1 Document Control Document ID: nams plus3 amp template v3.1 Rev No Date Revision Details Author Reviewe r 1 12/03/15 Revised Version of 2013 Draft SW Network AMP Approver MW/CN SL JFB Copyright 2014 All rights reserved. The Institute of Public Works Engineering Australasia. DOC2014/043990
2 Document Control Document ID: Asset Management _ Asset Management Plan _ Draft Stormwater Network _ Charlette Newall Rev. No Date Revision Details Author Reviewer Approver /03/15 Revised Version of 2013 Draft SW Network AMP /04/16 Final revision with LTFP and risk update MW/CN SL JFB CN SL JFB Copyright 2012 All rights reserved. The Institute of Public Works Engineering Australia.
3 TABLE OF CONTENTS 1. EXECUTIVE SUMMARY... 4 Context... 4 What does it Cost?... 4 What we will do... 5 What we cannot do... 5 Managing the Risks... 5 Confidence Levels... 5 The Next Steps INTRODUCTION Background Goals and Objectives of Asset Management Plan Framework Core and Advanced Asset Management Community Consultation LEVELS OF SERVICE Customer Research and Expectations Strategic and Corporate Goals Legislative Requirements Community Levels of Service Technical Levels of Service FUTURE DEMAND Demand Drivers Demand Forecast Demand Impact on Assets Demand Management Plan Asset Programs to meet Demand LIFECYCLE MANAGEMENT PLAN Background Data Infrastructure Risk Management Plan Routine Operations and Maintenance Plan Renewal/Replacement Plan Creation/Acquisition/Upgrade Plan Disposal Plan Service Consequences and Risks FINANCIAL SUMMARY Financial Statements and Projections Funding Strategy Valuation Forecasts Key Assumptions made in Financial Forecasts Forecast Reliability and Confidence PLAN IMPROVEMENT AND MONITORING Status of Asset Management Practices Improvement Plan Monitoring and Review Procedures Performance Measures REFERENCES APPENDICES Appendix A Budgeted Expenditures Accommodated in LTFP Appendix B Draft Capital Renewal and Replacement Works Program Appendix C Abbreviations Appendix D Glossary... 56
4 4 1. EXECUTIVE SUMMARY Context Cessnock City Council provides a Stormwater network in partnership with Hunter Water and neighbouring Councils to provide protection of life, property, and transport networks from both riverine and local catchment flooding and overland flow paths. Council s Stormwater Network comprises of a mix of approx.: 5.5 km of Culverts 115 km of Pipes 4743 Pits Major culverts are included in the Bridge and Major Culvert Asset Management Plan. These infrastructure assets have a replacement value of approximately $70,336, What does it Cost? To determine the projected outlays necessary to provide the services covered by this Asset Management Plan (AM Plan/AMP) including; operations, maintenance, renewal and upgrade of existing assets over the 10 year planning period, Council has developed two funding scenarios. Scenario 2, based on feedback received from Community Consultation undertaken in 2015, is the funding required to keep the asset stock in condition 3 average or better. Scenario 3 is developed from the available funds outlined in Councils Long Term Financial Plan. The following tables highlight Councils financial position when considering the projected outlays of scenario 2 S2 or scenario 3 S3 : 2016_Stormwater_S2_V4 Executive Summary - What does it cost? 10 year total cost [10 yr Ops, Maint, Renewal & Upgrade Proj Exp] ($000) $16, year average cost $1, year total LTFP budget [10 yr Ops, Maint, Renewal & Upgrade LTFP $16,005 Budget] 10 year average LTFP budget $1, year AM financial indicator 97% 10 year average funding shortfall $ _Stormwater_S3_V4 Executive Summary - What does it cost? 10 year total cost [10 yr Ops, Maint, Renewal & Upgrade Proj Exp] ($000) $16, year average cost $1, year total LTFP budget [10 yr Ops, Maint, Renewal & Upgrade LTFP Budget] $16, year average LTFP budget $1, year AM financial indicator 97% 10 year average funding shortfall $-47 The following graphs show the projected expenditure required to provide services in this AMP, which have been developed from the outlays of scenario 2 & 3. It should be noted that capital construction/upgrade projects, as well as accounting for contributed assets from development will have an influence on projected expenditure. There has been no consideration given to the potential offset that may be possible from additional revenue that Council could generate from these developments.
5 5 identified activities and projects. We have identified major risks as: Stormwater system failure leading to flood risk to the community and expensive rehabilitation costs Under capacity network as a result of redevelopment Negative public perception/political risk We will endeavour to manage these risks within available funding by: Increasing asset inspections. Increasing response levels to repair stormwater assets where possible Increasing renewal programs as an early intervention strategy to reduce the need for more expensive replacement costs. Confidence Levels This AM Plan is based on medium level of confidence information. What we will do We plan to provide the following stormwater network services within the 10 year planning period of this AMP: On-going operation, maintenance, renewal and upgrade of stormwater assets to meet service levels set by Council in annual budgets. Annual stormwater Renewal & Construction Programs What we cannot do We do not have enough funding to provide all services at the desired service levels. Works and services that cannot be provided under present funding levels are: The optimised annual stormwater renewal and replacement programs to achieve an overall condition 3 (average/fair) or better. Managing the Risks There are risks associated with providing the service and not being able to complete all The Next Steps The actions resulting from this Asset Management Plan are: Engage the community on Levels of Service (LoS) and funding matters identified in this AM Plan Incorporate the agreed LoS into the future planning, design, operational, maintenance and construction activities relating to stormwater assets. Questions you may have: What is this plan about? This Asset Management Plan covers the infrastructure assets that serve the Cessnock City Council community s stormwater network needs. These assets include pits, pipe, culverts, swales and detention basins that are provided throughout the community area to enable the effective and efficient runoff of stormwater, minimising flooding potential.
6 6 What is an Asset Management Plan? Asset Management Planning is a comprehensive process to ensure delivery of services from infrastructure is provided in a financially sustainable manner. An Asset Management Plan details information about infrastructure assets including actions required to provide an agreed level of service in the most cost effective manner. The plan defines the services to be provided, how the services are provided and what funds are required to provide the services. Why is there a funding shortfall? Most of Council s stormwater network was constructed by previous Councils through developments and government grants, often without consideration of ongoing operations, maintenance and replacement needs. Many of these assets are approaching the later years of their life and require replacement, services from the assets are decreasing and maintenance costs are increasing. Our present funding levels are insufficient to continue to provide existing services at current levels in the medium term. levels and costs to ensure that the community receives the best return from infrastructure, 5. Identifying assets surplus to needs for disposal to make saving in future operations and maintenance costs, 6. Consulting with the community to ensure that stormwater network services and costs meet community needs and are affordable, 7. Developing partnership with other bodies, where available to provide services, 8. Seeking additional funding from governments and other bodies to better reflect a whole of government funding approach to infrastructure services. What happens if we don t manage the shortfall? It is likely that we will have to reduce service levels in some areas, unless new sources of revenue are found. For the stormwater network, the service level reduction may include: Reduction in stormwater maintenance cycles. Decrease in LoS for stormwater assets, examples below. What options do we have? Resolving the funding shortfall involves several steps: 1. Improving asset knowledge so that data accurately records the asset inventory, how assets are performing and when assets are not able to provide the required service levels, 2. Improving our efficiency in operating, maintaining, renewing and replacing existing assets to optimise life cycle costs, 3. Identifying and managing risks associated with providing services from infrastructure, 4. Making trade-offs between service
7 7 What can we do? We can develop options, costs and priorities for future stormwater network services and consult with the community to plan these services to match the community service needs with ability to pay for services and maximise community benefits against costs.
8 8 2. INTRODUCTION 2.1 Background This Asset Management Plan is required to demonstrate responsive management of assets (and services provided from assets), compliance with regulatory requirements, and to communicate funding needed to provide the required levels of service over a 10 year planning period. The Asset Management Plan follows the format for AM Plans recommended in Section of the International Infrastructure Management Manual. The Asset Management Plan is to be read with Council s Asset Management Policy, Asset Management Strategy and the following associated planning documents: Cessnock Cessnock Community Strategic Plan Cessnock City Council Revised Delivery Plan Cessnock City Council Draft Operational Plan Cessnock City Council Annual Reports Cessnock City Council Community Research Survey 2014 Infrastructure Asset Revaluation Manual 2014/15 Cessnock City Council, Recreation and Open Space Strategic Plan NSW OLG Integrated Planning Guidelines and manual 2013 Cessnock City Council 2014 Resident Satisfaction Survey Results Cessnock City Council 2015 Asset Management Research Satisfaction Survey Results The infrastructure assets covered by this Asset Management Plan are shown in Table 2.1. These assets are part of the stormwater network used to provide effective and efficient runoff of stormwater, minimising flooding potential. Table 2.1: Assets covered by this Plan Asset category Quantity Pits 4743 Pipes 115 km Culverts 5.5 km Key stakeholders in the preparation and implementation of this Asset Management Plan are shown in Table Key Stakeholder Table 2.1.1: Key Stakeholders in the AM Plan Role in Asset Management Plan Councillors Represent needs of the community, Allocate resources to meet the Council s objectives in providing services while managing risks. Ensure the Council is financially sustainable. Provide stewardship by ensuring the protection of assets for current and future generations.
9 9 Key Stakeholder General Manager Council Staff Role in Asset Management Plan Ensure the development and implementation of Council s Asset Management Policy, Plans and Processes and for their integration with Council s Integrated Planning and Reporting Framework under the Local Government Act. Report on the status and effectiveness of Asset Management within Council. Development and implementation of Council s Asset Management Plans and Processes and for their integration with Council s Integrated Planning and Reporting Framework under the Local Government Act. Ensure integration and compliance of the Asset Management Policy and Strategy with other policies and business processes of Council. Ensure compliance with legal obligations. Ensure sound business principles are reflected in the Asset Management strategies and plans that are developed. Implementation of activities in the Plans. Engage up to date technologies, methodologies and continuous improvement processes. Facilitate Best Appropriate Practice in Asset Management. Community Provides input into the services required and the cost the community is prepared to pay 2.2 Goals and Objectives of Asset Management Council exists to provide services to its community. Some of these services are provided by infrastructure assets. We have acquired infrastructure assets by purchase, by contract, construction by our staff and by donation of assets constructed by developers and others to meet increased levels of service. Our goal in managing infrastructure assets is to meet the defined level of service (as amended from time to time) in the most cost effective manner for present and future consumers. The key elements of infrastructure asset management are: Providing a defined level of service and monitoring performance, Managing the impact of growth through demand management and infrastructure investment, Taking a lifecycle approach to developing cost-effective management strategies for the long-term that meet the defined level of service, Identifying, assessing and appropriately controlling risks, and Having a long-term financial plan which identifies required, affordable expenditure and how it will be financed. 2.3 Plan Framework Key elements of the plan are: Section 3 - Levels of service specifies the services and levels of service to be provided by Council; Section 4 - Future demand how this will impact on future service delivery and how this is to be met; Section 5 - Life cycle management how Council will manage its existing and future assets to provide defined levels of service; Section 6 - Financial summary what funds are required to provide the defined services;
10 10 Section 7 - Asset management practices; Section 8 - Monitoring how the plan will be monitored to ensure it is meeting organisation s objectives; Section 9 - Asset management improvement plan. A road map for preparing an Asset Management Plan is shown below. Road Map for preparing an Asset Management Plan Source: IPWEA, 2006, IIMM, Fig 1.5.1, p 1.11.
11 Core and Advanced Asset Management This Asset Management Plan is prepared as a core Asset Management Plan over a 10 year planning period in accordance with the International Infrastructure Management Manual. It is prepared to meet minimum legislative and organisational requirements for sustainable service delivery and long term financial planning and reporting. Core asset management is a top down approach where analysis is applied at the system or network level. Future revisions of this Asset Management Plan will move towards advanced asset management using a bottom up approach for gathering asset information for individual assets to support the optimisation of activities and programs to meet agreed service levels in a financially sustainable manner. 2.5 Community Consultation This core Asset Management Plan is prepared to facilitate community consultation initially through feedback on public display of draft Asset Management Plans prior to adoption by Council. Future revisions of the Asset Management Plan will incorporate community consultation on service levels and costs of providing the service. This will assist Council and the community in matching the level of service needed by the community, service risks and consequences with the community s ability and willingness to pay for the service. 3. LEVELS OF SERVICE 3.1 Customer Research and Expectations Cessnock Council has engaged Micromex Research to undertake community research. In 2014 a telephone survey poll sample of residents on their level of satisfaction with the Council s services, and of the Stormwater assets identified, the following satisfaction levels were reported: Table 3.1: Community Satisfaction Survey Levels Performance Measure Satisfaction Level Stormwater Drainage Flood Prevention Very Satisfied Fairly Satisfied Satisfied Somewhat satisfied Not satisfied Micromex conducted a similar survey to that above in 2009, which formed part of the input into the inaugural community strategic plan; Cessnock The priorities in Council s Delivery Program have been based on the desired outcomes identified in the latest iteration of the community strategic plan. In addition, Council also engaged Micromex Research in March of 2015 to undertake further Community Consultation. This was to determine what the community finds as an acceptable condition state of the assets. The concluding evidence from this survey found: The majority of residents indicated that Condition 3 or better was the acceptable condition for all assets. This has therefore been incorporated into scenario 2 modelling within this amp.
12 Strategic and Corporate Goals This Asset Management Plan is prepared under the direction of Council s vision, mission, goals and objectives. Our vision is: Cessnock will be a cohesive and welcoming community living in an attractive and sustainable rural environment with diversity of business and employment opportunities supported by accessible infrastructure and services which effectively meet community needs. In summary, the vision is: Cessnock - thriving, attractive and welcoming. The Delivery Program has five Desired Outcomes as identified in the Community Strategic Plan, Cessnock They are: 1. A connected, safe and creative community; 2. A sustainable and prosperous economy; 3. A sustainable and healthy environment; 4. Accessible infrastructure, services and facilities; 5. Civic leadership and effective governance. Relevant Council goals and objectives and how these are addressed in this Asset Management Plan are: Table 3.2: Council s Goals and how these are addressed in this Plan Goal Objective How Goal and Objectives are addressed in AM Plan A connected, safe and creative community Objective 3.1 Protecting and enhancing the natural environment and the rural character of the area Complete further Flood Studies and Risk Management Plans for major catchments in the Local Government Area Commence Implementation of Council s Trunk Stormwater Drainage Strategy. Results of flood studies may identify areas where stormwater is required to be installed and/or upgraded. This strategy will help to develop future capital works programs in line with both the strategy and this AMP.
13 13 Goal Objective How Goal and Objectives are addressed in AM Plan Accessible infrastructure, services and facilities Objective 4.1 Better Transport Links a Complete the Transport and Land Use Planning Needs Analysis component of the City Wide Infrastructure Strategy Improve the corporate asset management system Delivery prioritised capital works programs in line with adopted Asset Management Plans Improve support services and facilities to assist works delivery Adopt the City Wide Section 94 Contributions Plan. Informs the S94 Review is developed and identifies potential future stormwater upgrades as a result of population growth. Refer to section 4 of this Asset Management Plan. Ongoing asset improvement plan. Refer to section 8 of this AMP. Council s Asset Management Plan informs Stormwater Renewal and Upgrade Programs. The AMP provides information on maintenance and capital services provided by Works Delivery to provide LOS. S94 Contribution plans used to develop information for section 4 of this AMP. Council will exercise its duty of care to ensure public safety is accordance with the infrastructure risk management plan prepared in conjunction with this Asset Management Plan. Management of infrastructure risks is covered in Section Legislative Requirements Council has to meet many legislative requirements including Australian and State legislation and State regulations. These include: Legislation Local Government Act 1993 Table 3.3: Legislative Requirements Requirement Sets out role, purpose, responsibilities and powers of local governments including the preparation of a long term financial plan supported by Asset Management Plans for sustainable service delivery. The purposes of this Act are as follows: (a) to provide the legal framework for an effective, efficient, environmentally responsible and open system of local government in New South Wales, (b) to regulate the relationships between the people and bodies comprising the system of local government in New South Wales, (c) to encourage and assist the effective participation of local communities in the affairs of local government, (d) to give councils: the ability to provide goods, services and facilities, and to carry out activities, appropriate to the current and future needs of local communities and of the wider public;
14 14 Legislation Local Government Act Annual Report Section 428(2)(d) Public Works Act 1912 Environmental Planning and Assessment Act 1979 Work Health and Safety Regulations 2011 Work Health and Safety Act 2011 Threatened Species Conservation Act 1995 Protection of the Environment Operations Act 1997 Road Transport (Safety and Traffic Management) Act 1999 Requirement the responsibility for administering some regulatory systems under this Act; A role in the management, improvement and development of the resources of their areas. To require councils, councillors and council employees to have regard to the principles of ecologically sustainable development in carrying out their responsibilities. DLG Integrated Planning NSW As part of the LG Act 1993 Key requirement is integrated community plans with operational and delivery plans. (d) A report of the condition of the public works (including public buildings, public road and water sewerage and drainage works) under the control of council as at the end of that year; together with (i) An estimate (at current values) of the amount of money required to bring the works up to a satisfactory standard; and (ii) An estimate (at current values) of the annual expense of maintain the works at that standard; and (iii) The Council s programme for maintenance for that year in respect of the works. Sets out the role of Council in the planning and construction of new assets. An Act to institute a system of environmental planning and assessment for the State of New South Wales. Among other requirements the Act outlines the requirement for the preparation of Local Environmental Plans (LEP), Development Control Plans (DCP), Environmental Impact Assessments (EIA) and Environmental Impact Statements. Implement the model Work Health & Safety Regulations & form part of a system of nationally harmonised occupational health & safety laws. They apply to the Commonwealth, public authorities and, for a period, non-commonwealth licensees. Some of the chapters covered include: Chapter 2 representation & participation. Chapter 3 general risks & workplace management. Chapter 4 hazardous work; including specific tasks such as manual handling, confined spaces, demolition, electrical work and diving. Chapter 5 plant and structures and Chapter 6 Construction work. The main object of this Act is to provide for a balanced and nationally consistent framework to secure the health and safety of workers and workplaces. An Act to conserve threatened species, populations and ecological communities of animals and plants. Council is required to exercise due diligence to avoid environmental impact and among others are required to develop operations emergency plans and due diligence plans to ensure that procedures are in place to prevent or minimise pollution. Facilitates the adoption of nationally consistent road rules in NSW, the Australian Road Rules. It also makes provision for safety and traffic management on roads and road related areas including alcohol
15 15 Legislation Road Transport (General) Act 2005 Roads Act 1993 Disability Discrimination Act 1992 Requirement and other drug use, speeding and other dangerous driving, traffic control devices and vehicle safety accidents. Provides for the administration and enforcement of road transport legislation. It provides for the review of decisions made under road transport legislation. It makes provision for the use of vehicles on roads and road related areas and also with respect to written off and wrecked vehicles. Sets out rights of members of the public to pass along public roads, establishes procedures for opening and closing a public road, and provides for the classification of roads. It also provides for declaration of the RMS and other public authorities as roads authorities for both classified and unclassified roads, and confers certain functions (in particular, the function of carrying out roadwork) on the RMS and other roads authorities. Finally it provides for distribution of functions conferred by this Act between the RMS and other roads authorities, and regulates the carrying out of various activities on public roads. The Federal Disability Discrimination Act 1992 (D.D.A.) provides protection for everyone in Australia against discrimination based on disability. It encourages everyone to be involved in implementing the Act and to share in the overall benefits to the community and the economy that flow from participation by the widest range of people. Native Vegetation Act 2003 Local Government (Highways) Act 1982 AS 1742 This Act regulates the clearing of native vegetation on all land in NSW, except for excluded land listed in Schedule 1 of the Act. The Act outlines what landowners can and cannot do in clearing native vegetation. An Act to consolidate with amendments certain enactments concerning the functions of the corporations of municipalities with respect to highways and certain other ways and places open to the public. Australian Standard 1742 which refers to a variety of road and traffic issues. Council will exercise its duty of care to ensure public safety in accordance with the infrastructure risk management plan linked to this AM Plan. Management of risks is discussed in Section Community Levels of Service Service levels can be defined in two terms, community levels of service and technical levels of service. Community Levels of Service measure how the community receives the service and whether Council is providing community value. Community levels of service measures used in the Asset Management Plan are: Quality How good is the service? Function Does it meet users needs?
16 16 Capacity/Utilisation Is the service over or under used? The Council s current and expected community service levels are detailed in Tables 3.4 and 3.5. Table 3.4 shows the agreed expected community levels of service, which has been based on; Cessnock City Council 2023 Community Strategic Plan, resource levels in the current long-term financial plan, and community consultation/engagement. A detailed community consultation is yet to be undertaken on community service levels specific to each asset class, this will form part of the improvement plan for the next iteration of the AMP s. Service Attribute Service Objective COMMUNITY LEVELS OF SERVICE Quality Table 3.4: Community Level of Service Stormwater system is working and not causing nuisance flooding of roads and/or footpaths Performance Measure Process Customer Survey Condition rating Current Performance 45% satisfaction level (13% very satisfied and 32% satisfied) 99% in condition 1,2,3 Desired Performance To Be Determined 100% in condition 1,2,3 Function Flooding of private property is minimised. Flooding of residences 4347 properties are subject to flood related development controls based on existing flood studies. To be determined Capacity/Utilisation Stormwater system is able to convey all flows in a minor storm event Customer service requests relating to inadequate capacity 289 flooding or drainage service requests were received in 2015 To be determined 3.5 Technical Levels of Service Technical Levels of Service - Supporting the community service levels are operational or technical measures of performance. These technical measures relate to the allocation of resources to service activities that Council undertakes to best achieve the desired community outcomes and demonstrate effective organisational performance. Technical service measures are linked to annual budgets covering: Operations the regular activities to provide service (e.g. pit and conduit cleaning, inspections, cleaning of water quality devices etc). Maintenance the activities necessary to retain an asset as near as practicable to an appropriate service condition (e.g. conduit repair, pit repair, periodic servicing of mechanical assets etc).
17 17 Renewal the activities that return the service capability of an asset up to that which it had originally (e.g. pipe and pit replacement, relining of conduit, pump replacement etc). Upgrade the activities to provide a higher level of service (e.g. replacing pipe with a larger diameter) or activities to provide a new service that did not exist previously (e.g. extending the stormwater system to provide inlets at a new location). Works Delivery and Asset Managers through the AMP s implement and control technical service levels to influence the customer service levels 1. Table 3.5 shows the technical level of service expected to be provided under this Asset Management Plan. Service Attribute Table 3.5: Technical Levels of Service Service Objective Performance Current Measure Process Performance TECHNICAL LEVELS OF SERVICE Operations Infrastructure meets user s needs. Maintenance Renewal Upgrade/New Drainage infrastructure is suitable for purpose Drainage infrastructure is suitable for purpose Flooding of private property is minimised in minor storm events Defects inspections Cleaning frequency of pipes, open channels and inlet pits Maintenance service request completed within adopted time frames Condition of pipes and structures The number of properties inundated by 1 year Average Recurrence Interval (ARI) storm Pits and pipes are inspected on an ad hoc and reactive basis Pipes, box culverts, open channels, and pits are cleaned on a reactive basis 289 flooding or drainage service requests were received in 2015 At 2015 pipes and structures in Poor and Very Poor Condition (Condition 4 and 5): 1% Council has not quantified the number of properties inundated by 1 year ARI storm to be developed using existing flood studies (as an improvement in future revisions of this AMP) Desired Performance Pits and pipes inspected on a reoccurring routine cycle Pipes, box culverts, open channels, and pits are cleaned on a reoccurring routine cycle 75% of repairs completed within 90 working days Pipes and structures in Poor and Very Poor Condition (Condition 4 and 5): 1% To Be Determined 1 IPWEA, 2011, IIMM, p 2.22
18 18 4. FUTURE DEMAND 4.1 Demand Drivers Drivers affecting demand include population change, changes in demographics, seasonal factors, vehicle ownership rates, consumer preferences and expectations, technological changes, economic factors, agricultural practices, environmental awareness, etc. 4.2 Demand Forecast The present position and projections for demand drivers that may impact future service delivery and utilisation of assets were identified and are documented in Table Demand Impact on Assets The impact of demand drivers that may affect future service delivery and utilisation of assets are shown in Table 4.3. Table 4.3: Demand Drivers, Projections and Impact on Services Demand drivers Present position Projection Impact on services Population 50,840 as at the 2011 Census Climate Change Residential Development Scientific evidence supporting the notion of climate change Increase in demand for residential land and infrastructure The projected population for 2031 is 68,364 2 (low scenario) and 101,9872 (high scenario) Increase Severity of Weather events Temperature Rise Rise in Sea Level Estimated Increase by 2031 in population of between 18,120 (low scenario) and 51,740 (high scenario) Population growth will increase infrastructure needs, putting further pressure on existing stormwater infrastructure Cessnock stormwater infrastructure will need to adapt to new climate risks to ensure appropriate infrastructure investment decisions are made to reduce long-term costs Increase in demand for maintenance of stormwater infrastructure assets Changes in Land use Changes in land use will result from rezoning and higher density developments As part of State Govt policy higher density developments will be encouraged in the Hunter Valley Area. The current levels of growth (although small) are anticipated to continue Increased loading on existing infrastructure from development works (construction works can cause significant damage to existing infrastructure) 2 Source: Cessnock City Council, Community Planning Unit (current as at August 2015).
19 Demand Management Plan Demand for new services will be managed through a combination of managing existing assets, upgrading of existing assets and providing new assets to meet demand and demand management. Demand management practices include non-asset solutions, insuring against risks and managing failures. Non-asset solutions focus on providing the required service without the need for Council to own the assets and management actions including reducing demand for the service, reducing the level of service (allowing some assets to deteriorate beyond current service levels) or educating customers to accept appropriate asset failures. Examples of non-asset solutions include providing services from existing infrastructure such as aquatic centres and libraries that may be in another LGA or public toilets provided in commercial premises. Opportunities identified to date for demand management are shown in Table 4.4. Further opportunities will be developed in future revisions of this asset management plan. Table 4.4: Demand Management Summary Demand Driver Impact on Services Demand Management Strategy Optimised Delivery Program New Subdivisions & higher density developments Community Engagement Explore community demand for Stormwater Capital Works Decrease maintenance and reduce the need for more expensive renewal Increased impervious areas leading to a greater requirement for stormwater drainage infrastructure. Community expectation may increase Potential decrease in maintenance Study stormwater condition rating from this plan and prioritise a list of assets to be included in the annual renewal program. Investigate alternative treatments to lower life cycle costs e.g. relining pipes. Implement enhanced quality control measures for donated assets. Review S94 and seek contributions towards future stormwater upgrades or new as a result of development. Engage with the community to identify justifiable community needs from other expectations and consider only community needs consistent with Council s charter. Schedule long-term capital works program. New projects will need to be assessed with a balance between competing demands for investment to renew existing assets, as well as providing expenditure for new assets to meet growing demand. 4.5 Asset Programs to meet Demand The new assets required to meet growth will be acquired free of cost from land developments and constructed/acquired by Council. New assets constructed/acquired by Council are discussed in Section 5.5. The cumulative value of new contributed and constructed asset values are summarised in Figure 1. Contributed assets gained through development are to be reviewed in future iterations of this AMP.
20 20 Figure 1: Upgrade and New Assets to meet Demand Acquiring these new assets will commit Council to fund ongoing operations, maintenance and renewal costs for the period that the service provided from the assets is required. These future costs are identified and considered in developing forecasts of future operations, maintenance and renewal costs in Section 5.
21 21 5. LIFECYCLE MANAGEMENT PLAN The lifecycle management plan details how Council plans to manage and operate the assets at the agreed levels of service (defined in Section 3) while optimising life cycle costs. 5.1 Background Data Physical parameters The assets covered by this Asset Management Plan are shown in Table 2.1. Table 2.1: Assets covered by this Plan Asset category Quantity Pits 4743 Pipes 115 km Culverts 5.5 km Stormwater assets are componentised into the following elements: Pipes All pipes and minor culverts that are <2500mm diameter. Note: major culverts are included in the bridge Asset Management Plan. Pits All kerb entry pits, junction boxes, etc. Culverts which include the Inlets/Outlets & Headwalls Points where water enters or exit the system and typically where headwalls are located. Structures/Open Channels/Detention Basins Any other man-made structure not classified above including gross pollutant traps, tanks, lined channels, open channels, detention basins etc are currently not recorded in the asset database, and will be a considered for the next revaluation of the stormwater asset class.
22 Asset capacity and performance Council s services are generally provided to meet design standards where these are available. Locations where deficiencies in service performance are known are detailed in Table Table 5.1.2: Known Service Performance Deficiencies Location Service Deficiency Open Swales Earth swales in old subdivisions are now under-capacity and no longer meet the functional requirement of the stormwater network required in these areas Connection of network Areas identified where links of stormwater pipework have not been completed, causing overflow into private property Capacity Pit, pipe, culvert under capacity for the required runoff/overflow The above service deficiencies were identified from safety and technical inspections undertaken by Cessnock City Council engineers and qualified/ experienced staff Asset condition The condition profile of Council s stormwater assets as at June 2015 is shown below in figure 3, and figure 3.1: Fig.3. Stormwater Pipes Assets Condition Rating
23 23 Fig.3.1 Stormwater Pits Assets Condition Rating Council has a documented condition assessment manual to condition rate Stormwater Assets. This manual assists staff and contractors to assess the condition of Council s Stormwater Assets. This gives a basis for consistent assessment of stormwater assets. This enables Council to determine the overall condition of its stormwater network as well as identify those assets that require repair or renewal in future years. Condition is measured using a 1 5 grading system with the addition of condition state 0 to represent newly constructed assets, and end of life (EOL) for assets out of service, see table below: Condition Index Age or Visual Condition Table 5.1.3: Condition Rating Description Condition Description 0 Constructed Asset that is newly constructed and/or is less than 12 months in age. 1 New Components are in a very good condition with limited signs of wear. Components do not require any special attention. Pipe is fully serviceable. 2 Good Components are in a reasonably good condition with superficial deterioration. Pipe line may have minor blockages. 3 Fair Evidence of significant deterioration. Stormwater pipe length is operational but displays efficiency deficiencies. Routine maintenance and/or minor refurbishment is required. 4 Poor Evidence of major or serious deterioration, with frequent blockages. Stormwater pipe is not operating and major problems are imminent. Major maintenance or rehabilitation is required. 5 Very poor Component has failed, is about to fail, has major blockages or has stopped working. The asset is unserviceable. Rehabilitation or renewal is required immediately or within 12 months. End of Life Asset out of service.
24 24 The stormwater assets with known service performance deficiencies are listed in Table Council s proposed 10-year-projected capital renewal, replacement, and upgrade works program is yet to be developed Asset valuations The value of assets recorded in the asset register as at 30 June 2015 covered by this Asset Management Plan is shown below. Assets were revalued at 30 June Assets are valued using replacement cost method (based on unit rates and dimensions). ($000) Current Replacement Cost $70,336 Depreciable Amount $70,336 Depreciated Replacement Cost $54,549 Annual Depreciation Expense $588 Useful lives were reviewed in June 2015 by benchmarking CCC values against industry standards. The stormwater assets category was revalued in 2014/15, key assumptions made in preparing the 2014/15 valuations were: Current condition of assets is based on 2014/15 revaluation and condition assessment exercise; The depreciation matrix has been assumed to be straight line condition based throughout all stormwater assets in the network. Major changes from previous valuations are due to: Revised unit rates for various stormwater asset types Additional found assets Reviewed and updated useful life s of all assets Various ratios of asset consumption and expenditure have been prepared to help guide and gauge asset management performance and trends over time. Rate of Annual Asset Consumption 0.8% (Annual depreciation exp/depreciable amount) Rate of Annual Asset Renewal 0.3% (Capital renewal exp/depreciable amount) Rate of Annual Asset Upgrade/New 3% (Capital upgrade exp/depreciable amount) In 2016 Council plans to renew assets at 40.1% of the rate they are being consumed and will be increasing its asset stock by 3% in the year.
25 Historical Data Table : Expenditure for Stormwater Assets Maintenance $525,266 $546,643 $565,917 Capital Renewal $14,801 $16,486 $32,239 Capital New $133,210 $148,371 $290, Infrastructure Risk Management Plan An assessment of risks associated with service delivery from infrastructure assets has identified critical risks that will result in loss or reduction in service from infrastructure assets or a financial shock to Council. The risk assessment process identifies credible risks, the likelihood of the risk event occurring, the consequences should the event occur, develops a risk rating, evaluates the risk and develops a risk treatment plan for non-acceptable risks. Critical risks, being those assessed as Very High - requiring immediate corrective action and High requiring prioritised corrective action identified in the Infrastructure Risk Management Plan, together with the estimated residual risk after the selected treatment plan is operational are summarised in Table 5.2. These risks are reported to management and Council. Service or Asset at Risk Stormwater Pipes, culverts, pits Stormwater Pipes, culverts, pits Stormwater Pipes, culverts, pits Table 5.2: Critical Risks and Treatment Plans What can Happen Risk Risk Treatment Residual Rating Plan Risk * (VH, H) Damage, collapse or compromised capacity of assets due to poor quality, age, unknown condition, tree root intrusion and/or inadequate funding for renewal or maintenance of assets. Blockage from debris in stormwater network, flooding, inadequate controls on development. Insufficient capacity resulting in flooding due to climate change, development, aged infrastructure. Medium Medium Medium Regular inspections & maintenance. Continual improvement of condition inventory in asset register, and locating through GPS. Regular inspections & maintenance. Clear blockages through reactive maintenance. Undertake flood management studies Medium Medium Medium Treatment Costs Mitigated in current budgets. Mitigated in current budgets. Mitigated in current budgets. Note * The residual risk is the risk remaining after the selected risk treatment plan is operational. 5.3 Routine Operations and Maintenance Plan Operations include regular activities to provide services such as public health, safety and amenity, e.g. drainage cleaning.
26 26 Routine maintenance is the regular on-going work that is necessary to keep assets operating, including instances where portions of the asset fail and need immediate repair to make the asset operational again Operations and Maintenance Plan Operational 3 activities affect service levels including quality and function through frequency (e.g. street sweeping, and grass mowing), intensity (e.g. spacing of street lights) and opening hours (of building and other facilities). Maintenance includes all actions necessary for retaining an asset as near as practicable to an appropriate service condition including regular ongoing day-to-day work necessary to keep assets operating, e.g. Cracked pit lid replacement, but excluding the full replacement of the pit. Maintenance may be classified into reactive and planned work activities. Reactive Maintenance is unplanned repair work carried out in response to service requests and management/supervisory directions. Planned Maintenance is repair work that is identified and managed using the customer request system and/or a maintenance management system (MMS). MMS activities include inspection, assessing the condition against failure/breakdown experience, prioritising, scheduling, actioning the work and reporting what was done to develop a maintenance history and improve maintenance and service delivery performance. Actual past maintenance expenditure is shown in Table Table 5.3.1: Maintenance Expenditure Trends Year Maintenance Expenditure Planned Unplanned (Reactive) 2011/12 Not identified separately $525, /13 Not identified separately $546, /14 Not identified separately $565,917 Council does not currently distinguish between planned and unplanned works. Maintenance expenditure levels are considered to be underfunded to meet projected service levels required in the medium to long term. Where maintenance expenditure levels are such that will result in a lesser level of service, the service consequences have been identified and highlighted in this AM Plan. Assessment and prioritisation of reactive maintenance is undertaken by Council staff using experience and judgement. 3 Council is currently reviewing what is recorded as operation maintenance in comparison to planned or reactive maintenance and will be incorporated into the next iteration of this AMP.
27 Operations and Maintenance Strategies Council will operate and maintain assets to provide the defined level of service to approved budgets in the most cost-efficient manner. The operation and maintenance activities include: Scheduling operations activities to deliver the defined level of service in the most efficient manner; Undertaking maintenance activities through a planned maintenance system to reduce maintenance costs and improve maintenance outcomes. Undertake cost-benefit analysis to determine the most cost-effective split between planned and unplanned maintenance activities (50 70% planned desirable as measured by cost); Maintain a current infrastructure risk register for assets and present service risks associated with providing services from infrastructure assets. Report Very High and High risks and residual risks, after treatment, to management and Council; Review current and required skills base and implement workforce training and development to meet required operations and maintenance needs; Review asset utilisation to identify underutilised assets and appropriate remedies, and over utilised assets and customer demand management options; Maintain a current hierarchy of critical assets and required operations and maintenance activities; Develop and regularly review appropriate emergency response capability; Review management of operations and maintenance activities to ensure Council is obtaining best value for resources used. Asset hierarchy An asset hierarchy provides a framework for structuring data in an information system to assist in collection of data, reporting information and making decisions. The hierarchy includes the asset class and component used for asset planning, and financial reporting and service level hierarchy used for service planning and delivery. Council is still in the process of developing hierarchies for its stormwater network and these will be incorporated into the improvement plan. Critical Assets Critical assets are those assets which have a high consequence of failure but not necessarily a high likelihood of failure. By identifying critical assets and critical failure modes, Council can target and refine investigative activities, maintenance plans and capital expenditure plans at the appropriate time. Operations and maintenances activities may be targeted to mitigate critical assets failure and maintain service levels. These activities may include increased inspection frequency, higher maintenance intervention levels, etc. Critical assets failure modes and required operations and maintenance activities are detailed in Table
28 28 Table : Critical Assets and Service Level Objectives Critical Assets Critical Failure Mode Operations & Maintenance Activities Stormwater Pipes, culverts, pits Structural Failure A critical assets management plan to be drafted as part of a future improvement task of this AMP. Pipes and Culverts Washout A critical assets management plan to be drafted as part of a future improvement task of this AMP. Retarding Basins Dam Collapse failure A critical assets management plan to be drafted as part of a future improvement task of this AMP. Standards and specifications Maintenance work is carried out in accordance with the following Standards and Specifications. CCC Engineering Guidelines for Design Austroads Standards/Specification Australian Standards/Specification IPWEA Standards/Specification Roads and Maritimes Design Guide Summary of future operations and maintenance expenditures Future operations and maintenance expenditure is forecast to trend in line with the value of the asset stock as shown in Figure 4. Note that all costs are shown in current dollar values (i.e. real values). Figure 4: Projected Operations and Maintenance Expenditure
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