Highway Asset Management
Policy and Strategy 2023 - 2025
Brighton & Hove City Council is responsible for maintaining 624km of highway road network with 1026km of pavements. This document covers the following infrastructure assets associated with the highway network:
· Carriageway and footway surfaces
· Surface water drainage infrastructure associated with highways
· Bridges, coast defence structures, cliffs and other highway retaining walls and subways
· Street lighting and illuminated highway signs
· Traffic Control and Intelligent Transport Systems (ITS)
· Vehicle Restraint Systems (VRS)
· Bus stops and shelters
· Parking infrastructure including signs, lines and pay and display machines
· Cycle parking and covered cycle parking
· EV Charging points
· Non-illuminated highway signs and posts
· Line markings and road studs
· Public Rights of Way
· other street furniture
This Highway Asset Management Strategy sets out how the Highway Asset Management Policy will be delivered within the City. The Strategy has been informed by the asset management framework promoted by the Highway Maintenance Efficiency Programme.
2.6 Legislative Requirements
The Council as a Highway Authority has a duty to maintain its highways under Section 41 of the Highways Act 1980. The same Act, in Section 58, grants a ‘special defence against a highway authority for damages for non-repair of the highway’ if it can demonstrate that it has taken reasonable care to ensure that the highway was not dangerous having regard to:
· The character of the highway and the traffic which was reasonably expected to use it;
· The standard of maintenance appropriate for a highway of that character and used by such traffic;
· The state of repair in which a reasonable person would have expected to find the highway; Whether the Authority knew or could reasonably have been expected to know that the condition of the highway was likely to cause danger to users; and
· Whether warning notices were displayed when immediate repair could not reasonably be expected.
This duty has been further clarified by case law. The law does not require a highway authority to maintain the highway as new and free from any defects, because this is not possible both practically and in terms of affordability. However, case law has set out certain expectations about maintenance and repair, particularly for roads, pavements and cycleways.
3.1 Policy Statement
Effective asset management will be at the heart of the Council’s approach to maintaining Brighton & Hove’s highway infrastructure and will reflect the core principles within the City Council Plan, namely:
A fairer City, a sustainable future
· city to call home: By focusing on improving the real-world outcomes of our services and the condition of our highways for the people who use them and those who live and work in them.
· city working for all: By considering how the overall condition of our highways and our approach to maintenance affects people with different personal circumstances and by recognising the important role that our highways play in enabling people to live happy and independent lives.
· stronger city: By using quality data to plan so that we meet the needs of the present without passing on unaffordable costs and environmental impacts to future generations.
· growing and learning city:By using the best evidence locally and nationally to drive our decisions on investment in our highway infrastructure and demonstrate value for money and carbon reduction. In doing so we will encourage creativity and alternative approaches to find solutions to the challenges that we face.
· sustainable city: By applying a whole lifecycle approach to asset management we can ensure that we maximise the life of our assets and therefore reduce the need for carbon intensive reactive maintenance and reduce the need for new materials.
· healthy and caring city: By supporting active travel through the provision of well-maintained infrastructure that is safe to use and accessible to all.
We will also continue to fulfil our obligations set out in legislation and have regard to national guidance and Codes of Practice in determining our approach to highway asset management.
3.2 Policy Principles
1. Our priority is to minimise risks to the safety of people using Brighton and Hove’s highway network or who live and work nearby.
2. We recognise that our aspirations for the economy, community safety and resilience, health and well-being and environmental sustainability are dependent on the maintenance of a highway network that is resilient to major risks such as extreme weather events. We will prioritise routine and preventative maintenance operations on key routes (the ‘Resilient Network’) that enable us to reduce these risks over the long term.
3. Highway assets have long service lives and decisions that we make now about how we maintain these will affect the economic, environment and social well-being of future generations. We will adopt the principle that decisions on budgets for highway maintenance must not result in unaffordable costs or environmental impacts being passed on to future generations. This principle will reflect our UN Biosphere Reserve status.
4. We recognise that a well-maintained public realm can underpin our aspirations to attract inward investment, quality housing and sustainable transport. We will adopt a holistic approach to planning for highway maintenance alongside new infrastructure proposals to ensure budgets are targeted to achieve the greatest benefit for residents, businesses and visitors to Brighton and Hove.
5. We will support our objective for a sustainable economy by adopting a long-term approach to maintenance planning in order to minimise disruption to traffic, residents and businesses over the whole life of our highway infrastructure. We will also develop medium term (3-5 year) programmes of work that enable us to co-ordinate works in a way that will minimise disruption to traffic.
6. We will select long term maintenance investment options on the basis of evidence that they will deliver high value for money and carbon reduction for the Council and residents and businesses in Brighton and Hove. We will maintain accountability in developing our programmes of work by regularly reviewing and publishing the criteria for prioritising and selecting scheme proposals.
7. We will monitor maintenance backlogs and shortfalls in long term budgets for maintenance and manage the risks arising through the corporate risk management framework.
8. We will listen to the views of our residents and businesses when considering the allocation of transport budgets for maintenance and provide feedback to demonstrate how we have responded to those views.
9. We will continue to develop relations with our local contractors and the SE7 Highways Alliance to draw on their expertise and Research & Development in identifying new solutions that will reduce whole life costs, consumption of primary raw materials and other environmental impacts of our highway assets. We will also disseminate our own innovation and best practice through other Local Authority alliances.
10. We will regularly review our approach to asset management for each of our asset groups to ensure it aligns with the latest priorities and actions set out in other key documents including the City Council Plan, the Circular Economy Action Plan, the Local Cycling and Walking Implementation Plan, the emerging Local Transport Plan 5, the emerging Accessibility Strategy and the 2030 Carbon Neutral Programme.
11. We will apply the reduce, reuse, recycle principal to each of our asset groups with a focus on assessing whole life cost, exploring innovation and will focus on extending the life of our existing assets by reinstating our preventative maintenance programme for footways, carriageways and other street furniture, subject to available funding.
12. We will work in collaboration with other teams and organisations to maximise value for money through shared resources to maximise opportunities to support safe active and accessible travel around our City.
13. We will establish all necessary protocols to ensure that our asset information and systems are fit for the purposes of supporting the principles listed above.
3.3 Roles and Responsibilities
Highway Asset Management principles and methodologies will only be successful if key decision makers, such as Elected Members and those making use of the service/network, are on board and are able to visualise the long-term benefits and savings to be made from this approach.
Role |
Responsibility |
Elected Members |
Ensure their behaviour is consistent with the principles of this policy and have a central role to play in ensuring that they are integral to the local authority's aims for Highway Asset Management |
Corporate Directors |
to be proactive in the promotion of Highway Asset Management |
Service Directors |
to maintain an overview to ensure effective integration of the principles of Highway Asset Management within their service plans |
Managers |
to identify appropriate training needs and provide training opportunities |
All Staff |
to take responsibility and be accountable for their own behaviour |
The City Council have developed our own asset management framework based on the recommendations within the Highways Maintenance Efficiency Programme (HMEP) Infrastructure Asset Management Guidance. The framework includes all asset management activities and processes that are necessary to develop, document, implement and continually improve.
This highlights the context for Highways asset management within the City Council. The context includes a variety of factors that need to be considered when understanding the City Council’s approach for our Highway service. This includes both national and local transport policies, expectation from stakeholders and legal or financial constraints.
4.1.1 Sustainable Travel
Brighton and Hove has a 150km network of aging concrete roads. Whilst this network has served the city well over the last 70 years, it is now reaching the end of its serviceable life which is impacting on the viability of bus services in areas such as Bevendean, Coldean and Moulsecoomb. These areas have particularly high bus usage levels, which is demonstrated by the fact that bus usage in these areas has returned to pre-covid levels, unlike other areas of the City and across the UK. If we are to support sustainable travel in these areas then further long-term investment is needed.
4.1.2 Active and Accessible Travel
The Council has committed to supporting active and accessible travel through improved infrastructure as part of the CIty Council Plan, Local Cycling and Walking Infrastructure Plan and as part of the emerging Local Transport Plan 5 and emerging Accessibility Strategy. Key barriers to accessible movement on foot and on wheels include the condition of the footway as well as the choice of material. Slabs can be easily damaged by pavement parking, heavy loading activities and tree roots which increases the cost of reactive maintenance and increases the whole life carbon costs of the assets. It also increases the risk to users on the footway, particularly those with restricted mobility or sight. Whilst this risk is managed by our extensive Highway Inspection regime, reactive maintenance is not a long-term solution to underfunding.
4.1.3 Carbon Reduction
European standards for Carbon Management in Infrastructure (PAS 2080:2016) provides a common framework for all infrastructure sectors on how to manage whole life carbon management when delivering infrastructure assets and programmes of work. This framework sets out a hierarchy for tackling carbon emissions which identifies prevention as the biggest opportunity for radical reduction in carbon emissions within an infrastructure context. In Highway asset management terms, this means that we must either not build in the first place, or once we have, find ways to increase resilience/longevity and drive down the need for maintenance activities.
In recent years, available capital funds for the maintenance of carriageways and footways have been prioritised for surface renewals on the resilient network. This is in keeping with the Council’s risk-based approach to asset management as agreed in our ‘Strategy for Well-Managed Highway Infrastructure’ (approved by ETS in 2021). However, to support the Council’s ambition to be Carbon Neutral by 2030 we need a renewed focus on extending the life of all our highway assets. This requires further capital investment to support a preventative maintenance programme for footways, carriageways and street lighting and further work to develop similar programmes across all our asset groups.
The key activities to be delivered by the City Council as part of our Highway asset management planning process include:
Policy |
The City Council’s published commitment to Highway Asset Management.
|
Strategy |
The City Council’s published statement as to how we will deliver against the policy which includes implementation of the framework, the strategy for each of the major assets and the council’s commitment to continuous improvement.
|
Performance |
The levels of service to be provided by the City Council and how performance will be measured and reported.
|
Data |
The City Council’s approach to Highway asset data and information management.
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Lifecycle Planning |
The City Council’s lifecycle plans for all major Highway asset groups, including expected future performance based on different investment scenarios and desired levels of service which will be used to inform decisions.
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Works Programme |
The City Council’s rolling programme of Highway work to meet the asset management approach set out. |
Enablers are a series of supporting activities that support the implementation of the Highway Asset Management Framework.
Leadership & Organisation |
The commitment from senior decision makers in adopting the asset management principals throughout their organisation and culture.
|
Risk Management |
Establish an approach to risk, identify risks, evaluate risks and manage risks to mitigate the impact. |
|
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Asset Management Systems |
The strategy for the use of different asset systems to support the data and information to enable asset management.
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Performance Monitoring
|
Benchmarking and collaborating with other authorities and establishing a culture that thrives for continuous improvement. |
|
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The delivery of effective and efficient work programmes for individual asset groups following the asset management approach.
For local authorities there are several different ways that the Highway service is funded.
In October 2021, the Government announced a further £2.7 billion was being made available between 2022/23 to 2025/26 for local highways maintenance capital funding. This includes the remainder of the pothole funding package announced in the 2020 budget.
1. Local Highways Maintenance Funding − Needs Element
This funding is allocated based on a formula using data provided by the local authority. The Council currently receives £1.455m/year from this fund.
2. Local Highways Maintenance Incentive/Efficiency Element Funding
This scheme aims to reward councils who demonstrate, through self-assessment, that they are delivering value for money across their Highway service by implement asset management principles. The Council currently receives £364k/year from this fund.
3. Pothole Action Fund
This programme funds the repair of potholes as well as the prevention of potholes through surface renewals within the local authority. This is again allocated based on a formula shared by local authorities. The Council currently receives £1.455m/year from this fund.
4. Local Highways Maintenance Challenge Fund
This fund enables local authorities to bid for major maintenance projects that are otherwise difficult to fund through the normal budgets they receive. In recent years the Council has received £8.9m towards the restoration of Shelter Hall and £1.5m towards the upcoming improvements to Western Road.
Table 1 shows a summary of the Highway assets together with a summary of its current condition.
Detail |
Condition |
|
Carriageway
|
614km |
The current need for maintenance is: 9% - Principal Network 4% - Non-Principal Network 16% - Unclassified Network |
Footways and Cycleways |
976km Footway 49km Cycleway |
|
Structures
|
66 Bridges 93 Retaining Wall |
At present the Bridge Condition Stock Indicator rates the average condition of Brighton bridge stock at 87 and the average for retaining walls is 83. |
Drainage |
22,782 gullies 4971 soakaways |
During the last inspection 88% of the gullies were defect free. |
Street Lighting
|
20,000 street lights 6,000 lit signs and bollards |
The current condition of the street lighting stock is as follows: 54% Green (Good condition) 39% Amber (Fair condition) 7% Red (urgent upgrade or replacement) |
Item |
Detail |
Condition |
Traffic Signals
|
1,734 Traffic Signal poles 1,635 Traffic Signal lanterns 1,572 Ped crossing lanterns 71 cycle signal lanterns 113 CCTV cameras |
By the end of the 2022/23 refurbishment programme, 6% of stock will be functional but beyond its useful economic life (20yrs) and a further 4% will require urgent upgrade (25yrs+) |
EV Charging |
230 lamp post chargers 101 fast charger bays 18 rapid charger bays |
These assets are relatively new and therefore are in good condition. |
Road markings, signs and street furniture |
752km of road markings 33,113 Signs 184 Real-time information signs 1,499 Bus stops/shelters 6,240 Street name plates 15,859 Safety bollards 1445 Directional bollards 2,023 Cycle parking stands 71 Bike hangers 11,886m of pedestrian guard rail 4,524m of vehicle safety barriers 750 pay and display machines |
Condition is not currently measured for all of these assets however pedestrian guard rails, bollards, vehicle safety barriers, road markings and signs are maintained to the safety standard set out in the Highway Maintenance Safety Policy.
|
As per the Well-managed Highways Code of Practice, a network hierarchy should be defined for all elements of the Highway network. Table 2 highlights the hierarchy for the carriageway and footway which has been reviewed in 2022. This hierarchy is the foundation of a risk-based maintenance strategy and reflects the whole Highway network and its needs, priorities and the use of infrastructure.
Carriageway Category |
Category Description |
BHCC Description |
2 |
Major Urban and Inter-Primary Links |
Routes linking urban centres to the strategic network with limited frontage access. |
3a |
Most classified B and C roads and unclassified bus route |
Include all bus routes, have 20/30 mph speed limits and high/ medium levels of pedestrian activity with some crossing facilities. |
4a |
Link roads with frequent junctions |
Residential Link Roads |
4b |
Local access roads |
Local Access Traffic |
Category Description |
BHCC Description |
|
1 |
Primary Walking Route |
Busy urban shopping and business areas and main pedestrian routes. |
2 |
Secondary Walking Route |
Medium usage routes through local areas feeding into primary routes, local shopping areas. |
3 |
Link Footway |
Linking local access footways through urban areas. |
4 |
Local Access Footway |
Footways associated with low usage, short estate roads to link routes and cul-de- sacs. |
Table 2 – Highway Hierarchy
Brighton & Hove is a busy, compact city with the highest number of bus users outside of London. In terms of quantity, carriageway surfaces are the largest physical asset managed by the Council, and therefore have the highest value. For this reason, changes in the condition of carriageway surfaces across the network can lead to significant and long-term financial and environmental consequences for the Council.
The Council maintains 624km of carriageway across the City made up mostly of unclassified local roads. This network also includes 150km of aging concrete roads that are reaching the end of their serviceable life and therefore will require considerable investment within the next 5 years.
The condition of the carriageway is measured on an annual basis using condition surveys that are then reported to the Department for Transport. In 2021, 16% of the unclassified network was identified as requiring maintenance compared to the 9% for the principal network and just 4% for the non-principal network.
Our annual condition data is used to predict maintenance backlogs as well as future funding requirements. It is also used to generate our forward works programmes. Alongside this data we also consider condition reports generated by our Highway Inspectors as well as feedback from internal teams, the public and elected members.
The latest modelling indicates that reduced funding over decades has resulted in a carriageway maintenance backlog of approximately £75m. If budgets remain unchanged going forward then it is predicted that this could double to £150m within the next 7 years.
To support the Council’s ambition to be Carbon Neutral by 2030 we need a renewed focus on extending the life of all our highway assets. This requires further capital investment to reduce the maintenance backlog and to support a preventative maintenance programme for carriageways.
By working in collaboration with other teams across the Council and externally we will look for opportunities to share resources to deliver additional schemes beyond the principal footway network to align with priority areas set out within the Local Cycling and Walking Implementation Plan. This will make our footways more accessible for all road users and support active and accessible travel within local areas as well as the city centre.
Further investment will be required to support an enhanced planned and preventative maintenance programme going forward. We will take a full lifecycle approach to the management of our footway and cycleway assets to ensure that we use products that will be resilient and long-lasting thereby lengthening the renewal cycle and reducing the carbon and financial cost of on-going reactive maintenance.
With the growing risk of extreme rainfall events as a result of climate change, the City Council faces growing challenges to mitigate the risk of flooding from surface water run-off from Highways.
We currently have 22,782 gullies and 4971 soakaways that drain surface water from the highway. Most of our gully’s discharge into a combined sewer system managed by Southern Water and at times the sewer system is unable cope with the extreme weather events we are experiencing more often due to global warming.
To avoid further overloading this system Brighton and Hove City Council cannot connect additional gullies to it, nor replace existing gullies with bigger capacity gullies, as doing so further increases the risk of sewage discharging on to the public highway at times of exceptional rainfall.
Since there is limited action that can be taken to improve the existing highway drainage system to a point where it will cater for extreme rain fall, the current priority is therefore to supplement cleansing of our existing assets with additional sustainable urban drainage schemes. These schemes, where appropriate, will redirect water away from roads into a series of natural basins from where it can be gradually absorbed into the ground.
To deliver a serviceable and sustainable drainage service into the future the two elements of efficiency and effectiveness must be balanced appropriately to ensure the effective use of limited budgets.
Historically, BHCC’s approach to cleansing, repairing and improving highway drainage assets has been predominantly reactive however by improving the quality of the asset data we will move to a risk-based approach across all our drainage assets.
This risk-based approach also follows the Well-managed Highway Infrastructure Code of Practice 2016 and allows the Council to focus maintenance on the high priority assets which may pose a greater risk of flooding and disruption to road users.
Street lighting is a critical Highway asset which contributes to public amenity, safety and the night-time economy. The City Council currently maintain approximately:
· 20,000 street lights
· 6,000 lit signs and bollards
*includes 4,750 cast iron columns including 250 columns identified as being of historic and architectural significance.
The overall condition of the City Council’s street lighting asset is monitored in accordance with guidance from the ILP Institute of Lighting Professionals and a well-designed risk based cyclical maintenance programme prevents the performance falling below the designed level. Collecting visual data on all assets to map degradation following GN22 guidance from the ILP informing future maintenance strategies and anticipate required funding.
The City Council has borrowed £6.8 million from the Public Works Loan Board to replace older technology with LED lanterns. This investment into our Street Lighting asset has substantially reduced the Councils energy costs and carbon emissions while providing service improvements for all service users.
The City Council has allocated £1.4million from the Carbon Neutral Fund to support the delivery of a Seafront Heritage Lighting Restoration Project. Working with Historic England this project will restore the historic grade II listed cast iron street lighting columns along Brighton’s Seafront to preserve the cities heritage and expedite the replacement of existing lanterns with new LED variants.
Where deemed necessary under section 122 of the Road Traffic Regulation Act 1984 and Part 2 of the Traffic Management Act 2004, the traffic signals need to be maintained to operate safely and correctly. Additionally, signals can be a useful tool in the promotion of walking, cycling and bus usage.
The city council currently maintain and operate 78 signal junctions and 101 stand-alone signal crossings. In combination there are a total of 1,734 signal poles holding 1,635 vehicle lanterns, 1,572 pedestrian lanterns and 71 cycle lanterns. All the junctions can operate at a minimum level of VA with many having MOVA and/or SCOOT control.
The city's traffic signal sites are remotely monitored for faults, inspected at least twice annually and subject to routine maintenance and running repairs. Generally the useful expected life of a traffic signal site is around 20 years, and they are considered to be at risk after 25 years. Ideally sites will be refurbished before they reach ‘at risk’ and a refurbishment programme is in place that prioritises sites based on a combination of age, number of reported faults and the result of the annual periodic inspection. When possible refurbishments are carried out in coordination with other schemes underway in the city.
Asset management systems within the City Council should be sustainable and able to support the information required to enable asset management to take place. Improved asset management systems feature strongly in the City Council’s Asset Management Framework.
The City Council is committed to the ongoing development of good practice and continuous improvement. Some examples of activities that demonstrate this include:
· Membership of the Southeast 7 Alliance
· Membership of the CIPFA HAMP Network
· Attendance at a variety of local and regional events
· Membership to NHT Survey
· Membership of LCRIG
In addition, the City Council recently precured a new NEC Highways Framework Contract for the provision of highway construction services. The framework has embedded Key Performance Indicators relating to Carbon Reduction, Innovation, Social Value and Collaboration. These KPIs will be monitored monthly and offer financial incentives for compliance.
The Highway Asset Management Policy and Strategy will be reviewed annually, updated and re-published every 2 years.