Waitaki District Council Roading Activity Management Plan 2018-28
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Roading AMP 2018-28
Effective Date: 1 July 2018
Waitaki District Council
Roading Activity Management Plan
2018-28
Effective Date: 1 July 2018
Prepared for:
Waitaki District Council
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
May 2018 REV 2.0 PAGE 1
Roading AMP 2018-28
Effective Date: 1 July 2018
Quality Assurance Statement
Project Director: Michael Voss
Waitaki District Council Project Manager: Gary Woock
Private Bag 50058
20 Thames Street Prepared by: Gary Woock
Oamaru
Reviewed by: Michael Voss
Approved for issue by: Gary Woock
Document Control
WDC Sharepoint Roading/Network Asset Management/WDC Roading Activity Management Plan
2018-28
Rev No. Date Revision Details Prepared by Reviewed by Approved by
1.0 11/01/2018 DRAFT GW
2.0 1/05/2018 DRAFT GW
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
May 2018 REV 2.0 PAGE 2
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Effective Date: 1 July 2018
Table of Contents
TABLE OF CONTENTS......................................................................................................................................... 3
OUR SIGNIFICANT RISKS AND OPPORTUNITIES ................................................................................................. 6
1.1 WHAT IS THE PURPOSE OF A ROAD?................................................................................................................ 11
1.2 ONE NETWORK FOR CUSTOMERS ................................................................................................................... 11
2 OUR CURRENT PERFORMANCE ............................................................................................................... 13
2.1 ROAD SAFETY............................................................................................................................................. 14
2.2 FINANCIAL PERFORMANCE ............................................................................................................................ 16
Financial Assistance Rates (FAR) .................................................................................................... 17
2.3 STRATEGIC AND CORPORATE GOALS ............................................................................................................... 17
2.4 OUR LEGISLATIVE REQUIREMENTS .................................................................................................................. 18
2.5 SECTION 17A REVIEWS ................................................................................................................................ 19
2.6 SETTING THE LEVEL OF SERVICE ..................................................................................................................... 19
EXPECTATIONS IN THE COMMUNITY ARE IMPORTANT IN DETERMINING FUTURE LEVELS OF SERVICE AND IN ASSESSING HOW WELL
COUNCIL IS PERFORMING WITH RESPECT TO CURRENT LEVELS OF SERVICE. THE COUNCIL’S KNOWLEDGE OF CUSTOMER EXPECTATIONS
AND PREFERENCES IS BASED ON: ................................................................................................................................ 19
3 OUR TRANSPORTATION ASSETS AND SYSTEMS ....................................................................................... 24
3.1 OUR ASSET MANAGEMENT SYSTEMS (AMS) ................................................................................................... 25
3.2 CONSULTATION .......................................................................................................................................... 25
3.3 OUR RESOURCES ........................................................................................................................................ 26
4 ROAD CLASSIFICATIONS AND SERVICE LEVELS ......................................................................................... 29
4.1 ONE NETWORK CLASSIFICATIONS ................................................................................................................... 33
National Roads............................................................................................................................... 33
Regional Roads .............................................................................................................................. 34
Arterial Roads ................................................................................................................................ 35
Primary Collector Roads ................................................................................................................. 36
Secondary Collector Roads ............................................................................................................. 37
Access Roads .................................................................................................................................. 38
Low Volume Access Roads ............................................................................................................. 39
5 FUTURE TRAVEL DEMAND AND MANAGEMENT ...................................................................................... 40
5.1 DEMAND DRIVERS ...................................................................................................................................... 40
5.2 DEMAND FORECASTS................................................................................................................................... 41
Population ...................................................................................................................................... 41
Demographic.................................................................................................................................. 42
Land Use ........................................................................................................................................ 42
Changing Climate ........................................................................................................................... 43
Customer Expectations .................................................................................................................. 43
5.3 MANAGING DEMAND .................................................................................................................................. 43
6 PROGRAMME OF WORK (FINANCIALLY ASSISTED) .................................................................................. 45
6.1 RESILIENCE IMPROVEMENTS.......................................................................................................................... 45
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Rural Resilience Waitaki project .................................................................................................... 45
River Training ................................................................................................................................. 45
Small bridge replacements............................................................................................................. 45
Unsealed roading network ............................................................................................................. 46
Aggregate resources ...................................................................................................................... 46
6.2 EFFICIENCY IMPROVEMENTS.......................................................................................................................... 46
Rural Resilience Project .................................................................................................................. 46
Streetlighting LED upgrade ............................................................................................................ 46
Roading Network Plan ................................................................................................................... 47
Collaboration in Asset Management Delivery ............................................................................... 47
In-house RAMM maintenance and updates .................................................................................. 47
Unsealed metalling performance driven over cyclic ...................................................................... 47
Unsealed metalling aggregate....................................................................................................... 47
Unsealed intersections ................................................................................................................... 48
Use of coldmix asphalt ................................................................................................................... 48
Increase in traffic count programme ............................................................................................. 48
Vegetation Maintenance ............................................................................................................... 48
Dust Mitigation .............................................................................................................................. 48
Renewals Programme Optimisation .............................................................................................. 49
Bridge Maintenance Programme ................................................................................................... 49
Roadmarking.................................................................................................................................. 49
6.3 ACCESS IMPROVEMENTS .............................................................................................................................. 49
Bridge Renewal Programme .......................................................................................................... 49
Kakanui Point Bridge ...................................................................................................................... 49
Springfield Road ............................................................................................................................. 50
Moeraki .......................................................................................................................................... 50
Waianakarua Road Re-alignment.................................................................................................. 50
Coastal Roading (Rural) ................................................................................................................. 50
Coastal Roading (Urban) ................................................................................................................ 50
Holcim Roading Improvements ...................................................................................................... 50
Walking and Cycling....................................................................................................................... 51
Footpath maintenance and renewals ............................................................................................ 51
6.4 SAFETY IMPROVEMENTS ............................................................................................................................... 51
Community Road Safety Activities ................................................................................................. 51
Seal Widening ................................................................................................................................ 51
Low Cost Low Risk Improvements .................................................................................................. 52
6.5 AMENITY IMPROVEMENTS ............................................................................................................................ 52
Harbourside Projects ...................................................................................................................... 52
Reconstruction of Itchen Street ...................................................................................................... 52
6.6 TRAVEL TIME RELIABILITY IMPROVEMENT ........................................................................................................ 52
Customer Communications ............................................................................................................ 52
7 PROGRAMME OF WORK (NON-FINANCIALLY ASSISTED) ......................................................................... 53
Carpark Maintenance .................................................................................................................... 53
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Footpath Maintenance .................................................................................................................. 53
Retaining Structures Maintenance ................................................................................................ 53
Pest Plants...................................................................................................................................... 53
Rural General ................................................................................................................................. 53
Township Works............................................................................................................................. 54
Road Legalisation........................................................................................................................... 54
Targeted Maintenance .................................................................................................................. 54
Coastal Erosion .............................................................................................................................. 54
Recoverables .................................................................................................................................. 54
8 COST OF SERVICE PROVISION .................................................................................................................. 54
8.1 CURRENT COST .......................................................................................................................................... 54
8.2 FUTURE COST ............................................................................................................................................ 56
Operations and Maintenance (Financially Assisted) ...................................................................... 57
Renewals (Financially Assisted) ..................................................................................................... 59
New Assets and Transport Planning (Financially Assisted) ............................................................ 61
Maintenance and Operations of Local Roads (Non-financially assisted) ....................................... 63
Renewal of Local Roads (Non-Financially Assisted) ....................................................................... 65
Township Works (Non-financially Assisted) ................................................................................... 67
Amenity Works (Non-Financially Assisted) .................................................................................... 69
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
May 2018 REV 2.0 PAGE 5
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Our Significant Risks and Opportunities
As government investment decreases and external pressures on the transportation network increase,
WDC is faced with the challenging task of maintaining ‘fit for purpose’ service levels for the community.
Increasing
Funding Network
Pressures Pressures
The significant issues currently faced by WDC include:
Reduced investment (NZTA funding assistance rate down by 1% to 55% from 20118/19, and
change to emergency works; less than 100k to be funded out of RLTP allocation. Combined
events over $100k will qualify for emergency works )
Increasing effects of climate change (more frequent and severe storm events eg July 2017 event
was in excess of $1M and ex-cyclone Gita in 2018)
Changing customer demand (heavier vehicles including increase for Class1, 50max,HPMV’s,
tankers, mobility access, etc.)
An ageing roading network including more posted bridges unable to carry heavy vehicles
Increasing customer expectations vs rates
These issues set the strategic context for the WDC Roading Activity Management Plan and highlight the
areas of focus for the remainder of the document. The challenges that we face demand that we achieve
network efficiencies to enable the delivery of fit for purpose solutions. Network efficiencies are often
thought of as receiving “more for less”, however WDC focus on assessing the broader purpose of each
element of the roading network within the district, i.e. What purpose does the road serve? How does the
road benefit the district? What type of vehicles are travelling on it? How many people does the road
serve? Our efficiency focus will be to consider how each work activity helps to maximise the life of our
assets and achieve the intended purpose of that asset. Prioritisation and justification of work will be key
to ensuring that each component, and the network as a whole, is delivering the outcomes that Waitaki
desires. Table 1 overleaf details the significant risks, the response and the outcomes..
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
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TABLE 1: SIGNIFICANT ISSUES ON THE WAITAKI ROADING NETWORK
Pressure State Risk Response Outcome
Economic CLIMATE CHANGE
Growth and 1. The resilience of our 1. Longer flooding periods due to 1. Council approved $3M of funding for drainage 1. The July 2017 created significant flooding within Oamaru
Productivity transport network is exposed higher groundwater resulting maintenance, renewals and improvements which and the District with an event in excess of 1:100 years.
to regular and increasingly from irrigation and more severe has been completed for $1.89M (Rural Resilience The damage to the roading network was less than $1M
severe weather events. events. Project). and without the Rural Resilience Project would have
2. The effects of coastal erosion Delays in re-opening of roads Network resilience is understood and been well in excess of $1M. The primary benefit was that
are already being seen in after weather events communicated. the roading network was available to traffic a lot sooner
parts of the district through (resilience). Priority – High, Urgency - continuous 10 yrs.+ than in previous events.
the loss of roads. Inaccessible areas 2. Council has a strategy in place that provides for 2. The coastal erosion strategy has enabled critical points
2. Loss of assets – permanent in $50,000 each per annum to secure the urban & of the roading network to be addressed. NIWA are
some cases. rural roading network where affected by coastal currently mapping the 100 year coast line which will
erosion. enable Council to make more informed decisions
Council accepts that it may be uneconomic to regarding coastal erosion.
preserve all assets and that some may be lost. 3. Strategy to be redefined as part of the District Plan
Priority – Medium, Urgency 0-3 yrs.
Enhanced communication and consultation with
the community. Priority – Medium, Urgency 0-3
yrs.
3. Need for greater engagement with NZTA re One
Network Approach Priority – Medium, Urgency
0-3 yrs.
CHANGING DEMAND 1. Prioritise roads to be maintained and/or improved 1. Council’s latest dTims report suggests that the existing
using advanced asset management tools (RNP, investment in the road network is appropriate at the
1. Commercial land use change 1. The condition of our assets ONRC and dTIMS), to ensure the best return on moment and that degradation of the network will occur
is altering the traffic may decline more rapidly. investment of our available funds. Priority – in the long term. Council needs to complete more
composition on rural roads. High, Urgency – continuous 10 yrs.+ analysis before requesting increased investment.
Tankers, new 50max and 2. Review of Levels of Service to ensure they are Bridge renewal works are prioritised to ensure
HPMV rules, and larger appropriate, achievable and in line with the maximum availability for 50max and HPMV vehicles.
farming equipment are expectations and requirements of the One 2. ONRC Customer Levels of Service (Figure 18 Pg 37)
leading to heavier and wider Network Road Classification. Priority – High, within Cost Efficiency are excellent. Amenity has some
vehicles. This opportunity Urgency 0-3yrs concerns with roughness which will improve slowly with
also creates greater wear 3. Council is providing infrastructure to cater for pavement smoothing and rehabilitation.
and tear on existing assets tourism e.g. tourist routes, car parks and facilities. 3. Council has applied for investment from Tourism, and
and safety concerns for road Priority – Medium, Urgency-0-3 yrs. will also allocate investment from Low Cost Low Risk
users. to cater for tourist vehicles and ensure their safety
within the roading network.
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Pressure State Risk Response Outcome
CHANGING DEMAND (cont)
2. This leads to increased 4. Work with CCS disability to address mobility 4. Council includes an annual project within Low Cost
Forestry and logging maintenance and renewal issues and make things more user friendly for our Low Risk to address and improve mobility issues within
activities within the Waitaki costs, offset by an increase in customers, particularly the elderly. Increasing the network.
District are also having an economic productivity. awareness of footpath condition and hazards and
impact on the roading 3. Safety risks on narrow roads continue to enhance walking and cycling modal
network. may increase options. Priority – Medium, Urgency – Council has also allocated money to an assessment for
2. These changing demands are 4. Mobility and safety issues in continuous 10 yrs. + the Oamaru to Palmerston cycle track as well as
impacting on Levels of urban areas for ageing 5. Reduced revenue streams from Oceana Gold will continuing the Harbourside track along Humber Street
Service population (population over 65 have a significant impact on Council and the NZ to Waitaki Boys and the north end of Oamaru.
3. Tourism within New Zealand years of age will increase from Transport Agency as a co-investor of the roading 5. Fortunately for Council, Oceana Gold have been able
has increased exponentially. 22% to 36% by 2030). network in the Waitaki District. Priority – Low, to extend their land-use consent and expand their
This has filtered into the 5. Reduced income from Oceana Urgency – 3-10 yrs. operations. Length of operations will be determined by
regions including Waitaki. Gold resulting in increased 6. Reduced revenue streams from Meridean Energy quality of source and demand for gold. Council is
4. An ageing population greater rates and road maintenance. will also have a significant impact on Council and hopeful that the operation will continue as long as
than the national average has 6. Reduced income from Meridian the NZ Transport Agency as a co-investor of the possible.
different needs including good Energy resulting in increased roading network in the Waitaki District. Priority – 6. Renewable energy to supply the national grid will
footpaths, cycleways and car rates Low, Urgency - always be required providing a continuous revenue
parking in urban and peri- stream particularly now that Council looks after 14km
urban areas. of Meridian Energy roads.
5. Oceana Gold land-use
consents enable mining Council will need to consider bullets 5 and 6 above and
activities in the Waihemo ensure appropriate arrangements within the Long Term
ward of the District for an Plan and the 30 year Infrastructure Strategy in case the
additional 10 plus years. revenue stream does decrease in the future.
Completion of operations and
withdrawal from the district
will have a significant impact
on the revenue stream of
Council’s rates component.
6. Meridian Energy, as a result
of roads inundated by man-
made lakes within the Waitaki
River catchment, also make a
significant contribution to the
revenue stream of Council’s
rates component.
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
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Pressure State Risk Response Outcome
Road Safety SAFETY
1. Only half of 2015/16 WDC 1. Increase in serious and fatal 1. Options to improve Safety; 1. Low Cost Low Risk investment has doubled to address
Residents Survey crashes Address issues in the Safety Deficiency the safety concerns.
respondents are satisfied that 2. Increase in personal and Database at an increased rate. LCLR 2. There are some real concerns with Safety, in particular
WDC roads are safe to travel collective risk programme has increased to enable this. Personal Risk, that needs to be addressed. (as shown
on. 3. Deterioration of network Widen the existing seal in high risk and priority in Figure 18 Pg 37)
2. Customers are at higher risk resulting in increased safety locations as per ONRC. (programme currently 3. More targeted activities within the communities at risk
due to changing demand on risk underway) Priority - High register and measure success annually.
the network. 4. Additional investment required 2. Monitor performance against ONRC levels of
3. The trend of several to improve safety of the roading service and respond accordingly. Undertake
communities at risk network KiwiRAP assessments and / or a Risk Register.
categories is negative Priority - High
3. Increased road safety budget to expand
programmes and improve rankings in
communities a risk register.
Priority - High
Value for INVESTMENT
Money
1. For emergency reinstatement 1. Current funding is insufficient to 1. Council has a Disaster Fund to ensure that there 1. Council’s Rural Resilience Project has paid dividends
works, Investment address existing concerns. are financial resources to cover local share of in ensuring that the road network has a higher capacity
requirements are that the 2. Levels of service may not be emergency events greater than $100,000 to accommodate emergency events.
works total more than achievable with reduced Priority - High, Urgency - 10 yrs. +
$100,000 per event for funding. Options for providing value for money and NIWA are currently mapping the 100 year coast line
financial assistance at normal 3. Rates will need to increase to efficiencies; which will enable Council to make more informed
rate or greater than 10% of achieve desired levels of Roll over contracts where rates are good in decisions regarding coastal erosion and the associated
the annual programme for service order to lock rates in for an extended period. investment.
escalated financial Invest in network resilience through continued
assistance rate of additional drainage improvements. 2. Ongoing monitoring of network demands to provide a
20%. Utilising Advanced Asset Management tools more flexible environment so that immediate issues
Approximately $5.6M has (RNP and dTIMS) to prioritise spending and can be prioritised in line with ONRC and Roading
been spent over the past 7 optimise existing assets. Network Plan.
years on emergency Increase collaboration and centres of
reinstatement. excellence to share costs, resources and
2. Network demands are knowledge.
increasing placing pressure Ensure appropriate resource levels
on financial resources. (capability, capacity and succession) to
manage the network and contracts.
Priority - High, Urgency - 10 yrs.+
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Pressure State Risk Response Outcome
LOW CUSTOMER
SATISFACTION:
1. Customer satisfaction 1. Is cost to increase customer 1. Consultation with the community to determine 1. Council has prioritised investment for 2018-21 to areas
remains low at 35% in satisfaction affordable? priorities and discuss expectations. Priority - of immediate concern ie seal widening, traction seals,
2015/16. A related issue is 2. Desire to have more roads Medium, Urgency - 0-3 yrs. rural road improvements to immediately improve
the raised expectations of sealed but NZTA will not co- Review of Levels of Service to ensure they are resident satisfaction levels with smaller investment in
stakeholders and customers. fund seal extensions unless appropriate, achievable and in line with the One retaining walls and walking and cycling.
there is a significant safety Network Road Classification requirements.
This is Council’s biggest improvement. Priority - High, Urgency - 0-3 yrs.
indicator of satisfaction 3. Rates likely to increase to 1. Improve efficiencies, communication and
and customer service. achieve levels of service. innovative thinking Priority - Medium, Urgency -
0-3 yrs.
Additional 1. Supporting economic growth 1. Poor roading network resulting 6. Council and the community makes a good 1. Council will continue with regional development and
strategic in the regions. in increased costs for contribution to regional development by will be seeking investment where possible eg MBIE
priorities 2. Enhancing resilience. customers and businesses. ensuring a good roading network. Priority - 2. Council’s Rural Resilience Project has certainly
defined in 3. Supporting intermodal 2. Slow implementation of ONRC High, Urgency - 0-3 yrs. contributed to enhanced resilience in the drainage
the GPS connections. 3. No new modal opportunities 7. Council in conjunction with ONRC are area.
4. Providing clarity around 4. Costs of addressing addressing resilience. Priority - High, Urgency - 3. Construction of the Humber Street walking and cycling
expectations for the environmental impacts are too 0-3 yrs. track identified in the 2018-21 RLTP.
treatment of environmental onerous 8. Council has a walking and cycling strategy in 4. Storm water management plan to be in place by 30
impacts. 5. No advances in technology place. Priority - Medium, Urgency - 0-3 yrs. June 2018.
5. Using innovation and 4. Council is currently reviewing storm water 5. In addition to the two mobile phone apps, Council also
technology to improve management off roads in the Ecan area. uses Roadroid to objectively assess the roughness and
benefits and achieve the Priority - High, Urgency - 10 yrs.+ condition of unsealed roads in customer requests and
outcomes. complaints.
5. Council has 2 smart apps for mobile phones to
6. Council will continue to assess whether there are other
make it easier to review availability of the
proprietary apps that could be utilised to give additional
roading network in emergencies and easier to
benefit.
log customer requests and complaints. Priority
- Medium, Urgency - 3-10 yrs
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1.1 What is the purpose of a road?
The significant challenges we face have led us to focus on the core elements that deliver customer value
and that befit the primary purpose of a road from the customer’s perspective. Roads connect people
with destinations and they are lines of communication. Roads link goods and freight between land and
markets. Without a reliable roading network, much of the economic activity within our district and country
would not be possible. What we do as a service provider should not compromise this purpose. On this
basis, our strategic goal for the 2018-28 Long Term Plan is: Growing Waitaki – the best place to live,
work and play.
1.2 One Network for Customers
The average ratepayer, resident, or visitor does not differentiate between roads managed by WDC and
those managed by our neighbouring councils or State Highways. Whether it’s flooding in Waitaki and
Dunedin, dry dusty roads in Central Otago, or snow in Queenstown Lakes, all communities face their
own challenges when it comes to managing their roading networks. Despite dealing with different
challenges, the goal of each roading authority remains the same.
We understand this and recognise the need to shift our thinking to a delivery model that is more focussed
on customer outcomes. We are transitioning from a model of funding for roads, to one of investing for
outcomes. This is a national initiative lead through collaborative efforts in the industry.
Previously, each council was responsible for the independent management of their own roading network.
This led to variability in the levels of service experienced between neighbouring councils, and even
between local roads and State Highways within the same district. The Road Efficiency Group, a
collaborative effort between Local Government and the NZ Transport Agency, is implementing One
Network Road Classifications (ONRC). These classifications define a road based on its function and will
help local councils and the NZ Transport Agency to plan, invest in, maintain and operate the road
network in a more strategic, consistent and affordable way throughout the country.
The goal of the ONRC is to bring the focus back to the purpose of the roads. What function does the
road play within the context of our community and the greater national network?
How many people use this road on a daily basis?
Is this road the main route to the closest hospital?
Does this road mainly serve to allow me to get from my house to larger roads (collectors or
arterials)?
Does this road link me with a neighbouring town/city (Dunedin, Timaru, etc.)?
Is this a tourist route?
Does this road take freight to port?
Does this road also serve as a main cyclist route for our community?
These sorts of questions, along with various other parameters, will allow us to bring the focus back to
the purpose of the road and categorise each road appropriately.
The One Network Road Classifications is broken down into 6 groups as shown in Table 2:
Table 2 ONRC Classifications
ONRC Waitaki Example WDC Customer
National None managed by Waitaki District Council Freight (regional and local)
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ONRC Waitaki Example WDC Customer
Regional None managed by Waitaki District Council but Tourism
includes SH1 through the District
Commuter
Arterial None managed by Waitaki District Council but
includes SH83 & SH85 through the District
Primary Collector Urban – Thames Street
Rural – Nil
Secondary Collector Seven Mile Road`
Access Urban – Roseness Street Heavy Commercial Vehicles –
forestry
Rural – Papakaio Road
Resident/local traffic
Access Low Volume Sealed – Wilson Road
(subset of Access Roads)
Unsealed – Windsor Park Road
Due to the rural nature of our district, the majority of roads within the Waitaki District are Access and
Low Volume Access roads.
The ONRC has established provisional Customer Level of Service outcomes (CLoS) with a focus on
four main aspects:
Mobility (including travel time reliability, resilience, and optimal speeds)
Safety
Amenity
Accessibility
These outcomes encompass the main features that road users will experience when using the
transportation network. As all councils begin implementing the ONRC, customers should experience
more consistent outcomes within the district and across the country. Additionally, with consistent service
experiences, we expect to see more consistent costs to provide these services.
Section 4 describes the Waitaki District roading network in the context of what customers can expect to
encounter on roads in each given ONRC classification.
The focus of this approach remains on the economic and social role that each road plays in our
community, district, and country and that this role is fulfilled at a cost that is affordable and optimised for
efficiency.
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2 Our Current Performance
WDC has set their level of service through consultation with its customers and stakeholders.
Performance indicators and measures have also been developed as well as some mandatory measures
set by DIA to assess performance against service levels and standards. This requires a clear
understanding of customers’ needs and preferences balanced against the council’s ability to fund those
needs.
The 2013 results saw a sharp decline in satisfaction in the roading network and has highlighted
numerous areas for improvement. The 2014 survey saw this trend in roads reversed and the 2015 survey
made a strong jump back to achieving customer’s satisfaction. Unfortunately, satisfaction in 2016 has
plummeted to below that of 2013. Council is really focussed on trying to improve and reach the target
level of service of 70% satisfaction.
The decline in condition of footpaths was largely attributed to installation of ultra-fast broadband and
dissatisfaction of customers where there are no footpaths available. These issues have being mostly
addressed as Council recognises the demographic change in the Waitaki District and the need for a
good footpath network. The results of the 2014/15 survey increased back up to 51% and it has remained
relatively stable since then.
The main issues highlighted as causes of dissatisfaction were:
Rural sealed and unsealed gravel roads are;
in poor condition, and need upgrading
are potholed, rough, bumpy and uneven
compromised by poor quality of work, materials and patching
The majority of these issues are in line with the network pressures discussed earlier, including changing
demand, climate change and customer expectations.
FIGURE 2: RESIDENT SATISFACTION WITH THE STANDARD OF LOCAL ROADS IN WAITAKI
(WDC Annual Resident Surveys)
Re s i de nt S a ti s fa c ti on w i th the s ta nda rd
of l oc a l roa ds i n the Wa i ta k i Di s tri c t
Year
Satisfied/Very Satisfied
Neither Satisfied or Dissatisfied
Dissatisfied/Very Dissatisfied
Target
100%
80%
60%
40%
20%
0%
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FIGURE 3: RESIDENT SATISFACTION WITH THE STANDARD OF FOOTPATHS IN WAITAKI
(WDC Annual Resident Surveys)
Re s i de nt S a ti s fa c ti on w i th footpa ths i n
the Wa i ta k i Di s tri c t
Year
Satisfied/Very Satisfied
Neither Satisfied or Dissatisfied
Dissatisfied/Very Dissatisfied
Target
100%
80%
60%
40%
20%
0%
Note that after 2016 this is no longer a question in the annual resident survey
The Land Transport activity aims to improve customer satisfaction and enable economic growth
opportunities within a setting of reduced funding.
2.1 Road Safety
Road safety performance was monitored using customer satisfaction surveys until 2015 and no longer
after that. The One Network Road Classification has performance measures around road safety which
are primarily based on the NZTA crash analysis reports which are released annually. This will assist
WDC to identify transport improvements that will reduce crash severity and frequency and which are
also used for the mandatory performance measures set by Department of Internal Affairs.
The total number of local road and SH’s crashes resulting in injury has trended down since 2008. Despite
this, there was a small spike in 2011/12 of serious crashes which reduced thereafter. In 2015/16 there
was a significant spike in fatal crashes which has led to an increase in the trend for fatal crashes.
Although Waitaki District has experienced a decline in serious and minor crashes on our roads since
2002, Driver Distraction, Fatigue, Older Drivers, Young Drivers, Alcohol and Drugs, Straights, Bends
and Intersections remains a continued area of concern.
Addressing the increasing trend in fatal crashes is a high priority for Council and NZTA. There is no
apparent trend with fatal crashes other than speed with distractions and restraints big factors.
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FIGURE 4: INJURY CRASHES ON WAITAKI ROADS
Injury crashes - Local Roads & State Highways
40
35
30
25
20
15
10
5
0
2002- 2003- 2004- 2005- 2006- 2007- 2008- 2009- 2010- 2011- 2012- 2013- 2014- 2015-
03 04 05 06 07 08 09 10 11 12 13 14 15 16
Fatal Crashes 1 5 2 1 2 3 4 7 4 3 4 1 3 9
Serious Crashes 37 31 29 21 21 14 29 12 17 21 13 14 14 18
Total Serious and Fatal Crashes 38 36 31 22 23 17 33 19 21 24 17 15 17 27
Source: NZTA Crash Analysis System – information by financial year
The Road Safety Action Plan will also be implemented to address these concerns as prioritised by the
Communities at Risk Register. Figure 5 below shows how variable activities can be with rural roads, all
intersections and motorcycling being the most significant activities requiring attention.
There are areas of medium concern, fatigue, distraction and pedestrians. There is also emerging focus
around older drivers and restraint use.
For more information around road safety and activities, Council’s current Road Safety Action Plan is
available for scrutiny. An updated version is in place for the 2018-21 RLTP.
Note that the draft GPS (2018) will be updated in 18 months to reflect the new Vision Zero and replace
the 2010-20 Safer Journeys strategy.
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FIGURE 5: COMMUNITIES AT RISK REGISTER
Best
Worse
2.2 Financial Performance
In terms of our current financial performance, the quantity (both cost and quantity) of maintenance,
renewal and new capital works are monitored and reported annually to NZTA in the Annual Achievement
Returns report. These statistics allow for benchmarking versus other similar councils.
ONRC also has measures in place to assess financial performance. The 2016 and 2017 figures
suggested that overall, WDC provides a very cost effective service in the peer group.
Currently, each roading authority is in charge of managing its roading network to its own levels of service.
This leads to variability in levels of service and, accordingly, variability in the cost to deliver the roading
networks. Figure 6 shows the amount of NZTA-subsidised funding that various rural roading authorities
spend per kilometre of their network. It also shows the $/vkt which is the dollars spent per vehicle
kilometre travelled on their network. This measure should account for the costs that are incurred due to
higher traffic loadings on networks.
This indicates that WDC’s subsidised expenditure over the past 10 years has been below average for
the physical size of its network and for the number of kilometres travelled on the network. However it is
difficult to determine whether these differences are due to varying levels of service, contract rates,
weather influences, or other factors. As we shift to a One Network approach, we will be able to accurately
benchmark costs and compare like for like.
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FIGURE 6: WDC COST BENCHMARKING
$/vkt vs $/lane km
for ONRC Peer Group 2006-2016
0.30
0.25
0.20
$/vkt
0.15
0.10
0.05
WDC
0.00
0 2000 4000 6000 8000 10000 12000
$/lane km
Financial Assistance Rates (FAR)
The level of NZTA Funding Assistance Rate (FAR) for WDC will be decreasing by 1% per annum to
55% for 2018/19. If we do not change what we do, we project an investment shortfall of over $480k p.a.
by 2021/22. This is the equivalent of a 1.6% rates increase to make up the shortfall.
The FAR review completed by NZTA in 2014/15 certainly has had a lesser effect on Council investment
than was expected which is welcomed. There are however changes to the FAR for emergency works
which has implications, specifically the first $100,000 is funded out of normal operating budgets. If over
$100,000, emergency works funding is available. This is effectively another 0.3% increase in rates per
year, particularly as Waitaki is experiencing more storm events with climate change.
WDC will re-evaluate its current levels of service in conjunction with ONRC and its associated investment
in the network. WDC have also developed a decision support tool call the Roading Network Plan (RNP)
in collaboration with Dunedin City Council and Central Otago District Council. The RNP is a web-based
GIS tool that allows WDC staff to prioritise investment based on the purpose of routes and the outcomes
sort. Specifically, it analyses the inputs of journeys and route purpose, land use connections, network
safety, economic flows and traffic demand. The RNP enables robust evidenced based decision making
by engaging all stakeholders in investment decisions using a visual advanced asset management tool.
2.3 Strategic and Corporate Goals
Levels of Service for 2018/19 are driven by the overarching objective of the Infrastructure Strategy, the
Community Outcomes and One Network Road Classifications (ONRC).
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Our Vision is: Growing Waitaki – the best place to live, work and play
Our Objectives are:
We enable opportunities for new and existing businesses
We provide and enable services and facilities so people want to stay and move here
We keep our District affordable
We understand the diverse needs of our community
We maintain the safest community we can
Waitaki’s distinctive natural environment is valued and protected.
Council acknowledges that different activities contribute toward the achievement of a range of
community outcomes, and have identified those where the activity makes a significant contribution
toward a particular outcome.
Additionally we seek to meet the national strategic direction provided by the draft Government Policy
Statement on Land Transport 2018/19 – 2028/29 (draft GPS 2018):
“To drive improved performance for the land transport system of which the four strategic
objectives are:
Safety
Access
Environment
Value for money”
With the change in government from National to Labour in September 2017, the draft GPS is
changing. A draft document is out for consultation in March and will only be approved in June this
year. It should be noted that footpath maintenance and renewals is identified in the draft GPS as being
financially assisted. This change has been made to the financials and is reflected in Section 8.
2.4 Our Legislative Requirements
Council has statutory responsibilities under the Local Government Act 2002 and Land Transport
Management Act 2003 to provide the services for this activity.
The Government has provided a clear direction for Land Transport through a combination of legislation,
strategies and statements including
Land Transport Management Act 2003, amendments 2008 and 2013.
New Zealand Transport Strategy 2013
Government Policy Statement on Land Transport Funding 2018 (draft GPS)
National Infrastructure Plan 2015 (NIP)
2010-20 Safer Journeys Strategy to be replaced by a new strategy Vision Zero in 2020
The Otago Regional Land Transport Strategy 2011-41
One Network Road Classifications (ONRC)
Local Government Act 2002
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Nationally and regionally there is a focus on the role of land transport in supporting and growing the
economy; this is balanced with ensuring value for money. This is consistent with Waitaki District
Council’s approach to managing its land transport activities.
2.5 Section 17a Reviews
Section 17A was inserted into the Local Government Act 2002 in 2014. Within three years, Council was
required to complete a review. Council completed a review of roading asset management services in
2014/15. The purpose of the review was to assess whether Council could provide improved asset
management services with Dunedin City. All through the review, workshops were held with Council and
the intent seemed to be that Council favoured having Dunedin City Council provide asset management
services to Waitaki on an annual basis. The service was to cost Council in the region of $500,000 per
year. At the end of the process, Council made the decision to rather remain independent of Dunedin City
and grow the roading unit with two additional personnel which cost in the order of $172,000 per year for
3 years. Council now has a strong performing team that is able to deliver with good improvements in
asset management.
Since that time Council has collaborated with other councils on service delivery; the Roading Network
Plan was an intiative between Dunedin City, Central Otago and ourselves. Another was the accelerated
LED light upgrade where Waitaki has led the supply and installation of LED lights in the lower south
island.
Local Government New Zealand and NZTA have also led the implementation of One Network Road
Classification in New Zealand.
Council is always looking for improved service delivery, either in-house or by collaboration with other
councils.
Section 17A also requires that a review should be completed on any contract within two years of it
finishing. The roading maintenance contract completed on 30 June 2017 and the new started on 1 July
Council briefly considered working with other councils however Waimate District to the north is part of
the south Canterbury service agreement, collaboration and contract. The climate in Central Otago
District and the proximity to Wataki make a service delivery agreement difficult and to the south, Dunedin
City is also too far and the focus is quite different. Council will consider service delivery agreements with
other councils within two years of contracts expiring ie in road marking and street light maintenance.
2.6 Setting the Level of Service
Expectations in the community are important in determining future levels of service and in assessing
how well Council is performing with respect to current levels of service. The Council’s knowledge of
customer expectations and preferences is based on:
• Public meetings;
• Feedback from elected members, advisory groups and working parties;
• Analysis of customer service requests and complaints;
• Consultation via the 10 year Waitaki Long Term Plan and each year through the Annual Plan
process and Annual Customer satisfaction surveys:
• Resident surveys:
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• Annual results customer performance measures identified in ONRC:
• Performance measures as defined by Department of Internal Affairs.
Levels of Service statements and performance measures are being developed as part of the 2018-28
LTP. In developing many of the performance measures, technical language has been avoided to allow
the community to understand the customer outcomes and express their view of the service that is
delivered. Technical measures have also been developed to provide a comparison with those measures
which may be more ‘perception based’.
The Activity Manager is responsible for monitoring the technical measures and providing commentary
to clarify the results of the performance measures.
NZ Transport Agency has developed Customer Levels of Service for the One Network Road
Classification (ONRC) implementation. The Technical Levels of Service and measures have been
defined and outputs from the ONRC Performance Reporting Tool remain under development. WDC will
be required to give effect to both the customer and technical levels of service by the end of 2018/19. We
will be beginning to address the implementation of these levels of service as soon as possible. The
customer levels of service, and how they apply to the Waitaki roading network, are discussed in further
detail in Section 4.
The Department of Internal Affairs (DIA) has introduced the requirement for non-financial performance
measures for smooth travel exposure, reseals for roads and a compliance indicator for footpath as
opposed to setting the specific levels of service which are set by Council. They provide standardised
measures that will allow comparison of councils, regionally and nationally.
Performance measures as per Council’s 2018-28 LTP are shown over the page. More detail on the
WDC, ONRC customer and technical levels of service, as well as the DIA performance measures, can
be found in the WDC Roading Asset Management Plan.
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Performance measures
The table below describes how we will work towards achieving our Community Outcomes through the major levels of service for Roading and how performance
will be measured.
Table 3 Level of Service Performance Measures
Level of Service Performance Measure Current Performance Performance Target
Years 1-3 Years 4-10
2018/19- 2020/21 2021/22 – 2027/28
People are safe on our roads The change from the previous Number of serious injuries Reduce the number of Continued reduction
financial year in the number of and fatalities in 2016/17 serious injuries and in the number of
fatalities and serious injury crashes year = 9 fatalities when serious injuries and
on the local road (not SH) network, compared to the fatalities when
expressed as a number* previous year. compared to the
previous year.
Roads and footpaths are reliable, Percentage of residents who are 47% (2016/17) of residents Increase in percentage 75% of residents are
resilient and accessible satisfied or very satisfied with the are satisfied or very of residents who are satisfied or very
sealed roading network satisfied with the sealed satisfied or very satisfied with the
roading network - satisfied with the sealed sealed roading
improvement from 2015/16 roading network: network
but does not achieve the
target 2018/19 – 50%
2019/20 – 60%
2020/21 – 70%
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Level of Service Performance Measure Current Performance Performance Target
Years 1-3 Years 4-10
2018/19- 2020/21 2021/22 – 2027/28
Percentage of residents who are 27% (2016/17) of residents Increase in percentage 75% of residents are
satisfied or very satisfied with the are satisfied or very of residents who are satisfied or very
unsealed roading network satisfied with the unsealed satisfied or very satisfied with the
roading network - satisfied with the unsealed roading
improvement from 2015/16 unsealed roading network
but does not achieve the
network:
target
2018/19 – 50%
2019/20 – 60%
2020/21 – 70%
Current average
The average quality of ride on Target to be set once Target to be set once
performance for all sealed
sealed roads, measured by smooth roads in 2016/17 is 90% ONRC benchmark ONRC benchmark
travel exposure (STE)* established. In the established.
(79% for urban and 97% for interim for 2015/18
rural)
maintain at 96 or less.
The percentage of the sealed local 7% of sealed network Reseal 7% each year of Reseal 7% each year
road network that is resealed.* resealed. sealed network. of sealed network
The percentage of footpaths within Footpaths are inspected Footpath condition Footpath condition
the district that fall within the annually, Condition (percentage compliant (percentage
specified level of service* 2016/17 - 97.8% with standards) = 96% compliant with
standards) = 96%
WAITAKI DISTRICT COUNCIL STATUS: DRAFT
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