Road & Footpath Asset Management Plan

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1 Road & Footpath Asset Management Plan Draft 29 November 2004 CT Management Group Henshelwood & Associates

2 Road & Footpath Asset Management Plan Contents 1. EXECUTIVE SUMMARY INTRODUCTION BACKGROUND Purpose of the Plan Relationship with other Planning Documents Infrastructure Assets Included in the Plan Key Stakeholders GOALS AND OBJECTIVES OF ASSET OWNERSHIP Goals and Objectives Council s AM Policies, Procedures & Strategies Council s Corporate Plan AM Policy, Strategy & Plan Link Financial Plan Linkage Community Input to Council s Programs PLAN FRAMEWORK BASIC AND ADVANCED ASSET MANAGEMENT ASSET FUNCTION & LEVELS OF SERVICE CUSTOMER RESEARCH & EXPECTATIONS Community Service Level Expectations Community Consultation Annual Community Survey Works Proposals STRATEGIC & CORPORATE GOALS LEGISLATIVE REQUIREMENTS AND OTHER DRIVERS Local Government Act Road Management Act Best Value Legislation Other Legislation MAV Step Program Municipal Road Management Plan REQUIREMENTS OF THE ROAD MANAGEMENT ACT Co-ordinating Road Authority General Functions of a Road Authority Rights of the Road User Obligations of Road Users Permits for conducting of works within the road reservation ASSET FUNCTION & HIERARCHY MANAGEMENT OF UNCONSTRUCTED ROADS ASSETS NOT MAINTAINED BY COUNCIL Vehicle crossings Single property stormwater drains Nature strip Responsibility for defect rectification Service Authority Works Road_and_Footpath_Asset_Management_Plan 2 of 83 19/10/2011

3 4. FUTURE DEMAND DEMAND FORECAST PROBABLE CHANGES DEMAND MANAGEMENT PLAN LIFECYCLE MANAGEMENT PLAN BACKGROUND DATA Physical Parameters Road Pavement Issues Construction History - Footpaths Footpath Issues MAINTENANCE MANAGEMENT PLAN Maintenance Requirements Demarcations with other Road Authorities Future Funding Requirements INSPECTION ARRANGEMENTS Inspection Process Inspection Reporting Recording of Inspection Reports Defect Intervention Levels & Response Times Maintenance Responsiveness & Performance Targets RISK MANAGEMENT Risk Identification Intervention Levels for Hazards Managing High Risk Works RENEWAL/REPLACEMENT PLAN Condition Assessments - Roads Condition Assessments - Footpaths Standards Development of Renewal Works Programs Summary of Future Costs ASSET CREATION PLAN Selection Criteria Standards and Specifications Summary of Future Costs ASSET DISPOSAL PLAN FINANCIAL & RESOURCE MANAGEMENT CHART OF ACCOUNTS MAINTENANCE & RENEWALS Contingency Funding for Emergency Events Management of Utility Service Reinstatements CURRENT MAINTENANCE EXPENDITURE CURRENT MAINTENANCE BUDGET MAINTENANCE EXPENDITURE VERSUS REPLACEMENT VALUE CURRENT ASSET RENEWAL BUDGET VALUATION FORECASTS Valuation Methodology Depreciation Forecasts FUNDING GAP FUNDING CAPACITY STRATEGY TO ADDRESS FUNDING GAP KEY FINANCIAL ASSUMPTIONS Road_and_Footpath_Asset_Management_Plan 3 of 83 19/10/2011

4 6.11 STAFFING RESOURCES Road Maintenance Section Infrastructure Planning and Construction Section ASSET MANAGEMENT PRACTICES ACCOUNTING & FINANCIAL SYSTEMS ASSET MANAGEMENT SYSTEM INFORMATION FLOW REQUIREMENTS & PROCESSES Customer Service Request System Inspection Data Flow System Data Flow for Asset Management STANDARDS AND GUIDELINES PLAN IMPROVEMENT AND MONITORING PERFORMANCE MEASURES Asset Management Software System Asset Management Plan IMPROVEMENT PROGRAM MONITORING & REVIEW PROCEDURES Internal Auditing of Processes Reviewing Maintenance Management Program Performance REFERENCES ATTACHMENTS ATTACHMENT 1: - ROAD HIERARCHY URBAN ROADS & STREETS ATTACHMENT 2: - STANDARD DRAWING LIST - ROADS ATTACHMENT 3: - SELECTION FOR TYPE OF ROAD SURFACE MATERIAL TO BE USED ATTACHMENT 4: - SELECTION OF FOOTPATH CONSTRUCTION MATERIAL ATTACHMENT 5: - FUNCTIONAL REQUIREMENTS OF MAINTENANCE ATTACHMENT 6: - ROAD MAINTENANCE PROCEDURES & STANDARD JOBS ATTACHMENT 7: - FOOTPATH MAINTENANCE STANDARDS & PRACTICES ATTACHMENT 8: - DEMARCATIONS WITH OTHER ROAD AUTHORITIES ATTACHMENT 9: - ROAD DEFECT INTERVENTION LEVELS & RESPONSE TIMES ATTACHMENT 10: - FOOTPATH DEFECT INTERVENTION LEVELS ATTACHMENT 11: - INSPECTION REQUIREMENTS ATTACHMENT 12: - ROAD ASSET INSPECTION FREQUENCIES ATTACHMENT 13: - INSPECTION OF SIGNS & PAVEMENT MARKINGS (LINEMARKING) ATTACHMENT 14: - ROAD MAINTENANCE EXPENDITURES WORKS DEPARTMENT ATTACHMENT 15: - ROAD MAINTENANCE BUDGET WORKS DEPARTMENT ATTACHMENT 16: - ROAD INFRASTRUCTURE CAPITAL WORKS BUDGET Road_and_Footpath_Asset_Management_Plan 4 of 83 19/10/2011

5 1. Executive Summary Maribyrnong City Council is custodian of an extensive range of community assets that it provides to facilitate delivery of its services to the community. Typical Council infrastructure assets for use in providing services to the community are found in: the road & street network, including footpaths and kerb & channel; flood protection and stormwater drainage systems; buildings and facilities parks and recreation facilities plant and equipment Information technology The purpose of this Asset Management Plan is to outline the key elements involved in managing the road network asset to those people who need to understand the detail. It combines management, financial, engineering and technical practices to ensure that the level of service required by user groups is provided at the lowest long term cost to the community within the limits of any fiscal constraints that may be imposed by Council. The Plan establishes the key parameters & processes relating to the management of maintenance of the municipal road & footpath networks. Most importantly, the Asset Management Plan outlines the strategic financial requirements involved in maintaining and renewing the road network assets. This information is vital, along with similar strategic requirements for other asset groups, to assist Council understand its commitments and develop its long term financial management strategy. The network of public roads & footpaths is provided to the community to facilitate a safe, convenient and defined means for transporting people & goods around and through the municipal area. It constitutes the most expensive of the infrastructure assets maintained by the Council for the community. The following lists the various asset types included in the Council road network within the road reserve:- Pavements Surface Council owned public lighting Pavements Base Street Furniture Bus Shelters Laneways Car Parks Off Street / On Street Footpaths including shared paths Street Trees Kerb & Channel Pedestrian Crossings Bridges & Major Culverts Traffic Signal Installations Traffic Management facilities Fire Hydrants Signage As for all levels of Governments, there is increasing demand for resources to provide the various services for which it has a statutory responsibility as well as those services, which its community expects it to provide. At the same time, the ability to adequately fund these assets and services is becoming increasingly difficult due to competing demands. Council, as custodian of these assets, is responsible for funding their maintenance and upkeep. It is therefore contingent upon Council to ensure that there is an appropriate level of funding which enables assets to be maintained to an acceptable standard and balances this requirement against increasing Council s asset base. Strategic directions may be implemented whereby the service levels or a particular asset group may be increased or decreased depending on the competing priorities of 17. Road_and_Footpath_Asset_Management_Plan 5 of 83 19/10/2011

6 Council and the expectations of the community. The means by which Council achieves the delivery of such strategies is the process of asset management. Existing levels of service have been determined from an historic perspective based on what Council has assumed are community expectations and also by budget funding constraints. The Plan outlines these assumed community service level expectations and when practicable they need to be tested for acceptance or otherwise with the community. Recent levels of maintenance funding are shown in the following table. It shows a reduction in overall Works Department road maintenance expenditures by 18% over the past 3 years. Road pavements have dropped by 30% whereas maintenance of other road reserve areas has dropped 12%. In terms of current levels of funding for both maintenance and renewals, Council is facing a significant problem. Road Maintenance Expenditures Road Pavement Works 2000/ / /2003 Variation 00/01 to 02/03 Up or Down Sealed Pavements $295,711 $221,252 $183, % Crack Sealing $0 $0 $10,900 Laneways $34,194 $17,312 $15, % Unsealed Pavements $61,588 $114,442 $61, % Sub-Total Pavement $391,493 $353,006 $271, % Other Road Reserve Works Pathways $347,142 $248,947 $183, % Kerb & Channel $68,253 $31,051 $71, % Stormwater Drainage $52,782 $60,431 $50, % Signs, Traffic Management devices $121,908 $120,324 $158, % Declared Main Roads $50,180 $67,384 $63, % Additional Works $90,267 $97,675 $102, % Fixed Fee Services $101,498 $100,326 $100, % Sub-Total Other $832,030 $726,137 $730, % Total $1,223,523 $1,079,143 $1,002, % It is difficult to be precise in determining true maintenance needs. Even if a process of zero-based budgeting was undertaken, maintenance needs are subject to many variables including extremes of weather and unpredictable loadings during adverse weather. The City will base its maintenance budget on historic experience with the needs of the varying road types and usage patterns. The needs will vary if Council is to change the hierarchy of its road network. For the purpose of modelling future funding needs, current funding levels will be taken as the base requirement until such time as a business case is presented to Council that demonstrates the need for a specific change. Development of such cases will be a priority. 17. Road_and_Footpath_Asset_Management_Plan 6 of 83 19/10/2011

7 Current renewal funding levels are as follows: Year Road Works Footpaths Drainage Works Traffic Improvement Total 1999/00 $3,000,000 $400,000 $250,000 $200,000 $3,850, /01 $3,000,000 $400,000 $260,600 $210,000 $3,870, /02 $3,280,218 $400,000 $300,000 $200,000 $4,180, /03 $3,295,517 $400,000 $310,000 $265,000 $4,270, /04 $3,075,495 $415,000 $180,000 $415,000 $4,085,495 Where under-funding of maintenance continues for any length of time, it results in more rapid deterioration of the asset therefore reducing its intended life-span and the earlier need to fund replacement. Generally the unit cost of replacement of an asset is considerably more expensive than the cost to maintain it. The table below shows the number of years to effect full replacement of the asset component under current funding levels as a comparison against its design life. Asset component Overall length (kms) Design Life (years) Length replaced per annum (2002/03) Years to effect full replacement Footpaths Kerb & Channel Road Surfacing Road Pavement Of concern here is the significant difference between the 80 year design life of road pavements and actual time to replace which is around 310 years. At some stage this is going to cause considerable stress on Council s ability to fund the necessary works. Given that most of our roads were constructed between 1920 and 1950 this problem is not one that may occur in the distant future. The Department of Infrastructure asks Local Government to report annually on Infrastructure funding Gaps as an indication of the financial sustainability of its assets: The Average Annual Asset Consumption (Depreciation) is the amount of the City s asset base consumed during a year. This is determined by current replacement cost being divided by useful life. It is then totalled for each and every infrastructure asset. The funding Gap is the difference between what funding should be provided to meet ongoing commitments to maintain and renew the asset and what is actually provided in the annual budget. The following table illustrates some funding gaps for the City. Asset Component Life Cycle Years Replacement Cost Annual Depreciation 03/04 Budget Gap (Depreciation less Budget) Footpaths 50 $32,564,310 $651,286 $542,888 $108,398 Road Surface 25 $36,456,992 $1,458,280 $1,201,165 $257,115 Road Base 80 $149,279,483 $1,865,994 $338,831 $1,527,163 Kerb & Channel 50 $64,065,397 $1,281,308 $997,517 $283,791 Total $282,366,182 $5,256,868 $3,080,401 $2,176,467 The figures provided only include the four key assets components. A number of other asset components would have similar funding and gap characteristics. The 17. Road_and_Footpath_Asset_Management_Plan 7 of 83 19/10/2011

8 table above identifies an overall annual gap of around $2.18M for these components of the roads network. This method assumes that asset ages are uniformly spread and all assets within each category last the specified average age. Maribyrnong s assets have in fact been developed in a non uniform manner and they last varying amounts of time due to environmental, usage and other factors. At best it is indicative only of the magnitude of costs required. The figures provided only include the four key assets components. A number of other asset components would have similar funding and gap characteristics. Strategically, the funding gap can be addressed in several ways that include: (a) To provide a once-off capital funding injection; (b) To plan the reduction over a period of years; (c) Take no remedial action; (d) Downgrade the expectations of the asset; (e) Seek alternative funding measures such as user pays. Planning the reduction of the funding backlog over a period of years provides a better financial balance that enables Council to still be able to fund works on its many other commitments although it does retain a higher element of risk. Taking no remedial action will increase the risk of personal injury and litigation to an extent but more importantly it will increase the obligation to invest in these assets in the future. Unfortunately, in terms of capacity to pay, Council s debt has risen significantly over the post-amalgamation period and this has had the consequence of limiting current expenditures on capital works. It would appear that unless there is an opportunity to increase capital funding in the interim, renewal funding will probably be retained at current levels until Councils financial position is improved. The Plan provides several strategic funding models that address the backlog in various ways and which should be used in conjunction with the development of the overall Council Financial Strategic Management Plan. The status of road infrastructure and the funding gaps existing will be brought to the attention of decision makers annually during the budget preparation process. Road network infrastructure assets such as roadways, kerb & channel and footpaths are basic assets required by the community. They cannot be ignored and allowed to fail. 17. Road_and_Footpath_Asset_Management_Plan 8 of 83 19/10/2011

9 2. Introduction 2.1 Background Purpose of the Plan The purpose of this Asset Management Plan is to outline and document the key elements involved in managing the road network asset to those people who need to understand the detail. It combines management, financial, engineering and technical practices to ensure that the level of service required by user groups is provided at the lowest long term cost to the community within the limits of any fiscal constraints that may be imposed by Council. The network of public roads & footpaths is provided to the community to facilitate a safe, convenient and defined means for transporting people & goods around and through the municipal area. A footpath is an element of the roadway that under normal usage carries less weight on its structure than roads, being intended for general use by pedestrians, bicycles, prams and wheelchairs, including motorised versions. However, they are prone to suffering from abuse by people who drive heavy vehicles over them at other than designated vehicle crossings (eg delivering bricks and other heavy loads to building sites) that can result in failure by cracking or slab misalignment. This is especially so during wet periods when the subgrade under the footpath is weaker and unable to support the additional load. Similar failures can result from movement and breakages in the path structure caused by tree roots, thermal expansion and subsidence of service authority trenches. This misalignment of lips, edges and broken segments can form tripping hazards for users that often lead to liability claims against Council. Minor or even serious injuries resulting from a fall can lead to significant financial payments by both Council and its insurers hence the need to minimise if not totally eliminate such potential hazard situations. Council s Road Management Strategy of April 2000 states that the municipality s road infrastructure is in deteriorated condition relative to the majority of urban municipalities despite expenditure on road improvement works having been consistently higher than most other municipalities in recent years. Factors which have lead to this are:- Average age of its roads is older than most other municipalities. more heavy trucks travel through the City than most other municipalities Soils are worse than many other municipalities meaning that the life of a given pavement will be shorter than if soil conditions were better. The flat terrain and lack of underground drainage shortens pavement life due to the adverse impacts of water in them and surrounding soil. 17. Road_and_Footpath_Asset_Management_Plan 9 of 83 19/10/2011

10 2.1.2 Relationship with other Planning Documents The following chart outlines the linkages between the various components involved in Council s strategic planning process. The Asset Management Strategy provides guidance to Council s Financial Strategy and to Council s Corporate Plan. The Road & Footpath Asset Management Plan in turn provides input to the Road Management Plan, Financial Management Plan and the Annual Business Plan & Budget. From this the Annual Works Programs for infrastructure maintenance and renewals are developed. In terms of relationship with the annual budget decision making process, a 3-Year capital expenditure program for roads has been developed and is reviewed annually. Works are prioritised on a basis of road category, traffic type & volume, road condition and associated risk. At this stage, there is no formal capital evaluation process for allocation of funding across all Council s services. However, Council s Financial Plan commits to the maintenance of $9.3M of capital funding. The allocation of that funding is simply based on nominated percentages continuing to be allocated to asset groups. Refer to Section Council Plan Asset Management Policy Asset Management Strategy Information Technology Asset Management Policy Council Fleet Asset Management Policy Road & Footpath Asset Management Plan Council Facilities Asset Management Plan Open Space Asset Management Plan Drainage Asset Management Plan Road Management Plan 17. Road_and_Footpath_Asset_Management_Plan 10 of 83 19/10/2011

11 2.1.3 Infrastructure Assets Included in the Plan The following lists the various asset types included in the Council road network within the road reserve. Section 5, Life-cycle Management Plan provides details of lengths and replacement values of each component. Pavements Surface Council owned public lighting Pavements Base Street Furniture Bus Shelters Laneways Car Parks Off Street / On Street Footpaths including shared paths Street Trees Kerb & Channel Pedestrian Crossings Bridges & Major Culverts Traffic Signal Installations Traffic Management facilities Fire Hydrants Signage Key Stakeholders The key stakeholder groups of the community who are both users of the road network and/or are affected by it include: F The community in general (for recreation, sport, leisure & business); F Residents & businesses adjoining the road network; F Pedestrians (including the very young, those with disabilities, and the elderly with somewhat limited mobility); F Users of a range of miscellaneous smaller, lightweight vehicles such as pedal cyclists, motorised buggies, wheel chairs, prams, etc; F Vehicle users using motorised vehicles such as trucks, buses, commercial vehicles, cars and motor cyclists; F Tourists & visitors to the area; F Emergency agencies (Police, Fire, Ambulance, VICSES); F Traffic & Transportation managers; F Managers of the asset that is the road network; F Construction & maintenance personnel who build and maintain asset components; F Utility agencies that utilise the road reserve for their infrastructure (Water, sewerage, gas, electricity, telecommunications); F Council as custodian of the asset; F State & Federal Government that periodically provide support funding to assist with management of the network. The Charts 1 and 2 on the following page outline both the Organisation and the Infrastructure Services Branch structures for Road_and_Footpath_Asset_Management_Plan 11 of 83 19/10/2011

12 Chart 1 Organisational Structure, 2004 Chart 2 Infrastructure Services Branch Structure, Road_and_Footpath_Asset_Management_Plan 12 of 83 19/10/2011

13 2.2 Goals and Objectives of Asset Ownership Goals and Objectives Maribyrnong City Council is custodian of an extensive range of community assets that it provides to facilitate delivery of its services to the community. The objective of the road and footpath network is to provide a means by which the community in general can transport itself in, around and through the City of Maribyrnong. It caters for both pedestrian and vehicular traffic. This transportation network is amongst Council s most expensive asset groups, not just in terms of the capital funds required but also ongoing maintenance. Its goal is to facilitate safe and convenient movement of its users. This Road & Footpath Asset Management Plan outlines the key elements involved in managing that asset to those people who need to understand the detail. It combines management, financial, engineering and technical practices to ensure that the level of service required by user groups is provided at the lowest long term cost to the community within the limits of any fiscal constraints that may be imposed by Council. It complements the Road Management Plan that has been developed to establish a management system for the public road functions that are the responsibility of the Council to meet the needs of the community. The management system is based on policy and operational objectives and at the same time recognises resource limitations in undertaking the necessary levels of service and performance standards outlined in the plan. Both Plans encompass road user needs and expectations within an economic framework based on meeting "reasonable" maintenance operation targets and asset management programs relative to the road network function. There are limited alternatives to Council owning these assets. While private partnership arrangements exist for some state toll roads the provision of local roads and footpaths is likely to be a Council responsibility on an ongoing basis Council s AM Policies, Procedures & Strategies Relevant Council policies and procedures impacting Asset Management of the Road Network include: (a) Asset Management Policy (Draft November 2003) (b) Integrated Transport Strategy, 2002 (c) Footpaths Policy (d) Interim Drainage Management Strategy (e) Principles for the Planning of New Residential Developments (f) Public Lighting Policy (g) Road Management Strategy (h) Bicycle Strategy (i) Street Asset Protection Policy (j) Street Tree Policy (k) Occupational Health & Safety Policy 17. Road_and_Footpath_Asset_Management_Plan 13 of 83 19/10/2011

14 2.2.3 Council s Corporate Plan The Council Corporate Plan is a fundamental linkage for any management plans for community assets for which Council is custodian. The Corporate Plan commits to 'Manage Council resources and assets to ensure long term financial viability.' The draft Corporate Plan includes actions and indicators including: Action - Continue to participate in the MAV Step Asset Management Improvement Program with Indicator - Achieve first year STEP targets. Action - Implement the asset management strategy with Indicator- First Year performance Indicators to be achieved as per strategy. It also lists the following indicators: (a) achievement of 95.5% of capital program; and (b) ratio of total capital expenditure to total depreciation of 2.55% AM Policy, Strategy & Plan Link Council s draft AM policy and strategy document includes links back to the Road Management Plan. The asset management policy and strategy refers to the development of asset management plans Financial Plan Linkage A. Strategic Resource Plan Council s Strategic Resource Plan (SRP) identifies the resources required to achieve the objectives detailed in the Council Plan over the next four years. It is integral to the Council Plan and identifies and assesses the resources required both financial and non financial to achieve the objectives of the Council. The SRP is Council's longer term report to the community and links to other key Council strategies and documents. The SRP is divided into three sections Financial Resources Assets I Infrastructure Human Resources B. Financial Resources To assist Maribyrnong Council in adopting annual budgets within a longer term framework. Council developed a Long Term Financial Plan (LTFP) in 1999 as a part of its ongoing financial planning. The key objectives which underlined the development of the original LTFP were management of Council's debt and financial sustainability. The key financial objectives which underpin the LTFP are:- Maintain existing service levels; Maintain a capital expenditure program of at least $9.3m per annum from rate revenue; Achieve a balanced budget on a cash basis; Ensure Council is able to meet its debt commitments in the long term; Maintain increases in rate revenue to CPI where possible. 17. Road_and_Footpath_Asset_Management_Plan 14 of 83 19/10/2011

15 C. Assets/Infrastructure Council s overall infrastructure is guided by the parameters set out in the Long Term Financial Plan. Each class of assets undergoes a rigorous review process prior to foundation of an allocation between the various classes. Each project within a class of assets is prioritised and the projects within the funding level form the capital works program. The following table represents the adopted 2004/2005 Capital Works Program Community Facilities and Services Total Expenditure 2004/05 Contribution from Rates 2004/05 Other Funding Sources $2,307,000 $977,000 $1,330,000 Streets, Drains and Pathways $5,493,066 $4,381,000 $1,112,066 Parks, Gardens and Environment $2,108,600 $951,500 $1,157,100 Organisational Resources $1,676,500 $1,505,000 $171,500 Major Projects $10,000,00 0 $1,000,000 $9,000,000 Council Plan Priorities $2,338,866 $2,338,866 $0 Total $23,924,03 2 $11,153,36 6 $12,770,66 6 Overall capital expenditure on Council assets is guided by the parameters in the Long Term Financial Plan (LTFP). The available resources have to be allocated between renewal of existing assets and the development of new or expanded assets. An important goal of Council is to adequately maintain existing assets; as such substantial resources are allocated to renewal of existing assets. Council's participation in the 'STEP' Asset Management Improvement Program will lead to improved management information and decision making. Improvements under the STEP program, including the development of Asset Policy and Strategy along with Asset Management Plans for individual asset classes, will move Council s practices closer to best practice. Council is developing a long term asset replacement program for various major asset groups. A Management Strategy including a rolling capital works program is already in place for Council's biggest asset which is the Road Asset. The rolling capital works program was based on a condition assessment carried out in 1997 and then again in It involved a complete condition assessment of its road pavement, kerbs & channels and footpaths to enable the future capital works program (rolling program) to be further developed and reviewed. Council's road improvement program includes a mixture of treatments such as total reconstruction, partial reconstruction and resurfacing aimed at maintaining the whole network in the best condition for the available resources As such, the available funds are allocated in a manner that balances the condition of individual roads within the condition of the whole road network in the Municipality. Council also carries out routine maintenance works to ensure safety of all users. 17. Road_and_Footpath_Asset_Management_Plan 15 of 83 19/10/2011

16 Each project within a class of asset is prioritised based on community need, operational efficiency and the availability of external funding Community Input to Council s Programs Council has not sought direct community input specifically into its works programs however it does gauge community concerns through the following: (a) Annual Community Survey conducted across all municipalities by the Victorian Government s Department of Infrastructure; (b) Annual Budget process through which the draft budget is placed on public exhibition with submissions invited. (c) Input from council s elected representatives. 2.3 Plan Framework This Road & Footpath Asset Management Plan framework will generally follow the basic format set out in the International Infrastructure Management Manual 2002 [Reference 9(v)], modified to suit Maribyrnong s specific requirements. 2.4 Basic and Advanced Asset Management Basic Asset Management relies primarily on the use of an asset register, maintenance management systems, job/resource management, inventory control, condition assessment and defined levels of service, in order to establish alternative treatment options and long-term cash flow predictions. Priorities are usually established on the basis of community benefit/financial return gained by carrying out the work (rather than risk analysis and optimised decision-making). Advanced Asset Management employs predictive modelling, risk management and optimised decision-making techniques to establish life-cycle treatment options and related long term cash flow predictions. This is Council s first generation asset management plan and therefore will be relatively basic in nature in terms of the available knowledge of the actual physical data and then the subsequent data management techniques. Council s current accounting system does not allow for detailed costing of the various works maintenance programs. This is explained in more detail in Section 6, Financial & Resource Management, Chart of Accounts. The SMEC Pavement System, while being amongst the best of its type when initially purchased, is not a comprehensive Asset Information System. As such there is a need for separate asset databases to be kept with which data can be more readily managed. SMEC does however allow for some predictive modelling. Council needs to have the strategic objective of improving its asset management systems to enable advanced asset management techniques to be utilised on an ongoing basis. The key to this is that any data should be manually populated into the system only once. Preferably this should be at source to ensure that the correct information is inserted into the system. All Council s information systems should then be interlinked to draw on the necessary data from whatever its home data system within the organisation. 17. Road_and_Footpath_Asset_Management_Plan 16 of 83 19/10/2011

17 3. Asset Function & Levels of Service 3.1 Customer Research & Expectations There are two key aspects to community input & the associated consultation process. One relates to the general levels of service that the Council provides the community while the other is more localised and relates to specific works (street upgrade, etc). In both cases, by seeking community input, it is vital that Council does not create a false sense of expectation by the community that suggested changes will be implemented that simply cannot be achieved for reasons such as affordability Community Service Level Expectations The following levels of service are likely to be expected by the community. During any future consultation process Council will test these to make sure that they are correct or amend accordingly: Reasonably direct traffic routes between important centres of community interest; Ease of access to major traffic routes; Normal heavy vehicle traffic to be limited to Arterial Roads managed by VicRoads; Access to the municipal road network by heavy vehicles to be limited to those necessarily using these roads and then for them to use only Link and Collector Roads other than when immediately accessing properties. Limited through access directed along residential streets; Minimal conflict between various road user groups/vehicle types (eg cars, trucks, motor cyclists, bicyclists, pedestrians, children and people with disabilities); Provision of suitable traffic control devices in dangerous locations especially where there is potential conflict between user groups (eg pedestrian crossings, road & street intersections); Adequate provision for people with disabilities, the aged, mothers with children, etc in relation to potential hazards and obstructions such as road crossings, location of street furniture, light poles, sign posts, etc. Road surfaces that create minimal adverse noise conditions in residential areas, are smooth riding, accessible & safe in all the prevailing local weather conditions (ie non-slippery when wet) and free-draining; Street lighting provides good visibility at night; All road structures (eg. pavement base, surface, bridges, and traffic devices) to be maintained in a safe, workable condition; Street & roadside trees to be selected to maximise aesthetic benefit but with minimal ongoing problems with hazards caused by root movement & droppings (eg berries); Adequate provision of street signing to facilitate access for nonlocals. The community should be consulted in any deviations from current levels of service. It is unrealistic to expect an increased level of service without corresponding decreases elsewhere in council services. 17. Road_and_Footpath_Asset_Management_Plan 17 of 83 19/10/2011

18 3.1.2 Community Consultation A community consultation forum program took place under the Best Value assessment during It provided an unrestricted and open opportunity for interested community members to participate. The 5 public forums held at Yarraville Senior Citizens Centre (2), Maidstone Senior Citizens Centre and the Municipal Offices (2) were well promoted thus generating sufficient interest by the community to record a very good attendance register of 80. In addition to the public forums, two (2) additional meetings were conducted with the Works Field staff (9) at Maribyrnong City Council Operations Centre and with Councillors and Staff (8) at the Municipal Offices, Footscray to gain an appreciation of the staff issues, concerns and solutions to service delivery within the roads and infrastructure maintenance activities. A number of themes were projected from the 7 forums including the Councillor and staff meetings by all 97 participants. The community and staff participants, by individual declaration of service delivery issues, collectively reinforced the need for Council to concentrate their efforts on: Street Tree Maintenance & Canopy Clearance Footpath Maintenance Management Sealed Road maintenance Street Drainage Maintenance Development of a road importance plan Project Management and Programming Customer Service The outcomes of the Community Consultation forums and the review of key activities will be interfaced with Infrastructure Planning and Road Maintenance area Best Value Reviews and team business planning. The initiative of utilising community forums to allow the needs and expectations of the community to be included in the Roads and Infrastructure Maintenance Review has produced a reasonable database of community response and targeted a number of service delivery issues for future consideration Annual Community Survey Council s Annual Community Survey results for 2004 indicate that a degree of dissatisfaction with the state of our roads and footpaths exists. The following statistics highlight this perception: 1. The quality of Maribyrnong s roads rated as the 3 rd highest aspect behind drug use and noise that residents disliked about living in the area. 2. Road maintenance and repairs was the third highest ranked issue behind drugs and street trees & nature strips for Council in the coming year. 3. Community satisfaction with road maintenance and repairs ranked 6.04 out of 10. This places the provision of this asset/ service toward the lower end of the rankings for all Council services (27 th out of 34). 4. Community satisfaction with footpath maintenance and repairs ranked at 5.78 out of 10. This places the provision of this asset/ service toward the lower end of the rankings for all Council services (31 st out of 34). 17. Road_and_Footpath_Asset_Management_Plan 18 of 83 19/10/2011

19 While the survey results suggest a level of dissatisfaction with Maribyrnong s roads and footpaths, the community as a whole is not pressuring Council to increase funding in this area. Residents from individual streets do however apply pressure to upgrade the condition of their street on a regular basis. Requests to improve the amenity of streets are also received regularly. The Council seems satisfied with the current level of service being provided based on resident needs and our ability to fund the service level. A limited amount of overall asset management information has been provided to them and therefore political imperatives are likely to be the main consideration Works Proposals The community will be consulted regarding new, replacement or upgrades of roads and footpaths. A consultation process will be carried out which is appropriate to the situation and works proposed consistent with Council s Community Consultation Policy. This will involve: Identifying the range of residents and users who may be affected by the proposed works. Deciding on the type of consultation required. Provision of information in a manner that is clear and enables those consulted to understand the effects which the proposed work or changes may have on them, and the resources available for the proposed works. Feedback to all stakeholders Information provided by residents and users will be given significant credence as residents tend to know best given their closeness and familiarity with the issues. Each issue raised will be addressed appropriately to ensure a satisfactory outcome which is perceived as fair to all parties. 3.2 Strategic & Corporate Goals The document Council Plan outlines Council s strategic and corporate goals that are in line with the corporate vision for a sustainable community that values its diversity, protects the environment and makes decisions today that will enhance the future of the city for generations to come. The following strategies relate to infrastructure management: Develop integrated sustainable transport options and land use development options. Specific actions that relate directly to management of road assets are: a. Implement road safety initiatives and programs; b. Continue to advocate for the reduction of truck traffic in residential streets; c. Continue active involvement in the Yarraville Truck Traffic Working Group; d. Complete installation of the No Truck Zones by December Implement the Asset Management Strategy continue to participate in the MAV STEP Asset Management Improvement Program. Specific actions that relate directly to management of road assets are: a. First year Performance Indicators achieved as per the strategy; b. Achieve first year STEP targets. 17. Road_and_Footpath_Asset_Management_Plan 19 of 83 19/10/2011

20 3.3 Legislative Requirements and other Drivers There are a number of legislative requirements as well as other drivers that apply to the management of road network assets. The following summarises the key ones: Local Government Act 1989 The purpose of the Local Government (Update) Bill (May 2002) was to amend the Local Government Act 1989 to facilitate recognition of the system of local government in Victoria and to improve the accountability of local government and the transparency of decision making. The Bill indicates that the primary objective of Council is to endeavour to achieve the best outcomes for the local community having regard to the long term and cumulative effects of decision making. The issue of non-feasance has increased the profile of asset management within local government. The law of negligence is a fault-based system where a person who carelessly causes injury or loss to another person should compensate that person. The High Court has ruled that this should also apply to an authority that does not maintain its assets to an appropriate standard. To address this issue the State Government introduced the Road Management Act Road Management Act 2004 The Road Management Act 2004 has been passed by Parliament and received Royal Assent on 11 May Its purpose is to reform the law relating to road management in Victoria and to make related amendments to certain Acts. It is a new public general Act, to operate consistently with other statutes such as the Road Safety Act 1986, the Transport Act 1983 and the Local Government Act The Act establishes a new statutory framework for the management of the road network which facilitates the coordination of the various uses of road reserves for roadways, pathways, infrastructure and similar purposes; sets out rights of road users and amends the Road Safety Act 1986 to provide a statement of obligations of road users (which will be relevant to negligence actions); establishes the general principles which apply to road management; provides for the role, functions and powers of a road authority; provides for the making of Codes of Practice to provide practical guidance in relation to road management; facilitates the making of road management plans as part of the management system to be implemented by a road authority in the performance of road management functions; enables the declaration and discontinuance of roads; provides a new process for the declaration and classification of roads and the re-allocation of management responsibility for roads and parts of roads; provides for a road authority to keep a register of public roads in respect of which the road authority is the coordinating road authority; provides for the construction, inspection, maintenance and repair of public roads; sets out the road management functions of road authorities; 17. Road_and_Footpath_Asset_Management_Plan 20 of 83 19/10/2011

21 sets out the road management functions of infrastructure managers and works managers in providing infrastructure or conducting works; provides for issues relating to civil liability arising out of road management; provides for mechanisms to enforce and administer provisions of the Act; The Road Management Act 2004 removes the non-feasance defence for a Road Authority from 1 January As a consequence, Council as the Co-ordinating Road Authority for municipal roads within the municipal area has developed a Road Management Plan. The Plan will incorporate standards relating to the maintenance of these public roads. Unless the Plan is found to be unreasonable, these maintenance standards are to be taken as the appropriate standard which Council must meet to satisfy the statutory duty and any common law duty to maintain the road (Ref S51) Best Value Legislation 1999 Best Value Victoria was introduced into Victoria by the Local Government (Best Value Principles) Act 1999 on 22 December The Act inserted new provisions in the Local Government Act 1989 which made it an objective for a council to achieve the Best Value Principles and required a council to comply with the principles as set out in a new Division 3 Part 9 of the Act. In implementing its Best Value Principles program, a council may have taken the following factors into consideration the need to review services against the best on offer in both the public and private sectors; an assessment of value for money; community expectations and values; the balance between affordability and accessibility; opportunities for local employment growth or retention; the value of potential partnerships with other councils, State and Commonwealth governments; potential environmental advantages for the council s municipal district. It is evident that the objective of the Road Management Plan is to achieve the principles of Best Value by requiring councils to undertake much more intense management of their road networks in conjunction also with sound asset management principles Other Legislation The following Legislation & Regulations impact on service level and service cost: Occupational Health & Safety Regulations Worksite Traffic Management (Roadworks Signing) Working at Heights Confined Spaces No Go Zone Plant Regulations Manual Handling Noise Regulations Vegetation Controls Planning Controls There are three levels of vegetation management controls in place, covering Federal, State and Local Governments. 17. Road_and_Footpath_Asset_Management_Plan 21 of 83 19/10/2011

22 3.3.5 MAV Step Program 2002 Local Government is a highly complex level of government which has a number of overarching core functions, which can be summarised as customer service delivery, governance and asset management. Given that the sector has a delineated market for most of its service delivery and governance functions, asset management becomes a key area by which external stakeholders can assess and judge the competitive performance of local government. In recent years, there have been a number of reports analysing the performance of the sector in terms of asset management (including the MAV/GHD benchmarking study, Victorian Auditor-General s report, NOLG Local Government National Report), and concern was expressed about some of the practices in existence at that time across the sector. The environment in which local government operates is changing and Councils need to be able to demonstrate an accepted level of proficiency and duty of care in relation to their asset management practices. The MAV launched the Step Asset Management Mentoring Program in late 2002 in order to provide Councils in Victoria with a whole of organisation perspective and a Framework by which to imbed continuous improvement into their asset management practices, and to produce acceptable sector-wide outcomes over the period 2002/3 to 2004/5. The Road Management Act reinforces the decision of Councils to review their asset management performance, and it is expected that processes adopted by Councils in relation to their road assets, which account for a significant proportion of all Council assets, will in time be the model deployed across all their assets Municipal Road Management Plan Maribyrnong City Council, under the Road Management Act 2004, is the Co-ordinating Road Authority for municipal roads within the City. These municipal roads are listed on the City s Road Register as Public Roads for which Council is responsible. As a requirement of Section 205 of the Local Government Act, 1989, Council has the care and management of local roads within its responsibility. In addition, Council must ensure that if a road is required for public traffic, it is kept open for public use, and may carry out work on the road. The Council is not obliged to do any specific work on the road and in particular is not obliged to carry out any surface or drainage work on an unmade road. The purpose of the Municipal Road Management Plan is to establish a management system for Council s road management functions which is based on policy and operational objectives as well as available resources. It also sets the relevant standard in relation to discharge of duties in the performance of those road management functions. 17. Road_and_Footpath_Asset_Management_Plan 22 of 83 19/10/2011

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