Highway maintenance plan

3.0 Maintenance strategy and hierarchy

3.1 Principles and objectives

Highway maintenance will be undertaken with a systematic logical approach based upon a strategy developed in accordance with the principles of Best Value. Delivery of the strategy is dependent on the relationship between LTP , "Well-maintained Highways Code of Practice for Highway Maintenance Management", and the CSS Framework for Asset Management and the delivery of the operational aspects of maintenance. The principles of the strategy are:

to deliver the statutory obligations of the Council
to be responsive to the needs of users and the community
to provide effective management of the highway network and maintain the asset value
to support effective delivery of the statutory network management duty
to support and add value to local transport objectives
to support and add value to wider policy objectives.

The service provided by the infrastructure shall in future be coordinated within the Councils Transport Asset Management Plan (TAMP), which is available on the Councils website..

These principles are incorporated into the maintenance regime with the three core objectives of:

network safety
network serviceability
network sustainability.

These core objectives are to be set within a comprehensive asset management regime based on:

effective risk management
needs based budgeting
competitive service delivery management.

These objectives will also provide the basis for establishing the outcomes with which performance can be measured. The framework, upon which both performance and continuous improvement can be measured, essential for Best Value requirements, is through the development of appropriate performance indicators, benchmarking and targets. These are discussed later in the document.

The component elements of the strategy are:

a detailed inventory of all relevant components to be maintained
a defined hierarchy for all elements of the network
a robust framework of levels of service linked to core objectives.

For the strategy to operate effectively, these key elements need to be supported by:

a comprehensive management system for inspecting, recording, analysing prioritising and programming maintenance works so as to optimise their asset management condition.
a risk management strategy clearly identifying and evaluating the risks and consequences of investment decisions and measures to mitigate them.
arrangements to finance, procure and deliver maintenance works in accordance with the principles of sustainability and Best Value
arrangements to monitor, review and update as necessary, each component of the strategy and the performance of the strategy as a whole in delivering the core objectives.

A further key principal is that the strategy should support and add value to the Council's wider corporate objectives of:

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

The maintenance strategy will be incorporated into all other highway activities in order for proper co-ordination to occur, thereby ensuring that future maintenance needs are fully considered. In this regard, a maintenance audit process will be set up and will include some or all of the following items for all highway schemes:

what is the estimated design life?
is this design life compatible with the adjacent infrastructure?
are the design and materials suitable for the predicted traffic use?
can the materials be readily replaced throughout the design life?
can the materials be satisfactorily re-laid after utility works?
are the materials liable to fading or discolouration?
can the surfaces be cleaned?
can the infrastructure be easily accessed for maintenance purposes?
could tree planting be redesigned to avoid future obstruction to signs or visibility and consequent maintenance requirements whilst maintaining compatibility with the urban environment?

3.2 Maintenance management system

A computerised maintenance management system is an essential tool in managing the large volumes of data associated with the highway network together with modelling analytically the needs, options and priorities for maintenance strategies and programmes. These systems are known as Management Information Systems.

The current system adopted in Hartlepool uses the "CONFIRM" suite of Management Information Systems which holds all Coarse Visual Inspection (CVI), Detailed Visual Inspection (DVI) and (Surface Condition Assessment of the National Network of Roads (SCANNER) survey condition data, in addition to all Highway Inventory.

In addition to the highway maintenance information the system also holds street lighting inventory and corresponding maintenance information.

Hartlepool condition and asset data is provided by both machine and visual surveys in accordance with national guidelines and specifications.

The current requirements for data collection are as follows, however these survey standards can change in line with national guidelines.

Scanner

Principal A roads 100% of network— annual survey

Non Principal B roads 100% of network — annual survey

Non Principal C roads 100% of network — annual survey

Grip tester (Skid Testing) - annual cycle which covers 100% of the principal network

Coarse Visual Inspection (CVI)

CVI surveys are carried annually out on all roads within the network excluding unsurfaced roads. The survey is also used to target carriageway schemes submitted for the 5 year programme. Currently Hartlepool Borough Council surveys 100% of its local network over a two year period.

Footway Network Survey

This survey is currently not undertaken by Hartlepool Borough Council and currently relies on data collected by the team of Highway Inspectors.

PAS 2161

Road condition data is used by local highway authorities to monitor, plan and prioritise their highway maintenance activities. The data is also published as official statistics by the Department for Transport (DfT) so that central government can monitor the condition of the national network of roads, as well as to inform the public, parliament and ministers.

In September 2024, DfT released a new standard for road condition monitoring, facilitated by the British Standards Institute and authored by the Transport Research Laboratory. This new standard will transform the use of data in highway maintenance by introducing innovative new methods for monitoring the condition of local roads in England, while ensuring the quality and comparability of road condition data across the country.

Instead of a single technology, local authorities can choose from a list of approved technologies offered by a range of different suppliers.

Road condition data for national reporting will be in a new 1 to 5 format, with 1 indicating no deterioration and 5 indicating severe deterioration. The 5 condition categories represent the extent of maintenance that an engineer would consider necessary to restore a section of road to good condition.

Inventory survey

The data collection strategy is reviewed annually, and conforms to or exceeds the recommendations defined in the new Code of Practice. The strategy will also have to take into account any additional inventory requirements as well as the data collection regime for Best Value Performance Indicators and local key performance indicators.

The automatic processing of UKPMS (known as the Automatic Pass) provides the key function of translating recorded pavement condition across the network to a prioritised schedule of treatment lengths with a recommended treatment option and associated cost for each length.

This processing draws upon both the physical data for the network — condition data, network and inventory information — and also the engineering parameters and rules, for example defining the relationship between pavement condition and treatment.

The analysis process of the selection and prioritisation of treatments involve a number of separate key elements which are:

defects
rating of defects
condition indices
condition projection
system investigatory levels
treatments
treatment selection rules
prioritisation of treatment lengths.

3.3 Network inventory

Highway inventory is the collection and recording of the highway asset in terms of the number and locations of the items to be maintained. The following are examples:

carriageway — length, width and surface type
gullies — type and location
signs — sign type, height, mounting bracket and location
road markings — type and location
Streetlights — column material, height, lantern type
bridges and structures — spans, widths, and construction

A basic highway inventory is essential in order to allocate funds for the various activities, to calculate unit costs and to submit requisite information to Government each year on road lengths maintained, which is used for the calculation of Formula Spending Share and Revenue Support Grants. Moreover, there is a requirement under The New Roads streets, structures of special engineering difficulty and reinstatement categories.

In order to fully meet the requirements of Best Value as well as establishing a cost effective and appropriate maintenance regime, a detailed computerised highway inventory is a prerequisite. This would provide the required base data necessary for the assessment, prioritisation, programming and subsequent service delivery of a cost effective highway maintenance service.

3.4 Network hierarchy

A network hierarchy is a means of classification whereby the maintenance network is categorised on the basis of the volume and composition of traffic using it whilst recognising the difference in traffic levels between urban and rural roads. The hierarchy should also take account of risk assessment and the role of the particular section of the carriageway, footway or cycleway in the network.

The hierarchy is the foundation of a coherent, consistent and auditable

maintenance strategy and is fundamental in determining policy priorities. It is the link between maintenance policy and implementation and will assist in determining standards for design and new construction.

It is important that hierarchies are regularly reviewed to reflect changes in network characteristics and use so that maintenance policies, practices and standards reflect the actual current use of the network. Accordingly, the Council will review the hierarchies on an annual basis.

The aim of the road hierarchy is to:

allow programmes of inspections to be set to enable statutory duties to be fulfilled
allocate resources according to the importance of the road within the network
set policies and standards according to the importance of the road within the network.

It is the intention to use the hierarchy as an indication of the standard of repair required to keep the road in reasonable condition having regard to its function and the volume of traffic using it.

The network hierarchy is sub-divided into three sections to cover carriageways, footways and cycleways, and the local hierarchies for Hartlepool are as follows:

Table 1 - Carriageway Hierarchy

Category	Hierarchy Description	Type of Road General Description	Description
1	Motorway	N/A	N/A
2	Strategic route	Trunk and some Principal "A" roads between Primary Destinations	Routes for fast moving long distance traffic with little frontage access or pedestrian traffic. Speed limits are usually in excess of 40mph and there are few junctions. Pedestrian crossings are either segregated or controlled and parked vehicles are generally prohibited.
3a	Main distributor	Major Urban Network and Inter-Primary Links. Short - medium distance traffic	Routes between Strategic Routes and linking urban centres to the strategic network with limited frontage access. In urban areas speed limits are usually 40 mph or less, parking is restricted at peak times and there are positive measures for pedestrian safety.
3b	Secondary distributor	Classified Road (B and C class) and unclassified urban bus routes carrying local traffic with frontage access and frequent junctions	In rural areas these roads link the larger villages and HGV generators to the Strategic and Main Distributor Network. In built up areas these roads have 30 mph speed limits and very high levels of pedestrian activity with some crossing facilities including zebra crossings. On-street parking is generally unrestricted except for safety reasons.
4a	Link road	Roads linking between the Main and Secondary Distributor Network with frontage access and frequent junctions	In rural areas these roads link the smaller villages to the distributor roads. They are of varying width and not always capable of carrying two way traffic. In urban areas they are residential or industrial interconnecting roads with 30 mph speed limits, random pedestrian movements and uncontrolled parking.
4b	Local access road	Roads serving limited numbers of properties carrying only access traffic	All other roads not included above. In rural areas these roads serve small settlements and provide access to individual properties and land. They are often only single lane width and unsuitable for HGV's. In urban areas they are often residential loop roads, back streets or cul-de-sacs.

Table 2 - Footway Hierarch

Category	Category Name	Description
1(a)	Prestige Walking Zones	Very busy areas of towns and cities with high public space and street scene contribution.
1	Primary Walking Routes	Busy urban shopping and business areas and main pedestrian routes.
2	Secondary Walking Routes	Medium usage routes through local areas feeding into primary routes, local shopping centres etc.
3	Link Footways	Linking local access footways through urban areas and busy rural footways.
4	Local Access Footways	Footways associated with low usage, short estate roads to the main routes and cul-de-sacs.

Table 3 — Cycleway Hierarch

Category	Description
A	Cycle lane forming part of the carriageway, commonly 1.5 metre strip adjacent to the nearside kerb. Cycle gaps at road closure point (no entries allowing cycle access).
B	Cycle track, a highway route for cyclists not contiguous with the public footway or carriageway. Shared cycle/pedestrian paths, either segregated by a white line or other physical segregation, or un-segregated.
C	Cycle trails, leisure routes through open spaces. These are not necessarily the responsibility of the highway authority, but may be maintained by an authority under other powers or duties.

The carriageway hierarchy has been derived with reference to traffic flows but also taking into consideration risk assessment and the functionality of the particular section of carriageway in the network. Maps indicating the hierarchy of Hartlepool's highway network are shown in appendix 1.

3.5 Maintenance categories

As stated above, the types of activity that comprise the highway maintenance service are reactive, routine, programmed, regulatory, winter service and weather and other emergencies.

Within each type there are various categories that should be considered in relation to the core objectives of safety, serviceability and sustainability, and these are summarised as follows:

Reactive

all elements — sign and make safe for safety purposes
all elements — provide initial temporary repair for safety purposes
all elements — provide permanent repair for safety purposes

Routine

carriageways, footways and cycleways — minor works and patching
drainage systems — cleansing and repair
embankments and cuttings — stability
landscaped areas and trees — management
verges — grass cutting
fences and barriers — repair
traffic signs and bollards — cleansing and repair
road marking and studs — replacement
lighting installations — cleansing and repair
bridges and structures — cleansing and minor works

Programmed

carriageways — minor works, resurfacing or reconstruction footways — minor works, resurfacing or reconstruction cycle routes — minor works, resurfacing or reconstruction

Regulatory

maintenance of highway register and definitive map
co-ordination of road and street works (Traffic Manager responsibilities)
charging schemes and permits for highway occupation (Traffic Manager responsibility)
other regulatory functions — encroachment, illegal signs, parking licensing, etc

Winter Service

pre-treatment
post-treatment
clearance of ice and snow
supply and upkeep of grit bins on the public highway

Weather and other Emergencies

flooding
high winds
high temperatures
other emergencies.

Within these categories there are specific types of maintenance works, which are defined as follows:

Resurfacing and Reconstruction (R & R) — larger scale structural maintenance works where a specific need has been identified, works can be planned and the estimated cost of the necessary works separately quantified.

Basic Maintenance — comprises smaller scale maintenance works with the exception of surface dressing schemes. Included are basic structural and winter service together with safety and environmental maintenance works which are not subject to cost criteria.

Carriageway Surface Treatments — the sealing and restoration of the running surface of the carriageway. Treatments include surface dressing, thin slurry seal and re-texturing of existing surfaces.