Langfassung / long version Road Asset Management Research Program In Finland Abstract Mr. Vesa Männistö, M.Sc. (Statistics) Inframan Ltd Länsituulentie 10, 02100 Espoo, Finland Tel +358-9-8567 7715, fax +358-9-8567 7755 E-mail: vesa.mannisto@inframan.fi Mr. Mikko Inkala, M.Sc. (C.E) Finnish Road Administration, P.O.Box 33, 00521 Helsinki, Finland Tel +358-20 422 150, fax +358-20 422 2236 E-mail: mikko.inkala@tiehallinto.fi Finnish Road Administration is gradually shifting from traditional pavement and bridge management to asset management. In order to boost this transition, a comprehensive Road Asset Management Research Program (2003-2006) has been started. Road asset management includes management of road inventory and condition data, road condition management, and valuation of road assets (pavements, bridges, gravel roads and road furniture). The main objective of the research program is to establish a systematic and effective framework for road asset management. The research program is divided into four main research areas: I. Data collection and management. This part will develop data collection and management, including data banks and quality issues. Definition and valuation of road assets for both bookkeeping and road management purposes is also discussed. II. Road asset management methodology. Road asset management has usually been executed with different network and programme level management systems (e.g. PMS, BMS). This part concentrates on development of management methods and models needed in management systems. III. Utilisation and dissemination of road management data. Development of data collection and analysis methods will build a platform for better utilisation and dissemination of data and knowledge. This includes development of road maintenance and rehabilitation policies, effective information services and data warehousing and training of road administration personnel for more effective utilisation of asset management information. IV. Total Highway Management. Traditionally management methods and procedures for different parts of road network have not been harmonised. The objective of this area is to develop methods for management of road network in an integrated manner. Effects of new acquisition methods on road management will also be discussed. Main results of the first program year emphasis on improved data collection and management activities. Lessons learned include adequate flexibility, need for experts on both clients and consultants side and systematic implementation of results.
2 1 Introduction Finnish Road Administration (Finnra) is responsible for the public road network in Finland. This road network consists of 50 400 km of paved roads, 28 000 km of gravel roads, 4 500 km of bicycle paths, 14 000 bridges, and countless number of road furniture. The asset value of this public property is about 15 Bill. Euro, and it is about 30 percent of the total property value of the state. Annual maintenance and rehabilitation budget (2004) to upkeep this property is about 200 Mill. Euro. Finnra has a long history of pavement and bridge management since 1980 s, and now Finnish Road Administration is gradually shifting from traditional pavement and bridge management to asset management. In order to boost this transition, a comprehensive Road Asset Management Research Program (2003-2006) has been started. Existing definitions of asset management were examined before the research program was launched (Hösch, 2002). Results of this examination revealed that there are numerous definitions of asset management around the scientific community (e.g. OECD. Piarc and FHWA), but none of these were fully adaptable to Finland. Thus a local definition was established and it is composed of the following key ideas: Asset management in this context means - Comprehensive and systematic planning, which is equally considering all the assets; - Concentration on those assets, which are not yet efficiently managed; - Integration of analysis and generalisation of management procedures to new areas; and - Consideration of road users needs as a basic for development. Basic information of the research programme is given in Chapter 2. Four different research projects finalised in 2003 are briefly summarised in Chapter 3 to illustrate the different nature of projects included in the programme. Lessons learned during the first year of the programme are discussed in the last chapter. 2 Basic Information And Objectives Of The Research Programme Road Asset Management Research Program (www.tiehallinto.fi/voh) is a part of Finnish Road Administration research activities. It is a four-year program (2003-2006) and the total volume is 2.8 Mill. Euros. The original contents of the programme were established in 2002 (FINNRA, 2003). A full-time project manager takes care of the program, under supervision of a steering committee, road asset management theme leader and a project group. Project secretary work includes both practicalities and active participation to research work. Secretary tasks have been outsourced to a road asset management consultant company (Figure 1).
3 Fig. 1: Organisation of the research program Main tasks of road asset management development are management of road inventory and condition data, road condition management, and valuation of road assets (pavements, bridges, gravel roads and road furniture). The needs for development were identified for each asset type. Table 1 gives a summary on findings. As it can be seen, most of the assets need more effective management, also starting from very basic things, as data collection and storage. Data collection Data storage Deterioration models Management systems M&R policies M&R objectives Paved roads OK OK E E E E Gravel roads E E M M M E Bridges OK OK M E E E Road furniture M M M M M M Bicycle paths OK OK M M M M Private roads E E M M M M Tab. 1: Current state of asset management (OK=existing, E=needs improvement, M=missing) The main objective of the program is to establish a systematic and effective framework for road asset management. The research program is divided into four main research areas: I. Data collection and management. This part will discuss all data collection and management related topics, including data banks and data quality issues. Moreover, definition and valuation of road assets for both bookkeeping and road management purposes is discussed. II. Road asset management methodology. Road asset management has usually been executed with different network and programme level management systems (e.g. PMS, BMS). This part of the research program will concentrate on development of management methods as well as models needed in management systems (such as road deterioration and road user effect models).
4 III. Utilisation and dissemination of road management data. Development of data collection and analysis methods will build a platform for better utilisation and dissemination of data and knowledge. This includes development of road maintenance and rehabilitation policies, effective information services and data warehousing and training of road administration personnel for more effective utilisation of asset management information. IV. Total Highway Management. Traditionally management methods and procedures for different parts of road network have not been harmonised. The objective of this research area is to develop integrated methods for management of road network condition and level of service in an integrated manner. Effects of new acquisition methods, such as design-build-operate-maintenance on road management practices will also be discussed. The four main research areas are conceptually integrated into one entity as shown in Figure 2. Fig. 2: Main four research areas of asset management Research areas are broken into separate projects. Table 2 gives a summary of projects, which are included in the current plan. The experiences gained during 2003, however, show that this
5 list will be updated several times during the rest of the program. This is mainly due to continuing change in road sector in Finland frequent changes lead to new research topics, which have to be included into the programme. 0 Project management and coordination with other research programs 1 Data collection and management 1.1 Implementation of new rut depth and roughness measurements 1.2 Improvement of road defect and bearing capacity measurements 1.3 Development of data collection and condition measurements for gravel roads 1.4 Quality improvement of bridge inspections 1.5 Development of data collection of road furniture and condition classification 1.6 Development of road asset valuation based on bookkeeping and level of service 1.7 Development of an uniform level of service classification for all road assets 1.8 Development of inventory and data collection for private roads 1.9 Monitoring and developing of test roads 1.10 Introduction and utilization of new level-of-service classification 2 Road asset management methodology 2.1 Utilisation of road asset valuation in asset management 2.2 Improvement of pavement deterioration models and analysis methods 2.3 Effects of bad road condition on traffic 2.4 Development of management of pedestrian and bicycle paths 2.5 Improvement of management of gravel roads on network and program levels 2.6 Improvement of bridge deterioration models on network and program levels 2.7 Development of models and management for road furniture 2.8 Development of maintenance and management for private roads 2.9 Utilization of off-the-shelf software for road asset management 2.10 Dependencies between road user costs and road condition 3 Utilisation and dissemination of road management data 3.1 Development of maintenance and rehabilitation policies and condition targets for different road assets 3.2 Improvement of communication, training and dissemination of results 3.3 Definition of road asset management information services 4 Total Highway Management 4.1 Development of an UMBRELLA-system 4.2 Integration of analysis (level of service definition based on condition, environment, fluency, safety and asset value) 4.3 Determination of effects of new procurement methods on road asset management 4.4 Coordination and integration of asset management systems 4.5 Description of future road asset management objectives = Project continues from 2003 Tab. 2: Project list
6 In addition to the research work, the programme was given several special tasks for consideration. These include the following: Better contacts to universities and research centres are needed to ensure availability of expertise in the future, Involvement of new consultants into road asset management area, Promotion of competitive bidding in selection of consultants, Coordination of activities and exchange of information with other road administration research programs (Research Programme for Impact Management and Economical Maintenance of Low Volume Roads), and Active participation into international discussion on road asset management for gathering of new ideas 3 Main Findings in 2003 3.1 Introduction The first year of the research programme was a substantial collection of different types of projects, ranging from small-scale (5 000 euro) projects to large multi-year contracts (up to 220 k ). The works concentrated on data collection and management activities. Four different types of projects are introduced below. The aim is to demonstrate the different nature of various projects included in the program. 3.2 Level of Service Classification Finnish Road Administration has developed different level of service classifications for different parts of the road asset during the last decades. Classifications are more or less different: some of them are scaled from 0 to 3 (good...poor), some from 1 to 5 and some even from 5 to 1. It is difficult to practice the total highway management with these different scales. The Road Asset Management Research Program started a project to create a common level of service classification for all parts of the road asset. The suggestion for the classification is presented in Table 3. As it can be seen, letters have replaced numbering. This decision keeps the nature of ordinal scale, but prevents users from misinterpretation of classes as numbers, which could be used as metric variables in analysis. Classifications are needed for several purposes, e.g. technical, road user effect and societal effect purposes. The main objective is to apply this classification for all condition information and make this information more comparable. Project will continue in 2004 by fitting all existing classifications to the presented basis.
7 Class of the level of service A Very good B Good C Satisfying D Poor E Very poor Descriptions of classes from the different points of view Technical level of service Level of service experienced Societal level of service by road user New, just repaired, or as good as new. No damages. Standards for functionality and strength are achieved. Only routine maintenance is needed. Slightly worn. Slight damages. Standards for functionality and strength are achieved. Only routine maintenance is needed, no need for periodic maintenance yet. Obviously worn. Some faults or damages. Standards for functionality and strength are still achieved. Routine and periodic maintenance needed. The optimal timing of the operations is usually in this class. Very worn. Many faults or damages. Standards for functionality and strength are not achieved. Maintenance and rehabilitation operations are needed. Serious damages. In the end of service life. Rehabilitation, reconstruction or removal needed. Tab. 3: Common level-of-service classifications Looks new and non-wearing. As good as expected by the road user, even over-standard. Driving comfort as good as it can be. No need to slow down. Looks good. Damages are hardly visible. As good as expected by the road user. Driving comfort good. No need to slow down. No risk of damaging vehicle Damages are in some extent visible. Slightly worse than expected for some road users. The average road user finds conditions still satisfying. Some disadvantages in driving comfort. Only slight need to slow down. Very small risk of damaging vehicle. Damages and poor condition are clearly visible. Most road users find conditions worse than expected. Several disadvantages in driving comfort. Need to slow down and to change wheel track occasionally in order to prevent damages for vehicle. Poor condition is experienced as a lack of traffic safety. Serious damages and very poor condition are clearly visible. Road users find conditions much worse than expected. Plenty of disadvantages in driving comfort. Need to slow down and to change wheel track continuously in order to prevent damages for vehicle. Poor condition is experienced as a serious lack of traffic safety. Condition does not limit transportation or accessibility. No risks in traffic or environmental safety caused by condition. No extra cost caused by condition neither for the road user nor for the road keeper Condition does not limit transportation or accessibility. Risks in traffic or environmental safety caused by condition are very slight. Extra cost caused by condition for the road user and for the road keeper is very small. Condition does not yet limit transportation or accessibility. Risks in traffic or environmental safety caused by condition are manageable. Extra cost caused by condition for the road user and for the road keeper starts to rise. Situation is still satisfying and manageable. Condition starts to limit transportation and accessibility. Risks in traffic safety are usually obvious. Limitations are considered. Maintenance operations are late. Extra cost caused by poor condition are real both for the road user and for the road keeper. Condition limits transportation and accessibility. Risks in traffic safety are great. Limitations must be set to prevent traffic and environmental accidents. Maintenance operations are seriously late. Extra cost caused by poor condition is significant both for the road user and for the road keeper.
8 3.3 Management of Bicycle Paths Management of condition of bicycle paths has become more important during the last few years. The length of this network is about 4500 km and there are long-term plans to extend network into about 10000 km. These paths are utilised for several user groups: pedestrians, cyclists, roller skaters, Nordic walkers, etc. for commuting and recreational purposes (Figure 1). Fig. 3: Typical users of bicycle paths (left) and examples of serious damages (right) Inventory and numbering of these paths as well as condition measurements were started in 2002, and 95% of the network were evaluated by the end of year 2003. Condition inventory is based on visual inspection of cracks and optional roughness measurements. Data is stored in the road condition data bank and pavement management activities were programmed into PMSPro, which is the system for traditional works programming level pavement management. The results have given a basis for more effective management of bicycle paths. There are still several topics, which need future development: Definition of condition classification criteria Utilisation of roughness measurement data Correlation of user expectations with visual inspection data (e.g. with a panel study) Estimation of traffic volume and/or importance of bicycle paths Training and implementation strategies.
9 3.4 Development of Bridge Inspections and Data Quality One or several level-of-service classifications mentioned earlier in Chapter 3.2 are to be applied for bridges. Luckily the existing classification fits very well to the suggested common classification. The current classification ranges from 0 to 4 (from new to failed), which corresponds well to symbols A to E (both have five steps and an increasing ordinal scale). Finnish Road Administration concerned about the poor quality of the general inspections of bridges in 2001. Inspection data deviated highly between different inspectors. The Bridge Management System is based on the general inspection system and it is the main tool in programming the maintenance operations on bridges. The quality improvement program was started and later adopted by the Road Asset Management Research Program. The program has created three major tools to control and improve the data quality: 1. Quality assurance system: In the control inspection, two inspectors inspect an already inspected bridge under client s control. After inspection results from these three inspections are compared with each other and certain parameters of divergence are calculated. If the divergence is not tolerable, a deviation report from the original inspector is required. 2. Further training: Feedback for example from the deviation reports is used in planning of the further training events, which are arranged every year. Further training events are part of the quality assurance system, too. Inspection results in these events are studied carefully. 3. More detailed inspection specifications: Feedback from the control inspections and the further training events has revealed that inspection specifications of Finnish Road Administration are not exact enough in all details. For example the damage classification is instructed quite well, but the urgency classification (how soon a single damage should be repaired) should be more focused. Following this, a new Bridge Inspection Manual will be published in April 2004. The improvement of the bridge inspection data quality can be noticed in Figure 4. The curves are negative cumulative distributions of relative deviations of bridge inspection results. The maximum allowed relative deviation is 0.4. About half of the inspections in year 2002 were beyond this limit, but the situation improved strongly in year 2003 only 16 percent exceeded the target value. Thus, only in one year, significant progress was made. This effect is a result of the quality assurance system and the further training events. It is expected, that the new Bridge Inspection Manual will continue this data improvement.
10 2002 2002_fitted 2003 2003_fitted 0.4 limit 1 0.8 Damage Index 200 1-F RD 0.6 52% 0.4 Devition report limit 0.2 16% 0 0 0.5 1 1.5 2 2.5 3 3.5 4 Relative Deviation (RD) Fig. 4: Quality of bridge inspections in 2002 and 2003 3.5 Inventory of Road Furniture Road furniture is considered as a property of public road areas or constructions. These are for example different kinds of road-side telematics equipment such as road-condition cameras, road weather stations; structures like tunnels and piers; and other road equipment i.e. traffic signs, road markings and noise barriers (see Figure 5). In addition highway rest stops and intersections are also included. Together these form a significant part of Road Administration's road property. Fig. 5: Examples of road furniture, ranging from telematic devices to a bus stop
11 There is a lack of knowledge concerning the amount, value and condition of this property. The need for integrated management is well known but development has not been as rapid as that of other road asset management. This is partly due to the priority of road asset management and the heterogeneity of the equipment property. The quickest way to integrate equipment information to other asset management is through a transitional stage by using existing solutions. The aim is to establish a centralised equipment register, which is a link between Road Data Bank and road furniture. The procedure of inventory by using a tailored software package (T&M-Tiestö) has been developed during the last ten years. This inventory will be continued. Information about roadside structures like tunnels and piers will be moved to the Bridge Register and information about them is collected following Road Administrations bridge inspection instructions. Information is updated following all renewals and repairs. After the transitional stage, the aim is to maintain, add and report updated information via Internet browsers. The database is located at the Road Administration. The browser-based user application makes access to information easier to outside users. Requirements for collecting data are restricted only to the formats accepted by the Road Administration. Future work is needed as follows: Definition of inventory and condition inspection of tunnels and piers Preparation of inventory instructions for equipment and devices, and System definition of road furniture information management 4 Lessons Learned The research program has now been running for one year, and the following lessons have been learned [solutions, if any, are given in brackets]: 1. Need for professional resources are high both in road administration and in organisations that are executing the works. Lack of resources is the major block against effective execution of the program. [A full-time project manager was engaged and more consultants are attracted to this field] 2. Implementation of results has to be taken seriously. Too often work is seen as completed after a research report has been published and distributed. A separate project for implementation strategies is needed. [A dedicated project for this task has been started] 3. Research needs are changing very quickly. The research program has to be flexible enough to accommodate new external and internal needs for new works. [Work programme is updated at least once a year] 4. Support from high top decision makers is essential for successful research program. The program has to be advertised to all possible interest groups in order to gain commitment to the program. [Chairman of the steering committee is a high-top manager. A special project for communication of results has been started]
12 5. Practicalities. This research program is a collection of numerous small projects. More efficient performance needs packaging of small projects into more attractive and larger packages, which can be contracted out using competitive bidding procedures. [Some of the works have been packaged in this way] 6. Scope of research. A clear vision for both asset management itself and subsequently for the research program are needed. If no such vision exists, too many questions of justification of the programme will arise. [A special programme for visioning of asset management was included] 7. Coordination with other research programs. Finnra is running several research programs in parallel, and co-operation is needed both in preparation of programs as well as in coordination of projects, timing of biddings, implementation of results. [Frequent, 3-4 times per year meetings are held with other programmes] REFERENCES HÖSCH, R. (2002), Road Asset Management in Finland. Master s Thesis, Helsinki University of Technology, Department of Civil and Environmental Engineering. FINNISH ROAD ADMINISTRATION (2003), Road Asset Management Research Program 2003-2006. Finnra Reports 8/2003.