with the Head of Service. The Service Manager determines mitigating actions for low risks. Details on what to record for mitigating actions is covered under Section 5: Respond to Risks.
0.39 Prioritise Risks
To prioritise identified risks, we use a simple 3x3 matrix to plot the likelihood score (High, Medium, Low) against the impact score (High, Medium, Low). This is done for both Gross and Net Risk. The Ffynnon software automatically calculates the combined score generated from the likelihood and impact scores. The matrix uses a traffic light approach to show high (red), medium (amber) and low (green) risks.
Likelihood and Impact Matrix
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Likelihood Low Medium High High Amber Red Critical T C
A Medium Green Amber Red P M I Low Minimal Green Amber
0.40 Risk Control
Most risks cannot be eliminated altogether and risk management involves making judgements about what level of risk is acceptable. There are four categories of response to risks – transfer, treat, terminate and tolerate – known as the Four T’s. The following table provides details of each response.
Response Description Some risks can be transferred via contract i.e. to an insurer for insurable risks or to a contractor through contractual terms. Some risks cannot be transferred e.g. reputational risks. Transfer For each risk in this category, it is essential to specify who the transfer has been passed to and why. This would be recorded in Ffynnon as an explanation of the impact and likelihood scores for the net risk. Some risks will need additional treatment to reduce their likelihood or impact. Treat This response is most likely for risks where the likelihood or impact is identified as a high (red). In some instances, a risk could be so serious that there is no other option but to terminate the activity that is generating the risk. Terminate For each risk in this category, it is essential to specify who authorised termination and why. This would be recorded in Ffynnon as an explanation of the impact and likelihood scores for the net risk. This response will be appropriate where you judge that the control measures in place are sufficient to reduce the likelihood and impact of risk to a tolerable level and there is no added value in doing more. Tolerate For each risk in this category, it is essential to specify who authorised toleration and why. This would be recorded in Ffynnon as an explanation of the impact and likelihood scores for the net risk.
The response must be recorded for each risk. For transfer, terminate and tolerate this will be recorded in Ffynnon as a single action. When a risk is to be treated then it is likely that more than one action will need to be recorded. Each action will need an owner, a start date, an expected completion date and at least one significant milestone (identified progress at a point in time). For risks that are treated or tolerated there should be measures in place to monitor the risk to ensure that treatment is effective or that the risk is still tolerable.
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Heads of Service are responsible for deciding when action is required in response to an identified risk. Generally, any high (red) net risks are viewed as unacceptable in the first instance and would be expected to be ‘treated’ by a management action plan. Using Ffynnon links should be identified, as appropriate, between these management action plans and the relevant part of the Council Plan, Directorate Plan and/or Service Plan. 0.41 Monitor Risks
Operational (service level) risks should be monitored by Service Managers, as part of their management role, and shared with Heads of Service as part of regular service review Strategic risks should be managed by a Head of Service and monitored by Directorate Management Teams. To achieve this, the following monitoring frequencies should be adopted.
Red High risk – monitored monthly
Amber Medium risk – monitored quarterly
Green Low risk – monitored half yearly
Management Teams will need to determine the basis on which progress in managing risks will be monitored, i.e. trend analysis, benchmarking or PIs – national or local (existing or new).
0.42 Reviewing & Reporting
Reports should be produced to enable the status and management of risks to be reviewed. There will be a standard set of reports for this purpose. The arrangements should as a minimum be: -
Red High risk – reviewed quarterly
Amber Medium risk – reviewed half-yearly
Green Low risk – reviewed annually
However, dependent on the level and nature or the risk the reporting frequency may vary, for example reporting may be linked to the timescales for achieving progress. In reviewing the management of risks the following factors should be considered: Extent of the risk identification and prioritisation process as an integral part of the existing service and planning processes. Updating of the key risks. Assurance that mitigating actions are operating effectively. Identification of exceptions – issues of concern and good practice / outcomes. The Operational Risk Management Group will review the above factors across all Directorates. This Group will report quarterly on risk management to the Corporate Risk and Overview Group (CROG) and half-yearly to the Corporate Management Team and, via CROG, half-yearly to the Risk Management Board and the Audit Committee
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An annual review of the risk management strategy will be initiated by the Operational Risk Management Group with an operational focus and enhanced with strategic input from the Corporate Risk and Overview Group and the Risk Management Board. The final report will be presented to the Audit Committee and Members. The Risk Management Board will identify changes required to the risk management strategy. The Operational Risk Management Group will address practical issues arising from changes to the strategy and will disseminate good practice identified through review.
0.43 Risk Register
Flintshire County Council has a series of risk registers as illustrated below which are managed at different levels of the organisation. All risks identified within the highway maintenance division will be identified and held in the Highway Asset Management Plan Risk Register in Appendix H. This Risk Register will form part of the Street Scene Directorate Risk Register.
CORPORATE RISK REGISTER
DIRECTORATE RISK REGISTER
SERVICES RISK ASSESSMENT
PROJECT RISK ASSESSMENT
0.44 Major Asset Risks
Following a Risk Assessment workshop the major risks have been assessed and the information is shown below:
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FCC Highways Major Risk Assessment Jan 2012 Risk Possible Impact/s Likelihood Impact Rating Score Failure of Safety fence due to substandard Fatality L H Amber 2 condition (wooden posts - low speed roads) (Known sites) Injury M M Amber 2 Damage to other assets H M Red 3 Litigation H H Critical 4 Poor image of authority H M Red 3 Inappropriate use of money L M Amber 2 Not meeting community expectations H M Red 3 Total Score 19 Failure of Safety fence due to substandard Fatality L H Amber 2 condition (high speed roads) (Extent unknown at present) Injury M M Amber 2 Damage to other assets H M Red 3 Litigation H H Critical 4 Poor image of authority H M Red 3 Inappropriate use of money L M Amber 2 Not meeting community expectations H M Red 3 Total Score 19 Flooding of the highway due to a lack of adequate Fatality L H Amber 2 drainage (Known sites) Injury L M Amber 2 Damage to other assets H M Red 3 Litigation M H Red 3 Poor image of authority M M Amber 2 Inappropriate use of money H M Red 3 Not meeting community expectations H M Red 3
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Total Score 18 Lack of appropriate funding to maintain required Fatality L H Amber 2 carriageway condition levels (Scanner Backlog) Injury L M Green 1 Damage to other assets L L Green 1 Litigation H L Amber 2 Poor image of authority H M Red 3 Inappropriate use of money H H Critical 4 Not meeting community expectations M M Amber 2 Total Score 15 Structurally unsafe concrete columns Fatality L H Amber 2 Approx 2,000 No Injury L M Green 1 Damage to other assets M M Amber 2 Litigation M M Amber 2 Poor image of authority H M Red 3 Inappropriate use of money H M Red 3 Not meeting community expectations M M Amber 2 Total Score 15 Substandard/Weak bridges leading to failure or Fatality L H Amber 2 closure (2 No) Injury L M Green 1 Damage to other assets L M Green 1 Litigation H M Red 3 Poor image of authority H M Red 3 Inappropriate use of money H M Red 3 Not meeting community expectations H H Critical 4 Total Score 17 Sub-standard bridge parapet Fatality M H Red 3 (Saltney ferry footbridge) Injury M M Amber 2 Damage to other assets L M Green 1 Litigation H M Red 3
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Poor image of authority H M Red 3 Inappropriate use of money H M Red 3 Not meeting community expectations H H Critical 4 Total Score 19
Bridge monitoring equipment non-functioning and Fatality M H Red 3 no traffic management measures in place
Bridge remaining fully open during dangerous Injury M M Amber 2 weather conditions Flintshire bridge Damage to other assets H H Critical 4 Litigation H M Red 3 Poor image of authority H M Red 3 Inappropriate use of money H M Red 3 Not meeting community expectations H H Critical 4 Total Score 22 Highway trees encroaching onto the carriageway / Fatality L H Amber 2 footway Injury M M Amber 2 Damage to other assets H M Red 3 Litigation H M Red 3 Poor image of authority H M Red 3 Inappropriate use of money M M Amber 2 Not meeting community expectations H M Red 3 Total Score 18
Subsidence of the highway Fatality L H Amber 2 A5026 Bagillt Rd Injury M M Amber 2 A550 Tinkersdale £80,000 Damage to other assets H H Critical 4 B5101 Ffrith £2M Litigation M H Red 3 B5101 Llanfynydd Poor image of authority M H Red 3 Etc. Inappropriate use of money H M Red 3
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Not meeting community expectations H M Red 3 Total Score 20
Known sites of poor skid resistance Fatality M H Red 3 Injury M M Amber 2 Damage to other assets M M Amber 2 Litigation H M Red 3 Poor image of authority M M Amber 2 Inappropriate use of money M M Amber 2 Not meeting community expectations L M Green 1 Total Score 15 Lack of footway condition information Fatality L H Amber 2 Injury H L Amber 2 Damage to other assets L L Green 1 Litigation H L Amber 2 Poor image of authority M L Green 1 Inappropriate use of money H M Red 3 Not meeting community expectations L M Green 1 Total Score 12 Perceived poor structural condition of footways Fatality L H Amber 2 Injury L L Amber 2 Damage to other assets L L Green 1 Litigation L L Amber 2 Poor image of authority M L Green 1 Inappropriate use of money M M Amber 2 Not meeting community expectations L M Green 1 Total Score 11 Carriageway condition deterioration due to lack of Fatality L H Amber 2 early intervention funding Injury L M Green 1 Damage to other assets L L Green 1
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Litigation H L Amber 2 Poor image of authority H M Red 3 Inappropriate use of money H M Red 3 Not meeting community expectations L M Green 1 Total Score 13 Inadequate funding to undertake minor Fatality L H Amber 2 improvement schemes Injury L M Green 1 Damage to other assets L L Green 1 Litigation M L Amber 2 Poor image of authority M M Amber 2 Inappropriate use of money M M Amber 2 Not meeting community expectations H M Red 3 Total Score 13 Structurally poor steel columns Fatality L H Amber 2 (< 3 years life following structural testing) Injury L M Green 1 Damage to other assets L M Amber 2 Litigation L M Amber 2 Poor image of authority M M Amber 2 Inappropriate use of money H M Red 3 Not meeting community expectations L M Amber 1 Total Score 13
Increasing cost of energy and high carbon Fatality L H Amber 2 emissions leading to switch off of lighting columns Injury L M Green 1 Damage to other assets L M Amber 2 Litigation L M Amber 2 Poor image of authority M M Amber 2 Inappropriate use of money H H Red 3 Not meeting community expectations H M Red 3
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Total Score 15 Bridge monitoring equipment non-functioning (re- Fatality L H Amber 2 installation required) Leading to bridge failure Injury L M green 1 King Street Bridge Damage to other assets L H Amber 2 Litigation L M Green 1 Poor image of authority L M Green 1 Inappropriate use of money L M Green 1 Not meeting community expectations L H Amber 2 Total Score 10 Sub-standard and missing Structures on PRoW Fatality L H Amber 2 routes Identified through CAMS survey Injury M M Amber 2 Damage to other assets L L Green 1 Litigation M M Amber 2 Poor image of authority M M Amber 2 Inappropriate use of money L M Green 1 Not meeting community expectations H M Red 3 Total Score 13 Provision of disabled crossings points Fatality L H Amber 2 Serious injury L M Green 1 Damage to other assets L L Green 1 Risk of litigation L M Green 1 Image of authority H M Red 3 Inappropriate spend of money M M Amber 2 Not meeting community expectations H M Red 3 Total Score 13 Failure to set levels of service Fatality L H Amber 2 Serious injury L M Green 1 Damage to other assets L L Green 1 Risk of litigation L M Green 1
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Image of authority M M Amber 2 Inappropriate spend of money H M Red 3 Not meeting community expectations H M Red 3 Total Score 13
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9 Improvement Plan
0.45 Milestones
An improvement action plan has been created to support this plan and is included in appendix I. For the duration of this plan the key milestones are as follows:
Table 9.1: HAMP Milestones Improvement Action No Milestone Target Date Plan References 1 Completion of HAMP Grand Summary to February 2012 comply with WAG requirements for Local Government Borrowing Initiative bid. 2 Develop a system to record all April 2012 maintenance activity on the highway assets. 3 Undertake a footway survey and August 2012 IA2, IA3 develop a maintenance strategy process utilising the information 4 Completion of HAMP to comply with December 2012 WAG requirements for Local Government Borrowing Initiative 5 Develop an information strategy for March 2015 IA4, IA4a highway structures and collect all inventory.
0.46 Progress Reporting
All milestones identified in Table 9.1 will be allocated to an officer who will be responsible for ensuring the completion within the allocated timeframe. All officers allocated milestones will be responsible for reporting current progress at the quarterly Streetscene Meeting. Additional resource will be allocated where necessary by the Director of the Streetscene Directorate.
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10 Management & Control of the Plan
0.47 Responsibility for Delivery
The following people are charged with the delivery of this Highway asset management plan. Their roles are as follows: Position Name Role Champion the use of Highway asset Director of Environment Carl Longland management Executive Member for Champion the use of Highway asset Cllr Tony Sharps Environment management Head of Streetscene Stephen O Jones Approval of HAMP Streetscene Business & Champion the use of Highway asset David James Strategy Manager management Streetscene HAMP Officer Joanne C Davies Updating the HAMP Champion the use of Highway asset Streetscene Manager Harvey Mitchell management Streetscene Team Leader Updating Carriageway LCP Alex Williams (South) Updating Drainage LCP Streetscene Team Leader Updating Footways LCP Derrick Charlton (North) Updating Road Markings LCP Streetscene Team Leader Darrel Jones Updating Street Lighting LCP Street Lighting Streetscene Team Leader Craig Needs Updating Road Restraint Systems LCP Trunk Roads Structures Manager Martin Bishop Updating Structures LCP
0.48 Review and Update
Flintshire County Council expects that the HAMP and associated documents will cover the period 2012- 2015. An Annual Status and Options Report will be completed highlighting the results of the asset management undertaken within the year. This report will include a section detailing any issues or changes that will need to be covered in the following HAMP. At the end of the 3 year period the HAMP will be fully reviewed and will be updated with the issues detailed in the annual report.
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