Roads and Footpath Activity Management Plan (Part B Asset Based) February 2018

Transcription

1 Roads and Footpath Activity Management Plan (Part B Asset Based) February 2018

2 Quality Assurance Statement: Southland District Council 15 Forth Street Invercargill 9840 Telephone Fax: Version 3 Status Draft Version Note Format updated new style March 2018 (revision 50) Prepared by: AMP Author Reviewed by: Hartley Hare, Roading Asset Management Engineer Murray Gimblett (Advisian) Approved for issue by: Council (27 February 2018) Page 2

3 Table of Contents Roads and Footpaths Activity Management Plan 1. Introduction Purpose of the Activity Management Plan Activity Description What We Do Why We Do It? Objectives of the Roads and Footpaths activity Overview of Management Plan Limitations Plan Framework Strategic Direction Strategic Framework and Community Outcomes Strategic Priorities Key Issues Key issues for the next ten years What are we planning Changes Made to the Activity Key Projects Our Levels of Service Customer Expectations Customer Satisfaction Trends Planning Framework Overview SDC Contribution to Government Policy Statement Requirements Levels of Service, Performance Measures and Targets Changes to the performance framework Plans Programmed to Meet the Level of Service Managing Future Demand Predicting Future Demand for the Service Demand Drivers Demand Forecasts Implications of Growth/Demand Demand Management Strategies Asset Management Strategies to Manage Demand Planned Programmes to Meet Growth/ Demand Sustainability District-wide Asset Management Strategies Overview of the Transportation Assets Road Network Overview Road Hierarchy Asset Value and Depreciation Service Delivery Road Safety Environmental Maintenance, Resilience and Emergency Reinstatement Sealed Roads Asset Description Asset Condition Asset Performance Page 3

4 Approach to Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Unsealed Roads Overview Asset Condition Asset Performance Approach to Operations and Management Approach to Renewals Upgrading and Developing New Assets Future Improvement and Demand Bridges Asset Description Asset Performance Approach to Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Drainage Asset Description Asset Condition Asset Performance Approach to Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Signs and Markings Asset Description Asset Condition Asset Performance Approach to Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Streetlighting Asset Description Asset Condition Asset Performance Approach to Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Footpaths / Streetworks Asset Description Asset Condition Asset Performance Financial Information Page 4

5 Approach Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets LOS and Demand Future Improvement Around the Mountains Cycle Trail Asset Description Asset Condition Financial Information Approach Operations and Maintenance Approach to Renewals Upgrading and Developing New Assets Future Improvement Other Road Management Activities Network and Asset Management Activity Description Forecasted Expenditure Future Improvements Road Safety Activity Description Forecasted Expenditure Road Safety Issues How Road Safety is Addressed The Land Transport Programme Requirements Improvements Studies and Strategies Activity Description Economic Network Plan Financial Summary Year Financial Forecast Financial Summary Total Income Financial Forecast Summary Long Term Financial Sustainability Vested Assets Summary of Key Assumptions Valuation Approach Funding Principles Activity Specific Assumptions Significant Effects, Risk Management & Quality Assurance Significant Negative Effects Risk Management Compliance and Quality Assurance Asset Management Plan Improvement Progress against Previous AM Improvement Programme Assessing Current and Desired AM Practices Understanding and Defining Requirements Developing Asset Lifecycle Strategies Asset Management Enablers Page 5

6 12.3. Ongoing Monitoring and Review AM Improvement Plan Appendix A: Community Plans for Locally Funded Activities (Streetworks) Appendix B: Footpath Lengths, Construction and Condition Appendix C: Road Safety Overview Appendix D: SDC Posted Bridges Appendix E: Request for Service Timeframes Glossary and Acronyms Page 6

7 1. Introduction 1.1. Purpose of the Activity Management Plan The purpose of this Plan is to document the SDC s (SDC or the Council) asset management (AM) practices and achieve an optimised life cycle strategy for the roading infrastructure for the next 30 years (within funding constraints). This is a long term planning document which will be reviewed every three years. The budgets and timeframes provided in this plan will be recommended to the Council for adoption through the Long Term Council Plan (LTP) and Annual Plan process. 2. Activity Description 2.1. What We Do Council owns and manages a roading network of 4,967 km - the second largest of any territorial authority in the country. Council also owns and manages 852 bridges, 207 km of footpaths, 236 stock underpasses and 2,450 streetlights. The roading network is crucial infrastructure for the District. It contributes to Southland s economic development and allows people to access their homes, schools, social centres and recreational areas in their communities. Population Served (2013 Census) 29,613 Length of Roads: Sealed (km) 1,963 Unsealed (km) Total (km) 3,004 4,967 Footpaths (km) 207 Bridges (no) 852 Stock Underpasses (no.) 236 Street lights (no.) 2,450 Estimated distance travelled on the network each year (million km) 266 Book Value 2016/2017 ($M) including land value 1,275 Table 2-1: Key Network Statistics as at May Why We Do It? Council s roads and footpaths provide its communities with a safe and integrated corridor for goods and services to move throughout the District. This activity supports people s ability to live, work and travel safely throughout Southland Objectives of the Roads and Footpaths activity The primary objective of the Roads and Footpaths activity is: A safe and integrated corridor that enables people, goods and services to move throughout Southland and makes it easy to live, work, play and visit here The standard to which this objective will be delivered is outlined by the Levels of Service (LOS) detailed in Section 5.3. Page 7

8 2.4. Overview of Management Roads and Footpaths Activity Management Plan The assets covered in this plan are the responsibility of the Council s Roading department under the strategic direction of Council, the Executive Leadership Team and Community Boards. AM responsibilities are covered in detail in Council s AM Policy, Service delivery is generally provided as follows 1 : Operations and maintenance is delivered by Fulton Hogan Limited and SouthRoads Limited. Capital works design and professional services are by external providers (OPUS, Stantec, etc). Capital works are competitively tendered and delivered by a range of providers depending on the type and nature of the work. These providers include but are not limited to Downer Fulton Hogan, SouthRoads, The Roading Company, Wilson Contractors, and Wilson and Keen contracting. Pavement marking services are provided by Downer while Otago Power Services currently provide street lighting maintenance services Plan Limitations Currently the Roads and Footpaths AMP has a status of Core-Intermediate as per the International Infrastructure Management Manual. The goal for continues improvement including investment in key areas of data deficiency including modeling should see the AMP status increasing to at least intermediate in the coming years. The degree of confidence in the AMP forecast is limited due to the impact that external factors can have on the asset. Beyond 10 years the confidence levels reduce and even more so after 20 years Plan Framework The AMP framework is illustrated in Figure 2-1. Corporate information common to all AM Plans has been included in a separate document AMP Part A (r/16/8/12686). District-wide information and strategies are documented in the main body of this plan. Corporate Reference Information AM Planning Framework, Council Policy and Planning Documents Council Strategic Framework (Vision and Outcomes) Future Forecasts (population, landuse, demographics) Risk Management Framework Activity Management Plan (AMP) Part A Activity Detail Activity Description, Strategic Direction, Key Issues Levels of Service and KPIs Managing Growth/Demand AM Strategies Financial Forecasts Assumptions and Risks Improvement Plan Activity Management Plan (AMP) Part B Area Detail For each geographical area (where relevant) a summary of: Assets/services Asset condition/performance Issues and Risks Proposed strategies and works programme Capital Expenditure Plan Appendix: Area Specific Plans Figure 2-1 Asset Management Plan Framework 1 As at August 2017 Page 8

9 3. Strategic Direction 3.1. Strategic Framework and Community Outcomes The Council has adopted a Strategic Framework that identifies where the Council wants to be in the future (vision) and the outcomes it aims to achieve to meet the current and future needs of communities for good-quality local infrastructure, local public services, and performance of regulatory functions (community outcomes). The framework also outlines how it will achieve these (mission and approach) along with the key challenge it faces in doing so and its resulting strategic priorities. The framework guides staff and informs future planning and policy direction and forms the basis for the performance framework. Additional information about the Council s strategic framework is included in AMP Part A (r/16/8/12686). Table 3-1 outlines how the Roads and Footpaths activity contributes to the Council s community outcomes using a benefits mapping diagram. The full levels of service and performance management framework is presented in section 5.3. Page 9

10 Outcomes Activity Contribution Outcome Objective Benefit Levels of Service (LoS ) and Key Performance Indicators (KPI ) Activity Objective: A safe and integrated corridor that enables people, goods and services to move throughout Southland and makes it easy to live, work, play and visit here 1. Proud connected communities that have an attractive and affordable lifestyle Roads, footpaths and cycle trails provide people with access to their land, homes, schools, social centres and recreational areas. They also help achieve an integrated, safe, responsive and sustainable land transport system. Road safety improvements and initiatives also help to reduce the social impact of road fatalities and injuries. 1a. People have everything they need to live, work, play and visit 1b. People are wellconnected (to each other the environment and world outside Southland) Convenient and efficient travel A more reliable transportation network Improved social wellbeing and connectedness Healthier, more active communities LoS 16: Roads are fit for purpose and provide for comfortable and efficient travel KPI 16.1: Average quality of ride on sealed local roads (MM 2: road condition) KPI 16.2: Percentage of sealed local road network resurfaced (MM 3: renewal program) KPI 16.3: Percentage of customer service requests 2 responded to within required timeframes (MM 5: response to service requests) KPI 16.4: Percentage of gravel road tests 3 where road roughness meets acceptable standards 1c. People can enjoy a safe and fulfilling life in our unique and natural environment People can travel around more safely LoS 17: A safe roading network KPI 17.1: Annual change in the number of fatalities and serious injury crashes (MM 1: road safety) LoS 18: Footpaths are safe, well designed and well maintained KPI 18.1: Percentage of footpaths that meet condition standards 4 (MM 4: footpath condition) 2. Resilient Roads contribute to economic communities that leave development by providing a corridor a legacy for tomorrow for the efficient movement of goods and services. Figure 3-1: Activity Contribution to Council Outcomes 2b. Consider social, cultural and economic wellbeing Supporting industry through connections and access Enabling tourism and economic develop in Southland Roading network deliver value for money Page 10

11 3.2. Strategic Priorities Roads and Footpaths Activity Management Plan The Council has identified four priority areas in response to the key strategic challenges facing the Council and the community to achieve the Vision and Community Outcomes (refer Strategic Framework in AMP Part A r/16/8/12686 for more details). The contribution that the activity makes to these Strategic Priorities are shown in Table 3-1. Strategic Priorities 1. Improve how we work 2. Provide appropriate Contribution Area infrastructure/services What will be done in the long-term (next 10 years) What will be done in the short-term (next 3 years) Key Actions and Projects Related strategies / plans / policies Regulatory requirements and services delivered by Council: - encourage compliance - are user friendly - are cost effective; and achieve the regulatory objectives Review and improve systems and procedures around data capture, management and storage Understand and implement business case approach during project development Understand implications of climate changes to our communities and how this will impact on the service we deliver. Map all critical processes Improve asset data as identified in the AMP and Asset Valuation Report Review Roading Bylaw and Speed Limit Bylaw to ensure relevance and effectives. Ensure those roads which provide the economic backbone of the district are maintained to the required LOS Understand implications of the draft Proposed Water and Land Plan and how this impact on the service we provide Understand the implication of the One Network Road Classification Customer Levels of Services Review One Network Road Classification Customer Levels of Services as these are developed to establish any potential gaps. Table 3-1: Activity Contribution to Strategic Priorities 3. Make informed decisions 4. More people Further understand implications of community futures work on renewal strategy Consider alternative options to assess expected asset lifecycles based on performance and not just expected asset life. Gaps in service will help identify key priority areas and projects. Continue to participate with the Road Efficiency Group Regulatory requirements and services delivered by Council: - encourage compliance - are user friendly - are cost effective; and achieve the regulatory objectives Provide and connected and integrated network that is safe for all user None identified specifically None identified specifically Page 11

12 4. Key Issues 4.1. Key issues for the next ten years The most important issues relating to the Roads and Footpaths activity for the next ten years are shown in Table 4-1. Council and staff have investigated a number of ways of addressing and managing the following issues in order to minimise the reduction in LOS for the customer arising from flat-line funding. A number of solutions have been presented and approved by Council at the October 2011 and August 2014 Council meeting, as shown in the table below. All are either already underway and will continue into the new three year programme, or are under investigation to determine benefits (prioritising higher value roads over lower value road). Along with these measures investment requirements will be considered using the ENP along with Pareto 80/20 principle. A review of vehicle kilometres travelled (VKT) showed that 67% of VKT are on 20% of SDC roads. Key Issue Ageing network of sealed roads Increasing number of seal layers. Impacts posted bridges have SDC achieving key objectives Context, Options and Implications Context: Many roads were built during the 1960s and 1970s and will be coming to the end of their economic lives. Options: consider alternative interventions for lower volume roads such as more patching and resealing More work is required in this area to better understand the real impact of this. Avenue for improved data management and modelling is proposed as a key focus for the period. Councils preferred option is to continue implementing the 80/20 principle while continuing to progress data improvement and modelling. Implications: This will likely lead to rougher roads over time and may not be least of whole of life option financially. Context: Many roads were sealed during the 1960s and 1970s and will be reaching a point where the seal layers start to become unstable and result in excessive bitumen build up. Options: bring resurfacing treatments forward. Consider thin granular overlays to cover up the old seal. Water cut the most at risk section of roads such as curves and breaking zones Reduce speed limits to mitigate the risk of associated with roads with insufficient skid resistance. Councils preferred option is to carry out data validation of the network to establish urgency and significance of this risk in the longer term. Implications: Sealed roads will become flush (smooth) and result in unsafe road services. Seal lives will reach a point where it is not economically sustainable to continue sealing the road. Context: SDC has a large bridging stock (1088). A significant portion of the timber bridges (102) already have some form of restriction weight restriction on them. The majority of the timber bridges or those with structural timber components will or will have reached the end of their expected useful lives in the next years. Options: Implement a replacement programme which focuses on the bridges which create the greatest hardship. Page 12

13 Key Issue Increasing amount and weight of heavy traffic. Width of Sealed Roads Subsidy from NZTA Context, Options and Implications Councils preferred option is to redirect funding from pavement renewals to bridge renewals while generally maintaining overall roading program Implication: With small pavement renewals programme investment can be shifted in the short term to address the most crucial bridges while maintaining a similar roading programme as The longer term implication need to be assessed in conjunction with the long term pavement renewal needs Context: Heavy vehicle activity is the primary consumer of road pavement life. Increase in heavy traffic using the network is accelerating pavement deterioration. Options: include continual review of differential rating model. Prioritisation of work with ENP driving LOS with road hierarchy. Potential limiting of heavy traffic to match road standard. Implications: Increased determination of asset life beyound that predicated. Context: Significant portion of sealed roads are under width from the ideal. This leads to increased road user safety risk and increased maintenance requirement through edgebreak repair. Options: Implement seal widening programme. Reduce speeds for safety preservation. Limit heavy vehicle activity on worst affected roads. Preferred option is to implement a seal widening programme based on hierarchy and extent of roads are under width. Councils preferred option is to resinate a seal widening program to which starts to address the highest priority sites. Implications: Over time this will result in an overall increase in square metre of sealed network. Context: Availability of subsidy from NZTA and ability to rate for the rest, largely determines the size of the roading programme each year. Traditionally Council is not prepared to allocate additional ratepayer funds unless NZTA is prepared to pay the full Financial Assistance Rate Options: Increase rates to carry out unsubsidised work. Prioritisation of work with ENP and 80/20 driving LOS based on road hierarchy functionality. Councils preferred option is to continue to lobby NZTA for greater subsidy rate while continue to prioritise work program using ENP and 80/20. Proposed response: Prioritise investment based on road contribution to strategic outcomes to minimise increase in funding requirements Table 4-1: Key Issues for the Activity What are we planning This AMP proposes a similar level of investment and largely continue with the strategies adopted as part of the AMP. It is proposed to defer some of our lower volume rehabilitations to try and sweat the asset harder but mitigating the impact of the customer experience. This budget should enable Council to be able to implement its proposed responses to the key issues and challenges. NZTA s funding contribution will play a key role in how Council s strategic approach is fully implemented. It is projected that there will be a renewal bow wave in future years. Questions will need to be continually raised on how Council funds this or reduces the Levels of Service. A key objective in the Page 13

14 period is to better understand the renewal profile and explore alternative approaches to managing it. Part of this will be to focus on improving asset inventory along with data mining and modeling to assist with building improved asset knowledge and asset performance to better understand expected life cycles. The longer life assets such as bridges and road pavements are intended to be the initial point of focus as they are seen to have the greatest risk from both a long term financial and asset perspective Changes Made to the Activity Table 4-2 summaries the key changes for the management of the Roads and Footpaths activity since the 2015 Activity Management Plan. Key Change None Reason for Change Fundamentally no changes are proposed. As described previously, the focus is to primarily on business as usual while reviewing process and policy to improved ways of delivering transport services. This includes improved program development and delivery strategies Table 4-2: Key Changes to the Activity 4.3. Key Projects There are no major projects planned during the period. The majority of work completed is related to renewal of the road network. Specific projects are planned by local Community Board and Community Development Area Sub-committees for the streetworks activities that they oversee in their townships. Information about this included in Appendix A: Community Plans for Locally Funded Activities (Streetworks). Page 14

15 5. Our Levels of Service Roads and Footpaths Activity Management Plan This section outlines why the Council is involved in this activity and the key drivers for levels of service, including customer expectations, legislative/regulatory requirements and Council outcomes. Section 5.3 details what level of service will be provided and the performance measures and targets which will be used to monitor performance Customer Expectations In providing services it is important to understand what the customer using the service expects and if those expectations may change. The table below details the key customer groups, their expectations and any issues that this raises for the activity. Key issues for Council to be mindful of when considering these customer groups needs include: Ratepayers expect safe, comfortable and efficient travel. If sufficient funding is not available to maintain current LOS Council will need to explain the difference in expectations and actual. With changing direction of the major funding partner, NZTA, it is important to ensure its expectations as agents of government policy and direction are considered and addressed. Industry has expectations that roads will be wide and smooth enough to allow them to carry maximum load in minimum legal time. As this is a major driver in delivering community outcomes (desirable places to live, grow up, work, run a business) emphasis will be placed on this group s needs and their effects on the District s infrastructure. Increased emphasis will be placed on liaising with this group regularly in order to determine and manage adverse impacts on the network with maximising economic productivity. Customer stakeholder group Residents NZTA Police Neighbouring TAs How we understand their requirements Resident survey. Monitoring complaints through Pathway. Regular meetings, submissions on Rules, guidelines etc. Regular meetings, information exchange. One to one discussions, meetings. Specific Interests Safe, comfortable roads and footpaths that allow customers to access their destination. Investment (funding), state highways. Safety. Regional issues, crossboundary standards, shared contractors. Iwi Consultation. Ratepayer subgroup safety, environmental issues. Business sector, in particular agricultural including forestry and dairy farming Environment Southland (ES) Table 5-1: Customer Expectations Submissions on Annual Plan, complaints, projectspecific consultation. Regular meetings. Opportunities to comment on AMPs. Access for customers and stock/services, efficient transport of goods and services. Roading contributes to a better region. Expectations and key issues. Rough roads, potholes, poor lighting, missing signs. Funders expect considered decisions on best value for money projects. Good design and maintenance of the network. Regular exchange on best practice, consultation on relevant issues, crossboundary consistency. Consultation where land affected, targeted safety programmes. Smooth, efficient road network with minimum hold-ups. Plans not inconsistent with Regional Land Transport Strategy. Page 15

16 Customer Satisfaction Trends Roads and Footpaths Activity Management Plan Ratepayer surveys are carried out at three yearly intervals and help to inform our understanding of customer expectations. The key areas surveyed relating to the Roads and Footpaths activity included unsealed roads, streetlighting and footpaths. For most activities there was a slight increase in satisfaction. It should be noted that for gravel road satisfaction, in previous years residents have been asked how far they agree or disagree that unsealed roads are maintained for a comfortable speed of 70km/hr. In the 2017 survey the question has been simplified to determine levels of agreement that gravel roads are adequately maintained. The chart below shows an indication of trends but conclusions should be drawn with caution Table 5-2: User Satisfaction - Maintenance of Unsealed Roads Overall satisfaction has slowly decreased. From the latest survey half of residents (52%) agreed that gravel roads in the district are adequately maintained however satisfaction was lower amongst rural respondents (48% satisfied) when compared with urban (61% satisfied). The reasons for dissatisfaction identified poor quality surfaces (potholes, corrugations) and a need for more regular maintenance. Table 5-3: User Satisfaction - Safety of Footpaths and Streetlighting Page 16

17 From the 2017 survey 83% of residents were satisfied with the quality of streetlighting in urban areas. Dissatisfied residents indicated a need for more lights or brighter lights. Trend data indicates a consistent high level of service for streetlights. For Footpaths, 63% of residents were satisfied with footpaths with the main reason for dissatisfaction highlighted a need for maintenance and more footpaths to be installed It is proposed that the development and implementation of a Customer Expectation Strategy be persuaded to help better understand and address customer expectation and also improved communication to ratepayers to help improve understanding between the levels of service for each road based on the function of the road Planning Framework Overview The Government Policy Statement sets the framework which Government uses to distribute funding to local bodies, and is therefore a key guiding document to how SDC plans its programme (both through the Regional Transport Strategy and in its day to day work). The Land Transport Management Act provides a key set of determinants which are required when planning transport activities. While the Land Transport Management Act is the governing legislation for the Roads and Footpaths activity, the Government Policy Statement is the principal determinant of how funding will be allocated and hence is a key underpinning document for Council activities. Where the Government Policy Statement changes during the planning process this can affect the government priorities and hence the funding targets and availability. Where the changes are significant this may lead to a need to adjust key Council documents such as the Annual Plan, AMPs and LTP, including LOS. A full description of the Council policy and planning framework impacting AM Plans is included in the AMP Part A (r/16/8/12686). Legislation / Regulation / Planning Documents Building Act 2004 Bylaws Civil Defence Emergency Management Act 2002 Code of Practice for Working on the Road How it affects levels of service and performance standards Outline any changes (implemented or pending) which is impacting the activity and describe how Requires building consent for building, construction, alteration or demolition. Building certificate (code compliance) issued on completion of works for new or upgraded building. Building Warrant of Fitness required annually. Produce Project Information Memoranda (PIM s) which may include details of access restrictions, approvals, leases, plans, relevant records, notices, correspondence etc. Changes: None of Note Local regulations enacted under the Local Government Act (LGA) A range of provisions are possible to protect public safety, minimise nuisance etc. Changes: None Requires lifeline utilities to function at the fullest possible extent during and after an emergency and to have plans for such functioning (Business Continuity Plans - BCP s). Changes: None of Note Covers management requirements and protocols for road authorities and utility operators working in road corridors. Page 17

18 Legislation / Regulation / Planning Documents District Plan Government Policy Statement Health and Safety at Work Act 2015 Land Transport Management Amendment Act 2008 NZTA Manuals and Standards Local Government Act 1974 (retained sections) Local Government Act 2002 (LGA 2002) Long Term Plan Infrastructure Strategy Financial Strategy Public Works Act 1981 How it affects levels of service and performance standards Outline any changes (implemented or pending) which is impacting the activity and describe how Changes: None Sets rules for District Council activities. Changes: None of Note Provides guidance on Government s three year direction for land transport. Changes: None noted at the time of preparing the AMP Requires the provision of safe work places for all activities by local authority staff and contractors, and maintenance of an audit trail to demonstrate compliance. Changes: Under HSWA, a business or undertaking (PCBU) must look after the health and safety of its workers and any other workers it influences or directs. The business or undertaking is also responsible for the health and safety of other people at risk from its work including customers, visitors, or the general public. This is called the 'primary duty of care'. It also provides a legislative framework for the New Zealand Transportation Agency (NZTA), and also includes requirements for other RCAs (eg procurement procedures, financial assistance, etc.) and Regional Councils (eg Regional Land Transport Strategies). Changes: None of Note at the time of preparing the AMP For example, Economic Evaluation Manual, Planning, Programme and Funding Manual. Changes: New Category from June 2018 called low cost low risk which looks at replacing the minor improvement funding category and increase the level to $1M. Provides for the formation, management, stopping, closing and control of roads, limited access roads and provision for public safety. Changes: None of Note Provides the power of general competence for a local authority to undertake any business or activity given certain provisos. Provides for the setting of Bylaws. Details requirements for information provision in the LTP. Changes: None of Note Agreement between Community and Council as to the direction the public wishes their TA to take. Changes: None for Transport Activity Controls aspects of road and traffic operations, including Traffic Regulations, Bylaws and enforcement. Changes: None of Note Controls aspects of road and traffic operations, including Traffic Regulations, Bylaws and enforcement. Changes: None of Note Allows compulsory land acquisition. Page 18

19 Legislation / Regulation / Planning Documents Regional Land Transport Strategy Resource Management Act 1991 Standards produced by Standards Association of New Zealand (SANZ) Other Standards, Guidelines and Specifications Telecommunications Act 2001, Electricity Act 1992, Gas Act 1992, Railway Safety and Corridor Management Act 1996 Transport Act 1962 Roads and Footpaths Activity Management Plan How it affects levels of service and performance standards Outline any changes (implemented or pending) which is impacting the activity and describe how Changes: None Sets overarching framework for land transport in region. Changes: None of Note Establishes a planning framework covering land designation processes, requirements for resource consents for activities which affect the environment. Requires compliance with District Plan and Regional Plans. Enables financial contributions to be required from developers as a condition of resource consent for specified purposes. Changes: None of Note Range of standards covering required or recommended practice. For example, NZS 4404 Code of Practice for Urban Land Subdivision provides a range of roading standards. Changes: No Wide range, many of which are included in NZTA Standards and Guidelines. Examples included, NAASRA/Austroads guidelines and standards, Geometric Design Manual, Pavement Design, Manual of Traffic Signs and Markings etc. Changes: These are currently under review Provide utilities operators and other with powers to use road corridors. Changes: None of Note Controls aspects of road and traffic operations, including Traffic Regulations, Bylaws and enforcement. Changes: None of Note Table 5-4: Planning Framework - Relevant Regulations and Acts SDC Contribution to Government Policy Statement Requirements The Draft Government Policy Statement on Land Transport Funding for the next 10 years ( ) has three main focus areas that are the priorities for this funding policy: Economic Growth and Productivity: SDC s network contributes significantly in this area and to the nation as a whole. To place emphasis on this valuable contribution Council has developed economic tools (ENP and 80/20 Pareto Principle) to better manage its investments and expenditure to deliver improved and optimal contribution to the export receipts as well as directly benefit Southland s economy. Value for Money: SDC is actively reviewing the value for money expenditure for roading maintenance and renewals by: Clear direction in aligning all its contractor services, removing complexity and confusion. Striving to maintain service transparency and focus to deliver customer/ratepayer value. Page 19

20 Optimising community engagement and expectations of services by partnering with all key proven contractors (Service Alliances) to improve outcomes for less expenditure. Road Safety: Council is taking proactive means to make its network safer through: Better utilisation of all the network s eyes and ears to inform Council where transport and roading can provide direction and improve intervention to deliver improved and safer outcomes. Streamlining process and data collection to find safety flaws and areas where improvement is warranted. Extensive work and collaboration with Police and communities to review each serious crash or incident and provide the necessary and meaningful changes to prevent the recurrence - proactive safety intervention process and policy. Overall: Improve the benefit for Southland from adopting and encouraging the overall Government Policy Statement direction and adoption: Improve and lower cost infrastructure and services to enhance transport. Efficiency; lower cost; provide safe reliable access. Improve journey time reliability. Review and improve more efficient transport supply and value chains. Better use of existing life and wear and improving transport capacity. Improve access to markets; employment and focus on areas that contribute to economic growth. Active participation and strategic role in the reduction in deaths and serious injuries on the road network. Collaborate with Police and large network operators to enlist real change. Take a holistic view and approach to preventative maintenance to reduce adverse environmental effects from land transport as well as support the continued safety for network users. Actively take part in reviewing all serious accident and health safety issues and related transport interventions discovered. Ensure the methods and practice of the network will provide for the continued investment and reliability to better serve the network s optimal commercial export delivery as well as same for Southland s economic prosperity. Serving and providing access for all. Allowing a voice for ratepayers and Request for Service to be administered and heard. Manage the network s lifelines and event management to be responsive and safe. Access and provisioning of services and safety - parity and balance for all ratepayers and network users. Greater deal of innovation and service intervention will be required in this area - from the increased rainfall to GHG (Greenhouse Gas). Developing credible means to deal with the natural and anthropogenic sources of GHG and administering the transport carbon reform and emission reductions required. In summary, the Government Policy Statement raises the priority for road safety and value for money, plus: Providing a long term approach which maximises the potential synergies between regional planning and central government strategies. Determining the best balance of network management and expenditure that offers greater accessibility, improved flexibility to changing patterns in population growth and increasing commercial demand. Page 20

21 Establishing priority of roads that will improve journey time, reliability, and boost the growth potential of key economic areas and improve transport efficiency, road safety and clear access to markets, port and plant. Providing and improving a safety process which works towards the continued reduction in deaths and serious injuries that occur on the network. Ensuring that Southland s network is robust and effective and offers an adequate range of user options that will service and encourage satisfactory long term use Levels of Service, Performance Measures and Targets Levels of service (LOS), performance measures and targets form the performance framework for the activity detailing what the Council will provide, and to what level or standard: LOS are the outputs that are expected to be generated by the activity. They demonstrate the value being provided to the community or reflect how the public use or experience the service. A key objective of activity planning is to match the level of service provided with agreed expectations of customers and their willingness to pay for that level of service. Performance measures are quantifiable means for determining whether a LOS has been delivered. Performance targets are the desired levels of performance against the performance measures. The levels of service provide the basis for the management strategies and works programmes identified in the AMP. By clarifying and defining the levels of service for the activity (and associated assets), Council can then identify and cost future operations, maintenance, renewal and development works required of the activity (and associated assets) to deliver that service level. This requires converting user s needs, expectations and preferences into meaningful levels of service. An overview of the context for levels of service is discussed in more detail in AMP Part A (r/16/8/12686). Table 5-2 details the levels of service, performance measures and performance targets for the Roads and Footpaths activity. The italicised/grey measures are monitored for internal management/self-assessment purposes and as such are not reported publicly in the LTP. The table sets out the Council s current performance and the targets it aims to achieve within the next three years and by the end of the next 10 year period. Funding constraints, both local and national, have resulted in a generally flat-lined programme, and may even decrease due to a reduction in funding from NZTA ( funding still needs to be approved). Any reduction in funding will almost certainly require a reduction in the amount of work to be delivered, which will in turn result in a potential decline in levels of satisfaction over time. All possible avenues for minimising LOS decline are being examined in order to ensure that optimum value for money is achieved for the community. ROADS AND FOOTPATHS: What LoS we provide LoS 19: Roads are fit for purpose and provide for comfortable and efficient travel How we measure performance KPI 16.1: Average quality of ride on sealed local roads (MM 2: road condition) KPI 16.2: Percentage of sealed local road network resurfaced (MM 3: renewal program) Current Performance (16/17) 100% Smooth Travel Exposure 1 Future Performance Targets Yr 1 (18/19) Yr 2 (19/20) Yr 3 (20/21) Yr 4-10 (21-28) 97% 1,097,016 m 2 7.3% (equates to 970,000 m 2 per annum) Smooth Travel Exposure 97% 7.3% (equates to 970,000 m 2 per annum) Smooth Travel Exposure 1 97% 7.3% (equates to 970,000 m 2 per annum) Smooth Travel Exposure 1 95% 7.3% (equates to 970,000 m 2 per annum) Page 21

22 KPI 16.3: Percentage of customer service requests responded to within required timeframes 2 (MM 5: response to service requests) KPI 16.4: Percentage of gravel road tests where road roughness 3 meets acceptable standards KPI 17.1: Annual change in the number of fatalities and serious injury crashes (MM 1: road safety) KPI 18.1: Percentage of footpaths in reasonable or better condition 4 (MM 4: footpath condition) 80% 90% 90% 90% 90% 90.47% 85% 85% 85% 85% LoS 17: A safe roading network Reduction of 1 from prior year LoS 18: Footpaths are safe, well designed and well maintained Not measured 70% 70% 70% 70% 1 - Smooth travel exposure is an Index that determines the proportion of travel on sealed roads which are smoother than a defined threshold. 2 - Timeframes for responding to requests related to roads and footpaths vary from 24 hours to up 60 days depending on the urgency and risk associated with the request. Overall around 80% of the Council s requests for service have a target timeframe of 10 days or less. The Roads and Footpaths AMP includes more detail about the individual request types and timeframes (refer Appendix E: Request for Service Timeframes). 3 - Road roughness is measured by RoadRoid testing. 4 - Footpaths are assessed and given a condition rating that uses a visual rating scale of 1-5 where 5 is the highest (3 is reasonable). The percentage is calculated according to the length of the network that meets or exceeds the average of all condition ratings. Table 5-2: What we plan to do and out levels of service (LoS) Changes to the performance framework The levels of service and key performance indicators have been reviewed following a benefits mapping exercise to ensure Council s performance framework is focussed on measuring the activity benefits at the outcome and objective level. The specific details of the changes for the are detailed below: It is proposed to reduce the request for service KPI from 95% to 90%. Over the last 3 years this target has not been reached primarily due to a timing issues between physical works being completed and the jobs being closed out in the pathways system as jobs cannot be completed remotely. Adjustments to mandatory measure wording and targets to simplify reporting information. Grouping of LoS statements and removal of LoS categories 5.4. Plans Programmed to Meet the Level of Service Below details any projects, initiatives, programmes or expenditure that the Council is planning to undertake to ensure that the level of service is achieved and/or to address any gaps between the targets and current performance. Where there are capital works projects related to improving levels of service (LoS) or maintaining levels of service (Renewal R), these are identified in Section 7. As the asset ages the asset deteriorates and the level of maintenance and renewal requirements need to be increased to maintain the current levels of service across the full network. If funding does not match the maintenance and renewal requirements a gradual reduction in levels of service can be expected over time. A focus will be to address areas of highest value/use in order to provide an acceptable level of service to the majority of user rather than the same level of service to all users. Page 22

23 6. Managing Future Demand Roads and Footpaths Activity Management Plan This section describes how the demand for the Roads and Footpaths activity is likely to change over the period of the plan, the impact any changes are likely to have and whether the Council is planning to make any changes to the activity as a result Predicting Future Demand for the Service Demand Drivers The Council has prepared corporate wide assumptions/projections for growth drivers (population, land use, dwellings, tourism) which have been used as the basis for assessing future demand for the service. These projections are detailed in the Assumptions section of the LTP and AMP Part A (r/16/8/12686). Demand Driver Forestry Dairy conversions Tourism Population Table 6-1: Impact of Key Demand Drivers Impact on Future Demand Demand continuing at current rate. This is still causing issues particularly in winter when roads are more susceptible to damage. Will impact on number of heavy vehicles on road. Typically each conversion adds one HCV per day. Over the period of the there has been a notable increase in tourism particularly along key tourist routes. There has been a notable increase in trend towards flexible independent travel. Growth will be reasonably static in the foreseeable future with only minor increase expected. The corporate reference information for AMPs includes projections for SDC out to Detailed information may be obtained from that report, however in summary the major drivers for Transport are likely to be in the following areas: Overall population change: Southland District population is only expected to grow by about 7.32% during the period from the 2013 Census to This will have little impact on the network as it already has sufficient capacity for a volume increase. Growing older population: The proportion of the population aged 65 and over is expected to increase over the next 20 years. It is expected that these people will tend to keep their licence longer than is desirable, creating safety issues and the need for improvement requirements such as larger, clearer signs, realignment of intersections etc. Once residents are finally unable to continue driving they are faced with the issues of a limited public transport system, and ageing footpaths with ensuing trip hazards. Communities with a reducing population have difficulty in funding the improvements required to keep the elderly population safely mobile. While these issues are primarily transport related they have an impact on the wellbeing of the community by causing social disconnection which has serious effects on physical and emotional health. These issues should be addressed as part of an overall strategy for Southland District s transport needs. Increasing immigrant population and tourist road usage: The number of immigrants in Southland is increasing, primarily to meet growing labour needs of the dairy industry. The highest proportional increase has recently been seen among immigrants of Asian descent. It is also expected that visitor numbers will increase in Southland, reflecting a projected increase in both international and domestic tourism. This may have implications for safety where English is a second language and the road rules are different. Page 23

24 Dairy: Roads and Footpaths Activity Management Plan Dairying places its demands in two ways; by the original development of the property, which is an intensive, highly localised pressure on the roads, and the ongoing collection of the product, which results in a daily use of many local roads, many of which were never constructed to take the heavy weight or intensity now being imposed on them. Forestry Harvesting: Intensive forestry is the primary driver for unsealed road renewal work. The SDC Forestry AMP predicts that a significant increase in general forestry harvesting will commence from 2018 to 2028 and that Council therefore should start planning for the increase in heavy vehicle movements on its network and the associated upgrades that may be required. An investigation into the routes that will be affected is required. The increase in wood availability will come primarily from small-scale forest growers who established forests in the 1990s. The dispersed and fragmented nature of this forest resource will have an impact on transport infrastructure as timing for the harvest will rely on market conditions and the small-scale owner s management of their plantings. Growth in Heavy Traffic: Although Figure 6-1 shows a decline in heavy vehicle movement for 2015, this is likely due to the type of roads counted and when the roads are counted during the this year which may not mean a true representation of the network as a whole. In general over the last decade heavy traffic has increased, primarily due to growth in dairy but also continued forestry. Figure 6-1: Growth in Heavy Traffic Sheep or cattle farming tend to generate more sporadic heavy activity related to fertiliser delivery, haymaking and taking stock off property. Mining potential remains a relative unknown until development is better scoped and understood, and some of the desired projects reach fruition. Tour bus numbers: These are remain responsibly low on Southland District Councils network however there is a shift towards more independent travel which is having some impact, particularly on key tourist routes. Page 24

25 Demand Forecasts Roads and Footpaths Activity Management Plan Demand can be measured in terms of the volume and type of vehicle kilometres travelled. Overall, based on the demand drivers described above we can expect: Overall vehicle km travelled has remained reasonably steady over recent years and this trend is expected to continue over the 10 Year Plan period. Heavy vehicle kilometres travelled (VKT) has increase over recent years and is expected to continue over the 10 Year Plan period but at a slower rate due to the introduction of 50Max vehicles and increases allowed by the changes to the Vehicle Dimensions and Mass Rule Implications of Growth/Demand Increased traffic volumes, particularly heavy traffic volumes, can be expected to increase the rate of deterioration of the road network. Further work on network performance monitoring will help provide evidence for ongoing works programming and future funding requirements Demand Management Strategies Given that changing demand is primarily driven by changing land use, this is a potential key means of managing future demand. However, the predominantly low population and rural nature of Southland has meant that to date there has been very little requirement for land use control. There are one or two exceptions to this, primarily Te Anau and Manapouri, but also potentially Winton. Consideration of demand management for these towns primarily relates to ensuring development is appropriate to the function rather than limiting traffic growth per se. However, there is still a need to ensure that land use planning continues to consider impacts on road networks as part of the overall scheme Asset Management Strategies to Manage Demand At this stage there are no intentions to significantly increase rehabilitation work beyond that forecast to manage effects of increased traffic volumes (and particularly heavy traffic volumes). Some strategies that SDC is utilising to manage demand include: The continued used of the Pareto 80/20 principle alongside ENP to provide a methodology to help identify key roads to focus and maximise investment. Also, if some roads are maintained at a higher quality than others, this may encourage vehicles, in particular heavy vehicles, to use those and by default prolong the life of the remaining roads. Liaising more closely with industry to plan ahead to minimise damage by encouraging traffic to make more use of major routes and minimise travel on more less robustly constructed roads. While there has been regular and structured conversations with Fonterra, liaison with other major players occurs on a more Ad-hoc basis. The opportunity exists for a more structured and regular conversation with other players such as HWR. Applying short to medium term treatments on lower volume sealed roads and roads of particular risk such as coastal roads. Optimise the roading asset by restricting heavy vehicle though movement where multi option exists particularly on roads lower volumes roads that require significant investment. This approach should allow the network to be managed with cost savings and a minimal LOS change short term. However, long term, based on known forecasting this approach will lead to accelerated decline in network condition and loss of service Planned Programmes to Meet Growth/ Demand There are no instances of new road development planned by Council to cater for increased industry/farming needs or township growth. Capital investment in Southlands roads are primarily related Page 25

26 to subdivision growth. These are funded by the entity responsible for the subdivision, with no call on ratepayer contribution until the subdivision is vested in Council 6.6. Sustainability The Local Government Act 2002 requires local authorities to take a sustainable development approach while conducting its business, taking into account the current and future needs of communities for goodquality local infrastructure, and the efficient and effective delivery of services. At the Roads and Footpaths activity level, a sustainable development approach is demonstrated by the following: taking climate change into consideration in modelling and design standards considering reducing gravel inputs by stabilising existing pavements when roads require rehabilitation. where feasible use recycled materials as part of the construction process. E.g. recycled glass. 7. District-wide Asset Management Strategies Lifecycle asset management means considering all asset management options and strategies to deliver the agreed level of service and to inform decision-making for asset renewal, replacement, upgrade and disposal. Effective lifecycle planning is about making the right investment at the right time to ensure that the asset delivers the desired level of service over its full-expected life, at the minimum total cost. This section explains the approach for: Providing new or upgraded assets to improve service levels, providing for growth and demand Operating and maintaining assets Renewing or replacing assets Disposing of assets at the end of their useful life. All asset data has been extracted/reported as at 31 June Overview of the Transportation Assets Road Network Overview With approximately 2,000 kilometres of sealed and 3,000 of unsealed roads, SDC has New Zealand s largest rural roading network. It covers a geographic area of around 3,040 hectares, but has low traffic volume and population. In order to manage such a large network, it is divided into three main areas. These are based on the old council ward structure. North West Area (Waimea) Central Area (Central) South East Area (Foveaux) (Te Anau, Five Rivers, Waikaia and Tuatapere Wards) (Wallace, Winton, Riverton and Wallacetown Wards) (Toetoes, Waihopai, Te Tipua and Stewart Island Wards) The North West area of the District, being further inland, tends to be higher, drier and more prone to loss of fines from its unsealed roads in summer when the ground is at its driest. It is also more likely to suffer from frost heave, and to require significant snow clearing in winter. Page 26

27 Much of the South East area is coastal, wetter and generally low-lying, hence the pavement is built on much less stable ground which is far more prone to winter issues such as mud and water damage to pavement, and to coastal erosion. The Central area is climatically milder than its neighbour s and as such has been favored for dairying. Its roads are showing more signs of damage from increased heavy traffic, although more serious isolated damage occurs in the southern area in logging areas Road Hierarchy NZTA have introduced a national classification system and require road controlling authorities across New Zealand to implement this classification. SDC has successfully completed the reviewing and classification of the network inline with One Network Road Classification (ONRC) as part of this AMP. Figure 7-1 and Figure 7-2 shows the respective lengths of network by the ONRC hierarchy and contract area. The traditional method of determining road hierarchy is by traffic volume and/or function however SDC has taken this further with a combined view of the ONRC and ENP which considers a measure of the economic export value of a road. An economic index which enables Council to decide where a road sits against optimum is derived from economic values and road investment level, and therefore what potential action may be needed in the overall strategy of optimising investment in achievement of LOS. The traditional method of measuring existing AADT gives a general indication of future growth. However, the ENP incorporates growth projections from industries with work programmes planned several years ahead. This provides much more certainty as to where the traffic will travel, where volumes are likely to increase, and what is a likely fair distribution of expenditure. Figure 7-1: SDC ONRC Roading Hierarchy - Length (km) Page 27

28 Figure 7-2: Existing Roading Hierarchy - by Vehicle Kilometres Travelled (Note: AADT - Annual Average Daily Traffic) The ENP assists the Council in becoming predictive in its work programme as opposed to reactive. However, it is not infallible and still requires engineering judgment and consideration of the entire needs of the community, not just the economic Asset Value and Depreciation Depreciation is an accounting concept to recognise the consumption or loss of economic benefits embodied in items of property, eg, roads, bridges etc. Depreciation spreads the cost of items such as these over their useful lives as an operating expense. The 2017 valuation results are shown in the following table. Some key assumptions include: Formation is not depreciated - assumption that regular maintenance will maintain service indefinitely. Unsealed pavement structure includes gravel subbase layer considered permanent (not depreciated) and gravel basecourse layer over the top which is depreciated. However the assumption that the gravel sub-base layer is permanent is not borne out by what is currently happening on the network, ie: the need to carry out rehabilitation of gravel roads with insufficient strength to carry current loadings and the difference between current application rates of maintenance metal (running course) and the theoretical amounts required. The full methodology and assumptions are detailed in the MWH report 2017 Roading Infrastructure Asset Valuation. Page 28

29 Asset Description Quantity Units Replacement Cost Depreciated Annual Replacement Cost Depreciation Land 9,903 Ha $75,693,086 $75,693,086 $0 Formation 44,260,096 m2 $659,356,696 $659,356,696 $0 Sealed Pavement Surface Sealed Pavement Structure Unsealed Pavement Structure **Excludes Stock Underpasses which are the responsibility of individual farmers Table 7-1: SDC Asset Valuation (July 2017) Service Delivery 12,686,149 m2 $59,503,938 $29,292,400 $4,529,092 1,962,989 m $385,455,904 $255,207,895 $3,799,975 2,972,730 m $50,835,700 $45,344,753 $2,351,321 Drainage 258,752 m $73,620,804 $39,343,919 $992,326 Surface Water Channels 181,895 m $18,666,054 $10,949,537 $248,953 Footpaths 373,019 m2 $32,181,401 $17,661,810 $567,222 Traffic Facilities Various N/A $12,859,638 $6,646,192 $774,856 Retaining walls 130 No $9,379,881 $7,208,573 $119,081 Street Lights 2,464 No $3,727,150 $2,156,983 $118,743 Bridges and Culverts 851 No $212,996,556 $118,126,442 $2,215,231 Cycle Trail Various N/A $7,966,858 $7,613,086 $142,976 Operations and Maintenance is the process of maximising the economic life of an asset by various interventions, both proactive and reactive. Well planned maintenance, coupled with experience and technical expertise, allows Council to maximise its asset life before requiring a renewal of the asset. Renewals are carried out once an asset s life is unable to be economically prolonged further by maintenance means. A renewal of a road may mean resealing, to provide a new waterproof surface, or rehabilitation, if it is found the base structure below the pavement surface is failing. New capital expenditure can occur where items such as signs and markings are replaced, or where a road is widened past its current width. Occasionally there may be new infrastructure added to the District s asset, through subdivision expansion, but this is currently occurring only very slowly so primary capital expenditure is for assets that are unable to be adequately maintained or renewed. Other activities related to providing a network lie outside physical works provision. They includes studies and strategies, which assist with determining high level direction for the activity; network and asset management, with responsibility for day to day management and monitoring of the network; and community safety advocacy through the Road User Safety Advisor, who is funded jointly with Gore District and Invercargill City. The Lower Hollyford Road, which is designated Special Purpose, is funded through the Southland District Roading Programme for administrative purposes. However, it is 100% funded by NZTA and its work programme is aligned with that of the NZTA Highways Network and Operations department. Page 29

30 NZTA have signalled the ongoing funding of the Lower Hollyford Road as a special purpose road is likely to end in Over this period the risks associated with this road will need to be assessed and how is best to carry this risk (council or NZTA) will need to be determined over the coming years. The actual maintenance provider for this road is likely to remain the same due to the geographical location of the road. The current maintenance, construction and professional services contracts are summarised in Table 7-2. Service Delivery approaches for the Roads and Footpaths activity are summarised in Table 7-2. All of SDC s maintenance contracts operate under an Alliance model, a form of collaborative contract. These contracts operate with a Governance Board and an operational team, each consisting of representatives from both the contractor and the client (SDC), with the Governance Board being represented by management and the operational team by the Community Engineers. There is an agreed set of key performance indicators, some of which are reflected in the LOS in this document, which are measured and reported against monthly. Contract issues are initially discussed through the operational team, and if they cannot be resolved at this level, are escalated to the Governance Board. The underlying principle of the Alliance is mutual benefit rather than adversarial. Key Reporting Areas (KRAs) and Key Performance Indicators (KPIs) have been aligned for all three maintenance contracts. This will allow better comparison of the performance between contractors. The differing geographic and climatic conditions will also have an influence on KRAs. Roles AM, Policy and Advocacy Professional Services Programme development and Higher Level Asset Management Professional Services - Routine Maintenance and Network Controls Asset Maintenance: Carriageway, Road Verges, Footpaths, Kerb and Channel, Bridges, Marker Posts, Vegetation Control (noxious plants), Drainage Streetlighting Pavement Rehabilitation Reseals Responsibilities in Each Area SDC - Strategic Transport Manager. OPUS, 1 October September 2020 with a potential for two, 1 year rollovers In-house Business Unit of SDC Community Engineers. Services provided to Asset Manager through an annual service agreement. North Western Area (Te Anau, Five Rivers, Waikaia and Tuatapere Wards). SouthRoads (contract term July 2017-Jun 2024) Central: (Wallace, Winton, Riverton and Wallacetown Wards). SouthRoads (contract term July 2017-Jun 2024) South Eastern Area (Toetoes, Waihopai, Te Tipua and Stewart Island Wards). Foveaux Alliance between SDC and Fulton Hogan (contract term July Jun 2024) District maintenance contract: Otago Power Services This is likely to become a service level type agreement once the district lights are converted to LED. Competitively tendered in packages, each year, dependant on annual programme. Two, three year reseal contracts have been awarded to Downer. This covers the 2017/18 19/20 resurfacing seasons. Reseal of all of Stewart Island is a separate contract. Page 30

31 Roles Signs Maintenance Pavement Marking (long term performance based contracts) Responsibilities in Each Area Currently this services is delivered via the Alliance Maintenance Contracts. Eastern Area Contract (east of State Highway 6) Western Area Contract (west of State Highway 6) To be tendered as two contracts to align with reseal contracts Work Outside Present Contracts Fulton Hogan (contract expires 30 September 2017, provision for two, one year rollovers. Table 7-2: Schedule of major roading related contracts in SDC Road Safety Downer (contract expires 30 September 2017, provision for two, one year rollovers. Negotiated or tendered on a case-by-case basis according to scope, location, contractor availability and complexity, and in accordance with Council procurement policy and relevant NZTA Procurement Manual, e.g. Maintenance of Hollyford Road which is a road remote from the rest of the network. Southland District showed a slight decrease on average over the last five years in the number of fatal and serious injury crashes on its network, as illustrated below The above graph shows the break down between Fatal and Serious injury crashes for the last 10 years. Fatal crashes have varied significantly between zero and five over the last 10 years; so no trend can be seen. The 2016/17 financial year was mid spectrum with 3 fatal crashes for the year however overall a downwards trend can be seen in Southland Districts serious injury crashes. Page 31

32 Figure 7-3: Crashes by Road Hierarchy The figure above shows a breakdown by road hierarchy. With the exception of the low volume roads all other categories of road have shown a declining trend. Safety is a priority for the Council as part of the management of its roads. More detail on this is supplied in Section 5 and Appendix C, which provides more in-depth analysis of the key issues to be addressed and performance in these areas over the last five years Environmental Maintenance, Resilience and Emergency Reinstatement Activity Description Environmental maintenance includes maintenance activities which contribute to the asset s usability without physically altering it, for example snow clearance, vegetation control and edgebreak, and control of noxious weeds as approved by NZTA (primarily gorse, broom and ragwort). Resilience Improvements (Preventative) and emergency reinstatement are both activities which react to unpredictable events such as land slips, floods etc. Resilience Improvements is carried out in the early stages of an event to prevent greater damage occurring and to minimise the threat of road closure arising, whereas emergency reinstatement is only used when a natural event severely damages the infrastructure before any resilience works are able to be carried out. Both categories react to unforeseen events, and neither can be budgeted for beforehand unless a contingency is allowed for in local share or where the degradation is gradual and repair is able to be planned for. NZTA review individual applications for funding in these areas as applied for and funding is approved on a case by case basis as necessary. They can represent large budget increases; in 2013/2014 around $1M was approved for slip protection/reinstatement work across the district. Activity Management Strategy Vegetation control can be either a scheduled rate with a set number of mowing and sprays per year, or the height of cut etc specified. An outcomes based contract would indicate the needs such as safety, edge maintenance etc and allow the contractor the best means of achieving those outcomes. The current Alliance contracts utilise the latter methodology. Issues The unpredictability and scale of natural events particularly the degree of snow and ice management required makes it difficult to manage and budget for this activity, especially in the areas of the district that experience more extremes such as the North East Area. This has highlighted the problems with remaining in budget in areas where there may be a large variation in the work required. Significant events may generate an extra request for funding from NZTA, however, these still require matching local share, therefore the budget for this item has been based on the average spent over the past years. Page 32

33 The alternatives are to make cuts in other parts of the budget, or to carry out fewer activities such as snow clearance and expect residents in more remote areas to cope until weather improves. Forecast Expenditure The approach taken is to maintenance the existing budget (average of the previous two years and the 2017/18 annual plan). There is always a risk that a major event occurs and the allocated budget is insufficient. Depending on the scale of such an event a case could potentially be made to NZTA for additional funding. If funding is not approved funding priorities may need to be adjusted and reprioritised. Figure 7-4: Environmental Maintenance Trend and Forecast Expenditure (NZTA Category 121) Page 33

34 7.2. Sealed Roads Roads and Footpaths Activity Management Plan Asset Description Southland s road network includes: Just under 2,000 kilometres of sealed roads, approximately 10% urban and 90% rural. Varying road width from 24 metres at widest to three metres at narrowest. Predominantly chip sealed surfacing, with asphalt surfacing restricted to urban areas laid by developers through new subdivisions, to areas of high wear and tear such as areas susceptible to damage by activities such as turning trucks. The aim is to provide a safe network with a consistent speed environment but this is constrained by the topography. Road Hierarchy Southland District Council has adopted the New Zealand Transport Agency One Network Road Classification (ONRC) alongside its own Economic Network Plan. The ONRC aims to provide a nationally consistent framework and provide a common language when comparing hierarchies across road controlling authorities. Benefits of a national classification are that over time road user can increasingly expect to have similar experiences across the country on roads in the same category. This will aid journey safety and consistency. It also supports more consistent asset management across the country. The ONRC has three components: Functional Classification Customer Levels of Services Performance measure and Targets The functional framework is shown in Table 4.6. The table below is indicative of how the ONRC compares with the District Plan Hierarchy. ONRC Hierarchy (AADT rural)* District Plan Hierarchy (AADT) Primary Collector (>1000) Arterial (>500) Secondary Collector (>200) Collector ( ) Access (<200) Low Volume Access (<50) Local (<100) Table 7-3: ONRC compared with Road Groups and District Plan Hierarchy *Note: Currently SDC has no roads classified above the ONRC Primary classification Page 34

35 Table 7-4: One Network Road Classification Functional Criteria and Thresholds Page 35

36 Table 7-5: One Network Road Classification Functional Customer Levels of Service (provisional) Page 36

37 Age Profile Roads and Footpaths Activity Management Plan The following figures show the age of the most recent layer of sealed pavement and the pavements within the network. It can be seen that: A significant amount of seal extension work was carried out between 1953 and 1980 followed by much more moderate levels over subsequent decades. To date only a small proportion of the original seal extensions have been rehabilitated and a large quantum of rehabilitation work is predicted over the next 30 years, far more than currently being carried out or allowed for in this plan (refer renewals section). Much of the network now has three or more coats of seal. As seal coats increase the seal becomes less stable and more inclined to bleed or flush. While water cutting can help prolong the life of the pavement, in time the only long term solution is to either rehabilitate or return to a gravel surface. As networks have aged a certain amount of rehabilitation has been carried out, however this quantity has declined in the last ten years. Figure 7-5: Sealed Pavement Surface Age Profile - Seal Coat Age Page 37

38 Figure 7-6: Sealed Pavement Surface Seal Layer - Quantity of Seal by seal layers Figure 7-7: Sealed Pavement Age Profile Page 38

39 Asset Condition Roads and Footpaths Activity Management Plan The failure modes of bituminous pavements include shallow shear failure, roughness, rutting, cracking, stripping, ravelling, loss of surface texture and skid resistance, flushing, edge break and potholes. Most of these can now be detected by high speed data collection, in particular roughness, rutting, loss of surface texture, skid resistance and flushing. Some of these are described in more detail as follows. Shallow shear: Pavement load causes the aggregates to rotate to the side with the least lateral support causing seal cracking, water entry weakening the basecourse and rough ride. Shallow shear usually occurs when seal over a rutted area does not have the elasticity to cover the expanded area. Roughness: A measure of aspects of the longitudinal profile of a pavement and indicates ride quality and pavement structural deterioration 2. The distribution of roughness over the sealed network is shown Table 4-8 and Figure 4-6 and 4-7. The results indicate that the urban areas are generally rougher due to the services that are placed on and under the urban roads. Rutting (or troughs or channels of instability): Longitudinal wheel path depressions usually accompanied by smaller longitudinal ridges on either side of the rut (Table 4-7 shows the results for SDC). Rutting is a good indicator of the road s strength and increases in rutting directly correlate to a lower pavement life. It is usually caused by insufficient pavement depth or weak basecourse. Macro Texture: The Mean Profile Depth (MPD) represents the height of stone aggregates above the bitumen binder and is an overall indicator of seal condition. With good macrotexture a channel is formed between stone chips that allows water to drain out and prevent inundation of the road surface during rain. MPD of <0.5 mm is generally indicative of flushing. Microtexture (roughness of the stone surface): Used as a measure of skid resistance. Microtexture measurements have been made for the sealed network through a SCRIM survey in February/March NZ Mean Summer SCRIM Coefficient (NZMSSC) is used as the indicator. Sections of roads leading to controlled intersections need the highest level of skid resistance and are classified as Site Category 1 while a mid block section of a divided carriageway is the least demanding (Site Category 4). Skid resistance measurements from the most recent survey indicate that around 11.9% of the surveyed roads were not meeting the Investigatory Level and 1.42% were not meeting the Target Level (the stage at which repairs should be carried out to provide a consistent LOS). It should be noted that the 2013 survey was only carried out on roads with an AADT over 200 (around 1131 centreline kilometres). The Pavement Integrity Index (PII) and Surface Condition Index (SCI): Indicate the overall condition of a road. They are based on a range of recorded faults which are combined numerically to produce an index value. Generally the larger the index the worse the condition is. One problem with these is that if the condition does not exceed a threshold (which isn t usually exceeded until the road is very close to needing renewal) the index remains very small. The low averages over the network tend to hide the fact that the network still has a significant length of roading that is in need of renewal work. Figure 4.8 shows the PII scores for the worst 20% of the SDC sealed roading network, which indicates that the length of road in the poor and very poor categories has remained reasonably stable over the past 12 years and the level of renewal is keeping up with the level of deterioration. Figure 4.9 covers the SCI scores based on surveys over the last 20 years. Again, there is a reasonable level of consistency in the lengths of poor and very poor lengths of road over the past 12 years, indicating the reseal programme is keeping on top of the needs. 2 Roughness is not seen as a particularly useful indicator in Southland as the pavement failure is often very rapid and Council has until recently avoided the practice of waiting until excessive expenditure has been incurred on patching a road before it is justified for rehabilitation. This keeps long term maintenance costs down and leaves the roads smoother. However, financial constraints mean that the time before a pavement is rehabilitated will need to be extended and roughness is expected to increase. While this will provide short term savings if this practice is continued over any length of time the ongoing maintenance costs are likely to exceed rehabilitation costs. Page 39

40 Description Year Low Volume Access Secondary Collector Average NAASRA Primary Collector All Hierarchies Urban Rural Urban Rural Urban Rural Urban Rural Urban & Rural Table 7-6: Summary of NAASRA (National Association of Australian State Road Authorities) Roughness High Speed Data Rutting Sealed Road Network Length (km) Sealed Left Lane Length surveyed (lane km) Sealed Right Lane Length surveyed (lane km) Wheel Path Length surveyed (wheel path km) Wheel Path Length (wheel path km) with rut depth >= 20mm % of Wheel Path Length with rut depth >= 20mm Table 7-7: Rutting Summary % 0.39% 0.53% 0.20% 0.44% 0.55% Notes: For surveys 2005, 2008, 2011, 2013, 2015 and 2017 lane length does not include Stewart Island or short roads, where it is not possible to survey. For the 2013 survey, only the 200 AADT plus roads were surveyed. Wheel path length is the total length of individual wheel paths - normally there are two wheel paths for every lane. Page 40

41 Figure 7-8: Pavement Integrity Index Scores for the worst 20% of the Network 2008/09 data should be ignored as there were issues with the data collection. Figure 7-9: Surface Condition Index Scores for the worst 20% of the Network 2008/09 data should be ignored as there were issues with the data collection. Page 41

42 Asset Performance Roads and Footpaths Activity Management Plan Performance of the carriageway assets has been assessed in terms of customer satisfaction, capacity (as measured by width, pavement strength and clear zones) and safety. Satisfaction The results of the Customer Surveys in recent years was presented and analysed in Section 2.3. Road Widths The following table below shows the minimum design standards set for each road group. (These are the standards to which all new and upgraded rural roads are to be constructed and the level of compliance that has been achieved as at mid 2017 From the table below it can be seen that there is a significant portion of the network which does not meet the preferred design standard. This is not intended to significantly change over the near to medium term. While road widening is more forgiving of traffic deviation on road and lessens the likelihood of edgebreak, it also may encourage faster travel. Modern, wider farm vehicles are particularly contributing to edge-break. To achieve the full target seal width standards approximately 1,098 km of sealed rural road would require widening. It is proposed that a very modest proactive programme will be introduced to actively achieve target widths considering road hierarchy and degree of compliance currently being achieved. Other measures are likely to be introduced to aid in road user safety to combat against potential risk associated with wider roads. Over time the level of compliance will gradually increase through a combination of widening in association with pavement rehabilitation (where this is justified) and stand alone seal widening where there is a particularly dangerous or out of context section of road, or a section becomes totally uneconomic to maintain at its current width and adjustment of standards. ONRC Hierarchy Rural Seal Width (m) Design Target % Compliance with Target Set Width Unsealed (Grassed) Shoulder Width (m) Bridge Width Min (m) Primary Collector - Rural % Secondary Collector - Rural % /4.2 Access - Rural % /4.2 Low Volume - Rural % Table 7-8: Current Design Minimum Standards *For most road groups bridges would normally be two lane. This is assessed on a case basis depending on traffic use, road alignment and local issues. As discussed in Section 4.1.3, the road hierarchy has been reclassified in line with the ONRC. The proposed construction standards have been reviewed in conjunction with RAMM data to ensure the groupings and associated standards are appropriate for SDC s network. Table 4.10 provides guidance as to preferred targets, however there may still be circumstances when these are considered unachievable and need to be modified. Clear Zones Clear zones (the area beyond the edge of the traffic lane which reduces the risk of harm to vehicle occupants if they run-off the road) increase road costs and increase the perception of safety which can lead to increased speed. The increased safety perception can be mitigated by allowing grass or low growing vegetation to grow up to the edge of the sealed carriageway, though this can create a lip forming over time which could cause water to pond and the edge of the road to deteriorate. Page 42

43 The existing standards for clear zones range from m and are higher for roads with higher speed limits, higher traffic volumes lower cut slopes and steeper fill slopes. However there are many circumstances where this is not achievable, for example where fencing is in place. The most effective clear zone practice is to ensure trees are removed from the roadsides, in particular on bends and the worst power poles are relocated or protected where the risk they pose is very high. Strength Currently all roads in the SDC network are designated as Class 1 roads meaning from a strength point of view there is no restriction on the level of legal class 1 load they can carry. Each road has different characteristics in terms of when and how it was built, what conditions exist under the road and the level of repeated heavy traffic that uses the road. These factors all impact on how long the road can continue to carry heavy traffic prior to needing rehabilitation. In an effort to increase the efficiency of transporting goods, the government through NZTA and the Heavy Transport Industry are promoting the use of High Productivity Motor Vehicles (HPMV s) on specific routes and recently the introduction of 50 Maximum (50 Max). These HPMV s can be 50 to 60 Ton or in some cases higher and in the case of 50 Max up to a maximum of 50T but over 9 axels. More recently changes to the Vehicle Dimensions and Mass Rule (2016) allow for increase general load capacity from 44T up to 46T depending on vehicle length and axle configuration. Safety NZTA stores crash data on behalf of RCAs in the Crash Analysis system (CAS). CAS is an integrated computer system that provides tools to collect, map, query and report on road crash and related data. In addition NZTA produce a Communities at Risk Register. This is a ranking based upon personal risk using fatal and serious crash data from CAS. Personal risk is a count of deaths and serious injuries (DSI) divided by distance or time travelled. This is used to highlight areas where a crash is more likely to occur based on use of the road network. Because personal risk is not affected by population size, personal risk is one way of making crash measures comparable between local authorities. Collective risk are the average annual DSI counts based on the latest five year data ( ). This is used to show where the biggest difference can be made in terms of absolute numbers of death and serious injuries. Collective risk is affected by population. High Concern is assigned to communities with personal risk profiles greater than one standard deviation from the mean (1 STDEV). Medium Concern is assigned to communities with personal risk profiles greater than half a standard deviation from the mean and below one standard deviation (0.5 STDEV). The graph below plots both personal and collective risk for the three Southland Territorial authorities (Southland, Invercargill and Gore) along with Southland Regional data. The national mean data for personal risk is plotted to see how Southland compares. Page 43

44 Out of the fourteen strategic areas of concern from Safer Journeys Southland District has one High Concern area (Young Drivers) within the Transport Agency s High Strategic priorities. Southland District also has one Medium Concern area (Restraints) within the Transport Agency s Emerging Strategic Priorities. These are graphed below. Southland District has been identified as High Concern in relation to Young Drivers with personal risk profile greater than one standard deviation from the national mean. Page 44

45 Southland District has been identified as Medium Concern in relation to Restraints with personal risk profile greater than half a standard deviation from the national mean. The information is used to assist in the development of engineering, education programmes. Safety results were presented and discussed in Section This highlights a need to ensure correct and adequate delineation at these sites, and to continue with maintaining/improving sealed road friction. Page 45

46 Proposed Road Standards and Levels of Service ONRC AADT Threshold Form and Features. Carriageway width. (Drivable surface.) Long Term Surface Roads and Footpaths Activity Management Plan Sealed Rural Roads Unsealed Rural Roads Urban Roads (assume all truly urban roads are sealed)** Primary Collector Secondary Collector Access Low Volume Access Secondary Collector Access Low Volume Access Arterial and Primary Collector Secondary Collector 1, below below 50 3,000+ 1,000-2, below m, 3.5 m marked lanes 7.0 m*, 3.0 m marked lanes. Sealed Sealed Sealed/ Gravel Access Low Volume Access 6.5*m. 6.0 m m m m m 8-14 m 7-11 m 6-8 m Gravel Sealed Gravel Gravel Sealed Sealed Sealed Sealed/ Gravel Shoulder Width 2.0 m 1.5 m 1.5 m 1.5 m incl incl incl incl incl incl incl Delineation Full EMPs, edge and centre lines and RRPMs Full EMPs, edge and centre lines and some RRPMs EMPs on out of context curves. Full centreline and isolated edgelines on critical curves. Only isolated pavement markings and EMPs Full EMP's Isolated EMP Case by Case for EMP Generally Centrelines Generally Centrelines Bridge Width 8.0 m 8.0/4.2 m 8.0/4.2 m 4.2 m 8.0/4.2 m 8.0/4.2 m 4.2 m 8.0 m 8.0 m 8.0/4.2 m 4.2 m Table 7-9: Road Hierarchy and Road Standards * For higher use roads within a category, consider growth and future likely classification and LOS before fixing a seal width at time of rehab ** For additional urban road features refer to the SDC subdivision and land development bylaw 2012 Case by Case Case by Case Page 46

47 Approach to Operations and Maintenance Operating and Maintenance Strategy The main Operating and Maintenance activities for sealed roads are: Visual road inspections (monthly sample); Condition assessments; Roads and Footpaths Activity Management Plan Pavement Maintenance (including structural maintenance to repair deformed/cracked pavements, seal repairs to repair surface defects, pothole repair, and filling ruts); Drainage repairs; Debris removal, including sweeping; Shoulder maintenance; Gritting (on specified roads following weather frost warnings - roads have been selected by local knowledge of regular areas of ice and shading trees; Vegetation control. As required to maintain grass at a maximum height and deal with noxious plants. In general this equates to two-three cuts/year for edge mowing and a similar number of sprays for noxious plants, and as identified through inspections); Snow clearing; and Edge break repair. A partial monthly visual inspection of the network is carried out by the contractor to assess condition and maintenance needs. Between inspections contractors respond to Requests for Service. These have an agreed range of response times depending on the nature and location of the request. An urgent safety issue has a far shorter response time, whereas amenity issues may be dealt with within the normal cyclic maintenance period. Operational maintenance also encompasses the greater road environment with signage, markings, vegetation, delineation and other safety related tasks. It also covers the AM staff involvement in looking after a network. These aspects are covered more fully elsewhere in this plan. Operations and Maintenance Trends and Forecasts Operating costs/unit have increased over the last five years due to the effects of inflation and escalating bitumen prices. However, Council expenditure has been restricted by a NZTA funding cap which has resulted in contractors being required to stay within budget, even when this is capped. Forecasts are based on the assumption that Southland s requests for maintenance funding will be matched with subsidy from NZTA. Sealed road maintenance expenditure for the next three year AMP has been set at a reasonable flat-line budget, based on the 2015/2018 Plan. This is partly in line with expectations from NZTA and partly to deal with Council s own financial constraints. At the end of the first three years there will be an increase in expenditure by inflation as predicted by BERL for the next seven years. This funding pattern is planned to assist with reducing roading debt incurred by underfunding and preparing the Council financially for the predicted increased level of renewal expected to be needed starting in around 10 years. Two assumptions likely to change which will affect the accuracy of the predictions include the assumed rate of inflation, and NZTA funding. Maintaining LOS with flat line or reduced funding will be governed by pursuing improved work practices or lower contract costs. If these cannot be achieved, either more funding must be found or a lower LOS accepted. Page 47

48 Figure 7-10: Sealed Roads Opex Trends and Forecasts (NZTA Cat 111) While all attempts are made to manage budgets and achieve proposed LOS, any number of factors may have an influence on the ability to control this. These include: Contract rates and inflation. $NZ v $US + bitumen/oil price. Long term Funding Assistance Rate from NZTA. Rate of degradation of network, average seal lives achieved. Increase in Heavy Commercial Vehicles. Effects of HPMVs / 50 Max. Ratepayer LOS acceptance and political acceptance. Ability to make savings/cuts to affect cost increase. ENP to allow redistribution of funding/los to achieve more efficient/effective outcomes. Restraints in renewal funding will not lead to an immediate blowout in maintenance requirements but will likely lead to longer term issues. Land use change. Environmental consideration Approach to Renewals Renewals are works to upgrade, refurbish or replace existing facilities with facilities of equivalent capacity or performance capacity." For sealed roads, there are two main types of activity - re-sealing and pavement rehabilitation. Renewals Strategy Renewal projects are identified through a number of factors. Drive over inspections by Community Engineers, maintenance contractors and consultants. The results of the condition rating surveys. Analysis of a collection of data held in the RAMM system. Page 48

49 An analysis of the ratepayer service requests that are received throughout the year. Contractor feedback and inspections. Trends in annual maintenance costs. Renewals work is prioritised on the following basis: Roads and Footpaths Activity Management Plan The work that produces the greatest long term projected savings in maintenance costs (in $ per km) receives the highest priority. Minimising whole life costs while preserving the asset is the overarching philosophy. It is further prioritised by road hierarchy and ENP to ensure that funds are being spent on the most critical road sections, and that other options such as patching, sealing and limiting heavy traffic are considered in order to produce a better long term value for SDC. Minor improvement work is carried out alongside pavement rehabilitation work when asset managers are sure it can provide worthwhile safety benefits or necessary improvements for road users and it is economical to do the work at the same time as a renewals project. Resealing work receives highest priority as a maintenance strategy because of the benefits of maintaining a safe waterproof surface to provide adequate skid resistance and reduce water getting into the pavement leading to failure. The seals with the greatest risk of failure are completed first while maintaining a balance between the risks of leaving the existing seal coat too long and not attaining maximum possible economic life out of each seal coat. Falling weight deflectometer results assist in weighting the projects risk. While renewal work is generally based on maintaining the existing surface by a variety of means, consideration needs to be given to alternative treatments for some low volume low risk roads. In the first instance low volume, low gradient roads with little residual life are the best candidates for this treatment, however each road will be addressed on its merits. Renewal Past Trends Rehabilitation works have been carried out at an average level of around 5-10 km per year for the last several years with some variations for specific events. The level of reseal work has varied between 700,000 and 1,250,000 m 2 depending on needs, funding and costs at the time. The cost of resealing can vary considerably due to the volatile cost of bitumen along with the final seal treatment applied. Figure 7-12 portrays the effects of varying theoretical and actual achieved seal ages over the last two decades. This shows a steady reduction in the expected remaining seal life and the corresponding reduction in the average age up until 2004/2005. From that point this has essentially been stabilised by the use of longer life seals and greater quantities of reseals. This produced a healthier network where the average age was equal to half the average expected life in 07/08. Since 07/08 the network has been affected by the following: Varied treatments to deal with ageing pavements, variable texture, and increasing number of seal layers on the roads. Holding seals to maintain pavement lives where the priority and funding is not sufficient to qualify for rehabilitation. Page 49

50 Figure 7-11: Sealed Network Lives Achieved vs Theoretical Figure 7-12 shows the current predictions from RAMM for reseal needs along with the smoothed quantities and dollars. The current predictions have allowances built into the future years for future reseal cycles coming on stream. The life of a reseal is on average 13.8 years. However, some resealing is expecting to be required within five years of the previous reseal, usually for the second coat following a first year coat. When allowing for the second coats, the area weighted average life is 13.5 years. The forecasts suggest that: With the current expected life of 13.5 years maintained to 2024/25 and increasing network area, the average requirements grow from around 960,000 m 2 to 980,000 m 2. However if the expected life were to decrease, the reseal quantities would increase. With the flat-line reseal programme at 970,000 m 2 per year for the next 10 years, achieved by adjusting priorities and programmes and taking a greater managed risk on lower volume roads. Page 50

51 Figure 7-12: Predicted Reseal Requirements Figure 7-13 shows the forecast reseal requirements. The actual achieved quantity of work will depend on the price of tenders received, cost of bitumen, inflation and weather. Council has indicated that resealing is a priority activity and if costs inflate it may be necessary to transfer funding from another activity to reseals. While the goal is to trying and achieve an average 14 year life, an ageing network with more and more seal layers will ultimately lead to bitumen instability and in turn reduced sealed lives. Figure 7-13: Sealed Road Reseal Renewal Forecasts (NZTA Cat 212) Budgets have been based on achieving a quantity of 970,000 m² annually for the 10 year period of the AMP. The actual achieved quantity of work will depend on the price of tenders received, cost of bitumen, inflation and weather. Council has indicated that resealing is a priority activity for both safety and Page 51

52 longevity of the network. If costs are higher it may be necessary to transfer funding from another activity to reseals. Due to price volatility of reseals, the reseal budget will be monitored closely and reviewed on an annual basis and subsequent changes will be made to reflect these price changes Pavement Rehabilitation Programme Following a decision by Council (12 October 2011) to adopt flat line funding approach with a consideration around affordability and NZTA desire to maximize the roading assets as much as possible, the pavement rehabilitation roading programme has been developed accordingly. The quantity of pavement rehabilitation is expected to well below historic average with the programme anticipated to be similar to volume of work completed. There is expected to be on going challenges maintaining the network; Modelling work has shown that if each section of current pavement achieves a life of 60 years (previous plans had been based on an average of 54 years) then the sealed network can be maintained over the next 10 years; Beyond the 10 year period a potential bow wave of rehabilitation will be required over the following 10 to 20 years, reflecting the historic peak in the seal extension of the network in the 1960s and 1970s (refer following figure) and could equate to a need to double or triple the current rate of rehabilitations at that time, equating to an additional $4M to $8M pa for a 10 to 15 year period. More work and modelling is required in this area to verify this risk. This will be a key focus over the next three years. The network will need careful management in order to be in a financially astute position should the bowwave arrives, through maintenance treatments, improvements to drainage and better management of the use made of roads and priorities for and the balance of various maintenance and renewals treatments. Page 52

53 Figure 7-14: Potential Future Pavement Rehabilitation Programme based on Age Page 53

54 To try to offset future increased costs and to optimise expenditure on the network, there will be improved focus on a strategic intervention process, including: Gathering further data on the condition of the network and the rate of degradation to improve modelling, prioritisation and programming of works, including high speed and condition rating data; Continued used and development of the dtims deterioration modelling tool enhanced to deal with SDC type roads - being relatively smooth, low to moderate strength, lightly trafficked and often exhibiting limited signs of degradation until they reach a tipping point when they degrade very rapidly. Reviewing the balance within and between maintenance and renewal work categories to try to obtain the best outcome for the money spent. This may involve some trial sections of different treatments to help determine the results and value for money achieved for alternatives. Following the above, and with the new Alliance Maintenance Contracts the time is ripe to review and development of an updated Maintenance Intervention Strategy to take SDC into the future. Some options being considered or implemented are: reallocate some funding from possibly the pavement rehabilitation programme, or other programmes and redirecting this into improving drainage across the sealed network - current work programmes are not believed to be maximising pavement life. The payback is expected to be significant as this is a fundamental of good pavement management. Continued focus to be a year ahead with pre-reseal repairs. (This would aim to have only faults which developed over winter requiring work to be complete). This will have several advantages including completion of work earlier in the season, lower costs for working in better weather, ability to lower bitumen application rates and improved efficiency. Allowing low volume sealed roads to be pushed harder and allow shorter term interventions rather than rehabilitated. This is a possible option for a reduction in LOS if there is insufficient funding available to sustain the existing network. If, as a result of the continuation/expansion of these initiatives, it becomes clear that the proposed programme of rehabilitation will be insufficient to maintain the sealed network to the desired level there are a number of options available which include: Seeking urgent additional funding from both ratepayers and NZTA during the initial three year period should the network deteriorate rapidly. This should not be necessary as there are short term actions that can be taken to get through a two to three year period. Review and reset the programme at the time the 2021 LTP is produced to reflect the latest state of knowledge. Some further comments on the rationale and approach to pavement rehabilitation programming are: Cost optimisation while preserving the asset results in the justifications for the work being based on achieving positive net present values (NPVs) which show that over a 30 year time horizon, it is more economical long term to carry out a pavement rehabilitation at this time than to continue to maintain and either delay a future rehabilitation or reseal the road along with heavy duty maintenance at an increasingly shorter reseal cycle. SDC philosophy for pavement rehabilitation has been to proactively carry out the work when the signs become obvious that the road has reached the end of its life, because past experience has shown that with the relatively weak pavements on the local roads, once failure commences it occurs quite rapidly and maintenance costs rise rapidly. Due to this proactive philosophy, maintenance costs long term are kept down and as a by-product, SDC have relatively smooth roads as less money has been spent on patching and repairs. Due to NZTA funding approach, not all pavements with a positive NPV for rehabilitation can be rehabilitated and the programme is prioritised on a combination of the highest NPV per kilometre and the AADT (Annual Average Daily Traffic). For those pavements which generate a positive NPV, but Page 54

55 do not get rehabilitated, it is estimated that the additional cost of maintenance long term equates to approximately $4,000 per km per annum. At 22 km pa, with 1,950 km of sealed pavement, a life of 89 years needs to be achieved on average by the pavements. The 22 km pa is only currently feasible due to the age profile of the network. At a more plausible 60 years average life, the long term rehabilitation requirement would be 32.5 km pa and based on only 45 years this would become 45 km pa. Also because of the concentrated period the majority of the pavements were constructed, their renewals requirements will be more concentrated than ever, which could results in this bow wave effect. As shown in Figure 7-15, the rehabilitation projects are low relatively for the first three years with a jump at around year six. Rehabilitations will be focused on mainly on collector roads which carry the bulk of the total VKTs (67%). As part of rehabilitation projects, the opportunity is taken to carry out roading improvements as this is the most economical time to make these improvements. Generally these improvements are from the Low Cost / Low Risk category (formerly Minor Improvements): Low Cost / Low Risk (LCLR) - These generally cover safety improvements such as widening of the seal and shoulder, improving the clear zone, relocating or removing hazards such as power poles and trees, curve realignments and improvements, and guardrail installation. Figure 7-15: Sealed Roads Rehabilitation Kilometres Renewal Programme Forecasts Page 55

56 Figure 7-16: Sealed Roads Rehabilitation Expenditure - Renewal Forecasts (NZTA Cat 214) Upgrading and Developing New Assets Capital Investment Strategy - Level of Service and Demand Council policy has been to widen roads whenever rehabilitation work is carried out, in order to meet its hierarchy standards. However, as discussed in 7.2.3, there are pros and cons of seal widening. Rather than simply following a pre-designated standard, various issues must be balanced on a case by case basis to decide on the most appropriate width, taking into consideration size and volume of traffic, topography, such as horizontal and vertical curves, obstructions outside the road pavement and consistency with other sections of the same route. Such work has been allocated within the minor improvements as shown in the following forecast. Widening may also be required on an ad-hoc basis with no association to rehabilitation work. Carrying out seal widening in association with rehabilitation work is less expensive than stand alone, but should not be carried out without questioning whether the work is necessary. The widening is funded from the Low Cost / Low risk budget shown in the figure below along with guardrail safety improvements. Capital investment in Southland is primarily related to subdivision growth. These are funded by the entity responsible for the subdivision, with no call on ratepayer contribution until the subdivision is vested in Council. There are no instances of new roads opening up to cater for increased industry/farming needs. Page 56

57 Figure 7-17: Sealed Road LoS Forecasts Future Improvement As discussed earlier, increased monitoring is proposed to assess the effects of the constrained funding and justify an increased level of investment if there is sufficient evidence (or alternatively confirm pavements do not need renewal as early as predicted). This will include an expansion of the current limited control sites whereby the normal rate of deterioration of un-remediated roads can be used to determine real life cycles as opposed to those determined by theoretical means. Other areas that are being worked on or will need to be followed up include the following: Stewart Island s roads do not meet the road group standards and to do so would be inappropriate. The integrity of the network is at ongoing risk from coastal erosion, poor drainage and lack of aggregate sources on the island. (Progress has been made on these issues and further work is underway on slip issues on the island). There are also other parts of the network that are at risk from coastal erosion. Specific examples of sites include as section of Ringaringa Road on Stewart Island and Colac Bay Foreshore Road. A new round of skid resistance measurement of the network was undertaken in 2017 with the next round to take place in early At the time of writing this AMP the data still needed to be fully analysed and compared to previous results. This will be used to help confirm work programme and help prioritise worst areas for treatment over period. Using the programme of falling weight deflectometer testing and high speed data to further improve/expand knowledge of the network and update the long term rehabilitation programming. Investigations are required to improve the understanding of the relationship between maintenance techniques and the performance of sealed roads. Continue to upgrade classification of existing pavements/treatment lengths to allow easier analysis considering age, loading, critical demands and pavement condition characteristics; and analyse the condition rating information against these. Page 57

58 7.3. Unsealed Roads Overview The District s unsealed metal surfaced roads constitute just over 60% of the road network and carry only 17% of the traffic volume. Nearly 73% of the unsealed roads carry less than 50 vpd. The objective of unsealed roads is to provide all-weather travel for all types of vehicles however under intense or extreme weather events access may not always be possible. Data Sources Some details of the unsealed road network are held in the RAMM system, mainly inventory data such as the length, width and start and end points of a section of road. Also included are locations of culverts. All maintenance contracts utilise a manual rating system (RCames and RoadTrip) to rate their respective networks. This method of measuring the condition is also to monitor overall network performance. The use of RoadRoid was introduced as part of the previous AMP to provide more independent data on the condition of the gravel road network. Crash data is obtained from the NZTA Crash Analysis System Historical Data Little historic data is formally held on the construction and maintenance of the unsealed roads and as such this is an area seen as an opportunity for data capture improvement. Currently each contractors has their own mechanism and systems for capturing work carried out on the network. The maintenance cost data from maintenance activities is being recorded in RAMM to varying degrees of quality. Asset Description There are approximately 3,000 km of unsealed roads in Southland District (15.9 m km 2 ). The unsealed road hierarchy plus associated standards and use are detailed below. The unsealed roads, which are spread throughout the District, are generally lower volume roads that provide access from individual properties to collector or arterial roads. They generally have lower speed values than sealed roads, with the aim of providing a suitable surface for the public to travel comfortably at 70 km/hr on straight sections. The unsealed roads have developed from tracks to roads with the vegetation removed and gravel added to fully constructed gravel roads. This has taken place over the past hundred years with the standards and requirements in terms of width and strength improving over time. The following table describes the standards to which new roads are constructed. They are based on the demands identified for each road and evaluated against the ONRC. Table 7-10 below shows the proposed ONRC hierarchies for unsealed roads including design carriage way target widths. ONRC Hierarchy Rural Unsealed Width (m)** Design Target % Compliance with Target Set Width Unsealed (Grassed) Shoulder Width (m ) Bridge Width Min (m) Primary Collector - Rural N/A N/A N/A N/A Secondary Collector - Rural % N/A 8.0/4.2 Access - Rural % N/A 8.0/4.2 Low Volume - Rural % N/A 4.2 Table 7-10: Gravel Road Widths - Targets Notes Page 58

59 * Bridges greater than 6 m long would normally be two lane collector roads and busier access road. This is assessed on a case basis depending on traffic use, road alignment and local issues. ** Width Includes shoulder width. This table is to be used as a guide only and will be subject to particular requirements of the Engineer for each situation. A reasonable level of compliance with the design carriageway widths (based on 2001 data) and the general lack of concern (as evidenced through complaints) regarding gravel road widths has been used to determine design targets. This recognises that in terms of priorities for expenditure a lower width is acceptable to the general public and specific widening efforts should only take place where specific problems have been identified such as safety concerns. Average Annual Daily Traffic (AADT) The traffic volumes on the unsealed roads are generally at the lower end of the scale. These range from five to 180 vehicles per day Asset Condition The unsealed road asset is in a reasonable but constantly changing condition depending on traffic use, weather, position in its maintenance cycle etc. It needs to be acknowledged that while our gravel roads appear to be in reasonable condition they have been formed by a gradual build-up process rather than constructed. This means that the majority lack structural strength and are susceptible to damage from changes in use. The Alliance Condition Rating trial will provide useful data to accurately record variations in network condition. Further work is required to be able to demonstrate condition against public perception and this work is ongoing. This condition is monitored through Contractor and Council Community Engineer inspections, as well as complaints and queries from users. Roughness is a function of grading and gravelling. Because of the constantly changing condition a road may meet standards as per the contract the day it is graded and be severely substandard a short time later. The type of gravel and the binding material available will also affect the surface condition, as will the weather. Adding new metal may make the road appear in good condition but be much less satisfactory to drive on, and may even be dangerous on hilly steep sections of the network Asset Performance Performance of the carriageway assets has been assessed in terms of customer satisfaction, capacity and safety. Customer satisfaction is carried out through the ratepayers survey presented and analysed in Section 5.1. The RFS system is also used to monitor asset performance. The inherent constantly changing nature of unsealed roads coupled with a general desire by residents to have sealed roads means that satisfaction is generally lower for unsealed roads. Capacity The capacity of the unsealed roads is governed by their widths and strength being suitable for the volume and type of traffic carried. The width has a major effect on safety giving opposing traffic more room to avoid each other. This is particularly important in locations of low visibility around curves or over brows of hills. However regardless of the road width vehicles still tend to drive in the centre of the road creating a two-wheel track road rather than a three or four-track road. The strength of the road governs the capacity of the road to carry repeated heavy loads, particularly in wet conditions. This becomes particularly important during logging, quarrying, dairy conversion and other intense carting operations. Capacity of Southland unsealed roads is variable. Safety Page 59

60 The number of crashes on unsealed roads has remained relatively constant over the last five years, averaging around 40 per year. This is low when compared to the proportion of the network length, because of factors such as lower volumes of traffic on unsealed roads, lower speeds due to less comfortable road surface, and the number of crashes which are unreported. Minor safety works are carried such as guardrail instillation for higher risk sites identified Approach to Operations and Management Operating and Maintenance Strategy For unsealed roads, the top surface is gravel (metal) to provide a suitable wearing surface, the shape provides surface water run-off and the underlying material needs to be resistant to moisture penetration by appropriate material grading. The main operating and maintenance activities for unsealed roads are: Grading (varies from monthly through to yearly depending on road use), to maintain shape (and therefore drainage) and remove rutting and corrugations. Pothole repairs - through grading or filling - if filled the repair material needs to be capable of compaction to ensure it is dense and stable for trafficking while still performing similar to the surrounding pavement. Vegetation management, including mowing, noxious plant spraying and overhanging vegetation trimming. Condition assessments by maintenance contractors and community engineers. Graders are programmed on a general cycle depending on known condition of the road, traffic volumes and ability to maintain condition. A regular inspection is carried out by the grader driver, however a decision on either the need for grading or whether the road is in a fit condition to be graded is made at the time grading is due. Loose surface build-up is also required to be monitored as the deeper the loose surface the greater the risk of a driver losing control. If it is over 250 mm deep it should be considered for intervention. Transition areas from sealed to unsealed carriageways also need attention under unsealed maintenance. A smooth transition should be maintained over no less than a 20 metre distance within the unsealed carriageway however this may need to be longer depending on specific site conditions. Meanwhile the sealed section is to be swept and kept clear of the unsealed carriageways aggregate. As with sealed roads drainage is a major issue. Waterways need to be operating correctly and are not to be blocked with roading aggregates. Routine Maintenance Plan The surfacing of gravel roads is one of the main areas where contractors are encourage to produce a stable bound surface. This may be done in a variety of ways including adding clay and silt, (either from the edge of the road or imported), adding well graded metal, stabilising existing material with lime or cement, rolling after laying etc. Council has participated in a national trial of Otta Seals to minimise dust nuisance. This trial is indicating substantially reduced dust and also reduced long term maintenance costs. During 2016/17 Council has also team up with an Australian company to trial a product called Claycrete as a more cost effective option to Otta Seals to minimise dust nuisance but also to minimise maintenance costs are high demand areas such as hilly section. As this is very early on in the trail the success of the product still needs to be assessed. Contractor Performance Monitoring Page 60

61 Performance monitoring is undertaken by the Council Roading Staff and Community Engineers as part of the contract Alliance Management Teams. Response times and performance criteria are specified within the Contract documents. The Alliance Leadership Teams have developed a set of measurable outcomes based on the Council desired LOS. A regular and systematic audit process has been put in place to ensure the desired outcomes are met. Advancement in technology particularly smart phone applications is being used and improved to aid performance monitoring of the network. This will continue to be used and developed over the next three years. Nationally there is a move to improve modelling of unsealed roads. This offers the opportunity to improve maintenance cost forecasts based on road condition, rather than historical costs. Operations and Maintenance Forecasts The increases have been aligned with inflated increases due to expectant rises in labour and fuel costs. Costs in this area are predominantly grading making up around 80% of all cost. The majority of other costs associated with unsealed road maintenance are routine maintenance and digouts. Constraints Gravel supply has been a significant expense in maintaining roads in Southland and in particular unsealed roads. Effort has been placed into determining ways of reducing this cost. A potentially significant initial potential saving has been identified by purchasing from alternative suppliers. Residents generally prefer a regular grading cycle, however better and more economic results can potentially be obtained by monitoring quality and increasing or decreasing cycle. The remaining life of the network with ongoing maintenance and renewal is indefinite. The formation is assumed not to depreciate as regular maintenance (slip clearing, etc) will allow it to provide service indefinitely. The unsealed pavement structure is assumed to consist of a permanent sub-base layer protected by a maintenance metal layer, which is replenished as required to maintain the overall structural integrity. Figure 7-18: Unsealed Roads Opex Forecasts (NZTA Cat 112) *Note: 5 Times Average number of times an unsealed road is graded in SDC Page 61

62 Approach to Renewals Renewal Strategy Roads and Footpaths Activity Management Plan Potentially an unsealed road can last indefinitely, provided sufficient investment is made on the road through its life to keep it in a good state of repair and renewed when required. For roads, the main parameter that signals the need for road renewals is the road condition and increasing maintenance costs to maintain the required LOS. As the road surface deteriorates, it becomes rougher with increased potholing and failures. The renewal strategy is based around measuring and forecasting the deterioration of the roads and scheduling investment in renewals when the level of deterioration becomes unacceptable. With unsealed roads, deterioration can in some cases be very rapid - i.e. a road which was adequate when used by the occasional heavy vehicle becoming impassable when logging or dairy conversion takes place along it. The logging situation is more predictable due to the time it takes for trees to mature. With the dairy situation a farm can be sold and work start very quickly. Monitoring consents for dairy sheds can help with this. Pavement Rehabilitation Treatments Pavement rehabilitation treatments are pavement renewal of a limited area in which there are no geometric improvements. These may include overlays, rip and relays and chemical stabilisation. Seal Extensions The District has a large proportion of unsealed roads and there is continual pressure to seal them, predominantly by the rural community. The policy to invest in seal extensions changes over time depending on the community and the elected Council. Sealing of the roads has significant consequences in the long term because of maintenance and asset deterioration issues. The decision to extend the seal is therefore not one that can be confidently forecast. At the time of writing this AMP Council is in the process of sealing around 23km of the alternative coastal route at a project cost of $9.5M. Prior to this the last major seal extension carried out was on the remaining unsealed section of the SDC s section of the Chaslands Highway. A forecast of future subsidised seal extension work beyond this year has not been undertaken. No allowance has been made for subsidised seal extension work in the long term. During the Annual Plan process this may need to be reviewed for a specific special case, particularly on tourist routes or special interest areas such as Richard Street in Riverton or Whitestone Road near Te Anau. While there is an ongoing desire from ratepayers for seal extension of their own road or the ones they travel on the most, there is also a realisation that SDC cannot afford to seal all of its roads. A rough order of cost estimate to seal the remaining 3,000 km network of unsealed road is $525M with an increase in long term annual maintenance of $10M pa. Even just sealing a 100 m strip in front of every house on every unsealed road has an estimated rough order of cost of $75M (based on 3,000 properties at $25,000 each) with an increased maintenance cost of $1.0M pa. Otta Seals may in the future provide a viable option to full seal extension where dust is the primary reason for public complaint. At roughly $70,000 per kilometre this may be a financially viable option in the future. More data needs to be gathered on the long term life and costs of these before proceeding with more than just trial sites. Special Purpose Roads Historically some roads attract 100% NZTA subsidy because of their national significance in terms of tourism, industry, etc along with their use, revoked State Highway status and current condition. The Transport Management Act 2003 repealed section 104 of the Transit NZ Act 1999 which related to special purpose roads. NZTA are developing policy in response to this legislation change but at this point they are paying the 100% subsidy. The Council s policy is to fully maintain all the Special Purpose Roads within the funds available from NZTA. Page 62

63 The maintenance of special purpose roads includes pavement maintenance, amenity, safety and traffic services. This is covered under the maintenance contracts to the same LOS as other roads with a similar hierarchy. Due to its distance from the rest of the network, the Lower Hollyford Road is maintained by the State Highway maintenance contractor and consultant in the area. NZTA have raised likely changes in funding policy around SPR s which is likely to see the funding assistance rate to fall in line with the general rate applied to Council (51%). This has the potential to add a significant financial burden on Council particularly if Council has to fund work related to natural events (e.g. slips) at Councils standard FAR. As no change in FAR is signaled as part of this AMP this has not been assessed further. More work on assessing the potential risk particularly financial risk to Council will be done during the period of the AMP. Renewal Past Trends The above graph shows a comparison of unsealed road renewals trends for It compares SDC to other Councils with similar network characteristics. As can been seen SDC falls below the average for cost and lane km of metalling completed and very comparable to Clutha District. Council believes this supports our current investment strategy for maintaining a fit for purpose unsealed road network. Renewal Forecasts The renewal forecasts have been based on the average expenditure. Councils contractors make use of resources such as the AustRoads formula for calculating the amount of metal to be applied. Programmes are developed with 2, 4, 8 year cycles and feedback is also sought from Grader drivers as to places with no metal. Factored into this is the position of gravel pits to align value for money (sometimes better to complete additional roads in a given area due to the location of the gravel source than shifting a crusher and the associated setup costs). Page 63

64 Figure 7-19: Unsealed Roads Renewal Trend and Forecasts (NZTA Cat 211) *Note: An additional $75K has been allowed per annum for AWPT on Unsealed Roads Upgrading and Developing New Assets Capital Investment Strategy - Level of Service and Demand Currently no allowance has been made for capital investment for gravel roads. Capital investment is currently arise when developers construct new roads for subdivisions. They are required to construct and form any new roads. Depending on the location and size of the development they may also be required to either chip seal or asphalt the surfaces. Although this may be readdressed in the future currently there are no demand driven unsealed roads Future Improvement and Demand Currently no improvement or demand investment is anticipated however ongoing works are required to improve the understanding of the relationship between maintenance techniques and the performance of unsealed roads. Further investigations of whether stabilising agents produce any economic benefit to the road network also need to be considered. This includes further evaluation of Otta Seals and Claycrete as discussed in the AMP. Ongoing asset validation and data collection is carried out as part of Network and Asset Management activity such as carrying out a new inventory survey to check gravel road widths against full contract compliance and progress to target widths. Page 64

65 7.4. Bridges Asset Description Overview SDC has 1088 bridges on the network, or on average one bridge or large culvert for every five kilometres of road. As can be seen in the figure below, the majority were built between 1955 and Through policies such as disposing of end of network bridges or bridges on paper roads, some of the bridges requiring replacement may be able to be removed from Council responsibility. A number of different materials have been used to construct the bridges within the Southland District. Both the oldest and the youngest structure in the network are constructed from concrete. Timber structures have construction dates typically starting in the 1950s. At the time of producing this report there were 102 posted bridges owned by SDC and the posting limits are due to deterioration in the condition of the main structural members. The majority of the posted bridges are timber structures though some bridges incorporating steel components are also posted. All of the structures will continue to deteriorate and the number of posted bridges can be expected to increase in future years if structures are not upgraded or replaced. Bridge Type Number Length (m) Armco Culv ert Boundary (Other Council's Responsibility) Boundary (SDC Responsibility ) Box Culvert Concrete 426 7,343 Concrete Pipe Culvert Pedestrian 3 65 Priv ate 1 6 Reinforced Timber 5 89 Steel/Concrete 42 1,192 Steel/Timber 53 1,094 Stock Underpass (Priv ate) 236 1,021 Suspension 1 62 Timber Woodstave Pipe 7 16 Total 1,088 12,781 Table 7-20: Types of Bridges Page 65

66 Figure 7-21: Number of Bridges by Year Built Asset Condition and Expected Lives The figure below presents the condition of bridges owned by SDC. Figure 7-22: Number of bridges by Structural rating Structural rating 1=Very Poor Condition, 9=As New Condition Some commentary on bridge lives is as follows: Page 66

67 103 timber bridges have an assessed average remaining useful life (RUL) six years. This can be extended by upgrading the structure with either new or second hand materials, though the latter is limited due to availability of hardwood timber beams. The life can also be extended and replacement deferred if the bridge is posted to restrict the load on the structure, however if alternative routes are not available, a posting can have a significant effect on road user costs. 48 Armco culverts in the District have an assessed average RUL of nine years; some have been lined with concrete but due to the length and cross-sectional area of some of the culverts it is not economic to upgrade them. The life can be extended by a few years by either putting a posting limit on the culvert or by increasing the cover over the pipe to reduce the stress in the steel. 7 timber woodstave pipes have an average RUL of 13 years - replacement can be deferred as discussed above but the woodstave pipes cannot practicably be upgraded 53 bridges are a combination of steel and timber materials (typically steel beams and a timber deck) with an average RUL of 21 years. These bridges can also be posted to extend their service life and defer replacement to suit available budgets. The annual replacement of structures should be continued at a reasonable number per annum so that the number of posted bridges is kept at a manageable level. Other structure types that are constructed from concrete or a combination of steel and concrete have average RULs greater than 30 years. The RUL of the structures will be able to be more accurately determined within the coming decades as the structures are reinspected. The RUL for a structure is difficult to accurately determine to within a specific year. Bridges with RULs currently estimated to be greater than 10 years may be able to be deferred for a number of years if the structure still appears to be in reasonable condition. As can be seen from the previous figure, although the majority of bridges are aged around 30 to 50 years of age, the proportion of bridges rated average or worse is relatively small when comparing the total asset quantity however this still represent a notable number of bridges. In the short term (3 years) continuing the maintenance and renewal of the bridging network is affordable, but based on the known data, long term a strategy (5-15 years) will be required to deal with the significant increase in cost associated with replacing the bridges Asset Performance Safety Bridge safety can be divided into three main categories: Safety of the approach and departure: Issues include bridge end marker posts, and bridge side protection terminations, and the pavement markings on the approach. An improvement project completed from the last AMP was to ensure the correct end marker posts were installed. This is an ongoing maintenance issue and will be addressed in the updated Maintenance Intervention Strategy. Many older bridges have outdated and unsafe bridge side protection terminations and this issues needs to be gradually examined through the deficiency database and upgraded in a prioritised manner as funding allows. Approach markings should be clear and consistent. Some however are sending the incorrect message to drivers and could increase the likelihood of a collision with the bridge end rather than reduce it. These will be reviewed as part of the network safety audits planned over the next three years. Safety of the side protection over the bridge: These are of varying construction methodologies and are only being updated as bridge renewals occur. These will also be reviewed as part of the audit process but it is unlikely that any major upgrades will occur unless a serious potential safety problem is identified. Safety (structural integrity) of the main bridge structure itself: The bridge structures themselves are reviewed through annual inspections by the maintenance contractor, biennial posting reviews and six yearly detailed structural reviews. Through these inspections the structural integrity is monitored and decisions made on postings, repairs or replacements. If funding continues to be constrained, there may be Page 67

68 cases in future to close some bridges where alternative routes are available. This will need careful consideration of the effect on the network functionality and economic impact. Capacity A number of bridges on SDC s network are single lane. With the increased size of modern agricultural equipment, regular damage occurs to side protection structures on these bridges, with associated extra maintenance costs. In addition the number of posted bridges imposes a restriction on the ability of heavy vehicles to fully access the network and hence incur extra travel costs Approach to Operations and Maintenance Operating and Maintenance Strategy As part of the new maintenance contracts which commenced on 1 July 2017 a quality plan is to be developed. A key component of the quality plan is a maintenance intervention strategy. The strategy will reaffirm the maintenance need for each of the key activity as outlined below. Routine Maintenance The main activities in this area are: Surface maintenance (as for sealed roads), and Condition assessments; Monthly within the regular maintenance inspection of the network by the contractor; Annually by maintenance contractor to determine maintenance needs such as painting, minor repairs etc; Biennial inspection of posted bridges to review condition and capacity; Yearly adhoc structural inspections by professional services provider to determine significant repair items, replacement for issues identified outside regular inspection; Cleaning; Gravel removal; Painting; Minor structural maintenance such as bolt tightening, etc. KPI s for the contracts are based on LOS, particularly in response to Requests for Service and contract requirements, and standards agreed at the commencement of the contract by the Alliance teams. Operations and Maintenance Trends and Forecasts The Structures maintenance Budget is based on the latest round of structures inspections. Due to the age of some of the bridges in Southland s network, and potentially not enough spent on this activity historically, it has been decided to address the posted bridges which are strategically the most important. Page 68

69 Figure 7-23: Bridges Structures Opex Trend and Forecasts (NZTA Cat 114) Approach to Renewals A number of factors impact on bridge renewal programmes. Unlike roads, which decline gradually when poorly maintained, a bridge has the potential for a sudden collapse and subsequent catastrophic outcomes, both from a safety and an economic perspective. Not only can it be expensive to replace, but high costs can be incurred by users unable to access the asset, either because of a longer alternative route or because the community is completely cut off. Apart from an ageing network there are also increased pressures from the increasing number of heavy vehicles on a far greater number of roads. Beef and sheep farming generate heavy traffic at peak times, whereas dairy is up to twice a day, 10 month a year operation. This has been compounded as dairy conversions grow in number. Renewals Strategies The LOS of a bridge can be considered in terms of load capacity, width between kerbs and number of lanes. When considering a bridge for replacement these three LOS need to be considered in terms of the number of vehicles, including heavy vehicles, using the particular bridge, as well as other replacement priorities throughout the District. Potential renewals are identified through the different inspection programmes. Where a structure can no longer adequately carry Class 1 loads, is on a route with a large proportion of heavy vehicles and there are no suitable alternative routes available, the structure may be upgraded. When a structure is upgraded it is brought up to Class 1 loading criteria. Where a structure does not meet the LOS for width between kerbs or the required number of lanes, a replacement or widening may also be considered. Alternatively, if the cost of upgrading the structure is significant it may no longer be economic to retain the existing structure and it may be replaced with a new bridge. In the past, structures for replacement have been identified based on passing the NZTA Benefit/Cost (B/C) criteria for an economic roading facility. When the structure did not produce a high enough B/C ratio to warrant a full replacement, an upgrade would have been further investigated. Due to the extent of the SDC s roading network there are often alternative routes available. The lengths of the alternative routes are often unreasonable for a road user to have to travel but based on the B/C ratio threshold the replacement is deemed uneconomic. Because of this, in past years a number of Page 69

70 structures on no-exit roads have been replaced as they were the only ones which could generate a fundable B/C ratio. Long bridges which provide the only access to a limited number of properties present a major difficulty at the time that it becomes necessary to upgrade or replace them. Due to the cost of the replacement compared to the number of vehicles using them they have in the past been classed as uneconomic by NZTA. Each of these needs to be considered on a case by case basis, and discussed with the landowners to look at the range of funding options that could be adopted. Drainage culverts not classified as bridges are replaced as required as a part of the maintenance contracts. Due to the lack of information on the existing drainage asset there is currently no forward work programme for drainage culvert replacements. Bridge Renewal Forecasts The bridge renewal programme has been estimated as follows: Based on the raw data in the RAMM bridges module as at 2016/17 valuation and the RUL determined during 2016/17 inspections, the average annual replacement cost over the next 20 years is approximately $1M per annum. These renewal projections are based on; Beyond 2035 there is a drop off in the expected annual replacement cost, assuming the timber and steel structures that reach the end of their RUL have been replaced, and then starts to increase again around 2055 when some steel and concrete bridges start falling due for replacement. The proposed budget shown is based on being able to defer and balance peaks and troughs to achieve the average annual replacement cost over the years. There are higher maintenance costs and risks associated with deferring renewals, with the potential of continued use by heavy vehicles even when weight restricted, therefore the programme is prioritised to focus on upgrading posted bridges to Class 1. Some further comments on the renewal programme include: At the current rate of annual expenditure on bridge replacement and upgrades of $1,000,000 per annum it will take in the order of years to remove all postings on bridges where it is warranted. This extended timeframe may have a major impact on road users, though the programme can be modified where significant complaints are occurring. The methodology for valuing the Armco culverts tends to overestimate their replacement cost. The replacement for all culverts is based on the road length times the invert length multiplied by a rate per square metre determined from previous culvert replacement contracts. In effect the RAMM module is calculating the value to replace the existing structure with a structure of the same size. A number of the Armco culverts in the District have been constructed with very long invert lengths that are much wider than the carriageway width that they support and site investigation during replacement design may enable the length to be decreased. In determining the replacement programme, reduced invert lengths have been assumed. Page 70

71 Figure 7-24: Bridge Renewal Programme The way that the network has developed over time means that it is now predominantly the bridges at the fringes of the network or where there are alternative routes available that require replacement. Replacing the structure cannot always be justified, or alternative funding (such as where there are a small number of users) may be considered. The programme assumes that a number of the bridges which are currently posted with restrictions will remain so or not be replaced in the foreseeable future. The split of posted bridges is shown in Appendix D. Major Maintenance (Structural component replacement) Renewal requirements have, over the last few years been fairly minor. However, the rate of repair and renewal of bridges has been falling behind and increased investment in heavy maintenance/structural renewal will be required in order for the bridge life cycle to be kept at a manageable level. Future Improvement Structures maintenance does not include improvements. Improvements to structures are generally carried out as part of asset replacement if required Upgrading and Developing New Assets Capital Investment Strategy Levels of Service and Demand As bridges are replaced there is often an upgrade component to bring it to current standards. Costs of upgrades or new infrastructure required for development are borne by the developer. The item then generally passes into the Council asset register and is maintained at Council cost Future Improvement Some structures require more detailed inspection and analysis to determine the extent of deterioration - these need to be identified and inspected. Identify and dispose of bridges which are not required, ie those that benefit a single user, or where there are suitable alternatives will be pursued over the next three years. Page 71

72 7.5. Drainage Roads and Footpaths Activity Management Plan Asset Description Type of surface water channel Length (m) Dished Channel (Asphalt) 135 Dished Channel (Concrete) 5,607 Dished Channel (Sealed) 3,087 Kerb & Channel (Concrete) 133,610 Kerb Only (Concrete) 4,613 Mountable Kerb & Channel (Concrete) 33,947 Mountable Kerb Only (Concrete) 558 Other Type 331 SWC (Deep, >200 Below Seal Edge) 2,572,812 SWC (Shallow, <200 Below Seal Edge) 6,390,707 Slot Channel (Concrete) 7 Table 7-13: Drainage Assets Southland also has approximately 28,000 culverts to carry water under the road, primarily constructed of concrete. Box culverts are classified as drainage up to a cross-sectional size of 3.28 m2. Culverts larger than this are classified as bridges. The other major form of drainage is the deep ditches alongside the road to catch the runoff from land other than that in the road reserve (ie public and private properties). They assist in maintaining the road network by containing the large quantities of surface runoff that would otherwise flood the road whenever heavy rain occurred Asset Condition Figure 7-25: Water Channel Age Profile The outliers potentially are estimated dates of construction in order to ensure asset is recorded in system Asset Performance Capacity Page 72

73 There have been a number of slips associated with poor drainage in recent years. This may be indicative of the number and quality of existing culverts, surface water drains and ditches which requires review. In recent years vegetation such watercress has increasingly impacted on asset performance during higher rain fall events resulting in blockages and surface flooding Approach to Operations and Maintenance Operations and Maintenance Strategy The drainage operations and maintenance strategies include: Checking that sub-soil drains are operating effectively - as the fine particles get blocked from entering the drain they can reduce its effectiveness or there may be blockages. The solution may be unblocking or replacing the drain. Regular checks to ensure culverts are clear from the debris that can build up after storm events. Maintaining vegetation and clearing rubbish from side drains, and re-forming where required. Keeping kerb and channel systems clean as the gradients may be minimal and small blockages can reduce their effectiveness. Clearing sumps (catchpits), which over time can become full of detritus, rubbish and vegetation. Operations and Maintenance Trends and Forecasts The graph below is a comparison of SDC cost compared to other road controlling authorities (peer groups) around New Zealand when it comes to drainage expenditure. This budget is higher than historic costs but is an area of high priority. Over the past three years there has been an increase in expenditure on drainage in order to maximise pavement life. This investment is planned to continue into the future and is aimed at maximising pavement life of sealed roads. Page 73

74 Figure 7-26: Drainage Opex Trends and Forecasts (NZTA Cat 113) Approach to Renewals Renewal Strategies Drainage renewal work is work that replaces sections of kerb and channel and replaces or upgrades culverts. Every two years, as part of RAMM condition rating, a condition assessment is carried out on the kerb and channel. The maintenance contractors check the culvert conditions annually. As a result of these inspections those drainage facilities that need it are replaced. There is no formal programme for this as it happens on an as required basis. Replacement works are also undertaken in association with road reconstruction and maintenance projects (pavement rehabilitation, seal widening, reseals, safety projects and redevelopments) where this is deemed appropriate from a whole of life or capacity point of view. Renewals and LOS drainage expenditure over previous years has not kept pace with the amount of work required. A rating of the sealed network drainage was under taken in 2016/17. From this a three year programme has been developed. It is expected that this will enable a sustainable drainage programme which can be implemented and sustained for future years (beat approach). Renewal Trends and Forecasts Figure 7-27: Drainage Renewal Trends and Forecasts (NZTA Cat 213) Page 74

75 Upgrading and Developing New Assets Capital Investment Strategy Levels of Service and Demand Roads and Footpaths Activity Management Plan The renewal programme has a small LoS component. This is driven by proactive assessment of the effectives of the current drainage systems and identifying site that will befit from drainage improvement. Drainage is a key component of the road network and insufficient or ineffective drainage will result in a reduction in the pavement life of the road. There are no demand-driven capital cost forecasts. Figure 7-28: Drainage LoS Tends and Forecasts (NZTA Cat 213) Future Improvement Future improvements will be based around carrying out existing maintenance activities in a reliable and consistent manner rather than any major drainage replacement or upgrades. A significant watertable clearance project is being undertaken during 2017/18 with a further two packages of work programmed across the district for period. At the completion of the programme the network will be reassessed (rated) to establish on going investment requirements. Page 75

76 7.6. Signs and Markings Roads and Footpaths Activity Management Plan Asset Description Signs and Markings make up part of the NZTA funding category known as Traffic Services (the other major component is roading related streetlighting which is covered in the next section. The signs and markings component typically includes features such as pavement markings, signage (regulatory and warning), marker posts and delineation devices. Each of these provides the road user guidance on the alignment to assist on judging speeds, potential conflicts and vehicle separation. Southland has over 30,000 signs over the entire network, and markings on the majority of the 2,000 km of sealed roads. These vary from centre lines, edge lines and raised reflective pavement markers on Primary and Secondary Collector Roads to only painting markings at controlled intersections and some bends on low volume roads. Historically SDC has run a performance based specification to marking however as part of the new round of pavement marking contracts SDC is taking more ownership of this activity and is changing to a method based specification (P22) where SDC as client will take a more active role in determining what roads get market and how often. The majority of signs are Engineering Grade (Class 2) material, except for Stop, Give Way signs, chevrons, and school signs (fluorescent yellow) however SDC is in the process of transition to Class 1 as sign require replacement. The move to Class 1 is in which is in line with best practice to improve safety for road users but also has the added benefit of increase asset performance life Asset Condition In general signs are in a reasonable condition. Areas to potentially improve include older standards of vulnerable user signs and older style name plate signs. The majority of the street name plates are the new reflectorised standard of white on blue/green, however, there are some remaining black on white signs which should be replaced Asset Performance Generally the asset has performed well however signs no longer meet modern day reflective standards. As signs are identified for replacement or damaged they are replacing with modern day equivalents to comply with good practice Approach to Operations and Maintenance Operations and Maintenance Strategy Signage is required to be cleaned and legible in all conditions 24 hours a day. Typical maintenance includes: regularly cleaning the signage, and replacing signs as the colour or reflectivity of the sign reduces removing obstructions such as vegetation, other signage, parked vehicles (responses to this might include parking restrictions or repositioning the sign), etc; edge marker posts and raised pavement markers (plain or reflectorised) provide additional delineation during night driving and during storm events. The pavement marking contracts are performance based which require the contractors to maintain the day and night time visibility of the markings above a minimum level. Edge marker posts are typically placed in rural areas on corners to provide the driver an indication of where the road is going. For this to be most effective the driver should be able to clearly see four markers at any one time throughout the curve. Page 76

77 Raised pavement markers will be along the centre lines and assist in wet conditions by raising the lines alignment above the surface water which can restrict viewing the lane markings. Pavement marking provides an indication to motorists of the intended lane widths and provides guidance for keeping left to avoid oncoming traffic. There are several products in the market from paint through to long life and profiled markings. Operations and Maintenance Trends and Forecasts Because traffic services are seen as critical to the safe operation of the network, sufficient capacity has been built into the future funding to allow for increased costs. Figure 7-29: Traffic services maintenance Opex Trends and Forecasts (NZTA Cat 122) Approach to Renewals Renewal Trends and Forecasts Due to the random nature of signs being damaged (vandalised) it can be difficult to accurately forecast the network needs. On this basis history is used as the best basis for future needs. Pavement marking performance vary depending on paint used, vehicle activity etc. Other roading activity such as ice grit also impacts on asset performance. From past performance and industry performance testing the network generally requires a percentage (50% allowed for) of the network to be market annually with the remainder market on a two yearly cycle (100% every 2 years). Page 77

78 Figure 7-30: Signs and Markings Renewal Forecasts (NZTA Cat 222) Upgrading and Developing New Assets Capital Investment Strategy Levels of Service and Demand Some capital expenditure has been planned for limited upgrading of signs, also some increased marking, for example at a seal back on a gravel road, which may allow Give Way or Stop markings on the side road to be installed. There is no demand driven capital expenditure planned for traffic services in the next 10 years Figure 7-31: Signs and Markings LoS Forecasts (NZTA Cat 222) Page 78

79 Future Improvement Roads and Footpaths Activity Management Plan Future improvement generally revolve around safety improvement and changes to national standards. This makes it difficult to plan for improvements long term. Page 79

80 7.7. Streetlighting Roads and Footpaths Activity Management Plan Asset Description Streetlights exist in most towns, particularly on intersections, however most streetlights in towns are installed for pedestrian safety or personal security issue than a vehicle safety issue. Streetlights installed at rural intersections (flag lighting) are installed for vehicular traffic safety. The current streetlights contract is held by Otago Power Services. The table below lists the number and type of light owned and maintained by each local community. Community No. Of lights Community No. Of lights Community Athol 5 Manapouri 50 Thornbury 18 Balfour 33 Monowai 8 Tokanui 18 Browns 13 Mossburn 24 Tuatapere 59 Centre Bush 20 Nightcaps 57 Waianiwa 4 Colac Bay 23 Ohai 71 Waikaia 26 Dipton 6 Orawia 3 Waikawa 10 Drummond 12 Orepuki 15 Waimahaka 7 Edendale 81 Otautau 151 Wairio 9 Fortrose 4 Riversdale 36 Wallacetown 95 Garston 4 Riverton 220 Winton 224 Gorge Road 11 Rural 125 Woodlands 20 Lumsden 69 Stewart Island 41 Wyndham 138 No. Of lights Makarewa Works 7 Te Anau 576 Grand Total 2293 Table 7-14: Streetlights Asset Condition The bulk of Councils lights are High Pressure Sodium with some LEDs. No specific condition rating exercise has been carried out as part of the development of this plan. This is thought to be unnecessary because at the time of developing this AMP the street lights are getting upgraded to LED. The changeover to LED s is expected to be completed by 30 June 2018 with the exception of some minor decorative lights which currently don t have suitable LED replacements. Options for these lights will be considered during period provided suitable replacement can be found that meet the needs of Council Asset Performance Capacity Very few historic streetlights were designed to any illumination design criteria or standard. Subsequent renewal of outdated fittings was motivated by increasing maintenance costs and the desire for reduced energy costs. New fittings replaced old ones in the same location. Community Boards and Community Development Area Subcommittees set their own local priorities for lighting changes and improvements. Due to this the Council operates from the premise that the current fittings are fit for the purpose. Safety Page 80

81 Statistics on crashes in urban areas at night-time appears to indicate more crashes where there are streetlights than where none are available. This would indicate that streetlights are more of an amenity value than safety. Performance Monitoring The primary measure of contractor performance is through RFS response. User satisfaction is also determined through three yearly surveys, and results were presented in Section 5.1. In 2017, 83% of those surveyed were very satisfied or satisfied with the level of provision Approach to Operations and Maintenance Operations and Maintenance Strategy The lights are maintained under a network wide contract however as this contract term ends and the changeover to LED s is completed it is expected that this will be replaced by a service agreement. This is because LED s don t require the same level of general maintenance activates as the High Pressure Sodium s. The Services level agreement is likely to require the contractor to respond to all outages on the network and repair / replace damaged lights through unplanned incidence such as a crash. Works are carried out in accordance with recognised New Zealand and Australian standards. Operations and Maintenance Forecasts There have been some recent savings in the streetlighting maintenance budget which will help off-set expected continued increases in power prices. The upgrade to LED s represent the biggest current opportunity for saving through both reduced maintenance requirement and electricity savings. One other aspect of potential saving is to turn streetlights off for a period during the night; however, this has safety implications and is really a measure of last resort. Figure 7-32: Streetlighting Opex Forecasts (NZTA Cat 122) Approach to Renewals Renewal Strategy Page 81

82 In many situations the Council s light fittings are mounted on PowerNet poles. In the other situations they are mounted on the Council s dedicated streetlight columns. Streetlight renewals budget is primarily based on replacement of individual components. Renewal Trends and Forecasts Historically renewal trends have been driven by event related needs such as damage from weather events or crashes Upgrading and Developing New Assets New Streetlights Streetlights in new subdivisions must be in accordance with SDC Subdivision Standards. All proposed streetlighting plans are subject to approval by the network provider and SDC. SDC take over the responsibility for the operation and maintenance of the streetlights once the development is complete and the asset is vested. The capital cost of installing new lighting is classified as a traffic services renewal under NZTA s funding categories. Capital Investment Strategy Levels of Service and Demand Council is currently upgrading street lights to LED, beyound this no further capital investment is currently planned over the next three years. New streetlights are funded from community funds and proposed upgrades are included in Appendix A: Community Plans for Locally Funded Activities (Streetworks). Council is currently upgrading street lights to LED. NZTA has provided an enhanced FAR for the project reducing Councils financial input to approximately $180,000. Currently there are no new streetlights planned which are demand related. If these are required they will be funded by developer contributions Future Improvement Beyound the LED upgrade being carried out in 2017/18 there are no future improvement plans currently programmed unless raised by the Community. Page 82

83 7.8. Footpaths / Streetworks Roads and Footpaths Activity Management Plan Asset Description Many footpaths in Southland District were constructed by community schemes designed to provide work for the unemployed in the late 1970s, which accounts for the high proportion of concrete footpaths. The footpaths vary in material, width, and quality, however due to the relatively small degree of foot traffic in Southland compared with car travel this is primarily an issue for those who do not own or are unable to use a car. Figure 7-33: Summary of footpath length by township See Appendix B: Footpath Lengths, Construction and Condition for a breakdown by township of footpaths by length and material Asset Condition The Council s Maintenance Contractors carry out footpath inspections and report within the monthly reporting system on any issues raised. These inspections are focused on keeping the required clear zone around the path and removal of trip hazards Asset Performance Capacity The Council Subdivision Standards are used as a basis for capacity requirements. These are based on the number of houses being serviced. A significant number of streets within existing townships will not comply with the Subdivision Standards. There has not been an attempt made to increase the existing network across the District in recent years. The predominant issue is the quality of the existing footpaths rather than the physical capacity of the footpaths. There has been a theoretical exercise carried out to check non-compliance of existing footpaths against the design criteria of the Subdivision Standards. This needs to be completed and discussed with local communities to see how they wish to apply the standards in each case. Page 83

84 User satisfaction Roads and Footpaths Activity Management Plan The results of the ratepayer surveys was presented and analysed in Section 5.1. Overall user satisfaction has remained reasonably consistent Financial Information Footpath maintenance is included in a general maintenance charge against local communities and is not able to be isolated for the purpose of this AMP. Streetworks costs, including capital expenditure, are included in Appendix A: Community Plans for Locally Funded Activities (Streetworks) Approach Operations and Maintenance Operations and Maintenance Strategy and Forecasts Footpaths wear out and become rough and untidy for a number of reasons, including tree roots, work undertaken by service authorities, e.g. power/water/phone, or vehicles driving over them. Council carries out regular maintenance to repair isolated footpath faults as identified through inspections or customer feedback as well as a programmed repairs. Each community with the assistance of the Community Engineers allocates maintenance expenditure based on known faults and historic needs as predicting the volume and extent of maintenance issues that may arise can be challenging. Figure 7-59: Footpath/Streetworks Forecasts Approach to Renewals Renewal Strategy and Forecasts Councils Community Engineer team utilise the information from the footpath assessments from the contractors and/or consultants, in conjunction with consultation from the Community Boards and the Community Development Area Subcommittees to understand the requirements and expectations for footpaths. Health and Safety requirements of community are also utilised when planning footpath repair or renewal strategy Upgrading and Developing New Assets LOS and Demand Capital Investment Levels of Service and Demand Forecasts Page 84

85 Capital investment of footpaths in the communities would only be required for new developments and in most cases council would seek the capital contribution from the developers, however the footpaths would still have to comply with the roading policy conditions and councils bylaws. Figure 7-341: Footpath/Streetworks Renewal, LoS and Demand Forecasts (showing depreciation) Future Improvement Future footpath management needs to be rated for by the communities for long term committment for the health and safety of the community and reduce the repair and replace lump sum cost and rates increase at the time of a major renew or repair project. Page 85

86 7.9. Around the Mountains Cycle Trail Roads and Footpaths Activity Management Plan Asset Description The concept of a cycle trail in Southland was first mooted following the Government s establishment of Nga Haerenga, the New Zealand Cycle Trail (NZCT) project in Several routes were considered, with a preferred route confirmed in The trail begins at Kingston, proceeding close to the Kingston Flyer railway to Lumsden - passing through the small townships of Garston, Athol and Five Rivers. From just north of Lumsden the trail goes northwest on, or near, the route of the Mossburn branch line to Mossburn. It then runs close to the south bank of the Oreti River until reaching Centre Hill. The trail route then continues on via Centre Hill Road, Mavora Lakes Road and Mount Nicholas Road to Walter Peak Station on the shore of Lake Wakatipu. The cycle trail is being constructed in line with the Ministry of Economic Developments New Zealand Cycle Trail Design Guide. The constructed sections of the trail amount to approximately 90km of predominantly Grade 1 track. Additionally sections of the trail utilise existing roads and considered as Grade 2 sections. The asset information is stored in the Road Assessment and Maintenance Management Data base (RAMM) which is used for roading and associated assets Asset Condition The asset condition is classified as new as stage one of the cycle trail was completed at the end of Sections 6 and 7 of stage two were completed in December Completion of Stage two of the cycle trail is currently review Council is still required to make a final decision on the future of project. The preferred option from the business case developed for the completion of the trail proposes that the remainder of the trail utilises existing low volume roads from the end point at Centre Hill through to the termination at Walter Peak Station on the shores of Lake Wakatipu Financial Information An annual allowance for maintenance of the trail is included in the draft LTP budgets. Maintenance relates to the constructed sections of the trail as opposed to the sections of trail that utilise the existing roads. These sections will be covered by road maintenance. Year 18/19 19/20 20/21 21/22 22/23 23/24 24/25 25/26 26/27 27/28 Budget $70k $89k $91k $107k $109k $112k $115k $141 $145k $149k The capital cost of the trail was partly funded by Government contribution and by other external funders such as Community Trust of Southland and Lotteries. The method of funding the balance is yet to be determined by Council. This issue is raised in the LTP consultation document and the ratepayers submissions on how it should be funded are being sought Approach Operations and Maintenance Operations and Maintenance Strategy The strategy for operations is that the Council will use an external supplier to monitor the condition of the trail and arrange unplanned maintenance and repairs as necessary. The strategy for maintenance of the trail is that Council will utilise external supplier to carry out planned vegetation control annually and selected external suppliers to carry out surface maintenance, drainage maintenance, structures and bridge maintenance as required. Page 86

87 Structures will be managed as for roading structures. Major bridges will be checked for structural integrity on the same six yearly cycle as the roading bridges. The current suppliers are The Around the Mountains Cycle Trail Limited and SouthRoads Limited. Operations and Maintenance Trends and Forecasts Operation and maintenance forecasts are symbiotic, in part complimentary and in part in conflict. As use of the trail increases some aspects of trail maintenance such as surface levelling will increase, caused by cycle use. On the other hand vegetation control, particularly pest plant control will decrease because of reduction achieved by early control programmes. Regular use will create compaction of the trail surface; this is desirable. In-frequent use will allow climatic conditions such as wetting, drying, wind, freeze and thaw to loosen the surface and allow fines to be lost; this is not desirable. Loose surfaces will need to be improved by machine compacting i.e. rolling. This will be part of planned maintenance. The financial projections are shown graphically below. Figure 7-353: Cycle Trail Opex Forecasts Approach to Renewals Renewal Strategy The renewal strategy for the cycle trail is similar to the strategy for managing an unsealed road. Use of a road or trail results in loss of surface material (gravel). The renewal strategy is to replace this material at the optimum time. The variables are the rate of loss and the timing between renewal cycles Renewal Trends and Forecasts The renewal trends for the cycle trail are somewhat theoretical at this point in time. The cycle trail is relatively new and relatively unused. So there is no information to base prediction models on. An allowance has been made in the 2025/26 maintenance budget for some metal replacement. It is anticipated that in other years localised metal replacement will be required and this will be carried out as tasked maintenance Upgrading and Developing New Assets Capital Investment Strategy Levels of Service and Demand Page 87

88 The capital investment strategy for the remainder of the trail is captured in the Around the Mountains Cycle Trail Stage2- Business Case. Council has adopted the preferred option from this business case. That option is described as Option 1: Centre Hill Road Connection. This option focuses on bringing the existing trail to a logical point of completion and delivering additional infrastructure required to provide a minimum acceptable standard of service (such as signage, shelters and toilets. This option has an estimated capital cost of $126,000. Capital Investment Strategy Trends and Forecasts Any further decision-making on completing the gap in the trail represented by on-road or road-adjacent sections would be deferred until 2021, with no additional future budget allowance made outside of the scope of works outlined here in the Long Term Plan. Once completed there is no anticipation that the trail will need to be increased to cater for volume generated demand. Figure 7-65: Cycle Trail Capital Forecasts (Renewal, LOS, Demand) Future Improvement The only future improvements planned at this time are as discussed above in Page 88

89 8. Other Road Management Activities Roads and Footpaths Activity Management Plan 8.1. Network and Asset Management Activity Description This work category provides for the planning, programming and day to day management and control of the road network and assets. It includes the following activities: Management of the road network; Implementation and operation of road AM systems; Roughness and condition rating surveys; Traffic count surveys, including pedestrian and cycle counts; Road network inspections and field validation of proposed programmes; Legalisation of existing road reserves; Special road maintenance or renewal related studies. The management of the road network is carried out by a mix of Council, contractor and consulting staff. Management and monitoring of the day to day maintenance activities is carried out by the Community Engineers through a business unit. Work carried out by the consultant through the Professional Services Contract includes data collection, management and analysis, network inspection for renewal programming purposes, design, contract management and supervision of forward works such reseals and rehabilitation, design and management of capital works such as bridges, and assistance with special projects such as those in the Improvement Plan. Some of this work is also carried out by the Strategic Transport section of SDC Forecasted Expenditure Figure 8-1: Network and Asset Management Expenditure and 10 year forecast (NZTA Cat 151) Page 89

90 Future Improvements Roads and Footpaths Activity Management Plan The intention is to for the period to gain better information on the network assets and performance which in turn should help with ensuring optimal expenditure on physical works and future renewal requirements. This also includes asset inventory validation and improvements as outlined in the Asset Valuation report Road Safety Activity Description Road safety is a key focus area of SDC and the government. It is proposed that meeting the Safer Journeys objective of providing a safe network will be brought about by a multi-pronged approach which includes the following key areas: Safe roads - that are predictable, self-explaining, forgiving of mistakes and encourage safe travel speeds. Safe speeds - travel speeds suit the function and level of safety of the road and drivers comply. Safe vehicles - that prevent crashes and protect road users, including pedestrians and cyclists, in the event of a crash. Safe road use - road users that are skilled and competent, alert and unimpaired. They comply with road rules, take steps to improve safety, and demand and expect safety improvements. This system takes a holistic approach to road safety addressing all elements of the road system (roads, speeds, vehicles and road use). It recognises that everybody has a responsibility for road safety Forecasted Expenditure Expenditure on road safety occurs in three fundamental areas: engineering, education, and enforcement. SDC contributes to engineering safety initiatives through its physical works programme as well as financially contributing to the Road User Education programmes delivered. Road Safety Programme Expenditure ($000) (Local share) Note that funding is received jointly for all three Southland Region Territorial Authorities. The forecast expenditure for the road safety programme. SDC in collaboration with the other RCAs and Environment Southland recently formulated and supported the adoption, by the Regional Transport Committee, of the Southland Regional Road Safety Strategy (SRRSS). The guiding philosophy for this strategy is the Safe System approach, illustrated in Figure 8.2 The SRRSS contains a vision and mission statement which each of the RCA participants including SDC need to commit to. These are as follows: Vision: The big picture - Council aspires to A level of transport safety equivalent to that of the safest in the world. Mission: The business that we are in and generally what we set out to achieve That the Southland Road Safety record is continually improving in order to create a safe environment for all road users and where safety is embedded in the thinking and actions of all road users. Figure 8-2: The Safe System Page 90

91 A key aspect in the implementation of the Strategy and the Safe System is the formulation of Road Safety Action Plans (RSAP) in collaboration with other agencies which can influence road safety within the area. These will be produced at a local level but will be consistent with a regional umbrella RSAP. The formulation of a RSAP and its implementation are priority tasks for this LTP period. Availability of funding is likely to be a limiting factor to implementation of some elements of the RSAP. SDC is currently undertaking a full review of its delivery to Road Safety, and is implementing improvements (where necessary) to ensure that a safe road environment is maintained for all road users Road Safety Issues Road Safety is managed via many differing processes for the identification, prioritisation and action of road safety issues on the network. Typically these include: Formal reported crash analysis (Crash Analysis System); Crash Reduction Studies; Inspections with a safety focus; Targeted area analysis (ie embankment drop-off/guardrail assessment ); Public identification of road safety issues. Public crash reporting network. NZTA monitors crash data on behalf of RCAs. This provides the formally reported crash data available to an authority for network review and individual route/area/site economics and project development. This data is also reviewed regularly by SDC to ensure that any developing trends are identified early, and that an appropriate response is implemented. Each year the NZTA reviews the crash data from the previous five years and reports on trends and key safety issues. Every RCA is grouped with other similar RCAs, having similar characteristics, to provide a peer group comparison. The Southland District is part of Group D, which is defined as Small Provincial Towns, low traffic volumes with population less than 20,000 and/or rural crashes greater than 55%. Data in the graphs below were sourced from the yearly ONRC Performance Monitoring Tool. Although each RCA in the region may put more emphasis on dealing with particular issues the issues addressed should be those identified regionally. Appendix C, contains information from most recent summarised road safety issues report How Road Safety is Addressed Road safety is managed in a variety of ways, these include: SDC Safety Management System (SMS) SDC intends to re-examine its existing SMS in the in order to ensure it meets current needs, and implement measures to address areas working sub-optimally. The current SMS is well overdue and since the last review many road safety initiatives such as Safer Journeys has developed and should now be included into the SMS. A review will be commissioned to undertake a gap analysis of areas identified and noted. From this a detailed road map of actions will be develop, with specific tasks and dates identified. Southland Crash and Casualties Page 91

92 Figure 8-3: SDC Serious Injuries and Fatalities Figure 8-4: SDC DSI Vulnerable Users Traffic Control All personnel, including SDC staff, contractors, consultants and individuals working or participating in an organised event in the road reserve are required to formulate and operate in compliance with a Traffic Management Plan approved by appropriate SDC roading staff. Traffic management must be in accordance with the NZTA Code of Practice for Temporary Traffic Management. SDC are undertaking a review of the contractor/call centre response system to ensure that an escalating response protocol is established that will maximise the road user response, from the initial call to final close off of the task. This process will be documented to ensure that all parties fully understand their obligations in the road safety process. Working Closely with Others The Council works very closely with the New Zealand Police (in their traffic enforcement role) and with all of the other local authorities in the Southland Region, with the health agencies and with Road Safety Southland to promote road safety throughout the Region. SDC proposes to continue building and strengthening these relationships to maximise road safety for all road users. The National Road Safety Administration Programme Page 92

93 Road policing is a budget item in the Regional Land Transport Plan. Community focused activities have replaced the safety programme. NZTA prepares a National Land Transport Administration Programme that includes the proposed budget for enforcement and safety education by the New Zealand Police. In the process of doing that, it invites comments from the local authorities. Community Based Activities include safety projects. In this way safety programmes are targeted to the needs of the Community. The Council (along with its road safety partners) carefully considers the trends that have been identified in the NZTA s annual safety report, and decides where the available funds and effort should best be targeted. Examples of targeted programmes include: Speed; Alcohol and Drugs; Restraint device control; Visible road safety enforcement; Education. Programmes are designed to be run in conjunction with Police and ACC national safety campaigns. Council will continue to obtain maximum advantage from the assistance available from NZTA. Engineering Programmes Each year, when it is preparing its capital works programme for the ensuing 12 month period, the Council reviews the extent to which provision may have to be made for minor safety works, such as: Curve realignment; Visibility improvements; Improved streetlighting; Shoulder widening; Better signage; Traction improvements; Intersection improvements. SDC undertakes an annual review of the crash data, for developing trends within the year. It is acknowledged that there is a delay between a crash occurring and the records being placed into the Crash Analysis System. To ensure an effective awareness of crashes on the network SDC has developed a network of crash reporters that will act as additional eyes and ears over the network. SDC is undertaking a process to revitalise this system to ensure the earliest notification of a crash on the network. Community Road Safety Programmes The SDC also invites applications each year under its Community Safety Programme. This provides financial assistance to communities to enable them to address their own road safety issues, such as: 'Safe with Age' driving programmes; Child restraint education; Community alcohol programmes; Driver licensing assistance; Page 93

94 Recidivist drink-driver programmes; Early intervention programmes (encouraging safe driving practices); Fatigue education; Briefings for novice drivers and their parents; etc. Roads and Footpaths Activity Management Plan Road Safety Southland manages the support and funding for these programmes, and the programmes themselves are managed by the individual Road Safety Co-ordinators from each Authority. Road safety management is a key aspect of the Council's road controlling responsibilities, and the injury and crash trends are continuously monitored The Land Transport Programme Requirements The SDC Land Transport Programme is incorporated into the Regional Land Transport Programme which fulfils the requirements of the Land Transport Management Amendment Act Improvements In order to better meet both Government requirements, and its own community outcomes, SDC is intending to carry out a series of improvements to assist with Safety for the District as a whole, including more focused examination of safety issues, and setting an example of best practice within its own organisation, including how its contractors address road safety. It is intended that this occurs by the following means: Continue progress towards integration of Safety Management System (SMS) goals into normal working practices. The development of a strong safety culture amongst all parties that transcends contractual boundaries. Formulate and maintain a Road Safety Action Plan for the Southland District. Continue implementation, as funding allows, of the Safe System as contained in Safer Journeys - the NZ Road Safety Strategy and as directed by the Southland District RSAP. Road Safety Audits of projects as defined in the Road Safety Audit Guidelines, and within available budgets. This will ensure that the projects undertaken maximise the safety of the road user Studies and Strategies Activity Description The key strategic documents produced by SDC include the AMP, the District Plan and the Long Term Plan. Council also prepares specialised strategic documents underneath these to support network optimisation through improvements in methodologies and processes. These include the Safety Management System, Deficiency Database and ENP among others. The ENP provides guidance for where to direct and prioritise expenditure on the network from an export receipt perspective Economic Network Plan Economic Hierarchy The following Economic hierarchy is proposed for Southland s road network. This hierarchy is used to aid optimise investment across the network; and it is expected this hierarchy will be used in conjunction with the ONRC based hierarchy. ONRC will still form part of the investment decision-making process. Page 94

95 Hierarchy (ONRC) Interface with nationally significant economic activity (Arterial) District Arterial (DA) (Primary Collector) District Collector (DC) (Secondary Collector) District Local (DL) (Access) Other (Low Volume Access) <500,000 Table 8-1: Economic Hierarchy Roads and Footpaths Activity Management Plan Economic range (export receipts measured as NZ dollars per annum) >120,000,000 60,000,000<DA<120,000,000 5,000,000<DC<60,000, ,000<DL<5,000,000 An economic index from economic values and road investment levels is derived which enables Council to decide where a road sits against optimum and therefore what potential action may be needed in the overall strategy of optimising investment in achievement of LOS. An optimum economic index is set for each hierarchy. Actions or strategic approaches might include: Route optimisation, modal shift, funding source review if road serves minimal local community benefit yet significant economic benefit (at a national level); Changes to road standards if a road is sub-optimal (potential decrease) or super-optimal (potential increase); No change to road if within acceptable range of optimum under future scenarios; Disposal into private hands if of little economic benefit and used by a very small section of the community. These actions are analysed on a case by case basis to ensure local factors are considered before any decisions to change the standard or status of a road are made. Level of Service A principle of the ENP approach is that roads are provided to a standard that does not unnecessarily constrain economic activity, therefore enabling wealth created by economic activity to support the community s ability to afford desired social, cultural and environmental outcomes. The ENP: defines the cost of providing LOS through an annualised amount for maintenance expenditure and depreciation; uses the amount of export receipts conveyed by the road as an indicator of the contribution of that road to the economic wellbeing; identifies the remaining investment in a road as being that required to provide for the remaining wellbeings. Each road is assessed based on the benefits it delivers versus what the annual whole of life investment is, enabling Council to optimise delivery of service outcomes (LOS) for the available level of investment. A basic return on investment ratio determines where a road sits against optimum, and opportunities to change the investment level are examined on a site by site and prioritised way, with the ultimate goal that all roads are at optimum, albeit they may have widely varying engineering standards. The primary drivers on investment in LOS at a road section level are supporting economic activity and safety outcomes, and these are quantified in dollar benefits (export receipts, social cost of crashes). Secondary drivers are social, cultural and environmental outcomes that are not so easily measurable, but are still considered when balancing cost versus benefits. The standards of roads are also considered against their importance for Page 95

96 civil defence and emergency events. Investment in roads is therefore considered as overlapping layers; the overall investment being the extent of the outer layer. Essential ES Lifelines Layer Economic Wellbeing Layer Safety Intervention Layer Social, Cultural, Environmental Wellbeing Intervention Figure 8-4: Economic Network Plan Layers of Importance LOS include safety (crash rates), economic (ENP outputs), social (customer satisfaction complaints) and environmental (compliance with resource consent requirements) aspects. Crash Reduction Studies and Network Safety Studies Crash reduction studies are designed to identify low cost road improvements, road policing and education activities that improve road safety. The NZTA expects that all RCAs will have a regular (though not necessarily annual) programme of crash reduction studies. A crash reduction study or network safety audit will be required over the period of With the Governments focus on Safe Systems, it is essential for SDC to continue its investigations of the crash problems in the District. As part of this improving safety on the network Council plans to continue development of the deficiency database. This will assist in it identifying and prioritising of safety improvements which provide the greatest benefit within the available funds. Page 96

97 9. Financial Summary Roads and Footpaths Activity Management Plan The following section contains financial information for the activity which has been generated from the Council s Fulcrum budget platform as at 24 August All of the financial shown includes inflation (unless otherwise stated). The costs associated with the Roads and Footpaths are included in the Roads and Footpaths Activity Statement in the Council s LTP. The full set of financial assumptions are included in AMP Part A and any activity specific financial assumptions that impact on the activity are listed in Section Year Financial Forecast The following graphs/table summarise the financial forecasts for the activity over the ten years Financial Summary Table 9-1: Roads and Footpath Total Expenditure (District-wide) Page 97

98 Total Income Roads and Footpaths Activity Management Plan Table 9-2: Roads and Footpath Total Income Table 9-3: 30 Year Expenditure Forecasts (from Infrastructure Strategy) 9.2. Financial Forecast Summary Over the last three years there has been a strong focus on returning the Roading Activity into a financially sustainable position. Other than the Alternative Coastal Route the Roading Activity has no plan to draw down any loan. However if a major environmental event (e.g. flooding etc.) were to occur then this is an option if required. It was felt that it was critical to get this business unit into a more financially sustainable position primarily driven by the significant renewal programme (aging network) that is forecasted moving forward. Over the previous three year period roading has maintained a relatively flat lined expenditure programme as well as keeping rates at a level to help repay some of the debt. The first three years of this AMP are to be held in line with the previous with only a minor increase in expenditure primarily due to forecasted bitumen rates for Reseals. Page 98

99 As part of the AMP process, it has been identified that Transport is facing several issues which are likely to strain the funding of the roading asset moving forward. The main challenges are: Councils low population density (1 person per km2) compared to its significantly large network (second largest behind Auckland), creates a relatively high burden rate on our communities. To put this into perspective the roading network has a replacement cost per capita of just under $54,000 per capita or $76,000 per rating unit (both numbers are approximate based on 2016/17 valuation). Aging network and subsequent renewal work over the next 30 years. The changing customer. Heavier vehicles on our network which may increase maintenance and renewal costs. Renewal forecasting and NZTA approval of programmes given the current approach of sweat the asset. These Challenges are well summarised in the diagram below known as the Funnel Effect : Figure 9-3: The Funnel effect 10 year forecasts are presented on the following page. The financial forecasts are in line with forecasted renewal work while utilising the 80/20 principle and does allow for inflation. Using this principle Rehabilitations for the 20% (Primary and Secondary collectors) will be undertaken with an allowance for Access and Low Volume roads that will require rehabilitation due to heavy vehicle activity. This is primarily to drive thinking of different interventions as we are continually looking at ways to get better value for money for our ratepayers. Page 99

100 Table 9-4: Financial Forecast Summary (District-wide) Page 100

101 9.3. Long Term Financial Sustainability A primary driver for this and subsequent AMPs has been to improve the financial sustainability of the network. As stated above SDC has a low population base in proportion to the value of the Asset. Expenditure is likely to escalate in future years primarily driven by the forecasted rehabilitation cycle. It is key priority over the next three AMP to understand the Asset better and to get better predictability of when a rehabilitation intervention will be triggered. Figure 9-5: Long Term Pavement Rehabilitation Projections in 2016/2017 Dollars 9.4. Vested Assets Vested Assets projections were based on assessment of resource consents currently in Southland Districts Council s resource consent process. Identified potential roading assets were identified with the vested asset valued at cost using RAMM data based on geographic area Summary of Key Assumptions Assumptions made in relation to the roading budget forecasts are: Funding provided by NZTA at an effective rate of 51%. All current internal roading debt to be repaid in 20 years. Vested assets based on subdivisions currently in the resource consent process. Interest rate on roading borrowings for each of the 10 years is 4.65% Application of BERL inflation indices where applicable. NZTA to fully subsidise the planned roading programme. What-if Scenarios It is imperative that the roading business unit remains, agile, flexible and resilient to change in order to respond effectively and appropriately to any significant changes. Issue: The 2018/19-20/21 SDC proposed roading programme is potentially not fully subsidised by NZTA. Response: Page 101

102 NZTA has indicated that funding will be constrained in the short to medium term and there is a high possibility that NZTA may not fully subsidise the District s proposed roading programme. Current Council policy is not to carry out work which qualifies for NZTA subsidy unless the appropriate central Government share is approved. If this subsidy shortfall occurs and there is no change in Council policy there will need to be a reduction in expenditure in the District roading programme. Surplus local share, if any, will be used to assist in either repaying internal debt or for unbudgeted work which may occur such as emergency events. The likely impact of reduced NZTA subsidy is a further reduction in the LOS. Issue: Future reductions in the NZTA funding assistance rate in Years 4 to 10. Response: This would have a significant impact in the current 10 year programme, and would likely result in significant changes to either Council s future LOS and / or asset preservation capital expenditure. The response would be that Council would work closely with the Government and NZTA to maximise the NZTA subsidy and look at alternative options to fund the shortfall (rate increases, alternative funding or debt) and/or a further reduction in the roading programme. Issue: Roading costs increase due to external limited control cost factors. eg Bitumen, fuel, labour. Response: These issues would need to be handled by a combination of responses depending on the size of the issue, including seeking more funding (NZTA, ratepayers and loans), reprioritisation of programmes, applying alternative road management measures to manage traffic and damage on the network, reducing LOS. Other financial tools may be explored to help with price certainty such as hedging, fixed cost contracts Valuation Approach Assets are revalued annually on an asset type (component) basis, as at 30 June each year. The values as at the 30 June 2017 are below: Asset Description Replacement Cost Depreciated Replacement Cost Annual Depreciation Land $75,693,086 $75,693,086 $0 Formation $659,356,696 $659,356,696 $0 Sealed Pavement Surface $59,503,938 $29,292,400 $4,529,092 Sealed Pavement $385,455,904 $255,207,895 $3,799,975 Structure Unsealed Pavement $50,835,700 $45,344,753 $2,351,321 Structure Drainage $73,620,804 $39,343,919 $992,326 Surface Water Channels $18,666,054 $10,949,537 $248,953 Footpaths $32,181,401 $17,661,810 $567,222 Traffic Facilities $12,859,638 $6,646,192 $774,856 Retaining walls $9,379,881 $7,208,573 $119,081 Street Lights $3,727,150 $2,156,983 $118,743 Bridges and Culverts $212,996,556 $118,126,442 $2,215,231 Cycle Trail $7,966,858 $7,613,086 $142,976 Total $1,602,243,667 $1,274,601,374 $15,859,775 Table 9-5: Summary of Asset Value as at 30 June 2017 (Note all values have been rounded to the nearest whole number) Page 102

103 9.7. Funding Principles Roads and Footpaths Activity Management Plan Section 102(4) (a) of the Local Government Act 2002 requires each Council to adopt a Revenue and Financing Policy. This Policy must state the Council s policies in respect of the funding of both capital and operational expenditure. Further information can be found in Council s Revenue and Financing Policy. Currently the activity is funded by a mix of rates, NZTA subsidy, other revenue and internal borrowings. There could be consideration to use debt in future years primarily to help fund the renewal programme. Council may consider internal or external funding for improvement projects as it has done for the Alternative Coastal Route project. Footpaths and associated kerbing are generally funded wholly from local rates, as are other streetworks such as amenity streetlighting and litter bins etc, although street cleaning and power are subsidised. An ongoing issue occurs with timing of planning and funding. This primarily driven by Central Government outcomes do not align with Local Government Timelines. Page 103

104 10. Activity Specific Assumptions Roads and Footpaths Activity Management Plan Council has made a number of assumptions in preparing the AMP. Table 10-1 lists the most significant assumptions which relate specifically to the Roads and Footpaths activity. For assumptions which apply across Council refer to AMP Part A. Assumption Type Assumption Discussion Asset Data Knowledge While the Council has asset registers and many digital systems, processes and records, the Council does not have complete knowledge of the assets it owns. To varying degrees the Council has incomplete knowledge of some asset location, asset condition, remaining useful life and asset capacities. This requires assumptions to be made on the total value of these assets owned, the time at which assets will need to be replaced and when new assets will need to be constructed to provide better service. Contractual Table 10-1: Activity Specific Assumptions Current contractual arrangements will continue through the first 3 years of the AMP. The Council considers these assumptions and uncertainties constitute only a small risk to the financial forecasts because: significant amounts of asset data is known; asset performance is well known from experience; there are plans to improve the asset database and continue alternative modelling of various asset types. As more knowledge is gained, a better forecast of capital expenditure will be incorporated into future forecasts. Multiple new long term maintenance contracts were awarded in The tenure of these are based on performance and achieve the required KPI s Below is the data confidence taken from the Asset Valuation which was prepared by Stantec (formerly MWH). Below is the NZ Infrastructure Asset Valuation and Depreciation Guidelines for Data Confidence. Page 104

105 Page 105

106 11. Significant Effects, Risk Management & Quality Assurance Significant Negative Effects Roads and Footpaths Activity Management Plan The significant negative and significant positive effects that the activity may have on the local community are listed is the tables below. Effect Description Mitigation Measure Noise Crashes Street Lighting Air Quality / Dust Table 11-1: Significant Negative Effects Risk Management Noise from traffic can cause a negative environmental effect. The local road network typically has relatively low traffic volumes and noise complaints are restricted to heavy vehicles using local streets at night, and service covers making noise when vehicles travel over them and engine brakes Crashes on the road network are a significant negative effect both economically and socially. In residential areas light spill from street lighting can have a detrimental effect on some properties, and impact on the night sky Vehicle emissions are not considered a significant negative effect due to the low traffic volumes within the district The impact of dust on residences near unsealed roads is of greater significance, Council monitors heavy vehicle use on main urban streets using traffic counters, and considers traffic calming and legislative tools to restrict heavy vehicle use when this is appropriate. E.g. restriction of engine brakes through towns. Council manages this by undertaking an integrated safety management approach to activities on the network. This includes addressing maintenance defects, providing information to road users, providing a community road safety education and awareness program, and undertaking a prioritised site specific safety improvement program where known risks exist. Careful placement of street lights need to be considered to reduce impact. Councils is currently (2017/18) replacing High Pressure Sodium lights with LED lights which will reduce upwards lights spill. Council allows residence who live along gravel roads to apply suitable dust suppressant on the road to help mitigate against negative effects Table 11-2 summarises the key risks associated with this activity. The detailed risk framework and process followed is detailed in the AMP Part A (r/16/8/12686). SDC is in the process of reviewing its risk management approach and the corporate risk framework and register. This will be part of the AM improvement plan. Roads and Footpaths Climate Change Loss of infrastructure due to changing weather such as sea level rise Event - natural disaster causing short term disruption to service provision. Funding / Cost efficiency Inadequate procurement practise Safety Non-compliance with legislation and legal requirements H&S Loss of organisational knowledge due to sudden loss of key activity staff resulting in inefficient of inadequate management or operation. Table 11-2: Activity Risks In the process of cataloguing these site to establish monitoring programme Temporary reinstatement of asset. Use of Contractors / Consultants to provide resourcing support Procurement Policy in place High level of reliance on consultants to assist with reviews Staff training and succession planning will mitigate risk of frequent staff turnover. Continue to identify and monitor site. From this data longer term strategy can be developed on how to deal with at risk assets. Linked with Climate Change Identify sites at greatest risk to establish / ensure network resilience Maintain current approach and use of alliance style maintenance contracts to allow agility and flexibility to adapt quickly to changing network needs Continue to use specialist consultants for major / specialist work while developing internal capability. Identify individual staff needs and formulate appropriate training, in conjunction with consultant assistance until skills at appropriate level. Detailed succession planning to ensure institutional knowledge is retained. Page 106

107 Compliance and Quality Assurance Roads and Footpaths Activity Management Plan The purpose of this section is to demonstrate that a quality assurance process for the development of this AMP has been undertaken to ensure compliance with the requirements of the LGA 2002 and any other applicable requirements. Key asset data and valuation information has been provided from Stantec. Advisian consultants were engaged to carry out a peer review of the AMP using the structure that NZTA is likely to use when evaluating AMPs. The findings from the peer review have been incorporated into the plan where applicable. Page 107

108 12. Asset Management Plan Improvement This section summarises the AM practices (data, systems, processes) applied to AM planning. It assesses the current and desired level of practice in relation to the AMaturity Index 3 and identifies an improvement programme for the next three years Progress against Previous AM Improvement Programme Due to the number of improvements detailed in the previous AMP it is proposed to focus on the highest priority and address these. Items of lower priority will not be progresses until such time as the higher priority items have been addressed Assessing Current and Desired AM Practices Understanding and Defining Requirements The AM Policy Levels of Service and Performance Management Demand Forecasting Asset Knowledge Condition Assessment Current Status Core: Corporate Policy has been prepared, minimum understanding of the policy by staff at this stage. Currently set by customer surveys, local estimates, Council. Top-down approach limits consultation. Issues relating to changing staff meant customer consultation programming was not done adequately. Based on information from SDC Policy planner, and consultant. Generally good asset database, although a lot of institutional knowledge rests with consultant and changing staff makes this an area of vulnerability, particularly if PS contract changes hands this year. Some gaps in knowledge in RAMM. Every two years sealed roads are condition rated. Also maintenance contractors and Community Engineers constantly monitor condition on both sealed and unsealed roads. Future Status and Identified Improvements Intermediate: Annual review with AM team input. Customer consultation needs to be programmed. Investigate whether a methodology for accurately costing changes to LoS can be identified and if so programme this. Conduct focus groups. Improved performance management Identify areas where demand can be researched and where the info will come from, also who will do the research. Suggested areas - forestry, dairy, tourism. Programme industry discussions. Forestry should include both major players such as Southwoods and Rayonier, and small owners. RAMM info needed - culverts, streetlights, deficiencies. More testing/trials such as FWD Presentations from Contractors and AEs combined to capture institutional knowledge. Potentially need more data collection to better identify/monitor trends. Risk Management An extensive list of risks was developed in the previous AMP. Some of these have been addressed in everyday business; however they have not been addressed in a methodical manner. Table 12-1: Understanding and Defining Requirements Risk management section of the AMP will highlight the most critical risks for SDC and define a means of ensuring these are addressed. As high level risks are dealt with lower level risks will be identified and prioritised. 3 NAMS International Infrastructure Management Manual, 2011 Page 108

109 Developing Asset Lifecycle Strategies Operational Decision Making Capital Planning and Decision Making Financial Management Current Status Very budget oriented, Alliance contracts let for total District to allow flexibility within a predetermined budget, with particular emphasis on proactive maintenance such as maintenance and preseal repairs. Prioritised through RAMM initially, based on condition and maintenance costs, then verified on site. A dedicated financial accountant for roading has helped maintain closer control of budgets. Future Status and Identified Improvements Flat line funding will require a higher level of maintenance work with an emphasis on extending the life of existing pavements. Implementation of ENP and ONRC. Further development of dtims and Geosolve work. Planned rationalisation of financial reporting to simplify and automate where possible. Table 12-2: Developing Asset Lifecycle Strategies Asset Management Enablers The AM Team AM Service Delivery AM Information Systems Quality Management Improvement Planning Current Status Staff with limited experience with SDC in general, and with AMP preparation in particular. Current AMP referred to in limited means and by limited staff as considered too large and detailed for easy use. Use RAMM, Crash Analysis System and internal databases Ad hoc, no quality plan in place Current AMP improvement plans only limited completion due to staff and funding constraints, too many future improvements Future Status and Identified Improvements Planned employment of dedicated network asset manager with appropriate skills. More targeted AMP designed to deal short term with immediate issues while ensuring that Council is appropriately enabled for longer term AM. Update areas where data not yet complete - street lighting, culverts, retaining walls Investigate resource implications and what this means to the section, choice between doing a few things with full quality plans or carrying out current improvements as best as can until a higher level of management can be implemented if it can be shown to be necessary or cost beneficial. Review previous improvement plan and revisit projects within scope of current budget and staff constraints. Needs to be in conjunction with a full staff plan, but better carried out when new asset manager employed to assess skills and needs. Table 12-3: Asset Management Enablers Ongoing Monitoring and Review This Plan will be reviewed formally every three years to feed into the LTP and otherwise as required to maintain it to reflect current practices and budgets. Page 109

110 12.4. AM Improvement Plan Improvement Task Priority Problem being addressed Responsibility Resources Timeframe Performance management - understanding of contract measures and H Transport Team December 2018 how to determine value for money and meeting of agreed standards. and Consultant More measures than just those in the AMP, not easily accessible by team to assist in managing contracts. Strategic Transport Manager and Commercial Lead Transport Safety - systematic planning for crash prevention through infrastructure improvement, including safety management system, deficiency database, crash reduction studies and safety audits. H User safety focus as well as contractor compliance, currently developing critical KRA systems as ensuring residents are safe is critical for good programme. Strategic Transport Manager and Roading Asset Engineer Transport Team and Consultant Ongoing (Yearly program by 1 June) Improving of long term programme development including rehabilitations, reseals, bridge renewals and footpaths. H Advancing Programme to one year in advance at 50% per year for first two years of new AMP. Strategic Transport Manager and Commercial Lead Transport Transport Team and Consultant July 2019 Develop/follow up mechanisms to rationalise expenditure on network to keep it affordable and spend in areas of greatest need and benefit. Includes ENP, extent of network, off road bridges, classification and hierarchy of routes, demand management. Need to match LOS to funds and mechanisms as per Council agreement. H Formal council level of agreement made where LOS can be adjusted to be more suitable for programme adjustments and affordability, as does programme design. Strategic Transport Manager and Commercial Lead Transport Transport Team and Consultant July 2019 Improvement of database including condition and related valuation information - culverts, street lighting, footpaths and retaining walls. M Some minor areas of external community invested asset still not fully documented or assessed. Not only essential for extending life of asset, but also for safety needs, in particular retaining wall conditions. Strategic Transport Manager and Commercial Lead Transport Transport Team and Consultant Ongoing Long term asset performance of major assets (asset age management vs performance management) H Do not currently have a long term modelling investment programme to assist with planning work and investment long term strategies. Require long term investment capital strategy to see effect of new funding regime to determine longer term effects. Transport Team and Consultant Transport Team and Consultant December 2019 Work to protect gravel sources and develop value for money procurement strategy to ensure gravel is both economically available and sustainable for transport network intervention and renewals. M Gravel resource expensive and not optimised., Duopoly resulting from Regional Council moratorium on River Gravel sites. Transport Team Transport Team July 2020 Improved staff straining and skills - identify skill gaps and method of up skilling. M Just doing day to day work does not motivate people to remain excited about their work. Growth training with keeping staff engaged and capable. Plus, as job grows, staff training requires formal assistance to step up. As above Transport Team and Consultant Formal Yearly Reviews (July) Quality LOS and RFS integration and Improvement - taking all work to higher level. H Ties in with identifying needs, moving work from Core to Advanced. As above Transport Team and Consultant On going - yearly Review of activity performance Page 110

111 Improvement Task Priority Problem being addressed Responsibility Resources Timeframe Enhance the new District Plan to better define quantity and use of development contributions, stock underpass requirements. Alliance Collaboration Programme with key clients and stakeholders = i.e. Fonterra Network RFS, Government Policy Statement, managing Asset conditions and enhance Safety Feedback. Table 12-4: Improvement Projects Planned in next Three Years M Current development procedures do not meet changing needs. As above Transport Team and Consultant July 2019 M Extend Asset and LOS life. As above Transport Team On going Page 111

112 Appendix A: Community Plans for Locally Funded Activities (Streetworks) General Due to the method of recording expenditure it is not currently possible to break down maintenance expenditure by asset. This is proposed as part of the improvement process. In general, as stated in the main body of the AMP, streetlights are in the process be converted to LED. Other streetworks such as street litter bins are also mentioned if new capital work is proposed, otherwise it may be assumed that the main expenditure is simply maintenance and included in Main-Gen. As Southland District has a large number of small townships it typically means that there is a small number of footpaths for each township. This in turn may result in long periods with little to no renewal works being required. The tables below show the proposed expenditure for each township by activity type. Project Name Chief Executive Improve the Around the Mountains Cycle Trail experience Project Code AMCT Description Type* Year $Amount Funding Source To improve the experience of using the Around the Mountains Cycle Trail as per the Stage 2 business case LOS 18/19 126,208 Loan Edendale-Wyndham Footpath upgrade 633 Upgrade existing footpaths REN 18/19 158,208 Rates & Reserves Lumsden Footpath Replacement 78 replace footpath LOS 18/19 21,752 Loan & Reserves Manapouri Street Lighting Renewal 763 Street Lighting Renewal REN 21/22 22,452 Reserves Starting 14/15 putting $5k to reserves yearly then $20k street light renewals in 17/18, 21/22 etc Street Lighting Renewal 763 Street Lighting Renewal Starting 14/15 putting $5k to reserves yearly then $20k street light renewals in 17/18, 21/22 etc REN 25/26 24,734 Reserves Nightcaps New Footpath along Wamphray Street 789 New Footpath along Wamphray Street approx. 225 linear meter --(Project Driver = CDA Member W Williams ) LOS 22/23 31,008 Rates & Reserves Orepuki Footpath Improvements 805 Footpath Improvements REN 18/19 15,775 Reserves Otautau Footpaths Upgrade 706 Footpaths Upgrade REN 18/19 12,800 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 19/20 12,996 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 20/21 13,282 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 21/22 13,574 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 22/23 13,886 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 23/24 14,219 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 24/25 14,575 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 25/26 14,954 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 26/27 15,343 Rates & Loan Footpaths Upgrade 706 Footpaths Upgrade REN 27/28 15,757 Rates & Loan Page 112

113 Project Name Riversdale New footpath along Berwick Street from York Road to Kent St Project Code Roads and Footpaths Activity Management Plan Description Type* Year $Amount Funding Source 861 New footpath along Berwick Street from York Road to Kent St LOS 18/19 29,000 Reserves New street lighting 814 New street lighting LOS 18/19 5,000 Reserves New footpath along Berwick Street from Kent St to Berwick 862 New footpath along Berwick Street from Kent St to Berwick LOS 22/23 25,662 Loan & Reserves Riverton/Aparima New Flag track system RW001 Install pulley system flag poles to LOS 18/19 10,000 Reserves reduce the cost which PowerNet charges to change the flags. Footpaths 717 Footpaths upgrade REN 18/19 50,479 Rates Streetlight Renewal 776 Annual amount for streetlight LOS 19/20 5,374 Rates Renewal New Dump Station 852 Bath Road - Kauango Street LOS 19/20 17,885 Rates Footpaths 717 Footpaths upgrade REN 19/20 51,590 Rates Footpaths 717 Footpaths upgrade REN 20/21 52,725 Rates Streetlight Renewal 776 Annual amount for streetlight LOS 21/22 5,613 Rates Renewal Footpaths 717 Footpaths upgrade REN 21/22 53,884 Rates Footpaths 717 Footpaths upgrade REN 22/23 55,124 Rates Streetlight Renewal 776 Annual amount for streetlight LOS 23/24 5,880 Rates Renewal Footpaths 717 Footpaths upgrade REN 23/24 56,447 Rates Footpaths 717 Footpaths upgrade REN 24/25 57,858 Rates Streetlight Renewal 776 Annual amount for streetlight LOS 25/26 6,183 Rates Renewal Footpaths 717 Footpaths upgrade REN 25/26 59,362 Rates Footpaths 717 Footpaths upgrade REN 26/27 60,906 Rates Streetlight Renewal 776 Annual amount for streetlight LOS 27/28 6,515 Rates Renewal Footpaths 717 Footpaths upgrade REN 27/28 62,550 Rates Stewart Island/Rakiura New walking track horseshoe Bay Road part 1 new car parking area on Argyle St from the school accessway to the medical centre, including upgrade of 2 stormwater manholes on this piece of land New walking track horseshoe Bay Road part 2 New walking track horseshoe Bay Road part New walking track horseshoe Bay Road part new car parking area on Argyle St from the school accessway to the medical centre, including upgrade of 2 stormwater manholes on this piece of land 809 New walking track horseshoe Bay Road part New walking track horseshoe Bay Road part 3 Te Anau CCTV in town 1729 Install some CCTV cameras in town and playgrounds like skatepark, toilets etc Improve signage around town 1726 Improve signage around town including directional signage to Ivon Wilson park and airport. also for events centre carpark and campervans etc and link to CBD $10k/yr over 3 years new footpath walkways 1724 upgrade and complete footpaths in streets such as Aparima Dr and Sandy Brown Rd and add a footpath along Oraka St Seal Whitestone road to Lynwood cemetery Improve signage around town 1728 Seal Whitestone Rd to the Lynwood Cemetery, option Otta Sealing, unknown if roading will fund any component 1726 Improve signage around town including directional signage to LOS 18/19 52,583 Grants DEM 18/19 30,420 Reserves LOS 19/20 53,740 Grants LOS 20/21 54,922 Grants LOS 18/19 10,000 Reserves LOS 18/19 10,000 Reserves DEM 19/20 51,100 Reserves LOS 19/20 173,740 Reserves LOS 19/20 10,220 Reserves Page 113

114 Project Name Improve signage around town Project Code Roads and Footpaths Activity Management Plan Description Type* Year $Amount Funding Source Ivon Wilson park and airport. also for events centre carpark and campervans etc and link to CBD $10k/yr over 3 years 1726 Improve signage around town including directional signage to Ivon Wilson park and airport. also for events centre carpark and campervans etc and link to CBD $10k/yr over 3 years Street Lighting 769 Street Lighting allowing for $20k/yr to upgrade street lighting from pole replacements to LED lamps Street Lighting 769 Street Lighting allowing for $20k/yr to upgrade street lighting from pole replacements to LED lamps Thornbury Kerb & Channel Foster Road Wallacetown Investigate solutions to Dunlop/Daley St intersection Investigate solution in Largs St road LOS 20/21 10,445 Reserves REN 21/22 84,133 Reserves REN 25/26 84,133 Reserves 806 Kerb & Channel Foster Road LOS 19/20 48,365 Loan & Reserves 859 Investigate solutions to Dunlop/Daley St intersection 860 to find a solution to the Makarewa river cutting into Largs St road O&M 21/22 5,337 Reserves O&M 27/28 6,196 Reserves Winton Concrete kerbs 720 Concrete kerbs LOS 18/19 10,000 Rates & Reserves Footpath reclamation & 804 Footpath reclamation MAINT 19/20 10,748 Reserves lichen spray PLAN Concrete kerbs 720 Concrete kerbs LOS 19/20 6,449 Rates & Reserves Concrete kerbs 720 Concrete kerbs LOS 20/21 6,591 Rates & Reserves Footpath reclamation & 804 Footpath reclamation MAINT 21/22 11,227 Reserves lichen spray PLAN Concrete kerbs 720 Concrete kerbs LOS 21/22 6,736 Rates & Reserves Concrete kerbs 720 Concrete kerbs LOS 22/23 6,891 Rates & Reserves Footpath reclamation & 804 Footpath reclamation MAINT 23/24 11,760 Reserves lichen spray PLAN Concrete kerbs 720 Concrete kerbs LOS 23/24 7,056 Rates & Reserves Concrete kerbs 720 Concrete kerbs LOS 24/25 7,232 Rates & Reserves Concrete kerbs 720 Concrete kerbs LOS 25/26 7,420 Rates & Reserves Footpath reclamation & 804 Footpath reclamation MAINT 25/26 12,368 Reserves lichen spray PLAN Concrete kerbs 720 Concrete kerbs LOS 26/27 7,613 Rates & Reserves Concrete kerbs 720 Concrete kerbs LOS 27/28 7,819 Rates & Reserves Footpath reclamation & 804 Footpath reclamation MAINT 27/28 13,032 Reserves lichen spray PLAN Woodlands Walking Track km track along Woodlands LOS 18/19 3,000 Reserves Mortain Mains Road near town boundary to Kingswood Bush Reserve - edging of existing walking track Walking Track km track along Woodlands Morton Mains Road near town boundary to Kingswood Bush Reserve - edging of existing walking track LOS 19/20 3,000 Reserves Page 114

115 Project Name Kerb & Channel East side of Flemington Rd Railway track to the creek Roads and Footpaths Activity Management Plan Project Code Description Type* Year $Amount Funding Source 849 Kerb & Channel East side of LOS 19/20 35,000 Reserves Flemington Rd Railway track to the creek LOS 20/21 3,000 Reserves Walking Track km track along Woodlands Morton Mains Road near town boundary to Kingswood Bush Reserve - edging of existing walking track Walking Track km track along Woodlands Morton Mains Road near town boundary to Kingswood Bush Reserve - edging of existing walking track LOS 21/22 3,000 Reserves Page 115

116 Appendix B: Footpath Lengths, Construction and Condition Roads and Footpaths Activity Management Plan A basic rating system of 1 to 5 is proposed for footpaths. The condition of each township will be reported and aggregated to provide a district score. Township Length (m) 16/17 Area (m2) 16/17 Replacement Cost ($) 16/17 BALFOUR 3,375 5,320 $573,190 Concrete 2,780 4,674 $469,687 Interlocking blocks $103,502 BROWNS 552 1,184 $34,780 Asphaltic concrete (black) $21,729 Metal $13,050 CENTRE BUSH $3,615 Metal $3,615 COLAC BAY 1,770 3,201 $262,831 Asphaltic concrete (black) 1,099 2,290 $171,218 Concrete $91,614 DIPTON 410 1,842 $134,377 Asphaltic concrete (black) 147 1,058 $79,081 Concrete $51,294 Metal $4,002 EDENDALE 10,036 19,235 $1,605,982 Asphaltic concrete (black) 834 1,693 $126,615 Concrete 7,078 14,050 $1,411,977 Metal 1,343 2,395 $34,983 Metal.With Timber Edging 781 1,097 $32,407 FAIRFAX $15,703 Asphaltic concrete (black) $15,703 GORGE ROAD $35,299 Page 116

117 Township Length (m) 16/17 Area (m2) 16/17 Replacement Cost ($) 16/17 Asphaltic concrete (black) $19,965 Concrete $10,974 Metal $4,360 LUMSDEN 3,514 8,039 $617,459 Asphaltic concrete (black) 798 2,053 $153,533 Concrete 1,824 3,712 $373,089 Interlocking blocks $63,424 Metal 659 1,877 $27,413 MANAPOURI 8,457 12,113 $877,948 Asphaltic concrete (black) $13,489 Concrete 5,385 8,035 $807,542 Metal 2,936 3,897 $56,917 MONOWAI $43,214 Concrete $43,214 MOSSBURN 3,812 5,743 $548,998 Asphaltic concrete (black) $24,317 Concrete 3,495 5,187 $521,323 Metal $3,358 NIGHTCAPS 4,571 9,347 $840,944 Asphaltic concrete (black) $5,242 Concrete 4,182 8,152 $819,280 Metal 355 1,124 $16,423 OHAI 5,448 9,709 $955,224 Asphaltic concrete (black) $2,722 Concrete 5,267 9,375 $942,209 Metal $2,191 Seal $8,103 OREPUKI 914 1,608 $142,582 Asphaltic concrete (black) $55,138 Concrete $87,443 OTAUTAU 11,965 22,175 $2,150,381 Asphaltic concrete (black) 1,344 3,013 $225,309 Concrete 10,470 18,768 $1,886,136 Interlocking blocks $36,508 Metal $2,428 RIVERSDALE 2,969 5,304 $502,228 Asphaltic concrete (black) $54,121 Concrete 2,574 4,438 $446,040 Page 117

118 Township Length (m) 16/17 Area (m2) 16/17 Replacement Cost ($) 16/17 Metal $2,067 RIVERTON 20,855 31,678 $2,438,754 Asphaltic concrete (black) 2,601 6,602 $493,688 Concrete 12,994 17,405 $1,749,158 Grass $0 Interlocking blocks $10,248 Metal 2,670 4,128 $60,292 Metal.With Timber Edging 2,109 2,297 $67,857 Seal $54,682 Wooden Board walk $2,830 STEWART ISLAND 1,430 2,300 $265,096 Concrete $46,390 Interlocking blocks 576 1,154 $184,844 Metal $1,364 Seal $32,499 TE ANAU 66, ,262 $11,649,943 Asphaltic concrete (black) 11,182 19,305 $1,443,482 Concrete 48,154 78,204 $7,859,325 Interlocking blocks 7,044 14,521 $2,325,133 Metal 423 1,133 $16,553 Seal $5,449 THORNBURY 845 1,266 $127,241 Concrete 845 1,266 $127,241 TOKANUI 850 1,865 $103,171 Asphaltic concrete (black) $36,834 Concrete $3,919 Metal $3,971 Seal 470 1,062 $58,447 TUATAPERE 9,302 16,805 $1,593,271 Asphaltic concrete (black) 543 1,606 $120,050 Concrete 8,430 14,527 $1,459,884 Interlocking blocks 8 24 $3,859 Metal $9,478 WAIANIWA $20,703 Concrete $20,703 WAIKAIA 672 1,493 $135,446 Asphaltic concrete (black) $25,962 Concrete $73,163 Interlocking blocks $20,303 Seal $16,018 Page 118

119 Township Length (m) 16/17 Area (m2) 16/17 Replacement Cost ($) 16/17 WAIKAWA $3,383 Metal $3,383 WAIRIO $79,685 Concrete $79,685 WALLACETOWN 1,888 3,365 $315,339 Asphaltic concrete (black) $52,708 Concrete 1,606 2,605 $261,827 Metal $803 WINTON 30,522 65,955 $3,839,400 Asphaltic concrete (black) 13,680 29,713 $2,221,737 Concrete 3,759 7,103 $713,797 Dense Graded Emulsion Mix 2,135 4,716 $352,649 Interlocking blocks $108,354 Metal 9,726 21,372 $312,158 Seal 988 2,375 $130,704 WOODLANDS 2,659 3,866 $123,936 Asphaltic concrete (black) $23,053 Concrete $39,184 Metal 2,078 2,701 $39,454 Metal.With Timber Edging $3,970 Seal $18,275 WYNDHAM 10,647 23,211 $2,092,469 Asphaltic concrete (black) 2,719 6,973 $521,369 Concrete 7,389 15,228 $1,530,404 Metal $5,379 Seal $35,317 Grand Total 206, ,677 $32,132,589 Page 119

120 Appendix C: Road Safety Overview Roads and Footpaths Activity Management Plan Communities at Risk Register 2017 This is a ranking based upon personal risk using fatal and serious crash data from the Transport Agency s Crash Analysis System (CAS). Personal risk is a count of deaths and serious injuries (DSI) divided by distance or time travelled. This is used to highlight areas where a crash is more likely to occur based on use of the road network. Because personal risk is not affected by population size, personal risk is one way of making crash measures comparable between local authorities. Collective risk are the average annual DSI counts based on the latest five year data ( ). This is used to show where the biggest difference can be made in terms of absolute numbers of death and serious injuries. Collective risk is affected by population. Below I have graphed the fourteen strategic areas of concern from Safer Journeys. Both personal and collective risk are plotted for the three Southland Territorial authorities (Southland, Invercargill and Gore) along with Southland Regional data. The national mean data for personal risk is plotted to see how southland compares. Page 120