Highways Asset Management Plan Version 3 August 2009
London Borough of Hounslow Streetcare Services Highways Asset Management Plan Version 3: 2009
Foreword to HAMP Version 1 At Hounslow we are continuously striving to improve the levels of service provided to our community. We recognise the key role that our street environment plays in achieving the diverse goals set out in our Community Plan, and that the Highway is a public space shared by all those who live, work, shop and pass through our Borough. The road network is perhaps the most extensive and valuable asset we own and manage on the public s behalf, so it makes sense to plan the investment we make in it, and ensure the public get value for money in all we do. The directorate of Street Management & Public Protection (SM&PP) took the initiative to produce a Highways Asset Management Plan (HAMP) in February 2005, and this document is the result of that important work. We are proud that Hounslow was one of the first Councils in London to publish a full HAMP, and we intend to put it to good use in the years ahead. The HAMP will be a living document, designed to reflect the changing needs and priorities of the community, and we have already started work on improvements identified in this first release. It encompasses all parts of the street assets, and sets out a way of setting targets and measuring performance of all our services that contribute to improving and maintaining the whole street environment. The Plan recognises that it is the outcomes of what we do that matter. The HAMP is an important first step on the path towards more effective management of the highway network. It is forward-looking and sets the framework for much longer-term planning than has been the case in the past. A Steering Group has been established to ensure that the HAMP moves forward and is effectively put into practice. We take this opportunity to thank the members of the Steering Group, other members of SM&PP and our technical advisers, Chris Britton Consultancy Limited for the excellent work done in initiating and developing the HAMP. We commend it to everyone who has an interest in maintaining and enhancing the quality of our street environment, and as a working guide for those directly involved in this activity, both in our SM&PP Department and in partner organisations. Barbara Reid Lead Member for Environment and Planning Suresh Kamath Director of Street Management and Public Protection July 2006
Steering Group Members NAME DESIGNATION ROLE Krishnan Radhakrishnan Head of Service, Streetcare Sponsor Satbir Gill Highways Asset Manager Lead Officer and Chair of Steering Group Fazlul Huq Borough Principal Bridges & Structures Engineer Steering Group Member Sonny Pham Area Highway Engineer Steering Group Member Aivaras Jasiunas Area Highway Inspector Steering Group Member Gowry Thevakantha Area Highway Inspector Steering Group Member John Reynolds Environmental Projects Manager Steering Group Member Anna Humphries Development Officer (PROW & OM) Steering Group Member Michael Croke Infrastructure Engineer Steering Group Member Ian Goodger Rebecca Behrendt Borough Senior Public Lighting Engineer Community Environment Manager Steering Group Member Steering Group Member Lorraine Srivastav Contracts Officer Steering Group Member Tehmina Khan Community Environment Officer Steering Group Member Andy Williams Highway Manager DSO Steering Group Member Trevor Collett Network Operations and Streetworks Manager External Advisors Chris Britton Consultancy Limited Steering Group Member Chris Britton Technical Advisory Support Steering Group Member Andy Pickett Technical Advisory Support Steering Group Member
Page 4
Contents Progress Since HAMP Version 1... 10 Progress to Date... 11 Collection of an Asset Inventory and Asset Register and of Condition Data... 11 Asset Valuation... 12 Levels of Service... 13 Options Appraisal, Works Prioritisation and Value Management... 13 1 Executive Summary... 15 2 Introduction... 17 2.1 What is our Highways Asset Management Plan?... 18 2.2 Why do we need a HAMP?... 19 2.3 Benefits of Highways Asset Management... 20 2.4 What s new about Highways Asset Management... 21 2.5 Relationship with other Planning Documents... 24 3 Management of Hounslow s Highways Asset... 27 3.1 What Asset Groupings and Services does the HAMP Cover?... 27 3.2 Goals, Policies and Objectives... 28 3.2.1 How the HAMP Supports Policy Making... 30 3.2.2 Stakeholders with an interest in the HAMP... 31 3.3 Knowledge of the Asset... 32 3.3.1 Role of Data and Systems in Asset Management... 34 3.3.2 Asset data currently held... 35 3.3.3 Street Network Asset Data... 36 3.3.4 Asset Inventory and the Asset Register... 38 3.3.5 Asset Valuation Data... 42 3.3.6 Dissemination of Asset Information... 44 3.3.7 Systems to Manage the Asset... 44 4 Levels of Service... 47 4.1. What are Levels of Service?... 47 4.2. How will we derive and use Levels of Service?... 48 Network Performance Gap... 50 Link and Place... 51 NPG Scoring mechanisms Minimums, Targets and Performance Gaps... 53 Streetscene Index... 54 4.3.1 Performance Indicators... 55 5 Planning and Options... 56 5.1. Performance Gaps... 56 5.2. Options and Priorities... 56 5.2.1 Option Identification... 57 5.2.2 Value Management... 58 5.2.3 Priority Setting... 59 5.3 Approach to Works Programming and Unified Works Programme... 60 5.4 An Introduction to Lifecycle and Investment Planning... 63 5.4.1 General Approach to understanding the assets... 66 5.4.2 General Approach to Value Management as part of Lifecycle Planning... 66 5.4.3 General Approach to Routine Maintenance... 68 5.4.4 Investment implementation and review... 68 Page 5
6. Decision Making and Management Processes... 70 6.1. The Annual Highways Asset Management Process... 70 6.2. Involvement of Stakeholders in the Highways Asset Management Planning... 73 6.3. Finance and budget considerations... 75 6.4. Organisational Structure and Resources... 76 6.5. Risk Management... 77 6.5.1 What is Risk Management?... 77 6.5.2 Risk Management in Hounslow... 77 6.5.3 Risk Identification... 78 6.5.4 Risk Analysis... 78 6.5.5 Risk Reduction... 80 6.5.6 Ongoing Monitoring and Review... 80 6.6. Data Management and Information Systems... 80 6.6.1 Data management regime... 80 6.6.2 Highways Asset Management Systems... 81 7 Service Delivery... 84 7.1. Procurement of Works and Services and Mechanisms for Future Service Delivery... 84 7.2. Benchmarking the Services... 86 8 Implementation of the Highways Asset Management Plan... 87 8.1. Implementing Asset Management within LB Hounslow... 87 8.2. Improvement Actions... 88 9 Communication, Monitoring and Reporting... 93 9.1. Internal Management and Delivery of the HAMP... 93 9.2. Communication and Consultation with Stakeholders... 93 9.2.1 Consultation Questionnaire... 94 9.3. Performance Monitoring... 96 9.3.1 What is Performance Monitoring?... 96 9.3.2 Data Collection... 96 9.3.3 Performance Reporting... 96 References... 98 Appendices... 99 Appendix 1 Summary of Current Highways Asset Data and Systems... 100 Appendix 2 - Terminology and Glossary... 101 Appendix 3 - Organisation Chart LBH Streetcare Services... 102 Appendix 4 - Report on HM Magazine Highways Asset Management Customer Perception Questionnaire... 103 Introduction... 103 Approach and Design of Questionnaire... 103 Responses... 104 Analysis of Results... 107 Observations and Conclusions... 125 Annex I... 128 Appendix 5 Asset Inventory and Asset Register... 129 Area Items... 129 Count items... 129 Length items... 130 Breakdown by Ward... 130 Breakdown of Footway Types (including paved verges)... 131 Page 6
Appendix 6: Transcript from the Agenda of Executive Public Meeting 4 April 2006 132 Appendix 7. Lifecycle Management Plans... 139 Road Carriageways Lifecycle Management Plan... 140 Footways and Cycle Tracks Lifecycle Management Plan... 164 Street Environment Lifecycle Plan... 175 Lighting Lifecycle Management Plan... 189 Bridges and Structures Lifecycle Management Plan... 209 Drainage Lifecycle Management Plan... 222 Non-Illuminated Street Furniture Lifecycle Plan... 229 Appendix 8 Interim Asset Valuation Report... 234 Page 7
Document History Version No Status Author Date Changes from Previous Version 1.01 Draft CBC/LBH First release for internal review by Steering Group 1.02 Revised Draft CBC/LBH 16 th Dec 05 Second release for internal review by Steering Group following review and 1.03a Revised Draft 1.04 Revised Draft 1.05 Final Draft updating by CBC Incorporating comments from Steering Group. CBC/LBH February 2006 CBC/LBH February 2006 CBC/LBH April 2006 Final Version Incorporating latest Lifecycle Management Plans Header and Footers updated. 2.01 Draft CBC/LBH October 2008 Updated to reflect progress since first version. 2.01 Final CBC/LBH/AG October 2008 Final version incorporating Client comments. 3.01 Draft CBC June 2009 Updated to reflect progress since second version, and the development of the highways PFI project 3.02 Final Draft CBC August 2009 3.03 Final CBC August 2009 Updated to incorporate comments and updated statistics from the HAMP steering group Final Version. Page 8
Preamble How to read this document As with any such Plan, the HAMP should be read in its entirety to understand Hounslow s current position, what it intends to do to improve, and the action plan arising from the proposals. The HAMP is written with a wide range of stakeholders in mind. However, this document is also intended as a ready reference for managers and practitioners and as such, has been designed to assist the quick identification of key points and actions. It contains some formatting of box-outs designed to this end, as follows; Grey box-outs highlight a Key Point or Conclusion. Improvement Action #1 Orange box-outs alert readers to an Improvement Action arising in the text. These are collated together in section 8.2 of the document Timescale: Year 1( 2006/07) Green box-outs highlight examples and references to good Asset Management practice in the text Page 9
Progress Since HAMP Version 1 Version 1 of the London Borough of Hounslow s Highways Asset Management (HAMP) plan was approved by the Executive on 4th April 2006; the HAMP sets out a logical and systematic approach to sustaining and improving the streets in Hounslow, to the benefit of all those who use them by whatever means, and for whatever purpose. The streets, pavements and all their associated furniture and apparatus not only serve a functional purpose but also contribute to public safety, and the environment in which people live, work, shop and pursue leisure activities. Well-maintained highways make an important contribution to the liveability of public spaces, and in turn people s quality of life in general. It was also agreed that the HAMP be updated on an annual basis to reflect progress in implementing the Asset Management processes and practices to Hounslow s street network. This section provides that update, and in particular focuses upon the Improvement Actions identified in the 5- year improvement plan, as part of the HAMP version 1, specifically: The collection of an Asset Inventory and the completion of the asset register The integration and roll-out of Hounslow s asset management computer systems Progress with the evaluation of options for the funding of the street network. Asset Valuation The further development of levels of service Options appraisal and value management, including budgetary allocation and prioritisation The production of a Street Maintenance Plan Changes to Hounslow s highway inspection processes to adopt the risk-based approach proposed in Well-Maintained Highways, the national code of practice for highways maintenance management, and to make use of handheld computers to improve the effectiveness and auditability of inspections. The project organisation that was established to develop the HAMP version 1, has been retained to progress the implementation and further development and in addition task-specific working groups have been established to progress various improvement actions for versions 2 and 3 of the HAMP. The project structure is described in the figure below. Page 10
HAMP Sponsor Krishnan Radhakrishnan HAMP Project Manager Satbir Gill HAMP Advisors Chris Britton Consultancy HAMP Steering Group Hounslow s HAMP is a fundamental element of Hounslow s Highways Private Finance Initiative (PFI) pathfinder project, and of the Outline Business Case recently submitted for DfT approval. This project will allow us to make significant improvements to the levels of service identified in the HAMP, and to the quality of the borough street network. The HAMP remains integral to the ongoing development and implementation of the project. This updated Version 3 of the HAMP incorporates some of the innovative aspects developed for the specification of performance and serviceability for the PFI project. Progress to Date Collection of an Asset Inventory and Asset Register and of Condition Data The collection and maintenance of an appropriate, fit-for-purpose and up to date asset inventory is an important priority for the implementation of the Asset Management Plan, and a key action for the HAMP v1 was the collection of an asset inventory. Having awarded a contract for the collection of a full asset inventory, surveying started in October 2006 with site surveys completed in December 2007. The validation of the data and Page 11
integration onto the Confirm system and GIS was completed in Autumn 2008. The contracted work requires the collecting and recording of data on the location, type and, where required, condition of all the assets on the public highway; and to provide the data in a format that can be displayed on the Council s GIS system and managed and updated on the Street Management Confirm System. Data has also been collected on areas outside of that shown on the highway register that are owned by the Council but managed by other departments, e.g. housing estates managed by Hounslow Homes. This data may be used to identify and agree the boundaries between the public and private areas owned by the Council and may be used by Hounslow Homes for the management of their streets. As part of the work in support of the PFI project considerable effort was made in validating and enhancing existing inventory data and in collecting new data to ensure that the assessment of the extent and condition of our highway asset is as accurate as possible. This also included validation and enhancement of the street lighting and arboricultural inventories in addition to our collected asset inventory. In addition asset condition data continues to be updated, including surveys of carriageways and footways in excess of the frequencies required for national performance reporting, to ensure that our assessment of the cost of the PFI project is as accurate as possible. In addition, to support the PFI project and to provide accurate data to potential bidders for the project, the following additional items of asset data have been collected; A video survey of the whole network that will allow Council staff and potential bidders to validate inventory and network condition A survey of the construction of the entire carriageway network, from core samples A sample survey (in one ward) of footways using the new version Asset Valuation Appendix 8 of the HAMP is a report presenting the results of the first year interim highway asset valuation for the London Borough of Hounslow, carried out in accordance with current national guidelines. A project to develop a new Code of Guidance on Financial Information to Support Transport Asset Management, Financial Planning and Reporting is currently being developed nationally, in project being steered by the Roads Board/CSS and TAG Highways Asset Management Financial Information Group (HAMFIG). This guidance is expected to be available in Autumn 2009, following which a full, depreciated, benchmark valuation will be produced, to meet national government requirements. The headline figures from the interim valuation are as follows: Page 12
Assets Valuation Roads including Drainage 472,643,518 Segregated Footpaths 2,009,085 Structures 30,321,000 Lighting 20,738,600 Total 525,712,203 Value per km 1,211,318 That is, the value of Hounslow s road network (at 2007 prices), when depreciation (condition) is not taken into account, i.e. the cost of replacing the whole network with one of modern standard, is 526 million pounds, that is an average of 1.2 million pounds for each km of road network. Comparisons with results from other authorities indicate that the valuation is of the correct order of magnitude. Levels of Service Levels of Service provide the mechanism for achieving service quality from the Highways Asset. The Level of Service therefore reflects the way our service is delivered and how it is perceived by our customers. Levels of Service include the performance and condition of the asset itself, the quality of the service that the asset provides and the performance of Streetcare Services in delivering that service. The HAMP v1 established 8 Levels of Service for the management of Hounslow s highways asset; an additional 9 th Level of Service, Sustainability of the Asset has been established for the HAMP v2. For the HAMP v3, we have revised our approach to Levels of Service to make use of the measures of network serviceability and performance that have been developed for the PFI. So that we are able to use these to monitor the quality of service that we provide in relation to our network in prior to as well as following the commencement of the PFI project, planned for 2012. Options Appraisal, Works Prioritisation and Value Management Local Authorities have, through their Highways Asset Management Plans, a requirement to establish Levels of Service for the performance of their networks. Associated with this is a need to measure, monitor and manage improvements to levels of service, at network level, by predicting outcomes of decisions on the level and allocation of investment and on maintenance policy and standards. A process, based upon a 48%/52% split of the total planned maintenance budget between carriageways and footways respectively for determining Page 13
the highway maintenance area works programmes has been developed for the prioritisation of highways maintenance works. Page 14
1 Executive Summary Hounslow Streetcare Services (SCS) is responsible for managing perhaps the most visible, well-used and valuable physical asset owned by the Council on behalf of the local community. The streets are vital to all aspects of everyday life. SCS is committed to a programme of improving the management efficiency of that asset in terms of Customer Service, Safety, Serviceability and Sustainable Preservation of the infrastructure. All of these aspects are brought together, for the first time, in the Highways Asset Management Plan (HAMP) which sets out objectives and targets for delivery, procedures for efficient management of the asset lifecycle, and a programme of improvements, for all parts of the public space which we call the Highway Network. The HAMP sets out to balance the needs of customers, who expect a high-quality of current service, with the desire to preserve integrity and value of the street network for future generations. There are many current government drivers and recently published industry Codes of Practice aimed at improving the efficiency and effectiveness of the local Highway Authority s management of the road network. These are succinctly described in the recent document Maintaining a Vital Asset (2005) published by the Roads Liaison Group and endorsed by Ministers as well as the Mayor of London. The Hounslow HAMP is written to be consistent with all appropriate parts of the associated new Codes of Practice. The HAMP is a structured document that sets out: The scope, extent and condition of existing assets and associated processes, Improvements required and planned as a result of this review, A description of asset management objectives and policies linked to the Council s business objectives, A definition of outcome-based Levels of Service, Lifecycle maintenance strategies based on long term, sustainable use of physical resources and minimising whole life costs, Service delivery and associated Plans Identification of a means of establishing future funding requirements to maintain target levels of service, The approach to managing the risks of falling short of the target levels of service, The development of co-ordinated forward programmes for highway maintenance, operation and improvement, and A regime for measurement of performance and continuous improvement. Page 15
The HAMP is only the first step in adopting Asset Management principles for our street network; the full benefits will be realised in the coming years as we develop and implement the actions set out in our improvement programme. Progress will be reviewed annually, and the Plan, as a living document, updated accordingly. Page 16
2 Introduction This, the London Borough of Hounslow s first annual Highways Asset Management Plan (HAMP) sets out our vision for improvements in the management, operation and funding of Hounslow s streets for the next year and for the next five years. The intention is that at the end of the 5-year Improvement Plan, which is a key part of the HAMP, our streets will be: Providing a better level of service to residents and street users In better condition Of higher value Providing services that Customers want, based upon a true understanding of their needs and expectations Highways Asset Management is relatively new to local authorities in the UK, and the approach now being promoted was formally set out in the Framework for Asset Management 1 document published in 2004. The adoption of Highways Asset Management is also recommended in Well Maintained Highways, the national code of practice for highway maintenance, in Well Lit Highways, the street lighting code of practice and in Management of Highway Structures. Hounslow has decided to adopt these national recommendations, the starting point of which is the development of a Plan. The introduction of good asset management practice to the management of the highways network should result in improvements both in the delivery of services to customers and in the preservation of the Highways Asset for future generations. All latest national codes may be found at www.roadscodes.org The production of Hounslow s first HAMP is only the start of the process; the introduction of the culture and processes involved in better asset management will take some time to develop and implement, and a key element of the HAMP is the five-year programme of asset management improvement actions. The road network for which Hounslow is responsible consists of 39km of Borough Principal Roads (PR), 14km of B Roads, 31km of C Roads and 348km of urban unclassified roads (UC), with over 775km of footways, over 16,000 street lights, 91 bridges, 30,000 gullies and over 10,000 trees. The motorways and all-purpose trunks roads that traverse the Authority are not part of this plan, and are the responsibility of Transport for London. Page 17
The highway is the most valuable publicly owned asset managed by the Council but historically has not received the attention or funding required to maintain it in the optimal state of repair and operation, or to effectively take account of the needs of all our customers. The HAMP, for the first time, considers all parts of the asset together, and sets out an approach that considers and prioritises between them, in delivering the highway management service, and balances the preservation and enhancement of the highway network with the best use of resources and the delivery of services to Hounslow s residents and to the users of the highway network. The HAMP considers all parts of the asset together, and sets out an approach that considers and prioritises between them and balances the preservation and enhancement of the highway network with the best use of resources and the delivery of services. 2.1 What is our Highways Asset Management Plan? The HAMP is intended for information and operational use, both for officers within Streetcare Services, and any others involved in delivering the highway service. It is also available for Council Members within Hounslow, and to our customers and stakeholders as well as other organisations as required. The HAMP sets out the way that we manage the Highways Asset currently, but more importantly it sets out the changes that we are planning to implement over the next 1-5 years in order to achieve the benefits that good asset management practices can bring about. The HAMP comprises a number of Key components: 1. The HAMP The main body of the HAMP is a statement of current practice and future plans and aspirations for the main elements of good asset management planning, including: Processes for determining annual programmes of work and for securing funding and allocating budgets Processes for updating the HAMP as part of Hounslow s annual cycle of business planning Processes for setting annual targets for quality of service for Hounslow s streets within the wider context of local and national Best Value Performance Reporting and the CPA (Continuous Performance Assessment) regime. Systems and data that support Asset Management planning Page 18
Mechanisms for Member, customer and stakeholder involvement in the Asset Management process 2. Service Levels The HAMP sets out Levels of Service that will form the basis for target setting, strategic planning and service monitoring and improvement. Associated with the service levels are more detailed performance measures and improvement targets for the next year, and for the longer term. 3. The 5-Year Improvement Programme This identifies the actions that have been identified as necessary to improve Asset Management for Hounslow s streets for the first five years of operation of the HAMP, and provides updates on items where progress has been made. Each action has a priority and timescale allocated to it. Additionally, the improvement actions are highlighted separately in the relevant section of the HAMP. 4. Lifecycle Management Plans The Lifecycle Management Plans set out for each component of the asset (Roads, Footways, Street Lighting, Structures, etc.) how Asset Management will be applied over the whole life of that asset from its creation to its removal. 5. Service Plans The Service Plans set out how good asset management principles will inform service delivery for those services that are not specific to a particular asset component, such as street cleansing, flyposting and graffiti removal. 6. Asset Register The Asset Register will set out what exists within Hounslow s highway network and the condition that it is in, and is an essential prerequisite for carrying out an Asset Valuation. The Asset Register is as yet incomplete, although the completion of our asset inventory has enabled us to make considerable progress and the Improvement Plan sets out the process for compiling a complete asset register. 2.2 Why do we need a HAMP? There are many catalysts for Asset Management, not least good practice and the achievement of value for money. Importantly, it encourages a performance-based approach to setting levels of service, which will cover all aspects of concern to customers such as minimising disruption on the network, improving the street scene, contributing to community environment and safety and many other issues. Page 19
The Department for Transport (DfT) is encouraging local authorities to prepare Transport Asset Management Plans (TAMPs) as part of the Local Transport Plan (LTP) process. Within London, as a devolved administration, TfL is encouraging London Boroughs to produce TAMPs. The HAMP is the first stage in the process to produce a TAMP, and will form a key part of the TAMP, which will cover wider issues of managing the transportation infrastructure. The TAMP will establish a clear relationship between its programme and the authority s targets and objectives set out in the LIP submission. Transport for London has also indicated that the LIP assessment, and hence funding provision, will be affected by the quality of the TAMP. It also considers the production of a HAMP as essential in providing the information necessary to ensure that the authority both spends to an appropriate level and can more effectively consider the need for local road maintenance spending against the requirements of other services. A further, more specific, need for the HAMP is to obtain and organise information to support Asset Valuation (AV) as part of Whole Government Accounts (WGA). 2.3 Benefits of Highways Asset Management A number of important benefits to Hounslow have been identified that will be realised by the move towards Asset Management. These include: More Informed Decision Making Better information, and a clearer understanding of the link between the performance of individual assets and the delivery of service, will enable decisions to be made in an informed way that will result in a better level of service. Reduced Whole Life Costs The move towards lifecycle management and long-term investment planning will enable a right place, right time approach to investment that will reduce costs over the life of the asset, and promote the long-term preservation of the asset. Customer Focussed Delivery The continued development of effective customer consultation and the development of Service Levels that support both the corporate objectives of Hounslow and customer priorities will encourage more customer focussed decision making, and will help to ensure Page 20
that services provided by the street network reflect resident and user needs and expectations. 2 Transparency & Ownership of Decision Making Asset management will introduce transparency and objectivity into decision making that traditionally has often been subjective. This will help Streetcare Services justify investment decisions and will also enable decision-makers to take informed ownership of decisions that they make. 2.4 What s new about Highways Asset Management Asset management builds on existing processes and tools to develop a continuous improvement framework by using Levels of Service to express customer needs and expectations, to monitor performance against them and then to identify the most cost effective ways of closing performance gaps. It will require us to make significant changes to the way we work over the next five years. Levels of Service describe the quality of services provided by the asset for the benefit of customers (Framework for Highways Asset Management i ) The asset management decision-making framework is guided by performance goals, an extended time horizon, economics and engineering principles, and considers a broad range of infrastructure asset types. Asset Management provides for the economic assessment of alternative improvements and investment strategy across the whole highway network to be treated as a single entity. This is fundamentally the trade-off between levels of service and costs, with the aim of providing best value for money in the use of public funds. The contribution of the local highway network extends far wider than just transport. It is seen as fundamental to the economic, social and environmental well-being of the community, and its management and maintenance must maximise the wider contribution. Therefore, there needs to be a shift to preserving and operating the investment in the local highway network for the full benefit of the community. At the same time the UK public has undergone a change in its view of effective governance, resulting in the increased expectation that all tiers of government will be more accountable and will be managed more like a commercial operation. The Asset Management Plan supports these changes. 2 The involvement of Hounslow s Residents Panel in the highways asset management process and the Highways Asset Management Customer Questionnaire carried out for the first time in July 2005, and reported in Appendix 7 are examples of initiatives that are intended to promote customerfocussed service delivery. Page 21
Continuous improvement in service delivery will be achieved through the Improvement Action Plan (see Section 8.2). This 5- year plan prioritises individual improvement actions over this period. The HAMP will be reviewed on an annual basis to determine the benefits and progress delivered as a result of the improvement actions identified for that period. The application of an asset management approach to our Highways Network implies that we change and develop the way we operate in a number of ways: Greater emphasis upon the quality of the service provided by the highways network in decision making and investment planning, rather than a purely technical focus based upon engineering considerations, as has historically been the case An improved understanding of the likely implications of decisions upon the future quality of service to the users of the street network (residents, pedestrians, drivers, cyclists etc.) and upon the long-term preservation of this valuable asset Continuing a move away from the management and operation of the various components of the street (roads, footways, lights, trees etc.) separately towards holistic, integrated management of the whole street, that considers the quality of service provided by the asset as a whole, and that gives greater emphasis to whole street enhancements in the public realm, and to tackling public realm issues generally A move towards a longer-term planning horizon for funding, investment and works A focus on the Council s wider policy objectives in determining strategic objectives for the street network An emphasis on the value of the highways network as an asset, and upon the Council s role as long-term custodians of that Asset Strategic planning of levels and priorities of investment and funding based upon an informed evaluation of different funding options, taking into account likely future implications for quality of service and preservation of the condition and the value of the asset, resulting in informed decision making on the part of those responsible for allocating funds both within the Council and externally Consideration of the costs and value of investments and associated works over the whole service life of that investment, in decision making and planning, rather than purely short-term costs and benefits Page 22
Determining budgets and funding requirements based upon measured need rather than historic precedence The new approach is summarised in the following table: Focus on Outcomes Management operation Needs based Informed decision making Explicitly considering customer needs and expectations Taking a whole life and life cycle approach Explicitly identifying and documenting needs Allocating resources based on assessed need The general highways asset management cycle is described in figure 2.4.1, below. Page 23
Measure Performance and Review Know your Asset Plan Maintenance and Improvement Set Desired and Minimum Levels of Service Set Budgets Identify Investment Need Set Targets and Manage Risk Figure 2.4.1 General Asset Management Cycle It should be noted that our 25-year Highways PFI Project is the now the principle means by which these objectives will be delivered, by identifying contractual levels of service and by securing the necessary funding to ensure that sufficient funding will be made available to invest in restoring the condition of our highway network to achieve these objectives. 2.5 Relationship with other Planning Documents A number of other documents already exist that set out the Council s policy and practice that either directly or indirectly have implications for the HAMP. The HAMP does not replace these, but complements them by showing how corporate policy and Page 24
priorities are reflected in the management of Hounslow s streets. These documents include: The Local Implementation Plan (LIP) The Annual Borough Spending Plan The Community Plan The West London People document The Residents Panel Survey The Executive, Departmental and Streetcare Services business plans The Local Area Agreement The Hounslow Plan 2006-2010 The latter in particular is used to derive the Service Levels that are a key part of the HAMP; this interaction with the Council s business planning process is described in Section 4.1.2 below. The HAMP will enable delivery of best value in Highway Maintenance and hence demonstrate effective Asset Management as outlined in the LIP. The HAMP is consistent with the Core Values and Challenges set out in the Corporate Performance Plan. Asset management planning will shape both the Highways and Engineering, and Neighbourhood & Environment Service Plans, and ensure that the objectives of the Community Plan ( Fast Forward ) are met, so that highways service levels reflect the needs and priorities of customers in a way which engages with and reflects the needs of local communities, develops cohesive communities and leads to sustainable improvements. The levels of service and performance required to deliver the seven Themes in the Community Plan will be measured in order to support continuous improvement in maintaining the highway network. To ensure commitment to the public, Street Management & Public Protection (SMPP) has identified various Service Levels, set out in section 4 of the HAMP, as a means of promoting the Themes set out in the Community Plan: 1. A Growing Community 2. A Cleaner and Greener Community 3. A Safer and Stronger Community 4. A Healthy and Caring Community 5. A Creative Community 6. A Children and Young People s Community 7. An Economically Active and Skilled Community Page 25
The HAMP is consistent with the Core Values and Challenges set out in the Corporate Performance Plan and will enable delivery of best value in Highway Maintenance and hence demonstrate effective Asset Management as outlined in the LIP. Page 26
3 Management of Hounslow s Highways Asset 3.1 What Asset Groupings and Services does the HAMP Cover? Our Highways Asset Management Plan applies to the whole of the highway network, and covers the full range of asset components that exist within Hounslow s streets: Carriageway, footway and cycleway pavements, including speed calming facilities Road Lining and markings, including road studs Highway Trees and other vegetation Street Lighting including Illuminated Signs and Advertising Unlit Signs, including directional, informational signs, and street name plates Street Furniture, including environmental monitoring stations and public toilets CCTV Parking meters and payment machines Grassed and other landscaped areas associated with the highway Bridges and structures, including culverts, retaining walls and subways Highway Drainage, including gullies The HAMP also makes reference to those items within the street that are the responsibility of third parties, such as utility providers, rather than the Council, but which nonetheless have implications for the quality of service provided by our streets. In addition to these, the HAMP covers the activities and processes associated with services delivery related to the above assets: Street Lighting and electrical testing Planned Maintenance and improvement schemes Inspections and Assessments (condition surveys) Whole street improvement schemes Reactive small-scale maintenance, in response to public reports and arising from routine inspections Winter Maintenance Structural Testing and inspection Highway drainage maintenance and improvement works Maintenance of Highway Structures Street Cleansing, Fly-Posting and Graffiti Removal Page 27
Tree Maintenance Highway Grounds Maintenance Enforcement and removal of abandoned and untaxed vehicles Highway Law enforcement (excluding parking enforcement) Maintenance of illuminated and non-illuminated street furniture Monitoring of statutory undertakers Co-ordination of works on the highway Management of highways liability claims Refuse collection and recycling 3.2 Goals, Policies and Objectives The Framework for Highways Asset Management advises that asset management processes and plans must be guided by the existing overarching corporate objectives of the authority. It is essential to define the relationship that is desired between asset management priorities and other corporate goals and objectives Hounslow s HAMP therefore, as well as embodying national standards and good practice, includes processes to ensure that the management of the highways network is always contributing to delivery of the Council s policy objectives, as well as adopting national good practice for managing and preserving the asset. The Council's new administration has set out its priorities for the next four years in the Hounslow Plan. The Plan's focus falls into three main areas: Organisational Delivery, Quality of Life, and Looking to the Future. Within these policy themes, there are ten new priorities: 1. Ensuring value-for-money, high performance and quality services 2. Transparency, accountability and participation 3. Safeguarding and enhancing the environment 4. Tackling crime and disorder 5. Improving schools standards 6. Building a stronger and more united community 7. Supporting the vulnerable 8. The Community Strategy Objectives (taking forward the projects in the current Community Plan 2004-2007) 9. A new Community Strategy for 2008-2011 10. A vision for the physical development of the Borough The Borough Road Network has a role to play in the promotion and delivery of a number of these priorities; the HAMP and, in particular, the service levels within the HAMP has the Executive Priorities as its starting point. Page 28
Our asset management planning process will derive detailed processes and priorities from the top down in other words, will take existing Council and national high-level goals, policies and objectives and then derive from these desired Levels of Service applicable to the road network which will, in turn, inform the practices to be adopted for maintaining and operating each element of that asset. This top-down approach is represented in Figure 3.2.1, with a direct relationship between the Priorities that are set for the Council in the Executive Business Plan, helping set those for the Street Management and Public Protection Department, which in turn determine those for Streetcare Services and for the management of the highways asset. The Service Levels and priorities that have been determined for our Highways Asset Management Plan are therefore consistent with, and directly contributing to, the success of the Service priorities for Streetcare Services, the Directorate Priorities, and Hounslow s Ten Executive Priorities. Page 29
Figure 3.2.1 Identification of Priorities The process for determining asset management priorities and objectives from those at corporate and national level is described in section 6.1; the HAMP will be reviewed and updated on an annual basis and the improvement plan and works programme updated on an annual basis. 3.2.1 How the HAMP Supports Policy Making If the HAMP is to be successful, it must not only reflect the Council s policies and priorities, but also support informed strategic decision-making about levels of funding, priorities for investment, and desired levels of service by providing information about the implications of those decisions on the future value, condition and service quality of the highways asset and the whole life cost of operating the asset and delivering services. A measure of the success of the HAMP is the extent to which it provides tools and information that support the political process. It is intended that the processes for determining service levels and for determining and prioritising potential asset investments will, as part of the implementation and development of the HAMP, involve Council Members in a number of respects: 1. Through the development of formal processes for determining service levels and associated performance measures and targets derived from corporate objectives. 2. By informing members, and eliciting their approval, in the development of the performance standards for Hounslow's highways PFI project, as set out in the output specification. Asset management planning requires a structured, cyclical approach to the process of determining and monitoring target levels of service, and for setting a long-term, prioritised programme of investment in the asset that takes account of both desired levels of service and the need to minimise whole life costs of the asset, and to maintain the value of the asset by maintaining an appropriate level of condition. Page 30
The current overall process for business planning within Streetcare services, in particular the fact that highways asset management objectives and priorities are explicitly derived from and link to those of the authority, provides a good basis for the further development of the HAMP and for the implementation of good asset management practices. The process will be further developed during the implementation of the HAMP in the following respects: 1. As well as corporate policies and objectives being reflected, other high level objectives and strategies need greater emphasis in determining those for the HAMP: Transport-related objectives, particularly those set out in the LIP and those determined by TfL and by government that are relevant to Hounslow s highway network National standards and good practice as set out in Well Maintained Highways and national standards for Asset Management, such as the CSS Framework, Asset Valuation Guidance etc. 2. A more explicit link to customer and stakeholder consultations and feedback mechanisms in determining standards and practice. 3. A more robust mechanism for feeding back and reviewing actual performance and condition of the asset components and associated services and for linking that feedback to policy making. Future initiatives for assessing condition and performance should reflect this need 4. A more explicit target setting mechanism related to business planning With our Highways PFI planned to start on the ground in 2012, the above objectives will need to be built into the contract documentation associated with this project. One of the key benefits of Asset Management is the introduction of objectivity and transparency into what has often traditionally been subjective decision making. By making the connection between asset components and service levels, it is possible to demonstrate the impact of decisions, and therefore better enable decision-makers to take informed ownership of their decisions, and to justify particular decisions on an objective basis. 3.2.2 Stakeholders with an interest in the HAMP As the service being provided by Streetcare Services responds to the entire community which uses or has an interest in the Highway network, it is vital that all these stakeholders are consulted and their aspirations are reflected in the HAMP. Stakeholders have Page 31
been identified and broad consideration given to their main interests in asset management planning; section 9.2 describes this process in more detail. Hounslow has established a Residents Panel of around 2000 people, selected to be representative of the local demographic profile. The Panel is regularly consulted on topics of local interest to help inform policy-making and streetrelated topics are included in its brief for the September 2005 survey. Specifically to support the development of the HAMP, reference was made to previous consultation exercises with the Residents Panel, and a special questionnaire was commissioned through the local HM Magazine in July 2005. This is described in more detail in section 9.2.1, and in Appendix 6. The Residents panel have also have also been communicated and consulted with as part of the development of the PFI project, as part of the PFI communications plan. 3.3 Knowledge of the Asset It is an obvious, but sometimes overlooked, fact that in order to develop an asset management strategy and associated business processes and systems, it is essential to have a thorough and up-todate knowledge of the assets involved. This includes, but is not limited to: The extent of the road network itself The extent and detail of every asset type and component present within that road network Information about the quality and condition of each asset component, and the quality of service that is provided Information about the historical life cycle of the assets, including age and dates of major maintenance interventions and improvements Information about historical costs Hounslow is typical of most local authorities in that during the development of its first HAMP it has recognised that the knowledge of its assets leaves room for improvement. In the Current State Assessment carried out as part of the highways asset management planning exercise, knowledge of the data held about each asset group was gathered. During the subsequent gap analysis, the need for improved information was identified. These improvements are identified in respect of key assets groups in the paragraphs below, and form part of the Improvement Plan in section 8.2. Information about the asset may be found in a number of different sources, including: Page 32
Formal written records and reports, including archives On maps, drawings and plans In computer records and databases In contract documents As head knowledge by members of staff Ad hoc notes and records held by members of staff Page 33
One of the overall objectives in respect of improving the knowledge of the highway assets is to bring together, extend and enhance existing information, in whatever form it is held, and make it accessible for asset management purposes. 3.3.1 Role of Data and Systems in Asset Management The European Best Practice Guide on Data Management (see www.roaddata.org) gives guidance on good data management for roads data Data is essential to support decision making at every stage in the asset management cycle. It must be emphasised that there is a difference between data and information in this context; data becomes information only when it is put to constructive use and can assist decision making to add value to the business. Public organisations such as Hounslow are accountable for their decisions, and good data management provides the necessary audit path to demonstrate the basis of decision making leading to cost savings. Information systems support the following elements within successful asset management systems: The asset register, comprising an inventory of assets Systems to integrate data from different asset components for the whole asset Condition Assessment and reporting systems Systems for calculating and reporting asset value and depreciation Systems to allow Performance Monitoring against service levels and targets Predictive decision and option appraisal models Budgeting tools Operational systems Data is of little use, however, if it is not fit-for-purpose and up-todate. This is described in more detail in section 6.6. Effective management systems and processes will depend upon good data in all aspects of owning, operating, maintaining and enhancing the highway assets. Good data quality, managed through an effective data management regime, and turned into information useful for informed decisionmaking through effective systems, is an essential part of the successful implementation of Hounslow s HAMP. Page 34