Highway maintenance plan

The planning and delivery of services will be integrated within the wider aims and objectives of the corporate vision and coordinated with other business objectives. This is crucial in ensuring a high quality service that offers good value for money to the people of Hartlepool.

2.1 Strategic objectives

In developing the vision for Hartlepool the Council has identified the Community Strategy themes as follows;

• Jobs and the Economy
• Lifelong Learning and Skills
• Health and Care
• Environment and Housing
• Culture and Leisure
• Strengthening Communities

We can contribute to achieving the Council objectives by focusing on the achievement of four specific objectives.

The four objectives are: -

• to keep the highway network safe and well maintained at all times of the year
• to reduce congestion on the network by co-coordinating the works programmes of all those organisations affecting the network
• to apply the principles of Local Agenda 21 via the increased use of low noise surfacing, recycled materials and by the adoption of a whole life costing strategy for treatment identification and selection
• to manage and monitor service performance and improvement through the effective use of performance management tools

These objectives will form the basis in the development of policy and strategy, however four other elements shall also be taken into consideration: - Integrated Transport Strategy, Best Value principles including Promoting Continuous Improvement, Risk Management principles and Legislation.

The theme of strategic policy integration is continued in Government transport policy. The 10-year plan for transport, although now elapsed, was intended to support and contribute to long term Government objectives within which highway maintenance was to be championed within this Plan.

Although highway maintenance is a contributory element to some of the objectives and targets in the Plan, the key objectives will be:

• better road and footpath conditions
• reduced casualty numbers
• reduced noise
• enhanced personal safety

The Hartlepool Highway Maintenance Plan will endeavour to achieve these objectives by

• progressing longer term, non-adversarial and sustainable contracts
• seeking opportunities to Invest to save
• seeking funding from other organisations for Crime reduction and environmental improvements
• working with all partners to deliver additionality to projects
• improving public perception of road works by early informative consultation with all stakeholders
• Highway Management Policies and objectives based on the recommendations within the new Codes of Practice
• basing priorities on reviewed hierarchies, technical requirements and whole life costing
• maintaining accurate and updated inventory details, necessary for asset management valuation
• informing developers of sustainable requirements
• applying Environmental Management Strategy throughout to save energy and mitigate effects of climate change

Highway maintenance policy should be developed integrally with the overall management of the network so that the whole is managed holistically to provide consistent and appropriate levels of service through all the modes of transport and their constituent activities. It is essential that consistency exists across all the service boundaries.

Managing highway maintenance needs to be consistent with arrangements for managing an authority's wider asset base such as land and property set within the context of an asset management regime. The key principles of asset management are:

• focus on lifecycle costing
• management strategies for the long term
• establishing and monitoring levels of service
• managing risk of failure or loss of use
• sustainable use of physical resources
• continual improvement.

2.2 Integrated transport strategy

In accordance with the requirements of the Local Transport Plan guidance the Council has prepared a Local Transport Strategy for Hartlepool. This sets out details of how transport can contribute towards the longer term (10-15 years) vision for Hartlepool.

To ensure that the Transport Strategy and the LTP puts transport users' priorities at the heart of these services a series of public meetings have been undertaken. These meetings have promoted a close understanding between the public and council as to what are the key transport issues in the town.

There are a number of challenges raised by these consultations and these have been distilled into four objectives.

Objectives

Delivering Accessibility

• to reduce the barriers to accessing employment, education and training and health care
• to support the location of new development and provision of services that reduce the need to travel

Safer Roads

• to reduce the incidence and severity of personal injury road crashes
• to increase personal safety and security whilst travelling

Tackling Congestion

• to encourage more sustainable modes of travel, especially in urban areas
• to maintain, improve and make more efficient use of the existing transport network

Better Air Quality

• to control and maintain local air quality

The transport strategy supports the aims of the emerging LDF in promoting Hartlepool's economic and social development and improving the environment, and is in line with other corporate policies.

2.3 Delivering best value

From 1 April 2000 the duty of Best Value was placed on local authorities in respect of the funding, procurement and delivery of all services. It requires authorities to:

• ensure that services are responsive to the needs of the community not the convenience of service providers
• secure continuous improvement in the exercise of all functions, whether statutory or not, having regard to a combination of economy, efficiency and effectiveness.

The Government stated that Best Value could lead to "genuine and long term improvements in the social, economic and environmental wellbeing of communities", which is reflected by the requirement to produce a community strategy.

The principles of Best Value are particularly relevant to highway maintenance for the following reasons:

• highways are a major public asset highly valued by the community
• maintenance attracts a high level of public interest and concern
• performance indicators have historically been difficult to quantify
• there has tended to be no robust framework for local comparison
• there has been an inefficient approach to whole life costing
• there is a wide and developing range of service delivery options.

Best Value has developed through the process of Comprehensive Performance Assessment (CPA) which focuses on the corporate and service performance of the authority, promising greater flexibility in return for performance improvement. The involvement of highway users and the community during a Best Value consultation exercise is both desirable and relevant and is essential in generating understanding in order to pursue Best Value. Consistency of standards is also an important element in delivering Best Value. There must be consistent standards demonstrated by the Council and, moreover, there should also be reasonable consistency with the networks maintained by housing authorities or other agencies. The Council has adopted a standard computer system throughout to record inspections, which can then be assessed by insurance/legal services to deal with claims.

Best Value reviews are built on the 4 C's (Challenge, Compare, Consult and Compete) and each of these must be fully examined and incorporated into the process. Authorities need to show that for every review their process is:

1. Challenge - How and why are particular services being provided. Are we doing it right?
2. Compare - The Council's performance against other authorities.
3. Consult - Investigate the communication channels held between the council and service users.
4. Compete - Ensure that all services are open to fair competition.

It is important that reviews should

1. identify all areas of interaction of highway maintenance with each of the key corporate objectives of the Council
2. investigate and pursue added value when opportunities arise through these interactions and ensure sustainability is considered throughout.
3. investigate and resolve conflicts which arise through these interactions.

The goal of Best Value to secure continuous improvement will only be effective in an organisation that is able to embrace change, encourage risk and innovation, and is able to learn from both its successes and failures. As continuous improvement will be measured through performance indicators, benchmarking and targets, these will clearly need to be appropriate and meaningful.

The authority embraces the principles of competition in procuring the delivery of services taking into account both price and quality. Comparison and consultation shall be exercised to ensure efficiency.

The Council's Standards and Policies are being developed through consultation and will take into account local needs. Information on these is being made available through the Council's website. The website is also being developed to show information on both authority and utility road works, which will help to alleviate inconvenience and disruption. Procedures are also in place to manage all calls to the council, via Hartlepool Connect.

The Council and service providers embrace the requirements of equal opportunity, and the philosophy of "investors in people" processes including appraisal, training and development.

2.4 Risk management

Risk management is defined as "The identification, measurement, control and financing or risks, which threaten the existence, the assets, the earnings or the personnel of an organisation or the services it provides." Risk management is recognised as an integral part of good management practice. The process of risk management consist of steps, which when undertaken in sequence, enable continual improvement in decision making.

The main elements of the risk management process will consist of the following:

• Establish the context — the strategic, organisational and risk management context.
• Identify risks — what, why and how things can arise.
• Analyse risks — consider the range of potential consequences and how likely those consequences are to occur.
• Evaluate risks - compare and rank the level of risks so as to identify management priorities.
• Treat risks — develop and implement specific management plan to control or reduce the impact of the risks.
• Monitor and review — monitor and review the performance of the risk management system and changes, which might affect it.
• Communicate and consult - at each stage of the risk management process communicate and consult with both internal and external stakeholders concerning the process as a whole.

The sources of risk are divided into two broad categories:

• Strategic — these are hazards and risks which relates to medium to long term goals and objectives of the authority. Such risk may be political, economic, social, technological, legislative, environmental, competitive and customer / citizen / stakeholder.
• Operational — these are hazards and risks which managers will encounter in the work on a day by day basis, such as financial, legal, physical, contractual, technological or environmental.

In regard to highway liability, highway authorities have an absolute duty to maintain highways pursuant to S 41 of the Highways Act 1980 although a "special defence" exists under S58 of the Act. This allows authorities to successfully defend actions arising from accidents that occurred due to the condition of the highway where the authority can demonstrate it acted "reasonably". Clearly risk management is an integral element of being able to demonstrate reasonableness. All highway maintenance activities, whether the management or the operation, should be undertaken against a clear and comprehensive understanding and assessment of the risks and consequences involved. The highest profile risks affecting the highway maintenance service are those relating to the safety of the network and accident, injury or health risks to users including employees.

There is a wide range of other risks relating to network serviceability and sustainability including:

• network loss or serious failure
• operational
• environmental
• financial
• contractual.

The understanding and management of risk is fundamental to the effective management of highway maintenance. Risk assessment is fundamentally the structured and systematic expression and recording of collective good judgment based on the best available data.

2.5 Legislation 

Much of highway maintenance activity is based upon statutory powers and duties contained in legislation and precedents developed over time as a result of claims and legal proceedings. It is crucially important that all those involved in highway maintenance, including Council Members, have a clear understanding of their powers and duties, and the implications of these.

Even in the absence of specific duties and powers, authorities have a general duty of care to users and the community to maintain the highway in a condition fit for its purpose. This principle should be applied when developing policy and strategy.

In addition to a general Duty of Care, there are a number of specific pieces of legislation which provide the basis of powers, duties, and responsibilities relating to Highway Maintenance, regulating the environmental affects of operations, and Health and Safety:-

• The Highways Act 1980
• The New Roads and Street Works Act 1991
• Road Traffic Regulations Act 1984, and the Traffic Signs and General Directions 2016
• Road Traffic Act 1991
• Road Traffic Reduction Act 1997
• The Local Authorities (Transport Charges) Regulations 1998
• The Transport Act 2000
• Traffic Management Act 2004
• Railways and Transport Safety Act 2003
• National Parks and Access to the Countryside Act 1949
• Countryside Act 1981
• Wildlife and Countryside Act 1981
• The Environmental Protection Act 1990
• The Weeds Act 1959
• Ragwort Control Act 2003
• Rights of way Act 1990
• Countryside and Rights of Way Act 2000
• European Water Framework Directive 2000
• The Clean Neighbourhoods and Environment Act 2005
• The Environmental Assessment of Plans and Programmes Regulations 2004
• The Health and Safety at Work Act 1974
• Management of Health and Safety at Work Regulations 1992

Construction (Design and Management) Regulations 1994

There is also further legislation, not specifically related to highways, street and traffic functions, but dealing with wider community issues that may affect the service we provide: -

• Crime and Disorder Act 1998 (Section 17)
• Disability Discrimination Act 1995
• Criminal Justice and Public Order Act 1994
• Human Rights Act 1998
• Freedom of Information Act 2000
• Local Government Act 2000
• Civil Contingencies Act 2004

In the development of policy and strategy the first priority will always be to ensure compliance with our statutory duties and fulfilling our duty of care.