Chapter 3: Organization

Transcription

1 Chapter 3: Organization Introduction For asset to be successful, a transportation organization must have in place a corporate structure that facilitates the implementation and delivery of asset by appropriately empowered and competent staff (UKRLG and HMEP 2013). This organizational structure must be fully supported by the leadership. The assessment of current asset practices may reveal the need for an important corporate change to attain the potential of asset. Depending on the differences between actual and recommended practice, the implementation of a comprehensive change strategy may be required, which should be driven by the organization trying to reach the right level of maturity. The change strategy has to identify what needs to be done and how the agency s executives will involve and motivate staff in achieving the benefits pursued. Typical processes of this corporate change include integrating asset into business processes and organizational culture, establishing asset roles, and setting performance standards (FHWA Transportation Asset Management Expert Task Group 2013). These standards, in particular, may be supported by agency agreements with the government. Many transportation agencies around the world still function based on a silo-like organizational structure, in which the areas responsible for managing the various asset types (pavements, bridges, slopes, and so on) operate almost in isolation, without an integrated vision to achieve the corporate objectives. Asset aims at aligning and linking processes so that all business units within an agency operate in a coordinated fashion rather than independently (FHWA 2012), based on a unified view of asset policy and strategy taken at the leadership level (UKRLG and HMEP 2013). Frequently, adopting the right structure for asset will present greater challenges than putting to work new technical or analytical procedures (FHWA 2012). This might be particularly the case with developing countries, where the resources and staff necessary for the institutional change may not be available, thus inhibiting the implementation of asset. In such circumstances, greater effort is usually required from the supporters of change to make the case for asset. Adapting the organizational structure to support asset The changes required to adopt the asset framework usually involve a deep transformation of the transportation agency, which should be supported by strong leadership and commitment. Such leadership must be in place from the moment the need to implement asset is first recognized so that the organization conducts, as a first step, a self- 11

2 assessment exercise for identifying the required changes. Very often, the initial steps towards a corporate transformation are actively promoted by asset champions. Results from the self-assessment exercise typically include new or modified business processes, workflows, activities, or tools that should be put into practice. In general, organizational structures existing prior to the adoption of asset are inappropriate to accommodate those innovations smoothly, and, therefore, the shape of the transportation agency must be rethought to establish the roles and information flows that will better serve the chosen approach to asset. Moreover, the new roles will likely require new staff competencies that extend far beyond the traditional areas of transportation engineering. The following sections provide greater detail concerning leadership and culture, self-assessment, champions, asset roles, and competency requirements. Leadership and culture Leadership has a strong influence on the culture and behavior of all organizations. Clear direction and priorities will ensure that both significant and apparently minor decisions made across the organization support a consistent approach to achieve the business objectives. Such decisions include appropriate investment decisions to reflect the asset strategy (UKRLG and HMEP 2013). Below is a list of some of relevant aspects of leadership and organizational culture as applied to asset : Senior must demonstrate leadership by creating a culture and environment reflecting an agency-wide commitment to asset. Strong leadership should run throughout the agency to influence the many functions of transportation infrastructure and link them all so that they support the wider asset approach. An asset culture promotes a coordinated approach across the agency to the long-term of the transportation network by aligning the activities of individuals and teams to common objectives rather than to individual priorities. An asset culture should avoid conflicting priorities and messages, lack of understanding, or lack of a collaborative approach. Achieving good leadership requires a certain amount of knowledge on the part of leaders. The key issues and benefits of asset should be articulated by the asset staff in ways that are non-technical and meaningful. Self-assessment The self-assessment s aim is to benchmark the current asset practices of the organization and identify specific opportunities for improvement (AASHTO 2002). The main objectives of self-assessment include the following: Develop a consensus among managers within the organization about the status of asset. 12

3 Assist the organization in identifying asset strengths, weaknesses, constraints, and opportunities for improvement. Develop priorities and recognize critical areas that need immediate attention. Provide a foundation for implementing the organization s asset improvement strategy. One of the most important steps in implementing asset is to identify the organizational policies and goals to be achieved, which will define the agency s most important priorities. Asset is a customer-focused, goal-driven and decision making process. Organizational goals, policies, and budgets establish a consistent evaluative philosophy. Goals and performance measures are the levers that drive the asset decision framework, establishing investment scenarios that reflect levels of service and making resource commitments consistent with the perceived needs of stakeholders. Analysis procedures regarding alternative options are used within this framework (FHWA 2012). Asset champions It seems to be universal that, at least in the early stages of implementing an asset framework, there will be a need for a champion, who can be anyone with sufficient interest and influence to promote organizational changes. A champion may be designated by someone in toplevel or may simply emerge from among the members of the involved groups. In any case, a champion is one who does not rest until the mission is accomplished. Candidate champions may include the following: The leader of the organization Functional or geographic managers First-line supervisors Key technical or policy-level staff The champion for implementing an asset framework will face the challenge of prevailing in any deliberations and debates about why such a differentiated approach is needed at all. Arguments about the unique significance of the transportation system, the benefits (and complexity) of a risk-based approach, the need for mitigation strategies and contingency plans, and the strong interest of outside stakeholders are likely to be relevant to the champion (Cambridge Systematics et al. 2009). Asset roles In designing the most suitable organizational structure to support asset, transportation agencies may choose either a centralized or a decentralized approach. While the former facilitates consistency of processes and work methods, it also entails the risk of making asset appear remote for the areas responsible of service delivery, which may not fully understand the policies defined centrally. On the other hand, in some circumstances a decentralized structure may result in a fragmented asset approach and culture. 13

4 Regardless of the organization type chosen, the roles and relationships driving asset should clearly establish the strategic, tactical, and operational levels within an organization, as shown in Table 3.1 (UKRLG and HMEP 2013). Table 3.1 Organizational hierarchy Hierarchical level Responsible staff Main functions Strategic Senior decision makers Set asset policies and strategy Endorse asset framework Align levels of service with strategic objectives Agree performance targets Establish context for risk Tactical Asset staff Implement the asset framework Provide information to support decision making Operational Operational staff and maintenance workforce Implement works programs Measure performance Source: UKRLG and HMEP 2013 The asset functions included in Table 3.1 are discussed throughout this guide. Key roles for developing and delivering asset include the following (UKRLG and HMEP 2013): Senior decision makers support and endorse the asset policy, strategy, and performance requirements. Their leadership and financial commitment is crucial in building the organizational culture and structure to make asset successful. Also, senior decision makers should undertake a periodic review of the approach adopted for asset. Asset managers and practitioners are responsible for developing and delivering the approach to asset that has been agreed upon by senior decision makers and documented in the strategy and performance requirements. Collection and of appropriate data and development of lifecycle plans, multi-year programs, and annual works programs will be required to support the approach and meet the asset requirements. The actual positions and relationships among these roles that should be defined within each organization largely depend on the results of the self-assessment exercise. At the basic maturity level, asset may rely on just one person or a small group with multi-disciplinary training and experience. As the organization moves to the proficient level, asset will involve the coordinated effort of various workgroups and multiple individuals. Defining new roles and managing the transition from a small group to a formal, mature asset team is an important leadership task (FHWA Transportation Asset Management 14

5 Expert Task Group 2013). It requires a consideration of individual, team, and organizational expectations as well as a vision for how the process will change as the formal asset team is established and developed. Figure 3.1 shows an example of how a transitional asset team might be composed. Top Management Support District Representatives Bridge Division Design Planning Public Information Steering Committee Modal Representatives Pavement Division Maintenance Finance Information Technology Asset Management Leader Staff Support from stakeholder units and roles From FHWA Transportation Asset Management Expert Task Group Copyright 2011, 2013 by the American Association of State Highway and Transportation Officials, Washington, DC. Used by permission. Figure 3.1 Example of a transitional leadership structure As with any major project in a transportation organization, the re-engineering of the organizational structure needs a project manager or project leader, who will be devoting most of his/her time to the project. A feasible candidate to play this role might be the chief executive officer of an agency or a properly empowered senior manager. The most important skill of the project manager would probably be his/her ability to build teams. The attribute list for this person should also include motivation and persistence in overcoming the inevitable barriers that appear whenever an organizational change is attempted. The project manager may come from an engineering, economics, or planning background or, preferably, from a combination of more than one of these disciplines. A steering committee of senior managers, overseeing the work of the asset leader, is also essential to ensure that all parts of the asset process function together as a unit. Adequate resources are vital to the successful implementation of asset, including adequate training for agency staff to ensure sufficient skills and understanding to successfully implement asset. 15

6 Clear role descriptions for those carrying out asset tasks and requirements should then be developed. There is likely to be new competency requirements within the agency and training programs in asset to support the proposed changes. As stated earlier, there is no single way of defining roles for asset. However, an organizational structure suitable to delivering asset typically includes the roles depicted in Figure 3.2 (UKRLG and HMEP 2013). Road Structures Elected members and senior decision makers Director of roads Road asset manager IT Data collection and Program Maintenance Based on UKRLG and HMEP 2013 Figure 3.2 Typical asset roles Inspection and condition measurement Competency requirements Senior should identify the competencies necessary to meet the requirements for adopting asset. Where these competencies are not available in the organization, training of staff may be required. Recruitment, mentoring, or collaboration with other authorities may also be considered (UKRLG and HMEP 2013). If competencies or resources are not available, external support can be an effective way of addressing gaps, particularly when there is a need to build capability within the organization. It is important that ownership is retained within the authority and that asset staff have enough knowledge to be smart purchasers. Competencies may fall under a number of categories, including the following: Leadership and governance Communications and relationship 16

7 Strategic thinking and decision making Risk Business, finance, resources, tools, and information Planning development and review Asset understanding Lifecycle Technical skills, including choice of treatments and materials Procurement and contract Delivery Online resources There are a number of international training resources for asset, some of which can be accessed at no cost. These include the following: Austroads, Australia and New Zealand Guide to asset Specifications and test methods Asset research reports Weigh in motion resources FHWA and AASHTO, US Publications and documents Training Current projects Events Tools Resources (including recorded webinars) HMEP, UK Resources Highway Infrastructure Asset Management Guidance Guidance on the Management of Highways Drainage Assets Lifecycle Planning Toolkit The Potholes Review Connect & share News Events NAMS, New Zealand Asset Management Support 17

8 Seminar series In-house training PIARC, International Technical reports Articles published in the Routes / Roads magazine Proceedings of PIARC international seminars HDM-4 software References American Association of State Highway and Transportation Officials (AASHTO) Transportation Asset Management Guide. American Association of State Highway and Transportation Officials. Washington, DC. Austroads Asset Management Publications & Resources. Last accessed July 29, Guide to Asset Management Part 4: Program Development and Implementation. Sydney, Australia: Austroads Inc "Integrated Asset Management Guidelines for Road Networks." Austroads Publications Online. Accessed April 9, Cambridge Systematics, Inc., Applied Research Associates, Inc., Arora and Associates, KLS Engineering, PB Consult, Inc., and Louis Lambert NCHRP Report 632: An Asset- Management Framework for the Interstate Highway System. Transportation Research Board of the National Academies. Washington, DC. Last accessed July 24, 2015 at Federal Highway Administration (FHWA) Asset Management. Last accessed July 29, Executive Brief: Advancing a Transportation Asset Management Approach. Federal Highway Administration Office of Asset Management. Washington, DC. Last accessed July 29, Federal Highway Administration (FHWA) Transportation Asset Management Expert Task Group AASHTO Asset Management Guide A Focus on Implementation. Executive Summary. American Association of State Highway and Transportation Officials. Washington, DC. Last accessed July 29, "FHWA Asset Management Position Paper (White Paper)." Federal Highway Administration. April. Accessed April 9, " Asset Management - Federal Highway Administration. March. Accessed April 9, HMEP Asset Management. 1 May. Accessed June 3,

9 Morosiuk, Greg, Mike Riley, and Tyrone Tool HDM-4: Highway Development and Management. Volume Two: Applications Guide. Vol. 2. Paris: World Road Association (PIARC). NAMS NAMS. Accessed June 3, NCHRP " PHASE I REPORT: TASK 2 OF 3: ASSET MANAGEMENT FRAMEWORK. February. Accessed April 9, PIARC Road assets Knowledge base PIARC. Accessed June 3, Robinson, Richard, Uno Danielson, and Martin Snaith Road Maintenance Management: Concepts and Systems. Chippenham, Wiltshire: Palgrave. United Kingdom Roads Liaison Group (UKRLG) and Highways Maintenance Efficiency Programme (HMEP) Highway Infrastructure Asset Management Guidance Document. Department for Transport, London. Last accessed July 24,