EFFECTIVENESS OF NATIONAL ROADS MAINTENANCE MANAGEMENT IN POLAND BETTER GOVERNMENT ERNST&YOUNG PROGRAMME Joanna Archutowska Jana Pieriegud EFFECTIVENESS OF NATIONAL ROADS MAINTENANCE MANAGEMENT IN POLAND BETTER GOVERNMENT ERNST&YOUNG PROGRAMME Joanna Archutowska Jana Pieriegud Warsaw 2012 Reviewers: prof. dr hab. Hubert Izdebski dr Piotr Ciżkowicz Report developed under the Better Government Programme for Ernst & Young Usługi Finansowe Audyt spółka z ograniczoną odpowiedzialnością Polska sp. k. Legal disclaimer This report has been prepared by academics to provide readers with general information on topics they may find to be of interest. The information contained in this report shall in no case constitute the provision of services. Whilst the authors have made every effort to ensure that the information presented in this report is accurate, there is always the risk of inaccuracies. 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Better Government Programme Media patron: Ernst & Young Poland Rondo ONZ 1 00-124 Warsaw tel. +48(22) 557 70 00 fax +48(22) 557 70 01 www.bettergovernment.pl Preface Dear Readers, Recently, public discussion on the road network development in Poland focused mainly on building new motorways and expressways. At the same time Polish public opinion is less interested in other aspects of road infrastructure. The present report, written by Joanna Archutowska and Jana Pieriegud under the frame of Ernst & Young Better Government Programme, is trying to reverse this trend by drawing attention to the comprehensive issue of the effectiveness in management of existing road infrastructure. It is worth remembering that road maintenance is not only routine maintenance i.e. preservation and cleaning, but also its structural maintenance, i.e. repavement and other reconstructions works. These elements have a direct impact on comfort, safety and travel time which translates directly on the effectiveness of the whole economy. Effective roads maintenance should take into account both technical and economic parameters and achieve the best possible results using limited resources. This task is difficult to achieve so it is worth to take a look at the international experience, choose the best practices and try to implement them into Polish road maintenance management model, as the authors of present report have done. Marcin Borek Transaction Advisory, Infrastructure Ernst & Young [email protected] 3 Contents Summary ........................................................................................................8 1. Introduction .................................................................................................10 1.1. The Research Problem and Objectives ...............................................10 1.2. Stages of the Research ....................................................................11 2. Indicators and Research Methodology ............................................................13 2.1. Indicators of Road Maintenance Effectiveness ....................................13 2.2. Analysis of the Technical Condition of Roads ......................................16 2.3. Analysis of Road Maintenance Management Effectiveness ..................19 2.4. Analysis of Road Maintenance Economic Effectiveness .......................27 2.5. Benchmarking and the Best Practices................................................32 3. Effectiveness of National Roads Maintenance Management by GDDKiA .............34 3.1. The National Road Network ..............................................................34 3.2. The System of National Road Maintenance Management .....................38 3.3. Indicator Analysis of the National Roads Maintenance Management Effectiveness ..................................................................................49 3.3.1. Financing Level and Cost Indicators ..................................................49 3.3.2. Output Indicators ............................................................................53 3.3.3. Outcome Indicators .........................................................................56 4. National Road Maintenance Management in Selected Countries ........................60 4.1. National Road Networks and Financing Rules .....................................60 4.2. Review of the Road Maintenance Management Systems ......................67 4.3. Best Practices in Road Maintenance Management ..............................77 5. Conclusions and Recommendations for Poland ................................................85 5.1. Best International Practices..............................................................85 5.2. Assessment of the Management System for National Road Maintenance in Poland .............................................................88 5.3. Recommendations for Road Maintenance Management in Poland ........91 Appendix A. Basic Definitions Related to Road Management in light of the Act on Public Roads ...............................................................93 Appendix B. Glossary of Terms and English Abbreviations Used in the Report .........99 Appendix C. Performance Indicators for the Road Sector (OECD) .........................102 Appendix D. Maintenance of National Roads in Poland ........................................103 Appendix E. National Road Maintenance in Selected European Countries ..............111 Appendix F. Road Users’ Charter (The Highways Agency, England) ......................117 Appendix G. Minimum Service Standards according to the Charter of Road and Motorway Service (ANAS, Italy) ................................................120 Bibliography ....................................................................................................123 Our reports ....................................................................................................129 List of Tables Table 1. Indicator analysis of road maintenance effectiveness ..........................16 Table 2. Road condition parameters from the perspective of road users and the road authority .................................................................................18 Table 3. Outcome indicators related to pavement condition .............................22 Table 4. Indicators of travel quality ................................................................23 Table 5. Indicators of traffic hindrances .........................................................24 Table 6. Indicators of response time ..............................................................25 Table 7. Performance to target indicators related to scheduled works...............25 Table 8. Detailed indicators of maintenance targets from the road users’ perspective .....................................................................................26 Table 9. Cost indicators ...............................................................................27 Table 10. Indicators of the financing level ........................................................28 Table 11. Vehicle operating costs on a deteriorated and new pavement (PLN/km)............................................................31 Table 12. Costs of one hour spent travelling by car (PLN/hour) ..........................31 Table 13. Models of performing maintenance works in GDDKiA divisions (as of March 2011) ..........................................................................44 Table 14. Changes to the management system of national roads maintenance ....47 Table 15. Selected output indicators for routine maintenance works ..................53 Table 16. Output indicators for road renewals ..................................................55 Table 17. Road surface condition indicators according to SOSN for repavement purposes ........................................................................................57 Table 18. Characteristics of