Highway maintenance plan

10.1 Benchmarking

Benchmarking is a fundamental element in the delivery of Best Value as it enables comparisons to be drawn in respect of the performance of local authorities. It is a stimulus to continuous improvement and provides the means for achieving the "compare" element of the 4Cs of Best Value reviews.

The two main types of benchmark that need to be addressed in terms of achieving Best Value are:

• data benchmarking which involves the use of inputs and/or outputs for comparing performance, very often cost or measurement related
• process benchmarking which is a means of comparing and measuring processes, sequences or activities involved in service delivery with those of other organisations to identify how existing methods can be improved.

The participation of an authority in a benchmarking network (or club), which is both suitable and appropriate for its needs, is a recommended component in enabling performance to be properly measured and compared. It will also assist in promoting targets that stretch the organisation, but are both achievable and meaningful, and can demonstrate continuous improvement.

Tees Valley Highway Authorities are developing a benchmarking group and it is proposed to take account of the recommended performance indicators as stated in Appendix F of the Code of Practice.

10.2 Performance indicators and targets

In order to demonstrate continuous improvement, performance has to be continually measured and this is undertaken through performance indicators, standards and targets which are defined as follows:

• Performance Indicator — the measure of performance in exercising a function
• Performance Standard — the minimum acceptable level of performance in the exercise of a function and measured by reference to a performance indicator for that function
• Performance Target — the level of performance in the exercise of a function that is expected to be achieved over a minimum period of a year and measured by reference to a performance indicator for that function.

In respect of Best Value, performance can be measured through four basic methods:

• Input — the resources (human, material or financial) utilised in delivering the function or service
• Process — the methodology and procedure of committing the resources in the pursuit of fulfilling the function
• Output — the resultant effect (often numerical) of completing the process with the resource input
• Outcome — the ultimate impact on the community and the best way of measuring performance.

Targets should be set for every indicator, and for each indicator set for a minimum period of one year, with an optimum period of five years, as all services have to be reviewed every five years. Moreover, in regard to national indicators, Government targets for some, such as those reflecting cost-efficiency and quality, are being set such that authorities will have to reach, within a period of five years, the performance level of the top 25% of authorities at the time the targets were set.

In order for continuous improvement to take effect, the basic processes involving management, procurement and service delivery mechanisms require improvements in outputs, which will lead to improved outcomes in the Best Value performance indicators. Types of indicator that could fulfil the criteria for measuring performance are:

• Best Value Performance Indicators (BVPIs)
• Local Performance Indicators
• general management (processes, procedures, support services)
• project management (time, quality, cost)
• client arrangements
• consultants (in-house, externalised, external)
• contractors (in-house, externalised, external).

In Hartlepool, performance indicators relevant to the highway maintenance service are as follows:

• BVPIs
• Engineering Consultancy Indicators
• Local Performance Indicators

10.3 National performance indicators

The national best value performance indicators are set by Government and those reflecting service delivery are specified by DfT. Authorities have to measure all the indicators relevant to the service they provide, although the targets themselves are set locally by the authorities after taking account of Government guidance.

In order to ensure the best value performance indicators give a balanced view of performance, the Government has adopted five "dimensions" of performance.

These are:

• strategic objectives: why the service exists and what it seeks to achieve
• cost/efficiency: the resources committed to a service and the efficiency with which they are turned into outputs
• service delivery outcomes: how well the service is being operated in order to achieve the strategic objectives
• quality : the quality of the services delivered, explicitly reflecting users' experience of services fair access together with ease and equality of access to services
• fair access: ease and quality of access to services.

The National Indicators (NI) that are applicable to highway maintenance are as follows:

• NI168 Condition of Principal Roads — derived from SCANNER survey
• NI169 Condition of Non-Principal Classified Roads — derived from SCANNER survey
• local indicator Condition of Unclassified Roads — derived from coarse visual inspection survey

10.4 Levels of service

What are Levels of Service?

Levels of service describe the quality of services provided by the asset for the benefit of the customers. They are composite indicators that reflect the social, economic and environmental goals of the community and are therefore the manner by which the highway authority engages with the customer and are about reflecting the customer’s interests in terms that can be measured and evaluated.

Levels of service are a way in which a highway authority can determine whether or not it is meeting customer expectations and its statutory obligations in the delivery of its highway service.

Factors affecting levels of service are:

Customer expectations

The purpose of any actions taken by the highway authority are in the interests of its customers. Their views should therefore be considered when developing levels of service. This means more than simply surveying areas of interest and levels of satisfaction. It also means being able to demonstrate a tangible link between customer preferences and the levels of service provided.

Ultimately this may mean consideration of customers preferences. For example, consider whether or not customers are prepared to pay more for a higher level of service on verge maintenance rather than the condition of footpaths. This type of consultation will take place when costed alternative options are available on which to consult.

Legislative requirements

Statutory duties apply to many highway maintenance activities. These are often not absolute, but put the onus on authorities to demonstrate they have taken “reasonable” actions to maintain the highway.

This plan identifies the key legislation that a highway authority must adhere to and identifies how they impact on the levels of service which councils are required to provide as a statutory minimum.

These statutes are open to a degree of interpretation and in developing service options a legislative minimum has been identified.

Best practice guidelines

A number of best practice guidelines exist that directly influence the levels of

service provided. Whilst these best practice guidelines are not statutory duties they do represent a description of accepted good practice and can, for example, form part of a reasonable defence against a liability claim if the authority is able to demonstrate compliance with them.

The main documents relevant to this plan are:

• Well Maintained Highways – Code of Practice for Highway Maintenance Management
• Well-Lit Highways – Code of Practice for Road Lighting Management
• Management of Highway Structures – A Code of Practice

The plan will typically identify where these codes are being applied and in instances where they are not being adopted, the rationale behind the decision not to apply the guidance given in the codes will be clearly stated.

Affordability

The service options described below identify, amongst others, an economically optimum level of service which is the most efficient way of delivering an acceptable level of service over the long term. Due to other pressures on Council funding and other pressures on the network it may not be possible to deliver the funding required to deliver the optimum solution. This is one of the primary reasons for presenting service options. In doing so decision makers will be able to decide upon the relative merit of competing funding needs based upon improved data on both existing and predicted future performance, risk and cost.

What is the current level of service?

The Levels of Service describe the quality of the service provided to the asset for the benefit of the customer. These are composite indicators that represent the social, economic and environmental goals of the community. Levels of service are therefore the manner by which the Council, as highway authority engages with the customer and are about reflecting the customer’s interests in terms that can be measured and evaluated.

The summary table below is formed from a matrix of feeder tables which indicate the current Level of Service that the council provides They will be updated annually upon receipt of the latest information from various sources.