REPORT CITY OF WATERLOO ASSET MANAGEMENT PLAN OCTOBER 2014

Transcription

1 REPORT CITY OF WATERLOO ASSET MANAGEMENT PLAN OCTOBER 2014

2 City of Waterloo Asset Management Plan EXECUTIVE SUMMARY The City of Waterloo has prepared this asset management plan in accordance with the Ministry of Infrastructure, Building Together: Guide for Municipal Asset Management Plans. Each of the key elements of an asset management plan is addressed, namely: Executive Summary Introduction State of Local Infrastructure Desired Levels of Service Asset Management Strategy Financing Strategy The City of Waterloo is a lower-tier municipality within the Region of Waterloo. This asset management plan covers the areas of responsibility for the City of Waterloo. These are: Roads; Water Distribution; Wastewater (Sanitary and Storm) and Bridges. The information presented in this asset management plan illustrates that the City of Waterloo is continuing to manage its assets in a responsible manner. In addition the City has committed to develop a comprehensive corporate asset management plan that includes all corporate assets by the end of

3 City of Waterloo Asset Management Plan TABLE OF CONTENTS Executive Summary... 1 List of Tables... 3 List of Figures Introduction State of Local Infrastructure Asset Inventory Financial Accounting Asset Age Distribution and Asset Age as a Proportion of Expected Useful Life Asset Condition Desired Levels of Service Levels of Service Asset Management Strategy Non-Infrastructure Solutions Maintenance activities Renewal/rehabilitation activities Replacement activities Disposal Activities Expansion Activities Procurement Methods Risks Financing Strategy Expansion Activities Replacement and Renewal/Rehabilitation Activities Capital Re-investment Utility Model Conclusion APPENDIX A APPENDIX B

4 City of Waterloo Asset Management Plan LIST OF TABLES PAGE NO. Table 2-1: Book Value of the Asset Table 2-2: Asset Condition Ratings Table 2-3: Pavement Quality Index - Roads Table 2-4: Sanitary Condition Rating Table 2-5: State of the Infrastructure Analysis Table 5-1 Expansion Activities - 10 Year Investment Table 5-2 Replacement and Renewal 10 Year Investment

5 City of Waterloo Asset Management Plan LIST OF FIGURES PAGE NO. Figure 2-1: City of Waterloo Roads... 7 Figure 2-2: Watermain Length... 9 Figure 2-3: Watermain Lengths by Diameter... 9 Figure 2-4: Sanitary Sewer Lengths by Material Type Figure 2-5: Sanitary Sewer Lengths by Diameter Figure 2-6: Storm Sewer Lengths by Material Type Figure 2-7: Storm Sewer Lengths by Diameter Figure 2-8: Bridges by Type Figure 2-9: Roads Valuation Life Expectancy Figure 2-10: Watermain Age Figure 2-11: Sanitary Pipe Age Figure 2-12: Storm Pipe Age Figure Condidtion All Roads Figure 2-14 Arterial and Collector Roads Figure 2-15 Watermain Condition Figure 2-16 Sanitary Pipe Condition Figure 2-17 Storm Pipe Condition Figure 2-18 Road Structure Condition Figure 3-1 Level of Service Survey Findings Figure 3-2 Water Quality and Pressure Complaints Figure 3-3 Water Distribution Systems Min-Max Average Results - Mainbreaks Figure 3-4 Wastewater Collection Min-Max Results - Wastewater Figure 3-5 Wastewater Collection Blocked Sewers Figure 3-6 Stormwater Min-Max Results Figure 3-7 Stormwater Min-Max Results Blockage Removals Figure 5-1 Budget-Network Performance Figure 5-2 Water Distribution System 5 Year Running Average Capital Investment Figure 5-3 Wastewater Collection 5 Year Running Average Capital Reinvestment

6 City of Waterloo Asset Management Plan 1 Introduction The Provincial document, BUILDING TOGETHER: Guide for Municipal Asset Management Plans describes Asset Management Planning as the process of making the best possible decisions regarding the building, operation, maintaining, renewing, replacing and disposing of infrastructure assets. The objective is to maximize benefits, manage risk, and provide satisfactory levels of service to the public in a sustainable manner. Asset management requires a thorough understanding of the characteristics and condition of infrastructure assets, as well as the service levels expected from them. It also involves setting strategic priorities to optimize decision making about when and how to proceed with investments. Finally, it requires the development of a financial plan, which is the most critical step in putting the plan into action. The City of Waterloo has been actively practicing asset management for more than 40 years in its simplest form, understanding what assets we own, where they are, what condition they are in, and when and how to rehabilitate them. For the water distribution system, sanitary collection system and most recently the stormwater collection system, the City established an enterprise or utility model that promotes sustainability. Funds collected through user fees for each of these utilities are dedicated to the utility for system operation, maintenance, rehabilitation and ultimately, replacement. The City s 2011 to 2014 Strategic Plan provides a Waterloo Community Vision: In 2029, the City of Waterloo has enhanced its friendly feel, welcoming and accommodating a diversity of people. Waterloo is a caring community where people support each other; a green city with healthy green spaces, land, water and clean air; an economic leader with a strong diverse economy; a community of vibrant neighbourhoods; a learning community strong with ties to its schools, universities and college; an exciting city with abundant recreation, leisure, arts and cultural opportunities; and a city that is accessible to all. Waterloo is a better place to live work and play than ever. In order for this vision to be realized, the services of transportation, water distribution and wastewater collection (both sanitary and storm) are essential and must be in place to provide a solid foundation upon which to build and achieve these higher order goals. The Asset Management Plan supports the Strategic Plan by working to make these services dependable and sustainable. The City s Official Plan also works to facilitate the Vision by setting out the land use policy focusing on intensification for the City and, once again, the Asset Management Plan responds by facilitating the growth and development by providing transportation, water distribution and wastewater collection systems as required. The Region of Waterloo as the upper-tier municipality also provides services that are essential such as regional transportation, water treatment and supply and wastewater (sanitary) treatment and are addressed in their asset management planning. 5

7 City of Waterloo Asset Management Plan This Asset Management Plan is considered to be an interim plan prepared to illustrate that the City of Waterloo has in place all of the elements identified by the province. It has been prepared by City Staff using information available from asset management tools and finance documents. From a financial standpoint what is presented covers a 10 year period from 2012 to New financial plans are currently being developed for the period 2015 to 2024 and will be available early in The City has put in place a plan to develop a comprehensive asset management plan covering a significantly increased scope of assets (including facilities) and addressing full lifecycle costing by Funding for this project has been approved and totals approximately $1.3M. 6

8 City of Waterloo Asset Management Plan 2 State of Local Infrastructure As mentioned earlier, Waterloo has been practicing asset management for over 40 years. Computerized maintenance management systems put in place in the 1980 s drove the development of maintenance quality standards for infrastructure components such as the method and frequency of inspections and maintenance activities. As a result, the City has several decades of condition data for many of its assets. Today, the data for the assets included in this plan is managed by a dedicated Infrastructure Management section within the Integrated Planning and Public Works department of the City. The data is currently managed through both a Geographic Information System (GIS) and stand alone data bases. 2.1 ASSET INVENTORY Roads The City of Waterloo has approximately 385km of paved road which contain 802 road lane-km. Roads are classified by the City within our Pavement Management System using functional classes. These classes are: Alleys; Rural Roads, Local Roads, Collector Roads and Arterial Roads. Generally, the highest class roads, Arterials: have relatively higher speeds and high traffic (eg. 60km/h and 15,000 vehicles daily) while the lowest Class roads, Alleys: have relatively lower speeds and low traffic (eg. 50km/h and less than 50 vehicles daily. As can be seen in Figure 2-1, the vast majority of the City s roads are Local Roads. Figure 2-1 7

9 City of Waterloo Asset Management Plan Watermain The City of Waterloo has approximately 427km of watermain. As can be seen in Figures 2-2 and 2-3 below, the majority of pipe within the distribution system is PVC pipe 300mm or less in diameter. This reflects the relatively young age of most of our pipe and the fact that we operate the distribution system only and the Region of Waterloo operates the transmission system which is considered part of the supply system. Figure 2-2 8

10 City of Waterloo Asset Management Plan 2012 City of Waterloo Watermain Lengths by Diameter Diameter (mm) Unknown < Length (km) Figure Sanitary The City of Waterloo has approximately 393km of sanitary collection pipe. In addition there are six sanitary pumping stations required to operate the primarily gravity collection system. As can be seen in Figure 2-4 below, the majority of pipe within the distribution system is PVC pipe 300mm or less in diameter. This reflects the relatively young age of most of our pipe. The collection system delivers sewage from all areas of the city to the treatment plant and the City is the owner of the entire system. As a result it can be seen in Figure 2-5 that there is a significant proportion of larger pipe (trunk sanitary sewers) than was seen in the water distribution system. 9

11 City of Waterloo Asset Management Plan Figure 2-4 Figure

12 City of Waterloo Asset Management Plan Stormwater The City of Waterloo has approximately 427km of stormwater collection pipe. In addition there are 54 stormwater management ponds and many streams and creeks that play an integral role in the stormwater collection system. As is illustrated in Figure 2-6 below, a wide range of materials make up the collection system however the primary types are concrete and PVC. Generally, concrete pipe is used for larger diameter pipes. Figure 2-7 identifies that the majority of pipe is also relatively small (less than 1 metre in diameter) reflecting the use of the many creeks and their tributaries that travel throughout the City as the primary trunk collection system to convey the stormwater through the City and to the Grand River. Figure

13 City of Waterloo Asset Management Plan Figure Bridges The City of Waterloo has 72 structures which have been classified as bridges. These have been classified as either road structures or pedestrian bridges. There are 35 road structures and 37 pedestrian bridges as is illustrated in Figure 2-8 Figure

14 City of Waterloo Asset Management Plan 2.2 FINANCIAL ACCOUNTING The accounting valuation shown in Table 2-1 below has been determined as the net book value on historical cost. Replacement cost has been determined using 2012 unit rates for replacement. The information for the accounting valuation is obtained through our Public Sector Accounting Board (PSAB) reporting data which does not segregate bridges to a separate category. As a result, the value of bridges is partially included within the storm asset. ASSET ACCOUNTING VALUATION REPLACEMENT COST VALUATION ROADS $252,079,507 $420,000,000 WATER $58,006,681 $154,115,780 SEWER $185,170,989 $413,163,057 STORM $95,605,272 $150,484,665 Total $590,862,449 $1,137,763,502 Table 2-1 Book Value of Assets 13

15 City of Waterloo Asset Management Plan 2.3 ASSET AGE DISTRIBUTION AND ASSET AGE AS A PROPORTION OF EXPECTED USEFUL LIFE In this section, the life expectancy of assets as used for accounting valuation is used to illustrate the amount and percentage of assets that are past their useful life. Age alone is not a good indication of the condition of an asset and its expected useful life. This is discussed in more detail in sections 4.3. Renewal/Rehabilitation Activities and 4.4. Replacement Activities Roads Roads have an accounting valuation life expectancy of between years depending on the functional class of the road. As can be seen in Figures 2-9 below, road age ranges from approximately 60 years to new and 18% of roads are considered past their useful life based on accounting valuation. Figure Water For accounting valuation the life expectancy of watermain has been set at 75 years. The age distribution graph shown in Figure 2-10 illustrates that no watermains have exceeded this 14

16 City of Waterloo Asset Management Plan accounting value life expectancy. It is noted however that age information pre 1965 is less reliable than that post As a result, there may, in fact, be a small quantity of watermains that have exceeded this useful life accounting valuation. Figure Sanitary For accounting valuation the life expectancy of sewer main has been set at 75 years. The age distribution graph shown in Figure 2-11 illustrates that no sewer main have exceeded this accounting value life expectancy. It is noted however that age information pre 1966 is less reliable than that post As a result, there may, in fact, be a small quantity of sewer main that have exceeded this useful life accounting valuation. 15

17 City of Waterloo Asset Management Plan Figure Storm For accounting valuation the life expectancy of storm main has been set at 75 years. The age distribution graph shown in Figure 2-12 illustrates that no storm mains have exceeded this accounting value life expectancy. It is noted however that age information pre 1965 is less reliable than that post As a result, there may, in fact, be a small quantity of storm mains that have exceeded this useful life accounting valuation. 16

18 City of Waterloo Asset Management Plan Figure Bridges Information on bridge age is not yet available for all bridges. The bridge inspection report described within the Asset Condition section below provides bridge construction date for each bridge where it is available. 2.4 ASSET CONDITION This section provides information on the condition of the City of Waterloo s infrastructure. Table 2-2 defines the asset condition ratings that have been applied. Condition Category GOOD FAIR POOR Description Asset is as new or is in acceptable condition. Asset shows little or minor deterioration. Asset is in tolerable condition. Asset shows moderate deterioration. Major deterioration evident. Table 2-2 Asset Condition Ratings 17

19 City of Waterloo Asset Management Plan Roads The City of Waterloo has been working with Pavement Management Systems Ltd. and subsequent to their merging, Stantec Engineering for three decades. Stantec provides the City with physical testing, condition information and rehabilitation programs and strategies on an annual basis. Roads are inspected by Stantec using an Automatic Road Analyzer (ARAN) which collects condition information on the road automatically. This information is used within their software and ultimately results in an overall road condition rating. This overall road condition rating is measured within a Pavement Quality Index (PQI). Table 2-3 below shows how the Pavement Quality Index is used to determine if a road is in a Good, Fair or Poor condition. Functional Class Poor Fair Good Alley PQI<= 40 PQI>40<65 PQI>=65 Rural Road PQI<= 40 PQI>40<65 PQI>=65 Local Road PQI<= 45 PQI>45<65 PQI>=65 Collector Road PQI<= 50 PQI>50<70 PQI>=70 Arterial Road PQI<= 55 PQI>55<70 PQI>=70 Table 2-3 PQI The overall condition of roads is illustrated in Figure 2-13 below. Approximately 70% of the City s roads are considered to be in Good or Fair condition, while approximately 30% are considered to be in poor condition. 18 Figure 2-13

20 City of Waterloo Asset Management Plan Looking more closely at this in the series of figures 2-14 below, we can see that for Arterial and Collector roads, 61% to 69% respectively are considered to be in good or fair condition. For Local roads 72% are considered to be in good or fair condition. Figure

21 City of Waterloo Asset Management Plan Watermain The condition of watermain is very difficult to assess. While there are many methods available to determine the condition of metallic watermains, there are currently no cost effective methods for use on system wide evaluations of distribution systems. In addition, no methods currently exist for condition assessment of PVC (plastic) pipe. Main breaks are recorded and monitored. In addition, the entire distribution system is inspected for leaks every two years. While some municipalities use age to determine condition, city staff does not feel that this is a reliable method. It is well known that cast iron pipes installed prior to more modern ductile iron pipes are generally in better condition. As a result, we consider all watermains that are not experiencing a significant break (or leak) frequency to be in the Good/Fair category, while only those exhibiting a break frequency of approximately three breaks per kilometer per year to be in the poor category. As can be seen in Figure 2-15 below, almost 100% of Waterloo s watermain is considered to be in Good/Fair condition. The City is currently working with a consortium of municipalities and the University of Waterloo to develop a watermain condition assessment tool Sanitary Figure 2-15 The condition of sanitary sewer mains is determined through camera inspections. Two types of camera inspections are utilized. Main line cameras and zoom cameras. Main line cameras are used to provide detailed information throughout the entire length of the pipe. These cameras 20

22 City of Waterloo Asset Management Plan travel the entire length of the pipe on a self-propelled tractor and allow the operator to closely view any defects as well as look up connection laterals. Zoom cameras are stationary cameras that are positioned in a manhole and using zoom lenses, virtually travel through the pipe. Less detailed information can be obtained using this method but its advantage is that it is relatively less costly to perform. The City of Waterloo uses both methods to obtain condition information on sanitary sewer mains. Main line camera inspections are done once every twelve years or as needed in advance of construction/rehabilitation. Zoom camera inspections are completed approximately every three years. For both inspections, results are reported using a standardized coding system which allows the condition data to be utilized in computerized software to determine, among other things, the condition of the pipe segment that has been inspected. Table 2-4 below shows how the condition rating determined from the inspection is used to develop a rating of good, fair or poor. Sanitary Poor Fair Good Inspection Rating 4 & 5 2 & 3 1 Table 2-4 Sanitary Condition Rating Figure 2-16 shows the condition of sanitary sewer mains within our collection system. As can be seen, over 80% of the system is considered to be in good or fair condition. 21

23 City of Waterloo Asset Management Plan Figure 2-16 Information from zoom camera inspections is used extensively in determining the need for flushing or cleaning of sanitary sewer mains Storm Similar to sanitary sewer mains, storm sewer mains are inspected by camera in the same fashion. However, the inspection program for storm sewers is less mature. While we have been performing inspections of sanitary sewers for several decades, storm sewer inspections have only been routinely instituted in the last decade. The same rating system has been applied to storm sewers as previously described for sanitary sewers. The condition of storm sewers is illustrated in Figure It can be seen that the condition of much of the system is unknown. This is a result of the inspection program for Stormwater piping being relatively new as compared to the sanitary system. For pipes that have been inspected, over 90% is considered to be in good or fair condition. 22

24 City of Waterloo Asset Management Plan Storm Pipe Condition 8.9, 3% 35.4, 9% 252.5, 66% 85.2, 22% Poor Fair Good Unknown Km, % Figure Bridges In 2012, Gamsby & Mannerow Ltd. performed bridge and culvert inspections for the City of Waterloo. Visual inspections were completed on an element-by-element basis for each structure with the results recorded on Ontario Structure Inspection Manual (OSIM) inspection forms. The scope of the work included inspection of thirty five road structures and thirty seven pedestrian bridges and the prioritization of rehabilitation and replacement projects. A priority rating for capital investment was determined for each structure. A zero to 1 rating indicates a priority need, a 2-3 rating indicates a need within 10 years and a no priority rating indicates no need. For this state of the infrastructure analysis, this has been translated to good, fair and poor condition as set out in Table 2-5 below. Bridge Poor Fair Good Inspection Rating No priority Table 2-5 State of Infrastructure Analysis For the purpose of this report, only road bridges have been included. Figure 2-18 below shows the condition of these road structures. 23

25 City of Waterloo Asset Management Plan Bridge inspections are completed every two years. Figure

26 City of Waterloo Asset Management Plan 3 Desired Levels of Service Levels of service have not been established for all assets. However, the performance is measured for all assets within the plan. More detailed information on these is provided below. 3.1 LEVELS OF SERVICE Roads The City of Waterloo has undertaken significant public engagement on roads level of service. In 2012, the City completed a telephone survey of Waterloo residents regarding roads. More than 500 surveys were completed. Key findings of the survey are shown in Figure 3-1. Following up on these results a focus group study was undertaken in This involved approximately thirty participants viewing/driving 66 blocks of City roads and providing feedback. Key findings from this research revealed: Participant ratings have a high correlation What did residents say. A majority (83%) of residents are at least somewhat satisfied with the condition and repair of roads. 27% are very satisfied with the condition and repair of roads. Residents are least satisfied with the condition of main roads as compared to neighbourhood roads or residential roads. to Figure 3-1 City rating Good condition, less for Fair and even less for Poor. Generally participants rated Fair or Poor roads higher than the City. Satisfaction with network average Pavement Quality Index (PQI) of 60. Concern about increases to the number of poor or failed roads. Participants were generally satisfied with current conditions. An overall network average PQI will result in some roads having a PQI above this level and some roads having a PQI below this level. The overall network average PQI at the time of study was 60. As a result, the 2012 conditions presented in section represents the desired minimum state of the road network. It was noted however that there was concern expressed should the number of poor or failed roads be allowed to increase as part of any rehabilitation strategy to maintain an overall network average PQI of

27 City of Waterloo Asset Management Plan Water, Sewer, Storm and Bridges Unlike roads, very little public engagement has been undertaken for water, sanitary, storm or bridge infrastructure. These services are generally out of sight, out of mind. Past surveys undertaken to determine customer satisfaction levels water and sewer services have resulted in high satisfaction levels. The City of Waterloo has participated in the Canadian National Water and Wastewater Benchmarking Initiative (NWWBI) since its inception in 1998 and prior to that, in the Ontario Benchmarking Initiative. The Canadian National Water and Wastewater Benchmarking Initiative facilitates Canadian water and wastewater (sanitary and storm) municipal providers to measure, track and report on their utility performance. 46 municipalities or regional districts participate in the initiative. While initially a high level metric benchmarking process, it has developed into a network information base for Canada s most progressive municipalities. An extensive array of performance measures are included in the initiative. Customer satisfaction performance measures are included for each utility (Water, Sanitary, Storm). Following is representative performance measure results for customer satisfaction for Water. Sanitary and Storm utilities. Bridges are not specifically addressed in the benchmarking initiative, however, could be considered to be represented within the storm utility assessment Water a) Customer Feedback Information from all customer calls is logged into a spreadsheet and database. The following information is collected from the caller: date and time of call; resident s name and address; and reason for the call. Generally, calls are related to discoloured water, taste and odour, and low pressure. A summary of the calls from 2008 to 2012 can be found in Figure 3-2. A more detailed discussion on mediation of discoloured water calls is included in section Watermain Lining. Waterloo has not established a specific goal for this measure. Results are used to inform management 26

28 City of Waterloo Asset Management Plan Water Quality and Pressure Complaints Number of Water Quality and Pressure Complaints Year Discoloured Water Odour/Taste Low Pressure Other Figure Watermain Break Frequency Watermain break frequency is also measured within the NWWBI. Waterloo has established a maximum desirable break frequency of three breaks per kilometer per year. This maximum was established to trigger review for replacement. This was discussed in more detail and illustrated in section Waterloo has not established a specific goal for the system wide break frequency that is shown in Figure 3-3. Results are used to inform management. This figure shows that City of Waterloo (CWAT) main break frequency is approaching the median having declined steadily from Many factors can affect the frequency of watermain breaks including pipe age, pipe material, soil type, and climate. As Waterloo s system is replaced or rehabilitated it is anticipated that watermain break frequency will continue to decline. Anomalies to this may occur as a result of severe winters (which affects frost penetration and often leads to increased break frequency). 27

29 City of Waterloo Asset Management Plan Figure System Inspections Ministry of Environment inspections are done annually to ensure that the water system is being managed and operated in compliance with all applicable regulations. The City of Waterloo management goal is to be 100% in compliance and has achieved this result Sanitary Customer Feedback One of the performance measures included in the NWWBI is Wastewater (sanitary) Related Customer Complaints per 1000 customers. The results for this measure are illustrated in Figure 3-4. This figure shows that City of Waterloo (CWAT) wastewater complaints are generally within the average compared to the other municipalities represented. Waterloo has not established a specific goal for this performance measure. Results are used to inform management. 28

30 City of Waterloo Asset Management Plan Figure Blocked Sewer Frequency Blocked sewer frequency is also measured within the NWWBI. Waterloo has not established a specific goal for the system wide blockage frequency that is shown in Figure 3-5. Results are used to inform management. This figure shows that City of Waterloo (CWAT) blocked sewer frequency is below the median having generally declined from 2008 to

31 City of Waterloo Asset Management Plan Figure 3-5 This performance measure has been included in this discussion on level of service because blocked sewers may detrimentally impact the level of service provided to customers. Blocked sewers can be caused by lack of system maintenance, the condition of the sewers or misuse of the system by users Storm Customer Feedback Stormwater Related Customer Complaints per 1000 customers is a performance measure included in the NWWBI. The results for this measure are illustrated in Figure 3-6. This figure shows that City of Waterloo (CWAT) stormwater complaints are generally below the median compared to the other municipalities represented. Waterloo has not established a specific goal for this performance measure. Results are used to inform management. 30

32 City of Waterloo Asset Management Plan Figure Blocked Storm Sewer Frequency Within the NWWBI this is measured by sewer blockage removals/100km of sewer. Waterloo has not established a specific goal for the system wide blockage frequency that is shown in Figure 3-7. Results are used to inform management. This figure shows that City of Waterloo (CWAT) blocked storm sewer frequency is below the median having generally declined from 2008 to This performance measure has been included in this discussion on level of service because blocked storm sewers may detrimentally impact the level of service provided to customers. Blocked storm sewers can be caused by lack of system maintenance, the condition of the storm sewers or misuse of the system by users. 31