City of Cambridge Asset Management System Needs Study

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1 REPORT FOR: City of Cambridge Asset Management System Needs Study Transportation & Public Works Department City of Cambridge Corporation of the City of Cambridge Cambridge Place 73 Water Street North P.O. Box 669 Cambridge ON N1R 5W8 Final Version: January 31, 2005 PREPARED BY:

2 Copyright : Applied GeoLogics Inc., and Earth Tech Canada Inc. This document contains information proprietary to Applied GeoLogics Inc. and/or Earth Tech Canada Inc., and has been created for the express use of the City of Cambridge. Dissemination of this document or any part thereof to any third party requires the written consent of either Applied GeoLogics Inc. or Earth Tech Canada Inc. All trademarks referenced in this document belong to their licensed and/or registered owners. Possession of this document does not express license, or imply rights o sell, design, manufacture or have manufactured products from this information. i

3 Table of Contents TABLE OF CONTENTS EXECUTIVE SUMMARY... VII ACKNOWLEDGEMENTS...XIII 1. INTRODUCTION GOVERNANCE AND REGULATORY NEEDS Minimum Maintenance Standards for Municipal Highways (Ontario Regulation 239/02) The Municipal Performance Measurement Program (MPMP) Sustainable Water and Sewage Systems Act, 2001 (commonly known as Bill 175 ) Safe Drinking Water Act, 2002 (commonly known as Bill 195 )...5 Drinking Water Systems Regulation 170/ AS-IS ASSESSMENT ORGANIZATION RESOURCE USAGE CHARACTERIZATION OF CURRENT ASSET INFRASTRUCTURE Road/Right-of-Way Network Water Distribution Network Sanitary Sewer Network Storm Water Network IMPLEMENTED TECHNOLOGY Systems Environment Network/OS Databases Workstations Mobile Computing Asset Management Related Systems Asset Management: Asset Inventory Management System Asset Management: AVL (Automated Vehicle Location) Asset Management: CAD (Computer Aided Dispatch) Asset Management: Collision database Asset Management: Concrete Program Management Asset Management: Easement - Amanda Asset Management: Fleet Management Asset Management: Public Works Complaint Systems PW Complaint Systems (MS Access) Asset Management: PW Complaint Systems (Amanda) Asset Management: Maintenance History Systems Maintenance History (MS Access) Maintenance History System (Amanda) Asset Management: Weather Design/Analysis/Modelling FlowMaster MIDUSS TRF i

4 Table of Contents Financial Systems Finance Payroll & Equipment Usage Budgeting Taxation System Mapping: Geographic Information System GIS Data Structure Interoperability Metadata Approach GIS Installed Base GIS Application Programmatic Interface (API) GIS Internet Enabled Solutions AMS related functionality Accessibility of GIS Data GIS-Centric Application Development User s Acceptance of GIS applications Summary Assessment of Current GIS CURRENT ASSET MANAGEMENT RELATED PROCEDURES Work Management Asset Condition/Performance Assessment & Analysis Pavements Sidewalks Sanitary CCTV Mainline Inspections Storm Water Water Distribution Hydrant Inspections Leak Inspections Watermain Swabbing Program APPLICATION INTEGRATION Existing GIS Integration with other City applications Finance and Payroll Integration ASSET RELATED DATA SOURCES As-Built Drawings Pavements Road Allowance Street Lights Signage Bridges Waste Water Sewer History Database Operations Records Water Water Master Drawing Project Maps Service Box Measurements Storm Water Storm Sewer Master Drawings Retention Pond Inventory ii

5 Table of Contents Retention Pond GIS INFORMATION PRODUCTS AMS CONCEPT THE TOTAL ASSET MANAGEMENT PROCESS Strategic Planning Tactical Planning Operational Planning LIFECYCLE ASSET MANAGEMENT BUSINESS FUNCTIONS Asset Planning Asset Design/Acquisition Financial Management...51 Operations & Maintenance Condition and Performance Monitoring Asset Rehabilitation/Renewal CONCEPT FOR ASSET MANAGEMENT AMS TO-BE REQUIREMENTS TO-BE ORGANIZATION Asset Management Resource Requirements Analysis Estimate of Asset Management Resource Requirements based on Current Best Practices Estimate of Asset Management Resource Requirements based on Comparative Analysis Conclusions of Asset Management Resource Requirements Analysis Review of the Existing Organization Options for the To-Be Organization Alternative I: New Division Alternative II (a): New Functional Group c/w In-House Data Management Alternative II (b): New Functional Group with External Data Management Alternative III: Embed Asset Management into Existing Functional Group: Key AMS Positions Director of Asset Management Services Manager of Asset Management Services Data Management Technician (Existing) Surface Assets Technician Sub-Surface Assets Technician Maintenance Management Analyst Infrastructure Engineer Impact on Technology Services TO-BE AMS FRAMEWORK Asset Inventory Data management Service Request/Complaint Management Road Allowance Permit Management Work/Maintenance Management Current Condition Assessment Predictive Modelling Treatment Analysis Optimized Priority Programming Long Term Budget Planning Budget Tracking, Analysis and Management System...70 iii

6 Table of Contents Test/Inspection Management Mobile Field Applications Automated Vehicle Location (AVL)...70 Drawing Management Geographic Information System (GIS) Interfaces and Integration Database Considerations User/System Interaction GENERAL AMS CONSIDERATIONS Data Management Presentation Internet System Customization MOBILE COMPUTING Mobile Software Features Secure Data Access Handwriting Recognition Digital Imagery Capture Free hand Sketching Mobile Applications Field Inventory and Condition Inspection Mapping, Drawings and Asset Location Work Management Mobile Hardware Form Factor Battery Life Durability Wireless Connectivity Wireless Communication Technology Mobile Operating Systems GEOGRAPHIC INFORMATION (MAPPING) SYSTEM Application Programmatic Interface (API) Spatially Enabled RDBMS...83 Spatial SQL (Structured Query Language) Tools for Spatial Analysis CADD (Computer Aided Design and Drafting) Advanced Network Modeling D Storage and Analysis Projection Conversion On-the-fly Labelling Options Internet-based GIS Solutions Municipal References Integration of geospatial products Potential Mapping Utilization ASSET TYPES STANDARDS Data Standards Asset Database standards Metadata standards Interoperability Standards (OGC Compliance)...90 iv

7 Table of Contents 4.8. REPORT GENERATION NEEDS Report Categories Standard System Reports Regulatory Reports Ad-hoc Reports Ad-hoc Reporting Needs Report Development Environment Report Application Environment E-DRAWING SPECIFICATION ASSET CONDITION/PERFORMANCE ASSESSMENT SUMMARY OF RECOMMENDATIONS AMS IMPLEMENTATION PLAN & COST ESTIMATES THE IMPLEMENTATION PLAN IMPLEMENTATION COST ESTIMATES APPENDIX A: Asset Management System Functional Requirements. 119 APPENDIX B: Proposed e-drawing Submission Standard Specification. 139 APPENDIX C: Examples of Current Asset Management Related Reports v

8 Table of Contents Page Intentionally Blank vi

9 Executive Summary EXECUTIVE SUMMARY BACKGROUND This report presents the findings of the Asset Management System (AMS) Needs Assessment Study for the City of Cambridge. The primary goal of this study was to provide the City with a foundation for the procurement and implementation of a comprehensive AMS that will enhance and support the City s ability to collect, analyze and disseminate information regarding its infrastructure assets. The City of Cambridge is responsible for infrastructure assets valued at approximately $600,000,000, including the Road/Right-of- Way Network, the Water Distribution Network, the Sanitary Sewer Network and the Storm Water Network. The AMS will provide an integrated information system for the management of this municipal infrastructure. For the purposes of this study, the Earth Tech / Applied GeoLogics Team (ETAG) focused primarily on the Public Works and Engineering Divisions of the Transportation and Public Works Department. These groups have the majority of responsibilities for the operation, maintenance and renewal of the water, waste water, storm water and roadway assets. In addition, certain aspects of the Technology Services Division (TSD) of Corporate Services Department were included as TSD provides key AMS related support regarding systems technology and graphics processing. The study provides: 1. An As-Is assessment of current City s asset management practices, systems and data, 2. A conceptual overview of the AMS, 3. A To-Be AMS analysis, 4. Recommendations, and 5. An AMS implementation plan and cost estimate. ASSET MANAGEMENT CONCEPT A successful AMS solution is a union of hardware and software technology, business processes and data that together integrate the knowledge-base of an organization with the objectives of reducing risk and optimizing infrastructure reinvestment. An AMS supports an organization s challenge to achieve a defined level of service, in the most cost-effective manner through the creation, acquisition, maintenance, operation, rehabilitation and retirement of assets. An AMS requires the implementation of appropriate management principles and practices that maximize the effectiveness and utilization of the solution. In addition, an AMS provides a process for continuous improvement in an organization through performance measurement of asset related operations and the establishment of suitable performance metrics. KEY OBSERVATIONS RESOURCE USAGE A key requirement for a successful AMS implementation is the effective utilization of resources. Based on staff interviews and a review of job descriptions, it is evident that very few staff positions within the existing organization have directly related asset management responsibilities and most of these positions are within the Construction Engineering Group of the Engineering Division of Transportation and Public Works. vii

10 Executive Summary The following key observations were made by City staff during the interview process: Service Level agreements do not exist between the Transportation and Public Works Department and the Technology Services Division of Corporate Services for the performance of services. There is currently a significant backlog of AMS related drawings requiring Technical Services processing and the timeliness of drafting and applications support services is a major concern of staff. Such drawings are part of the core asset management business processes and as such should be better managed either through a comprehensive Service Level Agreement or by moving these business processes under the direct authority of the Engineering Services Division. There is a need to have dedicated human resources for spatial/tabular infrastructure asset related data maintenance to help maintain the asset data at as current a level as is possible. The removal of one managerial level in the Public Works (Operations) Division in the early 90 s has resulted in a shift of management style from proactive to reactive. Asset related management processes have not been a priority within the Department, mainly due to lack of staff. Compared to other municipalities of similar size, the Transportation and Public Works Department does a disproportional amount of in-house engineering design, construction supervision and construction inspection activities. This is not unusual for municipalities where out-sourcing consulting and construction services are either not available or are not cost effective. However this is not the case, given Cambridge s geographical location within one of Canada s largest urban regions where municipal engineering and construction services are abundantly available at competitive prices. The City should assess whether or not these can be considered core services. For example, is the City the only one who can provide these services and are they being performed cost effectively? Within the Engineering Services Division, there are various data management processes that are not being adequately performed mainly due to lack of staff. There is a need to have dedicated resources for the maintenance and updating of all infrastructure tabular data. This is currently considered a part-time job. There is also a need for better coordination between spatial and tabular updates on the infrastructure data. Similar to the data management business processes, the condition assessment programs such as televising of sanitary sewers and watermain leak detection surveys have been scaled back mainly due to other, more urgent work priorities. A lack of technology has further compounded the Division s ability to track key operational and maintenance activities and to be able to prepare more comprehensive preventive maintenance/rehabilitation programs. It is generally assumed that the T&PW Department is complying with current requirements; however, the inability of staff to perform preventive maintenance activities such as regular condition analysis including sewer televising and watermain leak detection due to more urgent work would indicate that the department could easily fall out of compliance with upcoming more stringent legislation. viii

11 Executive Summary EXISTING TECHNOLOGY The City for the most part has implemented a state-of-the-art systems environment based on standard industry-recognized technologies for database management, networking, desktop hardware and communications. However, this approach needs to also be applied for the acquisition of software applications. Typically applications appear to have been implemented as point solutions to meet individual needs rather than taking a more integrated enterprise approach. There has been a tendency by the City to either develop in-house applications or to acquire systems from smaller, less-mainstream vendors. Many of these applications have received only moderate acceptance from the users. The point solution approach has led to the evolution throughout the organization of many independent data silos that meet a specific need at the expense of data duplication. The City does have an extensive asset related data set; however, it is disorganized and is not readily accessible to many of the personnel that should derive benefit from this information. An example of this is the City s library of as-built and construction drawings which need to be digitized and made available to staff on-line. From a pure asset management perspective, the City has a number of applications that are related to asset management, but virtually no core asset management or engineering applications are available. The City s utilization of Web, Internet and Mobile technologies is lagging, with little to show for these key technological advances. KEY RECOMMENDATIONS ORGANIZATIONAL Although the current organization already has the mandate to perform many asset management business processes, it is clear that it is not currently performing these duties in an effective manner, primarily due to a lack of sufficient staff and conflicts with other work priorities. To ensure more accountability, consideration must be given to the creation of a new Asset Management Group. Towards this end various options to accommodate Cambridge s immediate and long term asset management needs were examined using the following criteria: Accountability: All staff must be accountable for their actions. There must be a well defined reporting structure with direct lines of communication from top management to the field staff to ensure everyone in the organization has a clear understanding of their duties and responsibilities. Decision making must be driven down to the lowest practical level. Achieves Asset Management Objectives: Creating a new division or group within the existing organization can be very disruptive to staff moral and can lead to labour disputes if not properly implemented. The goal is to introduce the necessary resources into the existing organization in a manner that will be least disruptive to existing staff while at the same time ensure that the asset management objectives can be achieved. Cost: Although not the primary consideration, the financial impact of each option was considered. Two approaches were used to develop resource estimates for the performance of what can be considered standard asset management practices. The first approach involved a detailed break down of resource requirements for each asset management practice using known benchmarking parameters and assumptions on productivity levels. The second was a comparative analysis using interviews with various municipalities to determine typical levels of asset management related resources. Both approaches concluded a net asset management resource need of 3 FTE s (Full Time Equivalents). This analysis is in line with conclusions drawn from interviews with City of Cambridge staff and identified a need for a change in the organizational structure of the department. In addition to this study the City is performing an Operations Audit which will provide additional information on the organizational issue. This study has identified four alternative organizational structures/ models. Each model has a series of pros and cons which, when taken in the ix

12 Executive Summary context of the Operations Audit, may serve the City s needs. The preferred option, therefore, will be determined by the City taking into consideration factors identified in both studies. In addition to the T&PW resource requirements, it is expected that there will be a requirement for approximately one additional FTE resource within Technology Services regarding: 1. Provision and maintenance of server and networking technology to support the asset management data storage and user/application access. 2. Technical support for the database management system and other enabling technologies for data maintenance and analysis. 3. Support for AMS integration with Enterprise Systems. 4. Provision and support of core computer hardware technology such as work stations, notebooks, PDAs and wireless networking. TECHNICAL The following are the primary technical recommendations generated by the study. 1. Applications a. Implement thin-client, browser based solutions wherever possible to minimize implementation and maintenance cost and effort. b. Enhance all applications with mapping/gis technology. c. Implement a dedicated Maintenance/Work Management System including customer service, work order management, maintenance history and lifecycle costing. d. Implement an upgraded Asset Inventory Management System, fully integrated with Maintenance/Work Management. e. Implement a Road Allowance Permit Management System. f. Implement a formalized Test/Inspection system supporting Road, Water Quality, Sanitary, Storm and Water Network Condition. g. Implement various Mobile Field applications for the support of Maintenance Management and Asset Management. h. Implement an Asset Current Condition Analysis System. i. Implement an Asset Predictive Modelling, Treatment Analysis and Short-term Optimized Priority Programming System j. Implement a Long Term Capital Budget Planning System. k. Implement a Budget Tracking, Analysis and Management System. l. Implement a Drawing/Document Management System. m. Set-up the AVL to use the Region s radio network rather than the current more costly cellular approach. n. Set-up the AVL on the City s servers to bring the data in-house and make it more available to other applications. o. Acquire Design/Modelling and Analysis applications for Water, Sanitary and Storm networks to be used by City Staff. 2. Integration a. Adopt standard database structures where possible. b. Implement formalized and automated metadata standards. c. Integrate Maintenance Management System with Finance, Payroll and Human Resources. d. Integrate GIS with Maintenance Management and all Asset Management Modules including Drawing Management. e. Integrate AVL with Maintenance Management to assist in capturing activity/time/asset x

13 Executive Summary data. f. Integrate the Collision Data Application with the AMS. g. Integrate Fleet Management System with the AMS. h. Integrate the Easement Management System with the AMS. i. Integrate the Concrete Management System with the AMS. j. Integrate the Street Light Database into the AMS. 3. Data a. Implement e-drawing submission standards to streamline and provide timely updates of asset data in the AMS, GIS and associated applications. b. Extend Asset Sanitary, Storm, Water and Road data QA/QC program from Pilot Study to full network. c. Digitize the Water distribution network. d. Implement a formalized CCTV survey and condition analysis program for Sanitary and Storm. e. Implement a formalized Pavement Condition survey and condition analysis program for Roads. f. Implement a formalized Condition survey and condition analysis program for Sidewalks and Curbs. g. Implement a hydraulic performance analysis program for Sanitary, Storm and Water. h. Survey Right-of-way assets including signs, barriers, street lights, etc. i. Scan all hardcopy as-built drawings and Service Box Cards (hardcopy and microfiche). 4. Technical Studies a. Perform a GIS Strategic Planning Study to define the best solution that will meet the user s needs and expectations. b. Develop detailed system integration technology blueprint. c. Develop formalized business processes for the maintenance of all Spatial and Tabular Asset data sets. d. Perform integrated hydraulic modelling of sanitary and storm sewer system capacity. e. Perform integrated hydraulic and quality modelling for the water system. AMS IMPLEMENTATION BLUE PRINT Implementing an Asset Management System is a major step towards more effective management of Cambridge s $600M investment in water, sewer and road infrastructure A $1.7M, three-stage, core implementation plan spanning six (6) years has been developed which reflects a balance between business, technical needs and fiscal constraints. The following is a brief description of the three stages: Stage 1: Service Request, Activity-based Work Management, Asset Inventory and Asset Condition Analysis. Implementation of core business applications including: Service Request Management, Work Management (Activity-based implementation), Asset Inventory Management, and Asset Condition Analysis. Attribute data acquisition for: Sanitary, Storm, Water, Pavement, Signs, Bridge, and xi

14 Executive Summary Sidewalk. Condition data capture for: Pavement, Sign, Bridge and Sidewalk Stage 2: Asset-based Work Management, Mobile Apps and Long Term Capital Budgeting Implementation of Work Management (Asset-based implementation), Mobile applications, and Long Term Capital Budget Planning. Condition/Performance data capture for: Sanitary, Water and Storm. Stage 3: Capacity Modelling Implementation of Capacity Models to be run and maintained by City staff. Water Hydraulic Modelling, Sanitary Hydraulic Modelling, Water & Sanitary Demand Forecasting, and Storm Water Modelling, and Develop an e-drawing submission standard. SUMMARY The AMS Needs Study identifies Cambridge s information, staffing and technology asset management requirements providing an implementation blue print for moving forward on developing a comprehensive AMS that will allow Cambridge to more effectively meet its infrastructure maintenance and capital reinvestment needs. The AMS will also provide invaluable support to any future infrastructure initiatives under the new Ministry of Public Infrastructure Renewal s (MPIR s) Infrastructure Planning, Financing and Procurement Framework for Ontario s Public Sector. xii

15 Executive Summary ACKNOWLEDGEMENTS The authors wish to acknowledge the important input provided by the following individuals to this study. Mark Adam Paul Adams Bill Chesney Jim Currie Phil Dechene Terry Dooling Steven Fairweather Frank Gowman Brad Hamilton Paul Holbrooke Barry Howlett Brian Jones Ed Kovacs David Law Jim Lawson Donald Linders Jim Linders David Maidment Anna Mckee Ron Nero Shannon Noonan Kirit Patel Angelo Pellegrino Alain Pinard Dennis Plants Wendy Puim Giancarlo Radicioni Lisa Roberts John Sobura April Souwand Michael Tout Rosita Tse Jim Walsworth Kathleen Wellsman Dengru Wu Transportation & Public Works: Public Works Corporate Services: Technology Services Fire Corporate Services: Technology Services Transportation & Public Works: Public Works Transportation & Public Works: Public Works Corporate Services: Financial Services Corporate Services: Administrative Services Transportation & Public Works: Engineering Transportation & Public Works: Public Works Transportation & Public Works: Public Works Transportation & Public Works: Public Works Transportation & Public Works Transportation & Public Works: Engineering Transportation & Public Works: Survey Georef Inc. Georef Inc. Transportation & Public Works: Traffic & Parking Transportation & Public Works: Traffic & Parking Transportation & Public Works: Survey Transportation & Public Works: Traffic & Parking Transportation & Public Works: Engineering Corporate Services: Technology Services Planning Services: Policy Planning Transportation & Public Works: Public Works Transportation & Public Works: Public Works Planning Services: Planning Operations Grey Island Systems Corporate Services: Technology Services Planning Services: Policy Planning Transportation & Public Works: Public Works Corporate Services: Financial Services Transportation & Public Works: Engineering Fire Corporate Services: Technology Services xiii

16 Executive Summary Page Intentionally Blank xiv

17 Introduction 1. INTRODUCTION The City of Cambridge, along with many other municipalities throughout North America, is being challenged to maintain or improve Levels Of Service (LOS) to the Public under the constraint of limited program funding levels. The City has invested heavily in new infrastructure over the past century and also has accumulated significant rehabilitation and replacement cost requirements associated with the existing infrastructure. Well-planned and efficient proactive management is essential to maintain these assets in a state of good repair. The need to maximize the benefits of a comprehensive infrastructure preservation program requires that Cambridge move forward with an advanced asset management system. The need for an Asset Management System (AMS) is driven by the business requirements to manage the overall asset life cycle cost, to create a sharable, knowledge base about the City s assets, to maximize the return on the capital invested, and to meet regulatory requirements such as Bill 175 and Regulation 239/02. Sustaining the life of Cambridge s road network, sanitary sewer network, storm water network and water distribution system is essential to the well being of the community. This can only be accomplished through cost-effective rehabilitative, preventative and corrective maintenance actions for each asset. A detailed Asset Management plan that will ensure the sustainability of those systems must be developed. This plan must consider the condition and performance for each individual asset or group of assets and be able to forecast operating, and capital requirements over a multi-year period. Watermains, sanitary and combined sewers, storm water sewers, roadways and shallow utilities all share the same municipal right-of-way and there is a need for a coordinated program which considers the characteristics, needs, performance and condition of all infrastructure systems within the right-of-way in an integrated manner. Knowledge of Existing Assets is critical to a successful Asset Management Program. Often, municipalities cannot answer the simple questions: What is the condition of an asset? How is the asset performing? Are we maintaining an adequate Level of Service for our customers? What is the most cost-effective rehabilitation solution for an asset? Where and when should we invest in rehabilitation versus reconstruction? Where is the greatest need for rehabilitation? Is the rehabilitation program funding sufficient to sustain the system and maximize its life? What is the optimum level of program funding required to maintain the sustainability of our assets? These questions can only be answered through the development of a sustainable Asset Management System (AMS). An AMS manages the infrastructure inventory data and analyzes the condition and performance parameters providing key information for the capital and maintenance strategic planning processes. Many public agencies, as the first step towards good asset stewardship, are starting to manage their assets using some form of asset management system. One of the fundamental requirements for a successful AMS implementation is that it be based upon good business practices and that it effectively integrates or incorporates the established management systems/practices and engineering analysis. Cost effective, proactive management of the infrastructure assets is achievable through the development of information management systems, which can be leveraged by appropriate technologies to support key business processes. A key component of any AMS is data. The City of Cambridge functions on information: information about services, information about assets and information about information. This information must be based on accurate data about the infrastructure assets which can be as valuable as the water, sewer and road assets themselves. Although Cambridge has made substantial investments in asset management related technology in the past, it must also be recognized that the cost of this investment is relatively small in comparison to the value of the data that the technology supports. Typically, the investment in acquiring and maintaining good data accounts for approximately 75% of the overall investment in an Asset Management 1

18 Introduction System. Recognition of this fact is a critical first step towards improving the way the City runs its infrastructure related business. This report presents the findings of the Asset Management System (AMS) Needs Assessment Study for the City of Cambridge. The goal of the study has been to provide a foundation for a specification to procure and implement a comprehensive AMS that will enhance and support the City s ability to collect, analyze and disseminate information regarding the infrastructure assets. It is expected that the proposed AMS will leverage and enhance the City s existing corporate technologies and tools such as the Geographic Information System (GIS). The AMS will provide an integrated information system for the management of the municipal infrastructure related to water, waste waster, storm, fleet, roadway assets, storm water management facilities, and ultimately may incorporate parks, recreation and fire department assets. This report contains six (6) major sections: 1. Introduction: provides an overview of the study and some of the driving factors behind the need for an AMS. 2. As-Is Assessment: a summary of an examination of the current situation at the City of Cambridge with respect to organization, resource usage, asset infrastructure, related systems, related procedures, available data sources and currently used information products. 3. AMS Concept: a concept for an AMS is presented that identifies goals, key features, the total process, the concept of life-cycle management, primary business functions and a concept for asset management. 4. AMS To-Be Requirements: an overview of the requirements for the implementation of an AMS including Organizational Requirements, AMS Components, User/System Interaction, General Requirements, Technology Needs, Data Needs, Standards, Report Generation Requirements, and Condition/Performance Assessment. 5. Summary of Recommendations: a summary of the General, Organizational, Applications, Integration, Data and Technical Study recommendations. 6. AMS Implementation Plan & Cost Estimates: a three stage, six year implementation plan is identified along with cost estimates for each stage. The implementation of any AMS should include: A strategy to provide for data sustainability and accessibility by all staff within the organization. A strategy for supporting interfaces to corporate systems such as financial, payroll, customer/property and GIS. A strategy for utilizing technology to develop effective business solutions to operate and manage the AMS infrastructure. A strategy that guarantees ownership of the asset information by the City of Cambridge GOVERNANCE AND REGULATORY NEEDS Some of the most influential business drivers for the implementation of asset management practices stem from the need to provide better governance to meet recent and pending regulatory requirements. Municipalities operate under the authority of Federal and Provincial Statutes that regulate the way the municipality must operate, maintain and finance their infrastructure. Over the past 10 years there have been significant changes in the way Municipalities run their business. This has been primarily due to the down loading of responsibilities, but the need for a high level of health and safety accountability, environmental awareness and fiscal responsibility are also significant influencing factors. More recent events such as the Walkerton tragedy and the ensuing legislative changes (Safe Water Drinking Water Act, Regulation 170 and Bill 175) are also key factors. 2

19 Introduction Governmental regulatory authorities and the public are now demanding higher levels of service for the least cost. As a result, infrastructure managers are expected to deliver more with less. In many cases, infrastructure managers do not have the information that is required to make informed decisions, or they may be unaware of available information that could assist them. Significant amounts of time and resources can be spent on the collection and analysis of the information necessary to make an informed decision. Many managers too often spend the majority of their time managing data rather than managing the infrastructure. Technology is providing opportunities to reduce this load by allowing managers to share pertinent information across the corporation. Too often, infrastructure managers become mired in the process of choosing the best application that meets the current needs. Selecting this best application is only one component of defining an appropriate asset management strategy. Too often initiatives fail because they did not consider the long-term strategy for meeting City s business objectives or the overall requirements such as the data bases and staff skills on which the initiative will rely. An AMS is required in order to provide the high-level analysis and rationale for each initiative considered. The development of an asset management system must take into consideration the various legislative responsibilities and reporting requirements. The following is a brief summary of some of the more recent legislation that affects the way Cambridge operates and maintains its infrastructure MINIMUM MAINTENANCE STANDARDS FOR MUNICIPAL HIGHWAYS (ONTARIO REGULATION 239/02) Under subsection 44 (3c) of the Municipal Act, 2001 a municipality is not liable for failing to keep a highway or bridge in a reasonable state of repair if at the time the cause of action arose, minimum standards established under subsection 44(4) of the Municipal Act applied to the highway or bridge and to the alleged default and those standards have been met. This was the Provincial response to municipalities request for relief from onerous court decisions. To enable this defence to be used, the Minister of Transportation filed Ontario Regulation 239/02: Minimum Maintenance Standards for Municipal Highways (MMS). To use the defence in court, a municipality must be able to show through documentation that it met the minimum standards, as defined in the Regulation. Documentation and record keeping are critical. The municipality must have patrol forms to assist with their record keeping. It is important that there not be two sets of standards. Municipalities that have adopted roadway service standards should revise them to become Levels Of Service (LOS). Levels of Service should be reviewed to ensure they meet the minimum maintenance standards. Regulation 239/02 sets out the minimum standards based on Average Annual Daily Traffic (AADT) volumes and Statutory Speed Limits. Minimum Standards are set for Routine Patrolling, Snow Accumulation, Icy Roadways, Potholes, Shoulder Drop-offs, Pavement Cracks, Debris, Luminaries, Signs, Traffic Control Signals, Bridge Deck Spalls and Surface Discontinuities THE MUNICIPAL PERFORMANCE MEASUREMENT PROGRAM (MPMP) The Municipal performance measures were authorized under the Municipal Act, The Minister s letter to municipalities and the annual list of performance measures is posted on the ministry s Web site. The MPMP is a new initiative designed to provide taxpayers with useful information on service delivery and municipalities with a tool to improve those services over time. The program requires municipalities to collect data to measure their performance in five (5) core municipal public works service areas. The following are some examples: 3

20 Introduction Table 1.1: MPMP Service Areas Service Area Category Measure Roadways Paved Roads Operating costs /lane-km Wastewater Systems Winter Control Pavement Condition Response to winter storm event Collection Prevention of Environmental and Health Hazards Operating costs/lane-km % of paved lane-km where the condition is rated as good to very good % of winter events where the response met or exceeded locally determined road maintenance standards Operating costs /km. # of back-ups / 100 km. /year Drinking Water Distribution Operating costs/km of watermain System Reliability Safety of Water # of breaks/ 100 km. of watermain Weighted # of days when a boil water advisory issued by the Medical Officer of Health was in effect All relevant and current information, including important updates to the program's requirements and answers to technical questions by service area as asked by municipalities, have been drawn together in a "one-window" format SUSTAINABLE WATER AND SEWAGE SYSTEMS ACT, 2001 (COMMONLY KNOWN AS BILL 175 ) The Sustainable Water and Sewage Systems Act, 2001, received first reading December 12, 2001, and is endorsed by Justice O Connor in the Walkerton Inquiry Part Two report. The Act would apply to all regulated entities (including municipalities) that provide water and/or wastewater services to the public, and is meant to ensure that water and wastewater systems generate sufficient revenue to fully recover all their long-term operating and capital costs. The Act requires system owners to undertake a full accounting of the costs associated with delivering the services, and to submit these Cost Reports to the Minister of Municipal Affairs and Housing for approval. The Act specifies that the full cost of providing these services includes operating costs, financing costs, renewal and replacement costs and improvement costs associated with extracting, treating or distributing water to the public and such other costs as may be specified by regulation. Service providers will also be required to submit for ministerial approval a Cost Recovery Plan for recovering all costs identified in the Cost Report. 4

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