1 ASSET MANAGEMENT PLAN REPORT Prepared for: Township of South Frontenac December 2013 RVA This report is protected by copyright and was prepared by R.V. Anderson Associates Limited for the account of the City of Ottawa. The material in it reflects our best judgment in light of the information available to R.V. Anderson Associates Limited at the time of preparation. Any use which a third party makes of this report, or any reliance on or decisions to be made based on it, are the responsibility of such third parties. R.V. Anderson Associates Limited accepts no responsibility for damages, if any, suffered by any third party as a result of decisions made or actions based on this report.
2 December 17, 2013 RVA Township of South Frontenac 4432 George Street, Syndeham, ON, K0H 2T0 Attention: Re: Louise Fragnito, CGA, Treasurer - Township of South Frontenac REPORT R.V. Anderson Associates Limited (RVA) is pleased to submit herein our final report and Asset Management Plan. We appreciate very much the information and helpful assistance you and your colleagues provided to us during its preparation. The main finding of our report is that, like most small municipalities across Ontario, a significant backlog of worn out assets exists that needs to be addressed over the next 5-10 years, on a priority basis. However, the Township has taken important steps in increasing its contribution to reserves and investing in Asset Management software. As a result, the Township is, in our experience, in a much better position than many of the smaller municipalities we have worked with. These reserve funds should continue to be set aside for those assets that will be reaching the end of their useful life over the next years. We recommend the Township continue to assess asset conditions and replacement priorities on a programmed basis, as these determine revenue needs (capital and operational), and help prioritize capital projects in accordance with this AMP. Should you have any questions, please feel free to contact the undersigned at Yours very truly, R.V. ANDERSON ASSOCIATES LIMITED Trish Johnson, B.A., M.A., Associate Senior Environmental Consultant
3 Township of South Frontenac TOC 1-1 TOWNSHIP OF SOUTH FRONTENAC ASSET MANAGEMENT PLAN TABLE OF CONTENTS Page 1.0 INTRODUCTION Provincial Guideline Vision for Infrastructure in the Township of South Frontenac Goals of Asset Management Scope of Development of the Refinement of the AMP STATE OF INFRASTRUCTURE Asset Inventory Asset Value Asset Condition Comparison to the Canadian National Report Card Asset Risk Refinements by Township Staff LEVELS OF SERVICE Condition Levels of Service Capacity Levels of Service Existing Levels of Service ASSET MANAGEMENT STRATEGY Asset Management Strategy Overview Managing Risk Long Term Infrastructure Capital Investment Needs Asset Management Strategies to Reduce Infrastructure Costs FINANCING STRATEGY Sources of Funding Short Term Financing Strategy Long Term Financing Strategy CONCLUSIONS AND RECOMMENDATIONS
4 Township of South Frontenac TOC 1-2 LIST OF FIGURES Figure 1 Township of South Frontenac Figure 2 Asset Value Distribution Figure 3 Distribution of Asset Condition Figure 4 Risk Matrix Figure 5 Distribution of Asset Risk Figure 6 10 Year Capital Investment Needs Figure Year Capital Investment Needs LIST OF TABLES Table 1 Inventory of Assets Table 2 Value of Assets by Asset Class Table 3 - Estimated Condition Based on Useful Life Remaining Table 4 Value of Assets by Condition Score Table 5 Probability of Failure Score Table 6 Consequence of Failure Score Information Table 7 - Risk Score by Asset Value Table 8 Typical Service Levels and Performance Metrics for Small Municipalities Table 9 Renewal Strategy based on Risk Table 10 Renewal Strategy for Medium to Low Road and Storm Sewer Assets Table 11 Short Term Capital Expenditures (Water Assets) Table 12 Short Term Capital Expenditures (Tax Supported Assets) Table 13 Long Term Capital Expenditures (Water Assets) Table 14 Adjusted Long Term Capital Expenditures (Water Assets) Table 15 Long Term Capital Expenditures (Tax Supported Assets) LIST OF APPENDICES APPENDIX A Township of South Frontenac Map APPENDIX B Information and Assumptions used to Develop Long Term and Prioritized Short Term Renewal Needs APPENDIX C Detailed State of the Infrastructure Analysis
5 Township of South Frontenac ES 1-1 EXECUTIVE SUMMARY The Province now requires that any municipality seeking provincial capital funding for infrastructure projects prepare an (AMP) to demonstrate the need of each project within its social, economic or environmental priorities. This report represents the Township of South Frontenac s first iteration of a strategic AMP based on current infrastructure information. The asset inventory currently includes roads, bridges and culverts, water treatment and storage facilities, water mains, and storm sewers. The key components of the asset inventory are illustrated on the following page. The Township currently owns and operates approximately $300 million of infrastructure, and other assets will be added to the plan as more data is gathered. Like most small municipalities across Ontario, a portion of assets are in poor or critical condition. South Frontenac has slightly more assets in poor and critical condition than the national average. These assets should be addressed over the next 10 years, on a priority basis. Over the next 100 years, the Township should spend an average of $9.5 million per year for asset rehabilitation and replacement. For water assets, there will be sufficient funds to cover capital expenditures through Water User Fees in the short term (10 years). In the long term (100 years), an annual increase of 0.12%, above inflation adjustments, will be required to raise sufficient funds for renewing water assets. The current Municipal Tax Levy is insufficient to finance forecasted expenditures in the short term for tax supported assets. An annual increase of 5% over the next 10 years would be required to avoid a deficit at the end of the decade. By taking a longer term view, this Tax Levy increase can be reduced. The Township has recently approved an increase of 1%, compounded yearly. Over the next 100 years, the Tax Supported Capital Levy coupled with the 1% Asset Investment Reserve and inflation adjustments is sufficient to finance AMP expenditures. The Township is in a better position financially than many municipalities in Ontario. South Frontenac has taken a proactive approach in addressing infrastructure needs by setting aside reserve funds to minimize deficits and by investing in Cartegraph to better understand transportation asset condition, risk and replacement needs. This strategy positions the Township of South Frontenac on a path to sound asset management.
6 Township of South Frontenac ES 1-2
7 Township of South Frontenac INTRODUCTION This report represents the Township of South Frontenac s first (AMP), based on current data and information on the Township s transportation and water infrastructure. The Township intends to continually improve this AMP over the coming years as additional information is collected and as its knowledge of asset condition increases. The Township of South Frontenac is located in Eastern Ontario in Frontenac County, bounded by the City of Kingston and the Townships of Stone Mills, Central Frontenac and Rideau Lakes (Figure 1). The Township has a population of 18,100 1 and covers an area of 972 km 2. Sydenham is the only area in which water servicing is available. Refer to Appendix A for a detailed map of the Township. Figure 1 Township of South Frontenac 1 Statistics Canada. (2012). Focus on Geography Series, 2011 Census.
8 Township of South Frontenac Provincial Guideline In 2010, Ontario s Ministry of Infrastructure released a guide titled Building Together: Guide for Municipal s. This guide forms part of a comprehensive strategy called the Municipal Infrastructure Investment Initiative (MIII) intended to develop a cooperative relationship between municipalities and the Province of Ontario to address our deteriorating infrastructure. The Province seeks to achieve standardization and consistency in the management of municipal infrastructure by requiring any municipality applying for provincial capital funding to prepare an AMP that demonstrates the particular need of the project within the social, economic or environmental priorities of the community. 1.2 Vision for Infrastructure in the Township of South Frontenac In 2003, the Township of South Frontenac adopted its latest Official Plan, with minor amendments in As part of this Plan, a Vision Statement was developed to guide the growth of the Township: South Frontenac is an amalgamation of communities whose common goals have brought them together for mutual co-operation. The Official Plan provides a framework for directing South Frontenac s growth in a manner which will preserve the Township s environmental integrity while enhancing both its rural character and its long-term economic viability. Although the Plan was primarily developed to guide new development in the Township, the same principles are also relevant to the management of South Frontenac s infrastructure. The following points highlight some of the key goals and objectives presented in the Official Plan relating to asset management: Require adequate and efficient systems of water supply, sanitary sewage disposal, storm drainage and waste disposal to all areas of development in the Township and to co-ordinate development with the Township s ability to provide adequate physical and community services; and Provide an efficient and cost-effective transportation network that optimizes the movement of people and goods throughout the Township. 2 Township of South Frontenac. (2003). Official Plan, Updated 2013.
9 Township of South Frontenac 1-3 The Township s Strategic Plan 3 provides a clear directive to provide high quality services to residents through a series of goals. The following goals provide a vision for the management of the Township s infrastructure and have helped to guide the development of this Plan: 1. Develop a policy framework for managing growth, the planning process and the demand for services. o Provide clear direction and consistency to those engaging with the Township's planning process. o Manage growth with a long-term plan rather than short-term ad hoc decisions. 2. Consolidated Capital Plan. o Complete an inventory of capital assets and a needs assessment to manage infrastructure, halls/facilities, property waste sites and equipment. o Look at options for multi-year budget planning, including provincial/federal funding opportunities, various formulas for building reserves to replace assets, and long-term financing instruments such as bonds and debentures. o The review should include a look at access and other policies, especially in the context of liability assessments. 1.3 Goals of Asset Management Asset Management strives to continually improve the Township s infrastructure. The following are a list of goals that asset management programs and processes aim to achieve: Optimize life cycle costs (i.e. total operating, maintenance and capital resources) of providing services to residents; Reduce risk exposure by ensuring that assets are managed by recognizing the risk that their failure represents to the delivery of services; Informed and transparent decision making processes integrating capital expenditures, operating costs and revenue requirements (i.e. rate and tax levels); and Mechanisms to ensure that the infrastructure services are delivered at a sustainable and affordable level to residents. 3 Township of South Frontenac. (2013). Strategic Plan.
10 Township of South Frontenac Scope of This AMP developed for South Frontenac covers a period of 100 years and reports on the following assets owned by the Township: Roads; Water mains and water distribution Bridges and culverts; system appurtenances; and Water treatment and storage facilities; Storm sewers. The Township is responsible for other assets including buildings, fleet, sidewalks, street lighting, land, among others, which will be added to the AMP as data gathered for these assets becomes more complete. The Township does not own any wastewater infrastructure or social housing assets. 1.5 Development of the This AMP was developed by RVA with assistance from Township staff. The following documents were reviewed and incorporated throughout the development of this AMP: Township of South Frontenac Official Plan (2003) Township of South Frontenac Strategic Plan Municipal Budgets and other Financial Documents South Frontenac Township By-Law O/Reg 239/02 for the Minimum Maintenance Standards for Municipal Highways The Township has recently invested in Cartegraph, an asset management system which will help guide their decisions for roads, bridges and culverts. Information on these assets, including condition, age and value, was sourced from this database. Water asset information was based on historical records from the Township. 1.6 Refinement of the AMP This AMP is a first step in achieving the Township s goals. The Township will also develop an Implementation Strategy that will improve subsequent iterations of the AMP using performance and condition information that is obtained
11 Township of South Frontenac STATE OF INFRASTRUCTURE This section summarizes the state of the Township s infrastructure, including: Inventory of all assets; Value of the assets; and Risk assessment, based on probability of failure and consequence of failure. 2.1 Asset Inventory The asset inventory for South Frontenac includes transportation assets (roads, bridges and culverts), water assets (water treatment plant, storage facility, and water mains), and storm sewers. Table 1 Table 1 Inventory of Assets provides a summary of the assets included in the scope of this study. Other assets including buildings, Asset Class Roads Inventory 815 km Bridges & Culverts 61 vehicles, leaseholds, and other equipment will be WTP & Storage 1.3 ML/d added to the asset management inventory over the Water Mains 6.4 km coming years as additional information is collected and Storm Sewers 3 km as knowledge of the condition of assets increases. 2.2 Asset Value Asset value was based on both historical costs and typical unit costs provided by the Township, detailed in Appendix B. Asset valuation is summarized in Table 2. Table 2 Value of Assets by Asset Class Asset Class Cost % of Total Assets Roads $269,691,000 88% Bridges & Culverts $25,200,815 8% WTP & Storage $6,416,581 2% Water Mains $3,317,202 1% Storm Sewers $2,759,485 1% Total $307,385, % The Township currently owns and operates $307 million of transportation and water assets. Roads represent 88% of the total value of the Township s in-scope assets, followed by bridges & culverts (8%). A graphical depiction of asset distribution is shown in Figure 2.
12 Township of South Frontenac 2-6 Bridges & Culverts, $25,200,815 Water Facilities, $6,416,581 Roads, $269,691,000 Water mains, $3,317,202 Storm Sewers, $2,759,485 Remaining Assets, Value TBD Figure 2 Asset Value Distribution Note that the Township is responsible for other assets that were not included in the AMP but will be incorporated in future updates to the plan as more information is gathered. Total replacement value of these assets is unknown at this time. 2.3 Asset Condition Understanding the condition of the Township s assets is an essential component in an AMP. Ideally, condition information is based on assessment activities that provide first-hand knowledge of the infrastructure. Condition information was available for transportation assets and storm sewers in South Frontenac. Water assets are relatively new, and more information will be collected over time as inspections are conducted Transportation and Stormwater Assets Actual condition information was available for roads, bridges and culverts, and storm sewers in South Frontenac. The Township tracks transportation assets using Cartegraph, including asset condition, historical and current value, and location. Asset condition for roads was based on the
13 Township of South Frontenac 2-7 Overall Condition Index (OCI) evaluated during the road inspections conducted in Asset condition for bridges and culverts was based on the Bridge Condition Index (BCI) from the most recent Ontario Structure Inspection Manual (OSIM) reports from inspections conducted in 2012 and Asset condition for storm sewers was based on structural grade evaluated during sewer inspections conducted in November Appendix B details how the condition assessment information for these asset types were converted to a condition score Water Assets Condition information was not available for the water treatment plant, the water storage facility or water mains. Therefore, asset condition was estimated by evaluating the amount of useful life remaining. The water treatment plant, storage tower and water mains were all constructed in 2005 with plant upgrades completed in The amount of useful life remaining was based on present age and typical useful life, summarized in Table 3. All of these assets were found to have over 80% of useful life remaining; therefore, it was assumed that they are all in excellent condition. Table 3 - Estimated Condition Based on Useful Life Remaining Asset Description Year Constructed Typical Useful Life (Years) Percent of Useful Life Remaining Estimated Condition Raw Water Intake % Excellent Elevated Water Storage Tower % Excellent Treatment Plant % Excellent Plant Upgrades (UV & GAC contactors) % Excellent Water Mains % Excellent This approach provides sufficient condition information for analysis, and can be updated as knowledge of these assets increases Asset Condition Summary Table 4 summarizes the condition of the Township s infrastructure. Approximately $11 million worth of assets are nearing the end of their useful life and are considered in critical condition.
14 Township of South Frontenac 2-8 Table 4 Value of Assets by Condition Score Condition Score Cost % of Total Assets Excellent $98,887,520 32% Good $89,559,038 29% Fair $73,225,575 24% Poor $34,991,075 11% Critical $10,721,875 4% Total $307,385, % Approximately 15% of assets are in poor or critical condition. Figure 3 shows the value distribution of assets by condition graphically. Assets in critical and poor condition include a portion of the roads, bridges and culverts, and storm sewers. $120,000,000 $100,000,000 Asset Condition Water Facilities Water mains Storm Sewers Bridges & Culverts Roads $80,000,000 $60,000,000 $40,000,000 $20,000,000 $0 Excellent Good Fair Poor Critical Figure 3 Distribution of Asset Condition
15 Township of South Frontenac Comparison to the Canadian National Report Card In September 2012, a consortium comprised of the Canadian Society for Civil Engineering, the Canadian Pubic Works Association, the Canadian Construction Association and the Federation of Canadian Municipalities released the inaugural Canadian Infrastructure Report Card 4. This document included a summary of the State of infrastructure for 123 municipalities who responded to a survey. The National Report Card reported that approximately 9% of the road, water, wastewater and storm water assets in municipalities across Canada are in poor or critical condition. The analysis of the Township of South Frontenac infrastructure indicates that 15% of these assets are in poor or critical condition, slightly above the national average. 2.5 Asset Risk The state of infrastructure is not only defined by its physical condition but also by its function and the consequence of failure. To achieve a better understanding of the Township s needs, a risk score was calculated for each asset. For example, an asset with a low consequence of failure can be managed such that it is replaced only after it fails. However, assets that have a high consequence of failure should be managed in a proactive manner that does not permit the condition to fall below poor. For the purposes of this AMP report, risk was defined as the product of the probability of failure and the consequence of failure, with additional consideration for Health and Safety risk. The Township currently tracks risk of transportation assets through Cartegraph. The system incorporates parameters to evaluate the condition of assets and includes a preventative strategy to extend the life of assets, such as crack sealing. It also considers related assets including sidewalks and storm sewers in planning replacement work. The Township will continue to optimize the strategy used in this system to extend useful life of assets and employ a preventative maintenance strategy. 4
16 Township of South Frontenac Probability of Failure A probability of failure score was given to each asset based on the condition rating in Section 2.3. Although the probability of an asset failing is not necessarily indicative of its age (e.g. some newer water mains can fail more frequently than older water mains due to their production methods), sufficient records are not yet available to track failure history of assets. This can also be addressed in future updates of the AMP. Table 5 summarizes the probability of failure score that was assigned to each asset based on the estimate of its physical condition and age. Table 5 Probability of Failure Score Estimated Condition Probability of Failure Description Probability of Failure Score Excellent Improbable 1 Good Unlikely 2 Fair Possible 3 Poor Likely 4 Critical Highly Probable Consequence of Failure The consequence of failure score for each asset was based on a review of information that was provided by the Township, such as: Size/capacity/cost of the asset; Location of the asset; The use of the asset; and The importance of the asset to the operation of the system/facility. Table 6 summarizes the approach used to establish consequence of failure scores.
17 Township of South Frontenac 2-11 Table 6 Consequence of Failure Score Information Consequence of Failure Description Consequence of Failure Score Very low measureable effect of any kind 1 Low/ seldom/marginal impact on the function, serviceability, or capacity of the asset and (or) effect on public safety and the environment Moderate/ regular impact on the function, serviceability, or capacity of the asset and (or) effect on public safety and the environment Major/ regular impact on the function, serviceability, or capacity of the asset and (or) effect on public safety and the environment Catastrophic loss of infrastructure affecting public safety or having severe environmental consequences Roads were assigned consequence of failure scores ranging from 3 to 5. Roads in school zones or adjacent to fire halls were assigned a score of 5 to reflect a high consequence of failure. Arterial roads were also given a score of 5, collector roads were given a score of 4, and local roads were given a score of 3. Bridges and culverts located along arterial roads were given a higher score than those along local and collector roads. The water treatment plant was assigned a score of 5 as failure at the plant would affect water quality in the distribution system and a treated water supply would not be available. Refer to Appendix B for further detail Risk Assessment A risk score between 1 and 25 was calculated for each asset by multiplying consequence of failure scores and probability of failure scores. A third factor, Health & Safety Risk, was also considered. Assets with known safety risks were noted and given higher priority for replacement. This could include consideration for roads with high pedestrian traffic where no sidewalks exist, and roads with high vehicle collisions counts due to poor sightlines, among others. The Township will continue to update this rating as priority areas become known. A risk category was established for each asset based on risk score. Figure 4 summarizes the process that was used to categorize risk score into the following categories:
18 Township of South Frontenac represents low level risk; 4-6 represents medium-low level risk; 8-9 represents medium level risk; represents medium-high level risk; represents a high level of risk. Consequence Probability of Failure Table 7 summarizes the risk scores of the Figure 4 Risk Matrix assets in the Township. Approximately 8% ($26 million) of assets have a high level of risk. Another 23% ($69 million) of the Township s assets have a risk score of medium-high. Table 7 - Risk Score by Asset Value Risk Cost % of Assets Low $50,046,316 16% Medium-Low $105,952,154 35% Medium $56,113,338 18% Medium-High $69,067,550 23% High $26,205,725 8% Total $307,385, % High risk assets should be addressed in the near term (5 years) to reduce the risk exposure to the Township and medium-high risk assets should be addressed in the short term (5-10 years). Some assets may require early upgrading if health and safety factors pose a risk. Similarly, the Township may be able to delay the replacement of other assets if a higher level of risk can be accepted. The Township will consider a number of factors when prioritizing asset replacement and upgrades. Section 4 of this report describes the Asset Management Strategy suggested for addressing assets that represent elevated levels of risk. Risk distribution is summarized in Figure 5.
19 Township of South Frontenac 2-13 Risk Distribution $120,000,000 $100,000,000 Bridges & Culverts Water mains WTP & Storage Storm Sewers Roads $80,000,000 $60,000,000 $40,000,000 $20,000,000 $0 Low Medium-Low Medium Medium-High High Figure 5 Distribution of Asset Risk 2.6 Refinements by Township Staff The condition, consequence of failure, and risk scores were reviewed with Township staff who utilized their knowledge of the Township s infrastructure to refine the scores as much as possible. The Township recognizes that the general approach and individual risk scores for each asset will be refined over the coming years as more information becomes available.
20 Township of South Frontenac LEVELS OF SERVICE A level of service is a term that is used to describe how much of a service is being provided or the quality of a service that is being provided. In the context of asset management, levels of service are established as a way to guide the management of infrastructure in a manner that aims to achieve a level of service goal. Levels of service in smaller townships can vary widely related to finances, federal/provincial regulations, customer expectations, and/or corporate vision. In terms of Township infrastructure, the services provided are especially related to operation and maintenance cost and/or development and growth consideration. This section of the AMP gives an overview of service levels based on the Township s existing documentation and current infrastructure management practices. The levels of service are often informal and undocumented. 3.1 Condition Levels of Service The most basic level of service is to maintain infrastructure in an acceptable state of repair and minimize the risk exposure of the Township to an acceptable level. The capital works planning process usually addresses the infrastructure that is in the worst state of repair and would result in significant consequences if it were to fail, based on coordination among department managers and Council. The current capital planning process used by the Township does represent a risk-based approach to managing infrastructure and this AMP provides a more formalized approach to help develop this process. 3.2 Capacity Levels of Service Provincial policies and regulations define some minimum levels of service for water and transportation, including Ontario Regulation 239/02 (Minimum Maintenance Standards for Municipal Highways) 5 and Ontario Regulation 170/03 (Drinking Water Systems) 6. Similar to most municipalities in Ontario, a comprehensive set of service levels to support more intensive asset management activities has not yet been prepared
21 Township of South Frontenac Existing Levels of Service The primary resource to help define service levels was Ontario regulations. Majority of the levels of service documented are informal and are based on discussions with Township staff. These can be revisited and expanded upon as part of the AMP refinement process in the future Township Official Plan The Official Plan provides some direction on the levels of services of the asset groups in the Township at a strategic level, based on the economic, social and environmental considerations for growth in the Township. Section 4.0 of the Official Plan lays out general goals and objectives related to servicing and transportation. This translates to a general level of service requiring adequate, efficient and cost effective services and transportation throughout the Township. The Official Plan does not document specific service targets or criteria Documented Service Levels The Township adheres to Ontario Regulation 239/02 which sets minimum standards of repair for roads and bridges under municipal jurisdiction. Through Cartegraph, South Frontenac tracks and assesses their transportation assets and has a preventative strategy in place with an overall road overall condition index target of 65. This encompasses the Township s desired level of service for road assets through a decision making process which considers road class, surface type, and roadside environment. At this time, the Township does not have documented levels of service for storm sewers, water mains or water treatment facilities. Table 8 provides a set of typical service levels and performance metrics that the Township can consider in future updates of its AMP.
22 Township of South Frontenac 3-16 Table 8 Typical Service Levels and Performance Metrics for Small Municipalities Department Typical Levels of Service Suggested Performance Metric Water Mains & Water Facilities Storm Sewers Roads & Bridges 1. Provide services to Settlement Areas to accommodate growth on a cost recovery basis 2. Water system designed for maximum day + fire flow or maximum hour; Normal operating pressure between 350 to 480 kpa, 280 kpa to 700 kpa is allowable 3. Services at least 19 mm; Water mains at least 150 mm in diameter 4. Meet all regulated drinking water quality targets 1. Provide services to Settlement Areas to accommodate growth on a cost recovery basis 2. Level of protection established based on nature of area drained (risk/loss/damage of life/property): Major system - overland flooding less than 150 mm during 100 year event; Minor system 5 year storm, 10 year storm in select high value commercial area; Culverts, major sewers designed for the 25 to 50 year depending on road classification; 50 year storm for overland flow, some flooding permitted to below depth of 100 mm. 3. Discourage the use of small isolated wet ponds with no environmental or aesthetic or recreational benefit 1. Provide services to Settlement Areas to accommodate growth on a cost recovery basis 2. Level of Service D on all roads in peak hour 3. Urban Arterial roads have bike lanes and transit 4. Sidewalks on two sides of urban arterial and residential collector, one side on all other urban roads. 5. All new roads are paved 6. Concrete curb & gutter (and storm sewer) on all urban roads 7. Volume to capacity ratios should not exceed 0.85 to 1 at intersections 8. Provide maintenance standards in accordance with O/Reg 239/02 1. Number of development applications that are delayed due to a lack of adequate water infrastructure 2. Locations with inadequate pressure or flows confirmed through hydraulic modeling or field testing 3. Locations with inadequate infrastructure (small mains or services) 4. Number of times the regulated drinking water quality targets are not achieved 5. Number of customer complaints 1. Number of development applications that are delayed due to a lack of adequate storm water infrastructure 2. Number of locations where infrastructure does not meet protection target 3. Number of resident complaints 1. Number of development applications that are delayed 2. Number of roads less than level of service D during peak hour 3. Number of urban arterial roads with bike lanes and transit services 4. Number of roads that meet sidewalk level of service 5. Number of roads that are currently gravel that should be paved 6. Number of roads that do not meet curb/gutter/storm sewer level of service 7. Number of intersections that do not meet capacity level of service 8. Number of times road maintenance is not in accordance with O/Reg 239/02 9. Number of user complaints
23 Township of South Frontenac ASSET MANAGEMENT STRATEGY 4.1 Asset Management Strategy Overview The asset management strategy component of the AMP represents the set of planned activities to ensure that the state of the infrastructure achieves the level of service goals. The strategy is generally related to optimizing decisions with respect to: The replacement or rehabilitation of assets; The optimal level of maintenance investment required to minimize the long term costs of the assets (i.e. does more maintenance result in a longer useful life?); Disposing of assets that are not required to meet service levels; and Addressing Township policies that impact the infrastructure intervention that is used (i.e. does the asset size/design need to change to meet a certain policy). 4.2 Managing Risk This AMP establishes the management of risk as the primary method for developing an asset management strategy. This strategy is to prioritize the renewal of infrastructure that represents a high risk to the Township. This risk management strategy develops a renewal plan that is based on addressing the highest risk assets first according to the risk categories that were established in Section 2 of this report. The renewal of assets in the short term should be prioritized based on risk. Assets with a risk score of 25 should be replaced in the immediate future (2014). High risk assets should be replaced in the next 5 years (between 2015 and 2018), and medium-high risk assets should be replaced in the next ten years (between 2019 and 2023). To quantify the replacement value in each individual year, a random value in the corresponding replacement year period was generated for each asset. Medium, medium-low, and low risk assets should be replaced according to their remaining expected useful life over the long term (next 100 years). This strategy is summarized in Table 9.
24 Township of South Frontenac 4-18 Table 9 Renewal Strategy based on Risk Risk Category Risk Score Term Year Max Score 25 Immediate 2014 High Near Term (next 5 years) Medium-High Short Term (next 5-10 years) Medium Medium-Low Low Long Term - regular planned renewal based on condition, age of asset and expected useful life or when asset reaches a higher risk level (i.e. probability or consequence of failure increases) The strategy to prioritize the renewal of infrastructure that represents a high risk to the Township should be continued and expanded. The Township should continue to consider other factors when prioritizing asset replacement, such as health and safety, accessibility, complimentary asset replacement (road reconstruction, storm sewer and water main replacement at the same time), and capacity requirements (upgrading the size of a water main due to increased demand from new developments). The replacement strategy established through Cartegraph that South Frontenac currently uses for roads considers complimentary asset replacement to optimize use of resources and minimize disruption to the community. This is a recognized best practice. Figure 6 illustrates 10 year capital investment needs for the Township s infrastructure using the risk-based asset management strategy. Over the next ten years, the Township should spend an average of $9.5 million per year to address the infrastructure needs (in constant 2013 dollars).
25 Township of South Frontenac 4-19 $20,000,000 Short Term Capital Investment Medium-High Risk Assets $18,000,000 $16,000,000 $14,000,000 High Risk Assets $12,000,000 $10,000,000 $8,000,000 Average Yearly Investment $6,000,000 $4,000,000 $2,000,000 $ Investment Year Roads Bridges & Culverts Storm Sewers WTP Watermains Figure 6 10 Year Capital Investment Needs
26 Township of South Frontenac Long Term Infrastructure Capital Investment Needs Long-term investment over the next 100 years must be considered to plan for replacement of assets with longer life cycles. Buried infrastructure such as storm sewers and water mains are expected to have a useful life of years, and may last even longer. Similarly, newly constructed water facilities have expected useful lives of 100 years. In order to capture replacement of all assets the full life cycle period must be considered. Long-term investment associated with replacement needs for first, second, and third replacements over the next 100 years were based on condition, age and remaining useful life. First replacement term for medium, medium-low, and low risk road and storm sewer assets was determined on risk score. The second and third replacements are estimated based on expected useful life. This strategy is summarized in Table 10. Table 10 Renewal Strategy for Medium to Low Road and Storm Sewer Assets Risk Category Risk Score Year Roads Storm sewers Medium Medium-Low Low Minimum Score Remaining useful life and condition were used for bridges and culverts. For example, culverts are assumed to have a useful life of 50 years. A culvert that was constructed in 1995 has 64% of its useful life remaining, or 32 years (more than half its useful life). The first replacement of this bridge should be scheduled for The second replacement would occur in The third replacement would occur in 2145, beyond the study scope. Similarly, if the bridge has a low to medium risk score, but more than half the useful life has passed, the replacement schedule is determined based on current condition. Figure 7 provides the long term capital investment needs for the renewal of the Township s existing infrastructure based on a strategic review of the replacement cost and theoretical useful life of each asset.
27 Township of South Frontenac 4-21 $120,000,000 Long Term Capital Investment $100,000, Year Investment Average $80,000,000 $60,000,000 $40,000,000 $20,000,000 $ Roads Bridges & Culverts Storm Sewers WTP Watermains Figure Year Capital Investment Needs
28 Township of South Frontenac 4-22 Based on this review, the existing in-scope infrastructure needs are approximately $9.5 million per year (in constant 2013 dollars), to be sustained using this strategic approach. This represents an overall lifecycle cost of approximately 3% on top of routine O&M costs, which usually are in the range of 3-5% for municipal infrastructure. Over the coming years, the Township will continually review the infrastructure needs as more information becomes available and as technological improvements reduce the cost of renewing infrastructure. 4.4 Asset Management Strategies to Reduce Infrastructure Costs The Township intends to continue advancing its asset management practices over the next several years. The infrastructure needs presented in Figure 6 and Figure 7 are based on the assumption that the Township will replace existing infrastructure with an identical asset and therefore uses replacement costs indicated. However, it may be feasible to replace infrastructure at a lower cost by using alternative procurement methods, new technologies, or rehabilitating the existing assets. The following is a list of strategies that the Township will continue to consider and improve upon to reduce the costs of addressing the immediate infrastructure needs: Review the potential cost savings of multi-year contracts to renew infrastructure (i.e. road resurfacing, water main replacement, etc.); Review the potential of undertaking partnerships with neighboring municipalities to achieve greater economies of scale with respect to infrastructure replacement contracts; Review operational practices to seek optimization of current assets.
29 Township of South Frontenac FINANCING STRATEGY The financing strategy is the final component of the AMP and provides the plan to move forward. For the purposes of this report, it was assumed that all expenditures are in 2013 dollars, levies will be maintained in future years, and assets are replaced at the end of their useful life. This strategy does not account for inflation; typical increases and adjustments to address inflation are still required. 5.1 Sources of Funding The Township of South Frontenac provides funding for assets through two sources of revenue: Water User Fees and Municipal Tax Levy. The financing strategy supports this method of operating by addressing these two areas separately. Note that this financing strategy assumes zero change to the existing funding received through senior government programs, including the Federal Gas Tax. In 2012, South Frontenac approved a 1% tax levy increase, compounded yearly, which goes into the Asset Investment Reserve. This strategy is a proactive way to deal with infrastructure deficit, and is a best practice recommended by all regulatory agencies. This will help to offset capital expenditures for tax supported assets. 5.2 Short Term Financing Strategy Water Assets The water treatment plant, water storage facility and water mains were constructed in the past 10 years; as such, these assets are not expected to require major capital replacement in the short term. Utilities Kingston operates these facilities and has developed a short term capital investment forecast for the next 10 years. This forecast has been included in short term expenditures. The Township is currently in a position of deficit from accumulated depreciation of the water treatment plant and water mains constructed in The Township has proposed rate increases over next 5 years to reduce the deficit. The Revenues and Capital Expenditures for water infrastructure over the next 10 years are displayed in Table 11.
30 Township of South Frontenac 5-24 Table 11 Short Term Capital Expenditures (Water Assets) Year Opening Balance Expenditures Capital Levy Ending Balance ,822 3,500 35, , ,566 7,700 90, , ,896 26, , , ,005 31, , , ,506 11, , , , , , , ,254 10, ,423 1,052, ,052,677 29, ,423 1,188, ,188, , ,423 1,078, ,078,193 23, ,423 1,220,116 TOTAL 522,670 This table illustrates that over the course of the next 10 years, the current proposed Water Capital Levy is sufficient to finance the expenditures. The surplus at the end of 2023 will be used to finance future year s expenditures Tax Supported Assets Tax supported infrastructure includes roads, bridges, culverts and storm sewers. It should be noted that other assets not included in the scope of this study are also supported through tax levies. In 2012, the Township approved a 1% increase to the Asset Investment Reserve. For the purposes of this plan, 80% of the reserve is allocated towards roads, bridges & culverts and storm sewers. The Revenues and Capital Expenditures for tax supported infrastructure over the next 10 years are displayed in Table 12. Year Table 12 Short Term Capital Expenditures (Tax Supported Assets) Opening Balance Expenditures Capital Levy 1% Asset Investment Reserve Ending Balance ,765 10,775,000 4,283, ,308-5,233, ,233,928 3,559,500 4,283, ,624-3,993, ,993,805 3,012,250 4,283, ,940-2,097, ,097,116 2,106,675 4,283, , , ,464 6,752,300 4,283, , , ,265 18,408,475 4,283, ,888-13,981, ,981,853 14,362,525 4,283,999 1,062,204-22,998, ,998,175 9,963,350 4,283,999 1,171,520-27,506, ,506,006 14,565,100 4,283,999 1,280,836-36,506, ,506,271 11,768,100 4,283,999 1,390,152-42,600,220 TOTAL 95,273,275
31 Township of South Frontenac 5-25 Over the course of the next 10 years the current Tax Supported Capital Levy is insufficient to finance the expenditures. At the end of 2023 there is a deficit of $42.6 million. In the absence of additional government funding or cost savings, an annual Tax Levy increase of 5% for each of the next 10 years, on top of the approved 1% increase, would be needed to reduce this deficit to zero by the end of the decade. Tax Levy increases of this magnitude are not received favourably by taxpayers. By taking a longer term view, this Tax Levy increase can be reduced. This will be discussed in the Long-Term Financing Strategy Addressing the Short-Term Financial Requirements The following list of alternatives should be considered to reduce the financing requirements over the next ten years: 1. The Township should develop an Implementation Strategy to improve this Plan over the next few years. This would include optimizing the current service levels and continuing to update condition, risk, and health and safety information. 2. Continue to raise reserve funds through tax rate increases to offset accumulating depreciation costs. 3. Some municipalities rely on debt to decrease to reduce tax rate increases. This may be viewed as a feasible option, but it must be recognized that debt offers short term relief but long term pain. Money borrowed today must be paid back in the future with interest. 4. Continue to pursue Provincial and Federal grants whenever possible. The Plan assumes no grant funding from the Provincial and Federal Governments. This is a conservative approach that is recommended in the Provincial government s asset management guide. Both senior levels of government have acknowledged that they should share in addressing the infrastructure deficit. It is reasonable to assume that funds will become available in the future from both senior levels of government. Over the past few years, South Frontenac has undertaken a proactive approach to addressing their financial position, and should continue to do so. Setting aside reserves to address future expenditures puts the Township is a good position financially. South Frontenac is in a better position financially than many municipalities of similar size in Ontario. It was noted that in the past, the Township was spending approximately 2% on Operations & Maintenance for roads and an additional 2% on Capital, which is in the appropriate range to maintain infrastructure and
32 Township of South Frontenac 5-26 rehabilitate aging assets. The Township should continue to employ proactive financing strategies to minimize deficit and keep this infrastructure in good condition well into the future. 5.3 Long Term Financing Strategy Water Assets The Capital Expenditures over the 100 years indicate that the asset replacements for water assets are grouped in large amounts. Water assets were all constructed around the same time, and as such, are expected to need replacement in the same year, according to expected useful life. The Revenues and Capital Expenditures on water infrastructure over the next 100 years are displayed in Table 13. Investment Period Table 13 Long Term Capital Expenditures (Water Assets) Opening Balance Expenditures Capital Levy Ending Balance , ,670 1,420,964 1,220, ,220, ,000 1,654,230 2,483, ,483,346 1,103,524 1,654,230 2,989, ,989, ,654,230 4,643, ,643,282 4,867,321 1,654,230 1,430, ,430, ,654,230 3,084, ,084, ,654,230 4,738, ,738,651 4,420,726 1,654,230 1,972, ,972, ,654,230 3,626, ,626,385 6,416,581 1,654,230-1,135,966 TOTAL 17,766,822 Over the course of the next 100 years the current Water Capital Levy is insufficient to finance the expenditures. By the end of the 100 years, additional financing of $1 million will need to be applied to the Water User Fees Supported capital program. An annual Total Water User Fees increase of approximately 0.12% to total water user fees will raise sufficient funds to finance the $1 million. This is demonstrated in Table 14.
33 Township of South Frontenac 5-27 Investment Period Table 14 Adjusted Long Term Capital Expenditures (Water Assets) Opening Balance Expenditures Capital Levy Ending Balance , ,670 1,432,904 1,232, ,232, ,000 1,688,058 2,484, ,484,114 1,103,524 1,710,205 3,090, ,090, ,732,617 4,823, ,823,412 4,867,321 1,755,299 1,711, ,711, ,778,253 3,489, ,489, ,801,483 5,291, ,291,126 4,420,726 1,824,997 2,695, ,695, ,848,789 4,544, ,544,186 6,416,581 1,872, TOTAL 17,766, Tax Supported Assets The Revenues and Capital Expenditures for tax supported infrastructure over the next 100 years, separated into decades, are displayed in Table 15. Investment Period Table 15 Long Term Capital Expenditures (Tax Supported Assets) Opening Balance Expenditures Capital Levy 1% Asset Investment Reserve Ending Balance ,765 95,273,275 42,839,990 8,982,300-42,600, ,600,220 83,920,600 42,839,990 19,913,900-63,766, ,766,930 98,907,150 42,839,990 30,845,500-88,988, ,988,590 87,800,900 42,839,990 41,777,100-92,172, ,172,400 88,398,850 42,839,990 52,708,700-85,022, ,022, ,826,815 42,839,990 63,640,300-80,369, ,369,085 92,668,898 42,839,990 74,571,900-55,626, ,626,093 92,903,812 42,839,990 85,503,500-20,186, ,186, ,777,825 42,839,990 96,435,100 15,310, ,310,850 87,995,300 42,839, ,366,700 77,522,240 TOTAL 933,473,425 The Township has approved a 1% tax levy increase, compounded yearly. This is a good step in addressing the necessary financing. Over the course of the next 100 years the current Tax Supported Capital Levy, coupled with the 1% Asset Investment Reserve is sufficient to finance
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