DRAINAGE ASSET MANAGEMENT PLAN

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1 INDIGO SHIRE COUNCIL DRAINAGE ASSET MANAGEMENT PLAN Version 1.0 May 2012

2 Table of Contents 1. EXECUTIVE SUMMARY Purpose of the Plan Asset Description Levels of Service Future Demand Lifecycle Management Plan Financial Summary Asset Management Practices Monitoring and Improvement Programme INTRODUCTION Background Drainage Assets and Asset Hierarchy Stakeholders Goals and Objectives of Asset Management Plan Framework Core and Advanced Asset Management LEVELS OF SERVICE Customer Research and Expectations Strategic and Corporate Goals Legislative Requirements Current Levels of Service Desired Levels of Service FUTURE DEMAND Demand Forecast Changes in Technology Demand Management Plan LIFECYCLE MANAGEMENT PLAN Background Data Physical Parameters Asset Capacity/ Performance Asset Condition Asset Valuations Historical Data Risk Management Plan Risk Assessment...27 Drainage Asset Management Plan V1.0 Page 2

3 5.2.2 Insurance Routine Maintenance Plan Maintenance Plan Standards and Specifications Summary of Future Costs Renewal/ Replacement Plan Renewal Plan Standards and Specifications Summary of Future Costs Creation/Acquisition/Upgrade Plan Selection Criteria Standards and Specifications Summary of Future Costs Disposal Plan FINANCIAL SUMMARY Financial Statements and Projections Life Cycle Costs Funding Strategy Valuation Forecasts Key Assumptions Made in Financial Forecasts ASSET MANAGEMENT PRACTICES Accounting/Financial systems Asset Management Systems Information Flow Requirements and Processes Standards and Guidelines PLAN FOR IMPROVEMENT AND MONITORING Performance Measures Improvement Programme Monitoring and Review Procedures REFERENCES APPENDICES...44 Appendix A: Drainage Asset Register Appendix B: Drainage Networks by Township Indicative Appendix C: 10 Year Drainage Renewal Program DRAFT Appendix D: 10 Year Drainage New & Upgrade Program DRAFT Appendix E: 10 Year Drainage Disposal Program DRAFT Drainage Asset Management Plan V1.0 Page 3

4 Document Control Title: Drainage Asset Management Plan Rev Version Date Details Authorship Approved 1 Draft V1.0 Feb 2012 Council Briefing Mgr Assets General Manager Major Projects and Programs 2 Draft V1.1 March 2012 Council Meeting Mgr Assets Indigo Shire Council Draft approved and advertised for public submissions 3 V1.0 (Final) May 2012 Council Meeting Mgr Assets Indigo Shire Council Adopted May Drainage Asset Management Plan V1.0 Page 4

5 1. EXECUTIVE SUMMARY 1.1 Purpose of the Plan Stormwater drainage pipes, stormwater drainage pits, drainage inlets and outlets, open channels, storage basins, constructed wetlands, and associated structures are collectively referred to in this plan as drainage assets. Drainage assets form an integral part of the urban infrastructure network which is provided and maintained for by Indigo Shire Council on behalf of the community, businesses and visitors moving through the Shire. This plan provides the framework for the sustainable management of Council s drainage assets, in support of the Council Plan, Council s Asset Management Policy and Asset Management Strategy and regulatory requirements. The purpose of this Drainage Asset Management Plan is to: Acknowledge the important role drainage infrastructure plays within Indigo Shire s townships Provide a framework for the sustainable management of Indigo Shire s drainage in support of the Council Plan, Council s Asset Management Policy and Asset Management Strategy, and regulatory requirements Assist Indigo Shire in determining priorities for drainage maintenance, drainage renewal programs, upgrades to existing drainage, and construction of new drainage. This Drainage Asset Management Plan is structured along the lines recommended in the International Infrastructure Management Manual - Version 3.0, The plan borrows format, context and material from various other Council asset management plans, including Wodonga City Council s asset management plan template. The plan aims at providing a core level for Council s drainage asset management practices. For the purposes of community consultation and community input into the plan, the draft version of this plan was advertised and public submissions invited before the current version was finalised in May Asset Description This plan relates to Council owned drainage infrastructure. For the purposes of this plan drainage infrastructure refers to Council owned: Stormwater pipes and culverts Stormwater pits Stormwater inlets and outlets (headwalls) Open stormwater channels Stormwater storage basins - man-made retention/ detention basins including wetlands used for this purpose. Drainage infrastructure facilitates the movement of stormwater in order to mitigate flooding impacts on both public and private property/ infrastructure in urban areas. Council manages a piped urban drainage network in each of its townships with a combined township network length of over 60 km. Details of Council s drainage assets are shown in Table Drainage Asset Management Plan V1.0 Page 5

6 Table Drainage Assets Covered by this Plan Drainage Asset Quantity Replacement Value 2011 ($) Pipes 60,439 m 9,401,983 Pits 1,859 no. 2,567,951 Inlets/ Outlets 468 no. 321,706 Open Channels 1,658 m * n.a. Storage Basins: Retention Basins Wetlands 2 no. 3 no. (total 8 no. Ponds) * n.a. * n.a. TOTAL $12,291,640 * These assets do not require periodic renewal (only maintenance) and have not been assessed for replacement value 1.3 Levels of Service Level of service is the defined service quality for a particular activity or service area against which performance may be measured. This plan quantifies (1) community levels of service in the areas of quality, function, and safety; and (2) technical levels of service in the areas of Operations, Maintenance, Renewal and Upgrade. Council plans to operate and maintain the drainage network to maintain the current levels of service and aims to improve current performance to meet the defined performance targets outlined in Table Council s Major Projects and Programs unit is responsible for communication and consultation with the community and stakeholders for Council s drainage assets. Issues affecting the function or levels of service of drainage infrastructure are to be resolved, prioritised or programmed for by the Major Projects and Programs unit. 1.4 Future Demand The forecast demand for new and upgraded drainage infrastructure is significant over the next 10 years as: A number of residences and urban properties were inundated in high-intensity rainfall events in , pointing to the need for new and upgraded drainage in specific localities within urban townships Urban infill and new developments continue within Indigo townships, necessitating that drainage infrastructure be designed and built to meet current design standards i.e. piped network with capacity for 1 in 5 year storm event, with high flow path with capacity for 1 in 100 year storm event. To meet future demand this plan advocates that (1) existing under-capacity drainage infrastructure be upgraded over time to mitigate flooding to urban residences and property, and (2) new developments and subdivisions are checked to ensure their design has accurately defined appropriate catchment areas, with a piped network to cater for 1 in 5 year storm events and high flow paths to cater for 1 in 100 year storm events. 1.5 Lifecycle Management Plan Lifecycle management focuses on management options and strategies, and considers economic and physical consequences as part of an assets life cycle, from initial planning to disposal. This plan documents the available drainage asset information and the management plans covering the four key work activities necessary to manage the portfolio, these being: 1. Routine Maintenance Plan outlines maintenance processes and summarises future maintenance costs. The maintenance cost summary indicates annual expenditure of $50,000 plus a 5% per annum increment to allow for increasing maintenance of retention basins and wetlands associated with water sensitive urban design. Drainage Asset Management Plan V1.0 Page 6

7 2. Renewal/ Replacement Plan outlines renewal/ replacement processes and models future renewal costs. The renewal cost summary provides for a renewal demand expenditure of $235,000 total in the 5 years to to cater for a current back log of works, a nil spend in the following 5 years, followed by a $46,500 per annum spend in the next 10 years to Creation/ Acquisition/ Upgrade Plan outlines creation/ acquisition/ upgrade processes and forecasts future new and upgrade costs. The new and upgrade cost summary indicates an average annual requirement of $600,000 per annum for new and upgrade works in the coming 10 years. 4. Disposal Plan Generally drainage assets are demolished and/ or rendered in-serviceable when they are made redundant by drainage upgrade works. As such, there are no drainage assets identified for disposal in this plan. 1.6 Financial Summary This section of the plan contains a summary of the financial parameters provided in previous sections of the plan and a proposed funding/ expenditure strategy to cater for projected total asset demand costs over the areas of maintenance, renewal/ replacement, and new/ upgrade. The financial scenario presented in the plan provides for an expenditure generally profiled as follows between 2013 and 2032: $50,000 per annum plus 5% increment per annum for drainage maintenance works $35,000 per annum (average) for drainage renewal works $600,000 per annum (average) for new and upgrade drainage works in the next 10 years. This scenario gives an average drainage asset expenditure of $421,665 per annum over the projected 20 year period and includes operating, capital renewal and projected capital new expenditure. This average expenditure amount is 10% above Council s expenditure in of approximately $382,000. Modelled outcomes from this scenario show that the expenditure proposed will meet the projected drainage asset renewal requirements. These requirements are low in the short term as the relatively new drainage assets give a profile where short to medium term renewal requirements are low compared with growing requirements in the long term. Council s overall funding strategy is to be formulated and detailed as part of Council s 10 year financial plan. The Drainage Asset Management Plan outlines the quantum of funding necessary to address currently known capacity/ performance deficiencies and sustain Council s drainage infrastructure portfolio over the medium term. This financial summary can be readily incorporated into Council s 10 year long term financial plan as required. 1.7 Asset Management Practices Council currently uses PowerBudgets and Lynx software to manage its corporate financial systems. Council uses the Conquest asset management system software and the MapInfo GIS system for drainage asset management purposes. The Conquest system is used as a customer request and works order system for a range of assets including drainage, roads, bridges, buildings and pathways. The Moloneys modelling system is used by Council for long term financial forecasting purposes. Assumptions used in the Moloneys drainage renewal model are outlined in the plan. This model is also used in the annual submission of Council s renewal requirements to the MAV for state wide benchmarking purposes. 1.8 Monitoring and Improvement Programme The effectiveness of this Drainage Asset Management Plan may be measured largely by the degree to which the required renewal and new/ upgrade funding and funding strategies identified in this plan are incorporated into Council s long term financial plan and forward capital works program. The proposed actions to improve this plan include (1) Documenting asset management processes to ensure the periodic review and update of new and contributed drainage asset data, (2) Review of Council s drainage depreciation, including useful life and inventory, (3) Communication and acceptance of the plan and its links with Drainage Asset Management Plan V1.0 Page 7

8 other strategic Council documents, both within Council and the wider community, (4) Undertaking drainage master planning for Beechworth and Wahgunyah, and consideration of further drainage investigations/ master planning for Chiltern and Rutherglen, (5) Review and update of the plan and capital expenditure requirements/ budgets when performance/ capacity issues are identified from planned and future drainage investigations, (6) Adopt consistent annually budgeted drainage maintenance, renewal and new/ upgrade expenditure over the long term, in conjunction with the requirements identified in this plan and the Long Term Financial Plan, (7) Validate drainage maintenance and renewal needs and budget appropriately, (8) Review forward programs for drainage renewal, new and upgrade, (9) Provide separate budget coding to identify urban drainage and rural drainage maintenance works budgets and expenditure. The Drainage Asset Management Plan will be subject to continuous improvement with revision and updating of the plan required on a four yearly basis with this review to occur within 2 years of each Council election. Drainage Asset Management Plan V1.0 Page 8

9 2. INTRODUCTION 2.1 Background Indigo Shire was formed in 1995 as a result of the amalgamation of Beechworth, Yackandandah, Chiltern and Rutherglen Shires (or parts thereof). This process saw Indigo Shire inherit the stormwater drainage networks associated with each of these former Councils. An inventory of Council s drainage assets was collated in 2004 on the Conquest asset management system database. Council s MapInfo GIS system has been formulated to include a stormwater layer reflecting the mapped information contained in the Conquest database. The database has been updated as required to incorporate newly built drainage infrastructure from land development and capital works projects. The formulation of this Drainage Asset Management Plan has built upon extensive fieldwork and data recollection in 2011 to verify and document Indigo Shire s drainage asset inventory and estimated age. This Drainage Asset Management Plan is to be treated as a living document and is subject to continuous improvement and periodic review on a maximum four yearly basis. The plan has been primarily formulated to document: the drainage assets Council owns what funding is required to maintain drainage infrastructure at current levels of service the on-going requirement/ demand for drainage upgrades and new drainage, and how drainage infrastructure is best managed over the long term. This plan is one of a suite of asset management plans that Indigo is developing as part of its commitment to achieving a core level of asset management as outlined in its Asset Management Strategy Version 1.1 Oct Asset management plans are a vital component in Indigo s strategic planning process. They form the basis of short, medium and long term planning for capital, operations and maintenance budgets, and link to key corporate strategies including the following documents: Indigo Shire Council Plan Indigo Shire s Asset Management Policy and Asset Management Strategy Indigo Shire s Strategic Long Term 2030 Plan and Long Term Financial Plan (currently in progress) Annual budget Indigo Shire s Risk Register Drainage Assets and Asset Hierarchy The primary rationale for Council owning and managing drainage infrastructure is to mitigate the flooding of residential property and community infrastructure, and to facilitate the movement of road, pedestrian and bicycle traffic both within the Shire and to adjoining areas. The Drainage Asset Management Plan has been prepared to include the drainage infrastructure that Council owns. The plan does not include consideration of drainage infrastructure under the responsibility of other Government authorities (such as VicRoads), and drainage infrastructure owned by others within the Shire. This plan covers the drainage infrastructure assets outlined in Table The replacement values shown are based on 2011 dollar values. Drainage Asset Management Plan V1.0 Page 9

10 Table Drainage Assets Covered by this Plan Drainage Asset Quantity Replacement Value 2011 ($) Pipes 60,439 m 9,401,983 Pits 1,859 no. 2,567,951 Inlets/ Outlets 468 no. 321,706 Open Channels 1,658 m * n.a. Storage Basins: Retention Basins Wetlands 2 no. 3 no. (total 8 no. Ponds) * n.a. * n.a. TOTAL $12,291,640 * These assets do not require periodic renewal (only maintenance) and have not been assessed for replacement value Drainage infrastructure is further classified and managed in accordance with an asset hierarchy to provide a framework to assist in the prioritisation of capital and maintenance works. The factors of drainage function and strategic importance in flood mitigation were considered in the development of a simple drainage hierarchy. Higher ranked drainage infrastructure is considered to be of greater significance and therefore attract higher levels of service to maintain them in the appropriate condition. The proposed hierarchy ratings to be applied to drainage assets are described in Table Table Drainage Hierarchy Classification Hierarchy Classification Drainage Description Level 1 (Highest Priority) Main trunk drainage systems and items - inclusive of pipes, pits, inlets/ outlets, open channels and storage basins Drainage systems/ items that are critical to mitigate flooding of residences Level 2 Major collector drainage systems/ items inclusive of pipes, pits, inlets/ outlets, open channels and storage basins Drainage systems/ items that are critical to mitigate flooding of property Level 3 (Lowest Priority) Minor collector drainage systems/ items inclusive of pipes, pits, inlets/ outlets, open channels and storage basins Drainage systems/ items that are non-critical to mitigate flooding of property Stakeholders A stakeholder represents any groups or individuals having an interest in the service provided by Council s drainage infrastructure. This plan is a base document for all stakeholders to provide details of Council s management strategy for drainage assets. This document is open to input and comment by all stakeholders, with the document scheduled for periodic review on a four yearly basis. The relevant key stakeholders to the Drainage Asset Management Plan are shown in Table Table Key Stakeholders in this Plan Stakeholder Council Residents and Local Community Commercial and Business enterprises Developers Emergency Services and Government authorities (North East Catchment Management Authority, VicRoads) Insurers Utility Authorities, Contractors, Suppliers Visitors to the Shire Drainage Asset Management Plan V1.0 Page 10

11 2.2 Goals and Objectives of Asset Management Local Government exists primarily to provide core services to meet the needs of its community. The Local Government Act 1989 Sec 3C(1) states: The primary objective of a Council is to endeavour to achieve the best outcomes for the local community having regard to the long term and cumulative effects of decisions. Section 3E(1) of the Act prescribes several Council functions, the ones more relevant to asset management being: (b) Planning for and providing services and facilities for the local community; and (c) Providing and maintaining community infrastructure in the municipal district. The objectives and functions set out in the Local Government Act 1989 align with the key principles of asset management. Assets exist essentially to support the services provided by Council. In view of this, asset management planning must be linked to the service planning that supports Council s vision and objectives. Council s vision is: INDIGO: A great place to live, work and visit. Council s Mission statement is: To support and develop a sustainable, thriving and resilient community through leadership and partnerships. The Council Plan provides the following objective supporting asset management: Objective: 2.2 Improve the quality and maximise the long-term sustainability of the built environment: Ensure that Council s asset management practices are clearly defined and in accordance with a strong Asset Management Policy and Strategy. Council recognises that sound asset management is essential to the quality and sustainability of the built environment. Indigo s Asset Management Policy and Asset Management Strategy reinforces Council's commitment to manage and care for its assets in a sustainable way and to assist in the achievement of its vision and meet the service and infrastructure needs of the community. This plan is intended to outline how Council will support its objective to plan, develop and maintain a network of sustainable infrastructure. The purpose of the plan is to: improve the understanding of levels of service identify long term life cycle costs associated with (1) provision of current levels of service, and (2) provision of an improved level of service addressing asset capacity/ performance deficiencies better understand and forecast asset related costs and management options improve decision making based on costs and benefits provide the ability to balance out forward funding demands justify forward works programs and expenditure manage risk associated with asset failures provide a framework to continuously improve asset management practices. Drainage Asset Management Plan V1.0 Page 11

12 2.3 Plan Framework Table outlines the framework and key elements of this asset management plan. Table Asset Management Plan Structure Section Outline 1. Executive Summary Summary of the key details of the plan. 2. Introduction Background, purpose and scope of the plan. 3. Levels of Service Define factors relevant to determining the levels of service. Identify current and target levels of service. 4. Future Demand Identifies the factors affecting future demand and outlines the demand management plan. 5. Lifecycle Management Plan Provides asset information. Identifies maintenance and capital development needs. Identifies management strategies and work programs. 6. Financial Summary Identifies long term financial forecasts. Notes key assumptions and financial policies/ strategies. 7. Asset Management Practices 8. Plan for Improvement and Monitoring Identifies asset and financial management systems, processes and standards. Describes current asset management practice underpinning the plan. Identifies enhancements scheduled to improve asset management planning. 2.4 Core and Advanced Asset Management Core asset management uses an asset register, maintenance management systems, simple condition and performance monitoring, and defined levels of service, in order to establish alternative management options. Advanced asset management uses prediction modelling, risk management, and optimised renewal decision making techniques to evaluate options and identify the optimum long term plan to deliver a particular level of service. This Drainage Asset Management Plan has been prepared as a core asset management plan in accordance with the International Infrastructure Management Manual (2006) and the National Asset Management Assessment Framework (2010). The levels of service outlined in this plan are intended to outline the existing levels of service that Council provides to the community. Based on these levels and known asset capacity/ performance deficiencies, the plan outlines how Council may best manage its drainage infrastructure into the future. Advanced asset management requires a substantial level of community consultation to optimise the balance between service level and the cost the community is prepared to pay. It is envisaged that future revisions of this asset management plan may move towards advanced asset management, using a bottom up approach for gathering asset and service level information to support the optimisation of the long term financial plan. Drainage Asset Management Plan V1.0 Page 12

13 3. LEVELS OF SERVICE 3.1 Customer Research and Expectations Council participates in the Victorian Local Government Customer Satisfaction survey. This telephone survey polls a sample of residents on their level of satisfaction with Council s services. One of the responsibility areas surveyed is Local Roads and Footpaths. This area includes the stormwater drainage associated with roads. Recent customer satisfaction survey results in the area of Local Roads and Footpaths are outlined in Table Table Victorian Community Satisfaction Survey Levels and Comparison of Overall Result Performance Measure Indigo Shire Satisfaction Score (Indexed mean) Median Result for Small Council Group (Vic.) Median Result for All Councils (Vic.) Local Roads and Footpaths Indigo Overall Although drainage infrastructure satisfaction is not specifically measured in this survey, the function of drainage is integral to Council s local road and footpath network. In the drainage related area, the 2011 survey results noted the reason that the Local Roads and Footpaths need improvement as: More/ better roadside drains and culverts: 18% and ranked as 5 th importance out of 10 items Quicker response for repairs to roads, footpaths, or gutters: 13% and ranked as 9 th importance out of 10 items More frequent maintenance/ cleaning of roadside drains and culverts: 12% and ranked as 10 th importance out of 10 items. Council has recently undertaken its own community surveys to mirror the questions asked in the Victorian wide survey. These surveys were first undertaken in early 2009 in association with community consultation for the Council Plan. The 2011 Community Survey closed in March 2011 with feedback received then incorporated into the Council Plan update. The Council community survey results for 2011 showed 25% of respondents providing a good or excellent response for Local Roads and Footpaths, with 32% indicating adequate and the remaining 43% indicating needs some improvement, needs a lot of improvement, or don t know. The 2011 survey indicates that satisfaction has declined since 2010 with some of the additional comments touching on the late early 2011 flooding and damage caused during the storm events of this time. Overall, customer research using these satisfaction surveys indicate that the community have a medium level of satisfaction with Local Roads and Footpaths, with Indigo Shire s satisfaction in this area 4% below the median result for the Victorian wide Small Council Group. An indication of customer satisfaction can also be obtained from customer requests recorded in Council s Conquest system. A record of the number of requests relating to roads (inclusive of drainage requests) is outlined in Table Drainage Asset Management Plan V1.0 Page 13

14 Table Road Requests (Inclusive of Drainage) and Completion Year of Road Request on Conquest Av. Monthly Requests Total No. of Requests Requests Completed in Timeframe Given % % * 1072* 903* 84% 1 st Qtr * 338* 293* 87% TOTAL Change in the reporting of requests after 2008, resulting in greater number of requests recorded in subsequent years. * Significant increase in number of requests in Nov 2010 to Feb 2011 as a result of high intensity rain and flooding events. In general, drainage infrastructure is brought to the community s attention when systems fail or are found to be inadequate, and there is a need for maintenance, upgrade or repair. The above data reflects the large number of drainage related issues generated by the late 2010 early 2011 storm events. The community s feedback to Council regarding drainage infrastructure is undertaken in various ways. In addition to satisfaction surveys and road/ pathway user requests to Council, community feedback is received through Councillors; Council unit and officer liaison with the community, businesses and utility services; and Council s annual budget process. The late 2010 early 2011 flooding events also saw specific community forums at Chiltern and Beechworth where residents met individually with the Shire s engineers to collate the flooding issues experienced at this time for prioritisation of forward flood mitigation works. In relation to the future direction of customer research, community input into quantifying and prioritising stormwater drainage issues will be required as major storm events happen moving forward, particularly in relation to flooding affecting houses and property. These inputs must then be considered in relation to the community s willingness to fund new/ upgraded drainage infrastructure within the context of limited Council revenue. 3.2 Strategic and Corporate Goals The maintenance, operation and development of drainage assets are guided by Council s mission statement: To support and develop a sustainable, thriving and resilient community through leadership and partnerships. And the Council Plan which provides the following objectives under Managing our Built Environment : Objective 2.2: Improve the quality and maximise the long-term sustainability of the built environment: Ensure that Council s asset management practices are clearly defined and in accordance with a strong Asset Management Policy and Strategy. Objective 2.3: Manage and maintain to a high standard assets critical to our economic prosperity: Identify critical assets and prioritise actions. Objective 2.9: Ensure flood management structures and strategies minimise flooding to our residents properties: Identify flood sites and remedial works. Specific actions of the Council Plan under these objectives include: o Develop a strategy that defines our level of service for each asset class. o Design and implement remedial drainage priorities in line with the adopted Asset Management Plan. o Update stormwater master plans including consideration of any potential wetland developments. Other related sections of the Council plan that affect the management of drainage assets include: Objective 2.1 Protect the Shire s heritage assets. % Drainage Asset Management Plan V1.0 Page 14

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