London Borough of Enfield Highway Asset Management Plan

Transcription

1 London Borough of Enfield Highway Asset Management Plan

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3 London Borough of Enfield s Highway Asset Management Plan London Borough of Enfield Highway Services Civic Centre Silver Street Enfield EN1 3XD

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5 Highway Asset Management Plan Classified Roads in the London Borough of Enfield All maps are reproduced or based upon the Ordnance Survey mapping with the permission of the Controller of Her Majesty s Stationary Office Crown copyright. Unauthorised reproduction infringes Crown Copyright and may lead to prosecution or civil proceedings. London Borough of Enfield LA Highway Asset Management Plan Issue 1: Approved by Cabinet March 2008

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7 Executive Summary This is the London Borough of Enfield s first Highway Asset Management Plan (HAMP). It sets out how the highway infrastructure is managed and our vision for improvements in its management and operation. This plan fulfils action (1bi) of the Council s Putting Enfield First Improvement and Best Value Performance Plan for 2007/10 and also fulfils a requirement of the Mayor of London s Local Implementation Plan (LiP). The intention of the plan is to assist in improving the street scene, which is one of Enfield s residents top priorities. One of the key elements of this objective is to develop this Asset Management Plan. Highway Services is committed to developing efficient and effective strategies, policies and programmes in order to improve the condition of the roads and footways. The extent of highway assets owned and maintained by the Council is far wider than the road network and includes: - Over 580 km of roads with associated verges, trees and drains Over 1162 km of footways and cycleways Over 65km of footpaths, bridleways and byeways Over 24,000 streetlights and illuminated signs Road signs and other miscellaneous items of street furniture Over 340 bridges and other structures Winter maintenance responsibilities The M25 motorway and A10/A406 roads are not included in this plan as they are the responsibility of the Highways Agency and Transport for London (TfL) respectively. Highway Asset Management is relatively new to local authorities in the UK, although many aspects of asset management are already practised. The approach taken follows the Framework for Asset Management document by the County Surveyors Society. The document sets out current practices and identifies actions to improve the management of the highway infrastructure. The highway is one of the most valuable publicly owned assets managed by the Council, but historically has not received the attention nor funding required to maintain it in the optimum state of repair. There is currently a significant backlog of maintenance works, with the majority of roads within the borough having exceeded their design life. In order to alleviate this backlog of improvements and repairs to Classified and Unclassified Borough Roads, it is estimated that funding in excess of 100million is required over the next 10 years. This issue is now being addressed through the commitment made by Councillors within the Putting Enfield First strategy and through the actions within this plan.

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9 CONTENTS Section Executive Summary 1 Introduction 2 Levels of Service and Performance Measurement 3 Future Demand 4 Network Management 5 Lifecycle Management Planning Lifecycle Management Plans for 6 Carriageways 7 Footways and Cycleways 8 Footpaths, Bridle Paths and Rights of Way 9 Streetlighting 10 Bridges and Highway Structures 11 Drainage 12 Highway Verges, Shrub Beds and Trees 13 Street Furniture 14 Traffic Management Features 15 Winter Maintenance 16 Conservation Areas and Street Scene 17 Finance and Forward Work Programme 18 Asset Valuation

10 CONTENTS 19 Summary of Actions/Improvement Plans 20 Abbreviations and References

11 Introduction Section 1 Section 1 Introduction Contents Page 1.1 About Enfield What is Asset Management? Enfield s Vision The Purpose of the HAMP Driving Forces behind the HAMP Assets covered by the Plan The Goals and Benefits of Asset Management Outcomes to be Achieved 1-5

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13 Introduction About Enfield Enfield is the 5 th largest of the London boroughs covering an area of nearly 32 square miles. Being an outer London borough it borders Essex and Hertfordshire, and comprises rural areas to the north-west, with 40% of the borough designated green belt. To the south bordering the inner London boroughs of Haringey and Waltham Forest are denser residential areas. Enfield s population is approximately 285,000 and is in the top 12% of authorities in England and Wales for population density. Within the borough are 85 primary schools, 17 secondary schools, 6 special schools, 3 further education colleges and Middlesex University. Two general hospitals also lay within the borough boundary. In addition to the large residential population, Enfield is one of London s major centres of manufacturing and distribution situated to the east of the borough along the River Lea corridor. The London Borough of Enfield is the Highway Authority for the borough road network. This comprises of 63.7km of Principal Roads and 506.6km of Non-Principal Roads as well as service/access roads, footway and footpaths and associated highway infrastructure elements such as highway structures, street lighting, street furniture etc. The highway network is the largest and most visible community asset for which the council is responsible. It is used daily by the majority of people and is fundamental to the economic, social and environmental well being of the community.

14 Introduction What is Asset Management? 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 (Source: - Framework for Highway Asset Management (County Surveyor Society 2004)) Asset Management Plans provide the essential link between strategic and operational. Enfield s Highway Asset Management Plan takes into account all the managed highway assets and the lifecycle management of individual assets, their operation, level of service and lifecycle costs. The plan also looks at current practises and future developments. This HAMP has been produced in accordance with the principles and guidance set out in the Framework Document for Highway Asset Management, produced by the County Surveyor s Society. 1.3 Enfield s Vision Enfield Council s Vision is To make Enfield one of the best places to live, work, study and do business. Putting Enfield First Improvement and Best Value Performance Plan sets out how Enfield will deliver its corporate strategy and its commitment to becoming a first rate local authority that delivers excellent services for all its customers. Its six main aims are Aim 1 - A cleaner, greener, sustainable Enfield Aim 2 - Ensure every child matters and provide high quality education for all Aim 3 - A safer Enfield Aim 4 - A healthier Enfield where people are able to live independent lives

15 Introduction 1-3 Aim 5 - Provide high quality and efficient services Aim 6 - Build prosperous, sustainable communities 1.4 The Purpose of the HAMP The purpose of Enfield s Asset Management Plan is to set out the Council s approach to the management of its highway assets by drawing together strategies, objectives, policies and processes. It takes into account all the managed assets looking at current practises and any future developments. The primary purpose of the HAMP is as follows: - To set out the Council s approach to managing Enfield s highway network and associated assets; To ensure highway management and maintenance is linked to Enfield s aims and objectives; To draw together current policies and processes; To establish levels of service; To clarify what information we have and how/where it is kept; To review current practices; To identify gaps and recommend actions; To provide evidence for funding requirements; To demonstrate best practice 1.5 Driving Forces behind the HAMP Central Government Guidance In October 2006, the Government published its local government white paper, Strong and Prosperous Communities, in which it stated Managing assets effectively is vital to achieving cost savings for local authorities and helping them to deliver better outcomes for citizens. The Eddington Transport Study, December 2006, also points to the benefits of effectively managing existing assets. Legal Responsibility Enfield Council has a legal responsibility for the highway network in terms of keeping the routes available and safe for the passage of the travelling public. It undertakes this duty in its role as the Highway Authority.

16 Introduction 1-4 Local Implementation Plan (LIP) Enfield s Local Implementation Plan sets out its vision and policies for transport in support of the Mayor s transportation strategies. Boroughs are required to report their progress on the development of their Asset Management Plans within their LIP. Government guidance on Local Transport Plans requires local authorities to demonstrate that they are exploiting their existing asset bases to their fullest potential and managing future maintenance liabilities efficiently. Government Financing Under the Whole of Government Accounts there is likely to be a future requirement for asset valuation. In November 2007, CIPFA completed its review of accounting, management and finance mechanisms for local authority transport infrastructure assets, which was commissioned by H M Treasury and Department for Transport. The review looks in particular at the case for changing the accounting treatment of local authority infrastructure in the Local Authority Statement of Recommended Practice to an asset management based approach. Putting Enfield First Improvement and Best Value Performance Plan Objective 1b within Enfield s corporate aim of a cleaner, greener, sustainable Enfield is to make Enfield a better, safer place by replacing all streetlights and improving roads and pavements. A specific objective within the plan was to develop a Highway Asset Management Plan. 1.6 Assets covered by the Plan The HAMP covers the following asset types: - Carriageways. Footways and Cycleways. Footpaths, Bridle Paths and Rights of Way. Street Lighting Including columns, lamps and illuminated signs. Bridges and Highway Structures. Drainage. Highway Verges, Shrub beds and Trees. Traffic Management Features. Street furniture. Maidens Bridge,

17 Introduction 1-5 As well as looking at the above assets, the plan also covers - Customer Service Delivery and Performance Management. Network Co-ordination. Conservation Areas. Winter Maintenance 1.7 The Goals and Benefits of Asset Management Specific Benefits of an asset management approach are: Reduced lifecycle costs Defined levels of Service The ability to track performance Improved transparency in decision making The ability to predict the consequences of funding decisions Enhanced management of financial, operational and legal risk. Ability to discharge valuation and financial reporting responsibilities Asset management facilitates better decision-making by supplementing instinctive judgement and supposition with analysis (financial, economic and engineering). Authorities can therefore understand the relationship between cost and performance, and determine how under funding can affect the levels of service. (Source: CSS Framework for Highways Asset Management 2004) 1.8 Outcomes to be Achieved To enable greater integration and co-ordination between the various functions and duties of the highway authority. To provide sufficient information to be able to manage the Council s highway infrastructure. To provide a best value approach to highway management allowing continuous improvement. To provide the best service possible within limited resources by moving to a more planned and sustainable and a less reactive approach to highway maintenance. To have agreed policies and processes. To have a planned approach to highway management with clearly defined and agreed strategies for prioritisation.

18 Introduction 1-6 To have improved management of reactive and routine works based on agreed criteria, integrated data management processes and systems, delivered with an appropriate level of resources. To have improved transparency in decision making. To be able to identify future funding requirements. To have the ability to predict the consequences of funding decisions. To have an agreed level of service delivery, which is focused on customer needs. To reduce the Council s operational, financial and legal risk. To be able to report on the value of Enfield s highway assets. To be able to monitor the operating performance of the Council s service in managing and maintaining the highway. To enable improved management of the way in which the Council calculates future targets and reports on its performance indicators to government. The HAMP contains a number of future actions, which are brought together in chapter 19. The intended life of this plan is three years and it is anticipated that the high and medium priority actions are completed within the three year life of the plan.

19 Levels of Service and Performance Measurement Section 2 Section 2 Levels of Service and Performance Measurement Contents Page 2.1 Introduction Customer Research & Expectations Enfield Citizens Panel Summer a Road, pavement & cycleway maintenance b Road, pavement & cycleway related services Residents Surveys Strategic & Corporate Goals National Overview Mayor s Transport Strategy & Enfield s Local Implementation Plan Enfield s Organisational Goals Legislative Requirements Highways Act Traffic Management Act Other Key Legislation Other Related Legislation Case Law Codes of Practice Departures from Standard Staff Awareness Levels of Service Asset Safety Asset Condition Asset Availability & Accessibility Asset Environmental Impact Customer Service Our Customer Standards Customer Consultation Performance Measurement Introduction to Performance Indicators Best Value Performance Indicators (BVPIs) Local Performance Indicators Performance Indicators incorporated within the Highway Works Contract 2006 to Performance Targets incorporated within the Street Lighting PFI Contract 2006 to

20 Levels of Service and Performance Measurement Section Performance Indicators past results and future targets Future Improvements for Levels of Service Action Plan to Improve Levels of Service 2-27

21 Levels of Service & Performance Measurement 2-1 Section 2 Levels of Service & Performance Measurement 2.1 Introduction The Council s highways assets have deteriorated and need substantial additional capital investment. Significant lengths of the principal and secondary road network, whose functionality is paramount in the Council s strategy to improve accessibility for all users of the network are at the end of, or beyond, their useful life. A lack of investment in previous years in the unclassified road network, and its associated highway assets, has contributed to social and environmental problems as a direct result of the poor street-scene. In more recent years, additional Capital funding has been made available by Enfield Council that has enabled a significant increase in the extent of planned maintenance work that has been undertaken on the highway network. This additional funding is already reversing the previous trend and is achieving an improvement in the condition of the network, which is demonstrated through improved performance indicator results and slightly improved customer satisfaction levels. The public wants streets to be safe, attractive, clean, and accessible. The Council is acutely aware that without delivering urgently needed infrastructure improvements together with the provision of a long term maintenance strategy based on the principles of whole life costing, it will be unable to deliver the public s reasonable expectations. Under Part I of the Local Government Act 1999, local authorities have to make arrangements to secure continuous improvement in economy, efficiency and effectiveness. They must make arrangements for the achievement of best value in their performance by the creation of performance indicators and the measurement of actual performance against agreed target values. The majority of Best Value Performance Indicators (BVPIs) are determined directly by the Government, and are currently being re-classified into a smaller number of National Indicators (NIs). The national indicators are supplemented by local performance indicators which are created, or adopted, by Enfield Council. There are four basic drivers for determining Enfield s levels of service which are:- a) What the customers expect b) What Enfield s vision is c) What the legislation requires d) What funding is available Enfield s has developed five levels of service for highway assets which are:- a) Asset safety b) Asset condition

22 Levels of Service & Performance Measurement 2-2 c) Asset availability and accessibility d) Asset environmental impact e) Customer service The identification of suitable performance indicators and the future targets for these performance indicators are set based on the requirements and constraints as determined by the drivers. This process is identified in diagrammatic form below. DRIVERS FOR LEVELS OF SERVICE CUSTOMER RESEARCH & EXPECTATIONS STRATEGIC & CORPORATE GOALS LEGISLATION & CODES OF PRACTICE AVAILABLE FUNDING ENFIELD S LEVELS OF SERVICE ASSET SAFETY ASSET CONDITION ASSET AVAILABILTY & ACCESSIBILITY ASSET ENVIRONMENTAL IMPACT CUSTOMER SERVICE PERFORMANCE LEVELS & TARGETS Figure 2.1 Drivers for Levels of Service 2.2 Customer Research & Expectations As part of its ongoing commitment to improving services within the borough, Enfield Council regularly carries out residents satisfaction surveys. The residents surveys are an important means by which the Council can monitor attitudes and opinions about the Council and the services it provides. Information derived from these surveys can be used to inform the development and delivery of excellent Council services and is therefore relevant in meeting all aspects of the Council s vision and corporate aims Enfield Citizens Panel Summer 2006 Previously, information has been gathered from Enfield Council s general Residents Surveys that give an overview of importance and satisfaction of all the Council s services. However, in the summer of 2006, Enfield commissioned MORI to carry out research specifically related to highway maintenance. The research focused residents perception of some of the technical aspects of highway maintenance rather than the quality of customer service (response to queries, politeness of staff etc).

23 Levels of Service & Performance Measurement 2-3 This research was conducted among the members of the Enfield Citizens Panel (ECP): a cross-section of local residents from across the Borough and is probably the most comprehensive research for Highway Services to date. Postal self-completion questionnaires were despatched to 1,209 members of the Enfield Citizens Panel in June 2006 of which a total of 449 questionnaires were returned. Data are weighted by age, gender, work status and ethnicity to match the known population profile. It is recognised that we must continue to develop our satisfaction surveys to ensure that we have a true and comprehensive set of data that will enable us to prioritise our service delivery and budgets a Road, Pavement & Cycleway Maintenance. Reference is made in the charts below to net figures. This represents the balance of opinion on attitudinal questions and provides a particularly useful means of comparing the results for a number of variables. In the case of a net agree figure, this represents the percentage who agree with a particular statement less the percentage who disagree. The chart plots net satisfaction with roads, pavements and cycleways in Enfield against their net importance to residents. This indicates the relative priority attached to each issue. Any aspect falling into the bottom right hand quadrant those considered both important but with low levels of satisfaction should become a key focus of action for the Council. It can be seen that the speed of repairs is the clear priority for improvement for Enfield residents, both for pavements and especially for roads. These are given high importance but receive low levels of satisfaction. Having said that, the general condition of road surfaces and pavements are also among the most important issues since the net satisfaction is only just positive. Q And how satisfied or dissatisfied are you with each of these? Net Satisfaction Importance and satisfaction with roads, pavements and cycleways The general condition of cycleways 0 The general condition of pavements -10 The speed of repairing damaged pavements -20 The speed of repairing damaged roads Net Importance Base: 449 members of the Enfield Citizens Panel (26 June August 2006) The general condition of fences and barriers alongside the roads The general condition of road surfaces 15 Figure 2.2 Importance and satisfaction with roads, pavements and cycleways

24 Levels of Service & Performance Measurement 2-4 The following two charts show why residents feel dissatisfied with road and pavement maintenance. Q Why are you dissatisfied with the general condition of road surfaces in Enfield? Holes/potholes Uneven/bumpy surfaces Never repair roads/takes too long to complete repairs Manhole/drain covers uneven Unsafe Not as good as other areas Council do not finish repairs Gas/electric/Cable/TV etc do not finish repairs Poor drainage Road humps/speed bumps Dissatisfaction roads Top 10 answers 2% 50% 46% 40% 33% 25% 25% 23% 90% 83% Base: All who are dissatisfied with the general condition of the road surfaces (196) 17 Figure 2.3 Reasons for dissatisfaction with road maintenance Q Why are you dissatisfied with the general condition of pavements in Enfield? Uneven/bumpy path surfaces Unsafe Not repaired Takes too long to complete repairs Parked cars blocking routes Not swept/cleared of rubbish Not as good as other areas Kerbs are too high (eg for pushchairs/wheelchairs etc) Council do not finish repairs Poor drainage Dissatisfaction pavements Top 10 answers 50% 46% 40% 39% 30% 30% 28% 23% 66% 86% Base: All who are dissatisfied with the general condition of the pavement (190) 19 Figure 2.4 Reasons for dissatisfaction with pavement maintenance b Road, Pavement & Cycleway related Services

25 Levels of Service & Performance Measurement 2-5 Again, plotting the level of satisfaction with aspects of related services against the relative importance attached to each, shows that the condition of cats eyes is an issue that residents feel to be important but are relatively less satisfied with. Nevertheless, net satisfaction is still fairly high. Residents are less satisfied with weed killing and grass cutting on the verges, but these are not considered as important as other matters. However, when comparing these survey results with the number of customer complaints received on these matters, there would appear to be some seasonal contradiction. 60 Importance and satisfaction with road maintenance Q And how satisfied or dissatisfied are you with each of these? Net Satisfaction The condition of road signs The repair of hedges and verges Grass cutting on the verges Weed killing on the verges The condition of road markings The maintenance of rainwater drains at the roadside The condition of cats eyes Net Importance Base: 449 members of the Enfield Citizens Panel (26 June August 2006) 23 Figure 2.5 Satisfaction with road maintenance Residents Surveys MORI Local Government Research Unit conducted residents surveys on behalf of Enfield Council in 1989, 1990, 1997, 1999, 2002, 2003, 2004 and These surveys aim to assess residents attitudes towards the Council and the services it provides. The surveys are more generalised than the Citizen Panel Surveys (above) and specific issues include: Enfield as a place to live; Satisfaction with, and image of, Enfield Council; Community safety in Enfield; Council communications; Contact and complaints with the Council; Perceived importance of services;

26 Levels of Service & Performance Measurement 2-6 Usage of, and satisfaction with, Council services. MORI interviewed in the region of 1000 residents aged 16+ in 127 randomly selected areas across the Borough. All areas are sorted by ward and by demographic type, with individual sampling points then selected at random. Within each area, quotas are set to reflect the population profile of that neighbourhood by age, gender, working status and ethnicity, using the latest 2001 census data where available or 1991 census data. In February 2006, Environment Street Scene & Parks (ESSP), incorporating Highway Services, conducted a survey consisting of 30 questions all relating to ESSP, and it built on the survey questions that were used in the Council s 2003/04 BVPI satisfaction survey. The questionnaire was made available on the council website and was posted out to 4000 residents randomly selected from the electoral register. To ensure that there was a true representation of residents from across the borough equal numbers were selected from each ward. The survey received a response rate of 25%. The graph below shows the combined results from these surveys. Residents Survey Results Net Satisfaction % Road Maintenance Pavement Maintenance Street Lighting Grass Verges & Shrubs maintenance Street Trees Maintenance Winter Gritting - Roads Winter Gritting - Pavements Year Figure 2.6 Resident satisfaction survey results 2.3 Strategic & Corporate Goals National Overview The White Paper The Future of Transport a Network for 2030 reinforces the strategic importance of the transportation network and has three central themes of sustained investment, improvements in transport management and planning ahead. In addition, the Council seeks to create benefits through improved service delivery as a result of integrated management processes, for example, in network management and coordination of street works activity.

27 Levels of Service & Performance Measurement Mayor s Transport Strategy (MTS) & Enfield s Local Implementation Plan The Council contributes to four of the ten priorities in the MTS as a result of its highways asset management work: Improving Journey Time Reliability Better Maintenance including street works co-ordination Making London more reliable, sustainable, efficient, and environmentally friendly Improving Safety & Accessibility The highways asset management work also assists in achieving the statutory targets shared by Enfield and the TfL to: Reduce the number of people killed or injured on London s roads Eliminate the backlog of road maintenance on the TfL road network (TLRN) and the Borough Principal Roads Bring Assets such as bridges and the road network to a good state of repair Make London a Walking Friendly City by 2015 Develop the London Cycle Network (MTS proposal 4J Pr4) as detailed in Enfield s LIP Improve air quality, reduce noise and promote energy saving by improving road condition Enfield s Organisational Goals Enfield Council has strong organisational values which are identified in Putting Enfield First Improvement & Best Value Performance Plan 2007/2010 and are as follows: Focus on Customers Innovative and Forward Thinking Responsive and Fair Striving for Excellence Trained and Confident Staff The Council has developed a clear vision: To make Enfield one of the best places to live, work, study and do business. It has developed specific aims in order to achieve this overall objective and a current top priority is 'Street Scene'. The Council and its partners are committed to working together to reduce crime, fear of crime and to improve safety. Street Scene improvement, through rehabilitation of highway assets and better maintenance regimes, is seen to be an essential element in achieving these aims. Enfield Council has six key aims, the wording of which, has been amended slightly for incorporating in to the 2008/11 version of its Improvement and Best Value Performance Plan. Each Aim has a set of objectives. It is anticipated that Enfield s Highway Asset Management Plan will contribute to achieving the following Council Aims and Objectives.

28 Levels of Service & Performance Measurement 2-8 Aim AIM 1: A Cleaner Greener, sustainable Enfield AIM 3: A Safer Enfield AIM 5: Provide high quality and efficient Services AIM 6: Build prosperous, sustainable communities Objective Objective 1a Continue to improve the cleanliness of the whole borough. Objective 1b Make Enfield a better, safer place by improving roads, pavements and the standard of street lighting. Objective 1d Work with our TfL and our North London partners to improve transport links and traffic flow. Objective 1e Deliver improvements to Enfield s transport links by Objective 3a Work with partners to reduce crime, anti-social behaviour and respond to the fear of crime Objective 3b Work with partners to promote public safety by the use of CCTV, reduce environmental crime and improve safety on the roads and in the home. Objective 5a Deliver excellent customer focused services that are accessible to all. Objective 5b Improve value for money and service quality year on year. Objective 5c Regularly communicate the Council s activities and decisions to staff, residents and partners. Objective 5d Develop and maintain a Council workforce with the skills, motivation and opportunities to improve services. Objective 5f Work with partners to develop multi-agency, integrated, locally focussed services tailored to meet the needs of all residents. Objective 6a Work with partners to increase prosperity and promote sustainable and cohesive communities. Table 2.1 Council Aims and Objectives The Council has already achieved improvements in relation to these aims by improving management and efficiency and targeting specific areas with additional funding. Continued improvement and the achievement of Enfield s highway asset management target performance indicators levels will help Enfield to achieve the above Aims and Objectives. Enfield s Improvement & Best Value Performance Plan sets out the strategy for achieving its aims and objectives. The document identifies the key tasks needed to achieve Enfield s short-term and long-term objectives. It lists each key task, the programme and the person responsible for achieving the task, setting targets to be met for national and local performance indicators over the next three years to maintain a continuing improvement in the levels of service provided. 2.4 Legislative Requirements Highways authorities management of Assets is governed by extensive legislation. It is crucially important that all those involved in highway maintenance have a clear understanding of their powers and duties, their implications, and the procedures used to manage and mitigate risk. The importance of the development of Case Law and the status of British Standards and other Codes of Practice cannot be too highly stressed. Case Law generally clarifies those areas of legislation that are unclear and as well as clarifying responsibilities and acceptable highway maintenance standards.

29 Levels of Service & Performance Measurement 2-9 British Standards and Codes of Practice identify the acceptable standards of safety and maintenance and compliance with these documents will imply compliance with the legislation. Great care has to be taken with departures from standard as these imply non-compliance with the legislation and therefore need to be supported by a full and specific risk assessment Highways Act 1980 This sets out the main duties of highway Authorities in England and Wales. In particular Sections 41(1) and 41(1A) impose a duty to maintain those highways that are maintainable at public expense, including winter maintenance, and almost all claims against authorities relating to highway functions arise from the alleged breach of this section. Section 150 requires the highway authority to remove all obstructions from the highway (including snow and soil). Section 58 provides for a defence against an action relating to alleged failure to maintain on grounds that the authority had taken such care as in all the circumstances was reasonably required to secure that part of the highways in question was not dangerous for traffic Traffic Management Act 2004 This is an enabling Act and allows for implementation by the enactment of Regulations. The definition of traffic includes pedestrians. At the time of writing many of the proposed Regulations are still to be consulted upon and/or enacted. The Act is in 6 Parts and the duties contained in each Part, may be summarised as follows: Part 1 Traffic Officer to be created to manage the motorways and trunk roads. This does not affect Enfield s highway responsibilities Part 2 Each highway authority to appoint a Traffic Manager to take on the network management duty, to keep traffic flowing, to co-operate with other authorities, to co-ordinate works effectively and to minimise disruption. If this duty is not adequately carried out then the Secretary of State may intervene by appoint of a Traffic Director to take control of the authority s network Part 3 Provides for the creation of permit schemes designed to reduce disruption and inconvenience (due to commence in late 2007). Part 4 Allows additional measures to control utility works including the issue of Fixed Penalty Notices (due to commence in late 2007). Allows authorities to direct utility companies to re-surface the entire lane or width of road following their works and allows embargoes to be placed on roads following major utility works. Part 5 Amendments to the Highways Act and scope to require highway authorities to keep records of their own apparatus in the roads. Also

30 Levels of Service & Performance Measurement 2-10 allows lane rental and overstaying charging powers (due to commence in late 2007). Transport for London to identify a strategic road network in London and to have powers to co-ordinate works where they may affect this strategic network. Part 6 Transfer of enforcing powers from the police to the highway authority nationwide (previously only in London). In relation to on-street parking it gives highway authorities additional powers to spend surpluses. The scope of these powers will be identified and varied by the issue of statutory guidance. Most importantly, the Traffic Management Act - Section 16(1) establishes a duty for local traffic authorities to manage their road network with a view to achieving, so far as may be reasonably practicable having regard to their obligations, policies and the following objectives: (a) securing the expeditious movement of traffic on the authority s road network; and (b) facilitating the expeditious movement of traffic on road networks for which another authority is the traffic authority Other Key Legislation A limited selection of relevant legislation is identified below but this is not a complete listing of all relevant legislation. Local Authorities Regulations powers to charge for certain functions such as skips and scaffolds. London Local Authorities Act 2004 powers to stop bird fouling from bridges or taking of action and charging the owner in default. Increased powers to remove and destroy abandoned cars. Fixed penalties for local authority bye-law breaches. New Roads and Street Works Act coordination and regulation of Utilities activities on the highway. The identification of traffic sensitive streets where road works are to be restricted at certain times. Road Traffic Regulation Act 1984 highway management for public safety, road protection, preserving amenity and environment, improving traffic flows, restricting waiting, loading and unloading. Traffic Signs Regulations and General Directions 2002 all signs and road markings including traffic lights, warning lights, variable signs, temporary lighting, flashing beacons, etc. Road Traffic Act 1988 duty to promote road safety, requirement to undertake accident studies, accident remedial works and safety audits of existing and new roads. Road Traffic Reduction Act 1997 highway authorities to report existing level of traffic and its targets for reducing, or reducing the growth of these levels of traffic. Provides powers for highway authorities to charge for some of their functions.

31 Levels of Service & Performance Measurement 2-11 Transport Act 2000 Part 3 provision to levy road user charges and a workplace parking levy. Part 5 provision to charge utilities for occupation of road space during works and designation of home zones and quiet lanes. Health and Safety at Work Act 1974 requirements for authorities to carry out work in a safe manner. Reference has to be made to the Regulations made under this Act such as the Health and Safety at Work regulations 1992, Construction (Design and Management) Regulations 1994 and the Construction (Health, Safety and Welfare) Regulations1996 Wildlife and Countryside Act 1949 includes requirements for authorities to record (definitive map), sign, maintain and keep public rights of way free from obstructions. This Act has been altered since coming into affect by the Countryside Act 1968 and the Wildlife and Countryside Act Countryside and Rights of Way Act 2000 section 60 requires authorities to prepare Rights of Way Improvement Plans (ROWIPs) by November Noxious Weeds Act 1959 makes highway authorities responsible for inhibiting the growth and spread of injurious weeds growing within the highway. Local Government Act 1999 general duty of Best Value introducing Comprehensive Performance Assessment (CPA), inspection by the Audit Commission, cyclic reviews and inspections, statutory framework of Best Value Performance Indicators (BVPI). Disability Discrimination Act 1995 applies to highway authorities who must take reasonable steps and reasonable adjustments to allow disabled people to make use of its services Other Related Legislation There are many more pieces of general legislation that affect the way that highway assets are managed and some of these are listed below: - Environmental Protection Act 1990 Rights of Way Act 1990 Criminal Justice and Public Order Act 1994 Human Rights Act 1998 Freedom of Information Act 2000 Local Government Act Case Law Case Law has been particularly important in identifying the appropriate frequency for inspections and the realistic intervention levels for triggering highway and footway repairs. Case law is also clarifying many any other areas of highway authority responsibility and liability but, as Case Law is evolving continuously, and current

32 Levels of Service & Performance Measurement 2-12 measures appropriate to limit the success of third party claims against the highway authority may not be considered to be appropriate in the future Codes of Practice In order to successfully defend third party claims for damages highway authorities will need to demonstrate that they have followed all recommended procedures in managing their highway network. In this respect it will be necessary, amongst other things, to show compliance with recent national codes of practice published by the Roads Liaison Group as follows:- Well Lit Highways Code of Practice for Highway Lighting Management November 2004 Well-maintained Highways - Code of Practice for Highway Maintenance Management - July 2005 Management of Highway Structures A Code of Practice September Departures from Standard Departures from the standard laid down in the guidance documents are possible and may be required, for instance, in conservation areas or where there is insufficient funding to comply with the standard. With new highway structures the Approval in Principle (AiP) lists the standards being complied with and indicates those areas of the design that may depart from the listed standards. Any departures from standard should always be accompanied by a risk assessment to justify the departure Staff Awareness To ensure awareness of the authority s legal obligations in relation to highway maintenance and highway management, Enfield has a policy of providing relevant training to all highway-related staff. 2.5 Levels of Service Enfield has identified five levels of service in relation to highway assets, which are as follows:- Asset safety Asset condition Asset availability and accessibility Asset environmental impact Customer service

33 Levels of Service & Performance Measurement 2-13 Each of these five levels of service is considered in more detail in the sub-sections below. These levels of service have to meet Enfield s:- organisational goals in terms of the aims and objectives identified in item above customer perceptions and expectations which are determined from the customer satisfaction surveys carried out annually for Enfield Council by MORI and similar surveys carried out directly by Enfield s Highways Services Group. statutory obligations - Statutory obligations are set by Acts of Parliament and supporting Regulations, but more practically by case law and relevant Codes of Practice. The setting and monitoring of target levels of service is the key to the whole of the highway asset management plan. The target levels of service specified for the highway network are the levels against which actual performance can be measured. The Government has determined national performance indicators for local authorities to use to set targets and compare actual performance. In addition Enfield has corporately identified its own additional local performance indicators (e.g. ESPI 7a and b) to supplement the government indicators. More recently the street lighting PFI contract and highway works contract have included contract targets and performance indicators to monitor the performance of the contractors in relation to Enfield s required Levels of Service. Levels of service are not restricted solely to the setting and monitoring of performance indicator values and will also include the setting of intervention levels for reactive maintenance works. Enfield has committed itself to continuously improving its levels of service but this commitment will require increases in effectiveness/efficiency plus increases in funding. The scope for increasing levels of service without increasing the available funding is relatively small Asset Safety There is no such thing as a completely safe highway and a level of service has to be maintained somewhere between unmitigated danger and complete safety. The level of service for asset safety must be deemed by both the public and the courts to be acceptable. The courts generally accept that highways, and highway structures, which conform to current design standards and codes of practice are completely satisfactory. Existing assets that do not conform to the current standards or new assets that are a departure from these standards must be fully justified by carrying out risk assessments. These assessments identify if the risk is acceptable or, if not, what needs to be done to make the risk acceptable. In addition safety audits are carried out both during design and on completion of all new and major highway alteration projects. A selection of aspects of asset safety that may have to be considered are listed below: - Footway condition Carriageway condition

34 Levels of Service & Performance Measurement 2-14 Highway structures condition Street lighting effectiveness Street tree condition Sign visibility and clarity The frequency of Enfield s safety inspections relates to the potential safety risk. For instance, carriageways and bridges carrying the highest traffic flows, and pavements with the highest pedestrian flows, require the shortest time intervals between inspections. For these highest priority locations the level of service for asset condition will also be required to be higher than for the lower priority locations. Enfield s safety inspection regime is as tabulated below. Asset Description Principal roads plus Enfield s local strategic road network and primary walking routes Other roads, cycleways and footways Safety Inspection Interval monthly 6-monthly Table 2.2 Asset inspection intervals A further very valuable source of safety information comes direct from the general public and Enfield has a system of recording and reacting to such information (the PEM system). The maintenance work identified from inspections for safety, and from safety matters reported to Enfield by the public, is termed reactive maintenance. Enfield uses the national best value performance indicators (BVPIs), Enfield s own local performance indicators (ESPIs) and contractual performance indicators incorporated within the Highway Works Contract (HWCPIs) to monitor and improve the safety of its highways. These performance indicators include:- BVPI 215a and 215b - repairs carried out to street lights BVPI 99a, 99b and 99c - injuries to people on the highway ESPI 5 street lights working ESPI 7 (a) and (b) repair of safety defects within 24 hours and 28 days HWC PI 26 - claims made against the Council HWC PI 28 to 30 - repair of dangerous highway defects HWC PI 46 to 50 salting/gritting of the highway Asset Condition Assets must be maintained and a key element of maintenance is the schedule of condition inspections. Condition inspections are required less frequently than safety inspections but more detailed records of the inspections are required to be kept. The maintenance that is implemented following these condition inspections is termed planned maintenance. It is generally accepted that in order to minimise whole life

35 Levels of Service & Performance Measurement 2-15 costs that the assets must be maintained in a good condition and failure to do this will lead to a reduction in the assets life and an increase in whole life costs. The currently required condition inspection frequency is tabulated below and for the most part is determined by the requirement on Local authorities to calculate and submit national performance indicators on an annual basis. Asset Description Condition Inspection Interval Highway Structures General Inspections Highway Structures on Principal Roads Principal Inspections Principal Roads 100% in both directions by SCANNER survey Classified B Roads 100% in one direction by SCANNER survey Classified C Roads - 100% in one direction by SCANNER survey Unclassified Roads 25% in one direction by CVI or DVI survey Category 1, 1a and 2 Footways 50% by CVI or DVI survey Category 3 and 4 Footways - CVI or DVI survey 2-yearly 6-yearly yearly yearly yearly yearly yearly No current requirement Table 2.3 Asset condition inspection intervals The national best value performance indicators (BVPIs) used by Enfield to monitor and improve the condition of its highways include:- BVPI 178 footpaths that are easy to use BVPI 187 condition of footways BVPI 223 condition of principal roads BVPI 224a condition of classified non-principal roads BVPI 224b condition of unclassified roads The future use of these BVPIs is currently under review Asset Availability & Accessibility Some roads are strategically more important than others. Transport for London has, under the Traffic Management Act 2004, designated specific roads within Enfield as part of London s strategic road network. In addition some roads can have a marked affect on traffic flows within the highway network and these are identified as traffic sensitive streets under the New Roads and Street Works Act Availability and accessibility of these roads is more important than for other roads

36 Levels of Service & Performance Measurement 2-16 within Enfield s road network. A greater management effort is required in relation to the strategic road network and traffic sensitive streets to ensure co-ordination of road works both within Enfield and in conjunction with surrounding authorities to minimise disruption within London. There are also restrictions on the times that road works may be carried out on traffic sensitive streets in order to reduce disruption during the peak traffic periods. A similar increased management effort is required to ensure that the category 1 and 1a footways, which generally give access to retail businesses, schools, hospitals and the like, are available and accessible at all times of peak usage. The national best value performance indicators (BVPIs) and contractual performance indicators incorporated in the Highway Works Contract (HWCPIs) used by Enfield to monitor and improve the availability and accessibility of its highways include:- BVPI 100 days of council works on traffic sensitive streets BVPI 165 access for disabled people at crossing BVPI 178 footpaths that are easy to use HWC PI 39 days of council works on traffic sensitive streets As above, the future use of these BVPIs is currently under review Asset Environmental Impact All new schemes and major alterations are subject to an environmental impact assessment but similar considerations also have to be made in relation to highways maintenance works. All highway maintenance should be seeking to gain value, or environmental benefit, by improving the quality of public space, improving community safety and reducing the fear of crime. The Code of practice for Highways Maintenance, Well Maintained Roads, identifies a checklist for environmental impact under the following headings: - Local economy Community value Noise pollution Air pollution Water management Visual intrusion Waste management Energy management Biodiversity Maintenance works may not be able to make a contribution to all or any of these environment impact areas but the cumulative environmental affect of many individual schemes over a number of years will be significant. The national best value performance indicators (BVPIs) and contractual performance indicators incorporated in the Highway Works Contract (HWCPIs) used by Enfield to monitor and improve the environmental value of its highways include:-